LSJ_APLES Interim Task Orders_Redacted.pdf

Limited Sources Justification (FAR Part 8) Application Product Lines Enterprise Support Services (APLES) environmental protection; ice operations; and other law enforcement activities. These services include O&M of existing C5I systems, design, development, and implementation of new projects, as well as upgrades or technical refreshes on both modernized and legacy systems.

Further the support will include continued interface work on existing systems with newer cloud-based systems and mitigating security and/or Cybersecurity issues and audit findings.

Some systems are currently being modernized utilizing a Development (Dev), Security (Sec) and Operations (Ops), and Continuous Delivery/Continuous Integration (CI/CD) pipeline approach and may be cloud based. Most USCG C5I legacy systems are maintained using DevSecOps methods but are on premise-based servers that require traditional Dev/Stage/Prod and release schedules.

(4) Identification of the justification and the rationale.

This acquisition is being conducted under the authority of the Multiple Award Schedule (MAS) Program in accordance with 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.

The C5ISC requires continued uninterrupted application support services that provide the USCG with agile-focused software engineering and operations and maintenance (O&M) services for USCG systems & applications. These services include O&M of existing C5I systems, design, development, and implementation of new projects, as well as upgrades or technical refreshes on both modernized and legacy systems. Further it will include some interface work on existing systems with newer cloud-based systems and mitigating security and/or Cybersecurity issues and audit findings.

Some systems are currently being modernized utilizing a Development (Dev), Security (Sec) and Operations (Ops), and Continuous Delivery/Continuous Integration (CI/CD) pipeline approach and may be cloud based. Most USCG C5I legacy systems are maintained using DevSecOps methods but are on premise-based servers that require traditional Dev/Stage/Prod and release schedules.

The C5ISC plays a critical role in the sustainment and ongoing modernization of over 35 USCG mission essential systems to operations such as Law Enforcement, Prevention and Response, Transportation System Management, Security and Defense Operations, as defined by the 11 statutory missions of the Coast Guard under the Homeland Security Act of 2002.

Additionally, C5ISC supports business systems crucial for personnel and financial management, including vendor payment and payroll for military and civilian personnel.

The Product Lines are the face of the C5ISC and responsible for Information Technology (IT) Project Management. This includes the System Owner, who is the single point of accountability to CG-68 and Coast Guard end users that provides service development, delivery, support and technical expertise for program priorities and requirements. OISPL, MSSPL and 2CPL make up three (3) of the six (6) PLs within the C5ISC, and each is focused on capabilities and services for specific mission needs in the support of all C5I systems, applications and services.

OISPL supports enterprise C5I systems that enable and deliver actionable information in a usable format. The OIPSL task order will support enterprise and locally hosted applications providing tactical information, collaboration, and analysis technology. This task order will also support thirty-eight (38) total systems, to include the following major systems:

• Maritime Information for Safety & Law Enforcement (MISLE)

• Vessel Documentation System (VDS)

• U.S. Aids to Navigation (ATON) Information Management System (USAIMS)

• Command Center Display System

• CG Maritime Information Exchange (CGMIX)

• Biometrics at Sea System (BASS)

The MSSPL task order will support sustained and adaptable readiness that enable Coast Guard missions to operate efficiently. Of the 100+ systems supported by this task order; major systems include:

• Direct Access – Human Resources and Decision Support (HRDS)

• Coast Guard Business Intelligence (CGBI) – HRDS

• Medical and Dental Radiological IT (MDRIT) – HRDS

• Core Accounting Suite (CAS) – Finance and Logistics Systems (FLS)

• Depot Management System (DPOMS) – FLS

• Financial System Management Solution (FSMS) - FLS

The ESD task order provides support for ESD, 2CPL, and ISD (ESD-2CPL-ISD). ESD is the workforce for all C5ISC projects that provides engineering, logistics, finance, infrastructure, and business operations support to systems the PLs are responsible for. This division also provides technical and business support services to enable Product Line execution and success. ISD provides architectural roadmaps & governance, enterprise networking & mobile connectivity, hardware/Software Configuration Control. ESD and ISD are two (2) of the five (5) Shared Services Divisions within the C5ISC, and provides the support required to meet the needs of the Product Lines.

The ESD task order will provide technical and business support to the PLs as well as support for over 70 CG systems. Major systems include:

• Sea Watch

• Sea Commander

• Coast Guard One View (CG1V)

• Vessel Traffic Service (VTS)/Ports and Waterways Safety System (PAWSS)

• Scalable Integrated Navigation Systems (SINS)

• Radio Detection and Ranging (RADAR)

• Combat Systems Integration

• Electronic Chart System (ECS)/Electronic Chart Display and Information System

(ECDIS)

Continued support for these services demands a high level of specialization to ensure uninterrupted operation of these systems and applications. Many of the systems and applications sustained and maintained under these task orders are mission critical to ensuring the USCG can continue to successfully meet its required mission areas. If there is a gap in service, and a critical system is non-mission capable, it will have a significant negative impact on the ability of active duty members on cutters and other vessels to continue to safely navigate waterways, rescue mariners from commercial or pleasure craft overboard incidents, ensure buoys and navigation beacons are working properly, and that our international partners can continue to access lifesaving information for at-sea rescues. Additionally, lack of support for Coast Guard mission critical systems can and will result in those systems not being operational resulting in degraded performance in terms of law enforcement, safety, search and rescue, port security and environmental protection.

Synergy is the incumbent contractor for these services under the APLES II 8(a) single-source IDIQ contract (70Z0G318DPWX00500). Current services are being performed through three

(3) tasks orders which were issued under this IDIQ, and the periods of performance of each one will end on 15 October 2024. Synergy, as the incumbent contractor, possesses unique historical knowledge and expertise essential for providing continuous and uninterrupted application support across the USCG. Synergy’s specialized capabilities include extensive experience with existing systems, proficiency in Agile development in collaboration with the C5ISC, and critical expertise in CI/CD Pipeline technologies necessary for supporting DevSecOps practices.

Additionally, Synergy has supported the CG’s PLs and SSDs and has helped the CG transition from a waterfall approach to software development to an agile methodology to both software development and project management. These sole source task orders to the incumbent will ensure the continuity of mission critical software engineering and application support services for the USCG. Only the incumbent can continue to provide these critical services without negative mission impacts. Synergy holds all required certifications and clearances and is familiar with the technical complexities of the C5ISC. Synergy provides the USCG with complex services in the Department of Defense (DoD) IT environment with stringent specific subject matter expertise in the full range of software engineering services required to provide full lifecycle support (including design, implementation, operation, maintenance, and enhancement) for USCG software applications. Many of these functions are USCG domain specific, all of which require full compliance with the CG C5ISC Systems Engineering Lifecyle (SELC) Configuration and Change Management Policy M4130;

Homeland Security Enterprise Architecture (HLS EA) and USCG EA requirements; and the Department of Defense Architecture Framework (DoDAF) standards.

The services being performed by Synergy on these task orders is being incorporated into the upcoming COMPASS multiple-award BPA, which will be competitively solicited and awarded. In mid-2024, it became evident that the COMPASS multiple-award BPA solicitation and award would be significantly delayed due to the C5ISC’s direction to consolidate eight (8) additional contracts for similar services. The consolidation requires this contracting activity to conduct the following activities: consultation with the Office of Small & Disadvantaged Business Utilization (OSDBU); additional market research be conducted for the Government to make a formal consolidation vs. bundling determination; preparation and approval of the resultant consolidation or bundling Justification of Substantial Benefits;

and consolidation or bundling notification to the public via the Government Point of Entry (GPE), notification to affected incumbent small business concerns and notification to the Small Business Administration (SBA) prior to the release of the COMPASS solicitation.

Once completed, the COMPASS BPA Scope of Work (SOW) will need to be revised to include the consolidated work, as will the Acquisition Plan and other various procurement documents that must undergo a second review and approval process.

Currently, none of the activities have been completed, resulting in a substantial delay to the release of the COMPASS multiple-award BPA solicitation. Prior to the required consolidation, there was a reasonable expectation that the COMPASS BPA award would happen in the last quarter FY24. However, the extent of the activities and notifications which must be completed has resulted in a significant delay and it is no longer feasible to expect the Government to complete consolidation activities and revise affected procurement documentation; then solicit, compete, evaluate, and award the COMPASS BPA to a new vendor prior to the expiration of the current task orders which all expired on 15 October 2024.

The ongoing support provided by Synergy is mission-critical to the USCG and any disruption in that service would present an unacceptable risk. Issuing three (3) sole source task orders to Synergy for a limited period is in the best interests of the USCG to prevent severe mission impacts and ensure the continuity of essential system and application support services until transition to the COMPASS BPA can be completed.

Other contractors can provide the services as evidenced by the overwhelming number of responses to the COMPASS Request for Information (RFI). However, there is a significant lack of time to complete consolidation activities and revise affected procurement documentation, then solicit, compete, evaluate, and award a new contract to a new vendor for the short timeframe needed: between the expiration of the current task orders and the solicitation, evaluation and award of COMPASS. Additionally, doing so would mean having to transition the work from Synergy to a new vendor and from that vendor to another vendor once COMPASS is awarded. This could result in performance delays and system degradation as the new vendor completed on-boarding activities and training to understand the complexity and operations of all ongoing projects. There would also be significant risk to the USCG as current security vulnerabilities would remain unresolved while new vulnerabilities would likely emerge during the transition period required for a new vendor’s integration into the C5ISC’s support structure. As such, the only reasonable option to ensure continuation of these critical services with no disruption is to issue three (3) sole-source task orders to the incumbent, Synergy. Award to other than the incumbent contractor could jeopardize the security of the entire USCG workforce and place the USCG at high risk resulting in negative impact to daily mission activities.

While many contractors could provide the required application support services, none can provide the services within the required timeframe and be knowledgeable and experienced enough to ensure a transition to the COMPASS BPA at the same quality level, except for the incumbent contractor. Therefore, it is in the best interests of the USCG to issue three (3) sole source task orders to the incumbent for these services until the new COMPASS multiple-award BPA can be awarded.

(5) Determination by the ordering activity Contracting Officer that the anticipated order represents the best value consistent with 8.404(d).

The Contracting Officer hereby determines that this action represents the best value to the Government in accordance with FAR 8.404(d). GSA has already determined the prices for the services under Synergy’s schedule contract to be fair and reasonable. However, the Contracting Officer will perform a price evaluation as required by 8.405-2(d) to make a final determination of fair and reasonable pricing.

(6) A description of the market research conducted among schedule holders and the results or a statement of the reason market research was not conducted.

Market research was not conducted as the services under this action will be transitioned to the COMPASS multiple-award BPA once it is awarded.

(7) Any other facts supporting the justification.

None.

(8) A statement of actions, if any, the agency may take to remove or overcome any barriers that preclude the agency from meeting the requirements of 8.405-1 and 8.405-2 before any subsequent acquisition for the supplies or services is made.

There are no barriers to future competition. The services performed under these task orders are being incorporated into the upcoming C5ISC COMPASS procurement, which will be a competitively awarded multiple-award BPA, as an 8(a) set-aside, under the GSA IT MAS contract, utilizing the procedures outlined in FAR Subpart 8.405.

Market research conducted for COMPASS identified a considerable number of GSA 8(a) contract holders that have expressed interest, and through responses to an RFI, were determined to be capable of successfully providing the support to the USCG. As a result, competition for the services is anticipated for the future.

(9) Contracting Officer’s Certification.

I certify that the data supporting the recommended use of other than full and open competition is accurate and complete to the best of my knowledge and belief.

CG-9142 Contracting Officer, C5ISC

(10) Technical/Requirements Personnel Certification.

I certify that this requirement meets the Government’s minimum need and that the supporting data, which forms a basis for the justification, is accurate and complete.

Technical Representative/COR

RECOMMENDED FOR APPROVAL:

Procuring Activity Advocate for Competition (PAAC)

APPROVAL:

Head of the Contracting Activity