Final Version of the GAO Cost Guide
It appears that this is the final version of the GAO cost estimating guide which provides guidance on preparing viable cost estimates both early in the process and throughout the life cycle. Congratulations to the team. This is a great contribution to the industry and can, if used as intended create more successful projects. I especially appreciate the focus on preparing a viable estimate of cost, schedule, etc. then applying earned value management (EVM) to that. So often, in the past we have seen a chasm between those that generated estimates and the EVM people. These are two sides of the same coin. The introduction follows:
Because federal guidelines are limited on processes, procedures, and practices for ensuring credible cost estimates, the Cost Guide is intended to fill that gap. Its purpose is twofold—to address generally accepted best practices for ensuring credible program cost estimates (applicable across government and industry) and to provide a detailed link between cost estimating and EVM. Providing that link is especially critical, because it demonstrates how both elements are needed for setting realistic program baselines and managing risk. As a result, government managers and auditors should find in the Cost Guide principles to guide them as they assess (1) the credibility of a program’s cost estimate for budget and decision making purposes and (2) the program’s status using EVM. Throughout this guide, we refer to program cost estimates that encompass major system acquisitions, as well as government in-house development efforts for which a cost estimate must be developed to support a budget request. The basic information in the Cost Guide includes the purpose, scope, and schedule of a cost estimate; a technical baseline description; a work breakdown structure (WBS); ground rules and assumptions; how to collect data; estimation methodologies; software cost estimating; sensitivity and risk analysis; validating a cost estimate; documenting and briefing results; updating estimates with actual costs; EVM; and the composition of a competent cost estimating team.6 The guide discusses pitfalls associated with cost estimating and EVM that can lead government agencies to accept unrealistic budget requests—as when risks are embedded in an otherwise logical approach to estimating costs. Since the Department of Defense (DOD) is considered the leader in government cost estimating, the guide relies heavily on DOD for terminology and examples that may not be used by, or even apply to, other federal agencies. Chapters 1–17 of the Cost Guide discuss the importance of cost estimating and best practices associated with creating credible cost estimates. They describe how cost estimates predict, analyze, and evaluate a program’s cost and schedule and serve as a critical program control planning tool. Once cost estimates have been presented to and approved by management, the chapters also establish the basis for measuring actual performance against the approved baseline plan using an EVM system. Those chapters explain how EVM, if it is to work, must have a cost estimate that identifies the effort that is needed—the work breakdown structure—and the period of time over which the work is to be performed—the program schedule.7 In essence, the cost estimate is the basis for establishing the program’s detailed schedule, and it identifies the bounds for how much program costs can be expected to vary, depending on the uncertainty analysis. When all these tasks are complete, the cost estimate can be used to lay the foundation for the performance measurement baseline (PMB), which will measure actual program performance. Since sound acquisition management requires more than just a reliable cost estimate at a project’s outset, chapters 18–20 provide guidance on converting the cost estimate into an executable program and a means for managing program costs. Our program assessments have too often revealed that not integrating cost estimation, system development oversight, and risk management—three key disciplines, interrelated and essential to effective acquisition management—has resulted in programs costing more than planned and delivering less than promised. Therefore, chapters 18–20 address best practices in implementing and integrating these disciplines and using them to manage costs throughout the life of a program. OMB has set the expectation that programs will maintain current estimates of cost. This requires rigorous performance-based program management, which can be satisfied with EVM. Chapters 18–20 address the details of EVM, which is designed to integrate cost estimation, system development oversight, and risk management. Additionally, for programs classified as major acquisitions—regardless of whether the development work is completed in-house or under contract—the use of EVM is a requirement for development, as specified by OMB.8 The government may also require the use of EVM for other acquisitions, in accordance with agency procedures. Since linking cost estimating and EVM results in a better view of a program and allows for greater understanding of program risks, cost estimators and EVM analysts who join forces can use each other’s data to update program costs and examine differences between estimated and actual costs. This way, scope changes, risks, and other opportunities can be presented to management in time to plan for and mitigate their impact. In addition, program status can be compared to historical data to better understand variances. Finally, cost estimators can help EVM analysts calculate a cumulative probability distribution to determine the level of confidence in the baseline. But bringing a program to successful completion requires knowing potential risks and identifying ways to respond to them before they happen—using risk management to identify, mitigate, and assign resources to manage risks so that their impact can be minimized. This requires the support of many program management and engineering staff and it results in better performance and more reliable predictions of program outcomes. By integrating EVM data and risk management, program managers can develop current estimates at completion (EAC) for all levels of management, including OMB reporting requirements. Therefore, chapters 18–20 expand on these concepts by examining program cost planning, execution, and updating.
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