Department of Homeland Security

Office of Inspector General 

FEMA's Implementation of Best 
 

Practices in the Acquisition Process
 


OIG-09-31 February 2009 
 

Office of Inspector General 

U.S. Department of Homeland Security

Washington, DC 25028 

February 19, 2009 

Preface 

The Department of Homeland Security (DHS) Office of Inspector General (OIG) was 

established by the Homeland Security Act of 2002 (Public Law 107-296) by amendment 

to the Inspector General Act of 1978. This is one of a series of audit, inspection, and 

special reports prepared as part of our oversight responsibilities to promote economy, 

efficiency, and effectiveness within the department. 

This report presents the results of the audit of the Federal Emergency Management 

Agency acquisition process. We contracted with the independent public accounting firm 

of Urbach Kahn & Werlin LLP (UKW) to perform the audit. The contract required that 

UKW perform its audit according to generally accepted government auditing standards. 

UKW identified ten areas where the acquisition process could be improved. 

UKW is responsible for the attached report dated January 29, 2009, and the conclusions 

expressed in the report. 

The recommendations herein have been developed to the best knowledge available to our 

contractor, and have been discussed in draft with those responsible for implementation. 

We trust that this report will result in more effective, efficient, and economical 

operations. We express our appreciation to all of those who contributed to the 

preparation of this report. 

Richard L. Skinner 
 

Inspector General 
 
 

 

 

 

January 29, 2009 

Mr. Matt Jadacki 

Deputy Inspector General for Office of Emergency Management Oversight 

Office of Inspector General 

Department of Homeland Security 

245 Murray Drive, Building 410 

Washington, DC 20528 

Dear Mr. Jadacki: 

Urbach Kahn and Werlin performed an audit of the Federal Emergency Management 

Agency disaster acquisition process. The audit objective was to determine the extent to 

which the agency has incorporated best practices into the disaster acquisition process. 

This report presents the results of the audit and includes recommendations the agency can 

implement to enhance the acquisition program’s overall success. We performed the audit 

as stipulated in Task Order TPDFIGBPA070009-0070. 

We appreciate the opportunity to have conducted this audit. Should you have any 

questions, or if we can be of any further assistance, please call me at (571) 227-9500. 

 Sincerely,

 Roger Von Elm, CPA, CGFM 

 Partner 
 

Table of Contents/Abbreviations 
 

Executive Summary.........................................................................................................................1
 


Background......................................................................................................................................2
 


Results of Audit ...............................................................................................................................4
 


A Strategic Approach to Acquisition Operations ......................................................................4 
 

Recommendations....................................................................................................................14
 


Management Comments and OIG Analysis ............................................................................15 
 

Improved Processes and Procedures........................................................................................16 
 

Recommendations....................................................................................................................23
 


Management Comments and OIG Analysis ............................................................................24 
 

Appendices 

Appendix A: Purpose, Scope, and Methodology...................................................................25 
 

Appendix B: Management Comments to the Draft Report...................................................27 
 

Appendix C: FEMA Acquisition Management Division Organization Chart ......................29 
 

Appendix D: June 2008 OAM Scorecard..............................................................................30 
 

Appendix E: Report Distribution ..........................................................................................35 
 

Abbreviations 

CFO Chief Financial Officer 
 

CIO Chief Information Officer 
 

CO Contracting Officer 
 

DHS Department of Homeland Security 
 

FEMA Federal Emergency Management Agency 
 

FY Fiscal Year 
 

GAO Government Accountability Office 
 

LMD Logistics Management Directorate 
 

MD Management Directive 
 

OAM Office of Acquisition Management 
 

OCFO Office of Chief Financial Officer 
 

OIG Office of Inspector General 
 

RAMP Remedial Action Management Program
 

UKW Urbach Kahn & Werlin LLP 
 
OIG
 


Department of Homeland Security 

Office of Inspector General 

Executive Summary 

The Federal Emergency Management Agency leads the United 

States in preparing for, preventing, responding to, and recovering 

from disasters. The agency coordinates the federal response to 

disasters that overwhelm the resources of state and local 

governments. Urbach Kahn & Werlin LLP audited the Federal 

Emergency Management Agency to determine the extent to which 

it has incorporated best practices into the acquisition process. 

The Office of Acquisition Management has begun to implement 

recognized best practices. Implementation of additional best 

practices should include: 

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Developing a strategic plan that links to the agency plan or 

outcome-based performance measures that tie 

accomplishments to the agency’s strategic goals; 

Working with program offices to create a more strategic 

approach to acquisition planning and management; 

Developing an oversight process to determine the efficiency 

and effectiveness of the acquisition program; and, 

Creating systems to document and share lessons learned 

throughout the acquisition function. 

To help the Office of Acquisition Management become a “worldclass organization,” we recommend that the office prepare a 

strategic plan and outcome-based performance measures, improve 

the visibility of the acquisitions function, monitor performance, 

accelerate planned acquisition process improvements, and develop 

systems to give all acquisition staff access to lessons learned. 

FEMA concurred with the recommendations and has begun to 

address some of the issues identified in the report. 

FEMA’s Implementation of Best Practices in the Acquisition Process 

Page 1 
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Background 

The Federal Emergency Management Agency (FEMA) Office of 

Acquisition Management (OAM) provides acquisition services to 

support FEMA’s mission.1 In fiscal years (FY) 2006 and 2007, 

FEMA obligated $8.7 billion and $1.8 billion, respectively, to 

contracts for goods and services. FEMA has committed to 

modernizing the acquisition function and to developing a 

procurement staff that operates efficiently and effectively. 

In January 2008, FEMA issued the FEMA Strategic Plan 

2008–2013. The plan 

contains high-level 

goals, themes, and 

strategies. FEMA 

intends to have 

program offices 

develop their own 

strategic plans in line 

with the agency plan. 

FEMA acknowledges 

that it must have an 

efficient acquisition 

process to achieve its 

vision to become the 

FEMA’s Strategic Goals 

1.	 	 Lead an integrated approach that 

strengthens the Nation’s ability to address 

disasters, emergencies, and terrorist events; 

2.	 	 Deliver easily accessible and coordinated 

assistance for all programs; 

3.	 	 Provide reliable information at the right 

time for all users; 

4.	 	 FEMA invest in people and people invest 

in FEMA to ensure mission success; and, 

5.	 	 Build public trust and confidence through 

performance and stewardship. 

FEMA Strategic Plan 2008–2013 

Nation’s Preeminent Emergency Management and Preparedness 

Agency. 

Department of Homeland 

Security (DHS) Management 

Directive (MD) Number 0784 

establishes acquisition 

oversight policies and 

procedures. It requires the 

Director, OAM, to perform a 

self-assessment annually, using 

an Acquisition Evaluation 

Framework included in the 

directive. The self-assessment 

Self-Assessment Elements 

Organizational Leadership and 

Alignment 

Policies and Processes 

Human Capital 

Knowledge and Information 

Management 

Financial Accountability 

DHS MD 0784 

1 In January 2009, OAM was renamed the Acquisition Management Division as part of a FEMA 

Management Directorate realignment. See Appendix C for updated organization chart. 

FEMA’s Implementation of Best Practices in the Acquisition Process 

Page 2 
 

looks at five interrelated elements necessary to promote an 

efficient, effective, and accountable acquisition process. 

