J AEXCEPTIONTOFAIROPPORTUNITY0048.pdf

JUSTIFICATION FOR AN EXCEPTION TO FAIR OPPORTUNITY

Contract Number: W15P7T-06-D-E403 Program/Equipment: US Army CECOM Life Cycle Management Command (CECOM LCMC) Software Engineering Center (SEC) Intelligence, Surveillance and Reconnaissance (ISR) Directorate, Guardrail Family-of-Systems Software Support Contractor: ManTech Advanced Systems International, Inc (MASI) Task (or Delivery) Order: 0048 Task (or Delivery) Order Increase: $8,121,033

1. Contracting Officer Certification

I certify that this determination to waive competition is accurate and complete to the best of my knowledge and belief.

Typed Name: Matthew R. Marx Date: 09/02/2014 Title: Procuring Contracting Officer

Signature:

2. Technical Certification

I certify that this determination to waive competition is accurate and complete to the best of my knowledge and belief.

Typed name: Garrett Shoemaker Date: 09/02/2014 Title: Chief, Intelligence and Information Software Support Division

Signature: E-Signed by SHOEMAKER.GARRETT.W.1250698166 VERIFY authenticity with ApproveIt

3. Legal Counsel

Typed Name: William Kampo Date: 09/02/2014 Title: Business Law Attorney – Division Chief

E-Signed by KAMPO.WILLIAM.J.JR.1228654880

E-Signed by MARX.MATTHEW.R.1390904556

4. Approval

I hereby approve this exception to the fair opportunity process to increase the overall ceiling of this Cost Plus Fixed Fee-Term/Cost Reimbursement task order by $8,121,033 and to extend the period of performance of this task order (POP) by 180 days in order to continue to provide system and software engineering support to the SEC and its associated Program Managers (PMs) and Program Executive Offices (PEOs) for Guardrail Family of Systems Post Production Software Support (PPSS). This is pursuant to Federal Acquisition Regulation (FAR) 16.505 (b)(2)(i)(C), subject to the availability of funds, and provided that the services and property described herein have otherwise been authorized for acquisition.

Typed Name: Dennis Longo Date: 09/03/2014 Title: Special Competition Advocate

Signature:

E-Signed by LONGO.DENNIS.PAUL.1229314129 VERIFY authenticity with e-Sign

5. Contracting Activity:

US Army Contracting Command Aberdeen Proving Ground

ATTN: ACC-APG

6001 Combat Drive Aberdeen Proving Ground, MD 21005

6. Description of Action: The proposed action is a Cost Plus Fixed Fee-Term modification to extend the current W15P7T-06-D-E403/0048 Strategic Services Sourcing (S3) task order for services supporting the Software Engineering Center (SEC) Intelligence, Surveillance and Reconnaissance (ISR) Directorate’s Guardrail Family of Systems.

The purpose of this modification is to increase the existing CPFF Labor ceiling by $7,732,435 and the Cost Reimbursement ODC + Travel Ceiling by $388,598 equaling a total ceiling increase amount of $8,121,033. This ceiling increase amount reflects the current Task Order 0048 Level of Effort (LOE) and corresponding burn-rate of roughly $1.4M per month. This will increase the original task order ceiling amount from $34,029,981 to $42,151,014. This proposed modification will also extend the period of performance (POP) by six (6) months from 04 September 2014 to 03 March 2015.

7. Description of Supplies/Services: The services provided under this task order support the SEC- ISR organization’s mission of providing Post Production Software Support (PPSS) for the Guardrail Family of Systems (GFoS). These services support PEO/PM Sensor Aerial Intelligence (SAI) acquisition support for the Guardrail Family-of-Systems, which includes PM SAI’s Guardrail Modernization and Quick Reaction Capability (QRC) efforts and related auxiliary software systems and subsystems. These services address support requirements in the area of Army Intelligence, Surveillance, and Reconnaissance (ISR) system technologies, functions, and capabilities which include: Guardrail Common Sensor; Guardrail Modernization;

QRC enhancements; Command and Control (C2) for GRCS residing in Distributed Common Ground Station – Army (DCGS-A) Operational Intelligence Ground Station (OGS); Guardrail Ground Baseline (GGB); Guardrail Test Bed Support; computer software configuration items (CSCIs) used for preflight or that assist in the maintenance of GFoS; nodes and user capabilities unique to GRCS-1,2,3,4 that execute or reside partly or entirely in the Airborne or Ground Segments; test bed and integration support; Verification and Validation (V&V); technical, management and resource analysis services; configuration management; software improvement activities; accreditation and security patches; and training package updates. Specifically, this support covers the following areas associated with the Guardrail Family-of-Systems:

(1) Field software corrections and high priority enhancements for prioritized approved Guardrail Configuration Control Board (CCB) Software Change Requests (SCRs) reported by the Military Intelligence Battalions (MI BNs) against the Guardrail Ground and Air Baselines. As required and approved by the Guardrail CCB, provide ground operating system (OS) and other runtime environment security updates or upgrades to all ground Guardrail components that are needed to keep the system accredited.

(2) Respond to emergency problems by developing and delivering software updates that correct the emergency problem, or otherwise devise an appropriate operational workaround.

(3) Provide Information Assurance (IA) Vulnerability Alert IAVA releases/service packs and other required software changes mandated by the GRCS accreditation authority; support required certification and accreditation activities; and update all required Security Accreditation documentation when needed.

(4) Provide PPSS test bed engineering support on an on-going basis, to include engineering support for PPSS test bed integration and accreditation. Provide Test Bed Coordinator functions, system administration, and operation.

(5) Update existing training material, conduct operator training, and conduct individual key personnel training (IKPT) for each maintenance release.

(6) Provide support to existing Guardrail Field Site Engineers (FSEs) and operators that reside at the Guardrail field sites. Support GRCS FSEs as necessary in order to resolve technical issues and institute procedures that provide continuity for maintaining necessary Guardrail operations.

(7) Complete software fielding activities to GRCS units by providing critical support and upgrades to the fielded units which are supporting Operation Enduring Freedom (OEF) and Korea missions. These fielding activities extend the systems’ accreditation and Authority to Operate (ATO), and provide critical software corrections and upgrades.

8. Authority Cited: Pursuant to FAR 16.505 (b)(2)(i)(C), this proposed modification must be issued on a sole source basis in the interest of economy and efficiency because it is a logical follow-on to the software support efforts being performed under task order W15P7T-06-D- E403/0048, and all S3 awardees were given a fair opportunity to be considered for the original task order award.

9. Reason for Authority Cited: The proposed source is ManTech Advanced Systems International, Inc (MASI), 4696 Millennium Dr., Belcamp, MD 21017-1555. MASI is currently providing Guardrail Family of Systems software support under W15P7T-06-D-E403/0048, which was competitively awarded under the S3 Multiple Award Contract. MASI is the only source that has the knowledge, experience, and resources immediately available to continue providing these software support services until they are seamlessly transitioned to the recipient of the follow-on competitive task orders issued under the SSES NexGen MATO contract. The work effort under W15P7T-06-D-E403/0048 provides critical software upgrades and security updates in direct support of the Warfighter. The SEC must continue to support activities such as the fielding of the Guardrail Ground Baseline 3.3 to the 224th MI BN at Ft Gordon, 15th MI BN at Ft Hood, 3rd MI BN at Camp Humphreys Korea, and the 1st MI BN in Germany. The fielding of this particular software resolves critical issues relating to reporting requirements and the ability to detect and collect new emerging signals. The fielding of this software also extends the systems’ accreditation and Systems Authority to Operate (ATO). ManTech is the only source which is capable of providing such software support services in a seamless and uninterrupted fashion at this immediate time.

Although other sources might have the capability to perform this work, it is estimated that the time required to conduct even a limited competition for these interim services would result in an unacceptable break in these mission critical services with negative consequences to the Warfighter. Based on historical data, it is estimated that a minimum of 6-8 months would be required to conduct a competitive effort for interim services with any resultant contractual ordering period covering less than one (1) year. In addition, the Government would risk duplication of transition costs, estimated at $2,800,000 based upon historical burn rates, if the interim extension were awarded to any firm other than the incumbent. Given that award of the interim effort and follow-on contracts would occur within 4-5 months of each other, transition costs are not likely to be recovered through competition.

