GFM JA - Redacted_Redacted.pdf

CUI

JUSTIFICATION FOR OTHER THAN FULL AND

OPEN COMPETITION (OTFAOC)

Federal Acquisition Regulation (FAR) Part 6 Justification & Approval (J&A), Supporting Procurements under FAR Part 12 and FAR Part 15

Contract Number: HC104720D2045 Procurement Title: Global Force Management (GFM) Indefinite Delivery / Indefinite Quantity

(ID/IQ)

Estimated Value:

Statutory Authority: Federal Acquisition Regulation (FAR) 6.302-1

Justification for OTFAOC Number: JA24-134

Upon the basis of the following justification, I, as Head of the Contracting Activity (HCA), hereby approve the use of other than full and open competition pursuant to the authority of FAR 6.302-1, only one responsible source and no other supplies or services will satisfy agency requirements.

1. REQUIRING AGENCY AND CONTRACTING ACTIVITY:

Requiring Agency:

Defense Information Systems Agency (DISA) Program Executive Office – Services (SD422) 6910 Cooper Avenue Fort Meade, MD 20755

Contracting Activity:

DISA/Procurement Services Directorate Defense Information Technology Contracting Organization (DITCO) Joint Enterprise Services Contracting Branch (PS62) P.O. Box 549 Fort Meade, MD 20755

2. NATURE/DESCRIPTION OF ACTION(S): The nature of this action is to increase the ceiling of the current GFM ID/IQ contract, HC104720D2045, by from to . The increased ceiling will enable the award of new task orders (TO) and continued specialized services to complete development of the Joint Planning and Execution Services (JPES) that was unfinished from GFM Task Order (TO) 5 while also providing for the sustainment and maintenance of JPES until the sunset of the Joint Operation Planning and Execution System (JOPES). The additional TOs will provide continued mission-critical development and JPES modernization to the existing JOPES.

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Controlled By: Defense Information System Agency (DISA) Controlled By: Procurement Services Directorate (PSD)/Joint Enterprise Contracting branch (PS62) CUI Category: PROCURE Distribution/Dissemination Control: FEDCON POC: Sebrina A Lewis, Sebrina.A.Lewis.civ@mail.mil

JA24-134 Global Force Management

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JOPES is the existing joint system used to monitor, plan, and execute mobilization, deployment, employment, and sustainment activities associated with joint operations and exercises. JOPES’ architectures are aging and require increasingly expensive sustainment efforts, which has resulted in the need for the development, implementation, and modernization of JPES; a net-centric, service-oriented architecture.

The GFM ID/IQ was competed as a full-and-open acquisition under solicitation HC104720R0009. On 24 September 2020, a single-award ID/IQ contract, HC104720D2045, was awarded to ERP International, Inc. (ERP) for a five-year ordering period. The awarded contract ceiling was .

A ceiling increase of will ensure continued development and implementation of JPES until development is complete and the requirement shifts to the sustainment and maintenance of JPES.

3. DESCRIPTION OF SUPPLIES/SERVICES: Continuity of services is required for support of GFM, which provides critical software development and implementation of a modernized net centric JPES to replace the existing JOPES.

The DISA JPES Program Management Office (PMO) and Joint Planning and Execution Community are delivering the next generation of services that provide force planning, deployment planning and execution (force projection) capabilities to the warfighter. The JPES PMO currently manages the following legacy systems: JOPES and Joint Capabilities Requirements Manager (JCRM). These legacy systems architectures are aging and require increasingly expensive sustainment efforts, which has led to the requirement for modernization and the transition to a net-centric, service-oriented architecture. JOPES is the joint system used to monitor, plan, and execute mobilization, deployment, employment, and sustainment activities associated with joint operations and exercises, as well as identify force requirements in service of the GFM allocation process.

These services require specialized subject matter experts and technical knowledge of the JOPES software systems and configurations, as well as specialized knowledge of the replacement JPES software systems and configurations. To avoid a gap in mission-essential services and to ensure the successful sunset of JOPES, the JPES software development and implementation must continue without interruption.

The increased ceiling is required to provide the Minimum Viable Product (MVP), continue software development and implementation, reach the Operational and Sustainment phase of JPES, and allow JOPES to sunset.

4. IDENTIFICATION OF STATUTORY AUTHORITY: Only one responsible source and no other supplies or services will satisfy agency requirements, 10 U.S.C. 2304(c)(l), FAR 6.302-1, and Defense Federal Acquisition Regulation Supplement 206.302-1.

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5. DEMONSTRATION OF CONTRACTOR’S UNIQUE QUALIFICATIONS:

(a) Description of Events.

