IT-24-0133 - ISSA BRIDGE - Exception to Fair Opportunity - Final signed LAA 1-29-24.pdf

JUSTIFICATION FOR AN EXCEPTION TO FAIR OPPORTUNITY

FAR 16.505(b)(2) & CAM 1306.70

Task Order Title: Infrastructure Support Services Acquisition (ISSA) Solicitation Number: 1333-LB-24-ISSA-0001 Contractor: GUIDEHOUSE DIGITAL LLC Period of Performance: April 01, 2024 – November 30, 2025 Place of Performance: United States Census Bureau, Suitland, MD Contracting Officer’s Representative: Rebecca Reid Task Order Type: Firm Fixed Price/Time and Materials Hybrid Task Order

1. Identification of the Agency and the Contracting Activity The Acquisition Division (ACQ) and Computer Services Division (CSvD) of the United States Census Bureau (USCB).

2. Nature and/or Description of the Action Being Approved This is a logical follow-on for an originally competed task order under the National Institute of Health’s (NIH) CIO-SP3 Small Business (SB) Government-wide Acquisition Contract (GWAC). Fair opportunity, as required by FAR 16.505 (b)(1)(i), was given to all NIH CIO SP3 SB contract holders under task area 5 (IT Operations and Maintenance) for the originally competed task order. This action is a noncompetitive acquisition for critical Information Technology (IT) Infrastructure Support Services from Guidehouse Digital, formerly Ace Info Solutions. for the Computer Services Division of the United States Census Bureau.

3. Description of Services In order to sustain and maintain current IT operations, the USCB requires a follow-on task order for contracted services in support of the USCB’s IT server and storage infrastructure and the maturation and improvement of service delivery quality across the agency whilst the agency conducts a competition, issues an award, and transitions critical operational support to the awardee for the next iteration of infrastructure support services. Under this follow-on task order, in addition to continuously supporting the adaptation and implementation of evolving technologies in maintaining a current state-of-the-art data center, the contractor shall conduct day-to-day operations and continuous improvement methods across the following service areas throughout the life of the task order:

• Core Services o Server Infrastructure Management (i.e., Unix, Windows, VMware) o Storage Infrastructure Management o Enterprise Operations Center (EOC) Management o Tier 1 Support Management o Security Compliance Support o Disaster Recovery Planning, Testing and Execution o Installation Management & Inventory Support o Program Management o Special Projects o Back-up and Recovery

• Engineering Services

• Enterprise Infrastructure Integration Planning, Tracking, Support and Reporting

• Decennial Census and Other Projects Surge

Justification for an Exception to Fair Opportunity

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The period of performance of this Logical Follow-On Task Order has a total duration of 20-months which includes a 3-month base period, one 7-month Option Period, one 4-month Option Period, and the Optional 6-month Extension of Services pursuant to FAR Clause 52.217-8. The Periods of Performance are as follows:

Period of Performance Start End Base Period April 01, 2024 June 30, 2024 Option Period 1 July 01, 2024 January 31, 2025 Option Period 2 February 01, 2025 May 31, 2025 Extension per FAR 52.217-8 June 01, 2025 November 30, 2025

The total estimated value of the task order is $69,896,136.66 .

4. Exception and Supporting Rationale

This action is taken pursuant to the authority of FAR 16.505(b)(2)(i)(C). Per FAR 16.505(b)(2)(i)(C), this 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 NIH CIO-SP3 SB GWAC. All awardees on the GWAC were afforded fair opportunity for the initial order.

Guidehouse Digital, LLC (Formerly ‘Ace Info Solutions’) is currently providing critical infrastructure support services under Task Order #YA1323-14-NC-0058. The current task order end date is March 31, 2024. The anticipated award date for the competition of new requirements for the next iteration of infrastructure support services is anticipated for Q3-Q4 of FY24. The need for the issuance of a logical follow-on to Guidehouse Digital, LLC in the interest of economy and efficiency stems from the criticality of the mission-enabling infrastructure and the availability, accessibility, security, and operational impacts to all existing systems and applications and the mitigation of mission, technical, schedule, and cost related risks associated with a lapse in support services or the inadequate and untimely transition of support. Because sustainability, security, and modernization are continuous and fluid efforts, there is a need to issue a logical follow-on task order to ensure the integrity of the underlying hybrid IT infrastructure and modernization progress continues whilst the USCB facilitates the necessary procurement and subsequent transition requirements from the incumbent to the awardee of the next iteration of infrastructure support needs through a competitive acquisition. Given Guidehouse Digital, LLC’s exceptional support and extensive inherent institutional knowledge of the complexities of the current hybrid infrastructure environment, this logical follow-on task order provides an economically sound and efficient means of mitigating risks to the mission by ensuring:

