JA 6Mo Bridge AandAS.pdf

DEFENSE THREAT REDUCTION AGENCY

8725 JOHN J. KINGMAN ROAD, STOP 6201

FORT BELVOIR, VA 22060-6201

JUSTIFICATION FOR OTHER THAN FULL AND OPEN

COMPETITION

1. Nature and/or Description of Action

The Defense Threat Reduction Agency (DTRA) contracting activity proposes to procure, on a sole-source basis, a 6-month continuation of ongoing subject matter expertise to provide fully integrated advisory and assistance support services to the Strategic Integration Directorate (SI) as ordered by the Director, DTRA. These activities require dedicated and unbiased advisory and assistance services (A&AS) support provided by a performer with in-depth experience across a wide range of SI internal and external missions and organizations. This acquisition will obtain Advisory & Assistance Services (A&AS) for the SI Directorate in support of the DoD Combat Weapons of Mass Destruction (CWMD) mission. The SI Directorate requires fully integrated A&AS support for the daily performance and execution of the Agency’s CWMD mission; i.e.

CWMD planning; strategic planning; requirements management; threat and opportunity analysis;

regional engagement activities; training and exercise support; scientific and technical expertise to advise, support and conduct CWMD studies, projects, tabletops, and other community products and events; technical support for documents, reports, research and associated graphics or multimedia products; administrative support, etc. A&AS support for SI mandates the contractor fully institutionalize and execute SI's requirements and supporting coordination of actions with other Directorates within DTRA. The SI planners serve as the focal point to enhance DoD planning, coordination, collaboration and to facilitate information sharing of DTRA roles, missions, and functions and current CWMD Operations, Activities and Investments (OAIs) within the Department of Defense, across the United States Government Interagency, and internationally with key allies and partner nations.

2. Description of the Supplies/Services Required

This effort will provide for continuity of A&AS services for a period of six months to avoid a disruption in services that will otherwise cease on 17 February 2023 at the conclusion of the performance period for Task Order (TO) HDTRA121F0053. A competitive procurement for the acquisition of these services is already underway to provide follow-on A&AS support to SI and was solicited on 01 December 2022. These services are currently being provided through a contract previously competitively awarded to CENTRA Technology under Indefinite Delivery Indefinite Quantity (IDIQ) Contract HDTRA116D0004. Accordingly, the Government recommends the award of a sole source contract to CENTRA to provide for follow-on A&AS Support for SI, for six months, pending the award of the aforementioned follow-on contract being solicited under full and open competition. While multiple task orders were issued under HDTRA116D0004, this bridge action seeks only to extend the work currently being performed under TO HDTRA121F0053. The nature of the work to be performed by CENTRA during the bridge period is as follows:

A. SI Front Office and CS Support: Provide technical, administrative, and logistical support for planning, implementing, and evaluation programs activities that shall include developing and coordinating the SI responses to internal and external taskings via the Enterprise Information System (EIS), using the Defense Travel System (DTS) to coordinate travel in support of the SI, editing documents, obtaining documentation and following-up on open action items, recording meeting notes and the production of meeting minutes. Provide other ancillary, within scope administrative duties coordinated in advance between contractor Project Manager (PM) and government Contracting Officer’s Representative (COR). Provide knowledge management services to include creating new SharePoint pages, managing access to, improving the design, organization and ease of use, and posting new or changed information to the Directorate’s SharePoint or other web-enabled sites. The anticipated period of performance is 6 months effective 18 February 2023. Based upon current cost, the estimated sub-total dollar value for SI Front Office and CS Support.is $

B. SI-PL Support: Provide analytical, technical, and administrative support for day-to-day activities to include operational expertise, organizational policy and planning development and project/program support, and technical support specific to each of the CCMD’s respective regions, to include information, advice, alternative analysis, evaluations and recommendations. Provide support for training, doctrine, and exercise related activities.

Provide support to the Agency process to identify, analyze, adjudicate, and document requirements. Provide subject matter expertise on Opportunity Analysis and Design Thinking processes (synthesis/designers), to deliver responsive, interdisciplinary and analytical capability involving broad, undefined complex issues of either a special or recurring nature.

