Sole Source JA FHR Navigator Service History Redacted.pdf

Justification and Approval For Other than Full and Open Competition

Plan ID Number: 2025-HRS-0012

Form Updated 4/14/2023

Justification & Approval

As a legislative branch agency, the Library is subject to the competition and advertising requirements of 41 U.S.C. § 6101. Like the Competition in Contracting Act and the FAR, 41 U.S.C. § 6101 does not require competition when a contracting officer certifies that only one source or brand-name item is available, when dictated by public exigency, or when otherwise authorized by law.

This document sets forth the justification and approval for award of a contract or order by means providing for other than full and open competition per 41 U.S.C. § 6101, LCR 7-210, and, as applicable, FAR 6.302, FAR 13.106-1, FAR 8.405, and FAR 16.505. Contracting without competition shall not be justified on the basis of a lack of advance planning or concerns related to availability of funds.

This form shall be used to support instances where competition will be limited to a single source, a limited number of sources, including where a brand name product is required.

Part 1 – Identification

1. Contracting Agency and Activity: Library of Congress, Chief Operating Officer, Human Capital Directorate

2. Nature of Action Being Approved

Contract (or modification) LoC or Leg Branch Order (or modification) GSA Schedule: GS-02F0092T Other: Identify

Plan ID Number: 2025-HRS-0012 Contractor (or Brand Name): Economic Systems Inc Estimated Value (Base and all options): $79,987.81 Period of Performance: 08/01/2025 – 06/18/2028

3. Description of Supplies or Services Required to Meet Library Needs

Describe the supplies or services that are required to meet the Library’s minimum needs and the delivery schedule required to meet those needs. Do not focus on a description of the program.

The purpose of this procurement is to provide subscriptions and maintenance to support data import and service history generator functionality within the Library’s FedHR Navigator tool, which provides accurate, current, and timely calculations of retirement annuities, financial information and service computation dates. The Library currently holds contract LCHRS20C0020 for the data import/service history maintenance functionality within the FedHR Navigator tool and is in its last option year of that contract. The Library currently holds contract LCHRS23F0002 and is within its first option year for delivery of the FHR Navigator tool.

FedHR Navigator tool (licenses, functionality, and maintenance) are proprietary products of Economic Systems Inc, Economic Systems Inc is the sole producer and distributor of these products, and the only entity who is able to support or modify them.

The FedHR Navigator system is a fully configurate Federal HR system that streamlines and improves Federal human resources management, particularly focusing on retirement planning, benefits administration, and workforce reporting, by integrating HR functions into a single, secure platform. The information in the system includes voluntary, early, and disability retirement benefits; part-time and intermittent service; deposits and re-deposits owed; Social Security/Federal Employee Retirement System (FERS) supplement benefits; Civil Service Retirement System benefits; Thrift Savings Plan benefits; survivor benefits; and severance pay. The FedHR Navigator is an essential tool for the Library, streamlining HR processes and providing tools for retirement planning, workforce reporting, and saves time with data entry and calculations, and improves communication. FedHR Navigator system provide the Library with a secure, self-service portal for federal employees that handles PII and is FedRAMP authorized, ensuring robust security for federal cloud-based solutions.

The Library of Congress (Library) requires service history and data maintenance and support for its retirement calculation software, FedHR Navigator, which helps to provide accurate, current and timely calculations of retirement annuities, financial information and service computation. The data import tool/service history maintenance functionality shall execute a biweekly service that feeds the latest employee information from the Library’s payroll/personnel system. The data shall include current salary, salary history, sick leave balance, life and health insurance elections, etc. The import service shall populate data fields in the Retirement Calculator and other applications that then supports retirement calculations such as the determination of the High-3 average salary, the Benefits Statement in the Employee Portal, personnel data for the SF-52, personnel data in Performance Management, as well as other HR functions. This import process shall automatically enter about two-thirds of the information typically entered by HR benefits staff for an employee record.

Part 2 – Program Office Justification & Approval

4. Authority for Contracting Without Competition Over $250,000 For this requirement over $250,000, under FAR part 6, the basis for contracting without providing for full and open competition is:

There is only one responsible source and no other supplies or services will satisfy Library requirements.

41 U.S.C. § 6101(b)(2)(C); FAR 6.302-1.

Library’s minimum needs can only be satisfied by contractor’s unique capabilities or products. FAR 6.302-1(b)(1).

Source controls copyrights, patents, raw materials, or secret processes cannot be acquired otherwise, or similar circumstances. FAR 6.302-

1(b)(2).

Other exception identified in FAR 6.302-1: Identify the exception

There is such unusual & compelling urgency that the Government would be seriously injured if competition is not limited.

