LOGCOP - Limited Source JA.pdf

JUSTIFICATION AND APPROVAL (J&A)

LIMITED SOURCE JUSTIFICATION

Provide LOGCOP System Support Services

1. CONTRACTING ACTIVITY: Department of the Air Force, 647th Contracting Squadron, Specialized Flight (LGCZ), 90 G Street, Building 1201, JBPHH (Hickam), Hawaii 96853.

2. DESCRIPTION OF ACTION: Justification and approval to allow 647 CONS/ LGCZ to negotiate and place a task order under a Federal Supply Schedule to BAE Systems Information Solutions Inc.'s GSA Contract #GS-00Q-09B-GD-0016 (Alliant- Information Technology Services and IT Services-Based S.olutions). This acquisition action is exempt from the requirements in Part 6, Competition Requirements per FAR 8.405-6. BAE is the only one source capable ofproviding the services required at the level of quality required because the services are unique or highly specialized to satisfy PACAF Logistics Common Operating Picture (LOGCOP) requirements described in the Performance Work Statements from Air Force, Navy, and Pacific Command. This task order will have one basic award with two-option awards, each award has a performance period of one year. The government is not obligated to exercise the options and subject to availability of funds. Total contract estimated amount including option is $811,061.00.

3. DESCRIPTION OF SERVICES REQUIRED TO MEET AGENCY NEEDS: Sole source procurement to BAE for software development services for the Pacific Air Forces (PACAF) and Joint Task Force-519 (JTF-519) Logistics Common Operating Picture (LOGCOP) in support of the Headquarters PACAF Director of Logistics (PACAF/A4) and the functional alignment of the PACAF/A4 as the JTF-519 Director ofLogistics (JTF-519/J4). A LOGCOP experienced contractor team to provide services including software development, systems administration and maintenance services for the continued development of the USAF and JTF-519 LOGCOP. The required JTF and USAF LOGCOPs functionality is an integrated portion of the original LOGCOP programming effort initiated by the US Navy to support their requirements. From 2008 to 2011, the Navy incorporated both joint and Air Force specific capabilities into their software in such a way as the capacity is both integrated and non-separable. Simply put, the existing algorithms within the program already support multiple service requirements and cannot be separated by Service.

The scope of work includes programming, sustainment and database services in support of the JTF 519 LOGCOP system, as well as service, component and higher headquarters follow-on requirements. The development team will be responsible for sustainment of the current system, gathering and documenting user requirements, developing new modules and interfaces, and migration from an ASP programming environment to a JAVNJSP environment. Similarly, the current MS Access database will be migrated to a MS SQL Server environment. The JTF 519 LOGCOP environment will include Java-based applications, Tomcat web server, SQL database server and a cross domain server in a Local Area Network (LAN) environment.

4. STATUTORY AUTHORITY: 41 U.S.C. 251 and40U.S.C. 501. Inaccordancewith(IAW)FAR 8.405-6(a), orders placed under Federal Supply Schedules (FSS) are exempt from therequirements of FAR Part 6. However, an ordering activity must justify its action when restricting consideration of schedule contractors fewer than required in FAR 8.405-2. This acquisition is conducted under the authority of the Multiple Award Schedule Program, lAW Title III of Federal Property and Administrative Services Act of 1949, and Title 40 USC, 501, Services for Executive agencies in accordance with FAR8.405-6(a)(l).

5. APPLICABILITY OF AUTHORITY: Sole sourcing to BAE will eliminate substantial duplication of cost to the Government that is not expected to be recovered from competition, and unacceptable delays in fulfilling the requirements. BAE Systems is the developer of the US Navy contracted effort for the LOGCOP, which currently integrates Navy, USAF and JTF-519 requirements and capabilities. Three-plus years of development experience and expertise in the technical aspects of unique software programming, systems administration, and maintenance cannot be duplicated easily by any other vendor without significant spin-up time, and lost development.

