JA_E200552_Redacted_dtd_9_May_13.pdf

JIE Engineering Support, ENCORE II

Enclosure 12c, J&A (Part 16) Title: JIE Engineering Support, ENCORE II

Page 1 of 6 Pages Sept2012

JUSTIFICATION & APPROVALS FOR FAR SUBPART 16.5

ACQUISITIONS

EXCEPTION TO FAIR OPPORTUNITY

Multiple Award Schedule (MAS)/ Multiple Award Contract (MAC)

Orders under MAC/ Fair Opportunity – FAR 16.505, DFARS 216.505-70, PGI 216.505-70

Purchase Request Number: DIAMZ33015 (E200552.00)

Contract Number: HC1028-08-D-2015

Task/Delivery Order Number: 0038

Procurement Title: Joint Information Environment (JIE) Engineering Support

Contracting Office: Defense Information Technology Contracting Organization (DITCO) /

Information Technology (IT) Contracting Division – PL83

Estimated Value: $1,653,724.80 Fiscal Year (FY) 13, Operations and Maintenance (O&M)

Authority: FAR 16.505(b)(2)(i)(B)

JUSTIFICATION FOR AN EXCEPTION TO FAIR OPPORTUNITY

Number: JA13-055

Upon the basis of the following justification, I, as the Procuring Activity Competition Advocate , hereby approve this exception to fair opportunity pursuant to the authority of FAR

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

1. REQUIRING AGENCY AND CONTRACTING OFFICE:

Requesting Agency:

Defense Information systems Agency (DISA), PEO-MA/IA1

P.O. Box 549

Ft. Meade, MD 20755-0549

Contracting Activity:

DITCO

2300 East Drive, Building 3600

Scott AFB, IL 62225-5406

2. NATURE/DESCRIPTION OF ACTION(S):

The purpose of this action is to issue a new task order award to Booz Allen Hamilton (BAH) under ENCORE II. The task order will be issued as a Firm-Fixed-Price (FFP) for one year to support JIE engineering and development. Tasks associated with this requirement include technical program management and support, Information Assurance (IA) expertise, architecture

Justification & Approval (FAR Part 16.5)

Title: JIE Engineering Support, ENCORE II

Page 2 of 6 Pages Sept2012 development, and deployment support. Funding will be provided via FY 13 O&M funds for the one year. Estimated life cycle value of $1,653,724.80.

3. DESCRIPTION OF SUPPLIES/SERVICES:

This task order will provide PEO-MA with JIE development and engineering support. JIE is one of many efforts within DISA’s portfolio which contain contracts supported or executed through contract vehicles established by Defense Technical Information Center (DTIC). DTIC’s mission is to “serve the Department of Defense (DoD) community as the largest central resource for

DoD and government-funded scientific, technical, engineering, and business related information available today”. In order to support the DoD community and customer base, DTIC created the

Information Assurance Technology Analysis Center (IATAC) to "provide the DoD a central point of access for information on Information Assurance emerging technologies in system vulnerabilities, research and development, models, and analysis to support the development and implementation of effective defense against Information Warfare attacks”. DTIC created the

Technical Area Task (TAT) program so that DoD customers could utilize IATAC as a contracting vehicle to address challenging technical problems which are not directly addressed by the IATAC.

The DTIC IATAC contract vehicle (SP070098D4002) is a single-award, CPFF Indefinite

Delivery/Indefinite Quantity (ID/IQ), multi-year contract. The single award IDIQ contract was awarded to BAH on 15 May 1998 with a 10-year Period of Performance (POP) that expired on

14 May 2008 (but individual TATs could extend up to five years beyond the contract vehicle expiration date). The Period of Performance (PoP) for the existing TAT issued off of the IDIQ contract will expire on 27 April 2013. Each TAT allows DoD customers to obtain specialized IA support. PEO-MA executes work on a task order (0394) within an IATAC TAT in support of

JIE engineering and development. Tasks associated with this requirement include technical program management and support, IA expertise, architecture development, and deployment support. The PoP for this task order was from April 2010-2013. The DTIC IATAC TAT

SPO700-98-D-4002-0287 task order 0394 will expire on 27 April 2013. Because the IATAC vehicle is no longer available for use, this sole source award to BAH will be issued off of the

Encore II contract vehicle.

Services needed include continued PEO-MA Technical Project Management & Engineering

Support that BAH currently provides until a re-compete of this sole source effort can be completed. Identification of the complete set of support roles and requirements for DISA to provide support to the JIE program is still ongoing, and the re-compete will be shaped to fit the finalized roles and requirements. DISA PEO-MA requires a source with competencies to promote information assurance by supporting the PEO-MA Program Management Support effort with a full range of program technical management, enterprise architecture design, engineering, Certification and Accreditation (C&A), deployment and lab and property management services.

The PoP for this sole source task order to be issued off of the Encore II vehicle will be 28 April

2013 – 27 April 2014.

Page 3 of 6 Pages Sept2012

4. SUPPORTING RATIONALE, INCLUDING A DEMONSTRATION THAT THE

PROPOSED CONTRACTOR’S UNIQUE QUALIFICATIONS OR THE NATURE OF

THE ACQUISITION REQUIRES USE OF AN EXCEPTION TO FAIR OPPORTUNITY:

(a) Exception to Fair Opportunity. IAW FAR 16.505(b)(2)(i)(B) The award of a new task order must be issued on a sole-source basis as 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.

(b) Justification:

(1) Minimum Government requirements.

Only one source is capable of responding due to the unique or highly specialized nature of the supplies or services. BAH is the only contractor with expertise on the support DISA is currently providing to the JIE program. PEO-MA desires the work which is currently being executed under the IATAC TAT to continue under this sole source effort. BAH is the only contractor capable of immediately continuing this work without causing delays that would arise from having to wait for a new contractor to obtain the requisite subject matter expertise to be capable of meeting the requirements of this effort. Sections 4 and 6 below indicate the expertise a new contractor would have to obtain, and how much it would cost to obtain it. Such delays would jeopardize the ability to meet a July 2013 Initial

Operating Capability (IOC) date. The IOC date is for the JIE program, established by DoD CIO. BAH is providing the expertise DISA needs to complete the current set of DISA-specific requirements needed to establish IOC.

Awarding a contract to perform this work to any other contractor would include costly time to hire and onboard personnel, develop situational awareness, and become familiar with the requirements.

(2) Proposed sole source contractor.

BAH received award of the existing DTIC IATAC TAT SPO700-98-D-4002-

0287 task order 0394 under the DTIC IATAC contract vehicle. PEO-MA has made a significant investment (over $24M for the 2010-2013 time period) to date in the current contractor, and therefore it is logical to sole source this new award to BAH. The expertise in the JIE program obtained by BAH from 2010-2013 exists nowhere else.

(3) Discussion regarding cause of the sole source situation.

BAH has accumulated significant technical expertise and unique knowledge of the

JIE program and its requirements during the performance of this initial effort.

Engineering processes of systems, analytic capabilities as well as technical data and knowledge accumulated during this support is not resident at organizations

Page 4 of 6 Pages Sept2012 other than BAH as they are the only contractor with actual knowledge of the program requirements and history. Once the complete set of support roles and requirements for DISA to provide support to the JIE program is identified, the re-compete will be shaped to fit the finalized roles and requirements. The

Government anticipates that multiple contractors will be available to meet the finalized set of requirements.

(4) Demonstration of unique source.

BAH’s long tenure on this effort has resulted in a workforce that has seen very low turnover rate, resulting in staff that is cross-trained in the many different tasks called for in this contract. BAH’s staff has become intimately familiar with all aspects of the technical baselines, operational policies, and organizational requirements. The skills and legacy of this workforce is required in order to ensure the system adequately supports schedule requirements that DoD Chief Information

Officer (CIO) has placed on DISA (IOC to be complete July 2013, Capability

Upgrade 1 to be complete September 2013, Capability Upgrade 2 to be complete

October 2013, Capability Upgrade 3 to be complete December 2013, Capability

Upgrade 4 to be complete February 2014, and Capability Upgrade 5 to be complete March 2014).

Failure to maintain contractor support provided by BAH until such time that a new task order can be fully competed, awarded, and transitioned will result in a loss of continuity of services and be significantly detrimental to DISA’s ability to support JIE Technical Synchronization Office (JTSO), which will significantly increase the threat to the DoD. The ability for DISA to continue toward deploying and securing the JIE will be diminished without BAH’s support, effectively un-doing the architecture and process foundation work by DISA in support of JTSO. No other contractor has the expertise needed to provide DISA with the support it needs to be able to meet the DoD CIO requirements for IOC and capability upgrades.

(5) Procurement Discussion.

This service was previously provided via a task order placed against the DTIC

IATAC TAT contract vehicle (SP070098D4002). The contract vehicle was issued to BAH on 15 May 1998. The task order PoP will expire on 27 April

2013.

(6) Impact.

Further, award to a contractor other than BAH would result in substantial duplication of cost to the Government that is not expected to be recovered through competition. It would cost PEO-MA an estimated $2M in transition costs and over 5,800 labor hours to bring a new vendor up to speed to where BAH is performing to date (March 2013). This estimate combines a mix of historical data

Page 5 of 6 Pages Sept2012 covering support work done to get new staff up to speed with expedited “ramp-up” costs to meet the July IOC deadline for the JIE program. Based on PEO-MA historical information, $1.6M O&M funds were strategically planned for this effort going forward, which would not be sufficient to cover a transition period.

Funding a duplicative effort is something that PEO-MA cannot afford, and is not in the best interest of the government. Award of the task order to a different contractor would also cause unacceptable delays in fulfilling the Government’s requirements. Any delay or interruption in services will impact usability of the tool by both DISA and DoD counterparts.

5. COST/PRICE FAIR AND REASONABLE DETERMINATION:

The Contracting Officer will obtain certified cost or pricing data, IAW FAR 15.403-4 and will use this information to determine fair and reasonableness. After completion of negotiations, a

Certificate of Current Cost or Pricing Data will be obtained.

6. MARKET RESEARCH:

This requirement is for a one-year effort until a competition for a different set of JIE support requirements (which are still in the process of being defined) can be completed. The incumbent has been the sole technical support contractor. They meet all of the current requirements for support and are positioned to continue providing their current level of support for the PEO-MA.

BAH is the only source that can fulfill this requirement without risk of a substantial break in support or schedule delays for these critical DoD infrastructure programs. Based on the time to competitively procure a replacement contract and the current contract end date, BAH is the only responsible and knowledgeable source that can supply the needed services during this period without a break in service and in time to meet a July 2013 IOC for the JIE program.

PEO-MA is planning market research for the JIE support re-compete through a Request for

Information (RFI) upon further identification of support roles and requirements for this effort.

PEO-MA will collect the RFI responses and they will be analyzed and documented for the re-compete. Identification of the support roles and requirements for DISA to provide support to the

JIE program is ongoing now.

7. ANY OTHER SUPPORTING FACTS: N/A.

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

THAT LED TO THE EXCEPTION TO FAIR OPPORTUNITY:

The current work is being performed on a CPFF basis under the DTIC IATAC contract

SPO700-98-D-4002-0287 task order 0394. The PoP of the task order is 28 April 2010 through 27

April 2013 with a total life cycle value of $24.3M. The IATAC contract is a single-award IDIQ that was competed and awarded to BAH on the basis of full and open competition (its POP was

May 1998 to May 2008, but individual TATs could extend five years beyond the contract POP end date). The task orders are not competed on an individual basis.

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DISA PEO-MA intends to competitively award a new contract in alignment with the expiring

PoP of this sole-sourced task order. Market research for a new, competitively awarded JIE support contract will be conducted as soon as the support roles and requirements for DISA to provide to the JIE program are finalized. DISA will be releasing a competitive acquisition for the new requirement in time to avoid any need for additional sole source awards.

9. REFERENCE TO THE APPROVED ACQUISITION PLAN (AP):

An Acquisition Plan is not required for this effort.