Justification Approval_ R.pdf

DEFENSE THREAT REDUCTION AGENCY

8725 JOHN J. KINGM AN ROAD, STOP 6201

FORT BELVOIR, VA 22060-6201

March 29, 2024

OTHER THAN FULL AND OPEN COMPETITION

JUSTIFICATION AND APPROVAL

OTHER THAN FULL AND OPEN COMPETITION JUSTIFICATION

1. Nature and/or Description of Action

The Defense Threat Reduction Agency (DTRA) contracting activity proposes to procure, on a sole-source basis, a 12-month follow-on contract for ongoing subject matter expertise to provide fully integrated advisory and assistance support services to the Strategic Integration (SI) Directorate as ordered by the Director, DTRA. These activities require dedicated and unbiased professional advisory and assistance services (A&AS) support provided by a performer with in-depth experience across a wide range of SI internal and external missions and organizations. This acquisition will continue A&AS support for the Department of Defense (DoD) Combat Weapons of Mass Destruction (CWMD) mission, which includes: CWMD planning; strategic planning;

requirements management; threat and opportunity analysis; regional engagement activities;

training and exercise support; scientific and technical expertise to advise, support and conduct CWMD studies, projects, tabletops, and other community products and events; technical support for documents, reports, research and associated graphics or multimedia products; administrative support, and an array of information resilience tasks for the CWMD mission. A&AS support for SI mandates the contractor fully institutionalize and execute SI's requirements and support coordinated actions with other Directorates within DTRA. The SI planners serve as the focal point to facilitate enhanced DoD planning, coordination, collaboration and information sharing of DTRA roles, missions, and functions; current CWMD Operations, Activities and Investments (OAIs) within DoD; other United States Government agencies; and internationally with key allies and partner nations.

2. Description of the Supplies/Services Required

Bridge contract HDTRA1-23-C-0022 was put in place on 16 February 2023, while the Agency completed the source selection process. When a protest was filed, the contract was extended three more times, as the Agency attempted to resolve the issues surrounding the protest. The final extension to the bridge expires on 5 April 2024. The requirements performed by this bridge contract are critical to the DTRA mission, and SI cannot afford a lapse in service. A new bridge contract is required for a period not to exceed 12 months, to allow for the reprocurement of a follow-on contract. The acquisition of SI A&AS Support Services is in the initial phases, and should be completed by or before the completion of this proposed bridge contract. These services were originally being provided through the incumbent, CENTRA Technology (now Amentum Services, LLC), under Indefinite Delivery Indefinite Quantity (IDIQ) Contract HDTRA1-16-D- 0004. Accordingly, the Government recommends the award of a sole source contract to Amentum Services, LLC (previously CENTRA) to allow uninterrupted continuation of critical professional services for the CWMD mission. This bridge action seeks only to continue the work currently being performed under HDTRA1-23-C-0022. The value of the bridge award is anticipated not to exceed

The nature of the work to be performed by Amentum during the bridge period is as follows:

A. SI Front Office Support: Provide technical, administrative, and logistical support for planning, implementing, and evaluation programs activities that shall include developing and coordinating the SI responses to internal and external taskings via the Enterprise Information System (EIS), using the Defense Travel System (DTS) to coordinate travel in support of the SI, editing documents, obtaining documentation and following-up on open action items, recording meeting notes and the production of meeting minutes. Provide other ancillary, within scope administrative duties coordinated in advance between contractor Project Manager (PM) and government Contracting Officer’s Representative (COR). Provide knowledge management services to include creating new SharePoint pages, managing access to, improving the design, organization and ease of use, and posting new or changed information to the Directorate’s SharePoint or other web-enabled sites. The anticipated period of performance is 12 months effective 8 April 2024.

