Let's_Read,_Zambia_Industry_Notice.pdf

U.S. AGENCY FOR INTERNATIONAL DEVELOPMENT

Subdivision 694/Stand 100 Ibex Hill Road

PO Box 320373

Lusaka, Zambia – 10101 infozambia@usaid.gov

USAID.gov

TO: Prospective Offerors

DATE: December 14, 2017

SUBJECT: Pre-solicitation Notice of USAID “Let’s Read, Zambia” Activity

Solicitation Number: 72061118R00001

ACTION: Request for Industry Feedback

Dear Prospective Offerors, The U.S. Agency for International Development (USAID) in Zambia seeks to carry out an activity to improve reading outcomes for approximately 1.4 million children attending pre-primary (kindergarten) through Grades 3 in Zambian public and community schools. The activity is envisioned to be a single award Cost-Plus-Fixed-Fee Completion-Type Contract.

During the procurement planning process, a draft of the Individual Acquisition Plan (IAP) was inadvertently disclosed to one or more potential offerors. USAID has investigated the matter carefully and is confident that no other information about the proposed procurement, other than the draft IAP, was inadvertently disclosed. However, in order to maintain the integrity and transparency of the procurement process and ensure all offerors have equal access to information, USAID is releasing the IAP to all potential offerors. Please note that the IAP is only a draft and the final procurement may or may not change substantially from the information contained therein.

Additionally, USAID is releasing the anticipated Statement of Objectives (SOO) for industry comment and feedback. The SOO has not been released prior to this notice; either intentionally or unintentionally.

USAID/Zambia encourages prospective offerors to review the attachments and provide their feedback and comments to the mailbox listed below no later than January 12, 2018 at

12:00pm Lusaka Time.

USAID/Zambia intends to issue a Request for Proposal (RFP) following this pre-solicitation notice. Further, after RFP issuance, USAID/Zambia may host an industry day to review the requirements under the RFP. All instructions for the industry day will be listed on upcoming updates through www.fbo.gov.

Offerors are advised that this pre-solicitation notice is not a RFP, and in no way obligates

USAID/Zambia to issue a RFP or to award a contract. The information contained in this pre-mailto:infozambia@usaid.gov http://www.fbo.gov/

Pre-solicitation Notice of USAID “Let’s Read, Zambia” Activity solicitation notice, including the attachments, is released to the public for informational purposes only and is subject to change.

USAID/Zambia encourages interested parties to register for updates on this activity via www.fbo.gov. All inquiries concerning this notice must be directed via email to OAA

Solicitations Lusaka AID oaa-solicit-lusaka@usaid.gov to the attention of Alfred Kapambwe and

Mohib Ahmed. Phone inquiries will not be entertained.

Sincerely, Mohib Ahmed

Supervisory Contracting Officer

USAID/Zambia

ATTACHMENTS:

1. Draft Individual Acquisition Plan (IAP)

2. Draft Statement of Objectives (SOO) http://www.fbo.gov/ mailto:oaa-solicit-lusaka@usaid.gov

ATTACHMENT 01 – DRAFT IAP

INDIVIDUAL ACQUISITION PLAN

USAID Let’s Read Zambia Activity

Solicitation Number: {TBD}

COORDINATION:

Beatrice Mweene Date

Activity Manager (Print & Sign)

Mohib Ahmed Date

Contracting Officer

APPROVED: ____

Thomas Crubaugh Date

Deputy Mission Director

Per 7.103(j), the plan must be approved and signed at least one level above the Contracting Officer

LET’S READ ZAMBIA IAP

Source Selection Information - See FAR 2.101 and 3.104

Contents

1.0 ACQUISITION BACKGROUND AND OBJECTIVES

1.1 Statement of Need

1.2 Applicable Conditions:

1.3 Cost

1.4 Capability or Performance

1.5 Delivery or Performance-period Requirements

1.6 Trade-offs………………………...……………………………………………………………..6

1.7 Risks

1.8 Acquisition Streamlining

2.0 PLAN OF ACTION

2.1 Sources

2.2 Competition

2.3 Contract Type Selection

2.4 Source-selection Procedures

2.5 Acquisition Considerations

2.6 Budget and Funding……………………………………………………………………………17

2.7 Product or service descriptions

2.8 Priorities, allocations, and allotments

2.9 Contractor versus Government Performance

2.10 Inherently governmental functions

2.11 Management information requirements

2.12 Make or Buy

2.13 Test and Evaluation

2.14 Logistics Considerations

2.15 Government-Furnished Property

2.16 Government-Furnished Information

2.17 Environmental and Energy Conservation Objectives

2.18 Security Considerations

2.19 Contract Administration

2.20 Other Considerations

2.21 Milestones for the Acquisition Cycle

2.22 Identification of Participants in Acquisition Plan Preparation

3.0 USAID Specific and Implementation & Procurement Reform (IPR) Requirements

1.0 ACQUISITION BACKGROUND AND OBJECTIVES

This Individual Acquisition Plan (IAP) is prepared in accordance with Federal Acquisition Regulation

(FAR) Part 7.105 and as required in Automated Directives System (ADS) Chapter 300.

