Understanding What Happens Before the RFP
Why You Shouldn’t Wait for the RFP to Go Live
Howdy Folks 👋
Let’s talk about a common misconception in government contracting: many believe the process starts when an RFP (Request for Proposal) goes live on SAM.gov. In truth, much of the groundwork happens well before that announcement!
Agencies might spend months—or even a year—pinning down their requirements, confirming budgets, and choosing an acquisition strategy. By the time you spot the solicitation, a lot of the key decisions have already been made.
If you want to improve your odds of standing out, you need to understand what’s happening behind the scenes before the RFP is issued.
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Before a formal solicitation appears, agencies often conduct internal reviews, discuss possible solutions with program offices, and even go through draft scopes of work. They might consult external experts or test out preliminary ideas in small pilot projects to see if they’re on the right track. If you’re only aware of the opportunity once the final RFP is published, you’re missing out on all that early dialogue, where requirements can shift or expand based on the feedback they receive.
In some cases, the agency will even run a “pre-solicitation” phase—sometimes posting advanced notices or letting certain industry partners know that a specific project is coming. If you’ve built relationships with the right people, you might be looped into these discussions early. That’s why consistent engagement, even when no active solicitation is on the radar, can pay off big later on.
The People Who Make It Happen
Every federal contract generally involves three key roles: the Customer, the Budget Holder, and the Contracting Officer. While they work in tandem, each role has its own focus, and knowing how to identify them in an RFP can give you a major advantage:
1. Customer (End User)
Who They Are: Typically, this is the agency program office or department that actually needs the product or service. They’re the ones feeling the “pain” and seeking a solution. In some cases, you might see references to a “Program Manager,” “Technical Lead,” or “Project Officer” in the solicitation or related documents—these individuals often represent the Customer side.
Where to Find Them in the RFP: Look for a “Scope of Work” or “Performance Work Statement” section mentioning the office or division that will use the deliverables.
You might also see contact information for a Technical Point of Contact (TPOC) or a COR (Contracting Officer’s Representative) who works closely with the end user.
Why They Matter: The Customer shapes the technical requirements and often has the final say on whether a proposed solution meets their needs. Tailoring your approach to their stated (and unstated) challenges can set you apart.
2. Budget Holder (Economic Decider)
Who They Are: This individual or office holds the funding authority. Often, they’re part of the agency’s financial management or resource planning office. Sometimes, the Program Manager also has partial budget authority, especially if they manage a program with allocated funds.
Where to Find Them in the RFP: They’re not always named outright, but you might spot references to the funding source or statements about how the project is financed (e.g., “Funding provided by Program XYZ”).
In larger solicitations, the RFP might include a section on how the project is tied to a broader initiative or program, which can help you trace who’s behind the budget decisions.
Why They Matter: No matter how urgent the requirement is, it can’t move forward without approved funding. Understanding budget constraints—or how your solution provides cost savings—can be pivotal in winning over this stakeholder.
3. Contracting Officer (CO)
Who They Are: The CO has the legal authority to award contracts on behalf of the government. They’re responsible for ensuring the acquisition process follows all applicable regulations (like the FAR) and for making sure taxpayer dollars are spent wisely.
Where to Find Them in the RFP: Check the cover page or “Contract Administration” section; the CO’s name, email address, and phone number are often listed.
There may also be a separate contracting specialist who supports the CO, but the CO is the ultimate authority.
Why They Matter: While the Customer and Budget Holder define the “what” and the “why,” the CO determines the “how.” If you have questions about the solicitation, you’ll typically direct them to the CO (or someone designated by the CO). They also make the final call on contract award and negotiate terms.
Moving Beyond Basic Market Research
You already know the fundamentals—checking SAM.gov and responding to Sources Sought or RFIs—but let’s go a bit deeper. Some agencies publish advanced acquisition forecasts or host private market research discussions with vendors with relevant niche expertise. If you track these forecasts, you’ll see which program offices are planning to spend money in your work area. That’s a chance to reach out before anything is official.
It also pays to follow relevant industry events, especially where agency officials discuss upcoming needs or present newly funded programs. These events are a perfect opportunity to meet the customer and ask targeted questions. Sometimes, you’ll even spot references to the Budget Holder’s priorities—like cost savings or speeding up deployment—giving you clues on how to shape your offering.
The Value of Identifying Re-competes Early
When a contract is nearing its end, the agency typically re-competes that work. But not all re-competes are the same. Sometimes, the scope expands, or the funding might shift to a different program office. That means the Customer and Budget Holder you thought you knew could change from one contract cycle to the next.
How to dive deeper:
Investigate Past Performance: Look at contractor performance evaluations (if available) or network with people who have knowledge of the project’s history. If you find out the incumbent struggled with specific tasks, highlight how you’ll avoid those pitfalls in your proposal.
Use this info to craft a stronger, more tailored solution—if the Customer had issues with the last contractor’s performance, emphasize how you’ll address those pain points.
Confirm if the same CO is overseeing the re-compete. A new CO might interpret the requirements or evaluation criteria differently.
Check for Scope Changes: Monitor official notices or industry chatter about how the agency wants to modify the work. A re-compete can merge two or more tasks from previous contracts.
Learn Who the New Decision-Makers Are: A different Contracting Officer or a newly assigned Program Manager might bring a fresh approach—and you’ll want to be up to speed on their priorities.
Pro Tip: Build a relationship with subcontractors or other partners involved in the original contract. They may offer insights into workflow bottlenecks, customer preferences, or potential improvements that can strengthen your proposal.
Teaming
For complex procurements, you might need to join forces with businesses that have stronger relationships with certain program offices or are known to a particular Budget Holder. In advanced teaming scenarios, you’re not just bringing skill sets together—you’re combining existing rapport with the relevant decision-makers.
If you’re uncertain about who the incumbent is partnering with, or if there’s a specific small business office championing the program, a bit of targeted networking can uncover these details. From there, you might form a subcontracting partnership with a company that already has a line of communication with the Customer or Budget Holder. That established trust can cut down the ramp-up time for your proposal’s credibility.
We have covered teaming already here.
Where to Begin
Let’s assume you’ve already tried the basics: scanning USASpending.gov for expiring contracts, setting up alerts on SAM.gov, and bookmarking agency forecasts. What else can you do?
1. Study Task Orders on IDIQ Contracts
Why It Helps: If an agency frequently uses IDIQ (Indefinite Delivery, Indefinite Quantity) vehicles—like GSA schedules or agency-specific multiple-award contracts—pay attention to the task orders released under those vehicles.
Advanced Move: Look for patterns in which program offices are issuing those task orders and see if they’re tied to certain Budget Holders. You can then tailor your outreach to the offices funding those orders.
Example: If you notice the same office consistently releasing cybersecurity task orders, you can reach out and explain how your specific security solutions address their known vulnerabilities.
2. Leverage Premium Market Intelligence Tools
Why It Helps: There are paid platforms like GovTribe, GovWin (Deltek), Bloomberg Government, or Govology that compile deeper data on federal opportunities, including upcoming recompetes and organizational charts.
Advanced Move: Use filters for your specific NAICS codes or keywords, then cross-reference the data with your past performance to identify the best fits.
Example: If GovTribe indicates that Agency XYZ’s software development budget soared last year, that’s your cue to initiate contact or step up marketing to that agency, rather than waiting for a formal posting.
3. Mine Agency Press Releases and Social Media
Why It Helps: Press releases and official social media channels can reveal who’s in charge of new programs, significant budget increases, or strategic goals for the coming year. It lets you know what might be coming.
Advanced Move: Instead of just reading them, look for specific names or references to specialized working groups. Then connect with those individuals on LinkedIn or through industry events.
