8.2.2016_Cross_Dock_PWS.docx

Department of Homeland Security Federal Emergency Management Agency

National Cross Docking Contract Performance Work Statement (PWS)

August 5, 2016, TABLE OF CONTENTS

Attachment I – Performance Work Statement ii

Federal Emergency Management Agency (FEMA) Headquarters National Cross Docking Concept Performance Work Statement (PWS)

1. Background

The transportation working group within the Logistics Management Directorate (LMD) found that cross docking operations would significantly reduce trailer detention costs during disaster activation, and would create mechanisms to better control leased resources. Instead of shipping directly to the Incident Staging Base (ISB)/ Federal Staging Area (FSA), non-DHS trailers will be cross docked to a fleet of trailers equipped with GPS-enabled In Transit Visibility (ITV) and managed by a single contractor with an issued task order. The Federal Emergency Management Agency (FEMA) Logistics Management Directorate senior leadership is requiring a national concept and operational capability, which would require all transportation requirements be vetted, coordinated, and managed at the national level in the Logistics Management Directorate/Transportation Movement Control Group (LMD/TMCG). The LMD/TMCG will be the primary provider of the cross docking operation and/or will supplement regional cross docking operational capabilities when needed.

Cross Dock Concept

2. Description of Services

FEMA intends to award multiple contracts for this requirement and compete each subsequent task order to fulfill requirements that have been requested by the region and/or LMD Assistant Administrator. FEMA will only consider activating cross dock functions after FEMA’s Initial Response Resources (IRR) packages have been deployed. FEMA is seeking service providers who possess the ability to develop technical guidance from key FEMA personnel, a network of transportation and emergency cross dock/freight forwarding service operation centers throughout the Continental United States. As national emergency situations occur, the need for transportation and providing logistics services to the “affected area” are most critical. An efficient, reliable and highly flexible operation is needed to provide FEMA, as well as regional, state, and local governments, the life sustaining supplies needed to present relief to citizens in the affected area. The service providers must possess an adequately owned and/or directly leased controlled infrastructure, transportation resource fleet, personnel, material handling equipment (MHE), as well as information technology capability to efficiently transload, transport, manage, track, communicate and process various levels of supplies into the “affected area”.

3. Activation

FEMA will transition to a cross docking operation after a disaster response is already under way. FEMA’s disaster response operations with cross docking implementation will consist of three phases. Phase 1: Power Only Mission to deploy FEMA’s preloaded IRR packages; Phase 2: Power with Trailer Mission to deploy FEMA’s sustainment IRR loads; and Phase 3:

FEMA may consider transitioning to a national cross docking operation, when the disaster response is projected to require more than 500 commercial trailers, over and above FEMA’s preloaded IRR and sustainment IRR trailers. Therefore, it would only be under Phase 3 that task orders for this requirement would be issued. The Assistant Administrator, in consultation with the Regional Administrator, may direct FEMA LMD/TMCG to activate the cross docking concept for disasters projected to require 500 or more commercial trailers as necessary. Based on the distance from the affected area, geographical constraints, infrastructure outages, along with guidance received from key FEMA senior leadership, the activation process is as follows:

A. FEMA Contracting Officer (CO) and the FEMA Contracting Officer Representative (COR) will notify selected contract awardees when disaster operations are underway. Awardees are not required to begin preparing for a cross docking operation until the task order is issued; however, FEMA will provide awardees with situational awareness However, the FEMA CO and the FEMA COR, will notify the contract awardees of a potential cross docking operation. The FEMA CO will notify the selected awardees of a potential cross docking operation. Task order(s) will include FEMA’s ISB/FSA location(s), estimated minimum number of trailers required, and the anticipated duration of the cross docking operation.

B. Contractor Awardees will have six hours to respond to the task order Request For Proposal (RFP) with their proposal response. The response must include the exact location of the cross docking facility, the activation timeline to stand up the cross docking facility, the specific daily rates for the facility(s), operational processes for managing the facility, trailers, contractor personnel, trailer retrograde process, and shuttle missions. The specific requirements for each component of the cross docking concept will be discussed in later sections.

C. FEMA will select a contractor to support cross docking operations within two hours of the response deadline.

D. The awardee(s) will have 12 hours to initialize cross docking operations after being awarded a task order. Initializing cross docking operations means establishing the facility or facilities where the cross docking operations will be accomplished, personnel, MHE, trailers, and shuttle drivers all positioned to operate at 25 percent (for example a requirement of 500 trailers means the awardee(s) shall have the capacity or the ability to support 125 trailers) by hour 12.

E. The awardee will have a total of 72 hours to reach full operational capacity (i.e. must have a minimum of 500 trailers on site available for trans-loading of commodities and/or assets.) after being awarded a task order. Full operational capacity means having the facility or facilities where the cross docking operations will be accomplished, personnel, MHE, trailers, and shuttle drivers positioned to operate at 100 percent capacity by hour 72.

F. FEMA may cancel the cross docking requirement after requesting proposals, and prior to selecting a contractor for the task order.

G. FEMA CO and/or the FEMA COR may adjust the timeline following a task order award, as dictated by the specific disaster, including when the disaster occurs in a remote area, i.e. FEMA could increase the original timeline of 72 hours.

4. Cross Docking Facility

4.1 Location

The cross docking facility must be located within a 50 mile radius of the supported FEMA ISB/FSA. If the disaster occurs in a remote area, FEMA CO may modify the task order to expand the acceptable distance/area for a cross docking facility. FEMA CO reserves the right to direct the awardee to a government site to execute cross docking based on FEMA’s organizational mission needs. In such cases, the awardee(s) will not be able to charge FEMA for any associated cross docking facility(s) cost.

4.2 Physical Requirements

The cross docking facility shall have the capability to support FEMA’s requirements, which begins when FEMA projects the need for 500 or more commercial trailers during Phase 3 of FEMA’s disaster response effort.

Specific Cross-Dock Facility requirements are as follows:

· Functioning and reliable electrical power and water supply

· Fluid and accessible ingress and egress for trucks and equipment to maneuver.

· A minimum of 10 inbound dock doors and 10 outbound dock doors with a distribution center ergonomically designed and applicable for cross docking; and/or able to facilitate an operational tempo for transloading at least 7-10 trailers per hour.

· Viable yard space for staging up to 125 inbound trailers at one time to be cross docked as well as staging 125 of contractor provided empty trailers prior to activating the cross dock operation; and/or while trailers are waiting to be trans-loaded.

· Available space for 500 trailers at hour 72 or full operational capacity is required with enough room for maneuverability.

· Viable operating room to substantiate fluid ingress and egress for up to 250 incoming / outgoing truck traffic at any given time during the operation.

· 24 availability of office space/area for at least 10 FEMA operational personnel to utilize at the cross dock facility during cross docking operation.

· Contractor shall provide a yard dumpster. Minimum size 8' W X 13' L X 3' 6" H 10 cubic yards

· Bathroom facilities (Port-a-potty minimum) capable of servicing at least 10 FEMA operational personnel, plus contractors, and drivers per shift.

· Telephones service and internet access capability within 24 hours’ notice of the task order award for at least 10 FEMA operational personnel to utilize at the cross dock facility during cross docking operation. The awardee is fully responsible for the cost and implementation of these services.

· Security Facility shall be fenced and/or controlled access to keep unauthorized personnel out of the cross docking operational facility; and to provide complete control over access to the operation. Entrance and exit gates will be under the operational control of the awardee Site Manager. The awardee is fully responsible for the cost and implementation of these services.

· Awardee shall provide 24 hour security and surveillance for the site; pursuant to the FEMA’s COR approval. Awardee will provide, at a minimum, one security officer. Awardee will be responsible for gate entry and exit as well as interior and exterior security.

· Flexibility – Awardee must be able to adapt to a constantly changing environment and demands. However, any changes to the task order must be approved by the Contracting Officer (CO) prior to execution.

