LSJ_ JFMS Interim BPA_Redacted_SAM.docx

Limited Sources Justification

LIMITED SOURCES JUSTIFICATION

FOR LIMITING SOURCES ON THE FEDERAL SUPPLY SCHEDULE PROGRAM

FAR Part 8.4

1. Identification of the agency and the contracting activity.

U.S. Agency for International Development

U.S. Agency for International Development, Chief Financial Officer, Financial Systems Office (M/CFO/FS)

2. Nature and Description of Action Being Approved.

a. The U.S. Department of State (DoS), Office of the Deputy Chief Financial Officer , Global Financial Management Systems, on behalf of itself and the U.S. Agency for International Development (USAID), Chief Financial Officer, Financial Systems Office, requests authority to issue an Interim Blanket Purchase Agreement (BPA) on a limited sources basis to CGI Federal, Inc. (CGI), for a one-year ordering period with two 6-month options for additional ordering periods for a maximum ordering period duration of two years if all options are exercised. The requested BPA will serve as an interim replacement for the non-proprietary component of BPA SAQMMA10A0058 with CGI. Under the planned Interim BPA, DoS and USAID will be able to continue ordering critical sustainment support services for non-CGI-proprietary software throughout the DoS Joint Financial Management System (JFMS) component systems. This software support services are required to ensure successful operation and maintenance of the JFMS. The requested JFMS Interim BPA is required as DoS has encountered unforeseen schedule delays in the recompete of this effort, termed Enterprise Budgeting Accounting Acquisitions and Reporting Systems (EBAARS), currently in progress.

b. The existing JFMS BPA scope includes both the planned JFMS Interim BPA scope, which is the subject of this LSJ, as well as user licensing for and maintenance of software within CGI’s proprietary Momentum software products that serve as the commercial-off-the-shelf (COTS) foundation of JFMS. The follow-on acquisition strategy for the current JFMS BPA is to break out the CGI-proprietary component from the non-proprietary efforts; a sole source contract for the proprietary products is the subject of a separate acquisition currently in progress The required support and maintenance efforts under the planned JFMS Interim BPA relate to non-proprietary software within the JFMS component systems and interfaces that have been built and tailored to meet DoS and USAID financial management needs. Thus, the planned JFMS Interim BPA allows for ordering sustainment support services only for the JFMS component systems.

c. The EBAARS competitive follow-on acquisition process is ongoing.

d. Due to the complex nature of the requirement and delays caused by various unforeseen factors, the Department needs additional time to continue conducting the EBAARS competitive acquisition which is currently in the pre-solicitation phase. The estimated cost of orders to be issued under the proposed JFMS Interim BPA is $225,000,000.00. This estimate considers issuance of mission-critical orders for functional and technical support services for the JFMS program. It also accounts for emergent requirements for functional and technical support services.

3. A description of the supplies or services required to meet the Department’s needs.

For over a decade the JFMS common financial systems platform has been established and implemented to support DoS and USAID users worldwide. The planned JFMS Interim BPA will provide sustainment support services for the financial systems comprising these platforms:

a. The JFMS component systems consist of a highly integrated financial management solution that includes the Integrated Budget Intelligence System (IBIS), the Global Financial Management System (GFMS), the Regional Financial Management System/Momentum (RFMS/M), and the Global Business Intelligence (GBI) reporting applications. In addition, the current BPA’s scope includes sustainment and support for the Momentum-based Phoenix system, that provides enterprise level financial management support for USAID, and for the DoS Integrated Logistics Management System (ILMS) sub-system Momentum Acquisitions contract writing system.

b. GBI is the Department’s robust financial and business analytics platform comprised of data from the Momentum Financials (GFMS/RFMS) and Performance Budgeting (IBIS) systems. IBIS is the core COTS application to establish Department-wide current year budget execution financial plans, allocation and tracking of funding with integration to GFMS and budget formulation with financial planning for out-year budgets. GFMS and RFMS/M provide enterprise level financial management support for the Department of State.

c. The current BPA supports DoS Integrated Logistics Management System (ILMS). ILMS is fully deployed domestically with the requisition, procurement, warehouse, transportation, and diplomatic pouch and mail, and asset management features in full operation and integrated with the Department’s domestic financial management system. Other key activities include integration with external systems and system updates for Ariba and Momentum Acquisitions.

d. JFMS systems are OMB-monitored and supported, major capital investment projects involving both USAID and DoS. The scope of the JFMS Interim BPA will include functional and technical support for JFMS program representatives and contractors, as well as maintenance of the non-proprietary JFMS software, including maintenance and improvement of custom developed software components such as interfaces and other ancillary software applications. The Interim BPA scope will also include services required to operate, maintain, update, and enhance the JFMS financial system components and the Department instance of the US Treasury Invoice Processing Platform (IPP). This includes applicable non-proprietary interfaces with the Momentum COTS software. Additionally, the JFMS Interim BPA scope will address on-going software implementation and operation and maintenance support activities that provide for continual process and system improvement to keep pace with emerging financial management and business process changes.

4. The authority and supporting rationale and, if applicable, a demonstration of the unique qualifications of the proposed contractor to provide the supply or services.

a. This acquisition is conducted under the authority of the Multiple-Award Schedule (MAS) Program (41 U.S.C. 152(3), and 40 U.S.C. 501), as implemented by FAR 8.4 and substantiated by the following:

b. 8.405-6(a)(1)(i)(B) - Only one source can provide the supplies or services required at the level of quality required because the supplies or services are unique or highly specialized.

c. CGI Federal is uniquely qualified to continue providing support for the JFMS system non-proprietary software, maintenance and enhancements to DoS and USAID, based upon the following reasons:

i. The JFMS systems being supported via orders under the current BPA are mission-critical to enable the ongoing, operational financial management of both DoS and USAID, as well as ensuring that the system remains compliant with applicable laws, regulations, and policies for all Federal Government agencies. Failure to continue the support services upon expiration of the current BPA would have severe, adverse impact on the ability of both DoS and USAID to carry out their missions. A system shutdown would result in the necessity for all functions currently performed by JFMS/Phoenix to be performed manually.

ii. Because the systems that comprise the JFMS program are mission-critical, DoS and USAID cannot simply shut them down or cease to operate and maintain them. Because CGI Federal has been the incumbent contractor providing the required JFMS support services, DoS and USAID must issue an Interim BPA to CGI Federal to maintain the JFMS software until the competitive follow-on acquisition has been completed. As previously stated, the non-proprietary support is the subject of a large and complex follow-on competitive effort, termed EBAARS, that will not be completed prior to the expiration of the current JFMS BPA. For these reasons authorization to award an Interim BPA for these services is required.

5. A determination by the ordering activity Contracting Officer that the order represents the best value consistent with FAR 8.404(d) and FAR 8.405(d).

a. As GSA has already deemed unit pricing and labor rates to be fair and reasonable, no further reasonableness determination is required by the Contracting Officer prior to awarding a delivery order. The Contracting Officer will ensure that reasonable discounts off Multiple Award Schedules are provided, where applicable/appropriate. The Contracting Officer will seek discounts similar to those that are currently active under the current BPA.

6. A description of the market survey conducted and the results or a statement of the reasons a market survey was not conducted.

a. For the EBAARS non-proprietary follow-on competition, extensive market research efforts, including an initial Sources Sought Synopsis followed by three separate subsequent Requests for Information (RFIs) to maintain currency of the market research, have demonstrated the viability of obtaining adequate competition via GSA MAS; this information has informed the EBAARS acquisition strategy. The planned JFMS Interim BPA will allow for continuation of the required JFMS support services pending completion of the EBAARS acquisition.

7. Any Other Supporting Facts.

a. Technology. The current JFMS technologies must be supported on an interim basis pending award of a contract resulting from the EBAARS acquisition. Aspects of these technologies will continue to evolve, requiring ongoing support services to integrate and maintain changes and upgrades to the JFMS systems. Currently CGI is the only contractor with the required JFMS knowledge and experience to continue this support for the required interim period.

b. The subject JFMS Interim BPA will enable continuation of all critically required support services ordered thereunder while the EBAARS competitive acquisition process is completed.

8. Listing of the Sources.

a. CGI Federal, Inc is considered the only viable source to continue support on an interim basis during the follow-on EBAARS acquisition, as it is the current provider of these services. Selection of another solution for purposes of this planned JFMS Interim BPA is not considered feasible for the reasons presented in Sections 4 and 7 above.

9. Statement of Actions Taken to Remove Barriers to Competition.

a. The competitive award of the EBAARS contract will replace this planned JFMS Interim BPA, representing a very substantial component of the current JFMS contract.

10. Contracting Officer Certification.

a. This justification is accurate and complete to the best of the Contracting Officer’s knowledge and belief, as indicated below.

b. I certify that the facts and representations under my cognizance, which are included in this justification and form a basis for this justification, are complete and accurate.