JA18-118_UCCO_and_DISN_CM_Support_JA_Redacted.pdf

JUSTIFICATION & APPROVAL (J&A) FOR FEDERAL ACQUISITION

REGULATION (FAR) SUBPART 16.5 ACQUISITIONS

EXCEPTION TO FAIR OPPORTUNITY

Multiple Award Schedule/Multiple Award Contract (MAC)

Orders under MAC/ Fair Opportunity – FAR 16.505, Department of Defense FAR Supplement (DFARS) 216.505-70, Procedures, Guidance and Information (PGI) 216.505-70

Purchase Request Number: Not Applicable (N/A) Contract Number: GS06F0621Z Task Order Number: HC1028-13-F-0062 Procurement Title: Unified Capabilities Certification Office (UCCO) and Defense Information System Network (DISN) Configuration Management (CM) Support.

Estimated Value:

Authority: FAR 16.505(b)(2)(i)(C)

JUSTIFICATION FOR AN EXCEPTION TO FAIR OPPORTUNITY

Number: JA18-118

Upon the basis of the following justification, I, as the Procuring Activity Competition Advocate, hereby approve this exception to fair opportunity pursuant to the authority of FAR 16.505(b)(2)(i)(C).

1. REQUIRING AGENCY AND CONTRACTING OFFICE:

Requesting Agency: Defense Information Systems Agency (DISA)/Infrastructure Directorate (IE), 6910 Cooper Avenue, Fort Meade, MD 20755-7088

Contracting Activity: DISA/Defense Information Technology Contracting Organization (DITCO), PL8313, 2300 East Drive, Building 3600, Scott AFB, IL 62225

2. NATURE/DESCRIPTION OF ACTION(S):

The purpose of this bridge modification is to extend the current support for UCCO and DISN CM Support (task order HC1028-13-F-0062, ECS Federal LLC) until the follow-on acquisition, which is currently being solicited, can be awarded. The period of performance (PoP) for the bridge is a two-month base period, with four, one-month options. The estimated cost of the firm fixed price requirement is and will utilize a variety of appropriated and non-appropriated (i.e., Defense Working Capital Funds) funding sources from DISA and other mission partners.

3. DESCRIPTION OF SUPPLIES/SERVICES:

This action is primarily for deliverables as instructed by the Department of Defense Instruction (DoDI) 8100.04, DoD Unified Capabilities (UC), and the Chairman of the Joint Chiefs of Staff Instruction (CJCSI) 6215.02D, Policy for Department of Defense Voice Networks with Real Time Services, which state that DISA will maintain a list of products that provide or support UC. This policy directs the DISN Single System Manager to provide C2 performance, vulnerability, technology migration, & configuration management

UCCO DISN CM Support-JA18-118

Page 2 of 7 Pages assessments and reports to the Assistant Secretary of Defense for Networks and Implementation Integration and the Joint Staff (JS) on a periodic basis.

The UCCO acts as the primary staff element to manage the DoD UC Approved Products List (APL) Process for DISA’s Implementation and Sustainment Center (ISC). The UCCO provides communication and coordination among the Office of the Secretary of Defense (OSD) and DoD Component testing labs, the appropriate Interoperability (IO) /Information Assurance (IA) test teams, sponsors and vendors to facilitate the APL Process and assist in successful IO / IA testing for Military and Government sponsors. In support of this task, the UCCO will maintain and operate the APL Integrated Tracking System (APLITS), a web-based database system that tracks and stores information regarding DoD UC APL IO / IA testing status to include real-time vendor product Plans of Action and Milestones (POAM).

Additionally, the UCCO will provide resource(s) to attend the DISN Security Accreditation Working Group (DSAWG) for certification approval when needed. The DoD UCCO supports the Government by updating operational procedures for the Office and supporting vendors and sponsors in achieving APL status by scheduling and tracking testing activities for interoperability and information assurance.

The objective of this effort is also to provide CM assessment, planning, development, implementation, and project management in support of the DISN. The contractor shall identify and support, and when approved by the government, provide and maintain a systematic means of collecting Government-directed DISN configuration items, generate Government-directed reports, and identify and control changes to the DISN. The contractor shall support the Government in the development and coordination of required DISN CM processes and procedures with the Services/Agencies (S/A), and other authorized users of the DISN. The facilitation of process development and communication between these parties will benefit from the establishment of DISN working groups that may be subordinate to the Voice Configuration Coordination Board (VCCB). The contractor shall recommend appropriate working group structures, roles, and responsibilities to the Government, and provide CM subject matter expertise and administrative support to the VCCB and subordinate working groups.

Specific requirements, all in support of the Department of Defense Information Network DODIN, include:

• Operate and maintain the UC Certification Office and provide managerial, technical, and administrative support in managing the DODIN APL.

• Manage the UC/APL distributed testing and certification process.

• Manage the UCCO/APCO Standard Operating Procedures (SOP) templates for external and internal applications and processes, including the UC APL Process Guide, and distributed testing documents.

• Provide technical support to Government-owned but contractor-operated APLITS web-based application used to track, update, archive, and display UC APL information for the DoD.

• Manage the APLITS to include performing certification and accreditation duties to achieve and maintain an Authority to Connect and Authority to Operate on the Non Secure Internet Protocol Network (NIPRnet).

Page 3 of 7 Pages

• Provide APLITS account administration for Vendor, Sponsor, Test Center and Certification Reviewer personnel.

This bridge extension will ensure continuity of UCCO and DISN CM Support until the follow-on task order (reference tracking number GSMPS00028.00) is awarded. The PoP for this bridge extension is six months, consisting of one, two-month base period (August 4, 2018 through October 3, 2018) with four, one-month option periods. The total estimated lifecycle value of the bridge extension is :

Base Period (two months):

Option Period 1 (one month):

Option Period 2 (one month):

Option Period 3 (one month):

Option Period 4 (one month):

4. SUPPORTING RATIONALE, INCLUDING A DEMONSTRATION THAT THE

PROPOSED CONTRACTOR’S UNIQUE QUALIFICATIONS OR THE NATURE OF THE

ACQUISITION REQUIRES USE OF AN EXCEPTION TO FAIR OPPORTUNITY:

(a) Exception to Fair Opportunity.

In accordance with FAR 16.505(b)(2)(i)(C). The task order modification must be issued on a sole-source basis in the interest of economy and efficiency because it is a logical follow-on to an order already issued under the contract, which all awardees were given a fair opportunity to be considered for the original order.

(b) Description of the Justification.

This justification is to extend services that were previously awarded on a competitive basis to ECS Federal. Efforts are currently ongoing to pursue a competitive task order award which will provide continued support of UCCO and DISN CM; however, delays in the source selection have been encountered and have prevented award prior to expiration of the current task order. The Government had planned to award the follow-on task order before expiration of the incumbent task order, but award of follow-on task order (GSMPS00028.00) will not occur prior to expiration of current task order due to unforeseen delays in the complexity of the follow-on procurement. The DODIN APL provides mission-critical functionality and services that support network equipment acquisition and other essential missions across the DoD. This task order provides critical acquisition authorization support services in support of the DODIN. The scope of requirements to be provided under the bridge extension remain unchanged from the requirements provided under the current task order. Failure to maintain the contractor support provided by ECS Federal until the follow-on procurement can be fully awarded will result in a loss of continuity of services and will be detrimental as it will negatively impact mission-critical functionality and services to the entire DoD. ECS Federal understands the requirements and currently possesses the requisite expertise and relevant experience to continue performance without a break in support or transition period.

Page 4 of 7 Pages

(c) Justification.

(1) Minimum Government requirements.

The contractor will provide support at its current level until the follow-on task order has been awarded and transitioned to the awardee. Specifically, the minimum Government requirements include providing solutions to DODIN requirements and acquisition support for equipment testing and certification for use in the DODIN.

Effective and efficient functioning of the existing APL process capabilities requires the support of programmers, Cyber Security specialists, and administrator services, including cybersecurity and interoperability test certifications required to approve products for use in the DODIN/DISN. These experts are required to help formulate solutions to emergent issues or to short-term emergent equipment authorization requests and is supported by the current task order. The skill sets the experts bring to bear for this requirement are cybersecurity expertise, network expertise, and APL process expertise, which are not readily available in the marketplace.

(2) Proposed sole source contractor.

Due to the complexity of the services being provided today, ECS Federal, the current contractor, is the only source that can continue to fulfill this requirement within the necessary time frames and without risk of a substantial break in service/support to DISA and its mission partners. The follow-on task order is currently being re-competed utilizing the fair opportunity process. ECS Federal understands the requirements and currently possesses the requisite expertise and relevant experience to continue performance without mission interruption.

(3) Discussion regarding cause of the sole source situation.

The follow-on task order is currently being solicited on a competitive basis under the General Services Administration (GSA) Alliant Small Business (SB) contract vehicle/Global Information Grid (GIG) Services Management (GSM) – Program and Support (P&S) program; however, unforeseen delays have lengthened the evaluation and award process. The anticipated award date for the new task order is September 10, 2018. The six-month extension under FAR 52.217-8 has been exhausted; however, a gap in the critical APL support that ECS Federal provides in support of the DISN is unacceptable as it will negatively impact mission-critical functionality and services to the entire DoD. Therefore, a bridge extension to the current task order is necessary.

(4) Demonstration of unique source.

ECS Federal is uniquely postured to support DODIN APL requirements without loss of time and work stoppage starting August 4, 2018. ECS Federal understands the requirements and currently possesses the requisite expertise and relevant experience.

