Using an XML Audit to Move SGML Data towards XML		Table of contents		Indexes		Managing and Searching Data with Metadata

XML In Defense Procurement

Dayton
Frontier Applied Sciences, Inc.
Harshbarger, Johnny

Ohio

Johnny Harshbarger
Systems Analyst, Frontier Applied Sciences, Inc.

5100 Springfield Pike
Dayton (Ohio) 45431
Email: harshbj@paso.wpafb.af.mil

Biographical notice

Johnny Harshbarger is a Systems Analyst assigned to the PreAward Support Office of the Aeronautical Systems Center at Wright Patterson Air Force Base. He has worked the past three years on electronic solutions for Government/Industry communication via the Internet plus support of other electronic acquisition activity. Mr. Harshbarger holds a BA from West Virginia University and has over 18 years experience in a variety of computer, electronics, medical and small business projects.

CDF

ConWrite

DTD, Document Type Definition

Notes

Abstract

Procurement is undergoing significant changes based on the Department of Defense (DoD) goal to build a "lean, agile acquisition system" and the mandate of "paperless acquisition" by January 2000. DOD aims to reduce the procurement cycle time by utilizing state-of-the-art technology to improve the procurement environment in this new era. Acquisition does not represent a solitary activity; rather, it involves a complex interaction between a procuring organization and one or more contractors submitting proposals. At the same time the Internet is rapidly expanding and its tools are rapidly improving. This provides opportunity for performance improvements and reduced costs in this process. The Aeronautical Systems Center's PreAward Support Office (PASO) is exploring methods to exploit this technology to significantly improve the cycle time from initiation of a Request for Proposal (RFP) through contract award using the most recent advances in information technology.

The PreAward Support Office has advanced a suite of two electronic tools, and is exploring the use of a third, dedicated toward realizing these DoD goals. The Preaward Information eXchange System (PIXS) is an Internet server facilitating the exchange of acquisition information with Industry, EZSource is an electronic tool dedicated to the evaluation of vendor proposals and support of vendor selection. The third tool, EZ-RFP, is an XML based RFP authoring tool. The Pre-Award Support Office is investigating the use of XML as a way to bind these tools together using a common data structure beginning with the RFP and following through communication with Industry to proposal evaluation and contract award. The investigation currently has three major facets: One, the development of RFP and Proposal Document Type Definitions (DTD's). Second, the enhanced creation, presentation and delivery of valid or well formed XML documents over the Internet; and third, the inclusion or interaction of XML based RFP and Proposal documents in electronic source selection. It is believed that XML technology will further improve the contribution these tools make toward reduced acquisition cycle time and extend their useful life through tighter integration and interoperability with other electronic acquisition tools under development across the DoD.

The Preaward Information Exchange System (PIXS) was established in 1992 to provide electronic access to documents related to the early stages of procurement. The purpose of the system is to promote early industry involvement in the procurement process by providing more timely access to documents, disseminating information to a wider audience, and providing a ready means for communication via Internet mail. Cost savings have been realized by reduced paper, reproduction, mail and parcel post costs. PIXS capabilities have been extended along with the growth of the Internet and development of web server and browser technologies. Most recent studies have involved the use of XML to enhance communication with Industry. One study has developed Active Channels for PIXS and the PASO home page using Microsoft Channel Definition Files (CDF). The study has successfully demonstrated a method to notify users of updated business opportunity information on PIXS, and use data about information on PIXS to help users quickly locate acquisition information of interest and minimize time spent reading items not of interest. Another investigation has involved the use of active scripting to query the PIXS database and generate an XML formatted overview of business opportunities on PIXS. XSL style sheets are used in conjunction with the XML tagged PIXS data to present summary information of the latest business opportunities to those users with XML capable web browsers. The actual XML data is also made available. Future studies will focus on enhancement and support of EZ-RFP generated RFP's, including the presentation of RFP's using XSL style sheets, delivery of XML tagged RFP's, and receipt of corresponding proposals. It is expected that PIXS will continue to enhance communication with Industry, incorporating advancements in XML and other technologies

During the summer of 1993, the Pre-Award Support Office initiated a project to automate the source selection facility. Source selection teams were having difficulty tracking and organizing all the information received in response to competitive RFPs. To assist these teams, greatly improve the process and cut down on cycle time, the PASO computer support group developed a source selection automation tool called "EZSource". EZSource is a Lotus Notes software application that follows Air Force guidelines for documenting a source selection evaluation. As the acquisition cycle is completed using EZSource, inclusion of RFP and Proposal information based on the model DTD's in EZSource electronic evaluation of RFP's and proposals is significant. Therefore, the PASO is anticipating the accommodation of XML based RFP's and Proposals by EZSource. The PASO is currently studying the importation of XML data into a correspondingly structured Lotus Notes database. Longer-range plans are to work with Lotus Notes built-in support for XML when that feature arrives in Domino 5.

