2021.06.02 Redact AMP IDIQ JA.pdf

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SOURCE SELECTION INFORMATION - See FAR 2.101 and 3.104

JUSTIFICATION AND APPROVAL

FOR OTHER THAN FULL AND OPEN COMPETITION

ANALYSIS OF MOBILITY PLATFORM (AMP)

CONTROL NUMBER

21-02

1. CONTRACTING ACTIVITY.

United States Transportation Command (USTRANSCOM) IT Programs & Support Services Division (USTRANSCOM/TCAQ-D), 508 Scott Drive, Building 1900W, Scott AFB, IL 62225.

2. NATURE AND/OR DESCRIPTION OF ACTION BEING APPROVED.

USTRANSCOM/Program Executive Office (PEO) requires other than full and open competition for continued operational and development support for the AMP Program, which is a comprehensive transportation modeling, simulation, and optimization environment used to analyze and assess the movement of military-related cargo and personnel within the Defense Transportation System (DTS). AMP support includes the following requirements:

End-to-End Modeling (ETEM) IV Air Refueling Modeling RDT &E ETEM V Data Refactor / Analytics RDT &E ETEM VI Contested Environment RDT &E Increment V Development Sustainment Enhancements Transportation Feasibility Assessment (TF A)

This action will be a modification to HTC71118DD001, which is a Cost Plus Fixed Fee Indefinite Delivery/Indefinite Quantity (IDIQ) contract with a fixed price contract line item for sustainment.

3. DESCRIPTION OF SERVICES REQUIRED TO MEET THE AGENCY'S NEEDS.

USTRANSCOM/PEO requires continued operational and development support to ensure the successful implementation of TF A requirements, Increment V full operational capability (FOC), ETEM requirements, and sustainment enhancements.

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Controlled by: USTRANSCOM Controlled by: Directorate of Acquisition CUI Category/ies: CUI Limited Dissemination Control: FED ONLY POC: RebeccaM. Connor, 618-220-6730 tckrafla Cross-Out tckrafla Cross-Out tckrafla Cross-Out tckrafla Cross-Out tckrafla Cross-Out

The current contract was executed 1 April 2018 and has a period of performance (PoP) of 1 April 2018 - 30 September 2022 with a ceiling price of $45.SM. There is currently approximately $40M obligated on task orders with another $4.5 contracted to include unexercised optional tasks. A one-year extension is necessary to ensure completion of the planned contract requirements above. Concurrent with the extension, the ceiling price will be increased by 111111• This action is critical to maintaining continuity of effort to efficiently complete the ongoing requirements.

4. STATUTORY AUTHORITY PERMITTING OTHER THAN FULL AND OPEN

COMPETITION.

FAR 6.302-l(a)(2)(iii)(B), Only One Responsible Source and No Other Supplies or Services Will Satisfy Agency Requirements.

5. DEMONSTRATION WHY THE PROPOSED CONTRACTOR'S UNIQUE

QUALIFICATIONS OR THE NATURE OF THE ACQUISITION REQUIRES USE

OF THE AUTHORITY CITED.

The required services are deemed to be available only from the original source for the continued provision of highly specialized services, and award to any other source would result in unacceptable delays in fulfilling the requirement.

Raytheon BBN Technologies (BBN) is the original developer of the AMP program and is the current contractor. Development and maintenance of AMP is highly complex, addressing process and resource capability peculiarities inherent to a military deployment and distribution context. Additionally, the DTS modeling space is very complicated. As such, the required developer expertise is accordingly uncommon.

In August 2020, TCAQ-D required development of modeling and simulation support tools to perform TF As. It was determined TF A was within the scope of the current AMP program, and USTRANSCOM leadership directed the AMP program to incorporate TF A requirements via Task Order 0012. At that time, it was anticipated that TFA would require approximately 2 years. Additionally, the requiring activity, USTRANSCOM/PEO, believed the cost for TF A would fall within the current contract ceiling. These estimates were based upon original analysis coupled with what later proved to be an incomplete understanding of the effect TF A inclusion would have on the other AMP requirements. Subsequent to inclusion of TF A in the AMP program, it became clear that TF A development cannot, in fact, be completed in the originally anticipated timeframe, nor within the current contract ceiling.

The Government now anticipates TF A will require 3 years, which pushes completion to the end ofFY23, which is 1 year beyond the current IDIQ PoP. Further, TFA's relative priority to the command is greater than that of the other contract requirements; as a result, some of the currently planned IDIQ requirements essential to achieving AMP Inc V FOC have been pushed back and will not be complete by the end of the current IDIQ's PoP. ETEM V transition was shifted from FY21 to FY22, and AMP planner/scheduler enhancements were shifted from FY22 to FY23.

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AMP is currently in the critical stages of development associated with the ongoing projects listed in paragraph 3. If the current efforts do not progress on schedule, there will be negative impact on providing timely, credible, and accurate Joint Deployment and Distribution Enterprise (JDDE) analysis and insight to support DoD deployment and distribution operations. BBN is uniquely familiar with the highly complex code, the customer's enterprise environment, user population, operational requirements, risks, and limitations associated with the multiple ongoing projects. The TF A 3-year effort is also on a strict timeline to address the critical analytic tool of record need of the USTRANSCOM and larger DoD Adaptive Planning TF A stakeholder community. A ward of this effort to any contractor other than BBN will cause unacceptable delays to these strict timelines.

