JA 24 040 GDMS ITV Services Redacted.pdf

Control No: 24-040 Contractor: Tapestry Solutions, Inc.

Supply/Service: GDMS ITV Services Est Dollar Value:

JUSTIFICATION REVIEW DOCUMENT

FOR JUSTIFICATION AND APPROVAL FOR OTHER THAN

FULL AND OPEN COMPETITION

Supply/Service: The Global Distribution Management System (GDMS) provides global positioning system (GPS) 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:

Ashley A. Northouse Contract Specialist ashley.a.northouse.civ@army.mil

David S. Fields Contracting Officer david.s.fields 16.civ@army.mil

COM: 520-693-0162

COM: 571 -588-8562

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

Legal Advisor:

Competition Advocate: Rachel M. Phelps DSN: 793-0281

Signature: tf,utJ 't.J.. on L ~~~=~125831986

~/IJ Date: 2024.05.29 16:56:29 --05'00'

Supply/Service: GDMS ITV Services 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 Theater Sustainment Command (1 TSC) requests a firm-fixed-price modification to contract W519TC-23-C-0048 with Tapestry Solutions, Inc.

(Tapestry). The modification will be issued as an Undefinitized Contract Action UCA) from which ACC-RI projects award for , Operations and Maintenance, Army funds. An acquisition plan is not required because this procurement does not meet the threshold at Defense Federal Acquisition Regulation Supplement (DFARS) 207 .103(d)(i)(B).

The Government did not compete the GDMS requirement prior to this action under the authority of Federal Acquisition Regulation (FAR) 6.302-1 , Only one responsible source and no other supplies or services will satisfy agency requirements. Justification & Approval (J&A) 23-019, approved on 3 July 2023 and then amended on 26 September 2023, supported the extension of services through 31 May 2024. That justification paragraph 7, actions to increase competition, stated:

"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 [Transportation Coordinators' - Automated Information for Movements System II Theater Operations System] and the current software. ACC-RI, 1st TSC, and USAREUR-AF [U.S. Army Europe and Africa] will conduct a competitive acquisition to provide the services beyond 31 May 2024."

The Government did not complete those actions entirely. Further market research was conducted as discussed in paragraph 8 below by posting another sources sought notice to Contract Opportunities at SAM.gov and further analyzing the prior market research which had formed the basis of the Ian to ursue a com etitive ac uisition.

planned actions to increase competition set forth in the prior J&A were not completed, the approval level of this J&A is one level above the approval authority of the previous J&A in accordance with DFARS Procedures, Guidance, and Information 206.304(a)(S- 70)(ii)).

3. Description of Supplies/Services: The use of the current Army transportation system of record, TC-AIMS II TOPS, is required across all of the Army's transportation programs. This system of record relies on a software package that can provide integration of a data-fusion system and serve as a gateway that enable near real-time visibility, tracking, and accountability on all registered commercial logistics (truck tracking

Supply/Service: GDMS ITV Services Est Dollar Value:

system) that have transponders. The 1TSC requirement is for a GPS based software that operates within the TC-AIMS II TOPS program, associating logistic support and incidental hardware to support 1TSC's mission to track the movement of military equipment and supplies moving on commercial carrier trucks throughout the U.S. Central Command (CENTCOM) Area of Responsibilit AOR which rimaril consists of Kuwait, the Trans-Arabian Network, Jordan, and Ira .

of the Contract Line-Item Numbers (CUNs) for this contract modification:

CUN 0001AA ITV Support (1TSC forward) CUN 0002AA Software License (1TSC forward) CUN 0002AB Software License (Fort Knox) CUN 0003AA Internet Capability (1 TSC forward) CUN 0003AB Internet Capability (Fort Knox) CUN 0004AA Travel (1TSC forward) e ow IS a IS mg

CUN 0005AA Legacy National Afghanistan Trucking (NAT) ITV Database Litigation Support

CUNs for U.S. Army Europe-Africa (USAREUR-AF) that were added per Amendment 001 to J&A 23-019 and included in the base award Period of Performance (Pop) of 27 September 2023 to 31 May 2024 are not being included for the PoPs listed in this J&A at the decision of USAREUR-AF leadership.

4. Authority Cited: 1 O U.S.C. 3204(a)(1 ), as implemented by FAR 6.302-1 , Only one responsible source and no other supplies or services will satisfy agency requirements.

5. Reason for Authority Cited: As described at FAR 6.302-1 (a)(2)(iii)(A), for DOD, NASA, and the Coast Guard, services may be deemed to be available only from the original source in the case of follow-on contracts for the continued provision of highly specialized services when it is likely that award to any other source would result in

Supply/Service: GDMS ITV Services Est Dollar Value:

substantial duplication of cost to the Government that is not expected to be recovered through competition.

GDMS is a single system that allows the units to process TM Rs from start to finish to include integrating commercial ITV and commercial contractor carrier management and provides data via GDMS to the Army's ITV server. CENTCOM has directed subordinate units to use TC-AIMS II TOPS as the command's transportation system record.

However, TC-AIMS II TOPS software does not meet the needs for movement control operations as they operate in CENTCOM. TC-AIMS II TOPS were developed based on "Doctrinal Army Transportation" based on the Defense Travel Regulations and Army Motor Transport Operations 4-11. TC-AIMS II TOPS does not support the use of commercial modes of transportation such as the commercial carriers like HL9. TOPS does not address processes such as Host Nation approvals, management of border crossings, geofencing of critical check points, origin and destination arrival times, nor provides real time tracking of commercial assets to help determine unscheduled stops, deviation from planned routes and other key data in their movements. GDMS addresses these gaps, yet uses it's TC-AIMS II TOPS interoperability to manage HL9.

