A06 SETA JOFOC.pdf

United States Department of Agriculture Limited Sources Justification for an Order/BPA

Exceeding the Simplified Acquisition Threshold

Federal Supply Schedules/Multiple Award Schedule Program

FAR 8.405

Control No. (if applicable) ______________________

1. Identification of the agency and the contracting activity.

United States Department of Agriculture, Departmental Administration, Office of Contracting and Procurement (OCP), Procurement Operations Division (POD), 301 S.

Howes Street, Suite 321, Fort Collins, CO 80521.

2. Nature and/or description of the action being approved.

The United States Department of Agriculture (USDA) proposes to issue a limited source task order to J3 Consulting, LLC, 1725 I Street, N.W., Suite 300, Washington, DC 20006 - on a firm fixed- price basis for USDA Conservation Delivery Streamlining Initiative (CDSI) Systems Engineering & Technical Assistance (SETA) services which encompass activities related to analysis of the Natural Resources Conservation Services (NRCS) multi-release train SAFE Agile environment to include reporting and enhancements of current release train processes.

This bridge replaces the services provided under expiring task order AG-3144-D-16-0516, which expires on March 28, 2022. FPAC IT Acquisition (ITAS) team along with POD is in process to fully compete a new requirement for a long-term award, however, due to unforeseen delays in the procurement process that action will not be completed in time to continue support. The work required is a continuation of the work being performed under the current GSA task order. This bridge will continue mission critical support services until a new long-term award action can be competed.

3. Description of the supplies or services required to meet the agency’s needs (including the estimated value).

The Conservation Delivery Streamlining Initiative (CDSI) effort makes improvements to the current application systems to improve the work quality and consistency throughout software delivery to reduce program cycle times and improve the effectiveness of the agency by greater efficiencies. The Natural Resources Conservation Service’s (NRCS) ability to provide site-specific, science-based conservation planning is the Agency’s strategic niche in delivering conservation programs, and it is this field-based delivery system that enables NRCS to successfully implement Farm Bill provisions. NRCS’s leadership established a vision to implement a new business model that reinforces this role, with a goal of having technical staff spend 65 to 80 percent of their time in the field conducting conservation planning and implementation activities.

The J3 Consulting, LLC will be responsible to maintain continuity of services in support of a rollup of all tasks being performed across Conservation agile release train to support Government Program Manager (GPM), Government Project Managers (PM), NRCS Leadership, and the CDSI Program Management Office (PMO) with best approaches to evaluate vendor deliverables. The contractor supports the government staff in monitoring all aspects of contractor execution; specifically, Integrated Conservation Desktop/Mobile Planning Tool version 2-6, CD Financial Assistance - Easement (RAD for Phase 2 – 21 new modules), and development of Phase 1 & 2 (27 easement modules). The support includes inspection and validation services and recommendations, adherence to the NRCS Software Development Life Cycle (SDLC), and the specific requirements of the tasks listed.

The critical mission areas requiring continued, uninterrupted support are:

• Oversee and provide program support and guidance services to support a rollup of all tasks being performed across Conservation agile release trains

• Support the evaluation of deliverables from multiple vendors to ensure performance metrics and value are being delivered to NRCS.

• Review and support the integration of the primary CDSI systems (CD-FA, MPT, and

CD- FA Easements). Continuing the integration point for NRCS in performance management review and recommendation services needed for evaluating vendor deliverables for CDSI orders and Application Development Contracts.

• Providing independent and objective analysis to ensure that the software and its associated products comply with requirements

This bridge will be a new, short-term task order issued to the current incumbent to avoid a lapse in service and is critical to FPAC mission success. The estimated cost for the five-month period is $1,162,303 as identified in the estimates below. The period of performance will be for a total possible length of 5-months, March 28, 2022, to August 31, 2022. The estimated value is detailed in the table below:

Bridge: POP 3/28/2022 - 8/31/2022 Base (5-mo) Month 1: $232,460.60 Month 2: $232,460.60 Month 3: $232,460.60 Month 4: $232,460.60 Month 5: $232,460.60

Total: $1,162,303.00

4. The authority and supporting rationale.

The following circumstance justifies limiting the source under FAR 8.405-6:

FAR 8.405-6(a)(1)(i)(B) – Only one source is capable of providing the supplies or services requried at the level of quality required.

The original period of performance ends on March 28, 2022. This bridge will replace services for current order AG-3144-D-16-0516 which will expire on March 28, 2022. It was FPAC’s intention to have a new award in place prior to the expiration of the existing contract which has been delayed. USDA FPAC NRCS Conservation Delivery Streamlining Initiative (CDSI) Systems Engineering, and Technical Assistance (SETA) requires a bridge task order to provide continuity of critical services from March 28, 2022, through August 31, 2022. USDA, FPAC has an on-going need for the continuation of the current service level and support of the CDSI SETA support services. POD plans to issue a sole source task order to the incumbent contractor, J3 Consulting, LLC. A break in service will directly impact current application systems that are improving work quality and consistency; reducing program cycle times; and improving the effectiveness of the agency's mission. Without J3 Consulting, LLC’s unique understanding of the CDSI SETA environment, application support services for this platform and all agencies aligned under FPAC would be placed at risk and the inefficiencies associated to the loss of J3 Consulting, LLC will have a direct impact on the USDA's end user. The bridge is necessary to provide the Government sufficient time to evaluate, finalize and award a new contract. Given the current circumstances, J3 Consulting, LLC is the only capable source to provide the required highly specialized expertise for the Bridge Task Order.

5. A statement demonstrating the unique qualifications of the proposed contractor or the nature of the action requiring the use of the authority.

Pursuant to FAR 8.405-6(a)(1)(i)(B), J3 Consulting, LLC (J3), is the only source that can provide for the on-going needs and continuation of CDSI SETA support services at the necessary quality level required. This task order will continue the critical work that was started under the former order, AG-3144-D-16-0516, which was placed in accordance with the applicable GSA ordering procedures. This bridge will provide the Government with the ability to re-solicit and award a long-term acquisition to replace the current contract.

The following factors were considered in the determining the need for a short-term bridge order. These factors were instrumental in identifying and targeting the potential for failures and exposing significant risks to FPACs CDSI SETA support services if a bridge task order is not issued.

The NRCS Conservation Agile Release Train environment this contract supports is complex. Specifically, there are five different prime vendors managing each of the five release trains. This combination of multiple vendors and multiple release trains support dozens of applications performed across support to Government Program Manager (GPM), Government Project Managers (PM), NRCS Leadership, and the CDSI Program Management Office (PMO). J3 has working relationships and understanding of how each of the five vendors operate, which allows them to understand and assist the government in adjustments needed to easily effect and efficiently manage these trains. J3 has institutional knowledge that no other vendor has as the service provider for these efforts during the previous waterfall software development methodology and through the change from waterfall to the current SAFe Agile methodology. This knowledge is specific to this environment and allows J3 to provide insight into Conservation software release trains that no other vendor can provide. This tacit knowledge paired with their analytical capabilities that have been tailored to NRCS specific needs provide unique qualifications that cannot be reproduced at this time. The specialized knowledge of this environment is critical to ensuring success of the Conservation software development efforts, as well as the other tasks in progress. The current vendor, J3, has the institutional knowledge required to continue the work through a bridge contract.

The lack of institutional and environmental knowledge and awareness of a new vendor will directly impact FPACs ability to effectively provide business applications and capabilities across functional areas and will affect streamlined and digitize workflows. Without the issuance of a bridge, it will prohibit FPAC from providing immediate transparent status updates, quickly identify an issue and subsequently deploy the corrective measures across their department.

Additionally, as a result of the current time required to complete onboarding with USDA being between 30 - 90 business days, and the current end time of the existing order being March 28, 2022, a new vendor would not have sufficient time to complete onboarding, receive knowledge transfer and provide the services. This would result in a break in service and would be detrimental for the Government’s needs. There would also be additional costs to recompete a new short-term contract, an increase in federal man hours impacting route and daily inherently governmental functions and would directly impact costs due to onboarding a new vendor.

The original source can provide services without delay, without a duplication of start-up cost that will not be recovered through competition and maintain the environmental knowledge among the intricate combinations of multiple vendors and multiple release trains. Any delays could cause a decline in velocity to the current and upcoming software deployment release schedules on the Conservation Agile Release Trains. These delays would cause a declination in multiple value streams and potential delays in providing payments and other services to producers.

In summary, a limited source procurement is requested due to:

A. The complex combination of vendors and release trains required to continue critical and successful completion of Conservation software development.

B. Insufficient onboarding and knowledge transfer timelines causing significant delays and a break in service.

C. Duplicated start-up costs and transition costs not being recovered or offset through competition.

Not awarding a bridge to J3 Consulting, LLC would result in a loss of institutional knowledge, duplicate start-up costs, and create a break in service. No other vendor has the institutional knowledge nor environmental knowledge to seamlessly integrate themselves into the complexities of the current required services.

6. Description of the market research conducted among schedule holders and the results or a statement of the reason market research was not conducted.

Market research was conducted in accordance with FAR 10. A review of GSA Advantage and other sources of information for the required services and support indicated that no other firms could provide this type of service with the same level of unique environmental knowledge and institutional expertise of this contractor without a lapse in support.

7. Any other facts supporting the justification.

The initial CDSI SETA order was competed on GSA IT MAS and awarded to J3 Consulting LLC on September 09, 2016. During this time, methodologies changed from waterfall software development to the current SAFe Agile methodology. Because of this, J3 has become crucial to FPAC’s efforts and additional time for competition, onboarding and then knowledge transfer would have a severe impact on FPAC.

8. Statement of actions the agency may take to remove or overcome any barriers to competition if subsequent acquisitions are anticipated.

The Government is concurrently seeking a fully competitive award to be in place upon expiration for this temporary bridge task order. An acquisition is in process to complete the new CDSI SETA requirements in Fiscal Year 2022 via a competitive acquisition.

CDSI SETA is an FPAC acquisition strategy planned to support all FPAC Farm Bill provision new business model requirements.

9. Determination by the ordering activity Contracting Officer (CO) that the order represents the best value consistent with FAR 8.404(d).

The deliverables included service plans and execution in project management, program management, design, development and deployment stages of system engineering and technical assistance as well as independent verification and validation. Other requirements include monthly status report meetings and project reporting including progress of all activities.

Placing this task order represents the best value to the government in accordance with FAR 8.404(d). Award will be made based on the receipt of a technically acceptable quote in response to the provided PWS containing a fair and reasonable price. The proposed task order represents a reasonable price as the hourly rates for services have been previously established on the GSA schedule. Additionally, it is anticipated that the rates proposed for the Bridge task order will reflect either a close similarity or the same rates as currently being billed which includes an overall 21% discount further reducing costs. By placing an order against the schedule contract, with the additional discount provided, the ordering activity has concluded the task order represents the best value and results in the lowest overall cost alternative to meet the Government’s needs. The ordering activity contracting officer will determine, after considering the level of effort and the mix of skills available for the tasks needed, that the proposed task order represents a reasonable total price and will be the best value for the Government, price, and other factors considered. The resulting task order will be firm-fixed-price.

Certifications & Approval

The information provided for this justification has been reviewed and certified accurate and complete by ____Laura Bender_____________, Program/Technical Personnel.

Contracting Officer (not exceeding $750,000). I have reviewed this justification and certify it to be accurate and complete to the best of my knowledge and belief.

Approved.

Reviewed and forwarding to the Procuring Activity Advocate (MASCO or Delegate).

John Paul Flores Contracting Officer

Additional Reviews & Approvals

Signatures are required at each threshold up to the total estimated dollar value of the acquisition

Advocate for competition for the procuring activity (MASCO or Delegate approved by HCA for USDA) (if over $750,000, but not exceeding $15 million). I have reviewed this justification and certify it to be accurate and complete to the best of my knowledge and belief.

Approved.

Reviewed and forwarding to the Head of the Procuring Activity/HCA.

Richard Jiron Mission Area Advocate for Competition

JOHN

FLORES

Digitally signed by JOHN FLORES Date: 2022.03.08 12:53:35 -07'00'