A model RFP and model Proposal DTD are products of the current EZ-RFP effort. The DTD's express the structure of procurement information using valid XML data, including link elements to related sections of the documents. A RFP authoring tool is concurrently being developed as part of the EZ-RFP effort to enable integrated teams of people to contemporaneously draft, approve and publish an electronic RFP according to the XML DTD. Providing Industry with a model Proposal DTD as well as a valid XML RFP will reduce cycle time by assisting Industry in preparation of RFP response, including verification of response completeness. Model DTD's have been completed and EZ-RFP authoring software may be implemented by July 1999.

In addition to in-house efforts at the Pre-Award Support Office, other electronic tools to facilitate acquisition goals are currently under development or being deployed across the Air Force and DoD. Typically, advancements in technology and changes in the acquisition process shorten the useful lifetime of an earlier developed system. Another limiting factor is the ability to share information between disparate systems and more tightly integrate overall functionality. A current scenario is the relationship of PASO electronic tools to other electronic procurement tools such as CONWRITE and SPS. The PASO is exploring the utilization of XML technology to exchange or integrate information with such tools, thereby extending the useful life of the PASO tools and maximize their contribution to acquisition reform. Current effort is focused on learning about features of current and planned tools outside the PASO and positioning PASO tools with respect to the scope of the other tools.

Industry acceptance of the XML standard comes at a favorable time in the development of PASO electronic tools. XML technology will be the glue that binds together EZ-RFP, PIXS and EZSource into a more tightly integrated suite of tools. XML also promises to facilitate more efficient exchange of information between PASO electronic tools and related tools across Industry and the DoD. By incorporating XML technology ahead of or in step with the outside world, PASO electronic tools will best fulfill their contribution to DoD lean acquisition goals and enjoy an extended useful lifetime.

Foreword

Since being assigned to the Preaward Support Office of the Aeronautical Systems Center (ASC) at Wright-Patterson Air Force Base (WPAFB), I have had the privilege of working on the cutting edge of DoD acquisition reform and paperless acquisition. Among the challenges of succeeding in DoD acquisition reform are enduring the overlap of initiatives, the superseding of smaller works by large programs, the unification of disparate tools, and keeping abreast of developments within Industry. What follows is a computer support contractor's perspective on how emerging XML technology can be leveraged to persevere in this lean, agile environment.

PASO

acquisition

paperless

Introduction

ODBC

PIXS

XSL

PIXS - Enabling Communcation via the Internet

The Preaward Information eXchange System (PIXS, www.pixs.wpafb.af.mil ) was established in 1992 to provide electronic access to documents related to the early stages of procurement. The purpose of the system is to promote early industry involvement in the Aeronautical Systems Center procurement process by providing more timely access to documents, disseminating information to a wider audience, and providing a means for communication via Internet mail. Cost savings have been realized by reduced paper, reproduction, mail and parcel post costs.

PIXS capabilities have been extended along with the growth of the Internet and development of web server and browser technologies. Web page overviews of individual acquisitions were manually authored in HTML and document libraries managed via ftp. Links from the overview pages to library documents were manually coded as URLs. With the availability of ODBC and Active Server Pages, overview pages were converted from HTML to scripts that queried a database and generated URL links to respective documents. Library management was converted from ftp to http and a web browser based user interface was created. Perl scripting was added to enhance document library management and provide automated email notification about changes to PIXS libraries. These Active and Perl scripting and features continue to be in service and are continually improved.

The PIXS email application currently services over 2000 registered users. Each evening the Perl script is scheduled to query a database of email registrants and the PIXS library database, compose a customized email message, then send it out via SMTP to the corresponding registrant. The email message body contains a brief description of the updated library area and URL for accessing the overview page for the libarary. One feature of the nightly email script analyzes the registered email address for user's domain. If the AOL domain is detected, the script adds HTML markup to the overview page URL creating a hot link the AOL user can click for immediate activation of the AOL web browser and access to the corresponding overview page. It is hoped that advancements in incorporating XML markup and XML linking in email will bring similar convenience to other email systems. Other functions or uses for the email registration database may also be recognized.

Most recent studies have involved the use of XML to enhance communication with Industry. One study has developed Active Channels for PIXS and the PASO home page using Microsoft Channel Definition Files (CDF). For this application, Perl scripting is once again employed to query the PIXS database via ODBC and compose an updated CDF. The resulting channel has a folder for new PIXS business opportunities, another folder for updated opportunities, plus item listings for the most active PIXS areas. Balloon type abstracts of listed updates provide quick and simple means for interested parties to learn about an opportunity. A click on the item brings the user to the corresponding PIXS overview page. The study has successfully demonstrated a method to notify users of updated business opportunity information on PIXS, and use data about information on PIXS to help users quickly locate acquisition information of interest and minimize time spent reading items not of interest.

