United States Government Accountability Office

Washington, DC 20548

Comptroller General

of the United States

 

Decision

Matter of: EMR, Inc. 

File: B-406625

Date: July 17, 2012

Michael Gross, EMR, Inc., for the protester.

Greg Harding, Esq., Department of the Air Force, for the agency.

Frank Maguire, Esq., and David A. Ashen, Esq., Office of the General Counsel, 

GAO, participated in the preparation of the decision.

DIGEST

Protest that agency improperly coerced protester to raise its labor rates and overall 

price, by advising during discussions that specific labor rates appeared to be low in 

relation to other offerors, and represented a weakness, is denied where information 

provided by agency was accurate, protester was specifically advised to either verify 

the proposed rates or provide revised rates, and record indicates that protester’s 

decision to raise its labor rates was a business decision, not compelled by the 

agency.

DECISION

EMR, Inc., of Lawrence, Kansas, protests the Department of the Air Force’s failure 

to award it a contract under request for proposals (RFP) No. FA6643-11-R-0003, for 

the Command-wide O&M Program Execution Contract (COMPEC II) program, for 

construction and engineering services at Air Force activities. EMR asserts that the 

agency’s evaluation of its labor rates was inconsistent with the RFP’s statement that 

the evaluation of price would be based upon total price. EMR also argues that the 

agency improperly coerced it during discussions into raising its price.1

 1 EMR proceeded with its protest pro se and therefore did not have an attorney who 

could obtain access to nonpublic information pursuant to the terms of a protective 

order. Accordingly, our discussion of the facts of this protest is necessarily general 

in nature to avoid reference to nonpublic information. Our conclusions, however, 

are based on our review of the entire record, including nonpublic information.
Page 2 B-406625 

We deny the protest.

BACKGROUND

The RFP for COMPEC II contemplated the award of multiple indefinite-delivery,

indefinite-quantity contracts to support a range of real property construction and 

engineering services. Id. Pertinent here, the RFP required offerors to provide 

fixed-price fully burdened labor rates in certain identified categories. AR, Tab 9, 

RFP Amend. 3 at 14. The RFP provided for evaluation of proposed prices for both 

price realism and price reasonableness. RFP Amend. 3 at 14, 23. Award under the 

RFP was to be made “on the basis of the lowest evaluated price of proposals 

meeting or exceeding the acceptability standards for non-cost factors,” i.e., on a 

lowest price, technically acceptable basis. RFP Amend. 3 at 16. The RFP provided 

that the total evaluated price “will be the basis for evaluating price for contract 

award decision purposes.” Id. at 24.

EMR submitted a timely proposal in response to the RFP. The contracting officer 

advises that the agency, in evaluating offerors’ prices, not only compared the total 

evaluated prices, but also reviewed 

the rates proposed for each labor category for each [Fiscal Year] by 

each offeror. In order to fairly compare the rates and identify which 

rates were unbalanced, an average rate for each labor category was 

calculated and any rate that was outside the 20% range (+ or -) of the 

average rate was identified to each offeror as being high or low in 

comparison with other offerors. This methodology was applied to all 

offerors for both the field and home rates. All offerors that had rates 

that were outside the 20% range of the average rate were sent ENs 

[Evaluation Notices] to address the low or high rates.

Contracting Officer’s (CO) Statement at 10.

EMR received four ENs, two of which dealt with price and indicated that certain 

rates were low or high in comparison with other offerors. AR, Tab 14. The first EN 

advised EMR that the field rates for certain labor categories “appear to be low in 

relation to other offerors.” Id. at 1. The second EN advised EMR that the home 

rates for certain labor categories “appear to be high in relation to other offerors.” Id.

at 2. In each case, the EN indicated that the proposed rates constituted a 

“weakness,” but further advised that “[t]he offeror shall verify that the prices are 

what it intended to propose or make adjustments as necessary and provide the 

revised prices in response to this Evaluation Notice.” Id.

In its response to the first EN, EMR explained that its proposed field labor rates 

were “developed using a combination of (1) EMR labor rates, (2) [subcontractor] 

[Defense Contract Audit Agency]-approved rates, and (3) anticipated local 
Page 3 B-406625 

contractor rates,” as modified by a capping of rates and modifying the labor mix. 

AR, Tab 15, at 3. Nevertheless, EMR also advised that:

[s]ince the selection committee deemed these reduced field rates as 

being a weakness, we have reduced or removed the voluntary 

capping, where applied, and we revised the architect skill mix to be 

less weighted toward the junior level. Thus, these rates have been 

increased and are now more in line with industry averages, as 

reflected on the revised Attachment L-6. The remaining field rates 

remain unchanged.

Id., at 3-4.

While EMR accordingly raised its proposed field rates for the three labor categories 

identified in the first EN, it also lowered the home rates for the 14 labor categories 

identified in the second EN. CO’s Statement at 12; compare AR, Tab12, EMR 

Original section L, Attach. 6, with AR, Tab 17, EMR FPR section L, Attach. 6. 

However, the lower home rates did not offset the higher field rates, and thus EMR’s

overall price increased. EMR’s revised pricing proposal was determined reasonable 

and balanced. 

The agency subsequently made award to the ten technically acceptable offerors 

with the lowest proposed prices. AR at 3; Source Selection Decision Document,

Feb. 23, 2012. The awards ranged in price from $29,967,750 to $37,526,167. Id. 

EMR’s final revised proposed price was slightly higher than the proposed price of 

the highest-priced awardee, and it did not receive an award. Id.; Protest at 2-3. 

EMR first filed an agency-level protest and then this protest challenging its failure to 

be selected for award.

DISCUSSION

As an initial matter, EMR asserts that the agency’s consideration of its proposed 

labor rates in determining price realism was not permissible under the RFP. 

