VA-25-00088106 Justification and Approval for IFCAP Testing Environment - Redacted.pdf

CONTROL NUMBER VA-25-00088106

VA initially deployed this solution in fiscal year 2013, and then under a competitively awarded Indefinite-Delivery, Indefinite-Quantity contract in FY 2016 deployed the APAR/APAT solution to 144 sites across the VA Enterprise. Under that effort, DSS provided licenses in addition to operations and maintenance support for the Supply Chain GUI Overlay and the included applications, specifically the APAR and APAT tools. The current deployed code includes aspects of DSS proprietary software code which has been enhanced to provide VHA with enterprise reporting, dashboards, and data integration software packages since the product was deployed.

The current deployed code includes aspects of DSS proprietary software code which has been enhanced to provide VHA with enterprise reporting, dashboards and data integration software packages since the product was deployed. As noted in Section 8 of this justification, only the proposed source has access to the entire base code of the GUI overlay software code and is, therefore, the only source capable of making any changes to the software itself. While other software developers have general capabilities to develop and implement software enhancements and system fixes, without the required access to this proprietary code, no other source can provide the required code analysis services or meet the Government’s technical and functional requirement that all enhancements must seamlessly interoperate with the existing system. Furthermore, access to this code is needed to ensure all services provided are properly configured.

Further, VA requires the vendor to provide support for installation and configuration of the test environment to mirror the production environment’s functionality all while ensuring seamless integration with VistA’s logistics modules. Given that this would also require intimate knowledge of the underlying proprietary code, no other source other than DSS or its authorized resellers could support this task. Additionally, VA also requires that the GUI solution be kept up to date with changes to IFCAP as it is both enhanced and integrates with modernized solutions like the Integrated Financial and Acquisition Management System (iFAMS)- GIP/iGIVE solution. Only DSS or its authorized resellers can review the DSS code and identify potential gaps, issues and potential impacts to its proprietary code as a result of these potential IFCAP/GIP updates. Without access to this code, a new vendor could not complete the required tasks such as testing and analysis of the existing GUI overlay source code with IFCAP/GIP code changes. Based on market research, it was determined that there are no opportunities for other software developers to perform services related to the brand name DSS APAR and APAT applications, as DSS restricts access to the proprietary GUI source code. The perpetual DSS brand name software license(s) that VA will obtain as a result of the test instances and supporting test maintenance service has the only brand name software code that will be interoperable and compatible with the existing DSS brand name GUI. Specifically, this software code will only seamlessly interoperate with the DSS GUI proprietary code. Use of any other software will result in communication issues with this existing infrastructure. Therefore, no other source can complete this task due to the aforementioned proprietary constraints for the development of the code.

Should any other vendors developed or provided solution be utilized, it would require the complete removal of the existing solution, testing, training, security/compliance (Authority to Operate) and re-deployment of another solution, as use of the VistA tools are not sufficient. The Government estimates that this would take approximately

, not including annual maintenance of approximately to redevelop, test, configure, deploy and train the Enterprise on a new solution and is specific to the APAR/APAT requirement. These figures are based on historical information to develop, test, receive an Authority to Operate on the VA network, and deploy new software at the current capability. Additionally, VA estimates that it would take approximately three years to complete the aforementioned tasks and to deploy the full operating capability, based on findings of VA strategic market research and historical experience with deploying like solutions. During this time, the functionality already provided to VA to ensure proper patient care would lapse, thereby hindering VA’s ability to fulfil its mission.

Absent updates and the ability to interface with VistA and associated financial systems, VA system users would be required to revert back to utilizing the VistA legacy products directly which would significantly slow down and impede the process for getting Veterans the care, medical supplies, and prosthetics they require. Based on VA estimates, rolling back to the VistA system and processes would increase average wait times for Veterans to receive prosthetics supply and logistics support by seven days.

This estimate is based on the “Average Days to Close a Prosthetic Consult” metric. This delay compounds the wait time exponentially and degrades service to the Veteran. As such, continued maintenance of the solution is paramount to maintaining timely delivery of benefits and services.

Therefore, based on the above, only the proposed brand name DSS services are capable of satisfying all of the Government’s requirements as previously detailed.

Failure to procure these services as described will significantly impact VA’s ability to perform its mission of providing care to the Veteran, delaying delivery of the medical supplies and prosthetics. This in turn has a negative impact on world class Veteran focused health care.

6. Efforts to Obtain Competition: Market research was conducted, the details of which are in Section 8 of this justification. While this effort did not yield any additional sources that can meet all of the Government's requirements, VA did identify several small business resellers of the required brand name services. As such, there is an expectation of limited competition for this acquisition. In accordance with FAR 16.505(a)(4)(iii)(A)(1), this justification will be provided with the solicitation to all appropriate NASA SEWP V GWAC holders. Furthermore, in accordance with FAR 5.301, 16.505(b)(2)(ii)(D), and 16.505(a)(4)(iii), the award notice for this action will be synopsized on the Contract Opportunities website and this justification will be made publicly available within 14 days of award.

7. Actions to Increase Competition: The Government will continue to conduct market research to ascertain if there are changes in the marketplace that would enable future actions to be competed.

8. Market Research: Market research was conducted by the Government’s technical representative in June 2025 which included a review of GSA eLibrary, and vendor websites to determine if similar solutions are available. Specifically, VA technical representatives reviewed the capabilities of similar supply chain solutions such as Catamaran NextGen and Shipcom Wireless to ascertain if they could provide the aforementioned services. VA technical representatives determined that Catamaran NextGen and Shipcom Wireless, while providing similar logistical support software, do not have access to the required proprietary DSS source code required to establish a test instance and conduct end-to-end validation of the existing DSS software with VA driven IFCAP/GIP modifications to maintain operational continuity across VistA’s logistical functions as noted in Section 5 of this document.

Additional market research was conducted in August 2025 to identify potential resellers of the brand name services. While a review of NASA SEWP V GWAC Product Lookup tool identified 5 potential value-added resellers for DSS products, the Contracting Officer requested clarification from DSS directly as to how it resells products and services. DSS stated in response that it exclusively works with two value added resellers for the required services under NASA SEWP V GWAC. The resellers identified consisted of one (1) Service-Disabled, Veteran-Owned Small Business and one (1) Woman-Owned Small Business. Considering this information, and in order to maximize competition, this effort will be released as a small business set-aside under NASA SEWP V GWAC and NAICS 541519.

9. Other Facts: None

Technical/Requirements Certification

I certify that the supporting data under my cognizance, which are included in this justification, are accurate and complete to the best of my knowledge and belief.

10. Fair and Reasonable Cost Determination

I hereby determine that the anticipated price to the Government for this contract action will be fair and reasonable based on the comparison of prices found on the GSA Schedule for DSS. GSA prices have already been determined to be fair and reasonable.

Finally, the contract price may be compared to the Independent Government Estimate.

11. Contracting Officer Certification/Approval

I certify that this justification is accurate and complete to the best of my knowledge and belief. This contract action exceeds the simplified acquisition threshold, but does not exceed $750,000, therefore, the certification required by FAR serves as the Contracting Officer’s approval.