Attachment_3_-_TI_Manual.pdf

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Technical Instruction (TI) Manual

DeCA Whole Facilities Maintenance Services

August 2014

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Table of Contents

1.0 General

1.1 Overview

1.2 Unscheduled Maintenance TI(s)

2.0 Procedures

2.1 SOO Generation

2.2 Contractor Processing

2.3 Government Processing, Client Office

2.4 Government Processing, Contracting Office

2.5 Analysis

2.5.1 Incidental Construction

2.5.2 Fair & Reasonable Determination

2.5.3 Government Furnished Equipment (GFE)

2.6 Approvals

2.6.1 Contractor

2.6.2 Client/DeCA

2.6.3 Contracting Officer

2.7 Ordering Procedures

2.8 Helpdesk

2.9 TI Implementation

2.9.1 Contracting Office

2.9.2 Contracting Officer’s Representative

2.9.3 Contractor

2.9.4 Client

2.10 Material Inspection and Receiving Report, DD Form 250

2.11 TI Closeouts

3.0 Templates

3.1 Technical Instruction Template

3.2 Technical Analysis

3.3 Technical Instruction DD250 Template

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1.0 GENERAL

1.1 Overview

The Technical Instruction (TI) is a contract mechanism that allows the government to define unscheduled in-scope work, in addition to preventative maintenance, to be performed during the performance period, and to control each TI as an individual project under the contract. This manual describes the process for identifying the work, contractor pricing and negotiation for each TI, and authorization to perform those tasks. Figure 1 shows how the DeCA unscheduled maintenance (TI) process is to function. As shown below if the action is under $2,500.00 and an emergency as listed under Appendix 16 then the Contracting Officer Representative (COR) has the authority to approve the change. Otherwise, if not an emergency and under $2500 the Field Engineer (FE) will approve. If it is over $2,500.00 then the Contracting Officer (CO) will be required to approve the change per the recommendation from the Field Engineer (FE).

Federal Acquisition Service

TI Determined to be construction

Quote

Approved in vendor system

DeCA Facility Maintenance – Contract Management (Funded TIs)

In vo ic e

S p e c ia lis t

C O

V e n d o r P

M D e

A li e n t

Funded TIs

Vendor

Performs

Work

C o n tr a c t

S p e c ia lis t

Signs off on

DD250

Submits invoice into

ITSS

Approves

Invoice

END

A

Requests

Work in

Vendor

System

Provides

Quote

Reviews and

Balances

Invoice

Approves

Invoice for

Payment in

ITSS

If under $2500 COR approves. If over $2500 then FE approves.

Under

$2500

Over

$2500

Reviews TI over $2500

PBS

Approves TI over

$2500 & Makes

Construction Determination

YES

Provides

Notice to

Proceed

Non-Funded follow the

Funded-TI process..

Creates

MOD

NO

Joint step between

Contract Specialist and PM. MOD may reflect multiple TIs.

Creates MOD is a simultaneous process

Figure 1- DeCA Unscheduled Maintenance (TI) Process

The TI process is initiated when the Government /COR generates and provides to the contractor a description of the expected outcome of the desired task called a Statement of Objectives (SOO). Upon receipt of a SOO on a TI form, the contractor then develops a detailed Statement of Work (SOW) including all labor and materials proposed to accomplish the SOO.

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The Government will review the contractor's completed TI form for price reasonableness, technical approach, and any potential facility impact. The quote may be negotiated and resolved prior to approval of the TI. Work on the TI occurs after all necessary approvals are received and the Contracting Officer (CO) or Contracting Officer's Representative (COR), based on the dollar value of the accepted proposal, and has issued a notice to proceed.

A TI is considered closed after the Government has acknowledged acceptance, the contractor has invoiced, the Government has paid the invoice, and all unsettled issues have been resolved.

Work on a TI determined to be construction will be issued by the authorized/approved by the GSA CO in a format to be identified at the time the task order is issued.

1.2 Unscheduled Maintenance (UM) TI(s)

There are three (3) types of Unscheduled Technical Instruction response times. The process varies depending on the type of TI response as listed below:

Emergency: The Contractor has 2 hours, starting from the time the call is placed into the call center, to respond to an Emergency call and must repair the problem within 24 hours. To accomplish this, the contractor will establish a FFP proposal for the repair effort and provide that quote to the government. Upon acceptance of the proposal, the CO or COR, depending on the price, will authorize the agreed-upon total price to repair.

A TI form will be generated to document the emergency activity. The contracting office must receive the signed Emergency TI form from the COR within 48 hours after verbal approval. The GSA Contracting Officer service will be available 24/7/365 for emergency TI approvals only.

All other Unscheduled Maintenance repair tasks shall be approved by the GSA CO or COR, depending on the proposed TI price, prior to initiation of the work during normal working hours. For the purposes of this requirement, a normal business day is Monday through Friday excluding holidays; and normal business hours are 0700 hours through 1700 hours (local time).

The Contractor will provide the quote/SOW for an Emergency TI as soon as possible to expedite work accomplishment.

Priority: The Contractor must respond by noon (local time) the next business day for all Priority calls and work normal hours until task is complete.

The Contractor will provide the quote/SOW for a Priority TI in 2-7 calendar days to expedite work accomplishment.

Routine: The Contractor must respond and schedule all Routine Maintenance calls no later than seven (7) days after receipt of the initial call.

The Contractor will provide the quote/SOW for a Routine TI in 7-15 calendar days to expedite work accomplishment.

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All unscheduled maintenance calls will be worked continuously until complete and only emergency calls can involve overtime labor rates.

1.2.1 Construction, Repair and Alteration

Construction, Repair and Alteration: Per the Davis Bacon Act (DBA), there are very specific requirements for work to be considered construction repair and alteration.

Because of the specific requirements in the DBA, such construction TIs will be handled through the use of separate a TI. Tasks performed on this facilities maintenance services contract is considered construction in accordance with the PWS Para 2.3.4.

Davis–Bacon Act does not apply for TIs under $2,000 threshold and therefore, those TIs will not be processed in accordance with paragraph 2.0.

The Contractor shall include in the TI all construction phases required to meet the mission objective. Separate phasing on multiple TI(s) is not allowed.

2.0 PROCEDURES FOR NON-CONSTRUCTION TIs

In conjunction with the parameter in this Manual and the PWS the following process will be applied.

2.1 Statement of Objectives (SOO) Generation

The government will communicate the desired objective in measurable. Either the store Contracting Officer Representative (COR), DeCA Field Engineer (FE), or Lackland Engineering Staff, develops the SOO. The COR communicates the SOO to the Contractor‘s help desk/call center either by telephone or e-mail.

The SOO will define the objective, e.g. fixing the water leak in the bathroom, refrigeration unit 4, in rack 1 is noisy; or the temperature in display case 1 is 54 degrees.

The SOO may be a short paragraph or a multiple page multi-objective series of requirements all linked to the required outcome(s). The main point is that the SOO gives the contractor latitude in defining the solution – a desired feature of performance-based contracting. An example of what not to do follows:

Background: the floor of a garage is heaving and affecting the ability of the garage door to close and seal.

Approach 1 - have contractor replace concrete floor so as to ensure proper door closure, (ultimate cost $2,500.00).

Approach 2 - have contractor repair floor to enable a proper door seal, (ultimate cost $900.00).

Explanation: in approach 1 the government directed the contractor, who complied and replaced the floor. The job took 3 days and impacted egress and ingress. The second approach enabled the contractor to get at the root cause of the problem, construction material settling under the slab. The solution chosen was to pump material back under the slab reestablishing the original construction finish.

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The COR communicates the SOO to the Contractor‘s help desk/call center either by telephone or e-mail.

2.2 Contractor Processing

The COR forwards the completed SOO to the contractor help desk. The contractor develops the TI number which is the site number (118), hyphen alphabetical code for TI type (EM or UM) and the Reference ID (RID) number (345676). Refer to the TI form instructions on completing each block. (Example: 118-UM-345676)

Upon receipt of the SOO, the contractor commences the proposal process as an overhead task or non-chargeable event. The COR and contractor personnel may discuss work to be accomplished to aid the contractor in developing a detailed Statement of Work (SOW) including all materials proposed to accomplish the SOO. The contractor is required to propose the labor categories and the quoted hours to be expended in accomplishing the SOO. The Contractor may be requested to provide adequate price quote (3 quotes) for material and/or subcontracted work.

The contractor is required to use the fixed rates in this contract for proposals and reasonable level of effort and material costs. The COR is responsible for ensuring adequate detail is supplied in the quote and analyzing the level of effort to recommend approval before approving the TI.

2.3 Government Processing, COR

The COR, upon receipt of a contractor quote in excess of $2,500.00, conducts a Technical Analysis (TA) and writes their recommendation to the Contracting Officer. The TA shall include the COR‘s verification of all contractor labor hours and material dollars included in the Price Schedule can also base their analysis either by the COR's historical experience in similar maintenance situations or the RS Means Standard. The COR will justify all variances in estimated hours and material pricing before giving approval.

Justifications should be documented in the Recommendation Section of the TA form.

The COR can attach supporting market research to justify the TA recommendation.

Upon completion (including signature by the COR) of the TA, the COR presents the TA and TI to the Chief of Sustainment for approval (if in excess of $25,000.00), or directly to the Contracting Office (under $25,000.00).

2.4 Contracting Office

The Government will review the contractor's completed quote price, reasonable level of effort and any potential facility impact. Any items of the quote may be discussed between the CO, COR, and contractor for resolution. Start of work occurs after all necessary approvals are received, and the COR or the Contracting Officer has signed the TI form or has issued a Notice to Proceed.

2.5 Analysis

2.5.1 Incidental Construction

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The CO reviews each TI to determine if a TI is classified as construction. Construction under this facilities maintenance services contract may be considered incidental to the service being supplied. This does not relieve the contractor of paying appropriate wages in accordance with appropriate DOL minimum wage rates.

2.5.2 Fair and Reasonableness Determination

The CO performs a determination of price fair and reasonableness after the COR has completed the technical analysis and signs the TI form. The CO can rely on the COR’s completed technical analysis and recommendation. The COR organization is the subject matter expert for the service under this contract. The Contracting Officer need only confirm that the Contractor has used the correct Contract rates for labor hours and that the task analysis recommendation supports the CO determination. The CO may discuss or further negotiate the price of the TI. If materials or subcontracted work is quoted/used, the Contractor may be required to show quotes from at least three sources (when available) for back up documentation and pricing negotiation.

2.5.3 Government Furnished Equipment (GFE)

The salvage value of Government Owned or Furnished Property or Equipment (GFE) replaced during the course of worked performed under a Technical Instruction (TI) shall revert to the Contractor and be reflected in the FFP of the TI.

2.6 Approvals

TI “Approval” means the Government has reviewed the scope of work, schedule, price, and other administrative documents needed for that TI and has determined the TI conforms to contract requirements and the pricing is fair and reasonable.

2.6.1 Contractor

The contractor, by presenting the TI for government approval, is confirming that the contractor will perform the TI in the manner described by the SOW and for the firm fixed price stated.

2.6.2 Contract Officer Representation (COR)

The COR, as the subject matter expert, is responsible for determining the Contractor's TI submission is technically sufficient to accomplish the SOO requirement. The COR has Delegated Authority via COR delegation letter, to approve and authorize all unscheduled TIs up to $2,500.00. The COR is also responsible for determining that the labor proposed, material proposed, and SOW will likely result in a successful outcome.

2.6.3 Contracting Officer

The CO, in signing the TI form (including and in excess of $2,500.00), is confirming that the TI as presented is fair and reasonable pricing, is IAW FAR/DFAR, and in the best interest of DeCA, the commissary patrons and the US Government.

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2.7 Ordering Procedures

The CO is the only government representative authorized under this task order to obligate the government except for the COR based on delegation. The COR possess limited delegated authority to issue verbal authorizations within the Micro Purchase threshold ($2,500.00 for repair services only as defined within the scope of the contract).

All TIs shall be within the scope of this contract and shall be placed using only the following ordering procedures. Failure to follow these procedures may result in an unauthorized procurement and may be subject to the ratification process.

2.8 Helpdesk:

Contractor processing will be broken into two distinct maintenance types (Emergency and Unscheduled). The helpdesk is responsible for receiving client requests 24/7, triaging requests to determine proper maintenance type classification and follow-up request processing. The contractor shall provide helpdesk services as defined in the PWS to properly categorize and record service requests.

The help desk shall accumulate unscheduled service requests for each site, in preparation for the next maintenance opportunity at that site. The next maintenance opportunity is defined as the next priority maintenance request or preventative maintenance visit at that site (NLT 7 days).

For all TIs other than emergency, the helpdesk shall, within 24 hours of a maintenance request, provide to the request originator a schedule date and time window when maintenance services will be provided to enable the commissary to arrange for contractor access. The helpdesk shall provide a weekly aging list for each site. The helpdesk will follow the Emergency Protocol Procedure Instructions found in Appendix 16.

2.9 Task Implementation:

2.9.1 Contracting Office: (TIs above $2,500)

The Contracting Officer authorizes the TI by issuing a Notice to Proceed to the

Contractor, whether verbally/email for emergencies or by approving the TI in the

Government TI System, releasing it for work.

2.9.2 Contracting Officer's Representative: (TIs at or below $2,500)

The contractor is responsible for working with the COR for scheduling of the TI work at the facility.

2.9.3 Contractor:

For all TIs other than emergency, the Contractor upon receipt of Notice to Proceed, immediately schedules the start of work. Once the SOO has been completed, the Contractor is to produce for signature by the Quality Surveillance Representative (QSR)

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/ COR, a completed DD250. The Contractor is to attach the signed DD250 to the TI invoice, to be submitted electronically to GSA's designated finance center.

2.9.4 Contract Officer Representation (COR):

The COR, upon Notice to Proceed, will advise the affected commissary, and the Quality Surveillance Representative (QSR).

2.10 Material Inspection and Receiving Report, DD Form 250

The DD Form 250 is not a cost document, and signing the document only acknowledges that the task is complete. The signature of a DeCA representative on the DD Form 250 acknowledges that the contractor has completed a task.

A DD Form 250 is to be completed by the Contractor and signed by a DeCA representative after the work has been completed. The DD Form 250 must be signed within 5 days of the completion of the work. The DD Form 250 may be signed by a COR, QAE, or other store personnel aware of the maintenance situation and having knowledge the contractor has performed the work. The signature on the DD Form 250 can be the same as the signature on the Technical Instruction that initiated the work.

The quality of the services provided is handled through the Quality Assurance Evaluation process. The date and time of service shall be by mutual agreement of the COR and the Contractor. Acceptance of all work executed under this agreement shall be by joint inspection by the Contractor and the COR.

2.11 TI Completion Process

Once tasked work is complete and GSA confirms the DD250(s) and all attached supporting documents are in order, the PM obtains CO approval to pay the invoice against the TI in ITSS. Final payment of invoice completes the TI process.

3.0 TEMPLATES

3.1 Suggested, Technical Instruction (TI) Format:

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SAMPLE ONLY

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Instruction for Completing TI Form:

The following step by step procedure is to be used by the contractor Help Desk representative to create the new TI form:

Item 4A: Use the dropdown to enter the type of call; Emergency or Unscheduled.

(note an arrow has been placed on the ordinal reference template to designate the location)

Item 4E: Enter the numerical site location. (note store numerical site location are provided in 5 A)

Item 4I; Enter the RID number.

Item 4K; Enter the dispatcher's initials

Item 5I; Enter the maintenance group number

Item 5K; Enter the ticket number.

Item 6B; Enter the store location and state

Item 6J; Enter the store telephone number

Item 7B; Enter the store street address

Item 8B; Enter the store’s CORs name, email, and telephone numbers

Item 8B; Enter the DeCA FE name, email, and telephone number

Item 10B; Enter the Contractor’s POC name, email, and telephone number

Item 12B; Enter a short description as a TI title

Item 15A; Enter the SOO. The SOO will likely be provided in an e-mail from the SMP, COR at the store, or submitted to GSA contracting.

Item 15H; Enter the specific tasks (Statement of work (SOW)) to be performed in the maintenance process.

Item 17C & 17H; Enter the estimated start and end dates of the work to be performed ( mainly used for work lasting more than a day)

Item 20B; Enter the subcontractor or technicians name & telephone number who provided the hours and material information used to create the Firm Fixed Price Proposal.

Item 24-30A; Use the dropdown to select a trade for regular hourly rates and/or use the dropdown to select a trade for overtime hourly rates.

Item 34-43A; Enter material description, quantity and unit dollars.

Items 54-62A-J; The contractor forwards the completed TI to the COR who for orders at or below the $2,500 micro purchase threshold completes the technical analysis, if favorable, the COR signs Item 49A confirming the TA was completed and is recommended. Orders above $2,500 require Contracting Officer approval after COR signature of Item 49A and are forwarded to the GSA Contracting Office for approval.

(Note 1 all remaining sections will auto populate in Block C).

(Note 2 the DD250 will auto populate from the data entered on the TI).

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3.2 Technical Analysis Template:

Recommended Statements:

(1) I have reviewed the above costs and have determined the costs to be fair and reasonable.

(2) I have reviewed the above costs and have determined the costs to be high and recommend the Contracting Officer negotiate to $____________, which I have determined to be more reflective of the current commercial marketplace pricing.

(3) I have reviewed the above costs and have determined the costs to be unacceptable and not representative of either the RS Means Standards or historical data.

(4) I have reviewed the above costs and have determined the costs to be fair and reasonable. I recommend you add the following scope to the DeCA SOO:

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3.3 Acceptance Document: