ID03200027_-_J35_Orion_LSJ_5-29-2020 REDACTED.pdf

ITSS Order ID: ID03200027

GSA, FAS Mid-Atlantic Region

29 May 2020

LIMITED-SOURCES JUSTIFICATION

FOR

Joint Planning and Execution Community (JPEC) and the Joint Staff (JS) J3, JS J35SOUTH (J35S)

ORION Decision Support Platform (DSP)

Note: This document is prepared in accordance with the requirements of FAR 8.405-6(c). The acquisition is conducted under the authority of the Multiple-Award Schedule Program.

1. Identification of Requiring Activity and Contracting Activity (c)(2)(i):

The requiring activity is the Joint Planning and Execution Community (JPEC) and the Joint Staff (JS)

J3, JS J35S located at Norfolk, Virginia. The contracting activity is the General Services

Administration (GSA) Federal Acquisition Service (FAS), Mid-Atlantic Region - Philadelphia, PA.

This document is hereby identified as a Limited-Sources Justification.

2. Nature and/or Description of Action Being Approved (c)(2)(ii):

The proposed action is for a new sole source, Firm-Fixed-Price (FFP) and Time and Materials (T&M) type task order to ProModel Corporation (ProModel) utilizing their GSA Professional Services

Schedule contract (GS-00F-421GA) for custom analytical synchronization tools and services via the

ORION Decision Support Platform (DSP) which is used by the Joint Staff in support of critical Global

Force Management Data Initiative (GFM DI) milestones and Joint Operations Directorate Course of

Action (COA) analysis.

The period of performance is for a 12 month 1 September 2020 through 31 August 2021.

3. Description of Supplies/Services Required To Meet the Agency's Needs (c)(2)(iii):

The requirements for this action are necessary for the sustainment and enhancement of the ORION

DSP and support applications. ORION is a technology-enabled decision support platform that consolidates authoritative data from each of the services, provides global visualization of the forces and munitions, and allows Course of Action (COA) experimentation in order for users to provide validated best military advice to senior-level decision makers.

The Joint Staff J35S, on behalf of the Joint Planning and Execution Community (JPEC) and the Joint

Staff J3, is tasked to operationalize the Global Force Management Data Initiative (GFM DI) as chartered through a family of Joint Requirements Oversight Councils (JROCMs) and as specified in the GFM DI Allocation Next Steps Implementation Plan, the Allocation Capability Development

Document (CDD), and the Enterprise Force Structure (EFS) Capability Package (CP). In 2016, the J35S developed a phased and incremental approach to expedite the delivery of critical Information

Technology (IT) capabilities to the warfighter, decision-makers, and Joint Planning and Execution

Community (JPEC) supporting Global Force Management (GFM) within Adaptive Planning and

Execution (APEX) through Project ORION. Project ORION embodies the innovative techniques associated with implementing the Department of Defense (DoD)-wide GFM DI data standard and has been identified by the Joint Staff Leadership as the basis for supporting Readiness Review

Decisions.

ITSS Order ID: 47QFMA20S0007

The ORION DSP and component elements have been designated a Warfighting Mission Area system by the Joint Staff J3 and approved by the JROC through multiple JROCMs (JROCM 032-11, JROCM

111-14) and policy documents (GFM DI Allocation CDD, Enterprise Force Structure CP, and GFM DI

Joint Allocation Implementation Plan). In order for ORION DSP to stay compliant with the Vice

Chairman of the Joint Chiefs of Staff (VCJCS) mandated GFM DI initiatives and assist senior leaders and warfighters to make timely force management decisions in a resource-constrained environment, J35S requires ORION DSP to support the following mission-critical objectives;

Readiness Reviews, Global Force Visibility Capability, Crisis Action Planning, Contingency Sourcing analysis, Globally Integrated Planning (GIE) and Dynamic Force Employment risk assessments.

ORION DSP currently provides the following capabilities:

· Mandated platform to facilitate Course of Action Assessments (through the Readiness

Review process), enable Global Visibility Capability, and provide Dynamic Force Visibility to assess implementation of the National Defense Strategy.

· Aggregates all Service GFM data for actionable COA analysis and action.

· Provides contingency sourcing and risk assessment capabilities in support of Dynamic Force

Employment.

· Uniquely integrates Enterprise Force Structure Data with Capability, Readiness, Availability, Employment and Munitions Data.

· Provides a Searchable Joint Global Force Capability Catalog in support of automating the complex Joint Planning process.

The sustainment portion of the requirement encompasses the above capabilities in order to maintain current and upcoming versions of ORION DSP, while enhancement entails building new capabilities to provide more integrated synchronization across Joint Staff GFM functional areas.

The total estimated value of this requirement is $7,885,631.80.

4. Identification of Statutory Authority and Justification/Rationale for Limiting Sources

Demonstrating the Contractor's Unique Qualifications to Provide the Required Supply/Service

(c)(2)(iv):

This acquisition is being conducted under the authority of the Multiple Award Schedule program.

The statutory authority permitting other than full and open competition is Section 201 of the

Federal Property and Administrative Services Act of 1949 (40 U.S.C. 501), as implemented by FAR

8.405-6.

The authority for this action is FAR 8.405-6(a)(1)(i)(B) – Only one source is capable of providing the supplies or services required at the level of quality required because the supplies or services are unique or highly specialized.

The design and development of ORION DSP is based on the Army’s Force Generation system of record ARFORGEN Synchronization Tool (AST), which was developed and sustained for over 10 years solely by ProModel.

The initial ORION DSP (Formally called Joint Force Capabilities Catalog/Global Laydown Server

(JFCC/GLS)) development efforts were completed exclusively by ProModel in 2017 as a subcontractor to Science Applications International Corporation (SAIC) under the GSA OASIS

Battlefield Systems Engineering Services (BSES) contract. The ORION DSP, in conjunction with AST, was hosted at United States Army Forces Command (FORSCOM) on the Ft Bragg Data Center SIPR hosting hardware. In 2017-2018, J35S conducted an Analysis of Alternatives (AoA), the AoA results lead to a shift in the ORION DSP hosting location from FORSCOM to an ORION DSP specific hosting environment at Redstone Army Arsenal. In order to accelerate the transition of the ProModel-developed ORION DSP software to the Redstone Data Center, J35S leveraged the existing BSES task order and SAIC to support the procurement, configuration and integration of hardware as an independent effort from ORION DSP software development. In order to maintain clear lines of responsibility, accountability and to ensure that ORION DSP software development continues uninterrupted independent of the DoD’s decisions on data centers and potential migration to the cloud, J35S requires the software development and sustainment be contracted independently from all current and future hosting efforts.

In early 2018, the Joint Chiefs of Staff, in collaboration with the Defense Innovative Unit (DIU), conducted a study of technology platforms within the Defense Department that could enable Global

Force Visibility to support Dynamic Force Employment. In the course of that study, DIU learned of the JFCC/GLS and engaged the Joint Staff (J-3) to conduct an analysis. DIU visited the Joint Staff J35S in Norfolk and met with the program management team as well as the software development team.

Through a series of technical discussions and question and answer sessions, DIU assessed that

ProModel was following and advancing industry (commercial) best practices for Agile development, minimal viable products, and DevSecOps. DIU asserted the same to the Joint Staff and within weeks, the Joint Staff Director of Operations (J-3/DJ3), Joint Staff Special Operations (J-3/DDRO), DIU, and ProModel briefed the Chairman of the Joint Chiefs of Staff (CJCS), the Director, and all of the Joint Staff directorate leads. DIU asserted that the CJCS should embrace the JFCC/GLS (later rebranded ORION DSP) and leverage ProModel to lead the engineering, design, development, and delivery of this decision support platform.

The ORION DSP must operate on classified DoD networks (SIPRNET) in compliance with existing

Authority to Operate (ATO) and other Risk Management Framework (RMF) directives. The time it would take a new Contractor to comply with the existing ATO and other RMF directives could delay

J35S ability to support the warfighter and introduce security vulnerabilities associated with information assurance and cyber security. For example, it took ProModel approximately 9 months to secure the ATO even with ProModel’s 10 plus years of specialized experience and expertise in the design and development of the Army’s Force Generation AST which ORION DSP would be based upon. The RMF directives, detailed in NIST Special Publication 800-37, is a complex time consuming process which could take over a year or more to complete. ProModel offers subject matter expertise

(i.e. Information Assurance professional, qualified Security + credentials), as well as multiple programs supporting current RMF processes, resulting in immediate support of the warfighter and lowering the risk for meeting the required standards and ensuring continuity of operations. In addition, ProModel’s extensive experience with the software applications, architecture, data layers, and configuration enables continuous compliance with the ATO and other RMF directives.

Furthermore, delays could result in the following:

· Failure of a quarterly Verification and Validation Audit o 6-week delay in software delivery and instantiation (>$400K)

· ATO revocation - Upon contract award and the associated introduction of a new vendor, the

Accreditation Agent/Officer will conduct an Independent Verification and Validation of cyber security and information assurance process controls, enabling technology, and

Application Security Directives implementation guidelines. In the event the vendor cannot maintain the security controls associated with s/w development (lack of familiarity with the source code or deficiencies associated with IAVMs), the AO could revoke the ATO and suspend user access.

o 6-month to 12-month suspension of development, support, and accreditation activity begins anew ($3-$6MIL)

· Non-government owned licensing costs (>$250K) (For example HP Fortify, Identity Server, Red Hat, MS SQL, etc.)

In addition to the above security challenge, the support of ORION is the sustainment and enhancement of this decision support platform, which includes ensuring ORION DSP is compliant with the VCJCS mandated GFM DI required to be completed by September 2020 with follow on activities due quarterly. Moreover, J35S has the following planned development tasks and modifications and enhancements to support stakeholder requests and the Joint Planning and

Execution Community (JPEC) requirements in FY21: AI/ML implementation (2ndQtr21), JRICO integration (4thQtr21), Dynamic Risk Dashboard (1stQtr21), and others. As such, timely completion of these requirements is vital in order to satisfy GFM DI mandates which includes the sustainment, uninterrupted evolution, and maturity of the ORION DSP across the Future Years Defense Program

(FYDP). As the JPEC continues to modernize its GFM systems (e.g. Army’s transition to enterprise

GFM system such as GFIM-OE, USAF’s modernization of DCAPES, TRANSCOM’s transition to TMS, Joint Staff modernization of JPES), ORION DSP development must continue to evolve and integrate service and Joint GFM systems without interruption. ProModel has been providing this support since the contract award in 2017, and over that timeframe has deployed more than 50 S/W builds, more than two million lines of code, and grown the user base to more than 500 JPEC members. ProModel retains the necessary subject matter expertise of GFM requirements and has more than 20 years of collective experience developing GFM-specific decision support tools on behalf of the Army, Navy, and the Joint Staff. As such, ProModel is the only contractor capable of providing the required experience, knowledge, and security expertise at the appropriate quality level in order to complete this highly specialized work and meet the VCJCS-directed GFM DI milestones for the remainder of

FY20 and in FY21. Thus, awarding to other than ProModel would lead to unacceptable delays in fulfilling J35S requirement to maintain and enhance these application services.

