EMSO-CFT LSJ_Signed.pdf

Control No. 2020-WHS-0059

JUSTIFICATION FOR LIMITED SOURCE JUSTIFICATION (LSJ)

UNDER FEDRAL ACQUISITION REGULATION SUBPART 8.4

1. AGENCY AND CONTRACTING ACTIVITY: The Department of Defense, Washington Headquarters Services, Acquisition Directorate, Enterprise Office of the Secretary of Defense.

2. DESCRIPTION OF ACTION: This action is to award a new firm fixed priced contract to

Deloitte Consulting to support The Office of the Secretary of Defense, Electromagnetic Spectrum Operations Cross Functional Team (EMSO CFT) requirement. The new contract will be funded with FY20 Operations & Maintenance funds.

3. DESCRIPTION OF SUPPLIES/SERVICES: The purpose of this contract is to have the contractor to conduct an in-depth workforce study of current DoD’s Electromagnetic Spectrum Enterprise (EMSE). The workforce study will take the following 4-phased approach:

• Phase 1 - Identify EMS workforce planning process;

• Phase 2 - Design EMS enterprise infrastructure;

• Phase 3 - Develop and sustain EMS professionals; and

• Phase 4 - Implement a 5-year work plan to address evolving trends and challenges.

The requirement is for a total of five (5) FTEs for a 12-month base period, a 12-month option and a 6-month option.

Performance Period

Performance Period Dates Amount

Base Period 03/20/2020 – 03/19/2021 $ 1,222,500.00 Option 1 03/20/2021 – 03/19/2022 $ 1,252,470.00 Option 2 03/20/2022 – 09/19/2022 $ 638,459.70 Total $ 3,113,429.70

4. CIRCUMSTANCES JUSTIFYING LIMITED SOURCES. In accordance with FAR 8.405- 6(a)(1)(i)(B), only one source is capable of providing the supplies or services required at the level of quality required because the supplies or services are unique or highly specialized.

In the National Defense Authorization Act for Fiscal Year 2019, which was signed into law in August 2018, the Secretary of Defense (SECDEF) was directed to develop, integrate and enhance the electronic warfare mission area and the conduct of joint electromagnetic spectrum operations

ACQUISITION

DIRECTORATE

DEPARTMENT OF DEFENSE

WASHINGTON HEADQUARTERS SERVICES

4800 MARK CENTER DRIVE

ALEXANDRIA, VA 22350-2900

across DoD. In 2019, the SECDEF directed the Department to create the EMSO CFT to organize and plan an EMS workforce.

Central to the CFT’s initial success is developing an enterprise workforce study that scopes the EMS ecosystem; assess skillsets and tradecraft requirements and gaps at the DoD level, operations, training, development, and retention by the Services and DoD Components to building an EMS workforce. The support that will be provided by Deloitte is specialized because EMSO CFT is creating something that does not currently exist. The team is integrating Spectrum Management, Electronic Warfare, Cyber, Space, Communications, Intelligence, Science and Technology communities to create an EMS enterprise. The definitions and specialties are being formalized and Deloitte has assisted in that formalization process.

Deloitte has insight into this requirement that is both unique and specialized. As a subcontractor under GSA contract GSQ0016AJ0017, Deloitte provided services related to this requirement for EMSO CFT – specifically, Subject Matter Expert (SME) support for the workforce initiative. In doing so, Deloitte helped to establish a framework for fully assessing the current state in order to organize the EMS. This is the framework that will be used for the present requirement. Deloitte has the institutional knowledge and skill set to support the broad scope of EMS at the governance, sustainment, operational and production layers critical for the Department to achieve EMS superiority.

The EMSO CFT is planned to be in existence for a total of 3 years. EMSO CFT is already into 9 months of the team’s existence. There are critical milestones that need to be met in order to complete the EMSO CFT mission. A critical January meeting to complete a Program Budget Review (PBR) was postponed due to delays in obtaining contractor support. A recent milestone, the 2020 West Spectrum Summit was initially scheduled for mid-February but rescheduled for March. The upcoming EMSO Workforce Summit scheduled for late March is also at risk of being postponed. These milestones are all critical for EMSO’s preparation for the National Defense Authorization Act 1052 Update which is scheduled for May 1, 2020. The Vice Chairman Joint Chief of Staff will have to report to Congress on the EMSO CFT progress. The May 1st report includes the current status of EMS Enterprise with an accounting of EMS professionals DoD wide. The services to be provided by Deloitte will provide Congress with the sufficient data required. If the requirement was to be competed at this time, there would be substantial duplication of cost of $3 million to DoD that is not expected to be recovered through competition. Furthermore, DoD would experience unacceptable delays of 4 months in fulfilling EMSO CFT critical milestones and meeting the deadlines of the Joint Chief of Staff to complete their assessment.

