SOURCES SOUGHT
B -- Planning Cataloging Product Development
- Notice Date
- 5/26/2011
- Notice Type
- Sources Sought
- NAICS
- 813910
— Business Associations
- Contracting Office
- Library of Congress, Contracts Services, Contracts Section, 101 Independence Ave SE, LA-325, Washington, District of Columbia, 20540-9411
- ZIP Code
- 20540-9411
- Solicitation Number
- RQCDS20110015
- Archive Date
- 6/28/2011
- Point of Contact
- Rashid Behi, Phone: 202-707-0498
- E-Mail Address
-
rbeh@loc.gov
(rbeh@loc.gov)
- Small Business Set-Aside
- N/A
- Description
- C.1 BACKGROUND Summary The Library of Congress needs to examine the current service and financial models supporting the production, sale, and distribution of the Library's cataloging products and services. A new strategic framework needs to be delineated that supports the Library's long range plans for future bibliographic and cataloging product development and access. It must account for the increasing provision of data for free (at no cost to the consumer), data that is currently provided on a cost-recovery basis through fee-based services. The framework must also address changes in technology, business trends, customer demand, costs, and revenue streams. The planning required must allow the Library to align its mission, services, and funding in a forward-looking manner that is responsive to the rapidly changing operating environment, and will allow the institution to reconfigure its services as necessary in a deliberate and financially sustainable fashion. The Library wants to engage the services of a consultant to conduct a strategic planning effort that follows an analysis/design/implement methodology and provides a road map for the future distribution of its cataloging products and services. Cataloging Distribution Service The Office of Business Enterprises is responsible for the distribution of the Library's cataloging records and related standards, technical publications, and web-based resources to libraries, individuals, and businesses, nationally and internationally. This data is sold and distributed through three core product lines: • Web-based products: Catalogers Desktop and Classification Web • Electronic products: cataloging data provided in a Machine-Readable Cataloging (MARC) format • Print products: paper-based versions of the data supplied via web-based and MARC products, ranging from the 9,000 page Library of Congress Subject Headings to leaflets The business follows a cost plus 10% pricing model, and a subscription revenue model. Products are distributed directly to the customer via password access to web-based products (maintained by third-party vendors;) FTP and OAI/PMH for MARC products; and direct shipping of print products. History of Product Development The provision of Library of Congress cataloging products outside of the Library itself was established under 2 U.S.C. § 150 in 1902 when the Library was given the authority by Congress to sell card indexes and other publications using a price schedule which would "cover their cost and ten per centum added." In providing this service, the Library was providing other entities with the benefit of its position as the nation's "library of record" helping to distribute standard cataloging data, standards, and policies. The Cataloging Distribution Service (CDS) grew in proportion with the Library's collections and the need to generate an ever growing number of catalog cards that were then distributed to other libraries and institutions. At its height in the 1960s, CDS was the Library's largest division with more than 600 staff and distributing 78 million cataloging cards each year. The first large shift in CDS's product development came with the move from individual catalog cards to expansive cataloging print publications that provided easy reference to collections in the Library and in other collections. After the1960s, the Library began to make its cataloging data available through the creation of MARC data on magnetic tapes that were distributed to consortia and by them to other libraries who could then print their own cards. MARC grew in use as the data was made accessible as electronic files to anyone who had a computer, and MARC now leverages the opportunities associated with the web and metadata. The next significant shift in product development came with the introduction of web-based tools that now provide catalogers access to electronic manuals, cataloging and classification standards, procedures and resources, and allows users to browse and search the full text of the Library of Congress Classification (LCC) schedules and subject headings. Business Environment In planning its long-term strategy, the Library sees the need to be responsive to at least three significant stakeholders: the Library itself, the federal government, and the growing marketplace of cataloging content providers and buyers. Over its history, the Library has set the standard for other libraries through its cooperative efforts to develop and support advances in library services and technologies. Today, the Library still plays a significant role in developing new ways to describe and provide access to information. As part of its strategic planning, the Library anticipates that users will have access to more content on more topics, in a wider range of formats, because cooperative programs will enable libraries to share the expense and workload of acquiring, describing, and analyzing collections. It also anticipates that rapidly changing technologies will change the ways cataloging data can be transmitted and utilized. Several initiatives are already in play that signal a change to the traditional cataloging distribution model. Most