r_J A_13-2_-_SMS-CMS.pdf

LIMITED SOURCE JUSTIFICATION

Single Mobility System (SMS)/Coalition Mobility System (CMS)

Sustainment and Operations Support

I. CONTRACTING ACTIVITY.

United States Traosportation Commaod, DPO Support Division, USTRANSCOM/TCAQ-D, 508 Scott Drive, Building 1900W, Scott AFB, IL 62225.

2. NATURE AND/OR DESCRIPTION OF ACTION BEING APPROVED.

USTRANSCOM/TCJ3 requires continued contract support for the USTRANSCOM SMS/CMS Systems Sustainment aod Operations Support contract. The order for continued support must be issued on a sole-source basis in the interest of economy aod efficiency because it is a logical follow-on to ao original Federal Supply Schedule order. Consistent with the OMB's 25 Point Implementation Plao to Reform Federal Information Technology Maoagement (Dec. 9, 2010), TCCC maodated consolidation ofUSTRANSCOM In-Traosit Visibility (lTV) systems by 30 September 2013. 1 USTRANSCOM/TCJ3 requires other thao full aod open competition for SMS/CMS Systems Sustainment aod Operations Support contract from Tapestry Solutions, Inc.

to bridge the gap between the expiration of the competitive award on 30 September 2012 aod the consolidation of SMS/CMS with other lTV systems. Approval is requested to modify the current task order, HTC711-10-F-D023, to include one additional Option Year; I October 2012- 30 September 2013. The current contract was competed among GSA schedule holders in accordaoce with (lAW) applicable GSA ordering procedures. In accordaoce with FAR 8.40 I, this acquisition is being conducted under the authority of the Multiple Award Schedule Program.

A contract modification of the current labor-hour GSA Federal Supply Schedule task order to include one 12 month option period is aoticipated based on FAR 8.405-6(a)(l)(i)(C) Logical Follow-On justification.

Table I -Task Order Timeline

Period of Performaoce Months Dollar Value I Mo Base + 2 Option Years I Sep 2010-29 Sep 2012 (CMS) 25

(Competitive- Fair I Sep 2010-30 Sep 2012 (SMS) $5,410,612.57 Opportunity)

Add I Option Year 30 Sep 2012-29 Sep 2013 (CMS) 12 (FAR 52.217-9) I Oct 2012-30 Sf:£_ 2013_{SMS)

Totals I Sep 2010-30 Sep 2013 37

3. DESCRIPTION OF SERVICES REQUIRED TO MEET THE AGENCY'S NEEDS

(INCLUDING ESTIMATED VALUE).

The SMS/CMS Sustainment aod Operations Support contract contains a significaot aod diverse number of tasks to support two programs.

1 USTRANSCOM/CC Memorandum, Distribution -Related Visibility Information Technology (IT) Systems Alignment, 12 March 2012.

The Single Mobility System (SMS) is the primary USTRANSCOM system used to view requirements, plan missions, and track execution. It provides the user with information from such systems as: the Air Mobility Command (AMC) Global Decision Support System (GDSS) and Consolidated Air Mobility Planning System (CAMPS); the Air National Guard (ANG) Management Utility (ANGMU); the Integrated Data Environment (IDE) I Global Transportation Network (GTN) (IGC); the Joint Operations Planning and Execution System (JOPES); and numerous other feeder systems. SMS provides USTRANSCOM's Command and Control (C2) capability and augments the multi-system environment currently used for assigning mobility missions. Utilizing its automated C2 system interfaces, SMS significantly reduces the amount of offiine interface required between C2 agencies and broadens the range of information available to them as decision makers. SMS improves the flow of mobility mission information from the TCCs to USTRANSCOM, aiding in the decision making process.

The Coalition Mobility System (CMS) provides for rapid coordination of Coalition movement planning and execution by providing capability to observe data for aircraft, ship, road and rail movements (military and commercial) in support of coalition operations. There is a persistent need for visibility regarding logistics movements for the Coalition war-fighter. USTRANSCOM requires contractor-provided IT services and support to transition the CMS prototype, and its entry portal (the Coalition Theater Logistics [CTL ]), into operations supporting USTRANSCOM, the Combatant Commands (COCOM), and other coalition and DoD partners, and then sustain operations. While CMS is designed to download mobility data from foreign national systems via the transfer ofXML files, it currently has no active interfaces with any system other than SMS.

The SMS and CMS support contracts were initially combined to reduce the amount of overhead allocated by the vendor to support these systems. Additionally, the technology used within SMS and CMS is similar and the systems perform similar functional capabilities; however, SMS is much more robust and is hosted inside the DoD Global Information Grid (GIG), while CMS is purposefully rudimentary and hosted in a commercial environment. SMS and CMS share data via an interface. SMS sends US data to CMS while also picking up coalition data for display to US SMS users. While CMS only exists in the unclassified environment, the data it sends to SMS is automatically pushed to the high side by SMS. CMS currently has no interfaces other than

SMS.

USTRANSCOM must have continued service from Tapestry for SMS/CMS support because it is vital to the success of our mission. Any gap in support or loss of expertise during this critical period could jeopardize delivery of essential USTRANSCOM IT services. The SMS/CMS requires a significant and diverse number of requirements during FYI3 to include:

• Support to the USTRANSCOM Commander's 12 March 2012 mandate to consolidate all distribution-related lTV and Asset Visibility IT specific systems by 30 September 2013.

The time required for gathering and analyzing the data in order to generate the courses of action and analysis of alternatives required to comply with the memo and develop a logical plan of action and milestones (POA&M) delayed the development and determination of the scope of work for this requirement. The specific contract support required to facilitate the lTV system consolidation has been determined based on the Enterprise Requirements Review Council's (ERR C) decision to retire Integrated Command, Control, and Communications (IC3). This mandate directly impacts the SMS program as it will be transferring the scheduling capability oflntegrated Command, Control, and Communications (IC3) into SMS. The ITV system consolidation mandate requires critical support from Tapestry Solutions, Inc. during the additional period of performance.

• Additionally, the POA&M calls for the completion of the SMS I Distribute.mil web service project by the end ofFY13. This project was initially contracted with Tapestry on 6 March 2012 for the SMS web services; however, the project will not be completed until FY13 due to delays in Distribute.mil. The delays will require the integration of the web services with Distribute.mil in FY13. This project will require an additional funding for SMS in FY 13 because the initial plan intended for Distribute.mil to create the user interface for the web services. TCJ6, as the project manager for Distribute.mil, does not have the ability to perform the creation of the SMS user interface for the web services project. Therefore, this work must be accomplished by the SMS contractor for the project to be successful. Additionally, by extending the period of performance of the SMS web services project, the SMS contractor will be able to deliver an additional six (6) of the previously identified web services. During negotiations, the original14 web services were prioritized and decreased to the eight (8) that are currently on contract.

Although, there was a need for the remaining six (6) web services, it was unrealistic to accomplish these during the current POP ending 30 Sep 12. Time was the limiting factor.

These six (6) web services were vetted through the formal Configuration Control Board (CCB) process and approved by the PM.

• In addition to the two SMS projects (IC3 and web services) mentioned above, CMS will be increasing its sustainment workload by two (2) additional releases (one(!) planned and one(!) emergency) in FY13. Currently the SMS/CMS contract allows for one(!)

planned release and one (I) emergency release for CMS. This increase will result in a total of two (2) planned releases and two (2) emergency releases. Interest from the COCOMs and foreign users has increased since 20 I 0 when the contract was awarded and the requirements for CMS to meet its customer's needs have more than doubled.

Additionally, in FY!2 CMS completed a RDT &E project for authenticating the users of the Humanitarian Expeditionary Logistics Program (HELP) which included a major modification to the Coalition Theater Logistics Portal (CTL) which is part of CMS. The CTL was initially provided to the CMS contractor as GFE and the contractor was only to provide sustainment of the code to support CMS. With the addition of HELP utilizing the CTL and the modification of the CTL, the sustainment of the CTL code requires more effort than initially estimated. The contractor has identified numerous errors within the CTL that need to be resolved for security and overall code quality. The additional release hours in FY13 will be primarily dedicated to fixing the CTL errors and maintaining the CTL code.

Tapestry Solutions, Inc. was the original contractor performing the work under the current contract and has been the sole developer and sustainment provider for the SMS/CMS contract

FOR OFFICIAL USE ONLY

since 1998. It is in the best interest of the Government to have the existing vendor, Tapestry Solutions, Inc, continue this logical follow-on work. Any other contractor will require significant ramp-up time before they would become effective. The total estimated time and cost impact for transition time is and approximately

The estimate for the certification of a new network consists of direct contract cost for standing up the network and maintaining the current operational network while the new network is configured. In FYI!, the process of configuring the network and obtaining certification took 11 months. The Government believes that this process can be re-accomplished in 6 months if necessary. Additionally, indirect Government cost for engineering support and security engineering support for ensuring the network is configured correctly and to prepare the documentation for the certification process is figured into the estimate above. The Government cost for DIACAP certification of the network is not included in this estimate. The labor rates used in the estimate above are expected escalated rates from current contract support.

Once the lTV alignments, IC3 transfer, and web services work is complete, the system will be in a stable configuration suitable for solicitation of a full and open competition to sustain both CMS and SMS to begin 30 Sep 2013 and 1 Oct 2013 respectively.

The total estimated value of this 12 month acquisition is based on the Independent Government Cost Estimate. The period of performance for the contract modification is option period three, 30 September 2012-29 September 2013 for CMS and 1 October 2012- 30 September 2013 for SMS.

4. AUTHORITY PERMITTING LIMITED SOURCE CONSIDERATION.

FAR 8.405-6(a)(l )(i)(C) Logical Follow-On to an Original Federal Supply Schedule Order.

