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“Curry conducted new research for the current edition, and has 48 best practices
in contracting, which provide a detailed guide for government professionals and
students … This third edition by Curry is a welcome and needed addition to the
field.”
Robert Schick, John Jay College of Criminal Justice, United States.
Contracting for Services in State and
Local Government Agencies

Contracting for Services in State and Local Government Agencies: Best Practices
for Public Procurement, Third Edition provides state-of-the-art tools for best
practices in the procurement of services at state and local levels, throughout
the procurement cycle. Including lively case studies and research conducted
with state and local agencies across the United States, this award-winning book
provides management advice and tips on compliance to reduce costs, select
the best-qualified contractors, manage contractors’ performance, and prevent
corruption and waste.
Utilizing the results of new research across states, cities, counties, and
institutes of higher learning, this third edition offers 18 all-new best-practice
documents as well as updated methodologies and templates, including, but not
limited to: a full-length and short form request for proposal (RFP), a full-length
and short form pro forma contract (PFC), a letter contract, a sample estimate
at completion, a contract amendment template, and a form for evaluation of
proposals. Special consideration is given to obtaining services and products
during states of emergency. Several additional resources for instructors and
professionals are available online, including templates and PowerPoint slides.
The roadmap and templates contained in this book and available online to
readers will prove essential to state and local government agency contracting
professionals and other officials and employees called upon to participate in
the drafting of solicitations, writing sole source justifications, writing scopes
of work, serving on advance contract planning and source selection teams,
recommending award of contracts, or assisting in the management of those
contracts.

William Sims Curry is president of WSC Consulting, a small business

specializing in consulting on government procurement. Curry served as
an Air Force systems procurement officer and was employed in purchasing
management for prime contractors on NASA’s Hubble Space Telescope, the
Department of Energy’s Positron Electron Project, and numerous Department
of Defense programs. He has authored three books and numerous articles and
research papers on government procurement. Curry is a Certified Professional
Contracts Manager and a Fellow by the National Contract Management
Association.
PUBLIC ADMINISTRATION AND PUBLIC POLICY
A Comprehensive Publication Program
EDITOR-IN-CHIEF
DAVID H. ROSENBLOOM
Distinguished Professor of Public Administration
American University, Washington, DC

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Contracting for Services in
State and Local Government
Agencies
Best Practices for Public Procurement

Third Edition

William Sims Curry

Cover image: Getty Images
Third edition published 2023
by Routledge
605 Third Avenue, New York, NY 10158
and by Routledge
4 Park Square, Milton Park, Abingdon, Oxon, OX14 4RN
Routledge is an imprint of the Taylor & Francis Group, an informa business
© 2023 William Sims Curry
The right of William Sims Curry to be identified as author of this
work has been asserted in accordance with sections 77 and 78 of the
Copyright, Designs and Patents Act 1988.
All rights reserved. The purchase of this copyright material confers the
right on the purchasing institution to photocopy or download pages
which bear a copyright line at the bottom of the page. No other parts
of this book may be reprinted or reproduced or utilised in any form
or by any electronic, mechanical, or other means, now known or
hereafter invented, including photocopying and recording, or in any
information storage or retrieval system, without permission in writing
from the publishers.
Trademark notice: Product or corporate names may be trademarks
or registered trademarks and are used only for identification and
explanation without intent to infringe.
First edition published by Routledge 2009
Second edition published by Routledge 2016
Library of Congress Cataloging-in-Publication Data
Names: Curry, William Sims, author.
Title: Contracting for services in state and local government agencies:
best practices for public procurement / William Sims Curry.
Identifiers: LCCN 2022011855 (print) | LCCN 2022011856 (ebook) |
ISBN 9781032306148 (hardback) | ISBN 9781003305910 (ebook)
Subjects: LCSH: Contracting out–United States–States. | County
services–United States–Contracting out. | Municipal services–United
States–Contracting out. | Public contracts–United States–States.
Classification: LCC HD3861.U6 C87 2023 (print) | LCC HD3861.
U6 (ebook) | DDC 352.5/382130973–dc23/eng/20220419
LC record available at https://lccn.loc.gov/2022011855
LC ebook record available at https://lccn.loc.gov/2022011856
ISBN: 9781032306148 (hbk)
ISBN: 9781032330969 (pbk)
ISBN: 9781003305910 (ebk)
DOI: 10.4324/9781003305910
Typeset in Bembo
by Deanta Global Publishing Services, Chennai, India
Access the Support Material: www.routledge.com/9781032306148
Disclaimer