Over the last nine years, the Army has relied on GDMS and has requested Tapestry to conduct multiple code changes that were tailored solutions to expand the program's functionalities to provide increased control, ownership, and accountability for the military to effectively manage its total transportation movement process. GDMS provides GPS data which allows the Army to maintain ITV of transportation of assets in real time.

Before GDMS, Army officials were tasked with managing thousands of civilian cargo shipments (white assets) per month with manual spreadsheets and limited resources. As a result, trucks and cargo were frequently sent to incorrect locations in war zones and reports were inaccurate. It was also extremely difficult to track deliveries veri demurra e claims and mana e contractor erformance.

Supply/Service: GDMS ITV Services Est Dollar Value:

Although GDMS' primary role is to provide real-time, ITV of vehicles and cargo shipment, GDMS is also used to manage TMRs, capture actual delivery times, correlate actuals to scheduled requirements, and support invoicing. GDMS' replay functionality is used for insurance claims, investigations, and litigation. Per CUN 0005AA, Legacy NAT ITV Database Litigation Support, Tapestry is currently providing litigation support for the NAT 1.0, 1.5, and 2.0 legacy contracts; as a result of providing replay records and documentation, Tapestry has saved the Arm mill ions of dollars that otherwise would have one to the NAT contractors.

i. Over the years, the USG has worked with Tapestry to tailor the GDMS software codin to fulfill additional commercial trans ortation information ca acit .

ii. The Army mandated the five HL9 contractors use GDMS and transponders that are compatible with the existing ITV system that the USG has under contract W519TC-23-C-0048 with Ta est .

Contractor: Tapestry Solutions, Inc.

Supply/Service: GDMS ITV Services Est Dollar Value:

Supply/Service: GDMS ITV Services Est Dollar Value:

6. Efforts to Obtain Competition: ACC-RI shall publish the notices required by FAR

5.201. Because th is is sole source action, effective competition is not applicable. The Government achieved subcontracting competition by including FAR clause 52.244-5, Competition in Subcontracting, in the solicitation and resultant contract, which states that the contractor shall select subcontractors on a competitive basis to the maximum practicable extent.

7. Actions to Increase Competition: The 1TSC will continue conducting market research for the possible use of other ITV system software in the future. However, to date, the Government has identified no other system, other than Tapestry's GDMS, that can meet the agency's needs without substantial duplication of costs that is not expected to be recovered through competition. U.S. Transportation Command and the Army are currently pursuing a single solution transportation system of record named transportation management system (TMS) that would replace TC-AIMS II TOPS and provide similar functionality to GDMS, but across all Combatant Commands and integrated with the Army's business system of record. The Army would be able to compete ITV services to augment its modernized TMS capability when TMS is developed. Moving to a modern, cloud-based TMS solution also enhances opportunities to harness unified logistics data with information/knowledge-centric capabilities. The date for develo ment of TMS has not yet been determined. If TMS is developed during th i award, ACC-RI will consider competing ITV in support o an pnor o exercising an option period and will also factor into future decisions for HL 10.

8. Market Research: In accordance with 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 Contract Opportunities on SAM.gov on 11 April 2024 for 7 days. ACC-RI received . responses to the sources sought which are listed below along with 1TSC's analysis.

Supply/Service: GDMS ITV Services Est Dollar Value:

9. Interested Sources: To date, no other sources have expressed a written interest in th is requirement.

10. Other Facts:

Procurement History

Contract: W519TC-23-C-0048 Contractor: Tapestry Award Date: 26 September 2023 Competitive Status: Sole Source, J&A 23-019 Authority: FAR 6.302-1

Contract: W52P1J-18-C-0049 P00012, added services for U.S. Army Europe-Africa

(USAREUR-AF)

Contractor: Tapestry Award Date: 25 June 2021

Competitive Status: Sole Source, J&A 21-120 Authority: FAR 6.302-1

Control No: 24-040 Contractor: Tapestry Solutions, Inc.

Supply/Service: GDMS ITV Services Est Dollar Value:

Contract: W52P1 J-18-C-0049 P00011, extended the contract through August 2023 Contractor: Tapestry 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 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 Award Date: 13 March 2017 Competitive Status: Sole Source, J&A 17-03 Authority: FAR 6.302-1

Contract: HTC711-15-C-W002 Contractor: Tapestry Award Date: 11 September 2015 Competitive Status: Sole Source, J&A 15-46 Authority: FAR 6.302-1

Supply/Service: GDMS ITV Services Est Dollar Value:

11. Technical Certification: I certify that the supporting data under my cognizance which are included in the ·ustification are accurate and com lete to the best of m knowled e 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

13. Fair and Reasonable Cost Determination: I hereby determine that 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 other than certified cost or pricing data will be required. Certified cost or pricing data will not be required in accordance with FAR 15.403-1 (b)(3) as this is a commercial service.

FIELDS DAVID S Digitally signed by 5/30/24 • • • FIELDS.DAVID.S. 1368435054

Date: -------- 1368435054 Date20240530094410 ~05'00'

David S. Fields Contracting Officer

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

FIE Los DAVID Digita lly signed by

• • FIELDS.DAVIDS 1368435054

Date: 5/30/24 8 _ 1368435054 ~~t.~ ~0240530 094430

David S. Fields Contracting Officer

Approval

Contractor: Tapestry Solutions, Inc.

Supply/Service: GDMS ITV Services Est Dollar Value:

Based on the foregoing justification, I hereby approve the procurement of GDMS ITV services in support of 1 TSC on an other than full and open competition basis pursuant to the authority of 10 U.S.C.3204(a)(1 ), subject to availability of funds, and provided that the services or supplies herein described have otherwise been authorized for acquisition.