DHS derived its Acquisition Evaluation Framework from a U.S. 

Government Accountability Office (GAO) tool called Framework 

for Assessing the Acquisition Function at Federal Agencies 

(Framework).2 The framework identifies “critical success factors” 

that serve as best practice indicators. Implementing best practices 

enhances the likelihood that an acquisition organization will 

consistently achieve desired acquisition outcomes. Excerpts from 

the GAO Framework and DHS MD 0784 are used throughout the 

report to illustrate best practices. 

Recent DHS OIG reports have identified problems with FEMA’s 

acquisition process. One report found that FEMA incurred up to 

$5.6 million in excessive costs when a contractor did not act in the 

best interest of the government.3 This report recommended that 

FEMA develop and implement a quality assurance program for 

contracting staff that would ensure contractors’ compliance with 

contract terms and conditions. Another report found that FEMA 

needed permanent trained staff to: 

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Conduct acquisition planning, 

Obtain independent cost/price analysis prior to contract 

award, and 

Perform contract monitoring, including the inspection and 

acceptance of goods and services. 4 

A third report found that FEMA logistics systems do not track 

disaster goods provided by all external partners.5 

2

 U.S. Government Accountability Office, Framework for Assessing the Acquisition Function at Federal
 


Agencies, GAO-05-218G, September 2005. 
 3

 DHS Office of Inspector General, Costs Incurred for Rejected Temporary Housing Sites, OIG-08-86, 
 

August 2008.


4

 DHS Office of Inspector General, Hurricane Katrina Temporary Housing Technical Assistance 
 

Contracts, OIG-08-88, August 2008. 
 5

 DHS Office of Inspector General, Logistics Information Systems Need to Be Strengthened at the Federal 
 

Emergency Management Agency, OIG-08-60, May 2008. 
 

FEMA’s Implementation of Best Practices in the Acquisition Process 

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Results of Audit 

A Strategic Approach to Acquisition Operations 

FEMA has organized the acquisition function to operate strategically, but 

program offices have not properly integrated the acquisition function into 

their decision-making activities. Effectively planning the acquisition 

process requires attention to the larger context within which acquisitions 

occur. Planning strategically requires that the acquisition function partner 

with other organizational components and assist in assessing internal 

requirements and the impact of external events. FEMA’s acquisition 

function should work with program offices to manage the acquisition 

process, and monitor and provide oversight to achieve desired outcomes 

and to employ knowledge-based acquisition approaches. 

Incorporate Acquisitions into Strategic Planning: FEMA has 

not assigned the acquisition function the proper degree of 

responsibility and authority for strategic planning. Both FEMA’s 

current and prior strategic plans describe the acquisition function 

as a support function rather than a business partner in planning, 

managing, and overseeing the agency’s purchase of goods and 

services. To make strategic decisions that achieve acquisition 

outcomes more effectively 

and efficiently, the 

acquisition function must be 

assigned the appropriate 

degree of responsibility and 

authority for strategic 

planning, management, and 

oversight of the agency’s 

Best Practice Indicator 

Agency managers and staff view 

the acquisition function as a 

business partner rather than a 

support function. 

GAO Framework 

purchases of goods and services. 

FEMA’s acquisition function plays a key role in preparedness, 

protection, response, recovery, and mitigation. To respond to 

disaster needs following the 2005 Gulf Coast hurricanes, FEMA 

programs purchased goods and services totaling $8.7 billion in 

FY 2006; these acquisitions equaled almost 83% of FEMA’s 

FY 2006 $10.5 billion budget authority and equaled FEMA’s 

entire FY 2007 budget authority.6 Acquisition expenditures 

dropped in FY 2007, but they were still significant at $1.9 billion. 

6

 Budget authority (congressional authority to spend federal funds) taken from Homeland Security Budget 

in Brief Fiscal Year 2008, available at http://www.dhs.gov/xabout/budget. 

FEMA’s Implementation of Best Practices in the Acquisition Process 

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Figure 1 illustrates the relationship between FEMA acquisitions 

and its budget authority for FY 2006 and 2007. 

Figure 1. FEMA Acquisitions/Budget Authority in Billions 

FY 2006 FY 2007 

Source: Urbach Kahn & Werlin, based on FEMA data 

Leading organizations see the acquisition function as a business 

partner in supporting mission needs and plan the acquisition of 

goods and services from an agency-wide perspective. Key 

elements of effective strategic planning require that acquisitions 

planning and strategy development support the agency’s mission 

rather than focus on the needs of individual units. To support 

program mission accomplishment, OAM should actively 

participate in program strategic planning activities. 

Recently, FEMA revised its strategic plan and issued strategic 

planning guidance to program offices on how to plan to 

accomplish FEMA’s goals. The strategic plan commits to move 

FEMA program offices away from a focus on their individual 

missions toward 

0 

2 

4 

6 

8 

10 

12 

Acquisitions 

Budget Authority 

an integrated 

goal structure 

that combines 

program efforts 

to use resources 

efficiently 

Best Practice Indicator 

The agency has structures in place that require 

appropriate coordination among stakeholders 

developing and implementing acquisition strategies. 

GAO Framework 

toward a common strategic goal. As FEMA program offices 

develop their strategic plans, they have the opportunity to develop 

integrated acquisition strategies rather than focusing on individual 

program needs. Using this approach, program offices should 

include OAM in strategic decision making throughout the planning 

process. 

FEMA’s Implementation of Best Practices in the Acquisition Process 

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FEMA issued Strategic Planning Guidance for FEMA 

Directorates and Offices (Working Draft, June 2008) to help 

program offices develop strategic plans that outline their strategic 

vision and direction, and to provide more detailed strategies and 

milestones that help implement FEMA’s Strategic Plan. The 

guidance suggests that program offices engage employees, 

partners, and stakeholders early in the strategic planning process, 

and coordinate with other FEMA organizations and with external 

partners and stakeholders. 

After Hurricane Katrina, OAM developed a strategy map to guide 

its internal operations and prepared a scorecard that lists significant 

initiatives and planned actions, and measures progress in 

implementing the initiatives. However, the strategy map is not tied 

to FEMA’s overall mission strategy, and the performance 

measures on the scorecard do not gauge OAM’s contribution to 

FEMA’s mission and goals. 

OAM said that the initiatives were not intended to be connected to 

the FEMA Strategic Plan or goal structure. Instead, the initiatives 

address both findings from various audits or management-initiated 

studies and improvements that OAM wants to make in leadership 

and organizational alignment, knowledge and information 

management, human capital, policies and processes, financial 

accountability, and customer satisfaction. OAM tracks progress 

and updates the scorecard periodically. The scorecard is a helpful 

tool, but it could be more effective if it were tied to FEMA’s 

mission strategy. 

Although the scorecard includes “Outcome Measures,” the 

measures are output or efficiency measures based on FEMA 

Strategic Planning 

Guidance definitions. 

In June 2008, OAM 

reported that it had 

completed action on 

about 40% of the 

initiatives. Appendix 

D contains the June 

2008 scorecard. 

Performance Measures 

Performance measures are standards used 

to evaluate and communicate performance 

against expected results. 

FEMA Strategic Planning Guidance 

FEMA’s Strategic Planning Guidance discusses three types of 

performance measures: 

FEMA’s Implementation of Best Practices in the Acquisition Process 

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Output measures refer to the internal activities of a 

program (i.e., the products and services delivered). For 

example, an OAM output measure is “# of partnering 

sessions conducted each quarter by OAM with partners.” 

