FSS Sole Source Justification Bridge Contract - CFM Jackman and Coburn Gore LPOE 2025 11 20.pdf

Federal Supply Schedule (FSS) Sole Source Justification (SSJ)

Upon the basis of the following justification, prepared in accordance with the General Services Administration Acquisition Regulation (GSAR) 538.7104-3, it is hereby approved a sole source Blanket Purchase Agreement and Call in accordance with GSAR 538.7102-2 Placing FSS orders and establishing FSS BPAs pursuant to the authority of GSAR 538.7104-3(b)(i). See RFO-2025-08, Supplement 1 and RFO-2025-FSS-GSAR 538, effective November 3, 2025 for deviation and revised procedures.

This acquisition is conducted under the authority of the Multiple-Award Schedule Program ( 41 U.S.C.

152(3), Competitive Procedures, and 40 U.S.C. 501).

1. Identification of the agency and the contracting activity:

U.S. General Services Administration (GSA), Public Buildings Service (PBS), Office of Acquisition Management (OAM), Centralized Acquisition Services Division (CASD) Team B (47PB54).

2. Nature and/or description of the action being approved:

This action is to award a 12 -month Blanket Purchase Agreement (BPA) and BPA call under GSAR 538.7102-2 and 538.7103, consisting of a 6-month base period and a 6-month option period, and a 6-month option period (exercisable under FAR 52.217-8).The services will be for combined facilities services at the following locations:

Jackman Land Port of Entry (ME0823BJ, ME0824BJ & ME0825BJ) 2614 Main Street Sandy Bay Township, ME 04945

Coburn Gore Land Port of Entry (ME0551BE, ME0552BE, ME0553BE ME0554BE & ME05555BE) International Boundary Line Route 27 Coburn Gore, ME 04936

The recurring service requirement will be awarded and funded as a Firm-Fixed Price (FFP) BPA call order pursuant to the Sole Source Justification in accordance with GSAR 538.7104-3 to avoid a lapse in essential building services.

a. Relevant History:

The current O&M Award is an Indefinite Delivery, Indefinite Quantity contract awarded under FAR Part 12 to Madison Services, Inc. The contract number is 47PB0020D0005 and currently expires 11/30/2025. The contract was awarded on 6/1/2020 for a total value of $3,368,247.34 and over the past five and a half years a total of 32 task orders have been placed for above standard services.

3. Description of the supplies and/or services required to meet the agency’s needs:

The combined facility services to be provided at this location include Operations and Maintenance (O&M), Vertical Transportation Equipment (VTE), Custodial, Grounds Maintenance, Snow Removal, Landscaping, and Trash services. These are the standard services required, with contract provisions for additional above standard services to be ordered on an as needed basis.

The contract will be for one (1) 3-month period of performance, one (1) 9-month option period, and one

(1) six-month extension period per FAR 52.217-8. The estimate for this contract is taken from the independent government estimate (IGE) that was provided as part of the requirements package received on 10/9/2025.

The following is the estimated total contract value of the contract inclusive of fixed price recurring services, additional services, and above standard services.

Base 6 months $324,279.44 6 month option $324,279.44

Anticipated Total Value: $648,558.88

4. The authority and supporting rationale, and if applicable, a demonstration of the contractor’s unique qualifications to provide the required supply or service:

The circumstances that justify limiting sources to fewer than those in accordance with the procedures in GSAR 538.7102-2 and 538.7103 is, “GSAR 538.7104-3(b)(i) – The need is of such unusual urgency that following the procedures would result in unacceptable delays in fulfilling that need” This urgent need stems from the impending expiration of the current O&M contract on November 30, 2025. The acquisition team that will be awarding the follow on contract using competitive procedures under GSAR

538.71 has estimated that six months will be needed to make the award. Because of the estimated award time of the competitive follow-on contract and expiration date of the current contract, GSA is in an urgent situation to award a contract under the authority of GSAR 538.7104-3(b)(i).

A lapse in these essential services would create unsanitary conditions, potentially leading to health and safety risks for employees and visitors at the Jackman and Coburn Gore Land Ports of Entry (LPOEs).

Furthermore, a disruption in O&M could result in critical equipment failure, impacting the LPOEs' ability to process border crossings, causing significant delays and impacting national security. These LPOEs are critical infrastructure for processing cross-border traffic, and any disruption to operations would have a direct and negative impact on customs enforcement and trade facilitation.

