ETFO_PA_approved.pdf

DEFENSE THREAT REDUCTION AGENCY

8725 JOHN J. KINGMAN ROAD, STOP 6201

FORT BELVOIR,VA 22060-6201

EXCEPTION TO FAIR OPPORTUNITY JUSTIFICATION

1. Nature and/or Description of the Action

The Defense Threat Reduction Agency contracting activity proposes to procure, without using the fair opportunity procedures specified in the Combating Weapons of Mass Destruction (CWMD) Indefinite Delivery I Indefinite Quantity (ID/IQ), an effort entitled "Micro-SWIFT Spray." Leidos will be the only contractor solicited to provide the required technical effort.

This effort is a follow-on to sole source contract HDTRA 1-14-C-O 105 with Leidos, which provided physical model development and software development for Stationary Wind Fit and Turbulence (SWIFT) and Micro-SWIFT Spray (MSS) urban models to the Joint Science and Technology Office (JSTO). Prior to this, DTRA fully competed the original effort, awarding to Leidos under task order DTRAO l -03-D-0017-0019 . DTRA then continued this work in follow-on task order DTRAOl-03-D-0017-0038 (awarded with exception to fair opportunity). Both orders were under the Weapons of Mass Destruction (WMD) ID/IQ.

2. Description of the Supplies/Services Required

This effort will provide continued development , optimization, testing, and documentation of SWIFT and MSS for the Joint Science and Technology Prototype (JSTP)/Hazard Prediction and Assessment Capability (HPAC). This work is necessary for the development and transition of a complete and accurate urban dispersion modeling capability for the Joint Effects Model (JEM) Program of Record.

The work described in the accompanying Statement of Work continues a prior effort which provided scientific research, design and development of stand-alone software solutions, testing, verification and validation with experimental data, comparison with other models and theoretical cases, integration into JSTP/HPAC and JEM, source code management, software product change request (SPCR) resolution , user support, and documentation.

This effort will continue development and optimization of SWIFT and MSS. The objectives of this project include:

1) Enhancements to the software to provide the following additional capabilities:

a. Improve mixing length calculations, employ spatial tiling, and implement localized Courant-Friedrichs-Lewy conditions for Momentum SWIFT;

b. Generate a list of specialized HPAC structures, integrate CB and industrial source module user-defined buildings , and integrate and validate with MSS;

c. Couple MSS with the Urban Dispersion Model (UDM);

DISTRIBUTION STATEMENT A - Approved for public release; distribution is unlimited.

d. Create a liquid materials capability, restructure dense gas and puff dynamics, develop chemical reaction module, couple with the UDM, and optimize parallel parameters for MSS;

e. Create Open Service Gateway Initiative and/or Application Programing Interface controls for SWIFT and MSS, and deliver new power user tests to HPAC integrators for SWIFT and MSS;

2) Improve MSS Graphical User Interface features and offer configuration file handling for expert users;

3) If and where applicable, rewrite SWIFT and MSS using updated coding language, such as Python, JavaScript, etc. Remove "dead" code and increase modularity. Optimize code base and update to modern architecture .

4) Provide HPAC software integration and user support including monitoring and responding to Software Product Change Requests.

5) Provide deliverables including software, progress reports, manuals, user-guides and technical documentation

The period of performance for this new task order to Leidos under CWMD ID/IQ HDTRAl -14- D-0008 is four and a half years (the structure of this contract will be a six month base period and four one-year options), and the total value is $3,073,339.00.

3. Exception to Fair Opportunity

FAR 16.505(b)(2)(i)(B), only one awardee is capable of providing the supplies or services required at the level of quality required because the supplies or services ordered are unique or highly specialized.

4. Justification Rationale

DTRA issued a Request for Information (RFI) to all six CWMD ID/IQ contract holders, 10/20/ 16, to seek information from respondents who possess the capability to enhance or modify SWIFT and MSS. Based on the two RFI responses received , Leidos is the only performer that is able satisfy the requirements and adequately address all requested tasks as outlined in the RFI.

Based on further market research (outside the CWMD ID/IQ), although other weather diagnostic and urban dispersion models do exist, they would not meet the needs of this effort without substantive modifications to adapt one of the other models to interact with JSTP/HPAC and JEM as SWIFT/MSS have already been accomplished. This would result in significant duplication of effort and cost.

Leidos has worked on a previous effort to provide physical model development and software development for SWIFT and MSS. The expertise gained during the prior effort makes the contractor uniquely poised to rapidly begin work on this follow on effort and complete it within the timeframe available. The new work builds upon work conducted under HDTRA 1-14-C-O 105 to develop, optimize, test, and document SWIFT and MSS. Selection of a new performer would result in significant duplication of effort with nearly a year spent bringing a new performer up to the same level of familiarity with the program. One year is a sizeable percentage of the overall four and a half year effort. Additionally , this added time would come at a cost of approximately $542,766.00 (one year's cost a year to bring a new performer up to speed and transition the developmental code). The cost and time issues associated with the selection of a new performer at this time clearly result in the need for an exception to fair opportunity.