The acquisition strategy set for the follow-on solicitations was to solicit the majority of the Guardrail software support efforts under SSESR-2034, while some requirements were set aside for the SSES NexGen Restricted Suite (which consists exclusively of small businesses) under SSESR-0107. SEC submitted the initial ARP package to ACC-APG on 11 April 2014.

Subsequent discussions with the KO resulted in incorporating uplifts to the ARP package to accommodate the potential for additional requirements targeted for FY15 for the Guardrail Family of Systems and a 60 day transition period requirement. Due to the addition of the uplifts and 60 day transition period, several other ARP documents required changes, which resulted in the final submission of the ARP package on 2 June 2014. This late submission of the ARP packages relative to the end of the fiscal year, combined with the necessity of a sixty (60) day transition period, made award of the follow-on solicitations in fiscal year 2014 unrealistic.

Furthermore, ACC-APG Division E was also burdened with unanticipated urgent workload based upon the receipt of two (2) GAO protests and one (1) small business size protest. Consequently, ACC-APG Division E had to allocate its resources in support of these urgent actions. Therefore, this six (6) month extension is being requested to allow for uninterrupted support for the Guardrail software support efforts being performed under W15P7T-06-D-E403/0048 until SSESR-0107 and SSESR-2034 are awarded in January 2015. This anticipated award date takes into account the realities associated with prioritizing end of fiscal year workload, as well as the need for a sixty (60) day transition period.

10. Actions to Increase Competition: Based upon the market research results discussed in section 11., ManTech is the only source capable of providing the subject software support services at this immediate time. For the corresponding future requirements, the Government intends to support the Guardrail Family-of-Systems through two (2) distinct solicitations and subsequent task orders (SSESR-0107 and SSESR-2034) utilizing both the Restricted and Unrestricted Suites under the SSES NexGen contract vehicle. By separating the follow-on requirement into two (2) distinct solicitations under both the SSES NexGen Restricted and Unrestricted Suites, the Government has created greater opportunities for large and small business Prime Contractors and Subcontractors, therefore fostering a more competitive environment.

11. Market Research: The SEC conducted Market Research by contacting the seven (7) prime Multiple Award Task Order (MATO) holders under the S3 contract. A Notice of Intent to extend W15P7T-06-D-E403/0048 by six (6) months was sent via electronic mail message on 26 June 2014 and requested a response no later than close of business 01 July 2014. ManTech was the only S3 MATO holder to express interest in supporting the W15P7T-06-D-E403/0048 six (6) month extension. Based upon the results of this market research, the Software Engineering Center established that ManTech is the only source capable of providing the subject software support services at this immediate time.

12. Procurement History:

i. Task Order 0048 under S3 Contract W15P7T-06-D-E403 was competitively awarded on September 4, 2012 on a CPFF Term/Cost-Reimbursement basis to ManTech Sensor Technologies, Inc. for a Base Period of twelve (12) months, with one (1) twelve (12) month Option Period under the S3 IDIQ.

Contract/TO Contractor Award Date Extent of

Competition/Authority

W15P7T-06-D- E403 / 0048

Mantech Sensor Technologies Inc. (MSTI) 4 September 2012

Competed under S3

IDIQ

13. Contract Officer’s Determination

I hereby determine that extending the period of performance and increasing the overall task order ceiling of W15P7T-06-D-E403/0048 represents the best value to the Government. The anticipated cost to the Government for this effort will be negotiated to ensure a fair and reasonable price is achieved. A cost realism analysis and price analysis will be conducted by the Contracting Officer utilizing a number of techniques in FAR 15.4. Such techniques include, but are not limited to, verification of proposed rates to DCMA approved forward rate agreements, utilization of weighted guidelines to determine that fee is commensurate with risk, comparison of the proposal to an Independent Government Estimate, and a comparison of the proposed price to prices received for similar efforts recently competed under the S3 and SSES NexGen Contracts.

Typed Name: Matthew R. Marx Date: 09/02/2014 Title: Procuring Contracting Officer

E-Signed by MARX.MATTHEW.R.1390904556