CUI JA25-037 JPES JA SPE Signed_Redacted1.pdf

JA25-037 Joint Operational Planning & Execution System (JOPES) and Joint Capabilities Requirements Manager (JCRM) Software Sustainment & Maintenance

CUI

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Controlled By: DISA Controlled By: PSD/PS62 CUI Category: PROCURE Distribution/Dissemination Control: FEDONLY

POC:

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

FAR 8.405-6

Contract Number: 47QTCA18D001Q Task/Delivery Order Number: To be determined Procurement Title: Joint Operational Planning & Execution System (JOPES) and Joint Capabilities Requirements Manager (JCRM) Software Sustainment & Maintenance Estimated Value: (including the 6-month extension in accordance with FAR 52.217-8) Statutory and Regulatory Authority: 10 U.S.C. 3204(a) and FAR 8.405-6(a)(1)(i)(B)

J&A Number: JA25-037

Upon the basis of the following justification, I, as Senior Procurement Executive, 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, 41 U.S.C. 152(3).

1. REQUIRING AGENCY AND CONTRACTING ACTIVITY:

Requiring Agency:

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

Fort Meade, MD 20755

Contracting Activity:

DISA/Defense Information Technology Contracting Organization Joint Enterprise Services Contracting Branch (PS62) 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 (TO) for a base period of 314 days with one, 75-day option period to continue the services currently provided under TO HC104724F4001. Fiscal Year (FY) 2025 and FY 2026 Operations and Maintenance appropriations will be used for this effort. The Period of Performance (PoP) should all

JA25-037 Joint Operational Planning & Execution System (JOPES) and Joint Capabilities Requirements Manager

Page 2 of 9 Pages options be exercised is 7 September 2025 to 30 September 2026. The base period of 314 days will have a PoP of 7 September 2025 to 17 July 2026 (the base period end date is the date the JOPES Authority to Operate (ATO) expires, as determined by the U.S. Strategic Command, the Authorizing Official for JOPES). The option period of 75 days will have a PoP of 18 July 2026 to 30 September 2026 (the option period end date is the JOPES Threshold Sunset date, providing additional time for JOPES Sunset requirements (e.g., removing hardware, documentation, and fully off-boarding external connections), if needed). The total estimated cost including all options except the 52.217-8 period is , and the total estimated cost including all options and the six-month extension of services in accordance with FAR 52.217-8 is .

3. DESCRIPTION OF SUPPLIES/SERVICES: The Global Force Management (GFM) Program Management Office (PMO) requires continuity of services to support continued maintenance and sustainment for the JOPES and the JCRM to ensure the availability, stability, and interoperability of the system.

The GFM PMO requirement is to provide sustainment, maintenance, project management, and lab support services to ensure the system availability, stability, and interoperability of the JOPES and JCRM legacy systems. This consists of configuration management, cybersecurity, information assurance, software sustainment & integration (preventative, corrective, & adaptive), Tier 3 helpdesk support, and system administration.

JOPES is the Chairman of the Joint Staff’s current joint planning system. It furnishes joint commanders and war planners at all levels standardized policies, procedures, and formats to produce and execute a variety of required tasks that enable global force management from high-level plans to the execution and deployment of forces and material to support the forces. It is a national security system that is vital for the defense of our nation. The mission essential, time-phased force deployment data is entered, validated, processed, and stored in JOPES. This data informs planning and execution activities and supports the United States Transportation Command in 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 entered into JOPES and creates orders for those plans which in-turn are sent to the Secretary of the Department of Defense for authorization.

Currently, TOs issued under the Indefinite Delivery / Indefinite Quantity contract HC104720D2045 provide for delivery of a production-ready Joint Planning and Execution Services (JPES) capability that will replace the JOPES capability and allow it to sunset. The GFM PMO recently completed a re-baseline which listed the following dates:

• JPES Initial Operating Capability:

o Objective - September 30, 2025 o Threshold – February 28, 2026

• JPES Fully Operational Capability:

o Objective – October 30, 2025 o Threshold – June 30, 2026

• JOPES Sunset o Objective – October 30, 2025 o Threshold – September 30, 2026

JA25-037 Joint Operational Planning & Execution System (JOPES) and Joint Capabilities Requirements Manager

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Given the operational relationships between JOPES and JCRM, the current requirement is that sustainment and maintenance for both capabilities reside with a single TO until JOPES is able to be sunset.

