Justification_-_Air_Force_Human_Resources_Mangement_Modernization_(Fully_Signed).pdf

General Services Administration

Federal Systems Integration and Management Center

JUSTIFICATION FOR AN EXCEPTION TO FAIR OPPORTUNITY

UNDER ALLIANT GWAC CONTRACTS

SOLICITATION GSC-QFOB-14-0008

TASK ORDER GSQ0014AJ0108

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

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

16.505(b)(2).

a) Identification of Agency and Contracting Activity:

Client Agency:

General Services Administration (GSA)

Federal Systems Integration and Management Center (FEDSIM)

Acting in support of: United States (U.S.) Air Force

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:

FEDSIM intends to award a sole source ALLIANT task order to:

Booz Allen Hamilton, Inc.

8283 Greensboro Dr.

McLean, VA 22102

The contractor will perform the effort required by this Task Order on a Cost-Plus-Fixed-

Fee (CPFF) basis for labor and on a Cost-Reimbursable basis for tools, other direct costs, and long-distance travel. The action being approved is an Exception to Fair Opportunity pursuant to FAR 16.505(b)(2)(i)(B), with a duration of one year and two, three-month option periods. The total proposed period of performance is from 30 September 2014 to

31 March 2016, with an estimated value of the procurement of $10,651,658.94.

The high-level list of the services to be provided is project management, change management and training, technical services, meeting support, security trees, roles and permissions, organizational structure, issue resolution, functional support, information technology investment management, enterprise architecture development and governance, data strategy and implementation, Chief Information Officer support, and information technology governance.

c) Description of Supplies/Services and Estimated Value:

The required services support designing the Air Force Integrated Personnel and Pay

System (AFIPPS). AFIPPS is a Department of Defense (DoD) Major Automated

Information System (MAIS) acquisition program that will integrate personnel and pay management for all military personnel in the Air Force. The program is currently in the prototyping and design phase. The design contract was competitively awarded to IBM in

August 2013.

The services acquired under this Task Order will support the Air Force Human Resource

Management Modernization Program Office by providing input and data that supports the design of AFIPPS. The responsibilities of the contractor will include representing the

“to be” business processes and system requirements, coordinating across user representatives and subject matter experts, and making requirements trade-off recommendations to the Air Force to minimize lifecycle costs. The specific services required to support the Air Force are IT enterprise architecture management, IT architecture and process modeling, change management, functional requirements analysis, data requirements specification and metadata management, business process reengineering impact analysis, issue tracking and resolution, and facilitation of system design decisions with the Human Resource Management (HRM) Strategic Governance.

The resulting Task Order will not include any new work. The services described will focus on finishing all remaining work to reach Milestone B.

The prototyping and design phase is projected to be completed by August 2015. This date coincides with the Milestone B program review required before being granted the authorization to move to the next phase of the program. The design schedule is currently

7 months behind because the IBM contract was protested and required several months to resolve. Additional delays were incurred due to contract performance issues on the part of IBM. Given these delays, the AFHRMM program office has a low confidence that the system designs will be completed by August, 2015. As mitigation to the risk of delayed completion of the design, GSA FEDSIM has included two 3-month options in this task order. Any additional services supporting the Air Force Functional Sponsor beyond the prototyping and design phase will be acquired through the competitive process via Air

Force contracting offices.

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

This Task Order Justification is being prepared as required by FAR 16.505(b)(2), Exception to Fair Opportunity Process.

The authority under which this Justification for an Exception to Fair Opportunity is made is pursuant to FAR 16.505b(2)(i)(B): Only one awardee is capable of providing the supplies or services required at the level of quality required because the supplies or services ordered are unique or highly specialized.

This work is currently being accomplished on the Millennia Task Order M093. The current Task Order was competitively awarded to Booz Allen Hamilton (BAH) in 2009 as a follow on to the Millennia Task Order M072. This Task Order provided continued support to both the Army and the Air Force to support the Defense Integrated Military

Human Resources System (DIMHRS) development. The Secretary of Defense cancelled the DIMHRS program in February 2010 due to multiple programmatic failures. Due to the cancellation of the DIMHRS program, the Air Force began seeking alternatives to

DIMHRS, awarding a contract to IBM in August 2013 for the design of AFIPPS.

FEDSIM was not involved in the AFIPPS procurement. However, as part of the M093

Task Order, Booz Allen Hamilton’s support to the Air Force was shifted from DIMHRS design to AFIPPS design.

On 14 January 2014, FEDSIM staff met with the Army and Air Force to discuss the acquisition approach needed to complete the design support after the expiration of the current Task Order. The Army’s decision was to pursue follow-on support via Army

Contracting Command, while the Air Force decision was to continue FEDSIM contracting support through the end of the AFIPPS design phase. The Air Force has a lengthy waiver process that they must go through to use any contracting services outside their own organization. This process required that multiple offices and levels of leadership concur with the request to use FEDSIM services. In this particular circumstance, the Deputy Director of Contracting, Department of the Air Force, served as the Services Designated Official (SDO) who approved the waiver that allowed

AFHRMM to use FEDSIM services. AFHRMM began the waiver process on 10 March

2014 but did not receive approval from the Air Force SDO to use FEDSIM’s services to pursue this acquisition until late May. In anticipation of this delayed approval from the

Air Force SDO, a modification was executed to extend the period of performance to 27

October 2014, the last date that the Millennia contract vehicle could be used. However, this extension is only an interim measure and not sufficient to meet the needs of the

AFIPPS program between now and the Milestone B decision in August of 2015.

The incumbent contractor is uniquely qualified to provide the required support for the Air

Force due to their long running support for this DIMHRS/AFIPPS program. The incumbent contractor has acquired and developed processes and knowledge in such detail that it can be considered specialized knowledge. BAH has worked for five years on the design of the processes, rules, and requirements that are directly tied to the product that will become AFIPPS. The contractor has supported the Air Force in development of an integrated set of 205 separate personnel and pay business processes, consisting of over

18,000 business rules, and over 2,000 data requirements. The contractor has also supported IT functional requirements and data mapping by tailoring an IT requirements and architecture repository that is structured to maintain the integrity of the linkages across the overall requirements set as trade-off decisions are made throughout the system design phase. These processes have been developed over the past five years as part of the design program for the AFIPPS, the MAIS acquisition for the Air Force IPPS program of record. Currently, only BAH has the required background knowledge to prevent a gap in service. Changing service providers will ensure that a gap will occur when a different service provider comes on board.

The Air Force estimates that given the complexity of the design process, another contractor would require between 12 and 15 months to become proficient in the AFIPPS design process. A new vendor would be required to learn the details of these processes, rules, and requirements. It is not clear how long it would take a vendor to learn the necessary level of detail to simply continue to use what has been develop. However, a full understanding of the underlying process used to design the existing processes, rules, and requirements is necessary before the new vendor could begin design work to continue development supporting the design of AFIPPS programs. This ramp up time will delay the AFIPPS design, which will likely result in an unsuccessful Milestone B program review.

AFIPPS is a DOD Major Automated Information System (MAIS) program of record.

Because of the visibility of the program, there are certain pre-defined program reviews, or milestones, that must be passed before authorization is given to proceed to the next phase. The next milestone for the AFIPPS program is Milestone B, scheduled for August, 2015. Milestone B marks the end of the design phase. Successful completion of the review authorizes the Program Office to move into the implementation phase. Coming at the end of the phase, the review assumes that all the design work has been completed prior to the milestone decision. The Milestone B decision will produce one of three results: 1) continue; 2) mitigate and continue: 3) cancel. Should the design effort show limited or no progress for 12 months as is likely to occur with a different vendor, the

MAIS decision for Milestone B will most likely be 3) cancel.

Findings to Support the Determination That the Anticipated Cost Will Be Fair and

Reasonable:

Based on extensive review of the invoices received for the current Task Order, the

Contracting Officer has determined that the anticipated cost to the Government will be fair and reasonable. The total amount of funding required for the total estimated period of 18 months is approximately $10,651,659.60.

e) Other Facts Supporting the Justification

f) Statement of Actions if Any, the Agency May Take to Remove or Overcome Any

Barriers that Led to the Exception to Fair Opportunity Before Any Subsequent

Acquisition for the Supplies or Services is Made.:

At the conclusion of the AFIPPS prototyping and design phase, the Air Force will no longer need the specialized services for which the incumbent is uniquely qualified.

In accordance with FAR 16.505(b)(2)(ii)(D), this justification will be made publicly available on Federal Business Opportunities (FBO) for Industry Partners to review.

g) Supporting Data

I certify that the supporting data for the basis of this justification is complete and accurate to the best of my knowledge and belief.

9/9/2014

X Jeffrey C. Smith

FEDSIM Project Manager

h) 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.

9/9/2014

X Michael A. Chappelle

Michael A. Chappelle

Contracting Officer, Acquisition Defense Sector

9/9/2014

X Lisa P. Grant

Lisa Grant

Competition Advocate