What Evaluators Look For

Past performance evaluation is fundamentally about predicting future performance. The government assumes that how you performed in the past is the best indicator of how you will perform on the contract being awarded. Evaluators assess past performance along several dimensions, typically defined in the solicitation's Section M (evaluation criteria).

Key Evaluation Dimensions

• Relevance — How similar is the past work to the work being procured? Evaluators look at scope, magnitude, complexity, and the type of work performed.
• Quality of performance — Did the contractor deliver work that met or exceeded the requirements? Were there quality issues, and how were they resolved?
• Schedule performance — Did the contractor deliver on time? Were milestones met? How were schedule challenges managed?
• Cost control — For cost-reimbursement contracts, did the contractor manage costs effectively? Were there cost overruns, and why?
• Management and business relations — Was the contractor responsive, professional, and easy to work with? Were problems proactively identified and resolved?
• Customer satisfaction — Would the past customer use this contractor again?

CPARS and PPIRS — The Federal Past Performance Systems

Contractor Performance Assessment Reporting System (CPARS)

CPARS is the government's primary system for documenting contractor performance on federal contracts. Contracting officers and their representatives are required to complete performance assessments in CPARS for contracts and orders exceeding the simplified acquisition threshold ($250,000). Assessments are completed annually and at contract completion.

CPARS assessments rate contractors on a five-level scale: Exceptional, Very Good, Satisfactory, Marginal, and Unsatisfactory. The assessment covers the evaluation dimensions described above and includes a narrative that describes the contractor's performance in detail. Contractors have the opportunity to review and comment on CPARS assessments before they are finalized — use this right. If an assessment contains factual errors or mischaracterizations, submit a detailed rebuttal.

Past Performance Information Retrieval System (PPIRS)

PPIRS aggregates past performance data from CPARS and other sources into a single database that source selection teams access when evaluating proposals. When a solicitation tells you that the government will query PPIRS, this is where they are looking. PPIRS pulls data from CPARS for contracts, the Architect-Engineer Contract Administration Support System (ACASS) for A-E work, and other specialized systems.

You do not have direct input into PPIRS — it is populated by government assessments. Your influence is through ensuring CPARS assessments are accurate and through the contract references you provide in your proposals.

How to Build Past Performance When You Have None

The classic catch-22: you need past performance to win contracts, but you need contracts to build past performance. FAR 15.305(a)(2)(iv) states that "in the case of an offeror without a record of relevant past performance or for whom information on past performance is not available, the offeror may not be evaluated favorably or unfavorably on past performance." In practice, this means a neutral evaluation — which puts you at a disadvantage against competitors with strong records but does not automatically eliminate you.

Strategy 1: Subcontracting

Subcontracting under an established prime contractor is the most common path for building past performance. As a subcontractor, you perform work, build a track record, and can cite that experience in future proposals. Important: ensure your subcontract scope is documented in a way that clearly identifies your contribution. A vague "we supported the prime" is far less useful than "we provided 15 software developers who delivered the agency's case management system on schedule." See our Subcontracting vs. Prime Contracting Guide for more detail.

Strategy 2: Small-Dollar Federal Work

Pursue micro-purchases (under $10,000), simplified acquisitions (under $250,000), and purchase orders. These smaller awards are easier to win, have simpler evaluation processes, and build your federal past performance record. Even a $25,000 task order, if performed well and documented properly, provides a past performance reference for future proposals.

Strategy 3: GSA Schedule Task Orders

If you hold a GSA Schedule contract, task orders placed against your Schedule build your federal past performance. GSA Schedule orders can range from small purchases to multi-million dollar engagements, and agencies order from the Schedule with relatively low friction.

Strategy 4: State and Local Government Work

While federal evaluators prefer federal past performance, state and local government contracts can be cited when federal references are not available. The key is relevance — if the state contract involved work similar to what the federal solicitation requires, it has value. Clearly describe the scope, magnitude, and outcomes.

Strategy 5: Commercial Work

FAR 15.305(a)(2)(ii) allows agencies to consider past performance information regarding "predecessor companies, key personnel who have relevant experience, or subcontractors that will perform major or critical aspects of the requirement." Commercial work with Fortune 500 companies, particularly work of similar scope and complexity, can be cited when federal references are limited. Present it with the same rigor and detail as federal past performance.

Structuring Your Past Performance Volume

The solicitation's Section L (instructions) will specify exactly how to organize your past performance volume — follow those instructions to the letter. Within that structure, the following principles apply.

Lead with Relevance

Order your past performance references from most relevant to least relevant, not from largest to smallest or most recent to oldest. The evaluator's first question is "how similar is this to what we are buying?" Answer that question immediately.

