DNSMC20827_EMERALDS_JA(Part6)_091212_PACA_aprvd.docx

Purchase Request Number: DNSMC20827 Contract Number: TBD Task/Delivery Order Number: N/A Procurement Title: EMERALDS Contracting Office: PLD61 Estimated Value: $7.0M Statutory Authority: 10 U.S.C. 2304(d)(1)(B), FAR 6.302-1(a)(2)(iii)(A)

JUSTIFICATION FOR OTFAOC

OTFAOC Number: JA12-182

Upon the basis of the following justification, I, as Procuring Activity Competition Advocate (PACA), hereby approve the use of other than full and open competition of the proposed contractual action pursuant to the authority of 10 U.S.C. 2304(d)(1)(B) as implemented by FAR 6.302-1(a)(2)(iii), which states, “For DoD,…services may be deemed to be available only from the original source in the case of follow-on contracts for the continued provision of highly specialized services when it is likely that award to any other source would result in…substantial duplication of cost to the Government that is not expected to be recovered through competition….”

JUSTIFICATION

1. REQUIRING AGENCY AND CONTRACTING OFFICE: Defense Information Systems Agency (DISA) Network Services, and Defense Information Technology Contracting Organization, National Capital Region (DITCO-NCR), P.O. Box 549, Ft. Meade, MD 20755-0549.

2. NATURE/DESCRIPTION OF ACTION(S):

This action is to issue a sole-source contract to the National & Homeland Security Division of General Dynamics Information Technology (GDIT). The proposed contract type is cost-plus-fixed-fee (CPFF), and the estimated contract cost for a Base Year and four-One Year options is $7.1M. The government expects to migrate this effort to the Global Information Grid (GIG) Services Management (GSM) contract by the end of option year two of the contract. The GSM contract is expected to be awarded by mid October 2012. The two years migration effort is needed to allow EMERALDS to renew its Authority to Operate (ATO) and the new contractor responsible for sustaining the DISN-OSS to acquire a working knowledge and comfort level on the OSS; and the EMERALDS software codes for future development efforts. The additional two option years provide the GSM contractor additional time for migrating this effort if needed. The period of performance will be one (1) year with four (4) option periods:

Base year: 9/30/12 – 9/29/2013 1st Option year: 9/30/13 – 9/29/14 2nd Option year: 9/30/13 – 9/29/15 3rd Option year: 9/30/15 – 9/29/16 4th Option year: 9/30/16 – 9/29/17

The contract will utilize O&M, RDT&E, and Procurement funds.

3. DESCRIPTION OF SUPPLIES/SERVICES:

This action is a continuation of software sustainment and development to the DISA Gateway Evolution and Sustainment Branch (NS113) for the Enterprise Management with Enhanced Resource Allocation Database System (EMERALDS). The EMERALDS is a protected, web-based management tool which supports the delivery and administration of high-capacity communication networks for DoD Satellite Communications (SATCOM) facility site assets. It is a centralized management tool that provides equipment and DISN Services inventories, planning management, mission projection, reporting, and trend analysis capabilities. EMERALDS supports all tactical communications in response to wartime, humanitarian and training missions to prepare the Armed Forces communication units for deployment. When fully implemented, EMERALDS will interface with the DISN Operational Support Systems (OSS), Joint Integrated SATCOM Tool (JIST) and other SATCOM management tools.

The contractor shall provide NS113 with the requisite management, integration, and technical support for the sustainment and development of EMERALDS to meet the warfighter’s requirement. Specific contractor support includes, but is not limited to, continued development and deployment of existing EMERALDS tools and capabilities, technical support; hardware and software installation and integration; database and software development; continued updating and employment of key SATCOM management and planning data; data manipulation and presentation; testing, demonstration, and fielding of developed software systems; and requisite hardware and software sustainment and support activities.

4. IDENTIFICATION OF STATUTORY AUTHORITY: 10 U.S.C. 2304(d)(1)(B).

5. DEMONSTRATION OF CONTRACTOR’S UNIQUE QUALIFICATIONS:

This effort is a continuation of the work performed under the former contract and the incumbent (GDIT) is the only available source that can provide the highly specialized services that are unique to the EMERALDS. The Director, Network Services decided in January 2012 to integrate EMERALDS into the DISN Operation Support Systems (DISN OSS), thus making this a near-term (2-3 years) effort. Consequently, the Government cannot recover the duplication of costs incurred through a competitive award. It is therefore in the Government’s best interest for the existing contractor to transition EMERALDS into the DISN OSS in the two-year time frame that is currently planned.

GDIT has the in-depth historical knowledge of the conditions, sampling locations, points of contact (the residents, regulatory agencies and local authorities), testing methods, and reporting requirements for this effort. This same work by another contractor would require substantially more time, effort and cost to complete due to unfamiliarity with the history and preparation effort. The preparation effort would, in large part, be a repetition of work that the current contractor, GDIT, has already performed. Additionally, awarding to another firm would also jeopardize the consistency of the data and development initiatives. At this juncture of the project, it would be very difficult for another contractor to assume the responsibility to sustain and support current and future requirements. Further, the Government will incur expenditure of additional resources for another contractor to startup a fully functional software development lab, which GDIT already has in place. Delays (90 – 180 days) would be encountered for the new contractor to become familiar with the EMERALDS source code and establish a development lab to emulate EMERALDS. See comment A5 for cost breakout.

Since GDIT built the Enterprise Management with Enhanced Resource Allocation Database System (EMERALDS) and has been maintaining and enhancing the system, GDIT is uniquely qualified to provide the necessary support to sustain those web applications and continue to develop the required functionality as specified by the government. There are quite a number of necessary tools leveraged in the web applications. Expertise in all of those tools is paramount to assure the web applications continue to service the customers. More importantly, the ability to extend application functionality and the ability to identify solutions to problems as a result of a single tool or a combination of the tools is critical. Often, challenges arise that involve an understanding of how the workflow tool was designed and the ability to make changes to the database to accommodate an unusual issue. Also, there is the need to have a mastery of the source code structure as well as a mastery of STEP/CONEX specific back-end business logic in order to facilitate a change to the user interface or database. There is a significant amount of application knowledge at the source code and business logic level that must be mastered from the onset of the contract in order to facilitate continued service. The Government has the rights to the source codes for further EMERALDS development.

The EMERALDS workflow system was designed and developed using a combination of SharePoint enabled workflows and custom workflow activities, which GDIT engineered by combining elements of Service Oriented Architecture with the unstructured data storage techniques available within SharePoint to provide a highly customized workflow engine that supports web services and provides the same level of features and functionality that SharePoint provides for Office client integration. This system is continually evolving and needs updates to support the shifting business needs of the Gateway and CONEX organizations. The highly customized nature of this workflow engine requires unique knowledge of the Gateway and CONEX operating environments in addition to the fact that the hybrid technology is unlike any other that is commonly used today.

The EMERALDS user experience was developed based on Web 2.0 techniques in a similar nature to currently popular commercial web offerings. To accomplish this, GDIT used a variety of techniques to build a SharePoint 2007 user interface that closely resembles the SharePoint 2010 user interface before SharePoint 2010 had been released. A variety of tools developed by GDIT were involved in the building of this product, including custom JavaScript libraries, custom CSS, custom SharePoint theming and Master Pages, and a custom web services library that allows asynchronous page loads to occur. Updates to the user interface must take into account a complex set of business rules and program requirements. This combination of tools and techniques within a SharePoint 2007 environment provides a very unique user experience and takes a unique skill set to understand and maintain.

The EMERALDS database is built in Microsoft SQL Server using custom code for data access. The database is proprietary to Emerald. The database itself has been designed over an extended period to provide high performance levels for multiple data access scenarios and to provide the necessary integration between SharePoint and the custom EMERALDS application logic. This complex integration system requires entrenched domain knowledge of the CONEX and Gateway operational environments that, in some cases, took GDIT several years to achieve.

GDIT uniquely delivers the requisite knowledge needed to maintain and enhance all of the EMERALDS application components including expertise in its unique architecture to support the technical components of the EMERALDS. In addition, GDIT has developed a highly unique level of domain expertise that provides an unparalleled capability for the continued sustainment and development of EMERALDS through their work on EMERALDS, DSCS Engineering Support, DSCS Installation Support, DSCS Wideband Engineering Support, DISA STEP Installation Support, and DISA New Equipment Training Support.

By awarding this effort to GDIT, the Agency will eliminate the need for duplicative cost associated with starting a new effort and the learning curve required to ensure workers possess the required knowledge and skills needed to perform the tasks successfully. Based on the “Total Cost to Contract” method, the Agency will avoid approximately $2.4M - $4.1M in duplicative costs for another contractor to perform at an acceptable level. This cost is based on historical data including engineering assessment, cost estimates, and vendor cost data, equipment installation cost, and personnel travel cost. The cost consist of Equipment de-installation, packing and shipping: $250K, Equipment unpacking, installation configuration, and testing: $300K, Development Lab Certification:$750K, Labor: $1.65M,Travel and ODCs: $100K Govt Personnel (ESD) Interface and System configuration and Testing including FSO Evaluation: $300K, and Lease Circuit Cost: $75K. Total Cost to Contract includes contractor costs, contract administration costs, and one-time conversion costs which include training, classified facility certification (development lab), and direct labor cost for workers during a transition period from the existing contractor to the new contractor. Given that the maximum total estimated possible cost of this effort is only $7.1M, the Government would not be able to recover the $2.4M - $4.1M duplicative costs through competition. Moreover, the actual cost will be much less than $7.1M if the transition of this work to the GSM contract occurs as planned.

6. FEDBIZOPPS ANNOUNCEMENT/POTENTIAL SOURCES: This requirement will be synopsized in the FedBizOpps (FBO).

7. DETERMINATION OF FAIR AND REASONABLE COST: The contracting officer will determine the anticipated cost to the Government of these services covered by this J&A to be fair and reasonable based upon cost/price analysis including historical cost data incurred under the current contract, as well as, obtain information that is adequate for evaluation of the reasonableness of the price pursuant to FAR 15.403-3.

8. MARKET RESEARCH: Since this effort was targeted to migrate to the GSM contract, market research is not relevant to this sole-source contract. However, a cursory market research was conducted and the Government acknowledges that there is a pool of competitive SETA support contractors with extensive software development and sustainment experience and expertise to the level and complexity required for this support, and considered capable of effectively executing the requirements as defined by the PWS. The justification for this sole-source contract, however, is based on the fact that award to any other source would result in a substantial duplication of cost to the Government that is not expected to be recovered through competition. Nevertheless, in accordance with FAR 6.302-1(d)(2), the notice required by FAR 5.201 will be published and any offeror(s) who submit a notice of interest will be considered.

9. ANY OTHER SUPPORTING FACTS: None.

10. LISTING OF INTERESTED SOURCES: None.

11. ACTIONS TAKEN TO REMOVE BARRIERS TO COMPETITION: None.

The Government will migrate this effort to the GSM contract for future acquisitions for these services as a competitive action.

12. REFERENCE TO THE APPROVED ACQUISITION PLAN (AP) PROGRAM PLAN (PP): This effort does not meet the threshold for an AP.

TECHNICAL 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." (FAR Subpart 6.303-1(c) and DARS Subpart 6.303-1(b))

NAME: __Dwight Martin_________ SIGNATURE: __Dwight Martin______________

TITLE: _Telecom Manager_______ DATE: _24 August 2012_______

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." (FAR Subpart 6.303-1(c) and DARS Subpart 6.303-1(b))

NAME: _ Dwight Martin_________ SIGNATURE: Dwight Martin______________

TITLE: _ Telecom Manager______ DATE: _24 August 2012

CONTRACTING OFFICER CERTIFICATION: (FAR 6.303-2(b)(7))

“I certify that this justification is accurate and complete to the best of my knowledge and belief.”

NAME: Christian M. Fox SIGNATURE:

TITLE: Contracting Officer DATE: 29 August, 2012

PROCURING ACTIVITY COMPETITON ADVOCATE APPROVAL

“I have reviewed this justification and find it to be accurate and complete to the best of my knowledge and belief. Since this justification for OTFAOC does not exceed $12.5M, this review serves as approval.”

APPROVED BY: (FAR 6.304(a)(2))

NAME: ANN M. VAUGHN SIGNATURE:

TITLE: Procuring Activity Competition Advocate DATE: 12 Sep 12 image1.jpeg image2.jpeg