J A 0020.pdf

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JUSTIFICATION AND APPROVAL

TO PROCURE USING OTHER THAN FULL AND OPEN COMPETITION

JUSTIFICATION FOR AN EXCEPTION TO FAIR OPPORTUNITY

Justification for OTFAOC Number: JA12-003

Upon the basis of the following justification, I, as Procuring Activity Competition Advocate, hereby approve the use of other than full and open competition of the proposed contractual action pursuant to the authority of 10 U.S.C. §2304c(b)(2)(i)(C). Per FAR 16.505(b)(2)(i)(C), the order must be issued on a sole-source basis in the interest of economy and efficiency as a logical follow-on to an order already issued under the contract when all awardees were given a fair opportunity to be considered for the original order.

JUSTIFICATION

1. REQUIRING AGENCY AND CONTRACTING OFFICE:

Contracting Activity:

Defense Information Systems Agency

Defense Information Technology Contracting Organization, Code PL8313

2300 East Drive, Bldg. 3600, Scott AFB, IL 62225-5406

Requiring Activity:

Defense Information Systems Agency

Network Services Organizational Messaging & National Gateway Technical Support Br

Building 1671

Fort Detrick, Maryland 21702-5002

2. NATURE/DESCRIPTION OF ACTION(S):

This justification is for the award of a sole source task order to provide Defense Message

System (DMS) and National Gateway Center (NGC) Support System Software and Security

Engineering Services. This task order is a logical follow-on task order to ENCORE II HC1028-08-D-

2018 TO 0005. The acquisition will be a base plus one option year task order, funded with

Defense Working Capital Funds (DWCF). Funding for the base year of the task order will be

FY12 funding. This acquisition will be a Cost-Plus-Fixed-Fee (CPFF) task order. This task order will be awarded under the ENCORE II contract.

3. DESCRIPTION OF SUPPLIES/SERVICES:

This task order action provides software life cycle maintenance (LCM) for two DMS NGC support systems—the DMS Asset Distribution System (DADS) and the DMS Tool Suite (DTOOLS) to include DISA Message Trace (DMT), DISA Software Version Tool (DSVT), Message Event

Tool (MET), and DISA Component Monitor Tool (DCMT), and Message Conversion System

Management Workstation (MCS MWS) Tool. Software LCM includes software maintenance, database updates, testing, security compliance engineering, and operational support.

Additionally, this task order provides network administration and security engineering for the

Detrick Technology Development Facilities (TDF) network. The DADS, DTOOLS, and Detrick

TDF network must be maintained at a level which supports the DISA 99.9% availability

Page 2 of 7 Pages management threshold, the DMS Multi-command Required Operational Capability (MROC) messaging capabilities in support of the Warfighter, and security requirements necessary to maintain operational accreditation.

The acquisition will be a base plus one option period task order with a total estimated cost of

$3,047,736.

Base Task Order Year: $1,501,348

Option Year One: $1,546,388

The task order will be funded with Defense Working Capital Funds (DWCF). This acquisition will be a Cost-Plus-Fixed-Fee (CPFF) task order.

4. IDENTIFICATION OF STATUTORY AUTHORITY: 10 U.S.C. §2304c(b)(2)(i)(C)

The order must be issued on a sole source basis in the interest of economy and efficiency as a logical follow-on to a task order already issued under the contract. All twenty-six ENCORE II contractors were previously solicited for the initial award of this requirement. FAR

16.505(b)(2)(i)(C).

5. DEMONSTRATION OF CONTRACTOR’S UNIQUE QUALIFICATIONS:

The contractor, HP Enterprise Services (HPES), is qualified to provide the required mission critical services to the DMS Global System Manager (GSM) based upon unique qualifications and successful past experience. HPES, previously known as Electronic Data Systems (EDS), completed the initial development and has provided all software maintenance for the DADS and

DTOOLS products since their inception. No other contractor has ever provided software maintenance for these critical organizational messaging tools. Additionally, HPES personnel have designed, implemented, and maintained the TDF network backbone architecture and components for the last 15+ years. This network is complex, interconnecting with the NGC operational network. Knowledge of the system architecture and the security requirements necessary to maintain system accreditation is critical to the Detrick NGC Command and Control messaging mission immediately upon contract award. All task order requirements included in this acquisition have been provided under previous DEIS, DEIS II, ENCORE I, and ENCORE II task orders awarded to EDS/HPES.

In accordance with FAR 16.505(b)(2)(i)(C) exceptions to the fair opportunity process, this order will be issued on a sole-source basis in the interest of economy and efficiency as a logical follow-on to a TO already issued under the ENCORE II contract. All prime ENCORE II contractors were solicited in RFP E200045.00—Competitive 02 September 2008. EDS/HPES was the only contractor who submitted a response to this ENCORE II RFP which was awarded as Contract HC1028-08-D-2018 TO 0005 to EDS/HPES.

An award to any other source would result in substantial duplication of cost to the

Government that would not be expected to be recovered through competition. Even though

DADS and DTOOLS are termed support tools/systems, they provide critical logistical and real-time monitoring capabilities to operational Command and Control DMS/NGC communications.

Backbone network support under the task order is critical to both the operational network (due to the interface architecture of the two networks), the Detrick test development facility (TDF), and

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LANs supporting Fort Detrick DISA personnel. There can be no break or degradation in services provided under this acquisition without potential for adverse affects on the Command and Control messaging mission. It is not acceptable to have a period of time when the contractor is unable to complete task order requirements. For another contractor to learn these one-of-a-kind systems and gain the required experience necessary to complete the requirements of this acquisition, it is estimated that simultaneous duplicative task orders would be required for a 12 month period. To award a duplicative one year task order to allow another contractor to learn the

DADS/DTOOLS products and the network architecture/backbone component’s security and configurations, would cost an estimated $1,452,000.00 (6 personnel X $242K per TSY =

$1,452). This additional duplicative cost required to train another contractor in order to increase competition could not be supported in the current environment of reduced program budgets where only essential sustainment tasking can be funded. Additionally, the duplicative costs to transfer expertise to another contractor could not be justified based upon the uncertainty of the future of current organizational messaging systems and the continuing requirement for services provided under this acquisition. There is currently no approved way-ahead for DMS beyond

2012 so it is possible that requirements under this acquisition will not be required beyond this acquisition’s two year timeframe. Given the limited remaining life expectancy for the current operational organizational messaging systems, any potential savings in awarding this tasking to another contractor would not offset the $1,452K investment necessary to transfer the expertise to another party.

The messaging tools and services supported under this acquisition have operational support requirements which must be completed in the Ft. Detrick NGC Sensitive Compartmented

Information Facility (SCIF). The contractor must have a qualified staff with approximately 70% cleared for Top Secret and the Sensitive Compartmented Information (SCI) and collateral accesses required for SCIF access immediately upon task order award. There can be no lapse in on-site NGC tool problem analysis and technical support, so personnel security clearances/accesses are critical qualifying requirements for this acquisition.

6. FAIR and REASONABLE COST.

The proposed costs will be thoroughly analyzed by the DITCO Cost/Price analyst for a fair and reasonable determination. This analysis will include a comparison to the pre-established

FFP rates under the ENCORE II contract and against the contractor’s approved Forward Pricing

Rate Agreements and historical pricing data. Furthermore, the DITCO Cost/Price analyst will review the contractor’s proposal submission to determine if certified cost and pricing data is appropriate and support their review with a DCAA audit if necessary. The contractor will be required to provide statements certifing their cost and pricing data as part of their final proposal revision. The proposed labor categories and labor hours will be analyzed by the order Task

Monitor and technical expert to ensure that they are appropriate this additional effort. After determining the rates and number and type and amount of hours are appropriate, the ―bottom line‖ value will be compared to that of the IGCE and the costs realized under performance of the previous acquisition to ensure they are fair and reasonable. Any costs that are questionable will be addressed in negotiations to ensure that this effort represents best value for the Government

The contracting officer will ensure that the costs are fair and reasonable for this effort.

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7. MARKET RESEARCH.

A Sources Sought Synopsis for this acquisition was posted to FedBizOpps on 24 August

2011, with responses due by 31 August 2011. The RFI was conducted as market research to determine sources with competencies for the requirements/services under this acquisition and to determine if there were two qualified/capable small businesses which would allow a small business set-aside. The solicitation requested all interested parties, to include small businesses, to respond with their technical capabilities and demonstrated experience. HPES provided the only response to Solicitation Number MAC0042. HPES’s response adequately addressed all seven RFI task areas, citing 15+ years experience for tasks which have been in existence that long and demonstrating capabilities by being the original designers/developers/maintainers of the support systems under the acquisition. The HPES response demonstrated that they were very well qualified to complete PWS requirements in all RFI task areas. This OTFAOC is supported by the results of this solicitation—that no other small or large contractor besides HPES responded to this RFI, and that the HPES response demonstrated their qualifications to complete the requirements under this acquisition.

Market research for this acquisition was also completed in-house by DISA Network Services

Organizational Messaging & National Gateway Technical Support Branch throughout the history of this acquisition spanning several contracts. DISA has been responsible for the DMS and NGC messaging requirements since the 1970’s. Specifically, our office has been the COR/TM for all contracts/task orders that have provided DADS LCM, DTOOLS LCM, and administration of the

Detrick TDF. These requirements are unique to our DMS/NGC environment. EDS, now HPES, has been the sole contractor providing support of the requirements under ENCORE task orders.

8. ANY OTHER SUPPORTING FACTS.

None.

9. ACTIONS TAKEN TO REMOVE BARRIERS TO COMPETITION.

Procurement history

The following similar task orders were awarded to EDS (who is now HP Enterprise

Services):

Contract DCA100-94-D-0017-0090 1 Oct 95 – 30 Sep 96 $ 199,026.32

Contract DCA100-94-D-0017-0138 9 Aug 96 – 28 Feb 97 $ 291,964.43

Contract DCA100-96-D-0052-0021 5 Feb 97 – 15 Jun 98 $2,042,982.78

Contract DCA100-96-D-0052-0079 12 May 90 – 30 Nov 99 $1,776,448.03

Contract DCA100-96-D-0052-0123 24 Sep 99 – 10 Jan 01 $1,403,874.95

Contract DCA100-96-D-0052-0164 11 Jan 01 – 30 Apr 03 $3,648,727.08

ENCORE I contracts:

Contract DCA 200-02-D-5007-0008 23 Apr 03 – 31 Aug 04 $1,663,386.95

Contract DCA200-02-D-5007-0014 26 May 04 – 20 Jul 05 $1,987,493.30

Contract HC1013-05-F-2431 21 Jul 05 – 15 Sep 06 $2,115,000.00

Contract DCA200-02-D-5007-0052 16 Sep 06 – 24 Sep 07 $1,993,993.63

Contract DCA200-02-D-5007-0063 25 Sep 07 – 30 Sep 08 $1,742,789.12

ENCORE II contracts:

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Contract HC1028-08-D-2018 TO 0005 1 Oct 08 – 30 Sep 11 $5,802,631.21

The first ENCORE I task order, TO 0008, was competed with a Request for Proposal (RFP) to all ENCORE I prime contractors. EDS was the only company to submit a response. RFP

Letter 00657 was posted August 2006 for ENCORE I TO 0052 and resulted in the receipt of only one response--EDS. ENCORE I TO 0063 was issued on a sole source basis in the interest of economy and efficiency as a logical follow-on to a TO already issued under the ENCORE I contract. An RFP was published for ENCORE II Contract HC1028-08-D-2018 TO 0005 and again, no other contractor besides EDS submitted a response. Although the funding levels have been reduced, the scope of this acquisition is very similar to HC1028-08-D-2018 TO 0005.

This task order period will only be a base year plus one option year due to the lack of an approved way-ahead plan for organizational messaging. The assumed end-of-life for the DMS program is CY12, based on OSD NII direction provided in 2005. This acquisition extends beyond that date as it is recognized that an alternative messaging capability cannot be operationally implemented by the end of CY12. Based upon the uncertainty of the future direction of organizational messaging, there is no planned initiative to increase competition for these requirements which support the current organizational messaging mission.

10. REFERENCE TO THE APPROVED ACQUISITION PLAN (AP) PROGRAM PLAN

(PP). This requirement is below the regulatory thresholds for an AP.

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TECHNICAL CERTIFICATION: I certify that the supporting data under my cognizance which are included in the J&A are accurate and complete to the best of my knowledge and belief.

NAME: _DANIEL J. WHITE_________ SIGNATURE: ____________________________

TITLE: Chief, DISA NS211 Organizational Messaging & DATE____________

National Gateway Technical Support Branch (301) 619-3523

REQUIREMENTS CERTIFICATION: I certify that the supporting data under my cognizance which are included in the J&A are accurate and complete to the best of my knowledge and belief.

NAME: _JUAN G. SANTIAGO___________ SIGNATURE: _______________________

TITLE: Chief, DISA NS21 Organizational Messaging Division____ DATE: ________

(301) 225-2759

CONTRACTING OFFICER CERTIFICATION:

I certify that this justification is accurate and complete to the best of my knowledge and belief.

NAME: _Aaron R. Schwarz___________ SIGNATURE: _ _

TITLE: _ENCORE II Contracting Officer_____________ DATE: _9 Oct 11____________

PROCURING ACTIVITY COMPETITON ADVOCATE APPROVAL

I have reviewed this justification and find it to be accurate and complete to the best of my knowledge and belief. Since this justification does not exceed $12.5M, this review serves as approval.

APPROVED BY:

Signature:

Ann M. Vaughn / Procuring Activity Competition Advocate

Printed/Typed Name and Title

DISA 618-229-9608 19 Oct 2011

Organization Phone Date

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ALL QUESTIONS REGARDING THIS JUSTIFICATION FOR OTFAOC ARE TO BE

REFERRED TO THE CONTRACTING OFFICER (Aaron R. Schwarz/618-229-9475)