JA_DOL_BASOPS_Bridge_Redacted.pdf

Control Number: HUA-15-1

JUSTIFICATION REVIEW DOCUMENT

FOR OTHER THAN FULL AND OPEN COMPETITION

Program: Multi-Functional Base Operations Support Services at Fort Huachuca, Arizona

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

Prepared by:

Donna Y. Kimura-Long DSN: 821-2638 Contract Specialist Date:

Procuring Contracting Officer:

Anna R. DeLozier DSN: 821-1464

Date Reviewed:

Technical Representative:

Paula D. Worley DSN: 821-1413 Contracting Officer’s Representative Date Reviewed:

Requirements Representative:

Larry J. Locke DSN: 821-2041 Director, Logistics Readiness Center Date Reviewed:

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

Director, Logistics Readiness Center:

Larry J. Locke

DSN: 821-2041

Signature: __________________________ Date:

Legal Counsel:

Michael J. Rudkin

DSN: 879-7449

Signature: __________________________ Date:

8 October 2014

14 Oct 14 ARD

14 Oct 2014

15 Oct 2014

15 Oct 2014

LOCKE.LARRY.JAMES.1113202048

Digitally signed by LOCKE.LARRY.JAMES.1113202048 DN: c=US, o=U.S. Government, ou=DoD, ou=PKI, ou=USA, cn=LOCKE.LARRY.JAMES.1113202048 Date: 2014.10.15 09:51:37 -07'00'

RUDKIN.MICHAEL

.JAY.1136429740

Digitally signed by

RUDKIN.MICHAEL.JAY.1136429740

DN: c=US, o=U.S. Government, ou=DoD, ou=PKI, ou=USA, cn=RUDKIN.MICHAEL.JAY.1136429740 Date: 2014.10.20 08:23:05 -07'00'

JUSTIFICATION AND APPROVAL

FOR OTHER THAN FULL AND OPEN COMPETITION

1. Contracting Activity: U.S. Army Contracting Command Aberdeen Proving Ground, Huachuca Division DOC Operations Branch

CCAP-CCH-D

600 Augur Avenue, Building 22208 Fort Huachuca, Arizona 85613-7070

2. Description of Action:

a. The proposed action is for the award of a Cost-Plus-Fixed-Fee bridge contract for the multi-functional base operations support services for Army Sustainment Command, U.S. Army Garrison and assigned/attached units and activities at Fort Huachuca, Arizona. These services are essential for the Logistics Readiness Center (LRC) to meet mission requirements. The period of performance will be for six months (1 November 2014 through 30 April 2015). Operations and Maintenance, Army appropriations will be used.

b. FAR Clause 52.217-8, Option to Extend Services, will be incorporated. This option to extend will only be utilized in increments minimally necessary to maintain services until a new contract is awarded as a result of a competitive solicitation issued under the Enhanced Army Global Logistics Enterprise (EAGLE) program and the awardee begins full performance.

c. The estimated total value of the action is , which consists of for the six-month contract and for the extension of services which will only be utilized if necessary.

3. Description of Supplies/Services:

a. The contract is for reduced installation level logistics support consisting of four functions: General, Transportation, Material Maintenance and Supply and Services. The General function consists of administration and management operations, Government property administration and property book accounting and limited physical security. Transportation consists of property traffic management services (inbound and outbound), arranging port calls for overseas travel, preparing all necessary travel related documents to ship, receive and store personal effects, reduced installation Transportation Motor Pool (TMP) support, reduced levels of post bus service, limited driver testing of assigned installation personnel and the shipping and receiving of supplies. Material Maintenance consists of preventive maintenance, lubrication, servicing, limited overhaul and rebuilding of components and estimating cost of repairs. This function has decreased considerably over the last four years, due to deployment of soldiers and limited funding. The Supply and Services function consists of requisitioning, receiving, storing and inventory of a reduced level of Class I, II and IV supplies; storing, issuing, accounting for and turn-in of Class V through the Ammunition Supply Point (ASP); receiving and turn-in of Class VII items and storage, issue and turn-in of Class IX repair parts.

b. In accordance with AFARS 5153.9005 the estimated total value is for the new bridge contract including a possible extension of services in accordance with FAR 52.217-8.

