LSJ_MODES_Logical_Follow-on_(1HCA_signed).pdf

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General Services Administration (GSA) Federal Systems Integration and Management Center (FEDSIM)

LIMITED SOURCES JUSTIFICATION

ISSUANCE OF A LOGICAL FOLLOW-ON TASK ORDER

SOLICITATION 47QFCA19Q0003

INTERAGENCY AGREEMENT NUMBER 47QFCA19S0011

The General Services Administration (GSA) makes this Limited Sources Justification (LSJ) for orders pursuant to Federal Acquisition Regulation (FAR) 8.405-6.

1) Identification of Agency and Contracting Activity:

Agency:

General Services Administration (GSA) Federal Systems Integration and Management Center (FEDSIM) Acting in support of: Military Community and Family Policy (MC&FP)

Contracting Activity:

GSA FEDSIM Contracting Office (QF0B) 1800 F Street, NW Washington, D.C. 20405

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

MC&FP requires a logical follow-on, Time-and-Materials (T&M) Task Order (TO) with a Not-To-Exceed (NTE) Contract-Line-Item-Number (CLIN) for Travel to support MC&FP Outreach and Digital Enterprise Services (MODES) continued operations while a competitive TO is developed. MC&FP current operations, capabilities, and assets include robust Information Technology (IT) platforms consisting of a combination of data center and cloud-based infrastructure supporting the MilitaryOneSource.mil website, a collection of web-based applications, on-line tools, supporting content, and communication and engagement services. The Military OneSource website requires ongoing enhancements and modifications to meet the needs of the military community.

As information, resources, and services increasingly migrate to digital delivery systems, the flagship Military OneSource website and MC&FP IT Enterprise platform need to be able to add, remove, or modify capabilities, functionality, and content to continually improve user experience and meet Government program and information delivery needs so that the military community may easily access programs and services.

The FEDSIM Contracting Officer (CO), in support of MC&FP, intends to award a logical follow-on, T&M TO to Halfaker and Associates, LLC (Halfaker), under GSA Federal Supply Schedules (FSS) with consideration for Contractor Team Arrangements (CTA).

This logical follow-on TO will provide the continued support to transform the MC&FP IT Enterprise, provide administrative, operational, maintenance, and programming support for the entire IT Enterprise, and provide support for all outreach and engagement operations and activities – all of which support the programs, policies, and resources of

FEDSIM is a Client Support Center housed within GSA, FAS, AAS Page 2 the Office of the Deputy Assistant Secretary of Defense (ODASD) for MC&FP to significantly improve the readiness of the military community.

The proposed period of performance for the logical follow-on is March 25, 2019, through March 24, 2020 (a ten-month base period and two one-month option periods). The basis for establishing this performance period is the Government’s expectation of the continued support needed for MC&FP after the expiration of the current DOI Call Order. This performance period is necessary to provide continued services to MC&FP while a competitive follow-on acquisition is progressing toward a planned award date of September 2019. The logical follow-on TO value is $52,334,634 (which includes the FAR 52.217-8 Option to Extend Services clause value) enabling an extension to September 24, 2020, for flexibility in responding to circumstances beyond the control of the Government while in development of, and award of the competitive TO.

Award of the logical follow-on TO is required by March 24, 2019 to prevent a gap in service. A break in service will result in MC&FP not having the contractor support to operate its IT infrastructure and the Military Community not receiving the vital information about the support services and resources available to them through MC&FP’s IT Enterprise and outreach program.

3) A Complete Description of Supplies/Services Required to Meet Agency’s Need:

In order to achieve the requirements of the logical follow-on Task Order, the contractor shall sustain the IT infrastructure as well as employ user-centered design principles, Agile development methodologies to enhance and modify the Military OneSource website and existing web-based applications, and evidence-based research to develop and deploy a suite of online resources, applications, and tools. In addition, the contractor shall develop content, and assist MC&FP with innovative outreach and engagement techniques to new and existing users and provide operations and maintenance on the hosting environment and existing applications.

Task 1: Provide Program Management: The contractor shall provide management and oversight of all activities performed by contractor personnel, including subcontractors, to satisfy the requirements identified in the Performance Work Statement (PWS). The contractor shall be required to use the MC&FP’s Tasking, Assignments, and Reporting (TAR) application to obtain MC&FP assignments, report progress, maintain work flow transparency, obtain MC&FP approval on completed assignments, record time spent, and document deliverables.

Task 2: Information Technology Enterprise Support: The contractor shall provide comprehensive support for the MC&FP IT enterprise. This includes: system documentation; accreditation requirements support; security and user access; operational and logistical support; Information Assurance (IA) compliance with all Department of Defense (DoD) and Office of Personnel Management (OPM) IA requirements;

configuration management controls to minimize risk of failure; network management in both the FedRAMP and Defense Information Systems Agency (DISA) environments;

system administration and architecture support; database administration support; Tier I, II, and III customer helpdesk support for all MC&FP websites and applications; and management of the Microsoft exchange system supporting up to 900 users.

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Task 3: Outreach and Engagement: The contractor shall provide support for all outreach and engagement operations and activities to include logistics, business process documentation, measurement analysis and reporting, contingency plans and operations for afterhours/weekends in cases of emergency and disaster response or service interruption, strategic communication operations, content lifecycle management, creative services, online daily operations and management, display program development and support, social media engagement program management, and paid media for targeted audiences.

Task 4: Research, Usability Testing and Design: The contractor shall provide research on innovative digital engagement and communication solutions when directed by the Government, conduct on-going user-experience research and employ user-centered design informed by on-going usability testing, and develop and maintain graphical user interface to be accessible on multiple device types using responsive design.

Materials: The customer requires a variety of support materials for this task order and the contractor will be allowed to provide these materials either via their own GSA Schedule, other GSA Schedules via FAR 51.1 (Contractor Use of Government Supply Sources), and/or GSAR clause 552.238-82 (Special Ordering Procedures for the Acquisition of Order-Level Materials). Materials Contract Line Item Numbers (CLINs) will be established on a Time and Material basis.The proposed period of performance for the logical follow-on is March 25, 2019, through March 24, 2020 (a ten-month base period and two one-month option periods). The basis for establishing this performance period is the Government’s expectation of the continued support needed for MC&FP after the expiration of the current DOI Call Order. This performance period is necessary to provide continued services to MC&FP while a competitive follow-on acquisition is progressing toward a planned award date of September 2019. The logical follow-on TO value is $52,334,634 (which includes the FAR 52.217-8 Option to Extend Services clause value) enabling an extension to September 24, 2020, for flexibility in responding to circumstances beyond the control of the Government while in development of, and award of the competitive TO. The estimated total for the optional six-months available under FAR 52.217-8 (Option to Extend Services) is based on the total level of effort and values of all Periods of Performance (12 months). The estimates are provided below:

Description Base Period

First Option Period

Second Option Period

FAR

52.217-8

Option to Extend Services

Total All Periods

Labor T&M (Tasks 1 – 4)

$27,759,984 $2,693,249 $2,693,249 $16,573,241 $49,719,723

Travel $87,500 $8,750 $8,750 $52,500 $157,500 Materials $2,457,411 NA NA NA $2,457,411 Total $30,304,895 $2,701,999 $2,701,999 $16,625,741 $52,334,634

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4) The Authority and Supporting Rationale:

The acquisition is conducted under the authority of the Multiple-Award Schedule Program.

Consideration of schedule contractors will be restricted in accordance with:

FAR 8.405-6(a)(1)(i)(C) – In the interest of economy and efficiency, the new work is a logical follow-on to an original Federal Supply Schedule order provided that the original order was placed in accordance with the applicable Federal Supply Schedule ordering procedures. The original order or BPA must not have been previously issued under sole-source or limited-sources procedures.

The primary rationale is to continue MC&FP’s IT Enterprise and outreach mission without a gap in service and unacceptable delays. A gap in service will mean a mission failure to MC&FP resulting in the inability to add, remove, or modify capabilities, functionality, and content to the Military OneSource website and MC&FP’s IT Enterprise platform. The military community being served by this information will not receive the vital information about support services and resources available to them through MC&FP’s IT Enterprise and outreach program.

While the competitively awarded DOI BPA has an additional Option Period 4 available until September 2020, the strategic decision of DOD to discontinue the DOD/DOI partnership will result in the remaining PoP not available for utilization. In order for the on-going support to continue with minimal transition, a new contractor would require knowledge of the organizational environment and knowledge of MC&FP’s current IT Enterprise and outreach operations, capabilities, and assets.

Halfaker has the requisite knowledge of the current operational environment and provides the continuity, resources and experience necessary to effectively support MC&FP and its Military community. There is not sufficient time to competitively award a new contract vehicle, nor allow for transition prior to expiration of the existing DOI Call Order by March 24, 2019. Halfaker , therefore, is qualified to maintain the current processing workload without rework or transition, thereby avoiding delays and eliminating inefficiencies.

The award of this logical follow-on TO allows GSA FEDSIM to complete all required acquisition milestones for a competitive effort, while also ensuring that the needs of MC&FP are met through the successful execution and maintenance of the ongoing requirements. The new competitive effort is expected to be awarded in September 2019.

A 120-day transition period will be necessary to transition from this logical follow-on TO to the competitive TO.

5) Determination by the Ordering Activity Contracting Officer that the Order Represents the Best Value Consistent with FAR 8.404(d):

The ordering activity Contracting Officer is taking appropriate measures to determine the best value for this procurement. The level of effort and mix of skills for the task areas have been accurately projected and are substantiated in the Independent Government Cost Estimate (IGCE). The Contracting Officer will verify that the offeror’s quote is consistent with the terms and conditions of the underlying GSA Schedule contract, and will compare the detailed backup data provided in the quote with the underlying GSA Federal Supply Schedule contract and to the Government’s IGCE. Award will not be

FEDSIM is a Client Support Center housed within GSA, FAS, AAS Page 5 made until the Contracting Officer has determined that the prices proposed are fair and reasonable and that the order represents the best value to the Government.

6) Description of the Market Research Conducted Among Schedule Holders and the Results of the Research:

Halfaker has demonstrated through performing the current work that it is capable of providing the support services required for this logical follow-on TO. In considering the rationale above it was determined that awarding a logical follow-on TO to Halfaker is in the best interest of the Government. Halfaker will provide MC&FP with continued support until the FEDSIM competitive acquisition is completed and allow for a 120-day transition period from Halfaker to the awardee of the competitive TO.

With such a tight timeline for reaching award in this logical follow-on environment, market research was limited to reviewing the contract vehicles available to Halfaker and its current CTA for this logical follow-on acquisition. While awardees of prior Task Orders supporting MC&FP efforts were identified in FEDSIM’s review of prior history, they were not considered for inclusion in the market research since each of those Task Orders provided only a limited portion of the overall effort being conducted on the current DOI Call Order. It was concluded that those prior awardees could not transition in immediately to meet the requirement. Additionally, it was determined that Crosby individually would not be able to meet the full requirement of this logical follow-on TO as they do not have an IT Schedule 70 contract.

FEDSIM conducted market research on Halfaker and Crosby Marketing Communications, Inc. It was determined that Halfaker currently holds GSA IT Schedule 70 contract GS-35-241AA and is classified as a Women Owned Small Business, Service Disabled Veteran Owned Small Business. Halfaker Commercial and Government Entity (CAGE) code is 41QW7 and its Data Universal Numbering System (DUNS) number is 557581779. It was determined that Crosby Marketing Communications, Inc. currently holds Professional Services Schedule contract GS- 23F-0040L. Market research will be expanded to the greater marketplace for the competitive acquisition that will follow this logical follow-on TO.

The following were considered during the market research: Halfaker possesses the requisite knowledge of the current operational environment and is qualified to continue MC&FP’s IT Enterprise and outreach mission without unacceptable delays or inefficiencies. Delays caused by failure to add, remove, or modify capabilities, functionality, and content to the Military OneSource website and MC&FP’s IT Enterprise platform timely and efficiently poses risk to the Military Community not receiving the vital information about the support services and resources available to them through MC&FP’s IT Enterprise and outreach program.

For all ongoing work, a new contractor would require gaining a significant amount of knowledge of the organizational environment and knowledge of MC&FP’s current IT Enterprise and outreach operations, capabilities, and assets prior to being productive in meeting the customer requirement.

This market research was conducted in January 2019.

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The results of the market research confirmed that Halfaker and the CTA hold the appropriate GSA Schedule contracts.

7) Any Other Facts Supporting the Justification:

All facts to support this justification have been provided in previous sections.

8) A Statement of the Actions, if Any, the Agency May Take to Remove or Overcome Any Barriers that Led to the Restricted Consideration Before Any Subsequent Acquisition for the Supplies or Services is Made:

To ensure that the circumstances that led the Government to take this logical follow-on action for the requirement is limited to this action only; the Government will execute a thorough competitive acquisition that will complete all the necessary pre-award actions to ensure adequate competition for the competitive effort.

9) Contracting Officer Certification that the Justification is Accurate and Complete to the Best of the Contracting Officer’s Knowledge and Belief:

I hereby certify that this justification is accurate and complete to the best of my knowledge, and I determine on the basis of the finding above that the limited sources approach is in accordance with the requirements and is in the best interest of the Government.

Denise VonDibert Date Contracting Officer FEDSIM Acquisition, Defense Sector

10) Evidence that any Supporting Data that is the Responsibility of Technical or Requirements Personnel and Which Form a Basis for the Justification Have Been Certified as Complete and Accurate by the Technical and Requirements Personnel (If Any):

Supporting data provided by technical personnel has been certified as complete and accurate as demonstrated by comparing the logical follow-on requirements provided by MC&FP personnel to the historical documents associated with the current DOI Call Order. This historical documentation includes the awarded Call Order, the awarded BPA, the BPA RFQ and Acquisition Strategy, and the proposal pricing data submitted by Halfaker in response to the BPA and Call Order solicitations. The FEDSIM Integrated Project Team has found the logical follow-on requirements to be consistent with the scope of the existing BPA and Call Order requirements.

Sedar Dunn Date

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Project Manager FEDSIM DoD Group

11) Written Determination by Approving Official(s) Identifying the Circumstance that Applies:

I hereby certify that this justification is accurate and complete to the best of my knowledge, and I determine on the basis of the findings above that the award of a FAR 8.405-6 (a)(1)(i)(C)-based logical follow-on Task Order under GSA FSS, is in accordance with the requirements and is in the best interest of the Government.

Thomas Howder Date Head of Contracting Activity (HCA) Federal Acquisition Service, Assisted Acquisition Services