JA REDACTED 24C0022.docx

JUSTIFICATION REVIEW DOCUMENT

for Other than Full and Open Competition - FAR Part 6

Programs/Equipment: Human Systems Integration (HSI) Services for U.S. Army Combat Capabilities Development Command (DEVCOM), DEVCOM Analysis Center (DAC), Human Systems Integration Division (HSID).

Authority: 10 U.S.C. 3204(a)(5) as implemented by FAR Part 6.302-5(b)(7) – Sole Source Award Under the Women Owned Small Business (WOSB) Program

Amount: $4,397,224.72

Technical: REDACTED Phone: REDACTED DAC; HSID Air & C2 Systems Branch Date: 5/14/2024 Email: REDACTED

Requirements: REDACTED Phone: REDACTED Chief; Air & C2 Systems Branch Date: 5/14/2024 Email: REDACTED

Controlled by: U.S. Army Controlled by: ACC-APG CUI Category: General Procurement & Acquisition Dissemination Control: Distribution Statement D POC: Lee E. Troope, Jr., 520-672-9985

DESTRUCTION NOTICE: For unclassified, limited documents, destroy by any method that will prevent disclosure of contents or reconstruction of the document.

DISTRIBUTION STATEMENT D: This contract deliverables or information generated are approved for Distribution D. Distribution authorized to Department of Defense and U.S. DoD contractors for critical technology on 20 May 2024. Other requests for this document shall be referred to REDACTED.

Reviews

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

Program Manager:

Legal Counsel:

CUI Control No: JA-24-Adel-707

CUI

Justification and Approval for Other than Full and Open Competition – FAR Part 6

1. Contracting Activity: The U.S. Army Contracting Command - Aberdeen Proving Ground (ACC-APG), Adelphi Contracting Division, (CCAP-MDI), 2800 Powder Mill Road, Adelphi, MD 20783

2. Description of Action: The U.S. Army Combat Capabilities Development Command (DEVCOM), DEVCOM Analysis Center (DAC), Human Systems Integration Division (HSID) requests a follow-on one (1) base year plus a one (1) year option, Cost-Plus-Fixed-Fee (CPFF) contract with a women-owned small business (WOSB). DAC HSID requests a sole source award with Man-Machine Systems Assessment (MSA), Incorporated located at 11001 Gary Player DR, El Paso, TX 79935-3911. The Government projects award for September 2024 and Fiscal Year (FY) 2023/2024 and FY 2024/2025 Research, Development, Test and Evaluation (RDT&E) funds will be used.

X An acquisition plan is not required because this procurement either does not meet the threshold at Defense Federal Acquisition Regulation Supplement 207.103(d)(i) or is an R&D acquisition and does not meet the definition of services in 10 U.S.C. 4501(d)(2).

3. Description of Supplies/Services: The DAC requires Human Systems Integration (HSI) assessment, research, and analysis services to support Army System Acquisition and research. These services will provide general HSI support to the DAC HSID mission, which includes conducting HSI assessments, evaluations, and research for Army programs.

The requirements for this effort include:

· Active Top Secret/SCI Facility Clearance

· HSI assessments and evaluations

· Research in HSI

· Test planning and execution

· System analysis

· Representation of HSI at various meetings

· Database support and modeling

The outputs of these services will include technical reports and documentation that support the DAC's assessment, analysis, and research mission. The focus will be on HSI in relation to Army modernization programs. The DAC HSID mission uniquely involves Soldier touchpoints throughout the system lifecycle, from pre-system demonstration stages through to acquisition and field deployment.

The planning components discussed in this section refer to:

· Analysis planning

· Applied research planning and objectives

· Assessment design and execution planning for all phases of HSI throughout the system lifecycle.

This comprehensive approach ensures that HSI considerations are integrated into Army systems from early development stages through to operational deployment.

The HSI Analysis Domain encompasses responsibilities for analysis, system development enhancement, experimentation, and applied research. These efforts focus on developing materiel and non-materiel solutions to optimize human system performance, reduce Soldier injury and life cycle costs, and maximize Force Readiness.