4. Authority Cited: 10 U.S.C. 2304(c)(1), and FAR 6.302-1, Only one responsible source and no other supplies or services will satisfy agency requirements.

5. Reason for Authority Cited: Pursuant to FAR 6.302-1(a)(2)(iii), this requirement is available only from the incumbent noncompetitive contractor for the services described above. Award to any other source would result in substantial duplication of cost to the Government (phase-in cost) that is not expected to be recovered through a competed follow-on contract of only six (6) months as the contract term and unacceptable delays in fulfilling the requirement. In addition to the government paying for phase-in twice, a new contractor would mobilize, ramp up and begin full performance then begin phase-out 90 days later. Also, during both phase-in and phase-out a 100% inventory

, would require the government to pay for inventory cost two times. This would be unfair to a new contractor to expend a large amount of resources to ramp up for a six-month period of performance.

The proposed source is VT Griffin Services, Inc. (VTG); 10745 Westside Way, STE 300;

Alpharetta, GA 30009-7639. VTG is currently performing these services under the sole source bridge contract W9124A-14-C-0001, and therefore has the knowledge, experience, resources, and personnel with the required skills and certifications available to continue providing these services until a task order is awarded under the EAGLE program. Although other sources could potentially perform this work, it is estimated that the use of any other source would result in delays in contract performance and inabilities to perform necessary services.

This bridge contract is necessary to ensure there is no disruption of services due to the delay in awarding a task order under the EAGLE program. The EAGLE program issued a solicitation on 28 October 2013. The solicitation for the task order had three protests pending at the Government Accountability Office (GAO). Two of the protests were withdrawn. The other protest was dismissed pending corrective action by Army Contracting Command – Rock Island (ACC-RI).

It is imperative that the Government continue to provide logistical support for units and tenant elements assigned to and deploying from Fort Huachuca, Arizona. Logistical support is a vital element that cannot be disrupted or delayed. The inability of Fort Huachuca to provide logistical support for the war fighter would have a direct impact on the readiness level of local and deploying troops from/through Fort Huachuca, affecting their mission, morale and safety. At a minimum, failure to award a bridge contract would have a catastrophic impact on the General, Transportation, Maintenance and Supply and Services infrastructure detailed in Paragraph 3.

These functional areas and the requirements that exist under each area would immediately cease without contractor performance. For example, deployment and the redeployment of the 40th

Expeditionary Signal Battalion would cease. This Battalion plays a vital role in providing communication service worldwide for the Army. Disruption of these services could potentially be catastrophic to the Army’s mission. Additionally, other DOD contingency missions and aircraft refueling (addressed below) would cease or be delayed causing serious injury to the government. The contractor also operates the Central Issue Facility. Without contractor support, organizational clothing and individual equipment could not be issued. This clothing and equipment is vital for field training exercises, which, is one of the primary missions of Fort Huachuca. Consequently, troop capabilities would suffer. The contractor has the primary duty to ensure the safe operating conditions of all transportation equipment and government facilities under their control. The contractor is responsible for the safe delivery of aviation fuel to and from aircraft at Fort Huachuca’s Libby Army Airfield, for the operation of the Hazardous Material Facility and for the mechanical maintenance of all firefighting equipment.

Retaining the current contractor during the issuance of a task order under the EAGLE Basic Ordering Agreement (BOA) will protect the high levels of services needed for the multi-functional base operations support services for Army Sustainment Command, U.S. Army Garrison and assigned/attached units and activities. Continuing with the current contractor would be the most cost effective use of the Government resources invested thus far in continued mission success by avoiding a considerable loss of time and unacceptable delays in fulfilling the requirement. The cost to phase in a new contractor would be at least . This figure is an average of the proposed costs for phase-in from offerors of the last competition. VTG is the only source that can meet the Government’s requirements at this time.