Madison Services, Inc. possesses unique qualifications due to their five and a half years of experience performing these services at the Jackman and Coburn Gore LPOEs. They have developed a thorough understanding of the specific building systems, operational requirements, and potential challenges unique to these remote locations. This knowledge cannot be easily or quickly replicated by a new contractor. Selecting Madison Services, Inc. for this contract ensures a seamless continuation of services, mitigating the risks associated with a transition to a new contractor during this critical period.

5. A determination by the ordering activity Contracting Officer that the order represents the best value:

The anticipated cost to the Government for this contract is considered Fair and Reasonable as GSA has already determined the prices of fixed-price services, and rates for services offered at hourly rates, under schedule contracts to be fair and reasonable. The same level of effort and the mix of skills will be used in the call order as is being used in the current contract. The Contracting Officer will further negotiate pricing with Madison Services, Inc., leveraging historical pricing data from the existing contract, the independent government estimate (IGE), and GSAR 538.7102-2(c)(2) to obtain additional discounts. A price analysis will be conducted to ensure the proposed pricing is fair and reasonable.

The vendor selected for this O&M service contract will be Madison Services, Inc (Madison). Madison has satisfactorily performed as the incumbent and has also satisfactorily performed similar requirements. They are familiar with the locations and have additional resources to ensure there are no issues with subcontractors or suppliers. No transition would be required, which benefits GSA by mitigating performance risks , because Madison is the current contractor providing services.

Historical pricing from similar requirements and the new IGE will be used to negotiate a fair and reasonable price.

6. A description of the market research conducted among schedule holders, and the results of the research, or a statement why market research was not conducted:

Market research was initially performed in January 2025 via a GSA eBuy Request for Information (RFI) in anticipation of a new BPA award to commence on June 1, 2025 utilizing the procedures of FAR Part 8.405-3, Blanket Purchase Agreements. While the RFI indicated that several vendors were potentially capable, subsequent delays due to changes in personnel in the program office prevented finalizing the requirements package until October 9, 2025. By this time, the existing contract's end date had been extended to November 30, 2025, necessitating a contract with a start date of December 1, 2025. Due to the significantly compressed timeframe and the urgent need to award a contract by November 30, 2025, conducting a new round of formal market research would result in unacceptable delays and a lapse in essential services. The market research conducted in January 2025 is no longer applicable since the authority to award has now been changed to GSAR 538.7104-3(b)(i), vs a competitive award under FAR 8.405-3.

7. Any other facts supporting the sole source justification:

Madison is the best qualified to continue performance of the required services as they are the incumbent contractor and have been performing at a satisfactory or better level.

A break or delay in service would result in the facility not being covered against required maintenance, damage, or failure of systems. This would be detrimental to the government in the form of lost productivity, closure of public services, increased cost for emergency services, and possible personal injury to building employees and civilians. Use of a contractor other than the incumbent could result in risk of significantly poor contract performance due to the absence of a learning curve period given the current period of performance ends within a month. This risk would be to the Government and its employees as well as the Contractor in terms of injury to personnel and equipment, in addition to increased cost risks.

Use of the incumbent Contractor is both prudent and cost effective. A contract provides the GSA with time to get the most equitable pricing for the Government under a new contract via competition. Failure to allow enough time could lead to higher prices paid by the Government over a longer period of time.

Furthermore, a contract does not require a transition and retraining period as it would with a new Contractor. The incumbent has all necessary clearances which provides additional cost savings and eliminates any delay in service.

The estimated lead time for the follow-on, competitive acquisition is an estimated 12-months considering the current workload of the program office and acquisition team supporting the award.

Finding more capable and responsible sources would require additional time for market research. The current contract ends on 11/30/2025; GSA has less than one month to put a contract in place.

8. A statement of the actions, if any, the agency will take to remove or overcome any barriers that led to restricted consideration before any subsequent acquisition for supplies and services is made:

This limited source BPA is only intended to continue the current services until the new recompete can be competitively procured. No other competitive barriers are known at this time as the new requirement will be solicited in Fiscal Year 2026 for award in FY2027 Q1. That procurement will provide fair opportunity for contractors.

In accordance with (IAW) GSAR 538.7104-3(b)(3)(i)(A) Sole Source Justifications, this justification shall be posted within 30 days after contract award.

9. The ordering activity Contracting Officer’s certification:

I certify that the justification is accurate and complete to the best of my knowledge and belief.

Huy Le Contracting Officer CASD-Team B Office of Acquisition Management

Date Signed:

10. Requirements personnel certification:

I certify that the supporting data provided in this justification is accurate and complete to the best of my knowledge and that services are still required.

X Supervisory Property Manager Office of Property Management – East Office of Facilities Management

Date Signed: