APPROVED JUSTIFICATION AND APPROVAL MEMO.pdf

Justification and Approval USAID/Central Asia, Central Asia Support for Stable Societies

Contract 7200AA18C00079

JUSTIFICATION AND APPROVAL FOR OTHER THAN FULL AND OPEN

COMPETITION (J&A)

To: Deborah Broderick, Agency Competition Advocate

From: Stephanie Garvey, USAID/Central Asia, Democracy and Governance Office Director

SUBJECT: JUSTIFICATION AND APPROVAL FOR OTHER THAN FULL AND

OPEN COMPETITION (J&A)

1. This document sets forth the facts and rationale justifying the use of other than full and open competition, in accordance with AIDAR 706.302-70(b)(5).

This document was prepared by the Democracy and Governance Office at USAID/Central Asia regarding the Central Asia Support to Stable Societies contract with DAI.

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

This is a request to approve a contract modification to continue specialized services and provide a time and cost extension to DAI for $2.1 million (from $8,989,451 to $11,089,451) and an additional 12 months (from 30 months to 42 months), thus extending the contract end date from March 31, 2021 to March 31, 2022. Under this action, DAI will provide professional and technical services related to Countering Violent Extremism (CVE) in the four countries of project implementation (Kazakhstan, Kyrgyz Republic, Tajikistan, and Uzbekistan). The current contract is a Cost-Plus-Fixed-Fee (CPFF) Completion Contract.

The time and cost extension was being considered prior to the COVID-19 pandemic. The time and cost extension is not being requested because of nor in response to the COVID-19 pandemic.

It is not envisioned at this time that the extension will be funded with resources dedicated to responding to the COVID-19 pandemic.

3. Description of the supplies or services required, including an estimated value:

This contract was awarded on August 23, 2018, with the period of performance beginning on September 17, 2018. The contract came out of a Broad Agency Announcement process that sought to obtain Countering Violent Extremism (CVE) research and pilot programming in Central Asia. While the primary research phase of the award has been completed, the pilot programming phase has only recently started and is beginning to gain momentum. Given the limited experience and knowledge base around CVE in Central Asia, efficient Contract implementation was hindered by the need to address the limited capacity of local organizations to effectively participate in the award. Thus, it is necessary for the Contractor to provide additional technical assistance to local organizations to be able to fully explore the CVE research findings and their implications for relevant CVE programming in the four countries.

Contract 7200AA18C00079

Programming in CVE is of high priority to the U.S. and is highlighted as one of the key objectives in the newly released U.S. Strategy for Central Asia.

The Contract’s research phase explored the presence of vulnerabilities to and protective factors from violent extremist influence that exist at both the individual and community level in Central Asia. Both on-the-ground (qualitative and quantitative) research was conducted, in addition to exploration of the violent extremist online ecosystem. The research findings were then localized to each of the country contexts and programmatic priorities were determined. The initial round of pilot programming has yielded critical results that are being further explored in other countries and/or scaled up.

Because of the need to further explore the rich research findings to better understand programming possibilities, additional pilot activities are needed. These additional pilot activities will look at: new areas for programming relevant to the research findings; scale up existing pilot programming that has been successful; and test successful pilots in other program countries. The additional time will also enable deeper analysis of the current pilot programming to more clearly determine which interventions have been most successful and are suitable for further exploration.

The additional funding will include increased CVE programming in all four countries (Kazakhstan, Kyrgyz Republic, Tajikistan, and Uzbekistan) and will allow for supplemental, targeted research, as needed. With time and funding for an increased number of pilot activities, local capacity to implement CVE programming in the region will be further strengthened.

Additionally, opportunities for greater regional CVE linkages and regional leadership, both priorities of the mission, will be further examined.

The proposed interventions and expected results are highlighted below.

Proposed Interventions:

Primarily: Additional CVE pilot activities in all four countries – Kazakhstan, Kyrgyz Republic, Tajikistan, and Uzbekistan. This will include extending existing pilot activities to gain a greater understanding of their effectiveness, testing new approaches and interventions, and/or the replication of successful activities in other communities and the scaling up of interventions found to be successful.

Secondarily: When and where needed, additional research and/or analysis of the VE environment in the region. This could include looking at the impact of COVID-19 on VE risk in Central Asia, the impact of the reintegration of foreign terrorist fighters, women and children from Syria on VE in the region, or other developing factors.

Expected Results:

A deeper understanding of risk and protective factors of radicalization and mobilization to violent extremism in Central Asia.

A more-nuanced understanding of effective development interventions at the community level that can address these vulnerabilities and resiliencies to violent extremism.

Contract 7200AA18C00079

Greater knowledge of the potential replicability and scalability of successful CVE interventions in other communities throughout the region.

Cost estimate for the additional programming is $2.1 million in regional funds over 12 months in Kazakhstan, Kyrgyz Republic, Tajikistan, and Uzbekistan.

4. Statutory authority permitting other than full and open competition:

40 U.S.C. §113(e)(2) as implemented by USAID under AIDAR 706.302-70(a)(2) permits other than full and open competition when this would impair or otherwise have an adverse effect on programs conducted for the purposes of foreign aid, relief, and rehabilitation. Pursuant to AIDAR 706.302-70(b)(5) this authority may be used for “An award for the continued provision of highly specialized services when award to another resource would result in substantial additional costs to the Government or would result in unacceptable delays.”

5. A demonstration that the proposed contractor’s unique qualifications or the nature of the acquisition that requires use of the authority cited:

The Contractor has achieved notable progress in furthering understanding of the violent extremist environment in Central Asia, both in regard to research and pilot programming, in which the Contractor has highly specialized expertise and is able to provide highly specialized services. The Contractor has utilized its global experience in CVE, bringing relevant lessons learned and programmatic experience to bear on implementation in the region. This well-regarded expertise, combined with the Contractor’s skill in identifying individual technical experts with Central Asia experience or relevant technical knowledge from other regions, has meant that the Contractor has created a deep body of human capital available for program implementation unparalleled in the region and which it has skillfully utilized to advance program objectives. During this period as USAID continues to expand our understanding of the regional CVE environment and dynamics, having another Contractor come in to perform the same work would create unreasonable delays and would be cost prohibitive.

Moreover, the relationships developed by the Contractor are not easily transferred or replicated without an additional and significant investment of time and resources. The Contractor has established strong working relationships in each of the four countries with government entities, research institutions, independent local researchers, local implementing organizations, community and religious leaders, other donor organizations, USG implementing partners, and international experts who have experience relevant to the Central Asian context. Given the politically sensitive nature of CVE and that this is a new area for USAID programming in Central Asia, relationship building, particularly with host government officials, takes significant time. Any shift in the Contractor in the immediate future will set back USAID’s efforts in this area, which is a high-priority national security area for the USG.

Additionally, given the limited capacity in the region to implement CVE programming, it is not possible to issue a direct award to a local organization at this time. It is imperative that the

Contract 7200AA18C00079

Contractor’s focus on capacity building of local entities be continued without a gap to ensure sustainability and transitioning of ownership to local bodies in the future.

6. Description of the efforts made to ensure that offers are solicited from as many potential sources as practicable, including whether a notice was publicized as required by Federal Acquisition Regulation (FAR) 5.2 [AIDAR 705.2].

The current Contract was awarded through a competitive Broad Agency Announcement (BAA) process in which multiple organizations (both international and local) participated.

A notice of intent to modify this contract without competition was publicized in Beta.SAM.gov on July 21, 2020 as required by the FAR 5.2 [AIDAR 705.2]. Any written expressions of interest received will be addressed.

7. A determination by the Contracting Officer that the anticipated cost to the Government will be fair and reasonable:

The contract ceiling increase of $2,100,000 is based on the Independent Government Cost Estimate that accounts for the direct and indirect costs and fees associated with the increase in activities described in the J&A. Prior to modifying the contract, the Contracting Officer will review the proposed costs and make a determination as to whether the costs are fair and reasonable.

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

No additional market research has been conducted for this extension. Rather, the current Contractor is working to expand the knowledge base on CVE in the region through both research and pilot programming, while at the same time building local capacity for CVE research and project implementation.