1.1 Statement of Need

Zambia‘s education system faces daunting challenges in its ability to provide adequate and quality education services. A high pupil-teacher ratio (59:1), high pupil-textbook ratio (10 pupils per book), and extremely poor learning outcomes in critical areas such as reading and math are compounded by a weak education management system and poor infrastructure. Since school fees were abolished in 2002, Zambia has made significant gains toward ensuring near universal access to primary education, yet education quality remains low, particularly in community schools which serve 20 percent of the most economically disadvantaged children. Only 20 percent of children who enter the school system manage to complete the education cycle through grade 12. The poor quality of education has exacerbated inequities for girls and disadvantaged children in general. Given the learner demographics, teacher qualifications, and resource challenges facing most Zambian schools, improving learning outcomes is critical.

USAID Zambia believes the most strategic impact it can make in the country’s education sector is to address early grade reading. This includes educating children in the languages they speak and understand, where possible in the earliest grades to allow for earlier comprehension and a smoother transition into other languages in subsequent years. The Let’s Read Zambia activity supports one of GRZ’s top priorities of improving education quality in the Education Sector National Implementation Framework (NIF III)

2011-2015. The NIF III combines the policy aspirations outlined in Educating Our Future, Vision 2030, and the Sixth National Development Plan, which embrace social factors that impact the education system, including illiteracy.

1.1.a. Need/Requirement:

The Let’s Read Zambia activity is to provide support to the Government of the Republic of Zambia (GRZ) through the Ministry of General Education (MoGE) to improve reading outcomes in Zambia for approximately 1.4 million children in public and community in Pre-primary to Grade 3 in five targeted provinces namely: Eastern, Muchinga, North Western, Southern and Western. Let’s Read Zambia will ensure that students attending Zambian public and community schools will have an opportunity to learn to read grade level text with comprehension and to write at grade level in one the seven local official languages of instruction: Cinyanja, Chitonga, Icibemba, Kiikaonde, Lunda, Luvale and Silozi after three years of primary schooling in Grades 1-3. Pre-primary (Kindergarten) students in all of the targeted provinces will develop oral language skills and emergent literacy skills to prepare them for successful literacy acquisition when they enter Grade 1.

Let’s Read Zambia is a five year activity which will support and work through the Ministry of General

Education (MoGE)’s decentralized management structures, from the central and regional/district down to the zonal, school and classroom levels. The activity will also require government engagement and mobilization of parents and community to support reading activities. Let’s Read Zambia will be implemented in approximately 4,250 schools, (3,155 public and 1,095 community primary schools including special education schools and units, and Early Childhood Education centers annexes ) that are clustered in an estimated 425 zones in 56 districts of Zambia’s five provinces. In line with the MoGE’s

2014 roll-out of the Primary Literacy Program and revised curriculum, Let’s Read Zambia will promote reading and writing in one of the seven local official languages of instruction in the respective regions:

Cinyanja, Chitonga, Icibemba, Kiikaonde, Lunda, Luvale and Silozi (Grades 1 -3), as well as English as an independent subject starting in Grade 2. English is the official language of instruction in Grade 5.

Working through and with the various levels of the Zambian education system will lead to sustainable and replicable practices that will improve reading instruction and student learning outcomes.

At the end of the five years implementation period, the Let’s Read Zambia activity is expected to achieve the following:

● Pre-primary (Kindergarten) students in the targeted provinces develop oral language skills and emergent literacy skills to prepare them for successful transition to Grade 1; and

● Grades 1-3 students target provinces within public and community schools learn to read with comprehension and write at grade-level in one of the seven local official languages of instruction:

Cinyanja, Chitonga, Icibemba, Kiikaonde, Lunda, Luvale and Silozi.

1.1.b. Technical and Contractual History:

This is a new requirement that will be acquired through a competitive negotiated acquisition process.

1.1.b. Acquisition Alternatives:

A review of the potential acquisition alternatives was done taking into consideration previous acquisitions of a similar item or service, the impact of prior acquisitions on these alternatives, and related in-house efforts, which indicated that the best acquisition method is contracting by negotiation for provision of required teaching and learning materials (this may include learners’ textbooks and teachers’ guides, teaching aides, ICT equipment) and professional development for building the country’s early grade reading skills and management capacities (technical assistance including training, coaching and assessment). USAID intends to exercise considerable amount of technical direction that is, performing day-to-day oversight and providing technical direction which would be inappropriate under an assistance instrument. Additionally, the Contractor will be required to work with existing GRZ education teams at all levels and operate within GRZ priorities, structures and policy guidelines for best results and sustainability.

1.2 Applicable Conditions:

The applicable significant conditions affecting this acquisition are:

Let’s Read Zambia will be funded through Development Assistance (DA) Basic Education funds and implemented within the USAID Global Education Strategy 2011-2017 guidelines. There will be need to incorporate any changes that may result from the revised Strategy (review process is ongoing).

Let’s Read Zambia will build on lessons learned and best practices from other USAID supported activities in the country, specifically Time to Learn, Read to Succeed, Zambia EdData and STEP-

Up. Building on this, the Contractor will be required to work closely with MOGE.

The Contractor will work closely with other additional complementary USAID supported activities to the education sector through separate mechanisms for improved research, evaluation and national assessments capacities (Education Data) and Teaching at the Right Level (TaRL), also known as the GRZ Catch-Up program.

Though the activity falls within environmental categorical exclusion determination, it is vital that the Contractor closely monitors implementation of the Let’s Read Zambia tasks to ensure adherence to the relevant GRZ and USAID protocols.

1.3 Cost

The total estimated cost of the contract(s) covered by this acquisition plan, including all contract options, is $48,000,000. This estimate is based on an independent government cost estimate (IGCE) developed using historical implementation costs, administration costs and other costs. The IGCE is informed by recently past and ongoing USAID activities mentioned under 1.2 above as well as the prevailing market prices. Further, during the design stage, there was a call for information that provided useful feedback on the estimated cost.

The following related cost concepts will be employed in the acquisition process:

1.3.a. Life-cycle-cost:

Life-cycle cost (LCC) analysis does not apply to this acquisition since the acquisition is not for systems or equipment.

1.3.b. Design-to-cost:

Design-to-cost (DTC) objectives do not apply to this acquisition since the acquisition is not for systems or equipment.

1.3.c. Application of should-cost:

Should-cost analysis does not apply to this acquisition (FAR 15.407- 4).

1.4 Capability or Performance

The prospective contractor needs to have the following capabilities, performance characteristics or standards in order to meet the requirements for this acquisition:

Understanding of the development challenges in the education sector specifically as they relate to early grade reading with demonstrated understanding of implementation in a context with low reading levels and transitioning to government.

Proven organizational capacity to carry out proposed tasks effectively and efficiently.

Demonstrated capacity for sound management and planning and adherence to high quality standards for proposed deliverables.

Capacity to effectively coordinate with GRZ, other donors, other implementing partners, and

USAID.

1.5 Delivery or Performance-period Requirements

The delivery or performance period requirements for this acquisition will be five years and is based on the guidelines of Goal One of the USAID global Education Strategy, the USAID Zambia Mission’s five year

(2014-2018) strategy. Let’s Read Zambia falls under Objective 3 – Human Capital Improved of the current

Country Development Cooperation Strategy (CDCS). Also considered is the nature of the reading intervention covering grades 1-3 including pre-primary that requires substantial time (for example, for training the required teachers and administrators, and coaching) and funding resources.

1.6 Trade-offs

The following trade-offs and the expected consequences for allowing a trade-off have been considered for this acquisition as follows:

The overriding consideration is the need to achieve the project goal of improving reading outcomes for

Zambian primary school children in grades 1-3 using approaches that incorporate evidence based research and innovation. This is considered more important than cost concerns. An optimum combination of early grade reading specialized technical capability, experience, qualifications and skills is considered critical to achieving the activity goal. Specifically, the acquisition team determined that it is more important to reach out globally to source the right specialized technical staff and organizations to implement this contract. USAID is prepared to pay higher costs to a contractor meeting these criteria and able to manage a contract of this size in order to achieve the outcomes set in the statement of objectives. The expectation is that the deliverables will be clearly tabulated and will be closely monitored for efficiency and cost effectiveness. It is in line with the above discussion and FAR Part 15.101, that the acquisition team made the determination that the technical considerations will play a more dominant role than cost in source selection.

1.7 Risks

The following identifies the potential technical, cost and schedule risks for this acquisition, the planned actions to reduce these risks, and the consequences of failure to achieve goals:

Technical: Any change in the language of instruction policy would affect implementation and outcomes of the activity. To mitigate this risk, it’s planned that regular and stronger collaboration with the

Government of the Republic of Zambia specifically with the MoGE and cooperating partners will be in place to ensure that sector priorities around early grade reading are sustained.

Cost: Given that procurement of the activity falls in a period when the Agency (USAID) is reprioritizing/refocusing its ways of working, this could have implications for total contract costs and scope of work. To mitigate this risk, USAID has planned to mostly use existing Basic Education

(Development Assistance funding) pipeline funds to meet the Total Estimated Cost of the activity.

Inflation or currency destabilization could also affect the costs of the activity. It is planned that the activity will be negotiated in US Dollars and that the in-country expenditure will be incurred in the local currency, the Kwacha. To cushion against any negative impact of currency fluctuation, the Contractor will be asked to develop and implement cost containment measures, in line with USAID budgeting and planning requirement.

Schedule: Risks associated with the activity include the requirement to perform some activities jointly with district and provincial level education staff including requiring their input in preparation of some deliverables. Activity implementation might be delayed in the event that targeted teachers and other GRZ personnel are not available as per schedule. As in the case of cost, to mitigate this risk, the Contractor will include mechanisms for strong and regular collaboration with GRZ in planning and implementation.

1.8 Acquisition Streamlining

Acquisition streamlining does not apply per FAR 7.101, as the acquisition is not for systems.

