Department of the Air Force: Justification for Other Than Full and Open Competition

CUI

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I. Agency and Contracting Activity (RFO 6.104-1(a)(1)):

772nd Enterprise Sourcing Squadron JBSA-Kelly Annex, San Antonio, TX

II. Nature and/or description of the action being approved (RFO 6.104-1(a)(2)):

DAFL VCL wants to add content to the worth of content already on the platform that is in contract with DoW Libraries. This content cannot be purchased from another vendor and added to the existing content on the platform. DAFL VCL is constantly choosing new books to be added as they are released by the publishers to OverDrive. OverDrive offers downloadable e-books, e-audio books, and movies for checkout through their online system. These materials include current fiction, non-fiction, language learning materials, reference, and recreation materials. This requirement must provide a large and growing catalog of books and audio books in digital format to add to existing DAFL collections on the OverDrive platform.

III. Description of supplies/services required to meet agency needs (RFO 6.104-1(a)(3)):

The content for this requirement must be able to provide downloadable digital resources for collection materials such as e-books, e-audiobooks, e-music including new releases, current best sellers, and back catalog for the OverDrive Digital Platform. It needs to have a mobile application that allows users to read digital content. The contractor must provide staff trainings and marketing services. Must be able to provide statistics for each branch of service and other categories. Contractor must work with contract POC to establish authentication methods to provide optimal accessibility for all eligible patrons. The security between the website and the server must be Transport Layer Security (TLS) 1.3. They must be able to supply or allow retrieval of database usage statistics by Branch of Service (Air Force/Space Force, Army, Marine Corps, Navy, and Military OneSource/Other). They must have HTTP Strict Transport Security (HSTS) with long duration deployed on the servers to mitigate/prevent man-in-the-middle attacks.

Website certification should be RSA 2048-bits (SHA256withRSA). And the contractor must be able to provide a login system for customers that meet the needs of active duty users and their dependents, as well as retirees.

This requirement will include a 12-month base period plus two (2) 12-month option periods for DAFL Overdrive Subscription. Period of Performance (PoP):

Base Year: $ 30 September 2026 - 29 September 2027

Option Year 1: $ 30 September 2027 - 29 September 2028

Option Year 2: $ 30 September 2028 - 29 September 2029

The estimate was derived from the Independent Government Estimate provided from the customer.

IV. Statutory Authority Permitting Other Than Full and Open Competition (RFO 6.104-1(a)(4)):

10 U.S.C. 3204(a)(1), Only one responsible source and no other supplies or services will satisfy agency requirements.

RFO 12.201-2, Other procedures - 10 U.S.C. 3204(a)(1)

V. Rationale for Use of Authority (RFO 6.104-1(a)(5)):

The only contractor that can fulfill this requirement is:

OverDrive, Inc CAGE Code: 34RK4

UEI: S2Z7VJCVTKX9

1 OVERDRIVE WAY,

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CLEVELAND, OH 44125 USA

The Department of the Air Force Libraries (DAFL) has a statutory mandate under DoDI 1015.10, Military Morale, Welfare, and Recreation (MWR) Programs, to provide vital educational, technical, and recreational digital content to military personnel assigned to contingency operations, remote sites, and global military missions. Market research confirms that OverDrive, Inc.

is the sole proprietary developer, owner, and operator of the digital platform hosting the existing Department of War (DoW) shared digital library catalog. The current requirement is not for a new platform, but for the continuous acquisition and integration of newly released digital content (e-books, e-audiobooks, and movies) directly into this active, established ecosystem. Because publishers license digital rights uniquely to specific platform architectures, content purchased from alternative vendors cannot technically integrate, merge, or operate within the existing OverDrive platform.

To procure these materials from any source other than OverDrive would require a complete, highly wasteful duplication of the entire platform infrastructure, rendering the existing in active digital assets completely inaccessible. Therefore, OverDrive is the only source capable of satisfying this requirement without causing unacceptable mission degradation and substantial, non-recoverable duplication of costs.

In addition to proprietary host integration, any viable source must satisfy rigorous technical, security, and administrative specifications. OverDrive, Inc. uniquely meets and maintains the following mandatory DoW standards:

• Cybersecurity: Full deployment of Transport Layer Security (TLS) 1.3 and HTTP Strict Transport Security (HSTS) with long duration on all servers to mitigate Man-in-the-Middle (MitM) attacks, utilizing RSA 2048-bit (SHA256withRSA) website certification.

• Access & Authentication: A secure, flexible patron login system tailored for active duty personnel, dependents, and retirees, integrated with customized DoD authentication protocols.

• Sustainment Services: Turnkey delivery of staff training, marketing services, and native mobile application reading interfaces.

• Reporting: Granular database usage statistics segmented by Service Branch (Air Force, Space Force, Army, Marine Corps, Navy, and Military OneSource).

VI. Integrated Market Analysis and Efforts to Solicit Competition (RFO 6.104-1(a)(6), (8), and (10)):

A Sources Sought Notice (SSN) was posted on SAM.gov on 7 May 2026 for 5 days to seek out any qualified vendors that could meet this requirement. The SSN closed on 12 May 2026. Only one vendor (the incumbent) expressed interest and submitted a response. This vendor is Overdrive, Inc., CAGE code: 34RK4 and UEI: S2Z7VJCVTKX9. This vendor is considered Large Business.

We reviewed the vendor's capability statement, website, and past performance history to determine vendor's potential of fulfilling this requirement listed above. OverDrive, Inc, is the only vendor that can fulfill this requirement. See Section V, for reference.

VII. Determination of Fair and Reasonable Cost (RFO 6.104-1(a)(7)):

The Contracting Officer is responsible for evaluating, determining, and documenting the anticipated contract cost/price is fair and reasonable in accordance with RFO Subpart 15.4, Contract Pricing.

VIII. Any Other Facts Supporting the Justification (RFO 6.104-1(a)(9)):

Based on extensive market research, OverDrive, Inc, is the only known vendor capable of meeting this requirement.

IX. Actions to Overcome Barriers to Competition (RFO 6.104-1(a)(11):

For the current digital content subscription (FA805224P0020) - a Sources Sought Notice (SSN) was posted on SAM.gov, with

April 2026 CUI Page 4 of 4April 2026 CUI Page 4 of 4 only one capable offerer responding. Int he future, the Contracting Office will continue posting SSN's to survey the market to determine if there are any viable vendors capable of fulfilling this requirement. The result of the market research will dictate the acquisition strategy.

At this moment, OverDrive, Inc states: "OverDrive does not have any authorized resellers, distributors, or other third party partners that provide the product/service described in the Sources Sought document. The product/service is available directly from Overdrive."

AFSVC/VCL will continue to survey the market for vendors to obtain competition through publishers' advertisements, annual professional conferences, vendor demonstrations, customer suggestions and new publication reviews in conducting its survey.