Navair_J_and_A_FINAL_REDACTED.pdf

Justification and Approval (J&A) for Other Than Full and Open Competition

Updated: 15 Mar 16 Page 1 of 13

Choose the funding level for this J&A Document:

< $700K x >$700Kand < $13.5M >$13.5Mand < $93M > $93M

Contracting Activity: General Services Administration (GSA) R10 Federal Acquisition Service

Purchase Request / Local ID Number: TBD

Program / Project (and PE, ifapplicable): Headquarters Air Force Materiel Command (HQ AFMC/A4) and Air Force

Sustainment Center (AFSC/LG) Depot Maintenance Technical and Non-Technical Program/Project Management

Program Type (PEO or Other Contracting): GSA FAS Region 10 Contracting Operations Division

Authority (include full title): 10 U.S.C. 2304(c)(2), FAR 6.302-2, Unusual and Compelling Urgency.

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

APPROVAL (AFFARS 5306.304(a))

Date Contracting Officer Signature

Date

20 Apr 16

Technical Cognizance Official Signature

Date

20 Apr 16

Requirements Cognizance Official Signature

Date Office of General Counsel Signature

Date Supervisory Contracting Officer Signature

Date Branch Chief Signature

Date Director, Contracting Operations (Acting) Signature

Date Competition Advocate Signature

Date Head of Contracting Authority Signature

N/A

Updated: 15 Mar 16 Page 2 of 13

I. Contracting Activity

General Services Administration (GSA) R10 Federal Acquisition Service

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

GSA R10 Federal Acquisition Service, on behalf of NAVAIR, has a requirement for the continuation of support services for the Headquarters Air Force Materiel Command (HQ AFMC/A4) and Air Force Sustainment Center (AFSC/LG) Analytical, Technical and Operational Support efforts. This Justification and Approval is for a non-competitive, short-term bridge contract to SERCO Services Incorporated (SERCO), 1818 Liberty Street Suite 1000, Reston, VA, for a five-month contract period to avoid a gap in service while the services are procured in a competitive environment. The total estimated dollar value of this effort is .

The anticipated period of performance is June 1, 2016, to October 31, 2016. SERCO is the incumbent contractor for task order W91WAW-08-D-0014-0016, which expires on May 31, 2016, under NAVAIR 6.8 Corporate Business Office Logistics, Maintenance and Supply Support (LMSS) Multiple Award Indefinite Delivery Indefinite Quantity (IDIQ) contracts by the Army Contracting Command (ACC), with current administration residing with the New Jersey activity (ACC-NJ).

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

HQ AFMC/A4 and AFSC/LG requires analytical, technical, and programmatic expertise support for required HQ AFMC Depot Maintenance (DM) management oversight programs. The Government defines DM as civilian, military, and contractor workforces and partnerships performing Air Force (AF) asset DM operations at AF or Department of Defense (DoD)-owned and run facilities supporting Title 10 of the United States Code (USC) requirements, Depot maintenance and re-manufacture are critical in executing the AF’s flying and defense missions. The combined programs have significant and considerable Congressional, DoD, Air Staff, and Major Command (MAJCOM) interest and oversight, requiring personnel to exercise meticulous attention to details and exhibit quick response times to short notice complex tasks. This personnel support is extremely critical to supplement current Government organic resources in completing this organization’s critical AF mission.

HQ AFMC/A4 and AFSC/LG are responsible for a broad range of policies and execution oversight of depot maintenance functions at HQ AFMC regardless of the source of funds for the maintenance or repair, or the location of which the maintenance of repair is performed. Depot maintenance also includes software maintenance.

HQ AFMC/A4 and AFSC/LG provide the planning and policy for all resources (e.g. skills, information technology, facilities and equipment, etc.) needed to perform depot maintenance. AFMC/A4 also provides DM in compliance with Title 10 USC 2466, Core reporting, inter-servicing guidance, peacetime workload planning, requirement planning for sustainment, and upgrade to over one hundred and thirty (130) information systems, infrastructure management and investments, environmental management, industrial safety, production, planning, scheduling, material support, supplier/customer collaboration, performance metrics, policy, workforce development and strategic/wartime sizing and planning of the organic depot infrastructure.

IV. Statutory authority permitting Other than Full and Open Competition

S.C. 2304(c)(2), FAR 6.302-2, Unusual and Compelling Urgency.

Updated: 15 Mar 16 Page 3 of 13

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

The current task order, W91WAW-08-D-0014-0016, was competed and awarded under the NAVAIR 6.8 Corporate Business Office Logistics, Maintenance and Supply Support (LMSS) Multiple Award Indefinite Delivery Indefinite Quantity (IDIQ) contracts by the Army Contracting Command (ACC), with current administration residing with the New Jersey activity (ACC-NJ). The AMC planned to award the follow-on task order under a new IDIQ Multiple Award Contract (MAC) contract, Program and System Support (PASS). The anticipated award date for PASS was April 18, 2016; however, changes in leadership and policy shifted the requirement ownership and delayed the acquisition process, and the requirement drew greater than expected competition, which has further extended the anticipated award date. AMC could not have planned for these events and could not have avoided the time it has taken to get the competitive acquisition to contract award. PASS is now in source selection. The projected award date for the PASS IDIQ is in the fourth quarter of fiscal year 2016, and the current task order expires May 31, 2016. Therefore, an alternative acquisition strategy is required to ensure continued coverage of services for HQAFMD A4D.

GSA has partnered with NAVAIR and is currently working on an acquisition strategy for the five-year follow-on contract to task order W91WAW-08-D-0014-0016. The anticipated award date for the follow-on contract is November 1, 2016. Thus, there is a potential gap in services between June 1, 2016 and October 31, 2016. The purpose of this task order is to “bridge” the services from the current task order to the follow-on task order utilizing the incumbent contractor. GSA anticipates awarding this contract no later than May 31, 2016 for a five-month period.

A transition period is required for a new contractor to take over services. AFMC/A4 and AFSC/LG are complex organizations supporting numerous AF efforts. Due to the complexity of the functions supported, major high-level stakeholder engagement, and security clearance requirements, a minimum of a 90 day transition period is required to ensure an effective transition from the current contract to a new contract. Any other contractor would require start up and transition time to perform all of the services required under this contract which would leave the HQAFMC A4D without critical analytical, technical, and programmatic support. The bridge contract will facilitate that transition.

SERCO is uniquely qualified to continue providing comprehensive program management and IT system support because SERCO has provided these services for 4 years. No other contractor could perform all the required services beginning on day one of the proposed bridge contract. Without continued SERCO support, the risk to the US Air Force customers not being able to complete their assigned missions would be severely impacted. Many of the DM functions are required by statute with routine oversight by a variety of stakeholders including DoD Executive leadership, Congress, USAF Inspector General, and GAO. SERCO’s expertise in and understanding of current policy, procedures and systems is critical to ensuring a timely and accurate response to stakeholder inquiries.

SERCO provides tracking of 100 million end items and orders for those items and supports over 130 IT systems.

If the items/orders are not properly tracked, or the systems are not properly maintained, it could result in grounded aircraft needed for the warfighter being kept out of service. Under the guidance of key Government personnel, SERCO assists in developing and maintaining critical safety and quality policy initiatives such as foreign object damage, quality escape, and tracking requirements. Any hindrance to maintaining these policies could result in damage to the aircraft and machinery supporting the warfighter.

Additional effects of any break in service are as follows:

Updated: 15 Mar 16 Page 4 of 13

Significantly degrade AFSC and HQ AFMC ability to support the MAJCOMs, ALCs, DoD, Air Staff, DLA, OSD, etc. initiatives listed above (i.e. DM, Supply Chain Performance, DOC initiatives, etc.).

Reduce HQ AFMC/A4 and AFSC’s ability to support on-going Depot Maintenance Transformation (DMT) initiatives such as Streamlined Maintenance Requirements Determination, Reliability Centered Maintenance (RCM), Condition Based Maintenance, and Life Cycle Sustainment.

Limit HQ AFMC/A4 and AFSC’s ability to research, gather, analyze and review data needed for 50/50, R2D2, higher HQ and congressional reporting.

Significantly delay HQ AFMC/A4 and AFSC’s ability to standardize depot maintenance processes/procedures to improve depot maintenance operations. Standardization reduces costs and provides greater ability to posture for additional workload.

Significantly delay HQ AFMC/A4 and AFSC’s ability to re-write (update) depot maintenance policies, regulations, operation instructions, etc. to reflect the current changes in AF organizational structure and operating procedures.

Significantly delay HQ AFMC/A4 and AFSC’s ability to establish “mechanic-centric focus” processes that would reflect current changes to depot operations. This delay would increase production costs and add time to production flow days.

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

The Naval Air Systems Command (NAVAIR) and GSA R10 are actively working on the new competitive acquisition that will provide support for future AFMC/A4 and AFSC/LG requirements. An award is anticipated by November 1, 2016, and GSA intends to issue an RFI to prospective offerors in May 2016. Only SERCO is being solicited for this short term bridge because SERCO is the only source capable of meeting the current contract requirements without a break in service. As the contract requirements include security clearances, project management, and policy consultation, which necessitate acute understanding of internal practices and systems, it is impractical for another contractor to effectively acclimate during the five month period with a subsequent transition to the follow-on contract required.

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

In accordance with FAR 15.402, the Contracting Officer shall ensure that all supplies and services provided under this contract are procured at a fair and reasonable price. The Contractor will submit a formal price proposal with sufficient information to support the accuracy and reliability of the proposal. SERCO’s proposal will be reviewed by experienced technical analysts and contract specialists with the aid of necessary field pricing support. The Contracting Officer will utilize price analysis as the basis for negotiating a fair and reasonable price.

VIII. Description of the market research conducted and the results, or a statement of the reasons market research was not conducted

Market research is being conducted for the competitive follow-on contract and sufficient competition is expected.

Updated: 15 Mar 16 Page 5 of 13

There is not enough time to conduct market research for this bridge contract, nor is market research necessary given the urgent and compelling nature of this acquisition.

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

HQ AFMC/A4 and AFSC/LG would be seriously harmed if award for this bridge contract to SERCO is not permitted. If the items/orders are not properly tracked, or the systems are not properly maintained, it could result in grounded aircraft needed for the warfighter being kept out of service. SERCO assists in developing and maintaining critical safety and quality policy initiatives such as foreign object damage, quality escape, and tracking requirements. Any hindrance to maintaining these policies could result in damage to the aircraft and machinery supporting the warfighter.

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

No sources other than SERCO were solicited and none have expressed a written interest in this urgent requirement for a short term bridge contract.

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 Government took necessary action to re-procure the Multiple Award Contracts under which this task order was placed, and it was the Government’s intention to compete the order under the new MAC as soon as it was awarded. Due to unforeseen delays in the procurement process, a bridge contract is now needed for a short duration. A focused effort is in process to re-procure the services in a competitive environment, consistent with existing statutory and regulatory requirements.

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 (our) signature(s) above, I (we) certify that any supporting data contained herein, which is my (our) responsibility, is both accurate and complete.