Redacted JA - Library Management System.pdf

UNITED STATES MARINE CORPS

MARINE CORPS INSTALLATIONS NATIONAL CAPITAL REGION

MARINE CORPS BASE QUANTICO

3250 CATLIN AVENUE

QUANTICO VIRGINIA 22134 5001

J&A No. MCINR-RCO-24003

JUSTIFICATION AND APPROVAL

FOR USE OF OTHER THAN FULL AND OPEN COMPETITION

1. Contracting Activity.

Marine Corps Installations National Capital Region – Regional Contracting Office (MCINCR-RCO), Quantico, VA 22134.

2. Description of the Action Bring Approved.

In accordance with FAR 13.501(a)(1)(ii), award of a contract on a sole source basis to ExLibris (USA), Inc., for software maintenance and support for Library of the Marine Corps (LoMC)/Marine Corps University (MCU) current Software as a Service (SaaS) Library Management System Alma & Primo VE (Alma/Primo) and online digital repository, which includes technical support, software security, updates fixes and patches.

3. Description of Supplies/Services.

The LoMC/MCU has a follow-on requirement for the following one (1) Alma library management system subscription (SaaS), one (1) PrimoVE w/bX subscription (SaaS), two (2) Premium sandboxes upgrade and subscription (SaaS, upgrade in base year), one (1) Optimization services (one-time fee, base year only), and one (1) Digital storage upgrade and subscription – 3 TB (SaaS, upgrade in base year). (Base and Four (4) Option Periods).

The current Alma/Primo SaaS subscription provides the LoMC/MCU with the capabilities needed to perform day-to-day operations, i.e., to provide library services and resources to support the teaching, learning, and research initiatives of students, faculty, and staff of MCU master’s degree education programs, and resident and distance professional military education programs (PME), as well as support research and outreach at the Marine Corps History Division and Archives (USMC HD). LoMC/MCU also supports the library needs of MCB Quantico active duty personnel and their families, via the Quantico Base Library.

Alma/Primo is the only integrated library services platform that provides the required services and capabilities in a single interface. As a completely cloud-based service, Alma/Primo provides the LoMC/MCU with the ability to manage all of their print and digital resources, third-party electronic resources, and unique materials and subscriptions, in a centralized interface.

The total estimated dollar value for this action is $XXXX, inclusive of base and four option periods.

FY24 Total Base + 4 Options Year

O&M $XXXX $XXXX

The estimate Period of Performance is 01 December 2023 – 31 November 2024.

Marine Corps Operations and Maintenance (O&M) appropriations will be used to fund this requirement as outline in the table below:

Base Period

Manufacturer Description Quantity Estimated Unit Price

ExLibris Alma library management system subscription (SaaS)

ExLibris Primo VE w/bX subscription (SaaS) 1

ExLibris Premium sandboxes upgrade and subscription* 2

ExLibris Optimization service (one-time fee, base year only)

ExLibris Digital storage upgrade and subscription – 3 TB 1 Included w/Alma

*One time fee

Option Period One

Unit Price

ExLibris Alma library management system subscription (SaaS)

ExLibris Primo VE w/bX subscription (SaaS) 1

ExLibris Premium sandboxes subscription (SaaS) 2

ExLibris Digital storage subscription (SaaS) – 3 TB 1 Included w/Alma

Option Period Two

Unit Price

ExLibris Alma library management system subscription (SaaS)

ExLibris Primo VE w/bX subscription (SaaS) 1

Option Period Three

Unit Price

ExLibris Alma library management system subscription (SaaS)

ExLibris Primo VE w/bX subscription (SaaS) 1

Option Period Four

Unit Price

ExLibris Alma library management system subscription (SaaS)

ExLibris Primo VE w/bX subscription (SaaS) 1

4. Statutory Authority Permitting Other Than Full and Open Competition.

This action is pursuant to 10 U.S.C. § 3204(a)(1) and 41 U.S.C. § 3304(a)(1), “An executive agency may use procedures other than competitive procedures only when […] the property or services needed by the executive agency are available from only one responsible source and no other type of property or services will satisfy the needs of the executive agency.”

Additionally, the Office of Management and Budget requires all executive federal agencies to use FedRAMP-compliant cloud software deployments and service models at the Low, Moderate, and High risk impact levels. FedRAMP standardizes security requirements for the authorization and ongoing cybersecurity of cloud services in accordance with FISMA, OMB Circular A-130, and FedRAMP policy, and FedRAMP Authorization Act as part of the National Defense Authorization Act. The Act codifies the FedRAMP program as the authoritative standardized approach to security assessment and authorization for cloud computing products and services that process unclassified federal information.

5. Rationale Justifying Use of Cited Statutory Authority.

The LoMC/MCU has a follow-on requirement for the following one (1) Alma library management system subscription (SaaS), one (1) PrimoVE w/bX subscription (SaaS), two (2) Premium sandboxes upgrade and subscription (SaaS, upgrade in base year), one (1) Optimization services (one-time fee, base year only), and one (1) Digital storage upgrade and subscription – 3 TB (SaaS, upgrade in base year.)

The Alma & Primo VE library management system subscription, is manufactured and published by ExLibris (USA) Inc., Original Equipment Manager (OEM). The subscription and software are exclusively available to government entities via open market through the OEM, ExLibris (USA) Inc.

The sole source letter provided by ExLibris, Inc., dated 30 March 2023 (provided in tab A3 of the contract folder) confirms this is exclusive licensing agreement.

LoMC has used Alma/Primo with satisfaction since 2018. Alma/Primo supports the LoMC/MCU mission in that it provides the functionality necessary to perform daily manual and automated core library business operations, such as: acquisitions (receiving, cost tracking, inventory of library resources), cataloging and metadata (preparing items and bibliographic data records for the shelf and the online catalog), circulation (checking items in and out) and user account management, collection analysis and evaluation, course reserves for MCU classes, discovery and access of Library materials, electronic resources management including database content aggregation and access, licensing, serials (physical and digital journals) management, reporting and analytics on all Alma/Primo VE functions and usage, sandbox testing environments for staff- and public-side functions and display, local system administration, user access authentication, and an online library catalog capable of aggregating millions of academic database articles (Primo VE w/bX).

Alma/Primo’s digital repository function enables the LoMC to catalog and host online digital collections of over 4,000 Marine Corps University master’s theses and research papers dated from 2000-present, as well as rare and fragile Marine Corps publications from the LoMC’s Special Collections, 90-100% of which are not available online anywhere. The LoMC supports USMC HD’s online initiatives by hosting official Oral Histories and other unclassified historical/official content, in the digital repository, again -- most of which is simply not available online, anywhere. Alma/Primo also supports the day-to-day library operations of the Quantico Base Library.

The reliability of OEM SaaS updates/patches to Alma/Primo are exceptional within the LMS industry, they have not missed a monthly update, ever. Service downtime is less than 2% annually.

Tech support includes a customer portal, assistance via webinar, email, and telephone; and extensive and transparent online system documentation and training. Enhancements to existing features and new features are released monthly.

Switching to another LMS would be an undue burden for LoMC. Currently, LoMC is 60% understaffed and unable to handle a big transition affecting all departments. Most libraries implement one or two LMS systems in their lifetime – LoMC has implemented 4 different library management systems in the past 20 years. The reasons for this were: 1) failure of the LMS to meet expanding requirements of LoMC, 2) failure of vendor to provide product updates, 3) inherent technical limitations/failure to operate adequately, or 4) failure to achieve FedRamp authorization.

LMS implementations require participation by all library staff at the planning and execution levels.

Implementation time can take up to 6 months or longer. There are extra costs (implementation fees, plus the cost of monthly continuation of the existing LMS subscription, until a new one is stood up).

Staff training and developing a comfort-level and aptitude can take up to a year depending on the complexity of the system. Daily operating procedures must be re-examined and revised based on system capabilities or deficiencies, this impacts staff workflows and delivery of services and resources. Implementation-specific tasks involve initial analysis and set-up of a customized system, exporting, cross-mapping, and re-importing system data, customer data, and over 450,000 thousand bibliographic records, correcting errors in importing system and user data, re-integrating over 70 third-party database subscriptions, as well as configuring the modules needed to perform daily operations. It would involve downtime impacting the public-facing online catalog and circulation of library materials A new LMS implementation inherently requires changes in standard operating procedures and staff workflows, as no two LMS systems can function identically. Library staff would require training on how to use the new system’s acquisitions, cataloging and metadata, circulation and patron management, collection analysis and evaluation, course reserves, online discovery and access, digital asset management, electronic resources management, reporting and analytics, systems administration, access authentication, and online catalog functions.

The LoMC has licensed the use of the Alma/Primo LMS since 2018 with satisfaction. The continuation of this licensing will ensure that the LoMC does not need to rebuild operations, re-train staff, or decrease quantity and quality of library services and resources in the middle of the MCU academic year.

Market research shows that there are two different FedRamped LMS products available from two different vendors. From LoMC/MCU’s experience, they do match the level of functionality and reliability of Alma/Primo:

1) OCLC WMS and ContentDM digital repository. LoMC/MCU used these products from 2014-

2018, with a 6-month extension to parallel implementing a new system. OCLC WMS had a negative impact on daily operations; and corrupted or erased both user and bibliographic data.

LoMC was never allowed to launch ContentDM to the public as it failed to achieve FedRamp authorization during the contract period. Currently, ContentDM is not FedRamp authorized.

2) Sirsi-Dynix. LoMC/MCU used SirsiDynix Horizon in the past, from pre-2006 to about 2010. The vendor ceased product updates and support and did not intend to pursue FedRamp approval. The current product, EOSWeb, does not include all of the components required by LoMC/MCU.

EOSWeb does not have Electronic Resources Management functionality, which is critical in managing and integrating access of the online catalog to over 70 academic databases, e-book, and digital journal subscriptions. Without it, users would have to search these resources separately.

EOSWeb does not have a Course Reserves functionality, which manages and allows secure group access to copyrighted content used in MCU classes.

3) (From 2010-2014, LoMC/MCU used Millennium iii LMS. Millennium chose not to pursue FedRamp authorization, therefore the contract was not renewed.)

The approximate cost given for OCLC WMS base year was $150,000, depending on additional services and fees. The approximate cost for option years 1-4 ranged from $90,000 to $99,000, depending on additional services and fees. The approximate cost range given for EOSWeb base year was between $37,500 and $55,000. The vendor estimated a 4% to 7% cost increase for each option year thereafter.

OCLC WMS and SirsiDynix EOSWeb cost less than Alma/Primo on an annual basis. However, both options represent a decrease in system capabilities and steps backwards in library services. Both options would require LoMC/MCU to decrease or eliminate essential and critical services and resources that are currently provided to the satisfaction of library users.

If the POP date of 1 December 2023 cannot be met, it will generate a work stoppage. LoMC/MCU will have to suspend many library services and administrative functions in the middle of the University’s academic year. Students would not be able to search the online catalog to locate the library materials they need to write research papers and complete assignments. Daily operations such as checking books in and out would have to be done by Excel spreadsheet.

Currently, there are no other vendors of LMS products that meet all of the LoMC/MCU’s requirements. There are no other vendors available that can provide operations and maintenance support to Alma/Primo. Therefore, a follow-on contract with OEM ExLibris (USA) Inc. is required.

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

Market Research was conducted by identifying prospective vendors and surveying product information and costs. First, the Library’s program manager searched the Fedramp.gov Marketplace at https://marketplace.fedramp.gov/products. (Since FedRamp authorization is a requirement, non- FedRamp LMS were not considered.) The keywords used to search the FedRamp Marketplace were:

ILS, LMS, library management system, library, OCLC, Sirsi, and Alma. Only three vendors of library management systems were identified to be FedRamp authorized: OCLC, SirsiDynix, and the current LMS OEM ExLibris (USA) Inc.

Second, the program manager created a spreadsheet survey listing essential LMS requirements. The requirements were kept as general as possible and were based on the criteria for maintaining LoMC/MCU’s current LMS capability.

The program manager sent identical requests for system and cost information, specifying it was for market research purposes only, to sales contacts at OCLC and SirsiDynix. The vendors were asked to use the survey form to check a box (yes/no) indicating: whether or not their LMS system had the components listed; whether the LMS systems had additional capabilities that were not listed; whether the vendor offered specific services, or additional services not listed; to provide a ballpark/annual cost or range of costs for a 5-year range (base plus 4 options); and provide contact information, business size, and FedRamp information. The complete list of criteria were separated into line items:

Does the LMS include these functional criteria/capabilities: Acquisitions, cataloging and metadata, communications and notifications (system-to-user), circulation and patron management, course reserves, online catalog, online digital repository, electronic licenses and copyright, electronic resource management, integration/interoperability with 3rd party software such as information database providers, reporting and analytics, serials management, web management, other capabilities not listed?

Does the vendor offer: Sandbox testing environment, web hosting of the LMS, web hosting for at least 3TB of digital repository space, system maintenance, updates, security patches, and upgrades; customer and technical support services; Implementation services, consultation services, training, other services or fees not listed?; Is the vendor considered a small business?; Are the LMS products FedRamp authorized, in process, or is the vendor intending to pursue authorization?

The survey was not sent to ExLibris (USA) Inc.. Instead, a cost quote for continued operations and maintenance was requested.

The OCLC and SirsiDynix vendor responses showed that their LMS products cost less on an annual basis than the current OEM LMS, Alma/Primo. However, the LMS products did not include some essential components. Lack of these components would require LoMC to eliminate critical library functions such as electronic resources management; or stop providing services/resources such as course reserves and the online digital repository.

Based on past performance on previous contracts with both OCLC (2014-2018) and SirsiDynix (pre- 2006-2010), the product or vendor did not match LoMC operational needs, or maintain expected levels of service.

The Government intends to provide a notice of the action being approved by this Justification, by publishing a synopsis of the action in accordance with FAR 5.203.

7. Determination of Fair and Reasonable Cost.

The Contracting Officer has determined the firm-fixed price to the Government for the supplies/services covered by this J&A will be fair and determined.

8. Actions to Remove Barriers to Future Competition.

At the moment, Alma & Primo VE library management system SaaS subscription is the only effective and efficient subscription source to meet LoMC/ MCU requirements. However, if another source emerges in the future that can meet LoMC/ MCU requirements more efficiently and cost effective to the Government, the contracting office will assess competition for future requirements.