Eustis JA 2021_06_Redacted.pdf

Control No: Eustis-2021-6 Contractor: JANUS Research Group, LLC Program: AIMD Mission Support Services

Version – September 2018 FOR OFFICIAL USE ONLY

JUSTIFICATION REVIEW DOCUMENT

FAR PART 16 EXCEPTION TO FAIR OPPORTUNITY JUSTIFICATION

For Actions Exceeding the Simplified Acquisition Threshold (SAT)

Program/Equipment: Futures and Concepts Center (FCC), Architecture Integration and Management Division (AIMD), Fort Eustis, Virginia, requires contractor support to meet its mission requirement to develop, integrate, and validate architecture in support of Army Warfighting Capabilities and Experimentation. In addition, this effort includes support to the Army Capabilities and Architecture Integration and Development Environment (ArCADIE), which provides the tool sets, software licenses, data warehouse, and environment for architecture development and data storage for Army architecture.

Authority: 10 U.S.C. 2304c(b)(1) as implemented by FAR 16.505(b)(2)(i)(A) – The agency need for supplies or services is so urgent that providing a fair opportunity would result in unacceptable delays.

Amount: $12,737,845

Prepared by:

Contracting Officer:

Technical:

Requirements:

Reviews: I have reviewed this justification and find it adequate to support an exception to fair opportunity.

Program Manager:

Signature: _

Program: AIMD Mission Support Services

Version – September 2018 FOR OFFICIAL USE ONLY

Small Business Specialist, Small Business Program:

MICC Office of Counsel:

Contracting Officer:

Director, MICC – Ft Eustis:

Assistant Director, Small Business Program:

Signature:

Control No.: Eustis 2021-6

Program: AIMD Mission Support Services

Version – September 2018 FOR OFFICIAL USE ONLY

FAR PART 16 EXCEPTION TO FAIR OPPORTUNITY JUSTIFICATION

Under Multiple Award Indefinite Delivery Contracts

For Actions Exceeding the Simplified Acquisition Threshold

1. Contracting Activity: U.S. Army Mission and Installation Contracting Command (MICC), Fort Eustis, 705 Washington Avenue, Fort Eustis, Virginia 23604

2. Description of Action: The Futures and Concepts Center (FCC) requests a firm-fixed price (FFP) task order with JANUS Research Group, LLC (JANUS) located at 600 Ponder Place, Evans, GA 30809 for a base period of six (6) months and five (5) one-month option periods in order to maintain continuity of services. This bridge will cover the period between the end of the current services task order (W911S0-15-D- 0003 – W911S0-19-F-0241) and the beginning of new competitive Indefinite Delivery Indefinite Quantity (IDIQ) Multiple Award Task Order Contract (MATOC) planned for award in June 2021. The current MATOC expired on 18 June 2020. No new orders could be placed after this date and all existing order deliveries cannot exceed 18 December 2020. There are no options to exercise or additional extensions available. Therefore, to avoid unacceptable delays in service until the new MATOC is competitively awarded, a bridge task order is required. The funding for the bridge task order will be a combination of Fiscal Year (FY) 2021 Operations and Maintenance – Army (OMA) and FY 2021 Research, Development, Testing and Evaluation (RDTE). RDTE funding is used only for requirements that require writing code. An acquisition plan is not required because this procurement does not meet the threshold at Defense Federal Acquisition Regulation Supplement 207.103(d)(i)(B).

3. Description of Services: The purpose of this effort is to obtain the necessary architecture support services and expertise to enable Army Futures Command (AFC) and FCC to meet mission requirements to develop, integrate, and validate architecture in support of Army Warfighting Capabilities and Experimentation. In addition, this effort supports the Army Capabilities and Architecture Integration and Development Environment (ArCADIE), which provides the tool sets, software licenses, data warehouse, and environment for architecture development and data storage for Army architecture. All tasks necessary to successfully execute the AIMD Support Services mission are defined in the Performance Work Statement (PWS). Specific tasks include Program Management, Army Warfighter Assessment/Network Integration Evaluation and Joint Modernization Command Support; Enterprise Architecture Support Hub support; Joint Capabilities Integration Development System (JCIDS) and Capability Development and Integration Division (CDID) Support; ArCADIE Operation and Maintenance support; Army Architecture Data Steward Support; and Information Assurance/Cybersecurity support.

