Redacted_JA_JCAT2020.pdf

JUSTIFICATION FOR

OTHER THAN FULL AND OPEN COMPETITION (OTFAOC)

Federal Acquisition Regulation (FAR) Part 6 Justification & Approval (J&A) Supporting Procurements under FAR Part 12 and FAR Part 15

Purchase Request Number: N0002419MP00119 Contract Number: To be determined (TBD) Task/Delivery Order Number: TBD Procurement Title: Jaguar Control and Analysis Tool (JCAT)2020 License Subscription and Support Estimated Value:

Statutory Authority: FAR 6.302-1

JUSTIFICATION FOR OTFAOC

Justification for OTFAOC Number: JA19-022

Upon the basis of the following justification, I, as Procuring Activity Competition Advocate (PACA), hereby approve the use of OTFAOC of the proposed contractual action, pursuant to the authority of FAR 6.302-1 and Defense FAR Supplement (DFARS) 206.302-1, only one responsible source and no other supplies or services will satisfy agency requirements.

1. REQUIRING AGENCY AND CONTRACTING OFFICE:

a. Requiring Agency:

Naval Sea Systems Command (NAVSEA), Management Systems Support Division Portsmouth Naval Shipyard Building 170, 6th Floor Kittery, Maine 03904-1367

b. Contracting Office:

Defense Information Systems Agency (DISA)/Defense Information Technology Contracting Organization (DITCO)/PL8321 2300 East Drive, Building 3600 Scott Air Force Base, Illinois 62225-5406

2. NATURE/DESCRIPTION OF ACTION(S):

a. The nature of this requirement is to procure proprietary, brand name, commercial off-the-shelf (COTS), JCAT2020 software license subscriptions and support of the NAVSEA Program Management Office for Information Technology’s (PMO IT) Project Scheduling and Sequencing (PSS) system. This procurement will be a firm fixed priced (FFP) delivery order on the open market to the original equipment manufacturer (OEM), Robbins-Gioia, LLC, a large business, and the only available source that can fill the Agency’s need.

b. The period of performance will be for a base period of January 1, 2019 through November 30, 2019, with two 1-year option periods. The total estimated life-cycle value of this acquisition

JCAT2020 Software License Subscription and Support-JA19-022 is , with a base period of Fiscal year 2019 operations and maintenance funds have been provided under military interdepartmental purchase request N0002419MP00119. The applicable North American Industry Classification System code is 511210, Software Publishers, with sales size standard of $38.5 million.

3. DESCRIPTION OF SUPPLIES/SERVICES:

a. The objective of this requirement is to procure software license subscriptions and support for JCAT2020. The original Control and Analysis Tool (CAT) II software is no longer supported by the manufacturer and has been upgraded to JCAT2020, which provides enhanced cyber security features and is compatible with CAT II. JCAT2020 provides the computational engine and a fourth generation language (4GL) used to code the PSS system that is part of the Corporate Shipyard Application Suite (CSAS) and Maritime Systems Environment (MSE) suites of systems. The PSS system generates the project schedule used by CSAS and MSE applications, using CAT II (now JCAT2020) proprietary 4GL coding, created by the Government to develop, modify, and maintain the user interface and custom functions. This system will be required until the Department of Navy identifies a product suitable to replace PSS for creating naval shipyards and Regional Maintenance Center (RMC) maintenance schedules.

The PSS application, used to schedule ship maintenance availabilities, relies completely on the Robbins-Gioia CAT II platform software to update application code in support of continuing functional needs and to stay ahead of the ever-changing cyber security requirements.

b. The required software subscription must be able to provide the following operational capabilities:

(1) The software must provide the computational engine and a 4GL used for the PSS system.

(2) The software must provide a compatible programming interface to provide the data processing that meets the need of the naval shipyards and RMC’s integrated suite of business systems.

(3) The software must be specifically developed using the shipyards’ unique configurations that interact with other modules in CSAS and MSE suites of systems.

4. IDENTIFICATION OF STATUTORY AUTHORITY:

Only one responsible source and no other supplies or services will satisfy agency requirements, and 10 United States Code 2304(c)(1) and FAR 6.302-1/DFARS 206.302-1.

5. DEMONSTRATION OF CONTRACTOR’S UNIQUE QUALIFICATIONS:

a. Description of events. Between 1994 and 1998 the naval shipyards developed an integrated management suite, CSAS, to replace aging mainframe systems. One component of CSAS was PSS, which was adopted as part of a Joint Logistics Service Center project in conjunction with the Air Force, in which the Navy was required to participate. Since then, PSS and the associated JCAT2020 software has been customized extensively to become a core component of the ship maintenance management suite and has since been expanded to the RMCs in the MSE suite of systems. Since 1994, over has been invested in the CAT II and JCAT2020 software. In 2015, Robbins-Gioia notified the Navy that they would no longer support CAT II separately from the upgraded version JCAT2020, and support for CAT II would be available for a limited time in conjunction with a transition to the JCAT2020. The transition to JCAT2020 has been completed and will now be the only software supported.

b. Justification.

(1) Minimum Government requirements. The Government’s minimum requirement is to procure software license subscriptions and support for the upgraded version

JCAT2020.

(2) Proposed sole source contractor. JCAT2020 is proprietary software and Robbins- Gioia, LLC is the sole source provider of the JCAT2020 software license subscriptions and support. There are no other resellers for this product.

(3) Discussion regarding cause of the sole source situation. The JCAT2020 product is the only product that will currently meet NAVSEA 04I, PMO IT requirements, because it is the only software which will interact with CSAS and MSE without extensive modification and software development.

(4) Impact. All four Naval shipyards use JCAT2020 software to run standard PSS systems, which have been developed using unique configurations that interact with other modules in CSAS and MSE. To obtain any other type of manufacturer’s software would entail approximately one and a half years of extensive software compatibility and reconfiguration efforts at a cost greater than to NAVSEA’s PMO IT and the shipyards. Redevelopment of the existing PSS application under a different platform, with a different vendor product, would require new hardware to support the newer technology. The new product would have to be modified to interface with existing interface applications, which could require the purchase of additional software components. Training would need to be developed and deployed to the current user community of several hundred people. There would be a period where growth and proficiency in product functionality would be slow.

This will encumber project scheduling updates and potentially the project schedule as a whole. Other products are available to sequence and schedule work, but only JCAT2020 has been configured to interact with the CSAS and MSE suites of systems and has proven to be robust enough to handle the magnitude of work that the shipyards schedule for ship overhauls. As a result, the functionality provided by the Robbins-Gioia software is not available from any other known product on the market and is critical to overhauling operations and business processes, as well as providing the interface between scheduling and planning. The disruption caused by not having an operable scheduling system during a transition to another product would be unacceptable and would require extensive manual work-arounds to sequence and schedule work and meet the data requirements of the interfaces to other CSAS and MSE systems. This software is the only solution that will suffice for the ship maintenance enterprise.

6. FEDBIZOPPS (FBO) ANNOUNCEMENT/POTENTIAL SOURCES:

a. In accordance with FAR 5.2, a sources sought announcement was posted to FBO from November 5, 2018 to November 8, 2018. There were no responses received from the posting of the sources sought.

b. NAVSEA requires a sole source award to Robbins-Gioia, LLC for its proprietary COTS JCAT2020 software license subscriptions and support. A combined synopsis/solicitation for this requirement will be published to the FedBizOpps website, as required by FAR 5.2.