Describe Scope, Magnitude, and Complexity

For each reference, clearly describe the work performed in terms that allow the evaluator to assess relevance. Include dollar value, number of personnel, duration, locations, technical environment, and the nature of the work. Quantify everything possible.

Highlight Performance Outcomes

Do not just describe what you did — describe how well you did it. Include metrics: on-time delivery rate, customer satisfaction scores, cost savings achieved, defect rates, uptime percentages. Reference CPARS ratings where they support your narrative.

Address Problems Honestly

If a past performance reference includes challenges or issues, address them proactively. Evaluators will find negative CPARS ratings in PPIRS. Explain what happened, what you did to resolve it, and what you changed to prevent recurrence. A contractor who acknowledges and learns from problems is more credible than one who pretends they never happen.

Provide Accurate Contact Information

Ensure every reference includes current, accurate contact information for the government point of contact — name, phone, email, and organization. Before submitting, contact your references to confirm they are willing and available to respond to government inquiries. An unreachable reference is effectively no reference at all.

Relevance vs. Recency

Solicitations typically specify a lookback period for past performance — commonly three to five years, sometimes up to ten. Within that window, relevance is more important than recency. A three-year-old contract that is highly relevant to the requirement outweighs a contract completed last month that involves completely different work.

However, if you have multiple references of similar relevance, more recent ones are preferable because they better reflect your current capabilities, staffing, and processes. If your most relevant work is near the edge of the lookback period, explicitly note the dates and emphasize the relevance of the work.

Subcontract Past Performance

Past performance as a subcontractor is generally acceptable in federal source selections, but it carries less weight than prime contract performance for several reasons. The government had a direct contractual relationship with the prime, not with you. The government evaluated the prime's performance, not yours individually. And the prime managed the overall effort while you performed a portion.

To maximize the value of subcontract past performance, clearly delineate your specific scope and deliverables. Obtain a letter from the prime contractor confirming your contribution and performance quality. If possible, identify the government COR or COTR who directly oversaw your work as a reference, rather than relying solely on the prime contractor as your reference.

Maintaining Your Past Performance Record

• Monitor CPARS actively. Review every assessment promptly and submit comments on any inaccuracies. You have 30 days to respond once notified.
• Keep your own records. Maintain a past performance database with contract details, scope descriptions, metrics, customer feedback, and reference contact information.
• Cultivate relationships with CORs. The Contracting Officer's Representative (COR) is typically the person who writes your CPARS assessment. Proactive communication and strong performance make positive assessments more likely.
• Request assessments for orders above $250K. If a CPARS assessment is not initiated, contact the contracting officer and request one. A positive assessment in the system is an asset.
• Update references before each proposal. Confirm contact information and availability. Brief your references on the opportunity so they can speak knowledgeably if contacted.

• Can I use commercial past performance on a federal proposal?

  Yes. FAR 15.305(a)(2) allows agencies to consider past performance on non-government contracts. Commercial past performance is most valuable when it is directly relevant to the requirement being evaluated. Present commercial references with the same level of detail as federal ones — scope, magnitude, outcomes, and verifiable contact information.

• What is a CPARS rating and how does it affect me?

  CPARS uses a five-level rating scale: Exceptional, Very Good, Satisfactory, Marginal, and Unsatisfactory. These ratings are stored in PPIRS and accessed by evaluation teams during source selections. Consistently high ratings strengthen your competitive position; Marginal or Unsatisfactory ratings can be disqualifying. You have the right to review and comment on CPARS assessments before they are finalized.

• How far back can I go for past performance references?

  The lookback period is specified in each solicitation, typically three to five years, sometimes up to ten. Work performed outside the specified window generally cannot be cited. Some solicitations measure from the proposal due date; others from the contract completion date. Read the instructions carefully.

• What happens if I have no past performance at all?

  Under FAR 15.305(a)(2)(iv), an offeror with no relevant past performance record is evaluated neutrally — neither favorably nor unfavorably. In practice, competitors with strong past performance have an advantage. Build past performance through subcontracting, small-dollar awards, and GSA Schedule task orders.

• Can I dispute a negative CPARS assessment?

  Yes. When you receive a CPARS assessment notification, you have 30 days to review and submit comments. If you disagree with the assessment, provide a detailed, factual rebuttal. The Assessing Official may revise the assessment based on your comments. If you remain dissatisfied, you can request a review by a higher-level official within the agency. Your comments become part of the permanent record regardless of whether the rating changes.

• Does past performance matter on lowest-price-technically-acceptable (LPTA) evaluations?

  It depends on the solicitation. Under LPTA (FAR 15.101-2), past performance may be evaluated on a pass/fail basis rather than comparatively scored. A firm with satisfactory past performance passes; one with unsatisfactory past performance may fail. However, not all LPTA solicitations include past performance as a factor — check Section M carefully.