Bundling DF for VERTEX TO 5_Redacted.pdf

Memorandum for the Record

Subject: Determination to bundle requirements for Vertex Enterprise General Services TO5 in accordance with Federal Acquisition Regulation (FAR) 7.107-2(a)

A. Background

The NGA is a Department of War (DoW) combat support agency and a member of the National Intelligence Community (IC). NGA develops imagery and map-based intelligence solutions for

Today, NGA manages the National System for Geospatial intelligence (NSG) which provides the foundation for correlating U.S. intelligence activities to the location on the Earth and the Allied System for Geospatial-Intelligence (ASG) which provides an integrated and professional Allied GEOINT enterprise that meets nations individual and collective warfighting and intelligence needs. The vision of NGA is to put the power of GEOINT in the hands of the user, and its intent is to move away from providing products to provide information services.

-S) is responsible for managing and executing manages and executes enterprise staffing requirements from various NGA organizations. These requirements are consolidated based on a significant need for common skills across multiple entities to gain efficiencies and support evolving mission needs.

The Vertex program is the general services program within the PSE office from which the requirements outlined within this task order will be executed. The Vertex program consolidates enterprise-wide Business Staffing and Organizational Staffing Support in the following areas of expertise: Business Analysis, Communications, Office Management/Staff Officer, Data Analysis, Data Visualization, Protocol, Public Affairs, Policy Affairs, Strategic Initiative, Legislative Affairs, Disability Support, and GEOINT History Program Support. This consolidation of requirements from disparate organizations into one program provides the Agency with both efficiency and flexibility. The intent of the Vertex program is to utilize the

Plus (OASIS+), a Governmentwide Acquisition Contract (GWAC), to fulfill these requirements.

OCSS

organizations that are part of the Enterprise General Services program. OCSS is seeking approval to bundle requirements for general support and staff augmentation services.

Currently, these requirements are being serviced under the MOJAVE FA1 program. The program consists of nine (9) Indefinite-Delivery Indefinite-Quantity (IDIQ) contracts (executed in FY18), and about thirty-six (36) Task Orders (TO) totaling about $709,106,921.94 as of 19 February 2026. Initial plans had the program run for a base period of 12 months plus four one-year option years only. However, the program has been extended four more years creating numerous administrative costs. The Mojave contract, along with its extensions, will expire on July 31, 2026.

In 2023, NGA explored all available options for MOJAVE FA1 follow-on award and decided to --Vertex-OASIS Pilot TO1 (Large Business)

& TO2 (Small Business). This pilot determined that the GSA OASIS vehicle was a good fit for the remaining 17 Task Orders under MOJAVE FA1.

In 2025, the NGA underwent a significant reorganization to align its mission and operations by functional area. This restructuring rendered the previous acquisition paradigm, which was organized around specific offices, inefficient. Therefore, the acquisition strategy shifted to aligning services by functional area. This modern approach enabled refinement of the Vertex acquisition strategy to consists of 2 Woman Owned Small Business (WOSB) set-asides and 1 unrestricted OASIS+ Task Order. The decision for two WOSB set-asides was based on the uniqueness of requirements in comparison to the remaining Enterprise Business and Organizational staffing requirements applicable to multiple offices across the agency. Vertex Task Order 3 includes unique Securities and Installations Business and Organization requirements. Vertex Task Order 4 includes unique Human Development Business and Organizational requirements. Vertex Enterprise General Services TO5 is a bundling of Business and Organizational requirements applicable to multiple offices across the agency, which is designed to maximize the government's purchasing power, reduce administrative burdens, and eliminate duplicative contracts.

The estimated total value of the Vertex Enterprise General Services TO5 is about $ million;

which accounts for a base of one year and four option years, and services about 13 organizations within the entire NGA. The Vertex TO5 contract shall be awarded on a time and materials basis, with the potential to convert to a performance-based award system after careful evaluations of the missions. This task order meets the threshold of substantial bundling set forth in FAR 7.107-1(b)(3).

Market Research was conducted via two Requests for Information (RFIs) posted to SAM.gov on March 19, 2025 and GSA Oasis+ Enterprise Domain on December 29, 2025. The initial RFI posted on SAM.gov, solicited capability statements from interested parties, particularly companies falling within OASIS+ small business socio-economic groups. A total of 55 responses these requirements. The response to the RFI included 25 Small Disadvantaged Business, 16 Service-Disabled Veteran Owned Small Businesses, 16 Woman Owned Small Businesses, and 13 8(a) firms, among others with relevant technical and programmatic expertise to perform the work. These results were shared with the NGA Small Business office, who recommended WOSB as the preferred method to satisfy NGA small business goals.

The second RFI posted to GSA OASIS+ specifically sought information to identify contractor interest, experience, capability for meeting NGA's consolidated Business Staffing and Organizational Staffing Support requirements, and recommendations for fashioning the proposed acquisition. The responses to the RFI were analyzed to gather data on company size, socio-economic category, past performance, and technical capabilities relevant to the requirement's scope. A total of 20 sources responded to the RFI, with 14 identified as large businesses, and 6 as small businesses. As part of the analysis, each vendor submission was ranked into one of three categories (strong contender, contender, and not capable), based on their RFI responses on vendor capabilities and experience. Nine (9) respondents, which were all large businesses, Strong C expertise and relevant experience specific to NGA to perform the scope of work. Five (5) businesses, one of which was a small business, were identified as a ontender , meaning they possessed the unique strengths necessary to satisfy these requirements. The remaining 6 businesses were identified as Not C due to a lack of proven experience and significant capability gaps. Additional details can be found in the Vertex TO5 Market Research Report.

Based on this Market Research, NGA plans to use the GSA OASIS+ contract vehicle to compete and award TO3 and TO4 to WOSB and TO5 to the Unrestricted pool for the Enterprise General Services requirement. The requirement will be competed on the Oasis+ Enterprise domain, which is unrestricted (no set-aside possibilities). The award of this requirement will result in one task order to serve offices across the agency under this Enterprise program.

B. Discussion

FAR 7.107-2(a) provides the agency authority to determine that bundling is necessary and justified if the benefits of that approach exceed the benefits that would be derived from each of the alternative contracting approaches identified under 7.107-1(a)(2), including benefits that are quantifiable in dollar amounts as well as any other specifically identified benefits.

In accordance with FAR subpart 7.107-2(c)(2), benefits include cost savings, price reduction, or, regardless of whether quantifiable in dollar amounts (i) quality improvements that will save time or improve performance or efficiency; (ii) reduction in cycle times; (iii) better terms and conditions; or (iv) any other benefit Standardized terms and conditions for labor category fulfillment will improve quality and enhance agency satisfaction.

The bundling of these general support requirements in Task Order 5 is justified under FAR 7.107-3 and directly implements OMB Memorandum M-19-13, Category Management, which directs agencies to manage common spend as an enterprise to eliminate duplicative, 'Tier 0' contracting. By consolidating into a single Best-in-Class (BIC) solution via OASIS+, the Agency anticipates a measurably substantial benefit of $ (approx. 6.29%). This total benefit is comprised of:

$ in Direct Price Reductions: Achieved through volume-based discounting and 'Rate Rationalization.' Based on historical agency data and supplemental research from GSA and Bureau of Labor Statistics, market analysis confirms that Fully Burdened labor rates can include a 20%-40% vendor "wrap rate" dependent upon the complexity of scope and scale of procurement. Market Analysis also confirmed that strategies for large-scale federal procurements have achieved an average of 3% - 8% reduction in Fully Burdened Labor rates on the total value of procurement. By leveraging a $ M single-award structure, the Agency estimates a conservative 4.5% reduction in labor rates compared to historical fragmented pricing, as vendors benefit from reduced corporate overhead and consolidated program management. Rate rationalization eliminates the pricing inconsistencies that occur when the same or similar labor categories are procured separately at different rates. The consolidated volume enables the contractor to reduce corporate overhead allocation per labor hour, streamline program management costs across one contract and offers more competitive pricing based on economies of scale.

$ in Procurement Cost Avoidance: Consolidating source selections into one eliminates the need for multiple full procurement cycles. This avoids approximately 7,680 hours of evaluation panel labor and administrative processing, while accelerating the 'Speed to Mission' by six months.

