20230518_ADS_JA_Final_Redacted._Redacted.pdf

DEPARTMENT OF THE ARMY

JUSTIFICATION AND APPROVAL

FOR OTHER THAN FULL AND OPEN COMPETITION

1. CONTRACTING ACTIVITY: The contracting activity is the Army Contracting Command-Detroit Arsenal (ACC-DTA), MI.

2. DESCRIPTION OF ACTION: ACC-DTA proposes to award, on a sole source basis, a follow-on Firm-Fixed Price (FFP) contract to Active Decision Support, Inc. (ADS), a Service-Disabled Veteran-Owned Small Business Concern (SDVOSBC) with a CAGE Code 53SZ1. The Center for Army Analysis (CAA) has a requirement for continued support and development of the Cost Comparison Tool for Stationing (CCATS) model update to meet Department of Defense (DoD) and Army strategic and day-to-day stationing decisions.

3. DESCRIPTION OF SUPPLIES/ SERVICES: This requirement is for contracted advisory and assistance services in support of the CCATS model. Specifically, the CAA, in accordance with FAR 37.203(b) seeks to obtain the opinions, special knowledge, or skills of noted experts and enhance the understanding of, and develop alternative solutions to, complex issues. CCATS is a complex current model consisting of numerous algorithms, interfaces, and analysis tools that uniquely compares the cost of DoD and Army stationing actions. The subject matter expert is assisting the Government representatives with the continued development of the requirements document, developing options for implementing requirements, model testing, and model training.

The CCATS project's objective is to provide a model capable of estimating the cost of stationing scenarios and compare competing stationing scenarios to determine which one should be recommended for approval and implementation. CCATS model revision Phase 1 has been completed under prior contracts and was co-led by CAA and the Office of the Secretary of Defense (OSD) with participation from all Services. The objective of this follow-on Phase 2 contract is to provide continued subject matter expertise to the Center for Army Analysis developing the requirements document for the enhanced CCATS model in support of strategic stationing studies DoD wide and for use in all levels of Army stationing studies. Certain specific functional enhancements and improvements will need to be made to the CCATS model. A subject matter expert who has extensive knowledge of the CCATS Joint Process Action Team (JPAT), the CCATS requirement document, and the ongoing CCATS model revision and testing is required to advise the CAA on the model requirements and how to translate those into the requirements document for use by the contractor who is conducting the programming portion of Phase 2. The subject matter expert is not assisting with the development of the model, the programming of the model, or providing assistance directly to R&K Solutions Inc.

This requirement also includes continued model maintenance, model testing, model documentation, and training to Government personnel on model usage and programming.

The Period of Performance is for one base year and three (3) option years as follows:

Base Year – 13 September 2023 to 12 September 2024, estimated contract value, Option Year 1 – 13 September 2024 to 12 September 2025, estimated contract value, Option Year 2 – 13 September 2025 to 12 September 2026, estimated contract value, Option Year 3 – 13 September 2026 to 12 September 2027, estimated contract value, The total estimated value of this contract for the Base Year and three option years is , the Base Year estimated value is . Fiscal Year 2023 (FY23) Operational and Maintenance, Army (OMA) appropriations will be used for the base year.

4. AUTHORITY CITED: The statutory authority permitting other than full and open competition is 10 U.S.C. 3204 (a)(1), as implemented by Federal Acquisition Regulation (FAR) 13.501(a)(2)(i), Sole Source Acquisitions

5. REASON FOR AUTHORITY CITED: The justification for citing FAR 13.501(a)(2)(i) is to utilize a single contractor for all CCATS services available only from the original source in the case of follow-on contract for the continued provision of highly specialized services that can only be satisfied by the current contractor, ADS, which has been performing under contract W56HZV19CL285 period of performance 13 September 2019- 12 September 2023. An award to any other vendor would result in substantial duplication of cost that would not be recovered through competition.

