TSO_RCO-JA-13001.pdf

UNITED STATES MARINE CORPS

MARINE CORPS BASE

QUANTICO, VIRGINIA 22134-5001 IN REPLY REFER TO:

C-21

RCO-JA-13001

15 Nov 12

JUSTIFICATION AND APPROVAL

FOR USE OF

OTHER THAN FULL AND OPEN COMPETITION

1. Contracting Activity

Regional Contracting Office, National Capital Region (RCO-NCR) 2010 Henderson Road Marine Corps Base (MCB) Quantico, VA 22134-5001

2. Description of the Action Being Approved

This justification is to seek approval for a sole source bridge contract to be entered into with the incumbent, Computer Sciences Corporation (CSC), in order to maintain support to mission critical, Marine Corps enterprise business systems since a competitive procurement cannot be processed in time to meet the required award date of 29 December 2012. The bridge contract request was approved on 14 November 2012.

This contract action will be solicited as Sole Source Bridge Contract to ensure services continue without interruption. The current contract, HQ0425-07-A-0002, Call 13 was awarded by the Defense Finance and Accounting Services (DFAS), Indianapolis and expires on 28 December 2012. Approval of this Justification & Approval (J&A) will allow time for a full and open competitive contract to be awarded.

The bridge contract period of performance will be from 29 December 2012 through 28 August 2013 with a base period of six

(6) months and two (2) one (1) month option periods. The contract will be structured as a Cost-Plus-Fixed-Fee Contract (CPFF) with a fixed ceiling price of $27,952,278.60.

The period of performance takes into consideration significant operational requirements that cannot be disrupted by the potential replacement of the incumbent. These significant operational considerations include the Marine Corps Total Force System (MCTFS) family of systems April 2013 software release and the March-May 2013 migration of mission critical enterprise systems, belonging to the Deputy Commandants’ Programs & Resources (P&R) and Manpower and Reserve Affairs (M&RA), from The Defense Information Systems Agency (DISA) St. Louis to the Marine

Corps Information Technology Information Center (MCITC) Kansas City.

3. Description of Supplies/Services

Headquarters, Marine Corps, Programs and Resources (P&R), Technology Services Organization (TSO) requires contractor services to support TSO requirements in its role as an enterprise business systems integrator for the Marine Corps.

Services required are in support of highly complex designed and owned Marine Corps business systems, that are unique to the Marine Corps and all of DoD, having no parallel in other sectors of the government or private industry. Software engineering design, programming, testing, and integration to be performed under this contract will involve tasking that is so integrally related that it requires personnel with highly developed experiences with the specific systems supported by TSO. TSO supports a number of business mission areas across the Marine Corps, including the Deputy Commandant P&R, Deputy Commandant M&RA, and the Deputy Commandant Installation and Logistics (I&L).

Additionally, TSO supports DFAS, the Navy, and the Air Force.

Below is an illustrative list of enterprise mission critical systems TSO is responsible for:

• Marine Corps Total Force System (MCTFS)

• Unit Diary/Marine Integrated Personnel System (UD/MIPS)

• Remote Access Pay Transaction Reporting System (RAPTRS)

• Operational Data Store, Enterprise (ODSe)

• Q-Records Database (Management Reports)

• Total Force Administration/Marine OnLine (TFAS/MOL)

• Discharge Account Summary (DAS)

• Document Tracking Management System (DTMS)

• W-2C (correction)

• Marine Corps Orders Resource System (MCORS) o Marine Corps Order Writing System Web (MROWS-W) o Marine Corps Permanent Duty Travel (MCPDT) o Marine Corps Electronic Administrative Separations

(MCEAS)

o Marine Corps Single Order Repository (MCSOR)

• Programming & Budgeting Documentation Database (PBDD)

• Civilian Personnel Information Management System (CPIMS)

• Current Year Deficiencies Database (CYD)

• CMC Unfunded Programs List (UPL)

• Standard Accounting, Budgeting and Reporting System (SABRS)