Another investigation has involved the use of active scripting to query the PIXS database and generate an XML formatted summary of business opportunities. An Active Server Pages script queries the PIXS database for solicitation overview information and generates an XML rendition on the fly. XSL style sheets are used in conjunction with the well formed XML data to display a summary of hosted opportunities. A similarly styled active server page is presented to those users without XML capable web browsers. The actual XML data is also made available.

Studies with PIXS and XML have shown that XML technology is compatible with existing PIXS data and services, and it is possible to operate PIXS as a three tier web application. XML is a means to provide PIXS data content to Industry in a well structured, style independent format while protecting the PIXS database itself. Two methods of XML URI linking have also been investigated. Future studies will focus on enhancement and support of valid XML data, including the presentation of RFP's using XSL style sheets, delivery of XML tagged RFP's, and receipt of corresponding proposals. Enhanced E-mail functions with XML based URI Links may also be studied. It is expected that PIXS will continue to enhance communication with Industry, incorporating advancements in XML and other technologies.

EZSource - Automating the Source Selection Process

During the summer of 1993, the PreAward Support Office initiated a project to automate the source selection facility. Source selection teams were having difficulty tracking and organizing all the information received in response to competitive RFPs. To assist these teams, greatly improve the process and cut down on cycle time, the PASO computer support group developed a source selection automation tool called "EZSource". EZSource is a Lotus Notes (www.lotus.com) software application that follows Air Force guidelines for documenting a source selection evaluation. As the acquisition cycle is completed using EZSource, inclusion of RFP and Proposal information based on the model DTD's in EZSource electronic evaluation of RFP's and proposals is significant. Therefore, the PASO is anticipating the accommodation of XML based RFP's and Proposals by EZSource. The PASO is currently studying the importation of XML data into a correspondingly structured Lotus Notes database. Among the methods being investigated is Lotus Domino Import Filter by Digitome Ltd. ( www.digotome.com ) Longer-range plans are to work with Lotus Notes built-in support for XML linking when that feature arrives in Domino 5.

Complex

DTD, Document Type Definition

EZ-RFP
Phase

SBIR

EZ-RFP - Developing an Electronic Road Map for Complex Systems Proposals

Authoring RFPs for complex systems is very challenging. It is an exacting process requiring the coordination of information from a variety of specialty sources. Volumes of information can be generated in the authoring of such a RFP. A number of interrelations exist between distinct elements of the RFP. Knowledge maps serve as road maps to information and connections between information elements. They provide a means to traverse long complex documents. Knowledge maps of complex RFPs can greatly improve the quality and use of information contained therein. The PASO recognized the potential benefits of an electronic tool for creating and using a RFP knowledge map and initiated a Small Business Innovative Research (SBIR) project which has become known as EZ-RFP.

A model RFP DTD and model Proposal DTD are products of the current EZ-RFP effort by Frontline Solutions, Inc. of Idaho Falls, Idaho ( www.frntln.com ). Frontline is working under a Phase II Small Business Innovative Research (SBIR) contract with the PASO/ASC. The DTD's express the structure of procurement information using valid XML data, including link elements to related sections of the documents. This effort began in 1996 as a SBIR Phase I project, exploring the possibility of automating RFP authoring with SGML technology. The results were positive, and in 1997 a Phase II study was awarded to Frontline. These Phase I and Phase II efforts, exploring the concept of structured RFP Document Type Definitions, coincided with the initial industry proposals for a refined subset of SGML: XML. XML seems a natural fit for the requirements of RFP authoring, which is a collaborative business process gathering a variety of information elements from diverse sources. What's more, each of the RFP elements must be comparable to the corresponding elements of respondents' proposals.

The initial version of the RFP DTD was delivered in early 1998. It is based on an actual RFP document used for a successful procurement in 1996. The initial document markup was painstakingly performed by hand through the latter part of 1997 and early 1998, after extensive analysis of the RFP's structure and content. It has since been through four revisions, each revision providing enhanced structure based on lessons learned during EZ-RFP prototype evaluation and the latest advancements in XML linking technology.

A companion Proposal DTD is also under development. It contains declarations of elements, attributes and links to associate with respective parts of the RFP. The intent is to provide RFP respondents with a complete RFP in XML plus a XML template for Proposal response. Using XML compliant Proposal writing tools, plus the XML based RFP and the XML based Proposal template, the respondent can verify that their Proposal is complete and accurate.

Likewise, the process of evaluating Proposals for completeness of response to the RFP will be accelerated. Linkages between RFP and Proposal sections can be checked automatically, saving time over manual examination. Also, Federal Acquisition Regulations terminology, cross-references between RFP sections, and other necessary elements can be built into the DTD structure, thereby better assuring compliance with various and complex government contract requirements. DTD's can also be constructed for related acquisition activity such as RFP Amendment and Source Selection Plans.