· Awardee must maintain 24 hour operational capability.

· Awardee must possess ability to scale cross dock operations and shuttle fleet missions up or down, to meet FEMA’s operational tempo within 12 hours as directed by FEMA COR and approved by FEMA CO.

5. Personnel and Equipment

Contract awardee staffing levels and MHE densities are at the discretion of the task order awardee however, staffing and MHE levels must be sufficient to meet FEMA mission requirements. FEMA will be monitoring performance and will require the awardee to provide additional personnel and/or MHE if not meeting FEMA requirements. Key Performance Parameters (KPP) will be defined in FEMA’s Quality Assurance Surveillance Plan (QASP) to monitor and measure the quality of the awardees’ performance. The cross docking operation will operate 24/7 and cannot pause to replace inoperable equipment or account for a shortage of personnel. The awardee must be in compliance with all federal, state and local laws and regulations to include being OSHA compliant.

A. Management Level Representation shall:

· Be on site with complete decision making authority.

· Be experienced and seasoned and empowered to supervise its cross docking team.

· Manage and control the cross dock facility operations in concert with the FEMA Manager / FEMA COR on site.

· Ensure appropriate level of staffing for managing the cross dock operation itself, yard control, staff and supervising shuttle operations.

· Have complete authority for all routine operational decisions as it relates to the cross docking operational functions.

· Be the FEMA COR’s primary point of contact.

B. Experienced Site Manager must:

· Anticipate customer’s needs and works with FEMA COR and technical personnel to achieve FEMA mission tactical, operational and strategic goals.

· Have a demonstrated ability to lead his/her team and partners.

· Understand how FEMA operates its disaster response and recovery missions and that FEMA’s mission goals can change for a variety of reasons. Must demonstrate being adaptable to those changes to support the overall FEMA objective.

· Possess excellent written and oral communication skills and maintain an effective working relationship with FEMA COR and technical personnel on site.

· Be synonymous to the management level representative position. The awardee must have at least 10 years of logistical, transportation, cross docking, professional and managerial experience in addition to all of the Management Level Representative competencies.

6. Cross Docking Operations

The goal of the cross docking concept is to quickly transfer those full loads from commercially leased trailers to trailers governed by this contract and move them to the ISB/FSA for staging and/or unloading and/or onward movement to a FEMA point of distribution (POD) for staging.

Shuttle mission operations under this contract will facilitate the movement of trailers from the cross dock facility to the ISB and from the ISB to the POD as well as removal of empty demobilized trailers.

Performance requirements for cross docking operations operational tempo are as follows:

A. Once a commercially leased trailer arrives at the cross docking facility, it must be physically cross docked within 1 hour and the cross dock contractor trailer must depart for the ISB/FSA within 1.5 hours (from initial arrival). Cross docked is defined as, all commodities must be transloaded from the commercial leased trailer to the contractor’s trailer.

· FEMA COR located at the cross docking facility and ISB/FSA will prioritize trailer departures based on the loaded commodity and provide that information to contractor site manager and/or management level representative.

B. All trailers that arrive at and departing from the cross docking facility and ISB/FSA must be properly accounted for in FEMA’s Logistics Supply Chain Management System (LSCMS). Contractors will work in concert with FEMA personnel to ensure this performance metric is sufficiently achieved. FEMA personnel will notify the contractor’s site manager when trailers have been properly accounted for and can be moved to the next location.

C. The data transfer of information will consist of the following:

· Receiving Sequence Number (order unit arrived at the cross dock entrance gate)

· Date and time received

· Name and phone number of driver

· Tractor number

· Trailer number (Nose number, not tail number)

· Transponder ESN

· Trailer Seal number

· Commodity type

· BOL number and BOL/trailer commodity quantity

· Dock Door assigned

· Outbound trailer number

· Outbound trailer Dock Door number

· Outbound Transponder ESN

· Outbound Trailer Seal number

· Commodity verification

· Cross docked by: (name)

· Cross dock date and time

· Destination

The above information needs to be collected appropriately, and transmitted electronically to FEMA COR and FEMA LSCMS subject matter expert. Excel format is strongly recommended. Other formats may be acceptable with prior FEMA approval.

D. The task order awardee is responsible for any damage to commodities from the time of initial offload of the commercial trailers at the cross docking facility onto the awardee trailers; until commodities are delivered to ISB/FSA/PODs. Prior to unloading of any trailers arriving at the cross docking site, the awardee must conduct a visual inspection of commodities, and if commodities are damaged, the contractor must notify the designated FEMA COR who will then fill out a damaged commodities report. The FEMA COR will begin a subsequent investigation, determining which party is at fault for damages.

E. Once commodities have been trans-loaded onto the contractor’s trailers, the contractor must conduct another visual inspection and fill out an accountability certificate verifying that the number of pallets matches the quantity of commodities on the ASN/ Property Transfer Record (PTR) and that there is no damage to the outbound commodities or trailers.

7. Trailers

The cross docking concept will require a large number (500 or more) of empty trailers to be positioned at the cross docking facility. After receiving their cross docked shipments of commodities, these trailers will be forwarded to the ISB/FSA/POD. Empty trailers should be available after offloading at PODs (after being shipped and held at the ISB/FSA), but the task order contractor should not expect trailers to return to the cross docking facility at regular or predictable intervals.

7.1. Size and Physical Requirements

Trailers provided for cross docking operations must be 53’Ft. Closed van trailers and in good working condition (for example but not limited to: all required inspections up-to-date, no holes in the trailer, functioning drive systems, and well-maintained tires). FEMA will perform spot checks to ensure trailers are in an acceptable condition. FEMA may request special categories of trailers including flatbeds, step-decks, refrigerated trailers, and drop-decks, as required and will provide notification of the requirements as soon as possible.

FEMA anticipates special category trailer quantities to be no more than 10% of the total full operational capacity FOC amount of trailers required. Upon notification of special category trailers, awardee(s) will ensure that the proper load blocking and bracing equipment is ready and available with each special category trailer. Those trailers supporting FEMA’s power missions for generators and special category commodities will be deployed directly from a FEMA Distribution Center to the established ISB/FSA/POD. When notified of FEMA’s power missions and special category loads, the contractor will dispatch a suitable power unit and special category trailer directly to the specified distribution center for loading and transporting those commodities directly to ISB/FSA/POD.

7.2 Purchasing Trailers

“The task order awardee(s) are exclusively responsible for the movement, management, tracking and accountability of all resources associated with an issued task order, to include any and all trailers requested under the task order. If trailers are relocated by FEMA, without the consent and acknowledgement of the contract awardee, FEMA is responsible for the accountability of any said trailer. If any trailer, governed under the requirements of the task order, is moved by FEMA and is lost, stolen or damaged, FEMA has the right to purchase said trailer, at fair market value.” The awardee must provide FEMA a complete list of un-returned trailers within 10 calendar days after cross docking operations have been demobilized.

8. Transponders

All trailers used in the cross docking concept will have FEMA GPS-enabled ITV transponders attached before leaving the cross docking facility. FEMA personnel will provide and install the transponders at the cross docking facility. The task order contractor, in concert with FEMA LSCMS SME, will be responsible for, and work together to ensure that all trailers departing the cross docking facility have transponders attached and retain their GPS-enabled ITV as they move forward to their final destinations.

9. Shuttle Service and Drivers

A. The cross docking operation will require two sets of shuttle drivers. One set of shuttle drivers will transport trailers between the cross dock facility and the ISB/FSA. The second set of shuttle drivers will transport trailers between the ISB/FSA and the state points of distribution, (POD). The task order contractor will determine the exact number of shuttle drivers per group; however the contractor must be able to meet FEMA operational tempo requirements. FEMA will reserve the right to increase and/or decrease the shuttle service missions based on FEMA’s mission requirements; therefore this aspect of the operation must maintain scalability. The concept of the operation will be as follows: The first group of shuttle drivers will move contractor trailers from the cross docking facility to the ISB/FSA and return with empty contractor trailers as they become available. The second group (optional-dependent upon requirements) of drivers will move FEMA and contractor trailers from the ISB/FSA to a POD and return empty contractor trailers to cross dock location and/or demobilize those trailers. Shuttle drivers will be responsible for moving empty FEMA trailers from the POD’s back to the ISB / FSA. FEMA will provide priority of the commodities and trailers moving between all locations to the contractor representative at the cross docking facility and ISB/FSA for dispatching purposes.

B. Driver Requirements for Cross Docking operations are as follows:

· Valid Driver’s License.

· Clean driving record

· Pass a criminal back ground check.

· U.S. citizen.

· FEMA recommends that the task order contractor appoint drivers with sleeper cabs due to no accommodations for lodging at cross dock site or ISB.

· Lodging, meals, rest, driving logs and all other related care services are the responsibility of the contractor for all contractor employees and personnel. FEMA is not responsible for any of the aforementioned care services of any contract employee or their support staff.

· Must maintain active driver logs and follow all local, tribal, state and federal Department of Transportation (DOT) and Department of Motor Vehicle rules and regulations.

1. Contractors are fully responsible for any damage to any FEMA owned or FEMA leased trailers under the control of the awardee.

2. FEMA also possesses the right to contract with other selected carriers to obtain retrograde line haul services for FEMA owned or FEMA leased trailers located at the cross dock facility, ISB/FSA/ POD for retrograde missions.

3. Fuel and Repairs

The selected awardee will be responsible for maintaining all power units and equipment associated with the shuttle services including providing fuel and maintenance.

10. Cross Docking Deactivation

10.1 Cross Docking Facility

FEMA reserves the right to deactivate cross docking operations at any time as the disaster shifts from response to recovery and where fewer trailers are required. The FEMA Contracting Officer and/or FEMA COR will notify the task order contractor as soon as FEMA leadership determines cross docking is no longer required. FEMA will provide a deactivation date and the contractor will have 48 hours from that date to retrieve all its owned or leased trailers still at the cross docking facility and/or the FSA/ISB/POD, as well as demobilizing all its MHE and personnel. The task order contractor is responsible for relocating its own personnel and resources associated with the cross docking operation.

10.2 Trailers and Shuttle Drivers

After the cross docking site has been deactivated, a limited number of contractor trailers and shuttle drivers will likely still be needed and be involved in the disaster recovery phase; FEMA will determine the exact number of each.

Any contractor trailers loaded with retrograde commodities located at the cross docking site and ISB/FSA/POD must be returned to FEMA distribution centers, FEMA designated donation sites, and/or FEMA partner distribution centers. FEMA Transportation Management Branch personnel will prepare government Bill of Ladings (BOLs) to reflect line haul charges from origin to destination in line with, but not to exceed GSA’s General Standard Tenders of Service rates (STOS), directing each trailer to a specific distribution center with a specific Required Delivery Date (RDD). The retrograde line haul charge threshold amounts will be obtained through the GSA TransPort Integrator (TPI) database. Subsequently, the contractor should have GSA’s STOS rates on file. Discounted spot bid line haul rates are encouraged.

FEMA will work with the contractor to ensure retrograde delivery priorities and RDDs are reasonable, but that the contractor will still held to FEMA Transportation Management Branch’s performance metric standards for not meeting expected RDD’s.

11. Exercises

FEMA will use the guiding principles of the Homeland Security Exercise and Evaluation Program (HSEEP) which provides a set of guiding principles for exercise programs, as well as a common approach to exercise program management, design and development, conduct, evaluation, and improvement planning. HSEEP exercise and evaluation doctrine is flexible, adaptable, and is for use by stakeholders across the whole community and is applicable for exercises across all mission areas – prevention, protection, mitigation, response, and recovery. The HSEEP is provided in the following link:

