JA_30_Sep_2013_Signed_Redacted.pdf

MICC Fort Stewart Control No. 13-057 MICC Control No. 2013-093

JUSTIFICATION DOCUMENT

FOR OTHER THAN FULL AND OPEN COMPETITION

DESCRIPTION OF PROGRAM: Dinning Facility Attendants for Fort Stewart and Hunter Army Airfield

Authority: 10 U.S.C. 2304(c)(1) and FAR 6.302-1

Amount:

Prepared by:

Name: Brett Zeigler Phone: 912-767-2336 Title: Contract Specialist Date: 25 Sep 2013 Email: derrick.b.zeigler.civ@mail.mil

Procuring Contracting Officer:

Name: James Frye Phone: 912-767-6939 Title: Contracting Officer Date: 30 Sep 2013 Email: james.r.frye20.civ@mail.mil

Technical/Requirements Representative:

Name: Debbie Hewett Phone:

Title: Contracting Officer’s Representative Date: 30 Sep 2013 Email:

Management Representative:

Name: James Niksch Phone:

Title: Director, DOL, Fort Stewart, GA Date: 30 Sep 2013 Email:

This action: (est.)

2-month extension of option year 4:

6-month extension April 2013:

Cumulative non-competitive (est.)

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

Local Small Business Specialist Name: Curtis Scott Phone:

Signature: __________ ___ Date: ____________

Legal Counsel Name: Richard Baboian Phone:

Signature: __ _ Date: ____________

Division Chief Name: Geral Baxter Phone:

Signature: _ _ Date: ____________

Director Name: Eva D. Williams Phone:

Signature: _ __ Date: ____________

30 SEP 2013

30 SEP 2013

30 SEP 201

30 Sep 13

JUSTIFICATION DOCUMENT

FOR OTHER THAN FULL AND OPEN COMPETITION

Dining Facility Attendants for Fort Stewart and Hunter Army Airfield

1. CONTRACTING AGENCY: MICC-Fort Stewart

2. DESCRIPTION OF ACTION:

This action is to issue an additional five (5) month extension to an existing Fixed Price, single award, requirements contract, W911SE-08-D-0010 to Wolf Management Services. This contract is funded by monthly purchase requests using O&M funds from the current fiscal year. The original contract period of performance for option year four ended on 31 January 2013. An extension was granted IAW FAR 52.217-8 on 31 January 2013 for two months from 1 February 2013 to 31 March 2013 with an estimated value of . An additional extension was granted on 28 March 2013 which extended the contract for six (6) months from 1 April 2013 – 30 September 2013 for an estimated amount of . The estimated value of the proposed action is .

The total value of the uncompeted portions related to the contract extensions of this contract is an estimated . The contract extensions have been required due to the liquid environment created by the sequestration which became effective 1 March 2013 (see below).

This additional five (5) month extension will allow for sufficient time to compete the follow-on requirement which will be posted on the FBO website and used as a bridge to allow the minimum amount of time to finalize requirements package and solicit the follow-on requirement.

3. DESCRIPTION OF SUPPLIES/SERVICES:

The work associated with this requirement shall provide all labor, personnel, equipment, materials, supplies, supervision, and other items and services necessary to provide Dining Facility Attendants (DFA) Service when applicable on Fort Stewart and Hunter Army Airfield HAAF), Georgia in accordance with the Army Food Service Program, applicable regulations and the Performance Work Statement (PWS).

These services include ensuring the overall cleanliness and sanitation of the dining facility during and after the meal period. This includes such tasks as preparing potatoes for the use of the cooks, cleaning the food service lines and salad bars (including counters and sneeze guards) both during the meals and after once food has been removed by the cooks, keeping milk dispensers stocked and washing dishes, trays and and silverware throughout the meal period and prepaing for the next meal period.

This modification would extend the current services, maintaining the status quo of services currently provided, five (5) months through 28 February 2014. This is the time anticipated to complete the procurement process for the on-going competitive follow-on requirement. The overall scope of the work to be provided will remain unchanged during this extension with the exception of any reductions in service required by new policy.