S. Market Research

In accordance with Federal Acquisition Regulation (FAR) Part 10, market research was conducted through several means, including historical acquisition information , personal knowledge in procuring supplies/services of this type, and through an RFI to the six CWMD ID/IQ contract holders. Additionally , continuous market surveillance of the capabilities, expertise, and development experience of the many performers currently doing work for DTRA 19-CBI is ongoing, as well as exposure to experts in the field of transport and dispersion via conferences and journal articles.

The results of the RFI clearly supported the decision to pursue this exception to fair opportunity.

There were two responses, from Leidos and one other awardee. The other awardee response was not acceptable as it would not satisfy the requirements stated in the RFI. The response offered an alternative to the MSS approach that had already been attempted unsuccessfully under a separate DTRA project. The Leidos response , however, did satisfy all of the stated requirements , indicating the risk of unacceptable performance is low.

The software components that are to be generated by this effort are developed with Chemical and Biological Defense Program funding and direction and are not codes that are available through commercial avenues. It would not be possible to generate these computer models through purely commercial means. As a result of the preceding facts and the market research conducted, this requirement cannot be met by commercial items, commercial items with modifications , or non-developmental items.

Leidos has specific expertise in model development for SWIFT and MSS as they are currently the performer. This current work on these efforts lies at the core of this sole source effort.

Leidos employs key personnel that have the necessary expertise for furthering development of the efforts proposed . Competing the proposed work among awardees would cause JSTO to incur duplication of effort and cost that would have a significant negative impact on the JPM-IS program of record JEM.

6. Other Supporting Facts

The duplication of effort resulting from re-competing this action would result in both schedule and cost impacts.

Schedule Impacts:

The current SWIFT and MSS codes have been under development for more than ten years, most recently under HDTRA l -14-C-0105. Having access to the current core development team is crucial to successful code alterations and progress towards CCMI compliant codes being completed within the time required by the JEM program for incorporation into JEM Increment 2.0.

A 12-month delay would push completion of the fully functional JEM 2.0 prototype. This delay would not only impact timelines internal to that of JSTO, but that of the Joint Program Executive Office -Chemical and Biological Defense (JPEO-CBD).

*Schedule Assumptions:

• Once a new contract is awarded, it would take a minimum of 8 months to effectively transition the developmental products.

• Additional delays would involve introducing the new performer to the JPEO-CBD program and building the necessary relationships with key Government stakeholders.

The ability for the performer to have an open and fruitful dialog with both JSTO and JPEO-CBD is crucial to the success of the program of record.

• At a minimum, assuming no delays caused by the issues related to the relationship building, re-competing the task order would push the project 12 months behind schedule and would result in project failure, as the timeline is already tightly compacted to accommodate the needs of the JEM program.

Cost Impacts:

There are numerous government costs that would likely be duplicated in the event of a new competitive action this far into the technology development. This technology was developed over more than ten years and originally initiated through a competitive selection on the WMD ID/IQ. The performer has the ability to rapidly modify and develop the MSS product as a result of their comprehensive understanding and experience.

In addition, a great deal of time has been spent on the part of the COR and his Government and Assistance & Advisory Support to ensure that the performer has the knowledge and understanding necessary of program requirements and the path forward for MSS within the Joint Science and Technology Prototype and JEM. To select a new performer at this time, much of the "corporate knowledge" gained by the current performer would be lost , in addition to the scientific knowledge, resulting in a greatly diminished chance of project success.

The estimated additional costs to integrate a new performer total more than $542,766.00.

This total includes additional direct labor, indirect costs and travel costs that would be required for a new contractor to successfully transition the effort. This assumes that the selection requires no additional costs for materials , equipment, consultants, or subcontractors above and beyond the project cost proposal.

Other Possible Costs:

In addition to costs necessary to facilitate the transition of the developmental technology, there would also be a burden on the COR to ensure transition is occurring on time and as expected. The estimated travel costs for the COR to facilitate the transition are $13,512.00.

7. Subsequent Actions DTRA has received all the system technical data, computer software, and software documentation created under the prior task orders and will do so for the current contract , HDTRA l-14-C-0105 , at the effort's completion (until then , interim reports are available).

During the course of this proposed further effort, the program manager will continue market surveillance of the work being done in the area of urban dispersion modeling. The program manager believes that work in this area will be complete at the conclusion of this further effort.

However, if at the conclusion of this task order, it is determined that the needs of the Joint Program Manager Programs of Record and/or the Defense Threat Reduction Agency's operational needs require additional work in this area or movement into a similar area, the market surveillance that is ongoing will provide insight into what course of action might be taken regarding establishment of a subsequent effort. Should any further development be required the technical data, computer software, and software documentation created under prior task orders I contract , as well as from this further effort, would be utilized to support the DTRA mission and new development.

Technical Certification

I certify that the data and information forming the basis for this justification are accurate and complete to the best of my knowledge and belief.

Project Manager

Contracting Officer Certification and Determination

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

Additionally, I determine that the order represents the best value consistent with Federal Acquisition Regulations.

X Mary Kay Chase

Signed by: CHASE.MARY.K.1032109060

Contracting Officer

General Counsel Coordination

This justification is/is not legally sufficient.

x

JOGC, Associate General Counsel

Approval

Based on the above justification , I hereby approve accomplishment of this acquisition by means of limited sources.

x

Competition Advocate