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While the two must coordinate their activities, their responsibilities and agendas
are not necessarily complimentary, creating a source of tension and conflict. Garrett
(1995) remarks that stress occurs between the two from a high degree ofjob overlap,
which can lead one to ask "Who's in charge?." Kelman (1990) notes that "the
Contracting Officer's role tends to set him in institutional conflict with the program and
technical people, who have less concern for the regulations, particularly the various
competition requirements" (p. 25). Menker (1992) states that the execution ofPM and
PCO responsibilities creates an inherent friction, "because two people are responsible for
planning, organizing, and controlling and both are accountable for their actions" (p. 5).
While PMs have overall responsibility for a program, they lack the authority to sign,
modify, or cancel contracts. On the other hand, Contracting Officers are not in charge of
the day-to-day operations and planning of the program office, but as the only people
authorized to enter into legally binding contractual arrangements, they "may shoulder the
responsibility for having critical resources available as needed under very tight, often
conflicting or unrealistic time frames"
...
Another basic difference between the two roles are that Program Managers are
rewarded for getting systems on schedule, within cost, and meeting technical
requirements, while Contracting Officers are more typically rewarded based on an
evaluation of contract quality (low noted errors during reviews) or numbers and dollars of
contractual actions. (Cleland, Gallagher, & Whitehead, 1993) For major acquisition
programs, however, the PCO's overall performance rating can also be greatly affected by
the PM's assessment of the PCO's abilities and results achieved.

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How PM & CO can effectively work together.

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How PM & CO can effectively work together.

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https://www.ncmahq.org/stay-informed/blog-list/ncma-blog---post-detail/contract-management-blog/2017/11/20/the-importance-of-the-acquisition-team-a-jack-of-all-trades-is-still-a-master-of-none

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CONCLUSION 7: In many cases, there is confusion, frustration, miscommunication, and mistrust in the relationship among the COs and the PEOs and PMs they support. The committee found evidence that in some instances, contracting professionals (1) overstep their authority (for example, by dictating a specific contracting approach), (2) apply overly strict and restrictive interpretations of regulations, (3) take positions on business issues without providing adequate explanation to the rest of the government acquisition team (FAR 1.102-3), and (4) are not evaluated via their annual appraisals based on the quality of their support to the program manager, successful program execution, or meeting program office objectives within FAR guidelines.

CONCLUSION 8: The Air Force does not currently possess an adequate program management governance structure that specifies clear lines of authority, responsibility, and accountability for members of the government acquisition team. Additionally, Air Force PEOs and PMs are not mandatory participants in Business Clearance or Contract Clearance sessions, even though the negotiation objectives, key contract terms and conditions, and the nature of the deal are largely set in these sessions. Without a full awareness of contract terms and objectives, PMs and PEOs may find themselves in a position of being forced to implement an acquisition approach or execute a contractual business arrangement that they either do not understand or believe to be inappropriate.40

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Quote  (Knowing and Loving Your KO)                                                     “PMs should be trained to a higher level of competence incontract incentives, including (a) award fees and (b) howgovernment contributions to contractor overhead costs ona contract can reverse the intended effects. (Low fees underminecontract incentives.)”

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Quote  (Knowing and Loving Your KO)                                                     “PMs should be trained to a higher level of competence incontract incentives, including (a) award fees and (b) howgovernment contributions to contractor overhead costs ona contract can reverse the intended effects. (Low fees underminecontract incentives.)”

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"Treating the procurement office as a separate and potentially hostile entity isn’t helpful to anyone. Instead, project managers must recognize that the application of basic project management techniques to the procurement aspect of the project can move things along more smoothly. Keeping the procurement office well informed, understanding and respecting procurement procedures, and developing a joint acquisition plan and applicable milestones that everyone can support–on both the project management and procurement teams–can mean all the difference for the ultimate success of the project"
https://www.americancityandcounty.com/2006/04/19/project-management-partnering-with-procurement/

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https://fcw.com/articles/2014/08/29/contractor-role-in-program-management.aspx
"An effective way to achieve a well-integrated team is to ensure that, although the government must respect the formal scope defined in the statement of work, the government PM makes sure the contractor's program leaders understand the full range of program execution and are integrated well into the PMO"

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The relationship between the PM and the PCO varies. In most instances, the PCO is assigned by the Systems Command to support a program. The PCO does not report administratively to the PM; however, the PCO must still respond to the Program Manager’s programmatic and technical requirements.