$ in Government Oversight Efficiency: Substantial cost avoidance realized by leveraging a single award structure, which gains operational efficiency across contracting and program personnel. These savings are a direct result of streamlining funding actions, centralizing administrative control, and managing scope at an enterprise level. Specifically, the bundled Vertex TO5 will allow for the reduction of an estimated

1.5 Government FTE and 1 Contractor FTE in OCS, and 1 Government FTE in PSE from the current Mojave staffing levels.

This enterprise approach reduces unaligned spending and leverages a vetted, government-wide contract to resolve mission-critical manpower needs at an expedited pace while ensuring maximum value for the taxpayer.

In accordance with FAR subpart 7.107-1(b)(3), the Task Order 5 requirement meets the thresholds to be classified as substantial bundling. The anticipated cost savings meet the required threshold of five percent of the estimated contract or order value (including options) set forth in FAR 7.107-2(c)(3)(ii). Furthermore, the following are specific benefits anticipated to be derived from bundling:

i) Single point of accountability. Leveraging a single award structure eliminates the performance gaps and integration risks inherent in managing multiple contractors, ensuring seamless, uninterrupted support for critical mission objectives.

ii) A More Robust Network of Labor Categories: Bundling provides the Agency with access to a wide range of labor categories that can be deployed quickly instead of the lengthy contract modifications required under the current structure. The larger consolidated contract enables the contractor to maintain personnel across diverse skill sets that smaller contracts cannot economically support.

iii) Reduction in acquisition cycle times by soliciting one requirement containing all the tasks needed by the agency, instead of multiple task orders. This eliminates the need to conduct separate competition for new requirements that fall within the established scope.

In accordance with FAR 7.107-2(c)(6)(ii)-(vi) the agency has made the following considerations:

i) Addressing the requirement at FAR 7.107-2(c)(6)(ii), the substantial bundling is resulting in a barrier to participation by small business concerns as the prime contractor. The large enterprise requirement far exceeds the capability and capacity of any one small business prime and would potentially impose a significant risk to the government and the small business entity.

ii) Addressing the requirement at FAR 7.107-2(c)(6)(iii), NGA recommends small businesses participate through small business teaming arrangements; and/or serve as Prime contractor, potentially teaming with large and/or small business utilizing subcontracting agreements.

iii) Addressing the requirement at FAR 7.107-2(c)(iv), NGA will require small business participation. NGA has established a 30% small business subcontracting goal, which the awardee will have to report on at monthly Program Management Reviews.

Addressing the requirement at FAR 7.107-2(c)(6)(v), the benefits outlined in this

MFR show that bundling the requirements of TO5 will benefit the large capacity of tasks this potential contract will have and provide the least risk for potential issues to the Government. By leveraging a single Unrestricted set-aside solution through OASIS+, the agency achieves a significant and measurable benefit of approximately $ million, or 6.29%. This substantial savings is composed of several key efficiencies: $ million in direct price reductions from volume-based discounting, nearly $ in procurement cost avoidance by reducing source selections, and $ million in Government oversight and contract administration efficiencies gained from a single award structure.

v) Addressing the requirement at FAR 7.107-2(c)(6)(vi), NGA evaluated the below alternative strategies to reduce or minimize the scope of bundling, none of which were deemed a better alternative to the bundled Vertex TO5.

a. Status Quo (Internal IDIQs): Awarding Multiple Indefinite-Delivery Indefinite-

Quantity (IDIQ) contracts was deemed inefficient due to the high administrative costs and lack of alignment with the NGA's new functional structure.

b. Multiple "Best-in-Class" Orders: Awarding several smaller, functionally aligned contracts instead of a single enterprise-wide vehicle does not achieve the same level of volume-based savings and would retain a higher administrative burden compared to a single solution.

C. Determination

I hereby determine that bundling is necessary and justified, that the benefits of this approach substantially exceed the benefits that would be derived from each of the alternative contracting approaches considered. The benefits of substantial bundling include better risk allocation, cost savings due to economies of scale, expedited and consolidated procurement, earlier completion, technical innovation, reduced burden on agency staff, lowered