LSJ Innovation Fellowship Program FINAL_CO Signed (1).pdf

Limited Source Justification

BPA Title: Census Innovation Fellowship

Solicitation Number: YA1323-21-MGBS-0004

Contractor: The Washington Center (TWC)

Period of Performance: Date of Award (Estimated) 8/9/2021 through 8/8/2023

Place of Performance: U.S. Census Bureau, Suitland, MD

COR: To Be Determined

BPA Type: Blanket Purchase Agreement (BPA) with FFP Call Orders

1. Identification of the Agency and the Contracting Activity

U.S. Census Bureau, HQ

Acquisition Division

2. Nature of the Action Being Approved

This is a Limited Sources - logical follow-on to continue support previously competed via BPA#

YA1323-16-BU-0009 issued to the Washington Center (TWC) under General Services Administration

(GSA) Schedule 738X (SIN 595.21 – General Support Services). TWC’s GSA schedule contract # is

GS-02F-0078P.

This is a noncompetitive acquisition of services related to the Civic Digital Fellowship Program from

The Washington Center (TWC) for the Census Open Innovation Lab (COIL) Office of the Deputy

Director (DEP DIR) of the USCB. It is the intent of the United States Census Bureau (USCB) to obtain the continued support of these internship services via a Blanket Purchase Agreement with Firm Fixed

Price Call Orders.

3. Description of Services

The Civic Digital Fellowship Program (CDF) is the first-of-its-kind internship for mission-driven, student software engineers, data scientists, product managers, and designers that innovate at the intersection of technology and public service.

The period of performance includes one (1) one-year base period from August 9, 2021(estimated) through August 8, 2022, and one (1) one-year option period. The total estimated value of the BPA is

$2,966,400.00.

https://www.gsaelibrary.gsa.gov/ElibMain/contractorInfo.do?contractNumber=GS-02F-0078P&contractorName=WASHINGTON%2BCENTER%2BFOR%2BINTERNSHIPS%2BAND%2BACADEMIC%2BSEMINARS%2C%2BTHE&executeQuery=NO

4. Authority and Supporting Rational

Statutory Authority

This acquisition is being conducted under the authority of the Multiple-Award Schedule Program (see

8.401). The statutory authority applicable to this acquisition is FAR 8.405-6(a)(1)(i)(C), “ In the interest of economy and efficiency, the new work is a logical follow-on to an original Federal Supply Schedule order provided that the original order was placed in accordance with the applicable Federal Supply

Schedule ordering procedures. The original order or BPA must not have been previously issued under sole-source or limited-sources procedures.”

Supporting Rationale for Cited Authority

The current Civic Digital Fellowship (CDF) BPA (YA1323-16-BU-0009) was released to four (4) vendors on General Services Administration (GSA) Schedule 738X (SIN 595.21 – General Support

Services). Two proposals were received in response to the solicitation, with the best value determination resulting in a multiple-award BPA to the Hispanic Association of Colleges and Universities (HACU) and TWC on May 27, 2016.

TWC is successfully supporting all program areas at the Census Bureau via the fellowship program managed centrally at Deputy Director’s (Dep Dir) Census Open Innovation Lab (COIL) and is performing exceptionally on these internship requirements. Based on lessons learned, the two internship needs have been split into separate requirements.

The Civic Digital Fellowship (CDF) program is critical for the USCB to continue building an innovation talent pipeline for highly specialized projects involving data science, emerging technologies, design, and innovation methods. CDF is a fellowship program created by

Coding it Forward (CiF), a non-profit organization that has partnered with The Washington Center for

Internships and Academic Seminars to operationalize the Civic Digital Fellowship program in the federal sector. The Census Bureau, has a long standing relationship with the program through TWC, in developing a unique innovation strategy for diverse students to have a robust federal sector experience that encompasses other aspects of a fellowship/internship to include exposure to other innovation projects and teams across the federal sector.

