JA14-044_Enterprise_Tele_Network_WAN_Redesign_Final.pdf

JUSTIFICATION & APPROVAL (J&A) FOR FEDERAL ACQUISITION

REGULATION (FAR) SUBPART 16.5 ACQUISITIONS

EXECEPTION TO FAIR OPPORTUNITY

Multiple Award Schedule/Multiple Award Contract (MAC) Orders under MAC/ Fair Opportunity – FAR 16.505, Defense FAR Supplement (DFARS) 216.505-70, Procedures, Guidance, and Information 216.505-70

Purchase Request Number: SP10011400129 Contract Number: HC1028-08-D-2025 Task Order (TO) Number: 0013 Procurement Title: Defense Logistics Agency (DLA) Defense Information Systems Network Sub-network Sustainment and Engineering Contracting Office: Defense Information Systems Agency (DISA) Defense Information Technology Contracting Organization (DITCO) PL8313 Estimated Value: $846,222.40 Authority: FAR 16.505(b)(2)(i)(C)

JUSTIFICATION FOR AN EXCEPTION TO FAIR OPPORTUNITY

Number: JA14-044

Upon the basis of the following justification, I, as the as the Procuring Activity Competition Advocate, hereby approve this exception to fair opportunity pursuant to the authority of FAR 16.505(b)(2)(i)(C).

1. REQUIRING AGENCY AND CONTRACTING OFFICE:

Requiring Agency:

DLA

8725 John J. Kingman Road Fort Belvoir, Virginia 22060-6221

Contracting Office:

DISA DITCO PL8313

2300 East Drive, Bldg. 3600 Scott AFB, IL 62225-5406

2. NATURE/DESCRIPTION OF ACTION: DLA requests to add a 12-month firm-fixed-price level of effort increase to existing contract HC1028-08-D-2025, TO 0013. The period of performance for the increase will align with the existing Option Year 4 (April 1, 2014 through March 31, 2015) and will use existing Fiscal Year (FY) 2014 Defense Working Capital Funds.

Enterprise Telecommunications Network WAN Redesign and Consolidation-JA14-044

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3. DESCRIPTION OF SUPPLIES/SERVICES:

The proposed modification provides for advanced network architecture changes/redesign of the Enterprise Telecommunications Network (ETN)/Siprnet over Enterprise Telecommunications Network (SoETN).

(a) This request is for a level of effort increase to HC1028-08-D-2025 TO 0013 in accordance with Task Area 11. This level of effort increase is required to redesign the ETN/SoETN to support numerous new information technology (IT) enterprise initiatives. Services will include:

develop high-level architecture to meet Wide Area Network (WAN) Redesign project objectives and achieve cost savings, develop new enterprise routing architecture (Design, Test, and Implementation Plans), design new non-classified internet protocol router (NIPR) peering architecture (Design and Implementation Plans), design and implement redundancy into the SoETN, and Local Area Network (LAN) Consolidation Consultation.

(b) The proposed period of performance for this increase will only include Option Year 4

(April 1, 2014 – March 31, 2015).

(c) The total estimated cost of the award for the period of performance is $846,222.40.

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. The following exception applies to fair opportunity accomplished in accordance with 16.505(b)(2)(i)(C).

The order must be issued on a sole-source basis in the interest of economy and efficiency because it is a logical follow-on to an order already issued under the contract, provided that all potential awardees were given a fair opportunity to be considered for the original order.

(b) Description of the Justification. The ETN is DLA’s WAN which is operating worldwide in support of DLA’s mission. As the ETN has grown and evolved, it has become apparent that the current WAN architecture is not capable of supporting emerging DLA Enterprise IT Initiatives such as Enterprise Active Directory, Enterprise Exchange, and Enterprise Virtual Desktop Initiative (VDI). The current design of the ETN will not support the envisioned DLA Enterprise Data Centers, VDI and Enterprise Exchange initiatives to be located in Dayton, Ohio and Tracy, California. The WAN Redesign will allow the ETN to significantly reduce annual operations and maintenance costs and position DLA to easily comply with the DoD Joint Information Enterprise requirements expected in FY 2015. The WAN Redesign will improve ETN availability in aggregate; increase ease and efficiency with which users will be able to access enterprise applications; and improve sustainability by reducing the amount of NIPR network points of presence and physical circuit connections on the ETN, thereby reducing out year costs for equipment lifecycle, maintenance, and operation. These emerging initiatives began in FY 2013 and were not foreseeable when the original contract was awarded and therefore could not have been accounted for in any previous architecture designs. IT advances are continuous and cannot

Page 3 of 7 Pages be foreseen long term. The technologies that will be included in the redesigned network did not exist when the original contract was awarded.

Science Applications International Corporation (SAIC) is best qualified to efficiently and successfully execute this additional level of effort due to their institutional knowledge and day-to-day sustainment support of the ETN and its underlying design. SAIC has also been involved in design meetings with the various Enterprise Initiative implementation teams. This gives them an unparalleled understanding of the network requirements required by these enterprise initiatives. To award to a different contractor would expose DLA to additional costs and unwarranted delays due to unfamiliarity with the ETN, its underlying protocols, and its business processes.

Based on the current level of effort for the contract, dedicated individuals are not available to support this effort without adversely affecting current projects and workload. Tasks will include, but are not limited to, the following:

(1) Develop high-level architecture to meet WAN Redesign project objectives and achieve cost savings.

(2) Develop New Enterprise Routing Architecture (Design, Test, and Implementation Plans)

a. Develop multi-protocol border gateway protocol configurations to consolidate NIPR routing.

b. Develop new routing policies to ensure primary, alternate, and tertiary routing is available for all DLA sites following the architecture redesign.

c. Develop new label distribution architecture as necessary to meet requirements.

(3) Design new NIPR peering architecture (Design and Implementation Plans)

a. Design Perimeter Defense Posture at Jacksonville

b. Develop list of materials for new architecture

c. Develop integration strategy

(4) Design and implement redundancy into the SoETN

a. Redundancy was not originally designed into the SoETN due to cost.

(5) LAN Consolidation Consultation

a. Assist the DLA Network Operations and Security Center with architecture decisions for LAN consolidation.

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b. Assist with policy development for LAN consolidation efforts.

c. Provide consultation to ensure best value architecture at lowest cost of implementation and ownership.

The implementation of the new architecture will be done in accordance with the developed design and implementation plans and will be executed by assigned individuals and the existing ETN/SoETN engineering team.

(c) Justification:

(1) Minimum Government requirements. The verified minimum requirement of the

Government is to conduct an analysis of the current ETN/SoETN architecture and redesign to accommodate enterprise initiatives that are in progress (e.g. VDI, Exchange, DLA Data Centers, Voice over Internet Protocol, Video). The redesign must be expedited to support enterprise initiatives that are already being designed and staged for deployment onto the ETN.

(2) Proposed sole source contractor. SAIC; 7420 Fullerton Road, Suite 101; Springfield, VA 22153. SAIC is uniquely qualified to execute this task due to their extensive knowledge of the ETN/SoETN. SAIC currently provides staff personnel to manage the day-to-day support of the ETN/SoETN. They fully understand the underlying complexities of the various hardware platforms and routing protocols currently being used. Using a different contractor or another MAC holder to execute this task would expose the government to additional cost and potentially a less efficient network design. A thorough understanding of how the ETN/SoETN is currently built would be required prior to any redesign activities. It would take a new contractor a minimum of 320 hours to fully map and analyze the current underlying technologies prior to beginning any redesign analysis. The cost of the additional hours is estimated at $74,168.40.

(3) Discussion regarding cause of the sole source situation. The order must be issued on a sole-source basis in the interest of economy and efficiency because it is a logical follow-on to an order already issued under the contract. All potential awardees were given a fair opportunity to be considered for the original order. Any contractor unfamiliar with the ETN and its underlying functionality would require at least 320 hours to fully analyze the ETN at an estimated cost of $74,168.40 based on average labor rates.

(4) Demonstration of unique source. The level of effort increase to this TO is the most expedient and cost effective method to achieve completion of the required redesign by the deadline of March 31, 2015. Any contract company unfamiliar with the ETN and its underlying functionality would require at least 320 hours to fully analyze the ETN at an estimated cost of $74,168.40 based on the average labor rates.

(5) Procurement discussion. Various enterprise initiatives were started without review of existing WAN capabilities. The redesign must be accomplished in the most expedient manner, within reasonable cost constraints, to ensure no government induced delays impact the execution of the enterprise initiatives which are being executed under separate contracts.

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(6) Impact: Enterprise initiatives that are currently proceeding would be negatively impacted if the WAN redesign is not completed in the most expedient manner. There is the possibility of government induced delays to the various enterprise initiative contracts if the ETN is not redesigned with the capabilities to support the initiatives. This may expose the Government to additional costs on the enterprise initiative contracts.

5. COST/PRICE FAIR AND REASONABLE DETERMINATION: The cost/price fair and reasonable determination that will be used will be based on the applicable ENCORE II price schedule and compared with the prices for services currently provided under the TO, which were awarded on a competitive basis. Additionally, the contracting officer will obtain certified cost or pricing data, and upon completion of negotiations, will obtain a certificate of current cost or pricing data. The contracting officer will make a determination that the anticipated cost/prices are fair and reasonable.

6. MARKET RESEARCH: Market research was conducted in January 2014 by analyzing of the following market places: General Services Administration (GSA), Alliant Government Wide Acquisition Contract, and the DITCO ENCORE II IT Solutions Indefinite Delivery/Indefinite Quantity Contract. A number of potential sources can be found on GSA Alliant contract and on DISA DITCO’s ENCORE II contract vehicles. DLA’s first priority when conducting the market research was to identify the labor categories that would be required to complete this effort.

These projected labor categories from six contractors were reviewed for pricing and the average cost the government would expect to pay for this 12-month project is calculated to be $846,222.40. The 12-month project duration is a reasonable time-frame for an incumbent contractor to complete this task. It is estimated that a new contractor would require 14 months to complete the project due to lack of understanding of current design, underlying technologies, and enterprise initiatives.

After conducting the market research, it is concluded that it would be more advantageous for the government to award this task to SAIC as they are uniquely qualified to efficiently and successfully execute this additional level of effort due to their institutional knowledge and day-to-day sustainment support of the ETN/SoETN and its underlying design. Using a different contractor to execute this task would expose the government to additional cost and potentially a less efficient network design. A thorough understanding of how the ETN/SoETN is currently built would be required prior to any redesign activities. It is estimated it would take a new contractor a minimum of 320 hours to fully map and analyze the current underlying technologies and DLA’s mission requirements prior to beginning any redesign analysis. Using data from the market research, the cost of the additional hours is estimated at $74,168.40. SAIC has staff personnel that have worked on other projects that deployed new technologies to the ETN. SAIC has also been involved in planning meetings for the DLA data centers, Virtual Desktop Initiative, and Enterprise Exchange giving them the required understanding of the WAN requirements for these initiatives.

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:

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(a) Procurement History. HC1028-08-D-2025, TO 0013 awarded March 2, 2010, Period of

Performance April 1, 2010 – March 31, 2011 with 4 one-year option periods. This TO was awarded under ENCORE II in which all vendors were given a fair opportunity to propose.

(b) The original services provided under the HC1028-08-D-2025 TO 0013 will be continued via a new contract that will be competed. HC1028-08-D-2025 TO 0013 is entering its final option year which will conclude on March 31, 2015. The services being requested under this J&A will not be continued as the services are only required for one year.

(c) An exception to fair opportunity or full and open competition has not been accomplished for any prior procurement for this requirement.

9. REFERENCE TO THE APPROVED ACQUISITION PLAN (AP): Not Applicable.

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TECHNICAL CERTIFICATION: I certify that the supporting data under my cognizance which are included in the J&A are accurate and complete to the best of my knowledge and belief.

NAME: ______________________ SIGNATURE: _______________________

(Print/Type)

TITLE/ORGANIZATION: _____________________________ PHONE: _______________

(Print/Type)

DATE: ________

REQUIREMENTS CERTIFICATION: I certify that the supporting data under my cognizance which are included in the J&A are accurate and complete to the best of my knowledge and belief.

NAME: ______________________ SIGNATURE: _______________________

(Print/Type)

TITLE/ORGANIZATION: _____________________________ PHONE: _______________

(Print/Type)

DATE: ________

CONTRACTING OFFICER CERTIFICATION: I certify that this justification is accurate and complete to the best of my knowledge and belief.

NAME: ______________________ SIGNATURE: _______________________

(Print/Type)

TITLE/ORGANIZATION: _____________________________ PHONE: _______________

(Print/Type)

DATE: ________

PROCURING ACTIVITY COMPETITON ADVOCATE APPROVAL: I have reviewed this justification and find it to be accurate and complete to the best of my knowledge and belief.

Since this justification does not exceed $12.5M, this review serves as approval.

NAME: Gay Arnold SIGNATURE:

TITLE/ORGANIZATION: Procuring Agency Competition Advocate/DISA/DITCO

PHONE: 618-229-9517 DATE: March 04, 2014

ALL QUESTIONS REGARDING THIS JUSTIFICATION ARE TO BE REFERRED TO

Tiffany Haselhorst at 618-229-9132.