ETFO HDTRA120F0003v4 Redacted.pdf

CUI

Defense Threat Reduction Agency 8725 John J. Kingman Road, Stop 6201

Fort Belvoir, VA 22060-6201

EXCEPTION TO FAIR OPPORTUNITY JUSTIFICATION

1. Nature and/or Description of the Action

The Defense Threat Reduction Agency contracting activity proposes to procure, without requesting proposals from all 5 of the contractors on the Indefinite Delivery / Indefinite Quantity (ID/IQ) multiple award contracts entitled “ITSS Service Design Support”, the continuation of an effort entitled “Enhanced Consequence Analysis” (ECA) under Task Order HDTRA1-20-F-0003 of contract HDTRA1-19-D-0002 where Booz Allen Hamilton (BAH) will be the only contractor solicited to provide the required technical effort.

2. Description of the Supplies/Services Required

The description of the extension to this task order is to provide continued Enhanced Consequence Analysis (ECA) support services to DTRA’s Nuclear Technology Effects Division (RD-NTE). The purpose of ECA is to support nuclear planning and decision-making by providing and maintaining a delivery platform for nuclear weapon effects (NWE) modeling and simulation (M&S) capabilities to be integrated into end-user networks. Established end-users include United States Strategic Command (USSTRATCOM), the United Kingdom (UK) Ministry of Defence (MoD), and the US Mission at North Atlantic Treaty Organization (NATO) Supreme Headquarters Allied Powers Europe (SHAPE).

The current task order Period of Performance (PoP) inclusive of all options is November 27, 2019 to November 26, 2024. This modification will extend the task order end date through November 26, 2025 for a total modified PoP of 6 years. DTRA’s Head of the Contracting Activity (HCA) approved a PoP beyond the standard five-year limitation on October 25, 2024.

The estimated dollar value of the extension is $3.4M. The total potential value of the task order once the extension is applied will be $21,804,063.36. This work will be covered under one CLIN with a PoP starting on November 27, 2024 and concluding November 26, 2025. The Enhanced Consequence Analysis (ECA) Statement of Work (SOW) for this extension remains unchanged from the original SOW for Task Order HDTRA120F0003 and is filed in Tab E of the applicable contract file.

3. Exception to Fair Opportunity

The statutory authority for this non-competitive modification action is: FAR 16.505(b)(2)(i)(C);

The ID/IQ task order must be issued on a sole-source basis in the interest of economy and efficiency as a logical follow-on to a task order already issued under the contract, provided that all awardees were given a fair opportunity to be considered for the original order.

4. Justification Rationale

This modification to an existing task order will be placed with the incumbent contractor (BAH) to continue and augment the program/service currently being performed. BAH’s unique technical approach allows the ECA Program to quickly identify stakeholder requirements, develop a software framework to address those requirements, and deliver a solution for all customers. To execute this approach, BAH has cultivated a team of performers that are uniquely skilled in critical facets of the Enhanced Consequence Analysis requirement. BAH currently develops and maintains all skills sets and tools stated under the current SOW. At the time of task order award, BAH’s technical approach was deemed superior to that of other competitors. Another performer capable of fulfilling this need is not available at this time, and the time, effort, and expenditure required to transition this effort to an outside performer would be extensive and detrimental to the critical need this program is intended to support.

Under FAR 16.505(b)(2)(i)(C), the rationale for a follow-on procurement to the initial order is logical since the higher-level DoD requirements continue to be valid and are within scope of the original statement of work. It benefits the Government for this particular contractor, BAH, to continue this work for the next 12 months. This is the first time this exception has been used on this effort and the intention of the Government is to competitively solicit and award the follow-on requirement during the extended TO POP, which concludes on November 26, 2025.

Permitting BAH to non-competitively work on this requirement will enable Enhanced Consequence Analysis to be unimpeded during the extension period, which will allow subsequent support to be more efficiently competed during that period.

BAH is the only company capable of meeting the required effort in a timely and efficient manner in the near term. If this action was awarded to another company, it would entail substantial duplication of cost and schedule. The Independent Government Cost Estimate (IGCE) to award this requirement to a new company is $4.2M per year and it would take a new performer an estimated 2 years to obtain the level of expertise of BAH. This 2 year estimate is based on the learning curve for new personnel which would require an increase in training, and appropriate technical hardware/software skills. Transitioning to a new performer would result in substantial delays and increased costs due to the loss of existing expertise with the code base and deep understanding of the customer's specific needs. The new performer would face a significant learning curve, which would require additional time and personnel to gain proficiency in the current system architecture, development environment, and operational protocols. Furthermore, all ongoing development, testing, and integration efforts related to new capabilities would be interrupted, leading to a potential reallocation of resources and extensive rework to reestablish the progress already made. This disruption could compromise project timelines and affect the overall quality of deliverables. The BAH ECA performers are uniquely skilled and uniquely positioned to fulfill a critical need for the DoD. The BAH personnel are highly educated, possessing degrees in nuclear science, engineering, and physics, and are considered experts in their respective fields. They possess a depth of institutional knowledge.

In addition, BAH personnel have already established familiarity with key stakeholders, partners, customers, and vendors within this requirement allowing for efficiencies in terms of time and cost. Finally, BAH currently develops and maintains all skills sets and tools stated under the original SOW.

Therefore, DTRA could be expected to spend an estimated minimum of $8.4M over an estimated minimum of 2 years to obtain the level of support that is immediately available from BAH at a cost of$3.4M for this 12-month task order extension that will be effective from November 27, 2024 through November 26, 2025.

This interuption in ECA support would have serious operational consequences for DTRA customers at USSTRATCOM and its strategic international partnerships. This would include variety of risks.

