BSL_J&A_Redacted.pdf

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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, FAR Subpart 13.5, and FAR Part 15

Purchase Request Number: DSDMC70103 Contract Number: HC1047-15-C-4012 Procurement Title: Global Command and Control System - Joint (GCCS-J) Modernization and Architecture Analysis Support Estimated Value:

Statutory Authority: FAR 6.302-1(a)(2)(iii)

JUSTIFICATION FOR OTHER THAN FULL AND OPEN COMPETITION (OTFAOC)

Justification for OTFAOC Number: N/A

Upon the basis of the following justification, I, as the Contracting Officer, hereby approve the use of other than full and open competition of the proposed contractual action pursuant to the authority of FAR 6.302-1(a)(2)(iii).

1. REQUIRING AGENCY AND CONTRACTING OFFICE:

Requiring Agency:

Defense Information Systems Agency (DISA) Development and Business Center (BDC), Support Services Division (SD5) P.O. Box 549 Ft. Meade, MD 20755-0549

Contracting Office:

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 an additional level of effort to Bluestone Logic, LLC’s Contract # HC1047-15-C-4012 for system architecture, technical, and engineering support services of the Global Command and Control System – Joint (GCCS-J) program. Contract # HC1047-15-C-4012 was originally competed as a 100% small business set-aside on FedBizOpps under NAICS Code 541512 using FAR Part 15 procedures with best value tradeoffs as the evaluation method, and was awarded to Bluestone Logic, LLC 1100 Vermont Avenue NW, Suite 350, Washington, D.C. 20005-6335. The current total awarded dollar value of the contract is for the base and three option years. The contract is currently in its Option Year 2

Page 2 of 9 Pages period of performance from 24 September 2017 – 23 September 2018. The additional level of effort for the option year periods of performance will be funded with Fiscal Year (FY) 2018/2019 Operations & Maintenance (O&M) and RDT&E funds. The new total estimated ceiling is

. The contract modification requested under this Justification & Approval is comprised of an increase in FFP labor as captured in Table 1 below:

Table 1: Estimated Ceiling Increase

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3. DESCRIPTION OF SUPPLIES / SERVICES:

The services currently provided under Contract # HC1047-15-C-4012 include comprehensive system engineering support to the GCCS-J Program Management Office in support of GCCS-J Modernization in accordance with Joint C2 Architecture efforts and initiatives. This engineering support includes strategic planning, conducting trade studies on various engineering topics, and performing engineering analysis.

This level of effort increase in program management and systems engineering support is required in the Option Years 3 due to an increased workload in support to the GCCS-J Enterprise (JE). This effort is required to support the JE Multiplatform integration, software development and acquisition support; Software architectures for enterprise services; Cloud and/or virtual environment computing deployment. Additional support includes developing, refining, and maintaining the GCCS-JE System Engineering Plan and GCCS-JE Integrated Support Plan (ISP);

as well as the GCCS-JE (future) enterprise communications topology.

4. IDENTIFICATION OF STATUTORY AUTHORITY: Only one responsible source and no other supplies or services will satisfy agency requirements, 10 U.S.C.2304 (c)(1). (FAR 6.302-

1 / DFARS 206.302-1).

5. DEMONSTRATION OF CONTRACTOR’S UNIQUE QUALIFICATIONS:

a. Description of events. The current contract holder on Contract # HC1047-15-C-4012 is

Bluestone Logic, LLC who already has the level of expertise and experience in GCCS-J processes, & have staff trained and ramped up to perform the required system architecture, technical, engineering, and program management support activities needed for this increased level of effort. Continuation of Bluestone Logic’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 Architecture baselines.

b. Justification.

(1) Minimum Government requirements. The minimum requirements are system architecture, technical, engineering and program management support for the GCCS-J PMO. The scope of Contract # HC1047-15-C-4012 includes this work, and this modification would increase the level of effort on PWS 6.2.3. Subtask 3 – GCCS JE Engineering Support.