Outcome measures describe the intended result of carrying 

out a program or activity. They define an event or 

condition that is external to the program or activity and 

directly important to the intended beneficiaries and/or the 

general public. The OAM scorecard does not include any 

outcome measures. 

Efficiency measures address return on investment, depicted 

in terms of dollars, time, or process. An OAM efficiency 

measure is “% of contracts closed after performance period 

ends.” Quickly closing contracts at their completion allows 

excess funds to be used for new purposes. 

FEMA strategic planning and analysis officials said they expect 

support offices, including OAM, to develop outcome and 

efficiency measures for their activities. Figure 2 shows examples 

of scorecard initiatives and categorizes the associated measure. 

Figure 2. Strategic Scorecard Initiatives and Measures 

Initiative Measure 

Output 

Efficiency 

Develop and implement Contract 

Review Board review process 

% of contract actions 

receiving first time 

Contract Review Board 

approval 

Output 

Compare annual cost to spend to 

standard and develop improvement 

strategies 

Cost to Spend Ratio Efficiency 

Develop plan for community activities # of FEMA/OAM developed 

and sponsored community 

activities 

Output 

Solicit and act on employee 

feedback to improve the workplace 

(e.g., employee satisfaction survey) 

% of employees rating 

overall job satisfaction as 

good or better 

Output 

Source: UKW 

Without outcome-oriented performance measures, it is difficult for 

other offices or directorates and acquisitions staff to see how their 

efforts and accomplishments support FEMA’s goals. For example, 

although partnering sessions are important to improve OAM and 

program relationships, in the long term OAM should determine if 

FEMA’s Implementation of Best Practices in the Acquisition Process 

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the partnering sessions result in more timely, comprehensive 

contracts that enable FEMA: 

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To deliver easily accessible and coordinated assistance 

(FEMA Goal 2), and 

To build public trust and confidence through performance 

and stewardship (FEMA Goal 5). 

FEMA’s Strategic Planning Guidance should recognize that 

contribution and require program offices to strategically plan 

acquisitions and include the acquisition function in strategic 

planning activities. 

Further, OAM should 

strategically plan and 

link its activities to 

the FEMA mission 

and goals, and 

develop performance 

measures that 

evaluate and 

Organizational Leadership and Alignment 

Agency leaders need to effectively communicate 

the importance of the acquisition function to the 

agency’s mission and use meaningful metrics in 

measuring the effectiveness of the acquisition 

function. 

DHS MD 0784 Guidebook 

communicate OAM’s 

contribution to FEMA’s overall disaster preparedness and response 

mission. Without clear goals and measures, OAM cannot be sure 

it is using resources to best support the FEMA mission. 

OAM Reorganized and Increased Staff: Even after reorganizing 

and increasing staff, OAM still does not have the resources or 

stature it needs to create a more strategic approach to acquisition 

planning and management. Traditionally, organizations 

fragmented the 

acquisition function 

among business units, 

with each unit 

responsible for its own 

acquisition activities. 

Leading organizations 

have transformed the 

Organizational Leadership and Alignment 

How an agency organizes and manages its 

acquisition function affects its ability to 

operate strategically. 

GAO Framework 

acquisition function from one focused on supporting various 

business units to one that is strategically important to the bottom 

line of the whole organization. 

FEMA’s Implementation of Best Practices in the Acquisition Process 

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Since the 2005 Gulf Coast hurricanes, FEMA has reorganized the 

headquarters acquisition function and more than doubled 

nationwide acquisitions staff, from 98 positions in 2006 to 237 

positions allocated in 2008. In 2007, FEMA’s Office of 

Management reorganized the headquarters Chief Procurement 

Office to create OAM. OAM has three primary branches. 

The Acquisition Program and Planning Branch works with 

FEMA program offices, other federal agencies, and industry to 

reduce risk, minimize cost, and maximize the efficiency of 

response activities. The branch is studying FEMA-wide spending 

and supplier pricing practices to enable FEMA to acquire 

commodities more economically. The branch has begun working 

with program offices to: 

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Improve the overall quality and consistency of procurement 

packages; 

Improve collaboration and communication between OAM 

and program office stakeholders and to educate and train 

program office staff; 

Improve the awareness of roles and responsibilities of all 

participants in the acquisition life cycle; and 

Develop strategies to support high-priority acquisitions and 

review their status to manage risk. 

The Acquisition Operations Branch houses headquarters 

contracting officers (CO) and other acquisition staff who make 

purchases for FEMA program offices. The branch recruits, hires, 

trains, and deploys contracting staff who respond to disasters. 

OAM handled 10,905 contract actions in FY 2007 and anticipated 

handling more than 11,000 during FY 2008. 

The Acquisition Policy and Legislation Branch responds to 

congressional inquiries and develops policies and procedures to 

govern acquisition activities. The branch develops strategies and 

processes to address a number of OAM’s strategic scorecard 

initiatives. 

In the past, FEMA has been criticized for not anticipating the need 

for disaster response supplies and services and not having contracts 

in place to support response activities before a disaster occurs. 

FEMA’s Implementation of Best Practices in the Acquisition Process 

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Working with program offices, the reorganized larger OAM had 

close to 70 pre-positioned contracts and interagency agreements in 

place at the beginning of the 2008 hurricane season. 

OAM has not reached its authorized staffing level. Not 

maintaining authorized staffing levels impedes OAM’s ability to 

timely implement its planned initiatives. For additional 

information on staffing levels and other acquisitions workforce 

issues, see Challenges Facing FEMA’s Acquisition Workforce, 

OIG-09-11, November 2008. 

Partnering in Program Operations: FEMA could better position 

acquisition staff to ensure proper purchasing decisions during 

disaster response activities. Organizational alignment refers to the 

appropriate placement of the acquisition function in the 

organization, with stakeholders having clearly defined roles and 

responsibilities. The goal of organizational alignment is to ensure 

that the acquisition function enables FEMA to meet its overall 

missions and needs. To meet that goal, the acquisition function 

needs proper management support and visibility within the 

organization. 

In the past, FEMA managers viewed acquisitions as a support 

function rather than a business partner, but program offices are 

beginning to recognize the value of including acquisitions staff in 

important decisions. A proposed change in the disaster response 

decision-making framework could position acquisitions staff 

within the framework to improve collaboration and coordination 

and to add visibility regarding acquisition controls and protocols 

for mitigating fraud, waste, and abuse. 

During disaster response 

activities, decisions to buy goods 

and services are made by a group 

of officials that can include 

representatives of federal, state, 

and local governments and other 

organizations, and is led by a 

coordinating officer; however, 

Critical Success Indicator 

Agency leaders view the 

acquisition function as a 

strategic asset in support of 

core agency missions and 

business processes. 

GAO Framework 

OAM does not have a “seat at the 


table.” 


An acquisitions representative is not a part of the decision-making 

group. The acquisitions representative (a CO), reports to the 

FEMA’s Implementation of Best Practices in the Acquisition Process 

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Finance/Administration Section and has little opportunity to 

influence decisions because of this reporting structure. To address 

this, FEMA’s Disaster Operations Directorate issued draft changes 

to the disaster response framework that included creating a highlevel acquisition advisor position. 

