HC1047-15-C-4012 _J_and_A_for_Level_of_Effort_Increase _Fully_Executed_Redacted_Version.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:

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: JA17-003

Upon the basis of the following justification, I, as the Activity Competition Advocate, 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. 2304(c)(1) and 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, engineering and program management 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 $3, for the base year and three option years. The contract is currently in its Option Year 1 period of performance from 24 September 2016 – 23 September 2017. The modification will be to increase the Firm Fixed Price (FFP) Contract

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Line Item Numbers (CLINs) ceiling amounts in the option years with an estimated price of The additional level of effort for Option Year 1’s periods of performance will be funded with Fiscal Year (FY) 2017 Operations & Maintenance (O&M) funds. The contract modification requested under this J&A is comprised of an increase in FFP labor as captured in Table 1 below:

3. DESCRIPTION OF SUPPLIES / SERVICES:

The services currently provided under HC1047-15-C-4012 include comprehensive system engineering support to the GCCS-J Program Management Office (PMO) 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

Page 3 of 8 Pages performing engineering analysis. Additional support is needed for the following: Increased program management support under Performance Work Statement 6.1.2, Subtask 2 – Contract Management, and under PWS 6.2.1, Subtask 1 – Business Process and User Feedback Data Analysis, additional systems engineering support is needed in the areas of comparative analysis and engineering to down select multiple processes into a single, cost-effective standard process in the following areas: configuration management, problem / defect reporting, and testing; and under PWS 6.2.2, Subtask 2 – Portfolio Process Optimization, additional engineering support is needed to design an optimized, cost-effective PMO support structure, to support production of GCCS-J Modernization efforts.

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 # HC1047-15-C-4012 is Bluestone Logic, LLC. Bluestone Logic, LLC. already has the level of expertise and experience in GCCS-J processes, 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 respond 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 HC1047-15-C-4012 includes this work, and this modification would increase the level of effort on PWS 6.1.2, Subtask 2 – Contract Management, PWS 6.2.1, Subtask 1 – Business Process and User Feedback Data Analysis, and PWS 6.2.2, Subtask 2 – Portfolio Process Optimization by 27% overall. The period of performance for this modification would be date of award through Option Year 1’s period of performance end date of September 23, 2017, and will be priced on contract for Option Year’s 2 and 3.

(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 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 recompetes require increased system architecture, technical, and

Page 4 of 8 Pages engineering support for the GCCS-J PMO without delay or disruption of support services. The cost savings of not having to pay another contractor for training “ramp up time” is estimated at up to $192k based on 3.9 FTE’s at a monthly burn rate of $32k for up to six months based on historical costs. The cost of Government overhead in recompeting this work is estimated at up to $466k based on 6 FTE’s at a monthly burn rate of $77.6k for six months based on historical data. 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 to meet Program and DISA timelines for GCCS-J modernization efforts which would not be met without this level of support increase from BluestoneLogic.

The additional level of effort required is similar in nature to the requirements of the existing PWS of the BluestoneLogic Contract HC1047-15-C-4012. Given the immediate support required for the GCCS-J modernization recompetes, using Bluestone Logic, LLC for continued engineering support is in the best interest of the Government. The services being added on this modification are required to ensure uninterrupted systems engineering support required for ensuring the timely execution of the GCCS-J 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. Other contractors might have the technical capability to provide the necessary support (see para 6); however, only BluestoneLogic, LLC, 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. In addition, having two separate contracts/contractors providing the same service to the Government would cause confusion. The Government’s requirement is for a unified solution as outlined in the PWS. This work cannot be segmented or broken up in a logical manner to allow for competition.

(5) Procurement discussion. This level of effort increase is a continuation of work provided on Bluestone Logic Contract # HC1047-15-C-4012. Efficiencies would be realized utilizing the incumbent contractor by negating ramp up time and the additional Government overhead costs were this work competed. Introducing a potential new contractor would duplicate effort and create unacceptable schedule delays of up to 6 months with a total estimated cost of up to $658k.

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(6) Impact. Without this additional support, the GCCS-J PMO will not be able to fully meet its mission requirements in providing command and control solutions to the critical operational sites located across the globe served by GCCS-J PMO. This would lead to schedule and risk management services being directly impacted, and would hinder the ability of the GCCS-J modernization efforts to move to mobile and enterprise cloud in accordance with DISA Director's vision.

6. FEDBIZOPPS ANNOUNCEMENT / POTENTIAL SOURCES:

A notice of this proposed contract action was publicized on 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 August 18, 2016 and closed on September 9, 2016.

Three responses were received in response to the sources sought solicitation to include a response from the current incumbent. The three capability statements were reviewed by the Program Office on September 28, 2016:

1. Bluestone Logic, LLC: Their capabilities include systems engineering, integration, command and control, systems design, consulting, software design, tradeoff analysis, Command, Control, Communications, Computers, Intelligence, Surveillance and Reconnaissance (C4ISR), Command, Control, Communication, Computer, Combat Systems, Intelligence, Surveillance and Reconnaissance (C5ISR), Command and Control (C2), Cloud Computing, Common Operational Picture (COP), Global Command and Control System (GCCS), Global Combat Support System (GCSS), Integrated Imagery and Intelligence (I3), Joint Operation Planning and Execution System (JOPES), Status of Resources and Training (SORTS), Continuity of Operations Plan (COOP), DoD Information Assurance Certification and Accreditation Process (DIACAP), DOD Information Technology Security Certification and Accreditation Process (DITSCAP), Information Assurance (IA), Network Operations, and the DISA Defense Enterprise Computing Center (DECC). They are the current contractor under Contract # HC1047-15-C-4012 for the SD5 PMO. Their system engineering support includes strategic planning, conducting trade studies on various engineering topics, and performing engineering analysis. This contractor can immediately provide the required 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.

2. Trinity Information Technology, LLC: Their capabilities include software and systems architecture engineering, knowledge and experience with Department of Defense Architecture Framework (DoDAF), experience designing, building and supporting software applications to include application architecture, design, development, integration, testing, training and onsite support activities. The contractor was determined to have some of the required capabilities for software and system architecture engineering support, but these are insufficient to immediately perform the full scope of the requirements without a period of time for a learning curve on the GCCS-J modernization efforts which would lead to schedule and risk management services being directly impacted.

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3. Mission1st Group, Inc.: Their capabilities include systems engineering, technical assistance, end-to-end implementation, information technology (IT), engineering, and field services. The contractor was determined to have some of the required capabilities for software and system architecture engineering support, but these are insufficient to immediately perform the full scope of the requirements without a period of time for a learning curve on the GCCS-J modernization efforts which would lead to schedule and risk management services being directly impacted.

The PMO assessed the Sources Sought responses received 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 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.

Competing this work elsewhere at this time would result in substantial duplications of costs estimated at up to $658k 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 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:

A sources sought announcement was posted on FedBizOpps on August 18, 2016 with responses due by September 9, 2016. Three responses were received in response to the sources sought solicitation, inclusive of a response from the current incumbent. The three capability statements reviewed by the Program Office on September 28, 2016 determined that only the incumbent was capable of providing the required service support needed within the required timeframe.

9. ANY OTHER SUPPORTING FACTS:

None.

10. LISTING OF INTERESTED SOURCES:

The following three contractors expressed an interest in this procurement through submission of a Sources Sought response:

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(1) BluestoneLogic 1100 Vermont Avenue NW, Suite 350 Washington, D.C. 20005

(2) Mission1st Group, Inc.

155 Village Boulevard, Suite 203 Princeton, NJ 08540

(3) Trinity Information Technology, LLC 17 Windmill Drive Holland, PA 18966

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) 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 which, if exercised, could carry performance through September 23, 2019.

(b) 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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CONTRACT FILE