Enterprise Fleet Mix_Limited Source Just_Final_Redact.pdf

Last Updated 12/04/24 1

Limited-Sources Justification

Pursuant to the Multiple Award Schedule Program (as authorized by 40 U.S.C. § 501), this justification is prepared in accordance with the requirements of Federal Acquisition Regulation (FAR) 8.405-6(c) for the use of sources limited to fewer than those required in FAR 8.405-2. The circumstance justifying restriction is FAR 8.405-6(a)(1)(i)(B), the use of this authority is justified by the following facts and rational under FAR 8.405-6 as follows:

(1) Agency and Contracting Activity.

The Department of Homeland Security (DHS), United States Coast Guard (USCG), Office of Program Analysis and Evaluation (CG-PAE) proposes to enter into an order on the basis of a limited-sources justification.

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

(a) Nature of action: USCG intends to limit competition to one source in accordance with FAR 8.405-6(a)(1)(i)(B).

(b) Name and address of the contractor: Systems Planning & Analysis (SPA), 2001 N.

Beauregard Street, Alexandria, VA 22311

(c) Contract type: Firm-Fixed-Price Task Order

(d) Estimated total value (including options): Provide breakdown as shown below

Base Year (15 September 2025 - 14 September 2026): $1,804,965.40 Option Year 1 (15 September 2026 - 14 September 2027): $500.019.12 Option Year 2 (15 September 2027 - 14 September 2028): $515,026.08 Option Year 3 (15 September 2028 - 14 September 2029): $530,470.97 Option Year 4 (15 September 2029 - 14 September 2030): $546,387.63 Total: $3,176,869.20

(e) Type of funding: Research, Development, Test, and Evaluation (RDT&E)

(f) Year of funding: Fiscal Year: FY 2025

(g) Solicitation number: GS-00F-186CA / 70Z02325QPAE00010

Background information about the requirement: The Vice Commandant of the Coast Guard, through the Enterprise Fleet Mix and Design and Analyses Initiative, directed the Service to renew its strategic acquisition documents by the end of calendar year 2028, complete a near fleet analysis by June 2026, and recapitalize its Enterprise Fleet Modelling and Simulation capabilities by the end of the 2030. Completions of these tasks and their associated deliverables are critical to the Service’s strategic planning, budgetary, and acquisition efforts to obtain, operate, maintain, and recapitalize its fleet in a timely and cost-effective manner.

Last Updated 12/04/24 2

This contract’s purpose is to start upgrading the Coast Guard Maritime Operational Effectiveness Simulation (CGMOES). The Coast Guard uses CGMOES as its near-term modelling simulation tool for fleet design and development. The Service has not continuously upgraded CGMOES. Therefore, software upgrades are needed for the USCG to conduct fleet mix analyses including new types of operational capabilities and concepts of operations. The Service will not be able to make fleet design and developments decision that are responsive to DHS and Congressional leaders without upgrading CGMOES.

(3) Description of Supplies/Services.

This task order’s scope is to obtain the technical support necessary to (1) conduct Campaign Analysis at unclassified level and (2) update CGMOES software so that it is fully capable of conducting and supporting future campaign analyses and design efforts for potential programs of records. The contractor shall provide:

• Modeling and simulation in support of USCG campaign analysis,

• Operations research analysis in support of USCG campaign analysis,

• Software development capabilities necessary to make CGMOES fully capable of supporting the Service’s future campaign design M&S requirements; and

• Technical support necessary for the USCG to maintain and sustain an upgraded

CGMOES.

(4) Identification of the justification and the rationale.

This action, if approved 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.

SPA is the only vendor with the legal rights over the software, capabilities, and experience to meet this requirement at a reasonable cost to the government. The CG’s CG-MOES system uses the Navy’s NSS software program to perform its core functions. Successful performance of this contract requires significant expertise in two unique software packages, the Navy’s Naval Simulation System (NSS) and the CG’s CG-MOES, and an in-depth understanding of interdependencies with each other.

Each individual CG-MOES upgrade will require extensive analysis, programing, testing, and documentation to determine if the upgrade is feasible given the inter-relationships between NSS and CG-MOES and a determination that the upgrade does not compromises CG-MOES system stability.

