RFQ 2026-06: Fiscal Intermediary for Self-Directed Home and Community Based Services

Fiscal Intermediary
for SelfDirect ed Home and
Community Based Services
___________________________________ __________________________________
Request for Q ualifications
RFQ-2026-06
Greater Nashville Regional Council
44 Vantage Way, Suite 45 0 | Nashville, Tennessee 37228 | Phone: (615) 862-8828 | Fax: (615) 862-8840
GNRC.org

RFQ Summary
About GNRC
The Greater Nashville Regional Council (GNRC) is a public agency established by the Tennessee General
Assembly to convene local and state leaders for the purposes of planning and programming state and federal
investments into public infrastructure and a range of social services.
GNRC is designated by the State Unit on Aging (SUA) as the Area Agency on Aging and Disability (AAAD) for
thirteen counties in Middle Tennessee. In this role, GNRC provides programs, services, advocacy, inter-agency
coordination, and information-sharing opportunities to improve the quality of life for older or disabled
Tennesseans. GNRC delivers a range of federal and state programs in partnership with local agencies and
private-sector organizations. Find out more at www.GNRC.org.
About this Solicitation
GNRC is seeking proposals from agencies/organizations capable of providing financial intermediary functions for
self-directed in-home services. GNRC intends to award a reimbursement-based contract to one or more
qualified service providers through this solicitation.
Important Dates and Deadlines
RFQ Issued: 02/18/2026
Written questions accepted through 03/08/2026
Submission Deadline: Statements of qualifications must be submitted by 03/22/2026
Contract Period: July 1, 2026 - June 30, 2030
Inquiries and Contact Information
All inquiries should be directed in writing to rfp@gnrc.org with a subject line that includes the RFQ number.
Amendments to this Solicitation
Any doubt as to the requirements of this solicitation or any apparent omission or discrepancy should be
presented in writing to rfp@gnrc.org. Oral statements or instructions will not constitute an amendment to this
solicitation. Any amendments to this solicitation will be posted online at www.GNRC.org/Procurement.
Non-Discrimination
GNRC does not discriminate on the basis of race, color, national origin, including limited English proficiency
(LEP), gender, gender identity, sexual orientation, age, religion, creed or disability in admission to, access to, or
operations of its programs, services, or activities. Discrimination against any person in recruitment,
examination, appointment, training, promotion, retention, discipline, or any other employment practices
because of non-merit factors is prohibited. Any person who believes that discrimination has occurred by GNRC
or its contractors, sub-recipients and/or consultants on the basis of race, color, or national origin, including
limited English proficiency (LEP), in violation of Title VI may file a written complaint. Complaints may also be filed
with the state or federal agency involved and with the Tennessee Human Rights Commission. Complaints must
be filed within 180 days of the alleged discriminatory act. GNRC's full non-discrimination policy and additional
information about ADA or English language accommodations are available online at www.GNRC.org/legal.
GREATER NASHVILLE REGIONAL COUNCIL | RFQ 2026-06 | PAGE i

Table of Contents
Section 1. Background ........................................................................................................................... 1
1.1 About the GNRC ................................................................................................................................................ 1
1.2 About the Project .............................................................................................................................................. 1
Section 2. Scope of Project.................................................................................................................... 3
2.1 Provider Requirements ..................................................................................................................................... 3
2.2 Requested Services ........................................................................................................................................... 5
Section 3. Instructions to Offerors ........................................................................................................ 6
3.1 Pre-Proposal Inquiries ....................................................................................................................................... 6
3.2 Submission Requirements ................................................................................................................................. 6
3.3 Proposal Contents ............................................................................................................................................. 6
3.4 Terms and Conditions ....................................................................................................................................... 8
Section 4. Selection Process ............................................................................................................... 10
4.1 Proposal Opening ............................................................................................................................................ 10
4.2 Final Evaluations .............................................................................................................................................. 10
4.3 Solicitation Outcomes ..................................................................................................................................... 10
4.4 Protests ........................................................................................................................................................... 11
Attachment A. Assurances and Certifications .................................................................................... A
Attachment B. Business Information ................................................................................................... B
Attachment C. Scope of Services ......................................................................................................... C
Attachment D. Sample Contract Terms ............................................................................................... D
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Section 1. Background
1.1 About the GNRC
The Greater Nashville Regional Council (GNRC or Regional Council) is a public body corporate and politic initially
created by the Tennessee Development District Act of 1965 and further empowered by Title 64, Chapter 7, Part
1, Tennessee Code Annotated (TCA), as amended (the Act). GNRC is owned by and operated on behalf of its
local government membership comprised of county governments in the counties of Cheatham, Davidson,
Dickson, Houston, Humphreys, Montgomery, Robertson, Rutherford, Stewart, Sumner, Trousdale, Williamson,
and Wilson, Tennessee, and all incorporated municipalities and metropolitan governments located within these
counties.