Period of Performance Base Period: 19 Dec 20 to 18 Jun 21 Value: $6,947,915.59 Option Period 1: 19 Jun 21 to 18 Jul 21 Value: $1,157,985.93 Option Period 2: 19 Jul 21 to 18 Aug 21 Value: $1,157,985.93 Option Period 3: 19 Aug 21 to 18 Sep 21 Value: $1,157,985.93 Option Period 4: 19 Sep 21 to 18 Oct 21 Value: $1,157,985.93 Option Period 5: 19 Oct 21 to 18 Nov 21 Value: $1,157,985.93

Total Value: $12,737,845.24

4. Authority Cited: This action is authorized under provisions of 10 U.S.C. 2304c(b)(1) as implemented by FAR 16.505(b)(2)(i)(A) – The agency need for supplies or services is so urgent that providing a fair opportunity would result in unacceptable delays.

5. Reason for Authority Cited:

a. The AIMD mission of providing oversight and administration management of concepts and capabilities assessments across all TRADOC domains (DOTMLPF) is critical to the accomplishment of Army modernization. The AIMD utilizes the services of JANUS Research Group, Inc. (JANUS) to ensure successful delivery of the AIMD’s mission requirements. JANUS provides the AIMD with the complex technical understanding of the AFC oversight and administration management of concepts and capabilities assessments required. As the incumbent, JANUS was awarded the current task order competing with all other IDIQ MATOC holders using fair opportunity procedures. JANUS was awarded the current task order because of its unique and highly specialized services required by the AIMD. The AIMD mission is highly leveraged with contractor support. AIMD non-military workforce consists of 11 government civilians and 85 JANUS contractor personnel. Because AIMD relies so heavily on JANUS support and since JANUS is the only source available to fulfill this urgent need without undue delay, the exception to fair opportunity under 10 U.S.C. 2304c(b)(1) applies.

Paragraphs 5.a.1) through 8) further elaborate on the needs of the AIMD and why JANUS is the only contractor capable of immediately providing these services during this interim period.

1) The new IDIQ MATOC (ref. Solicitation W911S0-19-R-0002) is not yet awarded due to delays caused by the changing and evolving mission of the FCC as well as changes in their internal personnel assigned to the re-compete of this requirement.

2) The planning for the new MATOC has been ongoing for at least two (2) years.

A procurement of this magnitude would take approximately two (2) years to complete under normal circumstances. During the last two (2) years, the procurement was encumbered due to the mandated transition of Army Capabilities Integration Center (ARCIC) to FCC that created turbulence in the timely development of the requirement.

The transition resulted in organizational changes in the Army Futures Command and personnel moves that contributed to delays as the new organization shifted personnel to new positions. The personnel new to the requirement process required time to become familiar with the requirement. Mandatory telework in 2020 also hampered progress of the MATOC award to a minor degree. The impact is that the new MATOC award will not be in place before the current task orders expire creating a lapse in critical services required by the agency.

3) There is insufficient time and resources available to award this bridge task order on a competitive basis without further delaying award of the follow-on contract.

The urgency resulted from the expiration of the ARCIC MATOC and the lack of success in awarding its replacement MATOC before expiration.

4) Until it is awarded, these vital services must continue without delay or lapse in service. The bridge requirement is necessary to facilitate the competitive award of the new MATOC anticipated in June 2021.

5) The required performance delivery schedule ensures the bridge requirement is only as long as necessary to award the new MATOC. The period of performance is 19 December 2020 through 18 June 2021. Additionally, there are five (5) one-month options included in the event the competitive MATOC is not awarded as projected. The full bridge performance delivery schedule is from 19 December 2020 until 18 November 2021.

6) JANUS is currently satisfying the Army’s mission for these complex services.

The skill sets required to develop architecture are not easily found in the business world and are deemed hard to fill. JANUS possesses these individuals and can continue performance under a new task order without a phase-in period. The bridge task order will prevent a break in service in the midst of JCIDS architecture development, which is a mission-critical action for the FCC. Multiple Army capability documents would be delayed. It is the requiring activity’s determination that a break in service prior to 1 March 2021 would introduce unacceptable risk to JCIDS document development and AITC Mission Thread development. In addition, all architects throughout the Army would be unable to access ArCADIE for architecture development and data storage. This is a temporary solution in order to avoid unnecessary risks until this requirement can be competed under the FCC MATOC.

7) The previous task order was competed among all three IDIQ MATOC holders.

