Approved JOFOC RRB ITC OM FM Interim Services .pdf

U.S. GENERAL SERVICES ADMINISTRATION

NATIONAL CAPITAL REGION

PUBLIC BUILDINGS SERVICE

Justification for Other than Full and Open Competition for Operations, Maintenance, and Facilities Management Services at the Ronald Reagan Building and International Trade Center

1. Nature and description of the item being approved.

The current operations, maintenance, and facilities management (“OM&FM”) contract for the Ronald Reagan Building and International Trade Center located at 1300 Pennsylvania Avenue, NW, Washington, DC (“RRB/ITC”) expires May 31, 2024. The U.S. General Services Administration (“GSA”) is currently working on a procurement for a new long-term commercial facilities management (“CFM”) services contract for the RRB/ITC that will incorporate OM & FM services, however, this contract will not be completed prior to the expiration of the current OM & FM contract.

Therefore, GSA seeks to enter an interim bridge contract with Centerra Integrated Facilities Services LLC for the services described below. This interim contract will consist of a twelve-month base period with one six-month option period, allowing GSA the time to competitively solicit and award a new long-term contract for CFM services for the RRB/ITC. This will also provide time for the new contractor’s employees to become security cleared for the building and have the ability to access all the building systems and transition into the CFM role.

2. Description of supplies or services required.

The contractor shall provide OM&FM services at the RRB/ITC to include all exterior aspects of the building property and a portion of the Metro Tunnel. To perform these tasks the contractor will provide all managerial, supervision, labor, supplies, materials, and equipment (except as specifically designated “provided by the Government”). The contractor shall plan, schedule, coordinate, and assure the effective and economical completion of all services described in the scope of work, including pest control services, removal of trash, debris and recycle material from the B2 loading dock of the building (brought to the dock by the janitorial contractor), and management of the B2 loading dock.

Duties will include: taking services calls for the janitorial contractor cleaning Federal tenant spaces;

distributing and maintaining service call records; and taking service calls for the electronic door locking security systems contractor and distributing those service calls to the contractor (will not be responsible for tracking completion or repair orders for the security system, but will report, as needed, the numbers and types of calls for the security system). The contractor will be responsible for repairs and maintenance of the garage security pop-up bollards, wedge barriers, traffic lights and loops for the various 8 garage lanes, and the controls that operate those devices inside the guard’s booth, as well as the Security Command Center. Duties will also include coordination of all repairs and maintenance that will impact the preparation operations of all events taking place in the International Trade Center portions of the building.

The contractor is expected to be proactive and not wait for the Government to spot problems before a service call is generated or a needed repair is reported. The Project Manager is expected to walk all tenant spaces periodically throughout any given week of the task order and be a proactive participant in the management of the facility. The contractor is also responsible for re-lamping all exterior banner

DocuSign Envelope ID: BE3F24BC-30CA-4882-B50A-472B0BA053BD poles – flag poles and poles having “fish” eye lights – around the building and lights on the roof, under the tree grates, and under the drum lights on the Woodrow Wilson Plaza. Service calls shall be computerized and web based so all tenants can place service calls and monitor only those relevant to their end users. GSA shall have the capability to monitor all service calls. The contractor will manage and operate all systems in the Fire Command Center 24/7. The contractor shall perform or assist as needed with the preventive maintenance and repairs of the fire alarm and suppression systems. The contractor’s employees will know, be trained, and understand all computer systems in the Fire Command Center. The contractor shall be required to provide the operations, maintenance, and facilities management services as prescribed at the location.

3. Identification of statutory authority.

The statutory authority permitting other than full and open competition is 41 U.S.C. Section 3304(a)(1) as implemented by FAR 6.302-1, which permits limiting competition when services are available from only one responsible source and no other supplies or services will satisfy agency requirements.

4. Demonstration that the acquisition requires use of the authority cited.

Currently, these services are being performed by Centerra Integrated Facilities Services LLC, and the performance period, which has been extended by six months pursuant to FAR 52.217-8 “Option to Extend Services,” expires on May 31, 2024.

GSA attempted to combine the OM&FM services into the Trade Center Manager (“TCM”) contract for the RRB/ITC in the most recent procurement effort, but GSA determined, due to a myriad of factors, the TCM solicitation needed to be canceled. Due to the unexpected cancellation of the TCM solicitation, GSA had to extend the current OM&FM contract by six months to prevent a lapse in the services.

The OM&FM contract is critical in conducting GSA’s mission at the RRB/ITC by ensuring the daily operation of all the building’s mechanical, electrical, heating and air conditioning systems in the building are operated properly. The RRB/ITC houses four federal agencies, multiple non-federal tenants, including Congresswoman Eleanor Holmes Norton, several retail spaces and the National Children’s Museum. Failure to continue these services would disrupt all agency operations in the building and prevent federal occupants (EPA, US Aid, EPA and US Customs), retail space occupants and over 1,000 visitors from entering the building, including visitors to the National Children’s Museum. To prevent this outcome, there can be no lapse in service to the building and its tenants.

Additionally, the RRB/ITC currently has various modernization projects being performed in the RRB/ITC that require the contractor to have familiarity and knowledge of the current building operating systems to ensure daily operational services are being performed and are not negatively impacted by the contractors performing the work on the modernization projects.

To perform the OM&FM services, a contractor is required to have knowledge of GSA’s security protocols and the associated security clearances, including GSA security credentials for enterprise login access. Obtaining these objectives requires training, which requires time, and any delay in acquiring these requirements could prevent a contractor from performing and result in a lapse in services.

The incumbent, Centerra Integrated Facilities Services LLC, is currently onsite performing the OM&FM services so it is intimately familiar with the work to be performed, and it has been performing the services satisfactorily since 2014. It is the only vendor who currently has the requisite knowledge of GSA’s security protocols and the associated security clearances, including GSA security credentials for enterprise login access and therefore is the only vendor that can provide immediate solutions to the OM&FM requirements prescribed for this short-term contract. These services, which include vital fire and life safety, electrical and mechanical systems testing and maintenance, cannot be performed adequately by a new contractor unfamiliar with the building and its systems by the May 31, 2024 expiration date. Moreover, the contract resulting from this action will contain the same terms and conditions outlined in the current contract and Centerra Integrated Facilities Services LLC is the only vendor that is positioned to immediately accept and comply with the terms of the contract.

5. Description of efforts to solicit as many offerors as practicable.

On April 23, 2024, GSA published the notice as required by FAR sections 5.201 and 6.302-1(d)(2) in the Governmentwide point of entry via sam.gov. The closing date for submission of capability statements, proposals, or quotations is May 23, 2024. See Section 9.

6. Demonstration that the anticipated cost will be fair and reasonable.

The Contracting Officer determines, by certifying this document, that the anticipated cost to the Government for this contract action will be fair and reasonable. The anticipated cost, over a period of not to exceed eighteen months, is approximately $15.6 million dollars. These costs are within the range of the government estimate which is based on historical pricing for these services used in the past. The funding will be provided by BA61.

The price for this 18-month interim contract will be based on the existing Collective Bargaining Agreement (CBA) and Service Contract Act (SCA) wage determination. Therefore, the Contracting Officer has determined the anticipated cost to the Government of the services covered by this justification will be fair and reasonable.

7. Description of the market survey conducted.

Other than the notice posting on SAM.gov on April 23, 2024 seeking information in accordance with FAR section 6.302-1, no additional market survey was conducted for this interim contract. No response was received for the notice.

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

GSA decided it was in the best interest of the government to create a long- term CFM contract for the services for the RRB/ITC. This effort requires a new procurement strategy that is estimated to take eighteen months during which GSA will analyze and develop the best approach to structure the new long-term CFM service contract in a manner that maximizes competition.

9. List of sources that expressed interest in the acquisition.

On April 23, 2023, GSA published a Notice of Intent to Issue a Sole Source Contract for OM & FM services at the RRB/ITC located in Washington, DC as required by FAR sections 5.201 and 6.302-1 in the Governmentwide point of entry via Sam.gov with a response due date of May 23, 2024. Based on the synopsis posted in sam.gov, GSA received one capability statement from EMCOR Government Services, Inc. EMCOR’s capability statement consisted of an overview of services provided with their facility management offerings, to include short descriptions of its staffing philosophy, its business structure, its commitment considering the Government's evolving needs, the long-term health of facilities, occupant comfort, and the energy conservation/environmental impact of facilities engineering. past performance and its technical approach. Critically, the furnished materials do not address the current requirement, recognize the agency’s need for immediate services or establish EMCOR’s capability to step into the requirement as of June 1, 2024 without a lapse in or degradation of required services. EMCOR’s materials made no mention of rapid transition in, a specific approach to staffing the requirement, or a strategy to avoid impact to necessary services. In short, while the furnished materials may be read to suggest that EMCOR has a reasonable high-level approach to managing facilities, there is no project-specific information that speaks to satisfying this requirement without jeopardizing the provision of critical services. The agency therefore could not conclude that additional sources can satisfy the requirement in the necessary time frame without undue programmatic risk.

10. Statement of actions to overcome barriers to competition.

There are no barriers to competing future awards as this interim contract serves as a bridge not to exceed eighteen months. This short-term bridge will allow GSA to complete its competitive procurement of the long-term CFM service contract and provide a smooth transition for the services at the RRB/ITC.

I certify that the supporting data used to form the basis of this justification is complete and accurate.

Tyrone Dorsey, Supervisory Building Manager Date Office of Facility Management

Certification:

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

Ingrid J. Blair, Contracting Officer Date Building Services Division

Concurrence:

Tikelia Murphy, Division Director Date Building Services Division, National Capital Division

Michael Spriggs, Advocate for Competition Date Office of Acquisition, National Capital Division

Shanta Cardiel, Contracting Director Date Office of Acquisition, National Capital Division

Concurrence for Legal Sufficiency:

Claire A. Watkins Date Supervisory Senior Assistant Regional Counsel Office of the General Counsel, National Capital Division

Approval:

Melanie F. Gilbert Date Regional Commissioner, Acting Regional Administrator U.S. General Services Administration

Certificate Of Completion Envelope Id: BE3F24BC30CA4882B50A472B0BA053BD Status: Completed

Subject: Complete with DocuSign: JOFOC for Operations, Maintenance and Facilities Management Interim Con...

Source Envelope:

Document Pages: 5 Signatures: 7 Envelope Originator:

Certificate Pages: 2 Initials: 0 Ingrid Blair

AutoNav: Enabled

EnvelopeId Stamping: Enabled

Time Zone: (UTC) Dublin, Edinburgh, Lisbon, London

1800F F St NW

Washington DC, DC 20405 ingrid.blair@gsa.gov

IP Address: 71.120.195.97

Record Tracking Status: Original

5/28/2024 6:15:37 PM

Holder: Ingrid Blair ingrid.blair@gsa.gov

Location: DocuSign

Security Appliance Status: Connected Pool: FedRamp

Storage Appliance Status: Connected Pool: US General Services Administration Location: DocuSign

Signer Events Signature Timestamp

TYRONE DORSEY

tyrone.dorsey@gsa.gov

US General Services Administration

Security Level: Email, Account Authentication (None) Signature Adoption: Drawn on Device

Using IP Address: 159.142.0.146

Sent: 5/28/2024 6:29:31 PM

Viewed: 5/28/2024 6:32:45 PM

Signed: 5/28/2024 6:32:54 PM

Electronic Record and Signature Disclosure:

Not Offered via DocuSign

IngridJBlair ingrid.blair@gsa.gov

US General Services Administration

Security Level: Email, Account Authentication (None) Signature Adoption: Pre-selected Style

Using IP Address: 71.120.195.97

Sent: 5/28/2024 6:32:55 PM

Viewed: 5/28/2024 6:57:43 PM

Signed: 5/28/2024 6:57:55 PM

Electronic Record and Signature Disclosure:

Not Offered via DocuSign

Tikelia Murphy tikelia.murphy@gsa.gov

Supervisory Contract Specialist

US General Services Administration

Security Level: Email, Account Authentication (None)

Signature Adoption: Pre-selected Style

Using IP Address: 73.191.59.8

Sent: 5/28/2024 6:57:56 PM

Viewed: 5/28/2024 6:59:35 PM

Signed: 5/28/2024 7:00:42 PM

Electronic Record and Signature Disclosure:

Not Offered via DocuSign

Michael Spriggs michael.spriggs@gsa.gov

US General Services Administration

Security Level: Email, Account Authentication (None) Signature Adoption: Pre-selected Style

Using IP Address: 72.83.219.103

Signed using mobile

Sent: 5/28/2024 7:00:44 PM

Viewed: 5/28/2024 7:09:09 PM

Signed: 5/28/2024 7:10:57 PM

Electronic Record and Signature Disclosure:

Not Offered via DocuSign

Signer Events Signature Timestamp Shanta Cardiel shanta.cardiel@gsa.gov

US General Services Administration

Security Level: Email, Account Authentication (None) Signature Adoption: Uploaded Signature Image

Using IP Address: 72.83.41.239

Sent: 5/28/2024 7:10:58 PM

Viewed: 5/28/2024 9:32:50 PM

Signed: 5/29/2024 6:06:49 PM

Electronic Record and Signature Disclosure:

Not Offered via DocuSign

Claire A. Watkins claire.watkins@gsa.gov

US General Services Administration

Security Level: Email, Account Authentication (None) Signature Adoption: Pre-selected Style

Using IP Address: 108.51.236.146

Sent: 5/29/2024 6:06:51 PM

Viewed: 5/29/2024 6:53:33 PM

Signed: 5/29/2024 6:54:45 PM

Electronic Record and Signature Disclosure:

Not Offered via DocuSign

Melanie Gilbert melanie.gilbert@gsa.gov

Regional Commissioner, NCR

Security Level: Email, Account Authentication (None) Signature Adoption: Pre-selected Style

Using IP Address: 159.142.0.142

Sent: 5/29/2024 6:54:46 PM

Viewed: 5/29/2024 8:31:29 PM

Signed: 5/29/2024 8:33:52 PM

Electronic Record and Signature Disclosure:

Not Offered via DocuSign

In Person Signer Events Signature Timestamp

Editor Delivery Events Status Timestamp

Agent Delivery Events Status Timestamp

Intermediary Delivery Events Status Timestamp

Certified Delivery Events Status Timestamp

Carbon Copy Events Status Timestamp

Witness Events Signature Timestamp

Notary Events Signature Timestamp

Envelope Summary Events Status Timestamps Envelope Sent Hashed/Encrypted 5/28/2024 6:29:31 PM

Certified Delivered Security Checked 5/29/2024 8:31:29 PM

Signing Complete Security Checked 5/29/2024 8:33:52 PM

Completed Security Checked 5/29/2024 8:33:52 PM

Payment Events Status Timestamps