The solicitation should set a maximum number of pages for proposals. Keep this in mind after the initial embellishment during your rough draft phase. Ideally, the page count was consciously chosen by the Government because the writers of the solicitation determined that was an appropriate number of documentation pages the Government reviewers would need to conduct a thorough evaluation and reach a decision. (Unfortunately, it’s often simply pulled out of thin air or taken from a previous RFP.)
Assuming there was real meaning behind the page count, use that as a guide to help determine the level of detail for the proposal’s non-cost aspects. If you’re exceeding the page count limit, you’re probably including more information than the Government wants, or fluff that isn’t necessary. Perhaps a combination of the two. Conversely, if the maximum is, for example, 30 pages and you’re struggling to fill 20, then that’s a signal that you’re not diving deep enough into the details. Re-look at your statements in the non-cost sections. Are you answering the basic “who, what, where, when, how, and why” questions? Do you identify risks? And do you clearly convey what mitigation steps you’re prepared to take to reduce the risks? These are the details which the Government reviewer is looking for, and that should fill your proposal to close to the page limit.