Consolidation DF Final_Redacted.pdf

Reference Number: 622572376 Title of Procurement: Consolidation Determination & Finding for JPES & JCRM Software Sustainment Services

Controlled By: DISA Controlled By: PSD/PS62 CUI Category: PROCURE Distribution/Dissemination Control: FED ONLY POC: Sebrina.A.Lewis.civ@mail.mil

CUI

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DETERMINATION AND FINDINGS CONSOLIDATION OF CONTRACT

REQUIREMENTS

Joint Planning and Execution Services (JPES) & Joint Capabilities Requirements Manager (JCRM) Software Sustainment Services

I have reviewed the requirement for JPES & JCRM Software Sustainment Services that Portfolio Acquisition Executive (PAE) Services / Command & Control (SD4) proposes to solicit as a consolidation procurement action under 15 U.S.C. 657q. My review resulted in the following findings:

FINDINGS

1. SD4 plans to solicit offers for sustainment, maintenance, project management, and lab support services for the JPES and JCRM systems and has conducted market research that demonstrates that consolidation of this procurement is both necessary and justified.

2. Description of the Procurement Action: This procurement is intended to provide sustainment support for JPES and JCRM and optimize efficiencies of the mission by consolidating three contracts/orders into a singular task order. JPES, which has been recently modernized and will reach Full Operational Capability (FOC) in second quarter of the Calendar Year 2026, replaces the Joint Operation Planning and Execution System (JOPES), which is used to monitor, plan, and execute mobilization, deployment, employment, and sustainment activities associated with joint operations and exercises. JCRM is a tool that takes operational plans entered into JOPES/JPES and creates orders for those plans, which in turn are sent to the Secretary of the Department of Defense (DoD) for authorization. The JPES & JCRM Software Sustainment Services procurement is a new requirement; however, portions of this new requirement are currently being executed under the following:

Contract #1: Task Order Number: 47QTCA15D001Q / HC104725F4032 Contract Vehicle: General Services Administration (GSA) Multiple Award Schedule (MAS) Total Task Order Value: $10,821,092.30 Incumbent: InterImage, Inc. – Woman Owned Small Business (WOSB) Method of Previous Acquisition: Sole Source Period of Performance: 07 September 2025 – 30 September 2026 (including options)

47QTCA15D001Q / HC104725F4032 was awarded on a sole source basis to InterImage, Inc.

under the authority of 10 U.S.C. 3204(a) and FAR 8.405-6(a)(1)(i)(B). This effort provides JOPES and JCRM software sustainment, maintenance, and lab support. Moving forward under this consolidated procurement, only the JCRM software sustainment, maintenance, and lab support services tasks will be required as JOPES will be sunset and replaced with JPES before the start of this new, consolidated task order in December 2026.

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Contract #2: Contract Number: HC104725C4001 Contract Vehicle: None Total Contract Value: $3,168,826.69 Incumbent: Trillion Technology Solutions, Inc. – 8(a) Small Disadvantaged Business (SDB) Method of Previous Acquisition: 8(a) Direct Award Period of Performance: 22 January 2025 – 21 August 2026 (including options)

HC104724C4001 was awarded as an 8(a) direct award to Trillion Technology Solutions, Inc.

This contract provides contract management, systems administration, and configuration management support for JPES within the DISA laboratory environments. There is an enduring need for these services to continue under this new, consolidated task order.

Contract #3: Contract Number: HC104720D2045 Contract Vehicle: None Total Contract Ceiling: $85,000,000.00 Incumbent: Enterprise Resource Planning, International – Large Business Method of Previous Acquisition: Full and Open Competition Period of Performance: 24 September 2020 – 23 September 2025 (including options)

HC104720D2045 is a single-award Indefinite Delivery / Indefinite Quantity (ID/IQ) that was awarded utilizing full and open competition to ERP International, Inc. This contract provides development and sustainment support for JPES, the modernization effort for JOPES, as well as modernization and integration support for JCRM. There is one active task order under this ID/IQ, HC104724F0013. The majority of development services included in this ID/IQ and task order will not be required under the new, consolidated task order, as it is anticipated that JPES will reach FOC prior to the final task order’s expiration on 31 August 2026. Only JPES sustainment tasks will be required.

Due to the operational, technical, and schedule risk associated with awarding a new sustainment contract/order concurrent with the JPES achieving FOC and transitioning from development to sustainment, the Government plans to exercise the six-month extension in accordance with FAR 52.217-8, Option to Extend Services for contract HC104725C4001 and task order HC104725F4032.

Exercising FAR 52.217-8 for HC104725C4001 will extend performance through 21 February 2027, providing continuity of critical system support during a high-risk transition period. Additionally, the Government will partially exercise the FAR 52.217-8 extension for HC104725F4032 through 21 February 2027 to maintain alignment across interdependent contracts/orders supporting the JPES ecosystem.

This approach mitigates the risk of service disruption, knowledge loss, and degraded system performance during a critical lifecycle transition. JPES is a mission-essential system supporting Combatant Commands and national-level planning and execution activities; any lapse in contractor support during the FOC transition could adversely impact operational readiness, system stability, cybersecurity posture, and user confidence.

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This consolidation also enables the strategic alignment of technical resources across JPES and JCRM, improving workforce utilization, eliminating redundant efforts, and enhancing operational efficiency. Collectively, these efficiencies reduce overall costs, improve responsiveness, and optimize sustainment support for warfighter planning and execution, while preserving flexibility to address emerging mission requirements.

Benefit 2: Enhanced Efficiency, Quality, and Continuity of JPES/JCRM Sustainment Consolidating these related JPES/JCRM software sustainment requirements under a single task order significantly improves efficiency and is necessary to ensure greater continuity of critical services. Currently, portions of this work are performed under three separate contracts/orders (47QTCA15D001Q / HC104725F4032, HC104725C4001, and HC104720D2045). Consolidating them under a single contractor creates substantial advantages across the entire effort. This consolidation minimizes service disruptions across the JPES and JCRM platforms by enabling the sharing of resources, expertise, standardized processes, and proven solutions across these systems, creating a more robust and resilient operational environment. Additionally, a single contractor can better ensure data consistency and accuracy across both the systems, as both utilize the same data set. A single contractor management approach also reduces the number of deliverables required and overseen by the Government, eliminating redundancies and promoting consistent work products, which significantly reduces the administrative burden on Government stakeholders, freeing up resources for other critical tasks. The Government realizes cost savings by paying only once for common information technology service deliverables related to JPES/JCRM, resulting in an estimated cost avoidance of approximately per year. Furthermore, consolidating management enables more streamlined and uniform support, reducing overhead costs associated with managing multiple similar contracts/orders, providing both the Government and the contractor with greater flexibility to optimize the labor/skill mix. This consolidated approach contributes to the estimated annual savings cited above.

Benefit 3: Standardized Terms, Conditions, and Requirements for Enhanced Contract Management of JPES/JCRM Sustainment Soliciting a single task order eliminates potential inconsistencies and conflicts in contract terms and conditions across similar work related to JPES and JCRM. This standardization ensures consistent minimum qualifications for each labor category supporting JPES/JCRM and enables a unified contractor management approach. The result is more stable and predictable support for meeting task order requirements, building directly upon the efficiency gains and streamlined management detailed in Benefit 2, ultimately leading to more effective JPES/JCRM sustainment.

Benefit 4: Proactive Problem Identification and Resolution for JPES/JCRM Operations A single contractor with a holistic view of the JPES/JCRM environment is better positioned to identify potential problems before they impact system performance. The contractor can see patterns and interdependencies that would otherwise be veiled to separate contractors, leading to proactive measures that prevent disruptions and enhance overall system reliability.

This is necessary to reduce downtime and improve the quality of the entire planning and execution process.

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As a result, Combatant Commands and operational planners benefit from timely, reliable access to mission-critical planning and execution data, particularly during high-tempo or crisis response operations. This directly supports warfighter readiness and informed decision-making across the JPES/JCRM enterprise.

Additionally, a single contractor is better positioned to resolve cybersecurity risks as both systems use many of the same mitigations and technical controls. Furthermore, with a consolidated task order, it becomes easier to track key performance indicators and monitor system performance across the entire JPES/JCRM ecosystem. This provides better visibility in areas that need improvement and allows the contractor to proactively address potential problems. The consolidated data also allows for more accurate trend analysis and forecasting, leading to better resource allocation and improved system performance over time.

6. The following acquisition alternatives involving lesser degrees of consolidation were also considered.

a. Alternative 1: Status Quo, Multiple Stand-Alone “C” or “F” Contracts/Orders

Rationale for Rejection: Multiple contracts/orders necessitate additional program management, financial, and contracting resources to support the solicitation, evaluation, and award; and contract administration (e.g., surveillance, reviews, and documentation). Additionally, managing multiple separate contracts/orders could negatively impact the mission. Specifically, a multi-contract approach would increase the time required to identify, prevent, mitigate, and remediate system and operational issues, as responsibilities would be distributed across multiple vendors with differing processes, priorities, and performance standards. This fragmentation increases the risk of delayed response to system degradations, cybersecurity incidents, or mission-critical outages, directly affecting the reliability and availability of JPES and JCRM in support of Combatant Command planning and execution activities. The status quo will result in a continued level of inconsistent quality, duplicative efforts resulting in increased costs, redundancies, and inefficiencies. Using multiple contracts/orders would result in a larger administrative burden, and fragmented contracts with various levels of quality for interrelated efforts. Furthermore, three contracts/orders would also limit DISA’s flexibility and capacity to meet customer needs, while reducing DISA’s ability to respond to emerging requirements. Therefore, this alternative was not pursued.

b. Alternative 2: Award one contract/order for JPES Sustainment and one contract/order JCRM Sustainment services separately.

Rationale for Rejection: Awarding JPES and JCRM sustainment as two new contracts/orders would not fully realize the synergy and efficiency gains from having a single point of responsibility for the entire JPES/JCRM sustainment ecosystem.

Each contract/order would require separate management, oversight, and potentially redundant administrative processes. Additionally, this approach would necessitate that the Government serve as the integrator between multiple contractors to ensure

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JPES and JCRM share the same data, run on Virtual Machines inside the same server, and utilize the same cloud environment. The systems are integrated, and a single contractor can best manage the integration.

c. Alternative 3: Use Government Personnel to Perform Some or All of the Technical / Support Services.

Rationale for Rejection: Although this approach could eliminate the need to procure some or all of the services, this alternative was not selected because there are insufficient resources for the Government to support the depth and scope of this effort. DISA does not possess, and is unlikely to obtain, the number of billets necessary to provide the services organically. Additionally, DISA does not have personnel with the specialized knowledge required under this effort, which would lead to an unacceptable quality of service. Therefore, this alternative was not pursued.

7. This procurement does not involve bundling as defined in FAR 2.101, which defines bundling as, “a subset of consolidation that combines two or more requirements for supplies or services, previously provided or performed under separate smaller contracts into a solicitation for a single contract, a multiple-award contract, or a task or delivery order that is likely to be unsuitable for award to a Small Business concern.” The three current requirements, when combined, will still be suitable for award to a Small Business. Thus, a bundling analysis was not conducted pursuant to FAR 7.107 (Class Deviation 2026-O0020).

8. Impact on Small Business Concerns: While the consolidated procurement will result in one less small business prime contract compared to the previous fragmented approach, it is important to consider the overall impact on Small Business participation. Under the previous structure, two of the three contracts/orders were awarded to small businesses, and one was awarded to a large business. By consolidating the requirement and setting it aside for small businesses, the Government is creating a single, significant opportunity for a small business to gain broader experience and capabilities in JPES/JCRM sustainment. This approach ensures that all aspects of the consolidated requirement, including those previously managed by a large business, will now be executed by a small business, potentially leading to increased revenue and growth for the selected firm. This broader scope of work and increased responsibility for the prime small business will enhance its competitiveness and allow it to further develop its expertise in supporting complex DoD systems.

9. Steps Taken to Include Small Business Concerns/Maximize Small Business Participation:

Based upon the acquisition history and market research conducted, it has been determined that the consolidated follow-on procurement will be a small business set-aside utilizing the GSA MAS vehicle. This determination has been coordinated with the agency's Office of Small Business Programs and the DISA Acquisition Regulation Supplement 5807.107.

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DETERMINATION

Upon the basis of the findings above, I hereby determine, pursuant to the authority of 15 U.S.C.

657q and FAR 7.107-2(a) (Class Deviation 2026-O0020), that the proposed consolidation of the requirements is necessary and justified in that the benefits of the consolidation acquisition strategy substantially exceed the benefits of each of the other possible contracting approaches discussed in paragraph 5 above.