2.0 PLAN OF ACTION

2.1 Sources

2.1.a The following techniques were used to conduct market research:

Interviewed USAID officials in Washington and in-country with focus on education including experts in early grade reading;

Focused consultation with GRZ for sector prioritization and policy direction;

Through collective and individual meetings with implementing partners, cooperating partners and prospective Offerors;

Used Government of the Republic of Zambia (GRZ) sources; e.g. GRZ, Ministry of General Education

(2014); Education Statistical Bulletin, and GRZ, Ministry of General Education, National

Implementation framework III (2011-2015);

Posted a draft of statement of objectives and Request For Information on FedBizOpps on 15 th

March 2016;

Reviewed existing Indefinite Delivery Indefinite Quantity Contracts and consulted with USAID

Washington on the same;

Reviewed existing USAID supported mechanisms; Time to Learn, Read to Succeed, STEP-Up, and Zambia EdData. Including baseline, midline and EGRA reports;

Review of Internet resources - A search was conducted on published reports and other documents on the internet using the Google search engine;

Reviewed documents and evaluations from other countries with similar activities.

2.1.b Market research resulted in the following relevant information that has influenced the planned acquisition approach:

Identifying current challenges in implementing the revised curriculum particularly the Primary

Literacy Program;

Available body of knowledge of best practices and interventions indicated that a working model must include the five ‘Ts’ of early grading reading, namely: teachers, textbooks, time on task, tongue (mother-tongue instruction), and testing. Activities in any of these areas including teaching at the right level constitute the ‘basic package’ of education interventions that will ensure that children learn to read at grade level;

Redefining the objectives, strategies and minimum required services and resources is cardinal in improving early grade reading outcomes;

The team concluded that given the requirements, the activity could not be sourced locally or through an assistance instrument.

2.1.b.(i) The following potential sources are capable of satisfying the agency’s requirements and were identified using the market research techniques described above. The list below is based on firms that responded to the RFI:

Name Location (City, State) Type of

Entity*

Potentially

Capable

Chemonics Washington, DC L Yes

Creative Associates Washington, DC L Yes

Plan International Washington, DC L, NP Yes

Better Kids Foundation South Africa, Unknown town

Unknown Unknown iSchool Lusaka , Zambia LFP Yes

Impact One Initiative Lusaka, Zambia LNP Unknown

*The following codes are used under type of entity:

L = Large business concern MI = Minority Institution (post-secondary)

SB = Small business concern WO = Woman-Owned small business concern

SDB = Small disadvantaged business concern HUBZone = HUBZone small business concern

8(a) = SDB Qualified under the 8(a) Program NP = Not-for-profit or non-profit

UNIV = University or educational institution VO = Veteran-owned small business concern

HBCU = Historically black college or university SDVO = Service-disabled VO small business

LFP = Local for-profit entity (see ADS XXX for definition)

LNP = Local non-profit entity (see ADS XXX for definition)

Although FAR part 19 is not applicable overseas, in reference to small business consideration, small business set-aside is not considered appropriate because market research did not demonstrate enough organizations with capabilities that could responsibly respond to the Government’s requirement. The solicitation will be open to all interested firms.

2.1.b.(ii) Availability of Commercial or Non-developmental items:

Technical assistance to governments is not in and of itself a uniquely governmental service. Technical assistance to resource-deficient government agencies in developing countries with immature governance systems is unique in that the operating environment is often unstable and vulnerable to civil unrest, political crises, and natural and man-made disasters and is a uniquely governmental service. These services are typically contracted by the U.S. Government and other donor countries to improve the development of lesser-developed countries and there are dozens of organizations, both for-profit and not-for-profit, regularly engaged in providing these services to USAID and donor countries. Organizations providing these services do not have commercial price lists as the nature of the contract services are tailored to the specific development problem and hypothesis posed by each activity. Where possible the government will review the price for labor and qualifications against commercial standards to ensure that proposed costs and prices reflect market values.

2.1.b.(iii) Extent to which commercial items or non-developmental items could be incorporated at the component level:

As stated above, this requirement is primarily for services and where commercial service comparison can be made the government will do so.

2.1.b.(iv) Standard commercial practices:

Based on the above explanation, standard commercial practices are not applicable to this acquisition aside from obtaining rate comparisons for cost and price purposes.

2. 1.b.(v) Recovered materials and energy conservation and efficiency:

This is not applicable since this is not an agency acquisition of an Environmental Protection Agency

(EPA) or United States Department of Agriculture (USDA) designated item under FAR 23.400. Instead, USAID/Zambia will be contracting for the services acquired through this acquisition

2.1.b.(vi) Bundling:

There is no contract bundling in this requirement. There is one single requirement for technical assistance to the nutrition program.

2.1.b.(vii) Accessibility Standards for Electronic and Information Technology:

This acquisition is not for the purpose of procuring electronic and/or information technology

2.2 Competition

2.2.a. Competition will be sought, promoted, and sustained throughout the course of the acquisition by conducting a full and open competitive solicitation for award. Based on feedback from the international development marketplace on USAID procurement processes, USAID/Zambia is sharing background information influencing the acquisition prior to releasing the RFP, releasing a draft statement of objectives, evaluation criteria, and instructions with potential offerors, and updating the USAID business forecast in a timely manner. Thus far, USAID/Zambia issued a draft statement of objectives on

FedBizOpps on March 15, 2016 to stimulate interest and request feedback. The acquisition team intends to post the updated statement of objectives, evaluation criteria, and instructions to offerors.

2.2.b. This acquisition does not contain multiple major components or subsystems.

2.2.c. Spares and repair parts are not applicable to this acquisition.

2.2.d. This acquisition has the potential for subcontracting opportunities that can be acquired through competition. The acquisition team determined it is in the government's best interest for partnerships between the prime contractor and major subcontractors (including local partners) to be formed during the pre-proposal phase to give the team an opportunity to evaluate the technical capability and past performance of the entire proposed contractor team. The Contracting Officer will review any requests for subcontracts in accordance with FAR 52.244-2.

2.3 Contract Type Selection

The resulting contract will be a cost-reimbursement (cost plus fixed fee) completion type contract. The

Contractor will be paid for all of its allowed expenses to a set limit, plus fee. As a cost-plus-fixed-fee government will pay the Contractor a negotiated fee that is fixed at award of the contract. The fixed fee does not vary with actual cost, but may be adjusted as a result of changes in the work to be performed under the contract.

In order to ensure close monitoring of activity expenditure, the COR will review submitted vouchers to ensure executed expenses align with the approved work-plan and that incurred costs are realistic, allowable and allocable.

The purpose of this section is to document why the particular contract type was selected, pursuant to FAR

16.103(d)(1).

2.3.a. Why the contract type must be used to meet the agency need:

In accordance with FAR 16.301-2 The Contracting Officer determined that circumstances do not allow the agency to define its requirements sufficiently to allow for a fixed-price type contract and that uncertainties involved in contract performance do not permit costs to be estimated with sufficient accuracy to use any type of fixed-price contract.

USAID/Zambia is acquiring technical assistance and services for improving reading levels among learners in primary schools in a standalone contract, and the contractor will be required to focus on Zambia's five provinces with the lowest reading levels. Significant flexibility in the contractor's approach is also required as the implementation of the activity will be in schools with varying needs/requirements, hence the need to redefine the priorities during the period of performance. Moreover, the technical requirements; rural, developing country working conditions; dynamic political environment; and inadequate, Zambia-specific cost history for similar requirements in a standalone contract present sufficient uncertainties that make it difficult to estimate performance costs in advance. The Government is able to establish specific tasks and objectives which need to be achieved or “completed” during contract performance. In order to help mitigate performance risk, the use of a completion contract is appropriate to ensure that the contractor will remain within costs while producing a tangible deliverable that can be measured over time.

2.3.b. The Government's additional risks and the burden to manage the contract type selected:

Through a cost reimbursement contract, the Government will incur additional cost risks while providing the contractor only a minimum incentive for control costs. This will in turn, create the additional burden of managing the contractor’s cost and constantly monitoring the adequacy of the contractor’s accounting system and proper vouchering, as well as the contractor’s timely performance against the schedule or work plan by the appointed Contracting Officer’s Representative (COR.) Technical guidance and direction will also increase at the Government’s expense (again, through the COR.) The Contracting Officer's

Representative (COR) with support from the Financial Management Office will need to review detailed contractor invoices prior to approving for payment and closely monitor proposed major costs, such as international travel, equipment purchases, and short-term consultancies. The COR will need to coordinate closely with the GRZ representatives and the CO to manage the GRZ's expectations and ensure that the contractor's implementation LOE remains within the general scope of the award. Additionally, the COR will likely need to provide feedback on documentation multiple times prior to accepting deliverables and/or make marginal cost vs. technical quality trade-offs when making a decision about whether to accept deliverables.

2.3.b.(i). How the Government identified the additional risks:

The Government identified the additional risks through analysis of previous contracts in the mission, the results from early grade reading assessments, and through other market research as described in section

2.1.b above.

2.3.(b).(ii). Nature of the additional risks:

There is the potential for cost overruns due to the need for USAID and its contractor(s) to respond to evolving needs as identified by the GRZ and the varying needs of both public and community schools.

Based on the acquisition history of this requirement and the clearly-defined deliverables, the acquisition team is confident there is a high probability that the higher-level project objectives can be achieved during the five-year award period. The Statement of Objectives does not include detailed specifications to allow flexibility in award implementation though a menu of proposed interventions will be used during evaluation of the offerors. Inherent in this flexible statement of objective are risks that the contractor will incur extra costs to meet contractual obligations or the COR will give within scope technical direction leading to increased costs and/or schedule delays in one or more task areas at the expense of other task areas.

