Web_CCaR_Signed_JA_Redacted.pdf

COORDINATION AND .. APPROVAL DOCUMENT

. New or amended J&A Document: New Contracting Activity: AFLCMC/PZIT Bridge Action As defined in the AF Bridge. Action -Reduction Plan: No . .

Funding Level:

Program Name: Web Comprehensive-Cost and Requirements (Web CCaR™) System Authority: 10 u:s.c. 2304(c)(.1j; as implemented by.FAR6 .. 302~1(a}{2)(Hi), O~iy One ResponsibJe Source .and No Other Supplies or Services Will Satis_fy Agency Requirements Purchase Request/Local l(;tentification Number: TBD Progrc;1m Type: Other Contracting

Total J&A Value:- Type J&A: Individual

CO.ORDINATION

Program Manager

Contracting Office:r:

Legal:

Chief of the Contracting: Office;

DATE

Competition Advocate:

APPROVED

Senior Center Contracting Offici

JUSTIFICATION FOR OTHER THAN

FULL AND OPEN COMPETITION

I. CONTRACTING ACTIVITY

The organization responsible for this contracting action is the Air Force Life Cycle Management Center, Specialized IT Support, Information Technology Information Branch, Corporate Information Technology Support Section (AFLCMC/PZIT), 2275 D Street, Building 16, Room 132, WPAFB OH 45433.

This is a Justification for Other Than Full and Open Competition; there is only one responsible source and no other supplies or services will satisfy agency requirements, Multiple purchase requests are anticipated for this IDIQ contract.

11. NATURE AND/OR DESCRIPTION OF THE ACTION BEING PROCESSED

Air Force Life Cycle Management Center, Financial Management and Comptroller (AFLCMC/FM) requests a follow-on sole-source contract be awarded to Integrated Data Services, Inc. (IDS) for Subject Matter Expert (SME) support of the Web Comprehensive Cost and Requirements (Web CCaR™) system under solicitation number FA8604-18-D-3500. This is a follow-on requirement from the current contract (FA8604-15-D-7001) which was awarded sole-source to IDS with a start date of 1 Aug 15 (base and 2 one-year options). Per a Headquarters Air Force Material Command (AFMC) memo dated Jun 2005, CCaR was identified as the preferred tool for requirements management. Additionally, the Under Secretary of Defense for Acquisition, Technology and Logistics, or USD (AT&L) memo, dated May 2005, recognized Web CCaR as the preferred requirements management tool for the AF.

SAF/AQ has amended AFI 63-101 to mandate all investment dollars be budgeted and executed in Web CCaR. These AF mandates require the AF to retain a highly-trained and proficient Web CCaR SME support staff.

This contract will encompass Web CCaR™ SME support for AFLCMC and Air Force Research Laboratory (AFRL). This will be a hybrid contract with Firm-Fixed Price (FFP) and Cost Reimbursable CLINs to procure support of twenty-eight Web CCaR'" SMEs at the following locations: Wright-Patterson AFB, Hanscom AFB, Warner Robins AFB, Hill AFB, Tinker AFB, Peterson AFB, Lackland AFB, and Offutt AFB. Additional, in scope work may be added at other locations at a future date. This individual J&A addresses work that will ensure uninterrupted deployment and sustainment support from the current contractor, IDS, who is the sole-owner and distributor of the Web

CCaR™ application and has proprietary rights to the appllcation base source code. As a result, it is not possible to obtain support for this highly-spedalized, proprietary solution from other contractors (IDS memo dated Jan 2015). Section V illustrates that award to any other source would result in substantial duplication of cost to the Government that is not expected to be recovered through competition, Ill. DESCRIPTION OF THE SUPPLIES/SERVICES REQUIRED TO MEET THE

AGENCY'S NEEDS

The purpose ofthis contract is to obtain on-site SME supporfforWeb CCaRTM and acquire services for the deployment and maintenance of the Web CC a R TM application and its functional baseline.

Under the contemplated sole-source IDIQ contract, IDS will provide the following services in support of deployment and sustainment of the Web CCaR™ application. The dollar figures listed below represent the budgeted amounts.

