Brand_Name_Justification_and_Approval_-_SAQMMA13R0297.pdf

JUSTIFICATION AND APPROVAL (J&A)

FOR OTHER THAN FULL AND OPEN COMPETITION

1. The Department of State (DoS) Office of Acquisition Management (A/LM/AQM) is conducting this acquisition for video telecommunications equipment on behalf of the DoS Video Program Office (VPO).

2. Nature and/or description of the action being approved: New multiple-award indefinite-delivery indefinite-quantity contract for comprehensive, enterprise-wide commercial off-the-shelf (COTS) video telecommunications (VTC) information technology (IT) equipment (supplies) and ancillary services (e.g. design, installation), a portion of which shall specify a brand-name product (Cisco) ) that the Department of State may standardize on for the long term. This justification covers only the portion of the acquisition which is brand-name.

3. A description of the supplies or services required to meet the Department’s needs:

The DoS IRM has a requirement to modernize its technologies, capabilities, and functionality to bring VTC into the hands of the Mobile Diplomat. In order to fully modernize the VPO, the Government must consider its core business functions of Unclassified VTC and Secure VTC (SVTC). The Government requires moving forward on the unclassified side by taking VTC out of the conference room and putting VTC into the hands of the user. This will include:

• To the OpenNet Desktop;

• To the home PC;

• To the mobile device (Smartphone, Tablet, Laptop).

VPO has also proposed to update its charter to include the functions of webinars and immersion rooms. The current VPO infrastructure consists of a Cisco/Tandberg Multi-point Control Unit (MCU), also referred to as a bridge, and Cisco/Tandberg Video Communications Servers (VCS). These are managed by the Cisco Telepresence Management Suite (TMS). Individual conference rooms and desktop units (end-points) make up the user-end of the infrastructure. This infrastructure allows for point-to-point and multi-point conferencing within the DoS’ OpenNet network, with up to 100 concurrent connections, as well as conferencing to outside entities (i.e. other agencies, educational, and medical institutions, etc.) using the public Internet and ISDN. However, the existing infrastructure does not address mobile and desktop functionality; these will need to be addressed either with additional Cisco/Tandberg hardware/software, or by augmenting the existing infrastructure with 3rd party hardware/software. Information Security will be paramount and will need to be addressed throughout the project.

The vision for the future of the VPO is to provide its customers with high-quality, anytime/anywhere connections to the VTC infrastructure regardless of its location or platform. A device agnostic approach will allow VPO customers to utilize a Bring Your Own Device (BYOD) philosophy, giving them the power to communicate via VTC from anywhere in the world – on the OpenNet desktop, a home PC, a laptop, or a mobile device. By utilizing effective, cost efficient technologies, DoS can meet the following goals, objectives and Key Performance Indicators (KPIs) of its IT Strategic Plan:

DoS Justification and Approval for Other Than Full and Open Competition – VPO Modernization

Goal 1 – Collaboration, Information, and Integration

Goals Objectives KPIs

1.2 – Creation and management of knowledge in support of diplomacy.

Next generation messaging and information exchange.

Increased IT Resources for diplomatic initiatives.

Centralization and Standardization of diplomatic data.

Increased use and perceived value of innovative tools.

Goal 2 – Global Infrastructure

Goals Objectives KPIs

2.3 – An evolving suite of user-driven mobile technology and end-user services is deployed.

Redesigned mobile computing program focused on mission needs.

A managed suite of mobile applications for the diplomat.

Percentage of users accessing network services remotely including unclassified email.

Usage and satisfaction with mobile apps.

2.4 – Enhanced risk management, cyber security, and reduction of sensitive holdings.

Comprehensive cyber security architecture approved and adopted, along with core technology for standard security solutions.

Secure mobile devices.

Standard security solutions in place for information sharing across agencies.

Number of applications that leverage enterprise services.

Percent increase in number of secure mobile devices.

In order to reach the goals of its IT Strategic Plan, the DoS must secure technology that modernizes the core business functions of VPO and allows DoS to cost effectively integrate the new functions. The DoS therefore requires a comprehensive video teleconferencing solution, which must include, among other supplies and services, video teleconferencing technology meeting the following minimum technical requirements.

Requirement Relation to the Agency’s needs User Interface SIP Compliance For future support of IP Telephony.

H.323 Compliance For continued support of legacy equipment.

Content Sharing For collaboration of data.

