SED Mission Support_Consolidation Final signed 1-28-2021.pdf

DETERMINATION AND FINDINGS

CONSOLIDATION

Stakeholder Engagement Division (SED) Stakeholder Mission Support Services

Pursuant to the requirement of Federal Acquisition Regulation FAR 7.107-2 Consolidation, the determination that consolidation is necessary and justified is supported by the following facts and rationale.

FINDINGS

1. The U.S. Department of Homeland Security (DHS), Cybersecurity and Infrastructure Security Agency (CISA), Stakeholder Engagement Division (SED) proposes to contract for Stakeholder Mission Support Services by consolidating two (2) task orders (one (1) of which was previously consolidated), a subtask from a third task order and ten (10) new subtask requirements into one (1) consolidated requirement.

The three (3) task orders involving consolidation are:

• 70RNPP18FR0000081 / GS00Q14OADS106 - Insight Technology Solutions Inc. (Insight) – Current tasks under this order include program management and planning support, operations and administration support, as well as IT SharePoint support. This order was previously consolidated from one large business (HSHQDC-15-J-00307 with BAH), and two (2) small businesses (HSHQDC-16-F-00202 with Insight and HSHQDC-17-J-00497 with SAVVEE) into one consolidated small business set-aside that was competitively awarded off GSA OASIS SB Pool 1.

• HSHQDC-17-F-00106 / GS00Q14OADS128 - Miracle Systems LLC (Miracle) – Current tasks under this order include program management, administrative, budget, strategic planning, human capital, technical writing, and analytical support services. This task order was competitively awarded as a small business set-aside off GSA OASIS SB Pool 1.

• 70RCSA19FR0000032 / 47QRAA18D009V – Breck, Inc (Breck) – Current tasks under this order include external affairs planning, support and creative services, however only one

(1) subtask, “Strategic Communications” from this current support in being consolidated into this new task order. This was competitively awarded as a small business set-aside off GSA

PSS MAS.

The ten (10) new subtask requirements (not including any requirements that were included in the scope of the previous task orders) to be consolidated into this new order are:

• Sectors and Councils Subdivision Support o Cross-Sector Liaison and Coordination Support o Cross-Sector Knowledge Fusion Support o Cross-Divisional Engagement Support

• Strategic Relations Subdivision Support o Partnership Branch Support o Engagement Operations Branch Support o Stakeholder Resiliency Technical Assistance

• Stakeholder Management Subdivision Support o Stakeholder Engagement Strategy Development Support o Stakeholder Engagement Innovation and Response Campaign Planning Support

• Strategy and Performance Support o Policy Coordination Support o SED Coordination Control Center Support

Functions to be performed in the SED Stakeholder Mission Support Services task order encompass the full spectrum of SED’s substantive missions and functions, including support for the Stakeholder Management, Strategic Relations, and Sectors & Councils Subdivisions. Additionally, the scope covers limited support for core business and mission support functions executed by the SED Chief of Staff and Associate Director for Strategy, Performance & Resources (SPR).

This scope summary applies to the following main overarching tasks:

• Task One: Contract Management o Overall Contract Management*

• Task Two: Sectors and Councils Subdivision Support o CIPAC Management Support* o Council Management Branch Support* o Cross-Sector Liaison and Coordination Support o SSA Management Branch Support* o Cross-Sector Knowledge Fusion Support o Cross-Divisional Engagement Support

• Task Three: Strategic Relations Subdivision Support o Partnerships Branch Support o Engagement Operations Branch Support o Stakeholder Resiliency Technical Assistance

• Task Four: Stakeholder Management Subdivision Support o Stakeholder Engagement Strategy Development Support o Stakeholder Engagement Innovation and Response Campaign Planning Support

• Task Five: Strategy and Performance Support o Policy Coordination Support o Strategy, Program, Operations Management Support* o Policy and Business Process Management Support* o Executive Secretariat Support* o Audit Liaison Support* o Knowledge Management Support* o Strategic Communications Support* o SED Coordination Control Center Support

• Task Six: Transition Support

• Task Seven: Surge Support

* Subtasks currently being performed under the noted current task orders with Insight, Miracle, and Breck

2. Market Research

The CISA/SED Program Office conducted Market Research on this new consolidated requirement during May and June 2020. SED searched the DHS Category Management & Strategic Sourcing website. The market research was conducted by reviewing potential contract vehicles under the Professional Services Category. The following table outlines the Strategic Sourcing Vehicles that were considered during the market research.