The anticipated period of performance is 6 months effective 18 February 2023. Based upon current cost, the estimated subtotal dollar value for SI-PL Support is $

C. SI-STED Planning Support: Assist in formulating and preparing briefings, reports, and other communications materials to present to senior officials in DTRA, DoD, and other agencies.

Provide expert advice and analytical support for strategic planning, strategy development, performance management and measurement, and organizational assessment efforts. Support strategic planning efforts and conduct analyses of CWMD-related strategies, policies, doctrine, plans, capability gaps, and emerging trends to support decision making related to the current and potential future WMD threat environment. Provide support in the development and maintenance of the DTRA Strategy (5-year) and annual Director’s Planning Guidance (DPG), in order to inform and guide the development of Agency CWMD strategies and programs, and Planning, Programming, Budgeting, and Execution (PPBE) activities.

Review and analyze selected publications on behalf of the USG to determine congruence with existing policy and doctrine and technical accuracy, or other criteria directed by the Government. Provide support for the program and capability assessments that DTRA develops against Agency plans and guidance, and the subsequent application of resources.

Based upon current cost, the estimated subtotal dollar value for SI-STED planning support is

D. SI-STT Support: Provide support for analysis of future global, regional, and country-specific topics related to the research, development, and use of weapons of mass destruction and well as emerging science and technology that will impact and shape the Chemical, Biological, Radiological and Nuclear (CBRN) development and use. Provide support for coordination and execution of virtual and in-person events. Provides SME in designing, developing, and delivering internal and external table-top exercises (TTXs) focused on experiential learning and workforce development. Provides support for strategy development, planning, and execution of key leader engagements with Senior DoD, Interagency (IA), and Congressional offices. Provides support for planning, strategy, contracting efforts, and program analysis for externally conducted research funded through SI-STT. Provides support in data collection, management, and archival within Divisions (SI-STE and STT) and Department (SI-ST).

Provides support in selecting or creating visual graphics and illustrations for publications, reports, events, or advertisements. Provides support with integrated reviews and assessment of Strategic Trends efforts in support of the larger Agency mission, including strategy, plans, activities, investments, and operations. Based upon current cost, the estimated subtotal dollar value for SI-STT planning support is $

The cumulative total value of the follow-on sole source contract is $ This amount will be broken out as follows:

2 Month Base Period: $ (18 February 23 - 17 April 23) 4 Month Option Period: $ (18 April 23 – 17 August 23)

3. Statutory Authority

The statutory authority for this non-competitive action is 10 United States Code (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. The services for this follow-on contract are deemed to be available only from the original source for the continued provision of highly specialized services. Award to another source would likely result in substantial duplication of cost to the Government that is not expected to be recovered through competition [FAR 6.302- 1(a)(2)(iii)(A)] and it is equally likely that award to any other source would result in unacceptable delays in fulfilling the agency’s requirements [FAR 6.302-1(a)(2)(iii)(B)].

4. Application of Authority

A. Based on the professional experience/judgment and expertise of staff in the DTRA/SI

Directorate, the Government has determined that the current A&AS contractor, CENTRA, is the only qualified/responsible source and no other supplies or services will satisfy the requirements of the Agency pursuant to FAR Part 6.302-1. Specifically, only CENTRA possesses the capability to fulfill the current requirements of the agency without incurring a substantial duplication of cost to the Government that is not expected to be recovered through a competition for the services to be provided over a short period of six months predicated upon the following:

1. Historical experience dictates that there is a learning curve of a minimum of ~90 days to acquire and develop a working knowledge of DTRA SI CWMD mission space. DoD CWMD planning activities require an approximately 30-day learning period for a contractor to become familiar with the interagency planning environment and other mission requirements. This timeframe represents one-half of the contemplated bridge period of performance, so any contractor other than the incumbent would not be fully functional for 50 percent of the effort.

