0164_-7_Lebanon_Sample_Task_Order.pdf

AG-3187-S-12-0164 Attachment 7

IP PWS Procurement Sensitive July 2012 1

Lebanon Reforestation Initiative Support Services

Performance Work Statement (PWS)

USDA Forest Service

1. INTRODUCTION

The Office of International Programs (IP) of the United States Forest Service (USFS) is mandated to coordinate international activities for the agency around the world. The office is funded by appropriation from the United States Congress and through partnership agreements the Department of State, the United States Agency for International Development and the Millennium Challenge Corporation. IP administers programs overseas to enhance technical cooperation on areas of domestic interest, to advance environmental diplomacy, to train its own personnel, and to help conserve the world’s natural resources.

IP seeks assistance from an outside firm to provide staffing domestically and overseas, training, overseas office administration, technical consultation and donation of equipment for an environmental program. This support cannot be provided by the agency itself but is integral to achieving the Forest Service’s international mission.

2. BACKGROUND

Established in 1905, USFS is a federal agency that manages public lands in national forests and grasslands under a founding principle, "To provide the greatest amount of good for the greatest amount of people in the long run". The agency’s mission is to “sustain the health, diversity, and productivity of the Nation’s forests and grasslands to meet the needs of present and future generations”. USFS has the responsibility for stewardship of more than 193 million acres of the nation’s forests and grasslands; for developing and communicating scientific knowledge through research and development that leads to informed natural resource decision-making; for delivering technical assistance through state and private forestry programs; and for sharing knowledge and experience with others in the global community through international programs.

The US Agency for International Development (USAID) and USFS have cooperated since

2008 to promote conservation of forests and biodiversity in Lebanon. Through support and partnership with USAID, USFS has cooperated with governmental and nongovernmental counterpart organizations in Lebanon to help conserve Lebanon’s biodiversity and forests. In

2008 and 2009, USFS implemented programs in Lebanon focused on wildfire coordination and response, general capacity building, munitions remediation and fire risk mapping, and biodiversity conservation.

Since 2010, USFS and USAID/Lebanon have been engaged with forestry sector institutions and practitioners, national and nongovernmental organizations, and local municipalities to build capacity at the practitioner and grassroots level to sustainably reforest Lebanon, to provide short-term employment in poverty-stricken and environmentally degraded regions of the country, and to help prevent and respond to wildfires that threaten the country’s forests and communities.

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Lebanon’s forests provide many ecosystem services. In Lebanon’s mountainous terrain, trees decrease soil erosion and water runoff by stabilizing hill slopes and aiding in the infiltration of rainfall. These services promote the formation of thick, organic-rich soils and increase the availability of groundwater in local aquifers. Lebanese forests have earned the moniker “the lungs of the Near East” in recognition of their ability to cleanse the air of pollutants and absorb carbon dioxide, a major contributor to global climate change.

Lebanese forests provide sustainable economic benefits both directly and indirectly.

Directly, several native forest trees produce fruits and nuts that can be sold locally or internationally. Of these species, the Italian stone pine (Pinus pinea) and the carob

(Ceratonia siliqua) are among the most important. Indirectly, forests provide a host of other economic benefits by creating wildlife habitat and recreation areas. Beekeeping is a widespread activity in Lebanon that depends on the availability of flowering trees to produce honey. Likewise, forests promote the growth of ecotourism, an increasingly popular activity throughout Lebanon.

Forests are extremely important in Lebanon for a number of other social and environmental reasons, including the prominence of Lebanon’s cedar trees as the country’s most important symbol for unity and national pride and the important role that its forests play in water conservation and other environmental services. It is not a coincidence that Lebanon is the most forested nation in the Near East and also the only nation in the region afforded with relative water security.

The decline of Lebanon’s forests by more than 35% over the last 50 years poses great potential threats to national identity, water security, and rural and urban livelihoods. Climate change in the Eastern Mediterranean threatens to exacerbate the effects of deforestation and hasten desertification. The implications of the combined phenomena of climate change and deforestation pose serious threats primarily to Lebanon’s water security. Vegetative cover is extremely important to mitigate climate change, ensure adequate storage and safe release of clean water. Lebanon already suffers from very high run-off of water and soil during rainstorm and snow-melt events. If vegetative cover declines, the rate of run-off and sedimentation will inevitably increase, leading to less water infiltration and a decline in ground water and aquifer replenishment. Reforestation should therefore be a national priority for Lebanon with respect to securing water resources.

