CURRENT STRATEGY SUMMARY FOR INFRASTRUCTURE OPERATIONS SUPPORT SERVICES (IOSS) JOINT BASE POWELL, CA This document was compiled by the IOSS project office and summarizes how many of the Joint Base Powell Infrastructure, Operations, and Support Services (IOSS) requirements listed in the draft PWS were acquired in the past. Each service area is briefly covered by providing information about any current initiatives/contracts, current performance problems, and stakeholder comments about any changes in projected requirements.
This document is intended to help the integrated acquisition project team 1) understand and consider the implications of how the various IOSS services requirements were procured in the past and/or are currently being procured; 2) identify potential risks involved in fulfilling the new requirements; and 3) contemplate the extent to which any existing policies and enterprise sourcing strategies might shape the acquisition strategy for this consolidated IOSS requirement. OVERVIEW
The requested IOSS requirement for Joint Base Powell includes 10 service areas. Some of the requirements in these service areas have been fulfilled through an expiring IOSS contract and a number of the services have been fulfilled through a multitude of individual services contracts. The following table summarizes the primary past sources for each of the 10 service areas in the IOSS requirement. Service Area| Previous Source| Contract Type| Housing | Previous IOSS Contract| CPIF/FFP|
Transportation / Motor Pool Management | Previous IOSS Contract| CPIF/FFP| Engineering| Multiple Large and Small Businesses| Various| Janitorial/Custodial| AbilityOne & Small Businesses| FFP| Grounds Keeping / Landscaping | Multiple Small Businesses| FFP| Personnel Management and Support| Large Business| FFP| Security Protection | Large Business| Various| Financial Management| Large Business| FFP| Airfield Management| Previous IOSS Contract| CPIF/FFP| Port Support| Previous IOSS Contract| CPIF/FFP| CURRENT/EXPIRING IOSS CONTRACT
Four of the service areas envisioned as part of the new IOSS contract are currently being fulfilled by the expiring IOSS contract with SIP, Inc. : transportation / motor pool management, housing, airfield operations, and port operations. The current contract is a 5-year (1 base year and 4 option years) CPIF/FFP contract, and the final option year is due to expire in a little over 12 months. Contract:| Infrastructure, Operations, Service and Support (IOSS)| Contractor:| SIP, Inc. (large business)| NAICS Code:| 561210 |
Total Value:| $97. 5M| Type:| CPIF/FFP| Period of Performance:| 5 years (1-year base with 4 option years)| Below is a high-level breakdown of the cost of this contract by FY. Appropriation| FY 20X0| FY 20X1| FY 20X2| FY 20X3| FY 20X4| Total| O&M| 18. 5M| $18. 9M| $19. 3M| $19. 7M| $21. 1M| $97. 5M| Housing Services The existing IOSS contract covers the following types of Housing Management Services: * Housing programming and personnel placement * Housing application management * Housing design and renovation Cost estimation, budgeting, and reporting * Pre-occupancy, pre-departure, and post-departure inspections Transportation / Motor Pool Management Services The existing IOSS contract covers the following Transportation / Motor Pool Management Services: * Operate, maintain, and manage all other services for the installation’s motor vehicle pool * Basic passenger and cargo transportation, loading, and unloading services (as needed) Airfield Management Services The existing IOSS contract covers the following types of Airfield Management Services: Airfield operations staffing * Airfield management and oversight * Airfield inspections (daily, monthly, yearly) and reporting * Airfield use planning, scheduling, and management * Coordinating with all local flying units * Flight planning support Port Support The existing IOSS contract covers the following types of Port Support Services: * Support for biannual transfers of authority * Port maintenance and service planning * Port signage maintenance * Fire support services * Troop support services (laundry, food, etc. * Port operational support services (fueling/defueling, vehicle maintenance and recovery, supply, etc. ) Supplier Information Strategic Infrastructure Professionals (SIP), Inc. is a large business known for their extensive work with the federal government, including working as service/capability integrators. They are one of the few companies large enough to pull together and manage the various teaming partners and subcontractors required to fulfill the various requirements for an IOSS contract. Current Performance
Housing Among other performance requirements, the current contract specifies that the contractor will: * Place 98% of personnel in appropriate housing within the threshold time period * Process 95% of housing applications within the threshold time period * Complete all housing design and renovation projects no more than 8% over the established baseline cost or schedule * Respond to 100% of customer service requests within the threshold time period * Complete 95% of all required inspections on schedule
Though performing well overall under these requirements, SIP has had trouble meeting the application processing (threshold time) and customer service request (threshold response time) requirements during some performance review periods. SIP attributes these issues to subcontractor mismanagement (which it takes responsibility for) and unrealistic estimates of volume fluctuations. SIP has also raised some concerns about its ability to accurately estimate its costs given those same volume fluctuations. Transportation / Motor Pool
The transportation / motor pool management services requirements also specify that the contractor is required to maintain the motor pool at a threshold average availability of 97%, as well as respond to transportation requests for cargo within all routine and emergency service calls within the specified time limits 100% of the time. SIP has had trouble meeting the transportation availability and response time requirements. SIP attributes these issues to unrealistic expectations of an aging motor pool.
