JA19-129_831914699_JA_OTFAOC_Redacted.pdf

JUSTIFICATION FOR OTHER THAN FULL AND

OPEN COMPETITION (OTFAOC)

Federal Acquisition Regulation (FAR) Part 6 Justification & Approval (J&A), Supporting Procurements under FAR Part 12 and FAR Part 15

Purchase Request Number: 831914699 Contract Number: To be determined (TBD) Task/Delivery Order Number: TBD Procurement Title: Defense Information Systems Agency (DISA) Communications Modeling, Simulation, and Analysis Support Estimated Value:

Statutory Authority: U.S.C. 2304(c)(1) and FAR 6.302-1

JUSTIFICATION FOR OTHER THAN FULL AND OPEN COMPETITION (OTFAOC)

Justification for OTFAOC Number: JA19-129

Upon the basis of the following justification, I as, the Procuring Activity Competition Advocate, hereby approve the use of other than full and open competition of the proposed contractual action pursuant to the authority of U.S.C. 2304(c)(1). The regulatory authority is FAR 6.302-1, Only One Responsible Source and No Other Supplies or Services Will Satisfy Agency Requirements.

1. REQUIRING AGENCY AND CONTRACTING OFFICE:

Requiring Agency:

DISA, Operations Center Mission Support Section (OCM6) P.O. Box 549 Ft. Meade, MD 20755-0549

Contracting Office:

DISA/Defense Information Technology Contracting Organization (DITCO)/DISA Information Technology (IT) Services Section (PL8331) 2300 East Drive, Bldg. 3600 Scott Air Force Base, IL 62225-5406

2. NATURE/DESCRIPTION OF ACTION(S):

This action is for issuance of a firm fixed price contract with Riverbed Technology, Inc. This contract is a follow-on to work currently performed by Riverbed Technology, Inc. for OCM6 under contract HC1028-14-C-0023. The total estimated cost of the proposed acquisition is using a combination of Operations & Maintenance and Research, Development, Test and Evaluation funds.

3. DESCRIPTION OF SUPPLIES/SERVICES:

(a) DISA/OCM6 has a need for Modeling, Simulation & Analysis support as well as software engineering services to maintain the Joint Communication Simulation System

DISA Communications Modeling, Simulation, and Analysis Support-JA19-129

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(JCSS) for the DoD. The work consists software development, software testing, model verification and validation, and helpdesk support. JCSS is a network, application, and wireless performance-modeling tool. Model building is a specialized software engineering skillset. Software developers supporting JCSS must have expertise in model building as wells as C/C++ development. The helpdesk services provided will be tier 3/4 requiring advanced knowledge of the JCSS software and code.

The JCSS is a currently existing system that was developed and implemented previously.

The consulting vendor must have access to the current JCSS software and source code to be able to modify this code and perform updates that maintain its interoperability with other software in the JCSS architecture. Any new software that is required to maintain the JCSS system must also be compatible with the current software architecture.

In addition, DISA/OCM6 is responsible for the development of models using JCSS and for the release, fielding, and maintenance of JCSS for the DoD. JCSS provides military planners and system analysts with a modeling and simulation (M&S) tool capable of modeling the performance characteristics of applications and networks. Many of the models were developed by the JCSS user community, and then integrated into the next JCSS software release.

The JCSS software is based on Modeler, a commercial product developed by Riverbed Technology. DISA releases a new version of JCSS on an annual basis, to keep it compatible with the Modeler base code. Additionally, DISA must purchase a yearly DoD Enterprise license (NetBiz license for the Riverbed proprietary software code that JCSS is based on) and technical support from Riverbed in order to provide and maintain JCSS’ capabilities.

The only way for the Government to meet this need is to procure Commercial-Off-the- Shelf (COTS) network and application performance management software products and consulting services from Riverbed Technology, Inc. These proprietary software products include software modules, technical support, and consulting services for existing and planned Riverbed software solutions in use by DISA for continuous support to the Department of Defense (DoD) Defense Information Systems Network (DISN) and other DISA programs. The technical and consulting services facilitate seamless design and analysis of the DISN and other DoD systems that require continuous enhancement and modification to meet the evolving needs of the warfighter.

(b) The periods of performance (PoP) and estimated value for the lifecycle of this action are shown in the below table.

Period of Performance Estimated Value

Base Year September 18, 2019 – September 17, 2020 Option Period 1 September 18, 2020 – September 17, 2021 Option Period 2 September 18, 2021 – September 17, 2022 Option Period 3 September 18, 2022 – September 17, 2023

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Option Period 4 September 18, 2023 – September 17, 2024 6-month extension, FAR 52.217-8

September 18, 2024 – March 17, 2025

Lifecycle Cost:

4. IDENTIFICATION OF STATUTORY AUTHORITY:

Only one responsible source and no other supplies or services will satisfy agency requirements, 10 U.S.C.2304(c)(1). (FAR 6.302-1/Defense Federal Acquisition Regulation Supplement 206.302-1)

5. DEMONSTRATION OF CONTRACTOR’S UNIQUE QUALIFICATIONS:

Riverbed Technology is a world leader in providing modeling tools for managing networks and applications. In contrast to many other vendors of network modeling software, Riverbed offers a tool set that addresses the multiple layers (e.g., IP and Optical) within a complex network, and with high fidelity to the variety of network components in large, worldwide, networks, such as the DISN. With regard to the particular support requirements for this acquisition, Riverbed is uniquely qualified due to its proprietary modeler software and proprietary intellectual property.

Because of these unique circumstances, only Riverbed can modify this code and maintain interoperability.

(a) Description of events.

JCSS was originally developed in the year 2000 under the Network Warfare Simulation (NETWARS) program to provide a tool capable of modeling DoD Networks. At the time, products that modeled commercial networks existed, but none were capable of modeling complex DoD systems. Under the NETWARS program, DISA chose to partner with OPNET (purchased by Riverbed Technology, Inc.) to enhance and customize their Modeler product to extend its modeling capability beyond the DISN to include the tactical environment.

JCSS software is tied directly to the Modeler product and will not function without this proprietary Riverbed code. Modeler provides a comprehensive development environment and models of commercial technology, supporting the modeling of communication networks and distributed systems. The behavior and performance of modeled systems can be analyzed by performing discrete event simulations. The key difference between JCSS and Modeler is an extended model library that includes DoD-specific devices (encryption devices, tactical radios, and satellite systems, etc.) and additional wizards that simplify use.

(b) Justification.

(1) Minimum Government requirements. DISA has a requirement to ensure JCSS software stability and performance accuracy, provide software maintenance and technical support, and develop additional software functionality based on the Government’s need. Without a new contract with Riverbed Technology, Inc., the JCSS tool would become incompatible with other M&S products with the next

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Riverbed software core release.

(2) Proposed sole source contractor. Providing JCSS Help Desk support, Riverbed Technology, Inc. is the only vendor with access to the proprietary Modeler source code JCSS is based upon. Should a problem arise in JCSS, Riverbed Technology, Inc.

is the only vendor capable of troubleshooting the code and providing fixes. No other vendor has access to the software and extensive knowledge of the code to perform this task.

Loss of the Riverbed support would terminate the license agreement between DISA and Riverbed for JCSS capabilities and all JCSS support. JCSS models are incompatible with other M&S products and will not be usable in another tool. Impact to DoD and DISA would be a significantly degraded ability to provide M&S and communications support to the warfighter. Without the military specific capabilities of JCSS, which are unavailable in any other product, the design and analysis of these DoD/military systems is not possible.

Investments have been made in JCSS with yearly releases since 2000. During the initial development cycle under the NETWARS program, was invested annually through 2007. Since 2014, yearly maintenance costs are approximately

. Currently, DISA/OCM6 receives investment in JCSS from partner agencies (Communications Electronics Research Development and Engineering Center, Space and Naval Warfare Systems Command, Joint Program Executive Office Joint Tactical Radio Systems, and others that fund the development of new models to be included in the JCSS model library. Since the JCSS models are not portable to any other tool, the investment made in JCSS by DISA and other agencies will be lost.

IAW with FAR 6.302-1(a)(2)(iii), this substantial duplication of cost to the Government is not expected to be recovered through competition.

(3) Discussion regarding cause of the sole source situation. The Riverbed tool set offers COTS state-of-the-art network modeling capability and customer support. Therefore DISA has relied on Riverbed’s COTS software for the described mission needs, to include continuous training of Government analysts as users of the software to perform continual analyses, e.g., to support DISN near-term and longer range planning and implementations. However, for JCSS, DISN, and/or other DISA program support, the support continually requires adjustments to the scope/depth of existing models, pushing the envelope on imbedded COTS tool capabilities. There is also a need to recognize and exploit the existing proprietary code most fully, and recognize and develop when ad-hoc modifications to the Riverbed software code are needed. The Riverbed tool set is imbedded in the continuous DISN processes to plan and assess the operational and near-term network. However, to address current and evolving DISN-specific features, network components, and operational routing schemes, there are also continual requirements to augment the COTS tools/engines with DISN-specific customizations that shall compile and execute intricately with the COTS proprietary code. The two-pronged requirement is to ensure that the COTS software is exploited to the maximum extent possible for the DISN needs, fully

Page 5 of 9 Pages understanding the limits of the COTS software and the tool’s internal and proprietary decision methods, and to recognize and then develop augmentations when essential to address DISN-unique needs. Additional features above and beyond the generic capabilities have been added to this commercial software suite to meet the Government’s unique needs, and the requirement continues to do so as the DISN evolves. The new code for specific DISN requirements is an add-on and intrinsically ties to the COTS proprietary software code, which provides the dominant baseline for the modeling of the complex, multi-layered DISN. The specific portions to be addressed by this contract are those that rely on the proprietary Riverbed modeling software and Riverbed’s proprietary intellectual property. Only Riverbed Technology can modify this code and maintain interoperability.

(4) Impact. DISA is required to continue its effort to provide members of the JCSS user community (both within the United States and allies with which DISA has agreed to sell JCSS to) with new software releases. There is no means to continue the JCSS mission without Riverbed, barring complete redevelopment of the software. That alternative is a non-starter, given its lack of any driving requirements for such a change and the loss of invested time and money described in section two (2).

Meanwhile, loss of the Riverbed support would terminate all JCSS support and operations during the redevelopment. All DoD users of the JCSS product would have limited or inoperable software at that time. Impact to DoD M&S and DISA/OCM6 would be a significantly degraded ability to provide M&S and communications support to the warfighter. Without the military specific capabilities of JCSS, which are unavailable in any other product, the design and analysis of these DoD/military systems is not possible.

6. FEDBIZOPPS ANNOUNCEMENT/POTENTIAL SOURCES:

A synopsis for this requirement, along with the redacted justification will be published on FedBizOpps, as required by FAR 5.201. The synopsis will completely identify the Government’s minimum mandatory requirements. All responses received will be considered.

(a) 831914699-A & 831914699-B was posted on FedBizOps from May 29, 2019 through June 13, 2019, in order to satisfy synopsis requirements. The results indicated no small business sources are able to provide JCSS software stability and performance accuracy, provide software maintenance and technical support, develop additional software functionality based on the Government’s need, and perform modeling and simulation. There was a total of one response to which was deemed technically non-capable.

7. DETERMINATION OF FAIR AND REASONABLE COST:

In coordination with DITCO’s Cost and Pricing Branch (PL842) and the technical evaluation team, the contracting officer will make a determination on whether the cost/price is fair and reasonable in accordance with FAR 15.404-1, “Proposal Analysis Techniques.” In order to do so, a price analysis (to include comparison of proposed prices to historical prices paid by the Government under the current contract, HC1028-14-C-0023, market research, and comparison to the Independent Government Cost Estimate prepared for this requirement and existing labor rates) will be utilized. The contracting officer and contract specialist (in conjunction with the cost/price

Page 6 of 9 Pages analyst) will ensure that the resulting negotiated price is fair and reasonable to the Government.

8. MARKET RESEARCH:

DISA OCM6 conducted market research October 22-25, 2018 and April 1-8, 2019, which included various multiple market research techniques such as reviewing the DISA Market Research Repository, reviewing acquisition history, interviewing knowledgeable individuals in industry/Government, reviewing existing intra-/inter-agency contract vehicles, posting a Sources Sought and reviewing the Small Business Administration Dynamic Small Business Search. In April 2019, an investigation of other tools that could potentially be used for modeling and simulation studies was performed by researching tool vendor websites and documentation.

Specifically, the following products were examined:

• JNE (Joint Network Emulator)/Qualnet is a Government-Off-The-Shelf library that uses EXata as the underlying network simulation platform and leverages parallel processing to support its ability to scale large networks. JNE strength is in wireless modeling. JCSS is a stronger software for traditional wired networks. JNE does not provide network-planning capabilities like JCSS. Currently the number of Models available in JNE is limited.

• NS3 (Network Simulator) is an open source discrete-event network simulator. Models would have to be built using NS3. No existing JCSS models would function using a

NS3.

• Even though JNE has the ability to scale large network and it is stronger in modeling wireless networks, it is still not consistent with DISA’s needs. Also, none of these tools offers similar ability for integrated modeling of the heterogeneous DISN transport and IP layers, applying both high-speed analytic and simulation capabilities, and with verified fidelity to DISN operation. In addition, JCSS software is tied directly to the Riverbed Modeler product and will not function without this proprietary Riverbed code. Any action taken to assign to another offeror will require complete development from scratch;

interoperability issues with Riverbed products; and reduced MS&A capability.

Sources Sought 831914699-A & 831914699-B were posted on FedBizOps, prior to solicitation or award, from May 29, 2019 through June 13, 2019. There was a total of one response to the Sources Sought, which was deemed technically non-capable. The market research indicates the JCSS product is not commercially available as it is based on Riverbed's proprietary modeling technology (Modeler) and technical support must be acquired from Riverbed in order to provide and maintain JCSS’ capabilities. No other business, large or small, has been determined capable of meeting this requirement.

9. ANY OTHER SUPPORTING FACTS:

In 2009, a Request for Information was issued for JCSS software support and detailed DISN modeling support. The responses received indicated that a prospective contractor would need to team with Riverbed to provide the proprietary code interoperability, modification, and subject matter expertise as required. This result further confirms the sole-source nature of this requirement.

10. LISTING OF INTERESTED SOURCES:

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In 2019, Sources Sought 831914699-A & 831914699-B were issued for JCSS software support and detailed DODIN modeling support. The sole response received was from iCIO, Inc., a Service-Disabled Veteran-Owned small business. iCIO, Inc. indicated they could not support the JCSS software release support. They did indicate that they had M&S experience in various tool sets but did not provide any details for the experience. This result further confirms the sole-source nature of this requirement to Riverbed Technology, Inc., 680 Folsom St. San Francisco, CA, 94107-2153.

11. ACTIONS THE AGENCY MAY TAKE TO REMOVE OR OVERCOME BARRIERS

THAT LED TO THE EXCEPTION TO FULL AND OPEN COMPETITION:

Not applicable. The Government does not own data rights to the Riverbed coding used to develop the Modeler software product. JCSS software is tied directly to the Modeler product and will not function without this proprietary Riverbed code.

a) Procurement History. Since inception of JCSS in 2000, the Joint Staff awarded the first two aforementioned requirements to OPNET, which was bought out by Riverbed, Inc. in 2012. DISA assumed financial responsibility in 2003 and has continued to award Riverbed, Inc. the responsibility of software and communication device model development. In addition, the Government determined that it required an independent party to validate and assist in the management of the first two requirements to ensure a quality product is produced. This requirement was awarded to Booz Allen Hamilton (BAH). BAH also provides the Government, JCSS training support.

b) Previous Contract Vehicles:

OPNET: HC1013-07-C-2004

OPNET (bought out by Riverbed in 2012): HC1047-09-C-4020 BAH: NETCENT, FA8771-04-D-0006 KH04/VP06 (Validation for Software) BAH: General Services Administration Alliant, HC1028-18-F-0753 (Validation for Software)

RIVERBED: HC1028-14-C-0023

12. REFERENCE TO THE APPROVED ACQUISITION PLAN (AP):

IAW Defense Acquisition Regulation Supplement 7.103(S-91)(h), this requirement does not meet the dollar threshold requiring a written AP.

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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: Theresa Walker SIGNATURE: See separate PDF

TITLE/ORGANIZATION: Electronics Engineer/OCM61

PHONE: (301) 225-7170 DATE:

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: Robert Lynch SIGNATURE: See separate PDF

TITLE/ORGANIZATION: Chief Modeling and Simulation Analysis/OCM

PHONE: (301) 225-7272 DATE:

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

NAME: Jessica L. Bathon SIGNATURE: See separate PDF

TITLE/ORGANIZATION: Contracting Officer/DISA/DITCO/PL8331

PHONE: (618) 418-6761 DATE:

PROCURING ACTIVITY COMPETITION ADVOCATE 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 $13.5M, this review serves as approval and my written determination that the aforementioned FAR circumstances apply.

NAME: Gay D. Arnold SIGNATURE: See separate PDF

TITLE/ORGANIZATION: Procuring Activity Competition Advocate/DISA

PHONE: (618) 418-6517 DATE:

ALL QUESTIONS REGARDING THIS JUSTIFICATION ARE TO BE REFERRED TO

Jessica L. Bathon, (618) 418-6761, jessica.l.bathon.civ@mail.mil

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Robert H. Mitchell, (618) 418-6759, robert.h.mitchell24.civ@mail.mil mailto:robert.h.mitchell24.civ@mail.mil