Bridge_Justification_CRP_6_Aug_2015_(1)_(1)_(1)_(1)_(1).pdf

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General Services Administration

Federal Systems Integration and Management Center

JUSTIFICATION FOR AN EXCEPTION TO FAIR OPPORTUNITY

UNDER IDIQ CONTRACTS

SOLICITATION GSC-QF0B-15-32967

TASK ORDER

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.

a) Identification of Agency and Contracting Activity:

Client Agency:

United States Cyber Command (USCYBERCOM)

9800 Savage Road Suite 6660

Fort Meade, MD 20755

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 FEDSIM Contracting Office, in support of USCYBERCOM, proposes to award a sole-source Cost Plus Fixed Fee (CPFF) Task Order (TO) to CACI, Inc. under GSA’s

Alliant Large Business Governmentwide Acquisition Contract (GWAC). The sole source

TO will provide Technical Assurance (TA) IT and Research, Development, Test and

Evaluation (RDT&E) support to USCYBERCOM. Technical Assurance (TA) is defined as the basis for confidence that Computer Network Attack (CNA) Capabilities will meet its technical objectives including the tools and techniques used to develop, analyze, and implement a capability.

The purpose of this exception to fair opportunity sole-source TO is to provide interim support to allow for adequate time to (1) competitively award a consolidated contracting strategy, (2) compete a TO under the new consolidated contract strategy, for the requirements currently being performed by CACI, Inc. and (3) provide a 120 calendar-day transition period to a potentially new contractor. The consolidation effort for

USCYBERCOM requirements will ultimately provide a more efficient and effective contract vehicle.

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Currently USCYBERCOM has five different contracts utilizing several contracting vehicles to provide support to their directorates. The Period of Performance (PoP) for these contracts varies, the contract monitoring is different for each, and the process for re-competing the support is not consistent. USCYBERCOM is seeking a standardized approach to requirement design and contract execution that will decrease the administrative burden and increase operational efficiency while eliminating duplicate efforts on current contracts.

USCYBERCOM began work on a multiple award IDIQ procurement using Defense

Information Systems Agency (DISA)/Defense Information Technology Contracting

Organization (DITCO) as their contracting agency. The DISA/DITCO multiple award

IDIQ requirement was and is a consolidation of cyber activities that would support all activities of the USCYBERCOM Joint-Directorates and Cyber Mission Forces (CMF).

The solicitation consolidated approximately nine different contracts/TOs from various organizations. The solicitation was released to industry in May 2015. Due to extensive vendor questions and concerns, the solicitation was withdrawn. USCYBERCOM requested that FEDSIM support the acquisition of an IDIQ to meet the changing requirements and to adjust the evaluation criteria The delay of the procurement cycle, created the need for this sole-source bridge until the revised consolidation effort is awarded by FEDSIM.

The consolidation acquisition approach under FEDSIM is to combine the scope of five current contracts into one contract vehicle, one of which is TO FA4600-08-D-9005 which was awarded competitively using United States Strategic Command (USSTRATCOM)

Systems and Mission Support (USAMS) II Multiple Award Indefinite Delivery/Indefinite

Quantity (MAIDIQ) vehicle to CACI, Inc. TO FA4600-08-D-9005 provides IT and

RDT&E contract support contemplated under this sole-source award. The consolidation acquisition approach is not fully developed and has an estimated award date of April

2016. The other efforts not covered under this sole-source TO will be continued under their current contracts and then transition to the new contract vehicle upon TO completion.

The requirements under this sole-source TO expire on September 30, 2015 and the ending PoP necessitates the need for this action to provide continuous TA support to

USCYBERCOM until the requirements can be transitioned to the new contract vehicle. A sole-source TO is necessary to ensure there is no break in service for the current TO requirements.

