BASEOPS_Redacted_J A.pdf

JUSTIFICATION DOCUMENT

FOR OTHER THAN FULL AND OPEN COMPETITION

DESCRIPTION OF PROGRAM: Base Operations and Maintenance Support Services, Fort Carson, Colorado

Authority: 10 U.S.C. § 2304 (c), as implemented by FAR 6.302-1, “Only one responsible source and no other supplies or services will satisfy agency requirements.”

Amount: Estimated: $38M

Prepared by:

Name: Nicholas D. Tapp Phone: (719) 524-0543 Title: Contract Specialist Date: 30 January 2015 Email: nicholas.d.tapp.civ@mail.mil

Procuring Contracting Officer:

Name: James R. Ruby Phone: (719) 526-6623 Title: Contracting Officer Date: 30 January 2015 Email: james.r.ruby.civ@mail.mil

Contracting Officer Representative:

Name: Terry Hagen Phone: (719) 526-9262 Title: Contracting Officer Representative Date: 30 January 2015 Email: terry.j.hagen.civ@mail.mil

Management Representative:

Name: Hal K. Alguire Phone: (719) 524-0369 Title: Director, DPW Date: 30 January 2015 Email: hal.k.alguire.civ@mail.mil mailto:nicholas.d.tapp.civ@mail.mil mailto:james.r.ruby.civ@mail.mil mailto:terry.j.hagen.civ@mail.mil mailto:hal.k.alguire.civ@mail.mil

MICC Control 2015-80 FC 2015-20

Reviews: I have reviewed this justification and find it adequate to support other than full and open competition.

918th CBN, MICC-Fort Carson Local Small Business Specialist Name: Barbara E. Gutow Phone: (719) 526-6634

Signature:asdfasdfasdfasdfasdfasdfasf Date: 6 July 2015

918th CBN, MICC-Fort Carson Division Chief & Contracting Officer Name: James R. Ruby Phone: (719) 526-2070

Signature:asdfasdfasdfasdfasdfasdfasf

Date: 6 July 2015

918th CBN, MICC-Fort Carson Deputy Director Name: Rod A. Cameron Phone: (719) 526-2338

DN: c=US, o=U.S. Government, ou=DoD, ou=PKI, ou=USA, Signature: cn=CAMERON.ROD.A.1177016299 Date: 8 July 2015

MICC, Special Advocate for Competition Name: Dean Carsello Phone: (210) 466-2419

Signature: DEAN CARSELLnnnnnnnnO Date: 22 JULY 2015

Associate Director, Small Business Programs Name: Mark A Massie Phone: (210) 466-2283

Signature: asdfasdfasdfasdfasdfasdfasdfa Date: 22 JULY 2015

MICC Office of Counsel Name: Garreth E. Shaw Phone: (210) 466-2283

Signature: asdfasdfasdfasdfasdfasdfasdf Date: 22 JULY 2015

JUSTIFICATION DOCUMENT

FOR OTHER THAN FULL AND OPEN COMPETITION

Base Operations and Maintenance Support Services

1. CONTRACTING AGENCY: 918th Contracting Battalion, Mission and Installation Contracting Command, Fort Carson, Colorado

2. DESCRIPTION OF ACTION: Obtain approval to issue an interim bridge sole-source contract for continued base operations support (BASOPS) services at Fort Carson to provide time for completion and award of a competitive follow-on contract to replace expiring contract, W911RZ-05-C-0009. The contract will have a period of performance of 6 months, commencing on 30 September 2015, and include FAR clause 52.217-8, in the event additional time is needed for debriefings and receipt/resolution of GAO protest against award. The contract will be Cost- Plus-Fixed-Fee (CPFF) and be incrementally funded using appropriate Fiscal Year (FY) 15 and FY16 Operations and Maintenance, Army, (OMA) funds. The total estimated value requested on this Justification and Approval (J&A) for Other than Full and Open Competition is up to $38M (if FAR 52.217-8 option exercised).

3. DESCRIPTION OF SUPPLIES/SERVICES: DPW, Fort Carson, Colorado requires a broad range of non-personal base operations and maintenance services in support of the Fort Carson mission. Areas of service provided by this contract will include Grounds Maintenance, Facility, Electrical & Mechanical, Systems Maintenance & Repair Locksmith Services, Natural Gas Distribution & Regulation System, Industrial Wastewater Treatment Plant, Clean Fill Site, Warehousing & Supply, Cathodic Protection, Locksmith Services, Natural Gas Distribution & Regulation System, Industrial Wastewater Treatment Plant, Central Vehicle Wash Facility, Sanitary Wastewater Treatment & Collection System, Water Systems & Distribution Services, General Interior & Exterior Work, and post miscellaneous work (i.e. special events) in support of the Directorate of Public Works (DPW) at Fort Carson and Piñon Canyon Maneuver Site (PCMS), Colorado. The BASOPS services contract provides management, supervision, quality control, financial control, materials, supplies, labor, and equipment, except that specified as Government-furnished, necessary to accomplish the services outlined in the Performance Work Statement. BASOPS impacts every tenant activity assigned to Fort Carson, as well as the military and civilian employees and family members on the installation.

4. AUTHORITY CITED: This action is authorized under provisions of 10 U.S.C. § 2304 (c) (1), as implemented by FAR 6.302-1(a)(2)(iii) “Only one responsible source and no other supplies or services will satisfy agency requirements.”

5. REASON FOR AUTHORITY CITED: An interim bridge contract is necessary to provide continued essential BASOPS support at Fort Carson during the period required to complete award of the competitive follow-on acquisition, conduct debriefing of unsuccessful offerors and the GAO protest window. Without continued contract coverage, disruption of on-going requirements will result in critical mission failure and unacceptable delays in Grounds Maintenance, Facility, Electrical & Mechanical, Systems Maintenance & Repair Locksmith Services, Natural Gas Distribution & Regulation System, Industrial Wastewater Treatment Plant, Clean Fill Site, Warehousing & Supply, Cathodic Protection, Locksmith Services, Natural Gas Distribution & Regulation System, Industrial Wastewater Treatment Plant, Central Vehicle Wash Facility, Sanitary Wastewater Treatment & Collection System, Water Systems & Distribution Services, General Interior & Exterior Work, and post miscellaneous work (i.e. special events) in support of the DPW at Fort Carson and PCMS, Colorado.

a. Background/Procurement History: The current BASOPS contract is a cost-plus-fixed-fee contract in its last 12-month option, which started on 30 September 2014, with no additional option periods remaining. A follow-on competitive procurement is in process, however the cumulative effect of reorganization within the MICC due to budget cuts and IMCOM standardizing PWS requirements changes necessitate a short term interim contract to prevent a break in service. An interim bridge contract is the only viable action based on the following analysis of other alternatives.

b. Alternatives:

1) Suspension of BASOPS services: The services procured by this contract are tied directly to the mission success of the Department of Army and cannot cease without a negative impact on the Army’s mission and the mission of Fort Carson. The BASOPS contract provides vital maintenance and repair to real property, utility operations as well as grounds maintenance and without these services, serious life, health and safety issues would arise. The contract provides for all “city” services to include utilities maintenance and operations as well as snow removal. Without these essential services, Fort Carson could not function and could not only support the war fighter, their families but cause the 4th Infantry Division to fail in its mission. This is not a viable option.

2) Use of in-house resources: This is not a viable option. DPW does not possess the personnel, equipment, nor experience to assume these services. The shift to reliance on contractors to perform critical functions over the years has resulted in a transference of technical expertise from the Government to private industry.

3) Competitive interim contract award: This is not a viable option. The current contract expires on 30 September 2015. A follow-on award of a competitive contract is underway. There is insufficient time for MICC-Fort Carson to compete an interim contract before the current BASOPS contract expires.

c. Justification: The incumbent contractor, KIRA, is the only source that has the necessary management, skilled personnel, experience and resources immediately available to seamlessly and successfully provide the required services during the interim period without incurring prohibitive duplicative costs not expected to be recovered through competition. The transition (60-day phase-in period required for recruiting and hiring of qualified personnel, transfer of data and records associated with 100s of facilities located at Fort Carson and PCMS, along with inventory/turn-over of a substantial amount of government-furnished property and educating the new contractor’s employees on status of projects) cost for this effort is estimated at approximately $4.6M ($38M/12*1.5). During the 45 day phase-in, it is estimated that Fort

Carson would be paying $9.2M ($4.6 x 2), resulting in a non-recoverable, duplicative costs of $4.6M. In addition, the Government will suffer a severe degradation in services while the new contractor’s staff was properly trained and brought up to speed on existing work. Any break in the services provided under the existing contract is unacceptable and delays caused by transition and learning curve must be minimized. Without continuity in services, critical operations and maintenance services would fail and the Fort Carson mission would drastically suffer; resulting in life, health and safety issues. The Government would not be able to provide the BASOPS services without interruption and therefore would not be able to meet the Army’s mission for one of the Army’s force projection platforms jeopardizing national security. The requested interim contract is the only feasible alternative for obtaining the required services before the current contract expires.

d. Prior Acquisitions: See Paragraph 10.a. below.

e. Impact: See Paragraph 5.c. above.

6. EFFORTS TO OBTAIN COMPETITION: Based on the information above, competition for this requirement is not feasible. However; substantial effort is being accomplished for ensuring robust competition for the follow-on acquisition. Substantial effort has been accomplished in revising requirements, researching small business HUBZone interested parties, and coordinating efficient and effective execution despite budget shortages in the acquisition activities.

