Approved SSJ - Redacted.pdf

SOLE SOURCE JUSTIFICATION (SSJ)

1. IDENTIFICATION OF AGENCY AND CONTRACTING ACTIVITY

Agency: Social Security Administration (SSA)

Contracting Office: Office of the Deputy Commissioner for Budget, Finance, and Management (DCBFM) Office of Acquisition and Grants (OAG) Office of Information Technology Acquisition (OITA) Division of IT Support Services (DITSS)

Contracting Officer (CO): Samantha Derr

(410) 965-5751

Program Office: Office of the Chief Information Officer (OCIO) Office of Systems Architecture (OSA) Division of Data Base Systems (DDBS)

Contracting Officer’s Daniel Hershman Technical Representative: (410) 965-9707

Proposed Contractor: Software Alternatives Incorporated (SAI)

Tracking Information: Advanced Procurement Plan (APP) # DCS-25-131B0 Current Purchase Order # 28321320P00050019 Requisition # 3364-25-1004

2. NATURE OF ACTION BEING APPROVED

The purpose of this SSJ is to request technical expertise in modernizing the application data access to the master file and ancillary databases and technical expertise with maintaining the DB2 database infrastructure.

We will solicit a quote and award a single firm-fixed price (FFP) award to SAI, the only vendor capable of providing the required services. The award will include a 9-month base period, and four 12-month option periods.

3. DESCRIPTION OF SUPPLIES/SERVICES AND ESTIMATED VALUE

Estimated Value:

SSA has five major master file databases, three master file ancillary databases, and over 3,000 legacy DB2 (non-master file) databases, which it uses to process its programmatic applications and other critical work throughout the agency. DB2 is IBM’s Database 2. The legacy DB2 databases support Title II “Federal Old-Age, Survivors, and Disability Insurance Benefits”, Title XVI “Supplemental Security

Income for the Aged, Blind, and Disabled”, payment systems, debt management systems, and many other vital projects. The master file databases contain detailed, pertinent information to support over 50 million current beneficiaries, and identity and earnings information for over 150 million workers who have not yet filed for retirement or disability benefits. The databases contain approximately 12+ terabytes of highly compressed data. The overall production environment, consisting of both master file and non-master file databases, contains over 460 terabytes of data across five mainframe systems.

The databases are critical to the issuance of Social Security cards, the maintenance of lifetime earnings history, the payments to over 6 million Supplemental Security recipients, and the payments to over 50 million beneficiaries. There are currently hundreds of applications accessing data in the master file and ancillary databases. These core business functions depend on the accuracy and availability of the supporting data maintained in the master files. Identifying and mitigating risks in a DB2 environment is necessary in supporting a migration from the data access layer to a new, modern data access, based on Java, cloud, and other open standards. Identifying and implementing a solution is critical to the success of SSA’s transition plans to a modern application development environment. As part of its modernization efforts, SSA is focusing on optimizing its business service delivery by streamlining business processes as well as providing better access to Enterprise data. This modernization effort focuses on re-engineering legacy data stores and business processes, and constructing new systems that use modern technology in order to overcome limitations that exist in our legacy systems.

This effort focuses on providing analysis, design, and implementation assistance needed to construct a modernized data access layer to support service development. In order to accomplish this, SSA must embark on a transition plan that moves towards the elimination of relying on systems written in Assembler and Common Business-Oriented Language (COBOL) programming languages. These languages are diminishing in today’s marketplace, which makes it harder to find these skillsets in SSA employees and contractor support. These factors leave SSA exposed to problems that may cause prolonged outages, inaccurate processing, or even a stoppage of work. This effort will require previous experience in adopting DB2 access techniques for other private or government entities on a scale comparable to the SSA environment. It also requires specific knowledge of modern DB2 features and how these features can be exploited to SSA’s advantage.

Contractor expertise is needed to 1) analyze the current master file and ancillary database configuration, make recommendations for modernizing application data access, and assure that new and existing access is optimized and efficient; 2) support the conversion of legacy master file access programs to a modern, service-oriented access layer that is universally accessible; 3) support the legacy DB2 databases, projects, and database administrators with resolving technical challenges and enhancing proficiency; 4) assist SSA application developers with the creation of modern database access applications; 5) monitor programmatic access to the master file and ancillary databases; and 6) optimize database configurations by utilizing new database features to support modern program access.

4. IDENTIFICATION OF STATUTORY AUTHORITY PERMITTING OTHER THAN FULL

AND OPEN COMPETITION

The statutory authority that permits other than full and open competition is per Federal Acquisition Regulation (FAR) 6.302-1, “only one responsible source and no other supplies or services will satisfy the agency’s requirements.”

SAI is the only vendor that has the required technical background and skill sets necessary to aid SSA employees in this effort. SAI has a deep working knowledge of SSA’s DB2 and mainframe infrastructure environments, including the Master Earnings File (MEF), Supplemental Security Record (SSR), Master Beneficiary Record (MBR), and Numident master file databases. These master file databases were uniquely designed and architected as part of the conversion from the legacy proprietary Master Data Access Method (MADAM) structures starting in 2003 with the assistance of SAI.

