Attachment 3 - SOO.pdf

STATEMENT OF OBJECTIVES (SOO)

Project: BIE Strategic Transformation of Education Plan (STEP) IDIQ

December 23, 2020

1.0 Purpose:

The Bureau of Indian Education (BIE) provides support for the education of Native American Indian children in grades K-12 throughout 183 BIE-managed and tribally controlled schools, and two Native American colleges. The COVID-19 pandemic has brought challenges for distance learning which highlight the need to develop a Strategic Transformation of Education Plan (STEP) to transform the current educational approach at BIE-managed schools and to create an innovative but standardized approach to learning.

The purpose of this requirement is to provide implementation support for the STEP (in the form of supplies and services, in FFP or T&M capacity); which includes supporting individual students and teachers, providing resources for BIE-managed and Tribally-controlled schools, and enhancing the educational opportunities provided to students.

The BIE STEP is a long-term program plan and its overarching objectives are:

1. Providing BIE students with an excellent and high-quality education, including well-functioning facilities and educational resources, well-supported professional staff; and parent/teacher/student collaboration.

2. Implementation of a standardized Learning Management System and online learning solution;

3. Development and implementation of standardized curricula for Grades K-12;

4. Determination, provision, setup and support of standardized technology and hardware across BIE;

5. Enhanced broadband accessibility for BIE students and staff through improved infrastructure and support;

6. Providing training, professional development and tools to support BIE staff, teachers and administrators, to allow them to accomplish these goals.

2.0 Scope or Mission:

The mission of this contract is to support the STEP by providing supplies and services to support each of the areas mentioned above. The services could include part-time and full-time work, on-site and virtual work in areas including: education SMEs, education technology SMEs, technology (hardware, software) SMEs, infrastructure SMEs, trainers / train-the-trainers, education professional development providers, education administration support, education technology support, desktop support, LMS implementation and training services, curriculum development services, and any other services required to accomplish the mission of the STEP.

The exact specifics of each element of the STEP is not yet known – a study is currently being conducted to uncover some details of the current-state in order to better roadmap an ideal future-state. However, the scope of work required to support that future state does not change. For example, one of the primary and nearest-term goals of the STEP is number 2 above, “implementation of a standardized Learning Management System and online learning solution.”

While the Bureau does not currently know which LMS will be used, we know the scope of this implementation: roughly 12,500 students will need to be set up on the LMS. This contract will support that implementation by providing LMS implementation and training services for all students and staff, such as providing individual and group training, assisting schools and teachers set up their instances of the program, fixing problems and helping to troubleshoot issues, etc. The LMS will be selected from the following options: Schoology, Edgenuity, Google Classroom, Canvas, and Blackboard.

BIE expects to award multiple firm-fixed price/time and material contracts for a 1-year base period and four option years – a total of five years. Note: Shown in the table below, BIE’s estimated student population in SY20-21 totals 11,842 (not including Southwestern Indian Polytechnic Institute (SIPI)).

Grade # of Students Grade # of Students K 994 7 913 1 1,001 8 879 2 1,041 9 537 3 989 10 629 4 974 11 582 5 993 12 520 6 1,040 Haskell University /

SIPI

750 / Unknown at this time.

3.0 Period and Place of Performance:

The anticipated period of performance start date of the acquisition is 03/01/2021. The location will be at Bureau Operated Schools located throughout the United States. The full list of schools is listed in the Appendix 1.

4.0 Background:

The BIE provides the support for the education of Native American Indian children in Grades K- 12 in 183 BIE-managed and tribally controlled schools and two Native American colleges. The COVID-19 pandemic has brought challenges for distance learning which highlights the need to develop a “Strategic Transformation of Education Plan” (STEP) to transform the current educational approach at BIE-managed schools and to create an innovative and standardized approach to learning.

In March 2020, schools nationwide began to close their doors due to the onset of the COVID-19 pandemic. The BIE soon responded and closed 183 schools and dormitories across 23 states. The BIE, as well as the states, state education departments, and the federal government implemented unprecedented life-saving measures to assure the safety and welfare of the general public.

Nationwide, elementary, secondary and postsecondary systems rapidly began closing their physical campuses in response to the national public health crisis created by COVID-19. Actions taken by the BIE were also grounded in the Centers for Disease Control (CDC) guidance and prompted a nation-wide transition for delivery of education beginning in March 2020. For the BIE education system, the decision was made to ensure student learning despite the pandemic and the closing of physical buildings, which relied on moving learning from classrooms, to the use of technology and reliance on the use of online delivery of instruction for the duration of the Spring semester.

Absent was the typical planning, the rigorous preparation of teachers and faculty, the training to build and design online courses for K-16, coordination and implementation strategies that would include:

• Identification of existing online efforts and best practice approaches to use as models,

• Rigorous preparation of teachers and faculty, including the training required to build and design online courses appropriate to K-16 students,

• Time to evaluate the fit of packaged commercial curriculum products for use with culturally unique populations of American Indian and Alaska Native BIE serves,

• Consideration of family access to internet and technology,

• The ability to evaluate the capacity of existing staff to deliver online education,

• The readiness of the technology infrastructure to navigate online learning and to rapidly adapt to the new mode and technology in both BIE and tribal communities.

The abrupt transition to online learning nationally also failed to consider the fact that an estimated 43 million Americans do not have access to the internet. The FCC also reports that 18 million homes do not have access to high speed internet. Access to internet connectivity is sparse in the rural and remote locations, including the reservations where many American Indians served by the BIE reside.

The FCC reported in 2018 that about 35% of people living on tribal lands lack broadband, as compared to 8% of the general public. This lack of internet connection, as well as an inadequate technology infrastructure can make it impossible for BIE students to complete online education or to compete in a digital nation. A May 2019 FCC Report on Broadband Deployment states “Tribal lands often present significant obstacles to deploying broadband and are expensive to serve. These challenges to deployment on Tribal lands includes rugged terrain, complex permitting processes governing access to Tribal lands, jurisdictional issues involving states and sovereign Tribal governments. Tribal communities often lack the necessary infrastructure to support technology, with a predominance of residential, rather than business customers.”

Reservations have lower rates of broadband access and internet services than anywhere in the nation.

The rapid transition to online learning has heightened awareness of the weaknesses in the technology capacity of the BIE K-16 educational system, the impact of the digital divide on vulnerable communities, the broad inequities of access to technology, including access to devices and the internet by American Indian students enrolled in BIE-funded schools. In the absence of reservation-wide access to internet, BIE students have been resourceful in accessing internet services by parking at tribal buildings, convenience store locations and other locations connected to the internet. Students with access to transportation and cell phones, and who can afford the expensive data plan required are able to complete online homework, but many others lack the means to bridge the digital divide.

The term “digital divide” commonly describes the lack of access to broadband, the lack of infrastructure to support technology, and the failure to recognize technology as an essential utility for operations in education, health, public safety, law enforcement, tribal courts, housing, business, economic development and energy in Indian Country. The digital divide adversely affects the capacity of BIE schools and institutions of higher education to prepare students for expectations for technology literacy in the 21st Century.

For example, H.B. 5850 – Bridging the Tribal Digital Divide Act of 2020 recognized the impact of the digital divide affecting tribes. This bill focuses on deployment of affordable broadband service on Tribal land, improving the effectiveness of Federal assistance in meeting the obligation of FCC to ensure universal availability of broadband networks to all people of the United States, including individuals living on Tribal land; and to ensure the preservation and protection of self-governance, economic opportunity, health, education, public safety, and welfare of Tribal entities.

Whether in the use of technology systems appropriate for teaching and learning, the use and access to student academic management systems, acquiring skills in using technology, or benefitting from online learning education, American Indian and Alaska Native students are being left in the wastelands of the digital divide. Broad changes are required to close the digital divide and will not occur without bold leadership and advocacy by the BIE, input from school leadership, tribal leadership, and contributions from those with education technology expertise.

There are solutions and opportunities to improve the use of technology in the BIE K-16 education system and to offer high-quality online learning to all BIE schools. These will require significant changes to ensure the adoption of an innovative and broad technology infrastructure model to fully support the education of students in the BIE system.

Technology Readiness The significant digital divide experienced in Indian Country includes BIE-funded schools located on tribal lands, as well as the BIE-operated postsecondary institutions. The lack of access to technology is compounded by the extraordinary and onerous constraints of access by federal systems, rules and regulations. The federal system, under which BIE operates, is designed for a federal agency and there are numerous constraints that effectively limit full participation of educational institutions. Federal rules, policies and regulations designed to protect the federal system virtually inhibit the use of emerging and innovative technology, by obstructing BIE education institutions from access to any network that would interface with the federal network.

While it can be argued such approaches are appropriate for a federal agency, the current systems restrict the very education services that should be provided, by limiting educational access to essential technology. This impediment reduces the effectiveness of BIE in fulfilling its education mission and hinders students from being prepared for a digital society.

It is clear the capacity of the antiquated Educational Native American Network (ENAN) system is not adequate to support the rapidly changing technology required in education today. The federal system has also not been responsive to the technology staffing needs required in education today. Obsolete hiring practices, outdated position descriptions, control issues, classification standards and recruitment practices fail to meet technology needs of education providers and to retain or attract candidates for technology positions with a wide range of technical expertise and demonstrated ability to implement innovative solutions today. It is reported the federal government lags when it comes to attracting GenZ tech talent. Younger workers who want to make a positive difference are repelled because they see how bureaucracy can impede progress of technology change. It can take years to convince decision-makers and educators to approve new IT positions, and/or adopt technology upgrades and changes. Denials and delays by those who fail to grasp the rapid pace at which a digital society is emerging results in BIE students and schools being left behind.

Infrastructure/connectivity Currently, BIE-controlled schools, colleges and universities operate using the BIE network which is designed for access to high-level federal administrative functions for Information Technology, Human Resources, Finance and Facilities Management. The network was not designed for educational use and does not interface with educational networks. This federal system is operated in different geographic locations by offices with technical ability and expertise in the management of federal employees accessing federal systems and operates in accordance with federal rules and regulations designed for federal agencies. Systems used by BIE administrative functions, such as FMIS, HR-Systems, PRISM and FBMS are only accessible on the BIE ENAN network that operates as secure federal system.

This BIE ENAN system is shared by 183 schools and thousands of BIE employees. It also lacks the bandwidth required which generates connectivity issues and limits use of current and emerging technologies.

Rapid change in technology use across virtually all sectors has also changed expectations for K- 16 education. Essential telephone connections previously installed in college dorm rooms are now antiquated and replaced by wireless access to technology. Students now call home, listen to music, watch a movie, conduct research and submit assignments using wireless devices and technology. It is not unusual today for students to enroll in online classes that use multiple methods of delivery of instruction. These online courses may use both face to face instruction, as well as online research, projects and related assignments or operate solely via online delivery.

The ongoing changes in education require an infrastructure to support technology, including access to high speed internet 24/7. The ability of students to engage in research or access to education software using technology from a BIE school or college that relies on the antiquated BIA ENAN network, are often blocked from completing assignments or generate high volumes of internet usage that create a drain on bandwidth that prevents employees from carrying out their work. Positive “work arounds,” have been used to provide temporary fixes but these do not always generate long term solutions.

The bifurcation of operations and users has been sufficient for schools to survive but has not allowed colleges and universities to thrive in their mission. For example, Haskell Indian Nations University was allowed to maintain a separate Haskell website and email system for students and faculty, which operated separately from the BIE network and reduces load on the network.

Additional technology solutions have also been pursued using grant funding from the Department of Education – Title III Technology Enhancement Funds to operate the university as an institution of higher education serving the needs of students first.

More recently, Haskell was approved to join the non-profit Kan-REN (Research and Education Network) consortium, which provides internet and network technologies for research, education and public service institutions in the State of Kansas. This consortium enables the University to improve technology readiness, to move all student traffic off ENAN and provides the University with significant capacity to allow students to access internet, including the capacity required to support online delivery of learning. While there are costs, the services provided through Kan- REN are a fraction of the overall investment that would otherwise be required by the BIE to provide these services.

Non-profit independent consortiums such as Kan-REN provide hosted management which releases participating schools (elementary, secondary, colleges and universities) relief from the cost of staffing and also provides direct connection to other academic institutions within the consortium. Comparable consortiums, such as the Sun Corridor network in Arizona, the Albuquerque GigaPop in New Mexico, the Great Plains Network in the Dakotas and the Northern Tier Network are comparable resources available to BIE-funded schools, as well as Tribally Controlled Colleges and Universities. These consortiums provide separate student networks, as well as access to fully segregated internet and network technologies for education institutions. This approach eliminates overload of BIE bandwidth and gateway bottlenecks.

Hardware investment in infrastructure, equipment and hardware to support technology readiness and costs to prepare campuses to adopt alternative methods are essential. Online learning requires appropriate investments in technology infrastructure, staffing, planning, and budgets to support a culture of learning that integrates technology as a central component of the infrastructure and required for the delivery of online education.

The transition to online learning in public school districts which have already invested in technology readiness appear successful in the transition required as the result of COVID-19.

Certainly, there is more to be learned as evidenced by large numbers of college students who indicate they will not return to campuses if online courses are the only venue. National reporting indicates anywhere from 20 – 30% of college students report levels of discontent with online delivery that fails to engage students in learning. Student objections to approaches that rely on the use of power point slides, limited interaction with faculty, Zoom meetings, and the lack of technical support for college students learning online programs as seniors, are among problems being identified. Students in highly specialized STEM disciplines also report dissatisfaction with the benefits of online learning, the quality of curriculum and preparation.

Standards BIE adopted the College- and Career-Readiness Standards (CCRS) for English Language Arts and Math, Next Generation Science Standards and English Language Development Standards for instructional purposes for School Year (SY) 2020-2021.

Below are links to BIE’s academic standards:

• BIE College and Career Ready Standards in Math, K-12 (Alternate aligned to CCRS): http://www.corestandards.org/wp-content/uploads/Math_Standards1.pdf

• BIE College and Career Ready Standards in English Language Arts, K-12 (Alternate aligned to CCRS): http://www.corestandards.org/wp-content/uploads/ELA_Standards1.pdf http://www.corestandards.org/wp-content/uploads/Math_Standards1.pdf http://www.corestandards.org/wp-content/uploads/Math_Standards1.pdf http://www.corestandards.org/wp-content/uploads/ELA_Standards1.pdf

• Next Generation Science Standards/BIE College and Career Ready Standards (Alternate aligned to CCRS): https://www.nextgenscience.org/search-standards

• English Language Proficiency Development Standards: https://wida.wisc.edu/teach/standards/eld/2020

5.0 Performance Objectives:

Objective 1: Implementation and support of a standardized Learning Management System and of online learning solutions for BIE schools, including the development and implementation of standardized curriculums for Grades K-12. The sub-objectives are:

1. Assist BIE with implementing the selected LMS, including training, helping teachers and administrators gain access, and setting up and administering their classrooms during school year 2021-2022.

2. Provide BIE students with resources and assistance accessing and using the selected

LMS.

3. Provide BIE staff and students with assistance and support in using online learning solutions to meet their educational needs.

4. Assist BIE staff in creating standardizing curriculums by providing leadership, expertise and advice in curriculum development, including creating and writing curriculums for approval. (See Objective 5)

Objective 2: Determination, provision, setup and support of standardized technology for BIE schools. Also responsible for identifying the technology hardware, software, services needed for STEP. Following a phased approach, sub-objectives are:

1. Full life-cycle implementation of an LMS

2. Evaluate and Modernize schools’ IT programs.

3. Standardize IT components.

4. Implement sustained technology refresh.

5. Implement Continuity of Operations.

6. Modernize IT support.

7. Obtain local, wide and ultra-wide broadband including satellite services.

Objective 3: Providing and maintaining standardized policies and procedures, as well as technology and hardware for schools. Also responsible for the ensuring handbooks, policies, procedures, guides and other applicable documents are developed and maintained.

