RAF Lakenheath-Feltwell NOO-final.pdf

Notice of Opportunity RAF Lakenheath and RAF Feltwell, UK

Notice of Opportunity (NOO) Royal Air Force Lakenheath and Royal Air Force Feltwell, UK

Energy Savings Performance Contract (ESPC) Task Order Under the Department of Energy’s (DOE) Fourth Generation

ESPC Indefinite Delivery Indefinite Quantity (IDIQ) Contract Solicitation: SP0604-25-R-0402

1. Notice: The Defense Logistics Agency (DLA) Energy, on behalf of Royal Air Force (RAF) Lakenheath and Royal Air Force Feltwell, United Kingdom, as combined is hereby referred to as “RAF Lakenheath” plans to award a single ESPC Task Order (TO) using the DOE Fourth-Generation ESPC IDIQ contract. DLA Energy invites the current 20 DOE Fourth- Generation ESPC IDIQ contract holders (also referred to as Energy Service Companies (ESCOs), to submit a written response to this Notice of Opportunity (NOO) for DLA Energy’s consideration. Only those 20 DOE Fourth-Generation ESPC IDIQ contract holders/ESCOs are eligible for award. To be clear, in the event of a resultant TO award, the award will only be made to one (1) of the 20 DOE Fourth-Generation ESPC IDIQ contract holders/ESCOs as the prime contractor.

2. Authority: The DLA Energy authority is in accordance with 42 U.S.C. §8287, the Federal

Acquisition Regulation (FAR) 23.205 “Energy-savings performance contracts”, Energy Policy Act of 1992 (EPAct), and DOE Final Rule, 10 CFR 436 Subpart B – Methods and Procedures for Energy Savings Performance Contracting and Energy Policy Act of 1992 (EPA, April 10, 1995).

3. Project Approach:

RAF Lakenheath, to include its Geographically Separated Unit (GSU) RAF Feltwell, is interested in a comprehensive project:

- to achieve progress toward a reduction in energy intensity and progress toward

Carbon Free Energy (CFE) goals in line with EO 14057: Catalyzing Clean Energy Industries and Jobs Through Federal Sustainability.

- address the installation’s most pressing mission-level gaps and resiliency needs that impact crucial facilities to ensure energy security and resilience in line with 10 USC § 2911.

- address specific infrastructure deficiencies, in line with 42 U.S.C. § 8287 utilizing the DOE Fourth-Generation ESPC IDIQ contract.

In implementing EO 14057, each agency shall prioritize actions to achieve carbon pollution-free electricity goals, achieve net-zero emissions, and reduce greenhouse gasses to reduce waste, cut costs, enhance the resilience of Federal infrastructure and operations, and enable more effective accomplishment of its mission.

By enhancing energy assurance, to ensure energy systems are robust, secure, and mission-ready RAF Lakenheath and RAF Feltwell will make progress towards meeting Air Force and Federal mandates to address its most pressing mission-level resilience needs that impact the critical facilities at RAF Lakenheath and RAF Feltwell. To achieve its energy conservation goals, RAF Lakenheath is interested in any Energy Conservation Measure (ECM) defined in Attachment J-3 of the DOE Fourth-Generation ESPC IDIQ contract, with the exception of two (2) technical categories: TC.15 – Energy Cost Reduction through Rate Adjustments, and TC.20 – Future ECMs. RAF Lakenheath and RAF Feltwell, along with any other ESCO-identified opportunity authorized under the DOE Fourth-Generation ESPC IDIQ, is specifically interested in evaluating the following ECMs:

• Renewable energy generation with the potential of energy storage, standby generation and microgrid controls to support critical and essential loads

• Energy Management Control Systems (EMCS) upgrades retrocommissioning

• Monitoring based commissioning

• Potential for net-zero buildings

• Deep energy retrofits

The selected ESCO shall be responsible for evaluating the potential inclusion of an

Energy Sales Agreement (ESA) as part of an ESPC and providing a business case analysis comparing the benefits of an ESA within an ESPC to that of a typical ECM, as part of its Preliminary Assessment (PA).

The selected ESCO shall be responsible for the operation, maintenance, repair and replacement of all installed ECMs for the life of the contract, pursuant to the DOE Fourth- Generation ESPC IDIQ and any resultant TO, and as required by 42 U.S.C. § 8287. Be advised that the resultant project shall be accomplished in compliance with Air Force Civil Engineer ESPC 2024 Playbook, published 19 August 2024, and Air Force Guidance Memorandum (DAFGM) 2023-32-01 (27 June 23) for Civil Engineer Control Systems Cybersecurity along with the current version of UFC 4-010-06 Cybersecurity of Facility Related Control Systems.

Attachment 1 – RAF Lakenheath and RAF Feltwell data provides the list of buildings available for inclusion in the project scope and their pertinent data and available energy consumption information. Available for inclusion in the project scope at this time are 100 facilities at RAF Lakenheath and RAF Feltwell encompassing 2,881,119 square feet. This information is offered only for project scoping potential in response to this NOO. The Government may remove or consider additional buildings at RAF Lakenheath and RAF Feltwell during the project development phase and include such added buildings in any resultant project upon the receipt of a good business case analysis that illustrates a benefit to the Government. Attachment 1 also provides a list of measures currently implemented on RAF Lakenheath and RAF Feltwell facilities.

The selected ESCO will be required to develop a formal Preliminary Assessment (PA) and Investment Grade Audit (IGA), as applicable, in accordance with the DOE Fourth

Generation ESPC IDIQ. The selected ESCO shall be responsible for determining the actual energy consumption during the PA and IGA phases. The selected ESCO shall review each building during the PA and illustrate its Measurement & Verification (M&V) approach.

During development of the PA, the selected ESCO shall be required to provide a white paper of its proposed escalation rate approach for the Government’s review and approval. The PA shall specify the building metering requirements and the ESCO’s approach to utilizing existing meters or installing new meters to ensure compliance with the Air Force 2022 ESPC Playbook, published July 6, 2022. It will be the ESCO’s responsibility and cost to install the necessary meters during the IGA to satisfactorily meet the M&V requirements of the Air Force Civil Engineer ESPC Playbook and other applicable guidance.

DoD installations and facilities in the UK are governed by the Status of Forces

Agreement (SOFA) (Attachment 2) and by the 1973 Cost Sharing Agreement (Attachment 3), which generally regulate the utilization, function, consignment and construction with U.S.

funds of infrastructure of interest to the United States Visiting Forces (USVF) stationed in the UK. The United Kingdom makes installations, structures, and public utility services available to the USVF for defense purposes. The Defence Infrastructure Organisation (DIO) is the UK authority for the performance of construction, renovation, and maintenance of RAF facilities, including those occupied by USVF.

Pursuant to Paragraph 3, Use of Labor and Materials, Subparagraph (2), of the 1973 Cost

Sharing Agreement, when the United States Forces consider that circumstances make it desirable, the United States Government has the option to self-perform construction and maintenance work. The U.S. Air Force intends to pursue this self-performance option, which requires written notification to the UK Ministry of Defense (MOD) of United States Visiting Forces (USVF) desiring to self-perform the ESPC project. Upon IGA submittal, a second notification to MOD for project self-performance will be required using MOD Call-Off Schedule 28 Module A - Leaflet AL-07 Form 29 (a.k.a “Form 29”; see Attachment 4). The selected ESCO will be required to assist the U.S. Air Force to complete Form 29.

Pursuant to the DOE Fourth-Generation ESPC IDIQ, Section C.12, se, any applicable and allowable credits, rebates, and incentives from the United States Government, Host Nation, utility companies, and private companies shall be pursued by the ESCO to the maximum extent practicable. The selected ESCO shall also be responsible for assisting the installation in submitting any and all documentation for applicable incentives and possible funding (e.g., AFFECT Grant, ERCIP funding, etc.) to assist in the financial viability of this project.

In any resultant IGA, the selected ESCO will be required to include and illustrate the clear lines of demarcation between its new project and any existing energy conservation projects as noted in Attachment 1. The project M&V Plan shall clearly illustrate the savings to assure the Government review team that any energy savings achieved are the result of the ESCO’s installed ECM(s) under the resultant project and are not the result of an existing or separate energy project or some other circumstance unrelated to the resultant project.

The ESCO shall comply with any and all security requirements to include requesting waivers for unescorted access, scheduling and working with escorts, and providing U.S. Citizens with security clearance as required to work in specified secure areas. ESCOs may be required to submit Installation Access Requests (IAR) or USAFE IMT 79’s and/or to undergo a background check to receive base access and/or security clearances. Non-UK and non-US citizens may be required to submit timely Request for Visit to respective embassies in the UK prior to the Government granting base access passes. The ESCO shall submit access requests at least 60 business days prior to arrival. The ESCO shall affirm its intent to comply with all applicable U.S. and UK laws, standards, regulations, and agreements, including, but not limited to:

• UK Building Regulations "Part L" Energy Saving Requirements, Volumes I and II o https://www.gov.uk/government/publications/conservation-of-fuel-and-power-approved-document-l

• Biodiversity Net Gain (BNG) o https://www.gov.uk/government/collections/biodiversity-net-gain

• County and District Council requirements o RAF Lakenheath is under the West Suffolk County Council https://www.westsuffolk.gov.uk/planning/index.cfm o RAF Feltwell is under Kings Lynn & West Norfolk District Council https://www.west-norfolk.gov.uk/planning_and_development

• US Contractor must be certified/qualified per DIO requirement, Certification Standard 18th Edition, and JSP 375 (Safety) o https://www.gov.uk/government/collections/jsp-375-health-and-safety-handbook

• JSP 850 (Infrastructure and Estate Policy, Standard and Guidance) o https://www.gov.uk/guidance/knowledge-in-defence-kid

• DFSR (Defence Fire Safety Regulations) o https://www.gov.uk/government/groups/defence-fire-service-regulator-dfsr

4. Submission Requirements:

The DOE Fourth-Generation ESPC IDIQ will be the contracting vehicle used to implement this energy conservation project. DLA Energy, on behalf of RAF Lakenheath and RAF Feltwell, invites the twenty (20) current DOE Fourth-Generation ESPC IDIQ contract holders/ESCOs to submit a written response to this NOO for consideration. This NOO constitutes your opportunity to be considered for this potential project. A site visit will not be offered as part of the down-selection process.

a. Response Preparation Instructions:

(1) Document Submission:

Responses must be completed and submitted to the following email mailbox:

DLAEnergy-ESPC@dla.mil. The maximum size limit for any email is 10MB. It is https://www.gov.uk/government/publications/conservation-of-fuel-and-power-approved-document-l https://www.gov.uk/government/publications/conservation-of-fuel-and-power-approved-document-l https://www.gov.uk/government/collections/biodiversity-net-gain https://www.westsuffolk.gov.uk/planning/index.cfm https://www.west-norfolk.gov.uk/planning_and_development https://www.gov.uk/government/collections/jsp-375-health-and-safety-handbook https://www.gov.uk/government/collections/jsp-375-health-and-safety-handbook https://www.gov.uk/guidance/knowledge-in-defence-kid https://www.gov.uk/government/groups/defence-fire-service-regulator-dfsr mailto:DLAEnergy-ESPC@dla.mil the submitting ESCO’s responsibility to ensure and confirm its response is delivered in its entirety, in accordance with the submission requirements, by the required date and time specified herein. Facsimile and/or hard-copy responses to this NOO are not acceptable. Late responses will only be considered as authorized by the Federal Acquisition Regulation.

Any formal communications, such as requests for clarifications and/or information concerning this NOO, must be submitted to the above email address no later than October 25, 2024, 3:00 p.m. Ft. Belvoir, VA time.

To assure timely and equitable evaluation of responses, ESCOs must follow the instructions contained herein. ESCOs are required to meet the requirements of the DOE Fourth-Generation ESPC IDIQ, the NOO, and all attachments thereto to include any terms and conditions, representations and certifications, and technical requirements. Failure to meet a requirement may result in a response being ineligible for selection.

(2) Page Limitations and Number of Copies:

Page limitations for each eligible ESCO’s response are stated in paragraph (7) below. If page limitations are exceeded, the excess pages will not be considered as part of the evaluation of the submitted response. Each page shall be counted except the following: cover page, blank pages, tables of contents, tabs, and glossaries, and those parts of the response noted herein as exempt from the page limitations.

(3) Page Size and Format:

A page is defined as the electronic equivalent of a single side of a sheet of paper containing information. Page size shall be 8.5 x 11 inches. The draft TO-4 schedule may be submitted as an 11x17 document and will not count toward the page limit requirements. Pages shall be single-spaced. Except for the reproduced sections of the NOO and its attachments, if needed, the text size shall be no less than 12 point.

For tables, charts, graphs and figures, the text shall be no smaller than 10 point. Use at least 1-inch margins on the top and bottom and ¾ inch side margins. Pages shall be numbered sequentially.

The response shall be submitted in a format readable by Microsoft (MS) Word 2007®, MS Excel 2007®, MS Power Point 2007®, MS Office XP®, or Adobe Acrobat, as applicable, and conform to the requirements listed above. Legible tables, charts, graphs and figures shall be used wherever practical to depict organizations, systems and layout, implementation schedules, plans, etc.

(4) Indexing:

To the greatest extent possible, indexing shall be used to readily identify information contained in the response. The response shall contain a detailed table of contents to delineate the paragraphs, subparagraphs, etc. Tab indexing shall be used to identify sections. Indexing and tabbing pages shall not count against the page limitations.

Any information included on these tab or index pages outside of the realm of a tab or index intent shall not be considered. All .pdf documents shall include electronic bookmarks marrying section or tabs accordingly.

(5) Glossary of Abbreviations and Acronyms:

The response shall contain a glossary of all abbreviations and acronyms used, with an explanation for each. Glossaries do not count against the page limitations.

(6) Response Requirements

The ESCOs are responsible for verifying the completeness and accuracy of all information furnished to them by the Government. Failure to include all information requested may adversely affect the evaluation and may result in a response being ineligible for consideration. Responses to this NOO must be received no later than November 8, 2024, 3:00 p.m. Ft. Belvoir, VA time. All interested and eligible ESCOs shall submit the following in order to be considered:

Factor 1 – ESCO Approach: (Twenty (20) single-sided pages maximum)

The ESCO’s response to this factor shall include sufficient information to identify and describe the ESCO’s project management capabilities, general approach and proposed strategy for this project, addressing the identified ECMs in paragraph 3 of the NOO.

To qualify as an ECM under this NOO and any resultant TO award, any ECM or component in an ESCO's response must improve energy efficiency consistent with 10 CFR § 436.31 and otherwise meet the definition of ECM as defined in the DOE Fourth- Generation ESPC IDIQ. The Government is not seeking a response similar to a PA. The Government is only looking for a reasonably illustrated approach as to how the ESCO would pursue energy conservation efforts to meet RAF Lakenheath’s and RAF Feltwell’s needs. The response shall present the following:

a) ESCOs shall present the ESCO’s management capabilities and personnel qualifications related to RAF Lakenheath and RAF Feltwell facility characteristics and the project objectives to a) manage the design, construction, and continued performance of ECMs in efficient and cost-effective manner; b) management style and capacity for resources as demonstrated through the organization and critical project personnel; and, c) manage and experience in managing efforts in an overseas environment similar to that of RAF Lakenheath and RAF Feltwell.

b) ESCOs shall present the ESCO’s approach to its investigation and development of its recommended ECMs for RAF Lakenheath and RAF Feltwell culminating in the scope of work for this project given the noted time constraints. The ESCO shall include in its response its qualifications for conducting Investment Grade Audits. The ESCO shall provide its rationale for each ECM recommended and the determining factors that led to the recommendation. The response must provide clear and convincing evidence as to why and how the selected ECM(s) will meet the needs of RAF Lakenheath and RAF Feltwell. The ESCO shall draw upon and reference information provided in Attachment 1 for the development of its response, as well any applicable industry standards and all other information reasonably available. The ESCO shall also address its plan for energy data verification for high consumption buildings with ECMs other than lighting that have no or non-functional meters. In addition, the ESCO shall submit a draft Task Order Schedule 4, Performance Period First Year Estimated Cost Savings, by ECM illustrating the ESCO’s recommended ECMs savings, less the ECMs’ associated implementation costs. Any included industry standards may be submitted in 11x17 size and format to improve readability, which does not count against the page limit for Factor 1. Any ESCO’s assumptions utilized in the development or selection of ECMs shall be clearly presented and highlighted in its response.

c) ESCOs shall include a discussion of resources it intends to utilize during the project, as well as any local agreements, subject matter experts or teaming arrangements to be established if selected. The ESCO shall demonstrate a supply chain and logistical support for delivery of personnel and materials to the UK while meeting all necessary requirements. The ESCO shall demonstrate any local and regional resources within the UK or adjacent countries for support during all phases of the contract, including the ability to engage local contractors and suppliers when practicable. This is critical during the Implementation and Performance Period phase of the contract to successfully execute this effort and to provide support to RAF Lakenheath and RAF Feltwell for ongoing maintenance needs or to remedy shortfalls in energy performance.

d) The ESCO shall affirm its intent to comply with all applicable U.S. and UK laws, standards, regulations, and agreements.

Factor 2 – Past Performance: (Two (2) single-sided page maximum)

The ESCO’s response to this factor shall include up to six (6) references illustrating the ESCO’s past performance as the prime contractor or prime subcontractor on any ESPC or Utility Energy Service Contracting (UESC) project. The ESCO shall provide a brief project description, the agency/owner point of contact (name, title, phone number, and email address), location of each project, contract number, date of task order or contract award, and actual or anticipated project construction completion date. The Government will use its discretion to determine the sources of past information used in the Past Performance evaluation. The information may be obtained from the Government’s knowledge of contractor performance, other government agencies or commercial entities, or past performance databases. It is not a requirement that the ESCO have past performance history in the execution of its recommended ECMs for this project. The DOE Fourth Generation ESPC IDIQ has already determined each ESCO responsible for the sound implementation of each of the technical categories.

Factor 3 - Price: (Five (5) single-sided pages maximum)

The ESCO shall provide a narrative discussing and defining any cost benefit or other financial advantage its company can provide that would minimize the project cost to the Government. The discussion of each benefit or advantage must identify, at a minimum, a percentage discount to the implementation costs that are recommended. Be advised that the ESCO will not be held to this exact percentage if selected, however, will be held to the fulfillment of the concept. It is expected and accepted that during the development of the project scope and finalization of all attributes of the project during the Investment Grade Audit that further definitization will occur.

The Government is not looking for a cost breakdown of the project visualized in response to Factor 1. The Government seeks to understand the ESCO’s practices and ardent pursuant of any financial benefits that will assist in bringing the implementation cost of the final project down while at the same time not eroding or compromising the success of the project.

5. Evaluation Methodology

a. Basis for Selection:

Task Order down-selection procedures, as set forth in the DOE Fourth-Generation ESPC IDIQ, paragraph H.3, will be used to make an integrated assessment for a best fit decision for ESPC services at a firm-fixed price. Responses will be evaluated using the following three (3) factors:

1) ESCO Approach;

2) Past Performance; and

3) Price.

Factor 1, ESCO Approach, is more important than Factor 2, Past Performance. When combined, Factor 1 and Factor 2 are more important than Factor 3, Price.

The resultant TO may be awarded to the responsible ESCO that provides the best fit in achieving energy assurance, reduction of energy use intensity, and increased use of renewable energy and energy production for RAF Lakenheath and/or RAF Feltwell. Best fit means the expected outcome of an acquisition that, in the Government’s estimation, provides the greatest overall benefit in satisfying the requirement and represents the best value to the Government in consideration of the ESCO’s approach, past performance, and price. The Government will provide notifications in accordance with the DOE Fourth- Generation ESPC IDIQ, paragraph H.3.7 Notification of Contractors Not Selected.

b. Number of Contracts to be Awarded:

The Government intends to award one (1) resultant TO for this requirement. However, the Government reserves the right not to award a TO at all.

Attachments:

(1) RAF Lakenheath and RAF Feltwell Building Data

(2) Status of Forces Agreement (SOFA)

(3) 1973 Cost Sharing Agreement

(4) Call-Off Schedule 28 Module A - Leaflet AL-07 Form 29