http://www.fema.gov/media-library-data/20130726-1914-25045-8890/hseep_apr13_.pdf

The exercises of consideration for evaluating this cross dock concept will consists of discussion-based exercises such as seminars, tabletop exercises and workshops that will enable both FEMA and the contract awardee(s) to better prepare and train for the implementation of the concept. FEMA will conduct a one-time discussion based exercise during the post award orientation, i.e. kick-off meeting. This exercise that will be utilized primarily for testing and evaluating the cross docking concept. The kick-off meeting introduces the members of the FEMA Cross Docking Team, FEMA Contracting Officer and the contract awardee(s) and provides the opportunity to discuss the role of each team member. Other base elements in the project that involve the awardee may also be discussed at this meeting (schedule, status reporting, etc.).

The basic format of a kickoff meeting includes reviewing the roles of, and expectations from, FEMA Stakeholders involved in the cross docking concept. It also mentions the risks and issues involved, particularly those that may affect project quality standards, pricing, schedules, reporting, etc.… and any impediment that could possibly lead to decreased customer satisfaction. This is the point of which any ambiguity pertaining to the cross docking contract and/or operational processes from FEMA stakeholders is explicitly mentioned and discussion with the awardee(s).

11.1 Table Top Discussion Based Exercise

Contract awardees shall be required to conduct a one-time full scope table top discussion based exercise / evaluation at FEMA’s expense. This exercise shall consist of discussions and scenarios surrounding the Indefinite Delivery, Indefinite Quantity Contract (IDIQ) number of trailers, notional cross dock facility, notional MHE densities, shuttle missions as well as number of awardee support personnel to operate the cross docking operational functions.

FEMA will conduct this exercise at either the Frederick, MD, Cumberland, MD distribution center or at the FEMA Headquarters component in Washington, D.C. FEMA will fully fund the actual costs of the exercise however any associated expenses for conducting the exercise accrued by the contractor’s participants will not exceed the aggregated maximum cost set aside and designated for the kick off meeting. This cost will be a part of the Contract Line Item Number Structure guaranteed minimum.

12. Key Performance Parameters

The contractor performance will be evaluated against the Key Performance Parameters (KPP) contained in section 12 of the PWS and in the Quality Assurance Surveillance Plan (QASP).

Activation: Key Performance Parameters Performance Objective

Standard Acceptable Quality Level

Physical Requirements: Key Performance Parameters Performance Objective

Standard Acceptable Quality Level

Personnel and Equipment: Key Performance Parameters Performance Objective

Standard Acceptable Quality Level

Compliance with requirement

Compliance with requirement

Cross Docking Operations: Key Performance Parameters Performance Objective

Standard Acceptable Quality Level

Trailers: Key Performance Parameters Performance Objective

Standard Acceptable Quality Level

Compliance with requirement

Shuttle Service and Drivers: Key Performance Parameters Performance Objective

Standard Acceptable Quality Level

Compliance with requirement

Cross Docking Deactivation: Key Performance Parameters Performance Objective

Standard Acceptable Quality Level

Compliance with requirement

13. Task Order Schedule of Deliverables

Quality Control Plan (QCP)

The Contractor shall update its original Quality Control Plan as necessary to ensure that all tasks are completed in accordance with the contract, the Performance Work Statement and the individual task order requirements. The QCP is the contractor’s strategy for meeting FEMA’s Quality Assurance Surveillance Plan (QASP).

Inventory of Property & Equipment

The contractor shall provide FEMA with a complete list of contractor provided property and equipment for utilization during cross dock activation within one calendar day after inception of cross dock execution.

Sequence Number (order unit arrived at the cross dock entrance gate), date and time received, tractor number, trailer number (Nose number, not tail number), transponder ESN, trailer Seal number, commodity type, BOL number and BOL/trailer commodity quantity, dock, door assigned, outbound trailer number, outbound trailer dock door number, outbound Transponder ESN, outbound trailer seal number, commodity verification check, cross docked by: name, cross dock date and time.

14. ISB Installations Region 1

Region 2

Region 3

Region 4

Region 5

Region 6

Region 7

Region 8

Region 9

Region 10

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