A RFP authoring tool is concurrently being developed as part of the EZ-RFP effort. The tool will enable integrated teams of people to contemporaneously draft, approve and publish an electronic RFP according to the XML DTD. A prototype of such a tool was tested in April 1998. The evaluation successfully demonstrated the feasibility of using XML technology to structure realistic Request for Proposals. Also demonstrated was the creation and navigation of XML data with an intuitive user interface and the verification of RFP completeness using XML linkages. Inputs received from prototype evaluators have been incorporated into an improved Pilot version of the EZ-RFP authoring tool scheduled to be evaluated in late 1998 through early 1999. If successful and approved by Air Force officials, a production Version 1.0 of EZ-RFP authoring software will be implemented beginning July 1999.

Expressing the structure of a Request for Proposal using a XML DTD will reduce the acquisition cycle time, provide a structure that inherently increases regulatory compliance, and furnish a means for reliable paperless communication between government and industry. EZ-RFP promises to be an important tool for acquisition reform.

PAMS
common

glue

structure

suite

Bringing PASO Electronic Tools Together

PIXS, EZSource and EZ-RFP have been separately developed to apply automated electronic solutions to particular segments of the procurement process. In addition to improving procurement cycle times by addressing problems in each segment, reduction in cycle time can also be affected by binding these tools together using a common data structure. XML may be the "glue" to bring PASO electronic tools together into a more tightly integrated suite. An XML version RFP authored with EZ-RFP could be hosted on PIXS and styled for viewing or downloading via the Internet. RFP cross-references and other XML enabled links could speed the authoring of corresponding proposals, which are then returned in XML format. The XML based proposal could then be analyzed with XML enabled tools such as EZSource, with checks for completeness of response and other proposal features done automatically. Instead of acting as separate tools, each with separate data files, the tools work hand-in-hand on the common XML file. The PASO has named this concept of a more tightly integrated suite the Preaward Acquisition Management System (PAMS).

AMS

ConWrite

SPS

interoperability

Interoperability with other DoD Procurement Tools

In addition to tools developed by the PreAward Support Office, other electronic tools to facilitate acquisition goals are currently under development or being deployed across the Air Force and DoD. Typically, advancements in technology and changes in the acquisition process shorten the useful lifetime of an earlier developed system. Another limiting factor is the ability to share information between disparate systems and more tightly integrate overall functionality. A current scenario is the relationship of PASO electronic tools to other electronic procurement tools such as ConWrite and the Standard Procurement System (SPS).

ConWrite, an updated contract writing system for the Air Force, is currently in the deployment phase at WPAFB. Part of the EZ-RFP Pilot evaluation is to demonstrate EZ- RFP interoperability with ConWrite. ConWrite does not support XML linking or other XML features, so this demonstration will be limited to copying and pasting information between the ConWrite and EZ-RFP user interfaces, plus demonstrating that EZ-RFP XML data styled as Rich Text Format file output can be merged with ConWrite file output.

SPS is a project encompassing the entire DoD procurement process. It will replace dozens of existing interfaces to financial, logistics, and other DoD systems. The SPS effort promises to be the cornerstone of DoD's vision for paperless acquisition. SPS is being developed by American Management Systems, Inc. ( www.amsinc.com ) . AMS has an active interest in XML technology. More information on XML research by AMS can be found at URL http://www.amsinc.com/AMSCAT/XML.htm

The PASO is investigating the utilization of XML technology to exchange or integrate information with such tools, thereby extending the useful life of the PASO tools and maximize their contribution to acquisition reform. Current effort is focused on learning about features of current and planned tools outside the PASO and positioning PASO tools with respect to the scope of the other tools.

APMP

EDI, Electronic Data Interchange

acquisition

lean

Conclusion

Utilization of a common data structure beginning with RFP and following through communication with Industry to proposal evaluation and contract award can make the acquisition process more lean and agile. Industry acceptance of the XML standard comes at a favorable time in the development of PASO electronic tools. XML technology will be the glue that binds together EZ-RFP, PIXS and EZSource into a more tightly integrated suite of tools. XML also promises to facilitate more efficient exchange of information between PASO electronic tools and related tools across Industry and the DoD. In addition to hands on tool development, the PASO is also striving to keep abreast of developments throughout the industry. This is being accomplished through participating in industry forums such as this one, the Association of Proposal Management Professionals (APMP, www.apmp.org ), plus private industry meetings. I have also been observing electronic discussion groups such as the XML/EDI Group ( www.xmledi.com). By incorporating XML technology ahead of or in step with the outside world, PASO electronic tools will best fulfill their contribution to DoD lean acquisition goals and enjoy an extended useful lifetime.


Using an XML Audit to Move SGML Data towards XML		Table of contents		Indexes		Managing and Searching Data with Metadata