It is not in the Government’s best interest to compete this short term requirement. The solicitation preparation and evaluation would also result in a duplication of effort and costs on the part of Government personnel, as well as proposal preparation effort on the part of the competing vendors for a contract with a term of six months.

6. Efforts to Obtain Competition: Efforts to obtain competition for this action are not feasible nor is it in the Government’s best interest. Several BOA holders proposed on the EAGLE solicitation.

Pending completion of the corrective action by ACC-RI, the government will award a task order from the EAGLE BOA as soon as practical.

7. Actions to Increase Competition: No action was taken to increase competition. Pending completion of the corrective action by ACC-RI, the government will award a task order from the EAGLE BOA as soon as practical.

8. Market Research: Not Applicable. A solicitation has been issued under the EAGLE program out of the ACC-RI contracting office. Several BOA holders proposed on the EAGLE solicitation.

Pending completion of the corrective action by ACC-RI, the government will award a task order from the EAGLE BOA as soon as practical.

9. Interested Sources: Several proposals were received from small businesses in response to the EAGLE BOA solicitation.

10. Other Facts:

a. Procurement History:

Contract Number Award Date Period of Performance Award Amount Contractor Extent Competed /

Authority Amount on

J&A

W9124A-14-C-0001 31 Oct 13 1 Nov 13 – 31 Oct 14 $2,692,973 VT Griffin Services

Sole source / FAR 6.302-2(a)(2)

W9124A-13-C-0001 31 Oct 12 1 Nov 12 – 31 Oct 13 $5,535,297 VT Griffin Services

Sole source / FAR 6.302-1(a)(2)

W9124A-12-C-0002 28-Oct-11 1 Nov 11 - 31 Oct 12 $4,723,097 VT Griffin Services

Sole source / FAR 6.302-2(a)(2)

W9124A-11-C-0006 26-Sep-11 1 Nov 11 - 30 Sep 14 (Stop work on 14 Oct 11) $19,042,634 Wolverine

Services Small business set-aside (T4C) -

W9124A-10-C-0001 30-Mar-10 1 Apr 10 - 31 Oct 11 $7,541,822 VT Griffin Services

Sole source / FAR 6.302-1(a)(2)

W9124A-05-C-0002 29-Feb-04 1 Mar 05 - 31 Mar 10 $21,463,639 VT Griffin Services Full and open competition -

DABT63-98-C-0060 25-Sep-98 1 Nov 98 - 25 Apr 05 Kellogg Brown and Root Services Full and open competition -

DABT63-93-C-0069 24-Sep-93 1 Oct 93 - 31 Oct 98 Kellogg Brown and Root Services Full and open competition -

b. Acquisition Data Availability: The government is waiting for corrective action to be taken by ACC-RI. The government will move forward with a task order award from the EAGLE BOA once the corrective action is completed. The EAGLE Business Office provided revised milestones including the time for the corrective action. See paragraph 9.e.

c. Unusual and Compelling Urgency: Not applicable, the basis for this interim action is only one responsible source.

Award to any other source would result in substantial duplication of cost to the Government that is not expected to be recovered through a competed follow-on contract for a performance period of six months.

It is imperative the Government continue to provide logistical support for units and tenant elements assigned to and deploying from Fort Huachuca, Arizona. Logistical support is a vital element that cannot be disrupted or delayed without serious injury to the government. The inability of Fort Huachuca to provide logistical support for the war fighter would have a direct impact on the readiness level of local and deploying troops from/through Fort Huachuca, affecting their mission, morale and safety.

