Redacted_TE_Bridge_JA_4_months.pdf

Enclosure 12c, J&A (Part 16) Page 1 of 7 Pages

Sept2012

Multiple Award Schedule (MAS)/ Multiple Award Contract (MAC) Orders under MAC /

Fair Opportunity – FAR 16.505, DFARS 216.505-70, PGI 216.505-70

Purchase Request Number: DCCMC25027 Contract Number: N66001-09-D-0115 Task/Delivery Order Number: VC13 Procurement Title: Joint Command and Control (C2) Capabilities Test and

Evaluation Contracting Office: DITCO-NCR Estimated Value: $XXX, XXX.XX Authority: FAR 16.505(b)(2)(i)(C)

JUSTIFICATION FOR OTHER THAN FULL AND OPEN COMPETITION (OTFAOC)

JUSTIFICATION FOR AN EXCEPTION TO FAIR OPPORTUNITY

Justification for OTFAOC Number: DCCMC25027

Upon the basis of the following justification, I, as the Procuring Activity Competition Advocate, hereby approve this exception to fair opportunity pursuant to the authority of FAR 16.505.(b)(2)(i)(C).

1. REQUIRING AGENCY AND CONTRACTING OFFICE: (FAR 16.505(b)(2)(ii)(B)(1))

Requiring Activity

Defense Information Systems Agency Program Executive Office for Command & Control Capabilities (PEO-C2C) 6914 Cooper Avenue Ft. Meade, MD 20755

Contracting Activity

Defense Information Systems Agency Defense Information Technology Contracting Organization - National Capital Region

(DITCO-NCR)

6914 Cooper Avenue Ft. Meade, MD 20755

2. NATURE/DESCRIPTION OF ACTION(S). (FAR 16.505(b)(2)(ii)(B)(2))

The purpose of this effort is to acquire follow-on services deemed necessary to assure critical and uninterrupted Systems Engineering and Integration (SE&I) Information Technology (IT) support is provided to the PEO C2C. The additional work is within the type of services covered under the original IDIQ Contract # N66001-09-D-0115. Contract administration for this base IDIQ was moved from the US Navy Space and Naval Warfare (SPAWAR) Systems Center (SSC) Pacific contracting activity to DITCO NCR/PL6 in Fiscal Year 2012. The requested action is for a new Cost Plus Fixed Fee (CPFF) Task Order which is a logical follow-on to Task

Page 2 of 7 Pages

Sept2012

Order # VC01 currently scheduled to expire on 15 May 2013, issued under IDIQ Contract # N66001-09-D-0115.

3. DESCRIPTION OF SUPPLIES/SERVICES: (FAR 16.505(b)(2)(ii)(B)(3)) PEO C2C SE&I (CC5) division is responsible for ensuring Joint C2 capability software is appropriately tested and evaluated in a timely and controlled manner in support of Joint C2 capability developers in PEO C2C, who in turn deploy the software to geographically dispersed Warfighters at all echelons. The capabilities include the Joint C2 Common User Interface (JC2CUI), Agile Client and Strategic Watch (all used for situational awareness) and the Joint Planning and Execution Services (JPES) and Joint Operational Planning and Execution System (JOPES) (JPES and JOPES used for force employment/deliberate and crisis action planning).

These capabilities are produced by PEO C2C Program Management Offices (PMOs) and are supported by SE&I with systems engineering, integration, test and evaluation and information assurance services.

SE&I has structured its contracts and mission to be flexible enough to accommodate Joint C2 modernization to help ensure that critical capabilities are delivered to the Warfighter in the most timely, efficient manner. The Joint C2 Capabilities Test and Evaluation Task Order is one of these contracts. SE&I supports the various PMOs who are tasked with maintaining their deployed systems in accordance with the Joint Requirements Oversight Council (JROC) approved “Do No Harm” concept as outlined in JROCM 145-09, 9 September 2009, while simultaneously addressing the need to enhance and transition logical capabilities away from local instantiations to the enterprise or use available enterprise services. Test and evaluation ensures that software changes “Do No Harm” while allowing necessary modernization to proceed. SE&I is a critical component of the Joint C2 Modernization strategy that implements improvements as part of small releases of capability developed using Agile Software Methodologies. As such, SE&I requires continued uninterrupted contractor support specifically in the areas of:

• Systems Engineering Support

• Systems Engineering Technical Process Support

• Limited Capability Integration

• Test and Evaluation o Capability Verification o Capability Validation

4. SUPPORTING RATIONALE, INCLUDING A DEMONSTRATION THAT THE

PROPOSED CONTRACTOR’S UNIQUE QUALIFICATIONS OR THE NATURE OF THE

ACQUISITION REQUIRES USE OF AN EXCEPTION TO FAIR OPPORTUNITY:

(16.505(b)(2)(ii)(B)(4).

(a) Exception to Fair Opportunity.

The following exception applies to compliance with the fair opportunity procedures set forth in 16.505: The order must be issued on a sole-source basis in the interest of economy and efficiency because it is a logical follow-on to an order already issued under the contract, and all awardees were given a fair opportunity to be considered for the original order. (FAR 16.505(b)(2)(i)(C)).

Page 3 of 7 Pages

Sept2012

This action requires the use of the authority cited because the Government and Contractor entered into a task order contract after all awardees were given a fair opportunity to be considered for the original award, and as a result of the previous task order, the current contractor has the unique expertise, knowledge, and experience to provide continued SE&I support to PEO C2C.. The SE&I mission and suite of functional in use testing capabilities requires continuation (with no disruption) of support services currently provided by SAIC and cannot accommodate a potential disruption of support.

The competitive Task Order was awarded in the last 24 months (award date of 14 November 2010) and an exception to full and open competition has not previously been used for this award.

(b) Description of the Justification.

The incumbent Contractor, Science Applications International Corporation (SAIC) was evaluated in the original award as providing best value to the Government because of their unique experience with Joint C2 capabilities, to include test and evaluation of the C2 domain and specific and enduring support to the SE&I testing environment. Critical C2 capabilities supporting world-wide Warfighters are under development and being maintained (fixed, tested and redeployed) within the DISA Fort Meade facility. SAIC plays a vital role in this work, and in ensuring the continued support to schedule and fulfill the performance requirements of the Warfighter. SAIC has expert technical knowledge on the suite of capabilities in Joint C2 to include the configuration, installation, interconnectivity and operations of each major system, the Global Command and Control System – Joint and its major components (Global, Joint Operations and Planning System, and the Infrastructure components), Joint Planning and Execution Services and its components (Rapid TPFDD Builder, Improved Gaming System, Joint Capability Requirements Manager, and others), the Joint C2 Common User Interface, the National Senior Leadership Decision Support Services and its Strategic Watch component, and others. The C2 and IT technologies underlying each of these systems is changing rapidly with the on-going evolution of the Joint C2 portfolio. Expert technical knowledge of these systems is gained through hands on experience, and is inherent in the incumbent Contractor. Award of the Task Order to a different source would require a significant amount of training and creation of support documentation and would be impractical and inefficient. Failure to maintain contractor support provided by SAIC until such time that a new task order can be fully competed, awarded, and transitioned will result in a loss of continuity of services and be detrimental to the SE&I program’s ability to provide support to the Warfighters at all echelons. In addition to the technical knowledge of the software, hardware, connectivity and communications required to successfully provide support to these systems, SAIC has developed an extensive operational knowledge of how these systems are used by the Warfighter. This unique viewpoint enables SAIC to efficiently support the engineering, integration, interoperability, and functional evaluation needs of the government with a focus on the ultimate customer, the Warfighter. This unique combination of technical and operational knowledge has been continuously demonstrated by SAIC with version releases, test events, and ongoing laboratory support.

(c) Justification:

(1) Minimum Government requirements. The minimum requirements are Systems

Engineering Support, Systems Engineering Technical Process Support, Limited Capability Integration and Test and Evaluation consisting of Capability Verification and Capability

Page 4 of 7 Pages

Sept2012

Validation. The incumbent’s proven capabilities impacted the decision to restrict competition for this follow-on task order award.

(2) Proposed sole source contractor.

SAIC supported the transition effort from the Global Command and Control System-Joint (the DoD C2 System of Record) from a large monolithic program to a portfolio of small capabilities.

This transition effort provided the SAIC workforce with a wealth of experience with the Government’s product line, architecture, configuration and geographically dispersed customer base. SAIC has in-depth knowledge of capabilities comprising the entire Joint C2 product line, including installation, configuration and functional expertise. SAIC completely understands the operational and technical environments, which includes vendor operating systems, component Government off-the-Shelf (GOTS), integrated Commercial Off-the-Shelf (COTS), interfaces, unique software bundles, site unique configurations, Combatant Command (COCOM) unique user interfaces, the functional requirements and Warfighter expectations and demands. The specialized expertise of SAIC would take years to fully duplicate.

Warfighter impact: PEO C2C provides the Department of Defense System of Record for Command and Control. It is used by all of the Services and all COCOMS.. The C2 SE&I is responsible for systems engineering, integration, testing, deployment, and transition of new components of the DoD's Joint C2 system for achieving full-spectrum dominance in support of the President of the United States, Secretary of Defense, National Military Command Center, and the Combatant/Joint Task Force/Service commanders. .

Delaying the fielding of new Joint C2 capabilities will result in a significant impact to the Warfighter's ability to command and control military forces on the battlefield and obtain intelligence to conduct Joint operations. In the interest of economy and efficiency, this task order must be issued on a sole-source basis because it is a logical follow-on to an order already issued under the contract, and all awardees were given a fair opportunity to be considered for the original order

As a result of SAIC’s long tenure, , the contractor has become intimate with all aspects of the technical baselines, organizational process and battle rhythms. This highly experienced workforce can be redeployed quickly to address and resolve sudden and unexpected areas of concern to the program.

(3) Discussion regarding cause of the sole source situation.

These services are required to ensure uninterrupted support for test and evaluation services required for ensuring Joint C2 capability software is appropriately tested and evaluated in a timely and controlled manner in support of Joint C2 capability developers in PEO- C2C.

Continuing these services is required to ensure execution of these requirements in order to meet DISA’s mission and to avoid service interruptions, thus jeopardizing DISA’s mission.

(4) Demonstration of unique source.

Page 5 of 7 Pages

Sept2012

The incumbent Contractor, Science Applications International Corporation, was evaluated in the original award as having unique experience with Joint C2 capabilities, to include systems engineering of the C2 domain and specific and enduring support to the SE&I laboratory environment. SAIC plays a vital role in this work, and in ensuring the continued support to schedule and fulfill the performance requirements of the Warfighter.

In addition to the technical knowledge of the software, hardware, connectivity and communications required to successfully provide support for testing and deployment of the major Joint C2 baselines, SAIC has extensive operational knowledge of how these major baselines are used by the Warfighter. This unique warfighter viewpoint enables SAIC to efficiently test for technical integration, interoperability and functionality during System Integration Tests (SITs). Similarly, this operational knowledge enables SAIC to efficiently test for operational performance during System Acceptance Tests (SATs).

(5)

(6) Impact:

Failure to maintain contractor support provided by SAIC will result in a loss of continuity of services and be detrimental to SE&I’s ability to provide systems engineering, test and evaluation and associated information assurance support for critical situational awareness and joint operational planning needs worldwide. Loss of testing continuity impacts the fielding of critical releases which in-turn compromises the Warfighter’s ability to command and control military forces on the battlefield in the conduct of Joint operations.

5. COST/PRICE FAIR AND REASONABLE DETERMINATION:

The Contracting Officer will determine a fair and reasonable cost based on the results of IGCE

vs. proposed cost comparison, cost analysis, Forward Price Rate Agreement (FPRA) and comparison of the proposed rates to the pre-established rates in the SPAWAR issued IDIQ contract and rate verification by DCAA.

6. MARKET RESEARCH:

SSC Pacific conducted market research prior to award of the original IDIQ by posting an RFI to Federal Business Opportunities (FBO). Multiple vendors were deemed capable and competitive for the IDIQ, and three were subsequently competitively awarded. SSC Pacific then competitively awarded the original Task Order (VC01) amongst the three IDIQ prime contract holders and it was determined SAIC offered the best value and was chosen as the awardee for a 12-month Task Order.

Additional market research was conducted prior to the issuance of the current Task Order, N66001-09-D-0115/VC01. The market research involved internet research on the vendor’s capabilities and past performance information. Market research was also done on vendors who could perform the combined work on other contract vehicles; i.e. GSA, by researching capabilities and scope of work under GSA contracts. Vendors researched had expertise with test and evaluation; however, they lacked significant relevant technical experience with the complexities of the Systems Engineering and Integration as well as little to no past relevant performance experience within programs of this nature (SE&I is a highly complex and widely

Page 6 of 7 Pages

Sept2012 dispersed capability dependant on hardware and software that is partially COTS and partial custom).

Awarding this follow on task order to another source would likely result in unacceptable delays and substantial duplication of costs to the Government that’s not expected to be recovered through competition, and SAIC was determined to have the unique expertise, knowledge and experience to provide continued uninterrupted service support on the follow-on Task Order based on experience gained from the previous Task Order.

7. ANY OTHER SUPPORTING FACTS:

SAIC has provided uninterrupted systems engineering and test and evaluation support to Joint C2 SE&I via a competitively awarded task order under a competitively awarded SPAWAR IDIQ. Their knowledge of Joint C2 capabilities and the employment of these capabilities together with their rapid responsiveness have contributed significantly to PEO C2C Programs and SE&I in the successful accomplishment of their missions.

8. ACTIONS THE AGENCY MAY TAKE TO REMOVE OR OVERCOME BARRIERS

THAT LED TO THE EXCEPTION TO FAIR OPPORTUNITY: (16.505(b)(2)(ii)(B)(7).

(a) Procurement History.

1. The SE&I test and evaluation support services are currently provided by SAIC on Task Order VC01 under Contract Number: N66001-09-D-0115. The period of performance is) 15 Nov 2010 to 14 May 2013.

2. The current Task Order VC01 is a Cost Plus Fixed Fee type pricing arrangement.

3. The current Task Order VC01 was competed as fair opportunity among all three of the SPAWAR IDIQ contract holders.

(b)

(c) A notice will be published to FedBizOpps as required by FAR 5.301 within 14 days of award of this sole source action for a minimum of 30 days.

9. REFERENCE TO THE APPROVED ACQUISITION PLAN (AP):

Not Applicable.

Page 7 of 7 Pages

Sept2012

Signature Page removed. Official Signed Justification and Approval Retained in the Official Contract File.