Signed J&A_Redacted.pdf

JUSTIFICATION & APPROVAL (J&A) FOR FEDERAL ACQUISITION

REGULATION (FAR) SUBPART 16.5 ACQUISITIONS

EXCEPTION TO FAIR OPPORTUNITY

Multiple Award Schedule/Multiple Award Contract (MAC)

Orders under MAC / Fair Opportunity – FAR 16.505, Department of Defense FAR Supplement (DFARS) 216.505-70, Procedures, Guidance and Information (PGI) 216.505-70

Purchase Request Number: To be Determined Contract Number: GS06F0632Z Task Order Number: HC1047-17-F-0040 Procurement Title: Joint Planning and Execution Services (JPES) Legacy Software Sustainment and Maintenance Estimated Value:

Statutory and Regulatory Authority: 10 U.S.C. 2304c(b) and FAR 16.505(b)(2)(i)(C)

JUSTIFICATION FOR AN EXCEPTION TO FAIR OPPORTUNITY

Number: JA20-019

Upon the basis of the following justification, I, as the Procuring Activity Competition Advocate, hereby approve this exception to fair opportunity pursuant to the Statutory Authority of 10 U.S.C. 2304c(b) and Regulatory Authority of FAR 16.505(b)(2)(i)(C).

1. REQUIRING AGENCY AND CONTRACTING OFFICE:

Requesting Agency:

Defense Information Systems Agency (DISA) Services Development Directorate (SD) Joint Planning and Execution Services (JPES) P.O. Box 549 Ft. Meade, MD 20755-0549

Contracting Activity:

DISA/Defense Information Technology Contracting Organization (DITCO)/PL62 P.O. Box 549 Ft. Meade, MD 20755-0549

2. NATURE/DESCRIPTION OF ACTION(S):

The purpose of this modification is to increase the scope of work on contract HC1047-17-F- 0040. This task order was awarded under GSA’s Alliant Small Business contract vehicle to InterImage, Inc. This is a Firm Fixed Price (FFP) contract and the contract is currently in Option Year two (2). This action is for the JPES Legacy Software Sustainment and Maintenance to ensure that the Joint Operation Planning and Execution System (JOPES), the Joint Capabilities Requirements Manager (JCRM) and the Preferred Force Generation (PFG) legacy systems are maintained, available, stable and secure until each system is Sunset.

JPES Legacy Software Sustainment and Maintenance: HC1047-17-F-0040- JA20-019

Page 2 of 8 Pages

JOPES is an integrated Joint Command and Control (C2) system and is the key joint capability used to support military operations worldwide by enabling force planning, deployment and redeployment planning, and execution activities that support the movement of military forces and other capabilities, personnel and equipment as determined within the Joint Planning and Execution Community (JPEC).

The modification will utilize Fiscal Year (FY) 2020, 2021 and 2022 Research, Development, Testing and Evaluation (RDT&E) and FY 2020, 2021 and 2022 Operations and Maintenance (O&M) funding. The modification influences Option Years (OY) 2, OY3 and OY4, which have a period of performance of OY2: 07/Dec/2019 – 06/Mar/2020 OY3: 07/Mar/2020 – 06/Mar/2021 (Not Exercised) OY4: 07/Mar/2021 – 06/Mar/2022 (Not Exercised) if all options are exercised.

This time period will encompass 2 years and 3 months of JOPES-JCRM-PFG Labor - 6.1 Sustainment (6.1.1 - 6.1.2 & 6.1.5 - 6.1.8) & 6.3 Project Management (6.3.1-6.3.7). JOPES- JCRM-PFG Labor - 6.1.3 RMF and DIACAP & 6.1.4 Cybersecurity and Information Assurance.

JOPES-JCRM-PFG Labor - 6.2.1 Preventive, Adaptive and Corrective Maintenance, & 6.2.3 Test and Evaluation. JCRM-PFG Labor - 6.2.2 Perfective Maintenance with current ODC's and Travel - Cost. This will be maintained until the entire effort is re-competed. The total cost of the contract modification is estimated to increase OY2 by OY3 by OY4 by . Total overall contract value increases by from to

. An additional is estimated for FAR 52.217-8 if exercised.

