redacted_SME_Final_JA_18_Mar19_Redacted.pdf

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

SOURCE SELECTION SENSITIVE

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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! )

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

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

Contracting Activity: AFLCMC/HIKA

Purchase Request / Local ID Number: AFLCMC/HIK-XX-J00X

Program / Project (and PE, if applicable): PEO Program (SME Contract)

Program Type (PEO or Other Contracting): PEO

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

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I. Contracting Activity.

BUSINESS ENTERPRISE SYSTEMS (BES)

AFLCMC/HIKA

4225 Logistics Avenue, Rm A212

Wright-Patterson AFB, OH 45433-5769

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

The purpose of this acquisition is to put in place a bridge contract to obtain Subject Matter Expert (SME) support and eliminate the break in service resulting from the protest of the competitive follow-on contract action. The SME contract provides support for 13 Logistics Readiness Branch (AFLCMC/ HIAR) and Logistics Maintenance Branch (AFLCMC/HIAM) systems and Program Management Offices (PMO). Contractor personnel are individuals with a specific level of expertise in certain key system areas and disciplines with knowledge of the domain in which each system operates. These professionals provide unique, in-depth functional and technical knowledge of application and system operations.

As of 28 Feb 2019, there were 71 SME support employees and 10 vacancies. The PMOs do not have organic resources available or the specialized knowledge to provide SME support services. No government allocations for additional positions are available. The period of performance on the prior SME Support contract ended on 28 Feb 2019. A Source Selection for continued SME support, to be effective 1 March 2019, was completed and a contract awarded on 29 Jan 2019 to Datum software.

The awarded contract for SME support services utilized the Network-Centric Solutions-2 (NETCENTS-2) IDIQ Contracting Vehicle as required by SAF/CIO A6 Action Memo, 15 Sept 2014, Mandatory Use of NETCENTS-2 Contracts. The NETCENTS-2 contracts provide the Air Force with a primary source of net-centric and IT products, services, and solutions. A GAO protest to the awarded SME contract was received on 11 Feb 2019 from the incumbent contractor, Excellus Solutions, putting in place an automatic stay. An override was not granted, which resulted in a stop work being issued against the newly awarded contract to Datum; creating a break in service effective 1 March 2019.This protest was dismissed on 27 Feb 19 for corrective action. A second GAO protest was submitted by the incumbent contractor against the amended solicitation on 12 Mar 2019. A request to dismiss this second protest was submitted by AFLOA to the GAO on 15 Mar 2019 as the team is again recommending corrective action. The subject bridge effort is intended as a stop-gap measure to minimize a break in service while the government continues to actively conduct the corrective action. It is anticipated that this corrective action will take between 30 and 60 days to complete.

A bridge contract action is necessary to end the break in service and will be awarded to the incumbent as a new Firm-Fixed Price (FFP) contract. The FFP contract will include a Base month and 5 Option months of performance. The Cost for this bridge requirement is based on government cost estimate and is expected to be as follows:

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(Note: Months are current estimates and dependent on actual award date)

Funding Types include: Consolidated Sustainment Activity Group - Maintenance/Supply (CSAG-M/ S), Operations & Maintenance (3400) and Research & Development (3600).

The period of performance supports the following programs:

1. Contractor Supported Weapon System Data Exchange (CSWS DE)

2. Maintenance Planning and Execution (MP&E)

3. Item Management Control System (IMCS)

4. Requirements Management System (RMS)

5. Purchase Request Process System (PRPS)

6. Reliability and Maintainability Information System (REMIS)

7. Weapon System Management Information System (WSMIS)

8. Air Force Equipment Management System (AFEMS)

9. Stock Control System (SCS)/Financial Inventory and Accounting Billing System (FIABS)

10. Depot Maintenance Systems Integration (DMSI)

11. Depot Maintenance Legacy Systems (DMLS)

12. Enhanced Technical Information Management System (ETIMS)

13. Technical Manual Specifications and Standards (TMSS)

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

The objective of this requirement is to obtain SME support, during the corrective action period of the GAO protest for AFLCMC/HIAR and AFLCMC/HIAM systems and PMO throughout the period of performance.

Programs to be supported currently include CSWS DE, MP&E, IMCS, RMS, PRPS, REMIS, WSMIS, AFEMS, SCS to include FIABS, DMSI, DMLS, ETIMS, and TMSS.

Scope of performance includes the following:

a. Translating user requirements for input into system specifications, data management plans, configuration management plans, life cycle management documentation, integrated logistics support plans and related operational summaries.

b. Gathering information from users, defining work problems, and designing a system and procedures to resolve problems.

c. Working with customer and development/sustainment contractors on the design, development, analysis, test, and maintenance of software and logical and physical databases in order to meet functional requirements.

d. Providing input to specifications and/or user documentation for client or user personnel.

e. Conducting enterprise-wide strategic systems planning, business information planning, and business analysis with the PMO.