Airfield Management The airfield management services requirements specify that the contractor is required to maintain threshold staffing levels, complete 98% of all required inspections on schedule, submit 95% of all required reports on schedule, receive no more than five validated complaints from local flying units per reporting period, and resolve all scheduling conflicts within threshold SLAs. SIP has been exemplary in its performance of the Airfield Management services. Port Support
The port support requirements specify that the contractor is required to support biannual transfers of authority with no validated complaints per transfer, complete 98% of all required service on schedule, complete 98% of all required inspections on schedule, submit 95% of all required reports on schedule, and receive no more than five validated complaints regarding troop support and port operational support services per reporting period. SIP has been exemplary in its performance of the Port Support services.
Stakeholder Comments on Projected Requirements The recent BRAC decisions to move personnel and organizations to Joint Base Powell will present some residential facilities maintenance challenges, as personnel will be relocating to the installation from different locations on different timetables. Facilities requirements and lead times can vary as much as 30% from estimates during these planned relocations, which specify only a five-year window. Complying with the “Better Buying Power” memorandum and its myriad efficiency initiatives are a top priority.
The Pentagon program element monitor communicated that a 5-10% reduction in O&M funding over the next 3-4 years is a realistic possibility. Stakeholders for this contract will be looking for significant cost savings and more granular insight into program costs. There is also some concern about the organizational infrastructure and support for a contract of this size and scope. The program manager and the installation Commander are in separate chains of command from the contracting organization, which may create some challenges.
In addition, the program office for this new IOSS contract will be different than the program office for the existing IOSS contract. Some institutional knowledge may be lost, and there will certainly be a learning curve when it comes to contract administration. ENGINEERING SERVICES Many base tenants and independently funded programs at Joint Base Powell pursue their own contracts for general engineering services. Most of these engineering services requirements are for recurring engineering advisory & assistance services (A&AS), but support is frequently needed for specific and discrete engineering projects as well.
Current Initiatives/Contracts An enterprise contract for engineering A&AS is in place that individual program offices use to fulfill many of their needs for engineering services. Contract:| General Engineering Support Services (GESS)| Contractors:| ManTech (large business)| | TEDCO (large business)| | Littlefield & Chang (small business)| | MECC, Inc. (large business)| | AnCal Consulting (small business)| NAICS Code:| 541330 | Total Value:| $17. 3M| Type:| IDIQ| Period of Performance:| One year base with four option years|
Below is a high-level breakdown of the past and projected funding for this contract by FY. Appropriation| FY 20X0| FY 20X1| FY 20X2| FY 20X3| FY 20X4| Total| O&M / R&D| $3. 0M| $3. 3M| $3. 6M| $3. 7M| 3. 7M| $17. 3M| Current Performance Now in the middle of the second option year (four months remaining), there have been few issues with the contractors’ services to date. Each task order released under the contract specifies its own performance requirements, but in general the tasks are either FFP or incentivize the contractor to meet cost and schedule targets.
Most of the issues that have arisen in this service area stem from variability in volume and conditions—the impact of an influx of personnel from BRAC on requirements scope and scheduling, for example, or the impact of severe weather on development or construction management. Stakeholder Comments on Projected Requirements We’re looking for engineering services, including comprehensive planning, project programming, project management, design and construction management, technical assistance and evaluations, engineering support, and warranty service management.