2. Likewise, SI-ST requires specialized support services. A contractor's prior experience supporting other DoD CWMD agencies or even private-sector CWMD research institutions do not, independently, provide complete understanding of how to support SI-ST's mission to generate timely, credible, actionable insights into strategic threat trends and emerging S&T issues within the counter-WMD mission space to enable and guide warfighter understanding. Based on ongoing studies, international engagement activities, and research efforts, coupled with previous SI-ST A&AS support experience, an estimated minimum 30-day period is required for a contractor to develop a working knowledge of SI-ST’s mission support and over-the-horizon studies requirements. This timeframe represents one-half of the contemplated bridge period of performance, so any contractor other than the incumbent would not be fully functional for 50 percent of the effort.

3. There is insufficient time for other companies that meet the basic requirements to become proficient in current DTRA CWMD planning and OAIs and meet all requirements by 18 February 2023. The next best alternative for acquiring another potentially qualified company to provide these services is the ongoing competitive solicitation referenced in Paragraph 2 of this Justification. However, based on the remaining timeline to award and the current stage of the solicitation, DTRA considers having an award in place by 18 February 2023 to be impossible.

4. Collectively, there is also insufficient time for otherwise potentially capable industry performers to become proficient in current SI-ST study structures and constructs, particularly unique and evolving against emerging threats.

5. In addition, it is impractical for other potential sources to achieve a state of operational readiness based upon a need to acquire the necessary physical facilities to fulfill the overall functional requirements of the bridge contract over a short term period of 6 months for the SI-PL and the SI-ST A&AS support without incurring a substantial duplication of costs that would be incurred a second time in connection with the aforementioned competitive follow-on procurement.

6. This short-term sole source acquisition ensures continuity of operations for the

DTRA SI Directorate. It is anticipated that a 6-month period will be necessary to provide for continuity of operations inclusive of a ~30 day transition period and SI support between the onset of the new competitive procurement award for SI A&AS support, and expiration of the existing A&AS contract effective 17 February 2023.

7. The need for this follow-on bridge contract is due to the recent unanticipated and unexpected internal reorganization within the SI Directorate in October 2021 and other unforseen delays promoting insufficient time to award the planned follow-on contract. As a result, the acquisition needs were increased, thereby placing the acquisition on a different schedule and timeline for award that will exceed the17 February 2023 contract expiration date.

8. Although CWMD efficiencies were gained by these internal functional reorganization and acquisition strategy decisions, it adversely impacted and led to a need to reconsider the acquisition strategies, programmatic plans and schedules.

The consequences of this overall reformulation led to the restructuring of various program needs and previously established acquisition plans and strategies that operated with an original goal of finalizing follow on competitive contract awards by 17 February 2023.

Therefore, to avoid a break in continuity of operations in SI support, the Government determined that award of a sole-source bridge contract for a period of 6 months to the current contractor is imperative and the only viable option available to the government. Failure to proceed with this bridge contract award for a period of six months will result in an unavoidable and substantive interruption of agency critical component continuity of operations, notwithstanding the need to have a reasonable period of 30 days for transition of services to the follow on contract. Award to the current performer is necessary because the incumbent is the only source with the expertise and organizational experience, existing facilities and personnel to continue performance without interruption on 18 February 2023 considering that the follow-on long term competitive award will not be in place by that time. Use of a 6 month bridge will also help with the transition to a new contractor after award of the follow-on A&AS contract.

Further, this short-term effort will also serve to enhance and create an opportunity for greater competition among prospective contractors for the new A&AS contract sought by DTRA/SI because industry will have sufficient time to devise a strategy and plan to meet all of the requirements sought in the new competitive procurement.

5. Effort to Solicit Potential Sources

The primary follow-on requirement that will provide DTRA with A&AS for the long term will be a five-year IDIQ contract, which is currently being solicited as full and open competition. A pre-solicitation synopsis as required by FAR 5.2 was published on October 21, 2022 for the competitive solicitation. This short term non-competitive bridge contract will provide for the necessary transition period while the competitive follow-on requirement is in the evaluations stage. A separate pre-solicitation notice for the bridge contract will be published as required by FAR 5.2 once this J&A for other than full and open competition has been approved at the appropriate level.