The subject matter included in this book should not be considered as legal
advice for specific cases or for general legal guidance. Readers should seek
such advice from their own legal counsel. The material in this text is pro-
vided solely for educational and informational purposes. However, all possible
circumstances could not be anticipated; therefore, individual situations may
require further evaluation prior to application of the solutions or recommenda-
tions presented herein.
To my wife, Kirsten, for her continued patience and support while I
was writing this third edition.
— Bill
Contents

List of Figures xiii

List of Tables xiv
Preface xv
Acknowledgements xvii
About the Author xviii

1 Research Conducted on Best Practices for Public Procurement 1

2 Introduction, Advance Procurement Planning, and the

Procurement Cycle 42

3 Socioeconomic and Competitive Procurement 59

4 Solicitation Documents—Information for Prospective

Contractors 76

5 Management of Pre-Proposal Communications and

Evaluation of Proposals 101

6 Protests 129

7 Contract Negotiations, Ethics, and Conflicts of Interest 146

8 Contract Document 170

9 Contract Terms and Conditions 189

10 Short Form Contracts, Short Form Requests for Proposals,

Emergencies, and Letter Contracts 218
xii Contents
11 Contract Review, Execution, and Audit 229

12 Contract Administration and Closeout 245

Appendices 267

Appendix A: Glossary of Terms 269

Appendix B: Best Practices Request for Proposals (RFP) 291

Appendix C: Best Practices Pro Forma Contract (PFC) 320

Appendix D: Short Form Request for Proposals (SFRFP) 364

Appendix E: Short Form Pro Forma Contract (SFPFC) 388

Appendix F: Sample Letter Contract: The sample letter

contract is provided for use as a letter contract template 428

Appendix G: Sole Source Justification/Approval Form 430

Appendix H: Reference Checklist 434

Appendix I: Formulas for Weighing All Criteria Included in

This Book 436

Appendix J: Form for Evaluation of Proposals 438

Appendix K: Estimate at Completion 440

Appendix L: Contract Amendment 441

Appendix M: Short Form Contract Amendment 443

Appendix N: Sample Show Cause Letter 445

Appendix O: Contractor Performance Report 447

Index 449
Figures

8.1 Pro Forma Contract Variable Information 172

8.2 Example of a Poorly Crafted Scope of Work 185
8.3 Corrected Version of the Same Scope of Work 186
10.1 Short Form Contract Amendment 222
11.1 Contract Review and Execution 232
12.1 Estimate at Completion 250
12.2 Contract Amendment 255
C.1 Pro Forma Contract Variable Information 321
C.2 Exhibit I—Contractor/University Meeting Schedule 327
C.3 Exhibit II—Project Milestone Schedule 327
C.4 Exhibit III—Contract Reports and Other Deliverables 328
E.1 Pro Forma Contract Variable Information 389
E.2 Exhibit I—Contractor/University Meeting Schedule 394
E.3 Exhibit II—Project Milestone Schedule 395
E.4 Exhibit III—Contract Reports and other Deliverables 395
G.1 Sole Source Justification/Approval Form 432
H.1 Reference Checklist 435
J.1 Form for Evaluation of Proposals 439
K.1 Estimate at Completion 440
L.1 Contract Amendment 442
M.1 Short Form Contract Amendment 444
O.1 Contractor Performance Report 448
Tables

