TEAMS Sole Source Contract Support Extension (CJ and A) 20-0022 (MDA-200514-G8EN) Redacted.pdf

J&A No: 20-0022

CUI

Ms. Rebecca

Froelich, Contracting Officer, at 256-450-4616.

Controlled by: Missile Defense Agency

Controlled by: Consolidated Support Program

Office CUI Category: General Procurement &

Acquisition Limited Dissemination Control:

FEDCON

POC: Rebecca Froelich, 256-450-4616

MISSILE DEFENSE AGENCY

CLASS JUSTIFICATION AND APPROVAL

FOR OTHER THAN FULL AND OPEN COMPETITION

1. Introduction.

Upon the basis of the following justification, I, as Director of the Missile Defense Agency, hereby approve the issuance of the contractual action discussed below using other than full and open competition pursuant to the authority cited herein.

2. Identification of the Agency and Contracting Activity (FAR6.303-2(b)(1)).

This Class Justification and Approval (J&A) is for the MDA Consolidated Support (CS) Program

Office to extend twelve (12) cost-plus-fixed-fee legacy Technical, Engineering, Advisory, and

Management Support (TEAMS) contracts for up to twelve (12) months to provide continuity of existing work, and to avoid disrupting critical Advisory and Assistance Services (A&AS) support to various MDA functional organizations. The contracting activity is MDA/CSK, which provides contracting support to the CS program office. The point of contact for this action is

3. Nature and Description of the Action Being Approved, (FAR 6.303-2(b)(2)).

The action approved by this Class J&A will ensure MDA experiences no lapse in critical services from the existing TEAMS portfolio of thirty one (31) contracts and the follow-on TEAMS-Next portfolio of eighteen (18) contracts, all but one of which will be competitively awarded.

The required A&AS services under this Class J&A provide extensions to the period of performance, ranging from two (2) months up to twelve (12) months on twelve (12) of the existing TEAMS cost-plus-fixed-fee contracts. Specifically, funding for these contract extensions will be provided by the current stakeholders.

The recent U.S. coronavirus outbreak has altered daily work life in the U.S. Department of Defense in many ways. The World Health Organization (WHO) declared the COVID-19 outbreak a pandemic on

March 11, 2020, and this was followed by the U.S. Government declaration of a National Emergency.

The pandemic and resulting shift to a virtual environment has created unique challenges and forced the

Agency to rebaseline requirements. Early technology challenges and the time needed for employees to adjust to the new paradigm led to sub-optimal collaboration, significantly slowing activities such as requirements development, Request for Proposal (RFP) preparation, budget de-confliction, virtual source selection pathfinding and execution, and staffing/coordination of documents. These challenges and delayed activities have led to a need to delay some TEAMS-Next acquisitions to allow adequate time to prepare quality solicitations and execute virtual source selections. Similarly, the rebaselined

TEAMS-Next schedule will minimize the negative impact on competition associated with industry partners’ difficulty in properly responding to so many concurrent solicitations in this COVID-19 constrained environment. As a result, twelve (12) legacy TEAMS contracts require extensions to accommodate proper competitive source selections for the follow-on requirements.

$104.687M.

$32.081M $3.739M $35.82M

$74.186M $2.879M $77.065M

$234.171M $19.309M $253.480M

$14.271M $1.823M $16.094M

$70.997M $8.365M $79.362M

$116.204M $17.111M $133.315M

$160.284M $19.441M $179.725M

$67.138M $7.660M $74.798M

$22.544M $0.954M $23.498M

$60.827M $12.928M $73.755M

$36.636M $6.719M $43.355M

$16.861M $3.759M $20.620M

$906.200M $104.687M $1,010.887M

4. Description of the Supplies and/or Services Required to Meet the Agency's Needs (including the estimated value), (FAR 6.303-2(b)(3)).

Approval of this Class J&A provides a mechanism for uninterrupted critical technical and programmatic A&AS services required by MDA functional organizations. The period of performance for these extensions varies by contract, as noted below. The estimated overall cost of these projected extensions is

The critical A&AS requirements covered under this Class J&A include:

• Enterprise-wide efficiencies through the centralized management of A&AS support with a focus on the elimination of redundancies, reduction in overhead, and increasing opportunities for the sharing of technical expertise throughout the Agency.

• Continued support of TEAMS contracts for A&AS to include Engineering and Technical

Support; Studies, Analyses, and Evaluations; and Management and Professional Services.

Current spend rates were used as a basis to estimate the value of these extensions. The MDA will use Research, Development, Test & Evaluation funding for this requirement.

Contract Number

Contractor

Description of

Services

Baseline PoP

Current Est.

Cost

Projected

Increase

New PoP

Projected New

Est. Cost

PoP Duration Extension New PoP

Duration

HQ0147-16-C-0038

Booz Allen Hamilton, Inc.

DEI - Intelligence

5/27/2016 -

5/26/2021

5/27/2016 -

11/26/2021

60 months 6 months 66 months

HQ0147-16-C-0030 Parsons Corporation DW - Warfighter

Integration 6/16/2016 -

6/15/2021

6/16/2016 -

8/15/2021

60 months 2 months 62 months

HQ0147-16-C-0034

Millennium

Engineering &

Integration

DT - Test, Exercise

& Wargame 5/25/2016 -

6/21/2021

6/22/2016 -

10/21/2021

60 months 4 months 64 months

HQ0147-16-C-0024

Mabbett & Associates

MS -

Environmental Management

6/8/2016 -

6/7/2021

1/19/2022

60 months 7 months 67 months

HQ0147-16-C-0041 Venturi MS - Logistics 7/8/2016 -

7/7/2021

7/8/2016 -

1/19/2022

60 months 6 months 66 months

HQ0147-16-C-0033

Yorktown Systems

Group

DO - Office

Administration 5/24/2016 - 5/23/2021

2/2/2022

60 months 9 months 69 months

HQ0147-16-C-0047 BCF Solutions. DA - Acquisition 7/19/2016 - 7/18/2021

7/19/2016 - 3/7/2022

60 months 8 months 68 months

HQ0147-16-C-0057 Strategic Alliance

Business Group

DO - Strategic

Planning 7/29/2016 - 11/13/2021

7/29/2016 - 3/7/2022

52 months 4 months 64 months

HQ0147-17-C-0007

Allied Associates

International

DI - International

Affairs

12/15/2016 -

12/14/2021

12/15/2016

- 3/7/2022

60 months 3 months 63 months

HQ0147-16-C-0037

Booz Allen Hamilton DEI - Security

Programs

5/31/2016 -

5/30/2021

5/31/2016 -

4/12/2022

60 months 11 months 71 months

HQ0147-16-C-0036 ManTech Advanced

Systems

DEI -

Counterintelligence

6/21/2021

6/22/2016 -

4/12/2022

61 months 10 months 71 months

HQ0147-16-C-0040

Nou Systems DE - Cybersecurity

Engineering

6/7/2021

6/17/2022

60 months 12 months 72 months

Totals

5. Statutory Authority Permitting Other than Full and Open Competition (FAR6.303-1).

The statutory authority permitting other than full and open competition is 10 USC 2304(c)(1), as implemented by Federal Acquisition Regulation (FAR) 6.302-1, Only One Responsible Source and No

Other Supplies or Services Will Satisfy Agency Requirements, which authorizes other than full and open competition when the required supplies and services are available from only one responsible source, or only from a limited number of responsible sources and no other supplies or services will satisfy agency requirements.

6. Demonstration of Contractor's Unique Qualifications or the Nature of the Acquisition

Requires Use of the Authority Cited (FAR 6.303-2(b)(5)).

FAR 6.302-1(a)(2)(iii) states, "services may be deemed to be available only from the original source in the case of follow-on contracts for the continued provision of highly specialized services when it is likely that award to any other source would result in - (A) Substantial duplication of cost to the

Government that is not expected to be recovered through competition.”

MDA is competing the requirements that comprise all but one (1) of the existing thirty one (31)

TEAMS contracts (Public Affairs). In particular, MDA was planning for twelve (12) of the seventeen

(17) TEAMS-Next competitive solicitations to be issued in FY 2020. Prior to COVID, MDA was on track to have solicited these twelve (12) competitive actions in sufficient time to meet the required award dates in the 2021 timeframe. However, the onset of the COVID-19 pandemic has disrupted the

Agency's ability to concurrently formulate solicitations and execute competitive source selections on such a large, concurrent scale in this new digital and distributed environment. Furthermore, these specific requirements will comprise the transition of several thousand contractor employees, which includes security/badging, laptop/equipment imaging and assignment, facility and telecommunications configuration, etc. While this process if normally very taxing, the challenge of phasing out and phasing in so many personnel would be substantially amplified in the COVID-19 environment.