2.3.(b).(iii). How the Government will manage and mitigate the risks. The Government will manage and mitigate the risks by:

Requiring the contractor to submit annual budgeted work plans detailing technical activities and required resources for the COR's approval;

The COR, along with three FMO professionals, will review contractor invoices prior to approving them for payment, also closely monitor proposed major costs, such as international travel, equipment purchases, and short-term technical assistance. Requiring the contractor to submit quarterly accrued expenditure and pipeline information;

Require the COR to prepare and submit quarterly accrued expenditure reports to FMO;

Requiring specific tangible deliverables for COR approval that detail the contractor's initial technical assistance and capacity building plans; requiring the contractor to update plans annually in the contract for the COR's approval;

Holding semi-annual portfolio reviews for this activity with USAID/Zambia senior management to examine the performance of this and other awards in terms of contract performance and pipeline compliance;

The technical assistance and capacity building Contract Line Item (CLN) being incrementally funded;

USAID/Zambia's Financial Management Team hosting quarterly financial reviews with the

Program Office, Education office, Mission management, and the OAA to review the financial status of this award; and

Site visits by OAA; Contract Administration by OAA.

2.3.c. Resources necessary to plan for, award, and administer the contract type:

The following Government resources were identified as necessary to properly plan for, award, and administer the contract type selected:

The following Government resources were identified as necessary to properly plan for, award, and administer the contract type selected: additional contracting personnel are needed to plan for, award, and administer the Cost Plus Fixed Fee (CPFF) contract; not receiving additional support would result in significant delays in making the award, inadequate oversight by the contracting officer to monitor progress, potential schedule delays in implementation due to prolonged response times for administrative approvals, such as vehicle purchases and international travel requests.

2.3.d. Because the anticipated contract type is other than firm-fixed-price, the following additional information is provided:

2.3.d.(i). Why other than a firm fixed price contract is appropriate:

The use of a CPFF contract is appropriate because the complexities of the procurement as discussed above, along with the uncertainties involved in contract performance lasting for a relatively long period of time (five years) do not permit costs to be estimated with sufficient accuracy to use any type of fixed-price contract (see FAR 16.301-2.) Similarly, uncertainties involved in contract performance as effective and timely buy-in from the local government and local organizations and changes in host-government priorities and resources do not permit costs to be estimated with sufficient accuracy to use any type of fixed-price contract (FAR 16.301-2.)

2.3.d.(ii). Facts and circumstances supporting contract type selection:

The Contractor's implementation approach, delivery schedule, and costs are vulnerable to the dynamic working environment in Zambia. The Contractor will provide technical and capacity building assistance to resource-deficient government entities at the provincial, district, school, and community level in a developing country with an immature governance system.

The contractor will face a number of unknown variables impacting implementation. Based on feedback on the draft SOO, some potential offerors are concerned about USAID/Zambia's planned investment and noted this effort will likely be expensive given the geographic location and requirement to work at the school level. Because of that, the exact extent of the required assistance cannot be defined therefore confirming the need for using a cost-reimbursement type of contract in this case.

Because USAID/Zambia does not want to incentivize the contractor to minimize necessary investments in technical assistance, or equipment in order to maximize profit or incentive fees, the use of a Cost Plus

Incentive Fee or Fixed Price Incentive Fee contract-type results impracticable (FAR 16.306) in this case, thus leading to the conclusion that a cost-post fixed fee completion form contract was a better fit to the needs of this requirement.

2.3.d.(iii). Adequacy of Government resources to plan for, award, and administer other than firm-fixed-price contracts:

The activity manager has experience overseeing early grade reading activities in Zambia. The activity manager’s knowledge from these experiences contributes to many of the business decisions made about this acquisition. The USAID/Zambia's Office of Acquisition and Assistance is currently in the process of recruiting two new A&A specialists to backfill vacant positions. This will ensure the CO has the support necessary to administer this award. The CO will identify a COR and an alternate COR to manage the award from a technical perspective. USAID/Zambia's financial management office will provide additional support to the COR with respect to managing the award pipeline and planning obligations throughout the award period. The Education Office plans to recruit a Deputy Director.

2.3.d.(iv). Planned actions to minimize use of other than firm-fixed-price contracts on future acquisition:

The proposed SOO for this activity includes clearly defined deliverables within the manageable control of the Contractor. The SOO includes a requirement for annual work plans with budgets aimed at further defining and detailing specific deliverables. This will allow USAID/Zambia to collect sufficient cost and performance data to analyze the feasibility of transitioning in the future to less risky contract types in subsequent acquisitions, such as Cost Plus Incentive Fee, Fixed Price Incentive Firm target and/or Firm

Fixed Price if USAID/Zambia continues to require these services.

2.3.e. Level-of-effort, price redetermination, or fee provision:

N/A - This contract will be a cost-plus-fixed-fee, completion form contract. Therefore, there will be no set level of effort or price redetermination provision in the solicitation or award. The team anticipates including FAR 52.216-8 Fixed Fee in the solicitation because USAID is contemplating a cost plus fixed fee award. The contractor must complete and deliver all deliverables per the final approved contract schedule, and the COR approve each deliverable as a condition for payment of the fixed fee.

2.4 Source-selection Procedures

The evaluation process and source selection for this acquisition involves a two-tier approach consisting of a Technical Evaluation Committee (TEC) and the Source Selection Authority (SSA) or Contracting

Officer. The responsibilities of the source selection organization and members are outlined below.

Source Selection Authority (SSA): The SSA is the Contracting Officer (CO). The SSA will make the final source selection decision based on the results of the proposal evaluations. The SSA is responsible for the acquisition and ensures that the source selection is conducted properly and efficiently and conforms to

USAID and Federal acquisition policies and requirements.

Technical Evaluation Committee (TEC): The primary responsibility of the TEC is to ensure a comprehensive evaluation of each submission in response to the RFP in accordance with the source selection plan and the evaluation factors contained in the solicitation. The TEC should be composed of personnel familiar with the operational requirements and environment of the project. The TEC will be led by a chairperson and will consist of a minimum of three other persons. The evaluation committee will be consisted of one or more USDHs. The TEC may include locally engaged staff as well as

USAID/Washington-based staff. Non-voting members serving as advisors or consultants on specific topics may support the TEC. The TEC Chairperson will head the TEC and will report to the SSA. The TEC

Chairperson will be responsible for the overall management of the TEC and act as the TEC’s interface with the SSA.

The TEC Evaluators are voting members of the TEC, and will be responsible for determining how well proposals satisfy the evaluation criteria set forth within the RFP. This will be accomplished by evaluating all written proposals and rating each of them against the appropriate evaluation factors specified in the solicitation.

Duration and Location of the Evaluation: The TEC evaluation of submitted proposals is expected to require approximately 20 business days total. The evaluation committee members will remain available and committed until all evaluation and source selection actions have been completed. All evaluation committee members will be required to be present or otherwise available (e.g. via video teleconference) at the evaluation location during normal duty hours. All facilities used for source selection shall be configured so that the evaluation can be performed in a controlled, secured area.

Proposal Evaluation Process: The purpose of the evaluation process is to provide critical input to the source selection determination by providing a rational basis for selection of the successful offeror. The evaluation process provides the necessary analysis of the proposals, which will allow the SSA/CO to decide which proposal best, satisfies the needs of the Government.

Proposal Evaluation: TEC Evaluators will assess and rate proposals based on how well the offerors meet the factors and requirements outlined in the RFP. A full Source Selection Plan (SSP) will be completed to document the evaluation methodology. The following draft evaluation criteria are planned to be used for this acquisition:

FACTOR FACTOR NAME

Factor 1 Technical Approach

Factor 2 Management Approach

Sub Factor 2.1 Key Personnel

Sub Factor 2.2 Management and staffing plan

Factor 3 Institutional Capacity

Factor 4 Quality Assurance and

Surveillance Plan

Factor 5 Past Performance

Limits on Exchanges: Government personnel involved in the acquisition will not engage in conduct that:

● Favors one offeror over another.

● Reveals an offeror’s technical solution, including unique technology, innovative and unique uses of commercial items, or any information that could compromise an offeror’s intellectual property to another offeror.

● Reveals the names of the individuals providing reference information about an offeror’s past performance.

● Knowingly furnishes source selection information in violation of FAR Part 3.104 and

41 U.S.C. 423(h)(1)(2).

All communications with the Offerors will be conducted by the Contracting Officer.

Source Selection Documentation: It will be ensured that the source selection process is adequately documented, both to substantiate and provide an audit trail for the source selection decision and support that decision against possible protests by unsuccessful offerors. The appropriate documents, including the

SSA’s decision document, as required by FAR 15.308, briefings to the SSA, and other reports as necessary to capture all consensus findings of the TEC, will be retained as part of the contract file.

Restriction of Source Selection Participants: Because participation in a source selection involves access to procurement sensitive information it is essential that it be safeguarded in a manner similar to

"classified" material. Participants in a source selection must accept and be willing to certify their acceptance of certain restrictions when nominated to serve on the TEC. Participants will be informed not to disclose proprietary or source selection information in accordance with FAR 3.104 and AIDAR

703.104. Participants will be asked to avoid actual or perceived conflicts of interests. Participants will be required to understand and sign a Conflict of Interest and Non-Disclosure Statement.

Document Control: Proposals, the source selection plan, evaluation documents, and other material related to the source selection will be closely controlled by the TEC Chairman. All source selection materials will not be removed from the evaluation work location, except with the specific, expressed permission of the

Contracting Officer. If applicable, the Contracting Officer will establish procedures that will allow for

USAID/Washington staff to participate in the TEC (as members and/or as observers) virtually. Following contract award, proposals and evaluation material will be archived and/or disposed of in accordance with established procedures.

An Earned Value Management System (EVMS) and Integrated Baseline Review (IBR) are not required for this acquisition. See Source Selection Plan for detailed procedures.

2.5 Acquisition Considerations

2.5.a Planning for the contemplated contract included the following considerations:

2.5.a.(i). Multiyear contracting, options, or other special contracting methods:

The acquisition will be a multiple year effort. It is envisaged that this will be a five year contract.

2.5.a.(ii). Special clauses or solicitation provisions: N/A

2.5.a.(iii). FAR or AIDAR deviations required: N/A

Deviation from FAR 17.204(e) must be approved by the Head of Contracting Activity to allow for service contracts to exceed five years in duration. The deviation was approved on June 30, 2017 and a copy of the approval is on file.