5. DEMONSTRATION OF THE PROPOSED CONTRACTOR'S UNIOUE

QUALIFICATIONS TO PROVIDE THE REQUIRED SUPPLY OR SERVICE.

The current SMS/CMS contract expires 29 September 2012 for CMS and 30 September 2012 for SMS, and the need for a follow-on contract to HTC711-10-F-D023 has been identified. TCAQ developed an acquisition plan with an anticipated contract start date of 30 September 2012 for CMS and I October 2012 for SMS. However an additionall2 month period of performance to the current contract will allow Tapestry to complete the TCCC mandated lTV requirements and other critical requirements as described in Section 3 above.

This additional period of performance is required due to the USTRANSCOM Commander's mandate to consolidate distribution-related lTV specific systems by 30 September 2013. The unexpected severity of the economic impacts of the budget cuts on USTRANSCOM have forced the Government to review the most effective and efficient use of lTV systems assets. This created an accelerated timetable to combine all USTRANSCOM lTV efforts, including SMS. In order to accomplish the required lTV consolidation efforts, the Government requires additional time to develop and finalize the requirement. The definition of the requirements is critical to ensure there are no redundancies in services between tasks for USTRANSCOM. The Government requires the continued expertise and knowledge inherent to Tapestry team, as the program developers, to support the consolidation effort. Without Tapestry's support, the lTV systems consolidation for SMS would incur significant risk to meeting the timeframe for the consolidation as directed by TCCC. A new contractor would not have the history, knowledge, or expertise to support the transition of IC3 into SMS and complete the SMS I Distribute.mil web services project. A competitive acquisition for these SMS/CMS support services will be pursued for FY14 for the additional phases of the lTV consolidation effort. Ifthis effort was issued competitively, it is unlikely a new contractor would expend resources to bid on a requirement that is anticipated to end after one year of performance. A new contractor is less likely to assume the challenges associated with the lTV systems consolidation without an intimate history and knowledge of the SMS system.

6. DETERMINATION BY THE CONTRACTING OFFICER THAT ANTICIPATED

COST TO THE GOVERNMENT WILL BE FAIR AND REASONABLE.

Comparison of Tapestry Solutions, Inc.'s proposed labor rates with published rates in other GSA IT schedule contracts yields a determination that these rates are fair and reasonable by GSA standards. Further, the USTRANSCOMITCAQ technical team will perform a review oflabor hours and skill mixes proposed to determine it is realistic and reasonable to support the effort.

Based on this information and in accordance with FAR 8.404( d), the proposed sole source contract represents the best value to the Government.

7. DESCRIPTION OF THE MARKET RESEARCH CONDUCTED, AND THE

RESULTS, OR A STATEMENT OF THE REASON MARKET RESEARCH WAS NOT

CONDUCTED.

No market research was conducted for this acquisition as it was determined that while other companies may be interested in this requirement, bringing in anyone other than the incumbent will result in duplicative costs to the Government. However, market research was conducted prior to the award of the existing task order. Additionally, market research will be accomplished for this requirement prior to the re-compete ofthe next contract.

8. ANY OTHER FACTS SUPPORTING THE JUSTIFICATION.

NIA.

9. A STATEMENT OF THE ACTIONS. IF ANY. THE AGENCY MAY TAKE TO

REMOVE OR OVERCOME ANY BARRIERS THAT LED TO THE EXCEPTION TO

FAIR OPPORTUNITY BEFORE ANY SUBSEQUENT ACOUISITION FOR THE

SUPPLIES OR SERVICES IS MADE.

The services required under this acquisition were previously acquired under a competitive procurement. During the period of performance of the additional option year, a competitive best value source selection will be conducted to continue service beyond 30 September 2013 if needed.

10. CONTRACTING OFFICER'S CERTIFICATION.

I certify that the data supporting this justification for exception to fair opportunity is accurate and complete to the best of my knowledge and belief.

flVia~ <i?ffi~ROSS

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Contracting Officer

11. TECHNICAL AND REQUIREMENTS PERSONNEL CERTIFICATION.

I certify the data provided above supporting this exception to fair opportunity is accurate and complete to, e best of my knowledge and belief.

I

CONTRACTING ACTIVITY: United States Transportation Command, DPO Support Division, USTRANSCOMffCAQ-D, 508 Scott Drive, Building 1900W, Scott AFB IL 62225-5357

PROGRAM/PROJECT: Single Mobility System (SMS) I Coalition Mobility System (CMS)

AUTHORITY: FAR 8.405-6(a)(l)(i)(C)

ESTIMATED CONTRACT COST:

REVIEW AND APPROVAL:

fvt J. GARTH SANGINITI 7v '-chief, DPO Support Division

1 0 "'kf_ 12-.

DATE

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APPROVED:

I hereby determine the Exception to Fair Opportunity identified in Paragraph 4 above applies to

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DATE

Competition Advocate