The acquisition 

advisor would 

counsel the Federal 

Coordinating 

Officer, thus 

increasing the 

visibility of 

acquisitions and 

giving acquisitions 

the opportunity to 

help the Federal 

Coordinating 

Officer avoid 

Acquisition Advisor 

• Counsels the Federal Coordinating Officer within 

the Joint Field Office on the acquisition/contracting 

collaboration and coordination...and, commensurate 

visibility regarding acquisition controls and 

protocols for mitigating fraud, waste, and abuse. 

• Advises the Federal Coordinating Official of the 

legal and regulatory requirements regarding the 

acquisition function and uses performance metrics 

to systematically review the disaster acquisition 

execution. 

FEMA Draft Standard Operating Procedure 

critical errors in acquisitions. The CO position that is part of the 

Finance/Administration Section would remain. As of July 2008, 

the proposed changes had not been implemented. 

Partners’ Inventories: Access to partner inventory information 

could help optimize FEMA’s response and recovery acquisition 

strategy. State and local governments are the first line of response 

to a disaster. When FEMA is called upon to supplement state and 

local efforts, FEMA acquires goods from other federal agencies 

and from nonfederal organizations to supplement its on-hand 

stocks. However, FEMA does not have full visibility of its 

partners’ inventories, increasing the risk that it will make unsound 

purchasing decisions based on incomplete information. 

FEMA’s Implementation of Best Practices in the Acquisition Process 

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FEMA’s Logistics 

Management 

Directorate (LMD) 

provides logistics 

support, services, and 

operations to FEMA. 

To determine 

acquisition 

requirements, LMD 

needs to know its 

Before an emergency, logistics may entail: 

Acquiring equipment 

Stockpiling supplies 

Preparing a response inventory 

During an emergency, logistics may entail: 

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Moving back-up equipment into place 

Arranging for medical support, food, 

and transportation 

www.fema.gov 

partners’ response inventories, inventory locations, and planned 

purchases. Then it can address inventory gaps by contracting with 

suppliers. FEMA refers to inventory gaps as its “bucket list.” 

Figure 3 illustrates the inventory gap. 

Figure 3. Emergency Response Inventory Sources and Gap

 Source: UKW prepared using FEMA data 

FEMA has a system that tracks its own inventories and facilitates 

the movement of property and commodities from the time they are 

FEMA’s Implementation of Best Practices in the Acquisition Process 

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ordered through shipping and receipt.7

 FEMA’s method of 

tracking what partners have in their inventories is manual and 

recorded on computer spreadsheets, which are updated 

periodically. 

LMD officials said they want to have an improved inventory 

tracking system within 2 years. Their vision for the automated 

system includes tracking FEMA inventories via barcodes; 

integrating FEMA logistics with FEMA financial and procurement 

databases; and tracking partners’ disaster response inventories, 

inventory locations, and planned purchases. Online access to 

partners’ inventories would enable LMD to make more informed 

decisions as it prepares its acquisition strategy and planning, 

reducing FEMA’s risk of being over- or under- prepared. 

Acquisition Evaluation: OAM is not using effective oversight 

processes to protect the integrity and accountability of the 

acquisition function and to ensure that it operates efficiently and 

effectively. Organizations recognized for best practices cite 

leadership as the most critical factor in providing direction and 

vision and, if necessary, changing an organization’s culture. 

Congress recognized the 

critical role of leaders in 

providing direction and 

vision by requiring certain 

civilian agencies to designate 

a chief acquisition officer to 

take primary responsibility 

for managing acquisitions. 

Critical Success Indicator 

Senior leadership and management 

support monitoring to assess the quality 

of internal control performance and to 

ensure that issues are promptly resolved. 

GAO Framework 

The officer’s responsibilities include evaluating the performance of 

acquisition programs, advising the agency head on business 

strategies, and directing acquisition policy for the agency. 

As part of the scorecard initiative, OAM plans to establish an 

acquisition oversight program. An OAM manager said that the 

oversight would emphasize compliance with: 

Laws and regulations, and 

Contract file maintenance requirements. 

7

 The DHS OIG report Logistics Information Systems Need to Be Strengthened at the Federal Emergency 

Management Agency, OIG-08-60, May 2008, discusses FEMA’s efforts to improve the information 

systems supporting its disaster response logistics processes. 

FEMA’s Implementation of Best Practices in the Acquisition Process 

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OAM originally planned to establish the oversight program by 

April 30, 2008, but according to the June scorecard, the due date 

had slipped to December 30, 2008. The OAM manager 

responsible for creating the program intends to first establish an 

oversight framework and plan, and then create the oversight 

program. She did not think any reviews would take place for a 

couple of years, to allow time to train staff and give them a chance 

to become familiar with the oversight program. 

Implementing the oversight program as originally planned would 

have helped OAM determine if it was following federal, 

departmental, and FEMA acquisition rules and regulations. The 

planned program could be more useful to management if it 

includes reviews of the efficiency, effectiveness, and economy of 

the acquisitions process. Without an oversight process, OAM is 

not taking adequate steps to determine if its policies and processes 

are achieving intended outcomes or to identify instances where 

actions are needed to improve the acquisition process. 

Recommendations 

We recommend that the Administrator, Federal Emergency 

Management Agency: 

Recommendation # 1: Emphasize the important role of the 

acquisition function in strategic planning. Specifically, the 

Administrator should require program offices to coordinate with 

the Office of Acquisition Management and other stakeholders early 

and throughout the strategic planning process to develop efficient, 

effective, and economical acquisition strategies. 

We recommend that the Director, Office of Acquisition 

Management, Federal Emergency Management Agency: 

Recommendation #2: Develop an Office of Acquisition 

Management strategic plan and performance measures that link 

acquisition activities to FEMA’s goals, identify short- and longterm priorities, and develop multi-year work plans to address 

priorities. The Director should also redirect staff or request 

increases to staffing levels to address priority initiatives and 

integrate acquisitions into program office activities. 

FEMA’s Implementation of Best Practices in the Acquisition Process 

Page 14 
We recommend that the Administrator, Federal Emergency 

Management Agency: 

Recommendation #3: Finalize the draft Joint Field Office 

Standard Operating Procedures to include the Acquisitions Advisor 

reporting to the Federal Coordinating Officer and participating 

with other top leaders of the Joint Field Office command structure 

in responding to disaster situations. 

We recommend that the Director, Office of Acquisition 

Management, Federal Emergency Management Agency: 

Recommendation #4: Work with the Logistics Management 

Directorate to develop an automated system to capture data on 

partner response inventories and to develop an acquisition strategy 

to deal with inventory gaps. 

Recommendation #5: Accelerate development and 

implementation of the acquisition oversight program. The 

oversight program should be comprehensive and should include 

acquisition economy, efficiency, and effectiveness as well as 

compliance with laws and regulations and contract file 

maintenance. The Office of Acquisition Management should 

coordinate with the Office of Inspector General as it plans the 

reviews. 

Management Comments and OIG Analysis 

FEMA concurred with the recommendations and said that it would 

provide a detailed corrective action plan in its 90-day response. 

With regard to recommendation #5, FEMA said that it has drafted 

an acquisition oversight program policy directive; it is developing 

a business case to add a Contracting Administration and Quality 

Control Branch to the Management Directorate’s Acquisition 

Management Division; and, it has developed audit guidelines and 

checklists and identified activities to audit in FY 2009. We 

consider FEMA’s current and planned actions responsive to the 

recommendations. 