Retaining the current contractor during the issuance of a task order under the EAGLE Basic Ordering Agreement (BOA) will protect the high levels of services needed for the multi-functional base operations support services for Army Sustainment Command, U.S. Army Garrison and assigned/attached units and activities. Continuing with the current contractor would be the most cost effective use of the Government resources invested thus far in continued mission success by avoiding a considerable loss of time and unacceptable delays in fulfilling the requirement.

d. Subcontracting Competition: VTG will submit a subcontracting plan for this bridge contract.

e. Milestones for the acquisition of installation level logistics support services under the EAGLE program:

RFP release 28 October 2013 Task order award 10 December 2014 Phase-in 3 January 2015 – 3 March 2015 Full performance 4 March 2015

11. 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.

Paula D. Worley Date:

Contracting Officer’s Representative Signature:

12. 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.

Larry J. Locke Date:

Director, Logistics Readiness Center Signature:

13. Fair and Reasonable Cost Determination: I hereby determine that the anticipated price to the Government for this contract action will be fair and reasonable. Other than cost and pricing data will be obtained to evaluate price reasonableness in accordance with FAR 15.403-3. This information will include current Department of Labor Wage Determination rates, Collective Bargaining Agreement and market information on other recently awarded similar contracts.

Anna R. DeLozier Date:

Procuring Contracting Officer Signature:

ACC-APG Huachuca Division

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

Anna R. DeLozier Date:

Procuring Contracting Officer Signature:

ACC-APG Huachuca Division

14 Oct 2014

15 Oct 2014

DELOZIER.ANN

A.R.1172537916

Digitally signed by

DELOZIER.ANNA.R.1172537916

DN: c=US, o=U.S. Government, ou=DoD, ou=PKI, ou=USA, cn=DELOZIER.ANNA.R.1172537916 Date: 2014.10.14 15:06:59 -07'00'

DELOZIER.ANN

A.R.1172537916

Digitally signed by

DELOZIER.ANNA.R.1172537916

DN: c=US, o=U.S. Government, ou=DoD, ou=PKI, ou=USA, cn=DELOZIER.ANNA.R.1172537916 Date: 2014.10.14 15:07:27 -07'00'

WORLEY.PAULA.DIANE.1064715476 Digitally signed by WORLEY.PAULA.DIANE.1064715476 DN: c=US, o=U.S. Government, ou=DoD, ou=PKI, ou=USA, cn=WORLEY.PAULA.DIANE.1064715476 Date: 2014.10.14 15:23:08 -07'00'

LOCKE.LARRY.JAMES.1113202048 Digitally signed by LOCKE.LARRY.JAMES.1113202048 DN: c=US, o=U.S. Government, ou=DoD, ou=PKI, ou=USA, cn=LOCKE.LARRY.JAMES.1113202048 Date: 2014.10.15 09:49:03 -07'00'

APPROVAL

Based on the foregoing justification, I hereby approve the award of a Cost-Plus-Fixed-Fee bridge contract, for the multi-functional base operations support services for Army Sustainment Command, U.S. Army Garrison and assigned/attached units and activities at Fort Huachuca, Arizona, for a performance period of six months on an other than full and open competition basis pursuant to the authority of 10 U.S.C. 2304(c)(1) and FAR 6.302-1, subject to availability of funds, and provided the services herein described have otherwise been authorized for acquisition. If the proposed contract action is not completed within 180 days from the below date, this Justification and Approval shall be returned to the approval authority for revalidation. Additionally, if any changes to the requirements, basis for the justification, market conditions or increases in the estimated value of the proposed action occur at any time, the Contracting Officer shall document these changes in a memorandum and obtain review/concurrence from the approval authority.

Date: Signature:

Debra K. Parra Special Competition Advocate

PARRA.DEBRA.K.1231324840

Digitally signed by PARRA.DEBRA.K.1231324840 DN: c=US, o=U.S. Government, ou=DoD, ou=PKI, ou=USA, cn=PARRA.DEBRA.K.1231324840 Date: 2014.10.20 09:08:13 -07'00'