CAPCON Ordering Procedures AMIC DRAFT (26 FEB 20).pdf

Air Force Capabilities

Contract (CAPCON)

Task Order Process Handbook

{NOTICE: This handbook is provided as a guide to acquiring services under the AFEC AMIC JWAC

CAPCON Contract and is not intended to take precedence over any aspects of the awarded contracts. In the event of any conflict between the information in this handbook and the terms and conditions of the contracts, the contracts are the binding documents.}

Table of Contents

1. Task Order Process Overview (TO)

1.1 Task Orders: General Information

1.2 Fair Opportunity Proposal Request (FOPR)

1.3 Contractor’s FOPR Package Submission Requirements

1.4 TO Awards

1.5 TO Requirement Documents

1. Task Order Process Overview (TO)

1.1 Task Orders: General Information

1.1.1 Initial Task Orders: Minimum Guarantee

1.1.1.1 The initial task orders (TOs) for minimum guarantee will include a Contract Line Item

Number (CLIN): for Program Management/Administration. Each awardee will receive an initial task order of $1,000 for administrative start-up.

1.2 Fair Opportunity Proposal Request (FOPR)

1.2.1 Government Requests for Proposals

1.2.1.1 When the Government has a TO requirement, the Contracting Officer will issue a FOPR to the prime contractors in the pool(s) that meet the appropriate security level requirements for that level of work.

1.2.1.2 The ID/IQ contract will consist of four (4) security level pools. The pools are:

Pool 1: TOP SECRET//SENSITIVE COMPARTMENTED INFORMATION

(TS//SCI)//SPECIAL ACCESS REQUIRED (SAR)

Pool 2: TS//SCI

Pool 3: SECRET/SAR

Pool 4: SECRET

1.2.1.3 The TO Requirements will be competed among those contractors that were awarded contracts for the specific Technical Requirements Area (TRA) described in the Performance

Work Statement (PWS) and meet the security level requirements for that particular Task Order.

1.2.1.4 The Government will notify the Contractor(s) of new TO requirements via the most appropriate method based on the pool of classification the TO requires. The notification will include a PWS and any other documents pertinent to the TO requirement. The Government may provide advance notice to Contractors of upcoming TO requirements which may include draft

PWSs, anticipated FOPR release dates, and performance start dates, when feasible.

1.2.1.5 Notification of a new TO requirement does not obligate the Government to award the

TO, nor does it authorize the Contractor to perform any work. The Government will not send a final notification of or award a new TO requirement without a certified funding document. If the

Government does not have adequate funding, the Government will notify the Contractor(s) of the FOPR cancellation. All TO requirements are subject to the availability of funds.

1.2.1.6 Contractors shall not be entitled to bid and proposal costs as direct costs under any TO.

1.2.2 FOPR Content. As a standard, FOPRs will include the following:

1.2.2.1 Task Name. Customer identified name that should easily distinguish the TO effort from other TO efforts.

1.2.2.2 Anticipated TO Performance Start Date. The TO performance start date is driven by pre-established milestones that as a standard, allow approximately thirty (30) days between contract award and performance start. There may be occasions where mission-critical requirements or funding release timelines mandate a shorter acquisition timeline resulting in as little as one (1) day between TO award and TO performance start.

1.2.2.3 Source Selection Methodology. The source selection methodology will be specified in the FOPR and provide details related to proposal submissions and evaluations criteria for each factor / subfactor, as applicable, in compliance with current (at the time of TO solicitation) FAR, DFARS and AF FAR Supplement (AFFARS) and any other applicable Federal, DoD or Air

Force guidance. Current methodologies include:

1.2.2.3.1 Trade-Off. The Government will evaluate and trade-off among Technical, Past

Performance, and Cost/Price factors, as specified in the FOPR and IAW DoD Source Selection

Procedures. For tradeoffs that utilize a down-select, the CO may establish an initial pool of at least three offerors. See FAR 15.101-1, Tradeoff Process.

1.2.2.3.2 Lowest Price Technically Acceptable (LPTA). The Government will evaluate

Technical acceptability and Past Performance (if utilized) on a pass/fail basis, and Cost/Price, as specified in the FOPR and IAW with DoD Source Selection Procedures. For LPTA selections that utilize a down-select, the CO may establish an initial evaluation pool of at least three offerors. See FAR 15.101-2, Lowest Price Technically Acceptable Source Selection Process.

1.2.2.3.3 Single and / or Sole Source selection. The Government reserves the right as required to solicit and contract with contractors on an as needed basis for work.

1.2.2.3.4 New or Existing Requirement. The Government will state whether the requirement under solicitation is new work or if it is a re-competition for existing work. If it is a re-compete for existing work, the Government will provide the contract number and name of the Contractor performing the work.

1.2.2.4 Contractor Onboarding and Off boarding: The Government intends to onboard and off board contractors on a yearly basis into the ID/IQ to maintain competition vitality.

1.2.2.5 Contract Type. The Government will specify the type of contract required per FAR Part

16, Types of Contracts, so ID/IQ Contractors can propose accordingly. TO contract type options under this ID/IQ include:

Firm Fixed Price (FFP) - See FAR 16.202.

Cost Reimbursable (CR) - See FAR 16.3

Cost Plus Fixed Fee (CPFF) Term- See FAR 16.306.

Cost Plus Fixed Fee (CPFF) Completion - See FAR 16.306.

1.2.2.6 Travel Estimate. If travel is predicted for the TO requirement, the Government may:

provide a travel estimate, which primes shall use in TO proposals; provide anticipated locations of travel when the Government cannot reasonably predict the frequency and length of travel required, with a 'Not to Exceed' amount for the TO; and/or state that travel is required to support the effort and base awarded travel on the awardee's proposed approach. The Government may take alternate approaches to those listed here, but will provide the information available at the time of solicitation and endeavor to provide as much information as possible for each TO requirement. Estimates will be derived from the Joint Travel Regulations.

1.2.2.7 Materials Estimate. If materials are predicted for the TO requirement, the Government may: provide a materials estimate, which primes shall use in TO proposals; provide the materials necessary for completion of the TO requirement and base awarded materials on the awardee's proposed costs/prices; or provide the anticipated end state of the requirement and base awarded materials on the awardee's proposed approach. The Government may take alternate approaches to those listed here, but will provide the information available at the time of solicitation and endeavor to provide as much information as possible for each TO requirement.

1.2.2.8 Contractor Personnel Requirements. The Government may specify the number of

Contractor personnel required and / or those deemed "Key Personnel" to performance of the TO requirement. The Government may also specify the minimum qualifications required for some or all positions.

1.2.2.9 Proposal Delivery. The Government will specify how and where to deliver proposals.

1.2.2.10 Proposal Due Date and Time. The Government will specify the exact due date and time for all TO proposals. The Government standard will be thirty (30) business days from FOPR release to proposal due date. Mission critical requirements may require fewer days. More importantly, the proposal due date will be a reflection of the requirement's dollar value, complexity and uniqueness, such that the Government thoroughly considers these dynamics when determining proposal response time and subsequently, the proposal due date (i.e., higher dollar value, more complex/unique requirements will result in longer response times).

1.2.2.11 Deadline for Any Inquiries or Concerns Regarding the FOPR. The Government will also provide a deadline for addressing any inquiries or concerns regarding the FOPR. This gives the Government time to react to and inform offerors of any changes prior to the final proposal due date, or extend the proposal due date should it become necessary.

1.2.2.12 No-Bid Statement. The FOPR will include language specifying that if a prime elects not to submit a proposal for a TO requirement, that Contractor shall submit a "no bid" statement to the Contracting Officer, as specified in the TO solicitation, on or before the TO proposal due date. The Contractor shall provide (within three business days) its rationale for not bidding in the "no bid" statement.

1.2.2.13 Basis of Award. Each FOPR will contain the Government's Basis of Award for that TO requirement. TO proposals may contain language such as, "Offerors are cautioned to strictly comply with all instructions within this solicitation to ensure submission of a complete proposal.

Failure to furnish a complete proposal at the time of proposal submission may result in an unacceptable proposal that the Government eliminates from consideration for award."

1.2.2.14 Site Visits. The FOPR may also provide information regarding any anticipated pre-proposal/ pre-award site visits or conferences. Such visits will be considered a cost of doing business unless otherwise specified at the TO level.

1.2.3 Post FOPR Communication. Once a FOPR is released, all communications with the

Government shall only be made through the Contracting Officer who signed the FOPR letter, unless otherwise specified in writing by the Contracting Officer. This restriction will remain in place until TO award is made.

1.3 Contractor’s FOPR Package Submission Requirements.

1.3.1 All Contractors are highly encouraged to submit a proposal for every FOPR that they are qualified and eligible to submit for under this contract.

1.3.2 Contractors electing to compete for a TO requirement shall submit TO proposals in the timeframe specified in the FOPR (see FAR 15.208, Submission, Modification, Revision, and

Withdrawal of Proposal, for further information regarding late proposals). If a TO proposal does not reach the Government on time, the burden of proof lies with the Contractor to show that delays were out of its control (e.g., post office did not meet advertised delivery date/time, Government server issues affected receipt of TO proposal sent via e-mail, etc.). The Contracting

Officer will consider late TO proposals on a caseby-case basis.

1.3.3 Proposals shall strictly comply with all instructions in the FOPR, and Contractors shall ensure submission of a complete proposal as the Government may make a final determination as to whether the offeror's proposal is awardable based solely on the initial proposal. Accordingly, offerors are advised to submit initial proposals that are fully and clearly acceptable without additional information. Offerors' proposals shall demonstrate a comprehensive understanding of the nature and scope of work required. The Government will not search for data to cure problems or address inconsistencies in an offeror's proposal.

1.3.4 Proposals shall be clear, concise, and shall include sufficient detail for effective evaluations. Proposals should not simply rephrase or restate the Government's requirements;

rather, they shall provide convincing rationale to address how the Contractor intends to meet TO requirements. Contractors shall assume that the Government has no prior knowledge of their facilities, personnel and experience as the Government will base evaluations solely on information presented in the TO proposal. Therefore, proposals shall be orderly, sufficiently documented, and easy to understand, which will allow for a thorough, efficient and fair evaluations.

1.3.5 Proposals shall include all information requested in the FOPR and its attachments and shall be submitted in the format and within the page limitations specified in the FOPR. Failure to include all information requested may adversely affect the evaluations and result in removal from consideration for award. A complete proposal shall consist of a proposal for each of the factors applicable to the source selection.

1.3.6 Technical Proposal.

1.3.6.1 The Technical proposal shall be specific, detailed, and complete to clearly and fully demonstrate that offerors have a thorough understanding of requirements. Statements that offerors understand, can, or will comply with the PWS (including referenced AF publications, etc.); statements paraphrasing the PWS or parts thereof (including applicable AF publications, etc.); statements referencing previous work without an explanation of the approach that will be utilized for the requirement; and phrases such as "standard procedures will be employed" or

"well known techniques will be used," etc., will be considered unacceptable. Offerors should note that data submitted prior to the proposal submission will not be considered in the

Government's evaluations; therefore, such data should not be relied upon or incorporated in the

Technical proposal by reference.

1.3.6.2 Where labor is included in a requirement, offerors shall include a qualification summary for proposed personnel/positions (to include labor for the prime and all subcontractors/ teaming partners) as specified in the FOPR. As a standard, proposed qualification summaries shall include, by position or function, a brief description and/or evidence of duties, experience, education level, security clearance, and any licenses or certifications required by the position, as applicable. The FOPR may provide additional parameters. Additionally, proposed labor categories shall appropriately compliment the capabilities identified in the TO PWS and proposal.

1.3.6.3 The Contractor shall clearly identify any key personnel, whether Government- identified or Contractor-proposed, in the technical proposal.

1.3.7 Cost/Price. The Cost/Price proposal shall contain a complete TO Cost/Price Proposal, using the template provided by the Government with the FOPR, when applicable. Cost/Price proposals shall include the following, as specified in the FOPR:

1.3.7.1 Direct labor.

1.3.7.1.1 The Cost/Price proposal shall include the Contractor's proposed labor category(ies) and associated level(s), for the prime and all subcontractors/ teaming partners, deemed appropriate to meet TO requirements. These shall be the labor categories and levels that meet the specifications (to include years of experience) of the TO requirement and not labor categories with parameters that exceed those requirements in order to get to a higher rate.

1.3.7.1.2 Each proposed labor category shall include number of personnel per labor category, level, hours, rates, total labor cost for each proposed labor category, and total overall labor cost for each performance period. This information should tie directly to the approach proposed in the technical proposal.

1.3.7.1.3 If TO performance crosses ID/IQ performance years, payment for the portions of performance in each performance year will not exceed those years' applicable TO rates.

1.3.7.1.4 All cost type TO contracts will be negotiated at the TO level.

1.3.7.1.5 Contractors may propose alternate labor categories and rates, but must fully justify the new category(ies) and rate(s). It is up to the Government whether or not the alternately proposed category(ies) and associated rate(s) will be deemed acceptable.

1.3.7.1.6 For all TOs, the Contractor's Cost/Price proposal shall include a breakout of the cost elements associated with any proposed labor category(ies) / capabilities.

1.3.7.1.7 The current labor categories provided for CONUS are considered professional employees and therefore exempt from the Service Contract Act (SCA). FAR 52.222-41 may apply at the TO level if there is a requirement for non-exempt CONUS labor that falls under a

Wage Determination (WO). When that is the case, the specific WO will be provided at the TO

Level and the rates will be competed at that time.

1.3.7.2 Indirect Items/ Rates. When applicable, proposals shall apply indirect items/rates to the requirement.

1.3.7.3 Back-up Documentation. Proposals shall include any backup (supporting) documentation requested in the FOPR or later by the Contracting Officer.

1.3.7.4 Adequate Accounting System. For cost type contracts, proposals shall provide evidence of an accounting system that can adequately track, segregate, accumulate and report incurred costs for each item, as applicable, per FAR 16.301-3, Limitations. Failure to maintain an adequate accounting system for cost type TOs may be basis for removal from competing for cost type TOs. The Government will validate if a Contractor already has an adequate accounting system.

1.3.7.5 Approved Purchasing System. An approved purchasing system may be required for TOs based on the complexity, dollar value and subcontracting involvement of the TO requirement.

When this is the case, the FOPR will document the requirement, and proposals shall provide evidence of an approved purchasing system capable of supporting cost type contracts per FAR

Part 44, Subcontracting Policies and Procedures.

1.3.7.6 Other information, as required by the FOPR.

1.3.8 Limitations on Subcontracting. Small Business primes shall be in compliance with FAR

52.219-14, Limitations on Subcontracting.

1.3.9 TO Proposal Evaluation Techniques.

1.3.10 Guidance. The Government will evaluate proposals as specified in each FOPR and in compliance with the latest DoD Source Selection Procedures and AFFARS 5315.3, Source

Selection, if applicable.

1.3.11 Establishing the TO Evaluations Pool. The Government may reduce the pool of offerors eligible for evaluations at the TO level for purposes of efficiency. The methodology for doing so will be specified in the FOPR. An example would be to only evaluate the three lowest priced proposals for the applicable requirement, in addition to any proposals within 10% of the average of the three lowest priced proposals. Once an evaluations pool is established, evaluations will proceed based on the source selection methodology selected, identified and described in the

FOPR.

1.3.12 Technical. Contractors' TO proposals shall demonstrate a comprehensive understanding of the nature and scope of work required. The Government will not search for data to cure problems or address inconsistencies in offerors' TO proposals. The Government also will not evaluate proposals based on what is known or perceived about the contractor and will only evaluate the information provided in the proposal. A TO proposal that merely and solely reiterates or promises to accomplish the requirements of the PWS will be considered unacceptable. The Government reserves the right to incorporate all or parts of the Contractor's proposal into the resulting TO, but may include only the portions of the TO proposal that are of benefit to the Government, contributed to the award decision (such as qualifications of proposed personnel), and/or are negotiated with the Contractor for inclusion.

1.3.12.1 Technical Acceptable/Unacceptable (LPTA). Each subfactor will be evaluated on a

Acceptable/Unacceptable basis and assigned a rating based on whether the TO proposal meets the basic PWS requirements and standards, and satisfactorily addresses the subfactor evaluations criteria identified in the FOPR. Extra consideration will not be assigned for exceeding the

Acceptable/Unacceptable subfactor criteria. A rating of "Acceptable" or "Unacceptable" will be assigned for each Technical subfactor. A rating of "Acceptable" will be required in all subfactors to be eligible for award.

1.3.12.2 Technical (Trade-off). Each subfactor will be evaluated and assigned a rating specified in the FOPR based on whether the TO proposal meets the basic PWS requirements and standards, and satisfactorily addresses the subfactor evaluations criteria identified in the FOPR.

Proposed capabilities that exceed subfactor criteria may be a basis for a trade-off decision. A rating of "Acceptable" or the otherwise stated minimum acceptable rating specified in the FOPR will be required in all subfactors to be eligible for award.

1.3.13 Cost/Price.

1.3.13.1 The Government intends to award TOs with fair and reasonable costs/prices that provide reasonable fees/profit to Contractor's for their risk. The Government will establish an estimate before soliciting for each TO, with the estimate serving as an initial baseline against which to measure proposed costs/prices. A price analysis and/or cost analysis will be conducted

IAW FAR 15.404-1, Proposal Analysis Techniques, as applicable to the TO requirement. Price reasonableness will be determined based on a comparison of offerors' total overall evaluated prices, which consist of all labor and travel and/or material with associated indirect rates, as applicable for the basic TO contract period and any options.

1.3.13.2 The Government will evaluate proposed prices to determine whether prices are consistent with the skill sets required for the work to be performed, reflect a clear understanding of the TO requirement, and are consistent with the various aspects of the TO proposal, as specified in the FOPR.

1.3.13.3 Comparison of proposed prices received in response to a FOPR is the preferred and intended cost/price analysis technique. Other techniques and procedures, if deemed necessary, may be used to ensure a fair and reasonable price and realistic cost, to include, but not limited to, the following: comparison of previously proposed costs/prices and previous Government and commercial contract costs/prices with current proposed costs/prices for the same or similar service/items; comparison with competitive market prices of similar indexes; GSA Schedule(s) or Department of Labor wage/salary indexes; or comparison of proposed prices with the

Independent Government Estimate.

1.3.13.4 Exceptionally or unrealistically low prices or unrealistic costs, initially or subsequently, may be grounds for eliminating a TO proposal from competition either on the basis that the

Contractor does not understand the requirement or the Contractor has provided an unreasonable and/or unrealistic proposal. An example of an unrealistically low proposed price would be proposed labor rates that were so low that the Government could not make a reasonable determination that an Offeror could successfully provide and retain qualified personnel for the labor categories and levels proposed. Offerors may be requested to address any disparities, providing evidence of capability and/or experience providing similar service(s) at similar price(s).

1.3.13.5 The Government will analyze offers to determine whether they are unbalanced with respect to cost/price. An example of an unbalanced offer would be proposed labor rates that are significantly less than or significantly overstated in relation to the proposed rates for other labor categories (either of the offeror's proposal or the same labor categories as proposed by other offerors). The Government may also consider an offer unbalanced if there is a significant difference between proposed labor rates in the same labor category between option periods or the proposed prices from year to year are above what would be considered a reasonable adjustment for inflation. Offers that are determined unbalanced may be rejected. Offerors may be requested to address any disparities, providing evidence that justifies an unbalanced offer.

1.4 TO Awards.

The Government will notify the successful offeror (TO awardee) and all unsuccessful offerors of

TO contract award.

1.4.1 If no offer is determined acceptable, the government will notify the Contractor(s) of FOPR cancellation.

1.4.2 The Contracting Officer may issue a written notice, citing the funding line of accounting, when funds are available, but a modification cannot be completed in time for continuation of performance. This alternative will only be used in extraordinary circumstances, and not as a standard way of conducting business.