The sources researched are shown as follows:

Active Initiative Name Mandatory Meets

Notes

One Acquisition Solution for Integrated Services (OASIS) Pool 1

Yes

Professional Services Contract providing Program Management, Engineering, scientific, logistics and finance support. Period of Performance (POP): Five-year base + one five-year option (5/19/14 – 5/18/24). Suitable POP and large number of qualified bidders.

Program Management, Administrative, Clerical, and Technical Support Services (PACTS II)

FC 1

No

Program Management Services including administrative management, general management consulting services, process, physical distribution, and logistics consulting services. Period of Performance (POP) is 3/17/2017 – 2/28/2022. This vehicle will expire soon, therefore it is not suitable for the anticipated lifecycle for this new task order of a base and three option years.

GSA Professional Services Schedule

GSA’s Multiple Award Schedules (MAS) PSS under the Professional Services Category is a consolidation of eight professional-services schedules such as MOBIS, Advertising and Marketing, Language Services, Engineering, Finance and Business Solutions.

The market research team determined the most appropriate vehicle to use for this requirement was the GSA OASIS Small Business (SB) Pool 1 for Management, Scientific, and Technical Services because of the high small business participation rates, best-in-class designation, and the past successful performance from the prior requirements off the same contract vehicle. As of October 2020, OASIS SB Pool 1 offers an estimated 247 highly qualified small business contractors. Additionally, it allows flexibility for all contract types including hybrids at the task order level and the period of performance is sufficient for a base and three option periods as this vehicle expires May 18, 2024.

The professional mission support services required under this requirement are readily available within the commercial marketplace. There are multiple vendors who offer the range of expertise and depth of knowledge required by SED to successfully meet its mission as the marketplace is very experienced and skill set rich.

Based on a review of the available Strategic Sourcing vehicles, it was determined that a small business set-aside under OASIS SB Pool 1 vehicle is best aligned with the requirements, and allows the Government to provide maximum practicable participation by small business.

3. Contracting Alternatives

The main alternative contracting approach that avoids consolidation is to recompete follow-on contracts for Insight and Miracle, include the strategic communications subtask in the Breck recompete and award a new contract for the new subtask requirements under a separate new task order, resulting in four (4) separate task orders, instead of two (2), that the Government will need to award and administer. While this would be a viable alternative, although administratively burdensome and less efficient, that alternative contracting approach would not support the effort at CISA/SED to streamline the management of multiple contractors providing similar program management, stakeholder management, and technical support services. A consolidated task order will allow CISA/SED the ability to more efficiently manage its contractor support for related services.

4. The consolidation of these requirements was coordinated with the Office of Procurement Operations (OPO) Office of Small Business Programs and the Office the Chief Procurement Officer (OCPO) Office of Small and Disadvantaged Business Utilization (OSDBU) during the Procurement Strategy Roadmap approval. The Contracting Officer will continue to engage small business specialists throughout the acquisition planning stages.

5. Negative Impacts to Small Business Participation

There are not any known negative impacts with the acquisition strategy to contract with small business concerns. The consolidated requirement is being conducted in accordance with Management Directive 060-01, “Development and Use of Strategic Sourcing Contract Vehicles.” DHS strategic sourcing contract vehicles are mandatory for use by DHS and its components, with limited exceptions. The Government analyzed multiple sources. The new consolidated task order will be sourced as a total small business set-aside amongst the estimated 247 small business contractors under GSA OASIS SB Pool 1.

While these services were previously performed by at least three (3) different small business contractors, these consolidated requirements will remain as a small business set-aside within the small business program and the consolidation of services will allow more efficient and cost-effective support for the CISA/SED Program Office.

6. Acquisition Strategy to Maximize Small Business Participation

The steps taken to include small business concerns in the acquisition strategy included reviewing several DHS and Government-Wide small business tracks to determine which contracts could best satisfy the requirements. These consolidated requirements will be issued against GSA OASIS SB Pool 1, which is a 100% set-aside for small businesses with approximately 247 eligible vendors.