3. DESCRIPTION OF SUPPLIES/SERVICES:

Currently, InterImage is sustaining the user interface to JOPES-JCRM-PFG Legacy Systems.

This J&A is requesting additional support to maintain JOPES support through the remainder of OY2 (3 months) the entirety of OY3 (12 months) and OY4 (12 months) period of performance.

This is an increase in the scope to the JPES Solution to incorporate the following JOPES technical scope of work:

• Task Area 1 - Sustainment

• Task Area 2 - Maintenance (preventive, perfective, adaptive and corrective)

• Task Area 3 - Project Management

Due to the inability to sunset JOPES in 2018 as originally planned, it has placed numerous burdens in maintaining the platform for an extended three to five year period of time. JOPES was developed and deployed into production over twenty years ago. The JPES Program Manager combined with the Joint Staff – J35 South and the PEO-C2C placed focus and emphasis on the replacement effort JPES moving to replace the current platform. Due to this decision, numerous life sustaining enhancements were forgone and deemed not cost beneficial due to viable replacement on the table.

At the time this logic was sound and justified and no one at the time could have predicted that the replacement would not make it to the finish line as expected. Had JPES deployed there would be no need for additional support as each program would have sustained through 2019 easily with basic maintenance. This course of action would have allowed the decommissioning

Page 3 of 8 Pages of the JOPES legacy systems in August 2018 with the JCRM and PFG programs being decommissioned after Phase II of the JPES deployment reaching Full Operational Capability

(FOC).

Unfortunately, today we are facing the reality of the course of action taken in the past and are forced to direct efforts that permit continued work to provide the required enhancements and improvements to JOPES-JCRM-PFG platforms that has placed us in the situation we are in today. Commercial off the Shelf (COTS) software packages will also be required for this effort to maintain an Authorization to Operate (ATO). This has been determined to be the bare minimum sustainment option allowing JOPES to remain active through 2022. If JPES has not successfully been fielded by that time, JOPES will need to remain the Operational System of Record (SoR), requiring additional procurements and acquisitions needed to perform work required to sustain JOPES on a larger scale.

Priority work consists of:

• Transition of the JOPES program from DoD Information Assurance Certification and Accreditation Process (DIACAP) to the modern Risk Management Framework (RMF) Information Assurance process.

• Replace Solaris 10/WebLogic 11g.

• Web servers with RHEL 7

• Upgrading to Oracle DB 19c will also require Solaris 11

• OpenJDK 8

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:

(a) Exception to Fair Opportunity.

(1) 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.

(1) The modification to incorporate the JOPES-JPES-PFG requirements is in the interest of economy and efficiency and is a logical follow-on to the existing JPES Solution contract being performed by InterImage. By adding the JOPES requirements to the InterImage TO the Government avoids the duplication of costs for Program Management, Labor and Certification and Accreditation, which is currently already on contract CLIN’s for OY2. This modification would merely extend the existing CLIN’s in OY2 and add them to OY3 and OY4. The Government also estimates that there will be a cost avoidance by not having to

Page 4 of 8 Pages duplicate Configuration Management Costs of maintaining the requirements for JPES Framework (JFW) and JPES on separate baselines in Software Forge and holding coordination meetings for Configuration Control Boards and weekly Technical Exchange Meetings. There is a further cost avoidance by utilizing the JPES Solution capabilities as System Administration tools vice developing and customizing available tools.

Overall, this also allows for the meeting of the Agency’s phase I deadline goal, creates efficiencies in the timeline to meet the modernization goals, and reduces the communications and dependencies between multiple vendors, which is highly complicated, and to date has caused multiple delays.

(c) Justification.

(1) Minimum Government requirements.

The minimum requirement is to analyze, design, develop and integrate JOPES-JCRM- PFG into continued sustainable JPES Solution in the most efficient manner that makes the overall system compliance. It also includes all of the testing, deploying, maintenance and sustainment of the current legacy systems. The following are included in JOPES R5:

o DIACAP to RMF transition.

o WebLogic 11g transition.

o Web servers with RHEL 7 transition.

o Oracle DB 19c transition.

o Solaris 11 transition.

o OpenJDK 8 transition.

(2) Proposed sole source contractor.

The proposed contractor for this effort is InterImage who is currently on contract HC1047- 17-F-0040 with DISA to maintain the JPES Legacy Software Sustainment and Maintenance programs.

(3) Discussion regarding cause of the sole source situation.

The decision to solicit only one source to satisfy the above requirements stems from the fact that InterImage is the only source that can fulfill this requirement without risk of a substantial break in service and support to the C2 Community. The time required to conduct a competitive procurement and factor in transition time would put the JPES Program Management Office (PMO) at significant risk. The PMO would not have a vendor in place to respond to critical JOPES real world issues supporting

Page 5 of 8 Pages military operations worldwide. Furthermore, the current vendor in place is best poised to perform the requirements as they currently performing preventive, perfective, adaptive and corrective maintenance on JOPES on the current effort. Conducting a competitive procurement is not in the best interest of Government. Because the current vehicle in place addresses the scope of the new requirements, the instant course of action is in the interest of economy and efficiency.

(4) Demonstration of unique source.

InterImage possesses an extensive and specialized interface which is closely linked and integrates with JFW and other external dependencies for many common and core functions. Through multiple technical exchange meetings with the JPES team over the last year, InterImage maintained the JOPES-JCRM-PFG platform interface data and information services. Use of JPES Solution requires the ability to read data from and write data to JFW across almost the full range of data available within JCRM. In order to accomplish this the JPES Solution development team required thorough insight into the implementation of JOPES. InterImage has developed this thorough understanding not only on how these information requirements are implemented, but also on how these data and information needs support the operational user. This thorough understanding was achieved due to the direct correlation between the two teams and JPES Solution dependency on JOPES-JCRM-PFG.

Additionally, there are multiple external interfaces, which contribute data and information to or receive data and information from JOPES-JCRM-PFG. The majority of the services communicating information and data between JPES Solution and JOPES-JCRM-PFG can be used for communicating data and information between any external interface and JOPES-JCRM-PFG. This commonality provides InterImage with a unique capability to continue the work with no learning curve required. The combination of domain knowledge, and key user requirements as well as dependency of JOPES-JCRM-PFG to the success of JPES Solution places InterImage in the best position to implement the requirements of JOPES-JCRM-PFG to ensure complete end-to-end functionality and meet the Key Performance Parameters (KPPs). Overall, the aforementioned experience provides InterImage with intimate knowledge of the JOPES-JCRM-PFG requirements.

InterImage’s current contract also includes scope to develop or modify additional services in JOPES-JCRM-PFG with the Perfective CLINs. This scope allows InterImage to develop the additional or modified data services to be incorporated within JOPES-JCRM- PFG as necessary to support the JPES Solution if required by the Government.

(5) Procurement discussion.

Originally, the JOPES IT system was to sunset by FY2017 as required by the OSD-CAPE, but there were development delays and quality issues that prevented meeting the goal. In August of 2016, the new goal became deprecating the Legacy JOPES by 4th Quarter FY 2018 but to date, was removed from the project due to performance issues. This contract was followed on by

Page 6 of 8 Pages which has been unable to perform at a velocity to achieve the new goal and after multiple assessments, the project is projected to be even further delayed. Current estimates forecast an operational capable system in place in or around the second quarter of FY 2024. Considering the critical nature of the JPES mission, another delay in providing a modernized JOPES solution is not viable to the Warfighter. The current architecture will not meet the new vision for GCCS-JE and after it is deployed will require substantial development and re-architecting to achieve the vision. This has led the JPES PMO to reconsider its current trajectory and shift to maintaining the current operational systems into the foreseeable future. Currently there this is no source with the system knowledge, skills, and experience to minimize any further schedule delays to move JOPES forward. Moreover, due to the re-competition of the JPES platform for the third time this will result in substantial duplication of cost to the Government that will not be recovered through competition. The time required for a new contractor without any prior experience with the JPES Solution to be fully functional is estimated between 6-9 months.

(6) Impact.

Failure to execute this requirement in a timely manner will affect multiple external systems that utilize JOPES data for their JPES mission having detrimental impact to their contract performance and funding profiles. Failure to approve this effort allowing continued maintenance of the Legacy JOPES systems for an extended period of time (~36 months), could have global impacts to the Warfighter and the Department of Defense.

Due to the JPES fielding delay, it has created substantial schedule delays of up to 36 months.

5. COST/PRICE FAIR AND REASONABLE DETERMINATION:

The price quotation will be evaluated using one or more of the techniques defined in FAR Part

15.404 in order to determine if they are reasonable and complete. Reasonableness is established through cost and price analysis techniques as described in FAR 15.404. The Contracting Officer will compare quoted prices to the pre-established GSA’s Alliant Small Business contract prices and the Independent Government Cost Estimate (IGCE). A determination will be made that the modification represents the best value to the Government and results in the lowest overall cost alternative to meet the Government's needs.

6. MARKET RESEARCH:

Market research was conducted for this effort under North American Industry Classification System (NAICS) Code 54111 to determine what other businesses possess sufficient requisite experience and capabilities to support the requirements. The market research for this action expands from June 2019 through October 2019. The results of the market research showed that there are other companies capable of performing the effort, however, while other businesses (both large and small) may be capable of performing the work, InterImage is the only contractor that has the available staff to perform the requested taskings within the timeframe required and

Page 7 of 8 Pages has the required expertise to support this requirement without any unacceptable delays or duplication of costs.

7. ANY OTHER SUPPORTING FACTS:

The original requirement for JOPES Sustainment was competed under fair and open competition in 2017. The current contract under, InterImage Inc. has successfully provided all required deliveries per the Performance Work Statement. The previous administration believed that JPES would be operationally fielded by the fourth quarter of 2018. However, they planned forward with four, three month CLIN’s to sustain JOPES through the first quarter of 2020. With the expected final sunset of the JOPES project no later than November of 2019. Due to multiple setbacks and delays in the JPES development JOPES will be required to remain in Sustainment for the foreseeable future. This action will also have severe impacts on the operational community with many of the external data providers developing to the JPES replacement and will also have to remain on the JOPES platform. If the program continues on this path, there will be further impacts with licensing of software, sustainment costs and information assurance.

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

THAT LED TO THE EXCEPTION TO FAIR OPPORTUNITY:

(a) Procurement History. Contract HC1047-17-F-0040 for the JPES Legacy Software

Sustainment and Maintenance was awarded under GSA’s Alliant Small Business contract vehicle to InterImage, Inc. The Period of Performance (PoP) is as follows:

HC104717F0040 Base Year: 07/Aug/2017 – 06/Mar/2018 (Exercised) HC104717F0040 Option Year 1: 07/Mar/2018 – 06/Mar/2019 (Exercised) HC104717F0040 Option Year 2: 07/Mar/2019 – 06/Mar/2020 (Exercised) HC104717F0040 Option Years 3: 07/Mar/2020 – 06/Mar/2021 (Not Exercised) HC104717F0040 Option Years 4: 07/Mar/2021 – 06/Mar/2022 (Not Exercised)

(b) Once this work is completed, the JPES PMO will develop a requirements package to continue the JOPES-JCRM-PFG Sustainment Support through a full and open competition.

Page 8 of 8 Pages

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: SIGNATURE: See separate signature page

TITLE/ORGANIZATION: IT Specialist/DBC/SD421

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: SIGNATURE: See separate signature page

TITLE/ORGANIZATION: Program Analyst/DBC/SD12

CONTRACTING OFFICER CERTIFICATION: I certify that this justification is accurate and complete to the best of my knowledge and belief.

NAME: SIGNATURE: See separate signature page

TITLE/ORGANIZATION: Contracting Officer/PSD/PL62

PROCURING ACTIVITY COMPETITION ADVOCATE (PACA) APPROVAL: I have reviewed this justification and find it to be accurate and complete to the best of my knowledge and belief. Since this justification does not exceed $13.5M, this review serves as approval and my written determination that the aforementioned FAR circumstances apply.

NAME: SIGNATURE: See separate signature page

TITLE/ORGANIZATION: PACA/DISA

ALL QUESTIONS REGARDING THIS JUSTIFICATION ARE TO BE REFERRED TO

, Contract Specialist at or via email at