TWC/CiF not only provide placement of the skill set needed to work on Census mission-critical projects, provides stipend, travel and the administrative services other internship providers offer; but they also have developed robust innovation-aligned programming catered to placing this type of talent in federal government to work in the intersection of civic and public sector. TWC/CiF has also created a robust ecosystem of federal innovators that mentor the fellows (outside of their Census projects)— TWC/CiF conducts networking opportunities and programming that includes, among many other things, meet & greets with federal Chief Information Officers (CIOs), Chief Innovation Officers, Chief Technology Officers (CTOs) and Chief Data Officers (CDOs) from across the entire federal system, as well as with innovation teams across the federal sector to expand opportunities and increase https://www.acquisition.gov/content/8401-definitions#i1117303 exposure to Civic Innovation in government. This, in turn, yields committed individuals that are more likely going to consider a career in government rather than going to the private sector, who offer more competitive salaries and pay than the federal government for these career types.

The scope of projects and positions that the fellows are brought in for are design, and user experience research; which are areas of work in the Bureau that are under tapped and lacking in the federal government.

The COIL has been tasked by senior leadership to identify gaps and develop initiatives to specifically address this talent gap for the workforce of the future. CDF is the primary pillar for doing so, as the CDF program has been set as the standard for new innovation talent and expertise from elite Institutions of Higher Education (IHEs), Research-based Institutions and Minority Serving

Institutions (MSIs). TWC/CiF is the only vendor with services that cater specifically to government innovation talent in specific areas of expertise that are required by the Census Bureau program areas. No other internship service provides these specific areas of expertise that strategically align to the mission of the Census Bureau, which include software engineering, product management, data science and experience and interface design (UX/UI).

The Washington Center (TWC)/Coding it Forward (CiF) provide professional development to the CDF program as many fellows learn from industry leaders through virtual programming with organizations like the U.S. Digital Service, 18F, Upsolve, and Nava PBC. Additionally, fellows meet one-on-one with a mentor in the civic tech community to expand their network and build their skills. The CDF program offers a fellowship cohort that is a dynamic and diverse collection of young people passionate about social impact technology.

TWC/CiF designed CDF as ‘program-as--service’ and develop programming essential to the success of interns throughout the fellowship:

● Develop programming for the fellows external to Census where they meet and greet other agencies and government innovation teams to inspire their work. For example, setting up meetings for fellows to meet innovation executives in government from USDS, 10x, GSA, etc. and brings on Fellow Alumni for mentorship; no other internship service provider has similar programming or has those extensive networks.

● Manage robust infrastructure to attract tech, design, emerging technology and innovation expertise to work in government rather than losing that talent to the "Googles' and Facebook's of the world". Other programs may do student talent placement and recruiting but not with the scope of innovation in government that meets the Census Bureau’s needs and that supplements their internship experience at Census.

● Design a very specific and detailed program to attract students to these types of roles in government with the goal of establishing a talent pipeline for agencies.

The CDF program not only meets the education and program support needs of the Census Bureau, but they also have an outstanding performance track record within Census program areas.

Within the last five years, the Civic Digital Fellowship has grown at an aggressive rate of fellows per semester by the request of hiring managers that are in need of the continued services of the CDF program and talent in high priority/mission critical areas like data science, emerging technologies, computer science, engineering and design. The CDF program alone has brought in more than 70 fellows, produced more than 50 innovative products, methods, and ideas that are still being used within the program areas currently increasing cost savings for the Census Bureau.

Within the last 5 years, the CDF program has provided continued success by supplying the services required and giving program areas and hiring managers the ability to hire Fellows as federal employees or contractors to continue working on mission critical projects of high visibility

Department of Commerce (DOC), Survey Directors that sponsor agencies through reimbursable surveys, and other Census Bureau stakeholders. Services rendered through the CDF program have created a pipeline for talent recruitment from colleges and universities that are certain to meet all Census program area needs and continue the longevity of the mission-critical skill sets needed at the Census

Bureau. Keeping the CDF program also ensures continuity of knowledge and skills to work on projects already started by specific fellows. The impact to the program areas will be detrimental if Census does not have the option to retain these students through Summer of FY23 to complete the mission critical project that they have started. As fellows work on innovative projects at the government, many of their projects proceed to be the new way going forward for many areas and their innovations are implemented for survey areas, setting a new standard for how work is conducted at Census. In many instances, it is important that the innovative project is maintained and updated. Many fellows that are hired through

TWC/CiF have a very specialized skill set with unique abilities catered to design, data science, engineering, or technology. The innovative projects that they create require specialized maintenance to be able to continue supporting the program areas. Fellows know specifically how to correct, maintain, update, or fix any error that may be due to code, functionality etc., because they are the authors of the project and they designed it. Extended services with TWC/CiF will increase efficiency and save program areas time and resources in hiring another fellow to onboard and continue the work already started. This follow on will also ensure that the innovative project does not need to be restructured or recreated due to a lack of knowledge from new fellows not understanding how the functionality of it works. Overall, the majority of Census program areas have a strong need for data scientists, software engineers, and technology experts to focus on creating, analyzing, and maintaining products/tools that improve the specific work that is required for the program areas to become more efficient and effective.

Creativity comes with fellows’ abilities to be able to design these new tools and products.

Below are a few examples of CDF projects and how they continue to improve overtime and deliver on

Census Bureau’s mission.

Example 1

● Innovative Project: Development of a web-based interim table retrieval tool for 2006 - 2010

Equal Employment Opportunity (EEO) data for decommissioning of American Fact Finder

● Description: The purpose of this project is to alleviate the frustration of customers who attempt data retrieval bulk files on Census databases. This would also alleviate frustration from staff on customers complaining to Census.

● Solution: The fellow created the web based interim EEO table on the site and has created a way for the table to be tested for accuracy and maintained for future use. Although the fellow’s work has procedures for maintaining the web-based tool, it is not guaranteed that it will continue to support the program area if an error were to occur.

Example 2

● Innovative Project: Create a Python-Based Administrative Record Lookup File

● Description: There is an issue when using the administrative Record Lookup File for Item

Nonresponse Follow-Up (Item Nonresponse: When a sampling unit does not respond to a survey question)

● Solution: The fellow created and developed a proof-of-concept for migrating AR data into a queryable Python database on a Concurrent Analysis and Estimation System (CAES) server, so that Census can support item nonresponse follow-up more efficiently for the 2030

Census Program.

Example 3

● Innovative Project: Automate Statistical Products for Criminal Justice

● Description: There was a strong need to nationally integrate data for research and statistics on the criminal justice system.

● Solution: The fellow was able to generate automated statistical reports to turn the existing prototype to a live system and provide value to Criminal Justice Administrative Report

System (CJARS) data providers.

Example 4

● Innovation Project: Use Web Paradata to Evaluate Pre-Listed North American Product

Classification System (NAPCS) Product Lines in the 2017 Economic Census

● Description: Paradata is inaccurate due to instrument design and structure of product lines

● Solution: Merge paradata with submission data and define rules to “correct” the paradata

Example 5

● Innovative Project: Industry Classification Using Public Data

● Description: This project is a continuation and extension of a previous Civic Digital Fellowship project focused on using a Machine Learning pipeline to generate 6-digit NAICS codes using public data.

● Solution: The fellow used public data and the Google API to classify and improve the quality and accuracy of statistics produced and shown by the Economic census. This is needed because about 20% of the NAICS code data sourced from administration data is incorrect at the six level.

An extension of services from TWC/CiF will ensure that all of these aforementioned tools are maintained by the same fellow(s) with expertise in the required specialized area that will be equipped with the knowledge to update and maintain their project. Continuing services under the CDF program will afford current interns the opportunity to complete all mission critical projects and/or assignments within their respective program area.

The Census Bureau will be greatly impacted if services are not continued under the CDF program with

TWC/CIF. Currently fellows will support our summer 2021 term and will not be able to finish mission critical assignments if there is a lapse in service. If fellows are not able to continue the mission critical work they are currently doing, then there is a possibility of delay in access to their innovative projects. If fellows are unable to continue working, there can potentially be delays within the delivery of their innovative projects. The current end date of the summer 2021 Civic Digital Fellowship is August 13, 2021.

The fellows were on boarded to the Census Bureau and started work with only 10 weeks of services to provide to the bureau. The first two weeks were devoted to acclimating fellows to their new work environment and equipping them with the tools and resources needed to perform their tasks. Fellows are only given 8 weeks to fully provide all services required by the bureau. To finish or apply innovative project assignments within the respective program areas, continuous engagement and expertise is required from fellows. Projects have to be tested, updated and validated before they can be approved. If the same fellow is not given the opportunity to continue services on project(s) that he or she is working on, there is a possibility that the projects will not be completed, which will impact the integrity and outcome of the identified mission critical projects.

We do not have the ability to guarantee that another fellow/student will be equipped with the required skills and knowledge to complete a project that an existing fellow was unable to complete. If a new fellow is appointed and is unable to continue the work for the duration of the logical follow-on from the previous fellow, he or she will be in jeopardy of not completing the mission critical project(s). In result, the fellow will be required to restart the project which can delay the project completion, project funding and impact the Census Bureau’s mission. As a recommendation, fellows should remain active within the program for at least six (6) months, which affords them the opportunity to utilize their skills and expertise to complete innovative projects assigned by the respective program areas. Accomplishing Census’ mission of retaining talent and creating a talent pipeline demonstrates success and will ultimately benefit the bureau.

Additionally, there is a strenuous on boarding process that must take place before the new session of fellows can start working at the Census Bureau. This process includes the match, interview, and selection process that usually takes about a month before fellows can begin the security clearance process.

Extending the program within the duration of the logical follow-on will provide fellows additional performance time to finish the mission critical project(s) they’re working on as well as completing it within due time to be applied to the program areas. Retaining the same fellows eliminates the time managers must spend on the match, interview, and selection process. At the same time, it increases the time fellows have to work on their mission critical assignments.

5. Contracting Officer Determination of Fair and Reasonable Pricing

In accordance with FAR 8.404(d) Pricing, GSA has already determined the rates for services offered per semester under schedule contracts to be fair and reasonable. Therefore, ordering activities are not required to make a separate determination of fair and reasonable pricing, except for a price evaluation as required by 8.405-2(d). Therefore, a comparison will be made to determine if the rates proposed by

TWC align with the rates on their GSA Schedule. Although GSA has already negotiated fair and reasonable pricing, the Contracting Officer will seek additional discounts before placing this BPA. In accordance with FAR 8.405-2(d), the Contracting Officer will determine that the final proposed value of the BPA is fair and reasonable. A comparative analysis will be done between the Independent

Government Cost Estimate (IGCE), the TWC proposal and other labor category and rate information that is available via the GSA CALC tool to assist in the determination of fair and reasonableness.

6. Market Research

Market Research was conducted and documented in accordance with FAR Part 10 in support of this procurement. Market Research for this procurement consisted of a review of historical internship/fellowship information, knowledge in procuring services of this type, a request for information/sources sought notice that was issued on March 19, 2021 through Beta.sam.gov, and a review of Human Resources & EEO Services, Schedule 738X General Support Services SIN 595.21.The

Census Open Innovation Labs (COIL) Program Management Office (PMO) determined that one vendor

- The Washington Center (TWC) - will meet the needs of the Census Bureau for an Innovation

Fellowship Program as the current contractors are working on mission critical assignments of the Census

Bureau that ends on August 13, 2021. Discontinued service of TWC will put a halt to the services that https://www.acquisition.gov/sites/default/files/current/far/html/Subpart%208_4.html#wp1091211 contractors are currently performing which will delay program areas from being able to use the contractor’s innovative projects that they have been working on. It is in the best interest of the Census

Bureau to extend services of TWC to fulfill the mission critical assignments giving fellows more time to complete projects to be able to apply it to the program areas for the duration of the logical follow-on.

