USAMSII_J A_9_Jan_2014_REDACT.pdf

JUSTIFICATION FOR

OTHER THAN FULL AND OPEN COMPETITION

USAMS II

FA4600-08-D-9000, FA4600-08-D-9001, FA4600-08-D-9002, FA4600-08-D-9003,

FA4600-08-D-9004, and FA4600-08-D-9005

I. Agency and Contracting Activity:

Department of the Air Force, Air Combat Command, 55th Contracting Squadron, Offutt AFB, NE is the contracting organization responsible for the individual justification for other than full and open competition. The Procuring Contracting Officer is

II. Nature and/or Description of the Action:

This Justification and Approval (J&A) authorizes the use of other than full and open competition procedures for the Department of Defense (DoD) to extend the current USAMS II Multiple

Award Contract (MAC)/Indefinite Delivery Indefinite Quantity (IDIQ) ordering period and period of performance (PoP). The six USAMS II prime contract holders compete on each task order. The six USAMS II prime contract holders are:

- Booz Allen Hamilton, Inc. (BAH): FA4600-08-D-9000

- MacAulay-Brown, Inc. (MacB): FA4600-08-D-9001

- Client/Server Software Solutions, Inc. (CSSS): FA4600-08-D-9002

- Exelis, Inc. (EXELIS): FA4600-08-D-9003

- Science Applications International Corporation (SAIC): FA4600-08-D-9004

- CACI Technologies, Inc. (CACI): FA4600-08-D-9005

The extension to the ordering period and PoP extends the USAMS II ordering period from 31

January 2014 to 30 July 2014 and the PoP from 30 September 2015 to 30 September 2016. The extension of the PoP will not increase the ceiling on the IDIQ contract. The PoP extension for the IDIQ contract is based on customer requirements for unique technical skill sets required to support USSTRATCOM’s nine Unified Command Plan mission areas. The total shared ceiling scope for the IDIQ contract is $900,000,000. The current scope used is . There is currently enough total scope remaining to add/continue the current effort without increasing the contract value.

III. Description of Supplies/Services:

Overview: USSTRATCOM requires quick response competitive contract vehicles able to supply the highly skilled services with high level security clearances to support the services described below in large quantities. Currently, USAMS II has awarded administered between 55th Contracting Squadron contract administrators. For USAMS II, new task orders average 15 per year with a 90-120 day turnaround while administrating the existing active USAMS II task orders. It is crucial to extend task order ordering period against the USAMS II MAC/IDIQ contract until 30 July 2014 and task order PoP until 30 September 2016 to avoid a break in mission critical services. An overlap of USAMS II and USAMS III is necessary to allow time to transition/recompete new USAMS

III task orders to replace the support for the active USAMS II task orders. However, once

USAMS III is awarded and the prime contractors are phased in, no task orders will be issued off of USAMS II.

USSTRATCOM Mission. USSTRATCOM conducts global operations in coordination with other Combatant Commands, Services, and appropriate U.S. Government agencies to deter and detect strategic attacks against the U.S. and its allies, and is prepared to defend the nation as directed. USSTRATCOM provides a broad range of strategic capabilities and options for the

President and Secretary of Defense, and specialized expertise to the joint warfighter. It is the command and control center for U.S. strategic forces and controls military space operations, cyberspace operations, strategic warning and intelligence assessments as well as global strategic planning.

Mission Areas. Strategic Deterrence; Space Operations; Cyberspace Operations; Joint

Electronic Warfare; Global Strike; Missile Defense; Intelligence, Surveillance and

Reconnaissance; Combating Weapons of Mass Destruction; and Analysis and Targeting. These mission areas are not exclusive. The dynamic nature of the Command's responsibilities may require the addition of areas not currently identified.

Scope. The USAMS II contract supports all mission areas and requirements for

USSTRATCOM. In addition, support is required for subordinate and supporting agencies and component commands, supported agencies: Defense Technical Information Center (DTIC) and the Air Force Weather Agency (AFWA). These efforts include the mission areas listed above, as well as the following Joint Functional Component Commands (JFCCs): Global Strike and

Integration (GSI), Integrated Missile Defense (IMD), Intelligence, Surveillance and

Reconnaissance (ISR), Network Warfare (NW) and Space. Also included are the following

Functional Components: Joint Information Operations Warfare Command (JIOWC), Joint Task

Force-Global Network Operations (JTF-GNO), and the USSTRATCOM Center for Combating

Weapons of Mass Destruction (SCC-WMD) and other Task Forces, the Integrated Tactical

Warning/Attack Assessment (ITW/AA), and Information Operations (IO).

Support includes all USSTRATCOM-related systems such as: the Integrated Strategic Planning and Analysis Network (ISPAN); USSTRATCOM Command and Control (C2) systems;

Command infrastructure; common-user and dedicated satellite control networks; the Space

Surveillance Network; Missile Warning systems; current and future operational spacecraft programs; National/Ballistic Missile Defense Systems; Computer Network Defense, Exploitation and Attack (CND/E/A); current and future commercial programs; a family of tactical space systems; national space systems; distributive C2 nodes/networks; and space launch vehicles to include new generation expendable and reusable launch vehicles and the overall integration of the various mission areas concept of operations. The USAMS effort also addresses intelligence, intelligence-related, counterintelligence (CI), and information assurance systems.

Support Requirements. USSTRATCOM requires A&AS to support development of strategy and doctrine, and long range strategic planning (defined as both deliberate and adaptive planning employing the full spectrum of kinetic and non-kinetic weapons). These missions are enabled by the Integrated Strategic Planning and Analysis Network (ISPAN) as the means for conducting strategic planning; integrated priority list (IPL); necessary policies and procedures; capability and systems integration analyses and evaluation; exercises and war gaming; logistics support analysis and recommendations; documentation updates; and quick reaction technical support for all mission areas and associated command, control, and communications systems. Technical expertise is required to guide the components in the development, acquisition, certification, and sustainment of their systems, supporting technical documentation, and subsystem architectures.

Development of operational, systems, and technical architectures will be IAW the Department of

Defense (DoD) Architecture Framework Document.

Task Requirements. USAMS contractors provide A&AS support for management, studies, system engineering and technical analysis for USSTRATCOM, its components, and supporting or supported agencies. The A&AS assure advocacy, operational, intelligence, and CI requirements are satisfied through technically feasible, integrated, cost-effective system improvements, programmatic acquisition recommendations, logistics support, integration, and procedures analysis. Support consists of planning, analyzing, engineering and engineering guidance establishment, system integration, information assurance, software design/development, configuration management (CM), and testing/certification efforts in order to define, document, and evolve the USSTRATCOM systems and procedures. It provides across-the-board technical expertise to ensure planned developments, system specifications, planned upgrades/enhancement, testing/certification and operational procedures throughout

USSTRATCOM systems ensuring conformance with performance requirements.

General Security Requirements. Implements and administers security programs to ensure that classified information and documentation are protected in accordance with the latest appropriate

Security Classification Guide for each project identified in the Department of Defense Contract

Security Classification Specification (DD254). The contractor has access to DSS certified work locations for performing classified work up to and including TS/SCI at time of contract award.

Personnel Security Clearance Requirements. All individuals performing under tasks orders must be United States citizens and comply with applicable program security requirements which require personnel security clearances including Top Secret. Specific task orders require individual personnel to have access to Sensitive Compartmented Information (SCI) or DCID 6/4 eligibility, Nuclear Command and Control (NC2), and possibly Special Access Information, such as Special Access Programs (SAP), Special Access Requirements (SAR), and Special Technical

Operations (STO) clearances. Key contractor personnel (Program Manager, Assistant Program

Manager, and Facility Security Officer (FSO)) possess an active Top Secret clearance with

Director of Central Intelligence Directive (DCID).

IV. Statutory Authority:

10 USC 2304(c)(1), as implemented by FAR 6.302-1, Only One Responsible Source and No

Other Supplies or Services Will Satisfy Agency Requirements.

V. Applicability of Authority:

FAR 6.302-1(a)(2) permits other than full and open competition when supplies or services required by the agency are available from only one, or a limited number of responsible sources.

An extension of the USAMS II contract is necessary as only a limited number of responsible sources and no other supplies or services will satisfy agency requirements in a timely and cost-effective manner due to security requirements and complexity of the requirements for the highly skilled workforce within USSTRATCOM mission areas. Task orders under the USAMS II

MAC/IDIQ provide A&AS for USSTRATCOM, its components and associate agencies.

USSTRATCOM has determined that an award to any other sources for these actions would result in unacceptable delays in fulfilling worldwide warfighter support requirements. Acquisition lead time would not afford other contractors sufficient transition time to ensure mission accomplishment and continuity of services. Award to any other sources without ensuring an adequate and properly planned transition would negatively impact supported operations and the mission of combatant commanders. There are many impacts of not having these specialized services. These include increased risk to strategic planning and decreased ability to support the analysis network due to an inability to process and disseminate warnings and alerts. It would decrease effectiveness of classified intelligence operations within the Intelligence Community due to lack of support data for critical worldwide environmental analyses and information analysis systems. The incumbent contractors possess the unique skills to maintain

USSTRATCOM’s current missions and support. The current contractors and labor category specialists understand the strategic planning and analysis network required to support the

USSTRATCOM mission. In addition, the contractors are well versed with the command infrastructure, external agencies, and command and control systems support for their operations.

Further rationale for this request is due to a lengthy acquisition review cycle for the follow-on

USAMS III MAC/IDIQ exceeding the established milestones.

USAMS III Milestones Description Original

Milestone

Date

Actual

Milestone

Date

Revised

Milestone

Date

Several factors preclude the work being performed on the current USAMS II contract from being performed on a different contract vehicle. Primarily, the current contract requires knowledge and experience with USSTRATCOM mission areas. Approval of the extension of the USAMS

II contracts would ensure continuity of service with qualified cleared personnel and no break in service while allowing an overlap in support until the source selection for USAMS III is complete.

The use of GSA-type contracts such as OASIS contract has also been examined. The GSA

OASIS other-agency fee of 0.75% annually would lead to an additional cost of for the remaining scope of the USAMS II contract, assuming task orders are awarded in the amount of the remaining scope of . Finally, the incumbent small business contractor for

USAMS II (CSSS) and other interested parties are not GSA vendors, hence use of such vehicles could limit competition for the follow-on USAMS III requirement, which is a 100% small business set-aside.

Market research conducted by the government program management and contracting office, through the Dynamic Search and many other means during the pre-award phase of the USAMS

III program, indicate A&AS capability; however, no firms had the requisite knowledge and clearance levels required to start performance prior to current contract expiration date. Cost effective transition is estimated to require at a minimum, a 90-120 day transition period.

Additionally, USSTRATCOM has critical tasks that require a significant learning curve and sufficient cleared trained personnel. Therefore, use of another contract vehicle or set of companies will cause an unacceptable delay to USSTRATCOM, AFWA and other agencies.

There are no other contract vehicles that can fulfill USSTRATCOM’s variety of mission areas at the necessary level of expertise and with current high level security clearances to meet the required response time in case of a high impact real world crisis.

VI. Efforts to Obtain Competition:

A competitive source selection was conducted for the USAMS II award. Adequate competition was achieved and all proposals were determined to be technically acceptable. The government awarded the USAMS II contract to six contractors (BAH, MACB, CSSS, EXELIS, SAIC, and

CACI). Each task order issued under USAMS II is competed among the six contractors.

For the follow on contract (USAMS III), the government conducted market research in various ways. Market research included postings to FedBizOps, technical interchanges, responses to draft documents posted to FedBizOps, questions/answers to final documents also posted to

FedBizOps, and hosting an Industry Day. USAMS III is set-aside 100% for small business and the goal is to award to six to eight contractors.

VII. Fair and Reasonable Costs:

USAMS II utilized full and open competition with a target of six awards sharing a capacity of

$900,000,000. This performance price tradeoff source selection was conducted in accordance with FAR Part 15, DFARS Part 215, and AFFARS Part 5315. The resultant contract was awarded as a MAC/IDIQ, with the capability of Firm Fixed Priced – Level of Effort and Labor

Hour type CLINs. The resultant contract was awarded to: BAH, MACB, CSSS, EXELIS, SAIC, and CACI. Each contractor submitted maximum rates for 45 labor categories that were determined to be fair and reasonable based upon adequate price competition. However, the six contractors have been offering the government significant discounts off of their maximum rates.

The government has seen discounts up to for certain USAMS II labor categories.

Requirements will continue to be competed among the six contractors and the contractor’s level of efficiency is expected to increase. The modification to extend the ordering period and PoP will not increase the overall costs of the MAC/IDIQ.

VIII. Market Research

Further market research was conducted via announcement on FedBizOps on 5 September 2013.

This announcement notified industry of the government’s intent to extend the ordering period and to extend the PoP for USAMS II and requested capability packages from any firm who could provide the required services at full performance starting 1 January 2014. The announcement closed on 7 October 2013 which offered companies a sufficient amount of time to respond to the announcement. No responses to the government’s announcement were received.

IX. Other Facts

USAMS II is a multiple award indefinite delivery/indefinite quantity contract with a one-year period of performance plus four one-year option periods. The contract included FAR clause

52.217-8, Option to Extend Services, and was awarded on Friday, 25 July 2008. On 8 August

2008, performance under the USAMS II vehicle was suspended due to a protest filed on 7

August 2008. The protest was originally filed with the Government Accountability Office

(GAO), but was voluntarily dismissed upon filing the protest with the United States Court of

Federal Claims. On 9 January 2009, the Court orally authorized the Air Force to proceed with the performance of the six awarded contracts due to their importance to the national defense.

However, the Court did not issue it’s written opinion until 3 February 2009, determining the protest was without merit. The initial minimum order for the contract was issued on 9 February

2009, shortly after release of the Court’s opinion. Because of the protest and the subsequent stay of performance, 179 days of the contract period of performance were lost. This extension provides a day-for-day exchange for the time performance was suspended and therefore the extension is not in violation of the 10 U.S.C. §2304(b) which limits the period of a task order contract to five years. The government has initiated the follow-on contract for the USAMS III requirement under competitive procedures. .

X. Interested Sources

No companies responded to the FedBizOps announcement.

XI. Steps to Foster Competition

The government has initiated the follow-on competition for USAMS III requirement. The goal for USAMS III is a $500,000,000 MAC/IDIQ, . Additionally, USAMS III is a 100% small business set-aside.

The need to extend the ordering period and PoP is driven by several factors, previously discussed. The lead time required for a new contractor(s) to become proficient in providing the required support, without providing an appropriately timed and planned transition, presents a great amount of risk and unacceptable delays that would significantly and negatively impact the mission. An estimated six month period is necessary for the new contractor(s) to hire qualified and cleared staff, become familiar with the ordering process, learn the systems and fully implement applicable processes.

XII. Contracting Officer’s Certification:

The contracting officer’s signature on the J&A Coordination and Approval Cover Page evidences that he/she has determined this document to be both accurate and complete to the best of his knowledge and belief.

XIII. Technical/Requirements Personnel’s Certification

As evidenced by their signatures on the J&A Coordination and Approval Cover Page, the technical and/or requirements personnel have certified that any supporting data contained herein, which is their responsibility, is both accurate and complete.