REDACTED_JA_IPPS-A_SETA_SVCS_6_Mo_Extension_W15QKN-14-C-0032.pdf

Control No: CAO-17-0286

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JUSTIFICATION REVIEW DOCUMENT

FOR OTHER THAN

FULL AND OPEN COMPETITION

Program/Equipment: Program Executive Office Enterprise Information Systems (PEO EIS) Project Management Office (PMO) Integrated Personnel and Pay System-Army (IPPS-A) System Engineering and Technical Assistance (SETA) Support Services.

Authority: Title 10 United States Code (U.S.C.) Section 2304(c)(1) as implemented by Federal Acquisition Regulation (FAR) Part 6.302-1 -- Only One Responsible Source and No Other Supplies or Services Will Satisfy Agency Requirements

Amount: $13,430,601.25

Prepared by:

Dennis Sughrue DSN: 562-5120 Contract Specialist Date: 18 April 2017 Email: dennis.c.sughrue.civ@mail.mil

Contracting Officer:

Mark Scheper DSN: 562-7357 Email: mark.l.scheper.civ@mail.mil Date: 18 April 2017

Technical:

Salvador E. Batlle DSN: 865-3252 Chief, Technical Management Division, Date: 25 April 2017

PMO IPPS-A

Requirements:

Paul B. Phillabaum DSN: 865-2690 Deputy Project Manager, Date: 25 April 2017

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Reviews: I have reviewed this justification and find it adequate to support other than full and open competition.

Program Manager:

Typed Name: JAMES F. MCNULTY, JR. COL, USA, FA

DSN: 865-2687

Signature: //Signed// Date: 18 April 2017

Legal Counsel:

Typed Name: DENISE M. MARRAMA

DSN: 562-6673

Signature: //Signed // Date: 31 May 2017

Group Manager:

Typed Name: VERNAY V. SALAS

DSN: 562-3251

Signature: //Signed// Date: 28 April 2017

Center Director:

Typed Name: ALEX J. MATEJKA

DSN: 562-7355

Signature: //Signed // Date: 04 MAY 2017

Deputy Director:

Typed Name: SUZANNE M. ANDERSON

DSN: 562-3844

Signature: //Signed // Date: 09 May 2017

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Justification and Approval for Other than

Full and Open Competition

1. Contracting Activity: U.S. Army Contracting Command – New Jersey

2. Description of Action: Program Executive Office Enterprise Information Systems (PEO EIS) Project Management Office (PMO) Integrated Personnel and Pay System- Army (IPPS-A) requests a Cost Plus Fixed Fee (CPFF) bridge modification to extend for six months, contract W15QKN-14-C-0032 with Booz Allen Hamilton, Inc. (BAH), 8283 Greensboro Drive, McLean, VA 22102-3838. Fiscal year 2017 Research Development Test and Evaluation (RDT&E) funds will be used.

3. Description of Supplies/Services: IPPS-A is a Web-based Human Resource (HR) system that provides integrated personnel and pay capabilities and a comprehensive HR record for all Soldiers in each Component. This bridge modification is required to provide a continuation of the System Engineering and Technical Assistance (SETA) services to PMO IPPS-A in the areas of program and project management; systems engineering; lifecycle management; test and evaluation; business processing re-engineering; and integrated logistics and lifecycle support for the development of the IPPS-A system.

The period of performance for this proposed bridge modification is 01 July 2017 to 31 December 2017 and the total value of this action is $13,430,601.25.

4. Authority Cited: Title 10 United States Code (U.S.C.) Section 2304(c)(1), as implemented by Federal Acquisition Regulation (FAR) 6.302-1(a)(2)(iii)(B), only one responsible source and no other supplies or services will satisfy agency requirements.

