J-A - GCCS-J I3 VC21 - Redacted Version.pdf

J&A for Integrated Imagery and Intelligence (I3)

MIPR Number: DCCMC20235

JUSTIFICATION FOR OTHER THAN FULL AND OPEN COMPETITION (OTFAOC)

JUSTIFICATION FOR AN EXCEPTION TO FAIR OPPORTUNITY

Justification for OTFAOC Number: JA12-052

JUSTIFICATION FOR OTHER THAN FULL AND OPEN COMPETITION

Upon the basis of the following justification, I, as the Head of the Contracting Activity, 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), only one awardee is capable of providing the supplies or services required at the level of quality required because the supplies or services ordered are unique or highly specialized.

JUSTIFICATION

1. Agency and Contracting Activity: FAR 16.505(b)(2)(ii)(B)(1))

Requiring Activity

Defense Information Systems Agency Program Executive Office for Command & Control Capabilities (PEO-C2C) 6914 Cooper Avenue Ft. Meade, MD 20755

Contracting Activity Defense Information Systems Agency Defense Information Technology Contracting Organization - National Capital Region

(DITCO-NCR)

6914 Cooper Avenue Ft. Meade, MD 20755

2. Nature/Description of Action(s) (FAR 16.505(b)(2)(ii)(B)(2)) The purpose of this action is to award additional work to Northrop Grumman Information Technology (NGIT) under the Encore multiple-award, Indefinite Delivery/Indefinite Quantity (ID/IQ) contract on a sole-source basis for a period of twelve (12) months to ensure critical Joint Global Command and Control Systems (GCCS-J) capabilities meet warfighting demands and requirements. GCCS-J is the designated DoD program of record for all Joint C2 capabilities and in use today at all echelons and across all Services to meet current warfighting demands. This sole-source award is required to allow the Government sufficient time to develop, refine, and competitively recompete the Integrated Imagery & Intelligence (I3) requirement for the GCCS-J which was to be replaced by the Net- Enabled Command Capability system which was subsequently cancelled by Congress (ref. PUBLIC LAW 111-84-OCT. 28, 2009, 123 STAT. 2240, Section 247).

As a result of this cancellation, GCCS-J remains the designated DoD program of record for all Joint C2 capabilities. The GCCS-J PMO has been placed in a unique situation where it must maintain the deployed system in accordance with the Joint Requirements Oversight Council (JROC) approved “Do No Harm” concept as outlined in JROCM 145-09, 9 September 2009, while also addressing to the anticipated OSD directed enhancements and transition of logical capabilities away from local instantiations to the enterprise or use available enterprise services.

The GCCS-J PMO is awaiting the finalization of the Joint C2 Modernization Strategy, which includes, but is not limited to, the finalization of the Analysis of Alternatives by OSD’s Cost Assessment and

Program Evaluation team, finalization the Networks and Information Integration reorganization, adoption of the C2 portfolio management, and approval of the modernization strategy. The finalized Joint C2 Modernization Strategy will ultimately drive the anticipated acquisition construct and requirements. This strategy is currently pending DoD approval based on a variety, re-organization, policy, and re-defined levels of authority and responsibilities decisions. This sole-source award of additional work is required to allow the Government sufficient time to develop, refine, transition, and reprocure Integrated Imagery & Intelligence support requirement once the Joint C2 Modernization Strategy has been finalized.

The anticipated contract type will be Cost Plus Fixed Fee (CPFF) and the action will be issued as a modification to the current task order. The estimated cost of this sole source modification is $15.8M and it will be incrementally funded with a combination of FY12 and FY13 Research, Development, Test & Evaluation and Operations & Maintenance Funding. . The period of performance will be 25 February 2012 – 24 February 2013. No option periods are contemplated.

Integrated Imagery and Intelligence (I3) support is currently provided via ENCORE II Task Order HC1028-08-D-2023-VC21 which was competed under fair opportunity and awarded to NGIT. This task order will expire on 23 February 2012 and all options inclusive of five (5) of the possible six (6) months allowed IAW FAR 52.217-88 - Option to Extend Services. have been exercised. DISA is currently in the process of developing, refining, and soliciting the recompetition of the Integrated Imagery & Intelligence support task; however, it is not anticipated that the new support contract will be in place prior to the expiration of the existing Task Order.

3. Description of Supplies/Services (FAR 16.505(b)(2)(ii)(B)(3)) This task order will provide the task management and technical guidance (including planning), design oversight, and systems evaluations, integration, and testing services within the GCCS-J I3 architecture, to sustain and modernize the situational awareness, imagery exploitation, indications and warning, collaborative planning, course-of-action development, intelligence mission support, and real-time combat execution capabilities needed to support or accelerate operational tempo and conduct successful military operations in the modern crisis environment. Sustained and modernized capabilities will include the Cross Domain Capability (CDS) which is the only currently operational capability permitting collaboration across multiple security domains. This capability is particularly important in light of the multiple coalition partners and security domains with which U.S. forces work.

Although GCCS-J officially entered into sustainment in August 2009, with the termination of the Net- Enabled Command Capability (NECC) program (02 November 2009) the GCCS-J Program Management Organization (PMO) has been tasked with maintaining three primary areas of responsibility to ensure critical warfighting capabilities are managed as DoD moves forward: (1) sustaining the current operational GCCS-J capabilities, (2) maintaining synchronization across DoD of GCCS-J, joint interfaces and the GCCS FoS, and (3) evolving from the current GCCS-J to a next generation system using state of the art technology with minimal impact to the operators. In addition to covering sustainment and synchronization support for the deployed, operational GCCS-J baselines, the PMO is structuring its contracts and mission to be flexible enough to accommodate this modernization evolution to help ensure that critical capabilities are delivered to the War fighter in the most timely, efficient manner.

The GCCS-J PMO is in a unique situation where it must maintain the deployed system in accordance with the Joint Requirements Oversight Council (JROC) approved “Do No Harm” concept as outlined in JROCM 145-09, 9 September 2009, while also addressing the need to enhance and transition logical capabilities away from local instantiations to the enterprise or use available enterprise services. Further, the GCCS-J PMO is a critical component of the Joint C2 Modernization strategy which will ultimately drive the acquisition construct for the expected re-competition of the Integrated Imagery and Intelligence requirements. This strategy is currently pending DoD approval based on a variety of decisions on re-organization, policy and re-defined levels of authority and responsibilities.

This J&A will provide necessary continued support for mission critical I3 capabilities. In order to support the I3 mission, GCCS-J requires the contractor to provide:

• Sustainment of the current operational GCCS-J I3 capabilities

• Synchronization of GCCS-J I3 across DoD joint interfaces and the GCCS Family of Systems

• Evolution from the current GCCS-J I3 to a next generation system using state of the art technology with minimal impact to the operators

4. Identification of Statutory Authority and Demonstration of Contractor’s Unique Qualifications (FAR 16.505(b)(2)(ii)(B)(4)).

FAR 16.505(b)(2)(i)(B) - Only one awardee at this time is capable of providing the required supplies or services required at the level of quality required because the supplies or services ordered are unique or highly specialized.

The GCCS-J PMO is awaiting overarching DoD GCCS-J program guidance which is pending finalization of the Congressionally directed modernization strategy report detailing the plans for the consolidation and modernization of Joint C2.

NGIT is uniquely qualified to continue providing the project management and technical guidance for the GCCS-J I3 applications due to their recent performance in that role. Abandoning the current team upon the expiration of NGIT’s current task order would result in an unacceptable lapse in service and could add duplicative cost and time in gaining code-level understanding of the software. The technical knowledge that NGIT now holds could not be easily or efficiently provided by another vendor under the time constraints that the PMO is currently operating under and as such their expertise and familiarity with the technology baseline will support the PMO’s mission to maintain “Do No Harm” and ensure no negative impacts the mission. NGIT is the only vendor at this time who has that in depth knowledge gained from performance in place that will avoid unacceptable delays in fulfilling the Agency’s requirements.

Additionally, NGIT is intimately familiar with the doctrine associated with, and the operational use and deployment of national and theater command and control and intelligence systems and is uniquely situated to support the development of required capability to maximize the impact of near real-time intelligence required by the warfighter..

NGIT Subject Matter Experts (SMEs) have specialized capabilities and are uniquely qualified as technical experts with detailed functional expertise from previous years of technical support and active duty responsibilities for tactical Command and Control (C2) systems. These systems include real time imagery and intelligence systems, Theater Ballistic Missile and warning systems, the NATO interfaces and databases, Australian and Canadian Coalition systems, data and message interfaces with Korea, and software to specifically support CENTCOM Forward mission sites and combat zones. Their role as SMEs in interfacing with Operational Commanders and their responsiveness to the urgent and explicit expectation for fulfilling mission needs for data and displays in a classified environment requires at least 10 years of experience per person. The demand for these SMEs due to their knowledge and demonstrated ability to troubleshoot classified systems and interfaces makes them a most valuable commodity.

NGIT has the specific operational expertise with GCCS-J to provide this service. Additionally, under the existing contract, NGIT has developed, delivered and sustained an extensive capability to meet emergent Combatant Commander and GCCS FOS requirements. This specialized experience makes NGIT qualified to provide products and support that meet warfighter requirements. NGIT’s expertise will be crucial over the next twelve (12) months while the GCCS-J program is fielding new baselines to enhance warfighting capabilities, addressing COTS end of life issues and compliance with security polices such that transition to a new provider could be detrimental to the operational capabilities and impact critical warfighting functions.

To competitively award these services covered by this J&A upon expiration of the existing NGIT task order would cause unacceptable delays and could effectively bring the GCCS-J I3 mission to a complete halt for approximately three (3) to five (5) months while a new contractor transitions key personnel, processes and becomes acclimated to the required services to be performed to meet mission critical timelines. The GCCS-J I3 mission and suite of functional in use capabilities requires continuation (with no disruption) of support services currently provided by NGIT and cannot accept any disruption of support. Furthermore, the cost savings of not having to pay another contractor for this “ramp up time” is estimated at $2.1M. This was determined by estimating conservative labor hours and some travel expenses in which a new contractor would be required to learn the existing complex Global Command and Control platform and then the specifics of the Imagery & Intelligence underpinnings along with the integration and sustainment processes needed to get Imagery & Intelligence capabilities to the Warfighter.

A change in contractor at this time would also result in a slip in the deployments and maintenance support upgrades and would have a significant negative impact the deployment of GCCS-J 4.2.0.9.. The fielding worldwide of GCCS-J 4.2.0.9 requires multiple teams of subject matter experts (SME). Each team includes at least one I3 expert and HC1028-08-D-2023 provides for that I3 support. I3 SMEs typically have ten or more years of specialized experience working in the command and control arena, generally on GCCS-J. Not awarding this 1 year extension would certainly delay the advent of the fielding of release

4.2.0.9 which includes software updates and fixes to critical war fighter capability including to the I3 Course of Action and use of Track Management capabilities. To reconstitute the teams, especially with another vendor, would take months and might take the program and the Department past the window of opportunity available to exploit the capability contained in this release.

Finally, The DoD is finalizing its overall strategy for Joint C2 (e.g., finalization of the Analysis of Alternatives by CAPE, OSD; finalization of the NII reorganization; adoption of the C2 portfolio management; and approval of the modernization strategy. GCCS-J PMO will be fielding a new baseline and accompanying capabilities over the next twelve (12) months that cannot be disrupted, a new vendor would require considerable ramp-up and a minimum of three (3) months to acquire a base level of knowledge to provide the GCCS-J with a minimal level of support; not awarding to NGIT would put the I3 support provides to the Warfighter at risk and jeopardize their ability to fight the Global War on Terrorism and to effectively support the in-process drawdown and reprioritization of US Forces.

In conclusion, it is in the best interest of the Government to issue this additional work for a period of twelve (12) months to NGIT.

5. Cost/Price Fair and Reasonable Determination (FAR 16.505(b)(2)(ii)(B)(5) The Contracting Officer will determine a fair and reasonable cost based on the results of IGCE vs proposed cost comparison, cost analysis, Forward Price Rate Agreement (FPRA) and comparison of the proposed rates to the pre-established rates in the ENCORE II contract and rate verification by DCAA.

6. Description of Market Research Market research was conducted prior to the 25 Sep 2010 issuance of the current Task Order, HC1028-08- D-2023-VC21. The market research involved internet research on the open market vendor capabilities and past performance information. Market research was also done on vendors who could perform the combined work on other contract vehicles; i.e. ENCORE II, GSA by researching capabilities and scope of work under GSA schedules. The vendors that were researched had expertise with software development;

however, they lacked significant relevant technical experience with the complexities of the GCCS-J as well as little to no past relevant performance experience within programs of this nature GCCS-J I3 is a highly complex and widely dispersed capability dependant on hardware and software that is partially

COTS and partial custom and has an extremely diverse geographically dispersed user base. The ENCORE II vehicle was ultimately selected because the PMO believed this vehicle had the best mix of companies with the needed capabilities and would generate the most competition for the I3 requirement.

Market research has recently been conducted for the potential recompetition of the Integrated Imagery & Intelligence task via the issuance of a Request for Information (RFI) on 14 October 2011 and subsequent assessment of the respondent’s technical capabilities. The results of this market research indicate that the government’s evolving contracting strategy may encourage a competitive market for the required services; however, in order to allocate an adequate amount of time to develop, refine, compete, award, and transition these services, it is necessary to issue a sole source award for twelve (12) months to NGIT.

Without this twelve (12) month sole-source award, there would be an unacceptable gap in support services to the GCCS-J program and its user base as well as unacceptable disruption to in use warfighting tools.

As a result, it has been determined that a sole-source award of additional work for a period of twelve (12) months was in the best interest of the Government for the following reasons: DoD is finalizing its overall strategy for Joint C2 (e.g., finalization of the Analysis of Alternatives by CAPE, OSD finalization of the NII reorganization, adoption of the Command and Control (C2) portfolio management, approval of the modernization strategy, etc.) remains in flux, GCCS-J PMO will be fielding a new baseline and accompanying capabilities over the next twelve (12) months that cannot be disrupted, a new vendor would require considerable ramp-up and a minimum of three (3) months to acquire a base level of knowledge to provide the GCCS-J with a minimal level of support; the specialized expertise of NGIT would take years to fully duplicate; and not awarding to NGIT would put the operational software that provides C2 capabilities to the Warfighter at risk and jeopardize their ability to fight the Global War on Terrorism as well as to effectively support the in-process drawdown and reprioritization of US Forces.

7. Any Other Supporting Facts. (FAR 16.505(b)(2)(ii)(B)(6)) The I3 Support requirement was initially competed amongst NexGen Large Businesses contract holders, resulting in the award of Task Order DCA100-02-D-4007/0059 to NGIT for the period 30-AUG-2008 TO 29-AUG-2009. NGIT was subsequently awarded a sole source follow-on one-year CPFF (DCA100-02-D- 4007/0063). A sole source Justification & Approval was approved for that effort.

The requirement was subsequently solicited under fair opportunity on ENCORE II. NGIT was awarded a CPFF-Performance Incentive contract, HC1028-08-D-2023 VC21, for the period 25 September 2010 – 24 September 2011; subsequently extended for 5 months to 23 February 2012. Due to the specialized nature of the requirement, NGIT was the only respondent to the RFP.

8. Actions Taken to Remove Barriers to Competition. (FAR 16.505(b)(2)(ii)(B)(7)) The Government is in the process of developing a competitive strategy to address required support after this extension. The Government will leverage its findings from the RFIs and combine that with modernization strategy for Joint C2 which will allow for potential greater competition. Based upon market research and the refinement of the Government’s requirements along with an updated acquisition strategy the Government has a reasonable expectation that a competitive market will exist for these services in the recompetition. It is anticipated that the recompetition will be completed NLT January 2013.

a. Procurement History:

(1) I3 Support services are currently provided by NGIT on task order HC1028-08-D-

2023-VC21.

(2) The current task order is Cost Plus Fixed-Fee with Performance Incentives (CPFF-

PI).

(3) The current task order was fairly and openly competed as a follow-on to task order

DCA100-02-D-4007/0063.

b. The current task order will expire on 23 February 2012 and all options, inclusive of FAR

52.217-8 - Option to Extend Services (five (5) months), have been exercised.

c. A notice will be published to FedBizOpps as required by FAR 5.301 within 14 days of award of this sole source action for a minimum of 30 days.

9. Reference to the Approved Acquisition Plan (AP)/Program Plan (PP).

This effort does not meet the threshold requirement for an approved Acquisition Plan.

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." (FAR 16.505(b)(2)(ii)(B)(9)).

NAME: Herbert Diew SIGNATURE: _______________________

DISA PEO C2C GCCS-J

TITLE: Technical Lead DATE: ________

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.” (FAR 16.505(b)(2)(ii)(B)(9)).

NAME: Fred Wilson SIGNATURE: _______________________

DISA PEO C2C GCCS-J

TITLE: Task Monitor DATE: ________

CONTRACTING OFFICER CERTIFICATION: Include the following determination:

“I certify that this justification is accurate and complete to the best of my knowledge and belief.” (FAR 16.505(b)(2)(ii)(C1)).

NAME: ______________________ SIGNATURE: _______________________

TITLE: ______________________ DATE: ________

HEAD OF THE CONTRACTING ACTIVITY 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 $85.5M, this review serves as approval.”

APPROVED BY: (FAR 16.505(b)(2)(ii)(C)(3))

Signature:_____________________________________ Printed/Typed Name and Title Organization Phone Date

ALL QUESTIONS REGARDING THIS JUSTIFICATION FOR OTFAOC ARE TO BE REFERRED

TO THE CONTRACTING OFFICER (Charlotte Hunter on 301-225-4122)