7. ACTION TO INCREASE COMPETITION: See paragraph 6, above. A competitive follow-on long-term acquisition is on-going. The follow-on contract will be for a 45-day phase in, with a one-year base period and four one-year option periods. The Government’s current intent is to solicit this action to HUBZone small businesses.

8. MARKET RESEARCH: In accordance with FAR Part 10, market research was conducted to determine whether the requested services could be procured as commercial items and to test the market. The market research considered the following factors: complexity, estimated dollar value, past acquisition history, and implementation timelines of the requirement. The market research consisted of the following steps: (a) determining whether the government’s need may be met through customarily available services in the commercial marketplace that would meet the definition of a commercial service in FAR Part 2.1; (b) reviewing catalogs and other internet sources; (c) obtaining source lists for similar services through the PD2 database and other contracting agencies; (d) researching the procurement history; and (e) querying FedBizOpps website. Market research shows that the BASEOPS services contract is non-commercial due to the maintenance and repair of real property. Market Research also shows that it is unfeasible to procure this large acquisition in a short period of time. It is extremely difficult for an offeror to prepare an adequate proposal and fully understand the requirement with a very short response time. Market research was again conducted on 5 February 2015 when the draft PWS was posted for industry review. Industry had 30 days to review and make comments. The resulting questions assisted the Government in refining or clarifying the PWS and establishing there is reasonable expectation that at least two or more HUBZone small business concerns will submit proposals.

9. INTERESTED SOURCES: See paragraph 8, above.

10. OTHER FACTS:

a. Procurement history.

(1) Contract W911RZ-05-C-0009 was awarded to KIRA in 1 June 2005 as a HUBZone set aside. The contract was awarded for a phase in, base period and nine option periods.

(2) As stated in paragraph 8, above, current market research has indicated that a competitive, HUBZone small business set-aside will result in adequate competition for the follow-on contract. However, the incumbent contractor, KIRA, is no longer a small business.

Therefore, SBA concurrence for a direct award of the bridge contract is required. Also, KIRA must have an approved accounting system and be CAS compliant, as well as have an approved small business subcontracting plan.

11. TECHNICAL/REQUIREMENTS CERTIFICATION: I certify that the supporting data under my cognizance included in this Justification are accurate and complete to the best of my knowledge and belief.

Name: Terry Hagen Signature: sasdfasdfasdfasdfasdfasdf Title: Contracting Officer Representative Date: 8 July 2015

12. MANAGEMENT REVIEW/APPROVAL: The requirement herein described is a valid requirement for the activity named in this Justification. The technical and requirements information contained in this Justification represent the minimum needs of the Government. The only way to satisfy this requirement is by limiting the competition as described herein.

Name: Hal K. Alguire Signature: asdfasdfasdfasdfasdfasdfas

Title: Director, DPW Date: 8 July 2015

13. FAIR AND REASONABLE COST DETERMINATION:

I hereby determine that the anticipated price for this contract action will be fair and reasonable based on the following factors: FAR 15.404-1(b)(2)(v) “Comparison of proposed prices with independent Government cost estimates.” The Independent Government Cost Estimate (IGCE) will primarily be an analysis of the Contractor’s proposed cost. The cost proposal will also be evaluated for cost realism and price reasonableness using one or more proposal analysis techniques prescribed by FAR 15.404-1. The interim bridge contract will be negotiated and certified and cost or pricing data, along with a certificate of current cost pricing will be obtained.

NAME: James R. Ruby Signature: dfghdfghdfghdfghdfghdfg TITLE: Contracting Officer Date: 6 July 2015

14. PROCURING CONTRACTING OFFICER CERTIFICATION: I certify that this Justification is accurate and complete to the best of my knowledge and belief.

Name: James R. Ruby Signature: sdfasdfasdfasdfasdfasdf Title: Contracting Officer Date: 6 July 2015

APPROVAL

Based on the foregoing justification, I hereby approve the procurement of Base Operations and Maintenance Support Services by awarding a contract to KIRA, Inc. for an estimated $19 million ($38 million if FAR clause 52.217-8 is exercised) on an other than full and open competition basis pursuant to the authority of FAR 6.302-1(a)(2)(iii) “Only one responsible source and no other supplies or services will satisfy agency requirements”, subject to the availability of funds, and provided that the services herein described have otherwise been authorized for acquisition.

Signature: ;lks;laksd;lfkjas;lkdjf;alskjdf;laksd Date: 24 July 2015

GEORGE M CABANISS JR, Senior Executive Service Deputy to the Commanding General US Army Mission and Installation Contracting Command, Ft Sam Houston TX