JA20-116 AMD 01 FINAL_Redacted.pdf

DMUC Engineering and Support Services-JA20-116

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(b) This sole source action will allow for the seamless continuation of the current efforts under the Mobility Support Services (MSS), General Services Administration (GSA) Alliant task order, HC104715F0005, which expires on August 3, 2020. The Alliant contract, GS00Q09BGD0019, expired on April 29, 2019 and it is imperative that these services continue. A firm-fixed price task order will be solicited using BAH’s contract, HC102818D0006, under DISA’s ENCORE III, a multiple award, indefinite delivery indefinite quantity (IDIQ) task order vehicle. This new task order will continue the support of the requirements until an award is made for the re-compete of the DMUC program, Mobility Enterprise Services – Unclassified (MES-U) that was solicited under ENCORE III, full and open large business suite.

(c) The period of performance for this action is August 4, 2020 through August 3, 2021, consisting of a six-month option period, plus three, two-month option periods. Fiscal year 2020 operations and maintenance and research and development funds will be used. FAR 52.237-3, Continuity of Services and FAR 52.217-8, Option to Extend Services, will be included in this noncompetitive contract action to continue existing services if needed after the one-year performance period.

3. DESCRIPTION OF SUPPLIES/SERVICES:

(a) Continuity of services is required to support the 160,000 DMUC users and provide core mobility system integration and testing efforts and support of the ongoing DoD Mobility priorities and customer requirements. This includes support to meet rapid increases in DISA’s Mobility customer bases; DMUC infrastructure expansion; Mobility Eco System improvements, application development, application vetting and endpoint security.

The DoD Mobility PMO/SE5 consists of core mobility system components, Mobile Device Management/Mobile Application Store (MDM/MAS), mobile devices and many other sub-system components and partner network interfaces. The current task order utilizes existing and future Mobility capabilities to enhance DISA’s ability to provide secure mobile communication services to include expert engineering support, technical guidance, operations, and sustainment support services for all of the unclassified mission needs within the DoD. This new requirement will continue to provide core mobility system integration and testing efforts, as well as support engineering activities to interface with other sub-systems and collaborative networks.

4. SUPPORTING RATIONALE, INCLUDING A DEMONSTRATION THAT THE

PROPOSED CONTRACTOR’S UNIQUE QUALIFICATIONS OR THE NATURE OF THE

ACQUISITION REQUIRES USE OF AN EXCEPTION TO FAIR OPPORTUNITY:

(a) Exception to Fair Opportunity. Only one awardee is capable of providing the supplies or services required at the level of quality required because the supplies or services ordered are unique or highly specialized.

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(b) Description of the Justification. The current MSS task order is to conclude on August 3, 2020 that is authorized in accordance with (IAW) FAR 52.217-8 Option to Extend Services. During the extension of MSS and the source selection process for MES-U, the Presidential Proclamation on Declaring a National Emergency Concerning the novel Coronavirus Disease (COVID-19) Outbreak was issued on March 13, 2020. Due to the global pandemic, and IAW maximum telework policies put into place, there was an immediate need to increase engineering support of DISA’s Mobility offerings. This delayed the source selection for the follow-on acquisition of MES-U for

, as the technical team’s priority is to provide immediate support to the COVID-19 response efforts.

BAH is poised to provide critical continual services, engineering, and integration support to the DoD mobility experience to maintain a secure and operational mobility capability during the COVID-19 emergency and beyond until the follow-on contract is awarded.

Competing the requirement would delay the existing support by creating a work stoppage and gap for the DoD mobility support services that are currently being provided.

Maintaining continuous services will aid the mission in the greatest capacity.

The proposed contractor would remain as BAH to provide seamless operational support for the DoD Enterprise mobility infrastructure. These circumstances identified above have influenced the need for the sole source task order to BAH to continue services while the follow-on is awarded.

(c) Justification.

(1) Minimum Government requirements. The Government requires engineering, integration, Tier III support and expert technical guidance related to mission needs and issues concerning all aspects of DISA’s secure unclassified mobility offerings.

This includes operations and sustainment, testing and integration support services to DMUC for all of DoD.

(2) Proposed sole source contractor. BAH is the only contractor capable to meet the Government’s needs at the level of quality required because of their unique and specialized ability to support the DMUC technical, management, security testing and engineering efforts at the current level. BAH has the experience in providing core mobility system integration, testing, and engineering support activities to interface with other sub-systems and partner networks such as mobile devices, MDM/MAS, mobile gateways, mobile applications. BAH has the experience hosting commercial products in the DoD Information Network (DoDIN) as well as knowledge on the various environments it takes to maintain and sustain DMUC operations along with rapidly responding to various operational impacts. This is a benefit to the Government to provide flexibility and scope of service sufficient to meet current processing environment workload, security, and modernization requirement, while ensuring DISA customers receive uninterrupted, continuous access to their applications and data. The incumbent contractor, BAH, is the only contractor that can meet the Government’s requirements at the level of quality needed in the timeframe to avoid a break in services. No other MAC holder could meet this DMUC requirement without

Page 4 of 8 Pages a degradation and/or interruption of service. BAH has the required expertise and knowledge for this effort to ensure continuous services for DMUC.

(3) Discussion regarding cause of the sole source situation. The service was previously acquired from BAH in 2015 under HC104715F0005, consisting of a one-year base period plus 4 option years, with the option to exercise a 6-month extension under FAR 52.217-8 Option to Extend Services. The 6-month extension was implemented in February 2020 to allow time for the follow-on, MES-U, to be awarded. Re-compete of this effort has taken longer than anticipated due to initially encountering changes in the acquisition strategy and driven by various reasons that could not have been predicted.

The follow-on award is now delayed beyond the 6-month extension for the existing MSS task order. During the current extension of the MSS task order and the source selection process for the MES-U follow-on award, the global pandemic, COVID-19, occurred further delaying the source selection for the follow-on acquisition of MES-U.

The continuation of the services is critical to the success of the transition to the follow-on effort for MES-U. Due to the complexity of the requirement and the need to fully transition the efforts on the MSS task order, the need now exists to initiate a sole source action to avoid a lapse in service.

DMUC is a unique commercial product, residing in the DoDIN, interfacing and relying on a multitude of various groups within DISA. The current contractor, BAH, has the processes in place and experience to support DMUC in the DODIN environment immediately. BAH manages and understands all the complexities of operating a commercial product in the DODIN and is acutely aware of all the 'touch points' required to rapidly troubleshoot areas and ensure high availability. BAH has been providing the services under HC104715F0005 since 2015 and no other business is positioned to allow the continuity of services required in order to complete the follow-on competitive action for DMUC.

(4) Demonstration of unique source. Only BAH is in the position to provide the critical continual services, engineering, and integration support to the DoD mobility experience to maintain an operational mobility capability during the COVID-19 emergency and beyond until the follow-on contract is awarded. BAH is the only source capable of continuing to provide the required services at the level of quality required due to their unique knowledge of the range of support DMUC requires and the ability to support the various forms of active equipment and infrastructure in place. The security of the DMUC program and over 160,000 users would be put in a high-risk situation, vulnerable to cybersecurity attacks and impeding the DISA and DoD mission without BAH continuing the existing services. BAH’s key personal are experts in numerous areas such as applications, MDM/MAS, DODIN, accreditation and engineering and loss of these subject matter experts (SMEs) would have direct effect on DMUC operations and sustainment. BAH has first-hand knowledge into ensuring accreditation is adhered to and rapidly responding to security issues (e.g.

currently addressing commercial vendor security bulletin that required emergency patching of key infrastructure components). BAH is immediately able to fulfill the

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Government’s requirements without an unacceptable gap in service to the DMUC customer base.

(5) Procurement discussion. BAH is the current provider for the DMUC engineering and support services under task order HC104715F0005, which expires on August 3, 2020.

Competing the requirement would cause a negative impact and delay the existing support creating a work stoppage and gap for the DoD enterprise mobility support services that are provided through the task order. Maintaining continual support without a gap in service will be beneficial for the DoD enterprise to continue to support the mission in the greatest capacity. The follow-on is underway and should be completed within 12 months, at which point this effort will be transitioned to the new task order supported by the winning contractor.

(6) Impact. If this sole source action were not implemented, there would be detrimental effects to the DMUC offerings that services over 160,000 users. Technical, engineering, operational and maintenance support would cease while there is a gap in service. DMUC testing, engineering, security updates, upgrades, maintenance, and support would be delayed until the new contract is awarded. Given the strong reliance on commercial products and the inability to control such things as operating systems (OS) and new device releases, a knowledge gap would substantially increase risk.

Potentially critical communication for VIP users and other services would be negatively impacted without the continuation of the current support in place. DMUC is constantly influenced by the commercial mobile sector, the security mandate for device supervision, integration of M365, ability to support the latest Apple OS update and multiple Cyber related weekly requests. Without this sole source task order in place, these actions would be directly impacted, along with the numerous ongoing projects, mobile application vetting and daily support to mission partners.

Additionally, there is no Government equivalent to assume the duties and responsibilities that the contractor fulfills.

5. COST/PRICE FAIR AND REASONABLE DETERMINATION:

The Contracting Officer shall determine fair and reasonable pricing utilizing one or more of the methods identified in FAR 15.404, and will include comparisons of respective labor rates from the ENCORE III published contract rates. In addition, comparison will be made of prices paid for similar services on contracts administered by DISA.

6. MARKET RESEARCH:

Market research was conducted in May through June 2020 to determine sources that potentially meet the Government’s need. Market research techniques included interviewing knowledgeable individuals in industry/Government, reviewing existing DISA-wide and DoD MAC vehicles and other Government wide Acquisition Contracts (GWAC), and reviewing GSA Federal schedules.

DISA-wide, GWACs, GSA Federal schedules, and DoD MAC vehicles did not produce any results valuable to the acquisition of the mobility support services and continuing the existing services without undergoing a full and open competition. A full and open competition would

Page 6 of 8 Pages provide a delay in services and create a service gap between the follow-on award and the valuable existing support. The requirement for the DoD Mobility PMO/SE5 can only be provided by a sole source due to the complexity of the DoD mobility services. Market research contact with knowledgeable SMEs in the Government also confirmed the sole source solution is needed to ensure no disruption to the DMUC. The proposed sole source vendor has provided mobility support services for the past 5 years utilizing current and future mobility capabilities to enhance DISA’s ability to provide mobile communication services to the entire DoD. There is currently only one responsible source and no other supplies or services will satisfy agency requirements. Based on the market research conducted, it was determined that this requirement should be procured sole source to BAH MAC holder via DISA’s ENCORE III IDIQ vehicle. The market research is not more than 12 months old.

7. ANY OTHER SUPPORTING FACTS:

The competitive follow-on effort is actively being worked and is anticipated to be in place, including transition, in less than 12 months.

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

THAT LED TO THE EXCEPTION TO FAIR OPPORTUNITY:

(a) Procurement History.

Contract Number: HC1047-15-F-0005 Program Name: DISA/DoD MSS Brief Description: Provides SMEs for engineering and technical support related to contract management controls, architecture, integration, operations, test and evaluation, information assurance, security, technology assessment, and program execution.

Contractor: BAH Business Type: Large Business

Contract Expiration Date: August 3, 2020 Method of Acquisition: Fair Opportunity among General Services

Administration (GSA) Alliant contractors IAW FAR 16.505(b)(1)

Previous protests/Congressional inquiries:

None

Contract Award Dates: Base: 4 February 2015 – 3 February 2016 Option Year 1: February 4, 2016 – February 3, 2017 Option Year 2: February 4, 2017 – February 3, 2018 Option Year 3: February 4, 2018 – February 3, 2019 Option Year 4: February 4, 2019 – February 3, 2020 6-Month Option: February 4, 2020 – August 3, 2020

(b) Actions to Remove Barriers to Competition.

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The original MSS task order was competed through fair opportunity among GSA Alliant contractors. This sole source action is needed to avoid a critical break in service within the DoD and is expected to allow adequate time for completion of the follow-on MES-U task order.

In the future, the agency will account for sufficient time to prepare/finalize requirement packages for follow-on efforts and to consider evaluation methodologies and acquisition strategies that may potentially result in a more expeditious source selection process.

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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.

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.

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

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.

ALL QUESTIONS REGARDING THIS JUSTIFICATION ARE TO BE REFERRED TO