A02_JA_AST_RSAM_Redacted.pdf

Control No.: JA-1-Hua-245

JUSTIFICATION REVIEW DOCUMENT

FAR SUBPART 13.5 SIMPLIFIED PROCEDURES

FOR CERTAIN COMMERCIAL ITEMS

SOLE SOURCE JUSTIFICATION AND APPROVAL

Program/Equipment: This is a FORSCOM requirement to develop software for the Army Force Generation (ARFORGEN) Synchronization Toolset (AST) Requirements Sourcing Application Module (RSAM)

Authority: Simplified Procedures for Certain Commercial Items, 41 U.S.C. 1901 as implemented by FAR Subpart 13.5.

Amount: $1,900,000.00

Prepared by:

Date: 22 Mar 2019 Email:

Contracting Officer:

Date: 25 Mar 2019 Email:

Technical:

Date: 22 Mar 2019

Requirements:

Date: 22 Mar 2019

Reviews: I have reviewed this justification and find it adequate to support sole source.

Program Manager:

Signature:

Branch Chief:

Legal Counsel:

Chief of Contacting Office:

FAR Subpart 13.5 Simplified Procedures for Certain Commercial Items Sole Source Justification and Approval

1. Contracting Activity: Army Contracting Command-Aberdeen Proving Ground (ACC- APG) Huachuca Division

2. Description of Action: FORSCOM requests a new firm-fixed-price contract with cost CLINs for travel with ProModel Corp. The Government projects award for August 2019.

Fiscal year 2018/2019 Research, Development, Test and Evaluation (RDT&E) funds will be used.

An acquisition plan is not required because this procurement does not meet the threshold at Defense Federal Acquisition Regulation Supplement 207.103(d)(i)(B).

(N/a) approved an acquisition plan in accordance with DFARS 207.103(d)(i)(B) on (n/a).

The required acquisition plan in accordance with DFARS 207.103(d)(i)(B) is currently awaiting (n/a) approval.

3. Description of Supplies/Services: This is a FORSCOM requirement to develop a Requirements Sourcing Application Module (RSAM), for the Army Force Generation (ARFORGEN) Synchronization Toolset (AST). FORSCOM is a major Army command.

Its mission is to train, mobilize, and deploy combat ready ground and aviation forces of America’s Army to meet the operational requirements of the nation. ARFORGEN is the structured progression of increased unit readiness over time, resulting in recurring periods of availability of trained, ready, and cohesive units prepared for operational deployment in support of civil authorities and combatant commander requirements. The ARFORGEN process synchronizes people, equipment, training, resources, and unit formations over time to satisfy these requirements for Army forces. The design and development of an AST began in 2006 and culminated with the delivery of an initial AST operating capability. The AST continues to evolve and provide enhanced capability meeting requirements of evolving and maturing Army Force Generation policies and procedures.

The ARFORGEN process focuses on the entire modular operating force from brigades to detachment echelons and includes both conventional and special operating forces. Utility of the entire force is maximized through allocation of the correct mix of resources to meet requirements. The necessary manning, equipping, resourcing, and training processes are synchronized across active, Army National Guard, and US Army Reserve components to generate ready forces to achieve a sustained deployment capability and a capability to surge forces for other contingencies. The Army Campaign Plan (ACP), page 40, paragraph (3) (A) tasks the Commander FORSCOM to “ICW G-3/5/7 and CIO/G6, codify requirements for an integrated, multi-point distributed Army Force Generation automation system to facilitate seamless cross-component synchronization.”

As part of the HQDA G3 strategy of developing the Global Force Information Management-Operational Environment (GFIM-OE), process re-engineering efforts have been conducted on candidate systems/functionality for consolidation/modernization. The

X intent of GFIM-OE is to group applications that perform “like” functions into three enduring applications. In parallel, there is a requirement to transition current systems, to include Worldwide Individual Augmentation System (WIAS), from the Joint Service Provider (JSP) environment by September of 2019.

With the development of the RSAM, the AST will absorb WIAS, becoming the AST RSAM, leveraging capability and technology available in the AST NIPR environment.

The approach will build on the WIAS Business Process Review results to ensure the resulted functionality is modernized and informed by the overall GFIM-OE process and not a “lift and place” of current capability into a disparate environment that would need to be re-visited in the near future.

The critical element of this approach is to consolidate Army Force Management and Sourcing applications into one location, WIAS into AST. Both AST and WIAS are tools used by Army Force Managers to see availability of units and individuals. Tools are interdependent and must be leveraged to ensure unit personnel readiness and ensure availability of units and its associated personnel in execution of deployments and Army service requirements.