Additional market research will be conducted as part of the design of the follow-on award to this Contract.

9. Other facts supporting the use of other than full and open competition:

The proposed time and ceiling increase of the existing Contract will provide essential interventions in Central Asia in support of a key U.S. foreign policy objective – countering violent extremism, as highlighted in the USG’s Central Asia Strategy. Efforts will include programming in four countries, Kazakhstan, Kyrgyz Republic, Tajikistan, and Uzbekistan.

The current programming period is critical because of the return of foreign terrorist fighters and their family members from Syria. The U.S. has been supportive of Central Asian governments bringing home their citizens from the conflict in Syria. However, it is also understood that these returnees could have a destabilizing effect on current efforts to prevent violent extremism in Central Asia. USAID’s continued engagement in the CVE sector and the Contractor’s role in monitoring this space (through research and pilot programming) will be critical in identifying new threats as they arise and determining the most effective interventions to prevent violent

Contract 7200AA18C00079 extremist ideas from spreading. Additionally, it is thought that the impacts of COVID-19 may create further vulnerabilities to violent extremist influence. It is imperative that USAID’s work in this sector continue uninterrupted to support U.S. foreign policy objectives during this important time.

Furthermore, a new Contractor would not be able to be fully effective for at least the first three to six months as relationships with Central Asian stakeholders would have to be established in this politically sensitive area and knowledge of the complex Central Asian CVE environment would need to be obtained across the four program countries. In addition, it may be difficult to develop relationships, particularly with governments, and ascertain the status of CVE in Central Asia during the COVID-19 period when in-person meetings and events are limited.

The Contractor is performing very well and USAID has not observed any weaknesses in performance during the current rating period. In September 2019, a new Chief of Party (COP) joined the project and since then, implementation has accelerated and creativity and innovation has increased. The Contractor has a strong and collaborative relationship with USAID, is customer oriented and is responsive to feedback. USAID is confident that the Contractor’s project team has the right leadership skills and technical expertise to continue to successfully advance the project’s objectives.

The Contract modification is the best value for money and the optimal option for the Mission to meet the anticipated programmatic activities because: 1) the Contractor will continue to expand USAID’s (and the broader USG’s) understanding of how USAID can most effectively engage in the CVE environment in Central Asia; and 2) the Contractor will continue to build the capacity of local organizations to more successfully address violent extremist threats in the region.

As a follow on to the subject Contract, the Mission will begin designing a new, competitive CVE activity in FY 2021, which is anticipated to be awarded in FY 2022.

10. Sources, if any, that expressed an interest, in writing, in the acquisition:

As part of the competitive BAA process that led to this award, multiple organizations (both international and local) participated in the process.

A notice of intent to modify this contract without competition was publicized in Beta.SAM.gov on July 21, 2020 as required by the FAR 5.2 [AIDAR 705.2]. Any written expressions of interest received will be addressed.

11. The actions the Agency may take to remove or overcome any barriers to competition before any subsequent acquisition for the supplies or services required:

No barriers to competition are foreseen for the next mechanism aimed at countering violent extremism in Central Asia, which is expected to be awarded through full and open competition in fiscal year 2022.

Contract 7200AA18C00079

12. Technical or requirement personnel certification:

In accordance with FAR 6.303-1(c), I hereby certify that the technical statements included above and which form a basis for the justification are complement and accurate.

Stephanie Garvey Date Director, Democracy and Governance Office USAID/Central Asia

13. Contracting Officer Certifications:

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

Leona Sasinkova Date Supervisory Contracting Officer USAID/Central Asia

14. Approved/Disapproved

Approved Disapproved

Deborah Broderick Date Agency Competition Advocate ephanie Garvey

July 29, 2020

Leona Sasinkova

Digitally signed by Leona Sasinkova Date: 2020.07.29 12:34:58 +06'00'

DEBORAH RYAN

BRODERICK (affiliate)

Digitally signed by DEBORAH RYAN BRODERICK (affiliate) Date: 2020.08.03 11:07:23 -04'00'