1. Critical on-going infrastructure support continues without interruption or impact – CSvD’s priority is to ensure a stable, highly available, fault-tolerant, and secure computing environment for the USCB’s programs. Several mission enabling Programs rely on the infrastructure including, but not limited to, the Census Operations and Data Ecosystem (CODE), Data Ingest and Collection for the Enterprise (DICE), Enterprise Data Lake (EDL), Frames, Center for Enterprise Dissemination Services and Consumer Innovation (CEDSCI), the Disclosure Avoidance System (DAS), Decennial Census Programs

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Directorate and the 2030 Decennial Census, Economic Directorate (ECON), and Research & Methodology (R&M). The availability of the infrastructure enables these programs to fulfill their mission by providing the foundation for the collection, analysis, and dissemination of the data collected.

The availability, reliability, security, accessibility, and operational soundness of these programs will be at risk if current infrastructure support is not maintained or transitioned efficiently and effectively as the very infrastructure houses the applications, systems, software, servers, data, etc. used in performance of each Program’s objectives and obligations.

To elaborate further, the four programs that comprise the Census Bureau's Business Ecosystem enterprise initiative include DICE, EDL, CEDSCI, and Frames. These four programs provide the systems used by all other Census Bureau programs to collect, process, and analyze and disseminate economic, demographic, and geographic information. These four programs also rely on the IT infrastructure to host the utilized systems. The repercussions of an infrastructure failure resulting from a lapse in operational support include some of the following:

• The USCB conducts over 130 censuses and surveys on an ongoing basis and houses data collected on servers on-prem and in the cloud. Infrastructure support services are a core capability that enable and ensure the availability of the underlying hybrid infrastructure and the accessibility and security of such data. A lapse in service would mean that government officials, businesses, and the public would not have access to the data that is used every day to understand our country and make decisions regarding policy.

• If, as a result of an infrastructure failure, the program does not have access to the applications and systems required for the collection, analysis, and dissemination of data, economic indicators would not be released. Economic Data, such as retail sales, construction spending, and new homes sales, are relied upon by not only the USCB, but other federal agencies as well to assess the economic health of the country and make financially driven decisions. For example, if monthly employment data is not available, the Bureau of Labor Statistics would not be able to furnish the monthly unemployment rate.

• The underlying IT infrastructure supports the day-to-day operations of approximately 4,000 employees throughout the country at the headquarters in Suitland, Maryland, the Bowie Computer Center, six regional offices and the National Processing Center in Jeffersonville, Indiana. Administrative operations would cease as the result of the inaccessibility of the servers supporting employees’ ability to do their work.

• National disasters and emergencies require priority response times in order to quickly address the impacts on the American people. For example, during the most recent pandemic, the USCB was the primary resource for conducting several surveys to help Government officials and the public understand the impacts of the pandemic and inform data-driven policy making. Core operational support will position the USCB to respond quickly in the event of a national disaster or

Solicitation 1333-LB-24-ISSA-0001 emergency over the next several months by ensuring the ongoing integrity and availability of the infrastructure at all times is necessary.

2. Security of data – The USCB utilizes the hybrid computing infrastructure (on-premise and cloud) to meet the demands of its mission-critical programs (e.g., Decennial and Economic censuses and Demographic programs). Critical to fulfilling the agency’s mission is the trust of the American people and their willingness to provide requested information. This is accomplished by ensuring the security of the data they provide to the Bureau. The USCB must maintain an industry leading data security posture.

This security posture is maintained through a constellation of safeguards and security policies. These requirements often create a varying demand cycle on the infrastructure that is hard to predict due to the uncertainty of data collection production cycles. The current task order plays a significant role in this security posture by providing the necessary support for the Enterprise Operations Center (EOC) and Operating System level patching requirements. When potential security vulnerabilities present to the EOC, the current Contractor is responsible for coordinating with the USCB Computer Incident Response Team (CIRT) and the Office of Information Security (OIS) as a first alert step. The Contractor is also responsible for Operating System Level Patching including releasing patches and hotfixes for critical security vulnerabilities. A logical follow-on ensures security operations continue without degradation in the quality of support through transition of services from the incumbent to the awardee. This requires ample time provided by continuing critical support from the incumbent for the collaboration and fluid coordination between the Government, incumbent, and awardee to transition support in a way that will successfully meet such demands whilst ensuring no gaps and vulnerabilities to malicious attackers.

3. Progress made to date in modernizing the underlying IT infrastructure is realized and continues – In the Report to the President on Federal IT Modernization in 2017 and in accordance with Executive Order 13800, the Administration developed a strategy to accelerate agency adoption of cloud-based solutions: ‘Cloud Smart’. As the result of evolving technological advances and the modern appetite for information, the USCB’s focus as an agency has shifted from simply fielding surveys and censuses, and publishing the results, to combining data science with traditional survey methods, elevating and diversifying data products, and placing data at the center of the approach, by accelerating to secure native cloud services. On Task Order #YA1323-14-NC-0058, Guidehouse Digital LLC is currently providing the necessary support to maintain the USCB’s IT server and storage infrastructure. This includes the required services and support to sustain the current operations and the collaboration required to continue to mature and improve service delivery quality across the USCB through the adaptation and implementation of evolving technologies including secure native cloud services in alignment with Executive Order 13800.

Over the last decade and through efforts initiated via Special Projects on Task Order #YA1323-14-NC- 0058, the USCB has explored the benefits associated with the adoption of Cloud in support of critical infrastructure functions that enable the USCB to achieve its very mission via the USCB’s Secure Cloud Team. These efforts have involved:

• Defining Cloud and evolving the USCB’s understanding of cloud services and the Cloud Service Provider (CSP) marketplace.

• Exploring the utilization of cloud resources to meet security and privacy requirements.

• Analyzing the benefits of cloud.

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• Developing strategies for how to leverage “Cloud”, defining what models USCB would use (public, private, hybrid, etc.), developing deployment strategies for key systems, and managing that deployment.

• Defining the Cloud architecture solutions and for the next generation topology.

• Assessing the correct implementation of cloud resources for the USCB.

• Establishing foundational standards for computing capabilities, processes, and roadmaps focused on the integrated planning and control of the on-prem migration to the cloud.

• Establishing enterprise technical processes for cloud migration and for decommissioning applications from on-premise once they migrate to the cloud.

Through these efforts, the USCB has made great strides in accelerating to the Cloud. Important foundational components and processes have now been put in place to make it easier for systems and applications to be migrated to the Cloud. Great success has been recognized in support of Census Programs, including Decennial, Research & Methodology, Cybersecurity, and Privacy. Through such efforts, the USCB has found that the adoption of cloud technologies and secure native cloud services provide the technical infrastructure and associated services to advance cutting-edge linking of survey, census, and third-party data; modernize data processing; support quality product creation; and promote innovative dissemination to the public. Such technical evolution and advancements over the last decade have had significant impact on the underlying IT infrastructure of the agency. To that end, modernization is not a commitment that is sustained solely by interventions once every decade. Rather, modernization is a constant state of change and part of the day-to-day business of IT at every agency.

Suitably, the USCB has embarked on the Census Acceleration to Secure Cloud (CASC) initiative with the objective of modernizing its underlying IT infrastructure, data collection, storage, and processing capabilities at the enterprise level to align with mission needs. This initiative has served as the framework for change with the implementation of a renewed vision to support the USCB’s transformation initiatives through a realistic reexamination and realignment of its core IT functions to maximize its effectiveness using native cloud technologies. The CASC initiative is made up of three pillars:

• Pillar 1: Technical support for the Census on-premises data center with the goal of reducing the on-premises footprint over time using native cloud technologies.

