J&A_2017_10,_JRTC_MSS_Bridge_final_Redacted.pdf

Control No: 2017-10 Contractor: Cubic Global Defense, Inc

Program: JRTC Mission Support Services –Bridge

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JUSTIFICATION REVIEW DOCUMENT

FAR PART 6 JUSTIFICATION AND APPROVAL FOR OTHER THAN

FULL AND OPEN COMPETITION

Program: The requirement is to obtain contractual support for the United States Army Forces Command (FORSCOM) in support of the Mission Support Services (MSS) – Bridge at the Joint Readiness Training Center (JRTC) located at Fort Polk, Louisiana

Authority: 10 U.S.C. 2304(c)(1) as implemented by FAR Part 6.302-1 -- Only One Responsible Source and No Other Supplies or Services Will Satisfy Agency Requirements.

Amount: The total estimated cost of this effort is $ .

Prepared by: DSN:

Contract Specialist Date: 19 Jan 17 Email:

Contracting Officer: DSN:

Contracting Officer Date: 19 Jan 17 Email:

Technical: DSN:

Chief, Contract Mgmt JRTC OPSGRP Date: 19 Jan 17 Email:

Requirements: DSN:

Chief of Staff, JRTC Date: 19 Jan 17 Email:

Program: JRTC Mission Support Services –Bridge

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

Program Manager:

DSN:

___ Date: __________________

Local Small Business Specialist:

DSN:

Date: __________________

Small Business Programs:

DSN:

Date: __________________

Special Advocate for Competition:

DSN:

Date: __________________

Legal Counsel:

DSN:

Date: __________________

Deputy, 419th CSB:

DSN:

Date: __________________

24 Jan 17

24 Jan 17

24 Jan 17

Program: JRTC Mission Support Services –Bridge

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FAR Part 6 Justification and Approval for Other than Full and Open Competition

1. Contracting Activity: Mission and Installation Contracting Command – Fort Polk (MICC-Fort Polk), 6661 Warrior Trail, Building 350, Fort Polk, Louisiana 71459

2. Description of Action: The United States Army Forces Command (FORSCOM) requests contractual support for Mission Support Services (MSS) at the Joint Readiness Training Center (JRTC) located at Fort Polk, Louisiana. A sole source cost-plus-award-fee type of contract will be awarded to Cubic Global Defense, Inc., 2280 Historic Decatur Road Suite 200, San Diego, California 92106-6133. This is a bridging action to continue the status quo for follow-on services after the expiration of contract W911S0-07-C-0007 (formerly W911S0-07-C-0001) on 31 March 2017. Contract W911S0-07-C-0007 was a competitive procurement action. This bridging action is necessary to ensure continuity of services to JRTC and Fort Polk while the long term follow-on contract, currently being conducted under full and open competition, is being finalized. The Government projects award this bridge action for February 2017 with a 7-month period of performance of 1 April 2017 to 23 October 2017. Fiscal year 2017 Operations and Maintenance, Army (OMA) funds will be used.

The required acquisition plan in accordance with DFARS 207.103(d)(i)(B) combined with acquisition strategy in accordance with AFARS 5137.590-3 is currently awaiting the Principal Assistant Responsible for Contracting approval to maintain the status quo of services until the competitive follow-on contract is awarded.

3. Description of Supplies/Services: The Mission and Installation Contracting Command-Fort Polk (MICC-Fort Polk) has a requirement to support the United States Army Forces Command (FORSCOM) by contracting for Mission Support Services (MSS) at the JRTC located at Fort Polk, LA. Specifically, the requirement is to create a bridge contract with the existing integrated approach for the rotational training requirement preparing Soldiers, Sailors, Airmen, Marines and other military forces for future worldwide deployment to theaters of varying conflicts.

a. The JRTC is one of the U.S. Army’s Combat Training Centers (CTC) that is centered on providing a realistic, high-end collective training experience at the Brigade Combat Team (BCT) level. The JRTC derives its mission from Army Regulation (AR) 350-50 “Combat Training Center Program.” The JRTC’s primary objective is training light infantry, air assault, airborne, rangers and other special operations units. JRTC also host rotational exercises for U.S. Army motorized and mechanized formations, selected units from the U.S. Marine Corps or U.S. Navy, as well as the U.S. Air Force. The JRTC training experience is implemented through “rotational exercises.” The projected base training environment includes eight (8) to ten (10) rotations on an annual basis and approximately 5,200 soldiers per rotation. In addition to the standard rotations, the JRTC supports non-standard training that is not linked to a specific rotation to include multiple Leader Training Programs (LTPs), unit Live Fire Exercises (LFX), home station training, and leader development opportunities.