• SABRS Management Analysis and Retrieval Tools (SMARTS)

• Naval Reserve Forces Order Writing System (NROWS)

• Air Force Reserve Order Writing System (AROWS-R)

• Air National Guard Order Writing System (AROWS)

Marine Corps business mission areas and corresponding Functional Area Managers establish requirements for TSO continuously throughout the period of performance; requirements include those that are intended to provide better support to combatant commanders, management headquarters, small unit leaders and individual Marines through automation, new entitlements, and process improvement, etc. Contractor support is required to assist TSO to implement software related System Change Requests (SCRs), maintenance of production systems, customer support, process improvement and infrastructure support. All changes originate from recurring, structured government configuration control boards and represent funded requirements initiated by functional representatives of TSO clients. All change requests represent increases/decreases to TSO’s workload throughout the period of performance. The contractor shall provide contractor support with a unique blend of Marine Corps business systems experience and technical skills that cut across the spectrum of technologies for all its business mission areas supported;

support is focused, but not limited, to the following tasks:

• Contract Program Management

• Task Order Management Plan

• Software Development, Engineering & Migration

• Data Conversion & Migration

• Data Warehouse Development & Management

• Software Process Management

• Information Assurance (IA) Support

• Commercial Off-The Shelf (COTS) Product Evaluation

• System Integration Support

• Financial Management & Economic Analysis

• Functional and Business Process Improvement

• Customer Support &/or User Support

• Hardware & System Software Support

• Professional Training

• Consultant & Assessment Requirement

• Systems Operations Support

• Data Management

• Technology Infusion

In summary, the contractor is expected to provide a balanced mix of skill levels including senior, middle, junior level technical staff, new technology specialists, subject matter experts, consultants, management and administrative support capable of working within TSO’s business model framework.

The estimated dollar value for this procurement is $27,952,278.60. FY13 Operational and Maintenance, Marine Corps (O&MMC) funds are available.

4. Statutory Authority Permitting Other Than Full and Open Competition

The statutory authority permitting other than full and open competition is 10 U.S.C. Section 2304(c)(1), as implemented by the Federal Acquisition Regulation (FAR) 6.302-1, Only One Responsible Source and No Other Supplies or Services Will Satisfy Agency Requirements.

5. Rationale Justifying Use of Cited Statutory Authority

TSO provides development, design, production and sustainment support of enterprise-class information technology systems;

particularly business systems including but not limited to pay, personnel, budget execution, orders writing, accounting and installation systems for the Marine Corps, as well as DOD components, services and agencies on a reimbursable basis.

Contract support is critical to maintaining the current level of services that support functions at all levels of DoD, DoN, and the Marine Corps, to including functions performed in direct support of the warfighter and the Marine Corps’ worldwide commitments, peaceful or otherwise. The second and third order effects of a lapse in contract services in support of the TSO would have a significant negative impact on garrison and forward deployed commanders and Marines.

Award to any other source would result in unacceptable delays in fulfilling TSO’s requirements. The incumbent today provides for approximately 245 personnel or roughly half of the Marine Corps’ capability to deliver, sustain, and maintain its mission critical enterprise systems described in the aforementioned paragraph.

Approximately 58% of the contract workforce has over five (5) years experience in this highly complex and unique environment.

About 30% of the workforce has over 10 years experience. It would take an immeasurable delay for any new contractor to provide the training and experience necessary to function efficiently and effectively in this complex environment. There can be no disruption to contract support without forcing these systems into a minimal maintenance mode or a “brown out” of adverse consequences to Headquarters, U.S. Marine Corps, higher headquarters, commanders, small unit leaders, individual Marines, and their families.

No other contractor has the knowledge and experience to successfully allow for continued operations, without a learning curve that would result in a disruption in service. TSO, with its contract support, is responsible for DOD’s only Federated set of systems supporting integrated personnel and pay, budgeting, and accounting. TSO requires all facets of software development and maintenance for the enterprise business systems to include but not limited to military pay, personnel, manpower, budgeting and execution, accounting, finance and order writing systems.

