GEP_Justification_for_Exception_to_Fair_Opportunity_Signed.pdf

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General Services Administration

Federal Systems Integration and Management Center

JUSTIFICATION FOR AN EXCEPTION TO FAIR OPPORTUNITY

UNDER TECHNOLOGY AND SYSTEMS ENGINEERING (TSE)

IDIQ CONTRACT GS00T11AJC0004

TASK ORDER GST0011AJ0100

The General Services Administration (GSA) makes this Justification for the issuance of an

Exception to Fair Opportunity order pursuant to Federal Acquisition Regulation (FAR)

16.5.

a) Identification of Agency and Contracting Activity:

General Services Administration (GSA)

Federal Systems Integration and Management Center (FEDSIM)

Acting in support of: Joint Improvised-Threat Defeat Agency (JIDA)

Contracting Activity:

GSA FEDSIM Contracting Office

1800 F Street, NW

Suite 3100 (QF0B)

Washington, D.C. 20405

b) Nature and/or Description of Action Being Approved:

This document approves a $4.9M increase in task order labor ceiling to provide required support under the JIDA TSE Global Enterprise Partners (GEP) Task Order (TO)

GST0011AJ0100. The GEP TO is a Cost Plus Award Fee (CPAF) TO awarded under the

Technical and Systems Engineering (TSE) Multiple Award IDIQ Contract vehicle. This increase in ceiling provides additional labor ceiling for the final option year (option year

4) of the GEP TO in order to provide for in-scope JIDA mission requirements.

JIDA requirements have continued to grow over the past year in direct relation with the Islamic State of Iraq and al-Sham (ISIS) threat, which also continues to grow, expand and adapt at a rapid pace. While the Decisive Effort still resides primarily in the U.S. Central

Command (CENTCOM) Area of Responsibility (AOR), JIDA has seen requests for support increase on a global scale.

Background: The Joint Improvised Explosive Device Defeat Organization (JIEDDO) was established in 2006 as a Deputy Secretary of Defense (DEPSECDEF) directed initiative with the mission to rapidly provide solutions to defeat the Enemy’s IED

Campaign and save the lives of service members fighting insurgent networks that employ

IEDs as a strategic weapon of choice. On March 11, 2015, the Department of Defense approved JIEDDO’s establishment as a permanent Combat Support Agency (CSA).

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JIEDDO has been realigned under the direction and control of Undersecretary of Defense for Acquisition, Technology, and Logistics (USD (AT&L)). The new name for the organization is the JIDA. The JIDA was established to innovatively employ information, analysis, and technologies to empower the war fighter with the insights needed to predict, preempt, and defeat IEDs and other asymmetric threats. In support of all Combatant

Commands (COCOMs), the JIDA harnesses, amasses, and fuses information, analysis, technology, interagency collaboration, and training support to enable more precise attacks to defeat violent extremist networks. The JIDA is prepared to provide analytical support and enemy network information to other U.S. Government Organizations and Coalition partners. In addition the Department of Defense has tasked JIDA with support to multiple overseas contingency operations related to world events.

The scope of GEP services is to provide, sustain, maintain, and upgrade information technology capabilities for the Global Enterprise Partner effort. Additionally, the contractor provides operational support for efforts designed to gather, integrate and disseminate information used in situational awareness, operational readiness, and decision support and analysis activities. The GEP on-site support and data reconnaissance is a key enabler to the JIDA tools that drive JIDA's Attack the Network (AtN) capability.

The GEP TO was competitively awarded on September 16, 2011, as a Cost Plus Award

Fee TO under FEDSIM’s JIDA TSE Multiple Award IDIQ, with a period of performance consisting of a twelve-month Base Period and four, one-year Option Periods for the full range of GEP Support services to JIDA. The purpose of this TO is to provide Global

Enterprise Partners support services to JIDA. The TO is currently in the final Option

Year (September 16, 2015 – September 15, 2016). Over the task order period of performance, there have been several labor ceiling realignments to support JIDA organizational requirements but the total labor ceiling has not increased. This action is the first increase in total task order labor ceiling. A labor ceiling increase of $4.9M will increase overall task order labor ceiling by approximately 7%, and overall task order ceiling by approximately 5%.

c) Description of Supplies/Services and Estimated Value:

JIDA requires an increase in OY4 labor ceiling of $4.9M to provide additional capability and data integration support services to enable JIDA to achieve successful execution of its mission through September 15, 2016. Capability and data integration of JIDA and partner organizations is core to the GEP task order and JIDA initiatives.

The requested labor ceiling increase will provide ceiling for Option Year 4 to support accelerated and increased GEP support required as the result of increased tempo of DoD operations and expanded GEP customer base. The increase in ceiling will provide for the continued support of current on-going initiatives, support approved by JIDA Director but not yet started, and projected initiatives pending final JIDA approval. Current initiatives include continued Expeditionary Capability Data Integrator Bench support and support to meet JIDA Director approved Requests for Forces (RFF). Future projected support includes COCOM GEP initiatives pending Request for Forces submissions.

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Increased labor ceiling will support the following JIDA GEP initiatives currently not provided for in current labor ceiling:

a. Tier I Support – Tier I support includes JIDA GEP mission initiatives for which ceiling was projected in current labor ceiling through January 2016, to include the Expeditionary Capability Data Integrator (EXP CDI) Bench used for forward deployed validated Government requests. Tier I support also includes Requests for Forces (RFF) for GEP support which have been approved by the JIDA Director and are required to be implemented in Option Year 4 but which were not included in the original task order labor ceiling. The Expeditionary CDI Bench provides surge support to deployed locations across the globe. When not deployed, the EXP CDI Bench supports other Task 3 requirements at JIDA.

These positions were included in the current OY4 labor ceiling as projected to be required through January 2016. JIDA has requested to continue this support through the end of OY4 in order to not interrupt ongoing mission support through overseas deployments. Request for Forces include requests for GEP capabilities from Combatant Commands and other agencies that JIDA supports. Tier I total labor required is estimated at $2,630,000. JIDA Director approved RFFs includes the following initiatives:

Information Technology Engineer (ITE) Support for Combined Joint Task Force

(CJTF) - Operation Inherent Resolve (OIR)

Capability Data Integrator Support for Combined Joint Task Force - Operation

Inherent Resolve (OIR)

Capability Data Integrator Support for Operation Resolute Support (ORS)

Capability Data Integrator Support for Special Operations Command Forward

North/West Africa (SOCFWD-NWA)

b. Tier II Support - Tier II support includes initiatives projected to be supported, based on

JIDA J6 correspondence with COCOM leadership, but not yet officially requested via

Request for Forces at this time. These future requirements are expected during OY4. Tier

II labor total is estimated at $2,250,000. Tier II support includes the following initiatives:

Capability Data Integrator Support for Combined Joint Inter-Agency Task Force

Syria (CJIATF-S)

Capability Data Integrator Support for Special Operations Command (SOCOM)

Capability Data Integrator Support for Unit 2 Naval Special Warfare (NSW)

Capability Data Integrator Support for 480th Intelligence, Surveillance, and

Reconnaissance (ISR) Wing

Capability Data Integrator Support for Joint Special Operations Command

(JSOC)

Capability Data Integrator Support for Building Partnership Capacity (BPC)

Operation Inherent Resolve (OIR)

Capability Data Integrator Support for European Command Joint Analysis

Center (EUCOM JAC)

Capability Data Integrator Support for NATO Special Operations Forces

Headquarters (NSHQ) & Supreme Headquarters Allied Powers Europe (SHAPE)

J2

Capability Data Integrator Support for US Forces-Korea

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d) Identification of the Exception to Fair Opportunity and Rationale:

This Task Order Justification is being prepared as required by:

FAR 16.505, Exception to Fair Opportunity Process

Defense Federal Acquisition Regulation System (DFARS) 216.505-70, Orders Under

Multiple Award Contracts

Procedures, Guidance and Information (PGI) 216.505-70, Orders Under Multiple

Award Contracts

JIDA requires an immediate ceiling increase of $4.9M for OY4 labor for a total task order ceiling increase of $4.9M in support of the JIDA GEP mission requirements. The rationale supporting this ceiling increase request is that an increase in current task order ceiling is in the interest of economy and efficiency as a logical follow-on to an order already issued under the contract.

This increase must be issued on a sole-source basis in the interest of economy and efficiency as a logical follow-on to an order already issued under the contract, provided that all the contractors were given fair opportunity to be considered for the original order

(FAR 16.505(b)(2)(i)(C)). A fair opportunity to compete was given under the original

Task Order GST0011AJ0100 for this requirement. This TO was solicited under the TSE multiple award contracts in 2011; four responsive, competitive proposals were received and evaluated on a best value basis.

The relationship between the original competed order and this follow-on is logical because it is a continuation of in-scope support currently provided under the TO, as well as an extension of same scope work for additional site requests. JIDA’s mission includes providing assistance to COCOMs and other Agencies in support of the Warfighter in their fight against IEDs. Due to the increased tempo of global terrorist actions, requests for JIDA GEP support have also increased. JIDA requires additional GEP in-scope capabilities to meet additional requests for GEP support. All support falls within the original TO scope and period of performance.

The value of the labor increase is estimated at $4.9M. A new competition to compete these requirements under the TSE multiple award contract would cost approximately

$500K, and would take approximately six months to compete and award. JIDA requires additional labor ceiling effective February 2016 in order to support JIDA mission requirements. A modification to increase the ceiling on the current task order could be accomplished in a much shorter period (approximately one month) and at lesser costs. A six month acquisition delay in proving requested support directly impacts the ability of

Agencies in their fight against IEDs. An additional two month delay to transition a new contractor to deployed overseas locations would add unacceptable risk to JIDA’s ability to fully meet mission requirements. Also the cost to award a new task order

(approximately $500k) is significantly more than the estimated cost (approximately

$20K) to award a modification.

In addition, JIDA and FEDSIM are currently in the acquisition phase to re-compete GEP requirements in accordance with JIDA’s Enterprise Acquisition Strategy Initiative. The new task order will reflect JIDA’s projected capabilities as required under JIDA’s evolved organizational structure and responsibilities. This task order is not projected to

Version 1/7/16 Page 5 be awarded until summer 2016 and a full 60 day transition period is projected to be required for overseas operational positions, responsibilities and knowledge transfer. This ceiling increase will provide support for current JIDA initiatives while an acquisition for follow-on support is conducted. Costs and time to conduct a new acquisition for the ceiling increase only, far outweigh any potential benefit to that approach, especially considering the short period of performance remaining on the current TO. The recompete for the entire GEP scope of requirements is projected to be completed before a new acquisition to provide support for ceiling increase requirements only could be completed.

The current on-site contractor at JIDA is performing directly related efforts on the existing TO that are the subject of this justification. The additional support falls within scope of the current task order requirements. A separate task order to provide support for the ceiling increase requirements only would incur additional program management costs as well as increased costs for coordination and integration efforts required when two contracts are providing the same scope of support to JIDA. It is not appropriate or fiscally responsible to contract for a new task order to provide the same services that are currently being provided under this TO.

A modification to increase current task order labor ceiling to this sole source follow-on is in the interest of economy and efficiency.

JIDA estimates that this labor ceiling increase will provide ceiling for the remainder of

OY4 to accommodate JIDA Director approved initiatives and expanded customer base.

An increase in ceiling must be effective February 2016 in order to support JIDA’s projected requirements. Based upon the above supporting rationale, it is appropriate to increase existing task order labor ceiling to meet JIDA J6 requirements. Ceiling increase to support this initiative is requested as soon as possible in order to support JIDA GEP increased tempo activities.

e) Determination That the Anticipated Cost is Fair and Reasonable:

FEDSIM evaluated costs at the time of initial FEDSIM TSE IDIQ awards and at the time of the GEP task order award and determined that proposed rates and fees were fair and reasonable. All ceiling increase costs are anticipated to be fair and reasonable, commensurate with the rates and fees currently utilized on the TO.

f) Other Facts Supporting the Justification

Fair opportunity was given under this TO, GST0011AJ0100, when it was originally competed and awarded on September 16, 2011 to the contractor under FEDSIM’s

JIEDDO TSE IDIQ GS00T11AJC0004. In order to maximize competition, FEDSIM released an Advance Notice of the Performance Based Statement of Work and conducted

Due Diligence sessions individually with each Industry Partner that requested one. As a result of these comprehensive solicitation efforts, FEDSIM received responsive proposals from four of the four TSE IDIQ awardees.

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g) Statement of Actions:

As mentioned, FEDSIM is currently recompeting these requirements under JIDA’s

Enterprise Acquisition Strategy Initiative. It is envisioned that these requirements will be solicited using full and open procedures under an Information Technology contract vehicle. All contract holders will be afforded fair opportunity to compete in the new acquisition. Additionally, FEDSIM will conduct comprehensive pre-solicitation techniques in an effort to maximize competition. Those techniques will include, at minimum, issuing and Advance Notice and conducting Due Diligence sessions with interested Industry Partners.

These actions will ensure that all barriers to fair opportunity are overcome in the recompeted acquisition.

h) Certification by Technical or Requirements Personnel

I hereby certify that the supporting data is complete and accurate and complete.

Stephanie Brotherton Date

FEDSIM Senior Project Manager

i) Signature of Authorized Official:

I hereby certify that the Justification is accurate and complete to the best of my knowledge and belief, and determine on the basis of the findings above that the exception to fair opportunity is in accordance with the requirements, and is in the best interest of the

Government.

Jeffrey L. McMullan Date

Contracting Officer

FEDSIM Acquisition Enterprise Sector

Tom Howder Date

Head of Contracting Activity