The Lebanon Reforestation Initiative (LRI) was conceived to address these concerns by: (i) strengthening the production of vigorous tree seedlings by native tree nurseries and increasing the survivability rates of planted trees; (ii) building greater technical capacity and coordination among those promoting reforestation in Lebanon; and (iii) raising institutional capacity and public awareness to prevent and respond to wildfires and to promote forest biodiversity protection. The approach includes greater community consultation, a holistic approach to ecological and social criteria, and a focus on the ultimate aim of increased tree survival rates.

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3. PROJECT BACKGROUND

USFS is entering year three of a four year USAID program to reforest Lebanon and provide short-term jobs in vulnerable and poverty-ridden areas. The program strategy contains three primary thematic areas of intervention, which have both direct and indirect impacts. They include the establishment of quality native seedlings throughout the country by working closely with private nurseries to improve seedling development protocols. The project hires disadvantaged people to plant, monitor and protect trees produced by these nurseries. The project assists existing commercial nurseries with business planning and technical improvements. The project seeks to instill a national commitment to tree planting through educational outreach interventions in schools and communities across the country, notably in the communities engaged in reforestation and wild-land fire prevention and response.

The direct impacts of the program are multi-fold and include the following: establishment of reforestation MOUs to generate short-term employment in communities throughout Lebanon;

planting of approximately 300,000 trees; restoration of sites with important ecological, cultural and watershed values; improved native tree nursery operations, and establishment of a mechanism to support sustained reforestation over the long-term.

Indirectly, the project aims to lay the foundation for sustainable reforestation efforts over the next century. Sound scientific practices are at the core of any successful reforestation endeavor. Through this project and the comprehensive technical assistance that it will involve, USFS will help to establish standards and practices to ensure that the seedlings purchased and planted will have the strongest chance of survival to maturity. Without this technical assistance, investment into tree planting may be wasted. This project will have a lasting and measurable impact with a wide reach beyond just the number of trees planted by the project itself. In addition to those trees, future reforestation efforts will benefit from viable national commercial nurseries producing quality seedlings, and a fund to provide resources for long-term investment into the sector. Measurable indicators for the success of this effort over the long-term will include the adoption by most of Lebanon’s native tree nurseries of advanced seedling germination protocols, the number of trees that survive in the field over a three-year period, and the establishment of a legally recognized local foundation to attract and provide ongoing funding and technical assistance for sustainable reforestation in Lebanon.

4. ATTACHMENTS

4.1. LRI Performance Monitoring Plan

4.2. LRI Branding Implementation Plan and Marketing Plan

5. SCOPE

The Forest Service requires that a contractor perform four types of services for the Lebanon

Reforestation Initiative: 1) provide technical leadership and management for the overall project in Beirut; 2) provide short term technical assistance as required to advance program objectives;

3) provide Washington D.C.-based back-stopping project support; and, 4) process payments to

IP PWS Procurement Sensitive July 2012 4 overseas vendors at the direction of the Forest Service. Tasks one and two may be billed as cost-plus fixed-fee (CPFF) while tasks three and four will be firm fixed price (FFP).

Task 1 – Technical Leadership and Management (CPFF Task)

Outcome 1: The Lebanon Reforestation Initiative activities will continue without disruption to ongoing partnerships and project activities.

Outcome 2: The highest quality project technical management support and leadership is provided to ensure an efficient and effective project execution.

1.1 The Contractor shall be responsible for project management and technical leadership for this effort including, but not limited to:

a. Meeting:

i. PWS performance standards.

ii. Deadlines included in the PWS and in the Contractor’s project plan to achieve the following three major deliverables:

Enhanced National Native Seedling Supply and Outplanting

Capacity to Support Sustainable Reforestation

Enhanced Sustainability of Mechanisms for Financing and

Coordination of Reforestation Programs

Improved Prevention of and Response to Wildfires and Restoration of Burned Areas

b. Managing local personnel, which include experts in: silviculture, tree nurseries, geographic information systems, accounts, logistics, drivers, outreach and education specialist positions; provide quality oversight and technical direction; administer the staff benefits and payroll.

c. Providing short-term targeted technical expertise otherwise not available in Lebanon as needed.

d. Coordinating and communicating with the FS COR, local entities in Lebanon and

USAID in Lebanon.

e. Working closely with Lebanon’s nongovernmental forestry sector, including nongovernmental organizations, private sector entrepreneurs, other forestry practitioners, and academics, as well as the Lebanese Armed Forces and local municipalities throughout the country’s eight muhafazahs or regions.

f. Identifying international experts for technical expertise to provide advice and consultation as required.

g. Monitoring and reporting on status.

