AISS_JA_v8_-_redacted.pdf

Justification and Approval (J&A) for Other Than Full and Open Competition

Page 1 of 713 Sep 2017

NOTE: If a Justification and Approval was approved for the preceding acquisition, a copy of the approved J&A for the predecessor action must be included in the staff package for approval of the instant J&A. This applies to J&A staff packages that are submitted for review and approval at a level above the contracting officer. The predecessor J&A 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! )

Funding level for this acquisition: < $700K > $700K and < $13.5M > $13.5M and < $93M > $93M

Contracting Activity: 763d Specialized Contracting Squadron (SCONS)

Purchase Request / Local ID Number:

Program / Project (and PE, if applicable): Applications, Infrastructure and Systems Support (AISS)

Program Type (PEO or Other Contracting): Other

Authority: 6.302-1 – 10 USC 2304(c)(1), Only One Responsible Source and No Other Supplies or Services Will Satisfy Agency Requirements

Estimated Contract Cost (including options): J&A Type: Class Individual

COORDINATION (AFFARS 5306.304(a) )

Date Deputy Program Mgr / Requiring Activity

Signature

Date

01 Dec 2017

Contracting Officer

05 Dec 2017

Local Legal Reviewer

Chief of the Contracting Office (COCO)

Date

Competition Advocate

07 Dec 2017

Senior Contracting Official

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APPROVAL (AFFARS 5306.304(a) )

Date

13 Dec 2017

Approval Authority

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I. Contracting Activity.

Department of the Air Force, Air Force Installation Contracting Agency, 763d Specialized Contracting Squadron, 604 Tyler St, Bldg 3189, Scott AFB, IL 62225-5420.

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

The 763d Specialized Contracting Squadron (763 SCONS) intends to issue a firm-fixed price (FFP) contract modification to extend support for the existing AISS services contract FA4452-13-D-0002, for eight months five days, with four additional one-month option periods. The modification will also include cost reimbursable contract line item numbers (CLINs) for travel, other direct costs, and surge labor. The current contract expires 26 Jan 18; this bridge effort, 27 Jan 18 - 30 Sep 18, and four one-month optional ordering periods (Oct 18 - Jan 19), will be accomplished via bilateral modification. The optional ordering periods will be evaluated, but exercised only on an as needed basis.

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

Under the proposed contract action, Tri-Cor Industries (Tri-Cor) will continue to provide technical and support services associated with help desk, applications support and configuration management in support of the Mobility Air Forces Command and Control (MAF C2)/Business Systems. Technical support includes conducting in-depth troubleshooting and fault isolation, providing technical expertise on all systems, conducting repair and maintenance to pre-installed hardware/software and peripherals, performing user account maintenance, minor software upgrade and patches as directed by program management office (PMO), auditing of system logs, and system metrics gathering/analysis.

Support will be the same as currently provided under the contract, which is scheduled to expire 26 Jan 18. Tasks under the performance work statement (PWS) include support of the following programs: Advanced Computer Flight Plan (ACFP), Consolidated Air Mobility Planning System (CAMPS), Global Air Transportation Execution System (GATES), Global Command and Control System (GCCS), Global Decision Support System (GDSS), Systems Integration (SI), Enterprise Information Management (EIM), Mobility Air Forces Automated Flight Planning Services (MAFPS), Air Carrier Analysis System (ACAS), Mobility Enterprise Information Services (MEIS), USTRANSCOM Reference Data Management (TRDM), and Dynamic Mission Replanning (DMR).

The Independent Government Cost Estimate (IGCE) is , of which is for the base period and $ is for the four optional ordering periods ( ). The period of performance (PoP), to include the optional ordering periods, of this effort will be from 27 Jan 18 through 31 Jan 19. This one-year, five-day requirement crosses FY18 and FY19 due to the start date of 27 Jan 18. Both Transportation Working Capital Funds (TWCF) and Operations and Maintenance (O&M) funds will be provided to cover the FY18 and FY19 portions of the PoP.

The contract includes firm fixed price CLINs with cost reimbursable CLINs for travel, other direct costs, and surge requirements as follows:

CLIN X001 Process Support Services (FFP) CLIN X002 Enterprise Support Services (FFP) CLIN X003 MAF C2/ITV & Business Support Services (FFP) CLIN X004 Testing Support Services (FFP) CLIN X005 Training Support Services (FFP) CLIN X006 EIM Support Services (FFP) CLIN X007 Travel (CR) CLIN X008 Other Direct Costs (ODC) (CR) CLIN X009 Surge (CR) CLIN X010 Data Deliverables (Not Separately Priced) CLIN X011 Independent Verification & Validation (FFP)

CLIN X012 DMR (FFP)

CLIN X013 MEIS (FFP)

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CLIN X014 MAFPS (FFP)

CLIN X015 MAFPS (FFP)

CLIN X016 DET 1, Hurlburt Field (FFP)

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

10 U.S.C. 2304(c)(1), as implemented by FAR 6.302-1(a)(2)(iii)(B), as required by FAR 6.303-2(b) - Only One Responsible Source and No Other Supplies or Services Will Satisfy Agency Requirements.

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

Subsection 1 Services provided under contract FA4452-13-D-0002 relate to Mobility Air Forces Command and Control (MAF C2)/ Business Systems. These systems include: Advanced Computer Flight Plan (ACFP), Consolidated Air Mobility Planning System (CAMPS), Global Air Transportation Execution System (GATES), Global Command and Control System (GCCS), Global Decision Support System (GDSS), Systems Integration (SI), Enterprise Information Management (EIM), Mobility Air Forces Automated Flight Planning Services (MAFPS), Air Carrier Analysis System (ACAS), Mobility Enterprise Information Services (MEIS), USTRANSCOM Reference Data Management (TRDM), and Dynamic Mission Replanning (DMR). Technical support services being performed include conducting in-depth troubleshooting and fault isolation, providing technical expertise on all systems, conducting repair and maintenance to pre-installed hardware/ software and peripherals, performing user account maintenance, minor software upgrade and patches as directed by program management office (PMO), auditing of system logs, and system metrics gathering/analysis. The services are highly specialized because the specific technical and functional knowledge needed to maintain these systems requires advanced skills in a wide array of hosts, network devices, protocols, communications, engineering, security and usage of these systems. Due to the highly specialized nature of this requirement, Tri-Cor is the only contractor who can perform the duties required by the PWS during the time between the scheduled expiration of the current contract and the expected full performance start date of the follow-on contract. This contract action will eliminate serious potential impact and unacceptable delays to the mission of HQ AMC/A6. Therefore, this acquisition is for continued performance of a highly specialized service.

Contract FA4452-13-D-0002 was awarded 26 Jun 2013, under full and open competition using best value/trade off source selection procedures. The PoP was initially set to expire 26 Jul 17. The contract PoP was extended from 27 Jul 17 through 26 Jan 18 (six months) under the authority of FAR 52.217-8 Option to Extend Services. The purpose of the extension was to allow additional time to award a competitive follow-on contract for the highly specialized support services. The AISS III follow-on contract was originally expected to be awarded on 27 Feb 18, but the date has been pushed back to 13 Jun 18. The follow-on contract includes a phase-in period with full performance starting 1 Oct 18.

This is a bridge effort, 27 Jan 18 - 30 Sep 18, and includes four one-month optional ordering periods (Oct 18 - Jan 19). A bridge contract action with options is required to cover the gap between expiration of the current contract, 27 Jan 18, and full performance of the follow-on contract, 1 Oct 18 (eight months five days). Four one-month optional ordering periods will be included, and will be used only if necessary (delay in award, protests, etc).

There are two factors contributing to the delay in award of the follow-on contract and the need for the contract modification to extend the current contract services. The factors that contribute to the delay include the Department of Defense (DoD) implementation of the Financial Improvement and Audit Readiness (FIAR) directive which required substantial revisions to the performance work statement (PWS) delineating the testing, training and engineering support services required by each of the programs supported by this shared services contract. New requirements were incorporated into the PWS to provide support for the MAF C2 ACAS, MAFPS, and DMR programs.

Subsection 2 Award to any other source would result in unacceptable delays in fulfilling the Air Force's requirement. The AISS contract provides critical services supporting the HQ AMC/A6 MAF C2 which are directly linked to the war fighter by providing airlift, air refueling mission planning, cargo tracking, passenger tracking, crew scheduling, and mission execution. The United States military forces depend on these AMC services to allow them to deploy rapidly. The

Page 5 of 713 Sep 2017 resources enabling the efficient and effective management of this capability must also provide these services at the highest levels of availability, integrity, and confidentiality. The specific technical and functional knowledge needed to maintain these systems requires advanced skills in a wide array of hosts, network devices, protocols, communications, engineering, security and usage of these systems. A transition period of three months will be required at the end of the current contract for the incumbent contractor to phase-out and the new contractor to phase-in due to the complexity and diversity of the system requirements, and to minimize risk to the mission systems. Any interruption in support due to a break in service or problems of a new contractor providing services without the transitional support of the incumbent would cause system support shortfalls and would negatively affect program schedules. There is already a competitive re-compete underway. Award of this bridge effort to another contractor could result in two contract change overs, one for the follow-on and one for the bridge, which would negatively affect support.

The following events are examples of what would be negatively impacted from lack of expertise and initial time to understand the system (learning curve):

A. GATES v5.0.7 - test, fielding, and release of the GATES virtual server environment, which directly affects USTRANSCOM's Race to the Cloud initiative.

B. GDSS v3.2.1 - test, fielding, and release will bring added functionality to the warfighter, and brings an integration component with AMC's top priority, MAFPS, for flight planning worldwide missions.

C. MAFPS v1 fielding in the operational environment - a delay with AMC's top priority will cause the program to miss acquisition milestones and meet regulatory requirements.

Tri-Cor already has in place the experienced staff and tools necessary to complete the current service it is performing in accordance with the program schedule, which requires uninterrupted service through award and full performance of the follow-on contract. The capabilities to be provided are not obtainable from any government source. An award made to a new contractor (with zero incumbent support) will lead to the AISS supported systems becoming irrelevant to the user through becoming outdated, non-operational, and be a source of cybersecurity concerns, thereby losing the systems security certifications. It will take a new contractor a minimum 12 months to fulfill the terms and conditions of the contract to include:

A. Configuration Management (CM) - 3-6 months to learn the CM tool and become familiar with the supported programs and processes currently in place;

B. Training - 3 - 9 months. Existing lesson plans would already be available but learning the systems would be key to answer student questions during training;

C. Testing - 8 - 12 months to learn the systems, be able to develop test cases, and perform adequate testing to satisfy customer needs;

D. System Administration - 12 -15 months to learn how all systems interact and dependencies within the Enclave;

E. Database Administration - 6 months to become familiar with current database structure and schema; and

F. Engineering - 12-15 months to learn how all systems interact and dependencies within the Enclave before being able to engineer new solutions.

In essence, non-approval of this contract effort would be detrimental to the mission of the United States Transportation Command and Air Mobility Command. A sole source contract modification to provide the current AISS services is proposed for the period of 27 Jan 18 through 30 Sep 18, with optional ordering periods available for the period 1 Oct 18 through 31Jan 18.

Subsection 3

Accordingly, Tri-Cor is the only firm capable of providing the supplies and services described in Section III above without the U.S. Air Force experiencing unacceptable delays in fulfilling its requirements.

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

In accordance with FAR 5.201, a Notice of Proposed Contract Action was posted on FedBizOpps (FBO) on 28 Jun 17, Solicitation Number FA4452-13-D-0002. The posting notified all interested parties of the Government's intention to extend the current contract eight months, with four additional one-month optional ordering periods. No vendors responded to the synopsis. No other actions have been taken to facilitate competition for this acquisition. This acquisition is a bridge action, to continue services until the competitive follow-on contract is awarded. The current contract was a competitive acquisition, and multiple proposals are currently being evaluated for the follow-on contract.

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

The Contracting Officer will determine the price fair and reasonable based on price analysis as described in FAR 15.404-1(b)(2)(ii) and (v), comparison of proposed prices to historical competitive prices paid (labor categories, hours, and rates), and comparison of proposed prices with independent Government cost estimate. Current contract prices were determined fair and reasonable based on adequate price competition. Additionally, the Contracting Officer will survey the current labor market to ensure proposed labor rates are fair and reasonable.

In accordance with FAR 15.403-1(b)(3) and (5), certified cost and pricing data are not required as this is a commercial service, however, data other than certified cost and pricing data may be required to support a determination of fair and reasonableness.

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

As described in Section VI and in accordance with FAR Part 10, market research for this bridge action was conducted by synopsis of the proposed extension, advising industry of the pending justification, and soliciting inquiries from interested parties. No vendors responded to the synopsis.

A sources sought synopsis for the follow-on contract was posted to FedBizOpps. This posting, and market research for the AISS follow-on contract, identified potential sources which enable the follow-on contract to be competed as a small business set-aside.

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 follow-on AISS requirement was synopsized in FedBizOpps and sufficient interest was received to enable it to be set aside for small business. Multiple proposals have been received, and the anticipated award date is 13 Jun 18, with a transition period running through 30 Sep 18.

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XII. Certification by the Contracting Officer.

As evidenced by his/her signature, the contracting officer has determined this document to be both accurate and complete to the best of his/her knowledge and belief.

XIII. Certification by the technical/requirements personnel.

As evidenced by their signature(s), the technical and/or requirements personnel have certified that any supporting data contained herein, which is their responsibility, is both accurate and complete.