JANUS provided a proposal that satisfied the Governments requirements and placed the least risk to the Government. Its technical approach, staffing and management approach, and the execution of the mission can be applied to this bridge contract to seamlessly and urgently provide this knowledge and expertise during the bridge support.

8) The AIMD’s workload requirements are subject to fluctuation. Thus, the contractor must be able to immediately manage these conditions and ensure that requirements can be supported without delay since providing a transition period will not be possible due to the current task order expiring on 18 December 2020. There are no other Government agencies buying these same services.

b. Alternatives

1) Suspended Operations. Suspending operations of the current services is not a viable alternative. This would result in, at a minimum, a significant disruption of architecture development to support JCIDS document development in FCC and AFC. It would delay numerous capability development documents being reviewed by the Army Requirements Oversight Council (AROC) and Joint Requirements Oversight Council (JROC), which will result in mission failure for critical FCC and AFC capability development. In addition, with ArCADIE shut down, architecture development across most of the Army would halt as there would be no architecture development and environment to develop and store Army architecture data.

2) Use of Government In-House and Expertise. Currently there are not enough

Government personnel with the applicable experience to assume the critical work performed by JANUS should there be a lapse in service. Also, the contractor positions are performed by individuals with very specialized knowledge and experience required to execute the work contained throughout the PWS. The organization does not have the capability to in-source personnel to meet mission requirements without a break in operational support. The Table of Distribution and Allowances (TDA) provides for adequate oversight and management of the contract effort, but lacks enough personnel with the requisite skill sets to execute all the tasks outlined in the PWS.

3) Re-competing a bridge contract effort. Conducting a limited competition would be costly and create operational risk if the task order was awarded to another company, other than JANUS. The 11-month task order is anticipated to cost $12,737,845.24. Awarding the new task order on a competitive basis under compressed timelines will cause unacceptable disruptions to FCC’s mission. It is not in the best interest of the Government, as a re-compete at this time would cause a break in service.

There is insufficient time to re-compete this requirement as a new start by the contract expiration date of 18 December 2020. Competing the bridge task order and transitioning to a new contractor under that compressed timeline creates significant operational risk and increases the possibility that JMC will experience disruptions in the performance of these essential knowledge management functions, mission command decision-making functions, and oversight functions vital to its mission execution. Even if it were possible to compete the bridge task order, doing so would result in the award of an order with such an abbreviated performance period that the likelihood of receiving proposals is low because of the time necessary to compete the order (two months under the FCOE) and then phase-in a new contractor (two months).

4) Bridge contract. This temporary measure provides the Government the skilled resources required to continue the AIMD Support Services mission uninterrupted. It also allows the Government to conduct a manageable transition from the current task order to a task order issued under the new MATOC.

c. Verified Minimum and Need. The minimum requirement includes performance of all performance work statement tasks until the new MATOC contract is awarded in 2021. The current services will continue until 18 December 2020. The Government requires a six-month base performance period with five one (1) month optional periods of performance. This will provide for a continuation of services through 18 November 2021. This extension will provide the needed time in order to award a contract that is fair and reasonable and provides adequate fair opportunity.

d. Considerations for using one source. Time available versus time required, phase-in/phase-out time, and the complexity of the requirement were considered in the decision to solicit only to one source. The time available to procure new services is not adequate to obtain both required FCC approvals, Government Procurement approvals, and solicit and award a new contract. Additionally, competing the extension and transitioning to a new contractor under that compressed timeline will create significant operational risk and enhances the possibility that AIMD will experience disruptions in the performance of essential knowledge management functions, mission command decision-making functions and the ability to perform oversight functions vital to mission execution.

e. Interim Contract Cost. This is an interim contract with the incumbent, JANUS. It would be neither cost effective nor realistic to expect another Contractor to perform during the brief interim period. A new contractor will experience manning problems including recruitment and associated relocation fees; continuity of service, variety and complexity of requirements; preparation of management plans.

f. Interim Contract Requirement. This is an interim task order required until award of a follow-on service contract. The anticipated award date of the follow-on contract is June 2021. Currently, there is no protest associated with this interim contract request.

g. Impact. The impact of not awarding a bridge task order would result in a break in service or work stoppage. AFC and FCC rely on JANUS to perform the mission critical tasks in the AIMD PWS in order to accomplish their mission. A lapse in service in order to accommodate the time necessary to provide a fair opportunity would severely impede, if not halt, the ability of FCC to meet its objectives and accomplish its mission.

The bridge task order temporarily mitigates risks to mission success of the AIMD Support Services work effort until transition to the new FCC MATOC contract.