The DAC provides HSI analysis, development, assessment, and test support to Program Executive Offices (PEOs), the Rapid Capabilities and Critical Technologies Office (RCCTO), and the U.S. Army Test and Evaluation Command (ATEC). In collaboration with these offices, the DAC ensures timely support for Army modernization initiatives, with a focus on, but not limited to, the following areas:

· Long-range precision fires

· Next-generation combat vehicles

· Future vertical lift platforms

· Mobile & expeditionary Army networks

· Air and Missile Defense (AMD) capabilities

· Soldier lethality

Key areas of HSI assessment include manpower, personnel, training, human factors, safety, cognitive readiness, situational awareness, anthropometrics, and workload. This initiative requires a systems approach to examine usability, functionality, and Soldier performance from both operator and staff perspectives. The HSI assessments, analyses, and research will employ both qualitative and quantitative methods to provide comprehensive support.

Base Period: 01 September 2024 to 31 August 2025 Value: $REDACTED

Option Period 1: 01 September 2025 to 31 August 2026 Value: $REDACTED

Total Value: $REDACTED

REDACTED

4. Authority Cited: 10 U.S.C. 3204(a)(5) as implemented by FAR Part 6.302-5(b)(7) – Sole Source Award Under the Women Owned Small Business (WOSB) Program

5. Reason for Authority Cited: In accordance with FAR 19.1506, both the Small Business Professional and the Contracting Officer have confirmed the following:

(1) This requirement assigned under NAICS code 541990 - All Other Professional, Scientific, and Technical Services, is substantially underrepresented in Federal Procurement with respect to WOSB concerns. The Small Business Professional provided evidence of the WOSB concerns being underrepresented on 16 June 2024. Additionally, Congress requires the Small Business Administration (SBA) to conduct a study every five (5) years. See the following link: Eligible NAICS for the Women-Owned Small Business Federal Contracting program | U.S. Small Business Administration https://www.sba.gov/document/support-eligible-naics-women-owned-small-business-federal-contracting-program

(2) As further described below, there is not a reasonable expectation that offers would be received from two (2) or more WOSB small business concerns (including EDWOSB concerns) based on extensive recent and relevant market research.

(3) The anticipated price of the contract, including options, will not exceed the $4.5 million threshold for a WOSB sole source utilizing a non-manufacturing NAICS.

(4) The WOSB concern has been determined to be a responsible contractor with respect to performance. MSA, Inc. has adequate resources to perform the contract, or the ability to obtain them. MSA is currently providing these services under Contract REDACTED, and there have been no issues with performance to date. The Federal Awardee Performance and Integrity Information System (FAPIIS) was checked at https://www.cpars.gov/ on 14 August 2024. There are no records that indicate MSA, Inc. has any integrity and business ethics issues. MSA, Inc. record reflects no negative reporting indicating a record of satisfactory performance in View Performance Records denoted in the Contract Performance Assessment Reporting System (CPARS) Assessment Reports (https://www.cpars.gov/) on 14 August 2024. The Excluded Parties List System (EPLS) was accessed via the internet at https://www.sam.gov on 24 July 2024. EPLS does not list MSA, Inc. as being debarred, suspended, or otherwise declared ineligible for award by any Federal agency.

(5) The proposed award can be and will be made at a fair and reasonable price. The proposal will be reviewed and determined to be fair and reasonable prior to award. A Certificate of Current Price or Costing data will be obtained prior to award. A cost analysis consisting of approved/provisional rates and escalated rates from BLS.gov will be conducted by the Adelphi Contracting Division to ensure the Government obtains a fair and reasonable price for this requirement. The Government will also use cost realism to compare the rates provided against work already performed from the previously completed contract: REDACTED. Additionally, the Government intends to review these labor rates against Buy GSA and compare them to ensure all rate adjustments made are fair and reasonable.

MSA, Inc. is an SBA certified WOSB concern and is eligible for a sole source contract award under the applicable laws and regulations cited above. Certification date: 11 August 2021. Additionally, the DD2579 verifying MSA Inc.’s SBA WOSB status and concurring with the proposed WOSB program sole source strategy was approved on 14 August 2024 contingent upon J&A approval. SAM was checked at https://www.sam.gov on 31 July 2024 and shows MSA, Inc. is currently registered and reflects active reporting. MSA, Inc. has complied with Offeror Representations and Certifications – Commercial Items, the Online Representations and Certifications Application (ORCA) at https://www.sam.gov was checked on 31 July 2024 to verify that MSA, Inc. has complied with the requirement to complete their annual representations and certificates. MSA. Inc. is currently registered in ORCA until 15 July 2025.

MSA, Inc. has the capability to meet the Government’s requirement for this contract because it has the unique experience working with the DAC HSI research, assessment and analysis on Army systems, specifically the complex, highly automated Air and Missile (AMD) Systems command and control capabilities. Their in-depth technical specific system knowledge of the systems, knowledge of the HSI theory and principles, along with knowledge of Soldier capabilities and limitations, allows for the assessment, evaluation and analysis of the next generation of Army systems. MSA, Inc. has the capability to meet the Government’s requirement for this contract because it possesses the experience and knowledge of HSI theory, system technical knowledge and Soldier capabilities, and limitations integrated. They also have the necessary organizational structure, experience, accounting and operational controls, technical skills and necessary equipment or the ability to obtain them. MSA, Inc. specifically has:

1. Experience in assessing manpower, personnel, training, human factors, safety, cognitive readiness, situational awareness, anthropometric and workload for key HSI assessment, research, analysis and evaluation areas.

2. Knowledge of Army Evaluation Center (AEC) and Operational Test Command’s ((ATEC) (OTC)) suitability T&E process, regulations, data collection, survey development, data storage, briefing and reporting procedures, and processes.

3. Knowledge and experience in HSI assessments of missile defense, aviation, Army’s Enterprise Research Planning, Ground Combat vehicles, and the Army set of C4ISR Systems.

4. Experience with Integrated AMD from the HSI perspective.

5. Expertise in Access databases, Statistical Analysis System (SAS), Structured Query Language (SQL), Python and Microsoft office products and how they integrate.

6. Knowledge and experience with Army HSI regulations and procedures.

7. Experience working with Director, Operation Test & Evaluation (DOT&E) and meeting their requirements from an HSI perspective.

8. Experienced with planning and executing HSI research for future Army modernization.

Moreover, MSA, Inc. has the capability to meet the Government’s requirement for this contract because it possesses more than a decade of experience supporting HSI for program mangers (PMs), RCCTO, DOT&E, and ATEC and has successfully performed similar work as the prime contractor under contract REDACTED. MSA, Inc. has a satisfactory record of integrity and business ethics taking into consideration all existing governmental business commitments and based upon work accomplished under REDACTED. There is no indication that MSA, Inc. will not be able to comply with the required performance schedule.

MSA has the HSI expertise, along with the theoretical knowledge to support HSI assessments, research and evaluations. If the proposed requirement is not fulfilled by MSA, Inc., DAC HSI support to PEOs, RCCTO, DOT&E and ATEC will be severely hindered and DAC will not be equipped to continue supporting Army Regulation (AR) 602-2 – “Human Systems Integration in the System Acquisition Process” and the role of the human in the Department of Defense (DoD) acquisition process. This could result in fielding systems that are ineffective or unsafe for use by Government personnel. In 2023, the DAC HSI Division provided developmental input to 12 of the 13 PEOs, participated in over 408 Soldier Touch Points, 12 HSI assessments and evaluations on numerous programs and numerous research initiatives. To continue to support all these programs which was over 180 systems, surge personnel with HSI expertise are required. Contracting with MSA, Inc. who is an experienced and qualified provider of these services will ensure continued success for these programs.

HSI assessments, development suggestions, analysis and evaluations provide mitigations, benefits and improvements to Army Systems that make them usable, safe and trainable. Examples of potential issues that may not be mitigated if HSI input is not provided include 1. Soldier system interface designs that mitigate fratricide. 2. Soldier system interface designs that improve system performance; and 3. Safety issues.

Therefore, it is in the best interest of the Government to sole source to MSA, Inc. for the required HSI field evaluation services.

6. Efforts to Obtain Competition: In accordance with FAR 5.201, a Notice of Intent to Sole Source - Synopsis was posted to SAM.gov from 18 July 2024 to 08 August 2024. To date, no capability statements or responses have been received. Based on the aforementioned, MSA, Inc. is the only WOSB capable of providing Human Systems Integration (HSI) Field Evaluation Services for Army System Acquisition as detailed in Section 5 above. As required by FAR 5.201, any other bids or proposals received shall be forwarded to the approving official for consideration, and should additional information be received prior to award, it will also be considered.

a. Effective Competition: Effective competition is not anticipated for this effort based on the market research (see Section 8) performed that has failed to identify any alternative companies capable of satisfying the Government’s requirements for Army HSI. Because this is a WOSB sole source and only one (1) capable WOSB was identified upon conclusion of the Dynamic SBS Sources Sought, effective competition is not applicable.

b. Subcontracting Competition: MSA, Inc. is a WOSB small business; therefore, a subcontracting plan is not required. However, MSA, Inc. will be encouraged to utilize small businesses for subcontracting opportunities to the maximum extent practicable.

This justification will be made available within 14 days after contract award in accordance with (IAW) FAR 6.305(a) and will remain posted for a minimum of 30 days IAW FAR 6.305(d).

7. Actions to Increase Competition: The Government will continue to monitor the market for future acquisitions of HSI Field Evaluation Services for Army System Acquisition. Should a new WOSB source emerge that can meet the Government’s minimum requirements, future procurements will be conducted on a competitive basis to ensure fair opportunities for all qualified vendors.

8. Market Research: Market Research was conducted in May 2024 by the technical office. Market research was conducted via querying Government-wide databases of contracts and other procurement instruments intended for use by multiple agencies and other subject matter experts (SMEs), conducting interchange meetings, reviewing historical data for REDACTED, and reviewing GSA schedules.

The exclusions for WOSB Concerns identified in FAR Subpart 19.1504 were considered and determined, by the Adelphi Contracting Division on 17 June 2024, to not apply:

A. Federal Prison Industries, Inc: The required services are not on the UNICOR list of supplies and services found at Website http://www.unicor.

B. Ability One participating non-profit agencies for the blind or severely disabled: The required services are not applicable to the services provided on the Procurement List at http://www.abilityone.gov.

C. Orders under indefinite-delivery contracts: This is not an order against an existing indefinite-delivery contract.

D. Orders against Federal Supply Schedules: This is not an order against an existing Federal Supply Schedule.

E. The requirement is not currently being performed by an 8(a) participant under the provisions of subpart 19.8 or has been accepted as a requirement by SBA under subpart 19.8.

F. The acquisition exceeds the micro-purchase threshold and is greater than the simplified acquisition threshold.

G. Requirements for commissary or exchange resale items is not applicable.

On June 17, 2024, the Contracting Officer conducted a Small Business Administration (SBA) Dynamic Search to identify multiple sources for HSI Field Evaluation Services by targeting firms under the NAICS Code 541990. The search criteria specified firms that are at least women-owned, WOSB (Women-Owned Small Business), WOSB joint ventures, and/or EDWOSB (Economically Disadvantaged Women-Owned Small Business) joint ventures.

Several hundred companies met these criteria, and on the same day, emails were sent to all identified firms. The emails included the following information and had a response deadline of June 30, 2024:

1. Introduction: A brief introduction explaining the purpose of the communication, highlighting the Contracting Officer's interest in engaging with WOSB and EDWOSB firms.

2. Opportunity Details: Information about the upcoming procurement opportunity, including a general description of the services or products required, the anticipated scope of work, and any relevant technical or performance requirements (Draft Performance Work Statement (PWS).

3. Eligibility Criteria: A reminder of the eligibility requirements, specifically that the procurement is targeted toward WOSB and EDWOSB firms, and an invitation for interested and qualified firms to respond.

4. Response Instructions: Clear instructions on how to respond, including the information that should be included in the response (such as capabilities statements, past performance references, company name, CAGE Code, Point of Contact (POC) name, email, and phone number, and any certifications related to WOSB/EDWOSB status).

5. Key Components of HSI Requirement: (1) Human factors engineering - focus on designing systems that accommodate abilities and limitations to enhance performance and reduce errors., (2) Personnel - ensures that the right people with the right skills are available to operate, maintain, and support the system., (3) Training – develops effective training programs to ensure that users can efficiently and safely operate the system, (4) Manpower – determines the number and type of personnel required to operate and support the system., (5) Health and safety – addresses the health and safety of users, aiming to minimize risks and enhance the well-being of personnel, (6) Habitability – considers the physical and environmental conditions that affect the comfort and quality of life for users, (7) Survivability – ensures that systems can be operated safely under adverse conditions and that users are protected from potential hazards, and (8) Human-computer interaction (HCI) – focuses on the design of interfaces between people and computers, ensuring they are intuitive and effective.

6. Additional Questions: (1) Does your company have relevant past performance with Army DEVCOM Analysis Center (DAC)? (2) Is your organization equipped to work remotely? (3) are you SOC (System and Organization Controls) compliant/certified? (4) Are you ISO (International Organization for Standardization) certified? (5) How much of this requirement would your company need to subcontract? (6) Who are your company’s five (5) biggest customers? (7) Provide examples of relevant past performance with Army DEVCOM DAC or similar requirements? (8) What technology do you use to ensure excellent customer communication and experience? (9) Describe your approach to continuous process improvement? (10) Outline your company’s training and onboarding process. (11) Does your company have Standard Operating Procedures (SOP) for the change management process? If so, briefly outline the steps. (12) What procedures does your company have for managing customer requests, complaints, concerns, and feedback? and (13) Explain your ability to provide progress tracking to ensure program success.

7. Deadline: A firm deadline of June 30, 2024, for submitting responses, with a note emphasizing the importance of meeting this deadline to be considered for the opportunity.

This outreach aimed to ensure a broad and inclusive response from the WOSB and EDWOSB communities, facilitating the identification of capable and qualified firms for the procurement.

In response to the inquiry emails, the Contracting Office received capability statements from 42 companies. The below table illustrates the results of the Dynamic Small Business Search and technical review of the companies that meet the go / no-go criterion of REDACTED:

REDACTED

9. Interested Sources:

Please see the list of interested sources in the table under Section 8 – Market Research.

10. Other Facts:

a. Procurement History

Contract: REDACTED Contractor: MSA, Inc.

Award Date: REDACTED Period of Performance: REDACTED Dollar Value: REDACTED Competitive Status: Non-Competitive; WOSB Sole Source Authority: 10 U.S.C. 2304(c)(5) as implemented by FAR Part 6.302-5 -- Authorized or Required by Statute. (Refer to FAR Part 6.302-5(b) for specific US Code authorities for purchasing from mandatory sources identified in FAR Part 19.15 Women Owned Small Business (WOSB) Program)

Contract: REDACTED Contractor: MSA, Inc.

Award Date: REDACTED Period of Performance: REDACTED Dollar Value: REDACTED Competitive Status: Non-Competitive; WOSB Sole Source Authority: 10 U.S.C. 2304(c)(5) as implemented by FAR Part 6.302-5 -- Authorized or Required by Statute. (Refer to FAR Part 6.302-5(b) for specific US Code authorities for purchasing from mandatory sources identified in FAR Part 19.15 Women Owned Small Business (WOSB) Program)

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.

Signer’s Title: REDACTED, Air and C2 Systems Branch

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.

Signer’s Title: REDACTED: Chief; Air and C2 Systems Branch

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.

As the required Human Systems Integration (HSI) Field Evaluation Services for Army System Acquisition is non-commercial, the Contracting Officer shall require submission of cost or pricing data per FAR 15.403-1(b)(3). Market analysis of the prices being offered, and evidence of previous contracts issued for same/similar services/efforts will also be compared and used for the basis of determining price reasonableness

This determination will be made using the following:

X Cost analysis __ Price analysis __ Should cost

X IGE

__ Audit:

__ Other:

As a part of this basis, certified cost or pricing data:

X Will be required.

__ Will not be required and the following exception applies (FAR 15.403):

__ Prices that will be agreed upon are based on adequate price competition.

__ Prices that will be agreed upon are based on prices set by law or regulation.

__ A commercial item is being acquired.

__ A waiver has been granted by the head of the contracting activity (HCA) in accordance with DFARS PGI 215.403-1.

__ The contract action is a modification to a contract or subcontract for commercial item(s).

__ The estimated cost of the contract action is less than the threshold for certified cost or pricing data.

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

Approval

Based on the foregoing justification, I hereby approve the procurement of Human Systems Integration (HSI) Services for U.S. Army Combat Capabilities Development Command (DEVCOM), DEVCOM Analysis Center (DAC), Human Systems Integration Division (HSID) for an estimate of $REDACTE4D on an other than full and open competition basis pursuant to the authority of 10 U.S.C. 3204(a)(5) as implemented by FAR Part 6.302-5(b)(7) – Sole Source Award Under the Women Owned Small Business (WOSB) Program, subject to availability of funds, and provided that the services and property herein described have otherwise been authorized for this acquisition.

(End of J&A)

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