TSO systems manage Military Personnel (MilPers) appropriations which is 61% of the Marine Corps total Fiscal Year appropriation.

TSO systems directly provide for the support of every Marine, active and reserve, and in turn their families. With over 49% of Marines married, getting personnel pay and administration correct is essential. For the supported active duty population, there are more than 98,000 spouses, 115,000 children and 500 dependent parents and other dependents. The current contractor is clearly the only responsible source at this time that is able to continue supporting TSO’s mission without disrupting the mission or adding additional training costs.

Continuous contract support with the current contractor is essential to maintaining the MCTFS family of systems. MCTFS itself is an integrated pay and personnel system for active duty and reserve Marines, and the authoritative source of data for all Marine Corps pay and personnel information. MCTFS has historically been a top priority among automated information system programs, and the only system of its type within DOD.

MCTFS supports mission critical pay functions, including computation and payment of net pay to individual Marines in a timely and accurate manner, and ensures system change requests for legislative, regulatory, mission essential, resetting force changes and contingencies are completed. MCTFS includes a comprehensive history of pay entitlements, deductions, and payments for each active duty and reserve Marine. MCTFS, with the current contractor’s highly specialized employees, provides the personnel and pay integration for all active and reserve Marines within a single system. MCTFS maintains more than 500,000 Active, Reserve and Retiree records and uses a single logical database, a single set of edits, and a single set of processes to achieve a high degree of integration. Primary beneficiaries of MCTFS are Marine Corps field commanders, active duty, and reserve Marines. Also, indirect users for MCTFS are:

Defense Enrollment Eligibility Reporting System, Joint Personnel Asset Visibility, Defense Manpower Data Center, Department of Veterans Affairs, and Internal Revenue Services. MCTFS receives and feeds many other systems with critical personnel information and financial data to include Social Security Administration, Thrift Savings Plan, Treasury, Office of Personnel Management, Federal Reserve System, State and Local Governments, Privatized Housing Contractors, financial institutions, and many other systems and organizations. MCTFS processes over 20 million transactions a year, and consists of over four (4) million lines of code and over 4,800 modules. The MCTFS family of systems supports over 307,000 users.

Without approval of this J&A, the following services, at a minimum, will be impacted:

• Unable to maintain the integrity and quality of the cyclic reserve pay process for all Reserve Marin4es and the cyclic active duty pay process for all Active Marines.

• Limited to no processing of critical personnel and pay transactions; leave transactions; resulting in late or inaccurate pay and/or records.

• Unable to process 2012 W2’s for all active and reserve Marines.

Award to any other source would result in substantial duplication of cost to TSO that would not be recovered through competition.

It is estimated that it would take another contractor approximately 30 days to get up to speed. The estimated cost that would not be recovered is $3,497,318.84 based on current contract’s monthly rates.

6. Description of Efforts Made to Solicit Offers from as Many Offerors as Possible

This effort will be synopsized in Federal Business Opportunities (FEDBIZOPPS) in accordance with the requirements of FAR 5.2.

7. Determination of Fair and Reasonable Cost

In accordance with the Defense Procurement Acquisition Policy (DPAP) Class Deviation-Limitation on Amounts Available for Contracted Services dated July 31, 2012, negotiation objectives for labor and overhead rates will be established based on rates paid to the incumbent contractor under the expiring BPA Call in fiscal year 2010. Based on cost or pricing data, which will be obtained for this procurement, the Contracting Officer, with assistance from the Defense Contract Management Agency (DCMA)/Defense Contract Audit Agency (DCAA), will determine fair and reasonable costs/prices as required by FAR 15.402. Pursuant to FAR Subpart 15.403-4, requiring cost or pricing data, RCO-NCR anticipates that cost or pricing data will be required.

8. Actions to Remove Barriers to Future Competition

A follow-on competitive contract action will begin in parallel to the bridge contract. A high level work schedule with corresponding executive level In Process Reviews has been developed by RCO that will ensure a competitive award no later than August 2013.