Windows Version Desktop Video Software must be Windows compatible to support desktop, laptop, and Windows compatible devices in the current and anticipated Windows-based DoS IT Infrastructure as well as a Bring Your Own Device (BYOD) environment.

Mac Version Desktop Video Software must be Mac compatible to support desktop, laptop, and Mac compatible devices in the current and anticipated Mac-based DoS IT Infrastructure as well as a BYOD environment.

Android Version Mobile Video must be Android compatible to support BYOD accessibility to the VTC infrastructure.

Any webcam? Video software must support any webcam to ensure BYOD accessibility to the VTC infrastructure on desktops, laptops, and mobile devices.

HD Resolution The software must support a minimum 720p. HD Resolutions at a minimum of 720p are required to support HD video teleconferences provided bandwidth is available.

Standard definition To support locations with low bandwidth.

Peer-to-peer Desktop software must not require an MCU for connectivity. This will enable point to point conferences, which conserve bandwidth and reduce latency issues on the enterprise network infrastructure, are available to all VTC users

Multiple Presence To ensure availability and ease of dialing.

iOS To support Apple iPhones and iPads in a BYOD environment.

Thin Client Compatible

The software must be compatible with Windows based thin clients. To support current and anticipated windows-based thin clients in the DoS IT infrastructure.

Ad-hoc conference To facilitate regional, post to post, and point to point meetings. This allows for direct VTC communication without utilizing the MCU and conserves bandwidth resources across the enterprise network.

Can be centrally managed

To ensure compliance with Department operational practices, and to ensure up to date configurations and software. All virtual meeting rooms (VMRs) are resident in Washington, D.C. and so all end points must come back to D.C. to connect. Central management will ensure DoS is meeting the requirements of 12 FAM by making sure all connections are properly updated and licensed to access the VMRs.

AD compatible For ease of integration into the enterprise. AD Compatibility ensures that clients authenticate securely when utilizing peer to peer and ad hoc conferencing.

DTMF Bands To ensure compatibility with DTMF enabled resources for H.323 and audio-based conferencing.

Audio and Video Mute

To conform to DS Security Configuration Standards (12 FAM 674).

Self view PIP To conform to DS Security Configuration Standards (12 FAM 674) and to ensure that the user is able to confirm that their equipment is transmitting properly.

URI Dialing To support modern dialing schemes as H.323 becomes phased out over time.

E.164 Dialing To support H.323 dialing schemes for legacy equipment and software.

Uniform Phonebook Integration

For ease of dialing and enhanced user experience.

Back-End Functionality H.323 Compliance To ensure DoS compatibility with H.323, the most widely used protocol.

H.320 Compliance H.320 is used for ISDN connectivity.

H.239 Compliance H.230 is used for content sharing.

SIP Compliance To ensure DoS can support future protocols.

H.460 Firewall To ensure DoS adherence to the ITU standard for firewall traversal.

OCS and Lync Integration

To integrate with Microsoft Office Communication Server, the current standard for peer to peer communication in DoS. This will allow for future integration should IRM/OPS/MSO wish to consolidate communications with the VPO.

LDAP Integration Must be able to integrate into an existing LDAP solution or have its own LDAP solution. This ensures the ability to authenticate with Active Directory and MS Exchange Global Address Lists.

PABX Traversal Nortel and Avaya Switches

Must be compatible with Nortel and Avaya switches to support future Unified Communications infrastructure.

Streaming Must support streaming to allow support for one-to-many broadcasts such as webinars

Recording Must support recording of historical documentation of one-to-many broadcasts and meetings that require an historical record.

Universal Transcoding

Must be able to transcode when needed to support disparate protocols accessing simultaneous meetings.

VOIP Must integrate with VOIP to support future Unified Communications infrastructures.

Multi-Cast Must support multicast streaming to support one-to-many broadcasts and conserve bandwidth across the enterprise network.

Multiple Presence For ease of dialing.

TLS For secure communications.

SSL For secure communications.

FIPS 140.2

Compliance

To be compliant with Federal Information Processing Standards (FIPS) Publication 140.2 for data encryption and security per Homeland Security Presidential Directive 12 (HSPD-12).

As noted in Para 5 and 8 of this document, a Request for Information (RFI) was submitted that outlined the above requirements. Of the responses, only Cisco is able to meet all requirements specified. No other available technologies are able to meet all of the requisite functionality. It is determined that only the Cisco brand video teleconferencing hardware and software are able to meet the requirements for video conferencing as stated above.

