A02 JUSTIFICATION AND APPROVAL - LEIDOS 09102020 KO REV.DOCX_Redacted 28Sept20.pdf

Control No: JA-20-E-531

Contractor: Leidos, Inc.

F0R OFFICAL USE ONLY

Program: DCGS-IS&A

FAR Part 6 Justification and Approval for Other than

Full and Open Competition

1. Contracting Activity: U.S. Army Contracting Command-Aberdeen Proving Ground

6565 Surveillance Loop, Building 6001

Aberdeen Proving Ground, Maryland 21005

2. Description of Action: The Communications Electronics Command (CECOM) Software Engineering Center (SEC) in support of the requests a modification to an existing Firm-Fixed-Price (FFP) contract W56JSR-19-C-0008 for Commercial-Off-the- Shelf (COTS) GeoRover software maintenance support for previously brought licenses for each of the four option years on the contract. The North American Classification Systems Code (NAICS) is 511210 - Software Publishers. The Government projects an award in September 2020. Fiscal Year (FY) 2020 Other Procurement, Army (OPA) funds will be used to add maintenance support for licenses from date of award through May 14, 2021. 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).

3. Description of Supplies/Services: currently uses GeoRover software applications to support the Army’s intelligence mission, and there is a need for additional maintenance. GeoRover Commercial off the Shelf (COTS) is a commercial product used in as part of an integrated suite of software applications.

The Army’s minimum requirements include a COTS set of software that can do the following:

1. Leverages metadata richness and other data artifacts to bring mission synchronization and geospatial empowerment to data analysis and exploitation.

View live video feeds, streamlined workflow, advanced search, geospatial visualization and search, and the ability to view and exploit wide-area motion imagery to develop and support mission objectives.

2. Aids in the assessment and support of the operational and technical landscape through the utilization of motion imagery Intelligence Surveillance and Reconnaissance (ISR) collection operations, production and analysis.

3. Uses an interactive interface within the ArcMap that allows rapid generation of intelligent product through intuitive “drag-and-drop” interface in various formats from Aeronautical Reconnaissance Coverage Map (ArcGIS) data.

Program:

4. Contributes capabilities to receive intelligence data, perform analysis and present the common operational picture to the commander for critical time sensitive decisions.

5. Provides geospatial tools to enhance data import, field data collection, data creation and data export.

6. Plots routes and displays collected field data from commercial Global Positioning System (GPS) receivers such as digital cameras, voice recorders and then present them present this information in layers in ArcGIS.

7. Provides the user with the interactive interface within ArcMap for creating and editing feature layers, and export products in standard format (Hypertext Markup Language (HTML), PowerPoint® slideshows, Excel® spreadsheets) from ArcGIS data.

8. Works with the ArcMap component of the ArcGis Desktop software.

Period of Performances and Estimated Value:

(Maintenance for 2000 previously brought licenses)

Option Yr. 1: Date of Award – 5/14/2021 $

Option Yr. 2 : 5/15/2021-5/14/2022

Option Yr. 3 : 5/15/2022-5/14/2023

Option Yr. 4 : 5/15/2023-5/14/2024

Total estimated value:

Detailed pricing of the maintenance is outlined below.

Program:

in ArcGIS. It provides the user with the interactive interface within ArcMap forcreating & editing feature layers, and export products in standard format (HTML, PowerPoint® slideshows, Excel® spreadsheets) from ArcGIS data.

GeoRover applications were originally selected by Program Manager (PM) because GeoRover applications meet the Warfighter’s requirements as outlined in paragraph 3 above. The cost of replacing the software needs to take into consideration that the previous installed and fielded COTS software has to remain active, until the alternate replacement software, is purchased, optimized for the specific purpose and then obtain a cyber security certification so it can be incorporated into the baseline and the existing software is removed.

If another product were identified and selected, it would impact the entire baseline. Any product replacement would result in developmental efforts to re-engineer the existing baseline, followed by production and certification testing efforts. The estimated time/cost to re-engineer the baseline and replace the existing fielded

)) is estimated at and of duplicated costs. This would be cost prohibitive and impact mission requirements in a timely matter. The estimated months to reengineer includes research, taking out the Leidos software from all the systems and within multiple baselines, re-engineering, integration testing, performing Information Assurance Vulnerability Assessment (IAVA), and re-certifying the Authorization To Operate or ATO. The reengineering cost is broken down as follows:

[M = million]

Total Estimated Cost to Change Software and Reengineer the

Base Line of an Integrated Software System

Engineering Base Line M

Configuration Management M

Engineering Verification & Validation M

Information Assurance M

Integration M

Independent Verification & Validation M Information Assurance Vulnerability Assessment (IAVA) M

Dept. of the Army Military Intelligence-Government Estimate (DAMI- GE) Certification

M

Fielding and Support M

TOTAL ESTIMATED COST OF REENGINNERING EFFORT $ M

Program:

The above is the total estimated cost to change software and reengineer the program baseline of the integrated software system. This calculator provides a parametric estimating tool based on multiple factors related to substituting different COTS software product for an existing COTS software product that has been integrated and fielded in program. The reengineering factors, include but are not limited to, how the software is used within the baseline; how the software is distributed throughout the program; where the software is in the configuration of the integrated systems program; how many times the replacement upgrade needs to be uploaded; where the upgrades need to be installed; the number of times the software has to be loaded in existing fielded equipment and or locations; and finally how much effort is required to validate the software is a true substitution that meets all minimum program requirements; and the configuration management requirements and the security features required to maintain the Authority-to-Operate (ATO) in accordance with US Army Cyber Security standards and policy. The cost is determined by the engineer's knowledge of the program configuration management, the relationship of the software to the core of the operating system, the ATO certification requirements and other factors. The ATO certification is required to ensure the network remains secure and is compliant with the current Department of Defense (DOD) Cybersecurity policy, which requires maintaining access to the latest software application patches, upgrades, and any required security related updates. The software has already been tested and certified that it is in compliance of latest DOD IT cybersecurity policy.

Impact to the warfighter if this requirement is not awarded on schedule:

If the Government selected another product to replace the functionality of the GeoRover applications from the System it would result in extensive research and functional testing to identify potential products, developmental efforts to re-engineer the baseline, followed by production and certification testing efforts. This would result in increased costs for the System. If this software fails, goes unlicensed, and we have no support from the company, all current development servers are at a critical risk and thus, the development work that is being done on Program of Record (POR) systems will come to a complete work stoppage. This will adversely affect many systems to include the Army's tactical (deployed) command and control systems support. Failure to renew support will reduce effectiveness to the Warfighter over time and potentially compromises the security posture of the systems on the network. The manufacturer releases new versions annually with improvements to functionality and design that are beneficial to the Warfighter and the mission

(b.) Alternate products:

A competitive product is the General Dynamics V-DEX Motion Imagery Processing & Exploitation that provides imagery analysis but lacks the interactive interface within the Aeronautical Reconnaissance Coverage Map (ArcMap). The Leidos GeoRover software is the only software that allows the U.S. military intelligence analysts to optimize their response to the current information and enable the soldiers to continue to exploit a wide range of motion imagery collection.

Program:

6. Efforts to Obtain Competition: The Contracting Officer shall publish the notices required by FAR 5.201 and any bids or proposals received shall be considered. Market research was performed by the Software Engineering Center, , details of which are also in Paragraph 8. Searches were performed on the Army Computer Hardware Enterprise Software Solutions (CHESS# 216759695 posted on 2 Jun 20), the National Aeronautics and Space Administration (NASA) Solutions for Enterprise Wide Procurement (SEWP) (request #160098 posted on 8 Jul 20), and General Services Administration (GSA# 1442751 posted on 8 Jul 20) websites. A Sources Sought Announcement (SSA) (W56JSR-20-Q- 0103), based on minimum performance characteristics (see paragraph 3 above) was posted on 2 Sept 2020 on the beta.SAM.gov website for six days. There were no responses received in response to the SSA.

a. Effective Competition: Effective competition will not be achieved for this effort as the

Software Publisher does not sell to the Army through multiple resellers, as this product is sole sourced. The particular brand name, product, or feature is essential to the Government’s requirements, and market research indicates other companies’ similar products, or products lacking the particular feature, do not meet, or cannot be modified to meet, the agency’s needs"

b. Subcontracting Competition: Subcontracting competition will not be achieved for this requirement as Leidos made a business decision to process all software support and maintenance internally to protect their software copyright.

7. Actions to Increase Competition: Commercial software publishers are encouraged to increase the number of authorized resellers. Additionally, upon receipt of the requirement a list of authorized distributors for this software is immediately requested from the Software Publisher. The Government encourages the software publishers to pursue distribution and support services of their COTS software product lines through Small, Service Disabled Veteran Owned, Woman Owned, small disadvantaged, certified 8(a) small disadvantaged and Historically Underutilized Business Zone (HUBZone) small businesses. Market research will be conducted annually on the current baseline to determine if changes occur in the market place that would enable greater competition.

The particular brand name, product, or feature is essential to the Government’s requirements, and market research indicates other companies’ similar products, or products lacking the particular feature, do not meet, or cannot be modified to meet, the agency’s needs.

Acquisition Data Availability: The Government only possesses a commercial purchase description. Technical data for the previous acquired licenses is proprietary / owned by Leidos, Inc. The commercial purchase description does not provide enough technical information to allow vendors to create the functionality of this product.

8. Market Research: A Request for Information (RFI) was submitted to the General

Program:

Services Administration (GSA) Advantage (RFQ-1442751) contract holders on 8 July 2020; two (2) vendors responded to this posting. The National Aeronautics and Space Administration (NASA) Solutions for Enterprise Wide Procurement (SEWP) website (RFI-160098) had two (2) vendors respond to the 8 July 2020 posting. The CHESS RFI posted on 2 June 2020, rendered no responses. In accordance with Defense Federal Acquisition Regulation Supplement (DFARS) 205.205-71, DFARS 206.302-1(d), and DFARS Procedures, Guidance and Information (PGI) 206.302- 1(d), a Sources Sought Announcement (W56JSR-20-Q-0103), based on minimum performance characteristics (See paragraph 3 above) was posted on 2 Sept 2020 on the beta.SAM.gov website for six days. There were no responses received for the sources sought announcement. See the table below for a complete list of respondents.

None of the interested parties were deemed capable of providing the Governments requirements. Leidos is the sole developer and provider of these requirements.

Authorized Resellers may sell maintenance and technical support to an end user for the Initial Term of coverage; however, additional maintenance coverage may not be sold by authorized Resellers pursuant to a statement provided by the OEM on 15 July 2020.

Leidos’ sole source letter, dated 15 July 2020, states the following:

“Leidos, Incorporated, is the developer and designer of the GeoRover Software Products and the sole provider for maintenance and technical support.

While maintenance and technical support may be sold by others, we remain to be the sole providers of such requirements. Our authorized Resellers may sell maintenance and technical support to an end user for the Initial Term of coverage; however, authorized Resellers’ additional maintenance coverage may not be sold. The Initial Term is defined as a period of time beginning on the Effective Date of the End User’s License Agreement (EULA). The quote provided is for maintenance beyond the Initial Term.”

Contractor Name Cage Code Business Category

Sterling Computers

06AP0 Woman Owned Small Business

Victory Global Solutions, Inc

1ZK55 Economically Disadvantaged Woman Owned Small Business

Software Information Resource Corp.

1PQ53 Certified HUBZone

Enterprise Technology Solutions

62PR1 Woman Owned, Small Business

Leidos, Inc. 52302 Other than Small Business

Program:

9. Interested Sources: A redacted Justification and Approval was published after contract number W56JSR-19-C-0008 was awarded in May of 2019, and requests for information were posted on NASA SEWP, and GSA on 8 Jul 20 with a closing date 15 Jul 20. No other party has expressed an interest in this requirement beyond the vendors listed in paragraph 8.

10. Other Facts:

a. Procurement History:

Vendor Contract Period of Performance Extent Competed /

Authority

Leidos, Inc.

W56JSR-19-C-0008 26 September 2019 - 14 May 2020

Opt 1 - 15 May 2020 to 14 May2021

Opt 2 - 15 May 2021 to 14 May 2022

Opt 3 - 15 May 2022 to 14 May 2023

Opt 4 - 15 May 2023 to 14 May 2024

Sole Source FAR 6.302-1(c), Only One Responsible

Source

Leidos, Inc.

W56JSR-16-C-0021 23 June 2016 - 14 May

Opt 1 - 15 May 2017 to 14 May 2018

Opt 2 - 15 May 2018 to 14 May 2019

Sole Source FAR 6.302-1(c), Only One Responsible Source

Leidos, Inc.

W15P7T-13-C-E087 25 July 2013 – 14 May

Opt1 15 May 2014 – 14 May 2015 Opt2 – 15 May 2015 – 14 May 2016

Sole Source FAR 6.302-1(c), Only

One Responsible Source

SAIC W909MY-11-P-0062 29 September 2011 -14 May 2012

Opt1 - 15 May 2012 -14

Sole Source

FAR 13.504

Program:

May 2013

Opt2 - 15 May 2013 -14 May 2014

There has not been any significant change in circumstances from the previous Justification and Approval to this current justification. The GeoRover was renewed under the previous procurement due to the software already being Integrated in the DCGS-IS&A fielded baselines; thereby precluding the removal of the software without significant cost and time to re-engineer and field replacement baselines.

Program:

X

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

Contracting Officer

Program:

Approval

Based on the foregoing justification, I hereby approve modification to W56JSR-19-C- 0008 to add Commercial-Off-the-Shelf (COTS) GeoRover software maintenance support for additional licenses for each of the four option years under the contract for an estimated amount of $ on an other than full and open competition basis pursuant to the authority of 10 U.S.C.2304(c)(1) as implemented by FAR 6.302- 1, Only one responsible source and no other supplies or services will satisfy agency requirements, subject to availability of funds and provided that the services and property herein described have otherwise been authorized for acquisition.

Command Competition Advocate