A new competitive solicitation for ORION DSP would result in significant costs, and unnecessary schedule and technical performance risk. GFM DI potentially would not be achieved by September

2020 due to failure to deliver on GLS architecture, Data Management Console, and JOPES/JCRM integration. ProModel has demonstrated through current architecture design, application integration, and development that they possess the highly specialized support services required to deliver the GLS by September 2020. GLS functionality is not only integral to achieving the Use Cases embodied in GFM DI, it is also the lynchpin to satisfying the Enterprise EFP, the Allocation CDD, and the Next Steps Implementation Plan as it is the aggregation point for authoritative data and the emanation point for outbound data services for Joint, Service, and DoD data consumers to enable

Global Visibility Capability in support of GFM. Directly allocating these tasks to ProModel, who has demonstrated viable software deliveries over the course of 2.5 years, will keep the program on track and ensure functional viability of applications that support GFM DI. Therefore, approval of this LSJ will allow for continuous operation and the additional time needed to assess competition alternatives in the future.

ProModel has provided exceptional support for this effort since 2017 and retaining this contractor is critical to fulfill the J35S mission to meet GFM DI milestones, assist senior leaders and warfighters to make timely force management decisions in a resource-constrained environment through continuous specialized support services of ORION DSP.

5. Determination by the Ordering Activity Contracting Officer that the Order Represents the

Best Value Consistent with FAR 8.404(d):

The assigned GSA PM will complete a technical evaluation on the contractor’s technical submission to ensure that the quoted labor mix and number of hours are acceptable and commensurate with this requirement and that the contractor has adequately responded to all technical requirements.

The assigned GSA Contracting Officer will complete the price evaluation by conducting a price analysis ensuring that there are no math errors or pricing caveats and that quoted labor rates do not exceed the contractor’s current GSA Schedule contract rates.

Quoted labor rates will be verified to ensure that they are reflected in the contractor’s current GSA

Schedule contract. The Government will seek discounts in accordance with FAR 8.405-2. The

GSA/FAS Contracting Officer will determine that the order represents the best value consistent with

FAR 8.404(d).

6. Description of Market Research (c)(2)(vi):

Market Research was conducted in 2018 comparing IPPSA-A, JPES Phase II, and DCAPES Phase II and it was determined that by transitioning the ORION DSP hosting environment to Redstone Army

Arsenal and continuity of vendor support provided continued operations and a cost avoidance over

$7MIL based upon annualized costs for these other programs. In April of 2020, the Joint Staff J-6 conducted a non-partisan analysis of Global Force Management Systems (that included Advana, Army Vantage, and ORION). The Joint Staff J-6’s assessment concluded that ORION DSP costs were significantly lower than comparable systems. Additionally, Joint Staff J-6 concluded that continuity of operations of the ORION DSP system was critical for Joint Staff analytical support. A review of the technical scope of ProModel’s GSA Professional Services Schedule Contract showed that the contractor offers the required services under its GSA Schedule contract number GS-00F-421GA.

Ultimately, ProModel has delivered GFM-centric decision support applications, at a fraction of the annualized costs of similar programs, to the Army (sole sourced vendor of AST for more than 12 years), the Navy (sole sourced vendor of NST for 5 years), and the Joint Staff (developer of the Joint

Force Capabilities Catalog/Global Laydown Server (JFCC/GLS) and ORION) for over 3 years and are uniquely poised to continue ORION DSP support.

7. Other Facts Supporting the Justification (c)(2)(vii):

None.

8. Actions the Agency May Take to Remove or Overcome Any Barriers that Led to the Restricted Consideration prior to Subsequent Acquisition For the Supplies or Services:

The Government will solicit only ProModel Corporation under their GSA Professional Services

Schedule contract (GS-00F-421GA) to enable the fulfillment of this requirement. No other firm can provide the necessary services at requisite level of expertise within the timeframe required;

however, the Government anticipates that the forthcoming J35S ORION requirement will be competed under fair opportunity upon expiration of this 12 month performance period.

Concurrently with this twelve month task order, market research will continue to be conducted on an ongoing basis to monitor alternative solutions including the issuance of a Request for Information

(RFI) to promote industry involvement and feedback.

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