• Pillar 2: Technical capabilities and services for secure cloud services. This includes supporting ongoing applications using Census cloud capabilities and future applications targeting native cloud services.

• Pillar 3: Technical services to assist migration of existing and new applications onto native cloud technologies in a secure and cost-effective manner. This includes migrating existing applications hosted within the Census on-premises data center to cloud technologies and standing up new applications within cloud environments.

In support of this initiative, Guidehouse Digital LLC, under Task Order #YA1323-14-NC-0058, has provided critical contracted support services across all three pillars. Given the CIO’s prioritization of detailed and comprehensive migration planning and a focus on balancing solution sustainability with the incorporation of new capabilities into agency operating environments, the USCB has a need to continue obtaining support from Guidehouse Digital LLC to iteratively improve policies, technical guidance, and business requirements to match these changing needs, drive positive outcomes, and prevent the IT portfolio from becoming obsolete through the modernization of the underlying IT infrastructure utilizing native Cloud technologies. Because modernization is a continuous, iterative, and fluid effort, there is a

Solicitation 1333-LB-24-ISSA-0001 need to issue a logical follow-on task order to ensure progress continues whilst the USCB facilitates the necessary procurement and subsequent transition of support from the incumbent to the awardee of the next iteration of infrastructure support needs through a competitive acquisition.

4. Migration timelines are met – As the result of strides in progress made in modernizing the underlying IT infrastructure as detailed in #3 above, the USCB is currently in the process of migrating critical on premise applications to the cloud. Several surveys and programs within the business ecosystem itself are actively migrating to the cloud. In preparation of the upcoming 2030 Decennial Census, the USCB has identified critical applications that need to be migrated to the cloud as soon as possible and categorized them into migration units. To remain on schedule with early 2030 Decennial Census planning efforts, the program has identified 26 migration units across seven Directorates/Divisions as critical priorities.

The migration of these units must be complete over the next several months. In order to ensure such timelines are met, continued support from the incumbent contractor and adequate transition planning and coordination are critical. In addition to 2030 Decennial Census planning and migration efforts, the Data Ingest and Collection for the Enterprise (DICE) is currently in the process of integrating a number of IT systems. Any delay in a single system’s ability to meet integration and testing milestones puts production readiness at risk. Thus, any delay in migration as the result of a lapse in necessary infrastructure support will not only result in schedule delays, but the possibility of migrating defects through each environment and ultimately production. This makes incoming contractor readiness a priority as the impact of poor transition can trickle into costly future risks.

Relationship Between the Initial Order (#YA1323-14-NC-0058) and the Logical Follow-On:

In accordance with FAR 16.505(b)(2)(ii)(B)(4), the rationale under the logical follow-on exception includes a description of why the relationship between the initial order and the follow-on is logical in terms of scope, period of performance, or value as follows:

A. Scope: As required under Task Order YA1323-14-NC-0058, the USCB seeks to acquire support from the incumbent contractor in the achievement of the following objectives under this follow-on task order:

• Create an environment that leverages the expertise and creativity of industry to promote innovative approaches to data center operations.

• Meet USCB business needs for highly available, reliable, scalable and secure data center services.

• Guarantee continuous system availability through Service Level Agreements (SLA) and Key Performance Indicators (KPI).

• Configure and monitor systems and the Storage Area Network (SAN) to ensure that performance meets customer expectations.

• Leverage industry best practices to achieve optimum performance.

• Support and enhance standard operating procedures (SOPs) across the service delivery model.

• Recommend innovative process efficiencies that reduce operational costs and improve service quality.

• Optimize server, storage and power utilization across the ADITCIO infrastructure.

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• Leverage resources across the organization to support Tier 3.

• Prepare and structure service Information Technology Service Management (ITSM) models to support future initiatives and operations.

• Provide infrastructure patch management.

Under this follow-on task order, the scope of the requirements remain unchanged. As is required under the current task order, an emphasis will continue to be placed on the importance of knowledge transfer, information sharing, and transition support between contracted support providers.

B. Period of Performance: The period of performance reflects a logical relationship between the initial order and this follow-on as it aligns with the USCB’s needs for (1) ensuring operational soundness and security, (2) continued progress in maturing the underlying IT infrastructure, and (3) the thorough collaboration and knowledge transfer and the transition of support from the incumbent contractor to the awardee of the new procurement. The start date of this follow-on task order is the date after the current task order ends and takes into consideration any risk of potential impacts on the procurement timeline of the competitive acquisition (i.e. risk of protest) and the logical transition of support by ensuring continued support from the incumbent contractor for 20-months in the event of a potential protest, a lapse in funding/Government Shutdown, delays in onboarding, or a need for additional transition time and support.

C. Value: The estimated value of this follow-on task order aligns with the historical burn under the current task order over the last three years and takes into account the projected burn to maintain current operational soundness throughout the transition of services from the incumbent contractor to the awardee.

Given the justification provided and in the interest of economy and efficiency, it is in the best interest of the Government to issue a logical follow-on pursuant to FAR 16.505(b)(2)(i)(C).

5. Fair and Reasonable Cost to the Government

The proposed price for this task order will be evaluated and a fair and reasonable determination will be made by the Contracting Officer based on (1) a comparison of proposed prices to posted rates on GuideHouse Digital LLC’s master NIH CIO-SP3 SB contract, (2) a comparison between proposed price and the Independent Government Cost Estimate (IGCE), and (3) a comparison of proposed price to historical prices paid under task order #YA1323-14-NC-0058. The Government will request additional discounts from the contractor in the price proposal prior to issuing a task order.

6. Other Facts Supporting the Justification

When migrating from on-premises to a new hosting environment, there are up-front costs associated with assessing the current-state, planning for migration, getting stakeholder buy-in, running parallel systems in both environments, vendor management, training and reskilling, and refactoring and replatforming existing applications, if necessary. It is expected that the USCB will experience a

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“migration bubble” caused by the increased up-front cost of running current-state and future-state systems in parallel and across separate contracts by different contractors during the transition of support.

As we approach a season of political uncertainty, considerations need to be made in light of fiscal and budgetary constraints and the impacts those factors have on the transition of mission critical support across fiscal years and between contractors. The logical follow-on provides the agency with the needed time to efficiently coordinate the transition of services and allocation of appropriated funds in a manner that would prevent a lapse in funds and support in the face of current funding constraints and political uncertainties.

7. Action to Remove or Overcome Barriers to Competition This follow-on task order is to provide support for maintaining and sustaining the current IT infrastructure whilst the USCB competes, issues, and transitions support to the awardee of the procurement for the next iteration of infrastructure support under the CASC initiative. The contracting officer has taken into consideration FAR Subpart 11.402 - Factors to consider in establishing schedules.

Essential to removing or overcoming barriers to competition include taking the necessary measures to ensure procurement schedules are not unnecessarily restrictive, short, or difficult to attain for the both the Government and the vendor community, specifically small business concerns. Whilst meeting the immediate needs of the agency, the issuance of this follow-on will provide for a more realistic and favorable procurement schedule which will ultimately enhance competition of the new requirements and small business participation and allow ample time for interested contractors to comply with any conditions precedent to contract performance. This approach is consistent with the actions listed in FAR Part 19.202-1 - Encouraging Small Business Participation in Acquisitions as it ensures that delivery schedules are established on a realistic basis that will encourage small business participation to the extent consistent with the actual requirements of the Government.

Under this follow-on task order, Guidehouse Digital LLC will be encouraged to continue and potentially expand upon its current subcontracting efforts with small business concerns further removing barriers of competition by promoting subcontracting of work to the maximum extent.

8. Technical Certification I certify that the data and information forming the basis for this justification that are the responsibility of the technical or requirements personnel are accurate and complete.

Theresa Toole Technical/Program/Project Manager U.S. Census Bureau

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9. Certification from the Contracting Officer

As Contracting Officer, I hereby certify that the justification is accurate and complete to the best of my knowledge and belief.

Kristina Hartman Contracting Officer

10. Approval Based on the above justification, I hereby approve award of the subject task order action in the interest of economy and efficiency pursuant to FAR 16.505(b)(2)(i)(C).

Leslie Andrecs Competition Advocate

Christopher Henshaw Chief – Acquisition Division Senior Bureau Procurement Official (BPO)