(2) Proposed sole source contractor. Bluestone Logic, LLC has been supporting the

GCCS-J PMO with the critical engineering support required to support GCCS-J Modernization since the contract was awarded in September 2015. Bluestone Logic, LLC is the only source capable of performing the tasks inherent in this modification due to the specialized nature of the services, and the criticality of the mission it

Page 4 of 9 Pages supports. Bluestone Logic, LLC has the existing functional expertise, level of experience, and capability to execute the requirements within the PWS with no additional ramp up time required. Bluestone Logic, LLC understands the operational and technical environments required to support the program. The GCCS-J modernization re-competes require increased system architecture, technical, and engineering support for the GCCS-J & JE PMO without delay or disruption of support services. The cost savings of not having to pay another contractor for “ramp up time” is estimated at up to for up to six months based on historical costs. As a result of Bluestone Logic, LLC’s experience on this program to date, the contractor has evolved a workforce that is cross-trained in the many different systems engineering tasks called for under this contract, and has become intimate with all aspects of the technical baselines and organizational processes. This highly experienced cross-trained workforce can be easily applied to the added level of effort required with the full expectation of being able to successfully execute the tasks.

(3) Discussion regarding cause of the sole source situation. This modification is required because of an increased workload in support to the Service Development Directorate’s emergent task in support the JE Multiplatform integration, software development and acquisition support; Software architectures for enterprise services;

Cloud and/or virtual environment computing deployment. Additional support includes developing, refining, and maintaining the GCCS-JE System Engineering Plan and GCCS-JE Integrated Support Plan (ISP); as well as the GCCS-JE (future) enterprise communications topology. The additional level of effort required is similar in nature to the requirements of the existing PWS of the Bluestone Logic Contract # HC1047- 15-C-4012. Given the immediate support required for the emergent task, using Bluestone Logic, LLC for continued engineering support is in the best interest of the Government. There is no potential cost savings projected to be received through recompetition of the required increase of systems engineering support functions under PWS 6.2.3, Subtask 3 - GCCS JE Engineering Support. The services being added are required to ensure uninterrupted systems engineering support required for ensuring the timely execution of the GCCS-J & GCCS-JE Sustainment, Maintenance and Modernization recompetes in order to meet DISA’s mission and avoid service interruptions that would jeopardize the program’s goals.

(4) Demonstration of unique source. Bluestone Logic, LLC, already has staff trained and ramped up to perform the required system architecture, technical, and engineering support activities required for this increased level of effort. Bluestone Logic, LLC staff has the technical knowledge of the Joint C2 Architecture operational baselines required to successfully provide the required support. This unique combination of technical and operational knowledge and experience will ensure the program meets critical milestones on schedule and within cost.

(5) Procurement discussion. This level of effort increase is a continuation of work provided on Bluestone Logic Contract # HC1047-15-C-4012. Efficiencies will be realized utilizing the incumbent contractor by negating ramp up time and the additional overhead costs to the Government’s budget line were this work to be solicited

Page 5 of 9 Pages elsewhere. Introducing a potential new contractor would duplicate effort and create unacceptable schedule delays of up to 6 months with an estimated cost of up to

(6) Impact. Without this additional support, the GCCS-J & GCCS-JE PMO will not able to meet its mission requirements in providing command and control solutions to the critical operational sites located across the globe served by GCCS-J & GCCS-JE PMO.

This would lead to schedule and risk management services being directly impacted, and would hinder the ability of the GCCS-J sustainment, maintenance and modernization efforts to move to mobile and enterprise cloud in accordance with the DISA Director's vision.

6. FEDBIZOPPS ANNOUNCEMENT / POTENTIAL SOURCES:

A notice of this proposed contract action was publicized in FedBizOpps as required by FAR Subpart 5.2. A sources sought announcement and notice of intent to negotiate and award a modification as non-competitive under the statutory authority of FAR 6.302-1 was posted for the required support services on FedBizOpps on July 20, 2018 and closed on August 6, 2018. Eight response were received in response to the sources sought. Eight capability statements were reviewed by the Program Office on August 8, 2018:

• Sealing Technologies, Inc. is a Veteran Owned Small Business (VOSB). Their capabilities include a full spectrum of cybersecurity services including; Defensive Cyber Solutions, Systems Engineering, Test and Evaluation (T&E), Incident Response, Cyber Range Operations, Cyber Mission Force Training and Exercises, Cyber Engineering and Architecture, Risk Management Framework (RMF) and Pre-staging, Integration and Logistics. Sealing Technologies has some required capabilities to meet the requirements but these are insufficient to immediately perform the full scope of requirements without a period of time for a learning curve of the GCCS-JE effort which lead to the schedule and risk management services being directly impacted.

• Titania: Their capabilities include systems engineering, Project Management Office

(PMO) support, and testing including experience with the Agile Development Life Cycle and various development methodologies used within the Federal government to include Agile, Agile-Hybrid, and Waterfall. Titania has some required capabilities to meet the requirements but these are insufficient to immediately perform the full scope of requirements without a period of time for a learning curve of the GCCS-JE effort which lead to the schedule and risk management services being directly impacted.

• SDS Solutions Inc. is a small business specializing in information technology services for large businesses and government agencies with complex data centers and IT infrastructures. They provide enterprise engineering, with a focus on High Performance Computing, storage engineering, automated configuration management, software development, public and private cloud implementation, virtualization solutions, Software testing, and system administration. SDS Solutions has the required capabilities to meet

Page 6 of 9 Pages the requirements but these are insufficient to immediately perform the full scope of requirements without a period of time for a learning curve of the GCCS-JE effort which lead to the schedule and risk management services being directly impacted.

• JONY: Their capabilities include providing Operations Management Support, Tools

Technology Management Support, Management Support Services and Performance Management Services. JONY has some required capabilities to meet the requirements but these are insufficient to immediately perform the full scope of requirements without a period of time for a learning curve of the GCCS-JE effort which lead to the schedule and risk management services being directly impacted.

• Net Vision Consultants, Inc.: Their capabilities include analytic solutions development, engineering, and software development. Net Vision Consultants has some required capabilities to meet the requirements but these are insufficient to immediately perform the full scope of requirements without a period of time for a learning curve of the GCCS- JE effort which lead to the schedule and risk management services being directly impacted.

• iCIO, INC: Their capabilities include system architects, engineers and data analysts.

iCIO has a few required capabilities to meet the requirements but these are insufficient to immediately perform the full scope of requirements without a period of time for a learning curve of the GCCS-JE effort which lead to the schedule and risk management services being directly impacted.

• InterImage: Their capabilities include Application Development and Sustainment, Cyber

Security and Information Assurance, Data Integration, Analytics & Information Management, and Network Systems Services. InterImage has some required capabilities to meet the requirements but these are insufficient to immediately perform the full scope of requirements without a period of time for a learning curve of the GCCS-JE effort which lead to the schedule and risk management services being directly impacted.

• 22nd Century Technologies: Their capabilities includes continuous cycle of repeatable processes in Project/Contract and Quality Support, System Engineering and Technical Support; processes which are based on fact-driven management and customer feedback and coupled with metrics-based performance measures. 22nd Century Technologies has the required capabilities to meet the requirements but these are insufficient to immediately perform the full scope of requirements without a period of time for a learning curve of the GCCS-JE effort which lead to the schedule and risk management services being directly impacted.

The PMO assessed the Sources Sought responses and determined increasing the level of effort on the current contract was in the best interest of the Government due to time constraints for the GCCS-J & JE PMO to meet its mission requirements to provide critical command and control solutions to operational sites located across the globe. Although, given enough time and resources another small business contractor could potentially accomplish the work, it is not estimated that they could achieve a fast enough learning curve to meet the required deadlines.

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Competing this work elsewhere at this time would result in substantial duplications of costs estimated at up to and would create unacceptable delays.

7. DETERMINATION OF FAIR AND REASONABLE COST:

The Government has already determined that the hourly rates for the fixed priced services offered under Contract # HC1047-15-C-4012 were fair and reasonable at award. The contractor’s proposal for this additional level of effort will be with existing labor categories and rates already approved on contract, and will be analyzed by the PMO technical evaluator and Contracting Officer to determine technical acceptability and price reasonableness. Additionally, the proposal will be compared with the Government’s IGCE and other historical data available for similar procurement efforts. The results of the price and technical evaluation will be used to substantiate the Government’s determination of a fair and reasonable price and best value determination.

8. MARKET RESEARCH:

Market research was conducted within the last five months by the Contracting Officer’s Representative’s (COR) Jade Tran. A Sources Sought notice was posted on FedBizOps per the requirement of DARS 206-302-1.

9. ANY OTHER SUPPORTING FACTS:

None.

10. LISTING OF INTERESTED SOURCES:

(1) Bluestone Logic, LLC

1100 Vermont Avenue NW, Suite 350 Washington, D.C. 20005

(2) Sealing Technologies, Inc.

7134 Columbia Gateway Dr., Suite 160 Columbia, MD 21406

(3) Titania

4258 Burrough Drive, Suite 200 Warrenton, VA 20187

(4) SDS Solutions Inc.

7940 Lobelia Lane Springfield, Virginia 22152

(5) JONY

5113 Britten Lane Ellicott City, MD 21043

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(6) Net Vision Consultants, Inc.

101 Log Canoe Circle, Suite C-1 Stevensville, Maryland 21666

(7) iCIO, INC

3360 Watergrass St West Melbourne, FL 32904

(8) InterImage

4301 N. Fairfax Drive Suite 205 Arlington, VA 22203

(9) 22nd Century Technologies

8251 Greensboro Drive McLean, VA 22102.

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

THAT LED TO THE EXCEPTION TO FULL AND OPEN COMPETITION:

(a) Procurement History.

(1) Contract # HC1047-14-C-4031 was awarded on September 23, 2014 to Bluestone Logic, LLC for Global Command and Control System – Joint Modernization and Architecture Analysis support. It was a sole source procurement utilizing the procedures at FAR Part 15. The period of performance on this contract was from 24 September 2014 – 23 September 2015. J&A # JA14- 086 for the sole source procurement was approved by the Procurement Activity Competition Advocate on 24 June 2014.

(2) Contract # HC1047-15-C-4012 was awarded on September 16, 2015 to Bluestone Logic, LLC. It was competed as a 100% small business set-aside using FAR Part 15 procedures on FedBizOpps under NAICS Code # 541512. The period of performance on this contract is currently in its’ Base Year period from September 24, 2015 – September 2016. There are three Optional Years of performance that if exercised could carry performance through September 23, 2019.

(3) If the requirement for GCCS-J modernization and architecture analysis support is required beyond September 23, 2019, it will be a competitive acquisition.

12. REFERENCE TO THE APPROVED ACQUISITION PLAN (AP): No AP was required at the time of award for the current Contract # HC1047-15-C-4012 as it did not meet the thresholds in DARS 7.103 (S-90).

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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: Jade Tran SIGNATURE:

TITLE / ORGANIZATION: Primary COR / SD / SD52

PHONE: 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: LTC Paul F. Bushey, SIGNATURE:

TITLE / ORGANIZATION: GCCS-JE Program Manager / BDC SD

PHONE: DATE:

CONTRACTING OFFICER CERTIFICATION: I certify that this justification is accurate and complete to the best of my knowledge and belief. Since this effort exceeds $250K but does not exceed $700K, this certification serves as APPROVAL

NAME: Quinton A. Smith SIGNATURE:

TITLE / ORGANIZATION: Contracting Officer, DITCO-NCR / PL62

PHONE: DATE:

ALL QUESTIONS REGARDING THIS JUSTIFICATION ARE TO BE REFERRED TO:

Contracting Officer, Quinton Smith, , quinton.a.smith.civ@mail.mil.