80NSSC21A0001 ESRI LSJ Final1_Redacted.pdf

LSJ-2020-001

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National Aeronautics and Space Administration (NASA) NASA Shared Services Center (NSSC)

Limited-Sources Justification For (software and maintenance services)

This is a Limited-Sources Justification (LSJ) prepared by the National Aeronautics and Space Administration (NASA) Shared Services Center (NSSC).

The NSSC proposes to issue a Blanket Purchase Agreement (BPA) with Esri against General Service Administration (GSA) Contract GS-35F-253CA for Geographic information system (GIS) software products, maintenance, and services with a period of performance consisting of a one-year base period and four one-year option periods. The BPA award will provide a contracting vehicle for all of NASA’s agency-wide requirements for GIS software, which is used for automating, mapping, and managing a wide range of special information. This will be a NASA agency agreement for Esri used for creating and using maps; compiling geographic data;

analyzing mapped information; sharing and discovering geographic information; using maps and geographic information in a range of applications; and managing geographic information in a database. Currently, Esri is being utilized by all NASA Centers under an Enterprise Licensing Agreement through the NSSC under BPA NNX15MF91Z.

It is anticipated that award will be made to Esri under General Services Administration (GSA) Federal Supply Schedule (FSS) (70 – General Purpose Commercial Information Technology Equipment, Software, and Services; Special Item Numbers (SIN) 132-32: Annual Subscriptions (Category A & B only); 132-32: Software Maintenance As A Product (Category A & B only);

132-33: Perpetual Software Product (Category A & B only); 132-34: Maintenance As A Service (Category A & B only); 132-40: Cloud Subscriptions (Category A & B only); 132-50: Training Courses; and 132-51: IT Professional Services).

The total estimated ceiling amount of the proposed BPA is and the estimated period of performance is September 30, 2020 through September 29, 2025 consisting of a one year base period with four one year option periods.

Authority Cited and Rationale:

FAR 8.405-6(a)(1)(A). An urgent and compelling need exists, and following normal procedures would result in unacceptable delays.

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.

FAR 8.405-6(a)(1)(C). In the interest of economy and efficiency, the new work is a logical follow-on to an original GSA FSS order provided that the original order was placed in accordance with the applicable GSA FSS ordering procedures. The original

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c. To provide the existing functionality and services of ArcGIS and AGOL would be extremely costly and would require at least 2 years of development (based on the level of effort required to implement the existing use cases (these can be provided) and coordinated effort to develop and publish the One NASA data portal: https://nasa.maps.arcgis.com/home.index.html). NASA’s developers along with ESRI solution architechs have spent 2-3 years+ building out our current solutions and architectures. The other commercial vendors are behind by ~2 years in terms of a holistic solutions. Certain aspects are on par or close, but no one offers an entire suite of tools that are supported by SMEs, security, developers and architects. We would need to purchase 7 different packages separately and pay NASA employees to transition and cobble together in order to get where we are now. This would require a significant costs for training and re-training, as well as transitioning current products (if they are compatible with another solution).

Further, Esri provides free licenses and training for students at academic institutions (who represent a large portion of NASA data users/consumers). The demand for Esri tools over any other is consistently greater ranked #1 (per the American Customer Service Index Survey that goes out to all the users and producers of data from the NASA data centers).

3. Ability to leverage an established Network of Users and Mission Partners: Esri’s extensive use, demand, and capability are underscored by their whole-of-government approach and fully integrated network of partners. NASA’s interagency partners have implemented ArcGIS as their primary GIS solution and have fully trained GIS practitioners who leverage this suite and AGOL.

a. Over the last 5 years, NASA has built training and instructional materials/webinars regarding the use and deployment of ArcGIS (hundreds of trained practitioners across the Agency who are able to coordinate with interagency partners who use ArcGIS exclusively).

b. Esri provides scalable solutions that can be executed by users in a variety of disciplines and with varying technical abilities. The ability to leverage Esri partners with major industry players ensures these solutions are configured to be easily integrated with other Enterprise IT systems.

Determination by the contracting officer that the order represents the best value consistent with FAR 8.404(d):

Pursuant to NASA Procurement Class Deviation (PCD) 14-01, Contracting Officers are responsible for determining fair and responsible prices for orders placed against Federal Supply Schedule contracts. PCD 14-01 states: “Supplies offered on the schedule are listed at fixed prices. Services offered on the schedule are priced either at hourly rates, or at a fixed price for performance of a specific task (e.g., installation, maintenance, and repair). GSA has determined the prices of supplies and fixed-price services and rates for services offered at hourly rates to be fair and reasonable for the purpose of establishing the schedule contract. GSA’s determination does not relieve the ordering activity contracting officer from the responsibility of making a

Template Version: Base determination of fair and reasonable pricing for individual orders, BPAs, and orders under BPAs, using the price analysis techniques. The complexity and circumstances of each acquisition should determine the level of detail of the analysis required.” The Contracting Officer will determine price reasonableness during the proposal evaluation process prior to contract award, based on a comparison of the proposed prices to historical prices paid under NNX15MF91Z, discounts off the GSA Schedule pricing and commercial pricing.

Market Research:

The market research performed included internet searches for Esri products by the Enterprise License Management Team. Market research was conducted via the internet and contact with Esri for the purpose of identifying Esri distributors, authorized resellers or third party providers. Market research demonstrated that maintenance support for Esri software is only available from one source, Esri. There are no distributors or authorized resellers.

Maintenance support for Esri software is only available from one source, Esri. The results of this research indicate Esri products are available on the commercial market and GSA Schedule 70 (General Purpose Commercial Information Technology Equipment, Software and Services) Contract GS-35F-253CA.

In addition, Esri provided a sole source letter which included the below:

Per the sole source letter, first paragraph, “Esri is the sole-source provider of all Esri enterprise agreements to federal customers for federal procurement actions”. This is because an Enterprise Agreement is a combined package of product licenses and maintenance, whereby the maintenance component includes technical support, software updates and upgrades.

Per paragraph two, “Esri does not have a contractual relationship enabling any party to resell Esri maintenance to the federal government on a standalone basis”. So maintenance cannot be provided by any resellers therefore for this reason an Esri enterprise agreement must be considered as sole source from Esri.

Based on the information stated above, it has been determined that the NASA Esri requirement shall be acquired by establishing a BPA through the GSA Schedule Contract GS-35F-253CA in the best interest of the Government.

Other Facts:

In the event the Agency has to select an alternative source to replace Esri products’ functionality in use throughout the Agency, the change in the solution would adversely impact NASA’s ability to meet various mission requirements. All NASA Centers, Programs, and/or Projects that utilize the capabilities of ERSI would be adversely impacted as only Esri products provide the complex analytical and statistical analysis capabilities that are critical to the NASA mission. NASA Technical feedback indicates that other GIS software does not compare to Esri’s complete package and the time it would require to develop alternate software equivalent to perform similar functionality would be detrimental. This is confirmed through a search via fedramp.gov which

Template Version: Base yielded no results for other GIS SaaS with Fedramp authorization. Esri is the only source for its products. There are no distributors, resellers or third party providers that can provide the maintenance of Esri software. Esri has provided as Sole Source letter. Esri's commercial technology is proprietary to Esri as eluded to in the above sections of this justification. Software maintenance and support for the substantial NASA inventory of Esri software licenses is only available from Esri.

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: The Agency will continue to examine the market in the future for alternative solutions or new sources before executing any subsequent acquisitions for the same requirements. As the state of the industry and technology develops, NASA will continue to search for new equivalent software that could possible limit the dependence on Esri. Due to the nature of the expressed requirement, there are no known actions which the Agency may take to give consideration to other manufacturers for the requirements described herein.

REFERENCES:

Attachment 1: GSA schedule costs Attachment 2: Project listing Attachment 3: Sole Source Letter

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(ESRI software and maintenance services)

LIMITED SOURCES JUSTIFICATION

Technical Representative: I certify that the supporting data presented in this justification are accurate and complete.

Technical Representative

Contracting Officer: I hereby certify that this justification is accurate and complete to the best of my knowledge and belief. In addition, I hereby determine that the anticipated price(s)/pricing of the order will be fair and reasonable.

Contracting Officer

CONCURRENCE:

Procurement Officer

APPROVAL: