DLNSEO JA_Boren Flagship_redacted.pdf

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Contracting Activity: Defense Human Resources Activity (DHRA) Enterprise Operations Center (DEOC) Contracting and Financial Operations (C&FO)

Purchase Request Number:

Component/Requirement Title: Defense Language and National Security Education Office (DLNSEO) / National Security Education Program support for Boren Scholarships and Fellowships and The Language Flagship Programs Authority (include full title): 10 U.S.C. 2304(c)(5), FAR 6.302-5, Authorized or Required by Statute.

Estimated Contract Cost (including options): J&A Type: Class Individual

COORDINATION & APPROVALS: (>$93M)

I. Agency/Contracting Activity.

Agency: DHRA/DLNSEO, 4800 Mark Center Dr., Suite 08G08, Alexandria, VA 22350

Contracting Activity: DEOC/C&FO, 4800 Mark Center Dr., Suite 03E25, Alexandria, VA 22350

Justification for Other Than Full and Open Competition is based on 10 U.S.C. 2304(c)(5), FAR 6.302-5, authorized by statute. The authorization by statute for this requirement is found in 50 U.S.C. §1902(a)(4), Scholarship, fellowship, and grant program.

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

Request approval to award a sole source contract to the Institute of International Education (IIE). This contract requirement succeeds the currently operating Cooperative Agreement H982101620002 expiring on 31 March 2021. The ordering period is anticipated to be a total of 48 months.

The Defense Language and National Security Education Office (DLNSEO) office requires specialized support for the National Security Education Program (NSEP) David L. Boren Scholarships and Fellowships, and The Language Flagship institutional sub-awards to institutions of higher education (IHEs) per the NSEP legislation in 50 U.S.C. §1901 et seq. David L. Boren Scholarships and Fellowships are awarded to undergraduate and graduate students who are United States (U.S.) citizens studying languages, cultures, and regions of the world critical to national security. The Language Flagship institutional sub-awards to IHEs transform foreign language education so that students who participate in the supported initiative at these institutions graduate with both a professional level ability in a foreign language critical to U.S. national security together with expertise in their academic field. The services required for this contract include competitive candidate selection processes for awarding scholarships, fellowships and grants, and the distribution of funds for the duration of each scholarship, fellowship, and grant.

The Vendor shall be responsible to conduct a nation-wide recruiting campaign for the Boren Scholarships and Fellowships, solicit competitive applications, and facilitate the review of applications, and manage the subsequent awards. The review of applications shall include the assistance of higher educational experts at the regional and national level. The Vendor also shall provide summary information about the competition process to NSEP and its National Security Education Board (NSEB), and oversee the distribution of the sub-awards in a manner that complies with federal government regulations.

The total estimated value of the instant requirement is . The ordering period will be for 48 months starting on 01 Apr 2021. FY21 DoD No-Year and Office of the Director of National Intelligence (ODNI) reimbursable No-Year funds are expected in the estimated amount of . FY21 DoD Operations and Maintenance (O&M) and ODNI O&M funds are expected in the estimated amount of .

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

This contract requirement succeeds Cooperative Agreement # H9810-16-2-0002. A firm-fixed price CLIN for the management tasks and Time and Materials (T&M) CLINs for the Boren scholarships and fellowships as well as Language Flagship sub-awards to institutions of higher education are anticipated on the successive contract.

DLNSEO requires support for the following services:

1. The Vendor shall annually award up to 350 Boren scholarships and fellowships. The amount provided per fiscal year forthe Boren awards is approximately , and is provided as reimbursable funds from the Office of the Director of National Intelligence per 50 U.S.C. § 1910.

2. The Vendor shall annually award up to 80 Language Flagship grantsto IHEs. The amount per fiscal year for Language Flagship grants is up to , and is provided as reimbursable funds from the Office of the Director of National Intelligence per 50 U.S.C.

§ 1910, and as O&M and No-Year funds from the Department of Defense per 50 U.S.C. § 1910-1911.

3. The Vendor shall provide annually to recruit, award, and manage the aforementioned awards as detailed within the PWS. The cost to manage the contract is estimated at slightly more the per fiscal year, and is provided as reimbursable funds from the Office of the Directorof National Intelligence per 50 U.S.C. § 1910-1911, and as O&M and No-Year fundsfromthe Department of Defense per 50 U.S.C. § 1910-1911 .

IV. Statutory authority permitting Other than Full and Open Competition.

The statutory authority permitting other than full and open competition for this acquisition is at 10 U.S.C. 2304(c)(5), FAR 6.302- 5, authorized or required by statute. The authorizing statute is The National Security Education Act of 1991 (P.L. 102-183, codified as amended at 50 U.S.C. §1902, Scholarship, fellowship, and grant program) provides that “…the Secretary (of Defense) may enter into one or more contracts with private national organizations having an expertise in foreign languages, area studies, counter proliferation studies and other international fields, for the awarding of scholarships, fellowships, and grants without regard to section 6101 of Title 41 or any other provision of law that requires use of competitive procedures. In addition, the Secretary may enter into personal service contracts for periods up to one year for program administration, except that not more than 10 such contracts may be in effect at any one time.” (50 U.S.C. §1902(a)(4)).

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

The Institute of International Education (IIE) has the requisite knowledge of scholarship, fellowship, overseas study programs, and higher institution-based foreign language programs, and other issues relevant to the U.S. higher education system. Due to its active oversight on numerous federal initiatives engaged in scholarship and fellowship administration, long-standing relationships with higher education institutions, and active participation in relevant professional networks, IIE can brings a broad base of expertise necessary for effective administration and oversight of NSEP programs. Their experienced staff, efficient operations, and institutional experience ensures timely and cost effective management of the project. IIE’s response to the sources sought was comprehensive, addressed all the elements of the PWS, and how it would continue to fulfill the government requirement.

A comprehensive summary of the Market Research in section VIII below, provides additional details into the marketplace of business related to this requirement. A sources sought was conducted to determine market interest with only IIE expressing interest in this requirement and having sufficient capabilities to effectively execute all elements within the PWS. A number of small businesses demonstrated the ability to execute some but not all the elements of the PWS. IIE is unique in its ability to satisfy each of the PWS requirements.

VI. Description of efforts made to ensure that offers are solicited from as many potential sources aspracticable.

After reviewing the Performance Work Statement (PWS), the Contracting Officer and the DHRA Small Business Advocate recommended that a sources sought be conducted to determine what small businesses may have the capability to fulfill aspects of the requirement, and to review prospective vendor capability statements.

A Sources Sought was issued 21 May 2020 via beta.sam.gov, which included a complete draft of the PWS. A Capability Statement Review was completed on 01 June 2020 based on the eight (8) responses received from the sources sought. Only one source, the Institute of International Education (IIE), has the capacity to meet the contract requirements. Seven other respondents, including six small businesses, have the ability to assist with sub-elements of the requirement. These findings are provided in section VIII below and further found within the Market Research Report.

In addition, DLNSEO explored the market of larger not-for-profit organizations that award scholarships and fellowships for study abroad, and have partnerships with higher educational institutions. The Market Research Report describes how only one of these organizations possess the capability to execute the PWS in its entirety. Furthermore, the Sources Sought was sent to these organizations by DLNSEO, only two of which responded, one that has the capability to assist with parts of the PWS and the Institute for International Education, to which this sole source award is recommended.

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

A price evaluation will be conducted to make a determination that the proposed price is fair and reasonable before making award. The price evaluation may include comparison to the Government’s independent cost estimate. Additionally, the Government may request other than certified cost or pricing data as part of the offeror’s proposal to conduct price analysis and/or enter into negotiations with the offeror.

VIII. Description of the market research conducted and theresults.

In accordance with FAR 10.002, DLNSEO conducted market research to identify industry capability, capacity, and potential sources to accomplish this contract requirement. Market research methods included:

1. Personal contact with numerous companies that DLNSEO has developed relationships with during the course of its two and a half decade existence.

