JA25-081_832571097_J6 CATMS HCA Signed_Redacted.pdf

Controlled Unclassified Information (CUI)

Controlled By: DISA

Controlled By: J6/J68 Pentagon

CUI Category: PROCURE

Distribution/Dissemination Control: FEDCON

POC: Victoria Luong, victoria.n.luong.civ@mail.mil

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CUI

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(b), Department of Defense FAR Supplement

216.505(b), Procedures, Guidance and Information 216.505(b)

Tracking Number: 832571097

Contract Number: 47QTCK18D0036

Task Order Number: To Be Determined

Procurement Title: Correspondence and Task Management System (CATMS) Support

Estimated Value:

Statutory and Regulatory Authority: 10 U.S.C. 3204(a) and FAR 16.505(b)(2)(i)(B)

Exception to Fair Opportunity Number: JA25-081

Upon the basis of the following justification, I, as Head of the Contracting Activity, hereby approve this exception to fair opportunity pursuant to the authority of 16.505(b)(2)(i)(B).

1. REQUIRING AGENCY AND CONTRACTING ACTIVITY:

Requiring Agency:

Defense Information Systems Agency (DISA) J6 Command, Control, Communications and Computers (C4) Enterprise Directorate (J6 C4E)

7010 Defense Pentagon, Rm 3B288

Washington, D.C. 20301-7010

Contracting Activity:

DISA/Defense Information Technology Contracting Organization (DITCO)/PS8331

2300 East Drive, Building 3600

Scott AFB, IL 62225

2. NATURE/DESCRIPTION OF ACTION: The nature of this action is to issue a firm-fixed-price (FFP) task order (TO) under the General Services Administration Alliant 2

Governmentwide Acquisition Contract for the follow-on CATMS Support Services requirement utilized by the Office of the Secretary of Defense (OSD), Washington Headquarters Services

(WHS), WHS supported organizations, and the Pentagon Force Protection Agency (PFPA). This

TO award will be made to Accenture Federal Services, LLC (Accenture). The anticipated period of performance (PoP) is for a base period of 12-months with four, 12-month option periods. The total estimated dollar value is and the base period will utilize Fiscal Year 2025 Operations & Maintenance funds.

JA25-081-Correspondence and Task Management System (CATMS) Support J&A

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The current TO number is HC1028-20-F-1112 and was awarded September 23, 2020, with a base period of 12-months with four, 12-month option periods. The current TO ends September

22, 2025. The requested contractual action will enable the Government to award a follow-on order to Accenture for CATMS support services to begin on September 23, 2025.

3. DESCRIPTION OF SUPPLIES/SERVICES: CATMS is a non-personnel services requirement providing professional services for mission application development, system engineering, sustainment, and support to the J6 and its customers. CATMS is the main OSD correspondence and coordination mission application delivering an integrated system and process for managing the lifecycle of official correspondence for the Deputy Secretary and

Secretary of Defense (SECDEF). It provides OSD components and action officers the ability to generate, assign, and control internal OSD tasks and coordination requests. The objective of the follow-on effort is support of the following services without interruption:

a. Automate the dissemination and reporting of actions, tasks, requests for information, awards, and decorations originating from the J6 to internal and external Department of Defense (DoD) staff organizations.

b. Enable transparency and provide metrics to identify workflow bottlenecks, conduct workload comparisons, and create efficiencies and accountability for staff processes.

c. Use agile software development techniques that allow for quick response to

Government requirements.

d. Reduce overall lifecycle support costs by limiting the need for additional operations & maintenance support.

e. Utilize the commercial off-the-shelf (COTS) software Task Management Tool

(TMT) to the maximum extent possible to maximize reuse of the existing infrastructure, reducing delivery time and development costs.

CATMS leverages the existing J6 infrastructure and provides seamless integration to

Configuration Resource Management (CRM), Microsoft (MS) SharePoint servers, and MS

Office. CATMS is fully integrated into supported workflow/staff functions enabling a more streamlined tasking procedure than equivalent offerings available in the marketplace. CATMS provides the Government increased transparency, visibility, and accountability within the TMT supported footprint. The TMT product along with the additional customized CATMS module addresses Correspondence Management Division (CMD) functionality that provides a more

“useable” product to meets customer requirements. By utilizing the TMT product, the amount of work is reduced, resulting in the reduction of resources required to maintain and sustain the system, therefore lowering the lifecycle costs making the CATMS solution unique. Without these essential capabilities, the DoD Executive Secretary Office and corresponding components will not be able to efficiently collaborate, manage tasks, or track correspondence.

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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. 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) Justification

1) Description of the Justification and discussion regarding cause of the sole source situation. On September 23, 2020, DISA/DITCO executed HC1028-20-F-1112 to fulfill the correspondence and task management requirement. The order will end on

September 22, 2025. As summarized in the market research report, after review of the responses from industry to a sources sought notification, it was determined that to maintain or improve the current state, a sole source award would be necessary as the incumbent, Accenture, is the only awardee capable of providing the highly specialized services at the required level of quality to meet the Government’s needs. Accenture is the only known entity with exclusive data rights and source code for the TMT system.

As such, they are on the only known firm that has the rights and ability to perform the

CAMTS support services. Award of the follow on TO will ensure that there is continuity in the critical CATMS services that support the Secretary and Deputy

Secretary of Defense to the Army, Navy, Air Force, Marine Corps, Joint Staff, OSD, and other DoD agencies.

2) Minimum Government requirements. The service required is for contractor support and maintenance of the J6 CATMS. Contractor support includes all personnel supervision, and non-personal services necessary to operate, maintain, upgrade and enhance the capability to digitally process, coordinate, and track correspondence taskers originated on behalf of the SECDEF and Deputy Secretary of Defense to the Army, Navy, Air

Force, Marine Corps, Joint Staff, OSD, and other DoD agencies.

3) Proposed sole source contractor and demonstration of unique source. Accenture is the only company capable of performing because of their unique access to the source code for TMT and their highly specialized knowledge and skillset to:

• Train J6 personnel in CATMS system maintenance changes at each version release of the TMT software.

• Provide white papers for modified product installation, configuration files and release notes for the CMD code/execution file with new builds/releases with each release when changes are made to CATMS.

• Conduct design reviews and code walk through sessions of CATMS for custom code and interfaces upon Government request before and/or after any minor release of CATMS unique code and interfaces with design documentation.

Market Research confirmed that Avande is the sole source developer of TMT and is

80% owned by Accenture and is a subsidiary. As a subsidiary, TMT is now only

Page 4 of 8 Pages available through Accenture that has the exclusive rights to sell TMT licenses. As there are no known authorized resellers, the Government is not able to procure support for the TMT application and the proprietary source code from any other source other than Accenture, the incumbent contractor.

4) Procurement discussion. The COTS software TMT is the only acceptable and available software operating on the Microsoft Dynamics CRM platform that is designed to manage and execute complex tasking workflow within and across DoD organizations. Accenture is the sole seller of TMT and does not have any authorized resellers. Therefore, the Government is not able to procure support elsewhere.

Accenture retains proprietary rights to the TMT source code and does not have any obligation to provide this source code to any other company. Because of this, Accenture is the only company that can implement enhancements into TMT's source code to facilitate proper integration into the DoD’s server construct. The TMT license supports up to 6,100 government users for all CATMS COTS components and provides TMT software service and maintenance support. TMT licenses also include access to the TMT Technical Support Help Desk which is required to access the latest version of TMT software, documentation, and training materials.

5) Impact. Failure to award to a firm other than Accenture will critically limit the

Government’s ability to perform any customization to the TMT platform to meet DoD policy standards and the specific needs of supported user organizations without the capability to access TMT source code. Should the Government switch to another vendor’s application, it would be a disruption in service to the dissemination and reporting of actions, tasks, requests for information, awards, and decorations originating from J6 to internal and external DoD staff organizations. Further, there would be a learning curve that would require additional technical personnel dedicated to achieving the subject matter expertise required to perform the CATMS duties. In addition, there is a risk for an interruption of services and time delay to customize another product to meet SECDEF requirements and migrate legacy data.

A transition to another firm would also cause substantial duplication of cost as a rebuild of the existing system would produce additional cost estimated to be for the Government. This includes costs associated with IT infrastructure, platform, training to meet Government requirements, and obtaining an Authority to

Operate, Proprietary Information Agreement, and a System of Record Notice certification.

5. COST/PRICE FAIR AND REASONABLE DETERMINATION: The Contracting Officer will ensure that the resulting contract price is fair and reasonable in accordance with FAR

15.404-1 "Proposal Analysis Techniques". The Government will compare proposed prices set forth by Accenture to historical prices paid by the Government under the current/past contracts.

The Government will also compare the proposed prices to Accenture’s established Alliant 2 contract rates that were previously determined to be fair and reasonable and with the Independent

Government Cost Estimate prepared for this TO. Based on these techniques, the Contracting

Officer anticipates that the cost to the Government will be fair and reasonable.

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6. MARKET RESEARCH: A formal Sources Sought Notice of Intent (NOI) was published on

October 30, 2024, with responses due November 14, 2024. One small business, Blueberry

Hawaii, responded to the NOI. Although Blueberry Hawaii identified past performance with designing a technical tracking system, the vendor did not demonstrate knowledge of CATMS, nor the underlying software CATMS is based upon (TMT and SharePoint), nor did the vendor discuss knowledge of acquiring and maintaining TMT licenses, which are all fundamental components of CATMS and its underlining proprietary source code that is only possessed through Accenture. After reviewing capabilities offered by the vendor(s), it was apparent that the only product available that possesses a unique and suitable non-licensed user interoperability feature, without additional software development, is the TMT solution.

7. ANY OTHER SUPPORTING FACTS: A gap in continuous CATMS support from Accenture would lead to a core inability to customize the TMT program to meet the specific needs of DoD.

The TMT program is customized during the annual TMT software maintenance renewal to ensure that the Government is operating the latest version of TMT.

In addition, when the manufacturer releases software upgrades containing patches and security updates that may not always function properly with other applications on the network, the vendor will customize to either correct the issue or revert to the previous version. No other CRM-based tasking solutions exist with the ability to incorporate non-licensed users as a distinctive capability to meet J6 requirements. All other vendors would have to incorporate the price of software development into the contract and the additional time required to develop the software during an extended PoP.

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

THAT LED TO THE EXCEPTION TO FAIR OPPORTUNITY: (FAR 16.505(b)(2)(ii)(B)(7)).

(a) Procurement History

Contract number: HQ0034-12-C-0030 (TMT)

PoP: September 28, 2012 – September 30, 2015

Contract Value: $10,176,542.80

Contract Type: FFP

Contractor Name: Accenture commercial and Government Entity

(CAGE) 1ZD18

Contractor Business Size: Large Business

Method of Acquisition: Competed

Acquisition Strategy/Vehicle: Open Market

NAICS: 541512 $25.5M

Order number: HQ0034-14-F-0022 (Electric Correspondence Control

System (eCCS) to CATMS Labor)

PoP: December 01, 2013 – May 31, 2015

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Contract Value: $2,133,031.52

Contract Type: FFP

Contractor Name: Digital Management, Inc.

Contractor Business Size: Small Business

Acquisition Strategy/Vehicle: Direct Award – 8(a) Set Aside

NAICS: 541512 $25.5M

Order number: HQ0034-15-F-0039* (CATMS Service Extension)

PoP: February 03, 2015 – June 12, 2015

Contract Value: $938,318.37

Contract Type: FFP

Contractor Name: Accenture CAGE 1ZD18

Contractor business size: Large Business

Acquisition Strategy/Vehicle: Sole Source

NAICS 541519 $27.5M

*This effort was awarded because the option period for previous TO, HQ0034-14-F-0022, could not be exercised without this additional effort. This effort is for the consolidation of eCCS to

CATMS labor.

Contract Number: HQ0034-15-P-0235 (TMT Software Assurance)

PoP: October 01, 2015 – September 30, 2016

Contract Value: $244,000

Contract Type: FFP

Contractor Name: Accenture CAGE 1ZD18

Contractor business size: Large Business

Acquisition Strategy/Vehicle: Sole Source

NAICS 511210 $38.5M

Order Number: HQ0034-15-F-0031(TMT and License Installation)

PoP: June 15, 2015 – September 22, 2017

Contract Value: $4,971,966

Contract Type: FFP

Contractor Name: Accenture CAGE 1ZD18

Contractor business size: Large Business

NAICS: 541519 $27.5M

Contract Number: HQ0034-16-C-0106 (TMT Software Assurance)

PoP: September 30, 2016 - September 29, 2017

Contract Value: $551,501

Contract Type: FFP

Contractor Name: Accenture CAGE 1ZD18

Contractor business size: Large Business

NAICS:511210 $38.5M

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Contract Number: HQ0034-17-C-0104 (CATMS and TMT Support)

PoP: September 23, 2017 to September 22, 2020

Contract Value: $7,452,063

Contract Type: FFP

Contractor Name: Accenture CAGE 1ZD18

Contractor business size: Large Business

NAICS: 541512 $27.5M

Order Number: HC1028-20-F-1112

PoP: September 23, 2020 – September 22, 2025

Contract Value: $11,410,151

Contract Type: FFP

Contractor Name: Accenture CAGE 1ZD18

Contractor business size: Large Business

NAICS: 541512 $34M

(b) The current need for this order is driven by the J6 C4E’s reliance on a highly customized

COTS TMT software solution that has been extensively tailored to meet mission-specific workflows. The Government owns the data rights for custom code developed with

WHS/Executive Services Directorate (ESD) TMT solution; however, it will not function properly without the foundation modules on the COTS TMT software that it was programmed upon. As a result, replacement or recompete of these services is not feasible without substantial disruption to operations. The long-term strategy has been to transition from this customized TMT environment to a core TMT instance, leveraging a Software-as-a-Service model, which would alleviate the need for a sole source award and enable future competition for support and development services. The initial step to implementing this strategy is to enable cloud capabilities. Cloud migration is scheduled to be completed by the end of the base year. After migration, the J6 C4E will be in a position to transfer

CATMS tasks to the Army’s Joint Enterprise Task Management System (JETMS) requirement. JETMS, a follow-on to competitively awarded Enterprise Task Management

System (ETMS), is currently in the acquisition planning phase, with a targeted performance start date of August 2026. The PoP for CATMS has been designed to allow for strategic alignment with JETMS, while still ensuring continuous coverage of all

CATMS task areas. The PoP consists of a one-year base period, plus four, 1-year option years, creating approximately a two month overlap with ETMS to allow for transition. In the event that a transition to ETMS is delayed or problematic, the remaining option years under CATMS ensure that services will not be disrupted.

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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/DATE: See separate signature page

TITLE/ORGANIZATION:

PHONE: (

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.

PHONE:

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

HEAD OF THE CONTRACTING ACTIVITY 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 for OTFAOC does not exceed this review serves as approval.

ALL QUESTIONS REGARDING THIS JUSTIFICATION ARE TO BE REFERRED TO:

Contracting Officer, Mallory A. Moss at mallory.a.moss.civ@mail.mil or (667) 891-0545.