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h. Ascertaining, planning and reporting to the Forest Service when equipment, vehicles, facilities, local services, seedlings and other supplies are needed for effective project implementation.

i. Ensuring that the USAID branding agreement with USFS is strictly adhered to.

j. Ensuring that local staff utilize USFS accounting standards and practices for documenting local expenses and inventory.

k. Ensuring that local staff maintains USAID-approved office space, furniture, vehicles and equipment per the on-going agreement between USAID and the Forest Service.

The incumbent contractor will transition all computers and project furnished equipment to the new contractor.

l. Ensuring that local staff develop specifications for all equipment and local services and communicate closely with USFS prior to provision of those services.

m. Ensuring that local staff complies with local legal requirements, including retention of a certified local law firm in order to ensure compliance with all labor, tax and registration laws.

n. Ensuring that equipment clears Lebanese customs efficiently and adheres to local laws and regulations and that it is properly inventoried and/or donated to appropriate entities per the USAID and USFS agreement.

1.2 The Contractor shall prepare a project management and project transition plan. A draft plan shall be delivered to FS within ten business days of the kickoff meeting. A final project and transition plan shall be delivered within ten business days of receipt of FS comments on the draft. The transition plan will include the following:

a) Approach for managing the transition from the current Contractor.

b) How the Contractor will work with the current contractor to facilitate the transition of staff members.

c) A list of all Government dependencies and assumptions for Government services to be used during the transition.

d) Transition risks and risk mitigation recommendations.

e) Schedule risks, if anticipated, and their likely impacts on affected personnel, and transition issues.

f) Transition schedule that includes, at a minimum: specific tasks to be performed and the resources assigned to them; task dependencies and relationships; proposed task duration; and major milestones, including the deliverable milestones.

1.3 Complete the initial transition within 2 weeks from the initial transition start date.

1.4 Assume all day-to-day administrative and management functions of the Lebanon Project

Office.

a) Manage financial operations in Lebanon and support the management, and ongoing performance of the LRI program.

IP PWS Procurement Sensitive July 2012 6

1.5 The Contractor shall ensure that all deliverables for all tasks under this contract are complete, accurate and delivered according to established schedules and are provided to the

Government for review, comment, and acceptance.

Quality Assurance

1.6 The Contractor shall document and apply quality control procedures used throughout the performance of this contract for itself and any Subcontractors, in accordance with its proposed quality assurance plan.

1.5 The Contractor shall document and conform to quality standards and best practices.

1.6 The Contractor shall identify and remedy quality issues in a timely manner.

Reporting

1.7 The Contractor shall prepare and submit a monthly status report within 5 business days of the last business day of the preceding month to the COR. The Contractor shall include in its report any areas of concern.

Task 2: Short-Term Technical Consultants (CPFF)

Outcome: The LRI program receives effective technical support, advice, and visits from natural resource managers and scientists that are otherwise not available in Lebanon.

2.1 The Contractor will provide one tree nursery expert consultant to perform short-term technical assistance assignments to Lebanon. The expert will work with LRI staff and local partners on effective delivery of training on seedling propagation, storage, fertilization and other growing methods in Lebanon.

2.1.1 The expert shall have the following requirements at a minimum:

a) Minimum 10 years’ experience working in tree nurseries.

b) Extensive experience coordinating training for nursery operators.

c) Extensive experience with and understanding of seedling storage, bare-root growing methods, seedling propagation, irrigation systems and fertilization.

d) Experience working in an international setting.

e) Strong communication skills and training experience.

2.1.2 The expert will coordinate work closely with LRI staff in Beirut to accomplish the following deliverables:

a) Develop a framework for the nursery seedling propagation course.

b) Deliver a training course for growers in eight of Lebanon’s native tree nurseries on utilization of uniform containers for seedling growth.

c) Deliver a training course for out-planting experts in Lebanon on successful methods for transporting seedlings from nurseries to planting sites.