5. DEMONSTRATION OF CONTRACTOR’S UNIQUE QUALIFICATIONS

SAI has knowledge and first-hand experience with the agency’s legacy proprietary MADAM application programming interface (API) code base and modern DB2 master file API code since the initial conversion started 20 years ago. SAI was a key contributor to the design and architecture of this modernization effort. This unique perspective is essential for ensuring seamless operation of the existing applications and facilitating future modernization efforts, as well as ensuring a smooth transfer of knowledge to existing staff and fostering long-term organizational capability. The proprietary nature of the legacy MADAM master file structures and the conversion have created a unique master file architecture unlike any other DB2 environment in the industry. SAI is the only vendor with experience and knowledge of this master file architecture and, therefore, is the only vendor capable of providing the required support for this environment.

Additionally, SAI has extensive knowledge and documentation of the historical performance trends of the modern DB2 API code base and is able to use that knowledge to better interpret current and future performance results and make recommendations based on those findings. SAI, as a DB2 Gold Consultant, has extensive experience with DB2 database systems, including new features in the latest versions of DB2 that have helped improve and streamline SSA’s environment, encompassing both traditional and modern architectures. SAI has numerous working relationships with key IBM engineers and developers, allowing SSA to get support and answers to problems faster than the traditional mainline support channels, which has saved time and allowed solutions to proceed to implementation in an expedited manner.

SAI’s experience converting these data structures and their knowledge of critical non-master file databases supporting the agency’s mission to the American public provides them a unique ability to recommend new features and technologies to improve, streamline, and modernize our DB2 footprint.

The conversion methods used are unique to SSA and were developed with the help of SAI and, therefore, cannot be replicated by any other contractor.

6. DESCRIPTION OF EFFORTS MADE TO SOLICIT FROM AS MANY POTENTIAL

SOURCES AS IS PRACTICABLE

On 10/25/2024, the agency posted Request for Information (RFI) 28321325RI0000009 to sam.gov. See Section 8 for more information.

7. DETERMINATION BY THE CO THAT THE ANTICIPATED COST TO THE GOVERNMENT

WILL BE FAIR AND REASONABLE

The CO will perform an appropriate price evaluation, as required by FAR 13.106-3(a)(2), to determine that the proposed price is fair and reasonable, consistent with FAR 13.106-3(a).

8. DESCRIPTION OF MARKET RESEARCH

On 10/25/2024, RFI 28321325RI0000009 was posted on sam.gov. The purpose of this RFI was to identify the availability and technical capability of all qualified businesses that believed they could provide the services described in the draft Statement of Work (SOW). The RFI closed on 10/31/2024, and SSA received responses from 10 vendors. After reviewing the responses to the RFI, it was determined that none of the vendors, except for SAI, appear to be capable of performing this requirement due to the lack of master file database experience with organizations as large and complex as SSA.

9. ANY OTHER SUPPORTING FACTS

In accordance with FAR 4.1102 and 9.401, the CO will examine the System for Award Management to make an affirmative determination of the contractor’s responsibility.

Techniques for conducting market research include the following:

Contacting knowledgeable individuals in government and industry regarding market capabilities to meet requirements, per FAR 10.002(b)(2)(i)

Reviewing the results of recent market research undertaken to meet similar or identical requirements, per FAR 10.002(b)(2)(ii)

The CO reviewed the results of market research undertaken prior to the award of Purchase Order 28321320P00050019. A Sources Sought Synopsis was posted to the government-wide point of entry (GPE) on 02/28/2020. Based on the lack of responses received, it was determined that SAI is the only contractor that has the required technical background and expertise in accordance with FAR 6.302-1.

10. LIST OF SOURCES EXPRESSING INTEREST IN THE ACQUISITION IN WRITING

The following vendors submitted responses to RFI 28321325R0000009:

• 6e Technologies

• Accenture Federal Services LLC

• IBM Corporation

• Krai Solutions

• Laansu, Inc.

• LATNUS LLC

• Omm IT Solutions

• Razrwing Inc.

• SAI

• Stem Smart IT LLC

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

COMPETITION BEFORE ANY SUBSEQUENT ACQUISITION IS REQUIRED

The program office and OAG will continue to seek opportunities for competition on future procurements.

12. CONTRACTING OFFICER’S REPRESENTATIVE (COR) AND PROGRAM OFFICIALS’

RECOMMANDATION AND CERTIFICATION

The COR and other program officials hereby certify that the information provided in support of the sole source justification, and which forms the basis for this justification, is accurate and complete.

RECOMMEND: __/s/ Daniel Hershman_________ _____01/14/2025_______ Daniel Hershman, COR Date

DDBS, OSA, OCIO

CONCUR: __/s/ Nicholas Martin _________ _____01/14/2025________ Nicholas L. Martin, Division Director Date

DDBS, OSA, OCIO

13. CERTIFICATION BY THE CONTRACTING OFFICER AND OTHER CONTRACTING

OFFICIALS

The Contracting Officer and other contracting officials hereby certify that the information provided in support of this sole source justification is accurate and complete to the best of their knowledge and belief.

RECOMMEND: _ 01/22/2025__

Samantha Derr, CO Date

DITSS, OITA, OAG, DCBFM

CONCUR: 01/23/2025

Molly Seipp, Acting Team Lead Date

CONCUR: __________________________ 02/21/2025

Joe Speca, Division Director Date

APPROVE: ___________________________ __3/11/2025______________

Syreeta Gay, Office Director Date

OITA, OAG, DCBFM