47QFAA24R0002_Justification.pdf

CUI//SP-SSEL

CUI//SP-SSEL

CUI//SP-PROCURE - DO NOT RELEASE- Procurement Sensitive Information- See 41 U.S.C 2101 and

FAR 3.104

JUSTIFICATION FOR AN EXCEPTION TO FAIR OPPORTUNITY

UNDER IDIQ CONTRACTS (FAR 16.505)

SOLICITATION 47QFAA24R0002

INTERAGENCY AGREEMENT NUMBER 47QFAA19S0032

The General Services Administration (GSA) makes this Justification for the issuance of an Exception to Fair Opportunity order pursuant to Federal Acquisition Regulation (FAR) 16.5.

1. Identification of Agency and Contracting Activity:

Requesting Agency General Services Administration (GSA) Acting in support of:

USAF/Air Force Distributed Common Ground System (DCGS) Requirements Section Chief, Terry Jones 235 Byron Street, Suite 19A Robins AFB GA 31098-1670 Email: terry.jones.32@us.af.mil Phone: 478-468-5954

Servicing Agency/Contracting Activity GSA Federal Acquisition Service (FAS) Assisted Acquisition Services (AAS) Tacoma, Washington

NOTE: The Servicing Agency identified herein is responsible to procure the required services in support of the USAF DCGS. In accordance with the Interagency Agreement, the Servicing Agency shall act in the capacity of contracting activity for the resultant acquisition. As a result, this justification is hereby prepared and approved by the Servicing Agency Contracting Specialist (CS) and Contracting Officer (CO) responsible for the execution of the services required.

2. Nature and/or Description of Action Being Approved:

The proposed task order will be a time and material with a period of performance (POP) of a four-month base period with three additional one-month option periods (total potential POP will be seven months), based upon an Exception to Fair Opportunity as defined in FAR 16.505(b)(2)(i) (A) and (B), and as further detailed below. The estimated value of this short-term bridge is $5,255,781.51.

Currently, GSA is providing contract administration, in accordance with (IAW) the Interagency Agreement, in support of the Air Force Distributed Common Ground System (AF DCGS) requirement at Robins AFB, GA. The contractor, Booz Allen Hamilton Inc., 8283 Greensboro Drive, McLean, VA 22102-3830, currently

DocuSign Envelope ID: 430B378E-CC32-4615-8A77-713C7FD9E01B supports this action under OASIS contract GS00Q14OADU108, task order 47QFAA22F0002. The requirement, valued at $16,744,586.03, expires on 30 November 2023.

Note – A new competitive 3-year solicitation RFP 47QFAA24R0001 was released for 60 days on 10/06/2023 and with an anticipated award in the first half of 2024. Failure to keep mission critical functions working while the next procurement is competed gravely degrades the ability to support Joint EOD (JEOD), Very Important Persons Protection Support Activity (VIPPSA), OCONUS, and CONUS reporting to non-DoD federal and state agencies increasing the risk of national security threats to national leaders.

3. Description of Supplies/Services and Estimated Value:

The United States Air Force Distributed Common Ground System (AF DCGS) is the Air Force Life Cycle Management Center Office code HBGB (AFLCMC /HBGB) System Program Office (SPO) at Robins AFB, GA, providing Command and Control Intelligence, Surveillance, and Reconnaissance (C2ISR) support to a variety of Air Force Major Commands and Department of Defense (DoD) customers. To support this global enterprise, AF DCGS manages a challenging sustainment system which has critical dependencies on a complex and constantly evolving Information Technology (IT) infrastructure. The system and associated applications, software, firmware, and hardware require that there is no gap in services because it would directly impact mission critical software.

The AF DCGS is represented by tightly coupled Sensor-to-PED Integration forming the basis for a multi-spectral data processing environment.

AFLCMC/HBGB/XR/XP specifically addresses these challenges and charts a path forward to improve efficiency and effectiveness for the AF DCGS enterprise.

The support provided by the SPO includes acquisition, oversight of Contractor provided systems and process engineering, integration, and sustainment - all of which are governed by existing laws, regulations, instructions, policies, and procedures. Over time these complex activities have become increasingly complex and stove-piped, limiting unified effort, and thereby increasing risk, cycle time, and cost. In response, AF DCGS implemented process studies and tool development projects resulting in better integrated, enterprise-wide, clearly defined sustainment processes supported by ongoing continuous process improvement.

The new requirement includes services to provide program requirements analytical support, performance improvement objectives, and solution architecture for a critical technical platform by reviewing, assessing, defining, and resolving technical or supportability deficiencies in fielded systems, products, and materials. AF DCGS, also referred to as the AN/GSQ-272 SENTINEL system, is the Air Force’s primary intelligence, surveillance, and reconnaissance (ISR) planning and direction, collection, processing and exploitation, analysis and dissemination (PCPAD) system. The system employs a global communications architecture that connects multiple intelligence platforms and sensors. Airmen assigned to AF DCGS produce actionable intelligence from data collected by a variety of sensors on the U-2, RQ-4 Global Hawk, MQ-1 Predator, MQ-9 Reaper and other ISR platforms. The estimated value of this short-term bridge is $5,255,781.51.

4. Identification of the Exception to Fair Opportunity and Rationale:

This TO Justification is being prepared as required by:

The exception to fair opportunity is FAR Part 16.505(b)(2)(i)(A) and (B). In regards to para (A), the agency’s need for the supplies or services is so urgent that providing a fair opportunity would result in unacceptable delays. In regards to the exception to fair opportunity is FAR Part 16.505(b)(2)(iii)(B), there is only one awardee capable of providing the supplies or services required at the level of quality required because the supplies or services ordered are unique or highly specialized.

The Government has a continuing need for crucial national security support services, such that failure to award this short-term task order would result in potential disruption of operations. A lapse in service would halt all cybersecurity engineering and help desk support for integrating the Explosive Ordnance Disposal Information Management System (EODIMS) onto the Non-Secure Internet Protocol Router (NIPR), Secure Internet Protocol Router (SIPR), and Joint Worldwide Intelligence Communication System (JWICS) cloud environments that provide critical explosive ordnance and intelligence data for the entire DoD community (USAF, USMC, USA, and USN) and some State agencies. The EODIMS / Enterprise integration system requires constant maintenance and support that ensures its compatibility, interoperability, optimization, availability, and maintainability on the DOD network.

As real-world problems arise, data and information must be passed onto needed personnel without undue delay and/or interruption. To preclude or interfere with the transfer/availability of this information to necessary stakeholders would cause a serious mission degradation that would have a negative impact on the security and safety of personnel this system is designed to protect. Additionally, there would be a domino effect down range that could affect other systems, thereby further endangering national security. If the functions on the existing task order ceased, the EODIMS platform could also lose its authority to operate. This would cause operational issues for AFLCMC/HBGB in executing its mission critical functions. Specifically, lack of support would directly impact the ability to develop solution sets due to loss of integrated evaluation of requirements against current capabilities. It would also impact future year’s projections for the Program Objective Memorandum, which provides AFLCMC/HBGB with the ability to get appropriated funds for the operation and maintenance of the EODIMS system.

Should any technical issues arise that causes EODIMS/Enterprise integration to lose its authority to operate, AFLCMC/HBGB will not be able to submit their requirements for consideration of timely funding until all systems are online, properly functioning, and meet all required DOD systems and network requirements.

The Government is requesting this procurement be conducted on the basis of urgency. The United States Air Force Distributed Common Ground System (AF DCGS) supports Command & Control, Intelligence, Surveillance and Reconnaissance Division systems in its portfolio. Intelligence, Surveillance and Reconnaissance (ISR) functions are principal elements of the United States' defense capabilities and include a wide variety of systems for collecting, processing, and disseminating intelligence needed by national security decision makers and military commanders. The ISR system is utilized around the world to include the Ukraine war and other conflicts where the United States has a strategic interest. According to our client, “EOD personnel are worldwide working in real-world situations and not having the contract award places the entire EODIMS program in jeopardy.”

Evolving contracting and security requirements delayed the award of the follow-on contract and the Government is unable to award to a source other than the incumbent without incurring unacceptable delays in fulfilling mission-critical requirements. This ongoing work requires an integrated contractor using personnel with specific qualifications and clearances (top secret for all technical personnel, secret for all administrative personnel). Conducting a competitive source selection using the acquisition streamlining available under the OASIS IDIQ is estimated to require approximately 160 to 200 days based upon available historical data on similar requirements. Due to the importance of continuous support for this requirement, the new contract will also require a 60-day transition-in period to ensure a seamless handoff. Without an extension to the current contract, this timeline would create an intolerable gap in mission support.

In addition to the above, AF DCGS does not have the capability of assigning organic resources (military or government civilians) necessary to provide the unique and highly specialized technical skills afforded through this task order.

Awarding a new sole source task order with a four-month Base Period, along with three additional one-month Option Periods, would ensure continuation of mission essential services while the Government competes and awards the new requirement.

IAW FAR Part 16.505(b)(2)(i)(B) the incumbent is the only source capable of providing the required unique and highly specialized services. The Contractor’s need for access to the base facilities is a critical factor in the performance under this TO. Due to the need for continued services, issuing a new sole source task order will allow time for the new 3 year task order and prevent a lapse in services.

Booz Allen Hamilton (BAH), as the incumbent, currently possesses the required personnel (onsite), network architecture, and communications in place that achieve successful operations. BAH has the required clearances (top secret for all technical personnel, secret for all administrative personnel) in place and has familiarity with the complexity of services which they are capable of continuing to perform for a period not to exceed seven (7) months, if necessary. No other contractor would be able to receive the required security clearances to begin work for this short period without creating a lapse in coverage as a 60 day transition period is required. The Contractor is also uniquely qualified to provide the necessary services. Finally, the Contractor has been performing satisfactorily under this project as confirmed by the Contracting Officer’s Representative (COR) and CPARS reports.

5. Determination That the Anticipated Cost is Fair and Reasonable:

The Contracting Officer will determine the anticipated proposed price will be considered fair and reasonable. It will be evaluated IAW FAR 15.404-1(b) as applicable. The Government will utilize the IGCE as a price analysis technique along with historical pricing data charged for same or similar type service to determine price fair and reasonableness. The Program Manager, working with the Technical Evaluation Board (TEB), will provide a technical evaluation analyzing the proposed information for the labor categories, level of effort, and travel. Price Fair and Reasonableness will be determined prior to contract award.

6. Other Facts Supporting the Justification:

An analysis was conducted to review the technical impact of not having a task order in place while the recompete of the current task order is completed. As stated above, this task order supports several mission critical functions that under no circumstances can have a lapse in service. Not having contract support coverage would cause AFLCMC/HBGB System Program Office to seek assistance outside the organization to keep operations running.

If AFLCMC/HBGB were to consider requesting the AF command for staffing to support operations, then AFLCMC/HBGB would need a minimum of 30 military personnel. There is no numerical value that can be placed on the negative impact to other military missions/operations should AFLCMC/HBGB leadership need to consider this option. Additionally, it may not be physically possible to get 30 military personnel, with the needed specialties, by December 01, 2023, as the process to request such an action would require higher level command approval well above the local command’s authority.

Next, AFLCMC/HBGB’s would attempt to direct-hire temporary government personnel. This scenario is also unlikely and untimely since AFLCMC/HBGB would have to attain the ability to direct-hire the required positions through the proper human resource channels and Office of Personnel Management (OPM), including verification of all personnel having the proper clearances. Upon completion of a cost analysis to direct-hire personnel, it was determined that the Government would incur approximately $1.0M in additional costs to cover a gap in service. The additional costs were based on a burdened annual cost of $250K per full time employee (FTE), amortized down to four (4) months. The additional costs are mostly attributed to paying for relocation, lodging, and per diem for needed personnel to temporarily relocate. The added costs are not currently paid under the contract nor projected under the recompete contract.

7. Statement of Actions:

The awarding of this sole source task order allows for the necessary timeframe for the Government to procure a three (3) year recompete effort under GSA OASIS on a competitive basis, thus providing fair opportunity to all GSA OASIS vendors in accordance FAR Part 16.505(b)(1). The Government by issuing a sole source task order is removing all barriers to ensure the recompete has a 60-day solicitation period and a 60-day transition-in period.

8. Certification by Contracting Officer I hereby certify that the Justification is accurate and complete to the best of my knowledge and belief, and I determine on the basis of the findings above that the exception to fair opportunity is in accordance with the requirements and is in the best interest of the Government.

Steven Wright Date Contracting Officer

9. Certification by Technical or Requirements Personnel:

I hereby certify that the supporting data is accurate and complete.

Terry Jones Date USAF Requirements Section Chief

10. Determination of Approving Official:

knowledge and belief, and I determine on the basis of the findings above that the

Jackie Sullo Date Advocate for Competition, APEX 3

JONES.TERRY.ANTONIO.1065

458795

Digitally signed by

JONES.TERRY.ANTONIO.1065458795

Date: 2023.11.01 07:26:40 -04'00'

DocuSign Envelope ID: 430B378E-CC32-4615-8A77-713C7FD9E01B

11/1/2023 knowledge and belief, and I determine on the basis of the findings above that the

Darrick Early Date Client Executive, APEX 3