notably, the implementation of "Web Services" (http://id.loc.gov,) a registry that will eventually make available the major standards of the Library through open access. It is anticipated that data element values from Library supported metadata standards such as MARC, MODS, and PREMIS, the Thesaurus for Graphics Materials (TGM) and the Library's major code lists will be added to the registry. Much of this data, currently provided for a fee through BE's MARC distribution service (MDS) and print publications, would be freely available. The LCSH is an example of Library content now available to customers as a long-standing, fee-based print product, and as raw data for free via a SKOS format. It is this context that the Library wants to plan for the next significant transformative phase in the provision of its products and services. The likelihood that the Library will generate more data in electronic format that can be freely disseminated online coincides with and complements the "Open Government" initiative. The Library is not bound by executive branch legislation, but it uses such legislation as guidelines in fulfilling its mission. The free provision of Library data online would complement the government-wide effort as defined in OMB Open Government Directive 2009. "To increase accountability, promote informed participation by the public, and create economic opportunity," the directive states, "each agency shall take prompt steps to expand access to information by making it available online in open formats...To the extent practicable and subject to valid restrictions, agencies should publish information online in an open format that can be retrieved, downloaded, indexed, and searched by commonly used web search applications. An open format is one that is platform independent, machine readable, and made available to the public without restrictions that would impede the re-use of that information." With the rapid expansion of digital technologies, software services, and web-based distribution, third parties are playing a growing role in an environment previously the reserve of the Library and few others. Today, the marketplace (as defined by categories that interact directly or indirectly with the Library's cataloging products) include content vendors and aggregators, commercial bibliographic utilities and service providers, software systems vendors, commercial and academic publishers, and non-commercial entities, cooperatives, and consortia. The Library needs to be responsive to this changing ‘competitive' environment, not so that it can compete but so it can effectively adapt its approach to focus on its future role and better serve its mission in the years ahead. C.2 SCOPE OF WORK C.2.1 The vendor shall incorporate all major stakeholders in the process of establishing a viable strategic and implementation plan to support the goal of adapting current products and services to a new business and financial model. Key stakeholders include: • Acquisitions & Bibliographic Access Directorate o Office of the Director o Policy and Standards Division • Technology Policy Directorate o Office of the Director o Network Development and MARC Standards Office o Integrated Library System Program Office • Partnerships & Outreach Programs o Office of the Director o Office of Business Enterprises • Office of General Counsel • ITS • Service providers under contract with the Library, providing product development, software support, and/or maintenance, including: o Catalogers Desktop o Classification Web o GPO publications o MDS • Customers o By institution type o By product use • Record distributors/Service providers o For-profit o Non-profit The Library will assist the vendor with the appropriate participation and scheduling of stakeholder involvement. C.2.2 The vendor will ensure that detailed consideration is given to the core product lines: • Web-based products: Catalogers Desktop and Classification Web • Electronic products: bibliographic and cataloging data provided in a Machine-Readable Cataloging (MARC) format • Print products: paper-based versions of the data supplied via web-based and MARC products, ranging from the 9,000 page Library of Congress Subject Headings to leaflets The vendor will consider these product lines in the context of a product development life cycle, assessing their short and long-term viability, the need to adapt or retire products, and opportunities for new product development. The vendor should consider the significant drivers of change that will affect the Library's service and financial models for the continued provision of these products and services, including the Library's strategy and goals for free access to bulk data, the role of open access, the decline of traditional printing and the growth of print-on-demand, the availability of commercial software as a service (SaaS), the ability of MARC records to interoperate with other encoding schemas and systems, and other drivers as defined by the stakeholders. The Library will provide the vendor with all relevant policy and planning documentation, and indirect access to the Cataloging Information Management System (CIMS) for historic and actual sales, customer, and budget data. C.2.3 The vendor shall establish a full strategic and operational understanding of the value chain of the relevant products and services, from Library requirements through content development, product development, distribution, and customer use. C.2.4 The vendor shall assist the Library in achieving its overarching goal of establishing a viable plan for the future development and distribution of the Library's cataloging products and services, a plan that incorporates: • Top-down