Draft_TI_Manual_2015.docx

Appendix X

Technical Instruction (TI) Manual

DeCA Whole Facilities Maintenance Services

April 2014

Table of Contents

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.

Figure 1- DeCA Unscheduled Maintenance (TI) Process

The TI process is initiated when the 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.

The Government will review the contractor's completed TI form forform 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, hasand 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 CO in a format to be identified at the time the task order is issued.

1.2 Unscheduled Maintenance TI (s) Comment by NicoleHaines: This needs to match with the 4 types and definitions we finalized in PWS--- just a note to cross-check- Reference the PWS paragraph perhaps

There are four (4) types of Unscheduled Technical Instructions. The process varies depending on the type of TI:

Emergency: The Contractor has 2 hours 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. Comment by NicoleHaines: From when?

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 emergencies 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).

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.

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

Minor Construction: There are very specific requirements for work to be considered minor construction. Because of these specific requirements, minor construction work will be handled through the use of separate task orders. Work performed on this DoD facilities maintenance services contract is considered minor construction if: Comment by NicoleHaines: Need to match with PWS section (cross check) and reference PWS paragraph here. How will PBS do an “order” if not an IDIQ—can they do stand along based on the solicitation? Need to discuss. This section made me realize this might be a gap.

More than 32 construction manhours are required to complete the task (including all phases). The following specific regulatory considerations apply depending of the labor classifications being used:

o Service contract Act consideration 52.219-14(b) (1) o Davis Bacon Act considers 52.219-14(b) (3) or (4)

The total price of minor construction is less than or equal to $750,000 per project.

The contract under which the minor construction is being performed is: Comment by NicoleHaines: I’m not sure what the intent of this and the 2 bullet is—what does it mean?

· Principally for services but also requires a substantial amount of construction, alteration, renovation, painting or repair work; and

· The aggregate dollar value of such work exceeds or is expected to exceed $2,000

Construction Phasing: Contractor shall include all construction phases required to meet the mission objective in each TI for minor construction. Separate phasing on multiple TI(s) is not allowed.

Tasking: When/if minor construction is tasked under this contract(s), it shall be initiated by a Contracting Officer (CO) with delegated authority for construction contracting. The CO will issue a separate task order for minor construction requirements under the contract, which will cover the entire geographic location of a specific Maintenance Group. Comment by NicoleHaines: What is a “tasking”

Ancillary Repair and Alterations by definition. Comment by NicoleHaines: Is AR&R different than “minor construction”? should be clear

Tasking for AR&A type maintenance under this contract/task orders excludes:

1. Major or new construction of buildings, roads, parking lots and other facilities;

2. Complex repairs and alterations of entire facilities or significant portions of facilities, and

3. Architect-Engineering Rates for labor categories utilized under this maintenance type shall be subject to Davis-Bacon Act (DBA). Comment by NicoleHaines: We would exclude AE service – is that the intent of this bullet?

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

2.0 PROCEDURES Comment by NicoleHaines: When does IGCE come in – does that need to be noted here?

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.

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, hyphen alphabetical code for TI type and the Reference ID (RID) number. Refer to the TI form instructions on completing each block.

Upon receipt of the SOO, the contractor commences the proposal process. 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 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 Contractor‘s completed 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 technical analysis shall include the COR‘s verification of all contractor labor hours and material dollars included in the UPB and 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 Government Processing, 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

The CO reviews each TI to determine if a TI classified as Repair and Alteration (R&A) rises above the incidental construction threshold of 20%. An R&A TI rising above the 20% incidental construction threshold is referred to the appropriate GSA officer for construction processing. Comment by NicoleHaines: 20% of what? This section is vague or perhaps just needs a little background. Match to PWS as well.

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.

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

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 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.

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.

2.9 TI Implementation: Comment by NicoleHaines: What is TI Implemenation vs TI process?

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 for emergencies or by approving the TI in the CMMS or ePM 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 commissary.

2.9.3 Contractor:

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

The COR, upon Notice to Proceed, will advise the affected commissary, and the QSR. Comment by NicoleHaines: Spell out

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 Closeouts

Once work is complete and GSA confirms the DD250(s) and all attached support documents are in order, the PM obtains CO approval and enters the approval into ITSS. This closes the TI. Comment by NicoleHaines: Does a TI gets closed in ITSS? Or?

3.0 TEMPLATES

3.1 Suggested, Technical Instruction (TI) Format:

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, Priority, Routine or Repair/Alteration. (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 Appendix 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.

· IItems 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).

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:

3.3 Acceptance Document:

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TI Determined to be construction

Quote Approved in vendor system

DeCA Facility Maintenance – Contract Management (Funded TIs)

Invoice Specialist

CO

Vendor

PM

DeCA Client

Funded TIs

Vendor Performs Work

Contract Specialist

Signs off on DD250

Submits invoice into ITSS

Approves Invoice

END

A

Requests Work (SOO) in Vendor System

Provides Quote (SOW)

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

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