1.4.3 The Contractor is not authorized to commence task performance prior to the issuance of the TO award documents or a written notice to proceed from the Contracting Officer.

1.4.4 The COR will be highly qualified, fully trained and officially appointed in writing by the

Contracting Officer. The Government will provide a copy of the appointment letter to the

Contractor for signature as part of the award documentation.

1.5 TO Requirement Documents.

TOs requirements may be captured in a SOO (initially), SOW or PWS, depending on the requirement and the Government's ability to define that requirement in performance based terms. The PWS will be the desired requirements document. The requirements document may also include the expected period of performance (base period and any option periods).

Contractors can expect the following, as a standard, in TOs issued under this ID/IQ contract

(NOTE: in all cases, the TO requirement document will specify the TO requirements related to each of the following areas for performance under that TO; the following is provided for guidance purposes only unless otherwise specified):

1.5.1 Task Order Objective/ Scope. This section will strategically describe the work to be performed / desired end state and locations.

1.5.2 Performance Requirements. This section will specifically describe the work to be performed and / or desired end state. It will include the base requirement and any performance options.

1.5.3 Task Leads. The Government may specify or the Contractor may propose a TO Task Lead, or similar title, to perform overall management of the TO, including personnel, planning and execution (task priorities, short notice suspense(s), operational constraints, and management of other impacts), TO QC efforts, TO deliverables management/QC/delivery, direction, and coordination and reviews necessary to ensure successful TO cost/schedule/performance. In the absence of a specified TO Lead, the Contractor shall ensure these activities are properly conducted and appropriately monitored to ensure successful TO performance.

1.5.4 Delivery Expectations.

1.5.4.1 The requirement document will specify any delivery location(s) (place/point of delivery

(POD)) and points of contact (POC) for delivery, as applicable. As a standard, the Government will expect single delivery to specified PODs. However, the Government also expects the most cost effective approach to delivery and that storage costs do not accrue due to delays in procuring one or more items.

1.5.4.2 As a standard, to turnover vehicles, equipment, boats, etc., the Contractor shall provide a completed DD Form 250, Material Inspection and Receiving Report for final transfer to the

Government. Refer to government property regulations for additional applicable requirements.

1.5.5 Warranty Information/ Operations Manuals. As a standard, for delivery of materials, equipment, vehicles, boats, etc., the Government will expect warranties and OEM operations manuals at the time of delivery and often in languages other than English. The Government expects that Contractors will minimize translation costs by requesting documents in the specified language(s) from the OEM.

1.5.6 Travel. The TO requirement document may specify travel details or the Government may expect that Contractors will propose the required travel based on the Contractor's technical approach in lieu of the Government specifying travel details. Regardless, as a standard, all travel shall be pre-approved by the PM/COR.

1.5.7 Meetings.

1.5.7.1 As a standard, the TO requirement document will specify any meetings (kick-off or other) required in performance of the TO requirement. Additional meetings not specified in the

FOPR, but requested by the contractor in the proposal may be considered prior to award by the

CO and post-award by the PM or COR.

1.5.7.2 At Government or Contractor request, the Contractor shall also participate in TO status meetings (or any other TO-related meeting) to formally or informally discuss or review the

Contractor's efforts and progress toward TO completion. Regardless of whether or not a specific meeting time is established, the Government expects the Contractor to inform the PM and COR, in a timely fashion, of any problems with contract execution and proposed solutions.

1.5.8 Deliverables. The TO requirement document will, as a standard, specify the TO deliverables to include a description of each deliverable, the PWS reference, due date(s) I time(s), and/or delivery location.

1.5.9 Services Summary/ OASP. Each TO requirement document will likely include a TO specific Services Summary and Quality Assurance Surveillance Plan (or TO surveillance plan

(TOSP)), which the Government will utilize to monitor the Contractor's TO performance.

1.5.10 Contractor Furnished Supplies and Services. Except for those items or services specifically stated in the TO as Government furnished, the Contractor shall furnish the required supplies and services needed to perform each TO requirement.