B. Plans and Exercises Department (SI-PL) Support: Provide analytical, technical, and administrative support for day-to- day activities to include operational expertise, organizational policy and planning development and project/program support, and technical support specific to each of the CCMDs area of operations, to include information, advice, alternative analysis, evaluations and recommendations. Provide analytical, technical, and administrative support for training, doctrine, and exercise related activities. analytical, technical, and administrative support for day-to-day activities and surge activities as it relates to the mission for the Agency Requirements Cell. This shall include support to the Agency process to identify and document requirements. Provide analytical, technical, and administrative support for day- to-day activities and surge activities as it relates to the Opportunity Analysis Cell. Provide subject matter expertise on Opportunity Analysis and Design Thinking processes (synthesis/designers), to deliver responsive, interdisciplinary and analytical capability involving broad, undefined complex issues of either a special or recurring nature. The anticipated period of performance is 12 months effective 8 April 2024.

C. Effects Branch (SI-PLSE) Support: Provide expert advice and analytical support for data collection/management, performance management/ measurement, and organizational assessment efforts through utilization of operations research/systems analysts (ORSAs). Additionally, the contractor shall provide and support strategic and operational level analysis of Agency and DoD-wide strategy, policy, doctrine, decisions, trends concepts, and studies. Further, the contractor shall provide expert advice and guidance regarding the establishment, management, and execution of a formal Agency Assessment framework. The anticipated period of performance is 12 months effective 8 April 2024.

D. Strategic Trends Office (SI-ST) Support: Assist with the formulation and preparation of briefings, reports, and other communications materials to present to senior officials in DTRA, DoD, and other agencies. Provide expert advice and analytical support for strategic planning, strategy development, performance management and measurement, and organizational assessment efforts. Support strategic planning efforts and conduct analyses of CWMD-related strategies, policies, doctrine, plans, capability gaps, and emerging trends to support decision making related to the current and potential future WMD threat environment. Assist with the development and maintenance of the DTRA multi-year strategic guidance and annual budgeting guidance, in order to inform and guide the development of Agency CWMD strategies and programs, and PPB&E activities. Review and analyze selected publications on behalf of the USG to determine congruence with existing policy and doctrine and technical accuracy, or other criteria directed by the Government. Research, analyze, and present findings on future global, regional, and country-specific topics related to the research, development, and use of weapons of mass destruction and well as emerging science and technology that will impact and shape CBRN development and use. Support coordination and execution of virtual and in-person events including ST-sponsored conferences and meetings (including symposia, forums, workshops, and table-top exercises) to promote discussion on future challenges and topics outside of normal DoD plans. Support design, development, and execution of Government-sponsored internal and external table top exercises (TTXs) focused on experiential learning and workforce development.

Support strategy development, planning, and execution of outreach, coordination, and key leader engagements with DoD, Interagency (IA), and Congressional offices. Support planning, strategy, contracting efforts, and program analysis for externally conducted research funded through SI-ST or other Agency programs using SI-ST contracting options. Support data collection, management, and archival within office (SI-ST) and directorate (SI). Assist with selection or creation, in concert with SI and SI-ST Government personnel, visual graphics and illustrations for publications, reports, events, or advertisements. Support integrated reviews and assessment of ST efforts in support of the larger Agency mission, including strategy, plans, activities, investments, and contractor formulates assessment of gaps/seams in addressing future WMD threats for internal use to augment Strategic Trends efforts in addressing credible, actionable, and timely recommendations for DTRA, DoD, and the warfighter on future battlespace challenges pertaining to WMD and emerging S&T. Support independent cost estimation, market analyses, purchase requests, memorandums, research and analysis of acquisition tasks, and provides general expertise in contracts preparation. The anticipated period of performance is 12 months effective 8 April 2024.

