REDACTED_SDL_XyEnterprise_SW_SSJ-12_Aug_19_FINAL_REDACT_25SEP19.pdf

Sole Source (Including Brand Name) Justification - Simplified Procedures for Certain Commercial Items

FOR OFFICIAL USE ONLY

18 Jun 2019 FOR OFFICIAL USE ONLY Page 1 of 8

NOTE: If a Justification was approved for the preceding acquisition, a copy of the approved Justification for the predecessor action must be included in the staff package for approval of the instant Justification. This applies to Justification staff packages that are submitted for review and approval at a level above the contracting officer. The predecessor Justification will be used as a reference document by the approving official.

Is this a new or amended J&A Document? New Amended ( Prior to Award Only! )

Is this a Bridge Action as defined in the AF Bridge Action Reduction Plan? Yes No

Funding level for this acquisition: >SAT and < $700K > $700K and < $13.5M

Contracting Activity: AFSC/PZIM

Purchase Request / Local ID Number: F3QCAM9214A001

Program / Project (and PE, if applicable): SDL XyEnterprise Software License Purchase

Program Type (PEO or Other Contracting): Other Contracting

Authority: AFFARS 5313.501 - 10 U.S.C. 2302b, Implementation of Simplified Acquisition Procedures (41 U.S.C. 1901)

AFFARS 5313.501 - 10 U.S.C. 2304a, Special Emergency Procurement Authority (41 U.S.C. 1903)

Estimated Contract Cost (including options): Justification Type: Class Individual

COORDINATION (AFFARS 5306.304(a))

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I. Contracting Activity.

This Sole Source Justification is to request authority for Other Than Full and Open Competition to support requirements generated by the Air Force Life Cycle Management Center, Product Data Services Division, AFLCMC/LZP. The contracting activity for this requirement is AFSC/PZIM, Operational Contracting. The purchase request number supporting this contracting action is

F3QCAM9214A001.

II. Nature and/or description of the action being processed.

Due to the circumstances described herein, the activity requests authority to acquire SDL XyEnterprise software licenses and maintenance support using Other Than Full and Open Competition as prescribed by 10 U.S.C. 2302b, Implementation of Simplified Acquisition Procedures. This action will result in the award of a new Firm Fixed Price (FFP) definitive contract, anticipated to award 30 September 2019. The licenses will be in effect from date of award through 12 months.

This sole source requirement will be procured from the following company.

SDL XYENTERPRISE LLC

201 Edgewater Drive, Suite 225 Wakefield MA 01880-6216

CAGE: 0BWK4

Large Business

III. Description of supplies/services required to meet agency needs.

This is a critical requirement for software licenses in sufficient quantity to support United States Air Force (USAF)-enterprise requirements for Technical Order (TO) content management, editorial and publishing processes. This critical requirement is for license sets of SDL XyEnterprise software products comprising the Technical Order Authoring and Publishing (TOAP) system to allow utilization of the system by additional USAF programs/personnel.

IV. Statutory authority permitting other than full and open competition.

10 U.S.C. 2302b, Implementation of Simplified Acquisition Procedures, in accordance with

Sole Source (Including Brand Name) Justification - Simplified Procedures for Certain Commercial Items

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V. Demonstration that the contractor's unique qualifications or nature of the acquisition requires the use of the authority cited above (applicability of authority).

The agency's minimum needs can only be satisfied by the unique supplies or services available from the above cited source, which possesses the unique products/capabilities, as demonstrated in the following paragraphs:

The TOAP System, hosted and managed by AFLCMC/LZP, on behalf of AFMC/A4, is the single USAF organic enterprise TO authoring and publishing system. The system was originally implemented in 2006 as the Warner Robins-Integrated Data for Maintenance (WR-IDM) system. This system provides content/configuration management, process workflow, and authoring and publishing capabilities to all USAF programs, as necessary to create and sustain USAF TOs. Since the USAF inventory of TOs is currently produced from a variety of source formats, to include FrameMaker®, Standard Generalized Markup Language (SGML), Hypertext Markup Language (HTML), and eXtensible Markup Language (XML) developed in compliance with USAF standards, the system solution must support each of those formats and must ensure data output is in compliance with associated data standards/specifications. The SDL XyEnterprise suite of software is currently utilized to meet those requirements within the TOAP system, and is the only known software suite to support all USAF TO content/configuration management, authoring and publishing requirements.

Current TOAP system capabilities are largely based upon commercial-off-the-shelf (COTS) software products purchased previously from SDL XyEnterprise, LLC. These system capabilities were developed nearly 15 years ago during initial system implementation with Northrop Grumman.

Northrop Grumman established the required capabilities utilizing COTS products with SDL XyEnterprise to the extent possible/practicable, per USAF guidance. At inception, the system was structured to support local Robins AFB-based programs. Since inception (and initial implementation of the underlying software products), the user-base and software requirements have increased incrementally based on a gradual growth in system utilization demand. To-date, the Northrop Grumman services contract utilized to support system sustainment requirements has also been utilized to purchase increments of software, and the necessary software maintenance, to accommodate that incremental growth in the system user base.

Recent system consolidation efforts stemming from the Federal Data Center Consolidation initiative (FDCCi) (now referred to as the Data Center Optimization initiative (DCOi)) resulted in program users and data from four (4) other legacy TO authoring and publishing systems being consolidated into the Robins-based system, and resulted in consumption of all available COTS licenses. Since the system/data consolidation effort also resulted in establishment of the TOAP system as the USAF enterprise solution, the demand for system utilization (by programs beyond those impacted by consolidation) has increased, with immediate requirements to support additional weapon systems, such as the T-X program, and various programs aligned under the USAF Nuclear Weapons Center. As a result of system and data consolidation activities, and associated user-base growth, maximum utilization of available software licenses has been reached.

Unavailability of sufficient SDL XyEnterprise licenses is currently impeding the USAF's ability to support efforts to evaluate, ingest, sustain and render output of program data for additional customers.

This subsequently impedes the ability of weapon system programs to identify deficiencies in data deliverables from vendors, and impedes their ability to sustain and field TO data to operations and

Sole Source (Including Brand Name) Justification - Simplified Procedures for Certain Commercial Items

18 Jun 2019 FOR OFFICIAL USE ONLY Page 4 of 8 maintenance personnel. Failure to acquire the necessary license quantities from SDL XyEnterprise will necessitate that 12-15 programs, to include eight nuclear programs, currently awaiting system on-boarding, to seek other solutions in the near-term. This will negate efforts made to consolidate system capabilities to establish an Air Force (AF) enterprise solution, as disparate system solutions would have to be established by individual programs to meet requirements. This would also negate efforts to standardize AF technical order data source and output formats, perpetuating problems stemming from non-standard data and impacting the ability of the USAF to support utilization of TO source data within other AF enterprise system solutions supporting engineering and weapon system sustainment activities

The SDL XyEnterprise suite of software is the only known integrated software suite solution which supports and satisfies all USAF TO content/configuration management, authoring and publishing requirements. It is the only known commercially-available toolset to support the Governments requirements for automated publishing of SGML source data. The only known alternatives to continued and expanded use of the SDL XyEnterprise COTS products for support of USAF requirements would be:

a. Development of Government-owned software to support all requirements, or

b. Development of a Government-owned solution to satisfy USAF-unique SGML publishing requirements, and integration of that solution with alternate commercially available content/configuration management/workflow tools (which would also require additional COTS software license purchases), or

c. Limitation of system use to currently supported programs, coupled with acquisition of necessary capabilities by individual, currently non-TOAP-supported weapon system program offices, either through separate system implementations or via commercial service providers.

The development and/or the combined development of COTS SW purchase, configuration and integration costs associated with alternatives a or b (above) would far exceed the cost of expanding the current COTS solution to support the USAF enterprise and would take several years to accomplish.

The anticipated cost of transition of the current SDL XyEnterprise license model employed within the TOAP system from a per program/user license model to a USAF enterprise license model is estimated at less than of the first year of software support. This cost is equivalent to approximately 10% of the list cost of the necessary quantities of software components if purchased on a per program/per user basis. The alternatives listed above would also drive costs (and multi-year projects) to data owning organizations to acquire services necessary to facilitate transition of data from the existing system into the newly developed system environment. Additionally, program offices would incur costs to re-baseline TO data from existing SGML source, since any change to system publishing capabilities will result in differences in output between TO source and currently fielded data.

Any approach requiring program offices to source and obtain necessary capabilities through alternate system implementations or via commercial service providers would result in duplication of costs for system infrastructure (hardware and software), as well as system configuration, data migration, and single program, Therefore, estimated costs for implementation of individual physical system

Sole Source (Including Brand Name) Justification - Simplified Procedures for Certain Commercial Items

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It is estimated that since inception, the USAF has invested in excess of $50M in the product and support services necessary to implement and configure the current TOAP system components to meet USAF-unique requirements, and to ingest, manage and publish millions of pages of source data.

Development, implementation and fielding of alternate system capabilities, and transition and re-fielding of the data inventory within the current system would require investment of various types of funding equaling or exceeding the $50M invested since current system implementation, and would necessitate a project time-line spanning several years beyond the budget cycle. Additionally, any approach to replace current system capabilities will not afford a viable solution to programs with immediate or near-term requirements, which injects risk into the ability of programs to field current, up-to-date, specification-compliant technical orders, as necessary for weapon system operation and maintenance, in a timely manner.

While potential hardware costs associated with individual system implementations could potentially be reduced if a shared hosting environment was utilized, the primary components of the system software infrastructure are COTS products and the Government is one purchaser among many.

Therefore, there is little expectation that additional savings could be achieved through competition of the COTS component software requirements. Costs associated with services necessary for individual system implementation, sustainment, and associated data migration activities also could not be expected to be recouped through competition. Based on immediate requirements to support an additional 12 programs, and projection of several additional programs projected to join the system within the next 12 months, it now is more fiscally beneficial to the USAF to pursue an enterprise licensing arrangement to support the requirements.

Additionally, any alternate system implementation approach would also be in conflict with system reduction efforts mandated by public law/policy (National Defense Authorization Act, 2010, Federal IT Acquisition Reform Act, 2014); would negate efforts to ensure data collections are managed and supported within a single, AF-enterprise system environment; would perpetuate non-standard processes; and would add layers of complexity to requirements associated with management and compliance of the USAF TO data inventory.

Accordingly, SDL XyEnterprise LLC is the only firm capable of responding to this requirement and providing the supplies and services described in Section III above without the USAF experiencing a substantial duplication of cost that could not be expected to be recovered through competition.

VI. Description of efforts made to ensure that offers are solicited from as many potential sources as practicable.

This requirement will be synopsized on Federal Business Opportunities website in accordance with FAR 5.201. It is anticipated that sources having an interest in subcontracting may be identified through synopsis. Although the Government does not own the data to support acquisition of this effort from any other source, any source who responds to the Government as a result of this synopsis will be identified to the prime contractor as a potential subcontracting possibility.

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VII. Determination by the Contracting Officer that the anticipated cost to the Government will be fair and reasonable.

The overall cost of this acquisition will be negotiated in accordance with procedures in FAR Part 12 and FAR 13.106-3(a)(2), and include a statement of price reasonableness confirming the ultimate price to the Government is fair and reasonable. Additional pricing methodologies to negotiate fair and reasonable price may include reviewing publicly offered catalogs, comparison to historical contractor sales, and/or analysis of limited cost or pricing information provided by the contractor. In the event that limited cost or pricing information is made available, the Government's negotiation objective will be developed using local technical analysis and direct and indirect rate factors recommended by the Defense Contract Management Agency.

VIII. Description of the market research conducted and the results, or a statement of the reasons market research was not conducted.

Market research was conducted in accordance with FAR Part 10.001 and 10.002 and completed on 12 August 2019. Market research techniques used included reviews of Air Force Mandated contract vehicles, an analysis of commercially available toolsets identified through internet searches and review of available vendor product descriptions/capabilities.

In accordance with DFARS 208.74, Enterprise Software Agreements, an assessments of products available via DOD Enterprise Software Initiatives/Enterprise Software Agreements (found at https:// www.esi.mil/AgreementList.aspx?type=2) was conducted. None of the 41 products available via a DOD- or component-level Enterprise Software Agreement are of the type necessary to support the requirements. The products available under the NETCENTS-2 Netcentric Products contract were also evaluated, and none were found that support the requirements.

Research efforts identified 13 vendors with potential software solutions. However, since registration in the System for Award Management is required for any software product to be evaluated for approval for use on the USAF network, capabilities of software components available from six of those vendors not registered within the SAM system were not assessed against the capabilities criteria.

Assessment of the software capabilities provided by the remaining seven vendors revealed that software available from vendors other than SDL XyEnterprise could only be used to satisfy a small subset of the USAF requirements. While there are other COTS products available that can support one or more of the required source data formats, the SDL XyEnterprise software toolset is the only solution that provides a fully integrated solution which satisfies requirements associated with each of the source formats comprising the current USAF inventory. Further the SDL XyEnterprise toolset is the only known commercially-available toolset that supports the Government's requirements for automated publishing of SGML source data, to include loose-leaf publishing requirements.

This software product is considered commercial computer software as defined in FAR 2.101. The products are used by non-governmental entities for purposes other than governmental, and have been sold, and are available for sale or license to the general public.

The market research concluded that SDL XyEnterprise is the only vendor capable of fulfilling the Government's requirement as their software suite was determined to be the only suite of software tools capable of satisfying the full spectrum of current USAF TO content/configuration management, Sole Source (Including Brand Name) Justification - Simplified Procedures for Certain Commercial Items

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IX. Any other facts supporting the use of Other Than Full and Open Competition.

None.

X. List of any sources that expressed, in writing, an interest in the acquisition.

See Section VI above.

XI. A statement of the actions, if any, the agency may take to remove or overcome any barriers to competition before making subsequent acquisitions for the supplies or services required.

The TOAP system is the single USAF organic system supporting TO source data content/ configuration management, editorial sustainment, and publishing processes. As a result of system and data consolidation activities, and associated user-base growth, maximum utilization of available software licenses has been reached.

This critical requirement is necessary to increase the current license set of SDL XyEnterprise software products comprising the TOAP system to allow utilization of the system by additional USAF programs/persons. Unavailability of sufficient license quantities is currently impeding the USAF's ability to support efforts to evaluate, ingest, sustain and render output of program data for additional customers. This subsequently impedes the ability of weapon system programs to identify deficiencies in data deliverables from vendors, and impedes their ability to sustain and field TO data to operations and maintenance personnel. Failure to acquire the necessary license quantities will necessitate that 12-15 programs, to include 8 nuclear programs, currently awaiting system on-boarding to seek other solutions in the near-term. This will negate efforts made to consolidate system capabilities to establish an AF enterprise solution, as disparate system solutions would have to be established by individual programs to meet requirements. This would also negate efforts to standardize AF technical order data source and output formats, perpetuating problems stemming from non-standard data and impacting the ability of the USAF to support utilization of TO source data within other AF enterprise system solutions supporting engineering and weapon system sustainment activities. These factors underlie the critical nature of this acquisition.

While the current market research indicates a sole source environment for the SDL XyEnterprise software products and USAF data sustainment and publishing requirements evolve to new standards employing higher levels of data intelligence, the Government will continue to assess the market for toolsets with capabilities to support evolving USAF requirements.

There was no prior sole source justification, therefore there is no prior plan to remove barriers to competition. Based on this, higher level approval in accordance with DFARS PGI 206.304(a) (S-70)

(ii) is not applicable.

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XII. Certification by the Contracting Officer.

As evidenced by my signature above, I have determined this document to be both accurate and complete to the best of my knowledge and belief.

XIII. Certification by the technical/requirements personnel.

As evidenced by my (our) signature(s) above, I (we) certify that any supporting data contained herein, which is my (our) responsibility, is both accurate and complete.