CUI GFM IDIQ JA Final (JA25-075)_Redacted.pdf

Global Force Management (GFM) Indefinite Delivery / Indefinite Quantity (ID/IQ)

CUI

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Controlled By: Defense Information System Agency (DISA) Controlled By: JPES Program Management Office (PMO) (SD4) CUI Category: PROCURE Distribution/Dissemination Control: FED ONLY POC: Capt Robert Jones, robert.a.jones490.mil@mail.mil

JUSTIFICATION FOR OTHER THAN FULL AND

OPEN COMPETITION (OTFAOC)

Federal Acquisition Regulation (FAR) Part 6 Justification & Approval (J&A), Supporting Procurements under FAR Part 12, and FAR Part 15

Contract Number: HC104720D2045 Procurement Title: Global Force Management (GFM) Indefinite Delivery / Indefinite Quantity

(ID/IQ)

Estimated Value: (ceiling increase) + (ceiling) = Statutory and Regulatory Authority: Federal Acquisition Regulation (FAR) 6.302-1

Justification for OTFAOC Number: JA25-075

Upon the basis of the following justification, I, as Senior Procurement Executive (SPE), hereby approve the use of other than full and open competition of the proposed contractual action pursuant to the authority of FAR 6.302-1, only one responsible source and no other supplies or services will satisfy agency requirements.

1. REQUIRING AGENCY AND CONTRACTING ACTIVITY:

Requiring Agency:

Defense Information Systems Agency (DISA) / PEO-Services (SD422) 6910 Cooper Avenue Fort Meade, MD 20755

Contracting Activity:

DISA/Defense Information Technology Contracting Organization (DITCO) National Capital Region/PS62

P.O. Box 549 Fort Meade, MD 20755

2. NATURE/DESCRIPTION OF ACTION(S): This action modifies Global Force Management ID/IQ contract HC104720D2045, by increasing the ceiling from to

, the third non-competitive ceiling increase. This increase supports the addition of a second option period (30 August 2025 to 31 August 2026) to Task Order (TO) HC104724F0013, also known as GFM TO5, Joint Planning and Execution Services (JPES) modernization. This new option period will align TO5 with the completion of JPES Full Operational Capability (FOC) and Joint Operational Planning and Execution System (JOPES) sunset dates and will enable the incumbent contractor to complete mission-critical development efforts to modernize the existing JOPES, transforming it to JPES. The additional GFM TO5 option period will also provide adequate time for a subsequent competitive procurement for JPES and JCRM sustainment, with an estimated PoP from July 2026 to July 2031. Separately, Page 2 of 7 Pages the JPES Program Management Office (PMO) is in the planning phase for a requirement for JOPES and Joint Capabilities Requirements Manager (JCRM) sustainment contract, with a PoP from September 2025 to September 2026, which will sustain the existing JOPES capability through sunset.

Background: The GFM ID/IQ was competed as a full and open acquisition under solicitation HC104720R0009. On 24 September 2020, a single-award ID/IQ contract, HC104720D2045, was awarded to ERP International, Inc. (ERP) for a five-year ordering period, 24 September 2020 to 23 September 2025. In accordance with the ID/IQ terms and conditions, TOs may extend one year past the expiration of the basic contract, i.e., issued TOs must end by 23 September 2026.

The awarded contract ceiling was .

On 30 August 2024, a J&A to increase the original ceiling rate of the GFM ID/IQ by from to was approved by the Head of the Contracting Activity (HCA). This increase was required to ensure continued development and implementation of JPES until development was complete and the requirement shifted to sustainment and maintenance of JPES.

The total lifecycle values of previous and current TOs executed under the GFM ID/IQ leave only available under the current ID/IQ ceiling. Based on the current burn rate, this ceiling will only support the effort through early January 2026. See also Section 5(a).

3. DESCRIPTION OF SUPPLIES/SERVICES

Continuity of services is required for support of GFM, which provides critical software development and implementation of a modernized net-centric JPES to replace the existing

JOPES.

The DISA JPES PMO and Joint Planning and Execution Community are delivering the next generation of services that provide force planning, deployment planning and execution (force projection) capabilities to the warfighter. The JPES PMO currently manages the following legacy systems: JOPES and JCRM. These legacy systems architectures are aging and require increasingly expensive sustainment efforts, which has led to the requirement for modernization and the transition to a net-centric, service-oriented architecture. JOPES is the joint system used to monitor, plan, and execute mobilization, deployment, employment, and sustainment activities associated with joint operations and exercises, as well as identify force requirements in service of the GFM allocation process.

JOPES sustainment and maintenance services require specialized subject matter experts and technical knowledge of the JOPES software systems and configurations, as well as specialized knowledge of the replacement JPES software systems and configurations. To avoid a gap in mission-essential services and to ensure the successful sunset of JOPES, the JPES software development and implementation must continue without interruption. The additional option period will provide continued development and support through Initial Operating Capability (IOC), Phase II of Initial Operational Test & Evaluation (IOT&E), FOC, and JOPES Sunset.

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4. IDENTIFICATION OF STATUTORY AUTHORITY: Only one responsible source and no other supplies or services will satisfy agency requirements, 10 U.S.C. 2304(c)(l), FAR 6.302-1, and Defense Federal Acquisition Regulation Supplement 206.302-1.

5. DEMONSTRATION OF CONTRACTOR’S UNIQUE QUALIFICATIONS:

(a) Description of Events:

TOs 1 through 3 were successfully completed by ERP. As the period of performance for TO4 neared completion, the contracting office was notified by PEO Services that ERP had not successfully completed all the required deliverables. Completion of these deliverables was required prior to the continuation of tasks outlined within GFM TO5. To limit the cost risk to the Government, the TO5 contract type was revised from Cost-Plus-Fixed-Fee to Firm-Fixed Price.

An additional factor contributing to the need for the ceiling increase is the funding hiatus experienced by the program from 12 June 2024 through 2 October 2024. During this period, the contractor was under a directed Stop Work, requiring a complete restart of processes upon funding resumption. This disruption introduced inefficiencies, necessitating rework of tasks initiated prior to the funding gap and negatively impacting overall progress. Critically, this prolonged lack of funding significantly contributed to the program's schedule delay, ultimately requiring a re-baselining of key milestones and a commensurate increase in the overall contract ceiling to accommodate the extended timeframe and associated re-work.

Further, a GFM TO6 was required to establish and maintain JPES within a Microsoft Azure IL6 cloud environment. This TO was awarded utilizing Operations & Maintenance funding to support partial sustainment during a period of time when the PMO did not have Research Development Test & Engineering funding available to support further development. This unforeseen requirement added against the initial ceiling. Also, re-baselining of JPES milestones required an extension of the TO5 option period. This was an extension under the initial J&A to increase the ID/IQ ceiling signed in August 2024, incurring an additional cost of against the initial ceiling.

The services under the GFM contract require specialized subject matter experts and technical knowledge of the JOPES software systems and configurations. The JOPES system architecture dates back 35 years and is comprised of end-of-life (EOL) hardware and software components and an obsolete programming language for the software code base, Tool Command Language / Tool Kit, that are no longer widely available in Industry. Additionally, the systems are integrated with over 20 external Department of Defense Command and Control and logistics capabilities through tightly coupled interface connections and have critical external dependencies for many common and core functions. JPES software development and implementation for replacement of JOPES must be uninterrupted to avoid a gap in mission-essential services. Continuity of services is required for the support of GFM which provides critical software development and implementation of a modernized net-centric JPES to replace the existing JOPES.

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Given ERP's unique position as the JPES developer and its extensive system knowledge, a sole-source continuation of services with ERP is deemed the most expedient and cost-effective approach to meet critical mission requirements and ensure program continuity.

(4) Impact: Not continuing with the current contractor would cause a significant delay in making JPES operational and sunsetting JOPES. This would severely hinder the JOPES to JPES transition, potentially causing a delay of 12 months or more. This delay carries significant risk as JOPES faces mounting sustainment challenges due to factors like unsupported hardware, end-of-life software, and increasing cybersecurity vulnerabilities. Below is a breakdown of the potential impacts:

• Operational Degradation: A delayed transition risks rendering JOPES unsupportable, jeopardizing the functionality of over 20 interconnected operational systems relied upon by CCMDs. This degradation would severely hinder their ability to effectively plan and execute critical force movement operations, impacting global readiness and mission success.

• Cybersecurity Vulnerabilities: Continuing to rely on the increasingly vulnerable JOPES system heightens the risk of cyberattacks and data breaches. This vulnerability exposes sensitive operational data and undermines the integrity of critical defense infrastructure.

• Cost Escalation: The delay caused by onboarding a new contractor would likely lead to cost overruns due to extended timelines, knowledge transfer efforts, and potential rework to align with a new vendor's approach.

Therefore, maintaining continuity with the incumbent contractor is crucial to mitigating these risks, ensuring a timely and cost-effective transition to JPES, and safeguarding the operational capabilities of CCMDs.

6. CONTRACT OPPORTUNITIES ANNOUNCEMENT/POTENTIAL SOURCES:

This modification is an increase of the ceiling amount on the original competitively awarded ID/IQ contract. It will deploy JPES to FOC in the production environment and begin sustainment. In accordance with DISA Acquisition Regulation Supplement 5806.302-1(S-90), the HCA has waived the requirement to post a request for information or a sources sought notice, as prescribed in Defense Federal Acquisition Regulation Supplement Procedures, Guidance, and Information 206.302-1(d). The follow-on effort will seek other viable industry sources to pursue a competitive solution.

7. DETERMINATION OF FAIR AND REASONABLE COST:

The Contracting Officer will evaluate the contractor’s price/cost proposal using one of more of the methods described in FAR 15.404 to determine the price/cost as fair and reasonable.

8. MARKET RESEARCH: This is an increase to the ceiling of the existing contract to ensure continued support until JPES is operational and JOPES is sunset. Market research conducted at award identified that there is a competitive marketplace for the services provided under the GFM ID/IQ contract; however, for the reasons cited within Section 5

Page 6 of 7 Pages of this J&A, ERP is the only source capable of meeting agency’s requirements taking into consideration cost, schedule, and performance requirements for the mission critical JPES warfighting capability.

9. ANY OTHER SUPPORTING FACTS: None

10. LISTING OF INTERESTED SOURCES: As indicated in Section 5, ERP International, Inc. was awarded the single-award ID/IQ under full and open competition. No market research was conducted for this action.

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

THAT LED TO THE EXCEPTION TO FULL AND OPEN COMPETITION:

(a) Procurement History. The current contract, HC104720D2045, was solicited via full and open competition and awarded to ERP International, Inc.

(b) The future sustainment of JPES will be fulfilled via full and open competition or the utilization of a DISA premier contract seeking other potentially viable contractors.

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TECHNICAL/REQUIREMENTS CERTIFICATION: I certify that the supporting data under my cognizance which are included in the J&A are accurate and complete to the best of my knowledge and belief.

NAME: SIGNATURE/DATE: See separate signature page

TITLE/ORGANIZATION: GFM Assistant Program Manager, DISA SD42

PHONE:

CONTRACTING OFFICER CERTIFICATION: I certify that this justification is accurate and complete to the best of my knowledge and belief.

NAME: Sebrina A. Lewis SIGNATURE/DATE: See separate signature page

TITLE/ORGANIZATION: Contracting Officer, DISA/DITCO, PS62

PHONE: 667-891-4431

SENIOR PROCUREMENT EXECUTIVE APPROVAL: I have reviewed this justification and find it to be accurate and complete to the best of my knowledge and belief. This review serves as approval.

NAME: SIGNATURE/DATE: See separate signature page

TITLE/ORGANIZATION: Senior Procurement Executive

PHONE:

All questions regarding this justification are to be referred to Sebrina A. Lewis, 667-891- 4461, sebrina.a.lewis.civ@mail.mil.