E. Information Resilience Office (IRO) Support: Support by coordinating the IRO responses to internal and external taskings via the Enterprise Task Management Software Solution (ETMS2), using the Defense Travel System (DTS) to coordinate travel in support of the IRO Chief; and editing documents, obtaining documentation and following-up on open action items. Provides Foreign Malign Influence (FMI) Campaign Assessment support; reviews classified and unclassified reports, provide adversary narrative assessments, and measure impacts and effects of FMI campaigns and developing foreign narrative tracking frameworks and update foreign narrative trends. Support the development of positive, transparent, and factual messaging campaigns to complement Agency missions and work with Inter- Agency partners to proactively compete in the information environment. Review and provide recommended solutions to implement USG and DoD authorities for OIE. Assist with the development of clear and concise, and poignant messaging to include writing articles about DTRA missions and its positive impact with foreign partners. The anticipated period of performance is 12 months effective 8 April 2024.

3. Statutory Authority

The statutory authority for this non-competitive action is 10 United States Code (U.S.C.)

3204(a)(1), as implemented by FAR 6.302-1, Only One Responsible Source and no other supplies or services will satisfy agency requirements. The highly specialized services for this requirement are only available without interruption to the critical CWMD mission, from the incumbent, Amentum Services LLC. Award to another source would result in substantial duplication of cost to the Government that is not expected to be recovered through competition [FAR 6.302-1(a)(2)(iii)(A)] and it is equally likely that award to any other source would result in unacceptable delays in fulfilling the agency’s requirements [FAR 6.302-1(a)(2)(iii)(B)].

4. Applicability of Authority

A. Based on the professional experience/judgment and expertise of staff in the DTRA/SI Directorate, the Government has determined that the current A&AS contractor, Amentum, is the only qualified/responsible source and no other supplies or services will satisfy the requirements of the Agency pursuant to FAR Part 6.302-1. Specifically, only Amentum possesses the capability to fulfill the current requirements of the Agency without incurring a substantial duplication of cost to the Government that is not expected to be recovered through a competition for the services to be provided over a short period of twelve months predicated upon the following:

1. Historical experience dictates that there is a learning curve of a minimum of ~90 days to acquire and develop a working knowledge of DTRA SI CWMD mission space.

DoD CWMD planning activities require an approximately 30-day learning period for a contractor to become familiar with the interagency planning environment and other mission requirements. This timeframe represents one-fourth of the contemplated bridge period of performance, so any Contractor other than the incumbent would not be fully functional for 25 percent of the effort.

2. Likewise, SI-ST requires specialized support services. A contractor's prior experience supporting other DoD CWMD agencies or even private-sector CWMD research institutions do not, independently, provide complete understanding of how to support SI-ST's mission to generate timely, credible, actionable insights into strategic threat trends and emerging S&T issues within the counter-WMD mission space to enable and guide warfighter understanding. Based on ongoing studies, international engagement activities, and research efforts, coupled with previous SI-ST A&AS support experience, an estimated minimum 90-day period is required for a contractor to develop a working knowledge of SI-ST’s mission support and over-the-horizon studies requirements. This timeframe represents one-fourth of the contemplated bridge period of performance, so any contractor other than the incumbent would not be fully functional for 25 percent of the effort.

3. There is insufficient time for other companies that meet the basic requirements to become proficient in current DTRA CWMD planning and OAIs and meet all requirements by 5 April 2024. Based on the remaining timeline to award and the current stage of the solicitation, DTRA considers having an award to any contractor other than the incumbent by 5 April 2024, to be impossible.

4. Collectively, there is also insufficient time for otherwise potentially capable industry performers to become proficient in current SI-ST study structures and constructs, particularly unique and evolving against emerging threats.

5. In addition, it is impractical for other potential sources to achieve a state of operational readiness based upon a need to acquire the necessary physical facilities to fulfill the overall functional requirements of the bridge contract over a short-term period of 12 months for the SI-ST A&AS support without incurring a substantial duplication of costs that would be incurred a second time in connection with the aforementioned competitive follow-on procurement.

6. This short-term sole source acquisition ensures continuity of operations for the DTRA

SI Directorate. It is anticipated that a 12-month period will be necessary to provide for continuity of operations inclusive of a ~30-day transition period and SI support between the onset of the new competitive procurement award for SI A&AS support, and expiration of the existing A&AS contract effective 8 April 2024.

7. The need for this follow-on bridge contract is due to the recent unanticipated and unexpected decision to terminate the awarded A&AS with SPA for convenience due to ongoing issues resolving the protest with the incumbent. As a result, this requirement will be re-competed and the timeline to award a new A&AS contract will exceed the 5 April 2024 contract expiration date.

Therefore, to avoid a break in continuity of operations in SI support, the Government determined that award of a sole-source bridge contract for a period of 12 months to the current contractor is imperative and the only viable option available to the government. Failure to proceed with this bridge contract award for a period of 12 months will result in an unavoidable and substantive interruption of agency critical component continuity of operations, notwithstanding the need to have a reasonable period of 30 days for transition of services to the follow-on contract. Award to the current performer is necessary because the incumbent is the only source with the expertise and organizational experience, existing facilities, and personnel to continue performance without interruption on 5 April 2024 considering that the follow-on long term competitive award will not be in place by that time. Use of a 12-month bridge will also help with the transition to a new contractor after award of the follow-on A&AS contract. Further, this short-term effort will also serve to enhance and create an opportunity for greater competition among prospective contractors for the new A&AS contract sought by DTRA/SI because industry will have sufficient time to devise a strategy and plan to meet all of the requirements sought in the new competitive procurement.

Recompete efforts will be completed within the 12-month window based on mostly complete source selection pre-award documentation, lessons learned from the original competition, use of a more efficient source selection processes, and implementing more traditional Board processes.

These changes will ensure that the source selection process should be completed within a 6-9 month window, and allow for a 90-day protest period.

5. Effort to Solicit Potential Sources

The primary follow-on requirement that will provide DTRA with A&AS support for the long term will be a five-year IDIQ contract, which will be solicited as full and open competition. A pre-solicitation synopsis as required by FAR 5.2 will be published for the follow-on contract.

The short-term non-competitive bridge contract will provide for the necessary transition period while the follow-on requirement is in the evaluations stage. DTRA published a Special Notice of Intent to Sole Source for this effort on March 15, 2024, requesting capability statements from business concerns. The announcement closed on March 25, 2024 and resulted in capability statements from the following two sources, which were assessed for capability by the SI Directorate as follows:

Denamita (SBA, 8A Certified) SI determined this contractor would not be capable of performing the requirement in accordance with DTRA’s needs. This contractor’s core area of service is facilities support services and commercial janitorial cleaning. Denamita does not possess a facility clearance and made no positive determination regarding the clearance status of its workforce.

Moreover, the contractor does not have experience with advisory and assistance services.

The contractor failed to convey that they possess the resources necessary to take on a contract of the scope and complexity as this bridge effort. The contractor also provided no information on the status of its accounting system to suggest it is qualified to accept a Cost Reimbursement contract type. Based on the contractor’s qualifications they would not be able provide fully integrated A&AS to SI from the first date of contract performance.

Trendency Research LLC (EDSB)

This contractor’s core services include marketing research and public opinion polling, data processing, hosting, qualitative research analysis and related services. This contractor’s response failed to convey any DTRA A&AS experience. The contractor did not address any of the requirements, qualifications, or experience identified in the sources sought. Trendency Research LLC., has a pending GSA MAS Schedule which primarily focuses on research and professional services. This contractor may be able to support some of SI’s administrative A&AS requirements. Based on the contractor’s response, they do not have the qualifications and experience that is required to support the short turnaround time needed for award of this bridge contract effort.

6. Fair and Reasonable Costs

The anticipated cost/price of this contract action to the Government will be determined to be fair and reasonable based on current cost and pricing information analyzed in accordance with FAR 15.404-1.

7. Market Research

The program manager concluded that an existing contract vehicle cannot be utilized and that a new standalone contract will be required based on the following findings: The Program Manager researched the DTRA Market Research Repository which contained no reports for A&AS Contracts, however, we obtained copies of two Cooperative Threat Reduction Directorate (CT) A&AS Market Research Reports for their ongoing procurements. The work being acquired on these Market Research Reports were not within the scope of SI’s A&AS requirements. The Program Manager also researched various other DTRA contracts for A&AS support and concluded that there are multiple vendors in the marketplace with the requisite skills required to support SI’s A&AS mission. However, different vendors have different specialties with respect to the lines of A&AS support they provide. The ContractDirectory.gov databases were reviewed and it was determined that there are no current contracts that will fulfill SI’s unique A&AS requirements. Most A&AS contracts listed on ContractDirectory.gov provide support to their agency only and do not allow other agencies to place orders off their contracts. Other Department of Defense A&AS contracts were reviewed by searching ContractDirectory.gov and www.google.com. Contracts found include USAF, Agency for International Development, and HHS. The scope of these contracts were reviewed and it was determined that the SI requirements would not fit and therefore could not be utilized. GSA schedules (Professional Services, Technical & Engineering Services (non IT), Technical Consultation Services (category 541690), Management and Financial Consulting, Acquisition and Grants Management Support, and Business Program and Project Management Services (category 541611), Training, Education Support Services (category 611710) were reviewed for availability of labor categories and contract vehicles. There were no singular contract vehicles in place that could completely fulfill SI’s A&AS requirement. Researched U.S. Ability One Commission and reviewed their Service Procurement List; confirmed that Ability One does not provide Advisory & Assistance Services.

8. Other Facts

A. The planned start date of the new A&AS contract is approximately twelve months after the HDTRA1-23-C-0022 expiration date of 5 April 2024. This time period coincides with the overall performance period of the recommended bridge contract. Option clause 52.217-8 will be built into the bridge contract to account for unanticipated delays in awarding the follow-on, permitting a maximum performance period of twelve months. Upon exercise of the option, it will also notify the Contractor to begin implementing its transition period between the incumbent and the new awardee.

B. It is estimated that a duplication of costs to the government in the amount of that would not be recovered through competition, would be incurred in conjunction with the following:

A new contractor with 51 technically qualified personnel who already have the required TS/SCI security clearances, would require a minimum of 30 days training/transition to develop a working knowledge of DTRA CWMD planning, mission strategy, policy, doctrine, and OAIs. An estimated 30-day learning period is required to develop a sufficient working knowledge of DTRA requirements and regulations, particularly those governing discussions and interactions with foreign nationals. The figure in paragraph B above represents the 30 days of support for which a new performer would have to be compensated but would not represent productive work towards the CWMD effort. DTRA is willing to incur this training/transition cost to support a new contractor who will be performing under the five-year follow-on IDIQ, but it makes far less sense to incur such a substantial cost for a twelve-month bridge. Utilizing the incumbent to perform the bridge on a non-competitive basis allows DTRA to bypass this substantial ramp-up cost.

9. Interested Sources

The Notice of Intent to Award a Sole Source Contract noticed that was published on March 15, 2024, satisfies the requirement to identify potential sources as required under DFARS PGI 206- 302-1(d). This Special Notice was created specifically to address this short-term bridge requirement. A separate Synopsis and RFP will be issued to address the primary competitive follow-on requirement.

10. Subsequent Actions

The Government evaluated the information received in response to the Notice of Intent to Award a Sole Source Contract. However, no subsequent actions are anticipated for this sole source award. DTRA is conducting a full and open competition for these A&AS services. This sole source effort serves to avoid a break in continuity of operations between 5 April 2024 and the latest projected start date of 6 March 2025, for the new A&AS contract. It provides a reasonable timeframe for any prospective interested sources to adequately compete for the follow-on contract effort on an equitable basis.

Technical Certification

I certify that the data and information forming the basis for this justification are accurate and complete to the best of my knowledge and belief.

Alean Buchanan, Program Analyst (COR/PM) Date

Contracting Officer Certification and Determination

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