4. IDENTIFICATION OF LIMITED SOURCE AUTHORITY AND DEMONSTRATION OF

CONTRACTOR’S UNIQUE QUALIFICATIONS:

(a) Circumstances Justifying Limiting the Source. Per 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.

The JOPES environment operates on hardware and software that was designed and deployed nearly 20 years ago with an extremely limited set of personnel who understand the coding and environment. The proposed sole-source contractor is 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 architectures date back 35 years and are 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.

JOPES is deployed to four Secure Server Enclaves (SSE) and the DISA Fort George G. Meade Joint Interoperability Test Command lab. The Joint Staff Support Center is the operational support manager. A minimum of two of the SSEs must always be available per the Chairman of the Joint Chiefs of Staff Manual 3122.05A. JOPES currently runs on multiple Oracle/Sun servers.

These servers, such as the Sun Fire V890 and SPARC T4-2, reached the end of life (EOL) in 2014. The current operating system, Solaris 10, and the Relational Data Base Management System (RDBMS), Oracle 11g, are past EOL. The current hardware will not support upgrades to newer versions of the operating system (OS) or RDBMS.

Additionally, there are multiple software elements aside from the OS and RDBMS. These include a front-end user interface written in Tcl/Tk, an event-driven, function-based, imperative language, still maintained, but not widely used, and Apache Struts, a Java framework that has been superseded by Struts 2 and Spring Boot. Additionally, JOPES subsystems have been custom-built and with code structure that requires highly specialized expertise to maintain. Examples of these are the JOPES Synchronization Processor, a custom-built Oracle Sync Tool based on a Perl, Shell, and Tcl/Tk scripting that has user permissions across all enclaves.

The team is uniquely positioned to support these requirements due to its deep, specialized knowledge and extensive experience. Their team comprises the original software developers and the individuals who have been responsible for maintaining the complex codebase.

This includes expertise in:

• JOPES Reporting System: Integrated with Oracle database triggers and functions.

JA25-037 Joint Operational Planning & Execution System (JOPES) and Joint Capabilities Requirements Manager

Page 5 of 9 Pages 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 marketplace. remains the only source able to provide the specialized subject matter experts and technical knowledge of all relevant components of the JOPES software and hardware systems and configurations for this requirement.

(4) Demonstration of limited source. The JOPES and JCRM capabilities are 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. possesses extensive and demonstrated experience with these specialized interfaces that involve a legacy architecture that dates back as far as 35 years, as detailed in the above sections. It was determined through market research, as discussed below, that other firms do not possess the highly specialized experience and knowledge of the EOL hardware and software required for JOPES and JCRM maintenance, sustainment, and operations.

(5) Procurement discussion. The recent re-baseline of JPES established an objective and threshold sunset date for JOPES. The objective date is October 30, 2025, and threshold date is September 30, 2026.

The current work is being performed by under TO HC104724F4001. This is a follow-on TO that will continue to maintain JOPES and JCRM until JPES is operational and JOPES sunsets.

(6) Impact. The JOPES and JCRM capabilities work together to enable a 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 Command’s 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 that feeds the Operation Plans that in turn 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.

5. BEST VALUE DETERMINATION: By placing an order against a General Services Administration Federal Supply Schedule contract using the procedures in FAR 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 in October 2024 - December 2024. The DISA Market Research Repository was queried and a review of recent market research results for similar or identical supplies/services was conducted. Market research did not identify other parties capable of meeting the unique and highly specialized requirements. Additionally, a query of the Small Business

JA25-037 Joint Operational Planning & Execution System (JOPES) and Joint Capabilities Requirements Manager

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Association Dynamic Small Business Search 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 and found that all small business vendors met the Capability Maturity Model Integration and Facility Clearance requirement; however, none possessed experience and knowledge of the EOL hardware and software required for JOPES and JCRM sustainment. Given the specialized knowledge and experience required to support this effort, is the only vendor that can meet the 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, while this requirement focuses on sustainment and maintenance.

Additionally, a Sources Sought Notice (SSN) was posted to SAM.gov for this requirement on 4 December 2024, with a close date of 19 December 2024. The purpose of the SSN was to determine the availability and technical capability of contractors for the maintenance and sustainment of JOPES. The SSN focused on seven specific capabilities to ensure a vendor would be capable of providing support for the specific EOL hardware and software needed to support the program. Specifically, having experience and knowledge of the EOL hardware and software requirements listed in the SSN is required for a vendor to perform the work.