vision and strategy • Transparent value chain that delineates how the Library's content and subsequent products pass through all activities of the chain in order, and how at each activity the product gains some value • Alignment of products and services with mission and funding • Defined role in the competitive/collaborative marketplace • Consistent approach to markets and customers • Sustainable funding model • Legislation requirements To assist the vendor in meeting the objectives, the Library will support a PMO-like approach as defined by the vendor in discussion with the Library. The vendor will have access to BE managers for Consumer Products & Services, Finance & Accounting, and Customer Service & Fulfillment to establish a baseline for current operations. Appropriate representation and project participation of all other stakeholders will be arranged as necessary. C.3 GENERAL REQUIREMENTS During the period of performance the vendor shall: C.3.1 Provide a work plan for the project to be undertaken during the period of performance. C.3.2 Provide the documented means for implementing the Library's objective of aligning its mission, services, and funding in a forward-looking manner that is both responsive to the rapidly changing business environment, and allows the Library to reconfigure its services in a deliberate and financially sustainable fashion. C.4 SPECIFIC REQUIREMENTS The vendor will provide assistance to the Library by performing the following tasks: C.4.1 A Project Work Plan The vendor shall provide a work plan covering the period of performance. Deliverable 1: Project work plan, including: • Identification of the project's objectives, scope, and methodology • Anticipated organization, structure and timeline of the project from the start date to the completion date of the contract • Phase, performance or completion milestones • Communications plan • Resource requirements and dependencies • General assumptions or expectations The plan should be delivered two weeks after the effective period of performance begins. C.4.2 Analyze Deliverable 2: Baseline Analysis of Current State The Baseline Analysis report will provide the Library with a baseline report on the gap between the current and future states, and provide sufficient strategic and data analysis to allow buy-in to the next phase of planning. The deliverable should include • Planning principles, guidelines, and definitions • Key findings, challenges and observations • Mission/strategy/project alignment & assumptions • Value chain assessment delineating the chain of activities associated with producing cataloguing data for the Library's own purposes and for sale • A model of the bibliographic and cataloguing metadata marketplace and the Library's place in it • A baseline of current operations, including o The Library's ‘global' business model and lifecycle for the development and distribution of cataloguing content o A five-year historical analysis of sales and revenues o Analysis of current and potential markets, customers, products, and services o Strengths, weaknesses, opportunities and threats (SWOT) analysis o Out-sourcing/in-sourcing scenarios and impact on subsequent planning phases • Concept of operations (CONOPS) C.4.3 Design Deliverable 3: Future State Design The Design Plan will provide the Library with the strategic, programmatic, and financial blueprints for redesigning and supporting the production and sale, or free distribution, of the Library's cataloging products and services in the future state. It should address all significant components and dependencies, such as: • Strategic principles and business case methodology for informing, prioritizing, and justifying design recommendations • Future state product/service portfolios • Outsourcing • Technology • Organization/resources • Infrastructure • Funding model • Five-year time/action roadmap and financial outline C.4.3 Implement Deliverable 4: Customer & Industry Survey(s) Customer surveys will be used to measure design plans against customer and industry feedback. The survey content and the timing of the surveys will be shaped with and approved by the Library before distribution. The Library will distribute the surveys. The deliverable should include: • Professionally developed survey questionnaire(s), tailored where necessary to specific audiences and/or customers by product line. • Survey templates and questions that address specific program scenarios and options that inform the larger planning effort. • A report on the results and findings of the survey(s) and how they confirm or modify the design and implementation plans Deliverable 5: Implementation Plan & Financial Model The Implementation Plan will provide the Library with detailed directions for establishing the future state as a sustainable program, identifying relevant strategic, resource, IT, and budget dependencies. It should address all significant planning components and dependencies, including: • Implementation strategy • Key change initiatives and detailed action plans • Outsourcing/insourcing plan if applicable • Service level and/or user/licensing agreements requirements • Legislative and regulatory requirements • Five-year financial model • Public communications plan D. Period of Performance The vendor shall provide contract services to the Library from date of award for a period of 180 days. The estimated period of performance is E. Cost proposal Price/cost information should be detailed in a separate Cost Proposal. The vendor should provide detailed information on how it reached its overall costs, including staff hours by individual position. F. Proposal schedule Vendors should submit their proposals by April 22, 