All the requirements of this TO are essential to the cyberspace mission and are in progress under the current TO. The following are examples of essential tasks that support the cyberspace mission:

1. The development of the Cyber Immersion training environment which will establish a centrally-managed training environment to simulate real cyber-attack scenarios that will support the Cyber Mission Forces (CMF). This involves immersed experimentation with various tools in order to determine the best ones that will support the Forces. This training environment has largely been developed by only

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CACI, Inc. and recently experienced a significant schedule slippage due to water damage caused by inclement weather nearly destroyed the entire training environment. The training environment will require an additional nine months of work beyond the end date of the current TO, September 30, 2015. This work is accomplished under the current Lab Management task and will continue under Task 7 as listed in part c.

2. The evaluation and documentation of cyber security tools in support of the Mission

Forces Tools Project that needs to be completed by the end of the first quarter of

Fiscal Year (FY) 16. This critical project supports the CMF in identification and evaluation of cyber specific tools that will assist in the defense and reaction to cyber attacks on US and Allied IT assets. This work is accomplished under the current

Research, Develop, Analyze, and Test Cyber Related Capabilities task and will continue under Task 9 as listed in part c.

3. The completion of the Rapid Tool development project by the second quarter of

FY16. This development project involves the evaluation, configuration, and alignment of a suite of Rapid Application Development (RAD) cyber security tools that are critical to maintaining and improving the Mission Forces cyber posture.

Rapid is a tool that is used to ingest other tools and identify their core components thereby facilitating assembly with other tool components in order to produce specialized mission support tools. The presence of specialized tools is critical to quickly evolving Cyber protection. This work is accomplished under the current

Research, Develop, Analyze, and Test Cyber Related Capabilities task and will continue under Task 9 as listed in part c.

4. The deployment of the USCYBERCOM Capability Repository that assists with the rapid development of cyber modules and cyber systems by documenting the link between existing IT assets and IT capabilities that can be combined to deliver cyber modules and cyber systems. This critical deployment must be completed by the third quarter of FY16. This work is accomplished under the current Research, Develop, Analyze, and Test Cyber Related Capabilities tasl and will continue under Task 9 as listed in part c.

5. The delivery of an Open Source Tool Kit in November 2015 that has distinct visibility within Department of Defense (DoD). This Open Source Tool Kit will identify new, emerging, and undervalued open source solutions to cyber security and will provide a starting point for DoD organizations when evaluating open source solutions for deployment. This work is accomplished under the current Technical

Assurance Evaluations and Operational Assessments task and will continue under

Task 8 as listed in part c.

The PoP for this effort will be from September 30, 2015 until September 29, 2016 with the option to extend services for up to six months in accordance with FAR 52.217-8, Option to Extend Services. The Option to Extend Services is included to ensure there is sufficient time to account for any unforeseen delays such as a protest of the consolidation effort. The TA IT and RDT&E support will ultimately transition to the new consolidated contracting strategy. In order to finalize a consolidated contracting strategy, accomplish

Version 08/19/14 Page 4 due diligence, evaluate proposals, and to award a follow-on TO/contract, this TO is required to maintain mission essential support services.

The sole-source TO will be valued at $13,816,909.00.

c) Description of Supplies/Services and Estimated Value:

The services described below are in direct support of USCYBERCOM’s mission of facilitating U.S./Allied freedom of action in cyberspace.

Task 1: Provide Program Management. This includes the management and oversight of all activities performed by contractor personnel, including subcontractors, to satisfy the requirements identified below.

Task 2: Provide Network Engineering. The contractor will perform risk assessments and generate risk assessment reports in support of TA evaluations and operational assessments.

Task 3: Provide Technical Assurance (TA) Training. The contractor will develop, maintain, and periodically publish training plans, course catalogs, training schedules, and any procedural documents that may be required. The contractor will develop and teach

TA classes.

Task 4: Provide Technical Assurance Assistance. The contractor will provide support to the established Department of Defense (DoD) oversight bodies by organizing meetings, preparing minutes, and maintaining updates to the TA Policy Documents. The contractor will provide support for the development of technical oversight to all TA laboratories supporting the DoD and assist with preparing TA validation reports to provide guidance and direction to the TA laboratories and DoD Components on the proper implementation of the TA standards.

