AE - Dorm 2266 Justification and Approval FINAL Print_Redacted.pdf

Justification and Approval (J&A) for Other Than Full and Open Competition

CONTROLLED UNCLASSIFIED INFORMATION

August 2023 CONTROLLED UNCLASSIFIED INFORMATION Page 2 of 5August 2023 CONTROLLED UNCLASSIFIED INFORMATION Page 2 of 5

I. Agency and Contracting Activity.

United States Air Force 354 Contracting Squadron Eielson AFB, Alaska 99702

II. Nature and/or description of the action being approved.

This follow-on procurement shall be executed as a Firm Fixed Price follow-on 100% Design Charrette from contract FA500423C0004, which created the Conceptual to 15% design for dorm building 2266.

III. Description of supplies/services required to meet agency needs.

The 354 CES requires the procurement and development of a 100% design for the complete overhaul of Building 2266, a four-story structure (three above ground levels and a basement) originally constructed in 1953 with subsequent renovations. Eielson Air Force Base needs additional housing units to meet the need of an increase in personnel in the next 36 months. The Design Charrette for the initial concept and 15% design was issued to aid the government in the best course of action. The government needed an initial concept to ensure the best course of action was chosen. The course of action chosen was to renovate dorm 2266 and change the layout from 57 rooms to a redesigned layout of 75 rooms for half the cost of new dorm through a military construction project.

The original conceptual design contractor, IAW FAR 6.302-1(a)(2)(iii), is the most highly qualified in this specialized service. Awarding to any other source would result in two major risk factors:

1) substantial duplication of cost ranging between $25K to $100K.

2) 4-6 week time delays through competitive processes of re-boarding the SF330s. The time delay is not recoverable and delays the project into a critical constructibility timeline if the competitive process is used.

To meet the government requirement the final cost of design is needed in the next 60 days to meet the Air Force Civil Engineer Center (AFCEC) project funding process. If not approved by AFCEC, delays in construction will also occur and in-turn, Eielson AFB's dorm insufficiency will continue to increase.

In March of 2023, the 354 Contracting Squadron negotiated Architect- Engineer services in pursuant to FAR Part 15 and IAW the pricing schedule awarded the requirement to Coffman Engineers Inc. In addition to being rated outstanding in every evaluation factor, Coffman Engineers Inc., also had the most relevant type of dormitory restoration, including DoD, housing, sub-arctic, and design work. Coffman Engineers Inc., background and knowledge through the project analysis that they performed during the preparation of the CCR, and preparing the initial design (15%), qualifies them to be the sole designer of record suitable to complete the 100% design.

The current project and contract management personnel and resources are limited. There is unacceptable risk for this large investment project in context of adding a design review by another company when using competitive processes. The unacceptable risk to the 354 Fighter Wing stems from a lack of housing units designed and constructed on the 36 month timeline. All administrative work involved to start a competitive procurement process would result in significant financial risk and cause delays to the government to re-

August 2023 CONTROLLED UNCLASSIFIED INFORMATION Page 3 of 5August 2023 CONTROLLED UNCLASSIFIED INFORMATION Page 3 of 5 board the design firm qualification packages. All this expended effort would most likely come to the same conclusion that Coffman Engineers is the highest qualified firm.

Additionally there is also the risk of not providing the same level of engineering expertise as the previous designer of record. Coffman Engineers Inc., were able to finalize the required CCR and 15% design within the 115 days stated in the award documents. Their cost analysis and detailed investigations were able to provide the government team with two cost saving courses of action (COA). COA #1 saved the government approximately $40 Million dollars for a smarter infrastructure investment versus a new MILCON build to fulfill the critical housing gap in the area. COA #2 provided additional space per room, increased the number of rooms within the building footprint and brought the building codes up to the current environmental and safety standards.

IV. Demonstration that the contractor's unique qualifications or the nature of the acquisition requires use of the authority cited above.

At the time of evaluation of qualification packages for contract number FA500423C0004 for the Charrette stage, Coffman Engineers was rated first for their outstanding level of experience provided with their proposed team, which have a cumulative average of 23.5 years in the field and 18 years with the firm. They also received a substantial confidence rating in the specialized experience criteria for providing four very relevant projects and one relevant project. Additionally, the increased amount of DoD housing projects gave the government an increased confidence of their capability in project success. Due to multiple risk factors and IAW with FAR 6.302-1 – 10 USC 3204(a)(1), Only One Responsible Source. No other firm can provide this level of services and satisfy the agency requirement.