Futhermore, there are present technical issues and continuing coordination efforts in need of urgent resolution to meet operational requirements. These issues include-

DTRA's Combating Weapons of Mass Destruction and Research and Development Operations Contracts Division (AL-ACS) in conjunction with RD-NTE began active planning and preparation to initiate a follow-on competition to the ECA requirement under the ITSS Service

Design Support Indefinite Delivery Indefinite Quantity (ID/IQ) well in advance of the ultimate completion date of November 26, 2024. These efforts began with an Initial Strategy Session (ISS) held on February 6, 2024.

Over the subsequent months, requirements documents including the Statement of Work (SOW), Independent Government Cost Estimate (IGCE), and evaluation criteria were established and refined. This time was also used to coordinate with contracting Points of Contact (POCs) more familiar with the current ECA award, and DTRA’s Nuclear Enterprise and Information Technology Contracts Division (AL-ACN) who awarded and administers the ITSS Service Design Support ID/IQ. On July 17, 2024, a Request for Information was released to all current ITSS IDIQ holders. Ultimately, two responses were received. This was the basis of the approved Market Research Memo. On September 13, 2024, Request for Proposals (RFP) #HDTRA124R0106 was issued to all current offerors on the DTRA ITSS IDIQ with the intent to award task order featuring a 24-month base and three 12-month option periods for a total of 60 months at a total estimated cost of $17 million. On September 25, 2024, the Contracting Officer, and Contract Specialist were notified by AL-ACN that it could not support the ECA requirement due to insufficient ceiling on the ITSS IDIQ. AL-ACN will utilize most of the ITSS IDIQ ceiling for an unanticipated competing requirement on their division. Since AL-ACN administers this IDIQ, their requirement was given priority over ECA. The AL-ACN Contracting Officer stated $3.4 million in ceiling would be available for the ECA requirement.

This bridge action is needed to allow sufficient time to transition ECA to the CWMD IDIQ without a break in service.

Based on the timing of the ceiling notification from ACN, adequate timing did not exist to conduct market research, issue an RFP, conduct negotiations, and award a competitive task order under the CWMD IDIQ.

The bridge period of performance of 12-months was calculated based on the time needed to sufficiently transition ECA to the CWMD IDIQ. This includes time to coordinate the scheduling with the numerous task orders all being competed under the new IDIQ.

5. Market Research

The Agency has conducted extensive industry engagement on this requirement via Request for Information (RFI) which was sent to all current ITSS ID/IQ holders on July 17,2024. Of the four offerors contacted, two submissions were received in response to the RFI: these being from the incumbent BAH, and Leidos. Both were found to be sources capable of satisfying the ECA requirement.

In an effort to promote competition and transparency with industry, the Agency will add the ECA requirement to an upcoming CWMD ID/IQ industry day prior to releasing an RFI to all ID/IQ holders. Through these outreach activities, the Agency will gain additional awareness of marketplace capabilities as they relate to this requirement and similarly, industry will become aware of the Agency’s needs.

Any additional market research activities specific to task order HDTRA120F0003 over and above the market research already conducted would not add value and would not alter the exception to fair opportunity approach discussed elsewhere in this document.

6. Determination of Fair and Reasonable Cost

This requirement's anticipated cost will be reviewed in accordance with cost analysis techniques found in FAR 15.404-l(c) in order for the contracting officer to determine that it will be fair and reasonable. Additionally, cost analysis was perfo1med during award of the current task order and will se1ve as a basis for this 12-month extension. This extension does not alter the Statement of Work or labor mix, and therefore it can be reasonably expected that there will be no major changes in cost other than those associated with escalation and updated indirect rates.

7. Other Supporting Facts

This task order extension would fit entirely within the current ordering period of the ITSS ID/IQ which has an expiration date of September 17, 2028. AL-ACN confirmed that an estimated $3.4 million in ceiling exists on the IT ID/IQ for this extension.

8. Subsequent Actions

Over the next 12 months, the ECA requirement will transition to and be competed under the CWMD ID/IQ. Full and open competition of the ECA requirement under the CWMD ID/IQ would likely result in more competition. The CWMD ID/IQ offers a larger pool of potential offerors including companies that have had experience on the ECA requirement but are not prime contractors on the ITSS ID/IQ. Additionally, this transition does not exclude Leidos, who previously showed interest in the ECA requirement or the current incumbent, BAH, both of which are included in the CWMD offeror pool.

Technical Certification

I certify that the data and info1mation forming the basis for this justification are accurate and complete to the best of my knowledge and belief.

PHILLIPS.LQGANJA Digitally signed by

PHILLIPS.LOGANJAMES.1122844460

MES.1122844460 Date: 2024.11.2113:58:43-0S'OO'

Major Logan Phillips Contracting Officers Representative

Contracting Officer Certification and Determination

Date

I ce1iify that this justification is accurate and complete to the best of my knowledge and belief. Additionally, I dete1mine that the order represents the best value consistent with Federal Acquisition Regulations.

CHASE.MARY.K.10 Digitally signed by

CHASE.MARY.K.1032109060

32109060 Date: 2024.11.21 13:38:30 -05'00' Mary Kay Chase Date Contracting Officer

General Counsel Coordination

This justification is legally sufficient.

RICHARDSON.JUDITH.L.1Q Digitallysigned by

RICHARDSON.JUDITH.L.1081829302

81829302 Date: 2024.11.21 14:58:00-05'00'

Judith Richardson Date Associate General Counsel

Approval

Based on the above justification, I hereby approve accomplishment of this acquisition by means of exception to fair opportunity.

Digitally signed by

BRAXTON.ELIZABETH.R.1231040222

Date:2024.11.2115:43:19 -05'00'

Elizabeth Braxton Competition Advocate

Date