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b. Standard rotations are scripted and typically based on any combination of offense, defense and stability operations. Standard rotations take place in a generic region with scenarios and Opposing Forces (OPFOR) threats based on the Contemporary Operational Environment (COE). Rotational Training Unit (RTU) missions conducted during standard rotations will generally be in direct alignment to the RTU’s standard Mission Essential Task List (METL) and training objectives.

c. Special rotations are executed in the form of Mission Rehearsal Exercises (MREs).

The JRTC has the mission of conducting MREs to replicate theater-specific conditions a BCT will encounter in a specific Area of Responsibility (AOR). Special rotations include additions to standard rotation requirements that will be identified by the Government on a case by case basis (driven by FORSCOM training guidance and individual RTU training requirements) and may be in the form of additional role players, cultural role players, extended live fire exercises, additional fire markers, and Multiple Integrated Laser Engagement System (MILES) Individual Weapon System support. The special rotational exercise scenarios replicate many of the unique situations and challenges a unit may face to include host nation officials and citizens, insurgents and terrorists, news media coverage, and nongovernmental organizations. Special rotations generally follow the same key event timeline as standard rotations; however, the scenario and mission profiles for special rotations are specifically constructed to replicate the environment and conditions the RTU is likely to encounter in a specific operational theater. Special rotations are solely predicated upon world events and contingency operations.

d. Training exercises typically occur each month and will consist of a fourteen (14) day exercise period with eighteen (18) days of LFX depending on the unit's training mission.

e. In addition to the required standard rotational exercises and MREs, the MSSs contract requires Security Force Assistance (SFA)/Tactical Advise and Assist Command (TAAC), Joint Security Force Assistance (JSFA), and Regionally Aligned Forces (RAF)/ Leaders Regional Advise and Assist Course (LRAAC) training to be provided under in support of the 3-353d Advise and Assist Battalion (A&A BN). The 3-353d Advise and Assist Battalion trains individuals and builds unit capacity for the conventional Army and Joint Forces at Fort Polk and home station locations in order to enable mission success in meeting the Combatant Command (COCOM) SC/SFA requirements. The battalion conducts three (3) courses which support training of teams and advisors. The Security Force Assistance (SFA)/Tactical Advise and Assist Command (TAAC) course is ten (10) days and is designed to train SFA/TAAC Advisor Teams for overseas deployment. The Joint Security Force Assistance (JSFA) course is ten (10) days and is designed to train Joint Sourced Advisors for overseas deployment. The Regionally Aligned Forces (RAF)/Leaders Regional Advise and Assist (LRAAC) course is four (4) days and is designed to train Regionally Aligned Forces for overseas deployment. The MSS contractor provides role players to support these courses. Historically, the battalion has conducted up to seven (7) SFA/TAAC, four (4) JSFA and six (6) RAF/LRAAC courses in a twelve (12) month period. MSS contract support for these courses is provided concurrent with each other.

Program: JRTC Mission Support Services –Bridge

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f. The objective of this action is to ensure the continuity of the JRTC Mission Support Services (MSS) and provide a multifaceted functional solution that meets the JRTC, FORSCOM, and Department of Defense (DoD) need in the most efficient and cost-effective manner for the next 7 months until the competitive follow-on is awarded.

Period of Performance: 1 April 2017 to 23 October 2017 Total Value: $

4. Authority Cited: The statutory authority permitting other than full and open competition is 10 U.S.C. 2304(c)(1), as implemented in FAR 6.302-1, Only one responsible source and no other supplies or services will satisfy agency requirements.

