JOFOC_Training_Facility_-_Redacted.pdf

Contract Number: 89233119PNA000034 Page 1

JUSTIFICATION FOR OTHER THAN FULL AND OPEN COMPETITION

NATIONAL NUCLEAR SECURITY ADMINISTRATION

OFFICE OF SECURE TRANSPORTATION

TACTICAL TRAINING FACILITY

Contract Number: 89233119PNA000034

I. AGENCY IDENTITY AND CONTRACTING OFFICE

The Department of Energy (DOE), National Nuclear Security Administration’s (NNSA), Office of Secure Transportation (OST) requires the use of a specialized facility for realistic force-on-force tactical training, convoy operations training, driver training, explosive breaching training, and small arms training for its Nuclear Materials Couriers/Federal Agents (FAs). The NNSA plans to contract for this specialized training facility by means of other than full and open competition. The contracting activity is the NNSA Office of Acquisition Management NA-APM-10.

II. NATURE AND/OR DESCRIPTION OF THE ACTION BEING APPROVED

This document sets forth the justification and approval of the use of one of the exceptions to full and open competition allowed under the Competition in Contracting Act (CICA) of 1984. It is anticipated that this procurement will result in the award of a five-year sole source contract with an estimated value of $1,700,000.00 to Guardian Centers LLC (GC), located at 600 Perry Parkway, Perry, GA 31069. GC is a large business based on NAICS Code 531120 and size standard of $27.5 million.

The effort is to provide realistic urban warfare training areas, simulated road networks for convoy operations training, explosive & live fire range training areas, and approved storage areas that meet stringent OST training, safety, and security requirements.

III. DESCRIPTION OF SUPPLIES AND/OR SERVICES

OST is responsible for the safe and secure transportation of nuclear weapons (NWs), special nuclear materials (SNMs), nuclear weapons components (NWCs), and nuclear weapons assemblies between production facilities and Department of Defense facilities using ground and air transportation. Based on guidance from the February 2018 Nuclear Posture Review (NPR) and NNSA’s Fiscal Year 2019 Stockpile Stewardship and Management Plan (SSMP), it is anticipated that OST’s future workload will dramatically increase in the next five years in response to the current threat environment, stockpile management requirements, and international nonproliferation efforts. Furthermore, the Russia Plutonium Management and Disposition Agreement between the United States and Russia signify that thousands of nuclear weapons pits will have to be transported from the NNSA Pantex Plant.1

In carrying out its national security mission, OST relies on a highly skilled cadre of armed FAs whose primary responsibility is to prevent the theft, sabotage, or unauthorized takeover or control of NWs, 1 DoD requires NNSA to produce at least 80 plutonium pits per year by 2030 in order to sustain the capacity for the Life Extension Program. Consistent with this mission requirement, NNSA’s pit production strategy is to repurpose the Mixed Oxide Fuel Fabrication Facility (MOX) at the Savannah River Site to produce 50 pits per year while the Los Alamos National Laboratory will be responsible for producing 30 pits per year.

Contract Number: 89233119PNA000034 Page 2

SNMs, and NWCs. In the event that the OST shipments come under attack, and the nuclear materials and components are compromised and controlled by adversaries, OST’s FAs are equipped with the necessary tools and equipment to successfully launch an assault and recovery operation of the nuclear materials and components. Pursuant to National Security Presidential Directive (NSPD) 28, the FAs are authorized all necessary means for immediate recovery to include pursuit and the use of deadly force.

To accomplish its National Security Mission, OST operates and maintains a number of facilities across the United States. With its primary Headquarters (HQ) located in Albuquerque, New Mexico, OST operates three Agent Operations Commands (AOCs): (1) Agent Operations Western Command (AOWC), Albuquerque, New Mexico; (2) Agent Operations Central Command (AOCC), Amarillo, Texas; and (3) Agent Operations Eastern Command (AOEC), Oak Ridge, Tennessee. OST also operates and maintains its Principal Training Command (TRACOM) at Fort Chaffee, Arkansas. The FAs receive initial and continuous specialized training which test and enhances the FAs’ firearms, tactical, and drive proficiency through realistic and extensive force-on-force urban movement and defensive training scenarios, live fire range training, small unit infantry tactics, close-quarter battle, and convoy operations involving day and night tractor-trailer and escort vehicle movements. Given OST’s extensive training requirements, GC’s Training Complex (GCTC) can easily accommodate up to 100 OST FAs, federal and contractor training and logistics personnel, approximately forty (40) OST tractor trailers, specialty vehicles, and other training support vehicles during OST’s Operational Readiness Training (ORT) and/or other OST designated training events.2