6. Actions to Increase Competition: In order to increase competition in the future, a new Multiple Award Task Order contract is currently being procured and will be awarded in June 2021. This will provide fair opportunity among those contractors selected for the services. Some of the tasks may be supported with a different task order due to changes in the way the services are currently provided and the FCC’s evolving mission and organization. MICC-Fort Eustis plans to issue a new competed task order following the award of the MATOC. No previous justifications exist for the requirements performed under the current task order.

7. Market Research: Market research was performed in September 2020. The research results demonstrated that the requirement can be awarded under the FCOE MATOC using fair opportunity procedures but only if adequate time is available to perform all the pre-award contracting requirements. Market research techniques included reviewing the procurement history, reviewing mandatory and preferred sources, and searching www.sam.gov and small business databases. Additionally, the market research included a review of the market research report for the MATOC re-compete, which included issuing a sources sought on 18 May 2018 and conducting an Industry Day on 7 May 2019. Eleven companies responded to the sources sought. One large business and one small business were deemed either fully or moderately capable of performing all tasks. The other nine vendors were not fully capable in all performance areas required to include capability development support, experimentation and evaluation support, synergy support, and information technology and information management support. The Industry Day resulted in significantly high participation. Both large and small businesses expressed interest in the procurement. The Industry Day determined the market has not changed since a Sources Sought was posted in 2018 and small businesses expressed interest in only performing a few of the task areas or seeking a teaming arrangement as a subcontractor. To the knowledge of the Contracting Officer, the FCC is currently the only agency who provides the ArCADIE environment. Furthermore, a competitive award cannot be made without a break in service. It would not be in the best interest of the Government to pursue a re- compete at this time. Additionally, the requirements executed under the bridge task order are within scope of the FCC MATOC.

In October 2020 FCOE approved the use of the Fires Center of Excellence (FCOE) MATOC to provide a seamless continuation of services to the FCC until the new MATOC IDIQ contract (ref. Solicitation W911S0-19-R-0002) is awarded. The AIMD requirement is within the scope, performance period, and maximum value of the FCOE

MATOC.

8. Other Facts:

Procurement History: The current FFP task order, W911S0-15-D-0003 – W911S019F0241, was awarded using fair opportunity procedures of FAR 16.505(b) within the ARCIC MATOC to JANUS on 24 May 2019 in the amount of $12,683,613.46, for a base year plus two six-month option periods. The previous requirement was competed amongst the three MATOC holders on 6 November 2018. While two contractors responded, JANUS was awarded the task order. The previous task order, W911S0-15-D-0001 – 0006, was awarded using fair opportunity procedures under the ARCIC MATOC to Booz Allen Hamilton on 30 June 2016 for a base year and two option years.

Program: AIMD Mission Support Services

Version – September 2018 FOR OFFICIAL USE ONLY

9. Technical Certification: I certify that the supporting data under my cognizance which are included in the justification are accurate and complete to the best of my knowledge and belief.

Contracting Officer Representative

10. Requirements Certification: I certify that the supporting data under my cognizance which are included in the justification are accurate and complete to the best of my knowledge and belief.

Chief of Contracting & Logistics

11. Fair and Reasonable Price Determination: I hereby determine that the anticipated cost or price to the Government for this contract action will be fair and reasonable. The techniques identified at FAR 15.404-1(b)(ii) and (v) will be used to ensure award will be at fair and reasonable prices. The Contracting Officer used a comparison of proposed prices to pricing contained in the option period, and the IGCE. This determination will be made using price analysis. As a part of this basis, certified cost or pricing data will be required.

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

Contracting Officer Signature: _______

Approval

Based on the foregoing justification, I hereby approve the procurement of mission support services for the Architecture Integration and Management Division using an exception to fair opportunity pursuant to the authority of Title 10 United States Code Section 2304c(b)(1) as implemented by Federal Acquisition Regulation 16.505(b)(2)(i)(A) – The agency need for supplies or services is so urgent that providing a fair opportunity would result in unacceptable delays. The estimated value is $12.74 million for a period of performance consisting of a base period of six (6) months and five (5) one-month option periods from 19 December 2020 through 18 November 2021. This approval is subject to availability of funds, and provided that the services herein described have otherwise been authorized for acquisition.

SCOTT D. KUKES

Alternate Advocate for Competition U.S. Army Mission and Installation Contracting Command, JBSA Fort Sam Houston, TX