JEFO 24-044 - Vectrus - redacted.pdf

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Control Number: 24-044

JUSTIFICATION REVIEW DOCUMENT

FOR EXCEPTION TO FAIR OPPORTUNITY

Service: Logistics Civil Augmentation Program (LOGCAP) V continued Base Life Support (BLS) services at Camp As Sayliyah (CAS), Qatar in support of the U.S.

Department of State (DoS) Enduring Welcome (EW) Mission and Onward Integration Operations for Afghan Special Immigrant Visa (SIV) applicants and their families, and potentially other at-risk Afghanistan civilians.

Authority: Federal Acquisition Regulation (FAR) 16.505(b)(2)(i)(G)

Amount

Prepared by:

Contracting Officer:

Technical:

Requirements:

Lori A. Morrow Contract Specialist Email: lori.a.morrow5.civ@army.mil

Michelle M. Talbot Procuring Contracting Officer Email: michelle.m.talbot2.civ@army.mil

DSN: 793-4346

DSN: 793-7363

Reviews: I have reviewed this justification and find it adequate to support an exception to fair opportunity.

Dir., LOGCAP Ops:

Legal Advisor:

Competition Advocate: Rachel M. Phelps DSN: 783-0281

Chief Counsel:

Senior Contracting Official:

S ~gnature: LP I

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Controlled by: ACC-RI CUIC ego

:PROCURE

Limited Dissemination Control: FEDCON POC: A.Crotty, alexis. k.crotty.civ@army.mil

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Department of Army Justification for Exception to Fair Opportunity

Under Multiple Award Indefinite Delivery Contracts

1. Contracting Activity: U.S. Army Contracting Command- Rock Island (ACC-RI), Rock Island Arsenal, Rock Island, IL 61299-8000.

2. Description of Action: U.S. DoS, through Army Sustainment Command (ASC), requests a cost-plus-fixed-fee bridge modification to Indefinite Delivery, Indefinite Quantity (IDIQ) contract W52P1 J-19-D-0045, Task Order (TO) W519TC-23-F-0076 with Vectrus. ACC-RI will execute this action against the LOGCAP V multiple award IDIQ contract and projects award for Vectrus is the regionally aligned contractor for the U.S. Central Command (CENTCOM) TO for Kuwait, and the Kuwait TO area of operations includes Qatar. As such, Vectrus is best aligned to execute the mission. The TO will be extended for __ The modification will obligate 1111

, Emergency Refugee and Migration Assistance Funds, Overseas Buildings Operations Funds, and Diplomatic Programs Funds.

An Acquisition Plan is not required in accordance with Defense Federal Acquisition Regulation Supplement 207.103(e) because this acquisition is included in the Senior Contracting Official approved LOGCAP V program-level acquisition plan, dated 18 December 2017. The LOGCAP V Acquisition Plan approved the use of multiple award IDIQs with regionally aligned 'Setting the Theater' (STT) TO to satisfy the guaranteed minimum. In accordance the LOGCAP V acquisition plan, requirements approved under a Justification for Exception to Fair Opportunity (JEFO) are sourced to the regionally aligned contractor.

Efforts to conduct a competitive procurement are underway, but for reasons described in paragraph 5, the three new TO will not be in place prior to expiration of the current order. This action is a bridge modification to ensure continuation of BLS services at CAS, Qatar in support of the DoS EW mission.

Vectrus has been supporting EW since the award of TO W52P1 J-19-F-0400, modification P00019 in September 2021. That award was supported by JEFO 21-126, In accordance with Federal Acquisition Regulation (FAR) 16.505(b)(2)(i)(A), Urgency.

Since then, the services have been extended two additional times, along with corresponding ceiling increases, under JEFOs 22-052 and 23-023. JEFO 23-023 was approved in February 2023 to extend EW support services while DoS established its own contract to provide services in Qatar.

In June 2023, under the authority of JEFO 23-023, ACC-RI awarded a new TO, W519TC-23-F-0076, to provide the EW CAS support. The contract line item numbers and obligate the-Overseas Humanitarian, Disaster, and Civic Aid funding as requested by Dos. JEFO 23-072 increased the TO ceiling to

The latest JEFO, 24-013, was approved in

Performance will need to continue beyond Therefore, a JEFO increasing the ceiling and extending the PoP is required. The estimated dollar value based on an Independent Government Estimate (IGE) is valued at

The proposed JEFO will increase the ceiling by to accurately reflect the current levels of service being performed, and includes change order initiated services, estimated potential engineering and construction projects that could be added during the extension period, and material/equipment amounts based on historical data.

3. Description of Supplies/Services: The Department of Defense (DoD), Dos, and the International Office for Migration (IOM), require additional and continuous BLS support at CAS, Qatar in direct support of EW. The services required are specialized and highly critical to the affected population, such as shelter and billeting, food service operations, power/electricity, source and produce bulk water, medical services, dental services, pharmacy support, hazardous waste management, and fire protection services.

CAS, also known as CARE Doha, is utilized as a processing and holding center for SIV and refugee applicants from Afghanistan who are potentially eligible for immigration benefits to the U.S. The operation receives, houses, and feeds Afghan guests as they are vetted and processed prior to onward resettlement to the U.S. The operation provides support to the IOM as well as assigned U.S. law enforcement and intelligence agencies. IOM executes the global Afghan refugee immigration processing mission into the U.S. Executing the mission under LOGCAP makes CAS the largest U.S. immigration facility globally. Processing includes full immigration medical panels and tightly controlled Dos interviews/screening, in addition to the biometric screenings currently taking place. The guests receive food, shelter, immunizations, medical care, education and training, and other services while at CAS.

To continue providing critical BLS services in support of EW at CAS, and to support the complete transfer from DoD to Dos, this effort must be extended from

The estimated dollar value for the is based on an IGE developed by the ASC Program Analyst. The new ceiling for TO W519TC-23-F-0076 will b

Due to the flexibility of LOGCAP to on and off-ramp services, as the Medical Support Services (MSS), Operation & Maintenance Support Services (OMSS), and Life Support Services (LSS) TOs are individually awarded and transitioned under DiPSS, these services can easily be descoped from the current TO, W519TC-23-F-0076.

4. Authority Cited: FAR 16.505(b)(2)(i)(G), for DoD, NASA, and Coast Guard , the order satisfies one of the exceptions permitting the use of other than full and open competition listed in FAR 6.302 (10 United States Code (U.S.C.) 3406(c)(5)), specifically, 10 U.S.C.

3204(a)(1 )), as implemented by FAR 6.302-1. In accordance with FAR 6.302- 1 (a)(2)(iii)(B), for DoD, NASA, and the Coast Guard, services may be deemed to be available only from the original source in the case of follow-on contracts for the continued provision of highly specialized services when it is likely that award to any other source would result in unacceptable delays in fulfilling the agency's requirement.

5. Reason for Authority Cited: In accordance with 1 O U.S.C. 3406(c)(5), and as described in FAR 16.505(b)(2)(i)(G), the U.S. Government is allowed to limit the number of sources from which it solicits proposals if the order satisfies one of the exceptions permitting the use of other than full and open competition listed in FAR 6.302.

ACC-RI awarded LOGCAP Von 12 April 2019, based on full and open competition, and four multiple-award IDIQ contracts were established. Vectrus was the only contractor to receive a LOG CAP V TO in the Southwest Asia region of the CENTCOM Area of Responsibility. LOGCAP Vis designed so that the regional LOGCAP contractor conducts pre-activation planning, which would include efforts prior to LOGCAP being authorized to perform services, in order to shorten response time and establish the conditions for successful execution of future operations. Pre-activation planning under LOGCAP V includes developing an in-depth knowledge of the area of operations, a robust vendor base with possible subcontractors, and an in-depth understanding of the gee-political environment to function in a multitude of possible scenarios.

DoS has been working to develop the requirements and pre-award packages to award contracts of similar scope and nature to support the CARE Doha site. Due to the services being performed, in January 2024 Dos determined that the follow-on award must be divided into three TOs. Each TO requires specialized services, equipment, and materials which cannot be combined into a single award. The complexity of work to be performed under the Operations and Maintenance Support Services (OMSS), Life Support Services (LSS), and Medical Support Services (MSS) TOs was initially underestimated. Due to splitting the requirement into three TOs, each required a new tailored requirements package. This involved separate Performance Work Statements (PWS), Government cost estimates, justification documentation, and supporting documentation. This additional document creation led to a delay in the timeline in which to receive a complete and validated requirement package. Numerous meetings were held between the acquisition and technical teams to clearly define the requirements resulting in numerous reworks to the documents.

Key items identified during the requirements process that impacted the time line included:

• OMSS: As this TO handles the broad operations and maintenance at CAS, an accurate accounting of current GFE/GFP was necessary along with defining which services were to be differentiated from LSS.

• LSS: Food, water, and fuel will be procured under this award, it was imperative to determine how the Offerer's would be required to procure the commodities and ensure the highest quality, cost savings, while respecting Guest's cultural beliefs.

• MSS: The successful contractor would be required to stand-up a new medical clinic to provide health services to Guests as the existing facility was unable to support the volume of care required and the existing equipment is owned/leased by the current contractor.

Once requirement documentation was confirmed, initial solicitations were sent to Offerers on 14 June 2024. This asked for Corporate Ability Statements in which Offerers were required to show they had performed similar work required in the solicitation. The initial period in which the work was performed was extended and additional countries were included.

Site visits were conducted with Offerers which resulted in a large number of questions and recommendations to clearly define what the Government is requiring for the new effort. To provide a more accurate current level of effort, outside information had to be obtained from multiple sources. This included but was not limited to additional information regarding guest levels, care provided, historical data, technical workload data, and site maps. Another key element resulting from the site visit was the need to capture and record the most accurate accounting of current GFE/GFP for each of the three TOs, opposed to just OMSS, and what the successful Offerers should anticipate procuring to ensure a successful transition and continued operation.

Several amendments were issued to Offerers with the requirements and documents being more clearly defined with each issuance. The acquisition and technical teams continued to meet throughout the process to add supplemental information in order to define the requirements resulting in multiple reworks to the TO PWSs and attachments.

Currently, DoS is performing three competitive procurements under the DoS DiPSS contract vehicle to support the transition of the EW mission from DoD to DoS with all three awards scheduled for . Dos has successfully approved the requirements packages and issued the three solicitations on 14 June 2024. DoS's forecasted milestones are as follows:

As the current performance contractor, Vectrus is the only contractor capable of performing the BLS services in support of EW at CAS without a lapse in services.

Vectrus has the employees already in country, the business licenses and agreements in place with the host nation government, and an understanding of the tax and business structures for operating in Qatar.

While all- LOGCAP V contract holders are capable of performing the required services, Vectrus is the only contractor positioned to perform services for this short term PoP until the competitive procurements are awarded. Based on historical procurement administrative lead-times, it would tak

Additionally, the additional administrative burden on acquisition personnel, the logistics burden on theater personnel, and the time required to conduct two large contract transitions far outweigh any benefits gained from competing the short-term PoP. As such, Vectrus is the only contractor capable of performing these services without a disruption until the competitive procurements are complete.

Contract Vehicles/

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6. Market Research: ACC-RI and the ASC LOGCAP Program Management Office completed market research for the new Dos TO under LOGCAP, W519TC-23-F- 0076, in November through December 2022. The team contacted the LOGCAP CENTCOM Branch Chief and LOGCAP Senior Planner again on 10 April 2024 regard ing market capabilities to continue to meet mission requirements. This included confirming that no other viable contracts were already establ ished that could support this effort.

