JA24-019 JPES Final Signed_Redacted.pdf

CUI

Controlled By: DISA Controlled By: SD/SD4 CUI Category: PROCURE Distr FEDCON

POC:

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LIMITED SOURCE JUSTIFICATION & APPROVAL (J&A)

FEDERAL ACQUISITION REGULATION (FAR) PART 8 ACQUISITIONS

Multiple Award Schedule (MAS)/Multiple Award Contract Orders under MAS/General Services Administration Schedules (GSA)/Federal Supply Schedules

(FSS) FAR 8.405-6

Purchase Request Number: To Be Determined (TBD) Contract Number: TBD Task/Delivery Order Number: TBD Procurement Title: Joint Planning and Execution Services (JPES) Legacy Software Sustainment and Maintenance Estimated Value: $ (including options plus the -8 period) Statutory and Regulatory Authority: 10 U.S.C. 3204(a) and FAR 8.405-6 (a)(1)(i)(B)

J&A Number: JA24-019

Upon the basis of the following justification, I, as Procurement Activity Competition Advocate (PACA), hereby approve this limited source justification pursuant to the authority of FAR 8.405- 6(a)(1)(i)(B). The acquisition referenced herein is conducted under the Statutory Authority of the Multiple Award Schedule Program, 10 U.S.C. 3204(a).

1. REQUIRING AGENCY AND CONTRACTING ACTIVITY:

Requiring Agency:

Defense Information Systems Agency (DISA) Acquisition Center (ACQC), Services Development Executive Office (SD), Command and Control (C2) Portfolio Management Office (SD4) 6910 Cooper Ave.

Fort Meade, MD 20755

Contracting Activity:

DISA/Defense Information Technology Contracting Organization (DITCO) National Capital Region, DITCO NCR, PL62 6910 Cooper Ave.

Fort Meade, MD 20755

2. NATURE/DESCRIPTION OF ACTION(S):

The nature of this action is to award a new firm-fixed-price (FFP) task order for a base period of nine-months with three, three-month option periods to continue the services currently provided

JPES Legacy Software Sustainment and Maintenance- JA24-019

Page 2 of 9 Pages under contract HC1047-22-F-0018. Fiscal Year (FY) 2024 and FY 2025 Operations & Maintenance (O&M) appropriations will be used to fund this effort.

3. DESCRIPTION OF SUPPLIES/SERVICES:

JPES Program management Office (PMO) requires continuity of services to support continued maintenance and sustainment for the JOPES, and Joint Capabilities Requirements Manager (JCRM) to ensure the availability, stability, and interoperability of the system. The Period of Performance (PoP) should all options be exercised is 7 March 2024 – 6 September 2025, with an estimated cost of $ (value including all options minus the -8 period); and/or $ (value including all options plus the -8 period).

JOPES is an integrated Joint Command and Control (C2) system, and is the key Joint capability used to support military operations worldwide, enabling force planning, deployment and redeployment planning, and execution activities that support the movement of military forces and other capabilities, personnel, and equipment, as determined, within the Joint Planning and Execution Community. JOPES is the critical Joint C2 system that provides an automated force planning and execution capability necessary for simultaneous and resource-informed planning activities supporting thousands of operational users across the globe. The mission essential time phased force deployment data is inputted, validated, processed, and stored in JOPES, informs planning and execution activities, and supports the United States Transportation Command strategic movement of forces in and out of theater, as well as in-theater movements. There is no alternate capability to fulfill the JOPES mission and there are 21 external systems across the Combatant Commands, Military Services, and Defense Agencies that are dependent on JOPES to perform their force planning and execution activities.

JCRM is a tool that takes operational plans inputted into JOPES and creates orders for those plans which in turn is sent to the Department of Defense (DoD) secretary for authorization.

Given the operational relationships between JOPES and JCRM, the current requirement is that sustainment for both capabilities reside with a single contract until JOPES sunset. Once JPES reaches Initial Operating Capability (IOC) and JOPES can be sunset, a short-term support for the JCRM capability will be transitioned to a new, separate competitive JCRM only effort. In the longer-term, JCRM will also be transitioned to JPES and therefore, the JCRM transition date is currently not known but estimated to be in the late 2020’s.

Currently, task orders on the Global Force Management (GFM) Indefinite Delivery / Indefinite Quantity contract vehicle are working to deliver a production ready JPES capability by the end of Calendar Year (CY) 2024 when IOC is scheduled. This will enable the JOPES sunset. This effort will allow for sustainment and maintenance for JOPES and JCRM to continue until JOPES can be sunset and a JCRM follow-on contract can be awarded, and the transfer of technical knowledge required to sustain the program.

The JPES PMO requirement is for sustainment, maintenance, and project management support services to ensure the system availability, stability, and interoperability of the JOPES and JCRM legacy systems.

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4. IDENTIFICATION OF LIMITED SOURCE AUTHORITY AND DEMONSTRATION OF

CONTRACTOR’S UNIQUE QUALIFICATIONS:

(a) Circumstances Justifying Limiting the Source. FAR 8.405-6 (a)(1)(i)(B), only one source is capable of providing the supplies or services required at the level of quality required because the supplies or services are unique or highly specialized.

(b) Description of the Justification.

InterImage is the only source capable of providing the unique and highly specialized services required to operate and maintain the custom developed Joint C2 systems JOPES and JCRM. The JOPES and JCRM system architecture dates back 35 years and is comprised of end-of-life hardware and software components and an obsolete programming language for the software code base, Tool Command Language / Tool Kit (Tcl/Tk), that are no longer widely available in industry. Additionally, the systems are integrated with 21 external DoD C2 and logistics capabilities through tightly coupled interface connections and have critical external dependencies for many common and core functions. InterImage’s subject matter expertise with these unique hardware and software components, code programming language, and highly specialized interfaces with external Government systems is required to support software development and test efforts, release future functionality and enhancements, and ensure the operational maintenance of the JOPES and JCRM to meet the operational mission for joint force planning and execution activities. Failure to provide the unique and highly specialized services required to maintain these operational Joint C2 systems places the planning and execution of global military operations at significant risk of mission failure.

In addition to providing support to the current architecture, InterImage has been closely aligned with the team developing the JPES follow-on capability. Their participation in multiple technical exchange meetings with the JPES team have given them a unique and crucial insight into the capabilities currently provided by JOPES-JCRM, helping to ensure the capabilities are successfully integrated into the JPES, and enabling the long-delayed sunset of the JOPES capability. The follow-on JPES capability will need to read and write a significant amount of data that currently resides in JOPES, and interfaces across the full range of data available within JCRM. InterImage possesses this unique and highly specialized expertise, not only on how these information requirements are implemented, but also on how these data and information needs support the operational user. This thorough understanding was achieved due to the direct interaction between the current JPES team, as well as with the previous unsuccessful JPES development teams and JPES Solution dependency on JOPES-JCRM.

Due to the inability to sunset the JOPES capability within the originally specified timeframe, there have been numerous burdens in maintaining the legacy platform for an extended period of time. Had JPES deployed as scheduled, there would be no need for additional funding or major support as each program would have sustained through 2019 easily with basic maintenance and life-support. This course of action would have allowed the decommissioning of the JOPES legacy system in August 2018 as initially intended, with the JCRM and Preferred Force Generation (PFG) programs being decommissioned

Page 4 of 9 Pages after Phase II of JPES deployment reaching Full Operational Capability. The PFG was sunset on 18 March 2020 due to diminished usage from the Joint Staff J35 community.

Due to the age of the software and that the computer language is not widely supported, InterImage is uniquely positioned and the only source capable of performing the required sustainment and maintenance to get JOPES and JCRM through CY 2025. The Government’s required timeline to implement software solutions would be at significant risk if another vendor had to be onboarded and brought up to speed.

To mitigate further delays, the JPES PMO must ensure direct efforts are taken that permit continued work to provide the required sustainment, enhancements, and improvements to the JOPES-JCRM platforms. Commercial off the Shelf (COTS) software packages will also be required for this effort to maintain an Authorization to Operate (ATO). This has been determined to be the bare minimum Life Support option allowing for the JOPES planned sunset in CY 2024.

(c) Justification:

(1) Minimum Government requirements.

The minimum requirement is to provide unique and highly specialized services to develop, test, deploy, operate, maintain, and sustain the operational systems JOPES and JCRM. Future software releases are required for both the JOPES and JCRM systems to meet cyber and performance requirements. The following are the planned system updates to be included in JOPES R4.5.0.1 and JCRM v6.1.0.0 / v7.0.0 during the life of this effort:

• JOPES Web servers with RHEL 7 transition

• JOPES Oracle DB 19c transition

• JOPES Solaris 11 transition

• JOPES OpenJDK 8 transition

• JCRM Oracle to TomCat, PostGres & Tomcat

• JCRM Apache Struts to Spring

(2) Proposed sole source contractor. The proposed sole source contractor for this effort is InterImage, 4301 N. Fairfax Drive, Suite 205, Arlington, Virginia 22203.

(3) Discussion regarding cause of the limited source situation. The Office of the Secretary of Defense - Cost Assessment and Program Evaluation (OSD-CAPE) set a goal for the JPES PMO to modernize the JOPES system by the end of FY 2017 (Phase I). To accomplish this goal, the JPES PMO divided the task into two distinct parts, the User Interface (JPES Solution) and its back-end services referred to as the JPES Framework (JFW). Neither of the original vendors for these efforts were successful in meeting the requirements and a modernized follow-on was not implemented within the goal of December 2017. As a result of this, the Government reassessed the situation, and GFM was implemented to deliver the JPES follow-on.