GNRC is governed by a regional body comprised of city mayors, county mayors/executives, state legislators,
appointments representing business/industry, and appointments representing minority populations. The
Regional Council's Executive Board convenes monthly to enact the adopted Annual Work Program and Budget
on behalf of the membership and oversee the GNRC's programs and services carried out by its staff.
1.2 About the Project
GNRC is seeking proposals from agencies capable of providing fiscal intermediary functions for adults aged sixty
and older (older adults), adults with disabilities, and their caregivers who wish to hire their own caregiver to
provide in-home services.
GNRC is designated by the State Unit on Aging (SUA) as the Area Agency on Aging and Disability (AAAD) for
thirteen counties in Middle Tennessee. In this role, GNRC provides programs, services, advocacy, inter-agency
coordination, and information-sharing opportunities to improve the quality of life for older or disabled
Tennesseans. GNRC delivers a range of federal and state programs in partnership with local agencies and
private-sector organizations. Find out more at www.GNRC.org.
Service Area
GNRC seeks to contract with a minimum of one fiscal intermediary for the region. The following table indicates
the demographics for each county in GNRC's service area:
Population Language Poverty Rural
% of 65+ % of 65+ who speak % of 65+ who % of 65+ who are % of 65+ who
60+
County who are language other than are below low-income reside in a rural
population
minority English at home poverty minority area
Cheatham 10,032 2.60% 1.30% 7.20% 0.20% 83.00%
Davidson 128,786 26.20% 8.20% 11.10% 2.90% 3.50%
Dickson 13,462 5.80% 1.30% 11.40% 0.70% 67.80%
Houston 2,216 3.60% 0.50% 15.60% 0.60% 100.00%
Humphreys 5,333 3.00% 0.70% 7.60% 0.20% 82.50%
Montgomery 34,372 19.10% 8.60% 7.80% 1.50% 19.70%
Robertson 16,307 6.50% 3.50% 8.90% 0.60% 53.20%
Rutherford 58,541 13.00% 6.40% 7.60% 1.00% 17.00%
Stewart 3,977 3.40% 4.00% 11.50% 0.40% 100.00%
Sumner 47,141 6.70% 2.60% 8.50% 0.60% 27.90%
Trousdale 2,089 10.70% 0.70% 25.20% 2.70% 100.00%
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Population Language Poverty Rural
% of 65+ % of 65+ who speak % of 65+ who % of 65+ who are % of 65+ who
60+
County who are language other than are below low-income reside in a rural
population
minority English at home poverty minority area
Williamson 54,154 5.40% 4.80% 5.10% 0.30% 19.40%
Wilson 35,587 6.00% 2.70% 7.20% 0.40% 38.50%
Target Population
Services must be targeted primarily to older adults in the greatest social or economic need, with particular
attention to low-income, minority older adults and those residing in rural areas. At a minimum, GNRC strives to
provide services to older adults and their caregivers in the greatest social or economic need in proportion to the
population of the counties served.
Reimbursement-Based Contract
This contract is a reimbursement-based contract. This means that contractors must incur the costs related to
the contract and provide appropriate documentation of their expenditures. Once GNRC receives an acceptable
invoice and supporting documentation, GNRC will then submit the cost for reimbursement to its funders. When
GNRC receives the funds, it then disburses them to the contractor's business. There is no guaranteed payment
time for invoices and the average time of payment is approximately 45 days after the time complete
documentation is submitted. This means that, for example, services provided on August 15 would be invoiced
on September 8th and likely not be paid for until October 23rd or later.
Funding Source & Program
Funding sources include State of Tennessee Options for Community Living funds and federal OAA Title III E
Family Caregiver funds. The following is a brief description of each program:
Tennessee's Options for Community Living Program is designed to enable consumers to live
independently in their homes by providing a limited amount of services such as homemaker services,
personal care services, and/or home delivered meals. With the assistance of these limited services,
along with the support of family and others, the consumer may be able to avoid prolonged admission
into institutional care.
The National Family Caregiver Support Program (NFCSP) Title III E provides an infrastructure of program
resources and assistance for family caregivers, grandparents, and older individuals who are relative
caregivers through the designated AAAD, its service providers, and other appropriate consumer
organizations. In accordance with program directives, information, assistance, and counseling can be
provided to any caregiver, but respite and supplemental services are limited to caregiver support for
older individuals who are unable to perform at least two activities of daily living, or, who, due to a
cognitive or other mental impairment, require substantial supervision. Priority is to be given to older
adults and families with the greatest social and economic need, with particular attention to low-income
older adults and older adults caring for persons with severe disabilities.
Self-Direction is a model of service delivery which affords participants more choice and control in the
delivery of home and community-based services. Supported by the fiscal intermediary, a person
assessed by the AAADs as eligible would hire their own personal attendant(s) or other services, whose
job duties may include housekeeping, laundry, cooking, personal care, and transportation. The goal is to
avoid institutionalization and related higher costs. Fiscal intermediary functions are related to the
performance of payroll, accounts payable, and related tasks.
Selected provider(s) may also provide goods or services and deliverables for participants who are referred to
GNRC from other programs or vendors and will be compensated in full for goods or services and deliverables
rendered to such participants.
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Section 2. Scope of Project
2.1 Provider Requirements
The Greater Nashville Regional Council (GNRC) is seeking entities with experience in providing fiscal
intermediary functions to adults aged sixty or older (older adults), adults with disabilities and their caregivers.
Selection of an Offeror to receive a contract means that the Offeror is a GNRC Service Provider. Having a
contract with GNRC does not guarantee that any amount of services will be authorized or that services provided
will automatically be eligible for reimbursement.
Minimum Qualifications
To be eligible for selection, offerors must meet the following criteria:
1. Have submitted a complete proposal to GNRC in response to this RFQ as instructed in Section 3 that
demonstrates:
a. Adequate staffing and training protocols to carry out the services being proposed
b. Adequate financial capacity to sustain a reimbursement-based contract
2. Be eligible to conduct business in the state of Tennessee and in the relevant city or county.
3. Are registered and in good standing with the Tennessee Secretary of State, if applicable.
Standards of Conduct
GNRC Service Providers must adhere to the following Standards of Conduct:
1. Federal and state funds provided through a contract with GNRC will be expended only for services
authorized by a contract with GNRC.
2. Services under this contract will be provided only to individuals who have been determined by GNRC to
meet eligibility criteria and are authorized to receive services (each such individual is referred to as a
"GNRC Client").
3. Treat GNRC Clients in a respectful and dignified manner, involve the GNRC Client and their caregivers in
the delivery of services, and provide services in a timely and safe manner.
4. GNRC Clients will not be denied or limited services because of their income or financial resources.
Distance from the GNRC Service Provider will not be used to deny services as this practice violates the
mandate for special emphasis on rural residents, residents with disabilities, and isolated individuals.
5. Quality Assurance will be an ongoing process in which all entities including the SUA, AAAD, GNRC
Service Providers, and GNRC Clients will play a role.
6. No GNRC Service Provider staff or volunteer will solicit or accept gratuities, favors, or anything of
monetary value from a GNRC Client, service provider by whom they are not employed/contracted, or a
potential contractor.
7. No GNRC Service Provider staff or volunteer will offer any type of merchandise or service for sale; nor
may they seek to encourage the acceptance of any particular belief or philosophy by any GNRC Client.
Program Requirements
Below are program requirements that GNRC Service Providers must agree to:
1. Provide services to GNRC Clients according to GNRC service authorizations in a timely manner as
dictated by program requirements.
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2. Have procedures in place for the collecting and reporting of GNRC client data and statements and
provide it to GNRC by the eighth day of the month following the month being reported.
3. Communicate with GNRC to ensure that GNRC Clients have access to benefits under other programs
and that services are coordinated in a manner that does not lead to an unnecessary duplication of
services.
4. Acceptance of all requirements and instruction provided in Attachment C, Scope of Services. Any
desired exception must be provided in writing at the time of proposal submission. If no exception is
stated, they might not be granted after the contract is awarded. Exceptions may result in the rejection
of the proposal as non-responsive; if, in the sole evaluation of GNRC, the requested changes are
unacceptable.
