LCMP-IDE_Follow-on_Exception_to_Fair_Opportunity_Justification_(004)_Redacted.pdf

Justification for an Exception to Fair Opportunity or to Use Brand-Name Restriction

FOR OFFICIAL USE ONLY

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Air Force entities, including ICBMSD (AFNWC/NI), B-52 (AFLCMC/WWV), EBD (AFLCMC/HBS), E-4B

(AFLCMC/WLV), VC-25 (AFLCMC/WLV), KC-10 (AFLCMC/WKD), KC-46 (AFLCMC/WKD), KC-135

(AFLCMC/WKD), Battle Management PEO (AFLCMC/HB), Fighter-Bomber PEO (AFLCMC/WW), T-6 Trainer Aircraft (AETC 37 FTS), and Air Mobility Command (AMC/A1). Additionally, two Army System Program Offices utilize LCMP-IDE, including JLTV, and MRAP. LCMP-IDE includes the full spectrum of programmatic, engineering, financial analysis, Long Range Planning (LRP), complex data visualization, and logistics process management/visualization at all levels within the weapon system execution and management construct. Continued support also includes testing, Certification & Accreditation (C&A) of LCMP-IDE software, and system sustainment to maintain system software to Department of Defense (DoD) Risk Management Framework (RMF) standards. LCMP-IDE is a high priority for ICBMSD leadership; the envisioned end-state is a single-source weapon system overview that expedites leadership's decision making process through integration of acquisition and sustainment strategies, while mitigating risks to the acquisition and sustainment of the weapon system. Collaborative design and adoption of system capabilities across multiple weapon systems serves to foster standardized, process-driven operation of each individual Program Office, while allowing the opportunity for cross leveraging of feature sets. LCMP-IDE consists of a unique architecture that allows significant Government cost avoidance through the reuse of modules. Modules are procured by one organization and then employed across the LCMP-IDE user community. This unique architecture allows consistency of key attributes, while allowing customization of each organization's uniquely configured adaptation of LCMP-IDE. The LCMP-IDE application must continue to be a flexible program, data, and asset management environment for a wide range of DoD organizations, all utilizing the shared framework to realize significant cost avoidance. The ICBMSD LCMP-IDE site is integrated with other organization's uniquely configured sites, including joint services, to provide a unified effort based on a core set of modules that bridge all aspects of fleet management. This unique construct provides near real-time information for decision-makers at all levels of ICBMSD during the entire lifecycle of the ICBM weapon system. LCMP-IDE architecture utilizes partitioning to ensure data is not leaked from one organization's application to another, while maintaining the capacity to share capabilities and logic across multiple organizations.

B. The total cost for this effort is estimated to be $24,068,090 over a nine year period, with an additional $1,406,434 optional extension, for a total of $25,474,524. This cost is in then-year dollars, and is based on previous contract costs, plus inflation; the cost estimate was accomplished by the Government on 15 Jun 2018.

Approximately staff hours will be acquired per year for this effort. The appropriation funding type is AF Appropriation Code 3600 and 3020.

C. The estimated award date will be in Mar 19 and the contract Period of Performance (PoP) will be Mar 19 through Mar 28. The contract will have a basic one-year period, with eight option periods, and an optional six month extension. A nine year contract is in the best interest of the Government to minimize the cost and efforts necessary to re-accomplish a recurring contract while sustaining LCMP-IDE, which requires specialized expertise and knowledge. Below is the estimated cost per year:

FY19 FY20 FY21 FY22 FY23 FY24 FY25

FY26 FY27 FY28 Total

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(4) Identification of the exception to fair opportunity and the supporting rationale:

The statutory authority that permits other than full and open competition for this acquisition is 10 U.S.C.2304 (c)(1), as implemented by FAR 16.505(b)(2)(i)(B), Exception to Fair Opportunity; only one awardee is capable of providing the services required at the level of quality required because the services ordered are unique or highly specialized.

A. BAH is the original and sole contractor to design, implement, and maintain the LCMP-IDE capability, and is the best option to allow ICBMSD to receive uninterrupted LCMP-IDE support. BAH is the current contractor and has been providing LCMP-IDE services for ICBMSD since 2011.

BAH developed a disciplined process for coordinating system administration, software engineering, user support, training, and system integration processes to provide holistic LCMP-IDE synergies across several weapon systems. As BAH possesses the system architects, who are the authors of all LCMP-IDE code, their staff has an in-depth knowledge of the software and hardware components of the LCMP-IDE application. This enables them to provide an immense level of support for making modifications and maintaining system functionality at the most efficient cost to the Government. BAH is the only firm that can accomplish this effort due to their expertise in providing the highly specialized modifications and unique capabilities required, without duplication of cost or unacceptable schedule delays. When LCMP-IDE was implemented, the Government chose to procure an end item capability, and for affordability reasons, did not purchase the documentation and architecture information behind creating that capability. The Government has Government Purpose Rights to the data itself, but does not have access to the accredited operating environment, as well as access to BAH's proprietary test, development, and staging environments. This would result in unacceptable cost increases and delays to schedule. There are currently 127 active ICBMSD acquisition and sustainment programs managed in LCMP-IDE. Management of programs in LCMP-IDE allows PMs to store all status updates, risk data, correspondence, and documentation on their program page. They can generate charts for Program Management Reviews (PMRs), metrics to inform senior leaders on program status, and build a program schedule with minimal effort.

The ICBMSD Senior Materiel Leader (SML) and Division Chiefs have coordinated through the PCO requests for numerous enhancements/modifications within scope of the contract to the current software, including the development of a Document Workflow module which allows PMs to quickly coordinate milestone documentation through an automated process with continuous visibility of status. There are several other enhancement/modification proposals that ICBMSD and BAH are currently working to develop and refine.

These modifications will enhance process standardization and visualization at all levels within a weapon system execution and management. There are also capabilities requested by leadership that are in the process of being leveraged and tailored, including a Manpower module, and a Work Breakdown Structure module.

LCMP-IDE is essential for the development and sustainment of the ICBMSD Integrated Master Schedule (IMS); it highlights all relevant phases, milestones, contracting actions, and critical path activities within separate programs to generate the overall IMS. The IMS data populates dashboard views that summarize program cost, schedule, performance, and funding status; as well as a separate upcoming milestone tracker.

The IMS data will also be used to populate portions of the Directorate Scorecard. The IMS and program schedules in LCMP-IDE can be exported to, or imported from Microsoft Project, or Primavera. Once a schedule is loaded, cross-program dependencies can be identified within the system and highlighted on the invalid constraint view when one schedule change affects multiple efforts. It is necessary that all schedule

March 2018 FOR OFFICIAL USE ONLY Page 4 of 8 functions synchronize to create an accurate IMS, and software modifications are developed to support changes in requirements. ICBMSD has been able to utilize the BAH team's expertise in acquisition policies, internal processes, ICBM weapon system experience, and financial analysis to satisfy mission requirements within

LCMP-IDE.

The LCMP-IDE database is able to synergize development modules across DoD weapon systems.

Coordinating with the thirteen other weapon systems that have implemented the system is vital to enable the leveraging of modules into ICBM LCMP-IDE capabilities without developing new requirements. ICBMSD has leveraged several LCMP-IDE modules from 2013-2018 paid for by other weapon systems, for a savings of approximately $3M. BAH has delivered six major enhancements to ICBMSD LCMP-IDE system at a reduced cost to the Government due to leveraging of previous LCMP-IDE components as a basis of system capabilities. This approach to providing cost avoidance and capability sharing with seamless interoperability of system capabilities cannot be provided by another contractor without significant overhead to the Government.

LCMP-IDE is not a classified information system, but is categorized as a Data Impact Level IV system by the Defense Information Systems Agency (DISA), and must comply with security requirements mandated under the Risk Management Framework (RMF) to ensure LCMP-IDE undergoes complete application security reviews prior to the release of any modified or new functionality to the end user community. BAH has provided support in the certification and accreditation (C&A) process, hosting, and maintenance of the LCMP- IDE application at the DISA Defense Enterprise Computing Center (DECC), and as of July 2017, at Amazon Web Services (AWS) GovCloud. Since the initial DIACAP-approved LCMP-IDE release, BAH has developed strategies to manage evolving regulations which provided the DoD with the most cost effective, and productive system release strategy. This strategy also included a robust and highly effective maintenance operation as well. Upon transitioning to AWS, BAH successfully completed all RMF C&A requirements for a seamless transition, and with no downtime to LCMP-IDE users. BAH demonstrated their technical expertise with DoD computer networking requirements and LCMP-IDE system architecture by being the first contractor to successfully migrate a DoD information system to AWS GovCloud at Data Impact Level IV. This migration greatly improved the performance and reliability of LCMP-IDE.

BAH provides all LCMP-IDE clients the opportunity to share the cost of C&A for their system releases by packaging their system updates into a single BAH-executed system release, which includes updates from each of the other Government LCMP-IDE systems. The cost savings BAH has provided by orchestrating a shared C&A review across the application and system level security controls is approximately of the total cost if it was not shared, resulting in hundreds of thousands of dollars saved across LCMP-IDE organizations. There are currently 965 active users in ICBMSD LCMP-IDE extended across multiple organizations, including AFNWC, Air Force Global Strike Command (AFGSC), the Acquisition Office for the Secretary of the Air Force (SAF/AQ), 20th Air Force, United States Strategic Command, 309th Missile Maintenance Group, Air Force Sustainment Center (AFSC), and associated support contractors. The Government owns the LCMP- IDE software and data, but did not purchase software design and architecture documentation. The Government has Government Purpose Rights to the software and data but not to the operating environment which is critical in order to utilize any of the data. It would cost roughly $8.4 million to purchase the operating environment.

B. BAH built and continues to maintain a proprietary test, development, and C&A environments for the LCMP-IDE software application, equipping them with the unique ability to sustain and enhance LCMP-IDE while providing significant savings in the form of leveraging and cost sharing. BAH has also developed a

March 2018 FOR OFFICIAL USE ONLY Page 5 of 8 suite of proprietary support tools that are tightly integrated with the application to perform testing, version control, and manage the custom configuration of each organization's adaptation of the site. BAH possesses highly specialized capabilities and experience specific to ICBMSD. The integration of BAH team members with extensive ICBMSD and LCMP-IDE experience is critical to the ICBMSD acquisition processes, financial analysis, and LRP. These strategic processes allow greater utilization of LCMP-IDE to accomplish AF strategic goals, and incorporate advanced Information Assurance technologies, to ensure the ICBMSD mission is accomplished as efficiently and effectively as possible throughout the lifecycle of Minuteman III. The utilization of one firm to fulfill various requirements is beneficial to the Government due to their internal processes, and allows for cross-utilization of other BAH modules with minimal cost. LCMP-IDE is required to comply with RMF standards and maintain a Government-provided Authority to Operate (ATO), which can take up to 2-3 years to establish. BAH is the only supplier with the necessary understanding of how a change request is routed through the C&A process for LCMP-IDE. They have eleven years of expertise in managing the LCMP-IDE SharePoint site and custom ASP.Net web application while remaining compliant with all applicable DoD information technology and cybersecurity requirements. Throughout this time period, BAH has proven their expertise in developing secure and compliant code for the LCMP-IDE application.

C. Award to any other source would create substantial duplication of cost to the Government that is not expected to be recovered through competition, and will result in unacceptable delays in fulfilling AF requirements. If LCMP-IDE were contracted to another source, it would require that a new development, staging, and production environment be created, which would then need to go through the entire RMF C&A process before receiving an ATO. Companies potentially competing for these requirements must have the knowledge and capability to review and analyze current code to understand the overarching system and architecture based on existing supporting documentation. The same review process would then be accomplished for each of LCMP-IDE's software modules. This is a lengthy process and could take up to six months per module, driving additional program cost and potential breaks in support. A Government cost and schedule analysis for this process was completed on 7 August 2018, to assess the level of effort from a technical and labor perspective to develop and deploy a system with capabilities necessary to replace LCMP- IDE. The analysis indicated that if LCMP-IDE were contracted to another source, it would cost approximately $8.3M in labor, and require up to 36 months to develop and deploy a system with capabilities to meet ICBMSD requirements. Any contractor other than BAH would also be required to continue software design, development, sustainment and enhancement capabilities once the system was fully operational. Leveraging the software development efforts of other LCMP-IDE clients presents a significant cost savings and force multiplier for ICBMSD. Under the current configuration, BAH has the ability to enable software modules developed by other LCMP-IDE clients at little to no cost to ICBMSD. Since the ability to leverage is provided by BAH, ICBMSD would no longer be able to leverage modules in LCMP-IDE without significant additional cost if awarded to any other source. Additionally, due to the complexity of LCMP-IDE, with over 40 million lines of code, high levels of competency in the system's design and functionality are required to support the system. If LCMP-IDE were awarded to another source, ICBMSD would be without the level of support required for several months while a new source became familiar enough with LCMP-IDE's environment to fully support it.

Supporting LCMP-IDE requires a software development and testing infrastructure, multiple software licenses, and an RMF certified production environment. Companies competing for these requirements would need to purchase or lease hardware, develop new test and certification software, and establish working relationships with the C&A authorities to perform these functions. Additional program cost and an increased risk of interrupted service would be incurred. In addition to the current proprietary test, development, and C&A