IV. AUTHORITY

The statutory authority permitting other than full and open competition is 41 USC 3304(a)(1), as implemented by the Federal Acquisition Regulation (FAR) Subpart 6.302-1 entitled “Only One Responsible Source and No Other Supplies or Services Will Satisfy Agency Requirements.” FAR Subpart 6.302-1(a)(2) states, “When the supplies or services required by the agency are available from only one responsible source, or, for DoD, NASA, and the Coast Guard, from only one or a limited number of responsible sources, and no other type of supplies or services will satisfy agency requirements, full and open competition need not be provided for.”

V. APPLICATION OF AUTHORITY

FAR 6.302-1(b)(1)(i) specifies full and open competition need not be provided for when there is a reasonable basis to conclude that the agency’s minimum needs can only be satisfied by unique supplies or services available from only one source or only one supplier with unique capabilities.

Based on the market research discussed herein, GC is the only vendor who can support OST’s ORT and other FA training requirements3 as follows:

• GCTC is a gate/fence access controlled training facility consisting of 830-acres which can easily accommodate up to 100 OST FAs, federal and contractor training and logistics

2 The ORT events are large scale OST training events that provide a range of individual and team tactical training to maintain certain FA skill sets associated with the OST Mission Essential Task List. This training includes live fire weapons, shoot, move, communication, tactical convoy operations, and force-on-force training exercises. Other OST training events include OST Unit Sustainment Training, Vulnerability Assessments/Validation Force-on-Force Training, Special Response Force, and Designated Marksman Training.

Contract Number: 89233119PNA000034 Page 3 personnel, role players, and other support personnel at any given time with a maximum capacity of 500 total personnel.

• GCTC’s 75-acre Metroplex provides various training and attack scenarios for OST convoys.

• GCTC’s urban terrain consists of three miles of roadways meeting Department of

Transportation (DOT) specification, encompassing 16 city blocks and containing 80 multi-story brick/mortar structures (hospital, store, courthouse, school, office building, etc.) with alleys and parking to provide OST with a realistic city landscape.

• GCTC’s Interstate Highway Simulator and off-road four-wheel drive training area provides OST a controlled road network consisting of a 1.1 mile-long 4-lane highway built to DOT specification, allowing OST to conduct realistic day and night vision driving, convoy operations, and force-on-force attack scenarios.

• GCTC’s Small Arms Range offers OST a Known Distance Range with target engagement up to 800 yards, which is mandatory for FA firearms qualifications and proficiency.

• GCTC’s Metroplex and 80 multi-story buildings provides OST with numerous elevated shooting positions for high-angle shooting.

• GCTC’s Staging Area includes an indoor and outdoor staging area. The indoor staging area is approximately 350,000 square feet of logistics space, with a large high-bay warehouse and loading docks for storage and staging of OST equipment (40 vehicles including tractors, trailers, and other training equipment and materials) and 100 personnel. Similarly, the outdoor staging area consists of large open parking lots secured by a wall/fence perimeter when outside staging of equipment is needed.

• GCTC’s Secure Armory provides OST with on-site controlled access for OST weapons and munitions storage.

• GCTC’s Metroplex, 17 acres of explosives testing ranges, and breaching walls provide OST FAs with extensive and realistic breaching scenarios involving doors and windows in an urban terrain.

• GCTC offers OST a full service on-site commercial dining facility and restroom facilities which can accommodate OST night exercises.

• GCTC’s Administration Building provides OST with 12 Conference and Academic Rooms which accommodate up to 100 people with audio/visual support.

• GCTC can provide on-site lodging (500 personnel in private cabins or open bays), with offsite lodging options (local hotels) located within 20 miles.

• GCTC is located within a 350-mile radius from Office of Secure Transportation, Eastern Command, located at Oak Ridge, Tennessee.

