JA Typhoon Bavi Additional Stone_Signed_Redacted.pdf

DEPARTMENT OF THE NAVY

NAVAL FACILITIES ENGINEERING SYSTEMS COMMAND MARIANAS

PSC 455, BOX 195

FPO AP 96540-2937

IN REPLY REFER TO:

Ser: N40192-26-JARS-008 23 September 2026

JUSTIFICATION AND APPROVAL

FOR USE OF OTHER THAN FULL AND OPEN COMPETITION

1. Contracting Activity

Naval Facilities Engineering Command (NAVFAC Marianas), Naval Base Guam (NBG), Resident Officer in Charge of Construction (ROICC) Guam, South.

2. Description of the Action Being Approved

Award a contract modification on a sole-source basis to Tutor Perini Corporation– Nan Inc. A Joint Venture (TPC-NAN JV) under contract N62742-22-D-1314-N4019225F4003, the contractor currently performing waterfront and breakwater repairs at Apra Harbor, Guam, for damage sustained from Typhoon Mawar in May 2023. This contract modification is for critical emergency waterfront stabilization repairs at Apra Harbor for damage caused by Typhoon Bavi using $21,000,000.00 fiscal year 2026 (FY26) funding. This modification will be executed under the authority of 10 U.S.C. § 3406(c)(1), Unusual and Compelling Urgency. This period of performance for this modification is not expected to exceed one year.

3. Description of Supplies/Services

This modification covers additional work required to make immediate emergency waterfront stabilization repairs for damage caused by Typhoon Bavi to the Glass Breakwater in July 2026. The survey and placement of 10k tons of stone procured under the initial modification issued for emergency repairs due to Typhoon Bavi has been completed. Based on the results of the survey, it was determined that an additional 27k tons of stone are required to complete emergency stabilization requirements. This FY26 emergency waterfront stabilization repair constitutes a bona fide need of FY26 and its estimated value is $21,000,000.00 which is approximately three (3) percent (%) of the total contract value. Under this modification, the contractor shall procure/place additional critical armor stone to mitigate active breaches caused by Typhoon Bavi.

4. Statutory Authority Permitting Other Than Full and Open Competition

The statutory authority permitting other than full and open competition is 10 U.S.C. § 3406(c) as implemented by FAR 16.507-6(b)(1): the agency need for the supplies or services is so urgent that providing a fair opportunity would result in unacceptable delays.

5. Rationale Justifying Use of Cited Statutory Authority

The Glass Breakwater is a rubble-mound gravity coastal structure initially constructed circa 1946 to provide a safe harbor to Outer Apra Harbor and Inner Apra Harbor. Apra Harbor is strategic to the Indo-Pacific region for military logistics, operations, and mission readiness. The Glass Breakwater provides safe passage for all marine vessels and safe harbor for all waterfront structures within Apra Harbor. The critical infrastructure provides coastal defense from sea state conditions in the Philippine Sea that would otherwise render safe passage in Apra Harbor inoperable. This breakwater, at approximately 2.9 miles long, is the longest and largest breakwater owned by the Navy and one of the largest breakwaters owned by the DoD.

Historically, the breakwater has been repaired or modernized after significant wave events. The last repair project on the breakwater was competitively awarded in 2025, to TPC-NAN JV, after Typhoon Mawar, and has not yet been completed. In its deteriorated condition, Glass Breakwater is progressing towards failure as defined by the United States Army Corps of Engineers (USACE). In its current condition approximately one-third of the breakwater has “failed” which is defined by USACE as the loss of 20% or more by volume of the armor stones on the outside of the breakwater. The remaining two thirds of the breakwater is in a condition of “intermediate damage”, which is defined by USACE as loss up to 15%, by volume of the armor stones. In May 2024, further deterioration was discovered which indicated the breakwater continues to progress toward “failed” damage criteria despite the lack of significant weather events. This progression towards failure indicates the breakwater is at significant risk of partial breach, which will eventually lead to full breach. Due to the high potential and frequency of storms within this region, another storm could emerge at any time, expediting further breakwater damage, and thereby limiting the military logistics and operations in the region. Since Typhoon Mawar, Guam has been narrowly missed by numerous storms.

According to “Anderson Air Force Base,” tropical storms and typhoons can occur anytime of the year, though a typical typhoon season for Guam runs from late June through December (when Pacific Ocean the water temperatures are at their warmest), with the peak of the typhoon season occurring between late August through mid-November. In their annual seasonal forecast National Oceanic and Atmospheric Administration (NOAA) predicts an above-average 2026 typhoon season due to El Nino. As such, it is imperative that Glass Breakwater maintains its coastal defense capabilities to ensure accessible marine passage through Apra Harbor. This is in the best interest of the United States.

This modification is a mission critical project for additional emergency waterfront stabilization repairs for damage caused by Typhoon Bavi, that are in addition to the stabilization repairs currently being performed by TPC-NAN JV under contract N62742-22-D-1314-N4019225F4003. Any delay in completing the emergency waterfront stabilization repairs for damage caused by Typhoon Bavi will delay all successive construction activities and will not be recoverable. Delay in executing the emergency waterfront stabilization repairs the subject of this modification will result in serious injury – financial and operational—to the Government, i.e., will negatively impact progress on the current Glass Breakwater repair project, which in turn affects military logistics, operations, and mission readiness in the Indo-Pacific region, as Apra Harbor serves as the only marine passage for the Department of Defense (DoD) on Guam.

Guam is an important strategic location for the United States’ national defense in the Indo-Pacific. The incumbent contractor, TPC-NAN JV, is already mobilized and performing repair work on the Glass Breakwater and is best suited to timely complete the emergency stabilization repairs, the subject of this modification, thereby mitigating the threat to military readiness, national security and port safety at Apra Harbor, Guam. In addition to the foregoing, Glass Breakwater has physical constraints prohibiting the efficient and effective presence of multiple contractors. Finally, the emergency waterfront stabilization repairs required under this modification were not required at the time of award of contract N62742-22-D- 1314-N4019225F4003 and are now required to mitigate further damage to the Glass Breakwater.

6. Description of Efforts Made to Solicit Offers from as Many Offerors as Practicable.

Due to the unusual and compelling urgency, standard synopsizing was not conducted. Soliciting other sources is not practicable for the reasons stated above.

7. Determination of Fair and Reasonable Cost

The Contracting Officer has determined the anticipated cost of $21,000,000.00 to the Government for the emergency stabilization repairs required under this modification to the Glass Breakwater, and covered by this J&A, will be determined fair and reasonable based on the evaluation of the proposal against the Independent Government Estimate (IGE) and historically competitive rates established under contract N62742-22-D-1314-N4019225F4003.

8. Actions to Remove Barriers to Future Competition

This J&A will not be used as a basis to circumvent competition for future, non-urgent requirements. Future permanent restoration phases will be competed to the maximum extent practicable once the site is stabilized.