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f. Providing input into functional, process, and data modeling in support of planning and analysis efforts.

g. Examining and analyzing current and contemplated operations for developing, defining, and coordinating user requirements to satisfy the total program need.

h. Act as a member of the Integrated Test Team (ITT) and test system releases, COTS upgrades, and any patches to the system.

i. Utilizing data design, proposed system revisions, and test results to ensure functional requirements are met, to include Financial Improvement and Audit Readiness (FIAR), Federal Information System Control Audit Manual (FISCAM), National Institute of Standards and Technology (NIST), and Blue Book modification and modernization efforts, as applicable to each system.

j. Researching, analyzing, and providing system technical and functional system specific data to assist the PMO with Requests for Information (RFIs).

k. Reviewing developer's technical proposals to ensure correctness, consistency, completeness, and compliance with requirements.

l. Schedule program meetings and invite attendees.

m. Communicate with functional users at the ALCs, Nuclear Weapons-Related Materiel (NWRM), and Crypto.

n. Supporting system modification and modernization efforts to include Air Force Common Computing Environment (CCE) cloud migration, as applicable to each system.

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

Only One Responsible Source (FAR 6.302-1).

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

The Justification and Approval document for the SME requirement Cites Only One Responsible Source (FAR 6.302-1). Given the immediate operational need of the highly specialized SME services, no other vendor could successfully take over full operation of the SME support contract in a timely enough fashion to avoid an unacceptable delay in fulfilling the agency's requirement.

This acquisition is for continued performance of a highly specialized service.

The SME bridge requirement will allow for SME services to resume in the shortest amount of time possible, thereby providing time to come to resolution with SME II competitive contract award GAO

March 2018 SOURCE SELECTION SENSITIVE Page 5 of 11 protest related activities. This bridge effort will be broken into 1 month increments, in the form of a 1 month base period and five 1 month options, in order to minimize the potential length of any sole source bridge effort to the maximum extent practicable. This option structure will allow completion of this bridge effort to more closely align with resolution of on-going protest related issues on the competitive follow-on effort.

Award to any other source would result in substantial duplication of costs to the Government that is not expected to be recovered through competition and unacceptable delays in fulfilling the Air Force's requirements. The incumbent contractor is uniquely positioned to most quickly provide the necessary services considering the characteristics of the current situation. Over the last five years, Excellus Solutions has performed the support on this contract. They are uniquely qualified to continue to provide this support without the necessary activities required of a new contractor. The incumbent contractor is better positioned to more quickly acquire the necessary personnel due to the prior employer/employee relationships established under the previous SME contract. Also, due to the extreme familiarity with contract requirements, program operations, systems specifics, etc., the incumbent possesses significant management efficiencies which will allow for a more immediate ramp up to full operational support of the highly specialized SME services. A bridge contract to the incumbent will minimize the break in service which has already resulted in negative consequences directly impacting the Air Force mission.

The alternative of performing a source selection for this interim period, or awarding to one of the competitors other than the incumbent Excellus, would result in further unacceptable delays that would cause an escalation of significant negative impacts to the mission.Even the conduct of a limited competition is not practicable at this time considering the 3 to 6 month estimate to do so, combined with the goal of completing the on-going corrective action in as little as 30 to 60 days. Furthermore, in consideration of the very short duration of the projected bridge effort (a minimum of 1 month up to a maximum of 6 months), and the fact that conducting a limited competition would undermine the Government's ability to timely award the long-term competitive contract, a bridge effort directly to the incumbent is the most appropriate course of action based on the current circumstances. Efforts to award a bridge contract will place increased strain on the already limited resources in place and conduct of even a limited competition would further amplify this constraint and serve to divert time and effort from the long-term competition.

Furthermore, on 5 March 2019, a sources sought synopsis was posted on FedBizops providing public notification of the Governments intent to conduct negotiations with Excellus, the incumbent contractor, for a bridge contract. The synopsis requested responses to the notice to be submitted no later 14 Mar 2019. As of 17 March 2019, Excellus is the only contractor that responded to the notification stating, as the incumbent contractor, they have staff available to reinstate services immediately.

If this J&A were not approved, the Government would incur additional costs that would not be expected to be recovered. It is estimated to compete this bridge contract action would take 3 to 6 months and the estimate for those additional costs is $247,000 to $495,000.

