JA DSO Sustainment and Integration Support -redacted.pdf

Controlled Unclassified Information (CUI) Source Selection Information – SEE FAR 2.101 AND 3.104

CUI

DEFENSE LOGISTICS AGENCY (DLA)

DLA CONTRACTING SERVICES OFFICE-PHILADELPHIA

700 ROBBINS AVENUE

PHILADELPHIA, PA 19111-5092

JUSTIFICATION AND APPROVAL

FOR OTHER THAN FULL AND OPEN COMPETITION

1. IDENTIFICATION OF THE AGENCY AND CONTRACTING ACTIVITY.

Requiring Activity:

Defense Logistics Agency (DLA) Enterprise Data Solutions (J62KA) 721 McFarland Street Jacksonville, FL 32212- 0003 Acquisition POC: Theresa Hollis Phone: 904-570-1422 Email: theresa.hollis@dla.mil

Contracting Activity:

DLA Contracting Services Office – Philadelphia 700 Robbins Avenue Philadelphia, PA 19111

2. NATURE AND/OR DESCRIPTION OF THE ACTION BEING APPROVED.

Pursuant to Federal Acquisition Regulation (FAR) 6.302-1, this acquisition requires the use of other than full and open competition to award a follow-on contract for the sustainment and integration support of the Document Services Online (DSO) application. The IT support services required under this acquisition are for support for plug-ins and extension modules that are integrated into the eProductivity Software’s MarketDirect Storefront (MDSF). The required support services are currently being provided by Web2Print Experts against the SP4701-20-C-0067 and expires September 30, 2022. The government anticipates awarding a firm-fixed price, sole source contract to Web2Print Experts with total 3-year period of performance as shown below:

Controlled by: Defense Logistics Agency (DLA) CUI Category: FED ONLY Distribution Statement F POC: Theresa Hollis, 904.570.1422 mailto:theresa.hollis@dla.mil

1. Base Period: 1 October 2022 - 30 September 2023 (12 Months)

2. Option Period 1: 1 October 2023 - 30 September 2024 (12 Months)

3. Option Period 2: 1 October 2024 – 30 September 2025 (12 Months)

3. A DESCRIPTION OF THE SUPPLIES OR SERVICES REQUIRED TO MEET

THE AGENCY’S NEEDS/ESTIMATED DOLLAR AMOUNT.

The DSO application consists of two components: the commercial off the shelf (COTS) software application MDSF from eProductivity Software (ePS) and several developed plug-ins and modules that support government unique requirements. MDSF is a web to print application that provides quick print vendors the ability to receive and process printing requests through a web application. The MDSF functionality, along with the plug-ins and modules, supports the J67 Document Services mission of the management, fulfillment and billing of prints ordered from various Army, Air Force, Navy and DoD Customers.

To satisfy government unique requirements, five (5) plug-ins or extensions to the commercial MDSF software application were developed by a government contractor. Because the sustainment and maintenance efforts of the plug-ins and extensions require extensive knowledge of the MDSF application, MDSF experience is a mandatory requirement. The development and maintenance of these plug-ins and extensions were done by Web2print Experts, Inc, initially as a subcontractor, and presently as a prime under contract. DLA requires continued sustainment and integration support for the existing plug-ins and future plugs-ins and extensions into MDSF.

The plug-ins and extensions incorporated in the COTS software make DLA’s instance of MDSF a unique product with unique capabilities. In addition, the size of the DLA deployment (66 brick and mortar print facilities worldwide and 93 virtual printing storefronts) makes the support for the DSO application unique.

DLA has a requirement for sustainment and integration services in support of the plug-ins and extensions incorporated in the MDSF software as new versions or patches to the MDSF product are released. Any new MDSF releases must work seamlessly and in conjunction with the integrated plug-ins and extensions that presently exist and that will be developed under this procurement action. The government requires maintenance of the existing integrated plug-ins and extensions, configuration customization and deployment, and support to make all code and configuration changes comply with present and future Information Assurance (IA) requirements.

DLA anticipates awarding a firm-fixed price contract for this requirement.

The total estimated dollar value for the requirement is $1,001,883.93. The estimated dollar value consists of one 12-month base period estimated at $302,689.00 and one 12-month option period 1 estimated at $332,951.82, and one 12-month option period 2 estimated at $366,243.11.

4. IDENTIFICATION OF STATUTORY AUTHORITY PERMITTING OTHER

THAN FULL AND OPEN COMPETITION:

The statutory authority permitting other than full and open competition is Title 10, U.S.C.

2304(c) (1), as implemented by the Federal Acquisition Regulation (FAR) 6.302-1, only one responsible source and no other supplies or services will satisfy agency requirements.

5. DEMONSTRATION THAT THE PROPOSED CONTRACTOR’S UNIQUE

QUALIFICATIONS OR THE NATURE OF THE ACQUISITION REQUIRES

USE OF THE CITED AUTHORITY:

Market research has determined that there are only two sources with experience and expertise with the MDSF as described in Section 8, the MDSF vendor, eProductivity Software (ePS) and the incumbent, Web2print Experts. However, only Web2print Experts has the necessary expertise to successfully support the current requirement. eProductivity Software has chosen not to support this requirement. ePS did not respond to the government’s most recent RFI, RFI- 22-6002 nor prior RFI’s inquiry about interest in DLA’s need for integration and sustainment support for DSO. ePS has voiced concern about the complexity of the integration between the MDSF and the DLA financial system, EBS. The integration requires deep knowledge of the complexity of the Document Services pricing process and government unique funding methods.

Web2print Experts is the only vendor with the necessary experience in supporting complex in-plant MDSF deployments consisting of DLA’s 66 brick and mortar print facilities worldwide, 104 virtual printing storefronts and over 2000 customers. The DLA size and scope vary greatly from the commercial implementation of MDSF for single print shop sites. Web2Print is also the only source that currently has the necessary experience to support the complicated SAP interfaces that provides the DSO financial interface with EBS. Only Web2print has the unique experience in understanding and supporting the DoD Military Interfund Purchase Request (MIPR) process and G-invoicing process as implemented by the MDSF funding management plugin.

Successful performance of the services required under this acquisition requires the vendor to be able to obtain pre-release versions of the COTS product to co-release updated integration modules and plug-ins in conjunction with MDSF upgrades and patch releases. Web2print Experts developed and maintained the DSO plug-ins and extension since DSO inception.

Having access to copies of pre-release versions provides the vendor with the ability to technically analyze and review the new functionality and to understand how the new functionality should best be implemented, deployed and trained prior to the actual release of the MDSF upgrade. Currently the incumbent, Web2Print Experts, and the OEM vendor, eProductivity Software, that has access to the MSDF source code, for the purpose of customization. The source code access to the MDSF code is necessary to support the billing extension in MDSF. The commercial MDSF software application comes with a quote editor that provides the DLA print plant user the ability to create an itemized bill for the print order.

The quote editor was determined to be not well suited to applying the Document Services pricing structure and pricing model. Access to the MDSF code was required to circumvent the quote editor to implement a billing extension that worked in conjunction with the DLA J67 Instruction 7600.1 Pricing Manual.

Additionally, Web2Print is the only source with the knowledge and experience in “hardening” the MDSF environment and protecting the MDSF application and all the plug-ins and extension maintain its security posture and comply with DOD and DLA cybersecurity requirements. Webinspect Scans, SECDEF Vulnerability Disclosure Program (VDP) findings and Penetration Scans have identified vulnerabilities in the MDSF software, and Web2print’s access to the MDSF source code enables them to make changes to how the application responds to malicious users which enables vulnerabilities to be mitigated quickly without impact to the application.

6. DESCRIPTION OF EFFORTS MADE TO ENSURE THAT OFFERS

ARE SOLICITED FROM AS MANY POTENTIAL SOURCES AS IS

PRACTICABLE:

A Request for Information (RFI) was issued on May 24, 2022, on SAM.gov and to JETS vendors in order to ensure a widespread notification of the government’s interest in obtaining support to meet the DSO sustainment and integration requirements. No JETS vendor responded. The SAM.gov RFI resulted in a single vendor response from Web2Print Experts.

Market research had identified the potential of one additional vendor with MDSF experience.

This vendor was the OEM, eProductivity Software. However as documented in Section 5, ePS does not have the necessary experience to fulfill the governments integration and sustainment support for the existing plug-ins. The Request for Proposal (RFP) and this J&A will be publicized in SAM.gov.

7. DETERMINATION BY THE CONTRACTING OFFICER THAT THE

ANTICIPATED COST TO THE GOVERNMENT WILL BE FAIR AND

REASONABLE:

As the Contracting Officer, I hereby determine that pricing will be fair and reasonable based on price analysis in accordance with FAR 15.404-1. It is anticipated that the Government will use various price analysis techniques including, but not limited to: 1) comparison of proposed prices received in response to the solicitation (FAR 15.404- 1(b)(2)(i)); 2) comparison with competitive published price lists (FAR 15.404- 1(a)(2)(iv)); and 3) comparison of proposed prices within prices obtained through market research of the same or similar items (FAR 15.404- 1(b)(2)(vi)) in order to obtain a fair and reasonable price.

8. DESCRIPTION OF THE MARKET RESEARCH CONDUCTED AND THE

RESULTS:

The Program Manager at DLA Enterprise Data Solutions (J62KA) conducted market research from February to May 2022. Market research during this timeframe included an RFI which was issued on May 24, 2022, and inquiries with ePS as part of the marketplace assessment.

Two (2) software development sources were found that had some experience and expertise in MDSF and provided development of and support for MDSF plugins and extensions.

1. eProductivity Services (ePS)

• OEM vendor, ePS, for the commercial software, offers full professional services that services MDSF clients that are looking for custom extensions

2. Web2Print Experts

• Incumbent source.

Although ePS has experience with developing and support MDSF plug-ins and extension, ePS indicated in response to the inquiries that they lacked the expertise or experience in complicated SAP interfaces as supported by the funding plug-in, nor did they have experience with the complex pricing requirements support by the billing extension. For these stated reasons, the vendors indicated they would not be able to offer on the current requirement.

In response to the RFI posted on SAM.gov and via JETS on May 24, 2022, one vendor responded: Web2print Experts.

Web2print was the only response received. The Web2Print capability statement was reviewed by DLA Enterprise Data Solutions (J62KA) and it was determined to have adequately addressed experience or knowledge of the MDSF software per the requirements identified in the draft Performance Work Statement.

9. ANY OTHER FACTS SUPPORTING THE USE OF OTHER THAN FULL AND

OPEN COMPETITION

Using another vendor would require ePS, or any vendor besides Web2Print Experts, several months to get up to speed on how the integration and customization works and be able to provide the needed support. There would be a substantial duplication cost to the government in order for ePS or any other new vendor to ramp up to the needed support. Resulting in schedule delays in government required changes and delays in realizing the costs savings of the scheduled applications migrations.

It would require ePS, and any vendor besides Web2Print Experts, several months to get up to speed on how the integration and customization works and be able to provide the needed support. There would be a substantial duplication cost to the government in order for ePS or any other new vendor to ramp up to the needed support. Resulting in schedule delays in government required changes and delays in realizing the costs savings of the scheduled applications migrations.

10. A LISTING OF THE VENDOR SOURCES, IF ANY, WHICH

EXPRESSED IN WRITING AN INTEREST IN THE ACQUISITION:

In response to the RFI posted on SAM.gov and JETS on May 24, 2022, the following firms expressed an interest in this acquisition:

Web2print Experts Inc.

4104 24th Street, Suite 763 San Francisco, CA 94114

11. A STATEMENT OF THE ACTIONS, IF ANY TO REMOVE OR

OVERCOME BARRIERS TO COMPETITION:

The Government will continuously assess the procurement environment to determine compatibility with DLA requirements and the ability to promote competition to the maximum extent practicable. DLA has and continues to exercise competition as often as possible and is required to conduct ongoing reviews to keep abreast of new technology, both in industry and in the Government as a continuing effort within DLA. DLA uses a variety of vendors, manufacturers and contracts to fulfill its requirements and will continue its practice of surveying the market to ensure full and open competition.

12. CERTIFICATIONS.

Requirements/Technical Certification:

I hereby certify that the support data provided for which I am responsible, and which form a basis for this justification are complete and accurate.

Theresa Hollis DATE IT Project manager DLA Enterprise Data Solution Document Automation and Management (J62KA)

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

Randy Kim DATE Contracting Officer DLA Contracting Services Office - Philadelphia

I have reviewed and approve this justification

Matthew S. Ryan DATE Competition Advocate

DLA Contracting Services Office