B02 Attachment D USDA EBS Transition Assessment Report.docx

U.S. Department of Agriculture (USDA) Office of the Chief Information Office

Transition Assessment for Enterprise Business Solution

Table of Contents

Executive Summary CONTRACTOR was contracted to assess the impact, cost, and level of effort for the United States Department of Agriculture (USDA) to migrate off its existing Enterprise Business Solution (EBS) (Microsoft products) to another Federal Risk and Authorization Management Program (FedRAMP) qualified solution. CONTRACTOR utilized a structured and rigorous approach to collect and analyze data from USDA Mission Areas (MA) and Service Centers and produce an assessment report.

The EBS Transition Assessment findings are:

Impact to Continuity of Operations Given the volume of users at USDA, the complexity and age of systems supported by Microsoft (MS) products, and the extent to which MS products are integrated into business operations, a detailed analysis is needed to fully understand the impacts on each MA. A detailed analysis is recommended as part of the initial phase of a migration effort.

EBS Migration Timeframe The migration timeframe depends on migration approach. For assessment purposes we are assuming a three-phase approach that minimizes risk and impact to business operations.

Phase 0: EBS Migration Planning & Analysis Estimated Timeframe: 1.5 years (1 year analysis and .5 years planning) Phase I: O365 Migration Estimated Timeframe: 1 to 2 years (based on migrations of similar size) Phase II: Redevelopment Estimated Timeframe: Based on the level of effort associated with scope of work defined in Phase II the estimated timeframe is 3 to 5 years Total Estimated Timeframe: 5.5 to 8.5 Years Total EBS Migration Cost: Total migration costs include the cost of Phase 0 through Phase II

BEST CASE COST: $251,010,538

WORST CASE COST: $1,026,106,616

MOST LIKELY COST: $545,267,083

TRIANGLE ESTIMATE: $611,794,745

PERT ESTIMATE: $578,530,924

Probabilities Table

Resource Level of Effort The EBS migration LOE estimates in this assessment include: O365 data migrations, training on a comparable EBS, re-development of functionality built using MS products, and LOE associated with updates to applications that depend on MS products.

BEST CASE LOE: 1,346,677

WORST CASE LOE: 4,897,467

MOST LIKELY LOE: 2,826,513

TRIANGLE ESTIMATE: 3,023,552

PERT ESTIMATE: 2,925,032

Probabilities Table

2.0 Transition Assessment Approach

CONTRACTOR was contracted to assess the impact, cost, and level of effort for the United States Department of Agriculture (USDA) to migrate off its existing Enterprise Business Solution (EBS) (Microsoft products) to another Federal Risk and Authorization Management Program (FedRAMP) qualified solution. CONTRACTOR used the following approach to collect and analyze relevant data collected from Mission Areas (MA) and Service Centers and produce an assessment report.

Approach:

Developed and distributed a questionnaire to EBS assessment stakeholders to collect information on what Microsoft (MS) products agencies are using, any custom applications or functions developed using MS products, and any applications or functions that have a dependency on MS products. The questionnaire also asked for input on the estimated cost and Level of Effort (LOE) to replace any custom functions developed using MS products.

Conducted Question and Answer (Q&A) sessions with the EBS assessment stakeholders to address questions associated with the questionnaire.

Collected and analyzed responses from the EBS assessment stakeholders.

Developed a methodology to estimate the cost, LOE and timeframe of an EBS migration based on the information received from the stakeholder responses.

Developed and distributed a follow-up questionnaire to obtain the additional information needed to complete the assessment.

Developed an Excel workbook that calculates the hours and cost for EBS data migrations, training on the new EBS and redevelopment of functionality built on MS products or depending on MS products.

Developed an assessment report that:

Illustrates the impact to continuity of operations during transition.

Estimates the total cost to move the enterprise from the existing vendor to the proposed new alternate solution.

Estimates the timeframe required to perform migration to proposed alternate solution.

Estimates the resource requirement and level of effort required to complete migration from existing solution to proposed alternate.

3.0 Industry Sources Used for The Assessment

The following are the sources for the hourly rates, EBS training costs and hour estimates used in this assessment:

Hourly Rates: The hourly rates used in this assessment are from the vendor rates on the 8a Stars III GWAC. The specific labor categories and rates used are:

Hourly Rates

Note: The rates in the table are an average of all rates (by labor category) provided by the 8a Stars III GWAC vendors. The following link provides access to the 8a Stars III vendor rates and the tool used to calculate the average rates of all vendors (https://8astars.fas.gsa.gov/GWACPriceTool/priceFilter/create).

Training Costs: The training cost estimates assume the USDA will migrate to Google products. We assume other EBS product training will be similarly priced. The source of the training costs per user is ONLC Training Centers (Google Workspace Training Classes) (https://www.onlc.com/google-workspace-training-classes.htm#classes).

Hours (redevelopment and data migration): The sources for hour estimates in this assessment are CONTRACTOR and CONTRACTOR partner subject matter experts.

Operational/Business Process Impacts:

Specific operations and business process impacts during migration to a comparable EBS at USDA will depend on factors such as implementation approach and migration planning. Given the volume of users at USDA, the complexity and age of systems supported by MS products, and the extent to which MS products are integrated into business operations, a detailed analysis is needed to fully understand the impacts on each MA. For assessment purposes we are assuming MAs will migrate to the alternative EBS in phases. The following are factors to consider that will affect operational and business impacts during the migration period:

USDA’s user volume of over 100,000 personnel consisting of federal, contractor, and union personnel covering numerous geographical locations globally.

Helpdesk support will need to be trained and prepared to support users on both EBS platforms during the migration period.

Data migrations will need to be done in phases and executed during nights and weekends (to the extent possible) to minimize down-time and business disruptions during work hours. Contractor support will need to be available to support these activities.

The business will need to be well trained and involved during testing to minimize productivity loss after migration.

A capability to continue using the existing EBS for a limited time after migration to the new EBS should be considered in case of significant “go-live” issues.

Contracting Impacts:

The following items are common factors in EBS migrations that have an impact on contracting.

Many EBS product owners sell their software licenses and provide software support but partner with other companies who perform the migrations. Contracting agreements with the EBS product owner and migration partner may be needed.

Parallel licensing agreements (MS and the alternative solution) are typically required for the duration of the migration. Many EBS software vendors will discount (or eliminate) licensing cost during migration.

The scope of EBS migration contracts is typically limited to Microsoft Office 365 (Also referred to as O365) and SharePoint migration and training. Additional contracts are typically required to secure support for other migration needs.

Re-implementation of functionality built using MS products are typically contracted to various Development, Modernization, and Enhancement (DM&E) and Operations and Maintenance (O&M) service providers. Contracting support will be required to support these requirements.

Updates to non-MS applications are typically contracted to various DM&E and O&M services providers. Contracting support will be required to support these requirements.

4.2 Migration Timeframe

The migration timeframe depends on migration approach. For assessment purposes we are assuming a Three-Phase approach that minimizes risk and impact to business operations.

Phase 0: EBS Migration Analysis Given the size of USDA and the extent to which MS products are integrated into business operations, a detailed planning and analysis phase is recommended before initiating an EBS migration. As input to EBS migration planning CONTRACTOR recommends a detailed analysis of current MS product usage and planned activities that could be impacted by an EBS migration be performed. CONTRACTOR recommends this analysis be conducted for all 29 USDA agencies and service areas. Phase 0 would include the following activities:

Assess how the USDA user community currently uses the various MS products, so business needs are clearly understood and translated into well-defined requirements for the new EBS.

Assess the operational impacts of a phased migration where some Mission Areas are operating on MS products and others have migrated to a new EBS.

Assess ongoing and planned O&M and DM&E activities that have dependencies on MS products to determine how the migration will affect these activities.

Assess ongoing and planned business initiatives that have direct dependencies on MS product usage, such as significant organizational changes that affect business processes, and user roles and responsibilities.

Conduct a detailed assessment of the size and complexity of functionality built using MS products to better understand the LOE and cost associated with replacing the functionality using comparable tools.

Plan the EBS migration based on input from the analysis.

Estimated Timeframe: 1.5 years (1 year analysis and .5 years planning) Phase I: O365 Migration O365 Migration includes migration of all user accounts and data associated with Outlook, Teams, OneDrive, Word, Excel, PowerPoint, and SharePoint, and includes all training associated with an EBS with comparable functionality. Phase I would include the following activities:

Select one MA as a pilot.

Conduct helpdesk and end-user training.

Migrate one MA as a pilot.

Assess the migration and incorporate lessons learned.

Develop migration plans for the remaining MAs.

Complete remaining MA migrations.

Estimated Timeframe: 1 to 2 years (based on migrations of similar size) Phase II: Redevelopment Phase II includes the redevelopment of functionality developed using MS development tools, and the updating of non-MS applications depending on MS products to work with a comparable EBS.

Assumptions:

Phase II starts after phase I is complete.

Phase II includes the redevelopment of:

Websites developed using SharePoint.

Applications developed using MS tools such as Power Apps, Power Automate, Power BI.

Applications developed using Visual Studio.

Applications developed using .Net.

Phase II also includes updates to non-MS applications that depend on the MS operating system, MS databases and /or active directory> Estimated Timeframe: Based on the level of effort associated with scope of work defined in Phase II the estimated timeframe is 3 to 5 years Total Estimated Timeframe: 5.5 to 8.5 Years

4.3 Cost of Migration to Alternative Solution

The EBS migration costs included in this assessment are: O365 data migration costs, O365 training costs, re-development of functionality built using MS products costs, and costs associated with updates to applications that depend on MS products.

EBS Migration Analysis Cost Estimate: The following is a cost estimate for this type of analysis. The estimate assumes a 1-year POP, 3 teams to perform the analysis, and a 1-month assessment for each agency or service center: The labor categories and rates are from the 8a Stars III GWAC and are the average of all vendors for each labor category.

O365 Data Migration Cost Estimates - Includes all user accounts and data associated with Outlook, Teams, OneDrive, Word, Excel, PowerPoint, and SharePoint.

BEST CASE COST: $47,663,600

WORST CASE COST: $65,537,450

MOST LIKELY COST: $59,579,500

TRIANGLE ESTIMATE: $57,593,516

PERT ESTIMATE: $58,586,508

Probabilities Table

O365 Training Cost Estimates -

BEST CASE COST: $118,540,459

WORST CASE COST: $245,841,750

MOST LIKELY COST: $182,361,330

TRIANGLE ESTIMATE: $182,247,845

PERT ESTIMATE: $182,304,587

Probabilities Table

Redevelopment Cost Estimates - Includes redevelopment of functionality using MS development tools, websites using SharePoint, updates to non-MS functionality that depend on MS products, and redevelopment of .Net applications.

BEST CASE COST: $81,962,690

WORST CASE COST: $724,883,627

MOST LIKELY COST: $300,482,464

TRIANGLE ESTIMATE: $369,109,593

PERT ESTIMATE: $334,796,028

Probabilities Table

Total EBS Migration Cost Estimates – Note: $2,843,789.60 was added to all cost estimates to account for Phase 0 costs.

BEST CASE COST: $251,010,538

WORST CASE COST: $1,026,106,616

MOST LIKELY COST: $545,267,083

TRIANGLE ESTIMATE: $611,794,745

PERT ESTIMATE: $578,530,914

Probabilities Table

4.4 Resource Level of Effort

The EBS migration LOE estimates in this assessment include: O365 data migrations, training on a comparable EBS, re-development of functionality built using MS products, and LOE associated with updates to applications that depend on MS products.

BEST CASE LOE: 1,346,677

WORST CASE LOE: 4,897,467

MOST LIKELY LOE: 2,826,513

TRIANGLE ESTIMATE: 3,023,552

PERT ESTIMATE: 2,925,032

Probabilities Table