General_Requirements_-_v-1-0.pdf

FEDERAL EMERGENCY MANAGEMENT AGENCY

GENERAL REQUIREMENTS

RESIDENTIAL SPRINKLER SYSTEMS FOR DISASTER HOUSING

Revision 1.0

21 May 2016

FEMA Residential Sprinkler Systems for Disaster Housing ii

Contents

DOCUMENT REVISION HISTORY:

1. GENERAL

1.1. BACKGROUND

1.2. OVERVIEW

2. SCOPE OF WORK

3. WORK LOCATIONS

4. OVERALL PROCESS – SPRINKLER DESIGN & INSTALLATION

5. SUBMITTALS – DESIGN DELIVERABLES

6. PROJECT CONDITIONS

7. EXISTING WORK

8. SITE INSPECTION AND MEETINGS

9. CHANGES:

10. BID SUBMITTALS – QUALIFICATIONS AND EXPERIENCE:

11. SCHEDULE:

12. BID SUBMITTALS – PROPOSED SCHEDULES:

13. BID SUBMITTALS - SAMPLE DESIGN

14. REQUESTS FOR INTREPRETATION (RFI):

15. BID SUBMITTALS

16. EVALUATION CRITERIA

iii

DOCUMENT REVISION HISTORY:

This table lists revisions and changes made to this document since the initial issue.

Date Revision Sections Revised Revision Explanation

5/21/2016 1.0 Initial issue for solicitation.

1. GENERAL

This solicitation covers a variety of services required by FEMA to equip temporary housing units for disaster survivors with National Fire Protection Association (NFPA) 13D automatic fire sprinklers, as well as services required to maintain and/or modify the sprinkler systems and ancillary equipment. Services will be required in a variety of geographic locations in the contiguous 48 states, some of which cannot be determined beforehand. The solicitation includes the provision of both normally scheduled services, as well as emergency services that may be required to support FEMA’s response to a major disaster. FEMA desires to award a contract to a single entity or multiple, to cover all the services described in this solicitation.

FEMA anticipates that this solicitation will result in the award of an Indefinite Delivery/Indefinite Quantity (IDIQ) type contract. IDIQ is a type of contract that provides for an indefinite quantity of supplies or services during a fixed period of time. (Federal Acquisition Regulation (FAR) section 16.504(a)). There are a variety of IDIQ contract authorized by the FAR.

For this specific contract FEMA anticipates issuing a “Requirements Contract” as described in FAR Subpart 16.503 which is described as “A requirements contract provides for filling all actual purchase requirements of designated Government activities for supplies or services during a specified contract period (from one contractor), with deliveries or performance to be scheduled by placing orders with the contractor.” After contract award, the government may issue Task Orders for individual requirements as described in this solicitation.

Note: Since FEMA’s missions are determined by the occurrence of disasters, there can be no guarantee of a minimum amount of work to be performed during a disaster response scenario.

Contract award, if made, will be based on Best Value to the Government criteria.

After an award is made, FEMA may issue Task Orders for covered services as funding and mission needs are identified. Each Task Order issued under the IDIQ contract will provide the quantity of manufactured homes or other equipment that needs to be retrofitted or serviced, in addition to the location(s) where the services are to be performed.

The contract will include provisions for two different types of Task Orders:

1. Fixed-Price.

2. Cost-Reimbursement.

Typically, Task Orders for services to be performed at FEMA’s Cumberland, MD and/or Selma, AL facilities will be Fixed Price; and typically Task Orders for services to be performed elsewhere in the contiguous 48 states will be Cost-Reimbursement. However, the government reserves the right to use either type of Task Order after determining which is in the best interest of the government.

1.1. BACKGROUND

The Federal Emergency Management Agency (FEMA) is charged with supporting and managing responses by the Federal government to natural and man-made disasters as required under the Robert T Stafford Act, as Amended (Stafford Act). Section 408 of the Stafford Act outlines the response for Individuals and Households. As described in Section 408, FEMA is able to provide temporary housing acquired by lease or purchase. One of FEMA’s methods of providing temporary housing is through the purchase of units that are constructed to 24 CFR 3280 the Manufactured Home Construction and Safety Standards. In addition to supporting FEMA’s Individuals and Households mission the agency may use manufactured homes for other purposes, including requests by other departments or agencies through transaction methods including but not limited to the Economy Act.