According to the protester, only total price was to be evaluated under the RFP and 

therefore the agency acted unreasonably in evaluating its proposed labor rates. 

According to the protester, “rates that are lower compared to other contractors [are] 

not a ‘weakness’ at all and should never have been cited as such, especially since 

evaluation criteria should have been based only upon TOTAL price as cited above.” 

Protest at 4-5.

The RFP, however, clearly provided that the agency, in evaluating proposed prices, 

would conduct a price realism analysis, as well as a price reasonableness analysis, 
Page 4 B-406625 

and that those analyses would include consideration of proposed labor rates.2 In 

this regard, with respect to the price realism analysis, the RFP provided that the 

agency could:

[r]eject any proposal, at any time during the evaluation, which is 

unrealistic in terms of performance commitments or based on 

unrealistically high or low price. Such proposals may be deemed to 

reflect a lack of technical competence, a lack of understanding of the 

requirements, an inability to perceive the complexity of the 

requirement, or a lack of sound business judgment.

AR, Tab 9, at 17. Likewise, the solicitation cautioned that the government “may 

reject any proposal that is determined to be unreasonably high or low in price when 

compared to other offerors and Government estimates, such that the proposal is 

deemed to reflect an inherent lack of competence or failure to comprehend the 

complexity and risks of the program.” Id. Further, the RFP advised that the agency 

had “developed a pricing model to evaluate labor costs. The model is based on 

proposed rates in . . . Attachment L-6,” the schedule of fully burdened field and 

home office direct labor rates that offerors were to include in their proposals. RFP 

Amend. 3 at 14, 23. 

EMR also asserts that it was improperly coerced into raising its labor rates, thereby 

putting its proposal outside of the range of awardees. According to the protester, 

“[w]hen the government cites a weakness in a contractor’s proposal, that contractor 

is compelled to revise its proposal in response.” Protest at 4. 

This issue is without merit. During discussions, agencies may not consciously 

mislead or coerce an offeror into raising its prices. Eagle Tech., Inc.

 2 The RFP at some points appears to conflate price reasonableness and price 

realism. Before awarding a fixed-price contract, an agency is required to determine 

that the price offered is fair and reasonable. Federal Acquisition Regulation (FAR) 

§ 15.402(a). An agency's concern in making a price reasonableness determination 

focuses primarily on whether the offered prices are higher than warranted. See

McDonnell Douglas Corp., B-259694.2, B-259694.3, June 16, 1995, 95-2 CPD ¶ 51 

at 9. Although not required, an agency may also provide in the solicitation for a 

price realism analysis in a solicitation for the award of a fixed-price contract for the 

purpose of assessing whether an offeror's price reflects an understanding of the 

contract requirements or the risk inherent in an offeror's approach. Grove Resource 

Solutions, Inc., B-296228, B-296228.2, July 1, 2005, 2005 CPD ¶ 133 at 4-5. In 

general, a price realism determination focuses on whether an offeror’s prices are 

too low. See, e.g., Vital Link, Inc., B-405123, Aug. 26, 2011, 2011 CPD ¶ 233 at 6.

, B-236255, 

Nov. 16, 1989, 89-2 CPD ¶ 468 at 3-4. Here, however, the record does not support 

EMR’s assertion that it was misled or coerced into raising its labor rates. The first 
Page 5 B-406625 

EN advised EMR that the agency had found its field rates for certain labor 

categories to be “low in relation to other offerors,” and EMR does not dispute, nor is 

there any basis in the record to question, the accuracy of this information. AR, 

Tab 14, at 1. Further, the EN did not require EMR to raise its labor rates, but 

instead simply directed that “[t]he offeror shall verify that the prices are what it 

intended to propose or make adjustments as necessary and provide the revised 

prices in response to the Evaluation Notice.” Id. (emphasis added). 

The fundamental purpose of discussions is to afford offerors the opportunity to 

improve their proposals "to maximize the Government's ability to obtain best value, 

based on the requirement and the evaluation factors set forth in the solicitation." 

FAR § 5.306(d); see Gulf Copper Ship Repair, Inc., B-293706.5, Sept. 10, 2004, 

2005 CPD ¶ 108 at 6. In discussions, an agency is required to discuss with each 

offeror still being considered for award, deficiencies, significant weaknesses, and 

adverse past performance information to which the offeror has not yet had an 

opportunity to respond. In addition, the contracting officer also is encouraged to 

discuss other aspects of the offeror’s proposal that could, in the opinion of the 

contracting officer, be altered or explained to enhance materially the proposal’s 

potential for award. FAR § 15.306(d)(3). 

Here, the agency advised EMR of areas of its proposal that needed to be explained 

or altered to enhance the proposal’s potential for award. We will not find coercion in 

discussions where, as here, the agency in good faith provides accurate information 

to an offeror, even where the offeror uses that information to its ultimate competitive 

detriment. See Academy Facilities Management--Advisory Opinion, B-401094.3, 

May 21, 2009, 2009 CPD ¶ 139 at 6 (discussions were not misleading or coercive

where information provided by agency accurately reflected the agency’s concerns); 

SIMSHIP Corp., B-253655.2, Dec. 2, 1993, 93-2 CPD ¶ 293 at 4-5 (agency did not 

coerce or mislead protester into raising its price where, based on concern that

protester had offered unreasonably low prices, agency during discussions advised 

protester to review proposed prices, without stating that the protester was required 

to raise its prices). In sum, EMR’s decision to revise certain prices upward reflected

the exercise of the firm’s own business judgment, not improper conduct by the 

agency. See First Preston Housing Initiatives, LP, B-293105.2, Oct. 15, 2004, 2004 

CPD ¶ 221 at 3.

The protest is denied.

Lynn H. Gibson

General Counsel