Introducing a new contractor mid-stream to completing critical tasks inherent to the scope of the current AMP Increment V IDIQ contract would most certainly result in a 1-to-2-year delay in completing these tasks, along with introducing high risk to achieving accurate results. The Government estimates a new contractor would require at least 1 year to be able to provide moderate support, and at least 2 years to be able to accomplish a majority of current requirements, if at all; it is very likely a new contractor would fail out-right, delivering faulty capability. A best-case scenario re-compete timeline results in a new award no earlier than 30 September 2022, and a transition time of 1-2 years pushes performance to 31 August 2023/2024 for AMP support, assuming performance is successful. Cessation of BBN services in September 2022 would push completion ofTFA from the end ofFY23 to FY24, ETEM V transition from FY22 to FY23, and AMP planner/scheduler enhancements from FY23 to FY24, assuming the aforementioned best-case scenario.

The inability to complete these projects on time due to delays caused by a change in contractor would severely impede executing DoD strategic mobility and Adaptive Planning mission areas. If AMP is not completed by 30 September 2023, users will be required to continue using current Joint Flow and Analysis System for Transportation (JF AST).

Since the users are supporting Operational Planning for USTRANSCOM and the Global Command and Control Systems, those activities are the ultimate efforts that are at risk of failure. Without AMP completion on time, there is a negative impact to USTRANSCOM's ability to determine the transportation feasibility of various Operating Plans. Significant delays and failures in the critical USTRANSCOM TF A and Congressional-level Mobility Capability Studies mission areas are highly likely and should be expected. Further, The total AMP ceiling price is currently $45.5M. The contract requirements listed in paragraph 2 above increase projected cost to ~ ' resulting in an increase ofllll. The ceiling amount established prior to the contract award did not account for the additional TF A requirements, additional ETEM VI Contested Environment work, and other Increment V development and maintenance cost increases. The extension and cost increase are a result of

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tckrafla Cross-Out enhancements, upgrades, and maintenance to existing capabilities and also include the cost to incorporate Contested Environment Modeling (includes ETEM VI RDT &E as well as normal Increment V development and maintenance) and additional TF A requirements into the AMP model. The estimated, projected breakdown follows: FY22 and FY23 task orders at 11111 apiece, Year 2 TF A at_, Year 3 TF A at_, and- in growth if necessary or if the estimates are low.

6. DESCRIPTION OF EFFORTS MADE TO ENSURE THAT OFFERS ARE

SOLICITED FROM AS MANY POTENTIAL SOURCES AS IS PRACTICAL.

Given the information discussed above, offers from other sources will not be solicited.

7. DETERMINATION BY THE CONTRACTING OFFICER THAT THE

ANTICIPATED COST TO THE GOVERNMENT WILL BE FAIR AND

REASONABLE.

The labor rates have already been determined fair and reasonable in the original IDIQ award which was competed on the open market. There is no funding associated with the IDIQ. Task Orders are awarded with cost and/or fixed price line items. The most current direct labor rates are provided by the contractor with each Task Order proposal submittal via Bid Rate Memorandum on file with its cognizant Defense Contract Audit Agency and Defense Contract Management Agency offices. Additionally, a price fair and reasonableness determination is made for each Task Order issued under this IDIQ.

8. DESCRIPTION OF THE MARKET RESEARCH CONDUCTED, AND THE

RESULTS, OR A STATEMENT OF THE REASON MARKET RESEARCH WAS

NOT CONDUCTED.

Prior to award of the existing IDIQ contract, HTC71118DD001, market research was conducted. Based on the market research and resulting analysis, multiple firms were identified as potential sources in satisfying the AMP requirements. The solicitation was posted to FedBizOpps as a full and open solicitation. Only one proposal was received, which was from BBN. For purposes of this modification, no market research was performed.

9. ANY OTHER FACTS SUPPORTING THE USE OF OTHER THAN FULL AND

OPEN COMPETITION.

Not Applicable.

10. A LISTING OF THE SOURCES, IF ANY, THAT EXPRESSED, IN WRITING, AN

INTEREST IN THE ACQUISITION.

Not Applicable.

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11. A STATEMENT OF THE ACTIONS, IF ANY, THE AGENCY MAY TAKE TO

REMOVE OR OVERCOME ANY BARRIERS TO COMPETION BEFORE ANY

SUBSEQUENT ACOUISITON FOR THE SUPPLIES OR SERVICES IS MADE.

While circumstances do not permit full and open competition at this time, it is understood this situation is unique and a one-time occurrence driven by development requirements. The Government anticipates a competitive acquisition of the future re-compete for sustainment, maintenance, and further development of AMP.

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12. TECHNICAL AND REQUIREMENTS PERSONNEL CERTIFICATION.

I certify that the data supporting the recommended use of other than full and open competition is accurate and complete to the best of my knowledge and belief.

PENICK APRIL Oigitally signed'j

• PENICK.APRIL ••••• J- Dais: 2021.05.2411:55:32

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APRIL PENICK

Program Manager

13. CONTRACTING OFFICER'S CERTIFICATION.

I certify that the data supporting the recommended use of other than full and open competition is accurate and complete to the best of my knowledge and belief.

CONNOR.REBEC , .. ~i~;=b_M- CA.fv···· '2021 0S2SOR•1fi•4fi •OS1111'

REBECCA CONNOR

Contracting Officer

14. WRITTEN DETERMINATION OF THE APPROVING OFFICIAL IDENTIFYING

THE CIRCUMSTANCE THAT APPLIES TO THE ACTION.

Based on the above cited justification, I hereby determine the circumstance in 6.302- 1 (a)(2)(iii)(B) applies to this justification for other than full and open competition.

Digitalty s:igMd by

ft. -/41(. J!, tJ . BURTON.CHARLES,MJ,_

~ . 2021,05.2611:23:20-05'00'

CHARLES M. BURTON, JR.

Head of the Contracting Activity

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