The standardization of policies and procedures sub-objectives are:

1. Development of statutory and regulatory requirements.

2. Development of operational and sustainment documents.

3. Review, update and publish existing BIE-managed and Tribally controlled schools operating documents.

4. Support for the Community of Practice for STEP to ensure established standards are in place.

https://www.nextgenscience.org/search-standards https://wida.wisc.edu/teach/standards/eld/2020 https://wida.wisc.edu/teach/standards/eld/2020

5. Coordination with internal and external entities to publish policies and procedures.

Objective 4: Improve broadband accessibility and support for BIE students and staff;

1. Work with broadband providers and partners to improve broadband coverage and speed in key areas at schools and surrounding locations.

2. Maintain and improve current broadband access points.

3. If necessary, develop requirements for infrastructure projects, build coalitions with new partners, apply for grants, and expand coverage to reach more people.

Objective 5: Provide training, professional development and tools to support BIE staff, teachers and administrators, and responsible for the identification of educational requirements needed for all BIE-managed and Tribally controlled schools in support of STEP. The sub-objectives are:

1. Develop a standardized curriculum to align with the College and Career-Ready

Standards (CRSS) for Grades K-12.

2. Identify professional staff (teachers and administrators) technology skill requirements to implement an instructional approach for the use of the LMS.

3. Coordinate the development of a training program that provides for continuous improvement in instructional delivery for teachers and increased test scores for students in alignment with the course curriculum and the LMS capabilities.

4. Set forth the requirements for learning that will support a successful standard assessment.

5. Maintain student information in NASIS and ensure the LMS is updated based on NASIS data.

6. Define the standards for approving instruction software (including curriculum and supplementary software) for schools’ use.

Objective 6: Provide project management support, monitoring and evaluation for the BIE STEP program. Includes providing centralized internal and external communications regarding the initiatives of STEP, providing short- and long-term fiscal planning for the LMS and includes personnel and operating costs internal and external to the Department in support the LMS. Also includes the identification of both current state and the future state of the physical infrastructure at the BIE-managed and Tribally controlled schools as well as property management, inventory and tracking of these components. Sub-objectives include:

1. Developing a Communications STEP to support consistency in internal and external messages, requests, or reporting.

2. Review and approval of all formal communications for reporting and providing or requesting information with BIE schools and other bureaus and offices in the Department.

3. Building and maintaining the communications infrastructure with the other functional leads and the Program Manager to ensure all documentation is reviewed and approved.

4. Identification and coordination of implementation of coalitions and partnerships with School Principals, Parents and Students to provide continuous reporting of progress

Rahmer, Nicole D should this be 16? It is everywhere else...

Taylor, Patrick M that is a good clarification question. I don't believe they will be developing the university curriculum though.

and open lines of communication to ensure an inclusive STEP implementation and sustainability.

5. Coordination and development of all fiscal planning for the LMS.

6. Coordination and development of Greenbrook and like products to support fiscal management.

7. Management and sustainment of fiscal planning for the LMS.

8. Coordination and development of BIE-managed and Tribally controlled schools’ budgets in alignment with the LMS.

9. Support eCPIC, strategic plans and other fiscal deliverables.

10. School Floorplans and all associated schematics.

11. New and planned construction management.

12. Technology property and inventory management.

13. Coordination with BIA facilities to align facility construction, planning and design.

Coordination and guidance of broadband telecommunications implementation.

6.0 Deliverables / Schedule: Timely submission of deliverables is essential to successfully completing this requirement. All deliverables shall be prepared and submitted according to format, and content described in the SOO. All “hard copy” deliverables will be submitted on recycled-content paper and printed double-sided.

The contractor will provide the following deliverables in order to outline how to achieve the contract performance objectives, detailed in Section 5.0.

Deliverable 1 - Performance Work Statement (PWS)

The contract shall document all requirements in a PWS. The PWS at a minimum shall include:

• Introduction and Background Information

• Performance Objectives and Standards (refer to Section 5.0)

• Scope of Requirement

• Tasks (to be determined by vendor)

• Applicable Documents Required

• Deliverables & Timetable/Schedule/Milestones

The contractor shall provide the Government with a draft PWS as part of the proposal. Upon award, the Government and awardee will work together to finalize the PWS. The contractor shall provide a final PWS ten (10) work days after receipt of agreed-upon changes.

Deliverable 2 – Transition-In Plan

The contractor shall update the draft Transition-In Plan within 30 calendar days after Contract award and provide a final Transition-In Plan 45 calendar days after Contract award. The contractor shall ensure that there will be minimum service disruption to vital Government business and no service degradation during and after transition.

Taylor, Patrick M Where was “Greenbrook” pulled from?

Taylor, Patrick M was Greenbook from a document you created?

Taylor, Patrick M @Pearson, Jeffrey H would you have wording regarding amending the PWS with the vendor/gov at contract award?

Rahmer, Nicole D I changed up the wording - does that work?

Rahmer, Nicole D are we asking for this as part of the proposal too? Or should we have them develop this once the study info comes in? That way they can better address how to transition in. Some of this will have to be coordinated with NORC, I would think. I've only seen transition plans when a new contractor takes over the requirement from another contractor. Not saying we shouldn't have one, but that is my only familiarity with it.

Taylor, Patrick M do you have any insight on this question?

Rahmer, Nicole D Changes were made to make this a post award deliverable.

In the Transition-In Plan, the contractor shall identify how it will coordinate with the outgoing contractor and/or Government personnel to transfer knowledge regarding the following:

a. Project management processes.

b. POCs.

c. Location of technical and project management documentation.

d. Status of ongoing technical initiatives.

e. Appropriate contractor to contractor coordination to ensure a seamless transition.

f. Transition of Key Personnel.

g. Schedules and milestones.

h. Actions required of the Government.

The contractor shall also establish and maintain effective communication with the outgoing contractor/Government personnel for the period of the transition via weekly status meetings or as often as necessary to ensure a seamless transition-in.

Deliverable 3 – Transition-Out Plan

The contractor shall provide transition-out support when requested by the Government. The Transition-Out Plan shall facilitate the accomplishment of a seamless transition from the incumbent to incoming contractor/Government personnel at the expiration of the contract. The contractor shall provide a draft Transition-Out Plan within 30 days of The Government’s request.

The Government will work with the contractor to finalize the Transition-Out Plan within 15 days after receipt of Government comments.

In the Transition-Out Plan, the contractor shall identify how it will coordinate with the incoming contractor and/or Government personnel to transfer knowledge regarding the following:

a. Project management processes.

b. POCs.

c. Location of technical and project management documentation.

d. Status of ongoing technical initiatives and budget overview.

e. Appropriate contractor to contractor coordination to ensure a seamless transition.

f. Transition of Key Personnel.

g. Schedules and milestones.

h. Actions required of the Government

The contractor shall also establish and maintain effective communication with the incoming contractor/Government personnel for the period of the transition via weekly status meetings or as often as necessary to ensure a seamless transition-out.

Deliverable 4 – Financial and Budget Support

The contractor shall prepare engagement budgets based on parameters provided by BIE and support the annual program planning process by preparing engagement cost estimates within the planning timeline. The contractor shall track expenditures in accordance with guidance provided by BIE. Updates are to be provided to the Budget Office on a regular basis as major changes occur (five percent cost difference), or as new budgets are developed. Actual costs, as compared to estimated costs, should be completed within 21 days of event close-out. BIE will furnish the contractor with all required templates/formats for required budget data. Additionally, the contractor shall draft and complete contracts for temporary and adjunct support positions and coordinate event related contracts. Additional contractor will provide program budget forecasts and CLIN burn rates monthly or as requested by BIE. Duties may be assigned, as required, within the context of these duties to support surge requirements in headquarters or while traveling to support programs and engagements.

Deliverable # Deliverable Description Delivery Date(s) 1 PWS 10 days after Gov’t review 2 Transition – In Plan Draft - 30 days after award

Final - 45 days after award 3 Transition – Out Plan Draft – 30 days after request

Final – 15 days after Gov’t comments 4 Financial & Budget Support As required

7.0 Operating Constraints: See Appendix 2 – Baseline Compliance Contract Guidelines and

Appendix 3 – Standard Operating Procedures.