2.2 When the Agency began work on the project, there was no precedent for seeking to use the Private Finance approach to provide office space. This absence of direct precedents was a factor in planning and managing the procurement. No other large Private Finance Initiative deals had been signed in the office property sector when the Newcastle project started. The furthest advanced Private Finance deals requiring construction of buildings were the first two "Design, Construct, Manage and Finance" Prisons, which were procured between November 1993 and December 1995. The Agency had limited discussions with the Prison Service during the procurement. These were initially around how to invite and evaluate bids on Private Finance deals, and, later on, about specifications for services provided and performance measurement. Private sector bidders and advisers were also unfamiliar with aspects of the Private Finance Initiative. Official guidance on the Initiative, mainly from the Private Finance Panel Executive, emerged and evolved progressively throughout the three years of the Newcastle project.