7. Actions to Increase Competition: ACC-RI will conduct TO competitions for new, emerging requirements under LOGCAP V using fair opportunity procedures when conditions permit. Dos will follow th is TO with three competitively awarded TOs under the Dos DiPSS contract vehicle.

8. Other Facts:

Procurement History:

Contract Award Competitively Awardee/ Current Award Dollar Value Number Date Awarded (Y/N), Contractor Expires

Contract Type Authority if restricted/JEFO Control No.

Sole Source W52P1 J- 07 N, FAR Vectrus 29 SEP 2024 19-D- FEB 16.505(b )(2)(i)(G)

0045 / 2024 /JEFO 24-013

W519TC-

23-F- P00013

TOP

(Y/N) y

Sole Source W52P1J- 19 N, FAR Vectrus 29 SEP 2024 y

19-D- SEP 16.505(b)(2)(i)(G)

0045 I 2024 /JEFO 23-072

W519TC-

23-F- P00007

Sole Source W52P1J- 22 N, FAR Vectrus 31 DEC 2024 y

19-D- JUN 16.505(b)(2)(i)(G)

0045 I 2023 /JEFO 23-023

W519TC-

23-F-

Sole Source W52P1J- 29 N, FAR Vectrus 30 JUN 2023 y 19-D- JUN 16. 505(b )(2)(i)( G)

0045 I 2022 /JEFO 22-052

W52P1J- 19-F- P00034

Sole Source W52P1 J- 27 N, FAR Vectrus 30 JUN 2022 y 19-D- SEP 16.505(b )(2)(i)(A)

0045 / 2021 /JEFO 21-126

W52P1 J- 19-F- P00019

Fair W52P1 J- 12 y Vectrus 30 JUN 2025 y

Opportunity 19-D- APR 0045 / 2019 W52P1 J- 19-F-

Full and Open W52P1 J- 12 y Vectrus 02 MAR 2030 y

Competition 19-D- APR 0045 2019

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9. Technical Certification: I certify that the supporting data under my cognizance which are included in the justification are accurate and complete to the best of my

10. Requirements Certification: I certify that the supporting data under my cognizance which are included in the justification are accurate and complete to

11. Fair and Reasonable Cost Determination: IAW FAR 16.505(b)(2)(ii)(B)(5), I hereby determine that the anticipated cost or price to the Government for this contract action will be fair and reasonable based on a cost analysis IAW FAR 15.404-1. Certified Cost or Pricing Data will be required.

Date: 7/3/24 TALBOT.MICHEL, e' ; ;i ;zLE .M.12686723

LE.M. 1268672350 te 2024 .01.mo6 1606-os oo

Michelle M. Talbot Contracting Officer, ACC-RI

12. Contracting Officer Certification: I certify that this justification is accurate and complete to the best of my knowledge and belief.

Date: 7 /3/24

TALBOT.MICHEL, r";;;i zLEM12685723

LE. M.1268672350 le 202· 0103 001110-0SOO

Michelle M. Talbot Contracting Officer, ACC-RI

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Approval

Based on the foregoing justification, I hereby approve the procurement of critical Base Life Support (BLS) services at Camp As Sayliyah, Qatar in support of the U.S.

Department of State Enduring Welcome mission under the Logistics Civil Augmentation Program (LOGCAP) V contract. The total estimated dollar value of this action is . Award will be on an other than full an open basis, pursuant to the authority of Title 10 U.S.C. 3406(c)(5) and 10 U.S.C. 3204(a)(1 ), as implemented in Federal Acquisition Regulation (FAR) 16.505(b)(2)(i)(G). Approval is subject to availability of funds, and provided that the services or supplies herein described have otherwise been authorized for this acquisition.