NGIC DPP JA as of 27Feb20 Redacted.pdf

UNCLASSIFIED//FOR OFFICIAL USE ONLY

Control No: 20-16

(U) Justification Review Document for Other than Full and Open Competition

(U) Program/Item: National Ground Intelligence Center (NGIC) Digital Production Program (DPP)

(U) Authority: 10 USC 2304(c)(2)

(U) Amount: $1,586,219.13

(U) Prepared by:

Typed Name: REBECCA BEAUDRY Phone: (434) 980-7387 Title: Contract Specialist Date: 25 Feb 2020 E-mail: rebecca.b.beaudry.civ@mail.mil

(U) Contracting Officer:

Typed Name: JESSICA MULLINS Phone: (434) 951-1653 Title: Contracting Officer Date Reviewed: 25 Feb 2020 E-mail: jessica.c.mullins.civ@mail.mil

(U) Technical Representative:

Typed Name: SONYA ALLEN Phone: (434) 980-7163 Title: Contracting Officer’s Representative Date Reviewed: 25 Feb 2020 E-mail: sonya.d.allen.civ@mail.mil

(U) Requirements Representative:

Typed Name: Aaron C. Fowlkes Phone: (434) 980-1851 Title: Chief, Program Management Branch Date Reviewed: 25 Feb 2020 E-mail: aaron.c.fowlkes.civ@mail.mil

(U) Reviews: I have reviewed this justification and find it adequate to support other than full and open competition.

(U) Legal Counsel

Typed Name: KEITH MOORE-ERICKSON Phone: (703) 428-5715

Signature: ______________________ Date: 25 Feb 2020

(U) Department of Army Justification and Approval for Other than

Full and Open Competition

1. (U) Contracting Activity: United States Army Contracting Command – INSCOM (ACC-INSCOM), 2055 Boulders Road, Charlottesville, VA 22911

2. (U) Description of Action: ACC-INSCOM, National Ground Intelligence Center (NGIC) Branch, intends to award a new sole source bridge contract to Booz Allen Hamilton, Inc. (BAH), 8283 Greensboro Drive, McLean, VA 22102 for NGIC Digital Production Program (DPP) support services. The bridge contract will be awarded for six

(6) months from 29 February 2020 – 28 August 2020 and will be funded with fiscal year (FY) 20 Operations and Maintenance – Army (OMA) funds.

3. (U) Description of Services:

This service is for the National Ground Intelligence Center (NGIC) Digital Production Program (DPP) support services. DPP provides National Ground Intelligence Center analysts, requirements managers, and staff with five major software applications and over 10 services and tools that form the foundation for NGIC’s Intelligence Production and Dissemination, which satisfy and support Director of National Intelligence (DNI) requirements including Intelligence Community Directive (ICD) 203 Analytic Standards, ICD 206 Sourcing Requirements for Disseminated Analytic Products, ICD 501 Discovery and Dissemination or Retrieval of Information within the Intelligence Community, and ICD 503 Intelligence Community Information Technology Systems Security Risk Management. The current task order is intended to ensure that the existing software applications are continually maintained for appropriate security posture and technology upgrades, are improved to enhance the analysts’ work environment, and provide on-site troubleshooting and support. Several NGIC Programs use DPP application and services for index, search, and discovery of Intelligence products and related data. A six-month sole source bridge contract will provide contract and vendor continuity of software operations and maintenance services, preventive maintenance, and software enhancements to provide NGIC analysts with operational toolsets, and to mitigate risks for Cyber Security and Department of the Army Inspector General (DAIG) compliance.

4. (U) Authority Cited: The statutory authority permitting other than full and open competition in 10 U.S.C. 2304(c)(2) as implemented by Federal Acquisition Regulation 6.302-2 – Unusual and Compelling Urgency.

5. (U) Reason for Authority Cited:

Pursuant to FAR 6.302-2(b), “this authority applies in those situations where: (1) an unusual and compelling urgency precludes full and open competition; and (2) delay in award of a contract would result in the serious injury, financial or other, to the Government.”

In March 2017, this requirement, along with several other INSCOM contracts, was forwarded to an external acquisition office, the Department of Health and Human Services (HHS) Program Support Center (PSC), for the award of an NGIC DPP support services task order.

The current task order was awarded to Booz Allen Hamilton (BAH) as task order number HHSN31600001 under NITAAC CIO-SP3 Contract HHSN316201200008W, which was procured and administered by the National Institutes of Health, Information Technology Acquisition and Assessment Center (NITAAC).

On 19 June 2019, HHS formally withdrew its PSC Fiscal Year (FY) 19 certification in accordance with the requirements of Section 801(b)(1) of the National Defense Authorization Act (NDAA) for FY 2008. On 1 July 2019, a Waiver to Section 801 of the NDAA for FY 2008 was issued by the Office of the Under Secretary of Defense (OUSD) authorizing HHS/PSC to continue administering contracts through the end of FY 2019, but HHS/PSC declined to continue administering DoD contracts. HHS/PSC notified INSCOM that it did not intend to continue to administer the option for continued performance under the HHS/PSC. Most of the INSCOM contracts were terminated and re-procured by ACC-INSCOM in September 2019. However, the NGIC DPP task order was not identified as an INSCOM or NGIC requirement. It was marked as NITAAC CIO on the HHS master list, and was missed when the bulk of the contracts returned back in September 2019.

On 11 February 2020, NITAAC issued a stop work order to BAH with a notice of intent to terminate for the convenience of the Government, effective 28 February 2020 at 5:00 p.m. EST. The letter and e-mail are located in the paperless contract file (PCF).

INSCOM and/or NGIC first learned that this requirement would be terminated on February 11, 2020.

Due to NITAAC’s termination of the current task order, ACC-INSCOM intends to issue a six-month sole source bridge contract to BAH to maintain continuity of services until the service can be re-competed. The IGCE amount for six months is $1,586,219.13.

A sole-source bridge contract is needed in order to mitigate risk of disruption to service caused by NITAAC’s termination of the current task order. The Government first received notice of termination of 11 February 2020 with an effective date of 28 February 2020, which left NGIC only 17 days to determine the way ahead to ensure no break in service. The DPP services are urgently needed as demonstrated below and in paragraph 10.

The current DPP applications must be maintained in the Production environment to conduct software enhancements and maintain Cyber compliance. Concurrently, testing and integration is conducted in the Development and PreProduction environments to ensure operability of applications, tools, and services. BAH is the current vendor that maintains the DPP application, tools, and services, and as such, is best suited to continue this effort efficiently during the six-month bridge contract. No other vendor has the historical knowledge of the entire DPP suites of tools that could continue DPP’s current, on-going maintenance and required software enhancements without a break in service. Furthermore, awarding a bridge contract to a company other than the incumbent would require several weeks to verify clearances, issue badges, grant system accesses, and back-brief new personnel. An alternate vendor would require a transition period, which could exceed 60 days to become familiar with the applications in their current state, recreate all instances into their infrastructure, adhere to the requirements of the Software Development Life Cycle process, and comprehend the challenges and the relationships with other NGIC Programs and the IT infrastructure to conduct a seamless transition.

The vendor is currently providing the following software enhancements that cannot be interrupted by a break in service or another vendor:

a. The vendor is currently in the process of enhancing the current single sign-on method for authorization and authentication used by DPP applications in addition to 10 of NGIC’s internal Program/applications. The progression of this effort has been in the planning, design, and testing phases for over a year. The solution has been tested and vetted by 90% of the internal Programs/applications. The remaining 10% requires collaborative assistance from the vendor to ensure successful integration prior to deployment to the Production environment. A change in vendor commands an adequate transition period to acquire the technical expertise for understanding and implementing the upgrade in technology. A termination in the current contract adds significant risk to that transition period and to the effort, which has a secondary order-of-effect to the delivery of part (b) below. A bridge contract removes these risks.

b. The vendor is currently in the process of enhancing a software application, which provides analysts standardized templates for initiating the creation of Intelligence assessments. The application currently operates using MS Office 2013. The Army MI Enterprise is migrating to MS Office 2016 on all networks; however, this particular DPP software application does not operate using MS Office 2016. The vendor has designed an enhancement to the application to function with MS Office 2016, it has not yet been deployed to the Production environment. The software is scheduled for integration testing to ensure operability with MS Office 2016. No other vendor has experience with the inter-workings of this application.

Familiarizing a new vendor to perform the cycle of testing and rework to validate the functionality of the software application against MS Office 2016 will take several weeks, impacting the NGIC’s conformity with the Army MI’s upgrade to MS Office 2016. A termination in the current contract adds significant risk to the upgrade. A bridge contract will contribute to compliance.

c. The vendor is currently in the process of enhancing NGIC’s primary task management application to include the content management of Intelligence assessments for data-sharing. The vendor has begun integration testing. Upon successful results, the enhancement will be deployed to Production. An untimely delivery due to a change in vendor has a secondary order-of-effect to the delivery the workflow utility in part (d) below, whose full operational capability is dependent upon this enhancement. A bridge contract minimizes the associated risks to time and delivery.

d. The vendor is currently in the process of transitioning a highly complex workflow utility designed to route Intelligence assessments through a series of review and approval stages, to a more technologically-based business workflow application while simultaneously adding enhancements to mitigate the risk of renewing the current backend software, at a $75K license cost. No other vendor has experience with the intricacies and complexities of this workflow utility.

Familiarizing a new vendor on the components and processes to complete the enhancements will take several weeks. A bridge contract will increase the pace of delivery to reduce the risk of approaching the license renewal procurement date.

No other vendor can perform these software enhancement efforts by the end of the period of performance and in six-months’ time to deliver the desired outcomes and prevent risk to Cyber Security and DAIG compliance. An alternate vendor would require a transition period, which could exceed 60 days to become familiar with the applications in their current state, recreate all instances into their infrastructure, adhere to the requirements of the Software Development Life Cycle process, and comprehend the challenges and the relationships with other NGIC Programs and the IT infrastructure to conduct a seamless transition. The on-boarding of a new vendor presents unnecessary time and risks to the government.

Providing full and open competition typically requires several months to procure;

therefore, pursuing a six-month sole source contract is the most efficient option to ensure no break in service for this vital program.

6. (U) Efforts to Obtain Competition: Refer to the market research paragraph.

7. (U) Actions to Increase Competition: ACC-INSCOM is planning to award a new contract following this six-month sole source contract. The new re-compete will be awarded using full and open competition.

8. (U) Market Research: Market research shows that vendors are available and capable of providing the required service via open market, GSA Oasis, GSA Alliant, GSA Schedule 70, and CHESS ITES-3S. However, due to the urgent nature of this requirement, coupled with the fact that awarding a bridge contract to a company other than the incumbent would require several weeks to verify clearances, issue badges, grant system accesses, and back-brief new personnel, ACC-INSCOM is seeking a six-month bridge to avoid a break in service. A discussion of potential harm is included in paragraph 10 below. ACC-INSCOM intends to re-compete this service via full and open competition. The follow-on will begin 29 August 2020, upon expiration of the six-month sole source contract.

9. (U) Interested Sources: None.

10. (U) Other Facts: If a delay occurs, causing a break in service, there will be no personnel to support the existing authoring and dissemination tools that comprise the NGIC DPP Intelligence Production & Dissemination System (IPDS), seriously jeopardizing NGIC’s ability to produce and disseminate intelligence products in compliance with ICD 501. A delay and break in service will also significantly degrade NGIC’s ability to further enhance the Production and Administrative Task Management utility, to maintain the Army Knowledge Gateway (AKG), and to execute associated INSCOM/G2-directed taskers related to production and dissemination.

11. (U) Technical Certification: I certify that the supporting data under my cognizance, which are included in the justification, are accurate and complete to the best of my knowledge and belief.

(U) Typed Name: Sonya Allen (U) Title: NGIC DPP COR

Signature: ______ _____________ Date: ____25 Feb 2020_____

12. (U) Requirements Certification: I certify that the supporting data under my cognizance, which are included in the justification are accurate and complete to the best of my knowledge and belief. After reviewing the requirement, and the Office of Management and Budget's 29 July 2009 letter, I hereby certify to the best of my knowledge and belief that there are no alternatives available other than the use of a noncompetitive contract to fulfill this requirement.

(U) Typed Name: Aaron Fowlkes (U) Title: Chief, Project

Management Branch

Signature: _______ ____________ Date: ____25 Feb 2020_____

13. (U) Fair and Reasonable Cost Determination: I hereby determine that the anticipated cost or price to the Government for this contract action will be fair and reasonable based on price/cost analysis. As part of this basis, certified cost or pricing data will be required, unless one of the exceptions in FAR 15.403 apply.

(U) Typed Name: Jessica Mullins (U) Title: Contracting Officer

Signature: _______ ___________ Date: ____25 Feb 2020_____

14. (U) Contracting Officer Certification: I certify that this justification is accurate and complete to the best of my knowledge and belief.

(U) Typed Name: Jessica Mullins (U) Title: Contracting Officer

Signature: _________ __________ Date: ___25 Feb 2020______

(U) Approval

(U) Based on the foregoing justification, I hereby approve the procurement of National Ground Intelligence Center (NGIC) Digital Production Program (DPP) Support Services on an other than full and open competition basis pursuant to the authority of 10 U.S.C.

2304(c)(2), as implemented by FAR 6.302-2, “Unusual and Compelling Urgency,” subject to availability of funds, and provided that the services herein described have otherwise been authorized for acquisition. The estimated value of this action is $1,586,219.13.

DATE: _______________ Signature: _______________________

JEFFREY D. WILLEY

Advocate for Competition