FINAL JA 2026-0004.pdf

Enclosure 12c, J&A (Part 16) Page 1 of 6 Pages 22Nov2011/v1.2

Purchase Request Number: DOM_OCIO-12-0034

JUSTIFICATION FOR OTHER THAN FULL AND OPEN COMPETITION (OTFAOC)

JUSTIFICATION FOR AN EXCEPTION TO FAIR OPPORTUNITY

Justification for OTFAOC Number: JA12-070

Upon the basis of the following justification, I, as Head of Contracting Activity, hereby approve the use of other than full and open competition of the proposed contractual action pursuant to the authority 10 U.S.C. 2304c(b).

JUSTIFICATION

1. REQUIRING AGENCY AND CONTRACTING OFFICE:

Requiring Activity:

Joint Chiefs of Staff (JCS) Joint Staff (JS) Office of the Chief Information Officer (OCIO) The Pentagon Room 1D565 Washington, DC 20308

Contracting Activity:

Defense Information Systems Agency (DISA) Defense Information Technology Contracting Organization (DITCO) 2300 East Drive Scott AFB, IL 62225

2. NATURE/DESCRIPTION OF ACTION(S):

The purpose of this action is to award a seven (7) month bridge modification to ENCORE II Task Order (TO) HC1028-08-D-2026- 0004 award to Systems Research and Applications Corporation (SRA) to provide Information Technology (IT) services to the Joint Staff (JS). SRA is the only IT service provider with the necessary intimate knowledge of and experience with the JS networks to address the current configurations and provide successful continuity of services for exactly the same services that currently exist under the current task order. The period of performance (POP) for this TO ended on 22 December 2011 and DITCO-Scott extended POP by five (5) months and nine (9) days to 31 May 2012 in accordance with FAR 52.217-8, Option to Extend Services. It is essential for SRA to continue IT services in support of the JS through 31 December 2012 in order to provide sufficient time to solicit and award a new contract. The anticipated POP start date for the new competitive award is 1 January 2013.

Due to multiple changes in the requirement including changes to the acquisition strategy and budget reductions, the recompete action which consists of five (5) years valued at $223.26M has been delayed and therefore cannot be awarded before the current services end on 31 May 2012.

As a result, Joint Staff Office of the Chief Information Officer determined that a POP start date

Page 2 of 6 Pages 22Nov2011/v1.2 of 1 January 2013 would give DITCO-Scott enough time to solicit and award a new JS OCIO IT services contract. There are no other contractors poised and staffed with personnel possessing current Top Secret clearances to transition this effort in time for a 1 June 2012 start date.

Procurement History:

SRA is the Joint Staff’s incumbent for the Integrated Networks Systems and Support requirement performing services awarded following a fair opportunity competition under the DISA/DITCO ENCORE II Multiple Award Task Order contract (HC1028-08-D-2026-0004).

SRA’s TO includes a base period with two (2) option periods beginning 8 May 2009 from through 22 December 2011. DISA/DITCO extended this task order in accordance with FAR 52.217-8 for a period of five (5) months and nine (9) days which will end on 31 May 2012. The total lifecycle amount of the current task order is approximately $114.5M. This includes the value of the 5 month and 9 day extension which is approximately $18.7M. Total cost to date is $114.51M.

Base: $22.89M Option 1: $37.20M Option 2: $35.66M Extension: $18.76M

FC Business Systems, Inc provided IT services between 2000 and 2005. In 2000, the Joint Staff received IT services through a GSA GWAC contract called the IT Omnibus Procurement (ITOP) II. Two (2) Delivery Orders (DO) were awarded to a FC Business Systems, Inc (small business).

The 1st TO was for the Systems Operations and Management (SOM) requirement (DASW01-01- F-0153) which was awarded on 23 September 2000. The 2nd DO was for the Engineering, Integration and Laboratory (EI&L), (DASW01-01-F-0237) which provided the test lab integration services. In December 2005, FC Business Systems, Inc. (FCBS) became part of General Dynamics General Dynamics Network Systems, which in 2006 was renamed to General Dynamics Information Technology.

L-3 Communications (Titan) Corporation provided IT services between 2006 and early 7 May 2009 under Task Order (TO) 0032 issued from the HQ Department of the Army (HQDA) IDIQ contract (W74V8H-05-D-0004), Information Management Support Center (IMCEN). In June 2005 just prior to contract award, L-3 Communications acquired Titan Corporation as part of a merger deal.

a. Type of Action: Firm Fixed-Price, Cost Plus Fixed-Fee Labor CLINs with Cost Reimbursable Travel CLINs

b. Amount: $23.65M

c. Type of Funding: Operations & Maintenance and Procurement

d. Year of Funding: FY 2012 (O&M), FY 2010 and FY 2011 (PROC)

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e. Period of Performance: 1 June 2012 through 31 December 2012; extended through 31 May

2012 IAW FAR 52.217-8

Acquisition Timeline

JS OCIO submitted the acquisition package to DISA/DITCO on 12 August 2011 for the recompete of the JSIN IT services for a base year plus four (4) option years. However, due to changing budget constraints and evolving needs, the final requirement was not able to be established in sufficient time to award without an extension to the current support contract.

3. DESCRIPTION OF SUPPLIES/SERVICES:

The OCIO requires full service information technology (IT) support for the Joint Staff and the Joint Staff Information Network (JSIN) enclaves, to include systems integration, network operations, network security execution, end-user support, asset management and procurement.

The JSIN enclaves currently consist of NIPRNET, SIPRNET, and a Coalition Releasable networks which are known as Joint Staff Integrated Network – Unclassified (JSIN-U), Joint Staff Integrated Network – Secret (JSIN-S) and Joint Staff Integrated Network – Releasable (JSIN- REL), respectively. There are a total of over 6,000 desktop terminals and approximately 700 servers of varying security levels. There are approximately 5,300 users for approximately 8,800 accounts on the JSIN enclaves where approximately 3,000 users reside mostly in the Pentagon and 2,300 users reside at two (2) locations in Hampton Roads (Norfolk/Suffolk sites) and senior leaders are provided support at their quarters. There are over 150 General Officer or VIP personnel and supporting staff that require executive level support. Alternate sites are supported for Continuity of Operations (COOP). The JSIN enclaves are state-of-the-art infrastructures that support cross-domain (network security administration), client-server, thin-client, external access, remote access, service oriented architecture based applications, collaboration tools, web portal, organizational messaging and audio/visual capabilities. While the Joint Staff runs its servers, services and applications, the US Army Information Technology Agency (ITA) manages the Pentagon wide-area network infrastructure (i.e. technical control facility, switches, routers, cryptography and circuit monitoring).

The POP for this seven (7) month bridge action is 1 June 2012 through 31 December 2012.

4. IDENTIFICATION OF STATUTORY AUTHORITY AND DEMONSTRATION OF

CONTRACTOR’S UNIQUE QUALIFICATIONS:

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 awardees were given a fair opportunity to be considered for the original order. (FAR 16.505(b)(2)(i)(C)

SRA is the incumbent contractor providing Integrated Networks Systems and Support to the JS under ENCORE II order number HC1028-08-D-2026 TO 0004. SRA is poised and staffed with the appropriate cleared personnel, to start work on 1 June 2012. They possess the intimate

Page 4 of 6 Pages 22Nov2011/v1.2 knowledge and experience with the JS environment to be productive from day one. The nature of the JS requires a contractor with working knowledge of the JS technical architecture, business processes and service organizations to effectively design, develop and deploy capabilities rapidly across the JS.

Award to any other source would likely result in substantial duplication of cost to the Government that is not expected to be recovered through competition. Competing this seven (7) month bridge action would cost the JS an estimated $2.11M in transition costs and forty-five (45) days of contractor transition time. Based on JS OCIO historical information, new contractors will staff at least half of their end strength on day one of their transition period and the estimated cost for forty-five (45) days of transition time for labor only (Program Management, Systems Integration, Knowledge Engineer, Network Operations and eJMAPS support) amounts to $4.21M. Therefore, the cost for a forty-five (45) day transition period for at least half the contractors end strength would be at least $2.11M. This is funding that the JS cannot afford and is not in the best interest of the Government. Award of the order to a different source would also cause unacceptable delays in fulfilling the Government's requirements. The JSIN enclaves are the JS weapon system, and any delay or interruption in services will impact the JS ability to defend the United States and allies to advance broader peace, security and prosperity.

There are numerous contractors (small and large business) that are capable of providing the required IT services, and the recompete requirement will be competitively awarded. However, a POP start date of 1 June 2012 for the bridge action gives DITCO-Scott approximately three (3) months to solicit and award an estimated $23.65M TO for seven (7) months in support of the JS.

JS IT services would be negatively impacted and there would be an increased/duplication of cost if services had to be transitioned to a new contractor for seven (7) months. JS OCIO estimates that the transition effort for the new competed requirement will cost $3.0M for a new contractor to transition with the incumbent. It is not cost effective to fund a $2.11M transition effort in May 12 and a second at an estimated cost of $3.0M 7 months later. The incumbent contractor does not possess any proprietary rights information on either of the JS networks.

5. COST/PRICE FAIR AND REASONABLE DETERMINATION: (FAR

16.505(b)(ii)(B)(5)

The Contracting Officer and program team will thoroughly analyze proposal for the 7 month extension including the labor rates, travel, and hardware/software incidentals costs in order to determine cost/price fair and reasonableness. This analysis will include a comparison of proposed labor rates with the contractor’s pre-established labor rates and approved Forward Pricing Rate agreements; comparison of proposed pricing for hardware/software incidentals and material handling fees with the Independent Government Cost Estimate (IGCE) and historical costs and comparison of proposed travel costs with current GSA per-diem and mileage rates and the IGCE. A determination will be made by the Contracting Officer concerning whether the order represents the best value to the Government by conducting both a technical review and fair and reasonable price determination.

6. MARKET RESEARCH:

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JS OCIO reviewed the procurement capabilities and available contracting vehicles for NAVSEA, DISA/DITCO, Army Contracting Command – National Capital Region Contracting Center (ACC-NCR) and the Acquisition Directorate – Washington Headquarters Services during period of August 2011 through November 2011 and has determined that DISA/DITCO has the ability to support this requirement. JSOCIO has reviewed the capabilities of perspective vendors and scope of various vehicles and has determined that this effort can and should be competed in the future. However, SRA (as the incumbent) is the only vendor with the intimate knowledge of the JS networks to provide continuity of services between 1 June and 31 December 2012 at a reasonable price/cost while DISA/DITCO solicits and awards follow on TO beginning 1 January 2013. After thoroughly researching the capabilities of the three (3) small businesses identified using Small Business Administration Dynamic Search Tool and ThomasNet and the six (6) ENCORE II small businesses, none demonstrated experience in all thirteen (13) tasks listed in the current PWS. Teaming with another small business or large business as a subcontractor that demonstrates experience, could qualify these as capable contractors using our PWS tasks as screening criteria and poised with the personnel possessing required Top Secret clearances in time for a 1 June 2012 start dated. However, there are no large or small businesses that are poised and staffed with personnel possessing current Top Secret clearances to transition with the incumbent on or about 15 April 2012 in time for a 1 June 2012 POP start date. As a result, the follow-on requirement will be competitively awarded as a set-aside for small businesses.

7. ANY OTHER SUPPORTING FACTS:

No additional supporting facts.

8. ACTIONS TAKEN TO REMOVE BARRIERS TO COMPETITION:

The follow-on requirement will be for a base period of one year plus four (4) one year options at an estimated cost of $222.26M with a POP start date of 1 January 2013 and will be awarded competitively as a small business set-aside on a best value basis. The PWS for the recompeted action includes the IT services requirements for US Joint Forces Command (USJFCOM) transferred to the Joint Staff as a result of the disestablishment of USJFCOM in August 2011.

This bridge modification will be an interim solution until the competed requirement can be executed.

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

(PP):

An acquisition plan is not required for this effort per DARS 7.103.

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