JEFO 24-035 - ASC Glass II - redacted.pdf

Control No: 24-035 Contractor: Serco Inc.

Service: ASC GLASS II Est Dollar Value:

JUSTIFICATION REVIEW DOCUMENT

FOR EXCEPTION TO FAIR OPPORTUNITY

Supply/Service: Global Logistics and Support Services (GLASS) II

Authority: Federal Acquisition Regulation (FAR) 16.505(b)(2)(i)(C)

Prepared by:

Contracting Officer:

Technical:

Requirements:

Brooke Sheraden Contract Specialist Email: brooke.b. sheraden .civ@army.mil

Jennifer J. Cramblett Phone: (563) 594-8878 Contracting Officer Email: Jennifer.j.cramblett.civ@army.mil

Reviews: I have reviewed this justification and find it adequate to support an exception to fair opportunity.

ASC-LOGCAP

Director of Operations:

Legal Advisor:

Competition Advocate: Rachel M. Phelps Phone: (309) 782-0281

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Service: ASC GLASS II Est Dollar Value:

Department of the Army Justification for Exception to Fair Opportunity

Under Multiple Award Indefinite Delivery Contracts

1. Contracting Activity: U.S. Army Contracting Command - Rock Island (ACC-RI), Rock Island Arsenal, Rock Island, IL 61299-8000.

2. Description of Action: U.S. Army Sustainment Command (ASC) requests a Labor Hour bridge modification to GLASS II task order W52P1J-18-F-0110 with Serco, Inc. to extend the Period of Performance (PoP). ACC-RI will execute this action against General Services Administration's (GSA) One Acquisition Solution for Integrated Services (OASIS) multiple-award Indefinite-Delivery, Indefinite-Quantity (IDIQ) contract GS00Q14OADU132 task order W52P1J-18-F-0110. ACC-RI projects award of the task order modification on Operations and Maintenance funds and Overseas Contingency Operations funds. The Senior Contracting Official (SCO) approved the GLASS II Acquisition Plan on 08 December 2017, in accordance with (IAW) Defense Federal Acquisition Regulation Supplement (DFARS) 207.103(d)(i)(B). No amendment to the plan is required because the Contracting Officer determined the changes resulting from this modification are not significant since the modification only extends existing services through a later PoP. There are no changes to the scope of work.

Task order W52P1 J-18-F-001 0 expires on 12 June 2024, and the modification must be awarded by 05 June 2024 in order to process a Status of Forces Agreement to ensure performance continuation on 13 June 2024. Efforts to conduct a competitive follow-on are underway, but for reasons described in paragraph 5, the new order will not be in place prior to expiration of the current order. This action is a bridge modification to ensure continuation of GLASS for ASC while the Government completes the follow-on acquisition.

The Government did not compete the requirement prior to this action . The current GLASS task order W52P1 J-18-F-011 0 was awarded competitively to Serco, Inc. on 05 September 2018 and expired on 04 September 2021 . The task order has since been extended four times, most recently under modifications P00069 and P00080 as supported by Justification to Fair Opportunity (JEFO) 23-067. The Competition Advocate approved JEFO 23-067 under the authority of FAR 16.505(b)(2)(i)(C) on 01 September 2023 for a six-month extension from 05 September 2023 through 04 March 2024 and a 100-day option from 05 March 2024 through 12 June 2024. JEFO 23-067's paragraph 7, Actions to Increase Competition, stated :

"The Government is currently in the evaluation phase of the follow-on competition and estimates award on or before 22 December 2023."

Service: ASC GLASS II Est Dollar Value:

The Government did not complete the actions to award on or before 22 December 2023 due to further unexpected delays as described in paragraph 5. Accordingly, IAW DFARS 216.505(b)(2)(B), the approval authority for this justification is the SCO, which is one level above the approval authority for the previous justification. The Government is continuing to make progress and expects to award the follow-on task order no later than

. Since the approval of JEFO 23-067, there have been further delays caused by numerous additional Offerer questions requiring additional revisions and three more solicitation amendments. The Government has evaluated six proposals in response to solicitation Amendment 06, which were received on 24 August 2023.

Discussions were opened on 21 November 2023 and Evaluation Notices (EN) responses were received from all Offerers on 07 December 2023.

3. Description of Supplies/Services: This task order will continue to provide staff augmentation positions supporting the Logistics Civil Augmentation Program (LOGCAP) Program Management Office. The LOGCAP mission is vitally dependent upon having a qualified and experienced workforce ready and capable of providing the required support services. Due to the unavailability of military or civilian personnel, the GLASS contract augments key planning and logistics positions at multiple U.S. and forward deployed locations in support of contingency operations, humanitarian operations, and response to emergencies or major disasters. The contract currently includes 60 contractor positions with performance at over 22 locations throughout the Continental U.S. and Outside the Continental U.S. locations. These contractor positions support LOGCAP's mission to plan for and execute contracted support services in conjunction with the Army Field Support Brigades and Contract Support Brigades for deployed forces performing missions directed or supported by the Department of Defense (DoD) during global operations. LOGCAP staff augmentation support is critical in the support of DoD priorities for Army in support of current contingency and humanitarian operations, and the ability to have a rapid response capability to an emergency or major disaster.

LOGCAP and the GLASS contract currently support the following efforts:

a. Humanitarian Operations Support:

I. Enduring Welcome. In partnership with Department of Homeland Security and Department of State, Enduring Welcome assists Afghan nationals who departed Afghanistan to a safe haven and resettlement in the European Area of Responsibility (AoR) and the Arabian Peninsula.

Service: ASC GLASS II Est Dollar Value:

11. Supports interagency response to declared domestic disasters and emergencies, whether natural or man-made, including acts of terror.

b. Contingency Operations Support:

I. European Deterrence Initiative (EDI) in the U.S. European Command AoR.

EDI provides one of the primary funding sources for the U.S. European Command and its service components to maintain a credible force posture in response to the European security environment.

11. Pacific Deterrence Initiative (POI). POI consists of targeted investments that enhance U.S. force posture, infrastructure, presence, and readiness;

specifically in the Inda-Pacific region, west of the international date line.

Ill. Operation Freedom's Sentinel (OFS) in the U.S. Central Command (CENTCOM) and U.S. Africa Command AoRs. OFS mission succeeding Operation Enduring Freedom as part of the larger Global War on Terrorism.

IV. Operation Inherent Resolve (OIR). OIR is the U.S. military's operational name for the international military intervention against the Islamic State of Iraq and Syria, including both a campaign in Iraq and a campaign in Syria, with a closely related campaign in Libya.

V. Operation Spartan Shield (OSS) in the CENTCOM AoR. OSS is a U.S.

Army Central operation in the Middle East. OSS is commanded by U.S.

Army Central and includes units from all service branches.

The modification supported by this JEFO will award a

Service: ASC GLASS II Est Dollar Value:

4. Authority Cited: FAR 16.505(b)(2)(i)(C). The order must be issued on a sole-source basis in the interest of economy and efficiency because it is a logical follow-on to an order already issued under the contract, provided that all awardees were given a fair opportunity to be considered for the original order.

5. Reason for Authority Cited:

a. ACC-RI competitively awarded task order W52P1J-18-F-0110 under the GSA OASIS IDIQ on 05 September 2018, with a PoP of three years. All awardees were provided a fair opportunity to be considered under the original order. This is the fifth use of this exception under this task order. The relationship between the initial order and the bridge extension is logical because the scope and locations remain the same, with a similar estimated cost.

b. Since the last JEFO 23-067 was approved, the Government made progress towards evaluating the proposals received on 24 August 2023 from-· Findings on the initial proposals were briefed to the Source Selection Authority (SSA) on 15 November 2023. The SSA concurred with the recommendation that discussions be opened with all

On 21 November 2023, discussions were opened. Offerers' responses were due 07 December 2023. The prior JEFO 23-067 stated that negotiations would be completed by 17 October 2023, evaluations of final proposals would be completed by 02 November 2023, and award would be on or before 22 December 2023.

From September 2023 to February 2024, the Government experienced delays due to the extensive review needed on each Offerer's proposal, the significant amount of ENs, the extensive review of interim proposals, the initiation of another round of ENs, and not receiving timely responses from the stakeholders and Offerers. ASC did not have the capacity nor the pricing subject matter experience to complete the technical cost realism ENs without pricing help. In February 2024, the Contracting team asked pricing for help again, and the new pricing lead agreed for the pricing team to assist ASC in reviewing ENs, giving recommendations and evaluating ENs in preparation for release to Offerers.

Due to these delays, negotiation objectives were not established until November 2023.

On 07 March 2024, legal and stakeholders met to discuss a path forward. It was decided the Government would leave discussions open while requesting revised proposals and then close discussions once revised proposals were received in April 2024, to ensure receipt of an awardable proposal. Requests for revised proposals were sent to Offerers on 08 March 2024. Due to the amount of industry questions, the Government held telephonic discussions with each Offerer on 19 March 2024 to ensure the Offerers had an open forum to ask questions and gain clarity for submission of quality proposals. After telephonic discussions, separate question and answer documents were sent to each Offerer to safeguard proprietary contractor information. In addition , a redacted, Service: ASC GLASS II Est Dollar Value:

generalized question and answer document was provided to all Offerers to ensure equal access to information. In response to the telephonic discussions, the Government released Amendment 08 to provide updated solicitation attachments to clarify what sites are Civilian Redeployment Center locations. Interim proposals were received on 09 April 2024. Evaluations of these proposals were completed on 28 May 2024. ACC-RI requested final proposals and closed discussions on 28 May 2024. Final proposals were received on 03 June 2024. Evaluations of final proposals are scheduled to be completed

c. The following revised acquisition milestone schedule includes an anticipated award date of

Service: ASC GLASS II Est Dollar Value:

6. Market Research: ACC-RI posted a request for information (RFI) to the GSA OASIS IDIQ for the competitive follow-on acquisition which closed on 18 January 2021. A total of responded to the RFI, with determined to be capable of providing services under the follow-on. ACC-RI subsequently posted two RFI/Draft Request for Task Order Proposals (RFTOPs) on 26 May 2021 and 13 September 2021 wit responding to each RFI/Draft RFTOP and considered capable provided proposals in response to the follow-on solicitation on 24 August 2023 and are considered capable, indicating other contractors can provide the required services, given adequate lead time.

7. Actions to Increase Competition: The Government is currently in the evaluation phase of the follow-on competition and estimates award on or before 29 August 2024.

8. Other Facts:

a. Procurement History

Contract: GS00Q14OADU132 Task Order: W52P1J-18-F-0110, Modification P00069 Contractor: Serco Inc.

Award Date: 01 September 2023 Competitive Status: Not competed; JEFO 23-067

Authority: FAR 16.505(b)(2)(i)(C)

Contract: GS00Q14OADU132 Task Order: W52P1J-18-F-0110, Modification P00060 Contractor: Serco Inc.

Award Date: 01 March 2023 Competitive Status: Not competed; JEFO 23-029 Authority: FAR 16.505(b)(2)(i)(C)

Contract: GS00Q14OADU132 Task Order: W52P1J-18-F-0110, Modification P00057 Contractor: Serco Inc.

Award Date: 30 November 2022 Competitive Status: Not competed; JEFO 23-011 Authority: FAR 16.505(b)(2)(i)(C)

Contract: GS00Q14OADU132 Task Order: W52P1J-18-F-0110, Modification P00033 Contractor: Serco Inc.

Award Date: 03 September 2021 Competitive Status: Not competed; JEFO 21-130 Authority: FAR 16.505(b)(2)(i)(C)

Contract: GS00Q14OADU132 Task Order: W52P1J-18-F-0110 Contractor: Serco Inc.

Award Date: 05 September 2018 Competitive Status: Competitive Award

Contract: W52P1 J-13-D-0041 Contractor: Jacobs Technology, Inc.

Award Date: 28 June 2013 Competitive Status: Competitive Award

Contract: W52P1J-07-D-0010 Contractor: Serco Inc.

Award Date: 16 February 2007 Competitive Status: Competitive Award

Control No: 24-035 Contractor: Serco Inc.

Service: ASC GLASS II Est Dollar Value:

Service: ASC GLASS II Est Dollar Value

9. Technical Certification: I certify that the supporting data under my cognizance which are included in the justification are accurate and complete to the best of my knowledge and belief.

10. Requirements Certification: I certify that the supporting data under my cognizance which are included in the justification are accurate and complete to the best of my knowledge and belief.

11. Fair and Reasonable Cost Determination: I hereby determine that the anticipated cost or price to the Government for this contract action will be fair and reasonable, based on the comparison of historical prices and the IGE IAW FAR 15.404-1(b)(2)(i i) and FAR 15.404-1 (b )(2)(v). This commercial acquisition is exempt from obtaining certified cost or pricing data IAW FAR 15.403-1 (b)(3).

6/4/24 Date: ---------

CRAMBLETT.JENN g~~~~~ ; ~ NIFER.J.12644

IFER.J.1264491912 ~~~~:22024,06_04 11:40:s2-0s-oo·

Jennifer J. Cramblett Contracting Officer

12. Contracting Officer Certification: I certify that this justification is accurate and complete to the best of my knowledge and belief.

6/4/24 Date: ---------

Digitally signed by

CRAM 8 LETT.JENN I CRAMBLETT.JENNIFER.J.12644

FER.J.1264491912 ~~~~:22024_06_04 11 :41:oa -0s·oo·

Jennifer J. Cramblett Contracting Officer

Approval

Contractor: Serco Inc.

Service: ASC GLASS II Est Dollar Value:

Based on the foregoing justification, I hereby approve the procurement of ASC GLASS II services using an exception to fair opportunity pursuant to the authority of FAR 16.505(b)(2)(i)(C), subject to availability of funds, and provided that the services or supplies herein described have otherwise been authorized for acquisition.