This work could be a lower skilled workforce but doing so would require significantly more personnel, labor hours, and cost to successfully meet the requirement in one year period of performance.

Metron has been the sole developer of the NSS since its inception as a U.S. Navy Program of Record in 1996. NSS is the premier Naval and maritime simulation system in active use today.

Beginning in 2013, Metron, led the design, implementation, testing, and technical support efforts for CGMOES 3.0. Metron conducted this work as a subcontractor to Systems Planning and Analysis, Inc. (SPA) under the USCG Research and Development Center (RDC) Operations Research and Mathematical Modeling Support Services (ORMMSS) contract (HSCG32-12-D-R00003).

Last Updated 12/04/24 3

Metron made extensive modifications to NSS to represent USCG platforms, systems, operations, and missions, as well as to conform to the recently updated USCG Modeling and Simulation Master Plan (MSMP) and Modeled Concept of Operations (CONOPS) documents. The resulting software, referred to as CGMOES 3.0, reached initial operational capability (IOC) in 2015.

Metron provided extensive software and analytic support to the RDC in the execution of two Fleet Mix Analysis (FMA) studies using this software (GS-00F--166DA/ 70Z02318FMDW06200).

Metron assisted with CGMOES data input, scenario development, testing, validation, study execution, and metrics processing in addition to providing numerous modifications and enhancements to the CGMOES software.

In the fall of 2022, Metron sold the Operations Research and Cyber Analysis (ORCA) division to Systems Planning and Analysis (SPA). Both the NSS/CGMOES software and the software support staff were transferred to SPA.

Based on the above, SPA is the only vendor with the rights over the required software and the experience with CG-MOES to ensure the requirements are met.

(5) Determination by the ordering activity Contracting Officer that the anticipated order represents the best value consistent with 8.404(d).

The Contracting Officer has determined that issuing the proposed task order to SPA represents the best value and will result in the lowest overall cost alternative, considering price and administrative costs, to meet the Government’s needs. The ordering activity considered the following:

a) GSA has already determined the prices of services under the Multiple Award Schedule to be fair and reasonable.

b) The Contracting Officer will request a price reduction in accordance with FAR 8.405-4.

(6) A description of the market research conducted among schedule holders and the results, or a statement of the reason market research was not conducted.

No additional efforts were undertaken as SPA is the only source with the rights to the software.

(7) Any other facts supporting the justification.

Not Applicable.

(8) A statement of actions, if any, the agency may take to remove or overcome any barriers that preclude the agency from meeting the requirements of 8.405-1 and 8.405-2 before any subsequent acquisition for the supplies or services is made.

The Coast Guard has limited capability to overcome the situation in which SPA is the only source that can currently perform this requirement. SPA has the sole rights to the NSS which is provides underlying software code for CG-MOE’s operation. It would be cost-prohibitive for the Coast Guard to obtain these rights and would undermine the cost-savings it achieves from the U.S Navy’s funding NSS’s continued development.

Last Updated 12/04/24 4

However, the Vice Commandant of the U.S. Coast Guard (VCG) through the Enterprise Fleet Mix & Fleet Design Initiative (see VCG Memo 5280, 11/12/2024, Coast Guard Enterprise Fleet Mix and Design Analyses Charter), directed an acquisition which may remove barriers to future competition for CG Fleeting Modeling requirements. Specifically, the VCG directed that by 2030 that the CG develop a state of art Fleet Modelling and Simulation capabilities necessary to provide campaign analyses far into the future. CG-9 is the champion of this future effort and is inthe process of conducting the market research necessary for the Service to select an acquisition strategy.

(9) Contracting Officer’s Certification.

I certify that the data supporting the recommended use of other than full and open competition is accurate and complete to the best of my knowledge and belief.

William E. Lewis Date Contracting Officer

(10) Technical/Requirements Personnel Certification.

I certify that this requirement meets the Government’s minimum need and that the supporting data, which forms a basis for the justification, is accurate and complete.

Marc A. Thibault Date Technical Representative/COR

Approval:

Maria L. Kersey-Robinson Date Procuring Activity Advocate for Competition (PAAC)