41 U.S.C. § 6101(b)(2)(B); FAR 6.302-2. Option years are not permitted.

Source is expressly authorized or required by statute (e.g., AbilityOne, UNICOR, GPO, GSA Public Buildings Service, Appropriations Act, etc.) per 41 U.S.C. § 6101(b)(1) and FAR 6.302-5: Identify the authority

Other basis authorized in 41 U.S.C. § 6101(b) or FAR part 6.302: Identify the exception

Library’s needs can only be satisfied by a brand-name product or item which is essential to the Government’s requirement. FAR 6.302-1(c).

The Product is listed on the Library of Congress Enterprise Architecture Repository (LCEAR) database (Attach applicable

IT Standard Data Sheet)

Up to and including $250,000 For this requirement up to $250,000, using simplified acquisition procedures under FAR part 13, the basis for contracting without providing for full and open competition is:

Only one responsible source is reasonably available to meet Library requirements. 41 U.S.C. § 6101(b); FAR 13.106-1.

Product or service is reasonably available from only one source.

Source controls copyrights, patents or other exclusive licensing arrangements.

Urgent circumstances; only one source can reasonably deliver by required date. Option years are not permitted.

Source is expressly authorized or required by statute: Identify the authority

Library’s needs can only be satisfied by a brand-name product The Product is listed the Library of Congress Enterprise Architecture Repository (LCEAR) database (Attach applicable

IT Standard Data Sheet)

GSA Schedule Order For this GSA schedule order under FAR part 8, the basis for not competing among GSA schedule-holders and/or specifying a brand name product or item is:

An urgent and compelling need exists, and following GSA procedures would result in unacceptable delays.

FAR 8.405-6(a)(1)(i)(A).

Only one GSA source is capable of fulfilling the requirement at the level of quality required because the supplies or services are unique or highly specialized. FAR 8.405-6(a)(1)(i)(B).

In the interest of economy and efficiency, the new work is a logical follow-on to an original order that was placed competitively among GSA schedule-holders (i.e., the original order was not sole-source or limited-source.) FAR 8.405-6(a)(1)(i)(C).

Library’s needs can only be satisfied by a brand-name product The Product is listed on the Library of Congress Enterprise Architecture Repository (LCEAR) database (Attach applicable

IT Standard Data Sheet)

Order Under Multiple Award Indefinite-Delivery Contract or GWAC For this order under FAR subpart 16.5, the basis for contracting without providing for full and open competition is:

The need is so urgent fair opportunity would result in unacceptable delays. 41 U.S.C. § 6101(b)(2)(C) and FAR 16.505(b)(2)(i)(A).

The Library’s minimum needs can only be satisfied by contractor’s unique capabilities or products. 41 U.S.C. § 6101(b)(1) and FAR 16.505(b)(2)(i)(B).

A logical follow-on order in the interest of economy and efficiency. 41 U.S.C. § 6101(b)(1) and FAR 16.505(b)(i)(2)(C).

To satisfy a minimum guarantee. 41 U.S.C. § 6101(b)(1) and FAR 16.505(b)(2)(D).

Authorized or required by statute. 41 U.S.C. § 6101(b)(1) and FAR 16.505(b)(2)(E).

The Library’s minimum needs can only be satisfied by a brand-name product or item which is essential to the Government’s requirement. 41

U.S.C. § 6101(b)(2)(B) and FAR 16.505(a)(4)(i).

The Product is listed on the Library of Congress Enterprise Architecture Repository (LCEAR) database (Attach applicable

IT Standard Data Sheet)

5. Rationale for Contracting Without Competition

In supporting an action not providing for full and open competition, it is not sufficient to demonstrate that the contractor is exceptionally well qualified or even the best qualified, or that the required brand name product is well suited to the Library’s needs. The rationale must demonstrate that no one else, or no other competing product, can satisfactorily fulfill the Library’s requirement. Do not focus on the importance of the requirement; the issue is the rationale for not competing.

In supporting urgency, address the following: What are the unexpected facts or the unpredictable events that led to this situation? When is the required delivery or performance start date? Why this date? What specific harm to the Government will occur if the delivery is not made or performance not begun as scheduled? (Note that expiration of funds is not sufficient harm to justify not competing.) Demonstrate that the contract is only for items and quantities urgently needed until a competitive procurement action can be developed, or that a separate competitive follow-on is not practical.

In supporting a brand name justification, the brand name or feature must be essential to the Library’s requirements, and market research indicates that other company’s similar products or products with similar features cannot meet or be modified to meet the Library’s needs.

We are authorized to limit competition on the basis of the citation in section 4 because:

HCD currently holds contract LCHRS23F0002 for the subscription to FedHR Navigator, a retirement calculator tool with the functionality defined above that is utilized by the Library’s Human Capital Directorate Services Team. Because the Library has a requirement to continue receipt of the data import/service history maintenance functionality within the tool, were the Library to compete this requirement, the scope would have to include the entirety of functionality provided by LCHRS23F0002, in addition to the scope of the Service History Maintenance functionality (currently provided by LCHRS20C0020), plus the cost of implementation efforts as defined in LCHRS19P0022 and an implementation effort for a new system (estimated - $250,000). The estimated total dollar value of these three contracts across all option years and efforts is over $700,000.00.