7. DETERMINATION OF FAIR AND REASONABLE COST:

A determination will be made by the contracting officer that the contract represents the best value to the Government, as defined in FAR 2.101, and results in the lowest overall cost alternative (considering price, special features, and administrative costs) to meet the Government's needs. The contracting officer will also determine the pricing information valid for comparative purposes. Certified cost and price data is not required for this commercial item acquisition, in accordance with FAR 15.403-1(b)(3). The contracting officer will determine whether the price is fair and reasonable, based on comparison of the proposed prices to historical and existing prices paid, comparison with commercial price lists, and comparison of proposed price with the independent Government cost estimate.

8. MARKET RESEARCH:

a. Market research was conducted in September through October 2018 through internet searches, internal discussions, and communication with the OEM. It was determined through market research that Robbins-Gioia, LLC is the only source that can provide the required JCAT2020 software license subscriptions and support.

b. The first step taken in conducting market research in support of this requirement was to determine if there was any other-than-brand-name software or support that could provide the same or similar solution to the Government. NAVSEA surveyed and tested six products to include: Concerto, Primavera, Microsoft Project, Hewlett Packard Project Portfolio Management, and Artemis 9000. Market research revealed that no other products on the market at this time can currently meet the Government’s needs, which includes, but not limited to, interfacing with CSAS and MSE systems. Based on the market research, JCAT2020 is the only software product that can meet all of the minimum Government requirements. There are no other products on the market that are similar or compare to the required JCAT2020 software license subscriptions and support. No current products can provide a family of ‘like’ products to support NAVSEA. Robbins-Gioia, LLC is currently the only contractor capable of providing the Department of Navy with the JCAT2020 software license subscriptions and support.

c. Market research revealed that JCAT2020 software license subscriptions and support are only available through the OEM. Market research revealed the JCAT2020 software license subscriptions and support are not available through a Department of Defense Enterprise Software Initiative Blanket Purchase Agreement, a General Services Administration Federal Supply

Schedule, or on the National Aeronautics and Space Administration Solutions for Enterprise- Wide Procurement V Government-wide acquisition contract. It was found that this software is only available through the open market, from the only available source, Robbins-Gioia, LLC.

Therefore, this will be a sole source procurement on the open market to Robbins-Gioia, LLC.

9. ANY OTHER SUPPORTING FACTS: None.

10. LISTING OF INTERESTED SOURCES:

When market research was conducted, Robbins-Gioia was the only vendor found to have capabilities to provide this requirement. There were no responses received from the posting of the sources sought. As stated in paragraph 6 above, a combined synopsis/solicitation will be published prior to contract award.

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

THAT LED TO THE EXCEPTION TO FULL AND OPEN COMPETITION:

a. Procurement History.

Contract Number: HC102818P0122 Contractor: Robbins-Gioia, a large business Contract Period: July 11, 2018 through July 10, 2019 Total Estimated Contract Value:

Contract Type: FFP Objective of Contract: To obtain JCAT2020 annual license subscription Competitive Status: Sole source, brand name to Robbins-Gioia

Contract Number: HC1028-16-P-0047

Contract Period: January 1, 2016 through December 31, 2016 Total Estimated Contract Value:

Contract Type: FFP Objective of Contract: To obtain CAT II software support and purchase new licenses

Contract Number: N00189-14-C-Q017

Contract Period: January 28, 2014 through December 31, 2015 Total Estimated Contract Value:

Contract Type: FFP Objective of Contract: To obtain CAT II software support and purchase new licenses

b. The Government will continue to conduct market research to determine if there are changes in the marketplace that would enable future competitive actions; i.e., there are similar products and/or product support in the marketplace that provide the same functionality, the OEM releases ownership rights of product, or it is economically feasible to procure a new system. Regardless, the Government will continue to search the marketplace yearly to determine if alternative solutions exist that can meet the required needs. The software product will be continually monitored, updated, and re-assessed as the Government moves forward to remove barriers to competition. Future requirements will be evaluated to determine whether an alternate brand/source can be used.

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

In accordance with the exceptions under DISA Acquisition Regulation Supplement 7.103 (S- 92)(2)(ii), an AP is not required.