General Contract Requirements
Below are the general requirements and expectations that GNRC Service Providers must agree to. By submitting
a response to the RFQ, Offerors are asserting that they agree to these general requirements and will enter a
contract containing these requirements.
1. Follow Standards of Conduct as outlined in this RFQ and as otherwise communicated to the GNRC
Service Providers.
2. Meet appropriate federal or state requirements for licenses and liability insurance for the entirety of
the contract.
3. Comply with all applicable federal, state, and local laws, rules, and regulations, including, without
limitation, civil rights laws.
4. Update the proposal information to GNRC as changes occur during the contract period.
5. Comply with all requirements specified in the service descriptions when providing GNRC-authorized
services. See Section 2.2 for service descriptions.
6. Make arrangements for the availability of services in weather-related and other emergencies when
feasible.
7. Report any abuse, neglect, or exploitation directly to Adult Protective Services, as required by law, as
well as submit reports about incidences and action taken to GNRC.
8. Treat all GNRC Client information as confidential. Ensure that it is filed securely and accessed or shared
according to the minimum necessary rule.
9. Have procedures in place to ensure that no information about a GNRC Client is obtained or disclosed by
a GNRC Service Provider in a form that identifies the person without the informed written consent of
that person or of his or her legal representative. Disclosure may be allowed by court order, or for
program quality assurance by authorized federal, state, or GNRC staff so long as access is in conformity
with the Privacy Act of 1974 or other governing law. All GNRC Client information must be maintained in
controlled access files. (Exception: A written release of information when making a referral for Adult
Protective Services is not required.)
10. Follow the Health Insurance Portability and Accountability Act of 1996 (HIPAA) laws to further protect
the privacy of GNRC Clients if the GNRC Service Provider is a Covered Entity or otherwise subject to
HIPAA requirements.
11. Maintain sufficient insurance to indemnify GNRC and its funding partners against loss. Insurance
requirements are outlined in the attached sample contract (Attachment D).
12. Obtain sufficient bond coverage for protection of GNRC and the SUA from theft, forgery, embezzlement,
and fraud losses by the GNRC Service Provider, any of its agents or employees, full or part-time.
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13. Inform all individuals of their right to file a grievance and provide them with a copy of GNRC's required
grievance procedures and follow the GNRC-required grievance procedures when a GNRC Client is
dissatisfied with service(s) being provided.
14. Complete background checks for employees and volunteers in accordance with Tennessee Code
Annotated 52-2-1002.
15. Allow GNRC to monitor operations at least annually.
16. Respond to requests for information from the SUA and GNRC.
This RFQ will be incorporated into any contract awarded. If there is a material change in any information Offeror
provides as a response to this RFQ, Offeror must immediately notify GNRC.
2.2 Requested Services
The provider(s) selected through this RFQ will provide all the services identified in this section in addition to the
services outlined in detail in Attachment B. The contracting period is July 1, 2026, to June 30, 2030. GNRC
anticipates needing providers for the following services:
Financial Administration
Including payroll services, payment of invoices for self-directed services, and tax filings.
Reimbursement of Pre-Authorized Services
Reimbursement of actual cost of pre-authorized services made by the GNRC Service Provider on behalf of the
GNRC Clients, including authorized payroll services and payment of invoices for self-directed services.
Related Definitions
Self-Direction
A model of service delivery which affords participants more choice and control in the delivery of home and
community-based services. Supported by the fiscal intermediary, a person assessed as eligible (client) would
hire their own personal attendant(s) or other services, whose job duties may include housekeeping, laundry,
cooking, personal care, or transportation. This process is outlined below.
1. Services (amount, duration, scope, provider, and location of services) are planned, budgeted, and
purchased under the direction and control of the client.
2. The client is provided with the information and assistance necessary and appropriate to enable the
client to make informed decisions about their care options.
3. The needs, capabilities, and preferences of the client with respect to such services, and such client's
ability to direct and control their receipt of such services, are assessed by GNRC or GNRC's designee.
4. Based on the assessment, GNRC or its designee, develops together with the client and their family,
caregiver or legal representative:
a. A plan of services for the client that specifies which services the client, family member, or other
legal representative will be responsible for directing;
b. A budget for services
5. GNRC oversees the client's self-directed receipt of services, including steps to ensure the quality of
services provided and the appropriate use of funds under the OAA.
The goal is to avoid institutionalization and related higher costs. Fiscal intermediary functions are related to the
performance of payroll, accounts payable, and related tasks.
