HT001116-F-0010-CARMS_and_IMBAS_Bridge_JA.pdf

JA16-0067

Justification and Approval for “Limited Source Justification” Acquisition

FAR Part 8.405-6

1. Identification of the agency and contracting activity. This is a Limited Source Justification (LSJ) for an acquisition, under the authority of the Multiple Award Schedule Program (41 U.S.C. 152(3), of the Federal Acquisition Regulation (FAR), Limited Sources, and in accordance with 8.405-6 of the FAR. The Defense Health Agency, Contracts Operations Division – Falls Church, (COD-FC) proposes to enter into a task order on the basis of limited source.

2. Nature and/or Description of Action being approved. COD-FC is requesting approval of this LSJ for a sole source award bridge task order. The Defense Health Agency (DHA), Information Management (IM) office has a logical follow-on requirement on a sole source basis to support the existing level of effort under HT0011-15-F-0010 (which was a bridge contract to W81XWH-08-D-0028-0037) for Capability and Requirements Management Support (CARMS) (which includes support to the Functional Champion (FC) Office) and the existing level of effort under HT0011-15-C-0002 (which was a bridge contract to W81XWH-08-D-0028-0014 for Information Management Business Architecture Support (IM BAS). The proposed contractor is Deloitte Consulting LLP, 1725 Duke Street, Alexandria, VA 22314- 3456. The Government intends to negotiate Firm Fixed Price Task Order procurement with Deloitte Consulting, LLP via General Services Administration (GSA) contract GS-35F-0243X. The current bridge Task Order HT0011-15-F-0010 and contract HT0011-15-C-0002 expire on 27 May 2016. Deloitte Consulting, LLP, a large company, is the incumbent contractor for both.

Tracking numbers: CARMS JA15-0121#1(cited FAR Part 8) Bridged W81XWH-08-D- 0028/TO#0037(cited FAR Part 6), IM-BAS - JA16-0025#1(cited FAR Part 6) & JA16-0033#2 Bridged HT0011-15-C-0002) and JA15-0036#3 (cited FAR Part 6) Bridged W81XWH-08-D-0028/TO#0014.

3. A description of supplies or services required to meet the agency’s needs. This award provides for the continued support for the DHA IM Office for CARMS and IM BAS. Support includes support for:

requirements development and management processes; Military Health System (MHS) IM/IT investment and sustainment portfolio capabilities activities; functional requirements submissions; development and management of MHS IM/IT functional requirements; Joint Capabilities Integration and Development System (JCIDS) process and documentation; Post Implementation Reviews; and requirements reviews during IT lifecycle acquisition phases. Support for IM BAS includes the Architecture and Standards Development and Management Support to include support for: architecture strategies & guidelines;

operational and data architecture products; architectural and standards analysis; architectural & standards committees and workgroups; Federal and External partner architectural analysis and alignment; health information standards; data management; and modeling and simulation. Support will also be provided to various efforts for the FC Office within the scope of CARMS and IM BAS. The requested action will have a period of performance of three (3) months from 28 May 2016 through 27 August 2016 with the inclusion of FAR clause 52.217-8, Option to Extend Services for an addition six (6) months if necessary.

The bridge task order has an estimated value of $3,286,901.45 for the three (3) month period and up to $6,543,138.76 if FAR 52.217-8 is invoked. The bridge contract will be funded utilizing Fiscal Year (FY) 2016, Operations and Maintenance (O&M) funds. As detailed in under paragraph 7 of this documents, both previous bridge contracts for CARMS and IM BAS have been extended multiple times due to protest activities related to solicitation HT0011-15-R-0010. Instead of continuing the practice of having two separate bridge efforts with the same contractor, the Government is combining the efforts in to one bridge contract to realize efficiencies. This approach should result in cost savings to the Government by eliminating duplication and reduce transition risk once a new contract is awarded as a result of solicitation HT0011-15-R-0010. HT0011-15-R-0010 is actually a combination of the CARMS and IM BAS requirements with the title of Governance, Requirements & Architecture Management Support (GRAMS) and a Determination and Findings for the combining of these efforts was approved on January 23, 2015.

4. Identification of the authority and supporting rationale (see 8.405-6(a) (1) (i) (B), and, if applicable, a demonstration of the proposed contractor’s unique qualification to provide the required supply or service. In accordance with 8.405-6(a)(1)(i)(B), only one source is capable of providing the services required at the level of quality required because the services are highly specialized to ensure completion of mission critical requirements. Deloitte Consulting, LLP has the operational infrastructure and knowledge required for successful performance and the necessary skillsets to complete this effort without a loss of efficiency and impact to the MHS functional community who required CARMS and IM BAS support. This support will assist the functional community to advocate for the Defense Healthcare Management Systems Modernization/Health Information Exchange (DHMSM/HIE) requirements for Governance approval; follow DHMSM/HIE products through the acquisition lifecycle in accordance with targets in the 2014 National Defense Authorization Act (NDAA); and support the maintenance and transition of legacy systems to the Defense Health (including support to the Wounded, Ill and Injured Program). The HIE activities encompass Interagency Program Office (IPO) support of interoperability with Department of Veterans Affairs health record systems and Defense Medical Information Exchange. This effort is a Presidential initiative with high Congressional interest. It will be time effective and cost efficient to utilize the resources already on contract to continue and complete these requirements and is the least costly choice for the Government.

5. A determination by the ordering activity contracting officer that the order represents the best value consistent with FAR 8.404(d). The Contracting Officer hereby determines that this action represents the best value to the Government in accordance with FAR 8.404(d). All support services are included in the vendor’s GSA FSS contract. GSA has already determined the prices for the services under Deloitte’s schedule contract to be fair and reasonable. However, for this requirement, COD-FC will perform a price evaluation as required by 8.405-2(d) to make a final determination of fair and reasonable pricing. Furthermore, discounts will be solicited in accordance with FAR 8.405-2(c) and FAR 8.405-4. As the incumbent, Deloitte’s past performance record has been consistent for the level of effort, they have successfully demonstrated the experience for this requirement, and the current personnel are very qualified.

6. A description of the market research conducted among schedule holders and the results or a statement of the reason market research was not conducted. No market research was done specifically for the bridge contract. However, the rates provided for in this acquisition are in line with already negotiated rates supporting the current GSA Schedule 70 approved vendors. Furthermore, market research for the follow-on contract used GWAC data from National Institute of Health (NIH) Information Technology Acquisition and Assessment Center (NITAAC), GSA Alliant and TEAMS. The current solicitation was a full and open competition under Fedbizopps which allowed for maximum participation.

7. Any other facts supporting the justification.

The bridge contract is required due in part to the following contributing factors:

a. On 5 Feb 2014, DHA issued solicitation HT0011-14-R-0004 entitled Joint Capabilities and Requirements Development Support (JCARDS) with proposals due 24 Feb 2014. This solicitation included the requirements under W81XWH-08-D-0028-0012 (CARMS) and W81XWH-08-D-0028-0012 (IM BAS). A contract was awarded 5 Jun 2014, but then suspended 12 Jun 2014 in response to a protest. Following Government Accountability Office review, the Agency initiated corrective action to reopen proposal evaluations, which included amending the solicitation and entering into discussion with offerors. The Agency received additional protests and eventually cancelled the solicitation. The suspended award was terminated 22 Oct 2014 and the requiring activity restarted the procurement process. The unexpected delays in resolving the protest exhausted the extensions under FAR clause 52.217-8, Option to Extend Services which created the need for a new bridge contract.

b. A new RFP, that applied lessons learned under HT0011-14-R-0004, was issued on 26 February 2016 with the purpose of awarding a contract for GRAMS as discussed under paragraph 3. Initial award of a contract was made on 17 September 2015. A protest was filed with GAO on the award and the protest was dismissed on 26 October 2015 as academic as the Contracting Officer agreed to take corrective actions. Once corrective actions were taken, the contract was reaffirmed on 31 December 2015 and supplemental protests were filed. The GAO ruled on the protests on 15 April 2016 and advised that the Government enter in to Discussions with all offerors within the competitive range to correct areas that the GAO felt the Government was in error.

Discussions will begin shortly and new evaluation documents will be prepared as well as a new award decision. The bridge contract that is requested under this J&A will allow time for all these actions to take place.

c. Historical Data. In FY2010, DHA IM consolidated five smaller contracts into two task orders, W81XWH-08-D-0028-0012 and W81XWH-08-D-0028-0014 under the TRICARE Evaluation, Assistance and Management Support (TEAMS) Indefinite Delivery/Indefinite Quantity (ID/IQ) contract vehicle. TEAMS are administered by the US Army Medical Research Acquisition Activity (USAMRAA). All of these contracts were competitively awarded and none were extended under other than full and open competition or limited sources justification. Both orders were extend via FAR 52.217-8 for six months and new bridge contracts were put in place to continue the CARMS and IM BAS support throughout the various re-compete and protests periods detailed under 9(a) and 9(b).

d. There are no material differences in the work scope of services currently provided under bridge contracts HT0011-15-F-0010 and HT0011-15-C-0002 and those planned in the new bridge contract. Failure to award the bridge contract will stop CARMS and IMBAS services which are required by the MHS functional community to support DHMSM, HIE, and DMIX programs as well as the IPO.

8. A statement of the action, if any, the agency may take to remove or overcome any barriers that led to the restricted consideration before any subsequent acquisition for the supplies or services is made.

It is not the Government’s intention to resort to sole source procurements to avoid awarding a contract pursuant to full and open competition. Instead, Program Office is relying on the sole source bridge follow-on contract due to the previously stated conditions. The follow-on contract is in discussions and estimated award is anticipated within the next three months.