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The relationship between the PM and the PCO varies. In most instances, the PCO is assigned by the Systems Command to support a program. The PCO does not report administratively to the PM; however, the PCO must still respond to the Program Manager’s programmatic and technical requirements.

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https://www.federaltimes.com/management/2015/06/25/managing-the-biggest-program-of-all-acquisition/

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Requirement for KO's and PM's to have mandatory cross training (Mandatory Courses/Assignments)

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From industry- PM and KO's need to communicate better (more frequently and continuously throughout process)

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Issues/concerns btw KOs and PM Offices                                             - adversity with authority 

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Issues/concerns btw KOs and PM Offices                                             - adversity with authority 

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- differences in risk management
- differences in how to accomplish their shared mission / priority
- lack of collaboration
- lack of communication/partnership (priorities, objectives, roles and responsibilities, etc.)
- no mutual agreement
- lack of understanding each other's roles and responsibilities, no cross-training
- unfamiliarity with policy updates, relevant career field changes, etc.
-personality/cultural differences; see themselves as the prime movers and become competitors vs. partners
- different chains of authority

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Role of the PM                                                 In Government Contracting:                                     – Accomplish program objectives for development, production and sustainment to meet user’s operational needs                                                — Accountable for credible cost, schedule and performance reporting to the Milestone Decision Authority (MDA)                                              • Design acquisition programs                                            • Prepare programs for decisions                                          • Execute approved program plans – Ensure the acquisition program requirements and actions relating to Government/Contract management are anticipated, addressed and performed within and for their program 

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Role of the PM                                                 In Government Contracting:                                     – Accomplish program objectives for development, production and sustainment to meet user’s operational needs                                                — Accountable for credible cost, schedule and performance reporting to the Milestone Decision Authority (MDA)                                              • Design acquisition programs                                            • Prepare programs for decisions                                          • Execute approved program plans – Ensure the acquisition program requirements and actions relating to Government/Contract management are anticipated, addressed and performed within and for their program 

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-Program Managers should have own section of FAR? (PMs only mentioned 7 times in FAR)
-PMs own the acquisition strategy that the KO will implement.(In DoD the PM also owns Acq Plan).
More of a team approach,

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Navy article on communication between PMs and COs

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Navy article on communication between PMs and COs

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https://calhoun.nps.edu/handle/10945/47312

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In Program Management, the Program Manager (PM) is the designated individual with the responsibility for and authority to accomplish program objectives for the development, production, and sustainment to meet the user’s operational needs. The PM is accountable for the overall cost, schedule, and performance of a program and reporting to the Milestone Decision Authority (MDA). They exercise leadership, decision-making, and oversight throughout a program and a systems life cycle. They need to be the leader of the program, understand requirements, balance constraints, manage contractors, build support (Social Engineering) and puts to use the basic skills of management

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In Program Management, the Program Manager (PM) is the designated individual with the responsibility for and authority to accomplish program objectives for the development, production, and sustainment to meet the user’s operational needs. The PM is accountable for the overall cost, schedule, and performance of a program and reporting to the Milestone Decision Authority (MDA). They exercise leadership, decision-making, and oversight throughout a program and a systems life cycle. They need to be the leader of the program, understand requirements, balance constraints, manage contractors, build support (Social Engineering) and puts to use the basic skills of management

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Role of the Contracting Officer               In Government Contracting:                                        — Leads the procurement team                                                  — Only official authorized to obligate the Government (except as delegated)                                            — Responsibilities begin with receipt of the procurement package through final acceptance, final payment, and contract closeout                                          — Evaluation of proposals, contract negotiations, contractor selection, contract award                             — Post award responsibilities outlined in FAR Part 42 (Contract Administration and Audit Services)— Monitors contract cost/schedule with tools and keeps PM informed when variances occur

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Role of the Contracting Officer               In Government Contracting:                                        — Leads the procurement team                                                  — Only official authorized to obligate the Government (except as delegated)                                            — Responsibilities begin with receipt of the procurement package through final acceptance, final payment, and contract closeout                                          — Evaluation of proposals, contract negotiations, contractor selection, contract award                             — Post award responsibilities outlined in FAR Part 42 (Contract Administration and Audit Services)— Monitors contract cost/schedule with tools and keeps PM informed when variances occur

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More of a team approach - about the Acquisition team.
Why is the PM/KO relationship often adversarial? PMs and KOs  don't fully understand their differences and similarities. Both leaders of the acquisition team with shared goals. Different responsibilities and rules that they must abide by.
- Can be adversarial b/c KOs and PMs donb't know where the authority stops for one and begins for another.
-Common ground lies in risk management. BUT what is a tolerable risk for one side may not be for another.
Collaboration Solutions:
- Communication(2 way street to build trust)
-Put it in writing (develop and sign a PM/KO agreement to capture promises made)
-Cross training (to better understand why the other behaves the way they do)
-Joint Training (side by side training about partnerships)
-Cross Certification (once  a PM or KO receives certification in their field they should receive training in the other)
-Stay current in both fields

-Washington Tech article (2015)
- Only 4.7% of respondents reported that KOs and PMs worked well together. 21.1% said they don't work well together
-When asked why communication would get worse, most respondents blamed the contracting office stating they don't understand mission requirements or how the program functions. PMs also feel they can't challenge the contracting office.
Main concerns - government's aversion to risk and need for better communication

-Alternative idea --how does the contracting office show that they care about the program/mission but also that they must follow regs.

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http://www.wifcon.com/arc/forum613.htm

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http://read.nxtbook.com/ncma/contractmanagement/april2014/speakingout.html
Yet, in my experience, the program manager/contracting officer relationship is seldom effective and often
adversarial. Why is that? There are several contributing factors, including the following:
Program managers are often not trained in contracting (other than perhaps through macro-level training
blocks provided in Defense Acquisition University program management courses), and—due to the
cautionary tales they hear in these training sessions about program managers that have crossed the line and
directed the contractor to perform out-of-scope work—most actively defer all contracting process
knowledge to the contracting officer (common quote: “That’s a contracting officer thing”). Similarly,
contracting officers are often not trained in program management, and don’t seek more than a basic
understanding of the cost, schedule, and technical performance objectives of the programs.
Contracting officers are driven by contract law, regulations, policies, and procedures, most notably the
Federal Acquisition Regulation (FAR). Program managers are driven by Department of Defense
Instruction 5000.2, “Operation of the Defense Acquisition System.” These policy documents are
theoretically compatible, but often conflict in practice, which can lead to conflict between the program
manager and contracting officer. For example, the term “contracting officer” is used a total of three times
in the 5000.2, and the term “program manager” is used a total of seven times in the FAR. This indicates
that teaming between the two is not a major focus area for either document.
The program manager’s reporting chain is up to the service or defense acquisition executive. The
contracting officer’s reporting chain is up to his or her head of the contracting activity, and the program
manager is not in the contracting officer’s rating chain.
Finally, problematic relationships between the program manager and contracting officer are often due to
personality and cultural issues. Both see themselves as the prime mover for their programs, rather than
each other’s customer, and therefore often become competitors rather than partners. Program manager
culture emphasizes program execution and risk acceptance. Contracting officer culture emphasizes
following laws and regulations and risk aversion (in the program manager’s perception, a “When in doubt,
just say no” approach).