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Section 3. Instructions to Offerors
3.1 Pre-Proposal Inquiries
All inquiries should be directed in writing to rfp@gnrc.org by the end of the day on March 8, 2026. The email
must include a subject line that contains the RFQ number. Answers will be provided in writing and made
available to all potential Offerors. All questions and answers compiled through March 8, 2026 will be posted
online at GNRC.org/Procurement as an addendum to the solicitation. Any correspondence related to the RFQ
should refer to the appropriate RFQ number, page, and paragraph number.
3.2 Submission Requirements
Offerors may submit a proposal in one of two ways:
1. Submit one electronic copy (PDF format) to rfp@gnrc.org. The subject heading of the email should be
clearly marked "Attention: RFQ 2026-06"; or
2. Submit one hard copy of the proposal to GNRC, 44 Vantage Way, Suite 450, Nashville, TN, 37228.The
outside of the package should be clearly marked "Attention: RFQ 2026-06"
A copy should be maintained by the Offeror for their records.
Proposals should include all typed, completed forms included with this solicitation. There are no page limits or
specific formatting requirements, but Offerors are encouraged to be mindful of the level of effort involved in
reviewing proposals.
If proposing to serve counties in the service areas of multiple AAADs, Offerors must submit a proposal to each
AAAD designated for the proposed counties in accordance with the appropriate AAAD's procurement
requirements.
3.3 Proposal Contents
The following items must be submitted with each proposal. Failure to include ANY of these items may result in a
proposal being rejected.
Item 1. Cover Letter
Offeror must provide a cover letter signed by an authorized individual submitting the proposal on behalf of their
provider agency. This letter must include the following:
a. A statement that the accompanying proposal is in response to this RFQ
b. A statement that Offeror is willing, if selected, to execute a contract with GNRC containing the terms
provided in Attachment E
c. A statement identifying the individual(s) authorized to finalize a contract on behalf of the Offeror
d. The Offeror's mission statement, values, and guiding principles, if applicable
Item 2. Assurances and Certifications
Include a complete Assurances and Certifications form, provided as Attachment A to this RFQ. The form must
include the appropriate signatures.
Item 3. Business Information
Include a complete Business Information form, provided as Attachment B to this RFQ.
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Item 4. Scope of Services
Include a signed copy of the Scope of Services, provided as Attachment C to this RFQ. This scope of services will
be affixed to a contract with GNRC for fiscal intermediary services if Offeror is selected for a contract. Any
desired exception to this scope must be provided within the proposal. If no exception is stated, they might not
be granted after the contract is awarded. Exceptions may result in the rejection of the proposal as non-
responsive; if, in the sole evaluation of GNRC, the requested changes are unacceptable.
Item 5. Licenses, Certifications, Permits, and Accreditations
Provide copies of all required licenses, certifications, permits, and accreditations required by the state or federal
governments, including the following:
a. A copy of any required licensures related to the proposed services
b. A copy of the Offeror's business license, if required
Item 6. Cost Proposal
The Offeror must include all of the following information in a cost proposal:
a. Expected rate per participant per month for financial administration
b. Any additional expected costs (program onboarding, etc.)
c. Any anticipated rate or cost increases for the duration of the contract
There are no specific formatting requirements for the cost proposal so long as the requested information is
included.
Item 7. History and Experience
Provide the following information about the Offeror's history and experience:
a. A brief history of the Offeror, including number of years in business and its and its service delivery
system for the proposed fiscal intermediary services
b. A description of the Offeror's experience providing services under similar contracts
c. A description of the Offeror's organizational experience in working with older adults or adults with
disabilities, including the number of in-home service clients the Offeror has served in the last year
Item 8. Service Implementation Plan
Provide the following information about the Offeror's approach and plans for service implementation:
a. A description of daily operations
b. A description of quality assurance measures taken by the Offeror
c. The Offeror's plan for providing services during emergencies
d. A timeline for service implementation, including the number of days between being notified of a new
consumer and start of service
e. The Offeror's policy and process for conducting and maintaining documentation on criminal background
checks for staff and volunteers involved in service delivery related to this RFQ
Item 9. Cost Effectiveness
The services requested through this proposal are made available using public funds, as outlined in Section 1.2.
As such, cost effectiveness is a key component of the programs. Describe your agency's approach to ensuring
that the services provided are cost effective.
Item 10. Personnel and Training
Provide the following information related to personnel and training:
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