Rebaselining the schedule for these competitive solicitations is necessary to ensure not only proper execution of source selections but also proper transition in and out of so many contractor personnel across so many functional requirements.

The Government has a competitive plan in place for each of these TEAMS-Next contracts, and the purpose of this Class J&A is to build flexibility into the current contract schedules to accommodate a national pandemic. The Government is in full compliance with the Competition in Contracting Act.

Due to the COVID-19 impacts on the TEAMS-Next procurements, twelve (12) of the existing thirty one (31) TEAMS contracts must be extended in order to properly dovetail with the follow-on awards.

The average length of these period of performance extensions is approximately six and a half (6.5) months (the shortest being two (2) months and the longest being twelve (12) months). In all cases, award of these extensions to the incumbents will avoid substantial duplication of cost that would otherwise occur if a new contractor were to transition in and ramp up - in the midst of a pandemic -and be required to provide the same level and quality of enterprise-wide support for such a short duration before competitive source selection.

The MDA requires multiple A&AS contractors to support the MDA's mission in many critical areas, spanning all MDA Programs and all MDA Functional Directorates - both vertically and horizontally.

A&AS contractors are not always assigned to one mission area; many perform work for multiple functional areas and are required to provide simultaneous support to various organizations.

Transition to new contractors for such a short duration (under twelve (12) months) would be

$1.15M $14M

$500K detrimental to the contractor work products currently in process and potentially cause delays to meeting critical programmatic/mission milestones. The incumbent contractors have acquired efficiencies and understanding of the organizational structure that could not be replicated quickly -certainly not in the midst of this unique COVID-19 environment.

Soliciting and competing this work under new contracts would be neither timely, nor efficient and prevent continuity of operations in the A&AS arenas.

7. Description of Market Research Conducted (FAR 6.303-2(b)(6), (8) and (10)).

This sole source action is for continuation of existing work for which market research was conducted at the time of initial contract award. In addition, extensive market research was conducted as part of the follow-on TEAMS-Next acquisition and included three Industry Days held in December 2018, June 2019, and December 2019. Based on the results of the TEAMS-Next market research, a broad industrial base exists for these requirements and wholesale competition will occur for all but one (1) of these eighteen (18) contracts.

Per FAR Part 6.305(a), a notice of intent was posted to the TEAMS-Next beta.SAM.gov website on

September 18, 2020. The notice stated MDA's intent to award extensions to the existing contractors for each of these respective requirements. The notice of intent served two purposes: 1) to request information as required by DFARS PGI 206.302-1(d); and 2) to provide notice of proposed contract action as required by FAR 5.201. No responses were received.

8. Determination of Fair and Reasonable Cost (FAR 6.303-2(b)(7)).

The Government retains detailed data on the incumbent contractor's performance on current contracts and has access to cost/pricing data on other contractors who perform similar service contracts using comparable labor categories. Thorough price analysis of proposed prices for the modifications to extend the period of performance will be conducted. This analysis will include comparisons of proposed prices to prices previously incurred under these contracts, as well as market analyses for similar services performed by other contractors as applicable. The efforts will provide the Contracting

Officer with sufficient data to determine overall price reasonableness.

9. Any Other Facts Supporting the Use of other Than Full and open Competition (FAR Part

6.303-2(b)(9)).

Per FAR 6.303-2(b)(9), when citing the 6.302-1 authority, an estimate of the duplicative cost must be provided. With respect to the increase in costs associated with transition to a new contractor for each of these twelve (12) contracts, the most significant instance of duplicative costs would be in the area of competitive RFP formulation and source selection execution. Specifically, as documented in the

TEAMS-Next Consolidation and Bundling Benefit Analysis, the standard administrative cost is approximately per source selection. That equates to approximately associated with civilian salary diverted to twelve (12) source selections instead of other critical priorities/responsibilities/tasks. Given the short duration of these contracts (average six and a half

(6.5) months), this administrative cost would not be recouped by savings (if any) associated with competition.

Additionally, MDA would assume as much as in duplicative Program Management costs between the incumbent and the new awardee throughout the overlapping thirty (30) day transition period; this estimate is based on an average of Program Management costs currently paid for all the existing TEAMS contracts.

Aside from this estimated for duplicative labor costs, there is also a considerable administrative burden to the Agency relative to the transition-in and transition-out of so many contractor employees over such a short period. Specifically, if awarding to new contractors, MDA's existing Information

Technology, Security, and Facilities organizations would be faced with laptop/equipment imaging and distribution, assignment and distribution of badging, and assignment/configuration of facility and telecommunications for several thousand employees. This effort is certainly duplicative, given that all of this phase-in/phase-out activity would take place again within the next twelve (12) months upon competitive award of each of these follow-on requirements.

Finally, there are bid and proposal costs incurred by each contractor for these short-term efforts.

Ranging from the tens to the hundreds of thousands of dollars, these costs either would limit the competitive field for such short-term efforts or would get passed back to the Government in the form of overhead rates on these cost-reimbursable contracts. In that vein, numerous industry partners, particularly small businesses, indicated the challenges and resource constraints associated with conduct of so many concurrent competitive actions over such a short period of time. This concurrency often forces the company to make bid/no-bid decisions in favor of one opportunity over another; whereas, the company would bid on both requirements if they were not being solicited concurrently.

10. Actions Taken to Remove Barriers to Competition (FAR6.303-2(b)(11)).

For the purposes of this Class J&A, the contract extensions required apply to existing TEAMS contracts and these current contractors are the only responsible sources to provide uninterrupted mission critical A&AS services while the TEAMS-Next acquisitions are ongoing. The Class J&A will not deter open competition for the follow-on TEAMS-Next awards. The acquisition approach for the TEAMS-Next contracts are being conducted using full and open competition.

Digitally signed by

AUSTIN.GERALD.BR AUSTIN.GERALD.BRUCE.II.11692

UCE.II.1169203691 03691

Date: 2020.11.16 12:43:50 -06'00'

TIMOTHY J. YOPEK

FROELICH.REBECC

Digitally signed by

A.LYNN.1509541465 9541465

Date: 2020.12.09 09:35:54 -06'00'

REBECCA FROELICH

JOHN PENLEY

GROVES.WILLIA

GROVES.WILLIAM.A.1075235670

M.A.1075235670

WILLIAM A. GROVES

11. Technical/Requirements Official Certification (FAR 6.303-2(c)). I certify that this justification for other than full and open competition is made in good faith and that the supporting data and information are accurate and complete to the best of my knowledge and belief. I further certify that this request is not the result of a lack of advance planning.

Program Manager, Consolidated Support, CS

12. Contracting Officer (FAR 6.303(b) (12). I have determined that the anticipated cost to the

Government will be fair and reasonable and certify that the justification is accurate and complete to the best of my knowledge and ability.

Contracting Officer, CSK

13. Contracting Director. I have reviewed the justification and recommend it be approved.

Director of Contracting, CSK

14. Legal Counsel. I have reviewed the justification and determined it to be legallysufficient.

General Counsel, GC

ONEILL.MICHAE

ONEILL.MICHAEL.N.1072049507

L.N.1072049507

MICHAEL N. O'NEILL

HILL.CATHERINE.HOVATER.1230

VATER.1230677715

CATHY H. HILL

JACKSON.KARLA.S JACKSON.KARLA.SMITH.1077100

KARLA SMITH JACKSON

HILL.JON.ANTHONY. Digitally signed by

HILL.JON.ANTHONY.1125377595

1125377595 Date: 2021.01.07 12:31:29 -05'00'

15. Competition Advocate. I have reviewed the justification and recommend it be approved.

Competition Advocate, DA

16. Director of Contracts. I have reviewed the justification and recommend it be approved.

Director of Contracts (Acting), CT

17. Director of Acquisition. I have reviewed the justification and recommend it be approved.

Director of Acquisition (Acting), DA

18. Approval (FAR Part 6.304). In accordance with FAR Part 6.304, the above justification for other than full and open competition is here by approved.

J. A. HILL

Vice Admiral, USN

Director

Approved for Public Release

21-MDA-10720 (2 Mar 21)