TOs 1-3 were successfully completed by ERP. As the period of performance for TO4 neared completion, PS62 was notified by SD422 that ERP had not successfully completed all the required deliverables. Completion of these deliverables was required prior to the continuation of tasks outlined within GFM TO5. To limit the cost risk to the Government, the PMO opted to revise the contract type of TO5 from CPFF to Firm-Fixed Price (FFP).

The total evaluated price/cost for TO5 was . This amount, in addition to the values of TOs 1-4, resulted in a remaining ID/IQ ceiling of . Therefore, an ID/IQ ceiling increase is necessary as the remaining ceiling is insufficient to cover the requirements to provide the MVP, continue software development and implementation, reach the Operational and Sustainment phase of JPES, and allow JOPES to sunset. The MVP was scheduled for delivery in January 2024; however, it lacked the functions and capabilities required to replace JOPES, correct severity 1 and 2 deficiencies, and address the security requirements to obtain an Authority to Operate.

The services under the GFM contract require specialized subject matter experts and technical knowledge of the JOPES software systems and configurations. The JOPES system architecture dates back 35 years and is comprised of end-of-life (EOL) hardware and software components and an obsolete programming language for the software code base, Tool Command Language / Tool Kit, that are no longer widely available in Industry.

Additionally, the systems are integrated with over 20 external DoD Command and Control and logistics capabilities through tightly coupled interface connections and have critical external dependencies for many common and core functions. JPES software development and implementation for replacement of JOPES must be uninterrupted to avoid a gap in mission-essential services. Continuity of services is required for the support of GFM which provides critical software development and implementation of a modernized net centric JPES to replace the existing JOPES.

(b) Justification.

(1) Minimum Government Requirements. The minimum requirement is to provide a modernized net-centric system that contains all the current capabilities of JOPES. As JOPES hardware and software systems are coming into EOL, it is necessary for JPES to be operational as soon as possible to support the Combatant Commands’ (CCMD) ability to move troops.

(2) Proposed Sole Source Contractor. The proposed sole source contractor is ERP

International, Inc. These services require specialized subject matter experts and technical knowledge of the JOPES software systems and configurations, as well as specialized knowledge of the replacement JPES software systems and configurations.

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(4) Impact. The result of not continuing with the current contractor would be a significant delay in making JPES operational and sunsetting JOPES. The delay could potentially be 12 months, if not longer. JOPES is currently experiencing significant sustainment issues due to unsupported hardware and EOL software, and it is becoming very high risk to sustain due to its cybersecurity vulnerabilities. If JPES does not continue development and deploy into the operational environment, there is a high risk that JOPES will be unsupportable, which will impact over 20 externally connected operational systems. This would significantly degrade CCMDs’ ability to move troops in support of ongoing combat operations.

6. CONTRACT OPPORTUNITIES ANNOUNCEMENT/POTENTIAL SOURCES: This modification is an increase of the ceiling amount on the original competitively awarded ID/IQ contract. It will deploy JPES as fully operational capable in the production environment and begin sustainment. In accordance with DISA Acquisition Regulation Supplement 5806.302-1(S- 90), the HCA has waived the requirement to post a request for information or a sources sought notice, as prescribed in Defense Federal Acquisition Regulation Supplement and Procedures, Guidance, and Information 206.302-1(d). The follow-on effort will seek other viable industry sources to pursue a competitive solution.

7. DETERMINATION OF FAIR AND REASONABLE COST: The Contracting Officer will evaluate the contractor’s price/cost proposal using one of more of the methods described in FAR

15.404 to determine the price/cost as fair and reasonable.

8. MARKET RESEARCH: This is an increase to the ceiling of the existing contract to ensure continued support until JPES is operational and JOPES is sunset. Market research conducted at award identified that there is a competitive marketplace for the services provided under the GFM ID/IQ contract; however, for the reasons cited within Section 5 of this J&A, ERP is the only source capable of meeting agency’s requirements taking into consideration cost, schedule, and performance requirements for the mission critical JPES warfighting capability.

9. ANY OTHER SUPPORTING FACTS: None

10. LISTING OF INTERESTED SOURCES: As indicated in Section 5, ERP was awarded the single award ID/IQ under full and open competition. No additional sources were sought during market research.

11. ACTIONS THE AGENCY MAY TAKE TO REMOVE OR OVERCOME BARRIERS

THAT LED TO THE EXCEPTION TO FULL AND OPEN COMPETITION:

(a) Procurement History. The current contract, HC104720D2045, was solicited via full and open competition and awarded to ERP International, Inc.

(b) The current ordering period of GFM expires September 3, 2025. A new TO is projected to be awarded prior to September 3, 2025. The ceiling increase associated with this J&A will provide sufficient ceiling to accommodate continued development and support of GFM for approximately 12 months beyond the expiration of the IDIQ ordering period.

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(c) Once JPES transitions into an operations and sustainment environment, the sustainment of the system will be fulfilled via a competitive contract (or order).