2021.10.14_J&A_REDACTED.pdf

CUI

SOURCE SELECTION INFORMATION – See FAR 2.101 and 3.104

JUSTIFICATION FOR AN EXCEPTION TO FAIR OPPORTUNITY

Industry Consultant Services in support of the Joint Transportation Management System (JTMS) Program

JA 22-05

1. CONTRACTING ACTIVITY.

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

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

This Justification and Approval (J&A) supports USTRANSCOM’s requirement to continue industry consultant services in support of the JTMS program with the current contractor. This J&A documents the rationale for the procurement of professional services under the JTMS program continuing critical tasks in the acquisition planning phase of the procurement process utilizing the same consulting services provider USTRANSCOM engaged for providing advice in relation to critical areas of the JTMS program.

The action will be awarded as a firm fixed price task order, with a period of performance of 25 October 2021 through 24 April 2022.

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

(INCLUDING ESTIMATED VALUE).

USTRANSCOM requires continued consulting and analysis services relating to the JTMS program and its requirement to adequately plan for a future potential JTMS acquisition.

Specifically, this effort will require the contractor to provide the necessary expertise including all services, materials, and project management, to accomplish the following tasks:

a) Project/Program Management

b) Joint Program Office (JPO) / Transportation Community of Excellence (TCoE)

c) Governance and Executive Agency

d) Financial Management Reform Analysis

e) Research and Market Analysis

f) Implementation and Program Acquisition Strategy

g) Procurement Strategy Development

Controlled by: USTRANSCOM Controlled by: Directorate of Acquisition CUI Category/ies: SSEL Limited Dissemination Control: FED ONLY

POC:

tcmenccr Cross-Out tcmenccr Cross-Out tcmenccr Cross-Out tcmenccr Cross-Out

The agency requires a six-month period of performance for this follow-on effort. The agency contemplates award of a Firm Fixed Price Task Order utilizing the General Services Administration’s contract, One Acquisition Solution for Integrated Services (OASIS), subject to the procedures under FAR 16.505. The estimate value of this acquisition is (inclusive of the OASIS Contract Access Fee).

The following provides an overview of the acquisition history with respect to industry consultant services in support of the JTMS program:

Contract/Task Order Number: FA701421F0139 Contractor: Grant Thornton Public Sector, LLC Total Contract Value: $791,606.04 Acquisition Strategy: Fair Opportunity, subject to the procedures of FAR 16.505

4. IDENTIFICATION OF THE EXCEPTION TO FAIR OPPORTUNITY AND

SUPPORTING RATIONALE.

In accordance with FAR 16.505(b)(2)(i)(G), the order satisfies one of the exceptions permitting the use of other than full and open competition listed in 6.302; specifically, 10 U.S.C.

2304(d)(1)(B) - Substantial duplication of cost to the Government that is not expected to be recovered through competition; and Unacceptable delays in fulfilling the agency’s requirements.

Grant Thornton Public Sector, LLC (hereafter Grant Thornton) previously competed and was awarded a task order under the Air Force Strategic Transformation Support Indefinite Delivery / Indefinite Quantity (IDIQ) Contract for JTMS Consultant Support. The task order required Grant Thornton to develop and deliver an Implementation Study, which focused on analyzing relevant factors (e.g. technical, schedule, financial, operational, legal) associated with implementing and integrating a JTMS enterprise-wide; a System Specification Document (SSD), which documented functional requirements, performance requirements, key performance parameters, system technical requirements, and specifications; and a Performance Work Statement (PWS), which documented all requirements necessary from planning to implementation to sustainment of the JTMS.

This effort required Grant Thornton to review well over 500+ documents related to the JTMS program and engage in more than 40 discussions with key Government personnel. Through the performance period, a total of more than 600 labor hours were expended between Government and Grant Thornton personnel for the purpose of educating experts at Grant Thornton in the detailed operations across a wide range of systems impacted by the potential JTMS solution.

Through the documentation review and discussions with the Government, Grant Thornton gained a wide-ranging and comprehensive understanding of the Joint Deployment Distribution Enterprise and the more than 85 IT systems operating in support of this mission.

The compilation of this research and analysis resulted in a 126-page Implementation study, a 76-page SSD, and a 57-page PWS. Replacing the contractor at this juncture for accomplishing the identified closely related tasks will require unnecessary substantial duplication of the already accomplished tasks of educating the contractor team and familiarizing the required experts with the wide range of systems impacted by a JTMS solution. This duplication of the significant work already achieved will result in substantial costs that will not be recovered through competition.

As a result of their research, findings, and recommendations from the Implementation Study, USTRANSCOM requires additional analysis to inform senior leaders across the JDDE and aid in the decisions for the JTMS program. If the Government was to compete this effort among the OASIS contractors in Pool 1, it would take 4 – 6 months depending on the number of proposals received. Furthermore, any contractor other than Grant Thornton would not possess the body of knowledge obtained over the last ~45 days given the amount of documentation analyzed and the hours of discussion with Government personnel. To provide similar information to an alternate contractor would require another 45 days, at a minimum, only further adding to the delay in proceeding with the acquisition for the JTMS program.

At the present moment, the JTMS program does not have approved funding beyond Fiscal Year 2022. USTRANSCOM is working closely with Office of the Secretary of Defense to address inquiries that will likely impact any funding decisions for Fiscal Year 2023. Continued consulting and analysis services is critical to the JTMS program as there are potential budgetary implications. The time required to compete the follow-on requirement and attempt to transfer knowledge, would significantly impact the program and forthcoming budgeting/funding decisions for the agency. Failure to continue service would disrupt the 2022 funds allocated for this program and could cause potential duplication of costs for the Government which would not be recouped. It is in the best interest of the Government at this time for USTRANSCOM to continue performance provided by Grant Thornton and develop artifacts supporting the JTMS program during the Acquisition Planning cycle.

5. DETERMINATION BY THE CONTRACTING OFFICER THAT ANTICIPATED

COST TO THE GOVERNMENT WILL BE FAIR AND REASONABLE.

The Contracting Officer will determine the price offered is fair and reasonable prior to task order award. The complexity and circumstances of this requirement will determine the level of analysis and the techniques used to determine the proposed price is fair and reasonable. Such methods include those identified in FAR 15.404-1(b)(2)(ii) & (iv) and a determination will be made by the Contracting Officer that the contract represents the best value to the Government.

6. ANY OTHER FACTS SUPPORTING THE JUSTIFICATION.

Not applicable.

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

REMOVE OR OVERCOME ANY BARRIERS THAT LED TO THE EXCEPTION TO

FAIR OPPORTUNITY BEFORE ANY SUBSEQUENT ACQUISITION FOR THE

SUPPLIES OR SERVICES IS MADE.

Upon completion of the consulting services and additional analysis, the Government does not contemplate any subsequent contract actions. The Government will continue to conduct market research regarding current and future capability needs within the market place to determine the most suitable approach to fulfill the USTRANSCOM’s need with respect to the JTMS program.

8. TECHNICAL OR REQUIREMENTS PERSONNEL CERTIFICATION.

I certify that the supporting data which form a basis for this justification are complete and accurate.

JASON M. MILLER, Lt COL Date JTMS Program Manager

9. CONTRACTING OFFICER’S CERTIFICATION.

I certify that the justification is accurate and complete to the best of my knowledge and belief.

JANEANNE M. HOLTEN Date Contracting Officer

10. WRITTEN DETERMINATION OF THE APPROVING OFFICIAL IDENTIFYING

THE CIRCUMSTANCE THAT APPLIES TO THE ORDER.

Based on the above cited justification, I hereby determine the circumstance in FAR 16.505(b)(2)(i)(G) applies to this justification for an exception to fair opportunity.

KERI LINDSCO Date Competition Advocate