Task 5: Provide Configuration Management. The contractor will maintain the

USCYBERCOM TA methodology for configuration management and its associated artifacts. The contractor will log all lab hardware, software, and documentation into a database and successfully retrieve materials as needed; inventory all database items on a periodic basis; search for missing items; and prepare paperwork to excess unwanted items. The contractor will assist with resolving discrepancies in USCYBERCOM property accountability.

Task 6: Provide Technical Writing. The contractor will review, edit, and format technical reports to improve the flow and grammar of the technical content.

Task 7: Lab Management. The contractor will manage the internal development and testing laboratories. The contractor will manage test beds, hardware, software, software repositories, and lab documentation. The contractor will evaluate and recommend hardware/software. The contractor will establish the Cyber Immersion training environment which will create a centrally-managed training environment to simulate real cyber-attack scenarios that will support CMF.

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Task 8: Provide TA Evaluations and Operational Assessments. The contractor will complete TA evaluations as specified by TA Policy Documents and complete operational assessments of capabilities paired with organizational missions. The contractor will also support the collection of intelligence in support of operations and support other services and Intelligence Community TA evaluation and operational assessment teams. The contractor will perform tests to support analysis and evaluation of technologies; conduct test and evaluation planning and preparation activities; conduct prototype assessments in field environments; plan and develop test environments to be integrated into the

USCYBERCOM test enterprise architecture. The contractor will complete and deliver the Open Source Tool Kit.

Task 9: Provide Research, Development, Analysis, and Testing of Cyber Related

Capabilities. The contractor will research, develop, analyze and test cyber related capabilities. This Task includes provisioning the software development environment, recommending software tools and applications, performing data transfer, conducting systems administration, reviewing legacy code, enhancing legacy code, writing documentation, developmental testing, performing peer software and documentation reviews, and conferring with other technical staff in brainstorming sessions. The contractor will provide a valuation and documentation of cyber security tools in support of the Mission Forces Tools Project, complete the Rapid Tool development project, and deploy the USCYBERCOM Capability Repository.

Task 10: Provide Technical and Web Development Support. The contractor will provide Web development and Web-based initiative functions, executed in real time in accordance with mission requirements.

Task 11: Provide Capability and Resource Integration Support. The contractor will assist the Government in developing, assessing, validating, prioritizing, documenting, and maintaining requirements and associated requirements products. Additionally, the contractor will provide support advocating for the Warfighter within DoD’s three decision support systems: the Joint Capabilities Integration and Development System

(JCIDS), the Defense Acquisition System (DAS), and the Planning, Programming, Budgeting, and Execution (PPBE) process. The contractor will also contribute to efforts to create and establish automated tools supporting USCYBERCOM’s Requirements

Management process. The contractor will provide Subject Matter Expertise to conduct analysis of test data, modeling or simulation efforts, Manpower and Personnel Integration

(MANPRINT), evaluation of embedded software, contractor technical services, and methodology studies to assist, organize and facilitate the cyberspace program community in Capabilities Based Assessments (CBAs).

Task Area 12: Provide Program and Technical Management Support. The contractor will support USCYBERCOM in providing program oversight and systems engineering of cyberspace, and cyberspace related developmental activities across

Service Cyber Component and Agency research and development portfolios, in which

USCYBERCOM is invested.

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Task 13: Provide Information Assurance (IA). The contractor will assist the

Government representative with IA activities such as developing System Security Plans

(SSP), conducting vulnerability scans, and providing technical expertise as required. The contractor will also develop training materials and provide training for the

USCYBERCOM Cyber security Workforce Improvement Program (WIP) and the

USCYBERCOM IA Program to ensure an informed, alert, and security conscious workforce.

Task 14: Transition-Out. The contractor will accomplish a seamless transition with an incoming contractor that includes providing a Transition-out Plan within 180 calendar-days of Task Order Award (TOA). The contractor will provide all necessary information and support to the Government and the incoming contractor in order to accomplish this transition.

The following breaks out the estimated cost for the proposed PoP. The efforts supported by this TO have been moving to a phase of the work whereby more sophisticated cyber expertise is required as a result of the increasingly evolving cybersecurity requirements in reacting to and deterring current and potential threats. The increased expertise will facilitate more current application of TA analysis, development, and testing in response to world events. Labor rates are based on the Alliant average labor hour rates located within the Alliant GWAC website with a 12% increase over the Alliant average labor rates added. This increase is associated with contractor personnel obtaining the required

TS/SCI with CSP clearance and the increased level of expertise that is needed to meet the evolving cybersecurity requirements. The Independent Government Cost Estimate

(IGCE) rates have been adjusted from the original rates to account for this.

Mandatory Labor (12 months) $9,043,357.00

52.217-8 Extension (6 months total)

$4,660,275.00

Travel $10,500.00

CAF $102,777.00

Total $13,816,909.00

The proposed action is necessary to provide uninterrupted support as described above for

USCYBERCOM. The support is essential in order to complete the above listed efforts and continue mission requirements. It is in the Government’s best interest to award a sole-source TO while the Government prepares and conducts a competitive procurement for a consolidated contract vehicle that includes the requirements represented above.

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

This TO Justification is being prepared in accordance with FAR 16.505(b)(2)(i)(B) which states that the Contracting Officer (CO) shall give every awardee a fair opportunity to be considered for a TO unless only one awardee is capable of providing the supplies or

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USSTRATCOM awarded a MAIDIQ to six contractors in January 2008. One of these was to CACI, Inc. for the current requirements. The ability to issue orders from this vehicle expired January 31, 2015 and there is no ability to extend the current TO issued by USSTRATCOM which expires September 30, 2015. Due to unforeseen delays in implementing the consolidation effort, the new contract vehicle is not ready in sufficient time to competitively procure the requirements currently being performed by CACI, Inc.

In order to recover from that delay, USCYBERCOM requested FEDSIM’s assistance to provide acquisition support to assist them with the consolidation acquisition strategy. As a result, by the time it was known that the vehicle would not be in place, May 2015, there was limited time to ensure that continuity of support was maintained. Competing and awarding this effort on Alliant would require six to eight months and thus would not meet the September 30, 2015 expiration.

It is in the Government’s best interest to maintain and transition the scope of the CACI, Inc. effort to the new contract vehicle after the expiration of the sole-source TO.

Utilization of the new contract vehicle will ensure that scope from this requirement is not being duplicated across multiple contracts in the USCYBERCOM environment. The new effort is expected to be awarded April 2016. Also, additional time will be necessary to compete the TO and transition from this sole-source TO. To accommodate this time, it is necessary to have a sole-source TO in place. The Government intends to award a one-year mandatory period with an option to extend services up to six months in accordance with FAR clause 52.217-8, Option to Extend Services. The Option to Extend Services is included to ensure there is sufficient time to account for any unforeseen delays such as a protest of the consolidation effort.

While offerors can be found that could meet the unique TO requirements (listed below), they could not be found in time to meet the September 30, 2015 deadline and ensure that there is continuous support of the Department of Defense Information Networks

(DODIN). CACI, Inc. is the only contractor who has the knowledge and understanding of the critical requirements outlined above. Any other contractor would cause a delay in delivering USCYBERCOM required technology to the CMF and increase the level of risk associated with a cyber attack.

Unique nature of the requirements:

Prior to being assigned to this TO, all contractor personnel will be required possess a final Top Secret (TS)/Sensitive Compartmented Information (SCI) eligible security clearance (granted full SCI eligibility by a United States (U.S.) Government Adjudication

Authority within the past 60 months) and have not had a break in SCI access of more than 24 months during this period. Also, contractors must have a Counterintelligence

Scope Polygraph (CSP) examination conducted by a recognized U.S. Government polygraph entity within seven years (in scope) and Personnel Security Standards and

Procedures Governing Eligibility for Access to SCI. Contractors must have successfully undergone a Single Scope Background Investigation (SSBI) that is current (in scope) as

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704.

The nature of this TO requires contractor personnel to possess a high degree of security awareness. In addition, USCYBERCOM requires 45 calendar-days to on-board new personnel that have these clearances. This is part of the need for a 120 calendar-day transition period.

All CACI, Inc. personnel, currently working on the TO, have the above mentioned security clearances. Additionally, they have unique knowledge which is required or has been gained over time in the following areas:

1. All of the on-going projects referenced above in Section b), require unique knowledge of the development environments, organization, operations, and applications in order to complete them in the specified time frames. The learning curve on each of these would be considerable, approximately 60 calendar-days, in order to produce quality products. The learning curve for understanding current configurations and software is significant due to the complexity of the

USCYBERCOM environment and the nature of custom developed solutions that have yet to be deployed (Cyber Immersion Lab, Rapid Tool Development Project, Open Source Tool Kit). In addition, USCYBERCOM specific research and development capabilities, that are being identified and cataloged as part of the in progress USCYBERCOM Capability Repository project, are not broadly known within the wider cyber community as operational capabilities are typically not found outside of the USCYBERCOM domain. The learning curve, in addition to the process for obtaining security clearances, creates a need for a lengthy transition out period that would delay the completion of in progress project that address critical requirements and this delay would introduce a level of unacceptable risk to the USCYBERCOM mission.

2. In general for all on-going work in the development and testing environment a contractor would require unique knowledge of the organizational environment, knowledge of unique cyber-related methods that have been evolving to stay ahead of current threats to U.S. military and allied forces, and knowledge of the unique applications that are being developed and that are specially configured to handle rapidly evolving threats.

3. In particular and in conjunction with the Rapid Tool Development project described above in Section b), CACI, Inc. is providing analytic assessment of current and evolving cyber intelligence perspectives and applications in order to merge them and provide a situational awareness (SA) to DoD Combatant

Commands/Services/ Agencies/Field Activities (CCs/S/A/FAs). The ability for any contractor other than CACI, Inc. to complete the cyber specific situational awareness for the CC/S/A/FAs within the next 12 months is improbable.

This requirement is vital to operating and defending the DODIN and to prepare, and when directed, conduct full spectrum military cyberspace operations in order to enable

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

To ensure that the anticipated cost to the Government will be fair and reasonable, the CO will evaluate the cost elements and fixed fee of CACI, Inc.’s proposed cost for the sole-source TO to ensure that the proposed costs are fair and reasonable.

f) Other Facts Supporting the Justification

All supporting rationale is provided above.

g) Statement of Actions:

To ensure that the circumstances that led to the Government taking exception to fair opportunity for this requirement are limited to this action only, the Government has implemented and is executing an acquisition schedule that will complete all the necessary pre-solicitation and pre-award actions before the sole-source TO expires. Furthermore, to ensure that industry is made aware of all future information related to follow-on requirements, all information will be posted and made available to all contractors under the contract vehicle selected for the follow-on requirement via FedBizOpps. Last in accordance with FAR 16.505(b)(2)(ii)(D), this Justification will be publicly available via

FedBizOpps for contractor review.

h) Certification by Technical or Requirements Personnel

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

8/7/2015

X Donna Chesney Young

Signed by: DONNA YOUNG Donna Chesney Young

FEDSIM Project Manager

i) Contracting Officer’s Certification:

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.

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8/10/2015

X Kristen Jaremback

Kristen Jaremback

Contracting Officer

FEDSIM Acquisition, Defense

j) Approval:

X

Tim Fleming

Head of Contracting Activity