Fort Stewart’s mission is to serve as a force projection platform for the 3rd Infantry Division, tenant units, and associated units at Hunter Army Airfield (HAAF). The Directorate of Logistics (DOL) has the mission to provide maintenance, supply and transportation services to the 3rd Infantry Division, tenant units, and DOD activities within their geographical area of responsibility. The DOL is required to maintain dining facilities across the installations on a permanent and temporary basis to support an array of units and agencies. This requirement stems from that need. The dining facility operations are a basic and vital necessity to support the constant flow of units’ training across the installation. The contractor services provided in this contract supports the infrastructure of the installation and provides the necessary augmentation to staff these facilities to ensure the proper level of operation and supports the overall Army readiness by increasing the quality of life for Soldiers and families. These services specifically ensure a proper level of sanitation and hygiene for Soldiers dining in the installation’s dining facilities.

Currently, Fort Stewart consistently operates an average of five (5) Dining Facilities, monthly, as a part of this contract. This includes one (1) being operated at HAAF, approximately 40 miles from Fort Stewart. These services play a critical role in the mission of the 3rd Infantry Division with each Soldier able to eat meals in a clean and safe environment.

4. AUTHORITY CITED:

This action is authorized under provisions of 10 U.S.C. 2304(c)(1) as implemented by Federal Acquistion Regulation (FA) 6.302-1, “Only One Responsible Source and No Other Supplies or Services Will Satisfy Agency Requirements.” For DoD, NASA, and the Coast Guard, services may be deemed to be available only from the original source in the case of follow-on contracts for the continued provision of highly specialized services when it is likely that award to any other source would result in – (A) Substantial duplication of cost to the Government that is not expected to be recovered through competition, or (B) Unacceptable delays in fulfilling the agency’s requirements.

(See 10 U.S.C. 2304(d)(1)(B))

5. REASON FOR AUTHORITY CITED:

Dining Facility Attendants (DFA) Services are only available from Wolf Management Services as this is a follow-on contract action (that had previously been competed) for continuing these services and that awarding to any other source would likely result in substantial duplication of costs and unacceptable delays in providing these needed services.

Pursuant to FAR 6.302-1(a)(2)(iii), this follow-on requirement is available from the incumbent contractor for services described above and that the original contract award was completed using adequate competition. As the incumbent contractor, Wolf Management Services is currently in place and performing in an acceptable manner.

This is a follow-on contract as the incumbent has been providing the same services at this installation since the period of performance began on the current contract, 1 February 2008. Previously, the “Option to Extend Services” clause was used to extend the contract first for two (2) months and then again for six (6) months. An additional five (5) months beyond the previous extension is needed to maintain services at current levels while the reprocurement progresses towards award.

This requirement has been in the process of reprocurement for several months. Finding a suitable contractor to provide these services is a difficult job because of the number and geographic dispersion of the facilities (one facility is located at HAAF, approximately 40 miles from Fort Stewart, proper) combined with the impacts of sometimes-daily changes by the customer’s major command, IMCOM, as communicated to the installation, for dealing with a highly constrained budget. This has created a “liquid environment” for trying to manage these services. Nailing down the requirement has proven elusive in this instance.

As MICC Fort Stewart has begun to reprocure these services, there have been several attempts to re-write the requirement to address potential changes being discussed regarding the possibility of decreasing the level of some of the facility services and placing those responsibilities with military and civilians. These are all related to the uncertainties created by the sequestration which have led to potentially significant policy changes in how Army Dining Facilities may operate in FY14.

These uncertainties were evident with the contract administration of this existing contract. Fiscal year 2013 was a difficult year due to budget uncertainties and frequent adjustments to contracts and requirements. Adequately defining the future requirement has proven to be no exception. This uncertainty and the ever-changing nature of the dining facility operations are directly impacted by troop deployments and troop usage. The constant changes in the usage of the dining facilities have made it increasingly difficult for the requiring activity to keep dining facilities open and define the requirement in a way that states the actual estimated usage.

Adding to this is the planning for using Borrowed Military Manpower (BMM), which is Soldiers placed on detail to work in the dining facilities, to fulfill part or all of these requirements. These Soldiers would be trained and deployed to dining facilities to reduce the reliance on contracted services. At the present time, this use of manpower has not been authorized.

by mid-October allowing the requiring activity to more accurately define the requirement and need for contractor support in Dining Facilities.