2011. G. Evaluation Factors for Award G.1 Evaluation Criteria Vendor selection will be based on evaluation of proposals in accordance with the responses received to the criteria outlined in the statement of work. Award will be made to that vendor whose combination of technical and price proposals represents the best value to the Government and is most advantageous, price and other factors considered. The technical factors are weighed more heavily than cost. The Library of Congress also reserves the right to reject any or all proposals received and/or request for clarification or modification of proposals. The Library reserves the right to determine a competitive range for negotiation based upon the technical and cost acceptability of proposals. In addition, the Library reserves the right to award a contract without discussions. Price evaluation will include an analysis of the total price/cost and cost elements (if applicable) to perform the required work. The total price/cost supplied by the vendor shall be submitted as a separate document and shall constitute the total firm-fixed unit price for that service or deliverable. Proposals that are unrealistic in terms of technical commitment or unreasonably low or high in cost or price may be deemed reflective of an inherent lack of technical competence or indicative of failure to comprehend the complexity and risk involved in the contract requirements and may be grounds for rejection of the proposal. Evaluation factors for award are listed below in descending order of importance: G.2 Evaluation Factors Technical Factors. The acceptability of the technical proposal will be evaluated with respect to three (3) major factors. Technical factors are listed in descending order of importance. The technical proposal is worth more than the cost proposal; and when technical proposals are relatively equal in technical merit, cost will increase in importance. (1) Comprehensive of Technical Approach. The vendor's responses must be based on an adequate description and justification for the overall methodology for services as described in the statement of work. The vendor must understand the requirements and problems associated with the implementation of services required by the statement of work for the Library of Congress, including differing needs of various divisions, as well as other requirements needed to strike the appropriate balance between businesslike activities and the Library's mission and Congressional oversight. (2) Past Performance. The vendor shall provide evidence of experience from the last 3 years of the expertise called for in the statement of work. The vendor should provide at least 3 recent and relevant project examples, and at least one example should be used to illustrate how past performance has a bearing on the vendor's ability to successfully complete the Library's objectives. (3) Staffing & Project Management. The vendor's response must indicate evidence that their firm employs personnel capable of handling all phases of service as required by the statement of work. Vendor's response must address the quality, soundness, completeness and feasibility of the vendor's project approach, including quality of staff, utilization of staff, plan for continuity of operations, and interaction with Library staff. H. Level of Effort Contractor shall be required to provide the necessary staff with the appropriate skills to successfully complete all tasks described in Section 4 and within the period of performance mentioned in Section 5. I. Key Personnel Requirements I.1 Certain skilled experienced professional and/or technical personnel are essential for successful vendor accomplishment of the work to be performed under this contract. These are defined as "Key Personnel" and are those persons whose resumes will be submitted for evaluation of the proposal. The vendor agrees that such personnel shall not be removed from the contract work or replaced without compliance with F.2 and F.3. I.2 If one or more of the key personnel for whatever reason becomes, or is expected to become, unavailable for work under this contract for a continuous period exceeding ten (10) work days, or is expected to devote substantially less effort to the work than indicated in the proposal or initially anticipated, the vendor shall immediately notify the Contracting Officer and shall, subject to the concurrence of the Contracting Officer or his authorized representative, promptly replace such personnel with personnel of at least substantially equal ability and qualifications. I.3 All requests for approval of substitutions hereunder must be in writing and provide a detailed explanation of the circumstances necessitating the proposed substitutions. They must contain a complete resume for the proposed substitute, and any other information requested by the Contracting Officer or needed by him/her to approve or disapprove the proposed substitution. The Contracting Officer or his authorized representative will evaluate such requests and promptly notify the vendor of his approval or disapproval thereof in writing. I.4 If the Contracting Officer determines that suitable and timely replacement of key personnel who have been reassigned, terminated or have otherwise become unavailable for the contract work is not reasonably forthcoming or that the resultant reduction of productive effort would be so substantial as to impair the successful completion of the contract or the services ordered, the contract may be terminated by the Contracting Officer for default or for the convenience of the Government, as appropriate, or, at the discretion of the Contracting Officer if he/she finds the vendor at fault for the condition. The contract price may be equitably adjusted downward to compensate the Government for any resultant delay, loss, or damage. J. Government Furnished Items J.1 Contractor personnel will have access to existing planning, financial, and technical documentation and subject matter experts as needed to perform successfully on the tasks described in Section 4. If available, the government will furnish temporary work space when it is practical for the vendor to work on-site. The vendor will furnish their own PC capabilities, and communicate any additional needs to the Contracts Office. K. Reporting & Documentation Requirements K.1 Meetings shall be convened on a weekly basis at the Library of Congress, or if this is not practical, by telephone to communicate status and activities. The Contractor will deliver meeting minutes within 2 working days of any meeting held with LC staff. K.2 Status reports will be provided bi-weekly. K.3 In-Process Review Meetings will be held bi-monthly. Agenda, attendees, time and location of the meeting will be coordinated with the COTR. K.4 A project schedule will be created and delivered to the COTR within 10 working days of the kick-off meeting. K.5 Deliverables will have a professional and consistent format across ALL deliverables. K.6 The Contractor may develop additional documents which are not explicitly requested if the Contractor deems them to be useful in the successful completion of this SOW but the Contractor may not bill the Government for their development. K.7 The document review process will allow the Government a maximum of 10 working days to conduct a review of the document and provide any changes to the Contractor. The Contractor will then be allowed a maximum of 5 working days to incorporate any changes to the document before submitting the document to the COTR for acceptance. L. Travel No travel is anticipated unless the Contractor determines that work can be done more expeditiously and cost effectively off site, and then periodic travel between the Contractor site and the Library of Congress, would be anticipated. It is not anticipated that the cost of this travel would be such that it would warrant an additional cost to the Government; therefore, cost associated with travel will not be paid by the Government. Aligning Cost Recovery & Pricing Schedules for Fee-Based Services at the Library of Congress FY2011-12 B.1 BACKGROUND The Office of Business Enterprises (BE) supports the programs of the Library of Congress by developing and enhancing the Library's fee-based services to the public by providing strategically targeted products and services that support and expand the Library's core activities and facilitates access to its collections. These services are cost-recovery activities required to operate on a breakeven basis, with revenues expected to cover operational costs and the cost of future growth and unforeseen circumstances. This legislative requirement to recover costs places a premium on efficient business practices, establishing economies of scale, and reducing unnecessary and redundant cost. BE needs to reexamine its current fee structures in the context of changing business trends, customer demands, and Library strategy so that it can re-align its operating costs with revenue generation, and plan for long-term sustainability. B.2 SCOPE OF WORK B.2.1. BE wants consulting support to conduct an objective examination of its fee-based operations in order to develop a comprehensive assessment of cost-recoverable expenses, and the necessary recommended fee structure to allow revenue to cover costs. B.2.2. The consultant will work with BE staff to analyze the current expenses of two (2) BE funds, the CDS fund and the PHOTO fund, by product line and/or by major product or product family, and recommend appropriate fee structures for the two (2) funds. The CDS business follows a cost plus 10% pricing model, and a subscription revenue model. Products are distributed directly to the customer via password access to web-based products (maintained by third-party vendors;) FTP for MARC products; and direct shipping of print products. The PDS business follows a cost plus pricing model, and a hybrid revenue model, combining custom orders and retail. Print and micrographic products are shipped directly to the customer, and digital products are distributed via FTP or CD. B.2.3. The consultant will be required to recommend a user fee structure for recovering appropriate costs on a fiscal year basis; and provide a methodology for monitoring costs so that BE will be able to set fees in future fiscal years that will enable continued recovery of appropriate costs. B.3. STATEMENT OF WORK B.3.1. General Requirements B.3.2 The contractor should be familiar with Federal Accounting Standards and with revolving fund and/or enterprises funds that allow expenditure accounts authorized by Congress to be credited with collections, primarily from the public, that are generated by, and earmarked to finance, a continuing cycle of business-type operations. The principal feature of an enterprise fund is its similarity in purpose to a commercial entity and it generally follows accrual accounting principles, including the recording of depreciation as expense. An enterprise fund is used when the cost of particular services is to be paid through usage charges designed to recover the cost, including depreciation. Also, an enterprise fund is used for products whose price is designed to recover the cost of production. B.3.3 The contractor should become familiar with the two funds' business and financial models to ensure the formation of sound strategic and business assumptions for informing a new fee schedule and