4. An identification of the statutory authority permitting other than full and open competition: 41 U.S.C. 253(c) (1) and FAR 6.302-1: only one responsible source (brand-name) and no other supplies or services will satisfy agency requirements.

5. A demonstration that the proposed contractor’s unique qualifications or the nature of the acquisition requires use of the authority cited. The use of a brand-name description in a portion of the acquisition is essential to the Government’s requirements, thereby precluding consideration of a product manufacturer by any other company. Only the Cisco brand-name products described herein meet the Government’s needs.

In order to have a successful video program modernization, a standardized set of compliance requirements were developed based on agency needs. Of the requirements in the lists below, the major concerns are that it be secure, that a common user interface and a common architecture be utilized, that it allow for up to 2,000 concurrent connections (scalable), and that it leverages the existing infrastructure and management tools and is fully integrated and centrally manageable by the existing infrastructure. DoS cannot feasibly require its internal and external customers to have to learn 5 different applications for 5 different platforms (Windows, Mac, iPhone, iPad, and Android) and it cannot feasibly remove its existing infrastructure to accommodate the new technology.

Any proposed solution must be able to be administered by the existing management tools or the vendor must consider providing its proprietary management tools. DoS also requires that any web-cam (built-in or external) that meets Diplomatic Security standards can be used, avoiding the need to buy proprietary peripherals to make it work. Although High Definition (HD) functionality is desired, bandwidth is of greater concern at the current time, so the technology must be able to provide Standard Definition (SD) as well as HD functionality.

The following are comparison charts for the Back-End Functionality (the infrastructure) and User Interface requirements for each technology brand presented in response to DoS Request for Information (RFI) SAQMMA12I0007. All RFI respondents were asked to provide information on the capabilities of their products based on specific criteria.

Respondents were to answer in Yes/No format, but were also allowed to provide comments for clarification.

Back-End Functionality

The RFI specifically listed functions required by the DoS mission, for each technology provider to respond with a yes/no compliance check. Of the 4 technology brands presented in response to the RFI, the following information was compiled:

1 - Must use a separate Gateway Server to comply.

2 - Compliance is in process, but not complete.

The DoS also examined user interface requirements related to the agency’s mission, including, “Is there a common user interface across platforms?” and “Does it comply with the following requirements/standards?” Of the 4 technology brands presented in response to the RFI, the following information was compiled:

User Interface

1 - Movi Mobile will be available for iOS and Android by summer 2012. Cisco Jabber is available now and Jabber/Movi will be integrated into a new package at the end of 2012.

2 - Must use a separate Gateway Server to comply.

3- By the end of CY 2012.

As shown above, the Polycom, Vidyo, and Avaya technologies fail to meet one or more of the Department’s VTC requirements. Only the Cisco brand name solution meets all of the DoS requirements for video program modernization.

6. A description of efforts made to ensure that offers are solicited from as many potential sources as is practicable: A FedBizOpps notice will be publicized as required by FAR Subpart 5.2 and FAR 6.302-1(d)(2). As this is a brand name only justification, no one contractor’s unique qualifications are used as the basis for this justification.

Rather, the products identified by brand name herein have been identified as the only products that will meet the DoS’ requirements. Notwithstanding the brand-name limitations justified herein, the DoS shall utilize competitive procedures at FAR Part 12, Part 15, and Subpart 16.5, as applicable, to solicit and evaluate competitive proposals with the intent to award multiple indefinite-delivery indefinite-quantity contracts.

7. A determination by the Contracting Officer that the anticipated cost to the Government will be fair and reasonable: Prior to making contract award(s) under this acquisition, the Contracting Officer shall evaluate proposals received in response to a solicitation, in accordance with FAR Subparts 16.5, 15.3, and 15.4, as applicable, and make a fair and reasonable price determination. As required by FAR 16.505(b)(3), when placing orders, if the contract did not establish the price for the supply or service, the contracting officer shall establish prices for each order using the policies and methods in FAR Subpart 15.4.

8. A description of the market survey conducted and the results or a statement of the reasons a market survey was not conducted: In February 2012, DoS Request for Information (RFI) SAQMMA12I0007 was posted to FedBizOpps to solicit responses from industry about the various unified communications platforms available for VTC, Webinar, and voice/data options. The respondents are listed in item #10 below, and the examination of the RFI responses is summarized in item #5 above.

Additionally, in July 2010, the DoS issued to all GSA FSS contract holders solicitation

SAQMMA10Q0120, on a brand-neutral (Meet or Exceed) basis, to establish a single GSA FSS Blanket Purchase Agreement for conference room VTC supplies similar to a portion of the instant requirement. The BPA was awarded shortly thereafter. (It is the Department’s intention to replace that BPA with this new IDIQ contract, once awarded;

however the new IDIQ scope is broader than that of the current BPA.) The technical requirements of that BPA solicitation were similar to those identified herein, and the only responses received in response to the solicitation were for the Cisco brand products identified herein1

, indicating that only the Cisco brand product met the Department’s requirements.

9. Any other facts supporting the use of other than full and open competition: The DoS currently has a complete Cisco/Tandberg infrastructure in place that leverages existing resources to enable DoS to meet its goals and objectives immediately, without the need to replace an infrastructure that the DoS has already expended millions to build and maintain. With a few simple configuration steps, installation of an outward facing hardware interface, and the installation of a client software application, the existing network can be pressed into operation immediately for a pilot that will cost less upfront, compared to other solutions, to implement.

In addition, the majority of the Intelligence Community and most of the Federal Government, including USAID, are utilizing the Cisco/Tandberg solution, which will further facilitate intra-Governmental communication and interoperation as required to fulfill the mission of DoS and other federal agencies.

1 Note regarding Cisco/Tandberg re-branding: Prior to October 2010, the Cisco products identified herein were owned by Tandberg and were known by the same brand name. Cisco acquired Tandberg, including its line of VTC products, which are now known by the Cisco brand name. The same product lines identified as “Cisco” brand herein were identified in the July 2010 GSA proposals as “Tandberg” brand.

10. A listing of sources, if any, that expressed, in writing, an interest in the acquisition:

The following companies submitted responses to DoS RFI SAQMMA12I0007.

• Cisco/Tandberg • Vidyo

• Avaya • Polycom

• Media Systems Integration • LGS Bell Labs Innovations

• BlackBox • Futron

• Starleaf • General Projection Systems (GPS)

• AT&T • SDVO Services LLC

• IronBow • MicroTech

Of these, Cisco/Tandberg; Vidyo; Avaya; and Polycom were the only respondents that presented actual technologies (brands) for evaluation. The remaining companies submitted proposals that utilized the Cisco/Tandberg solution. Review and consideration of each response is summarized in item #5 above.

11. A statement of the actions, if any, the agency may take to remove or overcome any barriers to competition before any subsequent acquisition for the supplies or services required. In accordance with FAR 5.102(a)(6) and 6.305(b), this J&A for other than full and open competition shall be posted with the solicitation on FedBizOpps.

Throughout the contract period and at least prior to exercise of each option period (if any) under this contract, the DoS shall conduct market research in accordance with FAR Part 10 and FAR 17.207(d), to ensure that continued use of the contract is the most advantageous method of fulfilling the Government’s need, price and other factors considered, and that changes to the marketplace do not warrant new competition to fulfill ongoing needs, in consideration of Government regulation and policy objectives.

CERTIFICATIONS

TECHNICAL AND REQUIREMENTS CERTIFICATION

I certify that this justification is accurate and contains complete data necessary to support the recommendation for other than full and open competition.

XXXXXXXXXXX 4/12/2013

Date Chief, Video Program Office

IRM/OPS/ITI/SI/DTS/VPO

CONTRACTING OFFICER CERTIFICATION

I certify that this submission is accurate to the best of my knowledge, and that it contains complete information necessary to enable other officials to make an informed recommendation for approval or disapproval.

XXXXXXXXXXX 4/25/2013

Contracting Officer Chief, Information Systems Branch Office of Acquisition Management

LEGAL SUFFICIENCY REVIEW

XXXXXXXXXXX ____________ __4/29/2013___

Assistant Legal Advisor for Buildings and Acquisitions

APPROVALS

DIVISION CHIEF

XXXXXXXXXXX 4/30/2013

Date Chief, IT Division

PROCURING ACTIVITY COMPETITION ADVOCATE

XXXXXXXXXXX 5/2/2013

Competition Advocate

HEAD OF THE CONTRACTING ACTIVITY

XXXXXXXXXXX 5/2/2013

Director