Duplication of Costs

Finding a suitable contractor to provide these important services within the bounds of a proper, competed contract action is a high priority for the MICC- Fort Stewart office. With such a priority, it is also expected that great care and diligence be taken. The resources and personnel that both the MICC office and the Fort Stewart DOL have devoted to this effort ensures that the proper amount and the proper level of quality of dining facility services are procured. This effort requires several contracting staff members working in large part solely for this effort and there are several members of Fort Stewart DOL who are providing support which varies depending on the phase of the procurement. Executing a totally separate procurement action for this identical requirement, though of shorter duration, will not have much synergy between actions due to scope and shortages of personnel for two similar actions. Thus, where some amounts of duplication can prove beneficial, most of the duplicated work cannot be transferred between actions.

Finding a contractor corps to even solicit to is a tough action as to not award this shorter procurement would mean a break in services for a period of up to 4 months.

Unacceptable Delays

It is clear that both operational and administrative delays have continued to take place in the performance of this requirement and in reprocuring its replacement. It is also clear that further delays must be minimized to insure continuation of this vital service to the soldiers of Fort Stewart and HAAF. This service satisfies a mission critical need for Fort Stewart and HAAF and to lose the service will result in a mission failure for the Fort Stewart DOL. Missing even a single day of service would result in such severe mission degradation that soldier effectiveness in other mission essential areas would be affected.

Justification

Therefore, award to incumbent contractor is approved and the five (5) month extension executed for this follow-on contract and mission failure would result if any other procurement method is used.

The incumbent contractor, Wolf Management Services, continues to perform in an acceptable manner and the overall scope of the requirement remains unchanged at the moment. Substantial delays have occurred with the reprocurement; however, delaying the services until the follow-on procurement occurs would mean the loss of services important to the health and safety of the 3rd Infantry Division Soldiers and would result in reduced readiness which would be unacceptable.

6. EFFORTS TO OBTAIN COMPETITION:

A sources sought and notice announcing the intent to award this extension on a sole source basis was posted to Army Single Facing Interface (ASFI) and FedBizOpps (FBO) on 21 September 2013 through 26 September 2013. Five (5) responses were received. While all of the prospective contractors provided capability statements for food service related requirements, none provided specific information regarding their interest in or ability to provide the services for the short five (5) month extension period.

In addition to the sources sought posted for this extension and the previous extension, a sources sought notice was, previously, posted to FBO through ASFI on 14 December 2012 and closed on 27 December 2012. Thirteen on-time responses and one late response were received. Market research was conducted utilizing previous acquisition databases, the SAM database, the installation contracting database, the Small Business Administration (SBA) website and the results of a sources sought notice posted to FBO. .

7. ACTIONS TO INCREASE COMPETITION:

The solicitation for the reprocurement will be posted to ASFI and FBO for all firms that fall within any set-aside that is used. The anticipated date for release of the follow-on solicitation is mid November.

8. MARKET RESEARCH:

A sources sought was posted to ASFI and FBO on 21 September 2013 stating the Government’s intent to issue a sole source bridge extension to the incumbent for these services. Market research was conducted using previous acquisition databases, the SAM database, the installation contracting database, the Small Business Administration (SBA) website, and the results of a sources sought notice posted to FBO. Previously, a sources sought was posted in December 2012 that returned fourteen responses. These responses were interested in the reprocurement and not short-term extensions.

9. INTERESTED SOURCES:

As of the close of the intent to award this extension on a sole source basis notice on 26 September 2013, five (5) vendors expressed interest in this requirement. While all of the prospective contractors provided capability statements for food service related requirements, none provided specific information regarding their interest in or ability to provide the services for the short five (5) month extension period.

Approval

Based on the foregoing justification, I hereby approve the 5-month extension of Dining Facility Attendants Service from Wolf Management Services for approximately $1,176,102.00 on an other than full and open competition basis pursuant to the authority of 10 U.S.C 2304(c)(1) as implemented by FAR 6.302-1, 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: _ _ _ Date: ___________________ Joseph Myers Special Competition Advocate MICC-Fort Bragg

30 Sep 2013