ID05150114_Limited_Source_Justification_2015-07-24_eg_gf_mm_signed.pdf

Limited Source Justification Task Order: ID05150114

Under Multiple Award Contract Alliant when fair opportunity is not provided IAW far 16.505(b)/DFARS 216.505-70

FOR THE PURCHASE OF

eFINANCE, LeaveWeb, and FMSuite Financial Management Support

ITSS SOLICITATION NUMBER: ID05150114

A procurement by the U.S. General Services Administration

On behalf of The U.S. Air Force, SAF/FMF (AFFSO) Wright Patterson Air Force Base, Ohio

This requirement is being fulfilled through a Task Order Under the Alliant Government Wide Acquisition Contract (GWAC) NAICS 541512 – Computer Systems Design Services

Product Service Code D307 – Automated Information Systems Services

1. Agency and Contracting Activity

Requiring Agency: Secretary of the Air Force, Deputy Assistant Secretary for Financial Operations, Office of the Assistant Secretary for Financial Management and Comptroller, Air Force Financial Systems Operation, SAF/FMF (AFFSO)

Wright Patterson Air Force Base, Ohio

Contracting Activity: General Services Administration, Region 5 Federal Acquisition Service Acquisition Operations Division 230 South Dearborn Room 3800 Chicago, IL 60604

2. Nature and/or Description of the Action Being Approved The requiring agency is managing AF-wide programs for the Office of the Assistant Secretary for Financial Management and Comptroller. The Air Force Financial Systems Operations (AFFSO) manages Financial Management systems for the Air Force, specifically eFinance, LeaveWeb and FMSuite under this contract. The Government competitively awarded a supplies and services contract to support these systems, which GSA awarded to TYBRIN Corporation (currently JACOBS), contract GS00Q09BGD0059, Task Order 5TS57120003.

The requiring agency has experienced increased complexity for these programs from system security requirements and technical support of the application. These demands have not changed the original goals but they have required program efficiencies that have been provided under the current contract. The Government intends to leverage these efficiencies with minimal disruption to program operations.

This justification is for a logical follow-on task order to continue the “eFINANCE, LeaveWeb, and FMSuite Financial Management Support” effort using JACOBS. It is proposed that using a Time & Material Task Order under Alliant with a base year and one option year will enable the ongoing programs to achieve its objectives without disruption.

This effort is necessary to maintain support to the Financial Management activities for the Air Force. Award to any other source would result in substantial system re-work and duplication of cost to the Government that is not expected to be recovered through competition. Re-competing this effort would not provide material cost savings and introduce significant schedule and performance risk.

3. Description of the Supplies/Services Required to Meet the Agency’s Need Under the proposed logical follow-on task order the Government will purchase a continuation of the “eFINANCE, LeaveWeb, and FMSuite Financial Management Support” currently furnished by JACOBS, under contract GS00Q09BGD0059, Task Order 5TS57120003. The services to be performed are performance-based.

Specifically, the purpose of this procurement is to obtain contractor support for maintenance, sustainment, enhancement, and integration for the following areas:

• Design, code, unit test, formal test, and implement EFINANCE, LEAVEWEB and FMSUITE requirements.

• Provide software maintenance, enhancement and sustainment support for EFINANCE, LEAVEWEB and FMSUITE.

• Develop train-the-trainer training for EFINANCE, LEAVEWEB and FMSUITE.

• Maintain end user training materials for EFINANCE, LEAVEWEB and

FMSUITE.

• Provide second and third tier Help Desk support for the functional and technical user community.

The estimated cost for this follow-on effort is as follows:

Base Period: 6 August, 2015 through 5 August, 2016 Estimated Cost: $3.459M Option Period 1: 6 August, 2016 through 5 August, 2017 Estimated Cost: $3.399M Total estimated Cost: $6.858M

4. Authority and Rationale for Limiting Sources and a Demonstration of the Contractor’s Unique Qualifications The requiring agency is seeking a logical follow-on to the current GSA Alliant task order being performed by JACOBS, under contract GS00Q09BGD0059, Task Order 5TS57120003. While the Air Force has taken all necessary and reasonable actions to prepare for a timely re-solicitation of the required Financial Management System Support, technical system changes and Air Force contracting implementation of associated task ordering procedures make this request necessary. As a result the Air Force is not in a position to process this procurement action in a timely manner.

There is an ongoing need for contractor support of maintenance, sustainment, enhancement, and integration for eFinance, LeaveWeb and FMSuite Financial Management system support.

The support provided through this contract is essential to the operation of these programs.

Disruption of service to these programs will severely hamper program execution and will be detrimental to program efficiencies and warfighter mission capabilities. Some of the adverse consequences of not having a timely follow-on contract are:

(1) The United States Air Force will be unable to complete the technical refresh of the eFinance application without incurring duplicate costs. The original vendor did not provide current source code leaving any changes to code impossible to achieve. The technical refresh began June 2015 and is expected for release to the government in May 2016. Additional time will be needed to deploy, provide training if requested, and ensure the environment is stable.

(2) The eFinance application relies on Microsoft software approaching end of life. If the eFinance technical refresh is not completed and migrated off the end of life software, the system will be removed from the Air Force network forcing all eFinance transactions to be done manually. The Air Force is not currently staffed to absorb the manual workload, the Air Force would incur substantial costs for the Finance offices to process the documents manually.

(3) JACOBS retains one of the original developers of the FMSuite application. Two modules are currently still in the legacy format. The expertise of the Jacobs development team allows for continuing maintenance of these modules when needed.

With limited documentation and a plan to migrate out of the legacy server environment within 18 months, losing the JACOBS expertise at this point would directly impact the cost and schedule of the migration and potentially disrupts current services provided to the Air Force.

(4) JACOBS provides distinctive experience with the LeaveWeb application, being the developer of the current application which processes Air Force leave requests through the Defense Joint Military Pay System (DJMS). There is currently a 60-90 wait period to obtain DJMS access. Failure of this system to process Air Force leave requests electronically will require them to be processed manually at a significant increase in processing time. Currently there are 428,000 users and over 2.5 million leave transactions processed per year. Manual processing would place an un-manageable labor and cost burden on the Air Force Finance offices. The Air Force is preparing to transition from the LeaveWeb system to the Air Force Integrated Personnel and Pay System (AFIPPS). Loosing JACOBS’ historical knowledge during this transition period would cause major disruption in the Air Force community.

(5) Much of the hardware is scheduled for refresh in FY16/17. The knowledge and unique application experience of the Jacobs staff ensures a seamless transition. This increases the system reliability and substantially reduces the risk of security control vulnerabilities resulting from outdated equipment.

(6) The FMSuite program is scheduled to deploy an interface requirement with Defense Enterprise Accounting and Management System (DEAMS). This project will integrate the existing capability in the legacy environment with DEAMS and requires the skillset of the current staff to complete on schedule and on budget. Any lapse in service or change in staff will impact both cost and schedule of the DEAMS Project.

JACOBS has assembled a uniquely qualified and experienced team of business and technical analysts, subject matter experts, and program manager with detailed operational know-how to support all the above programs. This team has provided outstanding support as evidenced by their Exceptional CPARS ratings. It is highly unlikely such a team can be reconstituted in a timely manner without a follow-on contract. The loss of this support capability will severely impact the execution of these programs that currently support over 440,000 users across the Air Force. Poor execution of these programs will be costly to the taxpayer and detrimental to the War Fighter.

In the interest of economy and efficiency, this request should be considered a logical follow-on to the active task order referenced above, which has already been issued under the indicated contract. The rationale for this follow-on request is both logical and sound because in terms of scope, period of performance, and value this request is virtually identical to that currently being performed by JACOBS as prime contractor.

This acquisition is being conducted under the authority of a multiple-award, indefinite-delivery, indefinite-quantity contract in compliance with Section 803 of the National Defense Authorization Act of 2002 (PL 107-107) FAR 16.505(b) (1) and FAR 16.505(b)(2) and DFARS 216.505-70(b)

This Justification is prepared in compliance with The Federal Acquisition Regulation (FAR), Subpart 16.505(b)(2)(i)(C) which authorizes the limiting of sources when “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.”

The contents of this justification are prescribed in FAR 16.505(b)(2)(i)(C).

In accordance with FAR 16.505(a)(1), orders under indefinite-delivery contracts do not have to be synopsized. Paragraph V, above, justifies why competition among all awardees is not possible for this acquisition.

This justification requires the approval of the Competition Advocate, Federal Acquisition Service, GSA Region 5, as prescribed in FAR 16.505(b)(2)(ii)(C)(2).

DISCUSSION

FAR 16,505(b)(2)(ii)(B) requires an ordering activity to justify its actions when restricting consideration of GWAC contractors to fewer than required in FAR 16.505(b). In addition, DFARS 216/505-70 (b) requires that all orders exceeding $100,000 be placed on a competitive basis (by providing a fair notice of the intent to make the purchase) unless a written determination is justified and approved. The specific circumstance that justifies restriction for this acquisition is FAR 16.505(b)(2)(i)(C) “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.” In this case the original Alliant order was competed in accordance with the Alliant Ordering Guidelines, as described below.

The original order was not issued under a sole source or limited source procedures. The original order was competed under Alliant GWAC in response to the ITSS Solicitation Number:

5TS57120003. The solicitation received 4 quotes from the following GWAC holder vendors:

TYBRIN/JACOBS, ManTech Mission, Cyber & Technology Solutions, Inc., Computer Science Corporation, and Dynamics Research Corporation. An award was made to TYBRIN Corporation (subsequently changed to JACOBS) based on a determination that this vendor offered the best value to the Government. The TYBRIN contract number is GS00Q09BGD0059, awarded on 5 February, 2012. The period of performance of the original task order was one base year and two one-year option periods.

This effort is for the logical follow-on of work contemplated under the original task order, but which needs added duration due to current work requested by the Government. The Government proposes to continue using the original contractor for this effort to provide needed continuity. Additionally, the Government wishes to retain JACOBS’s demonstrated capability and expertise with the operational systems for the supported program offices. JACOBS received an “Exceptional” CPARS rating for each assessed period on the current contract. A need exists for the continuous performance of these services without disruption or loss of efficiencies. This logical follow-on contract will have one twelve (12) month base period and one twelve (12) month option period, which will allow for continuity of services and eliminate the risk that would result from disrupted services at this critical point in several of the supported activities.

JACOBS has several years of detailed working knowledge of and experience analyzing industrial base challenges. The company has technical and functional experts in various critical technologies of interest to the department. They also have extensive knowledge needed to assist the Government in IT support for the warfighter. This level of expertise cannot be easily or economically duplicated. Changing contractors for the follow-on period introduces significant program disruption risk on several high priority investments and is not a viable alternative.

5. Determination by the Ordering Activity Contracting Officer that the Order Represents the Best Value Consistent with FAR 16.505(b)(5):

The original task order was solicited on a competitive basis and the original prices are considered fair and reasonable as a result of adequate competition. GSA will negotiate rates for the new task order that are consistent with the original TYBRIN/JACOBS best value pricing.

Procuring new services would be timely and more expensive. The Contracting Officer hereby determines that this action represents the best value to the Government in accordance with FAR 16.505(b)(5) in that it would not be more advantageous to procure these services any other way.

6. Description of the Market Research Conducted among the Schedule Holders and the Results or a Statement of the Reason Market Research was not Conducted.

The work to be performed under this follow-on task order was originally part of the previously competed and negotiated effort. Extensive market research was completed in support of the initial competitive source selection that chose TYBRIN Corporation as the Government support contractor. No additional market research has been conducted for this follow-one task order which continues the original effort, other than to verify that the prices are still considered to be fair and reasonable.

7. Other Facts Supporting the Justification The Government believes that award to any other source would result in an unacceptable delay as well as duplication of costs. Additionally, many of the supported program offices are at critical points on multiple ongoing projects and technology support. Program resources, government and contractor partner alike, are immersed in executing the many tasks needed to assure individual project success. Some of the projects are of high priority to the department and the administration. Introducing a new contractor and performing contract transition at this time would cause undue distraction with no realistic return on the investment of time and resources.

8. Actions the Agency may take to Remove or Overcome any Barriers to Competition before any Subsequent Acquisition for the Supplies or Services The requiring agency took all necessary and reasonable actions to prepare for a timely re-solicitation of the required eFINANCE, LeaveWeb, and FMSuite Financial Management Support. However, process procedures and personnel changes and associated difficulties experienced by the Base Contracting and AFDW Contracting office, which are responsible for supporting this acquisition, had direct impact on the timely development and implementation of this acquisition. Current procurement processing time by these Air Force procurement offices is estimated to be approximately two years thus making this request necessary.

After award of the requested logical follow-on contract, the requiring agency will continue to pursue a competitive procurement with the Air Force procurement office, with an anticipated award of a competitive procurement within the current two year lead time projection. An acceptable procurement strategy will be developed to comply with competitive acquisition requirements.

9. Contracting Officer’s Certification The contracting officer’s signature on the signature page evidences that he/she has determined this document to be both accurate and complete to the best of his/her knowledge and belief.

Eben Greybourne 24 July, 2015 Eben Greybourne Date Supervisory, Contracting Officer

GSA, FAS, AOD, 5QZA

10. Technical Personnel Certification The technical personnel’s signature on the signature page evidences that he/she has determined this document to be both accurate and complete to the best of his/her knowledge and belief.

Gregory Fecher Date Program Manager Air Force Financial Systems Operations

SAF/FMF (AFFSO)

Concurrence required by FAR 16.505(b)(2)(ii)(C)(2)

CONCURRENCE:

Micky Mayes Date Director, Acquisition Operations Division

GSA, FAS 5QZA

(Competition Advocate)

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