JA DSO Sustainment Integration_Redacted.pdf

CUI

Controlled U Source Selection Infor

DEFENSE LOGISTICS AGENCY

DLA CONTRACTING SERVICES OFFICE - PHILADELPHIA

700 ROBBINS AVENUE

PHILADELPHIA, PENNSYLVANIA 19111-5092

JUSTIFICATION & APPROVAL FOR OTHER THAN FULL & OPEN COMPETITION

(OTFOC)

1. IDENTIFICATION OF THE AGENCY & CONTRACTING ACTIVITY

Requiring Activity:

Defense Logistics Agency (DLA) Enterprise Data Solutions (J62KA)

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, integration support, and development of additional custom DSO Plug-Ins in support of the Document Services Online (DSO) platform.

The IT services required under this acquisition are twofold:

1. Support the six (6) DSO Plug-Ins built over the last decade are required for the COTS product MarketDirect StoreFront (MDSF) provided by eProductivity Software (ePS) to meet the unique print and digital communication requirements of DLA Document Services.

2. Continue to extend the DSO platform to meet the rationalization needs of DLA Document Services, reducing duplicate solutions and enabling the transition from print centric

Controlled Unclassified Information (CUI)

Source Selection Information – SEE FAR 2.101 AND 3.104 communication to digital centric communication by developing additional custom DSO Plug-Ins to MDSF as required.

The development of these extensions to MDSF requires access to the MDSF product software source code, this access has been granted exclusively to eProductivity Software (ePS). has been providing services to DLA Document Services for the extension of DSO since the COTS product was procured by DLA Document Services in 2010C.

The government anticipates awarding a fixed-firm price, sole source contract to with a total five (5) year period of performance as shown below:

Proposed Period of Performance Base Period: October 1, 2025 – September 30, 2026 (12 Months) Option Period 1: October 1, 2026 – September 30, 2027 (12 Months) Option Period 2: October 1, 2027 – September 30, 2028 (12 Months) Option Period 3: October 1, 2028 – September 30, 2029 (12 Months) Option Period 4: October 1, 2029 – September 30, 2030 (12 Months)

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

NEEDS/ESTIMATED DOLLAR AMOUNT.

Document Services Online (DSO) is the centralized IT platform which DLA Document Services utilizes to place, process, and fulfill all print and digital download orders as well as facilitating the Government funding management and billing into DLA’s Enterprise Business System (EBS). The DSO platform is a foundational tool for facilitating the transition and modernization of DLA Document Services from a print centric communication to a digital centric communication organization. The DSO platform is the platform that is enabling the rationalization of duplicative IT solutions for the dissemination of print and digital communication across DLA, some examples of platforms that have been rationalized in the past are the Air Force Tech Orders (TODPG) and currently in progress the Department of Navy Forms Repository.

DSO consists of two components: the commercial-off-the-shelf (COTS) software application called Market Direct StoreFront (MDSF) provided by the commercial company eProductivity Software (ePS) and a set of custom DSO Plug-Ins that are required to support the Government’s unique requirements which were designed and developed by . in collaboration with DLA Document Services and J62KA.

MDSF is the leading commercial web-to-print solution (print e-commerce) that provides an online platform for requesting, processing, and fulfilling print orders via a web application. The MDSF functionality, along with the DSO Plug-Ins, supports the J67 Document Services mission of the

Source Selection Information – SEE FAR 2.101 AND 3.104 management, fulfillment and billing of print jobs ordered from various Army, Air Force, Navy and DoD Customers according to the policy set forth in DoD Instruction 5330.03 establishing DLA Document Services as the single agency in the DoD providing integrated management of document service on behalf of DoD components.

To satisfy the unique requirements of the Government, a total of six (6) Plug-Ins to the commercial MDSF software application were developed or are in the process of being developed by the Government contractor Inc and another major DSO Plug-In is planned for 2026 – ICAM. ICAM is a required DoD project, short for Identity, Credential, and Access Management, a comprehensive program aimed at establishing a secure and efficient system for managing user access to DoD information resources and systems. This project will require coordinated code changes by both the COTS vendor ePS and the custom DSO Plug-Ins.

The DSO Plug-Ins extend the functionality of the COTS product to fill in the gaps between what the commercial market requires and the unique requirements of DLA Document Services.

Existing DSO Plug-Ins

1. Billing Module & Workflow (2012, major updates in 2014 and 2023)

2. Funding Management & Workflow (2014)

3. DOD PKI CAC Interface (2014)

4. DLA Enterprise Business Systems (EBS) Interface (2014)

5. Government Printing Office (GPO) Federal Express (FedEx) Interface (2019)

6. Navy Forms Repository (in progress 2025)

Known Future & Potential Future DSO Plug-Ins

1. FUTURE: ICAM (planned for development in 2026)

2. FUTURE: Message Manager (potentially planned for 2026-27)

The sustainment and maintenance efforts of the DSO Plug-Ins require extensive tacit knowledge of the COTS product MDSF, DLA Document Services operations and IT infrastructure, as well as deep industry knowledge of large-scale web-to-print solutions (the unique requirements of print e-commerce ordering and fulfillment). Over the past fifteen (15) years, . has provided custom DSO Plug-In services initially as a subcontractor to the COTS vendor and presently as a prime under a sole source contract. DLA requires continued sustainment and integration support for the existing DSO Plug- Ins and the building of future DSO Plugs-Ins and extensions into MDSF.

The DSO Plug-Ins and extensions incorporated in the COTS software make DLA’s instance of MDSF a unique product with unique capabilities. DLA Document Services’ strategy was to maximize the value

Source Selection Information – SEE FAR 2.101 AND 3.104 incumbent, has the necessary expertise to successfully support the current requirement. ePS did not respond to the Government’s previous RFI’s regarding DLA’s need for integration and sustainment support for DSO.

The integration is a translation layer between how MDSF prices and how DLA Document Services prices according to Document Services Pricing Manual, INST 76000.1U. The integration requires deep knowledge of the complexity of the Document Services pricing process and Government unique funding methods which ePS has no experience with. Only Web2Print Experts, Inc., has the unique experience in understanding and supporting the DoD Military Interfund Purchase Request (MIPR) process and G-invoicing process as implemented by the DSO Plug-In.

company whose singular niche is web-to-print strategy, custom software development, implementation and configuration support, and consulting.

is known in the print industry for executing on the most complex and largest scale web-to-print software solutions.

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 DSO Plug- Ins in conjunction with MDSF upgrades and patch releases. developed and maintained the DSO Plug-Ins and extension since DSO’s 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, , are the only entities with 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, . is the only source with the knowledge and experience in “hardening” the MDSF environment and protecting the MDSF application and all the DSO 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 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. A DESCRIPTION OF EFFORTS MADE TO ENSURE THAT OFFERS ARE SOLICITED

FROM AS MANY POTENTIAL SOURCES AS IS PRACTICABLE, INCLUDING WHETHER

A NOTICE WAS OR WILL BE PUBLICIZED AS REQUIRED BY SUBPART 5.2

Source Selection Information – SEE FAR 2.101 AND 3.104

The Government issued a Request for Information (RFI) in July 2025 on SAM.gov in order to ensure widespread notification of the Government's interest. Two vendors replied, Web2Print Experts, Inc. and Begini Howard Private Equity. Begini Howard Private Equity did not complete the requested answers or provide any additional information that would demonstrate their qualification for the RFI. Market research has identified the potential of one additional vendor with MDSF experience. This vendor is the OEM, eProductivity Software. However, as documented in this J&A, ePS do not have the necessary experience to fulfill the government’s integration and sustainment support for the existing DSO Plug-Ins.

7. A 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. A DESCRIPTION OF THE MARKET RESEARCH CONDUCTED AND THE RESULTS

In 2025 extensive market research was conducted to determine if there were any other qualified Government contractors that have access to MDSF source code, tacit knowledge of DLA Document Services integration requirements, and experience with the DSO platform. The results of this market research confirmed that only entity in both the government and commercial sectors with access to the MDSF source code. Perhaps more importantly, ePS will only release the source code to their software to web2Print.

In the market research we also inquired with ePS if they have any intention in providing MDSF source code access to any other entities in the future. ePS stated that they made a one-time exception for source code access to support DLA’s unique requirements. They have no plans to provide source code access to MDSF to any other entities in the future.

There are just two (2) software development sources 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 for MDSF, offers professional services

2. Web2Print Experts: incumbent source

Although ePS clearly have experience and expertise in their own product MDSF, the DSO Plug-Ins require a tacit knowledge of DLA Document Services pricing, Government funding, and the Enterprise Business System (EBS) where all print orders are billed through. ePS is a company that targets the commercial sector, DLA is one of their only government customers. Over the 10+ years of this COTS product’s lifespan the government has had to constantly teach ePS about how the government is different than the commercial sector. ePS have no plans to move into the government sector in any larger way.

The 2025 market research also uncovered that the transition from print to digital communication is

Source Selection Information – SEE FAR 2.101 AND 3.104 impacting the number of suppliers of print-specific technology consultants and technology providers. As the world moves more to digital communication, our technology choices in supporting printed communication will decrease.

9. ANY OTHER FACTS SUPPORTING THE USE OF OTHER THAN FULL & OPEN

COMPETITION

Using another vendor in place of would require a steep learning curve that would likely result in significant delays in the development of new capabilities as well as a significant risk in handling production issues with existing functionality. There would be a substantial duplication cost to the Government for a new vendor to ramp up, resulting in delays in Government required changes and delays in realizing the costs savings of the scheduled applications migrations (rationalizations).

The integration layer built on top of MDSF by has been developed over 10+ years. It is the translator between the COTS product MDSF and the unique requirements of government funding.

This is the revenue flow from the services DLA Document Services provides and the funding accessed via EBS. Any break in service of this funding flow will impact DLA Document Services overall mission.

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 in July 2025 the following firms expressed an interest in this acquisition: Web2print Experts Inc and Begini Howard Private Equity.

11. A STATEMENT OF THE ACTIONS THE AGENCY MAY TAKE TO REMOVE OR

OVERCOME BARRIERS TO COMPETITION

As DLA Document Services continues their modernization and optimization transition from print communication to digital communication, the DSO platform will naturally require less print-specific expertise and more digital expertise. The Government views these next five (5) years as the final transitional period of requiring a sole-source contract. As the requirement for deep tacit knowledge of “web-to-print” the unique requirements of specifying and procuring print products online continues to decline, it will allow this contract to be opened to full competition for other Government contractors (e.g.

JETS Contractors) whose expertise is primarily digital in nature.

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

Technical Certification:

Source Selection Information – SEE FAR 2.101 AND 3.104

I certify that the supporting data under my cognizance and which form a basis for this justification are accurate and complete to the best of my knowledge and belief.

DSO Project Manager

Contracting Officer Certification:

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

Contracting Officer DLA Contracting Services Office – Philadelphia

Competition Advocate Certification:

I have reviewed and approve this justification

Competition Advocate DLA Contracting Services Office