Example: If a press release mentions “Deputy Director of Emerging Tech,” you can approach that person with a relevant case study, introducing yourself well before a project hits the RFP stage.
4. Analyze Organizational Charts and Public Directories
Why It Helps: Many agencies post organizational charts or staff directories on their websites. These can show how offices relate to each other—identifying both the customer’s technical leads and who likely handles the budget sign-offs.
Advanced Move: A quick call to the main office or an email introduction can confirm you’ve reached the right individual. Being professional and concise often prompts them to either help you directly or redirect you to the correct contact.
Example: If an org chart shows a “Resource Management Office” under the same directorate that needs your services, you know that’s likely the Budget Holder. Your approach can now highlight cost efficiencies and ROI specifics.
5. Engage at Specialty Conferences or Advisory Boards
Why It Helps: General industry days can be broad, but specialized conferences—focusing on topics like AI in defense, advanced manufacturing, or health IT—often attract the actual Program Managers and leads with detailed knowledge of upcoming initiatives.
Advanced Move: Propose or moderate a session, or at least come prepared with relevant questions that align with the agency’s current challenges. Showing thought leadership builds credibility beyond the standard “vendor pitch.”
Example: If you attend a healthcare IT symposium where a VA program office head outlines data management challenges, follow up with them after the event, referencing specifics from their talk. This can lay the groundwork for future RFP collaborations.
6. Monitor Local and Regional Government Contracting Offices
Why It Helps: Some opportunities start at the regional level or through base contracting offices before scaling up nationally. Being “first in line” at a local level can position you for larger prime contracts later.
Advanced Move: Develop a relationship with the smaller field offices or labs. These can act as your champion internally once a larger, headquarters-level procurement gets rolling.
Example: If you specialize in facility maintenance, building a rapport with a local military base’s contracting office might lead to word-of-mouth introductions when that base’s expansions require multi-year contracts.
Common Pitfalls to Avoid
These are some pitfalls that can screw up your efforts. One of the biggest issues is simply talking to the wrong person. Since every agency structure can be different, you might end up pitching solutions to the Contracting Officer (CO) when those specifics really matter more to the customer. Or maybe you’re trying to convince the customer about cost savings, even though the Budget Holder is the one who needs to hear that. You need to match your message to the right person—otherwise, you’re wasting time and possibly leaving the wrong impression.
Another slip-up I see is skipping official notices like Sources Sought or RFIs. These announcements are basically an open door to showcase your capabilities and influence the scope before the RFP is locked in. If you ignore them, you’re passing up a chance to stand out. Most other contractors are not following this step and they miss opportunities.
Do not overpromise. Agencies prefer genuine expertise over a vague promise to handle absolutely everything under the sun. The contracting team will have experience with being burned in the past from overpromises. So do not do it. Remember, specialization is key.
Do not show up unprepared. Have pointed questions and a quick pitch deck that summarizes your strengths to the agency’s specific needs.
Always research the incumbent’s history—especially when a re-compete is possibly available. If the current contractor has issues, the agency will often point to those areas for improvement in the next solicitation. If you’re unaware of the incumbent’s shortcomings, you can’t position yourself as the better solution, and that’s a missed opportunity.
Finally, there’s spreading yourself too thin by chasing every solicitation you spot. You’re much better off zeroing in on the opportunities that genuinely match your strengths. That way, you can allocate enough energy and resources to craft proposals that stand out for all the right reasons.
Final Thoughts
Federal contracting success often hinges on knowing who’s who—and that includes the Customer, Budget Holder, Contracting Officer, or anyone else who happens to be important in the contract decision. If you can spot references to these roles early or pinpoint where the money and technical authority intersect, you’ll be better equipped to target your outreach and proposals effectively.
Remember: staying attuned to the internal dynamics well before an RFP drops is what separates reactive bidders from proactive winners.
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As always, happy hunting!