FEMA’s Implementation of Best Practices in the Acquisition Process 

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Improved Processes and Procedures 

Policies and processes embody the basic principles that govern the way an 

agency performs the acquisition function. Ideally, policies and processes 

clearly define the roles and responsibilities of agency staff, empower 

people across the agency to work together effectively to procure desired 

goods and services, and establish expectations for stakeholders to 

strategically plan acquisitions and proactively manage the acquisition 

process. This approach requires engagement by all relevant stakeholders, 

including program offices, financial managers, human capital officials, 

and other appropriate officials. 

Leading organizations develop effective knowledge management systems 

to document and share best practices to improve performance and to 

transfer lessons learned. Leading organizations have found that more 

cooperative business relationships with suppliers have improved their 

ability to respond to changing business conditions. They establish 

commodity managers for key goods and services. These commodity 

managers are involved in defining requirements with internal customers, 

negotiating with providers of goods and services, and assisting in 

resolving issues after the contract is awarded. 

Sharing Best Practices: One of the methods leading 

organizations employ to improve operations is identifying and 

sharing lessons learned and best practices among stakeholders. 

OAM needs a systematic approach to identify and share lessons 

learned and best practices identified during external and internal 

reviews. Without some sharing mechanism, acquisition staff 

cannot readily take advantage of efficiencies gained through 

program improvements, and OAM risks missing opportunities to 

improve the acquisition function. 

FEMA has systems that could be used more effectively to support 

acquisition process improvements. In July 2003, FEMA launched 

the Remedial Action Management Program (RAMP) to identify 

and remedy operational and programmatic issues encountered in 

disaster response and recovery operations and exercises and to 

capture lessons learned and smart practices that would become part 

of a Web-based national library accessible to all levels of 

government. OAM said that the RAMP process is ineffective and 

more like a “complaints forum,” and that it does not usually use 

the RAMP process to document best practices or technical issues 

that arise during disaster response activities. 

FEMA’s Implementation of Best Practices in the Acquisition Process 

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After a disaster, FEMA 

program offices assess their 

response performance during a 

process known as a “hot wash.” 

“Hot wash” results should be 

posted to the RAMP library. 

But FEMA officials said that 

the process was informal and they do not document all issues and 

problems, nor do they vet all issues and problems with appropriate 

FEMA officials and managers to determine an appropriate course 

of action. Further, the RAMP library does not capture the results 

of all “hot washes.” 

Hot Washes Identify: 

Operational efficiencies 

and effectiveness 

Contracting effectiveness 

OAM Branch Chief 

OAM offers acquisition staff access to Virtual Acquisition 

OfficeTM (VAO), an acquisition knowledge management 

subscription service. VAO provides online access to information 

on the contracting process, quality checklists, samples, and a 

reference library. It includes links to current FEMA acquisition 

policies and procedures. 

OAM does not have a process to communicate acquisitions best 

practices used in one region throughout FEMA. For example, one 

regional CO compared the cost of purchasing office supplies with 

purchase cards to the cost using local vendor blanket purchase 

agreements at a field 

office. The comparison 

showed that using blanket 

purchase agreements was 

more efficient and 

economical. The region 

changed its purchasing 

process consistent with the results, but the results were not shared 

throughout FEMA. If other regions had performed the analysis, 

they might have identified opportunities for similar efficiencies 

and economies. 

Best Practice Indicator 

Lessons learned are identified and shared 

among stakeholders. 

GAO Framework 

OAM cannot rely on the RAMP library for a complete list of 

lessons learned and best practices identified during disaster 

response and recovery operations. It does not have a process for 

collecting and sharing individual lessons learned. To improve the 

acquisition program, OAM should begin sharing best practices. It 

may be able to do so by posting them to VAO. 

FEMA’s Implementation of Best Practices in the Acquisition Process 

Page 17 
Teamwork and Communications: OAM needs to improve 

communications and coordination with program offices. Leading 

organizations have found that an acquisition function that 

successfully supports agency missions employs a multidisciplinary 

approach. This approach requires engagement by all stakeholders 

to identify needs, assess alternatives, develop cost-effective 

acquisition approaches, and help ensure financial accountability. 

OAM is working to ensure that acquisitions staff communicates 

effectively with program offices by: 

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Having contracting officials attend program office staff 

meetings so that they can work with the offices on 

acquisition issues; 

Using portfolio managers to guide the acquisition process; 

and 

Training program officials on developing complete 

acquisition packages and on the acquisition life cycle. 

OAM and stakeholders 

are not always 

successful in working 

together to identify 

needs, assess 

alternatives, and 

coordinate as an 

acquisition action 

Best Practice Indicator 

Stakeholders work on an ongoing basis to 

define key business and acquisition drivers 

and to understand each other’s needs. 

GAO Framework 

moves through the process. Program officials said that they did 

not understand why it took so long to get an acquisition action 

through the process to an award. 

For example, a program official met with OAM in August 2007 to 

discuss a trailer maintenance and deactivation contract. Because of 

confusion between the program office and the OAM contracting 

specialist, and because OAM changed contracting specialists twice 

during the acquisition process, the contract had still not been 

awarded in July 2008, 11 months later. 

COs were challenged in working with program offices, as well. 

COs said that program offices had unrealistic expectations of the 

timing for contract award and service delivery and that program 

officials did not understand the acquisition process. COs at all 

FEMA’s Implementation of Best Practices in the Acquisition Process 

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levels said that incomplete acquisition packages continue to be the 

number one cause of a breakdown in the acquisition process. 

OAM and program officials must work together to develop a 

common understanding of each other’s challenges and needs to 

execute their roles and responsibilities effectively. 

Strategic Sourcing: OAM has begun strategic sourcing activities, 

but it needs to accelerate its efforts to take advantage of likely 

acquisition economies and efficiencies. Leading organizations 

establish commodity managers to manage key supplies and 

services that have high dollar value or significant impact on agency 

mission. Commodity managers should be involved in defining 

requirements with internal clients, negotiating with potential 

providers of goods and services, and assisting in resolving 

performance or other issues after the contract is awarded. Such 

relationships have led to lower costs, higher quality, and shorter 

product design and delivery times. 

In May 2005, the Office 

of Management and 

Budget issued a 

memorandum to federal 

Chief Acquisition 

Officers, Chief 

Financial Officers (CFO), and Chief Information Officers (CIO) 

directing them to develop and implement agency strategic sourcing 

efforts. The office defined strategic sourcing as the collaborative 

and structured process of critically analyzing an organization’s 

spending and using this information to make business decisions 

about acquiring commodities and services more effectively and 

efficiently. 

Best Practice Indicator 

The agency has established commodity 

managers for key goods and services. 

GAO Framework 

In September 2007, FEMA initiated its program for strategically 

managing the sourcing function. FEMA designed the strategic 

sourcing program to become “a better steward of its resources by 

systematically developing, documenting and applying sustainable 

strategies to deliver measurable best value to FEMA.”8 The 

strategic sourcing program includes goals and a timeline. The 

timeline called for the program to be operational by September 

2008. OAM is making progress in implementing its plan, but 

much remains to be accomplished. 

8

 Excerpt from FEMA Strategic Sourcing Program, Concept of Operations. 