1.1 Best Practices for Public Procurement 3

4.1 Comparison Between Types of Solicitations 80
4.2 Numeric Scoring Scheme for Subjectively Scored Criteria 89
4.3 Weighting of Proposal Evaluation Criteria 89
4.4 Example of Total Weighed Score (TWS) Calculation 97
5.1 Assignment of Scores Based on a Scale of 1–10 111
5.2 Adjectival Scoring Example 111
5.3 Color-Coded Scoring Example 112
5.4 Rubrics-Based Scoring Example 114
5.5 Superiority of 70–100 Scoring Scale for Subjectively
Rated Criteria 115
5.6 Weighting of Criteria to Reflect Their Importance 116
5.7 Scoring Scales for Subjectively Rated Criteria 117
5.8 Anomalous versus Recommended Formulas for Weighing
Subjectively Rated Scores 120
5.9 Equidistant Raw Scores Yield Equidistant Weighed Scores
with Recommended Formula 121
5.10 Discrepancy of Anomalous Formula and Accuracy of
Recommended Formula for Objectively Scored Criteria
When Low Scores Are Favorable to the Public Entity 123
5.11 Average or Consensus Scores 124
5.12 Calculation of Total Weighed Score (TWS) 125
5.13 Scoring Scale for Contractor Presentations 126
5.14 Grand Total Scores 126
12.1 Summary of Price Changes 253
B.1 Numeric Scoring Scheme for Subjectively Scored Criteria 298
B.2 Weighting of Proposal Evaluation Criteria 299
B.3 Example of Total Weighed Score (TWS) Calculation 307
D.1 Numeric Scoring Scheme for Subjectively Scored Criteria 371
D.2 Weighting of Proposal Evaluation Criteria 372
D.3 Example of Total Weighed Score (TWS) Calculation 379
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 "Sinä et saa taistella Konstantinin kanssa", rukoili hän vielä. "Hän
on pyytävä sinulta anteeksi tahi lähettävä pyytämään anteeksi."

"Se on jo tapahtunut."

"Anna sen riittää."

Minä en vastannut, ja hän käsitti sen myöntymykseksi.

Iltapäivällä me matkustimme pois. Emme välittäneet siitä,

uskottiinko meidän selittelyjä vai ei. Me tahdoimme päästä sieltä —
pois — ikäänkuin kaikki olisi ollut sillä autettu.

Seuraavat kaksi päivää olivat kauheita. Minä olin kuin lyöty

ihminen, joka on saanut ankaran iskun, ei kuitenkaan kyllin kovan
kaataakseen hänet maahan, mutta kuitenkin vienyt tasapainon ja
kyvyn pysyä pystyssä Sellainen oli minun sieluntilani. Minä olin
kadottanut mieleni tasapainon. Ahdistava levottomuus vaivasi minua,
ja vähäisinkin aihe oli kylliksi saattamaan minut suunniltani. Kotona
oli minun mahdotonta olla. Ja kadulla pelkäsin tapaavani tuttavia,
varsinkin sellaisia, jotka myös olivat tahi vielä pahemmin olivat olleet
Altenhofin tuttavia.

Minut valtasi epäileväinen uteliaisuus. Jospa hän tietää tämän!

Minä tunsin vastustamatonta halua selittää hänelle asian,
puhdistautua, ja unohdin samalla aivan, ettei täällä vielä kukaan
tiennyt kihlauksestani. Älä luule, tahdoin minä huutaa jokaiselle
erikseen — älä luule, että minä olen se petetty tyhmeliini, jona sinä
minua pidät! — näinhän minä hänen päältään, että hän piti minua
tyhmeliininä — minä tiedän kaikki, mutta minä katson asiaa toiselta
kannalta kuin sinä. Sama oikeus kaikille, ei ainoastaan miehille,
seuraus on siis aivan yksinkertaisesti — —
 Kuinka usein pidinkään tämän puheen, pitemmin,
seikkaperäisemmin, tietenkin itsekseni. Oikeastaan onhan se turhaa,
että minä näin yksityisesti käsittelen asiaa, oikaisin minä itseäni —
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kirjoittamaan; jos ei ensi sunnuntain aamuna — — Onhan kuitenkin
näytelmäni valmis ja tulee esitettäväksi ensi talvena; se on oleva
jonkinlainen testamenttini, niin sanoakseni viimeinen tahtoni.