In addition, DTRA published a sources sought notice specifically for the bridge effort on December 23rd 2022, requesting capability statements from small and large business concerns.

The announcement closed on January 3rd 2023 and resulted in capability statements from the following three sources, which were assessed for capability by the SI Directorate as follows:

ARSERVICES LIMITED (Small Business)

While this vendor has experience with other DTRA Directorates to include Research & Development, Nuclear Enterprise, On-Site Inspection and Building Capacity, and Cooperative Threat Reduction; SI contends that its mission is unique and experience in these other directorates does not transfer to experience with all aspects of what is required for SI. For example, one complex responsibility unique to SI is that of an Operations Research Systems Analyst (ORSA) which these other directorates would not have required. Moreover, the contractor indicates that all prior work as well as the work to be performed herein would be accomplished via extensive teaming arrangements. Furthermore, while this contractor possesses a space that is available for Sensitive Compartmented Information Facility (SCIF) certification;

the facility is not currently certified. Both of these characteristics indicate full capability may be achieved at some point in the future but do not lend themselves to the type of immediate capability that is required to support the short turnaround time needed for award of this bridge contract effort.

CENTRA (Large Business / Incumbent Contractor)

CENTRA (a Pacific Architects & Engineers Company) is the current incumbent, they possess the ability to maintain/sustain current contract support with no transition time and minimal mission disruption. As the incumbent there is little risk of impact to ongoing operations. The vendor meets the stated threshold. This contractor knows SI's mission intimately and has contractors on staff with the proper experience and clearances to support SI. Any disruption that might ultimately be experienced during the transition phase will be due to DTRA as opposed to the incumbent contractor since they are currently performing satisfactorily and require no transition other than what DTRA imposes on the contractor due to the change in contract vehicle.

E.L. Hamm (Woman-Owned Small Business ~ WOSB Application Pending)

SI determined this contractor would not be capable of performing the requirement in accordance with DTRA’s needs. This contractor currently does not possess a facility clearance and made no positive determination regarding the clearance status of its workforce. Moreover, the contractor’s acquired experience with advisory and assistance services is not directly related to the specific CWMD mission of the SI department. The contractor’s experience with A&AS to date has been providing audit services and making subsequent recommendations in the fields of acquisitions, contracting processes and property management to various Government clients outside of the Department of Defense. The contractor failed to convey they possess the resources necessary to take on a contract of the scope and complexity as this bridge effort. The contractor also provided no information on the status of its accounting system to suggest it is qualified to accept a Cost Reimbursement contract type. Based on the contractor’s qualifications and experience they would experience a sharp learning curve and would not be in a position to provide fully integrated A&AS to SI from the first date of contract performance.

6. Fair and Reasonable Costs

The anticipated cost/price of this contract action to the Government will be determined to be fair and reasonable based on current cost and pricing information analyzed in accordance with FAR 15.404-1.

7. Market Research

The program manager concluded that an existing contract vehicle cannot be utilized and that a new standalone contract will be required based on the following findings:

The program manager researched the DTRA Market Research Repository which contained no reports for A&AS Contracts, however, we obtained a copy of the Cooperative Threat Reduction Directorate (CT) A&AS Market Research Report for their ongoing procurement. The program manager also researched various other DTRA contracts for A&AS support and concluded that there are multiple vendors in the market place with the requisite skills required to support the SI A&AS mission. However, different vendors have different specialties with respect to the lines of A&AS support they provide. Reviewed the Contract Directory.gov databases and determined that there are no current contracts that will fulfill SI’s unique A&AS requirements. The majority of A&AS contracts listed on Contract Directory.gov provide support to their agency only and do not allow other agencies to place orders off their contracts. Other Department of Defense A&AS contracts were reviewed by searching ContractDirectory.gov and www.google.com. Contracts found include: Army, DHS, and HHS. The scope of these contracts was reviewed and it was determined that the SI requirements would not fit and therefore could not be utilized. GSA schedules (Professional Services, Technical & Engineering Services (non IT), Technical Consultation Services (category 541690), Management and Financial Consulting, Acquisition and Grants Management Support, and Business Program and Project Management Services (category 541611), Training, Education Support Services (category 611710) were reviewed for availability of labor categories and contract vehicles. There were no singular contract vehicles in place that could completely fulfill SI’s A&AS requirement. Researched U.S. Ability One Commission and reviewed their Service Procurement List; Confirmed that Ability One does not provide Advisory & Assistance Services. Spoke with Ability One Representatives on 22 March 2022 and received the following email response from Sonja Miller on 23 March 2022, “technical team reviewed all the information discussed and after review they determined we do not have the capability for your requirement”.

In support of the pending follow-on IDIQ contract, the DTRA SI Directorate sponsored a virtual Industry Day on 2 March 2022 via Zoom.gov. The Industry Day was announced on SAM.gov and one hundred thirty-seven (137) contractors responded by registering for the event. Of the one hundred thirty-seven (137) contractors that registered eighty-four (84) actually attended the virtual event, including fifty-eight (58) small businesses. Questions and Answers (Q&A's) were posted on SAM.gov on March 30, 2022. Key issues raised included the organizational conflict of interest (OCI), potential conflicts of interests, small business participation, facility security, and the fifteen (15) day transition period.

A Request for Information (RFI)/Capability Statements from Industry was posted on SAM.gov on February 10, 2022, requesting white paper capability statements from interested vendors detailing their capability to provide professional, advisory, management, and operational services. Responses were due back on February 26, 2022 and twenty three (23) responses were received. Of the twenty three (23) responses received, fourteen (14) were small businesses and the remaining nine (9) were large businesses. Five vendors were deemed fully qualified to perform the scope of effort, and 15 of the remaining eighteen (18) were qualified to perform specific portions of the scope of effort. The following five (5) vendors were deemed fully capable of performing the full scope of effort as stated in the SOO due to their response to the RFI: CACI, ANSER, Deloitte, CENTRA Technology (Pacific Architects and Engineers) and Red Gate.

Although five (5) potential sources were identified during market research. Their capability to perform the requirement is predicated on DTRA having sufficient time to solicit and evaluate competitive proposals, resulting in an award no later than 18 January 2023 (allowing for a 30 day transition period prior to the actual TO HDTRA121F0053 expiration date of 17 February 2023).

At this stage in the follow-on acquisition, sufficient time no longer exists to reach award by this date. Accordingly, the incumbent is the only source capable of performing the bridge.

8. Other Facts

A. The planned start date of the new A&AS contract is approximately four to six months after the HDTRA121F0053 expiration date of 17 February 2023. This time period coincides with the overall performance period of the recommended bridge contract. Option clause 52.217-8 will be built into the bridge contract to account for unanticipated delays in awarding the follow-on, permitting a maximum performance period of six months. Upon exercise of the option, it will also notify the contractor to begin implementing its transition period between the incumbent and the new awardee.

B. It is estimated that a duplication of costs to the government in the amount of $ that would not be recovered through competition would be incurred in conjunction with the following:

A new contractor with 52 technically qualified personnel who already have the required TS/SCI security clearances, would require a minimum of 30 days training/transition to develop a working knowledge of DTRA CWMD planning, mission strategy, policy, doctrine, and OAIs.

An estimated 30-day learning period is required to develop a sufficient working knowledge of DTRA requirements and regulations, particularly those governing discussions and interactions with foreign nationals. The figure in paragraph B above represents the 30 days of support for which a new performer would have to be compensated but would not represent productive work towards the CWMD effort. DTRA is willing to incur this training/transition cost to support a new contractor who will be performing under the five-year follow-on IDIQ but it makes far less sense to incur such a substantial cost for a six-month bridge. Utilizing the incumbent to perform the bridge on a non-competitive basis allows DTRA to bypass this substantial ramp-up cost.

9. Interested Sources

All of the potential sources identified during the market research that was done for the follow-on contract (see paragraph 7) could be considered interested parties. However, they are not viable candidates to accomplish this bridge effort due to the time sensitive nature of the bridge, which will need to be put in place while the follow-on competitive proposals are still being evaluated for award purposes.