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d) Provide oversight to LRI nursery improvement program remotely.

e) Participate in LRI work-planning exercises.

2.1.3 Level of effort: The Government estimates level of effort of 40 days (five days per month for eight months) for consulting from the consultant’s place of business and an additional 28 days of level of effort in Lebanon. The consultant shall be required to make four international trips from his/her home of record to participate in LRI’s strategic planning workshop and three training courses. It is anticipated that the consultant will require one roundtrip airline ticket and seven days of per diem for each overseas trip (total of four airline tickets and 28 days per diem).

2.2 The Contractor will provide a soil conservation expert to perform short-term, on-the-ground guidance at planting sites in Lebanon, train local staff on appropriate out-planting techniques to enhance soil conservation, and serve as a remote advisor for the

Lebanon Reforestation Initiative’s silviculture program.

2.2.1 The consultant shall meet the following requirements at a minimum:

a) Strong practical experience and theoretical knowledge with successful soil conservation techniques in an array of landscapes and climates, including

Mediterranean ecosystems.

b) Extensive experience in delivering training and education in soil conservation practices.

c) Minimum five years’ experience working in an international setting and advising large-scale natural resource conservation projects.

2.2.2 The expert will perform three 10-day trips to Lebanon to meet, inspect field sites, and provide advice relative to enhancing out-planting training techniques on steep slopes in the interest of enhancing soil conservation. The expert will also provide consultation to LRI staff from home during weeks prior to planting in Lebanon via email and conference calls.

2.2.3 The following deliverables are required of the consultant:

a) Design and implement three 10-day visits to Lebanon to assess ongoing planting activities and to share best practices in various settings;

b) Conduct pertinent on-the-ground training for LRI technical staff and LRI partners responsible for restoring degraded soils at pre-selected reforestation sites;

c) Provide written guidelines for LRI staff on technical management techniques when appropriate; and

d) Provide reports on all technical activities after each trip to Lebanon and communicate with Beirut technical staff on a weekly basis during the planting season, otherwise on a monthly basis.

2.2.4 Level of effort: The Government estimates a total level of effort of 35 days. Five days of level of effort will take place at the consultant’s place of business and 30 days

IP PWS Procurement Sensitive July 2012 8 will take place in Lebanon inclusive of travel. The consultant will be required to make three international trips from his/her home to participate in LRI’s strategic planning workshop and two training courses. It is anticipated that the consultant will require one roundtrip airline ticket and ten days of per diem for each overseas trip

(total of three airline tickets and 30 days per diem).

Task 3: DC-based Project Support Specialist (FFP)

Outcome: The Forest Service and LRI will receive effective back-stopping support to ensure good and efficient communication between the home and project office on all matters relevant to implementation of the Lebanon Reforestation Initiative.

3.1 The Contractor shall provide a qualified individual to serve as a Lebanon Program

Specialist in the Technical Cooperation Unit of International Programs. This position is the equivalent of the Mid-level Program Specialist Level I. The specialist will support the development and execution of Forest Service programs in Lebanon.

3.2

3.2.1 The consultant shall meet the following requirements at a minimum:

a) Strong fluency in Arabic or French.

b) Two years’ experience living and working in a developing country.

c) Strong written and oral communication skills, strong analytical abilities, excellent interpersonal skills and cultural awareness necessary for fostering productive and positive interactions with individuals from the Middle East.

d) Experience or familiarity with cultural and natural resource management issues is preferred.

3.2.2 The specialist shall complete the following tasks:

a) Assisting and backstopping existing programs, including arranging travel for USFS teams to travel abroad and executing all required for developing study tours, seminars and for otherwise hosting foreign visitors in the US.

b) Networking with key units in the Forest Service who work with the Middle East

Program in the region.

c) Writing reports, work-plans and proposals for programs in Lebanon.

d) Organizing and participating in travel to the region to work with partners, develop programs and accompany USFS teams.

e) Assisting with tracking program funding, expenditures, budgets, and other financial management needs relative to the program.

f) Assisting with representational functions in the US and abroad related to the programs in Israel and Lebanon.

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g) Networking with relevant domestic and foreign organizations working on natural resource management and diplomacy building in the region.

h) Providing general programmatic and administrative support to the Middle East program and assisting other IP office support needs as requested.

3.2.3 Level of Effort: This position requires approximately 1160 hours and will require travel in support of project goals as follows. It is estimated that two roundtrips to the

Lebanon of approximately two weeks each will be required during the period of performance as well as two roundtrips of approximately one week each within the

United States to accompany study tours for consultations. These trips will require roundtrip airfare and per diem. This position is located in the USFS International

Programs Office in Washington, D.C.

Task 4: Payment Processing for Equipment and Local Services (FFP)

Outcome: The LRI has timely access to specialized technical equipment, services and supplies to successfully accomplish its program training deliverables and objectives through efficient and timely payment processing.

The Contractor shall deliver payment at the Forest Service’s request for items and services that may include the following: facilities, equipment, and interpretation and translation services for workshops and events, rent for office space, legal representation for the program, and salary for qualified local staff with expertise in the following areas: silviculture, nursery, geographic information systems, accounts, logistics, drivers, outreach and education specialists.

The Contractor shall communicate closely with USFS to process payments at regular intervals to ensure that project implementation is unimpeded on the ground in Lebanon. The Forest Service will require up to 15 overseas payments not to exceed $2 million in total. The Forest Service will provide information to the Contractor about where and when to make individual payments.

6. PERFORMANCE REQUIREMENTS

Perf Std

Required Services Performance Standards Acceptable

Quality Level

(AQL)

Monitoring Method

PS-1 Provide technical leadership and management for the

Lebanon

Reforestation

Initiative

Project activities are completed on-time and on-budget in accordance with the Government-approved project plan.

The transition of personnel, equipment, No deviation.

FS review of deliverables, project activities and the approved Project and

Transition Plan.

IP PWS Procurement Sensitive July 2012 10

Perf Std

Required Services Performance Standards Acceptable

Quality Level

(AQL)

Monitoring Method management and administration is completed in accordance with the Government-approved Transition Plan, and is seamless so as to cause no disruptions to ongoing activities.

PS-2 Provide short-term

Technical

Consultants

Project deliverables are met on time and in accordance with targets in the projects performance monitoring plan.

95% compliance with the LRI

Performance

Monitoring Plan

(attached).

FS review of transition activities and the approved Transition

Plan.

PS-3 Provide a DC-Based

Project Support

Specialist

Project deliverables are met on time and in accordance with targets in the projects performance monitoring plan.

95% compliance with the LRI

Performance

Monitoring Plan

(PMP)

(attached).

Review and verification of PMP reports.

PS-4 Payment Processing for Equipment and

Local Services

Payments will be made efficiently and will not impede project implementation on the ground.

No deviation.

Random COR/designee inspection of equipment.

COR/designee review of invoices and contractor performance.

7. DELIVERABLES

Specific deliverables, as noted in the tasks above, are identified in the following table.

7.1. TABLE OF DELIVERABLES

The following table includes deliverables and expected due dates. Deliverables shall be provided electronically in a Microsoft Office Suite product pre-approved by the COR.

PWS

Task #

Deliverable Due Date

1.2 Draft Project Plan Within 10 calendar days

IP PWS Procurement Sensitive July 2012 11 of the kickoff meeting

1.2 Final Project Plan Within 10 calendar days

or receipt of USFS comments

1.7 Monthly Status Report Within 5 calendar days

of the last calendar day of the month

2.1 Draft Transition Plan Within 10 calendar days

of the kickoff meeting

2.2 Final Transition Plan Within 10 calendar days

of receipt of USFS comments

7.2. INSPECTION AND ACCEPTANCE

The Government will perform inspection of the deliverables and services received from the

Contractor in accordance with the contract Quality Assurance Surveillance Plan (QASP). The

Government has the right to perform periodic surveillance of the Contractor to ensure that the

Contractor’s work products and QC processes are in compliance with the contract requirements. The Government and the Contractor will coordinate Government surveillance in a manner that will not unduly delay or disrupt the Contractor’s performance of the contract.

The COR will have seven (7) seven calendar days to review draft deliverables and make comments. The Contractor will have seven (7) seven calendar days to make corrections.

Upon receipt of the final deliverables, the COR/designee will have seven (7) seven calendar for final review prior to acceptance or providing documented reasons for non-acceptance.

Should the Government fail to complete the review within the review period the deliverable will become acceptable by default.