Grants under Contracts authority must be obtained by the Mission Director prior to the execution of the solicitation. A copy of the approved GUC memo will be on file.

2.5.a.(iv). Contracting Method:

The contracting method that will be used is negotiation because a statement of objectives and Request For

Proposals will be issued. The government intends to provide opportunity for offerors to submit their technical and cost proposals so that the best proposals can be selected for negotiation and award thus increasing the likelihood of successful implementation of the activity.

2.5.a.(v). Acquisition of Equipment:

It is anticipated that the following equipment will be acquired by purchase because the project needs to establish offices in Zambia at the provincial level and with frequent support to the 56 districts as will be determined:

Vehicles

Motor cycles

Office furniture and fittings

Computer Equipment

Generators

Inventors

Camera, projector and other equipment

2.5.a.(vi). Other Considerations:

Activities under this contract require close collaboration with the MOGE and the Education Data activity.

The Contractor will build the capacity of MOGE teachers in literacy instruction and student assessment for improved reading outcomes. There are some measurable, meaningful performance standards that USAID can use to objectively rate the contractor (i.e. quality in terms of GRZ satisfaction with services).

2.5.b Planning for each contemplated order included the following considerations:

2.5.b.(i). Requirements for information technology acquisitions.

N/A

2.5.b.(ii). Benefits to the Government:

Anticipated benefits to the Government include: This program aligns with U.S policy and Agency priorities in Education. USAID’s Global Education Strategy aims to improve reading skills for children in primary grades worldwide. The Country Development Cooperation Strategy (2011-2017) also aims at improving reading levels among early grade learners in Zambia. USAID believes the most strategic impact it can make in basic education is to address early grade reading. This includes educating children in the languages they speak and understand, where possible in the earliest grades to allow for earlier comprehension and a smoother transition into other languages in subsequent years. Additionally, the activity supports Government of the Republic of Zambia education priority of improving education quality in the Education Sector National Implementation Framework (NIF III).

2.5.b.(iii) Internet Protocol Requirements

2.5.b.(iv). Transition to firm-fixed-price contracts/orders:

The acquisition team does not anticipate technical assistance and capacity building activities to be transitioned a firm-fixed-price contract type. However, the planned contract structure should provide sufficient data about the contractor's technical and financial performance to facilitate a future acquisition team's potential transition to less risky contract types for the same requirement or a portion of contract line items that are FFP.

2.6 Budgeting and funding

The total estimated cost of the contract and basis for the estimate are set forth in Section 1.3 above. The estimated cost per year of the anticipated contract can be found within the IGCE.

2.7 Product or service descriptions

The requirements for this acquisition are to improve reading levels for approximately 1.4 million students in approximately 4,250 public and community primary schools, including Early Childhood Centers that are clustered in an estimated 425 zones in 56 districts in the five target provinces of Eastern, Muchinga, Southern, and Northwestern. The Activity will ensure that:

● Pre-primary (Kindergarten) students in the targeted provinces will develop oral language skills and emergent literacy skills to prepare them for successful transition to Grade 1; and

● Grades 1-3 students target provinces within public and community schools learn to read with comprehension and write at grade-level in one of the seven local official languages of instruction:

Cinyanja, Chitonga, Icibemba, Kiikaonde, Lunda, Luvale and Silozi.

2.8 Priorities, allocations, and allotments

USAID does not have delegated Defense Priorities and Allocations System (DPAS) rating authority for this acquisition.

2.9 Contractor versus Government Performance

The anticipated contract will not be used to perform inherently governmental activities, nor was the requirement previously performed by USG personnel.

2.10 Inherently governmental functions

A review of the requirements was performed in accordance with FAR 7.5 to ensure that the proposed contract does not include performance of any inherently governmental or critical functions. Per FAR

7.105(b) (10), Subpart 7.5, a written determination will be made concurrent with the SOO, that that none of the contractor functions to be performed are inherently governmental.

2.11 Management information requirements

The post award administration and monitoring of the contractor's effort, to the degree known at this time, will be performed using the following techniques and systems:

Project site visits;

Annual budgeted work plans;

Quarterly performance reports;

Quarterly financial reviews (internally) with the financial analysts, contracting officer, technical officer, and program officer;

Semi-annual portfolio reviews to review progress toward reaching targets, challenges, planned actions and pipeline;

Data Quality Assessments after two years of contract implementation;

Regular meetings with the Chief of Party; and

General COR’s oversight and technical direction.

2.12 Make or Buy

A make-or-buy was not applicable to this acquisition because it is not relevant to the requirements of this acquisition.

2.13 Test and Evaluation

No test program is planned due to the nature of the acquisition. The Mission will contract separately for an independent third party to conduct performance evaluations. A midterm Early Grade Reading

Assessment evaluation is planned (at the conclusion of the second year of the contract) to assess progress towards activity outputs and will guide program management for the second half of the activity. The endline evaluation will be conducted to measure the proportion of children able to read at grade level, at the end of five years.

The contractor will be required to develop a robust monitoring, evaluation and learning plan in close consultation with USAID.