Therefore, in the interest of economy and efficiency per FAR 8.405-6(a)(1)(i)(C), it was determined that it is in the Governments best interest to issue a logical follow-on for this work to TWC.

A copy of the full market research report is contained in the BPA file.

7. Any other facts supporting the justification

TWC/CIF have a successful ongoing program that meets the requirements of the Census Bureau and fulfills all services being requested. Choosing a new vendor will cost the program areas and the program management office time and resources in redesigning another program that will suffice for the process in hiring fellows. It is more efficient to continue services with TWC/CIF so that there are no requirements to create a new set of procedures for structuring a new fellowship program and learning how to operate

it. Discontinued services with the TWC/CiF will cost the Census Bureau and all program areas time, resources, and potential setbacks or delays in project timelines and deployments. It would take a considerable amount of time, effort, and resources to develop, validate and implement a new recruitment and hiring process again which involves matching candidates, conducting extensive interviews, and coordinating the selection process prior to onboarding.

There are currently 34 fellows working within 7 different Directorates of the Census Bureau including the Communications Directorate, Decennial Directorate, Demographic Programs Directorate, Economic

Directorate, Office of the Chief Information Office, Office of the Director and Research and

Methodology Directorate. All fellows are working on mission critical projects within program areas of the Census Bureau that will continue to be worked on until the program ends on August 13, 2021. On

August 3, 2021 the fellows will showcase the mission critical projects that they have been working on throughout the summer to the entire Census Bureau wide. The fellows will explain the problem statement, innovative solution and what needs to be done further with the project for it to be successful.

Fellows not being able to complete the mission critical assignments they have been working on would result in a delay of the innovative project being applied to program areas, as well as the nonguaranteed assumption that another fellow can continue the work of the recent fellow.

8. Actions that may be taken by agency to remove or overcome any barriers that led to the restricted consideration

The Census Bureau will continue to perform ongoing market research in an effort to remove any barriers of competition in the future. The COIL Dep DIR team in conjunction with the Acquisition Division, will conduct reoccurring market research to identify capable companies, any new or emerging developments within the industry, and will develop an acquisition strategy that maximizes competition in the future when this BPA expires. In addition, The COIL Dep DIR and Acquisition Division will work collaboratively to plan effectively to avoid delays within the Procurement Action Lead Time (PALT) and (In accordance with FAR Part 19.201(a)) provide maximum practicable opportunities in its acquisitions to small businesses, veteran-owned small businesses, small disadvantaged businesses, and women-owned small business concerns.

9. Technical Certification

Under my cognizance, I certify that facts and representation of technical data that form the basis for this justification that are the responsibility of the technical or requirements personnel are complete and accurate to the best of my knowledge and belief.

Michael Neal Bagby Date

Program Manager

Census Open Innovation Labs

U.S. Census Bureau

10. Contracting Officer Certification

All of the requirements of the Competition in Contracting Act (41 U.S.C. 253), as implemented in the

Federal and Commerce Acquisition Regulations, have been considered in preparing this justification. As

Contracting Officer, I hereby certify that the justification for limited sources for this requirement is accurate and complete to the best of my knowledge and belief.

Matthew Gore Date

Contracting Officer

U.S Census Bureau

11. Competition Advocate

I have reviewed this justification and determined that the rationale presented for issuing the Blanket

Purchase Agreement as a Limited Source- Logical Follow On applies to this BPA and is approved.

Leslie Andrecs Date

Assistant Division Chief

U.S Census Bureau