6. DETERMINATION BY THE CONTRACTING OFFICER THAT THE ORDER REPRESENTS

THE BEST VALUE CONSISTENT WITH FAR 8.404(D): lAW FAR 8.404(d), orders placed against a Multiple Award Schedule (MAS), using the procedures in this subpart, are considered to be issued using full and open competition (see FAR 6.1 02( d)(3) ). Therefore, ordering offices, need not seek further competition, synopsize the requirement, make a separate determination of fair and reasonable pricing, or consider small business programs. GSA has already detennined the prices (for supplies, fIxed price services, and hourly rates) under schedule contracts to be fair and reasonable (Reference FAR 8.404(d)).

An order to provide LOGCOP support services represents the best value to the Government and will result in the lowest overall cost.

In this instance, failure to use the original source will result in substantial duplication of cost to the government which is not expected to be recovered if it were openly competed. The time required for a new developer to learn the code, table structures, interfaces, system administration requirements, and maintenance activities would take directly away from development time for outstanding requirements.

7. DESCRIPTION OF EFFORTS MADE TO ENSURE THAT OFFERS ARE SOLICITED FROM

AS MANY POTENTIAL SOURCES AS DEEMED PRACTICABLE, MARKET RESEARCH

CONDUCTED AND THE RESULTS: BAE has been providing the Air Force-specifIc development support under Navy sponsored contract number W91QUZ-07-D-0003, T.O. 1F03, administered by Defense Infonnation Technology Contracting Organization-PacifIc (DITCO-PAC/PL712). BAE employees have been working the project for 36 months and have acquired a vast amount ofknowledge and understanding of the complex processes involved with joint logistics operations that will be lost and would require re education if a new/different contractor hires a new team to accomplish the tasks. Relearning for a new contractor would occur at multiple levels which include logistics and technical. LOGCOP uses a suit of modem technology which involves a steep learning curve. LOGCOP data interfaces with external applications are complex but well understood by the incumbent contractor.

During the previous development period, the Navy sponsored developers/programmers at no cost to the Air Force andthe JTF. This follow-on effort is the formal incorporation of USAF and JTF-519 development requirements via a new contract. PacifIc Command and the Navy program office at Pacific Fleet, N41 Mr.

Tom Tichy intended to utilize this Air Force contract vehicle to renew/continue their Navy-specific requirements with BAE, vice generating a new contract when their current effort after 30 September. This will maximize development effort in support ofmultiple services and bring best value and least conflict to the overall LOGCOP development in support of the Service, Agencies, JTF-519 and the PacifIc Command.

Commercial services and other GSA Alliant contractors (total 59 contractors are all large businesses) will be exposed to a huge learning curve to learn the LOGCOP operating systems, and have to spend time learning to modify, update and perform other systems confIguration work requirements. Other contractors will not have the knowledge, experience, and capabilities equal to BAE; and will cost more than BAE can propose. The government will incur costly enhancements if LOGCOP support services is purchase from other source besides BAE.

Additionally, the LOGCOP operates in a "SECRET" environment, so all personnel involved must have a valid US security clearance. Current wait times to get appropriate clearance would lead to unacceptable delays in fulfIlling the USAF and JTF-519 development requirements. These delays will have a direct effect on the ability to support the JTF-519 Commander and would result iQ severe logistics mission degradation in the event JTF-519 is fully activated while awaiting clearance approval.

Finally, the need for continuity and concerns with delays caused by security clearance requirements .necessitates the utilization of the same developers/programmers as they are the sole source of the coding experience for the past 3+ years and have already met the security clearance requirements.

8. ANY OTHER FACTS SUPPORTING THE USE OF OTHER THAN FULL AND OPEN

COMPETITION: Additional concerns are a new "stand alone" PACAF system would require "start-up" time (estimated at 3-6 months) to customize the new system to PACAF's specifIcs requirements. This lapse in service would increase the risk of logistical collapse with critical supplies and equipment tracking during lapse period as well as limit PACAF's ability to support Air Force, Navy, and PACOM logistics program.

The very nature of the work leads to the necessity for this continued provision ofa highly specialized service in order to maintain continuity of development, while negating lost capacity due to delays in "spin up" time and in acquiring proper security clearances. This proposed contract award will be the contract acquisition vehicle for Air Force, Navy, and PACOM logisticians in customizing future development of LOGCOP systems for improvements, capabilities, and interoperabilities.

9. A STATEMENT OF ACTIONS, IF ANY, THE AGENCY MAY TAKE TO REMOVE OR

OVERCOME ANY BARRIERS TO COMPETITION BEFORE ANY SUBSEQUENT

ACQUISITION FOR THE SERVICES REQUIRED: The Air Force, Navy, and PACOM are preparing a contract with a longer performance period and a larger scope that can be award by competition.

10. DETERMINATION BY THE CONTRACTING OFFICER THAT THE ANTICIPATED COST

TO THE GOVERNMENT WILL BE FAIR AND REASONABLE: Published prices for the required services are available from GSA contracts, and current task order issued under the Army contract pricing will provide the contracting officer a basis in determining a fair and reasonable price.

11. DESCRIPTION OF THE MARKET RESEARCH CONDUCTED AND THE RESULTS OR A

STATEMENT OF THE REASON A MARKET SURVEY WAS NOT CONDUCTED:

BAE is the original software developer, and although the code is not proprietary, the fact that they wrote the code makes them uniquely best qualified to continue the work uninterrupted. The current task order was issued to BAE on 12 Sep 2008 under an Anny Contract. BAE has been developing and improving

LOGCOP system in cooperation with the Navy and Air Force logistician ever since and has performed very well. No software developers and other sources will be able to match BAE's experience and knowledge of the LOGCOP system in a joint planning and operational environment.

12. A LISTING OF SOURCES, IF ANY, THAT EXPRESSED, IN WRITING, ANY INTEREST IN

THE ACQUISITION: None.

13. CONTRACTING OFFICER'S CERTIFICATION:

The contracting officer's signature on the Coordination and Approval Document evidences that he/she has determined this document to be both accurate and complete to the best of his/her knowledge and belief

(FAR 6.303-2(b)(12)).

14. TECHNICALIREQUffiEMENTS PERSONNEL'S CERTIFICATION

As evidenced by their signatures on the Coordination and Approval Document, the technical and/or requirements personnel have certified that any supporting data contained herein, which is their responsibility, is both accurate and complete (FAR 6.303-2(b)).

DATE

COORDINATION AND APPROVAL DOCUMENT

CONTRACTING ACTIVITY: 647 CONSILGCZ

PROGRAMIPROJECT: Provide of software development services for the Pacific Air Forces (PACAF) and Joint Task Force-519 (JTF-519) Logistics Common Operating Picture (LOGCOP) in support of the. Headquarters PACAF Director of Logistics (pACAF/A4) and the functional alignment of the PACAF/A4 as the JTF-519 Director of Logistics (JTF-519/J4). Work also includes programming, sustainment and database services in support of the CPF N41 LOGCOP system, Navy's NRRE-BI, GCCS-J, JTF 519, PACAF, PACOM, and other service component LOGCOPs.

AUTHORITY: 40 USC 501 as implemented by FAR 8.405-6(a).

TYPEJ&A: Limited Source Justification, Task Order placed under FSS

'3 M" \ I

~fl{b- A ISONT. MCGUIRE, Capt, USAF

PACAF/JA

Phone: (808) 449-1737

Recommend Approval.

ERIKA 1. EBERHART

Competition Advocate

Phone: 808-448-2903

APPROVED.

AUG 10 2011~LAURA 1. PPLEWHITE, Capt, USAF Commander, 647th Contracting Squadron Phone: 808-448-2954