5. Reason for Authority Cited: As described at Federal Acquisition Regulation (FAR) 6.302-1(a) (2)(iii)(B), 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 unacceptable delays in fulfilling the agency’s requirements.

a. The JRTC mission support services contract is in its last option year. A competitive requirement is in progress for a follow-on contract. The follow-on contract has been solicited and proposals are being evaluated. The final award will not be accomplished prior to the expiration of the current contract to provide JRTC and Fort Polk with mission support services without interruption of the mission. The on-site contractor performing the required services is uniquely positioned and capable of providing continued services under the MSS contract during the 7-month bridge without interruption.

(1) The mission support services are extremely vital to the Army and DoD and contribute directly to the United States’ national defense posture and its ability to respond to requests of geographic combatant commanders and to carry out intrinsic activities as specified by the President or Secretary of Defense. The interruption of these services would cause detrimental effects to the nation’s ability to respond to the world threats. Only continued, uninterrupted support through October 2017 can prevent a disruption to the JRTC mission. Continuity during this period is essential.

(2) This approximate seven (7) month bridge will allow time for the award of a long-term competitive follow-on MSS contract executed by MICC Center-Fort Bragg.

This bridge will mitigate the risk of a break in service and allow for effective, seamless and orderly transition of contract performance as well as allow sound contract management that averts training failure for the JRTC.

(3) Additionally, even if it were possible to accomplish in the time allotted, which it is not, an attempt to award this short term requirement through a limited competition would result in an unreasonably brief full period of performance. Taking into account the necessary 90-day phase-in1 period and 90-day phase out for a

1 Magnitude of Phase-In Effort. A contract of this magnitude for the phase-in effort would include but is not limited to the following: (i) Hiring of Qualified Personnel. The IGCE lists a total of contractor

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(1) Use in-house personnel/expertise: The incumbent contractor possess unique and highly desirable skills to support mission services required for the JRTC. JRTC (Operations Group)/Fort Polk is not staffed with sufficient military and government civilian personnel to meet the requirements for conducting rotational training. The capability of the workforce (military/civilian) does not exist that can assume partial or all of the existing support currently provided by the MSS contractor and the current performance work statement contained in contract W911S0-07-C-0007. Contracted individuals with specific skillsets are required to ensure the training provided to the Special Operations Forces is realistic, applicable, and integral in those forces completing their real-world missions.

(2) Use of RTU personnel: The use of rotational personnel to perform these requirements cannot be supported due to the continued high operational tempo (OPTEMPO) of Combat Service Support Units slated to deploy in support of ongoing Combatant Commander requirements when balanced against the available inventory.

Rotational units are also incapable of fulfilling these requirements due to the fact that during the rotation, they are all considered members of the training audience charged with gaining proficiency in their wartime mission. Their assumption of these tasks would result in an inability of the unit to train to a level of proficiency required for real-world missions.

6. Efforts to Obtain Competition: The feasibility of using an Indefinite Quantity/Indefinite Delivery and General Services’ contract was contemplated. Multiple award task order contract vehicles identified, such as General Services Administration (GSA) Federal Supply Schedules (FSS) are generic in nature and do not provide the services in whole. Several of the vehicles reviewed provided one or more of the required services but none of the vehicles reviewed satisfied the full scope of the JRTC MSS requirement. There are no other contract vehicles to assume these mission critical services at the present time. No effort will be made to solicit offers from as many potential sources as is practical as this is a short-term requirement in order to provide time required to execute a competitive follow-on award. No effective or efficient competition is anticipated for this short-term performance. It is impractical to award to a new contractor due to the exigencies surrounding this action. No benefit would be derived by attempting to execute a competitive contract action in addition to the one pending given the duration of the bridge contract period.

This bridge contract is intended to allow time for MICC Center-Fort Bragg to complete a competitive re-procurement under solicitation (W91247-13-R-0018) currently being executed for the JRTC MSS. The expected award date is July 2017. It will allow for completion of the contract action, transition to a new contractor and time for a new contractor to set up its operations to take over the performance of services.

