EFO - DPAS - Redacted.pdf

Source Selection Information See FAR 2.102 and 3.104

3. DESCRIPTION OF SUPPLIES OR SERVICES REQUIRED TO MEET THE

AGENCY’S NEED, INCLUDING AN ESTIMATED DOLLAR AMOUNT:

The DPAS Task Order provides the Department of Defense (DoD) support for the Defense Property Accountability System, which is the Accountable Property System of Record (APSR) for over 23 Defense Agencies and the 4 Defense Services. The DPAS Task Order provides contractor support in the areas of requirements analysis and documentation, systems engineering, data migration, and testing and deployment support for DPAS releases. The task order also provides customer support personnel consisting of a 24/7 help desk, and personnel to conduct classroom training, develop electronic course material, and provide assistance with the implementation of the system, including system setup and establishing user accounts and data migration.

The Program Management Office (PMO), through contract support, provides the DPAS user community training materials via a Learning Management System (Moodle), data conversion from legacy systems, onsite support, and 24/7 help desk support. The functional proponent for the DPAS System is the Deputy Assistant Secretary of Defense (DASD) for Logistics, typically represented by the Director for the Equipment Office (ODASD (Log)/Equipment). To support the DoD IT Reform Initiative, the DASD for Logistics has tasked DPAS with eliminating systems performing duplicative functions and standardizing business processes across the Department.

This requires a diverse range of knowledge of the Defense Agencies and Services to understand their Policies and Procedures and provide a system that functions in a similar manner for everyone, while meeting the Policies of each agency or service.

Task 13 of the DPAS Task Order, DPAS Sustainment, identifies the need for working with the Defense Information Systems Agency (DISA) for software maintenance and software support.

However, DLA is now requiring DPAS to move from DISA to the Azure Cloud Environment to lower sustainment costs. Contractor support will still be required to work with DISA as DLA migrates to the Cloud. DLA’s decision to move rapidly to the Cloud could not have been identified at the time of solicitation and award.

DPAS requires the internal development environments be properly aligned to deploy production and stage (test) releases to DLA Azure Cloud Environments. The proposed modification will add Task 18 (Azure Cloud Migration) and Task 19 (Azure Cloud Operations and Sustainment) to the DPAS Task Order to permit migration to the Cloud and support the operations and sustainment of the Cloud environment.

In order to be in compliance with DLA’s migration schedule, the PMO has requested that migration to the Cloud be completed by 8/31/2021, and that operations and sustainment begin in Option Year 1 (start date of 9/1/2021) of the contract. The tasks listed below are to be completed to ensure a smooth migration from DISA to the Azure Cloud Environment. Migration to the Cloud and the operating/sustaining tasks will require the expertise of Leidos to ensure a timely transition; it is essential that DLA Leadership’s 8/31/2021 deadline be met. Leidos will be required to perform the following:

Task 18: Azure Cloud Migration

Conduct assessment of current and future production and stage (testing) environment requirements

Conduct assessment of DLA Azure USGov Platform as a Service (PaaS) offerings

Submit Automated Information Systems Inventory Spreadsheet (AISIS) to DL&H PMO based on infrastructure assessment and PaaS offerings for migration approval

Submit Enterprise Change Request (ECR) to J64CM based on approved AISIS Coordinate Cloud migration preparation requirements:

o Identify and request URLs o Submit and implement RWP/WAF o Submit updated PPSM o Submit and Implement Firewall changes o Submit privileged account requests in AMPS o Submit Form 2875 for Service (Machine/Process) Accounts

Configure Database Coordinate Application migration o Verify and install specialized application software o Install Application and implement appropriate STIGs and log monitoring Migrate Application Data Test and Fix Application Conduct Level 1 Cybersecurity Assessment (LCA) Checklist Conduct cutover from DISA data center to DLA Azure cloud Achieve Initial Operating Capability (IOC) Achieve Final Operating Capability (FOC)

Task 19: Azure Cloud Operations and Sustainment

Manage operations and sustainment of DPAS in DLA Azure GovCloud Environments, including application analysis and refactoring to leverage native Cloud-based Services.

Implement a compliant Change Management process that aligns with governance and security requirements in support of baseline management.