Specific skillsets that are required and currently provided by ECS Federal on the current task order include network experts with knowledge of DODIN equipment certifications, testing expertise, database and security experts for network communication requirements to support the mission of DODIN infrastructure and networks. These specialized services are not readily available in the marketplace in

Page 5 of 7 Pages the timeframe necessary.

(5) Procurement discussion.

The follow-on is moving forward, with anticipated award September 10, 2018. Option periods will be included in the bridge contract in the event the planned award date slips.

(6) Impact.

Failure to maintain the contractor support continuity provided by ECS Federal until the follow-on procurement can be fully awarded and transitioned will result in a loss of continuity of services and cause immediate detrimental effects as it will negatively impact mission-critical functionality of DODIN equipment acquisition authorization services to the entire DoD. The current contractor provides highly specialized and critical support to DISA and DoD mission partners, and a gap in service would cause an immediate and substantial decline in quality of services to DISA, the DoD, and mission partners.

5. COST/PRICE FAIR AND REASONABLE DETERMINATION:

Determination of fair and reasonable price for this particular extension modification will be based on a comparison of the independent government cost estimate, and comparison to the competitively awarded task order labor rates. The contracting officer will determine if the ultimate price is fair and reasonable by comparing past rates and labor categories on this task order for current work and requirements of the performance work statement being performed. The final price will be determined fair and reasonable upon completion of negotiations. Prior to award, a certificate of current cost and pricing data will be obtained.

6. MARKET RESEARCH:

ECS Federal is the only contractor at this time with the intimate knowledge and technical personnel capabilities to support the requirement in the timeframe necessary for uninterrupted support. Market research was conducted for the follow-on effort; based on the results it was determined the follow-on effort could be competitively solicited allowing fair opportunity under the GSA Alliant SB contract vehicle. The Government is currently re-competing the requirement based on the market research findings; however, as a result of the delay in the acquisition schedule and necessary transition, it is not currently feasible to award the subject task order to another contractor in sufficient time to avoid a bridge. Based on the result of market research, the Government has determined that the current level of support can only be provided by the incumbent. ECS Federal is the only source that can continue providing the level of support required without risk of a substantial break in support.

7. ANY OTHER SUPPORTING FACTS: N/A

Page 6 of 7 Pages

8. ACTIONS THE AGENCY MAY TAKE TO REMOVE OR OVERCOME BARRIERS

THAT LED TO THE EXCEPTION TO FAIR OPPORTUNITY:

(a) Procurement History.

The current task order was previously competed under fair opportunity competition (small business set-aside) under the GSA Alliant SB contract vehicle. ECS Federal was awarded the task order (HC1028-13-F-0062) on January 25, 2013 with a PoP consisting of one, one-year base period with four, one-year option periods. In accordance with FAR 52.217-8, the task order was extended for a three-month period and an additional three-month period. Final performance expires August 3, 2018.

(b) An exception to fair opportunity or full and open competition has not been accomplished for any prior procurement for this requirement. The requirements covered under this task order are currently being recompeted.

9. REFERENCE TO THE APPROVED ACQUISITION PLAN (AP):

Per the Determination and Findings (D&F) approved by the Head of Contracting Activity on May 2, 2012, an AP is not required for GSM-P&S task orders; therefore, a written AP was not accomplished for this six-month bridge.

Page 7 of 7 Pages

TECHNICAL CERTIFICATION: I certify that the supporting data under my cognizance which are included in the J&A are accurate and complete to the best of my knowledge and belief.

NAME: Robert Gradijan SIGNATURE: See separate PDF

TITLE/ORGANIZATION: Program Analyst, OC-IE, IE6

PHONE: 301-225-2193 DATE:

REQUIREMENTS CERTIFICATION: I certify that the supporting data under my cognizance which are included in the J&A are accurate and complete to the best of my knowledge and belief.

NAME: Robert Gradijan SIGNATURE: See separate PDF

TITLE/ORGANIZATION: Program Analyst, OC-IE, IE6

PHONE: 301-225-2413 DATE:

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

NAME: Brooke N. Winkeler SIGNATURE: See separate PDF

TITLE/ORGANIZATION: Contracting Officer, DISA/DITCO/PL8313

PHONE: 618-229-9405 DATE:

PROCURING ACTIVITY COMPETITION ADVOCATE APPROVAL: I have reviewed this justification and find it to be accurate and complete to the best of my knowledge and belief.

Since this justification does not exceed $13.5M, this review serves as approval and my written determination that the aforementioned FAR circumstances apply.

NAME: Gay Arnold SIGNATURE: See separate PDF

TITLE/ORGANIZATION: PACA/DISA

PHONE: 618-229-9517 DATE:

ALL QUESTIONS REGARDING THIS JUSTIFICATION ARE TO BE REFERRED TO

Brooke N. Winkeler, brooke.n.winkeler.civ@mail.mil or 618-229-9405.

mailto:danielle.b.mazander.civ@mail.mil