47QFHA22K0026_T04_02 Software J_A Signed.pdf

GENERAL SERVICES ADMINISTRATION

Region 6, AAS

2300 MAIN STREET

KANSAS CITY, MO 64108

JUSTIFICATION FOR OTHER THAN FULL AND OPEN COMPETITION

FAR 6.302-1(a)(2)(iii)

Brand-name product which must be utilized in the case of follow-on contracts for the continued provision of highly specialized services

1. IDENTIFICATION OF THE AGENCY AND CONTRACTING ACTIVITY

a. Requiring Activity: Office of the Under Secretary for Defense (OUSD) for Personnel and Readiness (P&R) 4000 Defense Pentagon Washington, DC 20301

b. Contracting Activity: General Services Administration (GSA) Federal Acquisition Service (FAS) Region 6, Assisted Acquisition Services Division (AASD) 2300 Main Street Kansas City, MO 64108

c. Contracting Officer: Robert Johnson

d. Acquisition ID: 47QFHA22K0026

e. Estimated Total Value: $647,500.00

f. Contract Vehicle: Not Applicable

g. Period of Performance: 04/05/2023 to 04/04/2024

2. NATURE AND/OR DESCRIPTION OF ACTION: FAS Region 6 Assisted Acquisition Services has entered into an Interagency Agreement (IA) with the Office of the Secretary of Defense (OSD), Under Secretary of Defense (USD) for Personnel and Readiness (P&R), 4000 Defense Pentagon, Washington, District of Columbia, 20301, United States. The IA provides acquisition support for various mission critical requirements tasked with OSD-P&R which includes the DRRS-S program. This requirement provides Professional Technical and Analytical Services for the Defense Readiness Reporting System-Strategic, (DRRS-S) located at 4000 Defense Pentagon, Washington, District of Columbia, 20301, United States. The requirement package was received October 3, 2022, with an expected award date of February 28, 2023, resulting in a 128-day Procurement Acquisition Lead Time (PALT). GSA will be executing this requirement as a sole source, follow-on contract with the current contractor, InnovaSystems International, LLC. (Innova). Pursuant to FAR 6.302-1(c) this Justification and

DocuSign Envelope ID: EB2625F1-A5D8-45FC-A568-0FBF71B6AB18

Approval is only for a portion of this acquisition for which the brand-name software licensing for Cerberus SFTP, Graph DB, IBM Cognos, IBM DataStage, and Solar Winds will be procured as essential to the government’s requirements, thereby precluding consideration of a product manufactured by another company.

3. DESCRIPTION OF SUPPLIES OR SERVICES: The primary purpose of this sole source bridge contract is to is to provide the Office of the Secretary of Defense (OSD), Under Secretary of Defense (USD) for Personnel and Readiness (P&R), Defense Readiness Reporting System (DRRS) Implementation Office (DIO) with operation, sustainment, and maintenance support for the Defense Readiness Reporting System-Strategic (DRRS-S) and other related analytical services in achieving the Requiring Activity's (RA’s) mission requirements. DRRS-S provides the means to monitor the readiness of DOD components to provide capabilities to support the National Military Strategy and Mission Essential tasks consistent with DOD priorities and planning direction. Mission-essential tasks range from conducting assessments of the ability to conduct air refueling operations for the air domain to the ability to conduct sustainment operations for the ground domain.

The scope of this contract includes all Department of Defense (DoD) components and associated efforts relative to the DRRS-S. This includes program monitoring, life cycle maintenance, training, help desk services, and management support associated with work performed under this effort. This also includes work to maintain the program’s cybersecurity posture and modernization, systems engineering and integration, and system testing necessary to support the evolving needs of the DoD. The period of performance for this contract is 12-Months (three (3) month base period and three – three (3) month options).

4. STATUTORY AUTHORITY PERMITTING OTHER THAN FULL AND OPEN

COMPETITION: As a DoD) acquisition, this contract is authorized under Title 10 United States Code, Section 2304(c)(1), as implemented by FAR 6.302-1(a)(2)(iii) states that DoD may use the original source in follow-on contracts when using another source may result in Substantial duplication of cost to the Government that is not expected to be recovered through competition” and/or (B) Unacceptable delays in fulfilling the agency’s requirements. Pursuant to FAR 6.302-1(c) this Justification and Approval is only for a portion of this acquisition for which the brand-name software programs Cerberus SFTP, Graph DB, IBM Cognos, IBM DataStage, and Solar Winds are essential to the government’s requirements, thereby precluding consideration of a product manufactured by another company.

5. DEMONSTRATION THAT THE PROPOSED CONTRACTOR’S UNIQUE

QUALIFICATIONS REQUIRES USE OF AUTHORITY CITED: DRRS-Strategic constitutes the system of record for DOD readiness data and is used to compile readiness reports for decision makers in the department and for Congress. The data obtained include resource readiness ratings, mission capability readiness ratings, Mission Essential Task assessments, and other data related to these ratings. DRRS-S provides the DoD with authoritative, almost real-time information on U.S. and select foreign military units. DRRS-S is a comprehensive process and supporting enterprise of interrelated DoD readiness applications and databases. DRRS-S is a centrally installed system that enables globally dispersed pre-registered units to report and update

DocuSign Envelope ID: EB2625F1-A5D8-45FC-A568-0FBF71B6AB18 http://uscode.house.gov/browse.xhtml;jsessionid=114A3287C7B3359E597506A31FC855B3 http://uscode.house.gov/browse.xhtml;jsessionid=114A3287C7B3359E597506A31FC855B3 the status of their equipment, supplies, personnel, and training as well as their overall readiness for battle for the military in the ground, sea, air, space, and cyber domains.

During the performance of this contract, there are five (5) required licenses/accesses required to continue full and optimal operation of DRRS-S. Cerberus SFTP, Graph DB Stardog, IBM Cognos, IBM DataStage, and Solar Winds are unique, proprietary products, required to keep the DRRS-S application operating properly. The following are brief descriptions of each software.

● Cerberus SFTP - Cerberus FTP Server is an on-premise file sharing solution that helps manage file transfer with two-factor authentication and secure SSL encryption. The platform also includes IP whitelist/backlist and automatic account lockout to help users restrict access to files, as well as operations.

● Graph DB Stardog - Graph DB Stardog is a querying system underpinned by a graph database that offers performance for both storing resource description framework (RDF) data and executing SPARQL (computing language) queries. Stardog collects detailed statistics from the graph structure to compute accurate cardinality estimations for Stardog’s query optimizer. Stardog’s query engine provides low latency and high throughput query performance for transactional queries without sacrificing the performance of analytical queries. Stardog can bulk load data into a graph at 500,000 triples per second depending on the server and can answer thousands of queries per second in a single Stardog node.

● IBM Cognos - Cognos is a business intelligence performance management tool and intelligence-gathering platform from IBM that allows technical and non-technical employees in a company to analyze, extract and create interactive dashboards that enable the company to take relevant key decisions. The Cognos tool combines a multitude of products which enables communication with different third parties.

● IBM DataStage - IBM DataStage is an extract, transform, and load (ETL) tool and part of the IBM Information Platforms Solutions suite and IBM InfoSphere. It uses a graphical notation to construct data integration solutions and is available in various versions.

DataStage extracts data, transforms it, applies business principles, and then loads it to any specific target.

● SolarWinds - The SolarWinds Platform is designed to connect with critical business services, to provide flexibility, visibility, and control. SolarWinds monitors, analyzes, diagnoses, and optimizes database performance and data ops that drive business-critical applications. SolarWinds is used to unify on-premises and cloud database visibility, control, and management with streamlined monitoring, mapping, data lineage, data integration, and tuning across multiple vendors.

Their use in the program represents deliberate choices made by the government and the most cost-effective way to provide the government the required functionality within DRRS-S. There are no interchangeable equivalents. Swapping out any or all of these software programs would require a multiyear reengineering effort. The result would be total mission failure. These

DocuSign Envelope ID: EB2625F1-A5D8-45FC-A568-0FBF71B6AB18 https://www.stardog.com/graph-database/ https://www.stardog.com/graph-database/ https://www.stardog.com/blog/property-graphs-meet-stardog/ https://www.stardog.com/blog/property-graphs-meet-stardog/ https://docs.stardog.com/tutorials/query-performance softwares were originally competed for and selected by OUSD and Innovasystems at the outset of the DRRS program.

We estimate that licensing/access to Cerberus SFTP will cost $2,500, Graph DB will cost $325,000, IBM Cognos will cost $135,000, IBM Datastage will cost $160,000, and Solar Winds will cost $25,000 over the course of the contract and its options. The breakdown of the program costs and the base or option period in which they are required to be renewed are in the table below. Considering the likely substantial duplication costs that will come from having to re-engineer the system to work with a software other than those listed above, it is far more fiscally responsible to simply use these five (5) software programs for the duration of this follow-on.

Program Base/Option Period Cost Cerberus SFTP Option Period 3 $2,500 Graph DB Option Period 2 $325,000 IBM Cognos Option Period 1 $135,000 IBM Datastage Option Period 2 $160,000 Solar Winds Base Period $25,000

Moreover, such an exception is required because of the likely unacceptable delays in the sustainment and maintenance of the DRRS-S system. A lapse in service is not seen as tolerable, nor in the best interest of the nation. The ability of the nation’s senior leadership to ensure forces are properly prepared and capable of accomplishing their designed and assigned missions will immediately begin to atrophy; not receiving critical data updates, and with the system left to operate solely on ‘auto-pilot’, it will rapidly become useless. Therefore, this short-term (12-Month) contract to utilize the brand names Cerberus SFTP, Graph DB Stardog, IBM Cognos, IBM DataStage, and Solar Winds for maintenance and sustainment of the current system is required to give the agency time to complete the new requirement and a competitive acquisition can be executed. At that time it will be determined if these brand name items are still essential to the DRRS requirement.

6. DEMONSTRATION OF EFFORTS MADE TO ENSURE OFFERS ARE

SOLICITED FROM AS MANY SOURCES AS PRACTICABLE: Not required per DFARS PGI 206.302-1 which only requires the agency to post a Request for Information (RFI) or Source Sought and inclusion of the results in the J&A (See below and Market Research Memo).

7. CONTRACTING OFFICER DETERMINATION – FAIR AND REASONABLE

PRICE: The estimated cost of these products during the 12-Month sustainment and maintenance contract is $647,500. The Federal Acquisition Regulation requirements listed below will be used to determine the cost of this contract fair and reasonable.

a. Pursuant FAR 15.404-1(a)(2) Price analysis shall be used when certified cost or pricing data are not required (see paragraph (b) of this subsection and 15.404-3).

b. Also, pursuant to FAR 15.404-1(b)(2)(ii) & (v.) a comparison will be done of the proposed price by the offeror to (iii) historical prices paid, whether by the Government or other than https://www.acquisition.gov/far/part-15#FAR_15_404_3 the Government, for the same or similar items and (v.) Independent Government cost estimates.

8. MARKET RESEARCH: Adequate market research was conducted for this requirement.

After reviewing the available mandatory sources, the recommended sources, and the RFI responses, it has been determined that it is in the best interest of the Government to procure a sole source follow-on contract with the incumbent, Innovasystems International LLC. Pursuant to FAR 6.302-1(a)(2)(iii); this acquisition meets the elements of being services that are deemed to be available only from the original source in the case of a follow-on contract for the continued provision of highly specialized services with a DoD agency because it is likely that award to any other source would result in (A) Substantial duplication of cost to the Government that is not expected to be recovered through competition and/or there will be (B) Unacceptable delays in fulfilling the agency’s requirements.” Therefore, a solicitation will be issued to InnovaSystems International LLC for a sole source follow-on contract.

9. OTHER SUPPORTING FACTS: N/A

10. A LISTING OF SOURCES, IF ANY, THE EXPRESSED INTEREST IN THE

ACQUISITION:

CONTRACTORS THAT EXPRESSED

INTEREST

Booz Allen Hamilton Bowhead Mission Solutions

C4 Planning Solutions Defense Logistics

Deloitte Consulting Dhara Consulting Group

Innovasystems KBR Wyle Services

Systems Planning and Analysis

11. STATEMENT OF ACTIONS TO OVERCOME BARRIERS TO COMPETITION:

OUSD has been directed to take actions to create a new, state of the art DRRS system.

Essentially, DRRS will go through a Program transformation, which is the act of changing one program into another or an algorithm that implements program transformation. The language in which the program being transformed and the resulting program as written are called the source and target languages, respectively. OUSD is still working on the new Performance Work Statement to incorporate the new changes. Estimated completion of the PWS is mid to late December 2022. The scope will include a significant Research & Development component, requiring a Cost or Hybrid type contract. Moreover, due to the complex nature of the requirement and the certainty of Multiple Tenants, Technical Directive Letters (TDL) will be leveraged to administer the contract. Therefore, the tentative acquisition strategy is to execute a Full and Open competitive procurement using trade-offs as the Source Selection method.

Due to the estimated completion date of December 2022 for the new PWS, execution of a new competitive award no later than February 2023 (Required Transition Period) is impossible.

Therefore, this short-term (12-Month) contract utilizing Cerberus SFTP, Graph DB Stardog, IBM Cognos, IBM DataStage, and SolarWinds software for maintenance and sustainment of the current system is required to give the agency time to complete the new requirement and a competitive acquisition can be executed. At that time it will be determined if these brand name items are still essential to the DRRS requirement.

12. CONTRACTING OFFICER CERTIFICATION OF ACCURATE AND

COMPLETE INFORMATION. I certify that the supporting data under my cognizance which form the basis for this justification are accurate and complete to the best of my knowledge and belief.

Justin Wise Date Contracting Officer, R6, AAS

13. TECHNICAL CERTIFICATION. A sole source contract to utilize brand names Cerberus SFTP, Graph DB Stardog, IBM Cognos, IBM DataStage, and Solar Winds as the only responsible sources since award to any other sources would likely result in substantial duplication of cost and/or unacceptable delays jeopardizing the agency mission per FAR 6.302-1(a)(2)(iii). Moreover, this 12-month contract is necessary for the purpose of giving the agency time to develop its new requirement for a long-term competitive acquisition. At that time it will be determined if these brand name items are still essential to the DRRS requirement. All supporting data that is the responsibility of the technical or requirements personnel and which form a basis for this justification are certified as complete to the best of my knowledge and belief.

Brian Simmons Date Director of Operations, OSD.

14. APPROVAL: I determine that the exceptions to other than full and open competition outlined in FAR 6.302-1(a)(2)(iii) apply this order.

Janet Schweer Date Competition Advocate, R6