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The decision to sole source this requirement is based on the need to maintain the JOPES-JCRM legacy capability while the JPES follow-on is in development.

InterImage is the only vendor that can provide this support based on their experience gained over the course of their current support. The obsolete programming language of the code base, end-of-life hardware and software components and tightly coupled interface connections of the legacy architecture presents a substantial challenge in finding capable expertise in the vendor market. InterImage currently has this expertise because of their support on the current contract. InterImage has also been closely aligned with the team developing the JPES follow-on capability, helping to ensure the current capabilities are successfully integrated into the JPES, and enabling the long-delayed sunset of the JOPES capability.

(4) Demonstration of limited source. The JOPES-JCRM capability is closely linked and integrated with 21 external DoD C2 and logistic capabilities, as well as multiple other external dependencies for many common and core functions. InterImage possesses extensive and demonstrated experience with these specialized interfaces that involve a legacy architecture that dates back as far as 35 years. It was determined through market research that other contract holders did not possess the desired level of experience with legacy applications required for JOPES-JCRM sustainment. Further details can be found in section 6 below.

As mentioned above in section 4(b), InterImage’s participation in technical exchange meetings with the team developing the JPES follow-on capability has helped to ensure the current legacy functionality is properly integrated into the JPES follow-on.

This contribution will continue to be needed as the effort for the JPES follow-on continues in its development and will allow for the sunset of JOPES as mentioned previously.

InterImage not only possesses this unique and specialized experience to sustain the current JOPES-JCRM capability, but also the experience and insight that is greatly needed as part of the JPES follow-on development, which will allow JOPES to finally sunset. Loss of this expertise would introduce a significant risk to the PMO with regard to maintaining a critical component of the nation’s C2 capability, but also place additional risk on the JPES follow-on meeting its requirement and schedule objectives.

(5) Procurement discussion. As stated above, the JOPES IT system was to sunset by FY

2017 as required by the OSD-CAPE, but there were development delays and quality issues that prevented meeting the goal. In August of 2016, the new goal became deprecating the Legacy JOPES by 4th Quarter FY 2018, however the contractor was removed from the project due to performance and other issues. The contract was followed by another contract, which was also unsuccessful. Currently, Task Orders on the GFM Indefinite Delivery / Indefinite Quantity contract vehicle are working to deliver a production ready JPES capability by end of CY 2024 (IOC) to enable JOPES sunset.

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(6) Impact. The JOPES-JCRM capability is the singular system that enables planning and logistical support to the DoD, enabling Joint C2 for operations worldwide. The Request For Forces process, which is the mechanism by which Commanders request support for any emergent requirements, is completely reliant on JOPES and JCRM to submit, validate, staff and order Combatant Commands requirements. The Secretary of Defense Orders Book process is reliant on JOPES to staff and generate the Global Force Management Allocation Plan. Combatant Commanders rely on JOPES and JCRM to manage, track, change and cancel all operational requirements. Anytime there are troop movements JOPES is involved. In addition to the impact on the ability to conduct effective C2, multiple additional external logistical systems utilize JOPES data for their mission. JOPES provides Time-Phases Force Deployment Data (TPFDD) that feeds the Operation Plans that describe the capabilities, timing, and transport methods to deploy the correct troops, in the correct timing, to accomplish the mission. Failure to execute this requirement in a timely manner will have a detrimental impact on the DoD’s ability to effectively execute the C2 that occurs daily. Particularly in the current environment where two geographically separated conflicts are occurring.

The impact not only affects the JOPES and JCRM effort, but if InterImage does not continue to provide support and sustainment to the current JOPES-JCRM capability, the loss of their expertise will have a negative impact to the JPES follow-on development. This could introduce even more developmental delays, and the sunset of JOPES will also be at risk. The InterImage contribution to the follow-on effort is captured in more detail above in section 4(c)(4).

5. BEST VALUE DETERMINATION:

By placing an order against a schedule contract using the procedures in Part 8, the ordering activity has concluded that the order represents the best value (as defined in FAR 2.101) and results in the lowest overall cost alternative (considering price, special features, administrative costs, etc.) to meet the Government’s needs.

6. MARKET RESEARCH:

Market research was completed by the JPES PMO in September 2023. The DISA Market Research Repository was queried as well as a review of recent market research results for similar or identical supplies/services and there was no relevant applicability found in the results. The Government also reviewed the market research report from the current contract and while that report falls outside the window for usability, it was reviewed to gain insight into the methodologies and considerations utilized as part of the previous acquisition and determine if any were still relevant to the follow-on effort. Additionally, a query of the Small Business Association (SBA) Dynamic Small Business Search (DSBS) database was also conducted to determine any additional capable small business vendors and no capable vendors were identified.