5. BEST VALUE DETERMINATION: The Contracting Officer hereby determines that this action represents the best value to the Government in that the Government has received satisfactory performance in the past from Deloitte. The vendor has experience and knowledge that is not only vast, but specific to this time-sensitive and high-visibility requirement that will allow the EMSO CFT to accomplish all phases of the Workforce Initiative. The Government will conduct a full price analysis via market research, historical data and comparison to the Independent Government Cost Estimate prior to contract award.

6. MARKET RESEARCH: A Sources Sought Notice was posted to beta.SAM.gov on 16 January

2020. Responses were received on 22 January 2020. Four vendors responded to the notice. See the chart below:

Vendor Socio-economic Status Deloitte Large Applied Technology, Inc. Small True IA, LLC SDVOSB Alion Science Large

The program office provided their review of the four vendors. The summary of the review can be found below:

Deloitte presented a thorough strategic mindset for EMS operations across the department.

Deloitte was knowledgeable of EMS integration tenets for building an enterprise that considers operations, governance, technology and human capital. They also provided a detailed plan and method for how they would meet each timeline presented.

Applied Technology, Inc (ATI) provided their understanding of the EMS operations background and they provided a strong focus on tactical Navycentric Electronic Warfare. ATI discussed technical solutions and offered hard science; however, this effort requires a broader scope for EMS at the governance, sustainment, operational and production layers. In regards to meeting the timeline presented, ATI provided examples of past performances but this did not specify or give an idea of how they would meet our timelines.

True IA’s introduction seemed to capture and summarize the requirement from the PWS.

However, it appears that they intend on recruiting from companies that do not have the appropriate background for this requirement. They also did not specify how they would meet the timelines and it doesn’t appear they have the resources available now as they mention “rapidly recruit.”

Alion Science was able to thoroughly describe their knowledge of modeling and simulation for EMS dependent systems. They presented a strategic level mindset for spectrum management issues, but EMSO integration knowledge was lacking. Alion simply stated they can support and attend the meetings mentioned but they did not specify how they would meet those timelines.

Based on the responses received, the Government has determined that Deloitte has vast experience and knowledge of the EMSO CFT requirements to fully support and meet the tight timeline presented. Deloitte understands the totality of personnel required to staff the EMS Enterprise. They assisted in codifying the EMS complement construct. They have a thorough understanding of the integrated functions of EMS members that include activities to exploit, protect, attack and manage access, use, and maneuver within and through the EMS. They also understand how to assist in writing policy to develop, field and sustain EMS-dependent capabilities, systems and networks that enable EMSO. We’ve thoroughly assessed related intelligence activities and other functions that enable future EMS operations and project power in and through the EMS. This is what’s required to complete this study. Many vendors consider Electronic Warfare or Spectrum Management as EMSO, but it is more inclusive. We defined this early on in November and have been working towards formally introducing the new concept to the Department. This will be the standard. Deloitte has vast experience because they assisted in the development of the terms.

7. OTHER SUPPORTING FACTS: N/A

8. ACTIONS TO REMOVE OR OVERCOME ANY BARRIERS THAT LEAD TO THE

RESTRICTED CONSIDERATION BEFORE ANY SUBSEQUENT ACQUISITION FOR

THE SUPPLIES OR SERVICES IS MADE: Based on the market research conducted, there would not be a follow-on requirement at this time.

(a) Efforts to obtain competition: The EMSO CFT is a temporary and relatively short-term effort required by the SECDEF. The team has been assigned a standup time of only three years. After review, it was determined that there would not be a logical break within services to compete this effort within this three year timeframe.

(b) Actions to increase competition: Market research will continue to be conducted to ensure effective competition in the event that a follow-on effort is required. At this time, a follow-on is not anticipated.

9. If this acquisition is for new work as a logical follow-on to on original Federal Supply Schedule (FSS), was the original order was placed in accordance with the applicable FSS ordering procedures?

☒Yes, the original order was issued using the competitive procedures.

☐No, the original order was issued under a sole-source or limited-sources procedures.

CERTIFICATION

I, hereby, certify that the supporting data under my cognizance included in this justification are accurate and complete to the best of my knowledge and belief.

CDR Shelly V. Frank, EMSO CFT Program Office Date

Kellie E. Buck, Contracting Officer Date

APPROVAL

Based on the foregoing, this justification is, hereby, approved.

David H. Kao, Competition Advocate Date

Digitally signed by

BUCK.KELLIE.E.1060833962

Date: 2020.03.17 16:34:01 -04'00'

KAO.DAVID.HOBERT.1112172870 Digitally signed by KAO.DAVID.HOBERT.1112172870 Date: 2020.03.17 17:51:38 -04'00'

Signature:

Email:

Shelly V. Frank (Mar 17, 2020)

Shelly V. Frank stadeliveryllc@gmail.com https://secure.na2.echosign.com/verifier?tx=CBJCHBCAABAA26Wa1irgj-uhjvzIKlbBvjdd3rylhqB0