JA18-020_Scope_Increase_MOD_1_Redacted.pdf

Page 1 of 9 Pages

MODIFICATION JUSTIFICATION & APPROVAL (J&A)

FEDERAL ACQUISITION

REGULATION (FAR) PART 8 ACQUISITIONS

Multiple Award Schedule (MAS)/Multiple Award Contract

Orders under MAS/General Services Administration Schedules (GSA)/Federal Supply Schedules

(FSS) FAR 8.405-6

Purchase Request Number:

Contract Number: GS-35F-011GA Task/Delivery Order Number: HC104717F0058 Procurement Title: Joint Spectrum Data Repository (JSDR) and Integrated Spectrum Desktop (ISD) Sustainment Estimated Value:

Limited Source Authority: FAR 8.405-6(a)(1)(i)(B)

LIMITED SOURCE JUSTIFICATION

J&A Number: JA18-020 MOD 1

Upon the basis of the following justification, I, as the Procuring Activity Competition Advocate, hereby approve this limited source justification in accordance with FAR 8.405-6(a)(1)(i)(B).

1. REQUIRING AGENCY AND CONTRACTING OFFICE:

Requiring Agency:

Defense Spectrum Organization (DSO) 2004 Turbot Landing, Annapolis

MD 21402-5064

Contracting Office:

Defense Information Systems Agency (DISA) Defense Information Technology Contracting Organization-National Capital Region

(DITCO-NCR – PL63)

P.O. Box 549, Ft. Meade, MD 20755-0549

2. NATURE/DESCRIPTION OF ACTION(S):

MOD 1: The purpose of this modified J&A is to increase the scope of work for JSDR/ISD Sustainment, which addressed requirements under the Global Electromagnetic Spectrum Information System (GEMSIS) Block III phase. The request of work increase is for:

Addition of a surge clause to allow for increase in funding for existing tasks to accommodate potential support requirements as JSDR usage and applications expand.

Increase of other direct costs (ODCs) to cover the out year maintenance of the third party software, Satellite Toolkit (STK) and associated consulting support that was acquired in the Base Year.

Addition of a Subtask 6.2.5 to Task 2 for Extensions of Specialized User

JSDR and ISD Sustainment-

Requests to allow for integration of capabilities to the JSDR baseline to support the extension of spectrum related data capture and data analysis capabilities.

This includes associated IA and System Administration requirements.

Change from RDT&E to O&M of the Option Years for Task 5: JSDR/ISD Test, Training and Deployment Support.

Addition of four Option Years for Task 11 DSO Strategic Planning Division (SPD) Analytics - the SPD funded task.

Change of the name of Task 13 - the Optional Joint Concept Technical Demonstration (JCTD) task - from Joint Electromagnetic Spectrum Operations Battle Management Automation (JBMA) to Electromagnetic Spectrum – Visual Instance of the Environment for Warfighters (EMS-VIEW). The tasking has been revised with an increase in scope. Task 13 would be funded from an external organization (OSD AT&L).

Change in funding profile for Task 13, the Optional JCTD Task from Base and Option Year 1 to Option Year 1 and Option Year 2.

This work is being added in the existing Firm Fixed Price (FFP) with Cost Reimbursable (CR) Travel and ODC’s order, which was awarded to Expression Networks LLC, on 01 June 2017 as a competitive FAR Part 8, total small business set-aside order. The additional work is to be performed under the base year contract, following on the option years. The estimated value for this additional work is making the total estimated life-cycle value .

Original J&A: The purpose of this justification is to increase the scope of work for JJSDR/ISD Sustainment, which addressed requirements under the Global Electromagnetic Spectrum Information System (GEMSIS) Block III phase. The request of work increase is for:

Increase of other direct costs (ODC) for the purchase of additional third party software and associated consulting support.

Continuity of Operations Planning (COOP) increase to include travel, plan inputs, and COOP exercises.

Increase of additional system administration requirement for integration and operation of monitoring, logging tools, compliance tools, implementation & operation of software repository in MilCloud.

This work is being added in the existing Firm Fixed Price (FFP) with Cost Reimbursable (CR) Travel and ODC’s order, which was awarded to Expression Networks LLC, on 01 June 2017 as a competitive FAR Part 8, total small business set-aside order. The additional work is to be performed under the base year contract, following on the option years. The estimated value for this additional work is making the total estimated life-cycle value .

3. DESCRIPTION OF SUPPLIES/SERVICES:

The goal of JSDR/ISD, as well as predecessors JSDR v2.0 and v2.1, is to replace the data storage and user access provided by the legacy Joint Spectrum Center Data Access Web Server (JDAWS) / JSDR version 1 (JSDR v1) (referenced hereafter as JDAWS), on Secure Internet Protocol Router Network (SIPRNet), and Non-classified Internet Protocol Router Network (NIPRNet). JSDR/ISD replicates the functionality of JDAWS, and enables access to the same data sources. JSDR/ISD allows for expandability by allowing easy incorporation of additional

Page 2 of 9 Pages

Page 3 of 9 Pages external data sources due to a flexible architecture, a machine-to-machine interface for data exchange with external systems, and ease of integration of widgets for enabling spectrum operations data access, correlation and analyses functions. Organizations external to GEMSIS are interested in leveraging investments made in JSDR to implement specialized analytical capabilities that may be incorporated into the GEMSIS baseline. These tasks are currently being funded externally using non-GEMSIS funds.

The ongoing JSDR effort contract is:

Contract # GS-35F-011GA, Order #HC104717F0058 Period of Performance: Base: 01 June 2017- 31 May 2018 + four Option Years Method of Acquisition: competitive FAR Part 8, total small business set-aside

GEMSIS has the requirement, as defined in the GEMSIS Life Cycle Sustainment Plan (dated January 2006), to address sustainment of JSDR/ISD. This requirement includes maintaining the usability of JSDR/ISD, incorporation of additional data sources and associated data access, and accelerating the sunset of the legacy JDAWS system. Operation of JDAWS off-line as well as legacy data generation tools will still be required for some period of time for data record creation, pre-processing and population of JSDR/ISD. Sustainment activities consist of data administration activities, system administration and documentation, development of administrative interfaces, automation of data ingest, ingest of additional data sources, and additional user interface customization. Required activities also include training of JSDR/ISD and training of advanced features for the specialized commercial-off-the-shelf (COTS) capabilities within JSDR Unstructured Repository and Business Intelligence components. The JSDR/ISD infrastructure that is being deployed on the SIPRNet and NIPRNet offers potential solutions that could be leveraged across the GEMSIS program, including implementation of interfaces to external spectrum operations applications, implementation of a universal authentication and authorization approach for the GEMSIS applications, and implementation of a common user interface (UI) framework.

MOD 01: This J&A supports the increase of work necessary to maintain the specialized license (Satellite Toolkit (STK)) acquired during the base year in the Option Years; perform an additional Optional Subtask 6.2.5 to allow for extension of JSDR functions; continuation of the SPD Analytics task, Task 12, in the Option Years; change in funding from RDT&E to O&M for Task 5 an increase in scope of the Optional Task for JCTD (to be funded externally) as well as a change in JCTD task timeline from Base and Option Year 1 to Option Year 1 and Option Year 2;

and provide for surge support to accommodate potential increases in support requirements due to expansion of JSDR usage and functionality within DOD agencies.

4. IDENTIFICATION OF LIMITED SOURCE AUTHORITY AND DEMONSTRATIONOF

CONTRACTOR’S UNIQUE QUALIFICATIONS:

(a) Circumstances Justifying Limiting the Source.

FAR 8.405-6 (a)(1)(i)(B), only one source is capable of providing the supplies or services required at the level of quality required because the supplies or services are unique or highly specialized.

(b) Description of the Justification.