However, there has been a lot of discussion about this service area in particular. Not all functional stakeholders want these services to be combined. Most like developing their own engineering contracts. Some additional comments: * The requirements in this service area are likely to be impacted by local environmental regulations. * Given the amount of change orders involved in typical engineering services tasks, the contractor will bear an increased management burden for this service area * We need to retain cost viability, but some of the engineering services might be best suited as task orders on an IDIQ vehicle. The evaluation standards and criteria will have to be written very clearly to allow for an accurate value judgment in this services area; the current lack of clarity around some of the future requirements in this area may be an issue, as we will want to give the team room to trade off past performance and skill level against cost. JANITORIAL/CUSTODIAL SERVICES Currently, a few local small businesses and personnel supplied under the AbilityOne program provide janitorial services for the installation.
Although janitorial services aren’t very complex, they’re essential to maintain the installation’s exemplary appearance and comply with local, state, and federal laws. Janitorial services my seem like an insignificant commodity, but the personnel at the installation support a variety of critical missions and DoD functions, and the quality of the janitorial services provided affect their working environment and their ability to do their jobs. Current Contract Information
The AbilityOne program is a Federal initiative to help people who are blind or have other significant disabilities find employment by working within a national network of over 600 Nonprofit Agencies that sell products and services to the U. S. government. The program is administered by the Committee for Purchase from People Who Are Blind or Severely Disabled. AbilityOne offers numerous products for immediate purchase through a catalog, some items on the Federal Supply Schedule, and thousands of services nationwide.
The National Industries for the Blind (NIB) and NISH-Creating Employment Opportunities for People with Significant Disabilities support AbilityOne, and contracting officers wishing to work with AbilityOne can provide a Statement of Work (SOW) to NIB or NISH for a price proposal. In addition to the AbilityOne program, the Installation awarded a contract nearly five years ago for custodial services. Contract:| Installation Custodial Services (ICS)| Contractors:| Apex Maintenance, Inc. local veteran owned small business)| | Thompson Windows & Floors (local small business)| | A1C Professionals (local small business)| NAICS Code:| 561720 | Total Value:| $2,939,500| Type:| Firm Fixed Price (Multiple Award)| Period of Performance:| Five year base with five option years| Below is a high-level breakdown of the cost of this contract by FY. Appropriation| FY 20X8| FY 20X9| FY 20X0| FY 20X1| FY 20X2| Total| O&M| $565,000| $589,000| $592,000| $592,500| $601,000| $2. 939,500| Service Requirements
Under this contract—which was competed as a small business set aside—Apex, Thompson, and A1C provide standard custodial services (interior building cleaning, restroom cleaning and deodorizing, window cleaning, carpet cleaning, etc. ) for the installation. They’re nearing the end of a five-year base period of performance (four months remaining), and there are five option years remaining on the contract. Current Performance The combination of suppliers on the ICS contract and support from the AbilityOne program has met the installation’s custodial services requirements satisfactorily during the base period of performance.
In both cases, the SOW specifies a performance threshold for each individual service of no more than five validated customer complaints per month. The number of validated customer complaints per month has only exceeded the threshold 3 times in over 50 months on the ICS contract, and has never exceeded the threshold for the AbilityOne program. There are no significant performance issues outstanding with any of the service providers. There are two buildings being renovated and one under construction that will need to be factored into the next contract.
Currently, the Installation furnishes 1800-square feet of office space (three offices) to serve as administrative offices for the ICS contractors, as well as supply closets distributed throughout the installation’s facilities at the facility managers’ discretion. Stakeholder Comments on Projected Requirements We currently project no significant changes to the installations custodial requirements. Since these are commercial services, the risk of competing them seems low, with the biggest concern being avoiding gaps in service during the transition.
It’s unknown whether Apex, Thompson, and A1C would be willing to team with a new prime contractor. There is some political pressure to support local small businesses in the current economic climate, and we do have to consider the possibility of protests from offerors who don’t win the award. We also have to consider the recent emphasis on unbundling contracts to promote small business growth and participation in local markets. We will need to conduct an analysis to determine the impact that bundling these services together will have on local small businesses.
GROUNDS KEEPING/LANDSCAPING SERVICES Local small businesses also provide all the grounds keeping and landscaping services the installation requires. Much like janitorial services, grounds keeping and landscaping seem trivial or simple, but the quality and appearance of the landscaping and grounds can directly affect installation personnel and shape visitors’ lasting impressions of the installation. In other words, we take it for granted until it impacts us. The contractor will be expected to promote and maintain the appearance of all exterior areas of the installation.
Current Contract Information Two contracts currently provide this service for the installation. The first, seven months into its first option year, was awarded to Ted’s Tree Service, a Service-disabled Veteran Owned Small Business. Contract:| Tree Trimming| Contractor:| Ted’s Tree Service, Inc. | Number of Employees:| 15| NAICS Codes| 561730 | Total Value:| $360,000| Type:| FFP| Period of Performance:| 3 years (1-year base with 2 option years)| Below is a high-level breakdown of the cost of this contract by FY. Appropriation| FY 20X1| FY 20X2| Total|
O&M| $125,000| $117,000| $242,000| The second, five months into its first option year, is a multiple-award contract for all other lawn services. Contract:| Grounds Keeping and Landscaping| Contractors:| LocalGreen (small business)| | YLC, Inc. (small disadvantaged business)| NAICS Code:| 561730 | Total Value:| $1,256,000| Type:| Firm Fixed Price (Multiple Award)| Period of Performance:| 2 years (1-year base with 1 option year)| Below is a high-level breakdown of the cost of this contract by FY. Appropriation| FY 20X1| FY 20X2| Total| $623,000| $633,000| $1,256,000| Service Requirements Under these contracts, Ted’s provides year-round tree trimming, pruning, removal, and maintenance and arborist consulting services, and LocalGreen and YLC provide all grounds keeping and landscaping services (lawn care, planting, walkways, patios, fertilizing, etc. ) except snow removal. Current Performance Both contracts are being executed satisfactorily, and all performance thresholds have been met so far in both cases. Both contracts are in the middle of their first option years.
Ted’s performance thresholds for tree trimming specify response times and maximum number of customer complaints. YLC and LocalGreen are also beholden to response time and customer complaint thresholds. None of the three has had a customer complaint in the last twelve months. Stakeholder Comments on Projected Requirements As you know, we have many new residents moving onto the installation due to the BRAC initiative. This will generally impact any contract or service area on base, but especially those that pertain directly to facilities maintenance or maintenance to the traffic areas.
As with janitorial/custodial services, we currently project no significant changes to the installations grounds keeping requirements. With janitorial/custodial services, it’s unknown whether YLC, LocalGreen, and Ted’s would be willing to team with a new prime contractor. We will have to include this service area in our analysis on the impact to local small businesses of bundling these services in the next contract. PERSONNEL MANAGEMENT AND SUPPORT SERVICES A large business, Jankell Corporation, currently provide our personnel management and support.
While our stakeholders are satisfied with Jankell’s performance in this service area, personnel management and support services fit within the IOSS construct and could easily be combined with the other services in an omnibus contract. Current Contract Information The Joint Base Powell’s existing contract with Jankell Corporation is due to expire in May 20X1, several months prior to the expected award date for the new IOSS omnibus contract. Service Requirements Jankell Corp. provides the following types of Personnel Management and Support Services: Human resources staff management * Personnel records maintenance and systems management * Establishing position descriptions and job qualifications * Customer service * Education and training * Counseling services * Awards programs While overall the stakeholder’s are satisfied, there have been some complaints. For example, complaints include the difficulty involved in getting approval to change, update, or add position descriptions. Stakeholder Comments on Projected Requirements
While the other services being discussed are critical for the Joint Base Powell and its operations, Personnel Management and Support services typically impact the morale and of the workforce more so than the other services and, as such, they need to be carefully considered in terms of who is selected to perform these critical duties. Efficiency and cost savings should not replace value when deciding on a contractor to provide these services. SECURITY PROTECTION SERVICES We have been meeting our security/protection services requirements through a large business, AlliedPro, Inc.
While AlliedPro has been successfully performing typical commercial security protection services, we would like to streamline this approach, centralizing all Joint Base Powell security protection service requirements under the new IOSS contract. Current Contract Information Three years ago we awarded a contract for security/protection services to AlliedPro, Inc. , a large security and consulting services provider with offices in the area. Contract:| Security/Protection| Contractor:| AlliedPro, Inc. | Number of Employees:| 9250| NAICS Codes:| 561612 | Total Value:| $15. 2M| Type:| FFP|
Period of Performance:| 5 years (1-year base with 4 option years)| Below is a high-level breakdown of the cost of this contract by FY. Appropriation| FY 20X9| FY 20X0| FY 20X1| FY 20X2| FY 20X3| Total| O&M| $2. 9M| $3. 0M| $3. 0M| $3. 1M| $3. 2M| $15. 2M| AlliedPro provides 45 full-time security personnel for the base; the Government provides an additional 20. There are two months remaining in the second option year. Service Requirements AlliedPro security personnel (45 full-time employees) provide the following types of security protection services under this contract: * Conduct routine patrols and manage dispatch Protect property and facilities * Control access to the base * Maintain/administer cyber security systems * Conduct background checks and process security clearance applications * Issue visitor and base personnel identification cards Government security personnel (20 full-time employees) provide the following types of security protection services: * Threat response * Protection for national security operations * Protection for vital equipment * Protection for sensitive and classified information The estimated cost of the work performed by the uniformed personnel is approximately $1. 0M annually. Current Performance
Among other performance requirements, AlliedPro is expected to: * Respond to 100% of incidents within the threshold time specified * Conduct 100% of routine patrols on schedule * Process 95% of background checks and security clearance applications within the threshold time specified * Maintain required training certifications and verify minimum qualifications for 100% of personnel on the contract * Ensure the rate of physical security incidents is below the threshold during at least 95% of the monitoring periods * Ensure the rate of cyber security incidents is below the threshold during at least 98% of the monitoring periods
Currently, we are not satisfied with AlliedPro’s personnel management. In the last twelve months there have been some issues with personal appearance, physical fitness, timeliness, and some customer complaints. AlliedPro manages a large and diverse workforce and works with many large clients and government agencies. Sometimes we feel these issues aren’t getting the attention they should be, and that AlliedPro’s internal hiring standards are not as rigorous as they appear on paper.
Stakeholder Comments on Projected Requirements Our business case analysis shows that transferring the current military support of some base security services will be cost effective, but we want to ensure that consolidation does not impact service quality in this critical service area. We’re concerned with consolidating all our security/protection services under one prime, given our current situation with AlliedPro.
We’re also concerned with the new contractor’s learning curve during the transition period, as they take over protection of vital assets and classified information from military personnel. Another thing to consider: we try to maintain a threshold number of security personnel per capita on base, the population of which increase measurably due to BRAC over the next few years. FINANCIAL MANAGEMENT SERVICES Currently financial management services are handled by Largo, Inc. , a large business.
While there is no reason to indicate that Largo is not successfully performing and that the costs are unreasonable, our business case highlights that rolling these services into the future IOSS omnibus contract will inevitably yield cost savings and related process efficiencies. Current Contract Information The Joint Base Powell contract with Largo for financial management services is in its third of four possible option years, which fortunately align with the fiscal year (the same as the targeted award date for the future IOSS contract).
Estimated Annual Cost/Savings While specific savings for this specific service area have not been forecasted, market research reveals that combining these requirements with the IOSS contract will yield manpower savings, OH reductions, and a more affordable profit rate, all of which have the potential of saving the command significant money and personnel oversight in this tightly constrained budgetary environment. Service Requirements Financial management services currently include: Funds control * Resource allocation * Budget execution * Funds status reports * Cost performance analysis * Funds reconciliation * Labor/payroll support * Review and reconciliation of reimbursable customer accounts Current Performance Largo, Inc. currently offers the following services and performance targets/levels: * Process payroll on time 100% of the pay periods * Process payroll with 98% accuracy during all pay periods * Process all financial transactions with 98% accuracy Conduct 95% of all required audits on schedule * Submit 100% of budgets on time * Ensure compliance with generally accepted accounting principles Stakeholder Comments on Projected Requirements While never popular to displace a contractor that is performing well (unless Largo competes and wins the IOSS contract), the projected cost savings and process efficiencies that the pending IOSS contract offers justifies the transition costs and change management that will inevitably be required to implement this new approach.