Limited_Sources_Justification-16-256-Intrusion_Detection_System_printed_pdf_Redacted.pdf

Control No: JA-TEN-16-256 Contractor: TYCO

Program: Intrusion Detection System (IDS) and Electronic Security Systems (ESS) Maintenance and Installation

Version – March 2016 FOR OFFICIAL USE ONLY

JUSTIFICATION REVIEW DOCUMENT

FAR 8.405-6 LIMITED SOURCES JUSTIFICATION

UNDER THE GENERAL SERVICES ADMINISTRATION

FEDERAL SUPPLY PROGRAM

Program/Equipment: Intrusion Detection System (IDS) and Electronic Security Systems (ESS) Maintenance and Installation for US Army Garrison DES.

Authority: Title III of the Federal Property and Administrative Services Act of 1949 (41U.S.C. 251, et. Seq) and Title 40 U.S.C 501, Services for Executive Agencies, as implemented by FAR 8.405-6.

Amount: $7,032,910.65

Prepared by:

Contracting Officer:

Technical:

Requirements:

Program: Intrusion Detection System (IDS) and Electronic Security Systems (ESS) Maintenance and Installation

Version – March 2016 FOR OFFICIAL USE ONLY

Reviews: I have reviewed this justification and find it adequate to support limiting competition.

Program Manager:

Legal Counsel:

Advocate for Competition:

Program: Intrusion Detection System (IDS) and Electronic Security Systems (ESS) Maintenance and Installation

Version – March 2016 FOR OFFICIAL USE ONLY

FAR 8.405-6 Limited Sources Justification Under the General Services Administration

Federal Supply Schedule Program

1. Contracting Activity: U.S. Army Contracting Command-Aberdeen Proving Ground, Tenant Division, Facilities Branch, 6001 Combat Drive, Aberdeen Proving Ground, MD 21005-5013.

2. Description of Action: The Aberdeen Proving Ground Garrison requests award of a Blanket Purchase Agreement (BPA) to Tyco Integrated Security Inc., under GSA Federal Supply Schedule Number GS-07F-225CA for the installation, replacement, maintenance of Intrusion Detection Systems (IDS) and Electronic Security Systems (ESS) for Aberdeen Proving Ground (APG) and the Command, Control, Communications, Computers, Intelligence, Surveillance and Reconnaissance (C4ISR) Access Control area. The calls will be issued on a Firm Fixed Price (FFP) basis based on GSA contract pricing. This BPA total estimated value is $7,032,910.65 for one base year and four (4) option years. The period of performance will be 4 July 2016 through 3 July 2017, with four (4) option years. The requirement will be funded using Operations and Maintenance (O&M) funds. An acquisition plan is not required because this procurement does not meet the threshold at Defense Federal Acquisition Regulation Supplement 207.103(d)(i)(B).

3. Description of Supplies/Services: This acquisition will provide services for maintenance to the IDS and other ESS which is required to provide regulatory protection of Department of Defense (DoD) and Army assets. The assets include Sensitive Arms, Ammunition and Explosives; Chemical and Biological Surety Material; Classified Information including Special Access Programs and Top Secret Sensitive Compartment Information. The services include two (2) personnel on-site as well as a twenty four (24) hour help desk. This includes the installation of new equipment to support new requirements as required by DoD/Army regulations by the Garrison and Tenant activities.

Maintenance includes sustainment of all previous equipment installed under previous contracts cited below in paragraph 10 a. The contractor will be responsible to repair and sustain over 400 IDS panels (currently Focus 200PA Alarm Panel), IDS Servers/Workstations (Mastermind Alarm Monitoring Software), IDS Communications equipment (Analog, Network and UF Radio), Access Control Systems (Facility Commander and Lenel OnGuard) in 100 buildings and Closed Circuit Television (CCTV) systems (Bosch, Panasonic) in 50 Buildings that provide security support to the Garrison and Support Tenants. UFC 4-010-05 (Electronic Security Systems), ICS 705-1 (Physical and Technical Security Standards for SCIF’s), JFAN 6-9 (Physical Security Standards for Special Access Program (SAP) facilities), DoDM5100.76M (Physical Security of Arms, Ammunition and Explosives) all require IDS to meet the standards of UL 2050 (National Industrial Security Systems), UL 634 (Connectors and Switches for use with Burglar Alarm Systems), UL 639 (IDS) and UL 681 (Installation and Classification of Burglar and Holdup Alarm Systems) as required by Army regulations.

Program: Intrusion Detection System (IDS) and Electronic Security Systems (ESS) Maintenance and Installation

Version – March 2016 FOR OFFICIAL USE ONLY

The following information contains the value of base period as well as the option years.

Period of Performance Value

Base Period 7/4/2016 7/3/2017 $ 1,406,582.13 Option Period 1 7/4/2017 7/3/2018 $ 1,406,582.13 Option Period 2 7/4/2018 7/3/2019 $ 1,406,582.13 Option Period 3 7/4/2019 7/3/2020 $ 1,406,582.13 Option Period 4 7/4/2020 7/3/2021 $ 1,406,582.13

4. Authority Cited: Title III of the Federal Property and Administrative Services Act of 1949 (41U.S.C. 251, et. Seq) and Title 40 U.S.C 501, Services for Executive Agencies, as implemented by FAR 8.405-6 and substantiated by the following:

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.

5. Reason for Authority Cited: Tyco Integrated Security (formerly ADT Security Services) was selected by the US Army to replace the IDS in 1989 under the Army Installation Moderation Program. ADT replaced the existing IDS with the Focus brand Alarm panel. These panels have been upgraded over the years to the current Focus 200 PA Alarm Panel either through maintenance upgrades or life-cycle phase outs. The Focus Alarm panel is a commercially available alarm panel made by Honeywell that Tyco sells. Honeywell makes the hardware product and Tyco takes the product and adds its software and programming code to make it fully functional. Tyco Integrated Security only allows their trained personnel to support their alarm panels and the programing code from Tyco is not releasable to other companies outside of Tyco Integrated Security.

This makes Tyco Integrated Security the only source that can support over the existing 400 active alarm systems in use and over 100 alarm systems that are currently powered down. The powered down systems can be brought back on line at any given time to meet a tenant security requirements. Tyco Integrated Security is also maintaining over 100 access control systems or closed circuit television systems that support other tenant security requirements to protect Sensitive Arms, Ammunition or Explosives, Chemical or Biological Agents or Classified Storage Area (Top Secret and Secret material or Special Access Program material) of various tenant facilities. Tyco Integrated Security is a UL2050 certified alarm company provider which is required by the Government.

As stated in FAR Part 8.405-6, “Orders placed or BPAs established under Federal Supply Schedules are exempt from the requirements in Part 6. However, an ordering activity must justify its action when restricting consideration in accordance with paragraphs (a) or (b) of this section. The below information further outlines the rationale for restricting this opportunity to Tyco Integrated Security.

Program: Intrusion Detection System (IDS) and Electronic Security Systems (ESS) Maintenance and Installation

Version – March 2016 FOR OFFICIAL USE ONLY

Tyco Integrated Security is the only vendor that currently provides or supports the Focus Alarm panels in use at APG. This panel is a panel that is made by Honeywell Corporation. Tyco Integrated Security limits the personnel who can provide support to this panel to their trained personnel.

All vendors provide alarm panels that are specific to their brand or use. Siemens uses Genesis Alarm panels, Digital Security Controls uses PowerSeries, and Army ICIDS uses DAQ Starwatch. Each vendor has a specific product they use or provide. Each vendor would want separate modes of communications. This would require additional phone or network lines. If another vendor was selected, they would not be able to provide support to the required existing panels. This would require a complete replacement of the Focus Alarm panels, communications equipment and monitoring software. The Government estimates that the cost to replace IDS system would be $7- $12 million, and this does not include annual service and maintenance costs. This estimate is based on the Office of Provost Marshal General (OPMG), HQ Department Army estimate to replace the IDS system with the Army Standard IDS system. OPMG set aside $7,000,000 in 2010 to replace the system, however the Commander opted not to replace the system due to functionality and configuration concerns. An Independent Government Cost Estimate (IGCE) using the Army Corps of Engineers Electronic Security Systems Cost estimator also estimates $18 million as a cost of equipment replacement including all fees. Full replacement of the current system would take approximately 24 months to replace. During that time, APG would be required to maintain the existing systems until replacement is complete. This would require APG DES to monitor two separate systems as the old system must remain in place until the new system is fully operational.

A full replacement of the existing system would include the replacement of all the control panels, detection devices, wiring of those devices and communications equipment.

During a replacement, activities to crucial operations at sensitive facilities would have to cease, requiring the relocation of assets from one area to another while the new alarm system is being replaced. This will impact ongoing research and testing in certain areas in addition to possibly creating an unnecessary compromise of Operational Security (OPSEC). Activities may also have to provide armed escorts or guards during that time, also creating an additional unnecessary cost to the government. Cost of additional security would depend upon the activity grade structure for security personnel, if personnel were even available. Depending on the complexity of the activity facilities installation of a full new replacement could take a couple of days which would cost a few thousand dollars, to several weeks which could cost tens of thousands of dollars. The shutdown would also and severely impact current operations of tenants.

Program: Intrusion Detection System (IDS) and Electronic Security Systems (ESS) Maintenance and Installation

Version – March 2016 FOR OFFICIAL USE ONLY

The Government requires that the provider and systems used for the IDS and ESS meet UL2050 certification standards to provide security, monitoring, and servicing of the sensitive Government assets which include Arms, Ammunition and Explosives;

Classified Information (Top Secret, Secret and Special Access Programs); Chemical and Biological Surety material. If the system in place does not meet these requirements, Government assets could be vulnerable to theft or unauthorized access and the Government would not be in compliance with regulations. This would have a major negative impact on the US Army and DoD for OPSEC.

If the existing systems are not maintained and are allowed to fail, the tenant activities on the Installation would be required to utilize personnel to provide security of their assets.

Currently, APG does not have the military or civilian population to provide such support.

Therefore, it would require civilian employees to man their areas at all times until the systems are fully operational, causing a significant cost to the activities in overtime and compensatory time to the Government. Costs per facility could range from a few thousand dollars to hundreds of thousands depending on the grade structure of available personnel and the time for replacement. This would also impact organizational and employee missions which support the warfighter as personnel would not be at work during their normal work period.

6. Actions to Increase Competition: USAG APG is in the process of seeking OPMG approval to either allow APG to go with another alarm panel or have the Army Standard ICIDS system installed. The planning process to make the OPMG fielding list for ICIDS replacement by FY18 has begun. APG is working to have the approval process completed within the five year timeline of this action subject to OPMG determining how to fund the replacement. Either option would require APG to maintain the current system until its full replacement. If this is approved, funded and completed, APG would then have a system that potentially could be supported by another company. The approval process may take up to two (2) years to approve and up to two (2) years for the installation.

7. Market Research: Market research was conducted by the Army Contracting Command in May 2015 and also in February and March 2016. In accordance with Defense Federal Acquisition Regulation Supplement (DFARS) 205.205-71, DFARS 206.302-1(d), and DFARS Procedures, Guidance and Information (PGI) 206.302-1(d), a request for information was posted to Army Single Face to Industry for eighteen (18) days and the results were as follows:

Nine responses were received from vendors. One company, Johnson Controls is a large business, and the other eight (8) were small businesses. The responses indicated an interest in the requirement, but the necessity to replace or change existing panels was noted by most firms. In February 2016 after extensive discussions with the CECOM Office of Small Business, the small business companies who responded to the initial RFI, were contacted again by email and asked to discuss their ability to install, replace, and maintain the current Intrusion Detection Systems (IDS) and Electronic Security Systems (ESS) at APG. Three responses were received and all firms indicated that they do not work on the Focus 200 PA Panels that are key to the existing system because these

Program: Intrusion Detection System (IDS) and Electronic Security Systems (ESS) Maintenance and Installation

Version – March 2016 FOR OFFICIAL USE ONLY panels are proprietary to Tyco. Vendors other than Tyco are interested in bidding on the installation of a brand new system for use at APG, but as noted above, the OPMG has not made available the approximate $12M in funding that would be required to pay for an entirely new system and even when and if such funding is released, it will take at least two years to complete the installation process.

No. Name Size Cage Code

1 ACT Corps WOSB 1J0V2 2 Johnson Controls Large 1SAH7 3 SigNet Small Business 4A8Z7

4 CTS

Small Business, minority owned UNK

5 Four Points Tech SDOSB UNK

6 GCS SDOSB 5C8R7

7 Rileen VOSB UNK

8 TSI

Small Business, minority owned UNK

9 Cordo Tech Small Business UNK

8. Other Facts: The following facts have been listed to support the use of other than full and open competition.

a. Contract History:

Contract Number Award Date Contractor Extent

Competed/Authority Dollar Value

W56ZTN-14-A-0005 1-Jul-14 Tyco Integrated Security Inc.

Sole Source Contract $3,695,248.51

W56ZTN-14-P-0005 26-Mar-14 Tyco Integrated Security Inc.

Sole Source (FAR 6.302-2 Urgent and compelling)

$213,248.80

W91ZLK-08-A-0014 1-Jun-08

ADT (name changed to Tyco Integrated Security Inc.)

Limited Sources J&A $7,992,723.78

W91ZLK-04-D-0011 1-Jun-03 ADT Sole Source $4,971,854.14

b. Acquisition Data Availability: N/A

Program: Intrusion Detection System (IDS) and Electronic Security Systems (ESS) Maintenance and Installation

Version – March 2016 FOR OFFICIAL USE ONLY

c. Unusual and Compelling Urgency: N/A

d. Subcontracting Competition: N/A.

9. Technical Certification: I certify that the supporting data under my cognizance which are included in the justification are accurate and complete to the best of my knowledge and belief.

Typed Name:

10. Requirements Certification: I certify that the supporting data under my cognizance which are included in the justification are accurate and complete to the best of my knowledge and belief.

Typed Name: Signature/Date:

11. Best Value Determination/Fair and Reasonable Cost Determination: I hereby determine that the GSA BPA represents the best value to the Government in accordance with FAR 8.405-6(c)(2)(v). Additionally, I hereby determine that the anticipated cost or price to the Government for this contract action will be fair and reasonable.

This determination will be made using the following:

12. Contracting Officer Certification: I certify that this justification is accurate and complete to the best of my knowledge and belief.

Program: Intrusion Detection System (IDS) and Electronic Security Systems (ESS) Maintenance and Installation

Version – March 2016 FOR OFFICIAL USE ONLY

Approval

Based on the foregoing justification, I hereby approve the procurement of : Intrusion Detection System (IDS) and Electronic Security Systems (ESS) Maintenance and Installation for US Army Garrison DES under Title III of the Federal Property and Administrative Services Act of 1949 (41 U.S.C. 251, et Seq.) and Title 40 U.S.C 501, Services for Executive Agencies, as implemented by 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, subject to availability of funds, and provided that the services or supplies herein described have otherwise been authorized for acquisition.