VC12_JA_11-05-13_FINAL_REDACTED.pdf

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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: DCCMC45002 FY14 O&M SAF, DCCMC35024 Amend 01 FY13 RDT&E, and DCCMC45005 Contract Number: N66001-09-D-0115 Task/Delivery Order Number: VC12 Procurement Title: Joint Command and Control (C2) Capabilities Systems Engineering Contracting Office: Defense Information Technology Contracting Organization (DITCO) /

PL62

Estimated Value: XXXXXXXXX Statutory Authority: FAR 16.505(b)(2)(i)(C)

JUSTIFICATION FOR AN EXCEPTION TO FAIR OPPORTUNITY

Number: JA14-008

Upon the basis of the following justification, I, as Procuring Activity Competition Advocate (PACA), hereby approve the use of other than full and open competition of the proposed contractual action pursuant to the authority of 10 U.S.C. 2304c(b)(3). The regulatory authority permitting exceptions to the fair opportunity process is at FAR 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 awardees were given a fair opportunity to be considered for the original order.

1. REQUIRING AGENCY AND CONTRACTING OFFICE:

Requiring Agency:

Defense Information Systems Agency (DISA) Program Executive Office (PEO) Command and Control Capabilities (C2C) C2 System Engineering and Integration (SE&I) P.O. Box 549 Ft. Meade, MD 20755-0549

Contracting Office:

Defense Information Systems Agency (DISA) Defense Information Technology Contracting Organization (DITCO) National Capital Region (NCR) / PL62 P.O. Box 549 Ft. Meade, MD 20755-0549

2. NATURE / DESCRIPTION OF ACTION(S): The purpose of this modification is to incorporate additional level of effort to Science Applications International Corporation (SAIC) Contract # N66001-09-D-0115, Task Order # VC12 in support of the C2 SE&I Division in its

Page 2 of 10 Pages mission to provide systems engineering (SE) support for the programs and projects within PEO C2C. Task Order #VC12 was originally solicited utilizing fair opportunity procedures by Space and Naval Warfare Systems Command (SPAWAR) San Diego, CA and awarded to Science Applications International Corporation, 1710 SAIC Drive, McLean, VA 22102-3703 on June 24, 2011 as task order N66001-09-D-0115-0005. Contract administration for the task order was transferred from the SPAWAR Systems Center (SSC) Pacific Contracting Activity to DITCO- NCR/PL62 in Fiscal Year 2012. To facilitate the administration of task order N66001-09-D- 0115-0005, which was issued utilizing SPAWAR SSC contract writing systems, DITCO- NCR/PL62 issued sole source task order N66001-09-D-0115-VC12 to SAIC on June 24, 2012.

This award replicated the terms, conditions and pricing of the original SPAWAR SSC task order N66001-09-D-0115-0005 and was issued for administrative purposes only. XXXXXXXXXXXX

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The task order is currently in the final Option Year and is set to expire on June 23, 2014. The modification will be Cost Plus Fixed Fee with an estimated cost of XXXXXXXXXXXXXXXX

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The additional level of effort to be provided under task order N66001-09-D-0115-VC12 is required in the following areas. The additional level of effort also involves consolidation of contract requirements. A Consolidation Determination and Findings has been prepared and approved in conjunction with this Justification and Approval.

a. The JOPES system administration task, which is currently performed by Pragmatics, Inc., a large business, under task order HC1028-08-D-2010-VC19, will be consolidated under SE&I task order N66001-09-D-0115-VC12. XXXXXXXXXXXXXXXXXXXXXXXXXX XXXXXXXXXXXXXXXXXX. These system administration tasks will be cost plus fixed fee XXXXXXXXXXXXXXXXXXXXXXXXXXXXXXXXXXXXXXXXXXXXXXXXX

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c. The JOPES Information Assurance task, which is currently performed by Science Applications International Corporation (SAIC), a large business, under task order HC1028- 08-D-2025-VC15 will be consolidated under SE&I task order N66001-09-D-0115-VC12.

XXXXXXXXXXXXXXXXXXXXXXXXXXX. The consolidated information assurance tasks will be cost plus fixed fee XXXXXXXXXXXXXXXXXXXXXXXXXXXXXXXXX

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The system administration and information assurance requirements in the existing SE&I systems engineering task order performance work statement (PWS) are identical to the scope of work required for the above identified JOPES system administration and information assurance support requirements. SE&I provides systems engineering, systems administration, laboratory support, and information assurance across a portfolio of systems XXXXXXXXXXXXXXXXX

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and this modification does not add any task areas, rather, it adds a new system (i.e., JOPES) to be supported by SE&I under existing SE&I processes. The systems engineering, systems administration, laboratory support and information assurance efforts, once consolidated under

Page 3 of 10 Pages task order N66001-09-D-0115-VC12 will all be performed under the same contract management and performance monitoring structure, thus promoting synergy through consistent processes and procedures.

3. DESCRIPTION OF SUPPLIES/SERVICES: The services currently provided under the SE&I task order N66001-09-D-0115-VC12 include systems engineering support, inclusive of architecture support, requirements analysis, functional analysis, integration, process management, technical / design reviews, configuration management, information assurance, testing, technical experiments/investigations, and capability deployment. These tasks are part of the interdisciplinary field of engineering as applied to software and information technology projects that allows the development, production, operations and support of these projects over their life cycles. Services are required on a level of effort basis across the period of performance.

For the modification, the effort includes additional level of effort in the areas of system administration and information assurance to support the Joint Operational Planning and Execution System (JOPES). The customer activity is PEO C2C / SE&I (CC5).

This modification is required because of organizational changes within PEO C2C. Since the initial task order was awarded, PEO C2C has undergone organizational change resulting in the reassignment of the JOPES from the Global Command and Control System Joint (GCCS-J) Program Management Office (PMO) to the Joint Planning and Execution Services (JPES) PMO.

The JPES PMO uses SE&I support for most systems engineering, integration, and testing activities and therefore these elements were assigned to SE&I. This systems engineering task order contains these activities in the existing scope, but will require additional level of effort as outlined below.

Additional support is needed for the following: Information Assurance and security engineering requires increased effort to cover JOPES. XXXXXXXXXXXXXXXXXXXXXXXXXXXXX The modified Performance Work Statement (PWS) clarifies two items, first that JOPES now is supported by SE&I and this systems engineering task order, and secondly, JOPES-specific activities are within the existing scope (requirements analysis, functional analysis, integration, technical/design reviews, configuration management, information assurance, testing).

In summary, the transition of JOPES from GCCS-J to JPES, which is supported by SE&I, requires additional efforts for JOPES activities as outlined above.

As part of this transition, there is a contract consolidation being approved under a separate Determination and Finding. The current GCCS-J JOPES System Administration and Information Assurance contract support requirements will be consolidated with this SE task.

With the JOPES program management activity transitioning from one PMO to another, this SE task order that CC5 SE&I utilizes to support JPES is being consolidated with the JOPES System Administration (SA) task from the JPES task order, and with the JOPES Information Assurance (IA) task from the GCCS-J task order. The existing SA and IA requirements in the SE&I SE task order PWS associated with this J&A are the same type of activities required for JOPES.

CC5 SE&I provides SE, SA and IA across a portfolio of systems and this consolidation does not add any new task areas, rather, it adds a new system to be supported by SE&I and the contractor to the group of existing systems supported by SE&I’s existing task and the existing contractor.

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SE, SA and IA efforts conducted will be done using the same processes with the same oversight and contract management.

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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:

FAR 16.505(b)(2)(i)(C)

(a) Exception to Fair Opportunity, FAR 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 awardees were given a fair opportunity to be considered for the original order.

(b) Description of the Justification. The current VC12 task order holder is Science

Applications International Corporation (SAIC). Continuation of SAIC’s current support services is essential to rapidly responding to operational needs as well as to maintaining the technical progress and configuration of the Joint C2 baselines. SAIC has seven (7) years of experience in how these major baselines interact through specialized data exchange protocols, and what data flows are exchanged between them, all critical for being able to conduct the full range of systems engineering. SAIC’s experience with the Joint C2 baselines is unique, such that no other contractors have the day-to-day hands on application that gives them the expertise and knowledge of the capabilities to keep them running, understand their nuances, and provide the gamut of systems integration support from knowing the design, interface requirements and integration needs, and information assurance/hosting requirements. In addition, as the contractor supporting GCCS-J’s existing test and evaluation activities, SAIC has extensive experience with JOPES. This knowledge is available only through hands-on experience as each capability’s architecture and infrastructure evolves towards meeting DISA's net-centricity and Joint Command and Control Architecture goals. Given that the additional work on JOPES is within the scope of SAIC’s existing order, the most efficient way forward is to add this work to the existing order.