Service

Travel/User for SME Support

Total Overall Requirement

Ceiling Increase of IDJQ for potential new Requirements (7 ercent

Base Period

Total Cost for Base

Option 1 Option 2 Option 3 Option4 Period +4

FFP

Cost Reimbursabl e

SM E services include but ate not limited to (1) providing Web CCaRTM fl.mctionaJ and technical support for alJ Web CCaR™ Administrators/Business Analysts, such as assisting Web CCaR™Administrators/Business Analysts with advanced Web CCaRTM/DFAS reconciliation issues, workflow coordihation maintenance, target loads, distributed budget maintenance, reporting tools and various business processes, (2) providing CCaR training (excluding CCaR Certificate/Certification training) to all designated Web CCaR™ Administrators/Business Analysts and/or Web CCaR™ users (whether employees of other contractors, or Government employees who are fulfilling those roles), (3) providing technical interface between the end user Focal Point and the Software Developer contractor, (4) assisting users in developing and implementing methodologies to integrate Web CCaRTM use within the end user organization, (5) assisting Web CCaR™ users in developing and implementing the Workload Master List (WML}, Acquisition Master List (AML}, and Investment Master List (IML), (6) supporting activities associated with providing Web CCaR™ data for Project Management Resource Tools (PMRT), Executive CCaR™, PMRT Enterprise Reports, Data Access Program Reporting Tool (DAPRT), Purchase Request Process System (PRPS), Case Management Control System (CMCS}, and other similar business or process initiatives, based upon requests, (7) providing the AFLCMC and/or AFRL Web CCaRTM Government Representative with a monthly update notification of all proposed/scheduled briefings/demos for either the Web CCaR™ or Executive CCaR™ applications and include information regarding approved briefings/demos, (8) evaluating compatibility with the program structure and business process requirements of the supported organization, (9) assisting Web CCaR™ Administrators/Business Analysts in the interpretation of the financial information contained in Web CCaR™ and the analysis of this information for accuracy and completeness, and (10) providing advice regarding actions needed to correct, modify, verify, and/or validate the information from a financial, contracting, acquisition, and program management perspective.

Base Period:

Option 1:

Option 2:

Option 3:

Option 4:

1 Aug 2018 to 31 July 2019 1 Aug 2019 to 31 July 2020 1 Aug 2020 to 31 July 2021

1 Aug 2021 to 31 July 2022 1 Aug 2022 to 31 July 2023

Period of Performance is for a one year base period with four, one-year options to support sustainment. It is reasonable to seek approval for more than one fiscal year's requirement because this JDIQ contract will allow for maximum economy and efficiency by allowing for task orders to be issued from multiple geographical locations. Market prices are not expected to change significantly over the life of the contract. This structure also allows stability with the eventual awardee, i.e. the ability to sign employees to longer-term contracts thus generating further efficiencies and best ensuring continuity in the support provided to the Government. Upon award of the option years, the same contractor is ready and able to dellver required services on day one without the need for transition time.

SME support for this effort will utilize 3010, 3011, 3080, 3400, 3600 and 8242 funds.

IV. STATUTORY AUTHORITY PERMITTING OTHER THAN FULL AND OPEN

COMPETITION

10 USC 2304(c)(1), as implemented by FAR 6.302 (FAR 6.302-1 (a)(2)(iii)).

V. DEMONSTRATION THAT THE CONTRACTOR'S UNIQUE QUALIFICATIONS OR

NATURE OF THE ACQUISITION REQUIRES THE USE OF THE AUTHORITY CITED

ABOVE (APPLICABILITY OF AUTHORITY)

This highly-specialized sole-source sustainment effort is to be conducted under the authority of the FAR 6.302-1 (a)(2)(iii), which states that services may be deemed available only from the original source in the case of follow-on contracts for the continued provision of highly-specialized services when it is likely that award to any other source would result in substantial duplication of cost to the Government that is not expected to be recovered through competition. SME support for Web CCaR™ is essential to the Government's requirement. Web CCaR™ is mandated by SAF and the

SMEs involved in sustaining the system must have proper licenses issued by IDS to work with Web CCaR TM. Providing SME support for any other system than Web

CCaR™ would result in a substantial duplication of costs because the Web CCaR™ system would need to be replaced with another system and then, SMEs and users for that replacement system would need to be trained. Data would also need to be migrated to a different system. These duplicated costs are discussed in part (3) of this section below. Replacing the Web CCaR™ system is not practical as it is mandated and proprietary.

(1) SME support is critical to support Web CCaRTM functionality. Web CCaR™ is a privately developed software product that Is a customizable enterprise system tailored to fit the way the Air Force does business-resulting in a highly-specialized software program. There ls no evidence that the software ls used outside of the Department of Defense. Web CCaR TM delivers program and financial data through customized instances allowing each organization to manage costs and requirements at an organizational level. At a higher level, Web CCaR™ supports the Planning, Programming, Budgeting, and Execution process by presenting requirements and budget data across fiscal years for use in the Program Objective Memorandum and

President's Budget submissions and supports the entire execution process through interfaces with Government systems such as Automated Business Systems Solutions

(ABSS), Contract Writing document preparation tools (ConWrite) and Standard

Procurement Systems (SPS), Government Accounting and Finance System

(GAFS)/BQas well as other identified interfaces. Web CCaR™ is also used in other federal agencies due to its abihty to be customized to fit an organization's individual processes.

The current contract (FA8604-15-D-7001) is a sole-source effort awarded to IDS with a start date of 1 Aug 15 (one year base period, and 2 one-year options). The proposed sole-source effort for continued sustainment support is based on IDS's sole-ownership of the Web CCaR™ source code. Web CCaR™ is proprietary software (IDS memo dated Jan 2015). Since IDS owns all the base source code (IDS memo dated Jan 2015), it is the only vendor capable, qualified, and legally able to sustain the current baseline. The current contract option expires 31 Jul 18. As discussed in Section Vlll, currently there is no other system or application in the Air Force that can perform these unique functions in total. Therefore, this acquisition will be a follow-on contract for continued performance of a highly-specialized service.

(2) Due to the Government not owning the Web CCaR™ source code, award for support to any other source would result in a substantial duplication of cost to the Government that is not expected to be recovered through competition. Unacceptable delays in fulfilling the Air Force's requirements will also be experienced.

Selecting another contractor would terminate current support of the system. The new contractor would not be able to change source code, which is needed to run the application. IDS will maintain control of this privilege and any modifications, and a new contractor would not be able to modify database elements. SAF/AQXI has a sole source contract with IDS to provide database support at the Acquisition, Logistics and Technology Enterprise Systems and Services (Al TESS) system environment Web CCaR™ is housed at ALTESS1 and requires a remote Citrix2 connection via BASTION host to the database servers, which is limited to IDS. BASTION3 host is the only means for modifying source code and troubleshooting support on database servers. Since Web CCaR™ is proprietary, IDS is the only party able to accomplish support requirements. In addition, the embedded advanced report application is licensed through a third party vendor via IDS. The only Government option to gain control of the above support requirements would be to purchase full rights to the software and the t AL TESS is a premier technology service provider that delivers military-strength data security, innovative solutions, and a best-in-class customer support experience to enable mission readiness and suctess for the most critical applications, ALTESS's enterprise data centers serve millions of users around the world, supporting system environment needs for organizations throughout the Joint Forces, Department of Defense, and Army.

i Citrix is a desktop and application virtualization software. These tools allow authorized users access to Windows desktops and applications independently of the machine they are actually on, and from any device with any operating system.

3 BASTION host is the AL TESS name of the Citrix connection landing site. BASTION host is a common name used by the ALTESS personnel and IDS to distinguish the connection servers.

license for the advanced report application. There ls no price associated wlth this purchase because IDS will not entertain negotiatlons to purchase the source code as they will only sell licenses to use the software (JDS memo dated Jan'2015).

The result of selectlng another contractor would be a severe loss of speciaiized knowledge ofautomated financial management, requirements management, tracklng and reporting capabilities. Loss of specialized knowledge would increase Government workload and loss of efficiencies that have been developed over the past 20 years (Initial Operating Capability (IOC) of CGaRTM dates back to 1997 at Space and Missile Systems Center}, which would divert a significant amount of already scarce organic·FM and PM resources from other critical activities, The Web CCaRTM customer base within the AF does not have the manpower to be able to revert to accomplishing the support tasks currently being performed by IDS.

Significant dollar increases may be incurred ifUSD {AT&L) and/or SAF/AQ decide to re accompllsh a new programmatic and financial system due to the fact that a new contractor will have restricted access in Web OCaR rM. Because SM Es are integrally linked with the Web CCaR™ system and to IDS, any contractor other than IDS cannot provideSME support without acquiring/developing another software application containing the same requirements and functionality present in Web CCaR TM. Thls would result in costs that cannot be recouped through competition. Using an average of alary/annum (includes fringe benefits) per developer .full time developers} t years and an average training cost of~er user (-users}, it would cost -o develop a new system. Acquiring SMEs to support a new system is estim~ cost approximately the same amount as the proposed contract, Hence; re-accomplishing a new programmatic and financial system would resµlt in immense unrecoverable costs and the support. cost must be realized in either event.

This approach would also result in unacceptable delays in meeting the Air Force's requirements, resulting lh a gap in service due to the expiration of the ordering period on 31 July 2018. It is estimated that development of another client/server software application containing the exact same functlonalities provided by Web OCaR™ would take a minimum of ten years (the current system is presently in its twentieth year of deployment). A source selection to.gain SME support,. in addition to developing a new system, would take ancith.er several months. These costs, both in terms of money and time, would be much greater than the savings expected to accrue over the remaining life cycle of the Web CCaRT~ application.

The unavailability of automated financial management, requirements management, tracking and reportlng capablliUes over thattime framewould require manual tracking and reporting, which would divert a significant amount of already scarce organic FM and PM resources from other critical activities. A replacement program for Web CCaR™ and associated SME support would result in a lengthy development process. The Web CCaR™ customer base within the AF does not have the manpower necessary to revert to manually accomplishing tasks currently automated with Web CCaR™.

(3) Accordingly, IDS is the only firm capable of providing SME services described in Section Ill above without the Air Force experiencing substantial duplication of cost, which could not be expected to be recovered through competition, and unacceptable delays fn fulfilllng its requirements.

VI. DESCRIPTION OF EFFORTS MADE TO ENSURE THAT OFFERS ARE

SOLICITED FROM AS MANY POTENTIAL SOURCES AS DEEMED PRACTICABLE

A sources sought synopsis was published to FBO.gov on 16 February 2018 for two weeks under synopsis number FA8604-18-D-3500. The sources sought synopsis fulfilled the requirements of publicizing in accordance with FAR 5.201, and meets the Notice of Contract Action (NOGA) requirements in accordance with FAR 5.203. Only one vendor, JDS, responded w[th capabilities matrices addressing the technical requirements of the pending acquisition (e.g., financial capability, technical proficiency and experience of personnel, and Web CCaRTM certifications). Upon the technical team's review of the submission, it is evident that IDS is the only company that possesses the capability to meet the minimum requirements for this effort.

VIL DETERMINATION BY THE CONTRACTING OFFICER THAT THE ANTICIPATED

COST TO THE GOVERNMENT WILL BE FAIR AND REASONABLE

In accordance with FAR Subpart 15.403-4, certified cost or pricing data for support of Web CCaR will be obtained from the contractor. Cost analysis shall be used to evaluate the reasonableness of individual cost elements. A structured approach shall be used for developing a pre-negotiation profit or fee objective using the DD Form 1547, Weighted Guidelines, in accordance with DFARS 215.404-71. Historical data on the previous contract will be used and cost realism will be confirmed through a technical evaluation comparing skill mix, labor hours and the requirement. Additionally, an independent Government cost estimate using the current contract labor hour rates will be used to support the findings.

Upon performing these analyses, the contracting officer anticipates making a determination of price fair and reasonable.

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 above, market research, in accordance with FAR Part 10, was conducted by synopsis of the proposed acquisition, advising industry of the pending acquisition and soliciting inquiries from interested parties.

IX. ANY OTHER FACTS SUPPORTING THE USE OF OTHER THAN FULL AND

OPEN COMPETITION

No other facts.

X. LIST OF SOURCES, IF ANY, THAT EXPRESSED 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

AFLCMC/FZH is working to determine the best way ahead for the Web CCaR•" program. In a 23 June 2005 HQ AFMC Memo, the CCARS system was reviewed by the Acquisition Domain Portfolio Management (PIM Community of Interest (COi) along with the Program Management and Oversight (PM&O) Integrated Process Team (IPT). The Acqi.Jisition Domain has determined that the CCaR system is compliant with the Business Enterprise Architecture, the Domain Architecture, and with known laws and regulations. Therefore, they have approved the certification of the CCaRS investment since 2005 as the preferred requirements tool for the Air Force. Since the last acquisition renewal of this system on 15 Oct 2015, no new guidance has been issued to deviate- from that direction. As long as the AF chooses to continue mandating sustainment of the current application, no competition can be performed as long as IDS continues to own the base source code, including through option years of this effort.

Proprietary software source code restricts the opportunity for full and open competition for the Web CCaR ™ application. The Web CCaR™ software source code and associated technical documentation was developed at private expense and is the exclusive intellectual property of IDS (IDS memo dated Jan 2015).

XII. CONTRACTING OFFICER'S CERTIFICATION

The contracting officer's signature on the Coordination and Approval Document is evidence that he has determined this document to be both accurate and complete to the best of his knowledge and belief (FAR 6.303-2(b)(12)).

XIII. TECHNICAUREQUIREMENTS 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)).