The Period of Performance is 1 Aug 2019 to 31 July 2020. The total value of $1,900,000.00 is based on the signed Independent Government Estimate (IGE). The IGE was developed by FORSCOM Operational Analysts using historical data for similar software development services.

4. Authority Cited: Simplified Procedures for Certain Commercial Items, 41 U.S.C. 1901 as implemented by FAR Subpart 13.5:

Unusual and compelling urgency Exclusive licensing agreements Industrial mobilization Other: FAR 6.302-1(a), Only one responsible source and no other supplies or services will satisfy agency requirements.

5. Reason for Authority Cited: For award to other than ProModel, the Government will incur unacceptable dollar, time, and resource (personnel) costs to continue operation of the existing architecture while instantiating, accrediting, and supporting the architecture offered by a different vendor along with high risk in transferring Army Force Generation functional knowledge to another vendor. Interoperability and compatibility with AST could be limited and, based on historical cost data, would come at an estimated cost to transfer code and purchase ProModel licenses. The ProModel Application Framework (PAF) is ProModel's proprietary software platform and is required for all ProModel developed custom applications to include AST. AST and PAF are accredited on the Army SIPR and NIPR networks. AST contains over 600,000 lines of code and a database that spans over 150 tables with approximately 3,000,000 records. If FORSCOM were to consider an alternative to PAF and the ProModel services which support the sustainment and enhancement of the AST, the new contractor would need to re-create the application on something other than PAF and risk the current availability and critical timely enhancements of AST required for this mission critical application. In addition to the expiration of its contract, the current WIAS is no longer Cyber compliant and cannot remain on the network because of category 1 network vulnerabilities. Cost of redeveloping WIAS is prohibitive as a stand-alone application and it is not consistent with GFIM-OE compliance standards.

(b) Alternatives:

(1) Forego Services. The highly specialized AST support services procured by

FORSCOM are foundational to accomplishment of the Army Service Force Provider mission directly given to FORSCOM by the Secretary of the Army.

Forgoing services would remove the only Service Force Provider system available to the Commander FORSCOM supporting this mission, which would result in mission failure. Therefore, this alternative is wholly unacceptable.

(2) Competitive Contract. Past attempts at competition for AST (FORSCOM’s historical reference) has resulted in limited respondents proposing replacement / modifications to the operating architecture using methods posing high risk to FORSCOM, i.e. staffing the contract with college students or using “freeware” software for sustainment. Essentially, respondents proposed duplicating existing AST capability within their architectures. Additionally, time constraints need to be considered. The completed module must be ready for the Fall Army Synchronization and Resourcing Conference (ASRC) scheduled for September 2020.

(3) Sole Source. A sole source award eliminates the cost of replacing a proven, operating architecture solely on the basis of it being proprietary, deletes the dollar and resources cost for parallel operation of architectures, and removes the operational risk associated with a new vendor’s development and sustainment methodology. Although proprietary, yet available through GSA, the PAF architecture used in AST consists of simulation engines, multiple Gantt user interfaces, scenario management, and task scheduling capabilities which are fully compatible with the existing Army Microsoft-based architecture.

Additional capabilities are added to PAF at no cost to the Government given ProModel’s Gold Partner status with Microsoft. PAF architecture used in AST consists of simulation engines, multiple Gantt user interfaces, scenario management, and task scheduling capabilities which are fully compatible with the existing Army Microsoft-based architecture which is used to anticipate modifications needed in AST and not just react to Government change requests. Given the cost saving, resource cost avoidance, and track record in competitive solicitations, awarding a sole source is deemed the best solution.

(c) Dollar, time and resource costs are reduced in maintaining the production “as is” architecture over developing and instantiating the “to be” architecture of a new vendor to include the costs in verification, validation, and accreditation (VV&A) of the new architecture before fielding to production. Operational risk would be virtually non-existent given the sustainment consistency of the current vendor through application of disruptive and creative innovations. Additionally, the accumulated functional knowledge by the current vendor about Army force generation remains intact.

6. Efforts to Obtain Competition: In accordance with FAR 5.201(b)(2), a sources sought notice was placed on the Federal Business Opportunities (FBO) website at www.fbo.gov on 25 March 2019. Responses were due on 03 April 2019.

7. Actions to Increase Competition: Currently the entire AST platform is a proprietary fielded standard of operations that must be seamlessly integrated under a single program effort. However, in accordance with current DoD policy, to maintain networthiness the AST must come off the PAF and move to a modular open systems architecture. This will take place when the current AST contract is re-competed at the end of its period of performance in 2021 and will end this sole source relationship with ProModel. Full and open competition for the development of additional application modules is expected at that time. Appropriate FAR and DFARS clauses will be included in this contract to ensure the Government obtains Government-purpose rights. These rights will be used to increase future competition for similar requirements.

8. Market Research: Responses to the sources sought notice posted to FBO were reviewed by the Contracting Officer and mission partner and compiled into a market research report. The Government received 25 responses to the sources sought: one from a Government agency, the National Institutes of Health, suggesting the use of their NITAAC GWAC; one from a large business, Pragmatics; one from a small business, Kavaya, in an unknown category; and 22 from small businesses in various categories.

9. Interested Sources: See Paragraph 6 for the synopsis information. The following is a summary of the information received:

Table 1

Company CAGE LB

SB

SD

B

W O

ED

W

O

H U

B Zo ne

VO

SD

VO

8( a)

Fa ci lit y

C le ar an ce

Capability/Experience

1 Appddiction Studio none provided X X

AS

Initiative, LLC

82HL1 X

http://www.fbo.gov/

3 Bi FACT, LLC 6FYA6 X X

Chenega Decision Sciences, 6ZJX4 X X X

5 CompQSoft 1TTA2 X X

6 Def-Logic, Inc. 547M4 X X X

Golden Tech Systems, Inc.

7DPH7 X X

Kavaya Solutions, Inc.

523C8 self-identified as a "Category 2 approved SBE" which is not a Small Business Administration category

9 Mazent Technology 84KNS X X

10 MKGCS,

LLC 1X9M4 X X

11 NIH NA

12 OM Group 57UD9 X X

13 Pragmatics 41839 X X

14 ProModel Corp. 049U7 X X

15 ProSync 1S2P0 X

RV Global Solutions, 6TC84 X

Sebastian Tech Solutions

7C963 X X X

SONA

Networks, X X X X

Strategic Technical Services, 4X7V1 X X

The Ventura Group, Inc.

1PSN2 X X

21 Theta, LLC 7EWJ9 X

Total Quality Systems, 020U3 X

Tri-Force Consulting Services, Inc.

did not provide X

Trillion Technology Solutions, 54PR X X X

Williams Software Associates, 371F9 X

10. Other Facts:

(a) ProModel is a small business under the NAICS, 541511, selected for this requirement.

(b) Prior Acquisitions: The chronological acquisition history for the design, development, and sustainment of the AST is shown in Table 2 below. All were sole source actions.

Table 2

CONTRACT NUMBER CONTRACTOR CONTRACT AMOUNT PERIOD OF

PERFORMANCE

W911SE-06-C-0007 ProModel Corporation $10,691,904 27 Jan 06 – 26 Jan 10

W91QUZ-06-D-0019-1E01

Booz Allen Hamilton (Subcontracted to

ProModel)

(subcontract value $9,075,000) 01 Jul 09 – 30 Jun 11

W91247-11-C-0030 ProModel Corporation $2,599,642 11 Jul 11 – 31 Jan 12 W91247-12-C-0011 ProModel Corporation $1,863,040 01 Feb 12 – 31 Jul 12 W91247-12-C-0015 ProModel Corporation $9,630,771 01 Aug 12 – 31 Jul 15 W91247-15-C-0018 ProModel Corporation $10,410,600 01 Jul 15 – 30 Jun 18 W91247-18-C-0020 ProModel Corporation $10,335,511 01 Aug 18 – 30 Jun 21

11. Technical Certification: I certify that the supporting data under my cognizance which are included in the justification are accurate and complete to the best of my knowledge and belief.

Typed Name: Date:

Title: Signature:

12. Requirements Certification: I certify that the supporting data under my cognizance which are included in the justification are accurate and complete to the best of my knowledge and belief.

Title: Signature:

13. Fair and Reasonable Cost Determination: I hereby determine that the anticipated price to the Government for this contract action will be fair and reasonable. The following price analysis techniques will be used to evaluate the proposed prices for reasonableness: the comparison of proposed prices to historical prices on current/similar contracts as well as the comparison of proposed prices with the signed Independent Government Estimate. Certified pricing data is not required per FAR 15.403-1(b)(3). The commerciality determination is on file.

This determination will be made using the following: price analysis cost analysis IGCE audit: n/a other: n/a

As a part of this basis, certified cost or pricing data is not required because the item and/or services being acquired are considered commercial.

Title: Contracting Officer Signature:

14. Contracting Officer Certification: I certify that this justification is accurate and complete to the best of my knowledge and belief.

Title: Contracting Officer

Approval Based on the foregoing justification, I hereby approve the procurement of the FORSCOM requirement to develop software for the AST RSAM on a sole source basis pursuant to the authority of the Simplified Procedures for Certain Commercial Items, 41 U.S.C.

1901as implemented by FAR Subpart 13.5, subject to availability of funds, and provided that the services or supplies herein described have otherwise been authorized for acquisition.

Date:

Advocate for Competition Signature: