FINAL_EBS_J&A_20180806_-_redacted.pdf

Justification and Approval (J&A) for Other Than Full and Open Competition

FOR OFFICIAL USE ONLY

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I. Contracting Activity.

The Air Force Life Cycle Management Center Business Systems Division Contracting Office (AFLCMC/HIHK), located at 1960 1st Street West, Building 977, Joint Base San Antonio - Randolph, Texas, 78150, supports the Human Resources Systems Division (AFLCMC/HIH) Program Management Office (PMO).

II. Nature and/or description of the action being processed.

This action will result in a new contract for Oracle E-Business Suite (EBS) and Business Intelligence (BI) Software Training and Support Services, which extends services from FA8734-16-C-0001 for an additional twelve month period of performance (PoP), from 23 September 2018 to 22 September 2019. FA8734-16-C-0001 was awarded as a Firm Fixed-Price (FFP) contract with an estimated value of .

III. Description of supplies/services required to meet agency needs.

FA8734-16-C-0001 and this subsequent contract are required to provide tailored Oracle EBS training used to prepare the Total Force (Air Force [AF], Reserve, Guard, and AF civilians) with knowledge of the Commercial-Off-the-Shelf (COTS) software capabilities required for AF change management efforts supporting successful deployment and acceptance of the Air Force Integrated Personnel and Pay System (AFIPPS) program. The same types of Oracle product training will be performed under this contract as was performed under FA8734-16-C-0001. The total estimated dollar value of this action is . The new PoP is anticipated to be 23 September 2018 through 22 September 2019.

The following FFP services are required in the new contract award:

- Private R12.x Oracle E-Business Suite Essentials for Implementers (tailored) QTY/CLASSES: 33

- Private Combo class: R12.x Oracle HRMS Work Structure Fundamentals/R12.x Oracle HRMS People Mgmt Fundamentals (tailored) QTY/CLASSES: 02

- Private R12.x Oracle Time and Labor Fundamentals QTY/CLASSES: 02

- Private Combo class: R12.x Oracle Payroll Fundamentals: Earnings and Deductions/ R12.x Oracle Payroll Fundamentals Configuration (Tailored) QTY/CLASSES: 02

- Private R12.x Oracle HRMS Self Service Fundamentals QTY/CLASSES: 02

- Private R12.x Oracle Payroll Fundamentals: Administration QTY/CLASSES: 02

- Private R12.x Implement Oracle Workflow QTY/CLASSES: 02

- Private R12.x Oracle HRMS iRecruitment Fundamentals QTY/CLASSES: 02

- Private R12.x Oracle HRMS Total Compensation Foundations QTY/CLASSES: 02

- Private R12.x HRMS Compensation Workbench and Salary Configuration QTY/CLASSES: 02

- Private R12.x Oracle HRMS Advanced Benefits Fundamentals QTY/CLASSES: 02

- Private R12 HRMS Talent Management Fundamentals QTY/CLASSES: 02

- Private R12.x Oracle HRMS Performance Management Fundamentals QTY/CLASSES: 02

- Unlimited Learning Subscription QTY: 100 (Unlimited Product Learning Subscription to extend existing subscriptions 1 year)

- Full-Time Project Management QTY: 01 The new award will also include one cost reimbursable CLIN for Travel.

IV. Statutory authority permitting other than full and open competition.

10 USC 2304(c)(1) and 10 USC 2304(d)(1)(B) as implemented by FAR 6.302-1(a)(2)(iii), Only One Responsible Source and No Other Supplies or Services Will Satisfy Agency Requirements. (See Section VIII, Market Research attempts to find other possible offerors.)

V. Demonstration that the contractor's unique qualifications or nature of the acquisition requires the use of the authority cited above (applicability of authority).

Justification for extending these services is based on FAR 6.302-1(a)(2)(iii), 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--(A) substantial duplication of cost to the Government

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On 23 September 2016, FA8734-16-C-0001 was awarded to Aspect Software Inc. (Aspect), CAGE Code 51ZM4, as a result of a Brand Name Only competitive solicitation, resulting in a FFP contract estimated at . The Brand Name Only justification was supported because the training and services required apply uniquely to Oracle EBS R12.x COTS software. Aspect is an Oracle University (OU) certified administrator of Oracle EBS R12.x curriculum.

Air Force personnel and pay specialists require EBS and BI training to gain a comprehensive knowledge of the COTS capabilities and limitations of the Oracle EBS R12.x. The Oracle-based AFIPPS program was initiated to respond to Congressional direction for DoD departments to integrate payroll and human resources management to increase efficiency, reduce costs, and take advantage of the modern technologies available with commercial software. This makes the Oracle training an essential element in educating the workforce about the fundamentals of Oracle capabilities and limitations and how the integrated databases can be used within the AFIPPS software. The EBS and BI training is a critical part of demonstrating the genuine improvements that AFIPPS will provide over the current payroll system and building the unreserved confidence and support for acceptance of AFIPPS upon deployment. The AFIPPS development contract was awarded in May 2018 and includes development of an AFIPPS-specific training program to replace the Oracle general training provided by Aspect. The training requirement is for uninterrupted and continuous Oracle training until AFIPPS-specific training is implemented in Q3 FY 19, which will provide a seamless transition between training platforms.

Failure to extend the services which Aspect is providing for an additional 12 months would add unacceptable levels of risk to the AFIPPS program. Ending the training on 22 September 2018, when FA8734-16-C-0001 expires, will result in a programmatic schedule delay of up to five months before resumption of training. Disrupting the training will cause a day-by-day delay in the execution of the AFIPPS schedule, which is essential to preparing the workforce prior to full deployment of the program.

Competing this effort again for a PoP of one year is not cost effective to the Government. Award of a new competitive contract could take up to 90 days, which would result in award of the new contract beyond the current PoP.

Additionally, a new vendor would then need several months to conduct the extensive research and analysis, which Aspect has already accomplished, among a wide variety of AFIPPS stakeholders to familiarize themselves with training expectations and start-up to ensure contractual requirements are being met prior to commencing the additional training effort. Aspect has accomplished this previously, shortly after FA8734-16-C-0001 was awarded; any other vendor would be duplicating the incumbent's earlier and successful effort, while incurring unnecessary and avoidable costs and adding unacceptable delays to a very aggressive AFIPPS schedule. A five-month delay to the overall AFIPPS schedule is estimated to cost the Government an additional , all of which could be avoided by continuing the effort with Aspect.

Furthermore, awarding a new competitive contract would interrupt continuity of services, since a new contract would not begin at end of the current PoP (22 September 2018). Existing lesson plans and curriculum are proprietary to Aspect and would not be provided to a new vendor. Further, selecting a new vendor would require the vendor to select an off-base training facility, which would have to be located, leased, planned, designed, and equipped, which Aspect has already accomplished. The overall cost impact to the AFIPPS schedule is estimated to be , and is not-recoverable by the Government, as well as an estimated for a new contractor ramping up to full performance. The estimated includes approximated five months of lost service, interviewing stakeholders for training needs, and setting up the facility.

This is evidence of a substantial duplication of costs and an unacceptable delay to the Government which will not be recovered through competition.

Aspect is currently the only firm capable of providing the specialized services described in Section III above, without the U.S. Air Force experiencing substantial duplication of cost that could not be expected to be recovered through competition and unacceptable delays in fulfilling its requirements.

VI. Description of efforts made to ensure that offers are solicited from as many potential sources as practicable.

For reasons stated in Section V, it is not practicable to solicit offers from any sources other than the incumbent, Aspect.

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Only Aspect can continue the required services without substantial duplication of cost to the Government and an unacceptable delay.

VII. Determination by the Contracting Officer that the anticipated cost to the Government will be fair and reasonable.

As FA8734-16-C-0001 was competitive and adequate price competition was received, prices for this requirement will be compared to those previously awarded. Furthermore, the Government will review prices previously paid at other locations for Oracle Certified Training and Learning Subscriptions to ensure AFLCMC/HIH is receiving a fair and reasonable price. The cost of Project Management will be verified against GSA Alliant rates along with existing contracts such as the Engineering and Technology Acquisition Support Services (ETASS). Finally, travel will be cost reimbursable and will be pre-approved by the Program Manager/Contracting Officer's Representative and validated against the Joint Travel Regulation.

VIII. Description of the market research conducted and the results, or a statement of the reasons market research was not conducted.

Updated market research was conducted to refresh previous market research conducted in 2016 for FA8734-16-C-0001.

This recent literature search reviewed all training establishments previously identified and recommended by Oracle University as authorized providers of Oracle certified training. With the exception of the incumbent, only two of the 12 vendors offer local training in the San Antonio area; however, there is a possibility those vendors could equip a facility in the required area. However, neither of those two vendors offer the Oracle 12.2 training, which is the current requirement. Two other vendors offer instructor-led training in classrooms, but the locations offered are Minnesota and Ohio. Neither of these two vendors offer Oracle 12.2 training, which is the requirement. Other vendors offer virtual training, and Oracle 12.2 training is offered occasionally, not continuously, as required.

In summary, the market appears to have remained unchanged after two years with regard to availability of the required training courses, availability when needed, and availability in the local area.

IX. Any other facts supporting the use of Other Than Full and Open Competition.

As stated previously, if the Government does not award this requirement to Aspect, the Government will receive less actual training time for the required PoP, which is an additional 12 months of uninterrupted training. Delays in training would decrease the number of classes available in the timeframe required, which is not acceptable to the AFIPPS schedule. The estimated time to ramp up to a full level of service is five months, leaving only 59% of the PoP available to actually perform the training. Since the anticipated award is FFP, the Government will receive more training for the price paid with the incumbent versus a new vendor who will need time to ramp up.

Other benefits to the Government of the required continuous performance of training without interruption, as well as costs associated, are discussed in Section V.

X. List of any sources that expressed, in writing, an interest in the acquisition.

Aspect, the incumbent, has expressed interest in this acquisition. Based on the aforementioned substantial duplication of cost and unacceptable schedule delays, no Sources Sought or Request for Information was posted.

XI. A statement of the actions, if any, the agency may take to remove or overcome any barriers to competition before making subsequent acquisitions for the supplies or services required.

This requirement will result in a new contract to extend the services offered by FA8734-16-C-0001 and will not impede competition beyond the one year PoP, 23 September 2018 through 22 September 2019, as it will no longer be needed.

XII. Certification by the Contracting Officer.

As evidenced by my signature above, I have determined this document to be both accurate and complete to the best

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XIII. Certification by the technical/requirements personnel.

As evidenced by my (our) signature(s) above, I (we) certify that any supporting data contained herein, which is my (our) responsibility, is both accurate and complete.