FEMA’s Implementation of Best Practices in the Acquisition Process 

Page 19 
FEMA has begun two strategic sourcing initiatives. Under one 

initiative, OAM worked with the FEMA CIO on a spend analysis 

of wireless telecom acquisition data, which resulted in potential 

cost savings of $2.2 million in FY 2007. Under the second 

initiative, OAM secured CIO executive sponsorship for an 

integrated product team/commodity council for information 

technology operation and maintenance requirements.9 OAM 

developed a detailed project plan and had begun a spend analysis. 

The information technology contract has a value of approximately 

$800 million over 5 years. OAM estimates that FEMA can save 

from $9 million to $28 million per year through this initiative. 

FEMA does not have individual contracts in place to ensure that it 

receives the best value for purchases such as office supplies, 

commodities, and services. However, OAM has assigned 

commodity managers to gain industry knowledge, which should 

result in more favorable negotiation outcomes with suppliers. 

OAM also plans to create additional commodity councils. OAM 

intends to address other areas, including creating an Information 

Technology Depot and developing more strategic sourcing contract 

initiatives for food, water, shelter, transportation, and medicine. 

OAM officials said that some of the main challenges they need to 

overcome to achieve their goals are: 

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Establishing more effective supplier relationships and 

employing more rigorous supplier selection to create a 

strong supplier base; 

Establishing commodity managers to manage key goods 

and services more effectively; 

Establishing and maintaining effective communication and 

feedback systems with suppliers; 

Developing strong performance metrics to better gauge 

performance; 

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 The IT Core Commodity Council, consisting of DHS Heads of Contracting Activities, CIOs, CFOs, and 

senior Component representatives, is chartered to develop and implement a DHS-wide strategy to acquire 

information technology (IT) hardware/software and services effectively and efficiently to meet DHS 

mission needs. A key emerging acquisition strategy, endorsed by the Office of Procurement Operations 

and the DHS CIO, is to acquire IT goods and services via DHS contracts EAGLE and FirstSource. 

FEMA’s Implementation of Best Practices in the Acquisition Process 

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Overcoming current resource constraints for generating 

good data analysis and reporting; and 

Maintaining current, complete, and accurate contract 

information on enterprise-wide agreements. 

FEMA needs to increase resource commitments to take advantage 

of strategic sourcing opportunities. Through strategic sourcing, 

FEMA could acquire supplies and services more efficiently and 

effectively. 

Planning for Continuing Resolutions: Ineffective planning and 

guidance delayed acquisition requests during the FY 2008 

continuing resolution. In FY 2008, OAM wanted to shift major 

acquisitions from year-end, spreading them throughout the fiscal 

year, and to have all planned acquisitions awarded before hurricane 

season. Officials expected program offices to initiate about 11,000 

acquisition requests, but as of mid-February 2008, 5 months into 

the fiscal year, OAM had received only 2,600 (24%) of the 

requests 

projected. OAM 

officials 

attributed the 

lower-thananticipated 

number of 

requests to two 

factors: 

Best Practice Indicator 

There is awareness of current and pending 

legislation and its potential implication on the 

agency’s acquisition policies, processes, and 

practices. 

GAO Framework 

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FEMA operated under a continuing resolution from 

October 1 through December 26, 2007, when the President 

signed the Consolidated Appropriations Act of 2008 (PL 

110-161) authorizing funding for DHS, including FEMA, 

for FY 2008. 

Although program 

offices could have 

prepared and 

submitted acquisition 

requests, they 

hesitated to prepare 

the requests during 

the continuing 

OCFO FY 2008 Continuing 
 

Resolution Guidance 
 

• No contracts in anticipation of 

funding increases 

• Renewals, but at the same scope 

of work as FY 07 

• No new contract actions 

FEMA OCFO 

FEMA’s Implementation of Best Practices in the Acquisition Process 

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resolution because they were concerned that funding was 

not assured. 

Timely guidance and direction are important to ensuring that 

contracts are in place to provide services and supplies in time to 

support disaster response activities. OAM and the Office of the 

Chief Financial Officer (OCFO) said that early acquisition 

planning was the subject of many staff meetings early in the fiscal 

year. However, OCFO direction focused on contracting 

limitations, and OAM did not issue official direction and guidance 

on when acquisition packages were due until March 10, 2008. 

In addition, the Acting CFO said that historically FEMA has been 

slow to submit acquisition requests during a continuing resolution. 

Given FEMA’s history, OCFO and OAM should have given 

program managers direction on ways to accelerate acquisition 

requests during or at the end of the continuing resolution. 

System Integration: FEMA has acknowledged for some time that 

the IT systems supporting the acquisition function are not fully 

integrated with financial systems, do not produce good reports to 

assist management in overseeing the acquisition process, and 

contain unreliable data. When buying goods and services, leading 

organizations have implemented comprehensive systems that 

integrate contracting, financial, and other data to support 

management decision making and external reporting requirements. 

FEMA realizes 

that the current 

acquisition 

systems do not 

provide all the 

information 

stakeholders need 

and do not include 

Integrated Contracting Systems 

Track events throughout the life of a contract 

Monitor contractor performance and work progress 

Record and validate the receipt of goods and 

services 

Link to human capital systems 

GAO Framework 

tools to plan or monitor transactions. FEMA had planned to 

implement a new system to support the acquisition process, but the 

implementation was placed on hold in October 2008 pending a 

DHS-wide technology competition. Since then, FEMA updated its 

current contracting system. 

Officials said that the new system would have improved the 

acquisition system interface with FEMA’s integrated financial 

management information system and would have improved 

FEMA’s Implementation of Best Practices in the Acquisition Process 

Page 22 
management reporting processes. But the system would not 

interface with important logistics systems, including: the logistics 

information system, which tracks personal property such as 

computers, cell phones, and generators; and the total asset 

visibility system, which contains a group of systems that support 

logistics activities such as property and supply movements from 

ordering through shipping. FEMA’s new system should interface 

with other federal, state, and local government and private sector 

inventory systems. 

Recommendations 

We recommend that the Director, Office of Acquisition 

Management, Federal Emergency Management Agency: 

Recommendation #6: Implement a knowledge-based 

management system to document lessons learned and implement 

best practices for acquisitions. The system should be readily 

available and promoted as a library of best practices. 

Recommendation #7: Expand the use of portfolio managers to 

foster strong communication between contracting officials and 

program offices, and continue to expand on the Office of 

Acquisition Management’s participation in program office staff 

meetings to improve communications and understanding of the 

acquisition function. 

Recommendation #8: Devote the resources necessary to 

implement a more robust strategic sourcing program. 

Recommendation #9: Provide program offices early and clear 

guidance on the development of acquisition plans and requirements 

for submission of acquisition packages that includes how to 

address issues associated with processing requests during a 

continuing resolution. 

We recommend that the Administrator, Federal Emergency 

Management Agency: 

Recommendation #10: Begin work to integrate acquisition, 

logistics inventory, and financial systems as soon as possible. 

FEMA’s Implementation of Best Practices in the Acquisition Process 

Page 23 
Management Comments and OIG Analysis 

FEMA concurred with the recommendations and said that it would 

provide a detailed corrective action plan in its 90-day response. 

We consider FEMA’s planned actions responsive to the 

recommendations. 

FEMA’s Implementation of Best Practices in the Acquisition Process 

Page 24 
APPENDIX A 

Purpose, Scope, and Methodology 

DHS OIG contracted with Urbach, Kahn, and Werlin LLP to audit 

FEMA’s acquisition process. The overall purpose was to 

determine the extent to which FEMA had adopted a system of 

internal controls and information systems that embrace best 

acquisition practices during “normal” and “emergency” situations. 

Specifically, the purpose was to determine: 

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Has FEMA implemented best practices and improved 
 

systems in its acquisition operations? 
 

What are the strengths and weaknesses of FEMA’s 

acquisition process in both normal and emergency situations? 

Are FEMA’s information systems designed and operating to 

facilitate operations and to support the acquisition process? 

We performed the audit according to the July 2007 revision of the 

Government Auditing Standards. We concentrated on the period 

from FY 2006 through July 2008. 

For guidance on best practices for the acquisition process, we 

relied extensively on the GAO Framework for Assessing the 

Acquisition Function at Federal Agencies10, and DHS 

Management Directive 0784, Acquisition Oversight Program11 . 

We interviewed representatives of the U.S. Army National Guard 

and the U.S. Agency for International Development about how 

their acquisition function supports their disaster response activities. 

Also, we reviewed documents, such as media articles and press 

releases obtained through Internet searches, to gather background 

information on best practices used by other acquisition 

organizations. 

To establish criteria for this review, we researched U.S. laws and 

regulations; DHS directives; FEMA policies and guidance; and 

Office of Federal Procurement Policy requirements and guidelines 

applicable to acquisition activities. We reviewed assessments of 

the FEMA acquisition process prepared by FEMA contractors, 

prior reports, and congressional testimony by FEMA, DHS OIG, 

and GAO to identify their findings and recommendations related to 

FEMA’s acquisition process. 

We performed work at FEMA headquarters in Washington, DC; at 

the Joint Field Office in Brentwood, TN; at regional offices in 

10 GAO Framework for Assessing the Acquisition Function at Federal Agencies, September 2005. 11 DHS Management Directive 0784, December 19, 2005. 

FEMA’s Implementation of Best Practices in the Acquisition Process 

Page 25 
APPENDIX A 

Purpose, Scope, and Methodology 

Atlanta, GA, and Boston, MA; and at the Transitional Recovery 

Offices in New Orleans and Baton Rouge, LA. We selected the 

offices based on disaster acquisition activity or reputation. We 

held discussions with FEMA officials throughout the audit and 

discussed initial audit results with FEMA officials on 

November 5, 2008. 

FEMA’s Implementation of Best Practices in the Acquisition Process 

Page 26 
APPENDIX B 

Management Comments to the Draft Report 

FEMA’s Implementation of Best Practices in the Acquisition Process 

Page 27 
 

APPENDIX B 

Management Comments to the Draft Report 

FEMA’s Implementation of Best Practices in the Acquisition Process 

Page 28 
APPENDIX C 

FEMA Acquisition Management Division Organization Chart 

Source: FEMA 

FEMA’s Implementation of Best Practices in the Acquisition Process 

Page 29 
 

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APPENDIX D 

June 2008 OAM Scorecard 

Outcome Measure 2009 Target Initiative Initiative Initiative Initiative 

Status Lead Due Date 

Customer Perspective 

Trusted, Conduct customer New Chief, APP 9/15 release 

Committed, High­ % of customers satisfied satisfaction survey of survey12 

Value Partners or completely satisfied 

with the office’s overall 

performance 

100% Establish servicelevel agreements 

with customers 

New Chief, APP 

10/31/08 World-Class 

Service Provider 

Financial Accountability Perspective 

Good Stewards of 

Funds Cost to Spend Ratio 1.9 

Compare annual 

cost to spend to 

standard and 

develop 

improvement 

strategies as needed 

Complete/ 

Ongoing 

(quarterly) 

Chief, APL October 31 

each year 

(month 

after Fiscal 

Year 

closes) 

The average 

ratio for 

FY 2007 

was 1.48. 

Develop and New Chief, APL 06/30/08 

execute standard 

% of contracts closed closeout strategy 

after POP ends within 

specified timeframe 

based on contract type 

85% Develop and 

implement contract 

closeout 

New Chief, APL 12/30/2008 

improvements 

Optimized Funds 

Management 

including goals 

Identify and 

implement 

New Chief, APL 09/30/08 

strategies for 

Prompt payment reducing interest 

percentage Goal (Based 

on OMB’s Governmentwide Goal) 

98% penalties 

Implement 

consistent invoice 

New Chief, APL 9/30/08 

processing 

procedures with 

Finance 

Educate program 

offices on 

Complete/ 

ongoing 

Bus Spec, 

APP 

01/31/08 

developing realistic 

IGCEs 

Complete the Complete Chief, AO 09/19/07 

business case for 

% of contracts awarded implementation of a 

Best Value within plus 10% or 80% reverse auction tool 

minus 20% of IGCE and implement 

follow-up strategy 

Expand use of 

reverse auctioning 

for simple 

commodities across 

Complete Chief, AO 10/31/07 

FEMA 

12 After this initial survey in September 2007, OAM will attempt to solicit feedback from each customer once per year. 

FEMA’s Implementation of Best Practices in the Acquisition Process 

Page 30 
 

 

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APPENDIX D 

June 2008 OAM Scorecard 

Outcome Measure 2009 Target Initiative Initiative 

Status 

Initiative 

Lead 

Initiative 

Due Date 

Policies & Processes Perspective 

Responsive and 

Efficient 

Operations 

% of contract actions 

receiving first-time 

CRB approval 

90% 

Develop and 

implement CRB 

review process 

Complete/ 

Ongoing 

Chief, APL 06/09/08 

Establish best 

practices for CRB 

process 

Complete Chief, APL 06/09/08 

Proactive Planning 

% decrease in number 

of J&As for urgent & 

compelling 

20% 

Educate customers 

on acquisition 

process 

Issue advance 

notification of 

expiring contracts 

Ongoing 

New 

Chief, APL 

Chief, AO 

05/30/08 

2/28/09 

% of planned 

requirements awarded 

before hurricane season 

100% 

Develop acquisition 

strategies aligned to 

budget 

Create an 

acquisition lifecycle 

tracker database for 

hurricane 

requirements 

Complete/ 

Ongoing 

Complete/ 

Ongoing 

Chief, APL 

Chief, APP 

Program 

Analyst, APP 

03/31/08 

01/31/08 

Collaborative 

Relationships 

# of partnering sessions 

conducted each quarter 

by OAM with partners 

Fed 

Partners: 3 

Industry 

Liaison: 2 

Customer 

Ops: 12 

Develop partnering 

CONOPS plan and 

validate with 

partners 

Complete Chief, APL 03/15/08 

% of actions that reflect 

good business decision 

making during a 

disaster response 

80% 

Incorporate change 

to the ICS that 

brings acquisition 

to the forefront 

Conduct acquisition 

oversight program 

Complete/ 

Ongoing 

Ongoing 

Chief, AO 

Chief, APL 

8/1/08 

12/30/08 

Establish and track Complete/ Procurement 01/31/08 

Operational 

Excellence % of actions that meet 

socioeconomic goals 

100% of 

individual 

goals 

socioeconomic 

goals 

Train customers on 

the use of FIDO 

ongoing 

Complete 

for FY 

2008 

Analyst 

Procurement 

Analyst 

05/30/08 

% of PBSA contracts 

Provide training on 

PBSA 

Complete Chief, APL 3/31/08 

with implemented 

QASPS 

95% Compile data from 

FPDS-NG and 

PRISM 

New Chief, AO 2/28/09 

FEMA’s Implementation of Best Practices in the Acquisition Process 

Page 31 
 

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APPENDIX D 

June 2008 OAM Scorecard 

Outcome Measure 2009 Target Initiative Initiative 

Status 

Initiative 

Lead 

Initiative 

Due Date 

Human Capital Perspective 

Employer of 

Choice for the 

Acquisition 

Professional 

Voluntary turnover 

rate 15% or less 

Implement internal 

OAM rotation 

program 

New Chief, AO 9/30/08 

Regularly assess 

root causes of 

turnover 

New Chief, AO 08/30/08 (1st 

time) 

% of employees rating 

overall job satisfaction 

as good or better 

100% 

Communicate 

opportunities for 

rewards and 

incentives 

Complete Program 

Analyst 

02/15/08 

Develop and 

implement new 

employee 

orientation system 

Complete/ 

Ongoing 

Chief, APL / 

Acq Bus Spec 

01/15/08 

Solicit and act on 

employee feedback 

to improve the 

workplace (e.g., 

employee 

satisfaction 

survey) 

Ongoing Chief, APL / 

Competitive 

Sourcing Mgr/ 

Admin Spec 

8/30/08 

Dedicated, Agile, 

and 

Knowledgeable 

Workforce 

% of workforce that 

meets or exceeds 

certification and 

required training for 

their position 

100% 

Clarify staff 

certification 

requirements by 

position 

Assess workforce 

certification gaps 

and implement 

fulfillment strategy 

Align certification 

requirements with 

recruitment and 

promotion 

activities 

Conduct training 

workshops 

New 

New 

New 

Ongoing 

Chief, APL 

Chief, APL / 

Bus Spec, 

APP 

Chief, APL / 

Bus Spec, 

APP 

Chief, APL 

07/30/08 

07/30/08 

07/30/08 

8/30/07 – 

ongoing 

FEMA’s Implementation of Best Practices in the Acquisition Process 

Page 32 
 

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APPENDIX D 

June 2008 OAM Scorecard 

Outcome Measure 2009 Target Initiative Initiative 

Status 

Initiative 

Lead 

Initiative 

Due Date 

Human Capital Perspective 

% of employees who 

are cross-functionally 

trained each year 

5% 

Develop and 

implement crosstraining program 

New Chief, APL 12/30/08 

% of DHS Interns 

arriving at FEMA who 

are assigned to Sections 

& have trained mentors 

and supervisors 

100% 

Develop and 

implement FEMA 

program of 

participation in 

DHS Acquisition 

intern program 

(including training 

of mentors & 

supervisors) 

New/ 

ongoing 

Section Chief, 

AO 

7/15/08 for 

first group 

Dynamic and of interns

Sustainable 

Organization 

% of employees who 

meet their annual IDP 

goals 

100% 

Incorporate IDP 

requirements into 

performance plans 

New Chief, AO 08/30/08 

# of FEMA/OAM 

developed and 

sponsored community 

activities 

1 per year 

Develop plan for 

community 

activities 

Ongoing Competitive 

Sourcing Mgr 

06/30/08 

Compelling 

Culture % of outstanding 

employee contributions 

that are 

recognized/awarded 

100% 

Develop and 

implement 

informal employee 

recognition 

program 

Complete Program 

Analyst 

4/30/08 

Knowledge & Information Management Perspective 

% of contracts 

accessible through 

contract writing 

system 100% 

Effective End-to- Implement PRISM New Chief, AO 2/28/09

End Knowledge & 

Information 

Management 

Enterprise 

% of contract files 

centrally managed 80% 

Design, develop 

and implement 

contract file 

management 

system in electronic 

and paper format 

Ongoing Contract 

Specialist, AO 

8/29/08 

FEMA’s Implementation of Best Practices in the Acquisition Process 

Page 33 
 

 

 

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APPENDIX D 

June 2008 OAM Scorecard 

Outcome Measure 2009 Target Initiative Initiative 

Status 

Initiative 

Lead 

Initiative 

Due Date 

Knowledge & Information Management Perspective 

Model Leaders 

Promoting 

Leadership at All 

Levels % of employees who 

clearly understand the 

OAM mission and 

objectives 

100% 

Conduct quarterly allhands meetings 

Ongoing Director, 

OAM 

10/24/0713 

Conduct weekly staff 

meetings 

Ongoing Branch 

Chiefs/ 

Section Chiefs 

Weekly 

Have employees 

attend FEMA senior 

leadership meetings 

New Executive 

Officer 

As deemed 

appropriate 

% of staff who want 

mentoring and are 

being mentored by 

leaders in our 

organization 

100% 

Develop internal 

OAM mentoring 

program 

Complete Contract 

Specialist, AO 

4/30/08 

Abbreviations: 

AO Acquisition Operations Branch 

APL Acquisition Policy & Legislation Branch 

APP Acquisition Program & Planning Branch 

Acq Bus Spec Acquisition Business Specialist 

CRB Contract Review Board 

FIDO Federal Interagency Database Online 

FPDS-NG Federal Procurement Data System-Next Generation 

OMB Office of Management and Budget 

IDP Individual Development Plan 

IGCE Independent Government Cost Estimate 

J&As Justification and Approvals 

Mgr/Admin Spec Manager/Administrative Specialist 

PBSA Performance Based Service Agreement 

POP Period of Performance 

QASPS Quality Assurance Surveillance Plans 

13 Future all-hands meetings will be held the last month of each quarter. 

FEMA’s Implementation of Best Practices in the Acquisition Process 

Page 34 
APPENDIX E 

Report Distribution 

Department of Homeland Security 

Secretary 

Deputy Secretary 

Chief of Staff 

Deputy Chief of Staff 

General Counsel 

Executive Secretary 

Director, GAO/OIG Liaison Office 

Assistant Secretary for Office of Policy 

Assistant Secretary for Office of Public Affairs 

Assistant Secretary for Office of Legislative Affairs 

Acting Administrator, Federal Emergency Management Agency 

FEMA Audit Liaison (Job Code DC7A02) 

Office of Management and Budget 

Chief, Homeland Security Branch 

DHS OIG Budget Examiner 

Congress 

Congressional Oversight and Appropriations Committees, as appropriate 

FEMA’s Implementation of Best Practices in the Acquisition Process 

Page 35 
ADDITIONAL INFORMATION AND COPIES 

To obtain additional copies of this report, please call the Office of Inspector General (OIG) at (202) 254-4199, 

fax your request to (202) 254-4305, or visit the OIG web site at www.dhs.gov/oig. 

OIG HOTLINE 

To report alleged fraud, waste, abuse or mismanagement, or any other kind of criminal or noncriminal 

misconduct relative to department programs or operations: 

• Call our Hotline at 1-800-323-8603; 

• Fax the complaint directly to us at (202) 254-4292; 

• Email us at DHSOIGHOTLINE@dhs.gov; or 

• Write to us at: 

DHS Office of Inspector General/MAIL STOP 2600, 

Attention: Office of Investigations - Hotline, 

245 Murray Drive, SW, Building 410, 

Washington, DC 20528. 

The OIG seeks to protect the identity of each writer and caller.