Implement a Knowledge Management capability that provides relevant, timely, and accurate information to DLA PMO staff and other stakeholders relating to changed services within the supported baseline(s).

Implement a Service Validation & Test capability that aligns with the SecDevOps Agile development approach and can be independently validated and tested by the Government for new or change to the environment(s). The contractor shall ensure that new or change supports stakeholder requirements, including the agreed service levels.

Implement a Release and Deployment Management capability that manages the introduction of approved changes into the DLA Azure GovCloud Environments and support the instantiation of agile DevOps processes supported by automation.

Implement a Service Asset & Configuration Management capability that provides a holistic Configuration Management (CM) process that ensures that all items under CM purview (documents, technical and software baselines, configurations, etc.) are controlled and audited in an agile methodology. The contractor shall instantiate capabilities to continually audit the baseline via automation and alerting and provide actionable notification of baseline changes.

Maintain applicable code and artifact repositories.

At a high level, the contractor shall oversee all activities to ensure successful migration and refactoring. Services to the Government shall include Program Management, Systems Integration Technical Integration, Cloud Platform hosting (Azure), and project planning to ensure successful sustainment of DPAS Cloud environment to include:

Financial Management - Develop, monitor, and control overall programmatic budgeting using Government processes and procedures. Provide insight and visibility into labor, travel, ODC, and cloud environment costs.

Risk and Opportunity Management - Provide risk and opportunity assessments for program level planning and execution.

Project Planning and Execution. The activities required to plan and execute discrete projects as directed by the Government; Projects may or may not be performed in an Agile construct but will cover all project management phases (i.e., Initiation, Planning, Execution, Control & Monitoring, and Closure).

Communication Management - Continue the communications "Battle Rhythm" and meeting structure that supports DLA Cloud management processes.

Program Management Review - During the Period of Performance (PoP), plan for more frequent Program Management Reviews with the Government as deemed necessary by the Program Office.

Status Reporting - Conduct status reporting comprised of periodic heading (status) calls and meetings, as necessary with the DLA PMO and DLA J6L office.

The contractor shall provide the following specific Cloud sustainment support. The support shall be accomplished per Government direction and for surge purposes:

A. Technical Management & IT Operations Management

a. Update program documentation to reflect the differences in new Cloud environments and our existing DISA environment to include:

Access Control Policy System Security Concept of Operations (CONOPS) Configuration Management Supplemental Implementation Guide (SIG) Contingency Plan Disaster Recovery Plan Incident Response Plan Account Management Standard Operating Procedure (SOP) Hardware Inventory Software Inventory

b. Update all networking and firewall system architecture diagrams.

B. Environment Management

a. Modify our DISA based F5 and web application firewall authentication logic to work with DLA approved alternatives.

b. Update all Ports, Protocols, and Services Management (PPSM) and network firewall rules to match the new systems with the appropriate level of testing and communication between DPAS and external customers to minimize system downtime.

c. Update existing performance monitoring software to produce the same proactive monitoring we have achieved in the existing environment.

4. IDENTIFICATION OF THE EXCEPTION TO FAIR OPPORTUNITY (SEE FAR

16.505(a)(4) and FAR 16.505(b)(2)) AND THE SUPPORTING RATIONALE, INCLUDING

A DEMONSTRATION THAT THE PROPOSED CONTRACTOR’S UNIQUE

QUALIFICATIONS OR THE NATURE OF THE ACQUISITION REQUIRES USE OF

THE EXCEPTION CITED:

Pursuant to FAR 16.505(b)(2)(i)(C), an exception to the fair opportunity process is justified because this modification must be issued on a sole-source basis to Leidos, Inc. in the interest of economy and efficiency because it is a logical follow-on to the DPAS Task Order (SP4709-20- F-0078) already issued via the JETS IDIQ contract vehicle. As indicated in Section 2, all JETS IDIQ contract holders were provided fair opportunity to be considered for the original task order award.

The original DPAS requirement was solicited to all eligible JETS IDIQ contract holders on July 17, 2020. The task order was competitively awarded to Leidos under SP4709-20-F-0078. Task 18 and Task 19 of the proposed modification could not be reasonably identified at the time of solicitation and award because DLA Leadership’s push to migrate to a Cloud environment became a priority after the task order was awarded.

DPAS is an Accountable Property System of Record supporting the Defense Services and Agencies. The system provides the DoD with an IT solution that is compliant with Property Accountability, Fleet Management, Internal Use Software, Real Property, Retail Warehouse Management, and Financial Reporting. The DPAS Task Order provides unique, specialized services to the entire DoD community and is critical for all DPAS portfolio member agencies.

Failure of the DPAS application would result in an apparent loss of all catalogued property, and non-compliance with required auditability as required by Executive Orders (EOs) 13423 and 13514.

The DPAS Task Order, issued under FAR 16.5 procedures, supports 15 tasks responsible for the day-to-day operations and maintenance of the DPAS system. The current contractor provides support to maintain the interoperability of the following 30 interfaces:

System Name Business Enterprise Information System (BEIS) Defense Agencies Initiative (DAI) Defense Business Management System (DBMS) Defense Working Capital Fund Accounting System (DWAS) Enterprise Business Accounting System (EBAS) Electronic Business(eBIZ) Federal Financial Accounting Management Information System(FAMIS) General Accounting and Finance System - Reengineering(GAFS-R) Logistics Modernization Program (LMP) Standard Accounting, Budgeting and Reporting System(SABRS)

Army Equipment Material Master(AEMM) Federal Logistics Information System(FLIS) FLIS Portfolio Data Warehouse(FPDW) Joint Acquisition CBRN Knowledge System(JACKS) Technical Data Management System(TDMS) DLA Transaction Services Invoicing, Receipt, Acceptance, and Property Transfer (iRAPT) Item Unique Identification (IUID)

Global Combat Support System – Air Force (GCSS-AF) Data Services (DS) Logistics Support Activity (LOGSA) Aircraft Inventory and Readiness Reporting System (AIRRS) Federal Automated Statistical Tool(FAST)

Federal Equipment Management System(FEMS) Master Data Repository (MDR) Operational Data Store Enterprise (ODSE) OSD I&E/Business Enterprise Integration (BEI) Directorate

Unique Item Tracking (UIT) Distribution Standard System (DSS) DoD Activity Address File Defense Logistics Management Standards

(DLMS)

The scale of this endeavor results in ongoing system coding projects to maintain the disparate systems used by 23 supported Defense Agencies. The scope of the work performed under the DPAS Task Order is for Leidos to support the full software development lifecycle, to provide in-depth knowledge of the requirement development, system design, system performance, software programming, design and management of the database, and to deploy the software to all environments.

Task 5 of the DPAS Task Order requires Leidos to build and maintain a development environment. Leidos has built this environment in a Cloud environment. This experience has provided Leidos with the knowledge required to effectively and efficiently support building and supporting the test and production environments in the Cloud.

Task 6 of the DPAS Task Order requires Leidos to provide Information Assurance (IA) support to the DPAS PMO. In this role, Leidos personnel are keenly aware of the requirements to achieve and maintain an Authority to Operate (ATO). This knowledge of the DPAS process and features, and experience with the Risk Management Framework artifacts, will greatly assist Leidos in creating the artifacts and enabling DPAS to achieve the ATO in the new Cloud environment.

Task 3 of the DPAS Task Order requires Leidos to develop new software features. Under this task, Leidos has been directed to redesign DPAS to incorporate new technology in both the realm of software and hardware. Leidos is currently modifying the DPAS software to incorporate features that will enable DPAS to be containerized in a manner to take advantage of a Cloud environment. The knowledge gained by Leidos during its execution of Task 3 makes Leidos uniquely qualified to support the creation of the DPAS Cloud environment.

Task 13 of the DPAS Task Order identifies Leidos’ role in supporting DISA to ensure the DPAS production environment is operating correctly and as efficiently as possible. However, the production environment is now shifting from DISA to the Cloud. Tasks 18 and 19 are a logical follow-on to the DPAS Task Order and the support currently provided under Task 13 because the DPAS production environment is migrating to the Cloud and Leidos must continue to ensure efficiency in operations within this new production environment.

Tasks 18 and 19 under the proposed modification exceed the current day-to-day sustainment activities and represent a new DPAS development operation requiring individual project planning and budgeting. As noted above, the scope of the original task order requires support for the full software development lifecycle, in‐depth knowledge of requirement development, system design, system performance, software programming, design and management of the database, and deployment of the software to all environments. This follow-on modification is logically related to the scope of the DPAS Task Order because Tasks 18 and 19 likewise require Leidos to provide production support and to manage and sustain operations in the new production environment.