methodology. The BE/CDS fund is the legislative and budget authority behind the distribution of the Library's cataloging records and related standards, technical publications, and web-based resources to libraries, individuals, and businesses, nationally and internationally. Products include the Library of Congress Subject Headings, Library of Congress classification schedules, all of the MARC documentation, and two Web-based products Classification Web and Cataloger's Desktop. The BE/PDS fund is the legislative and budget authority behind the Library's reproduction services for a wide variety of rare and original materials sought after by researchers, by other libraries for their own collections, and by governments to enhance their own national resources. Products include photographic negatives and prints, photocopies, microform filming and duplication, and digital scanning and imaging, all reproduced in accordance with U.S. copyright law. B.3.4 These operations are conducted under the organizational umbrella of BE, but are maintained as separate accounting entities in keeping with the legislation that established them as individual funds. The consultant must provide separate solutions that are specific to each fund's financial circumstances and needs. Recommendations for potential economies of scale and other cost-saving measures are welcome. B.3.2. SpecialRequirements B.3.2.1 Develop a project plan detailing the steps necessary to meet the above-stated objectives. This plan will describe the methodology used, specify milestones and enumerate deliverables. B.3.2.2 Capture all cost-recoverable expenses associated with the CDS and PHOTO funds. Working with BE staff, review the operations and determine which cost-recoverable functions are essential to the work of the Library itself and which qualify as cost-recoverable services for the public. B.3.2.3 Specify and apply appropriate costing methodologies to compute the direct and indirect costs for BE's CDS and PHOTO cost-recoverable functions, based on established Federal Cost Accounting Standards, with particular reference to inter-entity costs. Each inter-entity cost should include the full cost of goods and services that BE receives from other entities, such as support services from other Library of Congress program operations, and overhead charged by the Library for supporting services. To the extent possible, costs should be matched directly with outputs. When this is not possible, costs will be allocated by activity. Compute those costs following Federal Cost Accounting Standards. B.3.2.4 Recommend a fee structure and the appropriate degree of recoverability of fees for services provided by the CDS and PHOTO funds that are deemed cost-recoverable based on the cost analysis. Each fee recommended should be based on the actual cost and value of the service to the Library and its public user communities, and should be consistent with the intent to provide mission based and valued-added products and services. B.3.2.5 Provide a methodology for monitoring costs that BE will be able to use to establish costs and adjust fees in future fiscal years in accordance with the annual budget cycle and which will enable continued recovery of appropriate costs. B.4 DELIVERABLES B.4.1 The consultant shall prepare a planning document detailing the steps necessary to complete the task. The plan will be due to BE ten days following the signing of the agreement. The planning document that contains identification of the project's objectives, scope, and methodology; phase, performance or completion milestones; resources and communications plan; resource requirements and dependencies; and general assumptions or expectations.. B.4.2 The consultant shall prepare a draft and final report that computes the costs associated with the CDS and PHOTO functions deemed cost-recoverable under Federal Accounting Standards. The report will contain a detailed cost analysis showing allocated costs, cost relationships and the methodologies used in arriving at the applicable costs. BE will have ten days to review the draft and provide comments. B.4.3 The consultant shall prepare a draft and final report describing all functions within BE's CDS and PHOTO funds, distinguishing between those that are cost-recoverable and those that are not inherently sustainable as currently configured. The report should provide a rationale for why each function is placed in a particular category, and recommendations on how they can be sustained by other fees within the same fund or by other funds. BE will have ten days to review and comment on the draft. B.4.4 The consultant shall prepare a draft and final report that recommends an appropriate fee structure and the percentage of recoverability for services provided under the CDS and PHOTO funds. This fee structure should be consistent with the Library's mission and objectives. BE will have ten days to review the draft and provide comments. B.4.5 The consultant shall prepare a final report detailing the methodology and procedures for measuring and reporting cost data for BE recoverable services. The report will include the following information: • Base line of existing business operations • Strategic analysis of the business operations, identifying opportunities for improvements • Recommendation for changes to the business model and/or processes to bring about improved cost accounting of BE's services • Methodology for monitoring and capturing cost information related to cost-recoverable fee services on a fiscal year basis. • Methodology for revising fees based on updated cost data • Recommended fee schedules for FY12 implementation
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