This section includes a milestone schedule which contains key points for the follow-on competitive action executed by MICC Center-Fort Bragg.

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Milestone Event Date Receive Proposals 07 October 2016 Complete Evaluations 17 January 2017 Receive final proposals 31 March 2017 Complete Final proposal Evaluations 21 April 2017 Congressional Notification Submission 5 July 2017 Award 10 July2017 90 Day Phase-in ending date 23 October 2017 Full Performance 24 October 2017

*All dates are tentative

a. Effective Competition: Because this is a sole source action, effective competition is not applicable.

b. Subcontracting Competition: This requirement is a short term bridge for continuity of services by the incumbent. No additional efforts will be taken by the Government to increase potential subcontracting for this requirement.

7. Actions to Increase Competition: The follow-on competitive requirement executed by MICC Center-Fort Bragg has been solicited and competitively advertised through Government Point of Entry www.fedbizopps.gov.

8. Market Research: Market research has been completed for this action. Research was conducted by reviewing the acquisition history of the previous MSS procurements for JRTC, a search of Government databases (System for Award Management (SAM), Dynamic Small Business Search (DSBS) with key word “training”, Federal Business Opportunities (FBO), Past Performance Information Retrieval System (PPIRS) and Federal Awardee Performance and Integrity Information System (FAPIIS)), review of other Government Agencies, and publishing a Sources Sought Synopsis (SSS) through FBO with the draft PWS.

Generic DSBS Search With NAICS 611699

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a. Market research reveals that there are vendors that can perform these services;

however, immediate services cannot be acquired in time to prevent a break in service and obtain security clearance needed for this effort

b. In accordance with Defense Federal Acquisition Regulation Supplement (DFARS) 205.205-71, DFARS 206.302-1(d), and DFARS Procedures, Guidance and Information (PGI) 206.302-1(d), a sources sought notice was posted to Federal Business Opportunities (FedBizOpps) by MICC-Fort Polk on 19 October 2016 with a response due date of 27 October 2016. Two (2) businesses provided responses with the requested information; however neither business concerned stated that they would be able to perform the requirements for the JRTC MSS services for a twelve (12) month period. As the period of performance is now only for seven months prior to the new award, these same businesses could not perform the requirements for a shorter period of time. The results are attached.

c. Based on the market research, it was determined that the only possible acquisition method to continue performance for the subject requirements without an unacceptable degree of risk is to award an interim bridge contract to allow time to complete the follow-on competitive award by MICC Center-Fort Bragg.

9. Interested Sources: As stated in the previous paragraph, two (2) interested sources provided the requested information as part of the sources sought posting. To date, no other sources have written to express interest in the bridging acquisition. Due to the need to continue services at the JRTC without interruption, only the incumbent contractor has been deemed capable of meeting the stringent timelines and requirements within the constraints imposed by the Army.

a. Notice. In accordance with FAR 6.305(a) the justification shall be published on FedBizOpps within fourteen (14) days after contract award.

b. The incumbent contractor information is as follows: Cubic Global Defense, Inc., 2280 Historic Decatur Road Suite 200, San Diego, California 92106-6133.

10. Other Facts:

Procurement History

Contract Number Contractor Set-aside Competitive Action?

W911S0-07-C-0007 CUBIC Global Def Unrestricted Yes DABT60-01-C-0009 CUBIC Applications, Unrestricted Yes DABT60-96-C-0033 TRW Unrestricted Yes

Milestone schedule with key points for the short term bridge executed by MICC-Fort Polk.

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13. 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.

Proposal analysis will be accomplished in accordance with FAR 15.404-1. The incumbent contractor’s proposal costs will be carefully examined and verified to the maximum extent possible in comparison with the developed IGCE to establish cost reasonableness. The Government has historical data, under the existing contract, which can be used to establish cost reasonableness. The current contract was competed on a full and open basis, with pricing submitted in a competitive environment. Certified cost or pricing data will be required.

_ Date: __________________

Contracting Officer

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

____ Date: __________________

Contracting Officer

24 January 2017

24 January 2017