JA20-108 FAR Part 8 JA BSL FINAL 10JULY2020_Redacted.pdf

LIMITED SOURCE 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: To Be Determined (TBD) Contract Number: 47QTCA19D00BP Task/Delivery Order Number: TBD Procurement Title: Global Command and Control System - Joint (GCCS-J) Modernization and Architecture Analysis Support Estimated Value:

Statutory and Regulatory Authority: 41 U.S.C. 152(3) and FAR 8.405-6 (a)(1)(i)(B)

JUSTIFICATION FOR AN EXCEPTION TO FAIR OPPORTUNITY

Number: JA20-108

Upon the basis of the following justification, I, as Procuring Activity Competition Advocate, hereby approve this limited source justification in accordance with FAR 8.405-6(a)(1)(i)(B). The acquisition referenced herein is conducted under the Statutory Authority of the Multiple Award Schedule Program, 41 U.S.C. 152(3).

1. REQUIRING AGENCY AND CONTRACTING OFFICE:

Requesting Agency:

Defense Information Systems Agency (DISA) Development Business Center (DBC) Services Directorate (SD), Command and Control (C2) Portfolio Management Office (SD4) 6910 Cooper Ave.

Fort Meade, MD 20755

Contracting Activity:

DISA/Defense Information Technology Contracting Organization- National Capital Region, (DITCO-NCR), PL62

6910 Cooper Ave.

Fort Meade, MD 20755

2. NATURE/DESCRIPTION OF ACTION(S):

The nature of this action is to award a sole source firm-fixed-price (FFP) for the GCCS-J Modernization and Architecture Analysis Support with a period of performance (PoP) of a 5-month base period and two 2-month option periods. The support for these services ended on 23 March 2020 (HC1047-15-C-4012). The follow-on action that captures this critical support is currently in source selection and has been delayed for several months. The GCCS-J Program Management Office (PMO) decided not to issue a bridge order for the prior effort to the incumbent during these delays, as they were prepared to absorb a slight break in service. The

GCCS-J Modernization and Architecture Analysis Support –JA20-108

Page 2 of 6 Pages original schedule estimated that the task order for this support would be awarded by 21 May 2020, which would have resulted in a two (2) month break in service. That two (2) month period was the maximum duration that the PMO could support with very limited internal resources or lack of support. The 2 month break has created a backlog of actions that require immediate attention. Due to extended delays of the Command and Control System Engineer (C2 SE) award date and follow-on effort task order, this sole source effort is both essential and critical engineering support to ensure the GCCS-J Modernization and Architecture Analysis effort gets back on schedule.

This contract action will provide the required support for nine (9) months. The PoP of the contract action will be 13 July 2020 – 12 November 2020 base period, with two 2-month option periods.

The GCCS-J Modernization and Architecture Analysis Support is to modernize the current Joint C2 capabilities and to complete the evolution of the current operational system into a fully modern, affordable C2 system capable of supporting joint needs across the Department of Defense (DoD), to include those of the GCCS Family of Systems (FoS). Fiscal Year (FY) 2020 Operations and Maintenance (O&M) and FY 2021 O&M funding will be used.

3. DESCRIPTION OF SUPPLIES/SERVICES: Continuity of services is required for support to the GCCS-J PMO. GCCS-J is a major Information Technology (IT) investment designated as an Acquisition Category I Major Automated Information System program. The GCCS-J is the DoD C2 system of record for achieving full spectrum dominance. GCCS-J is a suite of mission applications that provides critical joint warfighting C2 capabilities and is the principal foundation for dominant battlespace awareness, providing an integrated, near real-time picture of the battlespace necessary to conduct joint and multinational operations. GCCS-J provides a robust and seamless C2 capability to the Commander-In-Chief, Secretary of Defense, National Military Command Center, Combatant Commanders, Joint Force Commanders, and Service Component Commanders. GCCS-J offers vital connectivity to the systems the joint warfighter uses to plan, execute, and manage military operations.

a) The GCCS-J PMO is specifically tasked to modernize, synchronize and sustain of the GCCS-J capabilities as part of the GCCS FoS, is defined as follows:

Modernization: modification and enhancement of GCCS-J capabilities in order to implement new requirements, enhance functionality, increase efficiency, or lower operating and deployment costs while taking advantage of the progress made by current operational systems and incorporating available agile technologies and capabilities.

Synchronization: coordination among the FoS components that rely on the GCCS- J infrastructure and data. Changes to GCCS-J and FoS components or interfaces must be planned, funded, and implemented with minimal impact to the user and the program.

Sustainment: operations, support, training, technology refresh, and maintenance of the system sustaining operations at a high level of availability and utility for the warfighter.

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The scope of this effort will span the breadth of the GCCS-J PMO's mission, which is “To provide the Joint Commander with premier C2 capabilities that are secure, interoperable and meet current and future war fighter requirements while delivering optimal return on investment for DoD.”

b) This effort is currently being re-competed under a single award Indefinite Quantity Indefinite Quality (IDIQ). This IDIQ is being competed as a fair opportunity requirement utilizing Federal Business Opportunities (FBO) as a total small business set aside, which the basic contract is slated for award in early-mid June 2020. The task order for the GCCS-J Modernization and Architecture Analysis Support is projected to be awarded in July-August 2020.

c) The estimated cost of support for this contract action is , which includes all labor categories, travel and Other Direct Costs for the 5-month period (01 July 2020 – 30 November 2020) and two 2-month option periods (01 December 2020 – 31 January 2021 and 1 February 2021 – 31 March 2021). The option periods were added to cover performance in the event of a protest. They will be exercised only if resolution of any protest does not occur during the previous period.

4. IDENTIFICATION OF LIMITED SOURCE AUTHORITY AND DEMONSTRATION OF

CONTRACTOR’S UNIQUE QUALIFICATIONS:

a) Circumstances Justifying Limiting the Source.

(1) 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.

(1) Minimum Government Requirements. Bluestone Logic LLC, is uniquely positioned to provide the required personnel and skillsets to fully support this requirement and assist in the transition once the new task order is awarded to avoid another break in the requirement’s critical services. The proposed sole source contractor, Bluestone Logic LLC, a Small Business who previously supported the GCCS-J PMO for 10+ years. The GCCS-J PMO and its stakeholders all depend on daily services supported by Bluestone Logic below:

a. Cybersecurity - The GCCS-J PMO is in critical phases of completing and submitting two Authority to Operate (ATO) request packages led by Bluestone Logic. The cybersecurity engineering support provided by Bluestone Logic is essential to this time-sensitive effort. The current gap between the systems engineering contracts has been impacting the processing of these ATOs, resulting in operational disruptions to test environments and fielded systems.

b. C2 and PMO Strategy - The GCCS-J PMO is navigating a major strategic pivot for modernizing GCCS-J. Bluestone Logic’s experience and relationships with our C2 community members are a critical element of the socialization of

Page 4 of 6 Pages modernization. The Government relies on their systems engineers to provide strategy and communications assistance to C2 Portfolio and GCCS-J PMO leadership. The current gap in these types of systems engineering support has started to jeopardize the necessary community buy-in during our on-going stakeholder engagements.

c. Requirements and Architecture - The pivot for modernization of GCCS-J is not only strategic but technical as well. The GCCS-J PMO relies on Bluestone Logic’s expertise managing requirements and validating architecture changes proposed by the materiel developer. Without Bluestone Logic’s support, the GCCS-J PMO will lack independent assessments of the material developer’s proposed designs, which is needed to start the Government’s new approach.

d. Deployment improvement - The PMO is at a critical juncture for modernizing how GCCS-J systems are deployed, configured, and maintained by the joint C2 community. Currently, the GCCS-J PMO relies on Bluestone Logic’s experience/expertise administering GCCS-J systems to develop deployment design courses of action. The current gap in the systems engineering support has begun to result in the PMO exclusively relying on the materiel developer without an independent perspective.

e. Global Virtual Data Center – Bluestone Logic provides the systems engineering support to operate and maintain a virtual operating environment in the lab for GCCS-J modernization. Other providers require significant ramp-up time, anywhere from 3-6 months, to take over the operations and maintenance of this environment. The current gap in this systems engineering support has been impacting the Government’s ability to use that environment to deploy, demo, and test modernized GCCS-J software (for example, validating the utility of critical new deployment technology and the emerging COP web application).

f. J Central - The GCCS-J PMO is transitioning to a portal for communicating with the user community. Bluestone Logic built the portal that the Government now maintains due to the gap in service. The current gap between systems engineering contracts has resulted in stale content and impacts the acceptance and utility of this resource while our C2 community is just starting to use it.

g. Communications Topology – Bluestone Logic developed the application the GCCS-J PMO uses to collect and share data modeling the operations of critical GCCS-J sites. Bluestone Logic has continuously improved the application, increasing its utility to the PMO for maintaining awareness of system use among the C2 community customers. The current gap in support has started to impact operations and improvements of the application, limiting the GCCS-J PMO’s ability to use the data required for on-going modernization planning.

h. DevSecOps - SD is transitioning its C2 DevSecOps toolchain from MITRE to the new C2 Production and Test team, NextGen. Bluestone Logic provided cloud systems engineering and development services for specific elements of the original toolchain. Bluestone Logic was assisting the NextGen team stand up those elements of the toolchain in NextGen’s environment. The current gap in this cloud systems engineering continuity during this gap has put the successful standup of the toolchain at risk.

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Failure to support GCCS-J PMO would continue to cause significant schedule delays would have a direct adverse impact on the GCCS-J user community, which includes the Joint Staff-designated critical sites (Combatant Commands, service components, etc.), Military Departments, and coalition partners that use the GCCS-J at locations around the world and at multiple levels of the command.

(2) Proposed sole source contractor. Bluestone Logic, LLC has been supporting the GCCS-J PMO with the critical engineering support required to support GCCS-J.

Sustainment and Modernization since the contract was awarded in September 2015.

Bluestone Logic, LLC is the only source capable of performing the tasks inherent in this bridge due to the specialized nature of the services, and the criticality of the mission it supports. Bluestone Logic, LLC has the existing functional expertise, level of experience, and capability to execute the requirements within the Performance Work Statement with no additional ramp up time required.

5. BEST VALUE DETERMINATION:

a) During source selection of the re-compete, solicitation number HC1047-19-R-0007, a cost/price evaluation was conducted which included Bluestone Logic in accordance with FAR 15.404. The contract prices were determined to be reasonable. The proposed costs/prices for this sole source contract action will be conducted by comparing them to historical pricing, the current contract prices found during the source selection of solicitation number HC1047-19-R-0007, and the Independent Government Cost Estimate (IGCE) to determine fair and reasonableness.

6. MARKET RESEARCH: This contract action is required to obtain gapped support until follow on support is in place and ramped up. Market research was conducted for the follow-on contract which was conducted within the last 12 months. Market research identified a competitive market for the requirement; however, for the reasons outlined in this justification, it is in the best interest of the Government to issue a sole-source task order to Bluestone Logic for this short duration of time. This action will provide necessary coverage until the new competitive task order can be awarded

Based on current market research, dated April – May 2020, it has been determined that only the aforementioned product and/or product support, Bluestone Logic LLC, can fully support the Government’s immediate need.

7. ANY OTHER SUPPORTING FACTS: None

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

RESTRICTED CONSIDERATION:

a) Procurement history.

(1) HC1047-15-C-4012, was competed as a small business set aside.

(2) The current C2 competition (HC1047-19-R-0007) is being competed as a small business set aside.

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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: SIGNATURE: See separate PDF page

TITLE/ORGANIZATION:

PHONE: 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: SIGNATURE: See separate PDF page

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

NAME: SIGNATURE: See separate PDF page

TITLE/ORGANIZATION:

PHONE: 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 , this review serves as approval and my written determination that the aforementioned FAR circumstances apply.

NAME: SIGNATURE: See separate PDF page

ALL QUESTIONS REGARDING THIS JUSTIFICATION ARE TO BE REFERRED TO