S02 - 20240627 BNJ -F5 GTM HWM-SWM_Redacted for SEWP Posting.pdf

F5 Global Traffic Manager Hardware-Software Maintenance Support for Data Centers

Control Number VA-24-00046479

JUSTIFICATION

FOR AN EXCEPTION TO FAIR OPPORTUNITY

1. Contracting Activity: Department of Veterans Affairs (VA)

Office of Procurement Acquisition and Logistics Technology Acquisition Center 23 Christopher Way Eatontown NJ 07724

2. Description of Action: The proposed action is for a firm-fixed-priced order to be issued under the National Aeronautics and Space Administration (NASA), Solutions for Enterprise-Wide Procurement (SEWP) V, Government-Wide Acquisition Contract (GWAC) for the renewal of brand name F5 Networks, Inc (F5) hardware and software maintenance support for four F5 Global Traffic Manager (GTM) appliances used at VA data centers. This support is required for F5 GTM appliances currently in use at the following four VA data centers: Austin Information Technology Center, Capital Regional Readiness Center; Hines Information Technology Center and Philadelphia Information Technology Center.

3. Description of the Supplies or Services: VA, Office of Information and Technology, Connectivity and Collaboration Services (CCS), Core Network Services (CNS), Network Operations has a requirement for the renewal of brand name F5 BIG-IP GTM hardware and software maintenance support (F5 GTM HWM-SWM) to continue three types of coverage for four F5 BIG-IP i2800 GTM (F5 GTM) network appliances that are in-use and located at four VA data centers. This support shall provide F5 BIG-IP premium 24x7 support for the appliances and the appliances’ operating software, expedited 4-hour hardware replacement and hard disk retention. These F5 GTM appliances are needed to distribute network traffic to local traffic manager appliances providing better secure access and configuration backups used to quickly resolve network issues. The period of performance shall be 12 months with two 12-month option periods for continued support. The total estimated value of the proposed action is inclusive of options.

4. Statutory Authority: Pursuant to Federal Acquisition Regulation (FAR) 16.505(a)(4), the following brand name requirement is being justified and approved as an exception to fair opportunity under the statutory authority of Section 41 U.S.C.

4106(c)(2) as implemented by FAR 16.505(b)(2)(i)(B), entitled “Only one awardee is capable of providing the supplies or services required at the level of quality required because the supplies or services ordered are unique or highly specialized”.

Rationale Supporting Use of Authority Cited Above: Based on market research, as described in section eight of this justification, it was determined that limited competition is available among authorized resellers for this requirement. VA requires continued use of brand name F5 GTM HWM-SWM coverage to support the VA’s F5 GTM appliances. The F5 GTM appliances are required because they provide data traffic redirection between the data center’s current GTM appliances (load balancers), VA data center F5 BIG-IP local traffic manager load balancers and the existing VA Network Security Operations Center’s (NSOC)

Control Number VA-24-00046479

F5 BIG-IP load balancers, which are required for VA network operations. While the data center’s current F5 GTM appliances are not end-of-life, end-of-support and thus do not need replacement, they do require continued F5 GTM HWM-SWM coverage. The continued coverage includes 4-hour advanced hardware replacement or repair due to hardware failures, F5 Level 1-3 HWM-SWM 24x7 technical support, and timely software updates and upgrades when released, to keep the appliances and the appliances’ software operational.

Only F5 or its authorized resellers can provide F5 GTM HWM-SWM coverage because only F5 has ownership and can develop updates for its proprietary source code for the F5 GTM appliances. The F5 GTM HWM-SWM coverage for these appliances is required to update F5 GTM proprietary source code, and other F5 GTM proprietary data that can interface with and update software for F5 GTM appliances and the appliances’ operating software.

In addition, there are no other GTM appliances, aside from F5, that are interoperable and compatible with existing F5 local traffic manager load balancers in use at the VA data centers and at NSOC. This is because one brand of load balancer will not communicate with load balancers from a different original equipment manufacturer (OEM). Specifically, each OEM has load balancers with proprietary traffic manager operating systems (TMOS) that read and interpret transmitted configuration files only from their proprietary operating systems. To distribute network traffic, the load balancers use their OEM’s TMOS to interpret and read received information to make intelligent decisions to route the data traffic to servers. It is not possible to mix load balancers from other OEMs due to lack of compatibility and ability to communicate.

Without continuing F5 GTM HWM-SWM for in-use VA F5 GTMs, failed F5 GTM hardware would not be quickly replaced. Also, without security updates or upgrades, network security vulnerabilities and risks to the VA network infrastructure would occur.

Therefore, for the reasons indicated above, only F5 brand GTM HWM-SWM maintenance will meet the Government’s needs.

5. Efforts to Obtain Competition: Market research was conducted, details of which are in section eight of this document. This effort did not yield any additional sources that meet the Government's requirements. However, the undersigned VA technical representative determined that limited competition is available among authorized resellers for brand name F5 GTM HWM-SWM support for F5 GTM appliances and the appliances’ operating software currently in use at four VA data centers. In accordance with FAR 16.505(a)(4)(iii)(A)(1), this justification will be provided with the solicitation to all appropriate NASA SEWP V GWAC holders.

6. Actions to Increase Competition: The Government will continue to conduct market research to ascertain if there are changes in the marketplace that would enable future actions to be competed.

7. Market Research: The Government’s technical experts conducted market research from February to April 2024 to confirm whether F5 GTM appliances and the appliances’ operating software remain proprietary. These reviews included web-based

Control Number VA-24-00046479 r esearch of the F5 website, product data sheets, maintenance coverages offered, product availability through NASA SEWP V and other industry websites. Market research confirmed that only F5 can fulfill the continuing need for F5 GTM HWM-SWM because F5 GTM hardware and software continue to be proprietary, F5 Software cannot be updated by other Original Equipment Manufacturers (OEMs), and F5 GTM appliances and the appliances’ operating software do not operate or communicate with software from other OEMs without use of F5 proprietary software. Based on the market research performed, the Government’s technical experts determined that only brand name F5 GTM HWM-SWM and the appliances’ operating software can meet all of VA’s needs.

Additionally, a review of the NASA SEWP V GWAC market research tool was used to determine whether the brand name F5 GTM HWM-SWM products are available from resellers that hold current NASA SEWP V contracts. Based on this market research, 13 Service-Disabled Veteran Owned Small Businesses were identified that can provide the required brand name products to meet the Government’s needs for this effort.

8. Other Facts: None.