LSJ_JIDA_MSS_TO_GSQ0016AJ0034_v4_2016.03.07.docx

General Services Administration Federal Systems Integration and Management Center

LIMITED SOURCES JUSTIFICATION

SOLE SOURCE TASK ORDER AWARD

SOLICITATION GSC-QF0B-16-33015

TASK ORDER GSQ0016AJ0034

The General Services Administration (GSA) makes this Limited Sources Justification (LSJ) for orders pursuant to Federal Acquisition Regulation (FAR) 8.405-6.

i.) Identification of Agency and Contracting Activity:

Agency:

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 ii.) Nature and/or Description of Action Being Approved:

GSA FEDSIM intends to award a six-month sole source Task Order (TO) against the Professional Services Schedule (PSS) which is inclusive of the previous Schedule 874 formally known as the Mission Oriented Business Integrated Services (MOBIS) Schedule. The Labor Hour (LH) sole source TO will be awarded to:

XL Associates Inc. (XLA) 8614 Westwood Center Dr, Ste 700 Vienna, VA 22182-2264

The purpose of this six-month, sole source action is to provide interim support to allow for adequate time to award a competitive follow on contract. Awarding this sole source contract is necessary to ensure there is no break in service to the Joint Improvised-Threat Defeat Agency (JIDA).

The current task order supporting this requirement was competitively procured and awarded to XLA under their GSA Multiple Award Schedule (MAS) MOBIS 874 contract number GS-10F-0125T, which is now contract number GS-00F-289CA under the PSS. The current task order expires April 26, 2016. FEDSIM proposes to award this interim order under XLA’s GSA Multiple Award Schedules (MAS) PSS contract GS-00F-289CA using Special Item Numbers (SINs) 874-1 and 874-6. The estimated value of this interim action is $1,047,904.00. The duration of this contract will be six months from April 27, 2016 through October 26, 2016.

The JIDA was established to innovatively harness and amass information, analysis, and technology to empower the warfighter with the insight needed to predict, preempt, and defeat IEDs and other asymmetric threats. The JIDA mission requires highly trained personnel to fulfill its mission to defeat, by every plausible means, IEDs as weapons of strategic influence. JIDA accomplishes this mission through three lines of operation: attacking the networks of individuals who make and place the bombs; disabling the bombs or mitigating their consequences; and training troops in the techniques, tools, and technologies that will ensure mission success. The goal of this acquisition is to provide JIDA with the necessary program management consulting services to set the foundation for future mission critical activities and acquisitions to ensure that highly trained and experienced program management and subject matter expert personnel stand ready to properly plan and implement strategies and plans to meet JIDA’s growing mission requirements.

JIDA has an exigent need for Mission Support Services (MSS) to include: mission enabling acquisition, program and resource management, information assurance (IA) and configuration management services, security reviews and assistance with compliance oversight, human resource and logistics management support, and facilities management. JIDA requires the services of a contractor capable of providing comprehensive mission support services in order that JIDA may fulfill its mission. The efficiency by which JIDA is able to manage its internal business, resource, security, procurement, administrative, and logistics processes directly impacts its ability to successfully perform its life-saving mission. Without the mission support services provided, JIDA’s ability to fulfill its core mission would be severely compromised, and, as a result, the warfighter's risk of injury or death will be elevated.

iii.) A Complete Description of Supplies/Services Required to Meet Agency’s Need:

The Contractor, in close coordination with JIDA personnel, shall support the JIDA mission with Task Order Program Management, Acquisition Consulting Support, Configuration Management Support, and Administrative and Organizational Effectiveness Support. This expertise allows JIDA Government personnel to focus on their core mission of defeating IEDs while contractor support personnel process, draft for government approval, and update the documentation needed to keep those core functions running smoothly.

The government anticipates that the total cost for the six month effort will be approximately $1,047,904.00. This estimate was derived from analysis of the Independent Government Cost Estimate (IGCE) jointly developed by JIDA and FEDSIM.

The North American Industry Classification System (NAICS) Code is 541611, Administrative Management and General Management Consulting Services, and Product Service Code (PSC) is R699, Support- Administrative: Other. The tasks are:

· Task 1: Provide Task Order Program Management: This includes the management and oversight of all activities performed by contractor personnel, including subcontractors, to satisfy the requirements identified in this Statement of Work (SOW).

· Task 2: Provide Acquisition Consulting Support: The contractor shall provide acquisition consulting support to JIDA by preparing preliminary documents that reflect technical and operational requirements for Government approval. The contractor shall support JIDA by preparing proposed labor category descriptions that reflect specific duties that must be performed, skills required, clearance levels and years of experience in sufficient detail to accurately define procurement labor categories. The contractor shall provide assistance in the proposal evaluation process by providing comparative analyses between the offers and the Government’s IGCE to provide insight to Government evaluators. The contractor shall support the JIDA in the post-award contract phase by preparing monthly status updates for contract vehicles that reflect the status of deliverables, funds expended to-date, and variance analyses intended to highlight any significant issues requiring Government action.

· Task 3: Provide Configuration Management Support: The contractor shall provide configuration management services to include, but not be limited to: support configuration identification by maintaining a database that documents all software and hardware in use by the JIDA; facilitate meetings that allow Government personnel to decide when and if new software and hardware releases are to be implemented at JIDA and in JIDA applications implemented at other locations; perform status accounting by recording and reporting the status of all JIDA related software and hardware.

· Task 4: Provide Administrative and Organizational Effectiveness Support: The contractor shall provide administrative and organizational effectiveness support services to include, but not limited to: Data collection, processing, and analysis in support of JIDA management systems, including analyses of quantitative and qualitative survey data; manage flow of correspondence, classified and unclassified; Production, coordination, and distribution of unclassified and classified documents; coordinate, distribute and maintain facsimile records, and program and operate speed dial on fax machines; maintain the calendar for senior management program officials, keeping them and staff members informed of relevant organizational events; distribute and track the organization’s action items to appropriate program and departmental elements; review, screen, control, maintain records, and coordinate responses on incoming correspondence.

The proposed action is necessary to provide uninterrupted support as described above for JIDA. It is in the Government’s best interest to award this sole source TO while the Government prepares and conducts a re-competition of the requirement as described below.

iv.) The Authority and Supporting Rationale:

The acquisition is conducted under the authority of the Multiple-Award Schedule Program. Consideration of schedule contractors will be restricted in accordance with:

FAR 8.405-6(a)(1)(i)(C) – In the interest of economy and efficiency, the new work is a logical follow-on to an original Federal Supply Schedule order provided that the original order was placed in accordance with the applicable Federal Supply Schedule ordering procedures. The original order or BPA must not have been previously issued under sole-source or limited-sources procedures.

The objective of this TO is to provide continuity of services by ensuring a gap in service does not exist following expiration on April 26, 2016. GSA FEDSIM and JIDA are currently working to complete due diligence, evaluation of proposals, negotiations, and award of a consolidated, competitive MSS TO through the OASIS SB program. The acquisition timeline for the follow-on contract was delayed due to the reasons listed below in Section vii.

The current GSA PSS schedule contract GS-00F-289CA supporting these requirements was awarded to XLA under the previous GSA Schedule contract GS-10F-0125T, which was under GSA MOBIS Schedule 874. As mentioned above, the MOBIS program is still in place, but is under the PSS program. The requirement was awarded using competitive procedures under FAR Part 8.4.

The anticipated sole source PSS contract to XLA is a logical follow-on to ensure there is not a gap in service while GSA FEDSIM evaluates and awards the competitive MSS TO. It is anticipated that the competitive TO will be awarded on August 1 2016.

Given XLA’s familiarity with the requirements of this order, and with their ability to provide transition support to an incoming successful offeror of the subsequent re-compete, it is in the Government’s best interest to award an interim sole source task order to XLA at this time. Not awarding this TO would result in an unacceptable lapse in critical services.

v.) Determination by the Ordering Activity Contracting Officer that the Order Represents the Best Value Consistent with FAR 8.404(d):

This sole source PSS contract will be awarded under XLAs GSA PSS Schedule contract GS-00F-289CA per SINs 874-1 and 874-6. In accordance with FAR 8.404(d), GSA has determined the hourly rates for services offered to be fair and reasonable for the purpose of establishing the GSA schedule contracts. The Government has prepared an Independent Government Cost Estimate (IGCE). The IGCE is based on historical information and the anticipated level of effort (LOE). The Contracting Officer will compare XLA’s quote to their underlying GSA Schedule pricing, the IGCE, and to the historical prices in XLA’s current task order. The Contracting Officer will verify that the prices offered in response to this requirement are fair and reasonable and represent the best value to the Government.

vi.) Description of the Market Research Conducted Among Schedule Holders and the Results of the Research:

JIDA and FEDSIM jointly conducted market research. JIDA provided the TO requirements. FEDSIM examined the existing GSA Schedule contract, GS-10F-0125T, for current hourly rates. FEDSIM also conducted a NAICS Code/PSC Analysis, concluding that the NAICS Code is 541611, Administrative Management and General Management Consulting Services, and the PSC is R699, Support- Administrative: Other.

FEDSIM intends to award a long-term task order in support of these requirements under GSA’s OASIS Small Business (SB) Pool 1, Multiple Award, Indefinite Delivery Indefinite Quantity (MA-IDIQ) contracting vehicle.

This sole source action is an interim measure to allow adequate time to for a follow-on competitive task order award. Given XLA’s unique ability to continue supporting JIDA and in the interest of economy and efficiency, this sole source is a logical follow-on to the current task order. Therefore, no market research was conducted among schedule holders besides XLA.

FEDSIM anticipates this re-competed TO to be awarded in August of 2015.

vii.) Any Other Facts Supporting the Justification:

A new contractor would have to transition-in and immediately take over the day-to-day activities. XLA has the requisite knowledge, subject matter expertise, and experience to continue providing these services during this interim period. XLA has been providing these services for approximately five years under the current task order. A new contractor without the inherent knowledge or experience would not be effective in a timely manner. To transition and train a new contractor would require a considerable amount of time on the part of the Government and XLA as the out-going contractor. The learning curve would add considerable cost to this procurement.

Learning curve theory states that the time or cost of producing a unit of output decreases at a constant rate as cumulative output doubles. It is easy to apply to manufactured products but much more difficult to quantify for subjective outputs such as administrative tasks under the MSS Sole Source TO. Therefore, FEDSIM applied a different but conservative method inspired by learning curve theory as shown in Table 1, Duplicate Cost Estimate. Table 1 shows the six month period of performance, the estimated cost of $1,047,904.00 based upon the IGCE, the learning curve factor, and the duplicated cost. The learning curve factor is based upon discussions with FEDSIM Program Managers with experience onboarding new contractors to a program. The learning curve factor starts at 20% for the first two months, showing a steeper learning curve cost. The learning curve factor decreases to 15% and 10% in the future months as the contractor gains experience managing the program. The duplicated costs are calculated by multiplying the monthly estimated cost by the associated learning curve factor. This table shows that the duplicate costs are estimated to be $157,186, or 15%, of the $1,047,904.00 total contract value. These costs can be avoided by issuing a sole source six-month TO to XLA, which has already incurred these costs.

*Please note above values have been rounded.

Due to the critical nature of this work, the Government cannot afford to have any lapse or degradation in service. This would lead to JIDA not being able to support its internal operations currently being achieved under the existing MSS task order.

This MSS TO is for services, so there are no technical data packages, specifications, engineering descriptions, or purchase descriptions.

JIDA created the Enterprise Acquisition Strategy Initiative (EASI) to support the agency’s efforts to do the following:

· Improve synergy within and among JIDA elements thus making JIDA more cost efficient and operationally effective;

· Establish JIDA as a force multiplier to leverage Government Communities of Action (CoA) and enable international collaboration; and,

· Enable JIDA to be an agile, flexible, proactive, and responsive Combat Support Agency with the ability to support rapid surge requirements as demanded by the Combatant Commanders.

· Increase mission output by reducing non-mission support workload; and,

· Minimize total cost of ownership including cost to contract.

The JIDA EASI approach was created as part of the agency’s transition. The JIDA’s transition began in March 2015 with the anticipated establishment of JIEDDO as a Combat Support Agency (CSA).

The EASI strategy and migration plan were briefed to senior JIDA leadership and the Vice Director on May 7, 2015. The Vice Director approved the EASI strategy on May 12, 2015 and signed the Best Interest Determination on August 11, 2015. JIDA’s Initial Operational Capability (IOC) was scheduled for October 2015 with an approved contract strategy that estimated that the initial phases of the strategy would be executed by April 2016.

The Option to Exercise Services Clause 52.217-8 was exercised in October 2015 to ensure the contractor is able to support the initial stages of the acquisition strategy and provide final deliverables. During the six month extension for the current MSS TO, the primary focus has been to continue work toward establishing a steady state for the EASI through delivery of tools and processes that will help finalize an acquisition process model that will support JIDA acquisitions organization-wide. Personnel performing work under the current MSS TO are providing final deliverables toward this effort through program decision documentation support; acquisition consulting support; configuration management support; and organizational admin support.

XLA personnel are unable to execute final deliverables until after the initial phase of the contracts migration strategy is executed. This initial phase is linked to the award of the first TOs, after which an acquisition process model will be established and transition of mission support completed. Through execution of the initial phase of the contracts migration strategy, the EASI will be in a steady state status and JIDA will possess an acquisition process model that will be used to award the remainder of the task orders necessary to support the whole of the JIDA mission.

This initial phase was originally delayed due to approval at at Defense Procurement and Policy (DPAP). JIDA EASI approach approval occurred on February 10, 2016. Due to the delays, Industry Days which announced strategy did not take place until August 17, 2015 and August 18, 2015. After both of the Industry Days, work on the individual TO efforts began with an RFI that was sent out on September 11, 2015 (with responses due on September 25, 2015). After working toward development of the PWS and detailed analysis of the RFI responses, another RFI was sent out on 04 November 2015. FEDSIM has been working the acquisition diligently in order to get to the award of the first TOs which will begin completion of the initial phases of the EASI. The need for this effort is not due to poor planning on the part of the JIDA or FEDSIM. The delays were due to the need for a certain level of approval outside of the JIDA. This has been outside of the JIDA and FEDSIM’s control.

The EASI has not yet been approved at the highest level. It is currently with the Office of the Secretary of Defense (OSD). Therefore, all the work that FEDSIM has completed has not delayed the process, but actually worked to complete the efforts as soon as possible in order to ensure continued mission support to JIDA.

viii.) Statement of the Actions the Agency May Take to Remove or Overcome any Barriers that Led to the Restricted Consideration Before Any Subsequent Acquisition for the Supplies or Services is Made:

FEDSIM is currently in the acquisition planning phase of a follow-on acquisition for this effort. A consolidated MSS TO is currently being conducted\ under the One Acquisition Solution for Integrated Services (OASIS) Small Business (SB) contracting vehicle. This is a competitive acquisition, which has undergone extensive market research efforts, including Requests for Information, an Industry Day, and Due Diligence sessions to maximize competition. The awarded consolidated MSS task order is currently in the acquisition pipeline and estimated to be awarded on August 1, 2016.

ix.) Contracting Officer Certification that the Justification is Accurate and Complete to the Best of the Contracting Officer’s Knowledge and Belief:

I hereby certify that this justification is accurate and complete to the best of my knowledge, and determine on the basis of the findings above that the limited sources approach is in accordance with the requirements and is in the best interest of the Government.

x.) Evidence that any Supporting Data that is the Responsibility of Technical or Requirements Personnel and Which Form a Basis for the Justification Have Been Certified as Complete and Accurate by the Technical and Requirements Personnel:

Supporting data provided by the JIDA technical requirements personnel (Mr. Mark Libby) has been certified as complete and accurate as demonstrated by the attached PDF.

xi.) Written Determination by Approving Official Identifying the Circumstance that Applies I hereby certify that this justification is accurate and complete to the best of my knowledge, and determine on the basis of the findings above that this Sole Source TO is in accordance with the requirements and is in the best interest of the Government.

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Microsoft_Excel_Worksheet1.xlsx Sheet1

Table 1. Duplicate Cost Estimate

Month 1 2 3 4 5 6 Total

Estimated Cost $174,651 $174,651 $174,651 $174,651 $174,651 $174,651 $1,047,904

Learning Curve Factor 20% 20% 15% 15% 10% 10% n/a

Duplicated Cost $34,930 $34,930 $26,198 $26,198 $17,465 $17,465 $157,186 image2.emf image3.emf

TPOC Signature Confirmation for LSJ_2016.03.02.pdf

Evidence that any Supporting Data that is the Responsibility of Technical or Requirements Personnel and Which Form a Basis for the Justification Have Been Certified as Complete and Accurate by the Technical and Requirements Personnel:

X Mark Libby

JIDA TPOC

2016-03-02T18:02:42-0500

LIBBY.MARK.D.1229469475

image4.emf image1.emf