Olin tuskin ennättänyt D:n kaupunkiin, kun jo tapasin Nordaun

kadulla. Hän oli aikalailla hämmästynyt nähdessään minut täällä,
sillä minä olin sanonut hänelle, että minä loma-ajaksi matkustaisin
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kai tulet olemaan sulhaspoikana. — Etkö? Tehän olitte niin hyviä
tuttavia. Oletko kuullut, mitä on ajateltu panna toimeen. Kaikki hänen
hyljätyt rakastajattarensa tulevat seuraamaan hääkulkuetta puettuna
surupukuun ja sitten kirkonovella laulamaan: 'Stirb durch uns du
Ungeheuer!'

"Hän nauroi ääneen omalle sukkeluudelleen ja minä olin

tuntevinani kuinka piirteeni jäykistyivät.

"Pahinta oli kuitenkin olla yhdessä Evan kanssa. Ja me olimme

melkein aina yhdessä. Se tuntui minusta melkein velvollisuudeltani.
Ikäänkuin yhteisestä sopimuksesta emme kosketelleet ensinkään
sitä, mikä oli tapahtunut ja kuitenkin tiesimme kumpikin, että me
herkeämättä sitä ajattelimme. Syyttäjän ankaruudella olisin tahtonut
vetää hänet tilille jokaisesta hetkestä, mitkä hän oli viettänyt
Altenhofin kanssa, ja kuitenkin olin minä toiselta puolen kiitollinen
siitä, että tiesin niin vähän.
 "Minä en ollenkaan tiedä, mitä me puhelimine toisillemme ja minä
olen vakuutettu ettei hänkään sitä tiedä. Kumpikin tiesimme, että ne
olivat vain sanoja, sanoja, sanoja, joita tulvi huuliltamme, aivoilla ei
ollut niiden kanssa mitään tekemistä.

"Ainoastaan yksi ajatus oli minulle selvä. Onko tällä tavalla aina
jatkuva? Läpi koko elämän? Sehän on sietämätöntä. Ja minä odotin
aikaa, jolloin kaikki oli toisenlaista. Tämän täytyy muuttua
toisenlaiseksi. Eva huomasi sen kyllä. Silloin minä uskoin, että nämä
tarkoituksettomat sanani voisivat peittää mielentilani häneltä.

"Nyt minä muistan kuinka hän vähitellen muuttui. Ensin oli hän
usein puhunut siitä kuinka menetettyäni kunnioitukseni häntä
kohtaan en voisi rakastaa häntä, mutta sitten ei hän enää virkkanut
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ei ja taas ei! Minä en ole kadottanut kunnioitustani sinua kohtaan.
Minä tiedän, että sinä olet hyvä, jalo ja uljas nainen, yksi parhaita.
Minä pidän sinua suuressa arvossa, paljoa korkeammalla kuin noita
hienoston tyhmiä hanhia, jotka tuntevat elämää vain kertomusten
mukaan. Sinussa on luonnetta, persoonallisuutta. Sinä olet
muodostanut elämäsi oman mielesi mukaan, sinä teet työtä, sinä
olet hyödyksi toisille ja kaiken tämän omilla voimillasi. Niin, minä
kunnioitan sinua, uskollinen, minä tahtoisin olla sinun ystäväsi,
samoin ajatteleva ystävä. Ystävyyttä, toveruutta niinkuin miesten
kesken. Mutta se suloinen, sanomaton 'jokin', mikä
vastustamattomasti kiehtoo meitä, mikä taikavoimatpa kietoo meidät
teihin — se on kadonnut.
 "Minä pidän sinua suuressa arvossa, ja kun minä nään sinun
totiset, kalpeat pikku kasvosi, valtaa minut sanomaton sääli. Minä
säälin sinua Mutta sääli, Eva, on rakkauden kuolema. Teissä
naisissa, sanotaan, voi säälistä syntyä rakkautta, se on hitunen
äidillisyyttä, mikä sekoittuu teidän rakkauteenne. Meidän miesten ei
ole niin; varsinkaan ei minun. Siellä missä sääli ilmestyy, siellä
kuolee rakkaus. Mutta sitä sinä et koskaan ole kokeva — Eva. Se
olisi julmaa, se olisi vääryyttä. Minä rakastan sinua, rakastan sinua!

"Minun täytyy vielä mainita jotakin aivan omituista. Kuta lähemmä

sunnuntai joutui — nämä kaksi päivää tuntui minusta kahdelta
viikolta — sitä enemmän haihtui vihani Altenhofia kohtaan. Voin jo
ajatella häntä tuntematta vastenmielisyyttä. Eikö hänellä pohjaltaan
ollut oikein? Olinko minä ehkä asettanut Evan liian korkealle? — Hyi,
mikä ruma ajatus! Mutta ajatus oli kuitenkin ajateltu. — Se sopii
kuitenkin hyvin niihin mielipiteisiin ja pyrkimyksiin, joita minä
harrastan. Voidaan taistella olevien lakien ja tapojen muuttamiseksi,
mutta käytännössä asettaudutaan niitten mukaan vasta sitten kuin
on tämä muutos saavutettu. Muutoin ei olisi ihmeteltävää, jos
asetettaisiin samalle tasalle, kuin ne, jotka toimivat samoin ilman
erityistä vakaumusta.

"Minä en tahdo tuomita Altenhofia. Ajatteles, jos minä ampuisin

hänet vaivaiseksi niin vähää ennen häitä — taikka hän minut.
Mieluummin hän minut. Silloin olisin kaikesta päässyt. Tahi olisi se
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kerralla.

"Hän minut. Senhän voi edeltäpäin arvata. Tunnottomana

kannettiin minut asuntooni, tunnottomana makasin minä siellä
kauvan. Kuinka kauan, sitä en tiedä — mutta hyvin kauan sen on
täytynyt olla. Ensimäinen tunne, minkä muistan, on epäselvä, mutta
suloinen tunne. Niin suloista saada oikein levätä! Ei ajatella mitään,
ei puhua mitään, — saada ajatuksia ja sanoja ulkoapäin, nähdä
asioita, joita ei ole olemassa, jotka ovat olleet, jotka tulevat
tapahtumaan. Nähdä nykyinen sukukunta kuin loppuun palanut
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"Oletko se sinä, Eva? Minä rakastan sinua. Usko minua — minä

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kun minun piti unohtaa? Me unohdamme sen ja me tulemme sitten
onnellisiksi. Saat olla varma siitä. Minä kunnioitan sinua niin suuresti.
Ja sitten voin minä taas suudella sinua. Sinullahan on musta puku,
Eva. Niin tänäänhän lienee Altenhofin häät, sinähän menet
surusaattoon. 'Stirb durch mich, du Ungeheuer!' Älä itke, Eva. Mutta
älä pidä mustaa pukua päälläsi, minä pyydän!"

"Olenkohan minä uneksinut kaiken tämän? Olenko minä lausunut

tämän ääneen? Herra tohtori, oliko minun morsiameni täällä, kun
minä olin sairaana?

"Hän ei ollut huoneessa, kun minä virkistävän unen perästä ensin

aukasin silmäni. Ainoastaan lääkäri istui vuoteeni ääressä,
ystävällinen vanha herra, ei Nordau. Hän olisi nähnyt enemmän, kuin
mitä halusin hänen näkevän, ja hän tunsi Altenhofin liiankin hyvin.

"Kyllä hän oli täällä. Hän läksi pois vasta eilen, kun minä vakuutin
hänelle, ettei Teillä ollut mitään vaaraa. Hän sai kirjeen, missä häntä
pyydettiin sukulaistensa luo."

"Mutta hänellähän ei ole ketään sukulaisia väitin minä hieroen

silmiäni.
 "On kyllä! Kun mitä tarvitaan, niin on meillä kaikilla sukulaisia,
jotka muistuttavat olostaan."

Iltapäivällä sain kortin häneltä, joka vahvisti lääkärin sanan; sen

ohessa jäähyväistervehdykseksi mitä kauneimpia valkoisia ruusuja.
Valkoisia ruusuja! Hautajaiskukkia — minä en voi sietää valkoisia
ruusuja. Kuinka voi hän valita juuri sellaisia? Kalpea valkeus, iloton
tuoksu — pelkkää surua ja menettämistä —

Minä hätkähdin. Hän oli tahallaan valinnut nämä valkoiset ruusut,

jotka niin surumielisesti katsoivat minuun värittömine silmineen. Minä
sanon hyvästi, hyvästi ainiaaksi.