A thorough review of each of the responses was completed. The two specific requirements for EOL hardware platforms (Sun/Oracle hardware) and software platforms (Solaris 10, Oracle 11g, Tcl/TK, and NIS+) are the most important. Being able to support these two requirements is a critical pre-requisite to being able to perform the other requirements. For example, to perform the Cybersecurity requirement for JOPES, the contractor must have experience with and understand the EOL hardware vulnerabilities and associated impacts to the Authority to Operate. Similarly, to perform Tier 3 help desk support requirement, the contractor must understand and have experience with the legacy software such as Tcl/TK, NIS+ and other associated JOPES sub-systems. Therefore, if a contractor cannot to meet the EOL hardware/software requirements, then they would not have the knowledge, skills, or abilities to perform the other requirements for JOPES. Ten responses from small businesses were received in response to the SSN. While analysis showed that six (6) vendors were capable of performing at least 50% of the required capabilities identified in the SSN, only one company was able to meet the capability of being able to support the EOL hardware and software, which is critical and foundational to all the other aspects of the requirements, as explained above. was the only vendor who demonstrated current and relevant experience with the EOL Sun/Oracle hardware requirements, in addition to being determined capable of the supporting all other requirements. provided details on specified hardware running at their facility supporting the current JOPES First Look Site.

Furthermore, was the only vendor to provide current examples of experience with the EOL Solaris 10, Oracle 11g, Tcl/Tk, and NIS+ software requirements. They also listed personnel on their team who have developed for JOPES and its backend software since the 1990s. Both did show limited experience working with a portion of the EOL software. However, both companies lacked current experience and only demonstrated prerequisite experience with a portion of the required software. Additionally, they did not sufficiently demonstrate the ability to meet the EOL hardware requirements. Accordingly, neither have the critical foundational capabilities as it relates to the EOL hardware/software requirements and therefore neither are considered viable or capable sources. Additional details of market research are contained within the Market Research Report.

7. ANY OTHER SUPPORTING FACTS: None

JA25-037 Joint Operational Planning & Execution System (JOPES) and Joint Capabilities Requirements Manager

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

RESTRICTED CONSIDERATION:

(a) Procurement history.

The current TO, HC104724F4001, provides 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 is available. This required a limited source justification pursuant to the authority of FAR 8.405-6(a)(1)(i)(B).

Under the current TO, JOPES was planned to be sunset in the 4th quarter of Fiscal Year 2024, with a ready JPES follow-on capability. The current TO and its predecessor TO were established due to delays with the JPES follow-on capability’s development which necessitated extending sustainment and maintenance support for the legacy JOPES and JCRM platforms until such time that the technologies could be sunset. The unforeseen delays for the JPES follow-on capability created the barriers to competition.

Current TO: HC104724F4001 Vendor:

Business Type: Women-Owned Small Business Contract Value:

Basis of Award: Sole Source via GSA Multiple Award Schedule Contract Type: FFP Period of Performance: 07 March 2024 - 06 September 2025

Previous TO: HC104722F0018 Vendor:

Business Type: Women-Owned Small Business Contract Value:

Basis of Award: Sole Source via GSA Multiple Award Schedule Contract Type: FFP Period of Performance: 07 August 2022 - 06 March 2024

The prior TO, HC104717F0040, combined portions of requirements from two previous TOs 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.

TO: HC104717F0040

Vendor:

Business Type: Women-Owned Small Business Contract Value:

Basis of Award: Best Value Tradeoff (BVTO) Small Business Set-Aside via GSA Alliant Small Business Contract Type: FFP Period of Performance: 07 August 2017 – 06 March 2022

The JPES Sustainment and Maintenance effort (HC104717F0040) was a consolidation of a prior requirement consisting of two separate TOs:

JA25-037 Joint Operational Planning & Execution System (JOPES) and Joint Capabilities Requirements Manager

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TO: HC102808D2015 / VC35

Vendor:

Business Type: Large Contract Value:

Basis of Award: BVTO Full and Open Competition via ENCORE II Contract Type: Cost Plus Fixed Fee (CPFF) Period of Performance: 26 September 2013 – 29 September 2017

TO: HC102808D2010 / VC19

Vendor:

Business Type: Small Business Contract Value:

Basis of Award: Sole Source Follow-on via ENCORE II Contract Type: CPFF Period of Performance: 30 September 2013 - 29 September 2017