This action requires the utilization of Expression Networks in order to meet the critical tasking

Page 4 of 9 Pages requirements pertaining to the operational user’s requirements involving the leveraging of JSDR/ISD’s architecture for additional GEMSIS technical requirements.

Currently, the Expression Networks contract is in the first year of sustainment of JSDRv3 (01 June 2017- 31 May 2018), with four more option year available (01 June 2017- 31 May 2022). Without the increase of work, the mission would suffer great impacts by not being able to implement and maintain the software needed to fulfill the requirements of this project. Additional extensions are required to provide access to new data. The DSO Strategic Planning Division (SPD) requires additional dashboards in the option years due to the success of the implementation of the dashboards in the Base Year. Task 5 for Test, Training, and Deployment support is an O&M cost rather than a RDT&E cost past the Base Year. The JCTD which is anticipated to be funded by OSD AT&L is critical to the Joint Electromagnetic Spectrum Operations requirements effort, expected to inform a future GEMSIS Increment 3. The US Marine Corps and US Army are both stakeholders in the JCTD, as JSDR is planned to provide data to service applications for each service. The GEMSIS program assesses that the most cost and time effective way to obtain the necessary supplemental services within the Block III phase timeframe, is to contract with Expression Networks, LLC to minimize cost, schedule and capability risk to the program. Given the compressed timeframe for a JCTD, it is critical to do under the JSDR contract to leverage already realized configuration management and information operations investments.

Only Expression Networks LLC is capable of successfully completing these requirements, as it has the specific in-place expertise with the following combination of technologies and software components, integration of these technologies and software components in a unified architecture on SIPRNET, the associated security requirements, and also with the spectrum datasets integrated within the JSDR/ISD. In addition when this requirement was re-competed, only two responsive quotes were received, which limits the available sources to provide this urgent support.

(c) Justification:

Minimum Government requirements. This modification addresses three requirements that evolved from the ongoing JSDR work:

o The Director of DISA has requested a quick reaction integration of satellite data and associated analysis extension within JSDR to support near term operational requirements.

o Additional stakeholders are now requesting similar integrations. For example, possible extensions over the POP include a DSO requirement to integrate the Joint Spectrum Interference Reporting Online (JSIRO) data capability within JSDR, a US Navy and US Air Force requirement to support data export to support the Joint Restricted Frequency List (JRFL) data, and extensions to the 4-dimensional visualization capabilities that were integrated as a result of the Director of DISA’s integration effort. This type of integration can be done much faster, efficiently, and with less performance and information assurance risk if performed under the current contract.

Sustainment of the Satellite Toolkit (STK) license acquired in support of the effort for the Director of DISA is a requirement that was inadvertently omitted from the previous modification. This is a yearly recurring cost required to keep the newly integrated capability operational.

Page 5 of 9 Pages o Change in money from RDT&E to O&M in the Option Years for Task 5:

JSDR/ISD Test, Training and Deployment. This work is part of the original contract – but as JSDR is part of the Global Electromagnetic Spectrum Information System (GEMSIS) Increment 2 which reaches final operational capability (FOC) during the Base Year, the Option Years should be O&M for this task.

o Addition of four Option Years for Task 11 DSO Strategic Planning Division (SPD) Analytics - the SPD RDT&E funded task. This task was part of the original contract. Due to the success of the task, SPD would like to continue the task in the Option Years. This work can be done much faster, more efficiently, and with less performance and information assurance risk if performed by the current contractor.

o The JCTD describe in Optional Task 13 has had a name change to EMS-VIEW, change in anticipated period of performance, and addition to scope. Instead of Base and Option Year 1, it will now be Option Year 1 and Option Year 2.

Additionally, the scope of this task has increased to include implementation of data standards which will include design, modeling, taxonomy, and schema documents required to support EMS-VIEW. The contractor will also create REST service endpoints for the service electromagnetic battle management (EMBM) applications to access data from JSDR. The JCTD task was part of the original contract and has evolved since the original writing of the PWS.

Proposed sole source contractor: Expression Networks possesses expert knowledge of the data sources, the technical components of JSDR/ISD, and technical requirements for integration of the necessary components to support the types of integrations that were necessary as a result of the Director’s requirement. It is anticipated that future similar integrations will be required which, due to the modular nature of the JSDR architecture, can be determined to be small, medium, and large integrations. Expression Networks also possesses expert knowledge of system administration, deployment, information assurance, and API requirements to support data export to US Army and US Marine Corps EMBM applications. Contract award to another vendor would result in unacceptable project delays, and substantial duplicative government expense, as there will be a need to duplicate a large portion of the work that has taken place over the past year and half year due to the steep learning curve to understand the complexity of the requirements.

Discussion regarding cause of the limited source situation. This newly established order is a follow on to the previous JSDRv2 development and sustainment service, which was placed as a Sole Source to Expression networks to accomplish the GEMSIS Increment 2 Full Operational Capability (FOC) completion. The newly identified requirements for the JSDR/ISD are time critical, and addressing these separately from the JSDR/ISD sustainment contract would result in inability to continue operation of the Director’s requirement, inability to support additional integrations to JSDR, inability to address DSO SPD’s strategic requirements, and inability to fulfill the requirements of the JCTD which have evolved since the original writing of the PWS for this effort.

Page 6 of 9 Pages

Demonstration of limited source. Expression Networks is the only source that can provide the required services in the time required, as attempting to re-compete the work increase would cause further delays including mission failure to maintain the capability implemented as a result of the Director’s operational requirement, extend the JSDR to meet like requirements, support the strategic requirements of the SPD, support the JCTD to be performed with the US Marine Corps and US Army As identified in Section 4, there are not sufficient vendors available with the capability to successfully provide what is required.

(1) Procurement discussion. The purpose of the modification is to allow the original developer of the application to perform near term integration tasks similar to the Director’s recent operational requirement, the JCTD task, and the SPD task.

Allowing the original vendor to perform the expanded tasking will avoid duplicative substantial learning curve effort, avoid developmental delays, reduce the probability of integration problems, and potentially the introduction of cyber securityvulnerabilities.

(2) Impact. If an exception to small business competition is not granted, the GEMSIS program will not be able to perform the requirements for allowing the JSDR/ISD to be modified to meet urgent operational needs, integrate the JSDR/ISD with the service systems for the JCTD, and supporting additional dashboards for the SPD.

Much government investment has been expended in working to obtain funding for the JCTD over several years by STRATCOM Joint Electronic Warfare Center (JEWC), Air Force Research Lab (AFRL), and the US Marine Corps and US Army, and this investment would be lost if the JSDR is unable to meet the JCTD requirements. Delay would be experienced in providing data access capabilities to the warfighter at a particularly critical time in spectrum operations.

In summary, a delay on the modification of this contract will result in adverse effects on the GEMSIS Program's ability to maintain and address IA concerns for integrated suite of spectrum capabilities in a timely manner. Specifically, it will significantly delay the ability for JSDR/ISD to maintain the critical operational need identified by the Director of DISA, be able to support similar operational needs to access and visualize spectrum data, provide critical capabilities to the SPD strategic analysts, and the ability to perform the data functions required for the JCTD.

5. BEST VALUE DETERMINATION:

(a) This original requirement was competed using FAR part 8, placing an order against a schedule contract. The ordering activity has concluded that this order represents the best value (as defined in FAR 2.101) and results in the lowest overall cost alternative (considering price, special features, administrative costs, etc.) to meet the Government’s needs.

(b) GSA has already determined that prices of supplies, fixed price services, and rates for services offered at hourly rates are fair and reasonable for the purpose of establishing the schedule contract. However, the evaluation criteria being Lowest Price Technically Acceptable (LPTA) determined that the original requirement was the lowest acceptable offeror . Estimates of the additional work will be compared with the original award pricing to ensure fair and reasonable.

Page 7 of 9 Pages

6. MARKET RESEARCH: The Government's GEMSIS PMO technical experts stay current with marketplace developments, which are relative to support services through reviews of available technical documentation, determining the sources that can meet the Government's requirements. The acquisition history along with market research for both the JSDR and ISD was reviewed, and performed during January and February 2016 by the JSDR Contracting Officer Representative (COR) and the Alternate COR, along with input from DSO’s Business Management Office. Multiple presentations from vendors, including small businesses, have taken place over the past year in support of DSO acquisition efforts involving similar scope, magnitude and complexity. These meetings were attended by DSO technical personnel and the Business Management Office. Presentation material was reviewed in support of this effort, and Electromagnetic Spectrum Engineering Services research showed no other vendor has been identified to have the necessary in-place complement of skills, and experience. Consequently, the market research shows that no other company has the capability to provide the required services in a timely, and cost effective fashion for the immediate need. Contracting these services using the JSDR/ISD sustainment contract through Expression Networks LLC, is the only viable approach for meeting the mission requirements at this time. They have the unique expertise necessary to address the specific requirements for the supplemental development, sustainment activities, and JCTD integration.

Based on market research, it has been determined that only the aforementioned product and/or product support for JSDR/ISD can fully support the Governments need. This requirement is for product support and no competitor functional replacement products exist in the market at this time to meet the Government's need. The Government will continue to conduct market research to determine if there are changes in the market place that would enable future competitive actions, i.e. there are similar products and/or product support in the marketplace that provides the same functionality, the original equipment manufacturer releases ownership rights of product, or it is economically feasible to procure a new system.

7. ANY OTHER SUPPORTING FACTS

On-boarding of a new contractor includes hiring, training, conducting background checks, gaining access to Government and military facilities and gaining access to Government systems which will further delay the current program schedule. The estimated impact to the program is that there would be an additional cost to the Government of and a schedule slip of six months.

. The time estimate of six months is based on the amount of time to establish expertise for the JSDR/ISD technology and software components, the extract, translate and load (ETL) processes, data sources, and the IA configuration, as well as the new component to be integrated to JSDR/ISD.

8.ACTIONS THE AGENCY MAY TAKE TO REMOVE BARRIERS THAT LED TO THE

RESTRICTED CONSIDERATION:

(a) Procurement history.

Contract # GS-35F-011GA, Order #HC104717F0058 Dollar Value Total:

Period of Performance: Base: 01 June 2017- 31 May 2018 + four Option Years

Page 8 of 9 Pages

Method of Acquisition: competitive FAR Part 8, total small business set-aside

Contract Number: HC1047-16-C-0003 Lifecycle value:

Exception to full and open competition (OTFAOC) # JA16-075 for Sole Source procurement Type of set aside: N/A, not competed

This effort of development of a modernized JSDR/ISD was necessary to meet the more extensible, dynamic data needs to support Electromagnetic Spectrum Operations (EMSO) and analysis of DoD spectrum usage requirements. This new JSDR/ISD has been incorporated into the GEMSIS ACAT III program of record. The GEMSIS Program Management Office (PMO) delivers capabilities through and evolutionary incremental acquisition approach, and is approaching the Increment 2 Block III Milestone C decision expected March 2018, with FOC to be achieved by 3Q 2018.

Due to the time and cost constraints of completing GEMSIS Increment 2 FOC, it is imperative to acquire as an interim measure, supplemental tasking to the ongoing JSDR/ISD sustainment effort to allow for completion of new items that have been identified to be necessary to support operations, strategic planning, and a JCTD. This will allow GEMSIS to meet other Increment 2 Key System Attributes within the Increment 2 timeframe and post-FOC that have not been able to be successfully addressed through other efforts.

9. REFERENCE TO THE APPROVED ACQUISITION PLAN (AP): In accordance with the exceptions under DARS 7.103(S-91)(1)(viii), an AP is not required.

Page 9 of 9 Pages