As stated in FA500423C0004, the construction for this project is planned to start in FY25, with the 100% design needed by end of FY24. The current design time-frame is estimated for 216 days or 7 months excluding unforeseen delays in the design review process. Awarding to any other source would result in substantial duplication of cost ranging between $25K to $100K and 4-6 week time delay to the Government through competitive processes and re-boarding of SF330s. This cost is not expected to be recovered through a the competitive process. This design needs to be advertised at the soonest possibility for the best result of construction competition and to address long lead items for the build. Bearing in mind the construction cost, limitation of funding, and the length of the procurement process for a project with a $38M value, time is a vital factor in mitigating risk to the 354 Fighter Wing and allowing companies to provide the most accurate and best pricing.

It is worth noting that current housing restraints on the installation and in the local area has caused leadership to put a strategic approval/disapproval process of family PCS's to Eielson AFB until the housing situation is resolved. This shifts assignment to single members which are housed in dorms, increases the risk of this project for FW mission. Additional the base has utilized the installation hotel "Gold Rush Inn" as interim dormitory housing as a short-term solution. Compounding the issue is the arrival of the additional four (4) aircraft and two hundred-fifty (250) personnel supporting the 168 WG mission, which will need housing. Therefore, this direct award action for a continued design via a follow-on contract lessens the risk to the 354 Fighter Wing through the continued acquisition of highly specialized services.

V. Description of efforts made to ensure that offers are solicited from as many potential sources as practicable, including whether a notice was or will be publicized as required by subpart 5.2 and, if not, which exception under

FAR 5.202 applies.

A sources sought was posted on Sam.gov on November 8, 2023 and closed on November 22, 2023. The notice garnered interest by seven (7) businesses. The interest mix was five small businesses (5) and two (2) large. Four (4) of these companies are new interested parties that did not show interest on the initial design

August 2023 CONTROLLED UNCLASSIFIED INFORMATION Page 4 of 5 effort. Though there is significant small business interest the risk and likely hood of receiving qualification packages that exceed Coffman's capability is very low. Past trends have shown similar initial small business interest with low submissions and lower expertise at the final deadline. A follow-on contract is the best option to ensure the most highly qualified firm is designs this project. The justification for this is familiarity with the specific facility and initial design as the design of record, already vetted qualifications, and time-frame for execution to mitigate mission risk.

VI. Determination by the Contracting Officer that the anticipated cost to the Government will be fair and reasonable.

It is not reasonable IAW FAR 6.302(a)(2)(iii) to award to another source. This would result in duplication of costs and unacceptable delays in fulfilling the agency's requirement for additional housing. The duplication of cost is outline on the attached spreadsheet but is derived from the re-boarding or re-acquisition competitive process. The direct award is to the highest qualified firm which aims the acquisition towards the most optimal outcome for the design and construction portion. Therefore it is in the government best interest to proceed with this requirement as a follow-on A-E contract to Coffman Engineers.

VII. Description of the market research conducted and the results, or a statement of the reasons market research was not conducted.

During the Charrette portion for the Dorm 2266 CCR, there were three large businesses and one small business interested. In accordance with FAR 6.102(d)(1) to promote competition the requirement was carried out as a full and open competition. Subsequently the follow-on Sources Sought closed on Nov 22, 2023 resulted in a total of seven (7) firms with five (5) small firms and two (2) large firms.

VIII. Any other facts supporting the use of Other Than Full and Open Competition.

Market research was conducted by the Contracting Office at the time of the original award and Coffman Engineers Inc., was one of a few eligible contractors. Coffman Engineers Inc., was selected based on their specialized and superior qualifications.

IX. List of any sources that expressed, in writing, an interest in the acquisition.

As stated in response to the Sources Sought that was posted on SAM.gov, seven (7) firms have expressed interest in fulfilling this requirement.

X. A statement of the actions, if any, the agency may take to remove or overcome any barriers to competition before any subsequent acquisitions for the supplies or services required.

The Government will continue to survey the market for qualified design service providers for future requirements and procure Architect and Engineering on a competitive basis pursuant to FAR Subpart 36.6.

However, this requirement is best suited for a lower risk follow-on contract for the time sensitive agency need.

XI. Certification by the Contracting Officer.

As evidenced by my signature above, I certify that this justification is accurate and complete to the best of

August 2023 CONTROLLED UNCLASSIFIED INFORMATION Page 5 of 5 my knowledge and belief.

XII. Certification by the technical/requirements personnel.

As evidenced by my (our) signature(s) above, I (we) certify that any supporting data contained herein, which is my (our) responsibility, is both accurate and complete.