The original task order required Leidos to support the existing DISA environment; this modification will require Leidos to support the new Cloud environment. Leidos will be supporting both environments during the switch over. This contract modification for migration to the DLA Azure Cloud Environment and Operations/Sustainment of the Cloud environment is a logical follow-on to the initial DPAS Task Order because the current knowledge and expertise the contractor has in the existing DISA environment permits them to more effectively and efficiently build and migrate the DPAS system into the new Cloud environment, thereby providing cost savings to the Government. Notably, the hosting cost of DISA is more than double the cost of sustainment and operations in the Cloud.

Delayed execution of the migration will hamper DLA’s plan to migrate its programs within the approved schedule. Leidos is the only skilled contractor capable of providing the DPAS support services required by the Government in an efficient and timely manner necessary to prevent critical mission failure. As described above, Leidos has gained the knowledge and experience necessary to satisfy the current requirement in a timely manner through its execution of Tasks 3, 5, 6 and 13 of the DPAS Task Order.

Leidos is the only contractor capable of satisfying this requirement because of its cumulative position of having the institutional knowledge of the DPAS Program and its operating environment. The nature of the work in progress, Leidos’ institutional knowledge of the DPAS Program, and the intellectual capital Leidos has gained through performance of the DPAS Task

Order cannot be transferred to a new contractor without a substantial duplication of efforts, resulting in a duplication of costs, missed deliveries, and delays in obtaining efficiencies for the customer. Consequently, this modification must be issued to Leidos, Inc. on a sole-source basis in the interest of economy and efficiency because it is a logical follow-on to the DPAS Task Order.

5. A DETERMINATION BY THE CONTRACTING OFFICER THAT THE

ANTICIPATED COST TO THE GOVERNMENT WILL BE FAIR AND REASONABLE:

As the Contracting Officer, I hereby determine that the anticipated cost to the Government will be fair and reasonable. It is anticipated that the Government will use various price analysis techniques including, but not limited to: (1) Comparison of proposed prices to historical prices paid; (2) Comparison of proposed prices with independent Government cost estimates; and (3) Comparison of proposed prices obtained through market research for the same or similar services.

6. ANY OTHER FACTS SUPPORTING THE JUSTIFICATION:

N/A

7. A STATEMENT OF THE ACTIONS, IF ANY, THE AGENCY MAY TAKE TO

REMOVE OR OVERCOME ANY BARRIERS THAT LED TO THE EXCEPTION TO

FAIR OPPORUNITY BEFORE ANY SUBSEQUENT ACQUISITION FOR THE

SUPPLIES OR SERVICES IS MADE:

For the reasons stated above, DLA requires that this follow-on modification be issued on a sole-source basis to Leidos so that it may execute Tasks 18 and 19 of the DPAS Task Order by implementing a customized DPAS software environment for the Defense Information Systems Agency. DLA has exercised, and continues to exercise, competition as often as possible and is required to conduct ongoing reviews, both in private industry and in the Government. DLA uses a variety of vendors, manufacturers, and contracts/orders to fulfill its requirements and will continue its practice of surveying the market to ensure full and open competition to the maximum extent practicable. At the conclusion of the DPAS Task Order, all eligible JETS IDIQ contract holders will have fair opportunity to compete for the DPAS support services portfolio follow-on award.

The period of performance for the original DPAS Task Order award is as follows:

09/01/2020 - 08/31/2021 (Base) 09/01/2021 - 08/31/2022 (Option Period 1) 09/01/2022 - 08/31/2023 (Option Period 2)

8. CERTIFICATIONS:

Technical Certification: I hereby certify that the support data provided for which I am responsible and which form a basis for this justification are complete and accurate.

Requirements Certification: I hereby certify that the support data provided for which I am responsible and which form a basis for this justification are complete and accurate.

Contracting Certification: I hereby certify that this justification is accurate and complete to the best of my knowledge and belief.

In accordance with FAR 16.505(b)(2)(ii)(C)(2), I have determined that FAR 16.505(b)(2)(i)(C) applies and I approve this justification.