"Tuleehan hän takasin — morsiameni?"

"Aivan varmaan. Luonnollisesti", vakuutti tohtori. Hän oli varmasti

vakuutettu siitä.

"Tehän ette kuitenkaan saisi kirjoittaa hänelle." Kunnon kelpo

vanha mies. Kaikki selvisi hänestä mitä luonnollisimmalla tavalla.

Niin pian kuin sain lähteä ulos, menin minä Evan asunnolle.
Aavistukseni eivät olleet minua pettäneet. Hänen huoneensa oli
poisvuokrattavana. Hän oli poissa ja on ottanut kaikki kapineensa
mukaansa.

Minä olin kauhean vihainen. Niin omituiselta kuin se kuuluukin, en

ensiksi tuntenut tuskaa tahi ikävöimistä, vaan suuttumusta. Hän oli
pettänyt minut, jättänyt minut, suomatta minulle tilaisuutta puhua
mitä minä itse ajattelin — tulevaisuudestamme.

Mitähän minä oikeastaan ajattelin tulevaisuudestamme?

Muutaman viikon kuluttua sain minä kirjeen Evalta. Se poisti kaikki
epäilykseni. Sen kuoressa oli Kasselin postileima ja kuului näin:

Rakas Lotharini!

Kun sinä saat nämä rivit, on sinun suuttumuksesi ennättänyt

haihtua; — kuinka voi hän aavistaa sen? — ja sinä olet käsittänyt
että minä olen menetellyt oikein. Sinä et rakasta minua enää,
vaikka sinä rehellisesti olet koettanut sitä tehdä. Rakkautta ei voida
pakoittaa. Mutta sitä ei voida myöskään väkisin temmata pois
sydämestä, sentähden on viipynyt näin kauvan ennenkuin olen
voinut kirjoittaa sinulle. — Ei vielä silloinkaan ollut helppoa hänelle,
tässä oli kätensä vavissut. Eva-parkani! — Ei niin että olisin ollut
kahden vaiheilla siitä tiestä, jota minun tuli kulkea, päätökseni oli jo
tehty vanhempiesi kotona. Sairautesi aikana sain minä vain
vahvistusta siitä, mitä minä jo tiesin.

Minä olen rakastanut sinua niin paljon Lothar! Onnellinen olen

siitä, että kuulun niihin naisiin, joilla on muutakin elämässä, kuin
vain rakkautta. Elämälläni on sisällystä sitäkin ilman. Älä sentähden
soimaa itseäsi minun tähteni. Kaksinkertaisilla voimilla antaudun
minä toimintaani, ja yhä hartaammin olen minä huutava
sukusisarelleni: Heretkää olemasta toisen sukupuolen
tahdottomana, toimettomana lisäkkeenä. Olkaa jotakin omasta
voimastanne ja te olette tunteva itsenne onnellisiksi ja tyytyväisiksi.

Ja minun esimerkkini, Lothar, on puhuva selvemmin, kuin mitkään

sanat.
Etkö sinäkin usko sitä?

Eva.
 Tähän kirjeeseen en ole koskaan vastannut, enkä minä ole
ryhtynyt mihinkään toimeen saadakseni tietää hänen
asuntopaikkaansa, koska hän ilmeisesti tahallaan on jättänyt
ilmoittamatta minulle osoitteensa. Hän ei tarvitse minua. Jääköön siis
silleen.

Talven kuluessa sain tiedon, että Neue Freie Bühne on tehnyt

vararikon ja sentähden ollut pakoitettu lähettämään minulle takaisin
käsikirjoitukseni. Minä panin sen katsomatta syrjään — minulta oli
kerrassaan mennyt halu ajatella sitä. Kenties minä vielä jonkun
kerran ryhdyn kirjoittamaan uudestaan lopun.
 *** END OF THE PROJECT GUTENBERG EBOOK IHANTEENSA
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