7. The benefits of consolidating the twenty (20) subtask requirements are as follows:

a. Quality Improvements that will save time or improve or enhance performance or efficiency. If there is no consolidation, CISA/SED will need to potentially award up to four (4) separate task orders to procure all the services provided under the proposed consolidated contract. Combining multiple task orders into one unified task order, will enhance performance in the area of task order management because it will reduce the amount of administrative time/effort required by the both the contracting officer (CO) and contracting officer representative (COR) and allow more time to focus on resolving/monitoring actual performance of the consolidated order. The number of task orders will be reduced, allowing one contracting officer and COR to monitor the task order instead of potentially having multiple different contracting officers and CORs monitoring the various task orders, or having the same CO/COR monitor numerous separate task orders. This reduction of workload will allow resources to be adequately distributed within the contracting office and program office; and in turn, allow for both the COs and CORs to take on additional mission critical requirements in their offices.

Likewise, there will be better efficiencies in the procurement office and program office because a consolidated task order will combine requirements and help to reduce workload. The overall quality of work will be improved, and time will be saved by limiting the number of contractors performing a similar range of services for CISA/SED. In doing so, the Government will be able to enhance performance and efficiency by focusing on the quality of the products and/or services received.

Establishing a consolidated task order will also allow CISA/SED to help to reduce workload and eliminate unnecessary redundant contractor PMs. In addition, less time will be spent on transition, a potentially steep learning curve and the overall Entry on Duty (EOD) process due to efficiencies of onboarding one contractor awardee rather than multiple contractors under separate task orders which means more time will be available to focus on the mission needs of CISA/SED.

b. Reduction in acquisition cycle times based on the ability of the program office and the contracting office to manage one task order rather than manage numerous separate task orders. Consolidation will help streamline the entire acquisition cycle from reduction of coordination efforts in preparing numerous separate procurement request packages and assigning them to separate COs, or having a few CORs to manage multiple task orders. This will allow for better coordination of time and managing of workloads that will help to accelerate the acquisition lifecycles of many contracting office and program office procurements.

C. In establishing a consolidated task order, CISA will be able to leverage its buying power by taking advantage of quantity discounts. GSA encourages, and agencies often receive, further discounts when establishing a task order off a GSA vehicle, which results in an even better value for the government. By consolidating, the Department expects to receive further quantity discounts due to a smaller contractor overhead; these discounts help to ensure the government is receiving the best price when meeting agency needs.

d. Contractor Program Manager Cost Savings Analysis

As ten (10) of the twenty (20) total subtasks are new requirements, only the ten (10) remaining subtasks currently being performed under three (3) separate task orders with Insight, Miracle, and Breck are being evaluated for quantifiable cost savings.

The ten (10) current subtasks are distinct and do not provide much overlap in terms of work where consolidation could eliminate and lessen FTEs, besides lessening the required number of Contractor Program Managers (PM). Each of the two (2) separate task orders both have full-time PMs, requiring the Government to pay both under each task order. The potential PM savings from the Breck task order is not included in this analysis, as only one subtask (Strategic Communications) is being included in this new task order and therefore full PM cost savings will not be realized.

Regardless, consolidating these task orders allows the Government to cut the number of required PMs down to one (1), representing a cost-savings of $1,614,418.80 over the life of the consolidated contract, as shown in the graph below:

IGCE Rate - PM Hours - 2 PM Price Hours - 1 PM Price Savings Base Period $ 235.32 1920 $ 451,814.40 960 $ 225,907.20 $ 225,907.20 Option Period 1 $ 240.57 3760 $ 904,543.20 1880 $ 452,271.60 $ 452,271.60 Option Period 2 $ 245.93 3760 $ 924,696.80 1880 $ 462,348.40 $ 462,348.40 Option Period 3 $ 252.07 3760 $ 947,783.20 1880 $ 473,891.60 $ 473,891.60 Total: $ 3,228,837.60 $ 1,614,418.80 $ 1,614,418.80

Table 1: Contractor Program Manager Savings

e. Federal CO/COR Cost Savings Analysis:

CISA and OPO, collectively, will also benefit from a $2,829,848 cost savings because only one team of CO/COR and Program Office staff will be necessary to administer/oversee the new consolidated contract, as compared to all the task orders being administered separately. CISA estimates an additional one CO (GS-15), two CORs (GS-13), and one Program Manager (GS-14) would be required to manage CISA’s full book of SED contracts if it were required to manage those three (3) separate current task orders and ten (10) new subtask requirements separately without the consolidation. The estimate of cost savings for Federal staff was calculated using the DHS Mod Cost Calculator spreadsheet.

f. OVERALL Cost Savings Analysis

Based on the IGCE, the cost to perform the noted ten (10) consolidated subtasks is $20,090,434.20 as shown in the graph below:

TASK BASE OY1 OY2 OY3 TOTAL

Contract Management $ 225,907.20 $ 452,271.60 $ 462,348.40 $ 473,891.60 $ 1,614,418.80 CIPAC Management Support $ 354,931.20 $ 947,407.20 $ 968,557.20 $ 992,696.40 $ 3,263,592.00 Council Management Branch Support $ 768,499.20 $ 2,307,737.60 $ 2,359,268.40 $ 2,418,187.60 $ 7,853,692.80 SSA Management Branch Support $ 378,972.00 $ 1,011,571.60 $ 1,034,169.20 $ 1,059,981.60 $ 3,484,694.40 Strategy, Program, Operations Management Support $ 62,028.80 $ 186,270.40 $ 190,425.20 $ 195,144.00 $ 633,868.40 Policy and Business Process Management Support $ 31,014.40 $ 93,135.20 $ 95,212.60 $ 97,590.80 $ 316,953.00 Executive Secretariat Support $ 132,787.20 $ 398,748.00 $ 407,640.40 $ 417,811.20 $ 1,356,986.80 Audit Liaison Support $ 31,014.40 $ 93,135.20 $ 95,212.60 $ 97,590.80 $ 316,953.00 Knowledge Management Support $ 78,569.60 $ 235,940.00 $ 241,204.00 $ 247,229.40 $ 802,943.00 Strategic Communications Support $ 43,673.60 $ 131,148.80 $ 134,081.60 $ 137,428.00 $ 446,332.00

TOTAL $ 2,107,397.60 $ 5,857,365.60 $ 5,988,119.60 $ 6,137,551.40 $ 20,090,434.20

Table 2: Ten (10) Consolidated Subtasks IGCE

Based on the information in Table 1, the total contractual cost savings of consolidating the new requirements is an estimated $4,444,266.80 (representing both Contractor Program Manager savings of $1,614,418.80 and the CISA Program Office Staff savings of $2,829,848) over the total life of the task order, which represents an overall cost savings of 18.11% when comparing the estimated cost to perform the consolidated subtasks with the potential costs of the two separate orders, as shown in the chart below.

IGCE - Consolidated Tasks $ 20,090,434.20 Program Manager Consolidation Savings $ 1,614,418.80 CISA Program Office Staffing Savings $ 2,829,848.00 Total Cost of Two Separate Orders $ 24,534,701.00 Percentage Savings 18.11%

Table 3: Consolidation Percentage Savings

DETERMINATION

On the basis of the above findings, I hereby determine that consolidating the CISA/SED Stakeholder Mission Support Services requirements are necessary and justified because the benefits of consolidation substantially exceed the benefits of the alternative approaches and provides maximum practicable participation by small business.

Digitally signed by TOYA A

TOYA A REYNOLDS REYNOLDS

Date: 2020.12.28 13:12:17 -05'00'

Toya Reynolds Date Contracting Officer Office of Procurement Operations

On the basis of the above findings, I hereby concur that consolidating the CISA/SED Stakeholder Mission Support Services requirements are necessary and justified because the benefits of consolidation substantially exceed the benefits of the alternative approaches and provides maximum practicable participation by small business.

Digitally signed by VICTORIA D SHORT Date: 2020.12.28 13:21:48 -05'00'

Victoria Short Date Head of Contracting Activity Office of Procurement Operations

APPROVAL:

Pursuant to FAR 7.107-2(b), I hereby approve that consolidating the CISA/SED Stakeholder Mission Support Services requirements are necessary and justified because the benefits of consolidation substantially exceed the benefits of the alternative approaches and provides maximum practicable participation by small business.

Soraya Correa Date Chief Procurement Officer Department of Homeland Security

VICTORIA DSHORT