Redacted JOTFOC for DTRT57-09-C-10056.pdf

Procurement Request (PR) No. DTRT-RVT-51-1007

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DEPARTMENT OF TRANSPORTATION

RESEARCH AND INNOVATIVE TECHNOLOGY ADMINISTRATION

VOLPE NATIONAL TRANSPORTATION SYSTEMS CENTER (VOLPE CENTER)

RVT-51 – Intermodal Infrastructure Security and Operations Division

JUSTIFICATION FOR OTHER THAN FULL AND OPEN COMPETITION

PART I - TECHNICAL SUPPORTING DATA

Recommend that negotiations be conducted with Progressive Software Solutions, Inc.

(D.B.A.Promergent and Prosoft) on a noncompetitive basis for award of a contract in an amount estimated to be $900,000 with a 24 month period of performance plus an option for 12 additional months at an estimated cost of $450,000, totaling $1,350,000.

The supporting data for this recommendation are as follows:

A. Description of Supplies/Services

Over the next three years the Volpe Center will be performing a task under a new Intra Agency Agreement (IAA) to evaluate and strategize the transition for new and improved technologies in competing markets for possible long term solutions to the FAA’s Enterprise Configuration Management automated tool. The current automated tool is called “WebCM” and uses proprietary technology from Progressive Software Solutions, Inc. The new technology that will be evaluated by the Volpe Center is expected to be deployed sometime in 2012.

This proposed contract will provide labor and engineering services to support the current WebCM tool during the transition period.

The Volpe Center will be acquiring engineering services (labor) and technical support from Progressive Software Solutions, Inc. for use in its proprietary Eden Architecture technology which is the underlying code for WebCM. This new contract is a follow on to previous contract awards DTRT57-08-F-50026 and DTRT57-08-F-50034. RVT-51 The Intermodal Infrastructure Security and Operations Division at the Volpe Center, in support of its sponsoring organization (the Federal Aviation Administration (FAA) require engineering services from Progressive Software Solutions, Inc. in custom software development, engineering services, training, help desk, and T1 communications support for the FAA’s Web Configuration Management System (WebCM). WebCM is a custom FAA software system that runs on the Eden™ Application Development and Deployment Framework from Progressive Software Solutions, Inc..

Progressive Software Solutions, Inc. currently provides Help Desk and Maintenance support to over 3,500 FAA users via a prior contract vehicle. WebCM has been the solution of choice for the FAA in supporting its Configuration Management (CM) requirements since 1996.

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This new procurement is to continue with the engineering services and Help Desk support to the Volpe Center, and its FAA customer, for the following activities and services:

WebCM software development and support for modifications based on the Volpe Center’s, and FAA’s, requirements and policy changes. These changes continue to be FAA user based requirements.

Help Desk – Level 2 User Support for customized changes to WebCM by its application users.

Information Systems Support (ISS) requirements FAA User Training as required by the Volpe Center.

General Program and Management support as required by the Volpe Center Engineering support services to the Volpe Center for its FAA customer requirements analysis, implementation planning of future software upgrades and deployments.

B. Background

The Volpe Center has been providing engineering services to the FAA in support of their WebCM system for the past six years. The FAA continued with the tasking and funding to expand its WebCM program with the Volpe Center which has brought in-house much of the tasking previously performed by the FAA. The WebCM system and its servers host the National Airspace System, (NAS) NASA Change Process (NCP) data and currently reside at the Mike Monroney Aeronautical Center (MMAC) in Oklahoma City, Oklahoma. Eden™ Application Development and Deployment Framework is a process, change and document management software and services provider that reflects Progressive Software Solutions, Inc.’s comprehensive domain expertise in the Federal Government. Working closely with the FAA, Progressive Software Solutions, Inc. provided a proprietary and cost-effective system based on business objectives, best practices and proven technologies. Based on past and current independent marketing analysis within the industry, and past performance with the FAA, Progressive Software Solutions, Inc. is a leader in web based CM technology. Progressive Software Solutions, Inc. is the only world-wide company able to offer support to the Volpe Center and the FAA for the proprietary Eden Architecture, WebCM technology.

The proposed acquisition will be the third labor contract and continuation of a previous effort performed by the proposed contractor by the FAA under WebCM sustainment contract, DTFA01- 97-C-00042. In 1996, MITRE Corporation conducted a Return on Investment (ROI) analysis for the FAA of several configuration management (CM) tools to determine which tool provided the best value to the Agency. As a result of that analysis, a contract was awarded in May 1997 to Progressive Software Solution, Incorporated, to provide a standardized, automated CM tool. After a successful proof-of concept phase, the FAA selected WebCM in March 2002, as the enterprise tool for automating the NAS Change Proposal process. The announcement of this decision and the evaluation process involved in selecting WebCM is provided as Attachment 1 to this JOTFOC.

WebCM development has been completed and Initial Operational Capability (IOC) was achieved in March 2003. Software upgrades were implemented and Final Operational Capability (FOC) was achieved in March 2003 with Operational Readiness Decision (ORD) and full production in January 2005.

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Although a statement of work has been developed for this effort, it inherently includes performance of services which require the specialized knowledge, experience and expertise of Progressive Software Solutions, Inc. This unique combination of knowledge, experience and expertise is the result of this source’s previous work with the FAA and Volpe in FAA’s Enterprise Configuration Management work involving use of EdenTM software proprietary to Progressive Software Solutions, Inc. For this reason, no data packages, specifications, engineering descriptions, statements of work or purchase descriptions suitable for full and open competition are available for the current requirement. However, performance of this current effort will provide the opportunity for ongoing efforts by FAA, as discussed further in paragraph E., to evaluate alternative – and potentially competitive - approaches and technology to satisfy its WebCM functional requirements.

C. Circumstances Requiring the use of Other than Full and Open Competition

Only One Responsible Source and No Other Supplies or Services will Satisfy Agency Requirements.

The FAA originally selected Progressive Software Solutions, Inc. to develop, standardize, and automate the NAS NCP process workflow. Progressive Software Solutions, Inc. developed a customized workflow application, WebCM, using a proprietary workflow software engine called Eden. Progressive Software Solutions, Inc. has unique understanding of Eden capability and the custom WebCM application, and corresponding database structure based on a development and maintenance cycle. During the development and maintenance period, Progressive Software Solutions, Inc. developed tools and techniques specific to WebCM that provide analysis, development, and regression testing efficiencies which have resulted in lower development and implementation costs to the Government. Without Progressive Software Solutions, Inc.’s unique knowledge and capability to apply WebCM workflow business rules, the FAA would need to return to its paper-based NCP process. WebCM is the FAA’s automated workflow tool which uses the FAA’s business rules in accordance with FAA Policy 1800.66, change 2, for managing National Airspace System (NAS) Configuration Items (CI) within the NAS Change Proposal (NSP) process. WebCM is the only system that can support the following:

• WebCM sustainment activities in support of the FAA.

• WebCM Software modifications based on approved FAA policy changes

• Eden, workflow engine, Software Maintenance – release updates, bug fixes

• Help Desk – Resolve WebCM application issues

• ISS Certification and Accreditation (C&A) requirements

• Yearly (C&A) update requirements

• Fix/update current application Tickets

• Requirements analysis

• Functional analysis

• Software release updates

• WebCM on line training material updates

• Mainframe legacy interface

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Progressive Software Solutions, Inc. is the only world-wide vendor with capabilities to develop, standardize, and automate the FAA NAS NCP process workflow through the use of its proprietary system, WebCM. Over the last several years, Progressive Software Solutions, Inc.

has developed a customized workflow application, WebCM, using a proprietary workflow software engine. Since WebCM is a custom software application, without Progressive Software Solutions, Inc.’s unique knowledge and capability to apply WebCM workflow rules, the Volpe Center and the FAA would need to return to its paper-based NCP process.

Given this twelve year effort, the cost that would be duplicated in processing an award to another source or to bring an equivalent solution and equivalent expertise in-house is as follows:

• The FAA contract DTFA01-97-C-00042 provided a ceiling of $18,000,000 for the development, deployment, integration, testing, modification, and maintenance of Progressive Software Solutions, Inc.’s WebCM system. There were many contract modifications, and as of modification 0028, the FAA had expended $12,100,000 on the WebCM system. Duplicating the cost of this investment to replace this system with an alternate system customized by an alternate contractor would not be cost effective and would require excessive time and labor on behalf of the Federal Government staff to oversee years of configuration and testing. An FAA transition plan was developed in 2004 which addressed the need for knowledge transfer of Progressive Software Solutions, Inc.’s development process, key product maintenance issues, and training. The plan addressed the transition of software, WebCM and Eden Application Programming Interface (API), including an understanding of how future releases of Eden and Eden’s API potentially impact each other as well as WebCM. A determination was made by the FAA to continue with the sustainment of WebCM as the best overall business plan. The plan identifies the hardware, software, and other resources needed for life cycle support of WebCM software as well as quality assurance and risk mitigation strategies. Software installation and operation within the FAA environment was also addressed. The plan’s strategy was designed to insure the successful transfer to the Volpe Center or FAA of all items necessary to assure the effective operation and maintenance of the software items delivered by Progressive Software Solutions, Inc. to the Volpe Center and to the FAA, as well as the ability to implement new or modify existing applications using Eden and Eden API.

Ultimately, the more than $12,100,000 already invested in WebCM, and the resources needed to support the knowledge transfer far outweigh the need to bring this technology in-house.

• The preliminary estimate for an intellectual transition of expertise is 4-5 additional FTE’s, or approximately $580,000 over a 6-month duration as well as additional support from existing Volpe Center and FAA Subject Matter Experts (SME) support contractors. Assuming a Volpe Center designated support contractor is in place with a month ramp up time to hire and acclimate the team, the transition could potentially be completed by the end of January, 2010. The additional FTE costs, ramp up time, impact to existing support during transition, and the need to retain Progressive Software Solutions, Inc. past the current contract in order to complete the transition adds unnecessary costs and risks which are not reasonable given the circumstances.

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D. Market Research

In March of 2008 and again in January of 2009, the Volpe Center conducted a search of vendors who support WebCM and the Eden Architecture. This research was conducted by David Sawin with assistance by Computer Sciences Corp, the Volpe Center’s on-site TRIPS contract teaming.

The findings were based on the modified WebCM system that is now integrated across the FAA enterprise. In 2008 and again in 2009, we determined that Progressive Software Solutions, Inc.

was the only vendor found to support this system and its workflow. Also, in 1996, the FAA conducted a ROI analysis of several CM tools to determine which provided best value to the Agency. Progressive Software Solutions, Inc.’s WebCM was the selected tool. The review involved over 700 agency personnel who successfully concluded on March 11, 2002 at which time WebCM using Eden proprietary architecture became the tool of choice as the Agency’s system for processing Case File/NAS NCPs and configuration control decisions (CCDs) in support of the NAS Configuration CM infrastructure. WebCM provides origination, management, and monitoring of NCPs from case file initiation to a final configuration control decision (CCD). Progressive Software Solutions, Inc. is the only company that could currently support WebCM for the FAA.

E. Steps to Foster Competition (or Consideration)

The FAA has recently committed to a review and evaluation in their Line of Business Master Plan of their automated tool application software code. Since January of 2009, the FAA has been conducting a tech refresh of the hardware and operating systems associated with WebCM. The result of this activity has been the initiation of a new IAA with the Intermodal Infrastructure Security and Operations Division with our FAA customer that has a Period of Performance ending in 2012. One of the tasks is to provide an analysis on a revised automated tool for the FAA to support Enterprise Configuration Management in a more cost effective fashion. Based on market research in January of 2009, there are products in the market that could provide a lower cost replacement tool for the FAA, however, any such new technology would require at least twenty four months integrating into the FAA environment. These business solutions use both proprietary and open source technology and a two to three year timeframe would be needed to review, select and integrate a new technology to replace WebCM. The Volpe center would rely on new industry standards and a competitive market to evaluate potential new vendors. It is anticipated that the Volpe Center will be contracting with Progressive Software Solutions, Inc. up to this time frame, in the amount of approximately $1,350,000.

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F. TECHNICAL OFFICE CERTIFICATION:

The requirement set forth is initiated to satisfy a recognized Government need. As applicable, the plans, drawings, specifications, and statement of work are limited to state the minimum needs of the Government. I certify that the above information which serves as the basis for the justification for other than full and open competition is accurate and complete to the best of my knowledge and belief.

_______________________ 6/25/09 David Sawin Date Technical Initiator

Concurred By:

___________________________ 6/25/09 John J. Wojtowicz, for Rodney Cook Date Division Chief or Office Director

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PART II – CONTRACTS SUPPORTING DATA

A. Description of the Procurement Action The action taken will be a new stand-alone contract, with a sole-source award to the recommended source, Progressive Software Solutions, Inc. It is intended that this new contract will be awarded on a Time-and-Materials basis.

B. Authority – 41 U.S.C. 253(c)(1), as implemented by FAR 6.302-1, Only One Responsible Source.

C. Efforts to Obtain Competition - The proposed contract action was synopsized on June 30, 2009 at the FedBizOps website, as required by FAR 5.2. On July 6, 2009, a firm named Eumotif provided an expression of interest in this acquisition. The e-mail sent by this firm included a sales brochure describing general IT help desk services which they provide. On July 8, 2009, this information was referred to the cognizant customer technical personnel for evaluation as to this firm’s capability to meet our requirements for this acquisition. David Sawin, RVT-51, responded to this request on July 9, 2009 with his assessment that, although Eumotif does in fact offer the IT help desk services that comprise an element of this acquisition, they do not possess the specific WebCM knowledge and experience which is an essential component of the required services for this effort. Accordingly, on July 10, 2009, the Contracting Officer notified Eumotif by e-mail that the information this firm had provided in response to the synopsis did not demonstrate the necessary capability to successfully perform the required services.

As of July 14, 2009, no other sources had expressed an interest in writing concerning this acquisition.

D. Best Value - The signature of the Contracting Officer provided below represents a determination that the amount to be paid for this contract will be fair and reasonable. The contractor will be required to submit appropriately detailed cost and pricing information with its proposal. The Contracting Officer will conduct the necessary cost and price analysis on this information to either confirm the reasonableness of the amounts proposed, or will establish the Government’s objective position for purposes of entering into negotiations with the contractor to obtain agreement on a fair and reasonable amount for the resulting contract.

This process will be appropriately documented in the contract file.

E. CONTRACTING OFFICER CERTIFICATION:

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

_______________________ 7/14/09 Michael Leary Date Contracting Officer

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PART III – REVIEW AND APPROVAL SIGNATURES:

REVIEWED FOR LEGAL

SUFFICIENCY: __________________________ 6/30/09

Lee Wolanin Date Senior Attorney Office of Chief Counsel, RVP-40 DOT/RITA/Volpe Center

CONCURRED BY: __________________________ 7/15/09

David S. Scali Date Chief of the Contracting Office, RVP-1 DOT/RITA/Volpe Center

APPROVED: ___________________________ 7/16/09

Richard R. John Date Acting Director, RVA-1 DOT/RITA/Volpe Center

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ATTACHMENT 1

REVIEWED FOR LEGAL