Navy_J&A_Final.pdf

Limited Sources Justification and Approval

1. Identification of the agency and contracting activity, and specific identification of the document as a “Limited Source Justification”.

Customer Agency: Department of Navy, US Fleet Forces Command, US Fleet Cyber Command, Navy Information Operations Command, Navy Cyber Warfare Development Group Contracting Activity: General Services Administration, Federal Acquisition Service, Assisted Acquisition Services Document Identification: Limited Source Justification

2. Nature and Description of the Action Being Approved.

This Limited Source Justification and Approval authorizes and approves the issuance of a firm fixed price task order on a sole source basis to Metron Incorporated. Services are required for installation support, scenario database import, maintenance, help desk and enhancements to the Naval Simulation System/Warfighting Impact of Simulated Decision Makers (NSS/WISDM) software. The period of performance is a one (1) year base period from the date of award with two (2) 1 year option periods.

3. Description of supplies or services required to meet the agency’s needs (including the estimated value).

The Navy Cyber Warfare Development Group is seeking contractor support services to perform installation support, scenario database import, maintenance, help desk and enhancements to the (NSS/WISDM) software. Services to be provided include the following:

1. Provide off-site technical support in accordance with PRS 1 to include:

• Telephone and VTC support for scenario development of NSS/WISDM.

• Advise NCWDG modelers on NSS object properties and underlying models.

• Contractor shall develop, create, and modify NSS object properties/attributes at the request of the government.

2. Upgrade NSS/WISDM to provide sensor contact information to include:

• Upgrade the agent interface to provide sensor contact in addition to fused tracks.

• Deliver NSS/WISDM software and interface message schemas for the upgrade.

• Support installation and scenario import for the upgrade.

3. Upgrade NSS/WISDM to Windows 10 to include:

• Upgrade the NSS/WISDM configuration at NCWDG to run under WINDOWS 10.

• Provide installation support for this NSS/WISDM upgrade and for scenario database (held by

NCWDG) import.

• Deliver and support the installation ensuring the prior work is migrated.

• Develop and deliver NSS/WISDM and supporting data and documentation for WINDOWS

10 operation on magnetic media.

4. Upgrade NSS Plug-in for SOAR version to include:

• Upgrade the NSS/WISDM configuration at NCWDG to incorporate the latest (non-Beta)

Soar version publically available on the Soar website at the time of upgrade.

• Provide installation support for this NSS/WISDM upgrade and for scenario database.

• Deliver and support the installation ensuring the prior work is migrated.

• Develop and deliver NSS/WISDM and supporting data and documentation with the Soar upgrade on magnetic media.

5. Provide on-site technical support to include:

• Participate in two (2) technical exchange meetings at NCWDG (4251 Suitland Rd, Washington, DC 20395)

The Government’s total estimated price for the contractor support is $525,000.00 for the entire period of performance.

4. The authority and supporting rationale (see 8.405-6(a) (1)(i)) and (b)(1)) and if applicable, a demonstration of the proposed contractor’s unique qualifications to provide the requirement supply and service.

This action is taken under the authority of FAR 8.405-6(a)(1)(i)(B), which permits an agency to limit sources when 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.

Metron designed and developed the NSS software. Developed using Small Business Innovation Research (SBIR) funds, Metron retains full ownership and copyright of the NSS software.

Metron continuously releases updates to the software, therefore renewing the SBIR data rights with each new release. They are the only authorized company that has the rights to modify or provide maintenance on the software. Metron does not sell or support the software through any outside distributors or dealers.

Metron has developers that have been working on the design and maintenance of the software since its initial design. Metron has amassed a tremendous amount of institutional knowledge of the NSS software and its required use by the Navy Cyber Warfare Development Group.

Given these rights of ownership and experience, Metron is the only company able to deliver the services necessary to support the requirements of this procurement in the most efficient manner.

For the foregoing reason, a sole source contract is being proposed in order to allow the Navy Cyber Warfare Development Group to upgrade the NSS software.

5. A determination by the ordering activity contracting officer that the order represents the best value consistent with 8.404(d).

GSA has already determined the prices of the supplies and services under Federal Supply Schedule (FSS) contracts, including rates for services offered at fixed hourly rates, to be fair and reasonable at the master contract level. The proposed labor rates will be verified to confirm they http://farsite.hill.af.mil/reghtml/regs/far2afmcfars/fardfars/far/08.htm#P83_12669 do not exceed the Schedule rates. The level of effort and the mix of labor proposed will be evaluated to determine that the total price is reasonable for the effort. The Government will seek additional discounts off of the established fixed hourly rates under the Schedule. The Government is confident a task order to Metron will represent the overall best value.

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.

Market research was conducted on January 9, 2017 by reviewing a variety of contract vehicles.

The GSA team researched GSA GWACs, Non-GSA GWACS and the Federal Supply Schedules.

A review and analysis of these vehicles were performed to determine whether the scope of the vehicle was optimal for the requirement.

The Professional Services Schedule (PSS) 00CORP SIN 871 Professional Engineering Services was determined to be the optimal contract vehicle. The sole source vendor, Metron Incorporated, has an award schedule contract under the PSS 000CORP # GS-00F-166DA, inclusive of the SINs required under the PWS. As our intent is award a sole source task order to Metron Incorporated, it is in the best interest of the government to do so off of the PSS.

Per the GSA Acquisition Alert 2013-03, dated December 12, 2012, the Interagency Contract Directory (ICD) was checked. However, the ICD was given minimal consideration as there is only one vendor that can support this need and the procurement will be conducted as a sole source under the Schedules Program.

In addition to researching potential contract vehicle, the Navy participated in the DOD AT&L Cyber Modeling and Simulation Working Group, MODSIM WORLD, and IR&D to keep abreast of potential Simulation Software alternatives. Multiple frameworks were considered for adaptation prior to determining that the NSS was the best solution. The results are listed below:

• Integrated Threat Analysis and Simulation Environment (ITASE) ITASE is a modular environment use to integrate tactical systems. Kill chain analysis is supported but not for a mission engagement. The cost would be prohibitive to adapt.

• Framework for ADAPT Simulated Testing (FAST) – FAST is a modular framework that is built for integrating component models for vehicular systems. The modularity is elegant and inspired a look to adapt for cyber warfare but upon closer look the parameterization of planned modules is incompatible with our objectives. The cost and schedule would be prohibitive.

• Internally developed Software from FFRDC, UARC and public/private companies – These

Mod/Sim capabilities stipulate that their capabilities are internal only to support their funded studies. These developers have proposed development to meet our needs but the cost will exceed (by orders of magnitude) the cost (acquisition, support and improvement) of NSS.

Currently available products do not meet requirements.

In conclusion, NSS is widely used and supported within the Navy and other organizations and NSS met all the current and future requirements. The competing software did not support the Navy’s current requirements without considerable investment.

7. Any other facts supporting the justification.

None.

8. A statement of the actions, 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.

The commercial market place will be reviewed on an annual basis to determine if there is any new software that can fully support the Navy Cyber Warfare Development Group in a cost effective manner.

9. The ordering activity contracting officer's certification that the justification is accurate and complete to the best of the contracting officer's knowledge and belief.

Based on the foregoing justification, I hereby approve the limited source justification on behalf of the General Service Administration in its pursuit of a sole source task order to Metron, Incorporated for the NSS software upgrades and support.

Daniel Miller Contracting Officer

GSA