JA20-052 EMSS Customer Care and Provisioning Bridge Final.pdf

JUSTIFICATION FOR OTHER THAN FULL AND

OPEN COMPETITION (OTFAOC)

Federal Acquisition Regulation (FAR) Part 6 Justification & Approval (J&A), Supporting Procurements under FAR Part 12, and FAR Part 15

Purchase Request Number:

Contract Number: HC1047-13-D-4006 Task Order Number: HC101318F5044 Procurement Title: Enhanced Mobile Satellite Systems (EMSS) Provisioning and Customer Care Bridge Estimated Value: $ Statutory Authority: 10 U.S.C.2304(c)(1)

LIMITED SOURCE JUSTIFICATION

J&A Number: JA20-052

Upon the basis of the following justification, I, as Procuring Agency Competition Advocate, hereby approve the use of other than full and open competition of the proposed contractual action pursuant to the authority of 10 U.S.C. 2304(c)(1).

1. REQUIRING AGENCY AND CONTRACTING OFFICE:

Requesting Agency:

Headquarters United States Space Force (HQ USSF) Commercial Satellite Communications Office (CSCO) EMSS Program Management Office (PMO) P.O. Box 549 Ft. Meade, MD 20755-9088

Contracting Activity:

Defense Information Systems Agency (DISA) / Defense Information Technology Contracting Organization (DITCO) Mobile Satellite Section (PL8221) 2300 East Drive Scott Air Force Base, IL 62225-5406

2. NATURE/DESCRIPTION OF ACTION(S):

The nature of this effort is to establish a 6-month Firm-Fixed-Price (FFP) bridge contract with General Dynamics Mission Systems (GDMS) to provide mission critical help desk and provisioning support. The period of performance for the current task order ends March 24, 2020, with bridge extending performance from March 25, 2020 through September 30, 2020. This bridge will ensure continued support while a solicitation is issued and award is made for the competitive follow-on action for Provisioning and Customer Care Services. The EMSS Service Management task order provides provisioning and customer care (support) for all authorized EMSS customers, including the Department of Defense (DoD), as well as federal, state, local, foreign and allied governments, plus other sponsored customers totaling over 115,000 active

EMSS Provisioning and Customer Care Bridge-JA20-052

Page 2 of 8 Pages devices. Fiscal year (FY) 20 Defense Working Capital Fund (DWCF) funding will be provided for this bridge contract.

3. DESCRIPTION OF SUPPLIES/SERVICES:

(a) Continuity of services is required for support to EMSS customers. The task order provides order management, inventory management, supply chain functions, subscriber identity module (SIM) card management, SIM activations and deactivations, paging activation and deactivation, Global Data Broadcast (GDB) record management and provisioning, and 24x7 customer care functions for EMSS services (phone, paging, GDB, Short Burst Data (SBD), and Distributed Tactical Communication System (DTCS)) with technical troubleshooting for service and equipment (including the secure modules for EMSS handsets). With this bridge, there is no change to the work performed under the task order.

(b) This bridge will be a FFP effort that allows for the continuation of service until the competitive follow-on has been awarded and successfully transitioned. The estimated price for the full period is $

4. IDENTIFICATION OF LIMITED SOURCE AUTHORITY AND DEMONSTRATION OF

CONTRACTOR’S UNIQUE QUALIFICATIONS:

(a) Circumstances Justifying Limiting the Source:

FAR 6.302-1, only one responsible source and no other supplies or services will satisfy agency requirements.

(b) Description of the Justification.

The EMSS community consists of over 115,000 users, including users in all five DoD Services supporting the Combatant Commands and approximately 65 U.S. Government agencies and departments, as well as U.S. allies. GDMS is able to immediately provide both the highly specialized skill sets required for the services, as well as a network connection to the EMSS Gateway (which takes three or more months to install). In order to provide the required services, a contractor would have to obtain proper clearance and access to Government systems, incorporate customer care and provisioning databases, integrate work flow, and ensure all customer care and provisioning staff are fully capable of providing the government-specific EMSS help desk services including secure voice, DTCS, SBD and Global Data Broadcast support. Failure to extend the current task order would cause unacceptable delays to the continued support efforts.

(c) Justification:

(1) Minimum Government requirements.

The Government needs to 24/7/365 support that is inclusive of both help desk services at a tier 1 level as well as provisioning services to all EMSS device users. The

Page 3 of 8 Pages customer care and provisioning services for EMSS users provides the following minimum requirements that, if lost or interrupted could result in mission failure for global military and humanitarian missions across the world:

Telecommunications Service Order (TSO) order management; warranty support; inventory management; supply chain functions and sub-contract management of SIM card supplies from Original Equipment Manufacturer (Iridium).

All service provisioning activities including SIM card management; physical DoD SIM card supplies; MSISDN assignment; SIM activations and deactivations; paging activation and deactivation.

SBD management; Global Data Broadcast record management including service creation, and subscription provisioning.

