JUSTIFICATIONFORANEXCEPTIONTOFAIROPPORTUNITY(TOGSQ0015AJ0026)_JEIDO.pdf

Version 08/19/14 Page 1

General Services Administration Federal Systems Integration and Management Center

JUSTIFICATION FOR AN EXCEPTION TO FAIR OPPORTUNITY

UNDER IDIQ CONTRACTS

TASK ORDER (TO) GSQ0015AJ0026

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:

Client Agency:

General Services Administration (GSA) Federal Systems Integration and Management Center (FEDSIM) Acting in support of in support of: Joint Improvised Explosive Device (IED) Defeat Organization (JIEDDO)

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:

The JIEDDO and FEDSIM Contracting Office request a $12,644,000 increase in task order ceiling to provide required support under Technical Systems Engineering (TSE) Information Technology Operations and Maintenance (IT O&M) Task Order (TO) GSQ0015AJ0026. JIEDDO requires increased IT O&M support under the current task order to provide critical support for IT O&M accelerated initiatives, an expanded customer base, and an increased tempo in supported Department of Defense (DoD) operations. An increase in ceiling of $6,644,000 for labor and $6,000,000 for tools is required to support projected IT O&M requirements over the remainder of the task order period of performance. Increased ceiling is required to be effective with start of Option Year 1, June 21, 2015. This exception to fair opportunity is necessary to accommodate timesensitive, additional inscope level of effort in support of the JIEDDO mission and internal surge requirements.

Background: JIEDDO was established as a Deputy Secretary of Defense (DEPSECDEF) initiative to rapidly provide solutions to defeat the Enemy’s IED Campaign of insurgent networks that employ IEDs as a strategic weapon of choice. In support of all Combatant Commands, JIEDDO harnesses, amasses, and fuses information, analysis, technology, interagency collaboration, and training support to enable more precise attacks to defeat violent extremist networks. JIEDDO is prepared to

Version 08/19/14 Page 2 Page 2Page 3 provide analytical support and enemy network information to other United States Government Organizations and Coalition partners.

The IT O&M TO was competitively awarded on December 19, 2014 to Booz Allen Hamilton, Inc. (BAH) as a Cost Plus Award Fee TO under FEDSIM’s JIEDDO Technology and Systems Engineering (TSE) IDIQ GS00T11AJC0004, with a period of performance consisting of a five month Base Period and two, oneyear Option Periods for the full range of IT O&M Support services to JIEDDO. The purpose of this TO is to provide Enterprise Information Technology Operations and Maintenance support services to JIEDDO. The TO is currently in the Base Year (January 21, 2015 – June 20, 2015).

On March 11, 2015, the Department of Defense approved JIEDDO’s establishment as a permanent Combat Support Agency (CSA). JIEDDO will be realigned under the direction and control of Undersecretary of Defense for Acquisition, Technology, and Logistics (USD (AT&L)).

In addition the Department of Defense has tasked JIEDDO with support to multiple overseas contingency operations related to world events.

On January 9, 2013, the Director, JIEDDO issued Operational Order (OPORD) 1401 for “FY14 JIEDDO Base Order and 975 Transition Plan.” Under OPORD 1401, JIEDDO was projected to reduce in staffing from over 2,300 personnel to 975 personnel and consolidation of JIEDDO office locations was projected to be completed by 01 October 2014. Task Order level of effort was based on an assumption that “JIEDDO organizations will continue to reduce in strength in future years” and that restructuring “will leave total end strength at… approximately 400 by end of FY16.” JIEDDO’s establishment as a CSA and realignment under USD (AT&L) has resulted in multiple impacts on Enterprise IT that were not projected in JIEDDO’s OPORD 1401. At the time of task order award JIEDDO estimated significant downsizing in IT support required due to projected reduction in personnel and number of sites to be supported. Those reductions have not occurred as anticipated. Instead, JIEDDO now requires additional support in order to meet transition milestones and schedules before achieving full operational capability as a CSA under USD (AT&L).

a. JIEDDO will be required to align with the DoD’s Joint Information Enterprise and the Intelligence Community IT Enterprise, which accelerates JIEDDO’s transition to enterprise services. The contractor team will be required to execute multiple concurrent transition projects beginning in Q3 FY15. The original estimates used to establish the level of effort on the current task order were based on preCSA requirements to execute transition projects serially over a longer period of time. JIEDDO operates networks at three classification levels, each requiring a separate transition project for each service. Transition projects include Enterprise Email, Enterprise Portal, DISA ITA Desktops, DoD Intelligence Information System desktop service, and Electronic Voice Over IP.

b. JIEDDO will accelerate the expansion and upgrade of mission support systems such as the Catapult system to additional domains. JIEDDO also is in final stages of negotiation to build and support analytical systems for other US Government

Version 08/19/14 Page 3 agencies. Those systems will require additional IT engineering and O&M level of effort.

c. JIEDDO will continue to employ approximately 1,300 users for the foreseeable and will not reach the original target of 975 personnel as projected at time of award. Consolidation of JIEDDO into a single facility also has been delayed. As a result, the current contractor team is supporting approximately 30% more users and computers than estimated. The service desk is split between two buildings when the task order level of effort was based on an assumption that JIEDDO would consolidate into a single building.

d. JIEDDO’s support to named operations requires the contractor team to provide additional quickreaction engineering and IT provisioning services to support operations and personnel in overseas locations. This includes provisioning of mobile devices, network connectivity, collaboration tools, and support to increased numbers of expeditionary kits.

c) Description of Supplies/Services and Estimated Value:

JIEDDO requires increased labor and tools ceiling to provide IT O&M support services to enable JIEDDO to achieve successful execution of its mission. JIEDDO requires an increase in task order labor ceiling of $6,644,000 and $6,000,000 in tools ceiling for the remainder of the task order period of performance to provide adequate resources to meet JIEDDO IT mission schedules and requirements. JIEDDO‘s labor ceiling increase estimate of $6,644,000 is based upon the following transition initiatives and continued support:

Initiative Estimate DISA Enterprise E‐Mail Migration $ 660,000.00 DISA Enterprise E‐Mail Service Desk Support $ 528,000.00 DevOps Transition $ 176,000.00 DoD Intelligence Information System (DODIIS) Desktop Migration $ 528,000.00 Unclass Catapult Implementation $ 55,000.00 Unclass Catapult O&M $ 528,000.00 NLAN Risk Management Framework $ 440,000.00 Catapult on BICES Implementation $ 33,000.00 Catapult on BICES O&M $ 528,000.00 Enterprise Portal Migration $ 528,000.00 Dual Service Desk $ 528,000.00 Network and Desktop Engineering to support JIEDDO 1,200 Personnel $ 1,584,000.00

Crystal City Dedicated VTC Support $ 528,000.00 Estimated Total Labor Ceiling Increased Required $ 6,644,000.00

In addition, JIEDDO estimates that an increase of $6,000,000 in tools ceiling is required to support transition initiatives. All cost reimbursable CLINS values (Travel, Tools, and ODCs) were provided by the Government and were not evaluated factors at time of

Version 08/19/14 Page 4 award. The original Government estimate anticipated reduced infrastructure costs due to projected reduction of personnel to be supported as well as a reduction in facilities to be supported. Those anticipated factors did not occur as planned.

The requested ceiling increase will provide ceiling over Option Year 1 (OY1) and Option Year 2 (OY2) to support accelerated and increased O&M support required as the result of organizational realignment under USD (AT&L), increased tempo of DoD operations, and also as the result of delayed projected personnel and facility reductions.