Accordingly, GC is a unique and specialized training facility that will help test and ensure the FAs maintain their firearms and tactical proficiency for protecting OST shipments through realistic and extensive force-on-force urban training scenarios, live fire range training, small unit infantry tactics, convoy operations training, and driver training. GC’s Training Complex (GCTC) can easily accommodate up to 100 OST FAs, federal and contractor training and logistics personnel, approximately forty (40) OST tractor trailers, specialty vehicles, and training and other support vehicles during OST’s Operational Readiness Training (ORT) and/or other OST designated training events.

VI. EFFORTS TO IDENTIFY ADDITIONAL SOURCES

In accordance with FAR Subpart 5.2, a Notice of Intent (NOI) to Sole Source Synopsis was posted

Contract Number: 89233119PNA000034 Page 4 on January 30, 2019 through FedConnect and FedBizzOpps to notify the public of the Government’s intent to award this action by means of other than full and open competition in accordance with FAR 5.201. The NOI was posted in accordance with FAR 5.203 with a response due date of February 13, 2019. No expressions of interest from potential vendors was received.

VII. DETERMINATION OF REASONABLENESS OF COST OR PRICE

The Contracting Officer (CO) will make a determination of cost/price reasonableness utilizing various methods to include a price analysis incorporating a technical analysis, utilization of historical Government contracts that the contractor has been awarded, an Independent Government Cost Estimate (IGCE), and other market research methods. Accordingly, it is the determination of the CO that the anticipated costs will be fair and reasonable based on a price analysis of the contractor’s proposal when compared with historical costs, commercial price lists, and the Government’s IGCE.

VIII. MARKET RESEARCH

OST has conducted extensive market research to identify a suitable tactical training facility. As discussed in Section VI, the Sole Source Synopsis was posted on the federal government and DOE business opportunities websites. Furthermore, OST has conducted extensive online searches for Tactical - Shooting Ranges, Firing Ranges, Firearms Facilities, and Firearms Training Facilities within a 350-mile radius from Office of Secure Transportation, Eastern Command, located at Oak Ridge, Tennessee. Several companies were contacted by phone, however none met all of the requirements (see Market Research in file).

OST first discovered a potential source which is an expansive training facility consisting of over 350,000 acres located

. In this case, range facilities were determined to meet the SOW. Subsequently, a NOI was posted on June 19, 2017 through FedBizOpps and FedConnect. In response to the NOI, was the only respondent that submitted a proposal on June 21, 2017 delineating its capabilities and experience. stated that it could meet all of OST’s training facility requirements. However, based on the limited information provided by in its proposal, OST could not determine whether the training facility could meet all of the OST’s requirements. Accordingly, on July 28, 2017, OST requested and arranged a site visit with to physically validate if the training facility met all of the requirements specified in the SOW. The site visit was conducted August 22 through 23, 2017 at the . Based on the site visit, OST’s Training, Safety, and Security Specialists determined that the did not meet all of OST’s requirements (see Determination of Technical Capability under Tab 13 of the file). OST then proceeded to issue a sole-source award to but after further communications and discussions with , OST learned that was unwilling to contract for less than the entire facility.

Accordingly, based on requirements and OST funding, the facility became cost prohibitive to the Government.

Through previous experience with the OST Validation Group, under an existing Mission and Operations contract with Sandia National Laboratories, the FA training group had performed a Vulnerability Assessment training at the GC training facility during the fall 2018. Based on the success of the training, GC was identified as a suitable facility to meet OST’s FA training needs.

David.Tellez Sticky Note Accepted set by David.Tellez

David.Tellez Sticky Note None set by David.Tellez

Contract Number: 89233119PNA000034 Page 5

IX. OTHER FACTS

This effort requires night use of the facility for OST FA training and maneuvers.

X. INTERESTED SOURCES

None at this time.

XI. STEPS TO FOSTER COMPETITION

NNSA maintains a commitment to ensuring competition when practicable, and, prior to making future procurement decisions related to this requirement, the program will continue to monitor and assess the state of the market in an attempt to identify other capable, responsible sources as required by FAR 7.102(a)(2).

XII. CERTIFICATIONS

Acquisition Initiator/Technical Representative:

I certify that the facts and representations under my cognizance, which are included in this justification and which form a basis for this justification, are complete and accurate.

Signature

Contracting Officer:

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

Competition Advocate:

I have reviewed this Justification for Other than Full and Open Competition and find it to be accurate and complete to the best of my knowledge and belief. Since this justification does not exceed $13.5M, this review serves as approval.