2. Sources Sought on the Government-wide Point of Entry (GPE) beta.sam.gov.

3. Review of Vendor documents andwebsites

4. Internet searches

5. Review of historical data anddocuments

In addition to the eight Vendors that responded to the Sources Sought mentioned in Section VI above, DLNSEO reviewed the qualifications of five additional Vendors listed below that were identified as able to fulfill some, but not all of the requirement:

American Councils for International Education: ACIE is highly qualified to handle the management and administration of some overseas components of the NSEP portfolio. Nevertheless, the organization does not manage domestic scholarships, fellowships or institutional program, and lacks the background and experience to manage all of the elements within this requirement.

American Institutes for Research: AIR is a behavioral and social science research organization that has access to a range of expertise in the development and assessment of education programs. These skills could be valuable to NSEP in administering the Boren and Flagship initiatives. However, AIR’s focus is on research and evaluation, not program development and administration, and it lacks the requisite expertise in foreign language programming and connections with foreign language community and overseas programs.

Center for International Educational Exchange: CIEE is an overseas training organization that provides programs in language and culture for American students wishing to study overseas. CIEE has the expertise in overseas foreign language program design, management, and evaluation that is required for oversight of some NSEP programs. However, it operates exclusively overseas and lacks the necessary knowledge of and contacts with higher education institutions, and the U.S. foreign language community.

FHI 360: FHI 360 is a federal contractor whose experts oversee competitive federal grants in health, education, nutrition, environment, economic development, civil society, gender equality, youth, research and technology. FHI 360 operating in more than 70 countries and the U.S. FHI 360 expertise and efforts are on overseas development projects rather than overseeing domestic investments. They lack the expertise with the U.S. higher education community and do not possess knowledge related to native English speakers learning languages critical to U.S. national security.

World Learning Inc.: This organization provides study abroad opportunities for U.S. high school students and attendees of one particular higher educational institution based on a primary focus of social justice and international development. World Learning also provides certification in Teaching of English as a Second Language, but does not possess knowledge related to native English speakers learning languages critical to U.S. national security.

Market research concluded that only IIE, has the capability to execute the Boren Flagship contract at the scope and magnitude required by the Government.

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

This Boren and Flagship requirement was initiated with the passage of 50 U.S.C. §1902 (a)(1), known as the National Security Education Act of 1991 (NSEA). Section 1902 (a)(1) of the NSEA requires the Secretary of Defense to carry out the Boren and Flagship initiatives, which have been providing scholarships and fellowships and to U.S. citizens and grants to institutions of higher education since 1994. NSEP has been in partnership with IIE since 1994 when it began awarding its first Boren Scholarships. IIE has supported the awarding of Boren Fellowships and The Language Flagship grants since 2006.

The below table gives the acquisition history of this requirement.

Contract # and Order #

Contractor

Type of contract

Period of Performance

Value

Acquisition Strategy

H982101620002 Institute of International

Education (IIE)

Cooperative Agreement

01 Apr 2016 to 30 Mar 2021

Sole Source

H982101120001 Institute of International

Education (IIE)

Cooperative Agreement

30 Sep 2011 to 29 Sep 2016

Sole Source

HQ00340820022 Institute of International

Education (IIE)

Cooperative Agreement

06 Mar 2008 to 05 Mar 2012

Sole Source

Given these statutory and other considerations listed above, the Institute of International Education (IIE) has been identified as the only viable Vendor for the requirement. IIE is the only organization that has the required subject matter knowledge, experienced staff, grant making operations, and experience to ensure the effective and efficient management of the scholarships, fellowships and institutional projects. IIE also has an established track record and history of managing and awarding scholarships, fellowships, and grants on behalf of the U.S. government including administration of the Fulbright program.

X. List of sources, if any, that expressed interest in the acquisition.

In addition to IIE, the following Vendors expressed an interest in fulfilling all or part of the requirement. None of the following Vendors demonstrated the ability to fulfill the requirement in its entirety as expressed in the PWS, or are currently assisting in supporting the requirement:

Jefferson South Solutions. This organization is a Service-Disabled Veteran Owned Small Business with specialization in providing training related to sexual assault prevention. Jefferson South Solutions has the capacity to assist in elements of the requirement, but does not demonstrate experience in or capability to fulfill the most central element of the PWS to award and manage scholarships, fellowships, and grants. The Vendor may be able to assist in sub-contractor support associated with sexual assault prevention.

Corrin & King Business Strategies, LLC. Corrin & King is a Woman Owned Small Business with interest in participating in the requirement as a subcontractor, and not to fulfill the entire requirement. Corrin & King has provided support for two higher educational institutions, and has a lead consultant who volunteers as a higher educational board member and has participated in scholarship review panels. As a result, the Vendor states it has the capacity to assist the requirements of the awarding scholarships. Corrin & King highlights specific expertise in outreach initiatives, fiscal management, distance-based educational delivery, and application review processes, but does not demonstrate experience in or capability to fulfill the most central element of the PWS to award and manage scholarships, fellowships, and grants.

designs by Stacy Inc. designs by Stacy is a Minority Woman Owned Small Business with certified SBA 8(a) economically disadvantaged designation, specializing in corporate graphic communications requesting an opportunity to provide assistance in fulfilling components of the requirement as a subcontractor. designs by Stacy provided a portfolio in their sources sought response with examples of experiencing supporting U.S. government and public sector clients with support in advertising, public relations, web-based marketing, market research and analysis, conferences and events planning, and graphic design.

The Center for Applied Linguistics (CAL). CAL is a 501.c3 non-profit organization with specific expertise in second language acquisition and second language proficiency assessment. CAL is the prime contractor for the NSEP English for Heritage Language Speakers (EHLS) Program, which correlates to many of the elements within the PWS including outreach to potential applicants, selection of scholarship recipients, and management of a foreign language acquisition initiative leading to professional-level proficiency. Furthermore, CAL subcontracts to IIE for support of the EHLS scholarship application, review and selection process.

CAL has limited experience with providing grants to institutions of higher education, Longeviti LLC. Longeviti is a 8(a) certified Disadvantaged Small Business with background and experience in delivering Language, Regional Expertise, and Culture (LREC) training to DoD clients, and translation and interpretation capabilities to another U.S.

government client. Longeviti cites the use of the Oral Proficiency Interview (OPI) and the Defense Language Proficiency Test (DLPT), but did not provide details on how the tests are administered or interpreted. It also cites the use of classroom, virtual, and iso-immersion teaching environments. Longeviti does not cite any background or experience in awarding scholarships, fellowships, or grants to institutions of higher education, which is the primary purpose of the requirement in the PWS. Based on the response to the sources sought for this requirement, it is not clear what types of subcontract opportunities Longeviti may be willing or able to fulfill from within the PWS.

Exhibit Arts LLC. Exhibit Arts is a Minority Owned, Woman Owned, Disadvantaged Small Business with experience providing “a full range of promotional products and event support services to the military….” Based on the response to the sources sought, Exhibit Arts states that it specializes in providing a broad range of client support for trade shows, citing support for over 300 such events. The Vendor cites that it has supported the Air Force Recruiting Services for over 15 years, providing venue identification and material needed to host outreach events. The response to the sources sought suggests that this Vender is interested in sub-contracting opportunities to support outreach and special events cited within the PWS.

Susan Davis International. This organization is a Woman Owned Small Business with a specialization in strategic communication, special events planning, and cyber and risk communication. Susan David Intl. has experience supporting DoD clients, and has planned and executed a broad range events ranging from 25 – 250,000 participants. The response to the sources sought did not provide any information on the Vendor’s ability to support and award scholarships, fellowships, or grants to institutions of higher education. The response suggests that the Vendor is interested in sub-contracting opportunities supporting special events described in the PWS.

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

The NSEP statute states that “…the Secretary (of Defense) may enter into one or more contracts with private national organizations having an expertise in foreign languages, area studies, counter proliferation studies and other international fields, for the awarding of scholarships, fellowships, and grants without regard to section 5 of Title 41 or any other provision of law that requires use of competitive procedures” (50 U.S.C. §1902(a)(4)).

XII. Certification by the Contracting Officer.

As evidenced by my signature above, I have determined this document to be both accurate and complete to the best of my knowledge and belief.

XIII. Certification by the technical/requirements personnel.

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