The COR will have the right to reject or require correction of any deficiencies found in the deliverables that are contrary to the information contained in the Contractor’s accepted proposal. In the event of a rejected deliverable, the Contractor will be notified in writing by the COR/designee of the specific reasons for rejection. The Contractor shall have seven (7) seven calendar to correct the rejected deliverable and return it per delivery instructions.

8. PERIOD OF PERFORMANCE

Anticipated Contractor Start Date: December 15, 2012

At the option of the Government, the contract may be renewed for one year periods, not to exceed one option period, provided the Contracting Officer serves notice of renewal.

Base Period December 15, 2012 – December 14, 2013

Option Period 1 December 15, 2013 – October 31, 2014

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9. PLACE OF PERFORMANCE AND WORK DAYS

Place of performance: Primarily the LRI project office in Beirut, Lebanon for overseas staff, with travel across Lebanon and assignments in the United States. Washington, DC staff will work onsite at FS provided offices.

Estimated work days: A standard workday is defined as eight (8) hours. A standard workweek is defined as Monday through Friday (40 hours). Saturday and Sunday work may be necessary and will require approval. Approval for the number of hours and schedule must be approved by the CO in advance. Overtime (over 40 hours) will only be paid for hours actually worked and scheduled, and at the established hourly rate when approved in advance by the CO.

10. TRAVEL

Travel will be required, both in the United States, and overseas depending on the task order.

Travel allowances for per diem and lodging in the United States will be based on the Federal

Travel Regulation, while travel abroad will be based on approved rates provided by the

Department of State. All travel must be approved by the COR prior to incurring any expense.

11. GOVERNMENT FURNISHED PROPERTY AND INFORMATION

The Lebanon Reforestation Initiative project office will provide furnishings, computers and other required equipment to the new implementer. Access to Forest Service office automation systems, phones, computer processing hardware and software will be provided as needed.

The FS Washington Office will provide mobile phones, computers, hardware and software, language training programs, other relevant training, office space, and other equipment as needed.

12. SECURITY

Long term overseas and domestic Contractor employees directly billed to this task will obtain background checks, Homeland Security Presidential Directive (HSPD)-12 credentialing, and appropriate security clearances, as required for access to government systems and facilities.

13. KEY PERSONNEL

The Key Personnel designated in the IDIQ are required for this task. The implementation of this task does not require key personnel to be designated at the task level. However, the

Government requests that the Contractor provide the COR with resumes of final candidates for all overseas and domestic long and short term positions described in this statement of work for review prior to fielding of personnel.

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14. ADMINISTRATIVE CONSIDERATIONS

14.1. Designation of Contracting Officer’s Representative (COR)

The COR is responsible for the technical direction of the contract work. In no event, however, will any understanding, agreements, modification, change order, or other matter deviating from the terms of this contract be effective or binding upon the Government unless formalized by proper contractual document executed by the Contracting Officer prior to completion of the contract.

The Contracting Officer shall be informed as soon as possible of any actions or inactions by the contractor or the Government which may affect the price, required delivery or completion times stated in the contract, so that identified desired changes and outside influences on the contract may be modified as necessary. Whenever, in the opinion of the contractor, the COR requests efforts outside the scope of the contract, the contractor shall advise the COR. If the

COR persists and there still exists a disagreement as to proper contractual coverage, the

Contracting Officer should be notified immediately, preferable in writing if time permits.

Proceeding with work without proper contractual coverage could result in non-payment.

A copy of the COR delegation letter shall be provided to the Contractor five days after award.

14.2. Contract Administration

In no event will any agreement, modification, change order, or understanding from any government entity deviating from the terms and conditions of this contract be effective or binding upon the Government unless formalized by proper contractual document executed by the Contracting Officer.

Whenever, in the opinion of the contractor, a government entity requests effort outside the scope of the contract, the contractor shall advise the COR. If the COR and contractor cannot obtain agreement as to proper contractual coverage, the Contracting Officer should be notified immediately, preferable in writing if time permits.

The Contracting Officer is the only person authorized to approve changes, modifications, and agreements of any type that affect the terms and conditions which may affect the price, required delivery or completion times of this contract. This authority remains solely with the

Contracting Officer. In the event that the Contractor affects any changes at the direction of any person other than the Contracting Officer, the changes will be considered to have been made without authority and no adjustment will be made in the contract price to cover any increases effort incurred as a result thereof.