TPVS TO7_ SSJ Exceeding SAT - RFO Subpart 8.4_Posting 14082026.pdf

U.S. Customs and Border Protection Sole Source Justification (SSJ) - RFO Subpart 8.4 and GSAR 538.7104-3

For Orders or BPAs Exceeding the SAT

Date: July 28,2026 PR Number: 20142927

This acquisition is conducted under the authority of the Multiple-Award Schedule Program, 41 U.S.C.

152(3), Competitive Procedures, and 40 U.S.C. 501, Services for Executive Agencies.1

1. Agency and Contracting Activity.

The U.S. Customs and Border Protection (CBP) has a need to fund increased services under the single award Blanket Purchase Agreement (BPA) Task Order (TO) 7 for the Office of Information and Technology, Passenger System Program Directorate (PSPD), Traveler Processing and Vetting Software (TPVS) requirement in accordance with Government Services Acquisition Manual/Regulation (GSAR).

2. Nature and/or description of the action being approved.

This action is to obligate funds to a single award BPA TO under an expired BPA:

BPA/TO 70B04C20A00000008 / 70B04C24F00000739

Description: TPVS Application Modernization, Development, Enhancements, Operations & Maintenance (O&M), and Specialized Services.

BPA Holder:

Leidos, Inc.

1750 Presidents Street Reston, VA 20190-5661

BPA Expiration Date: May 30, 2026

On May 29, 2026, Task Order 7, 70B04C24F00000739 under the BPA was extended through May 30, 2027, at no cost to allow for continued performance of non-severable services already priced and awarded on the order. The purpose of this sole source justification is to allow for additional funds to be obligated to the extended task order to ensure continuity of services while the agency pursues a new competitive award.

3. Description of supplies or services required to meet the agency’s need.

The Task Order is a T&M contract type with a not-to-exceed (NTE) value. This justification seeks to increase the NTE amount during the existing period of performance. The ceiling of the TPVS BPA remains $XXXXXXX. The value of services under Task Order 7 to be authorized under this sole source authority is $XXXXXXX.

PSPD has a mission critical requirement for the continued operation and maintenance, modernization, and enhancements of the TPVS suite of applications.

TPVS applications are vital to safeguard national security by enabling secure identity access, cargo targeting, processing millions of messages and billions of database transactions daily, and rapid data sharing with federal and state partners.

http://uscode.house.gov/

TPVS supports 24/7 primary and secondary traveler processing at and between 328 U.S. Ports of Entry, public-facing applications that facilitate travel, and vetting services across and beyond DHS.

This robust system handles billions of data messages and hundreds of billions of database transactions daily with rapid response times, adapting to evolving security threats and new technologies. On a typical day, CBP officers and U.S. Border Patrol agents utilize TPVS applications at all ports of entry and Border Patrol sectors, processing a substantial volume of transactions:

• Over 4.5 million APIS messages are processed daily, including more than 2.3 million commercial air traveler records.

• Over 1 million travelers are processed daily in air and sea environments.

• 124,000 pedestrians are processed daily in pedestrian primary inspection environments.

• 247,000 vehicles, carrying 496,000 travelers, are processed daily in vehicle primary inspection environments.

• An average of 24,000 I-94 forms are issued daily in the land secondary environment, with an additional 5,000 provisional I-94s generated daily and 11,000 created at land border Ports of Entry.

• The Arrival and Departure Information System (ADIS) processes 3.1 million transactions daily.

• 110,000 vehicles pass through Border Patrol Highway Checkpoints.

• 49,000 Global Entry (GE) travelers processed daily

• 21,000 travelers processed daily through Mobile Passport Control (MPC), and another 9,000 travelers through Enhanced Passenger Processing (EPP)

• Over 1 million vetting queries are conducted daily, supporting CBP and other federal agencies.

• Annually, approximately 151,000 Transponder orders are placed through the Decal and

Transponder Online Procurement System (DTOPS), facilitating 740,000 crossings.

• 13 million Electronic System for Travel Authorization (ESTA) applications and 1.4 million

Electronic Visa Update System (EVUS) applications are processed annually.

• TPVS supports over 70,000 online, research, and backend users from more than 20 federal agencies.

• The system manages nearly 21 million active Trusted Traveler Program (TTP) members, with

12,500 new applications received daily.

To ensure continuity until a new competitive contract can be awarded, the following requirements are necessary to meet the agency’s mission:

Application Development and Modernization: Develop and modernize TPVS applications integrating new technologies and ensuring the applications remain effective against evolving security threats, while also improving operational utility and user experience.

Operations and Maintenance (O&M): To guarantee the continuous, secure, and efficient functioning of these mission-critical systems, which handle millions of data messages and transactions daily. This includes proactive and reactive support, monitoring, and troubleshooting.

Specialized Equipment Support: To procure, install, maintain, and monitor the hardware necessary for TPVS applications, ensuring seamless integration and operational readiness.

It is priced on a T&M basis, priced as new CLINS for sustainment and enhancement services (separate from the non-severable projects already funded). These are priced out individually for each of PSPDs core applications. Rates are compliant with their MAS schedule.

CBP intends to add to the NTE to fund additional sustainment and enhancement services until we can recompete and transition to the new contract awardee.

4. Authority and supporting rationale.

• GSAR 538.7104-3(b)(1)(ii): Only one source is capable of providing the products, services, or solution required at the level of quality required because the products, services, or solutions are unique or highly specialized.

As the current TPVS BPA single awardee, Leidos is currently the only source providing these services to CBP. The recompete effort for this work is underway and CBP anticipates releasing the approved solicitation for TPVS 2.0 in August 2026, with an estimated award of November 2026.

To maximize competition and mitigate performance risk in transition if a new vendor is awarded, CBP estimates that a six-month transition period will be necessary. Therefore, performance through the current contractor is required to ensure there is no degradation to mission requirements until such time as the new contract can be awarded and the awardee can assume full system responsibility.

No other source is able to maintain the complex and vast set of TPVS systems and subsystems at the quality level required without a substantial transition dependency. The technology supporting these systems is of such magnitude and complexity that it requires highly specialized knowledge and skills. While the services to be performed are commercial in nature, the TPVS systems themselves are highly customized, rely on complex integration points across internal and external systems, and inflict modernization efforts demand meticulous planning and coordination for successful handoff to another contractor.

The program systems in question are mission-critical, supporting essential operations that cannot tolerate disruption or degradation in performance. The current contractor possesses the necessary expertise, developed through years of direct involvement in the design, implementation, and ongoing support of these systems. This expertise includes familiarity with custom configurations, integrated workflows, and specialized security controls that are not documented or transferable to other vendors without significant risk to continuity and integrity.

No other source is capable of providing the required services at the necessary level of quality due to the unique and highly specialized nature of the systems and the contractor’s exclusive access to sensitive technical information, tools, and processes. Transitioning operations and maintenance to another provider would jeopardize system performance, introduce unacceptable risk, and potentially compromise mission objectives.

Therefore, only the current contractor is capable of delivering the products, services, and solutions required for the continued operations and maintenance of the program systems at the level of quality necessary to meet agency requirements.

5. CBP intends to make this justification publicly available in accordance with GSAR 538.7104-3(b)(3).

6. Technical/Requirements Personnel Certification:

I certify that this requirement meets the Government’s minimum need and that the supporting data, which form a basis for the Sole Source Justification, are accurate and complete.

Technical Representative/COR Date

7. Contracting Officer Certification and/or Approval: *

Pursuant to HSAM 3008.401-71(b)(1), I certify that the Sole Source Justification is accurate and complete to the best of my knowledge and belief, and legal review was obtained when required based on dollar value.

Contracting Officer Date

*Note: In accordance with HSAM 3008.401-71(b)(1) for proposed BPAs or orders with an estimated value exceeding the simplified acquisition threshold, but not exceeding $900,000, the ordering activity contracting officer’s certification that the justification is accurate and complete to the best of the ordering activity contracting officer’s knowledge and belief will serve as approval.

► SSJ Approvals:

8. COMPETITION ADVOCATE (Per HSAM 3008.401-71(b)(2)) - Exceeding $900,000 to $20M) Approved Disapproved

Earl J. Lewis I II Competition Advocate

Signature: Date:

9. HEAD OF CONTRACTING ACTIVITY (Per HSAM 3008.401-71(b)(3)) – Exceeding $20M)

Approved Disapproved

Earl J. Lewis III Head of the Contracting Activity

Signature: Date:

BPA Holder: