FBO Post Approved Justification and Approval Redacted.pdf

FOR OFFICIAL USE ONLY

Justification for Other Than Full and Open Competition

I. Contracting Organization

Department of the Air Force, 633d Contracting Squadron, 74 Nealy Ave., Joint

Base Langley Eustis, VA is the contracting organization responsible for this

Justification for Other Than Full and Open Competition. The Procuring Contracting

Officer is Ms. Cynthia E. Lewandowski, DSN 574-2544.

Purchase Request Number: WP20006206NC03

II. Description of Contract Action

This is a Justification and Approval (J&A) limiting competition for the Ft. Eustis

Base Operations Support (BOS) contract to increase scope (W911S0-08-C-0001), to add 32 facilities and delete 52 facilities and adjust contract ceiling to account for significant mission growth: Growth of Army Personnel, Post mission increase/decrease, numerous Base Realignment and Closure (BRAC) actions, and

Fort Eustis’s Directorate of Public Works (Army) transition to Civil Engineer

Division (Air Force), and associated Individual Job Orders (IJO) by direct funding and reimbursable funding for tenet facilities. These transformations address Joint

Base Langley – Eustis (JBL-E) mission requirements that are increasing the training and active duty soldiers’ tempo significantly, that could not be anticipated at the time of award for the current contract. The current contract is a Cost Plus

Award Fee (CPAF). The total estimated value of this Justification and Approval is

$7,621,385.13.

The BOS contract originated in June 2001, when the Army contracted out all the

Directorate of Public Works (DPW) shop functions from Government Personnel to

Contractor Personnel. The first award DABT60-01-C-0010 was made under the

8(a) program, CPAF, the original total value for base year plus six option years was

$27,369,725.61. Upon completion, the first contract increased to $44,770,243.42 total contract value. The second BOS contract, CPAF, awarded to Advanced

Federal Services Corporation (AFSC), a Small Business 8a program participant, included all the requirements in the original competitive award and added grass maintenance of specific areas. The contract was awarded November 2007 to AFSC for a base amount of $7.6M for the base year, plus 4 option years without providing any significant increase for inflation or mission requirements. The initial

Congressional report for total contract value was $38,064,190.00. This BOS contract is in the final option year before re-solicitation with the period of performance ending 31 Oct 2012. 633 CONS took over administration on this contract with Modification P00135 on 29 Oct 2010.

Since November 2007, the contract has seen significant increases in the volume of maintenance and repair work for JBL-E property. Six months after the award of the BOS contract the workforce was unionized. In the third option year, again due to BRAC actions, the joint basing of Langley Air Force Base and Fort Eustis also resulted in increased cost due to new joint base common levels of service standards. The most significant being that grounds maintenance was increased by

$884,056.64 because Army components that previously took care of their own areas became tenant activities on JBL-Eustis.

The accomplishment of maintenance and repair on JBL-E facilities, whose age ranges from WWII to brand new facilities, does require commensurate Operation and Maintenance (O&M) dollars to maintain capability and mission support. The

BOS contract provides Standing Operating Orders (SOO), Service Order (SO), and

Individual Job Orders (IJO) to meet this requirement. The BOS contract does provide an efficient and effective means of accomplishing this work under separate fixed price contract modifications. The former Eustis Directorate of Public Works

(DPW), now the 733 Civil Engineer Division (CED), has evaluated options for quickly executing basic maintenance and repair projects and have concluded that due to the short Period of Performance left on this final Option year, the burden of an additional contractor, procurement costs and administrative cost could exceed budget constraints causing Mission failure.

The total current contract value of the base year and four options years is $59M and the estimated increase in contract ceiling to complete the final option year with a 6 month extension is estimated at $7.6M. The increase in contract ceiling will account for additional facility operation/maintenance, mission support, and tenant support increased requirements.

OY/FY OY Amount EOY Value Δ increase/Decrease Total Value

BY/FY08 $7,612,838.00 $10,556,061.15 $2,943,223.15 $10,556,061.15

1/FY09 $7,936,883.00 $11,960,666.23 $4,023,783.23 $22,516,727.38

2/FY10 $8,659,139.25 $13,404,516.77 $4,745,377.52 $35,921,244.15

3/FY11 $8,958,605.13 $12,908,299.56 $3,949,694.43 $48,829,543.71

4/FY12 $10,602,368.55 $ 12,702,308.55 $7,621,385.13 $69,243,914.68

*Note: EOY value does not include the 6 month extension. The Total Value does include the 6 month extension.

III. Description of Supplies/Services

The BOS contract provides for all base CED Operations Flight shop management, workforce, and associated material services to operate and maintain the facilities, infrastructure, and grounds on JBL-Eustis. The additional services provided for under this justification involve similar in nature and scope to work effort already incorporated and part of the existing contract. It will be the CED’s responsibility to support, sustain, and respond to the significant Army tenant population increase and their missions, as well as other DOD components.

IV. Authority Cited

10 USC 2304(c) (7), as implemented by FAR 6.302-1(b) (1) (ii).

V. Applicability of Authority

The current contract was issued via Section 8(a) of the Small Business Act limiting competition to eligible contractors that commenced with the release of the RFP on

4 January 2007. Eleven competitive offers were received in response to the RFP and, on 1 November 2007, one (1) contract was awarded for this effort. This J&A is issued to cover the increase in newly constructed buildings for maintenance and repair due to a realignment of base mission, joint basing and an increase in troops returning from deployments.

Initial contract was in response to A-76 efforts reducing government employees at the 733 rd

CED. Budget constraints limited available funds focusing on Soldiers providing all periphery repair and upkeep to the facilities that they occupied including self-help projects, and grass cutting. BRAC decisions combined Fort

Monroe mission support personnel into newly constructed buildings that had a $6M increase in total cost impact for each of the four option years. The culmination of reduction of funds and growth of the mission at Fort Eustis has impacted the level of service we are able to provide under the current contract ceiling.

Currently we have only one responsible source that can satisfy the agency requirements without substantial duplication of costs and unacceptable delays in fulfilling the agency’s requirements. The additional infrastructure and the required ancillary projects that will be incorporated into this contract, with the approval of this J&A, will allow the existing BOS contractor to continue their work effort in supporting with minimum additional workforce, no additional management, and utilize existing specialized equipment already on the contract. The Government will not require any more employees in quality assurance due to its similarity in nature to existing work. If a separate contract vehicle is used, then additional financial burden will be placed on the government.

VI. Efforts to Obtain Competition

Action: On 1 December 2011, a Sources Sought was published on Federal Business

Opportunity (FBO) to find other sources to deliver the additional services. The request would cover all repairs and maintenance on the additional 36 buildings for a 10 month period. Anticipated costs for a separate contract vehicle exceed available budgeted funds for the current fiscal year. Responses were focused on reprocurement for BOS contract after final option year expired.

VII. Fair and Reasonable Costs

The contractor is required to submit monthly cost performance reports which are evaluated by the Government. Competition is fostered through competition between subcontractors, cost analysis, and negotiation of costs for IJO exceeding

$2,000.00.

VIII. Market Research

Sources Sought, 1 December 2011, found four interested small businesses qualified for the 8a program. The requirements are under review due to a change in funding level and the separation of services under smaller contracts that will provide business to a wide range of small business qualified contractors. Currently an

Industry Day is planned for contractor input and expertise on the acceptable methods of service delivery. Responses have been focused on the reprocurement for the BOS contract after the current period of performance has expired.

IX. Other Facts

The 633rd Contracting Squadron received this contract from the Mission

Installation Contracting Command (MICC) on 01 Oct 2010, which was the Full

Operational Capability (FOC) for the Joint Basing of Langley Air Force Base and Ft

Eustis. The contract consisted at the time of receipt, approximately 155 modifications. Due to incremental funding and the exercise of the Third and Fourth Option Years there are approximately 170 modifications.

X. Interested Sources

1. KIC: 3BH97- 8(a), HUB Zone, MOSB POC: Matthew Friesser

2. Keystone Communications: 1XTD1-SB POC: Jeff Kays

3. Diversitech Inc.: 02QH3- WOSB POC: Jeff Askew

4. Tiya Support Services: 4W7C9- MOSB POC: Monty White

5. The Leonidas Group: 6H0N9- MOSB POC: Anthony Thompson

6. RAMTECH Support Services: 1L4K4- WOSB POC: John Gray

7. Ayala Electric LLC: 63XY8- MOSB POC: Milton Ballesteros

8. AbilityOne: POC: Tina Wright

XI. Steps to Foster Competition

Currently we are in the final Option Year, we are preparing for a re-compete with all realignment of services to allow for a joint effort on Ft. Eustis and Langley

AFB. We anticipate an increase in cost savings and service innovation due to the realignment of services for the future award.

XII. Contracting Officer’s Certification

The Contracting Officer’s signature on the Justification Review Document evidences that he has determined this document to be both accurate and complete to the best of his knowledge and belief.

XIII. Technical/Requirements Personnel’s Certification

As evidenced by their signatures on the J&A signature page, the technical and/or requirements personnel have certified that any supporting data contained herein which is their responsibility is both accurate and complete.

XIV. Attachments

IGE Assessment for Cost impact and 6 month extension

Sources Sought Synopsis

Buildings- Incorporation and Removal

Cost Impact for additional buildings

Contracting Activity: 633d CONS/LGCZ, Langley AFB VA Program Name: BOS Contract 733 rd

CED

Estimated Contract Cost (including options): $69,243,914.68

Type Program: Operational Contracting

Authority: 10 USC 2304(c)(7), as implemented by FAR 6.302-1(b)(1)(ii)

Type J&A: Individual Value: $7,621,385.13

COORDINATION

DANIEL B. WOOD, Civ, 733 rd

CED Date Signed

Technical Official; COM: (757) 878-2489 Ext. 228

ROBIN A. MILLS, Civ 733

CED Date Signed

Division Chief; COM: (757) 878-3509 Ext. 232

CYNTHIA LEWANDOWSKI, Civ, 633

CONS Date Signed

Contracting Officer; DSN: 574-2544

CHRISTOPHER WEGNER, Lt. Col, 633

Squadron Commander, Contracting; DSN: 574-3246

LORRAINE COTTON, 633

Director of Business Operation; DSN: 574-3246

SANDRA L. SWANTON, Civ 633

ABW/JA Date Signed

Attorney Advisor; DSN: 574-4117

BECKY M. CARPENTER, Civ HQ ACC/SB Date Signed

Director of Small Business; DSN: 574-1621

Approved:

SCOTT A. KISER, Col. HQ ACC/A7K Date Signed

Command Competition Advocate; DSN: 574-5371