The increase in ceiling for labor and tools will provide for the continued support of multi site service desk and video teleconfering facilities, continued desktop and network engineering support for unreduced number of JIEDDO personnel, as well as support for actions required for alignment of JIEDDO’s current IT enterprise with the DoD’s Joint Information Enterprise and the Intelligence Community IT Enterprise. An increase in ceiling is required to support the unforeseen multiple concurrent transition projects beginning in Q3 FY15. JIEDDO currently operates networks at three classification levels, each requiring a separate transition project for each service. Transition projects include Enterprise Email, Enterprise Portal, DISA ITA Desktops, DoD Intelligence Information System (DoDIIS) desktop service, Electronic Voice Over IP (EVOIP), as well as accelerating the expansion and upgrade of mission support systems such as the Catapult system to additional domains. An increase in ceiling is required to provide JIEDDO with operational surge capability to provide additional quickreaction engineering and IT provisioning services to support operations and personnel in overseas locations in support of named operations. An increase in ceiling is also required to provide IT engineering and O&M support services to support JIEDDO’s initiative to build and support analytical systems for other US Government agencies .

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) 216.50570, Orders Under Multiple Award Contracts Procedures, Guidance and Information (PGI) 216.50570, Orders Under Multiple Award Contracts

The rationale supporting this ceiling increase request is that only an increase in current task order ceiling will provide required resources in time to meet JIEDDO mission timelines and cost constraints.

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 (FAR 16.505(b)(2)(i)(B)).

Version 08/19/14 Page 5

JIEDDO requires an immediate ceiling increase of $6.644,000 for labor and $6,000,000 in tools, for a total task order ceiling increase of $12,644,000 in support of the JIEDDO enterprise.

A new competition would take approximately 4 to 6 months to conduct and the solicitation for this new effort would include a significant (6090 days) transitionin period to ensure performance at satisfactory levels. Additionally, the JIEDDO support environment is complex and dynamic, requiring a substantial learning curve for incoming operants. If a new competition was held and a new Industry Partner (IP) won the competition, it is estimated that it would take months for the new IP to be fully operational and capable under the environment in order to provide support for the JIEDDO transition initiatives and operational support. It is not appropriate to allow for the significant and unproductive delay that would result from a new IP assuming O&M taskings under a separate TO.

The delays associated with a new solicitation would not be timely or prudent considering the criticality of the mission and its support of the American warfighter. JIEDDO requires transition support now and has requested that support be implemented as of the start of Option Year 1, which begins June 21, 2015. A ceiling increase modification to the current task order will be accomplished in a much shorter period (approximately one month), therefore providing timely and appropriate support for the warfighter.

JIEDDO estimates that requested labor ceiling increase will provide ceiling over OY1 and OY2 to accommodate IT O&M initiatives not included in OPORD 1401, and other support required as the result of realignment of JIEDDO as a CSA under USD (AT&L).

An increase in ceiling must be effective with the start of OY1 in order to support JIEDDO’s accelerated time lines to achieved required initiatives before realigning as a CSA under USD (AT&L).

BAH, the current onsite contractor at JIEDDO 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. 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.

Based upon the above supporting rationale, it is appropriate to increase existing task order labor ceiling to meet JIEDDO J6 requirements. Ceiling increase to support this initiative is requested as soon as possible in order to support JIEDDO O&M transition 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 IT O&M 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

Version 08/19/14 Page 6

Fair opportunity was given under this TO, GSQ0015AJ0026, when it was originally competed and awarded on December 19, 2014 to BAH 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 proposals from two of the four TSE IDIQ awardees.

g) Statement of Actions:

FEDSIM will reevaluate JIEDDO technical and acquisition requirements prior to task order recompete in 2017 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.

h) Certification by Technical or Requirements Personnel I hereby certify that the supporting data is accurate and complete.

Stephanie Brotherton Date

FEDSIM Senior Project Manager

i) Signature of Authorized Official(s):

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 McMullan Date Contracting Officer FEDSIM Acquisition, Enterprise Sector

Tim Fleming, Head of Contracting Activity Date

TIMOTHY FLEMING

Digitally signed by TIMOTHY FLEMING DN: c=US, o=U.S. Government, ou=General Services Administration, cn=TIMOTHY FLEMING, 0.9.2342.19200300.100.1.1=47001000015666 Date: 2015.05.27 08:41:39 -04'00'