FEMA primarily uses manufactured homes as defined in 24CFR3280, Manufactured Home Construction and Safety Standards. Depending on the mission, FEMA may use other types of manufactured units to provide temporary housing for disaster survivors; these may include Park Models or travel trailers. The Contractor may be required by FEMA to install sprinkler systems in these other types of housing units. FEMA can also be tasked with missions that are driven by other requirements and may be tasked with missions from other Departments or Agencies through authorities such as the Economy Act.

FEMA maintains a ready-to-deploy inventory of manufactured homes with more than two dozen different floor plans from multiple home manufacturers. The inventory includes both ‘standard’ homes, and homes constructed to comply with the Uniform Federal Accessibility Standards (UFAS).

FEMA has approved sprinkler designs for several of the floor plans, but does not have approved sprinkler designs for many of the floor plans. In general, the homes fall into the following groupings:

Designation UFAS Standard Approximate*

Footprint (square feet)

Approximate* Exterior Dimensions (feet)

1 Bedroom Express X X 408 8.5 x 48

1 Bedroom X X 575 14 x 41

2 Bedroom X X 740 14 x 52

3 Bedroom X X 840 14 x 60

Park Model X ≤ 400 8 or 12 wide, up to 36 long

Travel Trailer X Various Various

* Home dimensions vary by manufacturer and model.

FEMA’s housing missions are disaster response situations. During a disaster response, one of FEMA’s metrics for the provision of housing is the number of days to get “heads in beds.” In order to meet the target delivery dates, expedited installation of sprinkler systems may be required. This solicitation also includes provisions to be responsible for expedited installation services in a disaster response scenario.

1.2. OVERVIEW

FEMA has determined that the agency will equip manufactured homes used as temporary housing for disaster survivors with residential sprinkler systems that are in compliance with National Fire Protection Association (NFPA) Standard for the Installation of Sprinkler Systems in One- and Two-Family Dwellings and Manufactured Homes - NFPA 13D.

FEMA may be tasked to provide temporary disaster recovery homes anywhere within the contiguous United States. The agency cannot determine in advance where a manufactured home may be needed. Because of the broad geographic service area, FEMA has included requirements that allow NFPA-13D to be implemented and installed anywhere a disaster recovery home may be needed.

There is no way to determine in advance the adequacy of water pressure and water flow at the final installation site. Therefore, FEMA will purchase and inventory external tank and pump systems, called Tank and Pump System (TPS) under a separate contract action. The TPS will provide a standard minimum water pressure (in pounds per square inch [psi]) and flow rate (in gallons per minute [gpm]) to allow for a NFPA 13D design with known water supply parameters.

The work solicited herein also includes electrical supply for the TPS that will require the services of a licensed electrician.

It is important to understand that the homes are in storage; they do not have any utility services connected (i.e., electrical service, water, sewer, cable, or telephone). Offerors should be aware that the homes may not be level, and that the lots where the homes are stored are not always paved. Additionally, the sprinkler systems will not be activated while the homes are in the storage yards or forward staging areas. The homes will be transported from the storage yards to the final installation site in two or more steps, at which point the TPS will be installed outside the home and connected to the sprinkler system and electrical system in the home.

2. SCOPE OF WORK

The requirements of this solicitation are provided in this document and in two accompanying documents that are part of this solicitation. All three of these documents make up the technical requirements of the solicitation.

Technical Requirements – Residential Sprinkler Systems for Disaster Housing, which contains the requirements for the design and installation of sprinkler systems and related components in FEMA MHUs.

Modifications to MHU Sprinkler System Freeze Protection, which contains the technical requirements for modifications to the freeze protection provided for existing sprinkler-protected MHUs.

3. WORK LOCATIONS

FEMA anticipates that the initial Task Order(s) will cover services that are to be performed at FEMA’s Manufactured Housing Storage Sites (MHSS) Cumberland, MD and/or Selma, AL.

Additional Task Orders may be issued for services that are to be delivered at a Manufactured Housing Staging Area (MHSA) located in the general vicinity of a disaster, or at Individual MHU Installation Sites. The MHSA and individual Installation site can be located anywhere in the contiguous 48 states.

4. OVERALL PROCESS – SPRINKLER DESIGN & INSTALLATION

4.1. FEMA will issue a Task Order under the contract to install sprinklers in specified homes.

Each Task Order shall specify the following:

4.1.1. The home or homes to have sprinkler system installed.

4.1.2. The location(s) where the installation is to be performed, and the normal work hours for location(s) other than Cumberland or Selma.

4.1.3. Whether or not FEMA has an existing design for the sprinkler system in the specified home(s) that is ready to be used.

4.1.4. Date by which the work must be completed.

4.1.5. Contact information for other contractors and site contacts relevant to the installation site.

4.1.6. Other relevant details.

4.1.7. The funding model to be used; Firm-Fixed-Price, or Cost-Reimbursement are defined in the Contract.

4.2. Contractor develops installation design(s) as required by the Task Order, and submits design(s) for review and approval.

4.2.1. FEMA / USFA approval.

4.2.2. Design Approval Primary Inspection Agency (DAPIA)/ Manufacturer approval.

4.3. Install residential sprinkler systems in accordance with approved designs.

4.4. Install electrical components as designed.

4.5. Test installed systems.

4.6. Prepare systems and home for long-term storage and transport.

4.7. Develop and provide appropriate documentation for the storage, installation, maintenance and deactivation.

4.8. Final inspection and approval by FEMA.

5. SUBMITTALS – DESIGN DELIVERABLES

5.1. Product Data: Manufacturer's data sheets on each product to be used, including:

5.1.1. Submit evidence of Nationally Recognized Test Laboratory Certifications (e.g., UL) that the products and components proposed for use comply with NFPA 13D requirements for listed products.

5.1.2. Preparation instructions and recommendations.

5.1.3. Storage and handling requirements and recommendations.

5.1.4. Installation methods.

5.2. Plans: Design drawings showing all relevant home features and sprinkler system components. Include hydraulic reference points and dimensions showing sprinkler position relative to walls and obstructions that will enable reviewers to assess compliance with cut sheets.

5.3. Calculations: Hydraulic calculations keyed to design drawings.

5.4. Personnel: List all individuals who will be assigned to work on this contract, including qualifications and responsibilities of Project Manager, Designers, and Supervisors.

Include license and/or other qualifications required by this contract.

5.5. Format: All submissions shall be in PDF format. Drawings shall be formatted to print on standard 11” x 17” paper. Drawings shall be legible and the PDF file shall permit viewing at larger zoom to assist reviewers in clearly understanding the submitted design.

Calculations, cut sheets, and other elements shall be formatted to print on standard 8½” x 11” paper.

6. PROJECT CONDITIONS

6.1. Homes in inventory are stored at FEMA’s MHSS in Cumberland, MD and/or Selma, AL.

Access to the sites is restricted to approved individuals. The names of all personnel desiring access to the facility to perform work under this contract shall be submitted to the Contracting Officer’s Representative (COR) at least 3 business days in advance.

6.2. Normal duty hours for contractor’s work at Cumberland and Selma are from 8:00 a.m. to 4:00 p.m., Monday through Friday. Normal work hours at a MHSA or Individual installation site typically include 12-hour work days; details will be specified in any Task Order that requires installation at such locations.

6.3. Work outside regular working hours requires advance approval by FEMA. Make application 5 calendar days prior to such work to allow arrangements to be made by the Government for inspecting the work in progress, giving the specific dates, hours, location, and type of work to be performed. Based on the justification provided, COR may approve work outside regular hours.

6.3.1. In the event a disaster scenario arises that requires increased production rates, FEMA may extend the allowable hours to assist the contractor in meeting production targets. Details will be negotiated with the COR as the need arises.

6.4. During periods of darkness, the different parts of the work must be lighted in a manner approved by the COR.

6.5. The work locations are active National Disaster response facilities or installation sites of the manufactured housing. Work covered under this contract may need to be suspended, altered, or schedules revised with little or no advance notice if a disaster is declared and the facility is required to support the disaster response.

6.5.1. If the installation site is closed by FEMA so that work cannot be performed during periods of closure, Contractor will be granted an equal amount of additional time to complete the schedule.

6.5.2. Sites may be closed for a variety of reasons including but not limited to requirements to support ongoing disaster response/recover operations and local weather conditions.

