JA20-067 DEOS Engineering Support Services_KO_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: To Be Determined (TBD) Contract Number: HC1047-18-D-2004 Task Order Number: TBD Procurement Title: Defense Enterprise Office Solutions (DEOS) Engineering Support Services Estimated Value: $ Statutory and Regulatory Authority: 10 U.S.C. 2304c(b) and FAR 16.505(b)(2)(i)(B)

(I.) JUSTIFICATION FOR AN EXCEPTION TO FAIR OPPORTUNITY

Number: JA20-067

Upon the basis of the following justification, I, as the Head of the Contracting Activity, hereby approve this exception to fair opportunity pursuant to the Statutory Authority of 10 U.S.C.

2304c(b) and Regulatory Authority of FAR 16.505(b)(2)(i)(B).

1. REQUIRING AGENCY AND CONTRACTING OFFICE:

Requesting Agency:

Defense Information Systems Agency (DISA)/Development and Business Center (DBC) Enterprise Services, SD3 6910 Cooper Ave.

Ft. Meade, MD 20755

Contracting Activity:

DISA/Defense Information Technology Contracting Organization (DITCO) Procurement Services Directorate DITCO-National Capital Region, PL62 6910 Cooper Ave.

Fort Meade, MD 20755

2. NATURE/DESCRIPTION OF ACTION(S): The purpose of this action is to issue a new sole source Task Order (TO) using the Systems Engineering, Technology and Innovation (SETI), contract vehicle. The proposed TO provides engineering and technical support to the Defense Enterprise Office Solutions (DEOS) program. The current order, General Services Administration (GSA) Alliant Contract #GS00Q09BGD0019, TO #HC1047-18-F-0001, provides engineering and technical support to DEOS in the areas of planning, analysis, design, integration, testing, migration, modification, configuration and documentation. The contract type will be mostly Firm-Fixed-Price (FFP) with a Cost CLIN for travel. It will be funded by Fiscal

DEOS Engineering Support Services-JA20-067

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Year . The Period of Performance (PoP) will be one (1) base year plus two (2), one-year option periods.

A three-year contract will provide the DEOS Program Management Office (PMO) with the support needed to complete the majority of migrations of DoD users to DEOS. The deployment strategy for DEOS will be either sequential (i.e., phase-by-phase) or concurrent deployment of the Non-classified Internet Protocol Router Network (NIPRNet) Contiguous United States (CONUS), NIPR Outside Contiguous United States (OCONUS), Secret Internet Protocol Router Network (SIPR) CONUS/OCONUS, and Denied, Disrupted, Intermittent and Limited (DDIL)) environments. Deployment of the NIPR CONUS solution must be completed by the end of Fiscal Year (FY) 2021. If the remaining environments are deployed phase-by-phase, then the full DEOS transition will not be completed until FY24-FY25. However, the DoD CIO may decide to accelerate the schedule and migrate users to two or more phases simultaneously. Both strategies, sequential or concurrent, necessitate engineering support until FY23. The inclusion of two (2), one-year option periods in this contract will ensure consistent support for the DEOS deployment across multiple environments. If the DEOS migration extends past FY23, the Government anticipates that the DEOS deployments will be far enough along to compete any remaining engineering support requirements without jeopardizing the deployment schedule.

An extension of services in accordance with (IAW) FAR 52.217-8 will allow for an additional six months of services, if required.

The PoP will be:

7 June 2020 – 6 June 2021 (Base Year) 7 June 2021 – 6 June 2022 (Option Year 1) 7 June 2022 – 6 June 2023 (Option Year 2) 7 June 2023 – 6 December 2023 (6 months optional period IAW FAR 52.217-8)

3. DESCRIPTION OF SUPPLIES/SERVICES: This requirement is for continued engineering/technical support services of the DEOS Program. Areas will support each phase of implementation as DEOS is adopted Department of Defense (DoD) wide. The areas of support include:

Program Management: Program management support services will provide day-to-day management, execution, and delivery of all tasks including architecture development, engineering, development of integration point diagrams and documents, sustainment, testing, migration, implementation, and deployment to maintain services and delivery of DEOS requirements.

Engineering and Technical Support Services: Engineering and technical support services will be provided by analyzing, developing, engineering, testing, migrating, and sustaining the DEOS solution throughout the contract period of performance. Engineering and technical support services include analyzing, verifying, and validating proposed solution(s) with the DEOS requirements for the Enterprise Collaboration and Productivity Services (ECAPS) Set 1 content management development, records management, collaboration services, productivity suites, voice and video. Engineering support also includes identifying and documenting system

Page 3 of 7 Pages hardware and software interface requirements based on the GSA vendor’s proposed technical approach. Technical support will expand into the areas of Testing and Evaluation; e.g., developing and testing mail guard routing rules through the Enterprise Email Security Gateway.

Support services will also include Identity and Access Management / Identity Credential and Access Management, Identity Protection, and Identity Synchronization Service testing activities to assure secure and controlled access to the DEOS system. Support services also provide integration and migration support by reviewing, analyzing, monitoring and ensuring implementation of migration plans. Required support also includes documenting migration activities such as DoD Enterprise Email (DEE) and DoD Enterprise Portal Service migrations, and combining this information into a lessons learned knowledge database.

The Government has a requirement for risk management support, which includes providing knowledge in the understanding and application of the Federal Risk and Management Program as it applies to the DEOS program. Risk management support includes tracking DEOS status, scope, risks, issues, action items, and developing DEOS metrics to be used in the assessment of performance management in the area of risk management. The Government has a requirement for analyzing, developing, engineering, testing, migrating, and sustaining the DEOS accreditation and cloud assessment. Such tasks include, but are not limited to, gathering input and background information for accreditation from various sources such as GSA vendor documentation, previous accreditation efforts to include provisional authorizations, and original research.

Business Management: The Government has a requirement for developing and maintaining the business management documentation. Documentation includes study conceptualization and development, business case analysis, assessment reports, cost-benefit analysis, and life-cycle cost analysis.

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)(B), only one awardee is capable of providing the supplies or services required at the level of quality required because the supplies or services ordered are unique or highly specialized.

(b) Description of the Justification. The proposed acquisition strategy is to issue a sole-source award to Booz Allen Hamilton (BAH) for DEOS engineering/technical support services, as BAH is the only source capable of providing these unique and highly specialized services. By issuing a sole-source award to BAH, the Government avoids delays in establishing the infrastructure, testing the system, and establishing information and network security for the DEOS NIPR CONUS deployment by the required date (end of

FY21).

DEOS aligns with the DoD Cloud Strategy issued in December 2018, which focuses on two fundamental goals. The first goal is the stand up of cloud platforms that are ready to receive data and applications, and the second goal is the ongoing work to migrate existing

Page 5 of 7 Pages include planning, design, development, integration, testing, migration, sustainment and documentation. Access to both the NIPRNet and the SIPRNet are required to facilitate proper design, configuration and deployments. The contractor shall also continue to provide programmatic services/support with technical writing, business planning and process analysis.

(2) Proposed Sole Source Contractor. The proposed sole source contractor is Booz Allen Hamilton, Inc., 8283 Greensboro Drive, McLean, VA, 22102-3830.

(3) Discussion Regarding Cause of the Sole Source Situation. The primary reasons for the sole source situation are the complexity of the requirement and the highly specialized and unique skills needed to successfully migrate to the DEOS solution.

The current contractor possesses the unique and specialized experience, knowledge and expertise in the following:

Analysis, identification and development of DISA applications integration points required to establish the initial infrastructure for DEOS; expertise, insight and comprehension of ECAPS Set 1 content management development, records management, collaboration services, productivity suites, voice and video.

The basis for DEOS unified capabilities functionality; research and development of DISA DEOS specific acquisition program documentation such as the Concept of Operations.

DoD-wide Functional Requirements Document based on years of working with DISA, DoD CIO, Services, Agencies and Combatant Commands; a Risk Management Plan; DEOS migration strategy; and, requirements checklist and test strategies.

BAH personnel also have the required NIPRNET and SIPRNET access from DISA security which can take two months to one year to obtain depending on the individual’s security and background checks. Access to both NIPRNET and SIPRNET is necessary to support the DEOS mission on a daily basis.

Successful infrastructure establishment, completion of testing, and successful migration of DISA and DoD mission partners are DoD CIO priorities. BAH, with its specialized knowledge and experience, is uniquely positioned as the only contractor that can successfully meet the requirements and begin migrations for all DoD users who must be migrated to DEOS NIPR by the end of FY21. Another reason for the limited source is the contractor’s ability to provide continuous services and their ability to react with limited phase-in if the DoD CIO decides to stand up multiple environments simultaneously. BAH is currently performing and in possession of the required expertise and skills to efficiently and seamlessly address the need to stand up simultaneous multiple environments. Transition to a new vendor and the new vendor becoming fully functional in the required PWS tasks would take at least . As such, transition to a new vendor would not allow for timely engineering support services to the DEOS program and would therefore result in the mission failure of migrating the DoD users by the end of FY21.

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(4) Demonstration of Unique Source. DEOS is a complex system and program. The current vendor’s understanding, skill sets, and expertise include the following: core integration requirements for DoD wide email capabilities, content management and productivity suite capabilities; knowledge of DoD systems enterprise architecture, Cloud Access Points, end user applications and operating systems; and, testing challenges with Internet Protocol addressing and routing through DoD Joint Regional Security Stacks and migration of DoD systems such as DEE and GVS. BAH has the requisite knowledge of the unique and specialized systems architecture, integration and security requirements, and the complexities of the proposed implementation and migration strategies. As such, BAH is the only contractor capable of meeting the integration and migration timelines and to reach Full Operational Capability.

(5) Procurement Discussion. The proposed sole source TO will be awarded using SETI.

It will be a Firm Fixed Price (FFP) contract type contract consisting of FFP labor contract line item numbers (CLINs) with a Cost CLIN for travel.

(6) Impact. The purpose of this requirement is to establish the initial DEOS infrastructure, testing, tenancy, and migration. Failure to award this specialized effort to BAH could result in delays in establishing the initial DEOS infrastructure due to lack of support and expertise needed to verify and update the technical approach from the GSA vendor. Delays in establishing the infrastructure would create delays in required events such as the Contractor and Government Integrated Testing, delays in verification of critical Cyber Security requirements, delays in establishing and testing of Service and Operational support structures, and delays in training and migration of identified services and agencies to DEOS by the required FY21 deadline. The accumulated delays of the above testing, integration, and migration events could range from a . These delays would result in the failure of DISA to provide the enterprise wide infrastructure required to host the ECAPS Set 1 collaboration tools and ultimately the DoD CIO’s roll-out of the DEOS service.

5. COST/PRICE FAIR AND REASONABLE DETERMINATION: The price will be evaluated using one or more of the techniques defined in FAR Part 15.404 in order to determine if they are reasonable and complete. Reasonableness is established through cost and price analysis techniques as described in FAR 15.404. The Contracting Officer will compare quoted prices to the pre-established SETI contract prices and the Independent Government Cost Estimate. A determination will be made that the award represents the best value to the Government.

6. MARKET RESEARCH: Market research was conducted for this effort under North American Industry Classification System Code 541512 to determine what other businesses possess sufficient requisite experience and capabilities to support the requirements. The market research was conducted from December 2018 through July 2019. The results of the market research identified one business (BAH) capable of satisfying all the requirements and capabilities needed to support the diverse engineering support needs of DEOS and SD3. BAH is the only contractor capable of performing the full requirements within the timeframe required and with

Page 7 of 7 Pages the knowledge needed to support this requirement with consistency and without the duplication of costs.

7. ANY OTHER SUPPORTING FACTS: Not applicable.

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

THAT LED TO THE EXCEPTION TO FAIR OPPORTUNITY:

(a) Procurement History.

(1) GSA Alliant Contract #GS00Q09BGD0019, TO #HC1047-18-F-0001. This TO was awarded to BAH on December 07, 2017, with a period of performance start date of December 07, 2017 to December 06, 2018 (base year), and December 07, 2018 to December 06, 2019 (optional period). While the six-month period of performance IAW FAR 52.217-8 was not included in the award, it was evaluated prior to award.

The six-month extension has been exercised to extend performance to 06 June 2020.

(2) Competition status: Unrestricted order competed and issued under the GSA Alliant Government Wide Acquisition Contract.

(b) Actions to Remove Barriers. The requirements for DEOS will be continually monitored, updated, and re-assessed as the Government moves forward. The intent of this sole source action is for a three-year period only. Additional support required will be awarded through a competitive action.