Redacted_JUSTIFICATION_FOR_OTHER_THAN_FULL_AND_OPEN_COMPETITION_Diego_Garcia.pdf

JUSTIFICATION FOR OTHER THAN FULL AND OPEN COMPETITION

(JOTFOC)

Sole Source Action Less than $650,000

1. Agency and Contracting Activity:

General Services Administration Federal Acquisition Service Management Services Center 400 15th Street SW Auburn, WA 98001

2. Nature and Description of Action Being Approved:

The United States Air Force (USAF) Air Mobility Command (AMC) Detachment 1, 730 Air Mobility Squadron (AMS) is in need one fixed RT-1672D (PSC-5D) UHF and one RT- 1672 (PSC-5D) SATCOM with an external encryption device to be installed on Diego Garcia, British Indian Ocean Territory. This procurement is a sole source acquisition that will be negotiated and awarded to Tribalco LLC. A justification for other than full and open competition (JOTFOC) in accordance with FAR 6.303 is hereby submitted. In accordance with FAR 6.302-1, a sole source acquisition is required because only one responsible source is available to satisfy agency requirements.

3. Description and Estimated Value of Supplies or Services Required

Currently, Detachment 1, 730 does not have fixed UHF and SATCOM radios. Traffic on Diego Garcia has increased and currently presents a serious problem. Detachment 1, 730 AMS requires a contractor to provide fixed UHF and SATCOM radios to support the missions in their Area of Responsibility (AOR). Diego Garcia is located within 967 nautical miles of the southern tip of India.

Based on the Independent Government Estimate (IGE), the total cost for the project is estimated to be The IGE, dated was prepared by the Project Manager,

4. Statutory Authority Permitting Other Than Full and Open Competition:

41.U.S.C. 253(c)(1); FAR 6.302-1(a)(2)(ii) Only one responsible source and no other supplies or services will satisfy agency requirements as the award to any other source would result in substantial duplication of cost to the Government that is not expected to be recovered through competition.

5. Demonstration That the Proposed Contractor’s Unique Qualifications or the Nature of the Acquisition Requires Use of the Authority Cited:

Only one vendor, Tribalco LLC, is capable of performing the required services. Based on the reasons detailed below, there is a reasonable basis upon which the Government has determined that Tribalco LLC is the only responsible source capable of providing the required services to satisfy the minimum project needs.

Access to the island is extremely limited for civilians. Individuals visiting Diego Garcia must either be currently enlisted in the military or have a special permit issued to them by the British Indian Ocean Commonwealth and clearance by the Commanding Officer of the United States Navy Support facility, Diego Garcia. Costs associated with these clearances are significant and require substantial expenditure by the party requesting access. Clearance requests take an extended duration to process as well due to heightened security and processing mandates for access requests.

In addition to the clearance processing time and associated costs, the remote location of the Base in Diego Garcia presents a substantial cost incurrence due to travel of in-bound contractor staff temporarily stationed on-island to complete the project installation work.

The IGE included in costs associated with personnel travel, accounting for nearly of the overall estimated project total cost. Note that the IGE did not initially include any costs associated with access clearance request processing; estimates associated with clearance procedures of in-bound contract staff are estimated to be at least an additional (using an assumed burdened rate of multiplied by fifteen (15) business days and ten (10) people). In total, costs associated with access restrictions to the Base total nearly of total project costs.

Because the actual installation of the UHF and SATCOM radios requires a pre-award site survey be conducted to determine the necessary requirements to develop a proper proposal, it is unreasonable to expect contractor interested in the work to incur such substantial pre-proposal costs without a guarantee of contract award.

Tribalco has been awarded, and is currently working on, a contract for the Pacific Air Forces (PACAF) at Diego Garcia to install Radio Towers on Diego Garcia. Personnel for Tribalco performing services in support of this contract have already been vetted by the British Indian Ocean Commonwealth and the Commanding Officer of the United States Navy Support facility. Costs associated with both travel and access clearance request processing have already been bourne by the U.S. Government as they were incporated into and paid as part of the resultant Navy contract. With properly cleared personnel already at the site, use of Tribalco for the Air Force requirements would eliminate duplicative costs already paid by the U.S. Government. Use of Tribalco would ensure that no additional costs will be attributed to the requisite site survey for the Air Force contract as travel and obtaining permission to the island has already been completed.

Due to the remote location of Diego Garcia and the fact that civilian travel is extremely restricted and encumbered by mandatory clearance processes, conducting a competitive acquisition for this project would cause an unreasonable financial burden on contractors interested in this procurement due to time and travel costs associated with just visiting the site.

In addition to the two primary duplicative costs categories discussed above, it is further herein determined that award to any other source would result in substantial duplication of additional costs to the Government as follows:

1. Cost of storage offsite and delivery of materials to the site each day: There is limited laydown space at the facilities occupied by the Air Force. Currently Tribalco occupies most of the available space for performance of its concurrently occurring Navy contract. Therefore, if another vendor were to be awarded the Air Force contract, Air Force personnel would have to request space from the United

States Navy Support at their facilities. The likelihood of sufficient space separate from that already occupied by Tribalco cannot be guaranteed. This issue has the potential to significantly delay the Air Force project adding additional costs as it could take time to acquire the necessary space and permission from the Navy.

2. Special Requirements: As stated above, civilians visiting Diego Garcia must go through extensive special requirements to visit and work on the island. The Foreign clearance guide published by the Department of Defense (https://www.fcg.pentagon.mil/fcg.cfm) states the many requirements civilians must complete before traveling to Diego Garcia. See attachment to this Justification document for details. As noted above, costs associated with these extensive requirements could total an amount equal to nearly of total project costs.

3. Overhead costs: If this project were to be awarded to another vendor besides Tribalco, it could further incur duplicative overhead costs in the area of security clearances, jobsite personnel, office equipment/computers, onsite storage, and travel. These costs would be incorporated into the overhead rate, increasing the overall price of the project.

4. Superintendent/oversight/key personnel costs: Currently Triablco has personnel on Diego Garcia supervising the installation of Radio Towers for PACAF. These same individuals could also be supervising the installation of the UHF/SATCOM radios. An additional vendor would incur duplicative costs in the area of supervision as both contractors would require Project Superintendent personnel.

With the individual already at the site, costs would be reduced as this individual has already been vetted and all clearance requirements to work on the island have been completed.

5. Coordination: Part of the scope of the UHF/SATCOM radio installation includes the installation of antennas on the Radio Towers that are currently being installed for PACAF by Tribalco. Due to the integration of the scope of both contracts, additional coordination meetings between the project supervisors of both contractors would be required if another contractor was awarded the UHF/SATCOM radio installation.

6. Description of Any Efforts Made to Ensure Offers Were Solicited From As Many Potential Sources As Practical:

Offers were not solicited from additional sources due to the determination that only one responsible source would provide the services necessary to satisfy the agency requirements.

This procurement will be posted on the Government Point of Entry to fulfill the requirements in FAR 5.201.

7. Determination That Anticipated Cost Will Be Fair and Reasonable:

Certified cost or pricing data will not be required as this procurement does not exceed the mandatory threshold of $650,000. In order to determine if the proposed price is fair and reasonable, the Government will compare the proposed price with the independent

Government estimate. The Government will also perform price and/or cost analysis and through the review of pricing for similar services obtained through market research.

8. Description of Market Research Conducted and Results:

A market survey was not conducted as it is not applicable to the proposed action due to the determination that only one responsible source could provide the services necessary as award to another source would result in duplicative costs. Market research in support of the IGE development, as well as in estimation of travel and clearance costs was performed by surveying similar contract efforts for installation services and contractor personnel processed through recent clearance efforts on Base.

9. Other Facts Supporting the Use of Other Than Full and Open Competition:

Both the Radio Towers currently being installed under the Navy contract and the installation of UHF/SATCOM radios under the Air Force contract will be performed at the same jobsite and could involve significant safety and liability issues if two different vendors are working the two projects. Coordination between two vendors only increases the complexity of these issues and increases the risk for project delays. Coordinating the scheduling and safety compliance would involve the Government and both vendors.

The number of contractual parties involved increases the complexity of coordination and ensuring appropriate safety measures are in place. As the Radio Tower installation for PACAF is already in progress, this would mean an additional vendor would have to adjust their project schedule, creating inefficiencies and the potential for project delays.

The UHF/SATCOM radio installation cannot be completed until the installation of the Radio Towers is completed.

10. List of Sources Expressing Written Interest In This Acquisition, If Any:

None. See para (6) and (8) above.

11. Statement of Actions the Agency May Take to Remove or Overcome Any Barriers to Competition Before Taking Any Subsequent Acquisition for the Supplies or Services:

This procurement is a stand-alone project and no subsequent acquisitions for these services are anticipated. No other projects are planned for Diego Garcia that require that would result in similar duplicative costs. Once the installation of the UHF/SATCOM radios is completed the barriers to competition will be removed.

12. Approvals:

In accordance with FAR 6.304(a)(2), this JOTFOC is hereby submitted for concurrence and approval.

Contracting Officer Approval:

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

Reference ATTACHMENT Excerpt from The Foreign Clearance Guide Published by the Department of Defense (https://www.fcg.pentagon.mil/fcg.cfm)

These requirements include:

A. CLEARANCE REQUIREMENTS

1. Country Clearance.

a. Country Clearance is required.

b. Personnel may travel to Diego Garcia for official business only.

Access is limited to official visitors and mission-essential personnel.

c. Personnel assigned to deployed ships may transit through Diego

Garcia to or from their ship on leave, etc., for onward travel only. No other travel layovers, stopovers, leave, or circuitous travel are authorized.

d. Eligible family members are not authorized to travel to Diego Garcia.

e. Personnel traveling to Diego Garcia must insure they have the appropriate travel documents (passport, visa, immunizations, printed APACS approval, etc.) for all transit countries to/from Diego Garcia.

2. Theater Clearance.

a. Theater Clearance is required.

b. If the Travel Clearance Request does not meet the required lead-time, state why the lead-time requirement has not been met in the corresponding field on the "Main" tab in APACS.

3. Special Area Clearance.

a. Special Area is not required.

4. Aircrew do not require Personnel Clearance. However, passengers must request Personnel Clearance.

5. Blanket area clearances may be approved for deployed ships, squadrons, carriers, and amphibious groups operating in the Indian Ocean area for personnel transiting Diego Garcia (usually a three (3) to six (6) day period).

Clearances will normally apply for the duration of the deployment. However, Special Area Clearance requests are required for personnel who are assigned TAD/TDY to Diego Garcia for longer periods such as BEACH DET personnel. Staffs should address blanket area clearance requests to:

NAVSUPPFAC DIEGO GARCIA//10/AREA CLN//; info COMFAIRWESTPAC ATSUGI JA//N1// NAVREGCONTCEN SINGAPORE//00//AMC REP// and USDAO SINGAPORE//00//, COMNAVFORJAPAN YOKOSUKA JA//N1// and RNLO DIEGO GARCIA//00//. Specify the time period and the names of the ships.

6. The Personnel Clearance requirements in this section apply to official travel only. Submit all clearance requests via UNCLASSIFIED (NIPR) APACS.

Contact Navy Support Facility (NAVSUPPFAC) if request must be classified.

7. Mandatory Training and Documentation: Prior to travel, DoD and DoD-sponsored travelers must complete the following training and documentation, regardless of length of travel, and must state in the itinerary tab of the Travel Clearance Request (see III.C.3, below) that they have complied with these requirements.

a. Antiterrorism (AT) Training:

https://www.fcg.pentagon.mil/docs/DG.cfm#IIIC3

(1) See attached instructions for Level_1_AT_Awareness_Training.

(a) AT training must be current and completed within 12 months (one (1) year) prior to entry into the AOR.

b. Travel Tracker / Individual AT Plan (TT/IATP):

(1) See attached instructions for Travel_Tracker_Individual_AT_Plan.

(a) TT/IATP must be completed prior to entry into the AOR.

c. Personnel Recovery (PR):

(1) See attached SERE 100.1 Completion Instructions.

(a) SERE must be current and completed within 36 months prior to entry into the AOR.

(2) See attached ISOPREP_Completion_Instructions.

(a) ISOPREP must be completed and reviewed within twelve months of entry into the PACOM AOR.

e. AOR Location Specific Brief:

(1) See attached instructions for AOR_Location_Specific_Brief.

(a) AOR specific briefing must be received within three (3) months prior to entry into the AOR.

f. High Risk of Isolation or Exploitation (HRI/E):

(1) See attached instructions for High_Risk_of_Isolation_or_Exploitation_Personnel.

(a) HRI/E must be current and completed prior to entry into the AOR.

(2) HRI/E required for:

(a) Personnel designated as HRI/E by specialty or mission.

(b) Personnel traveling to a USPACOM Travel Restricted Country or Travel Restricted area.

h. SCI clearance brief is required for all personnel maintaining an SCI clearance prior to travel. Contact travelers unit or closest unit’s SSO for guidance prior to travel.

B. LEAD-TIME

1. Aircrew and passengers that will RON require at least seven (7) days prior notice via message.

2. 30 days for all other personnel.

3. To ensure berthing is reserved, recommend 45 to 60 day lead time.

4. Submit clearance requests for large groups of personnel (20 or more) as soon as possible to allow sufficient time to coordinate billeting arrangements.

https://www.fcg.pentagon.mil/static/Level_1_AT_Awareness_Training.pdf https://www.fcg.pentagon.mil/static/Travel_Tracker_Individual_AT_Plan.pdf https://www.fcg.pentagon.mil/static/SERE_100.1_Completion_Instructions.pdf https://www.fcg.pentagon.mil/static/ISOPREP_Completion_Instructions.pdf https://www.fcg.pentagon.mil/static/AOR_Location_Specific_Brief.pdf https://www.fcg.pentagon.mil/static/High_Risk_of_Isolation_or_Exploitation_Personnel_PACOM.pdf

C. CONTENT OF CLEARANCE REQUEST

1. Prepare and submit ALL clearance requests utilizing the APACS website at https://apacs.dtic.mil (on NIPR).

2. Theater-specific information for inclusion in the “Theater Required Information” field under “Country Information” on the “Itinerary” tab in

APACS.

a. In the "Requester Comments" block of the APACS request, state that the traveler(s) has submitted the USPACOM Travel Tracker data (TT/IATP) Entry #_______ via https://iatp.pacom.mil and has completed the pre-travel training requirements as specified in paragraph III.A.7 in the DoD Foreign Clearance Guide. TT/IATP entry number is received via separate e-mail upon submission of the TT/IATP request.

b. If the clearance request does not meet the required lead-time, state why the lead-time requirement has not been met.

3. Country-specific information for inclusion in the “Country Required Information” field under “Country Information” on the “Itinerary” tab in

APACS.

a. Classified contingency missions will require certain information be exempt from Clearance Request letter. Include DTG of deployment order for reference to any exempt information.

4. If the Travel Clearance Request is classified, include paragraph markings and downgrade instructions to ensure timely processing. See the Foreign Clearance Manual, Figure C3.F1.

5. If personal information is required (e.g., Social Security number, birthplace), include the marking "Personal Data - Privacy Act of 1974."

(End of Requirements) https://apacs.dtic.mil/ https://iatp.pacom.mil/ https://www.fcg.pentagon.mil/docs/DG.cfm#IIIA7 https://www.fcg.pentagon.mil/static/FCMBasicDocument.pdf#pagemode=bookmarks https://www.fcg.pentagon.mil/static/FCMBasicDocument.pdf#pagemode=bookmarks