ADS has acquired highly specialized knowledge and expertise in cost analysis, stationing analysis and processes, prior DoD stationing cost models (such as the Cost of Base Realignment Actions (COBRA) and Unit Replacement Cost Model (URCM)), the current CCATS model, as well as the JPAT developed CCATS requirement document;

and the JPAT discussions. Award to another contractor would result in a major break in service due to the learning curve required to learn the skills pertaining to the CCATS model update, the decisions that led to the development of the requirements document, and the JPAT discussions Award to any other source would result in substantial duplication of costs to the Government that is not expected to be recovered through competition. The steep learning curve would result in a much higher cost to the Government; an estimated cost of . This figure captures the estimated cost to the Government of having a contractor that is unfamiliar with the CCATS requirements and their 2-year contract cost while they get the training required. During such time they would not be able to provide the subject matter expertise to the Government until after receiving necessary training.

Since Government personnel do not currently possess the detailed knowledge or skills needed to train a new contractor the training would have to be completed by the current contractor at an additional estimated cost of . This is the estimated cost for the current contractor to provide CCATS requirements training and is in addition to the new contractor's contract cost.

CAA needs an auditable, repeatable, and sustainable structured process to provide an efficient means to build the CCATS model. As the first phase of the process, CAA co-led along with OSD the DoD JPAT and conducted requirements analysis to determine how the current model could be improved. The second phase is to continue to support the Government with a revised CCATS model with subject matter expertise advice and testing support.

ADS has the subject matter expertise required to aid the Government in continuing the CCATS model update. The following are the ADS contractor's sole source credentials and unique qualifications to support CAA:

1. Developed and led an analysis team at CAA to conduct stationing analysis. That team supported the 2001 Quadrennial Defense Review (QDR), 2005 BRAC, and all stationing analysis since BRAC 2005.

a. Lead stationing analyst at CAA for the 2001 QDR stationing tasks.

Revised the COBRA model that was used for the 1998 BRAC for use within the QDR, which was called the Unit Relocation Cost Model (URCM). ADS is uniquely aware of the challenges with changing the COBRA model and the model's requirements for large analyses like the QDR and BRAC.

b. Authored the Optimal Stationing of Army Forces (OSAF) model that addressed the QDR and stationing questions for the Army. This model used the cost algorithms completed for URCM. ADS is keenly aware of cost algorithms needed for multiple BRAC analyses and is the expert on other key stationing models such as the OSAF model.

c. URCM was used for the QDR stationing analysis and was the basis for the COBRA model for BRAC 2005.

2. Lead analyst for the 2005 Army BRAC and the Division Chief for the Analysis Division for The Army Basing Study (TABS) group.

a. Led the OSD JPAT that reviewed and refined the COBRA Model for BRAC 2005, which started with URCM from the first COBRA enhancement effort.

b. Responsible for all analysis that used the model and is uniquely aware of its analytical, data, and structural shortcomings.

c. Received a comptroller award for the work completed on the COBRA model in support of BRAC 2005.

3. Unique knowledge of CAA, the current CCATS model update and the CCATS

JPAT.

a. ADS has been CAA's training and analytical support for large infrastructure analyses for the last 9 years. Their past work with CAA as a supporting contributor gives a unique perspective of the work and needs of CAA. ADS has unique knowledge of the current and recent DoD stationing efforts and the requirements of those analysis efforts which is necessary for understanding how the DoD will need to use the updated CCATS model.

b. ADS served as the CAA supporting representative on the DoD's CCATS JPAT and assisted with the planning, algorithm review, analytical needs within the software, enhancements, the requirement effort, and is developing the needed artifacts for the next phase of the CCATS enhancement project.

c. ADS is currently working on this effort to update the CCATS model by providing advice, support, and testing capabilities to the contractor programming the CCATS model. ADS is a vital member of the CCATS model programming team. ADS is ensuring the decisions made during the JPAT and written in the CCATS requirement document are interpreted and implemented correctly by the programming team and are the main source of testing and support to the programming team.

d. ADS will help CAA to develop stationing cost analysis domain knowledge including CCATS, its use, and possible cost applications within DoD and Army strategic and day-to-day stationing actions.

6. EFFORTS TO OBTAIN COMPETITION:

a. Effective Competition. The Government will not compete this effort for the reasons noted in section 5. The Government will post all notices by FAR 5.201 for this action.

b. Subcontracting Competition. Pursuant to FAR 19.702(b)(1), a small business subcontracting plan is not required since ADS, Inc is a small business.

7. ACTIONS TO INCREASE COMPETITION: Extensive training in both the process and CCATS model updates will be provided under this contract by the current contractor to selected CAA personnel so that the CCATS model update can at least partially transition from contractor expertise to Government maintenance and expertise in the future.

Once Government personnel have received adequate training in CCATS during the next 4-year period of this contract, it may be possible to no longer rely on the contractor’s subject matter expertise to update or run the updated model. There have not been any actions to increase contractor competition, other than increasing CCATS knowledge and training.

8. MARKET RESEARCH: Pursuant to FAR 10.002(b)(2), market research was conducted by the Subject Matter Expert (SME) Operations Research & Systems Analyst at CAA. Both the General Services Administration (GSA) and Interagency Contract Directory (ICD) websites were surveyed in May 2023, and no contractors contained the specialized combination of cost analysis and stationing knowledge, or experience and the totality of algorithmic skills required to execute subject matter expertise to the model update. Additionally, a Sources Sought was posted to SAM.gov on 29 June 2023 and closed on 07 July 2023. A total of two companies responded to the Sources Sought, all providing answers to the 12 questions within the market survey document posted to SAM. In July 2023 the SME performed a detailed review and analysis of the responses to the Sources Sought and determined one of the two potential vendors could satisfy the immediate requirement. The results are listed below.

- provided a response to all 12 questions from the Sources Sought. responses to 4 of the questions demonstrated the lack of knowledge as it relates to the BRAC, stationing, and the models currently being updated.

ADS, Inc.- ADS provided a response to all 12 questions from the Sources Sought. ADS’s responses were acceptable and demonstrate knowledge as it related to BRAC, stationing, and the models currently being updated. Additionally, ADS has been working on this requirement since 2016. Therefore, ADS is the recommended contractor the CCATS Model support services.

Although other sources have been identified, no other source has the necessary experience or knowledge with the current CAA requirements. ADS is the only known contractor with the experience and expertise needed to provide highly specialized required services within the constraints specified in paragraph 5 above.

9. INTERESTED SOURCES: To date no other sources have written to express interest.

10. OTHERFACTS:

a. Procurement History The Governments most recent procurement history, as it pertains to the requirements contained herein, is provided below.

1) Contract No: W56HZV-19-C-L285 Award Date: 13 September 2023 Contract Amount: $516,036.00 Contractor Name: ADS, Inc, Period of Performance: 13 September 2019- 12 September 2023 Competitive Status: Sole source

2) Contract No: W91CRB-16-F-0030 Award Date: 17 April 2017 Contract Amount: $277,524.00 Contractor Name: ADS, Inc, Period of Performance: 17 April 201731 Jul 2019 Competitive Status: Competitive

11. TECHNICAL AND 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.

NAME: Ms. Sarah Stewart DATE: 20 June 2023

TITLE: Operations Research Analyst/ COR SIGNATURE: //SES//

12.MANAGEMENT REVIEW/APPROVAL: The requirement herein described is a valid requirement of the activity named in paragraph 3 of this justification. The technical and requirements information contained in the J&A represent the minimum needs of the government.

The only way to satisfy this requirement is by limiting competition as described herein.

NAME: Mr. Vernon Bahm

TITLE: Chief, Deployment and Enablers Analysis Division, CAA

DATE: 21 June 2023

SIGNATURE: //VJB//

13. FAIR AND REASONABLE COST DETERMINATION: I hereby determine that the anticipated cost for this contract action will be fair and reasonable. The basis for this determination is from data in the current contract, market research and the Independent Government Estimate. The contractor will not be required to submit certified cost and pricing data because the proposed action will be a commercial procurement IAW FAR 15.403-1(b)(3).

NAME: Ms. Elida Kellezi DATE: 4 August 2023

TITLE: Contracting Officer SIGNATURE: //EK//

14. CONTRACTING OFFICER CERTIFICATION: I certify that this information included in the justification is accurate and complete to the best of my knowledge and belief.

NAME: Ms. Elida Kellezi DATE: 4 August 2023

TITLE: Contracting Officer SIGNATURE: //EK//