Gateway liaison service, and 24X7 customer support functions with technical trouble shooting for service and equipment including secure communications devices.

(2) Proposed sole source contractor.

GDMS, the current provider of EMSS customer care and provisioning services under task order HC101318F5044 contract.

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

The services currently provided under task order HC101318F5044 have been continuously provided by GDMS (or its predecessor firm) under various contracts since 2003.

The EMSS PMO has been working a follow-on requirement to provide the necessary services, however evolving mission needs and transition from DISA to Air Force Space Command (AFSPC), and further transition of AFSPC to USSF have caused delays in the solicitation and subsequent award of a follow-on effort.

The EMSS PMO was re-assigned to a new DoD command element (Air Force

Space Command) in December 2017 with a change of command in December 2018. This event led to both organizational and procedural structure changes impacting management, administrative, financial, and technical staff support.

As a result of these changes, the need of the EMSS PMO and definition of this requirement required additional time to accurately identify and define.

Budget activity issues have also led to delays in this effort. Reassignment of the EMSS Program has required the development of a Program Objective Memorandum. This memorandum will define funding allocation levels needed to ensure funding of the EMSS organization as it is transitioned from DISA to ASPC, and tradeoffs between different funding approaches (DWCF vs appropriated) were properly evaluated.

In December 2019, the FY20 National Defense Authorization Act (NDAA) authorized the establishment of the USSF, and the EMSS PMO was designated for transition with AFSPC to the USSF, resulting in further efforts associated

Page 4 of 8 Pages with transition activities effecting the follow-on effort. As a result of all these unforeseen events, the EMSS PMO has been forced to again redefine and restructure acquisition requirements for this effort on multiple occasions in order to align the requirement’s scope with the corresponding Agency’s mission, goals, and focus.

(4) Demonstration of limited source.

GDMS is the current provider for the EMSS customer care and provisioning services under task order HC101318F5044. GDMS is the only source for continuing to provide the required services given the necessary infrastructure already in place, their compliance with EMSS ordering policies, and their comprehensive knowledge of the complete spectrum of EMSS support needs, and ability to support all forms of equipment active on EMSS systems with zero transition or lead time available.

No other sources are immediately able to fulfill the Government’s requirements without an unacceptable gap in service to the EMSS customer base. For an alternate contractor to take over mission critical services without presenting a potential gap in service would take approximately three to five months to reach the same level of competency as GDMS. This time would include government preparation of customer care and provisioning databases (estimated at one (1) month), new contractor integration of databases and work flow into new contractor’s systems (estimated at one (1) – two (2) months), and staffing and development and execution of training on customer care and provisioning for EMSS government specific services (estimated at one (1) – two (2) months). These services are highly specialized in accordance with FAR 6.302-1(a)(iii). To bring another contractor in for this short bridge effort would involve substantial duplication of costs in form of transition costs that are not expected to be recovered through competition as well as unacceptable delays, as shown above.

(5) Procurement discussion.

GDMS is the current provider for the EMSS customer care and provisioning services under task order HC101318F5044. GDMS is the only source capable of continuing to provide the required services due to the existing contract vehicle and infrastructure already in place, their compliance with EMSS ordering policies, and their unique knowledge of the complete spectrum of EMSS support needs and ability to support all forms of equipment active on the EMSS system within the next six months. It is anticipated that a follow-on competitive effort will be completed in approximately five (5) months and require a one (1) month transition as described above, at which point this effort will be transitioned to the new contract supported by the winning contractor.

(6) Impact.

The services provided under this agreement are key to EMSS users worldwide, including senior leaders of the DoD and US Government supporting national security missions.

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A lapse in the Provisioning and Customer Care effort will directly impact the missions of all DoD and Non-DoD EMSS users, including senior leaders of the DoD and US Government agencies supporting national security missions. Customers will not be able to activate new, mission critical devices on the EMSS system nor be able to resolve technical issues they encounter during their missions. EMSS is an operational system that supports over 115,000 users. All five DoD Services supporting the Combatant Commands use EMSS devices. Approximately 65 US Government agencies and departments, and U.S. allies also use EMSS devices.

Any delay in providing these services is unacceptable to the warfighter.

EMSS devices are used worldwide and are often the only available communications lifeline. Failure to maintain EMSS customer support and provisioning services could result in severe injury to the US government including: failure to maintain continuity of government services in times of crisis due to inadequate communications for government senior leaders; failure or delay in US DoD missions; and potentially loss of life for deployed warfighters dependent on EMSS service as the only available communications lifeline.

Over the past 13 months, there have been on average 400-500 issues of Provision and Customer Care per month. These issues involved multiple help desk calls. These calls enabled the warfighters the abilities to access their devices, properly operate their devices, and resolve hardware and software issues. Furthermore, the Customer Care provisioning efforts have supported SIM card activations, MSIDN de-activations, SIM card shipments, and pager activations and deactivations that totaled on average approximately 1000 per month.

5. BEST VALUE DETERMINATION:

There is only one source for this bridge contract– GDMS. GDMS represents the best value for this contracting action given world events, mission support needs, and the available timeline to establish contract support.

Selection of another contractor poses an unacceptable risk to the government in the form of a gap in service that could result in severe injury to the US government including: failure to maintain continuity of government services in times of crisis due to inadequate communications for government senior leaders; failure or delay in US DoD missions, and potentially loss of life for deployed warfighters dependent on EMSS as the only available communications lifeline.

Continuity of EMSS services has emphasized importance over the next six (6) month period, due to the upcoming hurricane season (June to November) and the potential support of the government’s emergency response to the Coronavirus (COVID-19). The risk associated with both events imposes increased risk to the Government if services for EMSS are gapped or unavailable.

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The EMSS PMO anticipates soliciting competitively in the future in order to maximize competition and to allow innovative industry solutions to meet or exceed the Government’s requirements.

6. MARKET RESEARCH:

This is a bridge contract to ensure continued support until the competitive follow-on action is awarded. Although market research is not required for this bridge action in accordance with DARS 10.002 (S-91)(2), research was conducted for the follow-on action within the last 12 months (February to September 2019). Of the five responses to Sources Sought #821800731, the Government has found at least four to be potentially capable of providing the required services under the follow-on effort. The Government is working to finalize a competitive acquisition package that is anticipated to be solicited within the next three (3) months, including engagement of industry to ensure maximum competition.

7. ANY OTHER SUPPORTING FACTS:

The competitive follow on effort is being actively worked and is anticipated to be in place, including startup and transition, within six months.

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

RESTRICTED CONSIDERATION:

(a) Procurement history.

Contract HC1047-13-D-4006 was awarded to General Dynamics Mission Systems on 26 May 2013 and GDMS continues to support this requirement under a task order from HC1047-13-D-4006. Sole source, large business.

Current task order: HC101318F5044; PoP: September 25, 2018 – March 24, 2020

Prior task order: HC101317F5010; PoP: May 26, 2017 – September 25, 2018 Prior task order: 0005; PoP: May 26, 2016 – May 25, 2017 Prior task order: 0003; PoP: May 26, 2015 – May 25, 2016 Prior task order: 0002; PoP: May 26, 2014 – May 25, 2015 Prior task order: 0001; PoP: May 26, 2013 – May 25, 2014

Other prior efforts are:

Provisioning and Equipment (P&E) Contract Number: HC1047-08-D-0002 Contractor: General Dynamics C4S (GDC4S) Objective of Contract: Provide equipment, provisioning, invoicing, record management, and customer care for EMSS DoD Gateway users.

Contract Type: Firm Fixed Price, Sole Source Total Contract Value: $166.60 Million Contract Period: 26 Nov 2007 - 25 Nov 2012

Relevant task orders:

Task order 0001: December 1, 2007 – November 30, 2008 Task order 0002: December 1, 2008 – November 30, 2009

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Task order 0003: November 26, 2009 – November 25, 2010 Task order 0008: November 26, 2010 – November 25, 2011 Task order 0009: November 26, 2011 – May 25, 2013

Provisioning and Equipment Contract Number: DCA200-03-D-5004 Contractor: General Dynamics C4S Objective of Contract: Provide equipment, provisioning, invoicing, record management, and customer care for EMSS DoD Gateway users Contract Type: Firm Fixed Price, Sole Source Total Contract Value: $95M Contract Period: Apr 2003 - Sept 2007

(b) Based on the responses to a Sources Sought posted in March 2019, as well as the ongoing market research conducted by the EMSS PMO, several firms appear to be potentially capable of providing the required services under the follow-on effort given adequate time to transition; therefore, the follow-on effort will be competed to the maximum extent practical.

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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: Ahttiya Smail SIGNATURE: See attached PDF

TITLE/ORGANIZATION: Program Analyst/Contracting Officer Representative/HQ USSF

CSCO EMSS PMO

PHONE: 301-225-4648 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: Leroy Long SIGNATURE: See attached PDF

TITLE/ORGANIZATION: Program Manager/HQ USSF CSCO EMSS PMO

PHONE: 302-225-4066 DATE:

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

NAME: Jarid L. Schulte SIGNATURE: See attached PDF

TITLE/ORGANIZATION: Contracting Officer/DISA/DITCO/PL8221

PHONE: 618-418-6567 DATE:

PROCURING ACTIVITY COMPETITION ADVOCATE (PACA) 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 D. Arnold SIGNATURE: See attached PDF

TITLE/ORGANIZATION: Procuring Agency Competition Advocate/DISA

PHONE: 618-418-6517 DATE:

ALL QUESTIONS REGARDING THIS JUSTIFICATION ARE TO BE REFERRED TO

Ahttiya Smail, Contracting Officer Representative, 301-225-4648, ahttiya.smail.civ@mail.mil