(c) Justification:

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(1) Minimum Government requirements. The minimum requirements are architecture support, requirements analysis, functional analysis, integration, process management, technical/design reviews, configuration management, information assurance, testing, technical experiments/investigations, and capability deployment. XXXXXXXXXXXXXXXXXXXXXX

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(2) Proposed sole source contractor. SAIC has been supporting the efforts of the SE&I for seven (7) and has been performing all of the services listed above. SAIC supported the transition effort from the Global Command and Control System-Joint (the DoD C2 System of Record) from a large monolithic program to a portfolio of small capabilities produced using Agile Software techniques. This transition effort provided the SAIC workforce with a wealth of experience with the Government’s product line (to include JOPES), architecture, configuration and geographically dispersed customer base that uses the Joint C2 capabilities on a 24/7/365 basis. SAIC has in-depth knowledge of capabilities comprising the entire Joint C2 product line, including installation, configuration and functional expertise. SAIC completely understands the operational and technical environments, which includes vendor operating systems, component Government off-the-Shelf (GOTS), integrated Commercial Off-the-Shelf (COTS), interfaces, unique software bundles, site unique configurations, Combatant Command (COCOM) unique user interfaces, the functional requirements and Warfighter expectations and demands. In addition, SAIC’s expertise will be crucial over the period of performance with Joint C2 programs fielding new baselines to enhance warfighting capabilities, address COTS end of life issues and comply with security polices such that transition to a new provider could be detrimental to the operational capabilities and impact critical warfighting functions. Disengaging from SAIC could effectively bring PEO C2C projects (Joint C2 Common User Interface, Agile Client, JPES capabilities, JOPES) to a complete halt for approximately three (3) to five (5) months while a new contractor transitions key personnel and processes and becomes acclimated with the required services to be performed. The SE&I mission and suite of functional in use capabilities requires continuation (with no disruption) of support services currently provided by SAIC and cannot accommodate a potential disruption of support.

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As a result of SAIC’s long tenure, extensive experience on this program, and the low turnover rate, the contractor has evolved a workforce that is cross-trained in the many different systems engineering tasks called for under this task order and has become intimate with all aspects of the technical baselines, organizational process and battle rhythms. This highly experienced cross-trained workforce can be easily applied to the added JOPES tasking with full expectation of being able to successfully execute those tasks.

The period of performance for the current SE&I systems engineering task order N66001-09-D- 0115-VC12 expires on 23 June 2014, using SAIC for continued systems engineering support for a period of eight (8) months is in the best interest of the Government.

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(3) Discussion regarding cause of the sole source situation. This modification is required because of organizational changes within PEO C2C. Since the initial task order was awarded, PEO C2C has undergone organizational change resulting in the reassignment of the JOPES from the GCCS-J PMO to the JPES PMO. The JPES PMO uses SE&I support for most systems engineering, integration, and testing activities and therefore these elements were assigned to SE&I. This systems engineering task order contains these activities in the existing scope, but a modification is required to include additional level of effort. The additional level of effort also involves consolidation of contract requirements. A Consolidation Determination and Findings has been prepared and approved in conjunction with this Justification and Approval. The JOPES system administration task, which is currently performed by Pragmatics, Inc., a large business, under task order HC1028-08-D-2010-VC19, valued at XXXXXXXXX, will be consolidated under this task order. The JOPES Information Assurance task, valued at XXXXXXXXX which is currently performed by Science Applications International Corporation (SAIC), a large business, under task order HC1028-08-D-2025-VC15 will be consolidated under this task order as well. The system administration and information assurance requirements in the existing SE&I systems engineering task order PWS are identical to the scope of work required for the above identified JOPES system administration and information assurance support requirements. SE&I provides systems engineering, systems administration, laboratory support, and information assurance across a portfolio of systems XXXXXXXXXXXXXXXXXXXXXXXX to be supported by SE&I under existing SE&I processes. The systems engineering, systems administration, laboratory support and information assurance efforts, once consolidated under task order N66001-09-D-0115-VC12 will all be performed under the same contract management and performance monitoring structure, promoting synergy through consistent processes and procedures. Given the period of performance for the current SE&I systems engineering task order N66001-09-D-0115-VC12, which expires on 23 June 2014, coupled with the immediate needs of SE&I, using SAIC for the continued systems engineering for a period of eight (8) months is in the best interest of the Government.

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The services being consolidated and added on this modification are required to ensure uninterrupted support for test and evaluation services required for ensuring Joint C2 capability software is appropriately tested and evaluated in a timely and controlled manner in support of Joint C2 capability developers in PEO-C2C. Continuing these services is required to ensure execution of these requirements in order to meet DISA’s mission and to avoid service interruptions, thus jeopardizing DISA’s mission.

(4) Demonstration of unique source. In addition to the technical knowledge of the software, hardware, connectivity and communications required to successfully provide support for testing and deployment of the major Joint C2 baselines, SAIC has extensive operational knowledge of how these major baselines are used by the Warfighter. This unique combination of technical and operational knowledge and experience has been applied across the suite of PEO C2C programs supported by SE&I and has been a significant enabling factor for the Joint C2 programs to meet critical milestones, on schedule, and within cost. At this time SAIC has the unique understanding necessary to support these additional tasks. Furthermore, delays of 3-5

Page 7 of 10 Pages months would ensue if this modification is not executed, resulting in a break in service that is unacceptable to the Joint C2 mission requirements.

(5) Procurement discussion.

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(6) Impact: Failure to maintain contractor support provided by SAIC

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XXXXXXXXX will result in a loss of continuity of services and will be detrimental to SE&I’s ability to provide systems engineering support for critical situational awareness and joint operational planning needs in support of XXXXXXXXXXXXXXXXXXXXXXXXand to other crises worldwide. Loss of support impacts the fielding of critical releases causing a major slip in vital Joint C2 upgrades for the Warfighter. Delays to fielding these enhancements puts DISA’s Joint C2 efforts in jeopardy, which in-turn compromises the Warfighter's ability to command and control military forces on the battlefield or in crisis support for the conduct of Joint operations.

5. COST/PRICE FAIR AND REASONABLE DETERMINATION (16.505(b)(2)(ii)(B)(5):

An independent government cost estimate (IGCE) was developed by the Government based on Cost Plus Fixed Fee historical data. The total estimated cost for this modification is

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6. MARKET RESEARCH:

Market research was conducted at the Space and Naval Warfare Systems Center (SSC) Pacific contract-level prior to award of the original indefinite delivery / indefinite quantity (IDIQ) contract under which the current SAIC SE&I task order was awarded. Multiple contractors were deemed capable and competitive for the IDIQ, and three (3) contracts were subsequently awarded to SAIC, FGM, and Booz-Allen Hamilton. SSC Pacific awarded the original task order for SE&I support, task order N66001-09-D-0115-0005, to Science Applications International Corporation (SAIC) based upon a fair opportunity competition amongst the IDIQ prime contract holders.

PEO C2C/CC5 conducted additional market research to support this consolidation action from September through October 2013. The market research examined the ability of contractors to provide software engineering and systems engineering support to the SE&I PMO by providing

Page 8 of 10 Pages software development lifecycle activities, operational support and technical services necessary to analyze, design, integrate, test, certify and accredit, deploy, sustain/synchronize, maintain and deliver quality software to the warfighter. The market research reviewed existing DISA-wide and DoD Multiple-Award Contract Vehicles and Other Government-wide Acquisition Contracts (GWACs), as well as Federal Supply Schedules. Market research identified three (3) large businesses, SAIC, Booz Allen Hamilton, and Pragmatics, that were capable of meeting the systems administration and information assurance requirements under the proposed consolidation effort; however, neither Booz Allen Hamilton or Pragmatics can execute all tasks at the required level of quality given the short-term nature of the work to be performed between now and the recompete. The PMO also assessed the capabilities of 37 small businesses;

however, none were deemed capable of meeting the systems administration and information assurance requirements. Further, given the period of performance for the current SE&I systems engineering task order N66001-09-D-0115-VC12, which expires on 23 June 2014, coupled with the immediate needs of SE&I, using SAIC for the continued systems engineering for a period of eight (8) months is in the best interest of the Government. XXXXXXXXXXXXXXXXXXXXX

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7. ANY OTHER SUPPORTING FACTS: None

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

THAT LED TO THE EXCEPTION TO FAIR OPPORTUNITY: (16.505(b)(2)(ii)(B)(7)

(a) Procurement History.

(1) Task Order # N66001-09-D-0115-VC12: Contract administration for SPAWAR task order N66001-09-D-0115-0005 was transferred from the SPAWAR Systems Center (SSC) Pacific Contracting Activity to DITCO-NCR/PL62 in Fiscal Year 2012. To facilitate the administration of task order N66001-09-D-0115-0005, which was issued utilizing SPAWAR SSC contract writing systems, DITCO-NCR/PL62 issued sole source task order N66001-09-D-0115-VC12 to SAIC on June 24, 2012. This award replicated the terms, conditions and pricing of the original SPAWAR SSC task order N66001-09-D- 0115-0005 and was issued for administrative purposes only. XXXXXXXXXXXXXX XXXXXXXXXXXXXXXXXXXXXXXXXXXXXXXXXXXXXXXXXXX. The task order is currently in the final Option Year and is set to expire on June 23, 2014.

(2) The predecessor task order N66001-09-D-0115-0005 was competitively awarded using fair opportunity under the SPAWAR IDIQ to SAIC on June 24, 2011 and expired June 23, 2012.

(b) A notice will be published to FedBizOpps as required by FAR 5.301 within 14 days of award of the modification for a minimum of 30 days.

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9. REFERENCE TO THE APPROVED ACQUISITION PLAN (AP): No AP was required at the time of award for the current Contract # N66001-09-D-0115, Task Order # VC12.

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ORIGINAL SIGNATURES

IN CONTRACT FILE