A. Estimated Cost to Run a Competition. The Government would need to complete the necessary steps to run a competition. The cost to run a competition has already been determined and is maintained in

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Enterprise Information Technology Database Repository (EITDR). The cost for one (1) full-time equivalent (FTE) is $99K for 12 months. To perform a full and open competition for a SME Bridge Contract, it would take 3 to 6 months using 14 organic resources (4 PMO full-time, 1 Contracting Officer full-time, 1 Contract Specialist full-time, 1 Engineer part-time, 1 Cost Analyst part-time, 1 Finance Manager part-time, 1 Legal/Policy/Small Business part-time, 4 Technical part-time).

- 1 full-time FTE/3 months = $37,125

- $24,750 = 1 full-time FTE/3 months

- $12,375 = 1 full-time FTE/1.5 months

- 1 part-time FTE/3months = $18,562

- $12,375 = 1 part-time FTE/3 months

- $6,187 = 1 part-time FTE/1.5 months

- 4 PMO; 1 CO; 1 CS = 6 full-time FTE X $24,750 per FTE = $148,500 for 3 months

- 1 ENG; 1 CE; 1 FM; 1 Legal/Policy/SB; 4 Tech = 8 part-time FTE X $12,375 per FTE = $99,000 for 3 months

- $148,500 + $99,000 = $247,500

The cost resulting from delays in performing a full and open competition for this bridge effort would surpass any possible cost savings that could result. This would also be a substantial duplication of costs considering a competitive acquisition is currently under way for a long term follow-on contract.

Furthermore, based on the scenario of a 3 month competition for this bridge effort, the corrective actions for the on-going competitive follow-on contract is anticipated to be completed in less time.

Taking into consideration the corrective action schedule, the subject proposed bridge action is structured to minimize its use by only covering the period necessary to complete the corrective actions.

Failure to approve award of a bridge contract will result in the inability to provide essential IT system and support services that enable Air Force supply-chain and depot maintenance operations and capabilities effecting more than 100,000 end users. This will directly impact the Air Force's ability to determine, authorize, provide visibility, and report the types and quantities of systems information required to accomplish the AF mission.

Many of the IT systems supported by these SMEs serve as primary sources of integrated, real-time data for organizational decision-making, which will degrade quickly to the point of driving delays in maintenance planning and execution as well as inaccurate buy and repair decisions for weapon system spares. If a SME bridge contract is not awarded the enterprise logistics programs and associated PMOs will not be able to accomplish their mission.

Since the lapse in performance there have been a number of incidents that demonstrate the urgency of re-instating support through this bridge action. The following is a sampling of impacts already experienced, or soon to be experienced, with a continued break in service:

REMIS

REMIS user access is being severely affected. System Access Requests (DD2875s) for REMIS are worked by SMEs and access requests are not being processed. Existing users are losing access daily and initial user requests are not being worked/completed. As “critical/high-users” lose access, they

March 2018 SOURCE SELECTION SENSITIVE Page 7 of 11 will not be able to process monthly reports that report flying hour status, availability, readiness, configuration, and CFO status to their respective MAJCOMs and agencies.

REMIS access will continue to diminish from the 1,300 direct users we have today, down to near-zero, thus rendering REMIS useless. REMIS is the accountable system for weapon system platforms. Over four to six months, this would stop all USAF flying operations, as well as cause loss of visibility into readiness of the USAF nuclear missile fleet, ICBMs, and ALCMs.

Time Compliance Network Orders (TCNOs) are not being implemented. Some TCNOs can only be accomplished by REMIS SMEs, including one that is currently published and due by 5 April. This TCNO will not be accomplished without SME support, leaving potential cybersecurity vulnerabilities exposed.

The REMIS 4126 report feeds the Condition Based Maintenance-Plus (CBM+) program, which supports applying the right maintenance action to the right aircraft (down to the exact tail-number) at the right time. This prevents sortie cancellation or in-flight aborts due to unscheduled maintenance actions and failures during flight. Currently CBM+ focus in on C-5, KC-135, C-130H and C-130J, C-17, and KC-10 aircraft rely on CBM+ for proper maintenance scheduling. These aircraft are at risk of increasing downtime as the SME break-in-service continues.

SCS

At time of the break in service, SCS SMEs were conducting Qualification Test and Evaluation (QT&E) of a Financial Improvement and Audit Readiness (FIAR) Change Request (CR) that was scheduled for release in April of 2019. Without SME Support, the SCS PMO does not have the technical expertise to complete this testing. If the SCS PMO does not conclude QT&E by early to mid-April, SCS will not meet mandated FIAR compliance. In addition, there are 3 additional CRs currently in coding that are part of a series of software changes to make SCS Defense Logistics management Standards (DLMS) compliant. A delay in testing the FIAR changes past mid-April will cause the release of the DLMS software release to be slipped. One of the DLMS changes is scheduled for release in July and the other two in September. The lack of SME support will result in a cascading series of software development and release delays, as well as contractual implications for the development contractor who is impacted by the lack of SME support and schedule slips.

On a day to day basis, the SMEs directly respond to operational issues and site problems. The SMEs also generate data extracts for a wide range of operational requests, which is now going unsupported.

Recently the PMO received a request for SCS Data Files from AFMC/A4 to provide end-of-month asset files for February. These files are needed for audit responses by Ernst & Young, the Independent Public Accounting firm. The SCS PMO was unable to respond due to lack of access and technical expertise.

The SCS PMO is currently in Source Selection (SS) for its technical sustainment contract. A 90-day slip, due to reallocation of government personnel to cover gaps in support, would put the contract at risk of not being awarded in time to use the NETSCENTS-2 vehicle, which has a 19 June 2019 deadline to be awarded. If this happens, SCS would have to completely re-accomplish the contracting strategy, which will almost certainly lead to an emergency contracting action or break in service on the SCS technical sustainment contract.

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SCS is currently going through a FIAR audit being performed by the Independent Public Accountant (IPA) Ernst and Young. SCS is beginning a new phase within the next two weeks. During earlier phases, the SMEs have been tasked to provide data to the auditor. When data is requested, the PMO is given only 5 days to respond. Also, one SME played a key role in the development of an automated system access request (DD2875) process that addresses one of the key auditor findings. The ultimate impact is the system could be shut down due to audit findings that cannot be corrected due to the lack of a SME to provide data.

TMSS

TMSS is completely dependent on technical data SMEs and is shut down with a complete work stoppage. There is no Help Desk support and TMSS has frozen all its specifications, standards and digital publishing suite offices. No support is being provided to the flight manual community, weapons loading community, sustainment centers and flight line maintenance. HQ ACC/A4 requested an urgent update to MTL-DTL-9977, which cannot be supported. Contractors heavily utilize TMSS to assist in formatting their technical orders and contractors may hold their technical orders until TMSS personnel return to verify their adherence to standards.

PRPS

As a result of not having PRPS SME support the PRPS program office/system is experiencing the following:

• Inability to quickly troubleshoot production (GCSS-AF ESB and interface partner (ACPS)) to award Purchase Requests

• Inability to provide PMO production trouble ticket analysis

• Inability to provide detailed downtime information

• For cloud migration inability to perform PMO smoke testing in CCE Test environment

• For cloud migration inability to verify SonarQube capability (security scanning) is operational and review SonarQube output

• Inability to review technical inputs concerning transfer of data for ESCAPE MOA

• Inability to validate ICD layout for data transfer requirement and MOA for ESCAPE MOA.

• Inability to provide PMO ROM inputs For new requirements

• Inability to provide technical and functional inputs for next sustainment release high priority requirement for Joint Application Design (JAD) meetings with users.

• Inability to provide active user count to Functional System Administrators for production

• Inability to provide PRPS technical inputs into requirements for future initiative

DLA eProcurement (DLR)

The lack of ability to accomplish these tasks has caused the PRPS PMO a delay in ability to award contracts that support the procurement of depot level spare parts for our warfighter.

WSMIS

The SME support at OC-ALC is a key resource. EXPRESS prioritizes $3M per day maintenance workload at the ALCs. Without SME support, there would be severe disruption in EXPRESS support at OC-ALC, affecting the ability to compute repair priorities and execution, causing hundreds of maintenance shops to be shut down from inducting maintenance workload. Morning and mid-day depot repair calculations will not be processed, preventing induction of spares for repair and driving

March 2018 SOURCE SELECTION SENSITIVE Page 9 of 11 down mission readiness rates. The AF would incur $3M per day in lost aircraft maintenance.

The SME at Oklahoma City Air Logistics Complex (OKC-ALC) was/is the OKC EXPRESS operator and his duties included Data Base Administrator as well as some system administration. Until centralization is completed, the headquarter EXPRESS here at Wight Patterson cannot run OKC's daily supportability - which prioritizes OKC depot repairs on their system with HQ data. OKC's back-up (provided by OKC for OKC) is only minimally trained in the basics of running EXPRESS. The back-up cannot provide all support and reports for the users that the SME was providing, nor trouble shoot or fix the system if broken. This puts the OKC depot daily workload of $3M/day at risk.

MP&E

The Maintenance Planning and Execution (MP&E) System is a Depot Level Repair Requirements and Program Management System that provides Repair Program Managers (RPM) with a standard system for maintenance program planning and management functionality for major and secondary items such as aircraft, missiles, engines, Other Major End Items (OMEI), exchangeable, area base manufactures, software and storage.

MP&E is entering the testing phase for a major Oracle software upgrade. The sustainment contractor just delivered the update and the SMEs have the expertise and subject knowledge to test the software.

Without SME involvement, the software release schedule is in grave danger of slipping, which could lead to a Category-1 cyber security finding resulting from unsupported commercial software on the Air Force Network (AFNet). The PM, Engineer and functional are trying to test the software independently but the team is not fully qualified in testing and could miss errors in the software or not fully test the S/W as it needs to be tested. The risk is that S/W delivered to the field may either be not fully tested or delivered late. This risk multiplies with each future S/W release.

Accordingly, Excellus is the only firm capable of providing the services described in Section III above without the U.S. Air Force experiencing substantial duplication of cost that could not be expected to be recovered through competition and unacceptable delays in fulfilling its requirements.

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

The most recent awarded contract for SME support services utilized the Network-Centric Solutions-2 (NETCENTS-2 IDIQ) Contracting Vehicle as required by SAF/CIO A6 Action Memo, 15 Sept 2014, Mandatory Use of NETCENTS-2 Contracts. The NETCENTS-2 contracts provide the Air Force with a primary source of netcentric and IT products, services, and solutions. Use of the NETCENTS-2 contracts is mandatory for Air Force organizations.

The suite of NETCENTS-2 contracts will provide NetCentric Products,NetOps and Infrastructure Solutions, Application Services, IT Professional Support and Engineering Services, and Enterprise Integration and Service Management. A source selection is currently in process to competitively award a long-term follow-on SME effort. As part of the effort proposals were received

However, GAO protests to the most recent awarded contract for SME II support services was received on 11 Feb 2019, and again on 12 Mar 2019, from the incumbent vendor, Excellus Solutions. Corrective action is being undertaken as a result of the GAO protests and is expected to be completed in 30-60 days.

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The incumbent contractor, Excellus Solutions, was working on site until contract expiration on 28 February 2019. Excellus Solutions was providing all required services satisfactorily and is capable of meeting DoD's requirements. In order to reduce the break in service while protest activities are concluded, no other vendor could successfully take over full operation of the SME support, in the timeframe required, without an unacceptable delay in support and duplication of costs.

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

The AF will perform a technical evaluation of the offeror's proposal. The PMO has historical SME support information from the current contract as well as recent cost data from multiple modification efforts to support this evaluation. A price analysis will be performed to compare proposed prices to those paid for the current contract and for similar support provided under other AFLCMC/HIAM contracts, especially competitive actions under NC-2, if available.

The Contracting Officer will perform a thorough cost/price analysis to evaluate the offeror's proposal prior to negotiation and award. Costs will be determined fair and reasonable through the use of the structured approach to cost analysis, and the Government Objective will be developed using the Weighted Guidelines Method IAW DFARS 215.404-4. The Defense Contract Management Agency (DCMA) or the Defense Contract Audit Agency (DCAA) will be requested to conduct a rate review or an audit of the offeror's cost proposal if appropriate. This action will exceed the cost or pricing data threshold and Certified Cost or Pricing Data will be submitted for this order, if required, and no exceptions apply.

As evidenced by my signature above, I have determined that the cost to the Government will be fair and reasonable to the best of my knowledge and belief. The basis for this determination is based on and Independent Government Cost Estimate.

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

Market Research Conducted for the SME II contract that was awarded on 29 Jan 2019: NETCENTS 2 - IDIQ; SBEAS IDIQ; and GSA 8(a) STARS II IDIQ.

SSS/RFI Posted on FebBizOps on 5 Sept 2017 and responses received 6 Oct 2017. Eight responses received from market research including 7 small businesses and 1 response from NITAAC IDIQ.

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.

The SME II contract Source Selection was completed and contract awarded on 29 Jan 2019 to Datum software. A GAO protest was received on 11 Feb 2019, and again on 12 Mar 2019, from the incumbent vendor, Excellus Solutions. The period of performance on the current services contract ended on 28 Feb 2019. A break in service has already occurred, with unacceptable impacts to the Air

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Force mission, and a bridge contract is needed in order to minimize and/or avoid the potential impacts.

A bridge contract is needed in order to prevent a lengthy break in service.

X. List of any sources that expressed, in writing, an interest in the acquisition.

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.

As a result of the protests received from the incumbent SME vendor, Excellus Solutions, efforts are currently underway to competitively select a SME II vendor.

XII. 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.

XIII. 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.