The Library has previously researched two other similar products, but others failed the Library’s security requirements. These other programs also did not have the capabilities of calculating federal retirement benefits according to the history stored in NFC and eOPF.

They were unable to prefill OPM compliant retirement forms, calculate miliary deposits, automatically run scenarios and retirement benefit estimates or provide comprehensive reports.

Due to the costs calculated above and the heightened security requirements, the Library believes the most beneficial approach to pursuing Retirement Calculator Service History/Data Import and maintenance is to seek brand-name functionality of FHR Navigator Data Import functionality.

FedHR Navigator tool (licenses, functionality, and maintenance) are proprietary products of Economic Systems Inc, Economic Systems Inc is the sole producer and distributor of these products, and the only entity who is able to support or modify them.

6. Actions to Overcome Barriers to Competition Before Subsequent Contract Is Required

State what actions, if any, the program office can take to overcome barriers to competition before a contracting for this requirement again, such as:

using action to provide time to develop specifications for a competitive procurement by a certain date; licensing copyrights or patents so other contractors may use the works; or breaking the requirement into parts that may be purchased competitively. If this is a one-time requirement, explain that action to increase future competition is not needed. If the source is expressly required by statute, state “Source is statutory.”

To increase competition, we will: HCD, in coordination with OCIO will continue to research similar tools, as well as the process for procuring and implementing an alternate software platform that can fulfill the same functions as the FHR Navigator licenses that the Library currently owns.

The Library will conduct a cost benefit analysis each time this requirement is sought to ensure that migrating to another platform including associated software licensing and support are cost effective for the Library. The current analysis in prices and an examination of the market indicate that it still remains the most advantageous to stay with this solution for the Library.

7. Program Office Certification

I certify that the description of the Government’s minimum needs, schedule requirements, and technical information that provide the basis for this justification are accurate and complete.

Administrative Specialist 02/10/2025

Name

Title

Signature

Date

0BPART 3 – CONTRACTING OFFICER DETERMINATIONS & CERTIFICATION

8. Efforts to Solicit from As Many Potential Sources As Practicable Unless a justification is based on FAR 6.302-2, Unusual and compelling urgency, contracting officers shall post justifications for other than full and open competition, including brand name justifications, to the Contract Opportunities website on sam.gov (or eBuy for Brand Name Justifications under FAR Part 8) prior to requesting a proposal or otherwise entering into negotiations.

Advance notice will be published in sam.gov for 15 days before a contract is awarded. FAR 5.203(a).

Advance or concurrent notice will be published in sam.gov for a reasonable time for commercial items FAR 5.203(a) and 12.204(b).

Advance notice will not be published because the action meets the following FAR exception:

Notice would compromise national security. FAR 5.202(a)(1).

Unusual and compelling urgency; notice period would seriously injure Government. FAR 5.202(a)(2).

Expressly authorized or required to be made through another Government agency. FAR 5.202(a)(4).

Order will be placed against an IDIQ contract awarded under FAR 16.5. FAR 5.202(a)(6).

Order will be placed against GSA schedule or other competitively-awarded contract. FAR 5.202(a)(11).

Other: Sole Source under GSA Schedule. Notice will be published on sam.gov within 14 days of award. FAR 8.405-6(a)(2).

Advance notice will not be published per 41 U.S.C. § 6101; see attached deviation from the FAR per LCR 7-210 § 3.A.

We made the following efforts to interest potential sources in this award: N/A, Sole source

9. Listing of Sources That Expressed Interest in Writing

The following sources expressed interest in this award: None

10. Additional Information

The following additional information is relevant to this justification and approval: FedHR Navigator tool (licenses, functionality, and maintenance) are proprietary products of Economic Systems Inc, Economic Systems Inc is the sole producer and distributor of these products, and the only entity who is able to support or modify them.

11. Contracting Officer Determination that Price Is Fair and Reasonable As explained in detail below, I have determined that the prices for this contracting action are fair and reasonable based on comparison of the prices to the following (see FAR 15.404-1(b)(2)):

Historical prices paid by the Government Published competitive price lists Library’s Independent Government Estimate Prices obtained through market research Other: Confirm GSA Schedule pricing Prices obtained through competitive proposals

The following analysis (based on attached pricing information) supports my determination:

12. Contracting Officer Determination of Responsibility Checked System for Award Management (or will check in the case of competitive proposals for a brand name product)

13. Contracting Officer Determination of Best Value I have determined that this action represents the best value to the Government because: Pricing offered were from their GSA schedule for the two items that were open market, prices match or were discounted off of similar government agency contracts.

14. Contracting Officer Certification I certify that, to the best of my knowledge and belief, this justification is accurate and complete. For those actions up to $750,000, I approve contracting without competition for this requirement.

Betsy T. Lewis-Matsuoka Name

Signature

07/10/2025 Date