6.6. No utilities are provided in the stored homes. Electrical and water supply sources are not available within reach of extension cords or hoses.

6.7. Homes may be stored very close together, and do not have steps or porches installed.

Homes may not be level. Ladders may be required to enter the homes.

6.8. Maintain environmental conditions (temperature, humidity, and ventilation) within limits recommended by manufacturer for optimum results. Do not install products under environmental conditions outside manufacturer's absolute limits.

6.9. Installation of sprinkler systems may occur anywhere in the contiguous 48 states at any time of the year in any weather conditions. Contractor shall be prepared to provide temporary electric powered heating as necessary to maintain temperature within allowable limits.

6.10. Contractors will not be required to perform work in unsafe conditions.

6.11. The homes are equipped with furniture that is strapped down for transportation.

Provide dust covers or protective enclosures as needed to protect furniture and existing work in the homes during the construction period.

6.11.1. Movable furniture may be relocated as required to perform the work. Furniture shall be protected from damage and replaced in its original location upon completion of the work. Secure all moved furniture for transportation using materials and methods originally used in the home. If installation is performed at the final Installation Site, securing the furniture after installation of the sprinkler system will not be required.

7. EXISTING WORK.

7.1. Remove or alter existing work in such a manner as to prevent injury or damage to any portions of the existing work which remain.

7.2. Repair or replace portions of existing work which have been altered during construction operations to match existing or adjoining work, as approved by FEMA’s COR. At the completion of operations, existing work must be in a condition equal to or better than that which existed before new work started.

8. SITE INSPECTION AND MEETINGS

8.1. Contract Kick-Off Meeting: Upon the initial contract award a Kick-Off meeting shall take place at MHSS, Cumberland, MD. The Kick-Off meeting shall occur within 15 business days of contract award. At the Kick-Off meeting, the Contractor will have the opportunity to inspect the work site, each home to be serviced, and to discuss scheduling and other concerns.

8.2. Task Order Kick-off Meeting: Upon the award of any Task Order, a Kick-Off meeting will be scheduled at the work location or other mutually agreeable location. Kick-Off meeting shall occur within 2 business days of issuance of any Task Order.

8.3. Task Order Progress Meetings: Progress meetings shall be held on Wednesday mornings at 10:00 am for the duration of the Task Order. Depending on the phase of the project and as decided at the preceding progress meeting, the meeting may be conducted by teleconference, in-person at the work site, or some combination thereof. In the event that multiple Task Orders are underway simultaneously, the Progress Meetings on each can be combined into a single meeting at the discretion of the COR. As a minimum, the following shall be accomplished at each progress meetings:

8.3.1. Review the minutes of the previous meeting;

8.3.2. Review the schedule and the status of work and rework;

8.3.3. Review the status of submittals;

8.3.4. Review the work to be accomplished in the next week and documentation required;

8.3.5. Resolve Quality Control (QC) and production problems;

8.3.6. Address items that may require revising the Project Plan.

8.4. Contractor shall record minutes of each meeting and shall issue minutes to the COR within 3 business days of each meeting.

9. CHANGES:

9.1. FEMA’s Contracting Officer is the only individual designated and authorized to make changes to the contract documents and/or to authorize expenditures on behalf of the government. The Contracting Officer for this project is identified in the solicitation documents. The Contracting Officer will assign a designated Contracting Officer’s Representative (COR) to oversee the technical aspects of the contract and Task Orders.

9.2. Request to Change Technical Requirements: The following procedure shall be used when making a request for a change in any of the technical requirements described in this contract. Contractors shall ensure that any request for change addresses all of the points listed in the table below and that the contractor clearly identifies how they are addressing each point. FEMA will not accept any requests for changes that do not include the documentation described below. Additionally, requirements deemed to negatively impact contract performance, unit performance or that may adversely affect occupant safety, will not be approved. If there is a cost/schedule trade-off the contractor shall address how that tradeoff benefits the disaster survivor and FEMA.

Documentation Required

Justification 1. A statement listing the reason that a request to change is being made. Include a description of the original requirement and the proposed alternative.

2. A copy of the page(s) from the contract where the original requirement is located with the subject requirement highlighted.

Safety 1. If applicable, provide the material safety data sheet (MSDS) for the original material.