The PMO also reviewed existing DISA contract vehicles including ENCORE III. All small business vendors met the CMMI and Facility Clearance requirement, however, none of the vendors possessed the required level of knowledge or experience with the legacy capabilities

Page 7 of 9 Pages utilized in JOPES-JCRM sustainment. Given the specialized knowledge and experience required to support this effort, InterImage is the only vendor that satisfies the PMO requirement. The Government did not review the Systems Engineering, Technology, and Innovation (SETI) contract vehicle as the scope of SETI is to support development and innovation vs. sustainment and maintenance.

Based on current market research, dated September 2023, it has been determined that only the aforementioned JOPES-JCRM sustainment and maintenance services provided by InterImage, can fully meet the Government’s need.

7. ANY OTHER SUPPORTING FACTS: None

8. ACTIONS THE AGENCY MAY TAKE TO REMOVE BARRIERS THAT LED TO THE

RESTRICTED CONSIDERATION:

(a) Procurement history.

The current contract, HC1047-22-F-0018, which is performed by InterImage, provides continued maintenance and sustainment support for the DISA JPES PMO to ensure system availability, stability, and interoperability of JOPES-JCRM until the follow on JPES capability is available. This required a limited source justification (JA22-012) pursuant to the authority of FAR 8.405-6(a)(1)(i)(B), approved by the Procuring Activity Competition Advocate, on 10 December 2021 and an amendment was approved on 1 March 2022.

Under the current contract, JOPES was planned to be sunset in the 2nd quarter of FY 2023, with a ready JPES follow-on capability provided by the GFM IDIQ task orders.

Due to delays with the JPES follow-on capability’s development, the JPES PMO requires further support to maintain the JOPES-JCRM platforms. It was determined that continued work to provide the required sustainment, enhancements, and improvements to the JOPES-JCRM platforms were necessary until JOPES was sunset. Therefore, there were no actions or barriers the JPES PMO could complete to expand competition.

Current Contract: HC1047-22-F-0018 Vendor: InterImage, Inc Business Type: Women-Owned Small Business Contract Value: $ Basis of Award: Sole Source via GSA Multiple Award Schedule Contract Type: Firm Fixed Price (FFP) Period of Performance: 07 August 2022 - 06 March 2024

The previous contract, HC1047-17-F-0040, combined portions of requirements from two previous Task Orders that provided continued maintenance and sustainment support for the DISA JPES PMO to ensure system availability, stability, and interoperability of JOPES and JCRM until the follow-on JPES capability was available.

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Contract: HC1047-17-F-0040 Vendor: InterImage, Inc Business Type: Women-Owned Small Business Contract Value: $ Basis of Award: Small Business Set-Aside via GSA Alliant Small Business Contract Type: Firm Fixed Price (FFP) Period of Performance: 07 August 2017 – 06 March 2022

The aforementioned JPES Sustainment and Maintenance effort (HC1047-17-F-0040) was a consolidation of a prior requirement consisting of two separate task orders:

Contract: HC1028-08-D-2015 / VC35 Vendor: Booz-Allen-Hamilton (BAH) Business Type: Large Contract Value: $ Basis of Award: Full and Open Competition via ENCORE II Contract Type: Cost Plus Fixed Fee (CPFF) Period of Performance: 30 September 2013 – 29 September 2017

Contract: HC1028-08-D-2010 / VC19 Vendor: Pragmatics, Inc Business Type: Small Business Contract Value: $ Basis of Award: Sole Source Follow-on via ENCORE II Contract Type: Cost Plus Fixed Fee (CPFF) Period of Performance: 30 September 2013 - 29 September 2017

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TECHNICAL CERTIFICATION: I certify that the supporting data under my cognizance which are included in the J&A are accurate and complete to the best of my knowledge and belief.

NAME: SIGNATURE/DATE:

TITLE/ORGANIZATION:

PHONE:

REQUIREMENTS CERTIFICATION: I certify that the supporting data under my cognizance which are included in the J&A are accurate and complete to the best of my knowledge and belief.

NAME: SIGNATURE/DATE:

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

NAME: SIGNATURE/DATE:

PROCURING ACTIVITY COMPETITION ADVOCATE (PACA) APPROVAL: I have reviewed this justification and find it to be accurate and complete to the best of my knowledge and belief. Since this justification does not exceed $15M, this review serves as approval and my written determination that the aforementioned FAR circumstances apply.

NAME: SIGNATURE/DATE:

ALL QUESTIONS REGARDING THIS JUSTIFICATION ARE TO BE REFERRED TO

Corey Wollard, 301-225-6981, corey.j.wollard.civ@mail.mil.