Updated JA IMPS_Redacted.pdf

J&A No.: J&A6.302-1-24-MB01

DEPARTMENT OF THE NAVY

NAVAL RESEARCH LABORATORY

4555 OVERLOOK AVE SW

WASHINGTON, DC 20375-5320

REPLY REFER TO:

JUSTIFICATION AND APPROVAL FOR USE OF OTHER THAN FULL AND OPEN

COMPETITION

1. Identification of Agency and Contracting Activity.

Naval Research Laboratory, 4555 Overlook Avenue, SW, Washington, DC 20375-5000.

2. Nature/Description of Action.

This Justification and Approval (J&A) requests authority to issue a sole source definitive contract with anticipated Cost Plus Fixed-Fee (CPFF) Line Items to Information Delivery Systems (IDS) located in Bowie, MD, for procurement of the supplies/services outlined in Paragraph 3 below.

3. Description of Supplies/Services.

The Cyber Operations Division (COD) at the Naval Research Laboratory (NRL) in Washington, D.C. requires support in the ongoing sustainment, migration and ultimate archiving/decommissioning of legacy, custom coded business applications and databases. These applications were designed and developed specifically for use by NRL over the past 20+ years and are now slated to be replaced by new cloud-based Commercial Off-The-Shelf (COTS) applications and services.

The purpose of this contract will be to maintain legacy business-related applications such as the Integrated Management Processing System (IMPS), the NRL Asset Management System (AMS), the NRL Personnel Security System and other business-related applications until their functionality can be phased out or moved to new applications. The contractor will also be involved in the development of processes in COTS products and other web-based platforms to replace these legacy functions.

The main thrust of this requirement is the ongoing sustainment, analysis, review and documentation of the legacy applications and the development of new requirements documents outlining a migration path to new platforms. These applications were developed over an extensive period of time using various versions of Oracle PL/SQL, Oracle Forms, Java/JavaScript, Oracle stored procedures and other Oracle based tools and processes. This effort will require the reverse engineering of custom written code with little to no existing documentation to develop requirements documents and the analysis of large intertwined databases supporting multiple legacy applications.

The Contractor will provide comprehensive software analysis tasks in support of developing new software to aid in decommissioning legacy applications while maintaining the legacy software applications until migration is completed. This includes tasks such as documentation of current processes and workflow, current database structure and the export of data from legacy systems, workflow development, analysis, design and translation of data from existing legacy applications to new frameworks. The Contractor effort will include, but not be limited to:

Ongoing maintenance and sustainment of current custom-coded legacy web applications to include, but not limited to, the Integrated Management Processing System (IMPS) and its ancillary modules, NRL’s Personnel Security System, and NRL’s Asset Management System

Systems analysis and documentation of legacy custom code to capture current workflows, proposed modifications and accreditation posture.

Analysis and documentation of legacy databases to capture schema descriptions, data relationships, impact of data sharing across multiple applications and the development of data migration plans

Translation and export of legacy data to new or existing applications Migration of legacy functionality to ServiceNow and other COD managed IT resources Development of new functionality in ServiceNow and other COD managed IT resources Migration of legacy functionality to SharePoint, Power Automate and PowerApps under the Navy Office 365 platform Database administration and support for current legacy databases to include updates, patches, performance monitoring and tuning, security and backup/restoration.

Documentation of system design, layout, interface requirements, administrative Standard Operating Procedures (SOPs) and user guides for legacy applications and any new applications developed to migrate legacy functions.

Estimated Dollar Value

FY24 FY25 Total

4. Identification of Statutory Authority.

The statutory authority permitting other than full and open competition is Title 10 U.S.C.

2304(c) (1), Only one responsible source, as implemented by the Federal Acquisition Regulation

(FAR) 6.302-1(a)(2)(iii) -- Only One Responsible Source and No Other Supplies or Services Will Satisfy Agency Requirements.

5. Demonstration of Contractor’s Unique Qualification.

In accordance with FAR 6.302-1(a)(2)(iii), DoD services may be deemed to be available only from the original source in the case of follow-on contracts for the continued provision of highly specialized services when it is likely that award to any other source would result in: (A) Substantial duplication of cost to the Government that is not expected to be recovered through competition; or (B) Unacceptable delays in fulfilling the agency’s requirements. IDS initially developed the IMPS system for NRL and over the course of contracts N00173-02-D-2056, N00173-08-C-2137, N00173-14-F-2011 and N00173-17-F-2079 IDS has provided the IT services to maintain it. NRL sourced N00173-17-F-2079 competitively however IDS, as the incumbent and only contractor to ever work on the system, won the contract award in part because of their deep familiarity of the system and knowledge of NRL requirements. NRL is now in the process of de-commissioning the IMPS system and IDS is the only company that has the immediate knowledge of the system necessary to migrate all of the processes efficiently and correctly to new platforms. IDS developed the code and system architecture for IMPS specifically for use at NRL. Another company would have to spend valuable time first learning how the underlying code is structured, the process requirements, the user interfaces and the infrastructure all work within the system before possessing the capability to sunset it. Without the knowledge base and access to the original developers, it would be difficult for another company to ‘reverse engineer’ the IMPS application and all of its components in order to successfully migrate the process and fully de-commission the current system.

NRL has already begun the decommissioning process of the IMPS system with IDS and has developed an aggressive schedule to sunset the application within 2 years. Attempting to bring in another company at this point in the process would only stall current efforts and most likely drive the process backwards in order to get the new company up to speed. NRL has already expended funds to procure ServiceNow as the platform to migrate most of the IMPS functionality to and the current IDS staff have been involved in the configuration and planning of the new system. Stopping this effort to transfer tasking to a new company would impact the migration timeline. NRL is currently expending funds to maintain the legacy environment as well as the new environment and any delay will result in increased expenditures with no benefit to the command.

Further, during market research, the subject matter expert (SME) and technical representative under this requirement stated that IDS is the only known qualified source to fulfill this requirement based on their technical expertise and experience, advanced system knowledge due to their past experiences, and ability to meet the scheduling requirements needed to execute the required tasks. Market research has not identified any other capable sources. To the best of our knowledge, IDS is the only company with the immediate knowledge, personnel and experience to meet the Government requirement.

An award to any other source would result in an estimated delay of six (6) months, as well as a duplication of costs exceeding $1 Million based on the effort and money already spent on the development and design of IMPS System and the Government estimate to de-commission/migrate the current system. It is highly unlikely that competing this requirement would result in a cost savings for the Government and the risk of schedule delay is considered unacceptable.

6. Description of Efforts to Ensure Other Potentials Sources Were Sought.

On 02 Feb 2024, the Government posted a Notice of Intent/Sources to SAM.GOV of their intention to solicit and negotiate with only one source under the authority of 6.302. The notice encouraged potential sources to provide responses addressing their capability to meet the requirements described in the “Cyber Operations Division Application Support” Statement of Work (SOW). This particular RFI resulted in a total of sources providing responses.

The Governments evaluation of the responses determined that although the respondents appear capable of performing general IT related services, none demonstrated the requisite knowledge, experience and personnel to effectively and efficiently sunset and migrate the IMPS system.

Based on discussions between the Contract Specialist, representatives of Code 1900 and Legal Counsel it was decided that it would be in the Governments best interest to publicly post a subsequent notice including a SOW limited specifically IMPS required services. The original SOW including tasking somewhat unrelated to the sunset and migration of the IMPS system. The second NOI, including a more focused SOW with limited scope, noted that the IMPS tasking would take approx. 2 years to complete and that NRL has no plans to compete future contracts for the IMPS services. At the completion of de-commissioning and migrating the IMPS System, these services will no longer be required.

At the close of the second notice, only a single response from was received. A thorough evaluation of response, as well as their response for additional information, was evaluated by Code 1900. Their responses to both the RFI and the follow-on request for additional information did not provide sufficient evidence to conclude that the respondent would be fully capable to perform the duties outlined in the Statement of Work for the sustainment and migration of IMPS and other COD managed legacy applications. The SOW requires in-depth knowledge of Oracle application development, PL/SQL, Oracle Forms, Java and Oracle stored procedures. None of this is sufficiently addressed in their response. The SOW requires the analysis of business application processing, workflow, data translation and is not focused solely on security related tasks. Their response to this task is focused on security architecture and from a security team perspective rather than from the application perspective.

There is no mention of experience in taking legacy code and developing full documentation covering all aspect of application functionality.

7. Determination of Fair and Reasonable Cost.

The estimated dollar value of this effort is which is based upon the Independent Government Cost Estimate (IGCE) provided by NRL Code 1900 Cyber Operations Division technical representative. In accordance with FAR 15.402(a), the Contracting Officer shall ensure that all supplies and services are procured at a fair and reasonable price. IDS will submit a formal proposal with sufficient information, including certified cost or pricing data, to support the accuracy and reliability of the proposed prices in accordance with FAR 15.403. Experienced technical analysts and contract specialists, with the aid of necessary field pricing support, will perform the analysis of the contractor’s proposed price in accordance with FAR 15.404.

8. Any Other Supporting Facts.

NRL has determined that awarding to a company other than IDS would cause a potential delay of six (6) months and increase costs for sunsetting the IMPS system by approximately $1 Million.

NRL would have to pay for a new company to review the code and learn the system requirements in order to reverse engineer how IMPS operates, whereas a sole source to IDS would ensure a timely and efficient migration of the information out of the IMPS system and into new a new platform.

9. Actions Taken to Remove Barriers to Competition.

For the reasons set forth above in paragraph 5, NRL has no plans at this time to compete future contracts for the types of services covered by this document. At the completion of de-commissioning and migrating the IMPS System, these services will no longer be required. This sole source contract contains a targeted Statement of Work which NRL streamlined down to mostly activities required to sunset and migrate the IMPS system. Future contracts for NRL Code 1900 are planned to be sourced competitively to the maximum extent practicable.

10. Statement of Delivery Requirements.

NRL Code 1900 has included the following reports as delivery requirements:

1) Monthly Detailed Progress Reports showing projects, personnel assigned and hours worked on each

2) Monthly Contractor On-Site Labor and Financial Reports

3) Hardware/Software Products & Documentation

4) Written Documentation such as User Guides and Standard Operating Procedures

5) Certification Documentation & Reports

6) Personnel Training Plan

7) Technical Reports (Interim & Final)

11. Explanation of all actions attempted to make the immediate acquisition competitive and the cost /benefit analysis reflecting costs associated with obtaining competition and anticipated benefits.

In order to sunset and migrate the existing IMPS system in a timely and cost-efficient manner, the contractor who developed the system originally, IDS, is the only responsible source.

Transitioning to another performer would result in duplication of cost and time which is estimated to exceed any potential reduction in costs resultant of competition. As the incumbent and original developer of the system, IDS has the knowledge built in to their processes. It is determined unlikely that competing this requirement would achieve the benefits usually anticipated with competition.