E07 JA_Sole Source_HS002116C0008 -Signed cntrl numb.pdf

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SOURCE SELECTION SENSITIVE

JUSTIFICATION FOR OTHER THAN FULL AND OPEN COMPETITION

Only one responsible source DITMAC System of Systems Development and Sustainment Support Services

HS0021-16-C-0008

Control Number: 20-160PR (Assigned by AQ Policy)

REFERENCES: In accordance with Federal Acquisition Regulation (FAR) 6.301, the contracting agency is required to prepare a sole source justification using the format at FAR 6.303-1, as provided below.

DOCUMENTATION:

(1) Identification of the agency and the contracting activity.

Requiring Activity:

Defense Counterintelligence and Security Agency Defense Insider Threat Management and Analysis Center (DITMAC) 1550 Crystal Drive, Suite 201 Arlington, VA 22202

Contracting Activity:

DCSA Acquisition & Contracting 27130 Telegraph Road Quantico, VA 22314

(2) Nature and/or description of the action being approved.

This requirement is essential specialized development, operations and maintenance support for the DITMAC System of Systems Development and Sustainment (DSoS) to enable the DITMAC to continue its vital mission as defined by Office of the Under Secretary of Defense for Intelligence and Security (OUSD(I&S)). This support will position the DITMAC to navigate from its current Initial Operating Capability (IOC) to a Full Operating Capability (FOC) without any disturbance to ongoing development efforts of the DSoS. DCSA will extend the period of performance of contract HS0021-16-C-0008 by 12 months (September 26, 2020 through September 25, 2021) to allow for completion of this effort.

The purpose of this document is to obtain necessary approvals for a sole source acquisition in accordance with FAR 6.302-1. Competition is limited to only one responsible source and no other supplies or services will satisfy agency requirements.

(3) A description of the supplies or services required to meet the agency’s needs (including the estimated value).

The DITMAC provides the Department of Defense (DoD) a quantitative and qualitative analytic overview of Insider Threat (InT) related risk trends, which significantly informs decision-making. The DITMAC follows an analytics-driven approach to assessing risk and endeavors to employ a rigorous science-driven approach to addressing risk and risk mitigation as it pertains to InT in the DoD. In its current IOC state, the DSoS 2.x serves as the critical capability enabling the DITMAC to achieve its mission in providing the capability to centrally manage and analyze potential InT reports submitted by the 43 DoD components (on Secret Internet Protocol Router (SIPRNET)), and the Intelligence Community (on Joint Worldwide Intelligence Communications

(JWICS)).

This contract action will provide for the DSoS to be enhanced as a multi-tenant customizable system that has a smaller footprint (increased security, ease of maintenance, and cost efficiency) and the ability to support customized workflows and organizational structures for the components, permitting it to be the true enterprise insider threat case management system for the DoD (hereafter known as DSoS 3.x). Once DSoS 3.x is operational in the cloud on all three security domains (Unclassified, Secret, and Top Secret) it will be able to integrate with Enterprise Cross Domain Service (ECDS) enabling the flow of information between the DITMAC, Intelligence Community, and other agencies within the DoD, and those components for whom the unclassified network is their primary (or only) domain. The requirement for meeting the DITMAC need is estimated to cost $6.4 MIL for the one 12 month period of performance.

To reach FOC, the Contractor shall provide critical technical and subject matter expertise to:

Deploy the DSoS 3.x code delivered at the conclusion of the contemplated PoP in all three security domains;

JUSTIFICATION FOR OTHER THAN FULL AND OPEN COMPETITION

Only one responsible source DITMAC System of Systems Development and Sustainment Support Services

HS0021-16-C-0008

Control Number: 20-160PR (Assigned by AQ Policy)

FOR OFFICIAL USE ONLY

PROCUREMENT SENSITIVE

SOURCE SELECTION SENSITIVE

Obtain an Authorization To Operate (ATO) for DSoS 3.x in the cloud environment on all three security domains, and maintain that ATO throughout the incremental updates necessary to reach FOC;

Migrate components and data from the DSoS 2.x multi-node schema, to the multi-tenant DSoS 3.x schema Integrate DSoS 3.x with the host environment’s ECDS;

Customize workflows within the DSoS 3.x framework to meet selected individual components’ requirements and organizational structure; and Train and educate the Insider Threat community on the use of DSoS 3.x and nuances of transitioning from DSoS 2.x, while maintaining assurance of data security and component privacy in the multi-tenant structure.

(4) An identification of the statutory authority permitting other than full and open competition.

10 U.S.C.2304(c) (1) authorizes the DOD to contract without full and open competition under certain circumstances.

For this acquisition, other than full and open competition is permitted per FAR 6.302-1(a) (2) (iii) (A) and (B).

(5) A demonstration that the proposed contractor’s unique qualifications or the nature of the acquisition requires use of the authority cited.

Novetta, Inc. (Novetta) is the only source that can satisfy the DITMAC’s requirements without significant cost to the government and unacceptable schedule and performance delays based on the following:

Novetta has supported the establishment and incubation of the DITMAC since August 2014 under four contracts awarded by the United States Air Force and one awarded by the Defense Security Service (DSS) (DSS has since become the Defense Counterintelligence and Security Agency (DCSA)). The first phase began on August 1, 2014 and was completed on May 31, 2015 in the amount of $300,000.00, provided by Research Development Test and Evaluation (RDT&E) funds. Per OUSD I&S direction, this was initiated prior to DSS’ assumption of the DITMAC incubation mission and supported via an Air Force contract (FA8240-11-D-1300-0001). This first phase focused on the initial establishment, with the utilization of working groups, to gather requirements and establishing an initial design for the prototype system, as well as identification and review of commercial and government off-the-shelf capabilities that could be leveraged in the design. The second phase of Novetta support to the DITMAC continued on Air Force contract (FA8240-14-C-2121) and ran from October 1, 2014 to February 25, 2015 in the amount of $506,427.00 in RDT&E funds. During this period of performance, work was focused on leveraging the developed design for the initial development of a DSoS prototype. The third phase began on February 26, 2015 and was completed on September 26, 2015 in the amount of $4,972,542 in RDT&E funds. This effort was focused on the continued design, development, implementation and maintenance of the DSoS, to include developing an established software baseline and authorization to operate with a single instance version of DSoS for DITMAC use. The fourth phase began on September 20, 2015 and was completed on September 29, 2016, in the amount of $1,298,936.00 in operations and maintenance (O&M) funding. This phase was focused on sustainment of the DSoS assessment, deployed to the DITMAC isolated virtual datacenter, to include maintaining all DSoS technical capabilities, back up and restoration, systems engineering and systems administration and maintenance. The fifth phase began in September 2016 and was completed on May 31, 2017 in the amount of $1,960,109.00 in RDT&E funds. This effort was focused on extending the capability to support a multi instance deployment for a pilot for the 8 other DoD Components reporting into the DITMAC. The sixth phase marked the transition of the effort from the United States Air Force to the Defense Security Service. The sixth phase began on September 26, 2016 and the RDT&E portion of the contract (HS0021-16-C-0008) is concluded on September 25, 2019. The O&M portion of the contract is currently in OY3 (September 26, 2019 through September 25, 2020) with no additional option periods remaining. The total funded value of the contract (HS0021-16-C-0008) to date is $25,292,104.63.

Novetta has provided critical support to the DITMAC under the previous four (4) contracts through the Air Force and continues to do so under the current DCSA contract. Since its inception, the DITMAC and its execution of the InT mission have remained in a state of continuous evolution. Additionally, over the course of the contract, Novetta has extended the current version of the DSoS from supporting just the DITMAC to all 43 DoD Components, and have positioned the system for onboarding to the Intelligence Community.

HS0021-16-C-0008

Control Number: 20-160PR (Assigned by AQ Policy)

Novetta has provided the DITMAC with the current DSoS 3.x schedule, giving the Government a clear understanding of how long each cycle of the project takes to complete. The enhancements associated with DSoS 3.x will provide for the use of customizable capabilities such as workflows, forms, roles, and reports to better address the evolving needs of the DITMAC and the larger DoD InT community (all 43 DoD Components, the Intelligence Community, and other mission partners). The DSoS 3.x is designed to achieve economies of scale for the DoD by alleviating the need for each user identified above to pursue development of their own systems independently.

Novetta is the only vendor positioned to complete the required tasks in the performance work statement (PWS) in a timeframe that allows the DITMAC to maintain the required schedule to meet its mission and align with larger DCSA and DoD directives. Without a continuation of these efforts by Novetta, the DITMAC and OUSD(I&S) would realize an immediate and significantly detrimental impact on the deployment schedule of the DSoS full operational capability.

Continued Novetta support is critical to ensuring the delivered DSoS 3.x code is able to be successfully deployed, assessed and can obtain an Authorization to Operate (ATO) on all three security domains (i.e. NIPR, SIPR, JWICS).

To develop the complete body of evidence for the system’s ATO approval requires in-depth specialized knowledge of not only the software itself but the programmatic frameworks and processes employed during code development and deployment to the hosting environment. Obtaining an ATO requires the completion of a self-assessment of the system fully deployed and integrated into the host environments, against the most current security controls and Software Technical Implementation Guides (STIGs) released at the time of assessment. For this reason, the body of evidence cannot be delivered at the same time as DSoS 3.x code delivery at the end of the PoP, and cannot be finalized until deployments to the host environments are complete. As the Assessment and Authorization (A&A) is highly test/result focused and experience focused, the subject matter expert representing the DSoS must have ready understanding and knowledge both of the DSoS 3.x coding practice and the inherited hosting environment controls. For this reason, the risk of failing to obtain a timely ATO greatly increases if the developer who created the DSoS 3.x does not support the system through the A&A activities.

Once the DSoS 3.x obtains an ATO on all three security domains/networks, continued Novetta support is critical to ensuring successful component and data migration effort to DSoS 3.x, including component customization and training on the use of 3.x. Novetta is the only vendor that has the background and historical information to complete the required tasks without a learning curve that has a potential to derail the DITMAC mission and ultimate goal of FOC. Novetta is currently the only vendor possessing the experience with the DSoS development tools and A&A methodologies to complete DSoS 3.x FOC deployment and authorization without significant delays. DITMAC estimates that it would take another vendor six to nine months to become fully operational based on historical knowledge of transitioning from one vendor to another in order to begin supporting current development efforts and other tasks identified in the PWS.

The DITMAC is aggressively working toward FOC, aided by the technical development support services being provided by Novetta. These development services have positioned the DITMAC to navigate from initial establishment through provisional IOC and into IOC in an expeditious fashion. Based on the above information, any delay in acquiring the necessary services for the DITMAC would cause an unacceptable delay in fulfilling their requirements that directly impacts the DITMAC’s mission to migrate potential insider threats and prevents alignment with DoDD 5205.16, September 30, 2014.

The tasks identified in the PWS are a continuation of the tasks Novetta has already performed under the current DCSA task orders. A new vendor would need to go back to the beginning to gain a full understanding of all of the items completed and rework each developmental piece of the DSoS in order to continue to provide the necessary development and sustainment support for the DITMAC. This change in direction would cause unacceptable delays in fulfilling the core mission of the DITMAC, if we were to resolicit this requirement.

Based on the above, competing this requirement would result in untenable delays and an inability to complete on going, critical efforts resulting in the potential loss of the approximately $25,321,081.63 already invested in these efforts over the lifespan of the previous contracts.

(6) A description of efforts made to ensure that offers are solicited from as many potential sources as is practicable, including whether a notice was or will be publicized as required by Subpart 5.2 and, if not, which exception under 5.202 applies.

FOR OFFICIAL USE ONLY

SOURCE SELECTION SENSITIVE

HS0021-16-C-0008

Control Number: 20-160PR (Assigned by AQ Policy)

The Contracting Officer will follow the procedures in FAR 5.201 and FAR 6.305 in ensuring a Synopsis and the Justification required by 6.303-1 are properly completed. A Request for Proposal will be issued to Novetta in accordance with FAR Part 15 – Contracting by Negotiation.

(7) A determination by the contracting officer that the anticipated cost to the Government will be fair and reasonable.

In determining a fair and reasonable price, the Contracting Officer will assess historical contract prices and evaluate a breakdown from the formal Independent Government Cost Estimate (IGCE). A breakdown of what the Government believes is the potential labor categories, as well as estimated labor rates and the estimated fixed monthly price for providing the required services. The estimated labor will be compared to established pricing on other Government contracts, such as the General Services Administration’s (GSA) Federal Supply Schedule (FSS) for the same labor categories and/or similar labor categories. Additionally, price comparisons will also be accomplished from as many other sources as necessary, including commercially as well as any Government-Wide Acquisition Contracts (GWAC).

Leveraging DCSA current use of the vendor services, along with open market price comparison, the contracting officer is confident in obtaining the best value for DCSA.

(8) A description of the market research conducted (see Part 10) and the results or a statement of the reason market research was not conducted.

Market Research for the original award was conducted August 2016 for the purpose of seeking as many potential sources as possible. Availability and pricing information was sought from Northrup Grumman and Novetta, Inc. during the original award. Market research has since been refreshed and reassessed July 2020. Novetta Inc. has been found to be the sole provider of the DSoS. No known multiple providers with the required support available on the open market that could meet the Government’s current requirement in its entirety. A request for proposal will be provided to Novetta, Inc. in accordance with FAR Part 15 – Contracting by Negotiation.

(9) Any other facts supporting the use of other than full and open competition.

Novetta Inc has critical working knowledge of the requirement and has performed each phase from the inception to current state. Continuity of the requirement is determined upon Novetta continuing the requirement to completion.

(10) A listing of the sources, if any, that expressed, in writing, an interest in the acquisition.

Novetta, Inc.

7921 Jones Branch Dr. St. E 500 McLean VA, 22102-3354

(11) A statement of the actions, if any, the agency may take to remove or overcome any barriers to competition before any subsequent acquisition for the supplies or services required.

Future requirements for the DITMAC for DSoS Development, Operations and Maintenance support will be processed using available DCSA contract options and/or full and open competition to the maximum extent practicable. In-depth market research will be conducted to identify available sources with adequate time will be scheduled to complete the appropriate acquisition planning required to remove or overcome all barriers to competition.

REQUIRING ACTIVITY/PROGRAM MANAGEMENT OFFICE CERTIFICATION:

I hereby certify that this justification is made in good faith, that the supporting data and information are accurate and complete to the best of my knowledge and belief, and that I would not be making this request if it were feasible to fully compete this requirement. I further certify that this request is not the result of lack of advanced planning or a desire to expend funds while those funds are still available.

Prin Nated me

FOR OFFICIAL USE ONLY

SOURCE SELECTION SENSITIVE

HS0021-16-C-0008

Control Number: 20-160PR (Assigned by AQ Policy)

FOR OFFICIAL USE ONLY

PROCUREMENT SENSITIVE

SOURCE SELECTION SENSITIVE

Title

Signature Phone

CONTRACTING OFFICER CERTIFICATION:

I hereby determine that the anticipated cost for this contract action will be fair and reasonable. I certify that this justification is accurate and complete to the best of my knowledge and belief and that one of the circumstances in FAR 6.302-1 applies to this order.

Printed Name

Title

Signature Phon 571-e

COMPETITION ADVOCATE ($700,000 - $13,500,000):

Printed Name

Title

Signature Phone

MISTICHELLI.KRISTEN.A

NN.1534534562

Digitally signed by

MISTICHELLI.KRISTEN.ANN.1534534562

Date: 2020.09.14 07:47:57 -04'00'

ALNIDAWI.JEANN

IE.C.1085067989

Digitally signed by

ALNIDAWI.JEANNIE.C.108506798

Date: 2020.09.14 11:08:34 -04'00'

HARTLE.RONALD.C.124194

Digitally signed by

HARTLE.RONALD.C.1241941007

Date: 2020.09.14 20:11:16 -04'00'