2. If applicable, provide the MSDS for the substitute material.

3. Letter from an accredited 3rd party expert stating:

• How the proposed substitution meets the original requirement(s) of the solicitation.

• List of all potential benefits and detriments of the proposed substitution to unit performance and occupant safety.

Cost/ Timeliness

1. How does the proposed substitution affect the overall cost? (List the original unit cost vs. the new unit cost)

2. A statement describing how the substitution could adversely or positively affect the schedule.

10. BID SUBMITTALS – QUALIFICATIONS AND EXPERIENCE:

10.1. Subcontractors:

10.1.1. Bid submittals shall clearly identify all subcontractors, the work that each subcontractor is proposed to provide, including the experience and qualifications of each subcontractor, designer, and installer.

10.1.2. Bid submittals shall clearly describe the nature of the relationship between the Prime contractor and all subcontractors, including qualifications of the subcontractor(s) and the ability of the subcontractor(s) to provide the services required within the time frames required.

10.2. Qualifications of Contractor: Contractor shall submit evidence of experience and qualifications described below. Contractor shall submit additional evidence of qualifications in the event that team members change during the period of performance.

10.2.1. Contractor’s Experience with NFPA 13D Systems: Contractor shall submit evidence of experience designing and installing NFPA 13D sprinkler systems. In light of the many significant differences between NFPA 13D, NFPA 13R, and NFPA 13 sprinkler design standards, experience must be specific to NFPA 13D to be considered. Include prior experience installing NFPA 13D systems in manufactured homes and/or modular homes.

10.2.2. Contractor’s Experience in Project Management: Contractor shall submit evidence of experience in planning and managing complex design and installation projects similar in scope and complexity as the work described in this solicitation.

10.3. Qualifications of Key Personnel: Contractor shall submit evidence of the qualifications of key personnel, including project manager, designers, supervisors, and crew leaders.

Contractor shall employ workers of journeymen level for all work associated with the crafts required to fulfill all segments of the contract.

10.3.1. Design Work: Submit qualifications of designer(s). All design work shall be performed by a Licensed Professional Fire Protection Engineer.

10.3.1.1. An individual possessing a current National Institute for Certification in Engineering Technologies (NICET) Level IV certification in Water Based (formerly Automatic Sprinkler) Systems Layout working under the direction of a Licensed Professional Engineer will be deemed acceptable upon submittal of qualifications.

10.3.2. Installation Work: At least one member of each work crew shall possess a current NICET Level III certification in Water Based (formerly Automatic Sprinkler) Systems Layout. Submit evidence of certifications.

10.3.3. Electrical Work: At least one member of each work crew performing electrical work shall possess a current electrician’s license in the jurisdiction where the work is to be performed. Submit evidence of licensure.

11. SCHEDULE:

11.1. Performance Time Requirements: Scheduling requirements will vary according to FEMA’s disaster response needs. The term Standard is used here to refer to Task Orders that are not related to an immediate disaster response. The term Urgent is used when FEMA requires more rapid completion of a Task Order. There are separate requirements for installation work and design work.

11.1.1. When a Standard Task Order includes requirements for sprinkler installation in MHU floor plans for which the Contractor has already developed plans that have been approved by FEMA and the MHU manufacturer/DAPIA, the Contractor shall have not more than 10 business days to mobilize and begin work at FEMA MHSS Selma or MHSS Cumberland.

11.1.2. When a Standard Task Order is issued that includes requirements to complete design(s) for MHU(s) that the Contractor has not installed sprinkler systems in before, Contractor shall have not more than 20 days to complete an approved design for the residential fire sprinkler system, including submittal of the design(s) to FEMA and to the MHU manufacturer/DAPIA for approval.

11.1.3. When a Disaster Task Order includes requirements for sprinkler installation in MHU floor plans for which the Contractor has already developed plans that have been approved by FEMA and the MHU manufacturer/DAPIA, the Contractor shall have not more than 5 business days to mobilize and begin work at the location designated in the Task Order.

11.1.4. When a Disaster Task Order is issued that includes requirements to complete design(s) for MHU(s) that the Contractor has not installed sprinkler systems in before, Contractor shall have not more than 10 days to complete an approved design for the residential fire sprinkler system, including submittal of the design(s) to FEMA and to the MHU manufacturer/DAPIA and receipt of approval.

12. BID SUBMITTALS – PROPOSED SCHEDULES:

12.1. Proposals shall include Offeror’s proposed schedules to provide the services. Schedules are required for each of the Scenarios shown in Table 12.1, below.

Include a GANTT chart for each Scenario showing tasks, milestones, meetings, approvals, inspections, tests, and other relevant information from award of Task Order to completion of all work required for that Installation Scenario. Time line should be Days or Weeks from Award of Task Order. Clearly identify elements on the critical path.

Offeror shall indicate the number of days until completion of first unit, the maximum production rate proposed (i.e., units per day or week), the time required to ramp up to that maximum production rate, and the time to completion of all indicated work.

Proposals shall include a description of the resources that will be used to achieve the production rate(s) proposed. Offerors may propose more than one maximum production rate for FEMA’s consideration.

12.2. Standard Installation Task Orders shall achieve the maximum proposed installation rate not more than 3 weeks after award of Task Order when approved designs are available.

12.3. Disaster Task Orders shall achieve the maximum proposed installation rate not more than 14 days after award of Task Order when approved designs are available.

12.4. Schedules for the Modify Heat Trace and Modify MHU Sprinkler Riser Task Orders shall show time to completion of the number of units described in Table 12.1.

Table 12.1. Scenarios

Installation Scenario

Urgency Quantity Installation Location

Design Sprinkler Systems

1 Standard Sprinkler Design N/A

2 Disaster Sprinkler Design N/A

Install Sprinkler Systems

3 Standard 25 Homes MHSS Cumberland or MHSS Selma

4 Disaster 25 Homes A single MHSA, location TBD

5 Disaster 25 Homes Two MHSAs, locations in separate states, TBD

Modify MHU Sprinkler Riser

6 Standard 30 MUHs MHSS Cumberland or MHSS Selma

13. BID SUBMITTALS - SAMPLE DESIGN

Submit one complete sprinkler design package suitable for installation in the home shown in the drawings attached to this solicitation. The example 3 bedroom MHU floor plan shown shall be used as the basis for a design package. Design package shall be complete as described in this solicitation. Include all calculations, cut sheets, and drawings required of a NFPA 13D sprinkler system design. The example home will be available for inspection at MHSS Cumberland during the Pre-Bid meeting described in § Error! Reference source not found., above.

14. REQUESTS FOR INTREPRETATION (RFI):

All requests for interpretation of this solicitation must be submitted in writing to the Contracting Officer. All RFI queries, as well as FEMA’s responses, will be provided by the CO to the questioner, as well as to all parties that have indicated an interest in submitting a proposal under this solicitation.

15. BID SUBMITTALS

Proposals submitted in response to this solicitation shall include information necessary for FEMA to fairly evaluate them. Describe in detail the following:

15.1. Technical Elements of Proposal:

Offeror’s past performance.

Names, roles, qualifications and experience of the Offeror and all proposed subcontractors.

Names, roles, qualifications and experience of Key personnel including Project Managers, Designers, lead installers, and Electricians.

Sample sprinkler system design.

Proposed Schedules

A description of the technical approach that the Offeror proposes to use to satisfy the requirements in a timely and cost effective manner. Ensure that the following items are addressed:

o Understanding of the technical requirements identified in the PWS.

o Detailed approach for providing the technical requirements identified in the

PWS.

o A demonstration of the technical approach used to ensure the work is being performed on time and properly.

o Project management plan.

15.2. Cost:

Cost proposal shall be provided separate from the technical elements of the proposal. Provide pricing for each of the Cost Scenarios shown in Table 15, below.

Table 15. Cost Scenarios

Cost Scenario

Urgency Quantity Installation Location Price Basis

Design Sprinkler Systems

1 Standard Sprinkler Design N/A Per design.

2 Disaster Sprinkler Design N/A Per design.

Install Sprinkler Systems

3 Standard 25 Homes MHSS Cumberland or MHSS Selma. Per home.

4 Disaster 25 Homes A single MHSA, location TBD. Per home.

5 Disaster 25 Homes Two MHSAs, locations in separate states, location TBD.

Per home.

Modify MHU Sprinkler Riser

6 Standard 30 MUHs MHSS Cumberland and MHSS Selma. Per home.

16. EVALUATION CRITERIA

Contract award will be based on best value to the Government.