CAOC_Bridge_Ltd_Sources_JnA__Redacted.pdf

Limited Sources Justification and Approval (J&A)

FOR OFFICIAL USE ONLY

March 2018 FOR OFFICIAL USE ONLY Page 1 of 5

Contracting Activity: ACC AMIC/PKF

Purchase Request / Local ID Number: F3UT629044AC01

Program / Project (and PE, if applicable): USAFCENT Combined Air Operations Center (CAOC) Bridge

Program Type (PEO or Other Contracting): Other Contracting

Authority: Multiple Award Schedule Program (FAR 8.405-6)

Estimated Contract Cost (including options):

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

Description of Limitation:

FAR 8.405-6(a)(1)(i)(C), “The new work is a logical follow-on to an original Federal Supply Schedule order provided that the original order was placed in accordance with the applicable Federal Supply Schedule ordering procedures".

COORDINATION (AFFARS 5306.304(a) )

Date

08 Apr 2019

Project Lead / Program Mgr / Requiring Activity

Signature

Date

16 Apr 2019

Contracting Officer

25 Apr 2019

Local Legal Reviewer

02 May 2019

Chief of the Contracting Office (COCO)

08 May 2019

Competition Advocate

APPROVAL (AFFARS 5306.304(a) )

17 May 2019

March 2018 FOR OFFICIAL USE ONLY Page 2 of 5

I. Contracting Activity.

Contracting Agency: U.S. Air Force

HQ ACC AMIC/PKF

129 Andrews Street Langely AFB, VA, 23665

Contracting Officer: Alysha Makela / 757-225-5841

Requiring Activity: USAFCENT/A6X Shaw AFB, SC

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

This Limited Sources Justification and Approval (J&A) has been prepared to award a new Firm Fixed Priced (FFP) bridge task order (TO) with a 4-month and 7-day base period plus two (2) three-month option periods. The Period of Performance (POP) for this bridge TO will be 26 Jul 19 - 2 Jun 20, if all option periods are exercised. To avoid a lapse in services, caused by the finalized requirement development, and approval to consolidate the CAOC and Trusted Thin Client (TTC) support contracts, this bridge TO is for the continuation of mission critical services for the Combined Air Operations Center (CAOC) communications support services in the US Air Force Central Command (USAFCENT) area of responsibility (AOR). The USAFCENT is responsible for air operations, either unilaterally or in concert with coalition partners, and developing contingency plans in support of national objectives for the US Central Command (USCENTCOM) AOR. Functioning as the nerve center of the air campaign, the CAOC plans, monitors, and directs sortie execution, close air drop, and numerous other mission-critical operations. Performance is at Al Udeid Air Base (AB) and Shaw Air Force Base (AFB), SC.

Background Information:

Services are currently being performed on an existing contract GS00414DB0062 TO ID04140056, awarded by the General Services Administration (GSA), on 26 Jul 14, with a POP of one (1) 12-month base period and four (4) 12-month option periods, expiring on 25 Jul 19. While the GSA contract contains FAR 52.217-8, Option to Extend Services clause, it is not their policy to execute this clause unless there is a protest or when the follow-on acquisition is not being conducted by another agency. In addition, the 6 months extension does not allow sufficient time to compete the acquisition milestones associated with a program of this magnitude. The necessity for a bridge contract is due to multiple unanticipated delays encountered in the new CAOC re-compete acquisition, including an unexpectedly longer time required to finalize the requirement and unforeseen interruptions in the acquisition development and approval process. The acquisition development was delayed due to a change in the requirement due to limitations in OCO funding and the consolidation approval process. These delays resulted in milestones being missed and effectively pushed the anticipated award date of the CAOC re-compete.

ACC AMIC/PKF will execute and administer this bridge TO for the same non-personal services as GSA's contract GS00414DB0062, TO ID04140056, in order to provide continued support to USAFCENT.

The long term solution will have FFP and Cost Reimbursable contract line item numbers (CLINs) with an estimated total contract value of and a performance period of 5 years. The projected POP will include a 90-day Transition, 9-month base Period, and (4) 12-month option periods. Given the value of the long term acquisition, the follow-on competitive acquisition will be in the Program Executive Office (PEO) for Combat and Mission support portfolio. The estimated award date for the competitive follow-on is August 2019.

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

Services to be provided under this acquisition are vital in supporting the USCENTCOM AOR, a 20 nation region stretching from Northeast Africa across the Middle East to Central and South Asia. This is a perfomance based service requirement for the contractor to provide 24-hours per day, seven-days per week communications support to joint and coalition personnel in the Air Operations Center. The contractor is responsible for operations and maintenance support

March 2018 FOR OFFICIAL USE ONLY Page 3 of 5 to the infrastructure, operations center and enterprise. Support spans the IT spectrum, from end-to-end desktop solutions to the core services infrastructure and includes presentation, application, network, server, hardware, and storage virtualization technologies. Integration, adaptation, and reverse engineering of legacy Commercial Off-the Shelf (COTS/GOTS) applications to support the theater and global operational mission are required. Support will provide global cloud based services to the operational user while being managed centrally. These services are considered non-commercial due to the austere conditions where services are performed.

Approval will be for a 4 month base period (26 Jul 19 - 2 Dec 19) and (2) 3 month option period (3 Dec 19 - 2 Jun 20)

The estimated cost of as shown below is for a 4-month base and (2) 3-month option periods.

Base Period: (26 Jul 19 - 2 Dec 19) CLIN 0001 CONUS Labor Firm Fixed Price (FFP) CLIN 0002 OCONUS Labor Firm Fixed Price (FFP) CLIN 0003 Other Direct Costs (ODC) Cost Reimbursement (CR)

Option Period 1: (3 Dec 19 - 2 Mar 20) CLIN 1001 CONUS Labor FFP CLIN 1002 OCONUS Labor FFP CLIN 1003 ODCs CR

Option Period 2: (3 Mar 20 - 2 Jun 20) CLIN 2001 CONUS Labor FFP CLIN 2002 OCONUS Labor FFP CLIN 2003 ODCs CR

The CLIN structure is based on the current TO CLIN structure which identifies required core labor and provides the warfighter the necessary flexibility to cover ODCs, materials, and Optional/Future labor to respond to unknown requirements that support the USAFCENT mission. This bridge contract will utilize appropriated 3400 (Operations and Maintenance) funds for Overseas Contingency Operations (OCO).

IV. Identification of the justification/rationale for limiting sources and demonstration of the contractor's unique qualifications to provide the required supply/service.

FAR 8.405-6 requires an ordering activity to justify its actions when restricting consideration of schedule contractors to fewer than required in FAR 8.405-2 Ordering Procedures for Services Requiring a Statement of Work.

FAR 8.405-6(a)(1)(i)(C), The new work is a logical follow-on to an original Federal Supply Schedule TO provided that the original Federal Supply Schedule order provided that the original TO was placed in accordance with the applicable Federal Supply Schedule ordering procedure. The original TO was not issued under sole source or limited source procedures. Agile Defense Inc. is the current contractor for this TO and no other contractor has the capability to continue providing the critical services delivered under this TO on such short notice, for this limited period of time, while a competitive acquisition for these services is being conducted. Agile has performed CAOC work from 26 Jul 14 - 25 Jul 19 and has developed an experienced and qualified workforce.

The Government will gain economies and efficiencies by eliminating duplication of costs and efforts associated with a new contractor transitioning into a short term contract. If a new contractor is awarded the bridge effort they will be required to transition in for approximately 90 days, as discussed below, and then transition out of the program within less than 6 months.

The 90-day transition is necessary to recruit, hire and on-board contractor personnel with Secret or higher clearance and DoD 8570-Information Assurance Technical Level 2 or higher certification. Additionally, the transition is necessary to mobilize and deploy OCONUS personnel; mobilization/deployment events include obtaining passports, visas, CAC cards, predeployment medical, and 30-day country clearance. During market research, Industry provided feedback on the limited pool of qualified personnel for both CONUS and OCONUS staffing as a high risk.

Previous contract GS00414DB0062, TO ID04140056 was competed and awarded by GSA. The GSA TO contains FFP and

March 2018 FOR OFFICIAL USE ONLY Page 4 of 5

CR CLINs. This bridge TO will be awarded in the same format, with no changes to the PWS requirement.

CAOC support, CONUS (rear) and OCONUS (forward), is not exclusive and cannot be separated. The CAOC (forward and rear) functions as the nerve center of the air campaign. The CAOC plans, monitors, and directs sortie execution, close air support and precision air strike; intelligence, surveillance and reconnaissance, airlift, air refueling, aeromedical evacuation, air drop, and other mission-critical operations. As a result, no other company would be capable of successfully performing in accordance with the PWS without risk of service interruptions given the limited time available to make a competitive award prior to the current contract expiration date and in sufficient time to allow for adequate transition.

V. Determination by the ordering activity Contracting Officer that the order represents the best value consistent with

FAR 8.404(d).

In accordance with (IAW) FAR 8.405-2(d) an evaluation will be performed based on the criteria provided to the schedule contractor. The Contracting Officer will perform a price reasonableness determination as part of the best value determination IAW FAR 8.404(d)

Prices under this sole source initiative are expected to be comparable to the prices of the current order. The Government's objective is based on labor rates for the last full period of performance, for which the prices were established on a competitive basis. No changes to labor or site locations are expected during the J&A period of performance. Therefore, actual historical costs will act as the inhibitor to any significant increases in costs. Given the dollar value and non-commercial nature of these services, the contractor will be required to submit certified cost and pricing data, and cost and price analyses will be conducted. Based on this information, the contracting officer has made a determination that the anticipated costs to the Government will be fair and reasonable.

VI. Description of the market research conducted and the results, or explain why market research was not conducted.

Market research was not conducted for this bridge but was conducted for the CAOC re-compete that is being conducted under the mandatory NETCENTS multiple-award ID/IQ contract. Therefore, market research was conducted for the CAOC re-compete by issuing a request for information (RFI) and a draft Performance Work Statement (PWS) to NETCENTS NetOps vendors. There were 14 responses (10 Small Businesses/4 Other than Small Businesses) received in response to the RFIs. The Program Manager conducted a capability analysis on the 10 small business contractors' responses and determined they are capable of performing the requirement. This is evidence that there are 10 capable small businesses to perform this work if there were sufficient time to develop a proposal and a sufficient transition period is available.

VII. Other facts supporting the justification.

USAFCENT A6 cannot afford to have a break in service. The critical nature of these services and anticipated milestones for the re-compete requires the contracting activity to award a bridge contract for a period of up to 10 months. This will ensure fulfillment of the critical wartime mission support to the AOR and eliminate a gap in service. Without this support, critical communication information systems would degrade, fail or not be available to support emerging requirements. This contract bridge is required because the GSA policy prohibits any further contract extensions. Any break in service will have an overall negative impact on USAFCENT AOR missions.

Agile Defense is the current contractor. No other contractor, under any competitive procedure has the existing capability to continue providing the critical services delivered under this task order on such short notice for this limited period of time. Agile Defense has performed the current requirement from 26 July 2014 - 25 July 2019. They have developed an experienced and qualified workforce that is in place supporting critical USAFCENT operations.

A bridge is required because a competitive acquisition in the days remaining before the current CAOC task order expires is not reasonable. Awarding a new bridge task order to the incumbent will continue the current effort for the extended period, with no loss in efficiency and no adverse impact on the mission. The current TO contract requires an experienced and qualified workforce that is in place supporting critical CAOC support services which a new Contractor could not acquire in time to begin performance on 25 July 2019. In addition, the contract requires personnel to perform in the USCENTCOM AOR; and with less than five months to transition, another company would not be able to

March 2018 FOR OFFICIAL USE ONLY Page 5 of 5 get the country clearance required for performance. Finally, the cost for another Contractor to transition, hire, train, and perform for three to six months would be excessive compared to the cost for Agile to continue performance.

Based on the contractor's technical approach on a new requirement, the Government estimates incurring additional transition costs of up to $6.3M.

VIII. Actions the agency may take to remove or overcome any barriers that led to the restricted consideration before any subsequent acquisition for the supplies or services.

This sole source action will be a one time contract to cover the acquisition process time required to award a new competitive contract. NETCENTS is the mandatory source for all Air Force Information Technology (IT) requirements.

The CAOC recompete will be solicited to the NETCENTS NetOps vendor pool to ensure maximum competition.

IX. 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.

X. 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.