JA 23-019 Amendment 001.pdf

Control No: 23-019 Amendment 001 Contractor: Tapestry Solutions

Supply/Service: Global Distribution Management System

Est Dollar Value:

JUSTIFICATION REVIEW DOCUMENT

FOR JUSTIFICATION AND APPROVAL FOR OTHER THAN

FULL AND OPEN COMPETITION

AMENDMENT 001

Supply/Service: The Global Distribution Management System (GDMS) provides global positioning system data to the Army to maintain in-transit visibility (ITV) of transportation assets in real time.

Authority: 10 U.S.C. 3204(a)(1)

Prepared by:

Contracting Officer:

Technical:

Requirements:

Brooke Sheraden Contract Specialist brooke.b.sheraden.civ@army

Jennifer Cramblett Procuring Contracting Officer jennifer.j.cramblett.civ@army.mil

OS N: 309-793-1868

Reviews: I have reviewed this justification and find it adequate to support other than full and open competition.

Legal Advisor:

Supply/Service: Global Distribution Management System

Est Dollar Value:

Department of Army Justification and Approval for Other than

Full and Open Competition

1. Contracting Activity: U.S. Army Contracting Command - Rock Island (ACC-RI) Rock Island Arsenal, Rock Island, IL 61299-8000.

2. Description of Action: The 1st Sustainment Command (Theater) (TSC) and U.S.

Army Europe and Africa (USAREUR-AF) request a firm-fixed-price contract W519TC- 23-C-0048 with Tapestry Solutions, Inc. ACC-RI projects award for

, Overseas Contingency Operations, Operations and Maintenance, Army funds. An Acquisition Plan is not required because this procurement does not meet the necessary threshold in accordance with Defense Federal Acquisition Regulation Supplement (DFARS) 207.103(i)(B).

Since 2018, Tapestry Solutions has been providing GDMS under contract W52P1 J-18- C-0049, in support of the Heavy Lift 8 (HL8) contracts. The HL8 contracts provide commercial line-haul transportation services throughout Iraq, Kuwait and the Trans Arabian Network (TAN), which includes most of the countries in the Arabian Peninsula (Bahrain, Oman, Saudi Arabia, and the United Arab Emirates) and most countries in the Levant (Egypt, Israel, and Jordan). The current contract for GDMS ends on■

, and the new contract, GDMS 2.0, will provide the same system and support to HL9, the successor to HL8. The HL9 acquisition was awarded on 30 June 2023, with the following Periods of performance (PoPs):

The Government did not compete the requirement prior to this action under the authority of Federal Acquisition Regulation (FAR) 6.302-1. Justification and Approval (J&A) 18- 07 4, approved in May 2018, supported the award of W52P1 J-18-C-0049 and provided for services with Tapestry Solutions through 26 March 2021. J&A 21-036, approved in March 2021, supported extending services under W52P1 J-18-C-0049 through 31 August 2023. The services were later extended through 26 September 2023, see paragraph 3 below. J&A 21-036's paragraph 7, Actions to Increase Competition, stated:

"1st TSC has determined it is most efficient and cost effective to

Supply/Service: Global Distribution Management System

Est Dollar Value:

extend the current ITV contract with Tapestry through the end of the HL8 PoP in August 2023. This would allow adequate time to conduct a thorough source selection for ITV options ahead of the award of Heavy lift 9. The 1st TSC will continue conducting market research and analysis for this requirement in the future."

The 1st TSC and ACC-RI conducted market research and determined there is another contractor who has a product that could potentially work.

This J&A will provide additional time to develop a competitive acquisition plan and compete the requirement.

After the approval of J&A 21-036, J&A 21-120 was approved in January 2022, which added GDMS services to Army units in Europe and Africa through the end of the current GDMS contract on Services were provided throughout the USAREUR-AF theater of operations which primary occurred in Wiesbaden, Germany; Kaiserlautern, Germany; Granfenwoehr, Germany; and Powidz, Poland.

Services at these locations will continue under the contract supported by this J&A.

3. Description of Supplies/Services: The use of the current Army transportation system of record, Transportation Coordinators' - Automated Information for Movements System II Theater Operations (TC-AIMS II TOPS), is required across all the U.S. Army's transportation programs. TC-AIMS II TOPS relies on Tapestry Solutions' software package to provide integration of a data-fusion system and serve as a gateway that enables near real-time visibility, tracking and accountability on all registered commercial logistics (i.e. a truck tracking system). Tapestry Solutions' GDMS is a global positioning system (GPS) based software that operates within the TC-AIMS II TOPS program, associating logistic support and incidental hardware, which includes transponders, to support 1st TSC's and USAREUR-AF's mission to track the movement of military equipment and supplies traveling on civilian transportation assets throughout Iraq, Kuwait, the TAN, and the USAREUR-AF theater of operations. The primary requirement for Tapestry Solutions' GDMS software is for graphical displays of mission data, including vehicle locations on topographical maps with the capability of providing very accurate location data. The secondary requirement is for the software to manage transportation movement requests, capture actual delivery times, correlate actuals to scheduled requirements, validate demurrage charges, finalize shipments, and support invoicing. The GDMS 2.0 contract will be required to archive all HL9 data to assist with litigation support against future carrier claims.

Supply/Service: Global Distribution Management System

Est Dollar Value:

As stated above, J&A 21-036 supported an extension to contract W52P1 J-18-C-0049 through 31 August 2023. The extension consisted of a one-year base period through 26 March 2022, a one-year option through 26 March 2023, and five- month extension from 27 March 2023 through 31 August 2023, using FAR clause 52.217-8. ACC-RI included a final five-month extension, rather than a six-month extension as is typical when using FAR clause 52.217-8, so the end date of GDMS 1.0 would sync with the end of the HL8 contract.

1st Theater Sustainment Command estimates a dollar value of

4. Authority Cited: No change.

6. Reason for Authority Cited: No change.

6. Efforts to Obtain Competition: No change.

7. Actions to Increase Competition: After re-evaluating the market research, the U.S. Government identified another product that has the potential to perform successfully with TC-AIMs II TOPS and the current software. ACC-RI, 1st TSC, and USAREUR-AF will conduct a competitive acquisition to provide services beyon--

8. Market Research: In accordance with Defense Federal Acquisition Regulation Supplement (DFARS) 205.205-71, DFARS 206.302-1 (d), and DFARS Procedures, Guidance and Information 206.302-1 (d), ACC-RI posted a sources sought to SAM.GOV on 8 August 2022. ACC-RI received■ responses to the sources sought as listed below. However, the evaluation of the responses focused primarily on Tapestry's existing GDMS proprietary software. In June 2023, ACC-RI and 1 TSC re evaluated the market research and determined there was another contractor that demonstrated complete interoperability with TC-AIMS II TOPS. Although further market research determined there is another capable software available, there is not enough time to compete this requirement without degradation of services and without unacceptable delays, as described in paragraph 5.

Supply/Service: Global Distribution Management System

Est Dollar Value:

Tapestry Solutions; San Diego, CA - Tapestry Solutions, Inc., a Boeing Company (Tapestry) develops commercial off-the-shelf software and highly specialized custom software. Tapestry is the original developer of the GDMS software that is provided to the U.S. Government as part of the total GDMS system. Tapestry has provided the commercial trucking ITV system of record for all of the prior iterations of the trucking contracts to include Kuwait HL 8 contract, Host Nation Trucking and the NAT contracts.

9. Interested Sources: No change.

Supply/Service: Global Distribution Management System

10.Other Facts:

a. Procurement History

Contract: W519TC-23-C-0048 Contractor: Tapestry Solutions, Inc.

Award Date: not yet awarded Competitive Status: Sole Source, J&A 23-019 Authority: FAR 6.302-1

Est Dollar Value:

Contract: W52P1 J-18-C-0049, P00012, added services for Europe and Africa Contractor: Tapestry Solutions, Inc.

Award Date: 25 June 2021 Competitive Status: Sole Source, J&A 21-120 Authority: FAR 6.302-1 Contract: W52P1 J-18-C-0049, P00011, extended the contract through August 2023 Contractor: Tapestry Solutions, Inc.

Award Date: 25 March 2021 Competitive Status: Sole Source, J&A 21-036 Authority: FAR 6.302-1

Contract: W52P1 J-18-C-0049 Contractor: Tapestry Solutions, Inc.

Award Date: 26 September 2018 Competitive Status: Sole Source, J&A 18-07 4 Authority: FAR 6.302-1

Contract: W91 B4N-17-P-0002 Contractor: Tapestry Solutions, Inc.

Award Date: 13 March 2017 Competitive Status: Sole Source, J&A 17-03 Authority: FAR 6.302-1

Contract: HTC711-15-C-\/\i002 Contractor: Tapestry Solutions, Inc Award Date: 11 September 2015 Competitive Status: Sole Source, J&A 15-46 Authority: FAR 6.302-1

b. Reason for Amendment

This amendment supports the additions of the USAREUR-AF's requirements to the GDMS 2.0 contract W519TC-23-C-0048. J&A 23-019 was approved on 3 July

Supply/Service: Global Distribution Management System

Est Dollar Value:

2023, for an estimated value of , based on the IGE prepared by the contracting officer's representative at 1st TSC. The J&A included requirements for 1st TSC only. J&A 23-019's Paragraph 2, Description of Action, stated, "Services in Europe and Africa will not be continued in GDMS 2.0." Services to support USAREUR-AF were previously added to GDMS 1.0, as supported by J&A 21-120.

ACC-RI had several conversations with USAREUR-AF throughout the administration of the GDMS 1.0 contract and the initial preparation for the GDMS

2.0 contract. USAREUR-AF stated several times that services were not needed on GDMS 2.0. Then, on 17 March 2023, USAREUR-AF advised ACC-RI they had two subordinate units that needed to be part of GDMS 2.0. ACC-RI set up a meeting with USARUER-AF to discuss this requirement on 21 March 2023. In the meeting, ACC-RI and USAREUR-AF discussed that J&A 23-019 was already under review and if USAREUR-AF needed to be added to GDMS 2.0, USAREUR-AF would need to route a completed requirements package to ACC-RI by 6 April 2023. This would give ACC-RI enough time to add the requirement into the J&A.

On 6 July 2023, USAREUR-AF contacted ACC-RI and advised they needed to be part of GDMS 2.0, stating they would route a completed requirements package to ACC-RI in October 2023. Based on these milestones, ACC-RI planned to add USAREUR-AF through a modification to contract W519TC-23-C-0048 in October 2023 as a reimbursable customer. However, in September 2023, ACC-RI received a completed requirements package from USAREUR-AF. ACC-RI issued a request for proposal to Tapestry on 8 September 2023 and received its proposal on 21 September 2023.

Technical and price analysis evaluations went quicker than expected and were completed on 22 September 2023. Evaluations were completed quicker than expected due to making it top priority by all parties. USAREUR-AF reviewed the technical evaluation and due to the time difference, was able to concur on 22 September 2023.

The Contracting Officer and Contract Specialist used the IGCE submitted by USAREUR-AF, USAREUR-AF's technical evaluation, the price matrix, and supporting sales data from Tapestry. With a completed requirements package and signed evaluations, ACC-RI determined it was able to add the USAREUR-AF requirement to the award of GDMS 2.0 by 26 September 2023, instead of executing the award through a later modification. Given this revised course of action, USAREUR-AF needs to be added to J&A 23-019 via amendment.

Supply/Service: Global Distribution Management System

Est Dollar Value:

11. Technical Certification: I certify that the supporting data under my cognizance which are included in the justification are accurate and complete to the best of my knowledge and belief.

12. Requirements Certification: I certify that the supporting data under my cognizance which are included in the justification are accurate and complete to the best of my knowledge and belief.

13. Fair and Reasonable Cost Determination: I hereby determine that the the anticipated cost or price to the Government for this contract action will be fair and reasonable. The basis for this determination will be a cost analysis in which certified cost or pricing data will be required.

9/25/23 Date: --------

CRAMBLETT JENNI

Digitally signed by

• CRAMBLETT.JENNIFER.J.126449

FER.J.1264491912 6!:!, 2023.o9.25 1s:50:1s -05•00·

Jennifer Cramblett Contracting Officer

14. Contracting Officer Certification: I certify that th is justification is accurate and complete to the best of my knowledge and belief.

Date: 9/25/23

CRAMBLETT.JENN ~t:~~~~~;~NIFERJ.126449

I FER.J .1264491912 6!:!, 2023.09.25 ,6,50,55 _05w

Jennifer Cramblett Contracting Officer

Supply/Service: Global Distribution Management System

Est Dollar Value:

Approval

Based on the foregoing justification, I hereby approve the procurement of GDMS on an other than full and open competition basis pursuant to the authority of 10 U.S.C.

3204(a)(1 ), subject to avai lability offunds, and provided that the services or supplies herein described have otherwise been authorized for acquisition.

Date: Signature:

Digitally signed by

(1J d • u I DO 'L., PHELPS.RACHELM.12S l)U4I' l'\. 0 ,. 8319865

Date: 2023.09.26 15:23:54 -05'00'

RACHEL M. PHELPS

Competition Advocate