5. Reason for Authority Cited: As described in FAR 6.302-1(a)(2)(iii)(B), when the supplies or services required by the agency are available only from one responsible source, or for DoD, NASA and the Coast Guard, from only one or a limited number of responsible sources, and no other types of supplies or services will satisfy agency requirements, full and open competition need not be provided for. 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 unacceptable delays in fulfilling the agency’s requirements. The Government identified the need for this bridge modification due to the three (3) month delay in issuance of the Request For Proposal (RFP) for the new competitive Task Order (TO) against the GSA ALLIANT ALL 1 (Large Business) Government wide Acquisition Contracts (GWAC). The Government accomplished the release of the final RFP on 24 March 2017. The three month delay was caused by the additional time required for the Program Office to receive final approval for the Acquisition Plan. Furthermore, additional time was required to obtain a waiver of the applicability of the Earned Value Management (EVM) required by the Department of

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Defense Instruction (DoDI) 5000.02, Operation of the Defense Acquisition System, which was approved by Assistant Secretary of the Army (Acquisition, Logistics and Technology) ASA (ALT) on 20 April 2017. A deviation to DFARS provision 252.234- 7001, clause 252.234-7002, (EVM), was approved 02 May 2017 by the ACC-NJ PARC.

The proposed source is BAH. BAH is the only viable source for meeting the mission requirements at this time. BAH has the intricate understanding of PMO IPPS-A’s requirements to support in the development, implementation, deployment and sustainment of the IPPS-A system, as well as the institutional knowledge from performing these requirements for the past seven years. Continuing with the current BAH contract allows the PMO to maintain the specialized skills, Subject Matter Experts (SME) and expertise necessary to provide the essential SETA support services for the development of the IPPS-A system.

The Army’s IPPS-A PMO is responsible for the acquisition, development and implementation of the Increment II System Integrator’s (SI) lifecycle program for the IPPS-A system. The technical activities and reviews for this requirement are delineated in its Capability Development Document. The SETA support services under this modification are required in order for the following activities/milestones to be completed for “Release 3”. These technical activities/milestones are as follows: Technical Readiness Review, Government Acceptance Test (GAT), Preliminary Design Review for August and September 2017, Interim Program Review in November 2017, Integrated Baseline Review (IBR) in December 2017, and activities in preparation for the Operational Test Readiness Review scheduled in January 2018. BAH has been supporting the aforementioned PMO’s requirements under the existing W15QKN-14-C- 0032 contract and it is critical that these support services are maintained for program continuity reasons. Without continuity of support services and proper turnover activities, the PMO will experience a significant risk increase to the successful deployment of the IPPS-A system. The risk includes an unacceptable delay of (6) six months for the implementation of the four remaining phases of the IPPS-A system. This unacceptable delay will limit the decision making ability of Army leaders in respect to allocating Army’s resources, i.e. soldiers based on their knowledge, skills and abilities. This delay will limit the Army’s readiness in supporting the Army’s soldiers personnel and pay functions including promotions and/or call to Active Duty assignments.

Based on the scheduled technical activities mentioned above and proper transitioning period, no alternatives to “other than full and open competition” are considered feasible.

The loss of the current support services contractor at this time would result in a six (6) month schedule delay and the inability to achieve mandated critical activities milestone schedule as noted above. BAH’s experience in supporting this program is the only viable option that will facilitate meeting the Government’s requirements for the development, integration, deployment and sustainment of this Acquisition Category One Major Automated Information Systems Program within its established timeline. In order to stay within the above mentioned project schedule, PMO IPPS-A needs to utilize this bridge modification to continue receiving the support required for the successful

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technical reviews and transition to the new PMO support services contractor anticipated in December 2017.

A delay in the scheduled technical activities will increase overall program costs as it will require the Army to continue payment of $11.2 million per month ($3.2 million for maintenance of legacy systems and $8 million for payment of services) to sustain and maintain status quo for degraded legacy systems beyond FY17. The current legacy systems are only funded through FY17; therefore, any delay beyond this date would cause the Army to have to request additional funding through Program Objective Memorandum FY18-22 submission process.

As detailed above, it is neither cost effective nor realistic for any other contractor to perform the PMO support services requirement in the next six (6) month interim period.

Any delay or disruption to the IPPS-A’s current activities will directly impact the program’s cost and schedule. Failure to extend this contract will adversely affect Increment II, Release 3 (of five releases) and will impact the Program’s Integrated Master Schedule and the ability to complete all the project and contract actions mentioned above.

6. Efforts to Obtain Competition:

a. Because this is a sole source action, effective competition is not applicable.

b. Subcontracting competition will be achieved by the continued support BAH has provided to date. BAH will continue to subcontract at least 25% of the IPPS-A work to an established team of Small Business (SB) partners representing several socio-economic categories; Veteran Owned Small Business (VOSB), Small Disadvantaged Veteran Owned Small Business (SDVOSB), Woman Owned Small Business (WOSB), 8a, and Hub Zone. Their SB partners included in the total effort are Trioh Consulting (SB), Maryn Consulting (8a, Hub Zone), JTSi (8a, VOSB, SDVOSB), E-Volve Technology Systems, Inc. (SDWOSB) and American Cyber (SB).

7. Actions to Increase Competition: For the follow-on contract the government has issued a RFP on 24 March 2017 with the anticipation of awarding a Task Order against the GSA Alliant Government Wide Acquisition Contract (GWAC). This RFP will provide fair opportunity to all 57 GSA Alliant contract holders.

8. Market Research: In accordance with (DFARS 205.205-71, DFARS 206.302-1(d), and DFARS Procedures, Guidance and Information (PGI) 206.302-1(d), a request for information and sources sought were posted to Army PEO EIS Program Management Support Services 3 (PMSS3), PEO EIS Human Resources (HR) Solutions, GSA Mission Oriented Business Integrated Services (MOBIS) – Schedule 874, CHESS ITES- 2S, GSA One Acquisition Solution for Integrated Services (OASIS), and the GSA Multiple Award Schedule (MAS) IDIQ Alliant GWAC schedule from February 2016

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through June 2016 for the anticipated fair opportunity competition task order re-compete.

A summary of the market research to date indicated that there are many commercial companies that can provide PMO support services to the Government under the GSA ALLIANT GWAC contract vehicle. This vehicle provides engineering services for Information Systems and Information Technology solutions, Lifecycle Management Support as well as Program Management Office support. The list of GSA ALLIANT GWAC qualified vendors are as follows:

1. Science Applications International Corporation (SAIC)

2. SRA International

3. Booz Allen Hamilton (BAH)

4. CGI Federal Inc.

5. General Dynamics Information Technology, Inc.

6. TechFlow, Inc.

7. AECOM

8. NCI Information Systems, Inc.

9. Accenture Federal Services, LLC

10. Engineering Solutions and Products, LLC

11. Engility Corporation

12. MacAulay-Brown, Inc.

13. AT&T Government Solutions, Inc.

14. Jacobs Technology

15. ECS Federal, LLC

16. Pragmatics, Inc.

None of the qualified vendors can provide the required SETA support within the mandated critical technical activities/milestone schedule due to the six month acquisition cycle for a new competitive procurement. In addition, none of the qualified vendors can meet the current requirement because a 60 day transition period would be required. The required acquisition cycle and the required transition period would cause an unacceptable delay of 6 months to satisfy the SETA support services requirement under this modification. BAH is the only qualified vendor that can satisfy the requirement being procured under this modification.

9. Interested Sources: To date, no other sources have written to express an interest in this requirement. The Contracting Officer will publish the notices required by FAR 5.201 and that any bids or proposals received shall be considered.

10. Other Facts:

a. Procurement History:

(1) Contract No. W15QKN-14-C-0032-P00020; date of award: 29 December 2016.

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(2) Competitive status: Sole Source.

(3) Authority cited: FAR 6.302-1(a)(2)(iii)(B)1 - Only one responsible source and no other supplies or services will satisfy agency requirements and unacceptable delays in fulfilling the agency’s requirements.

(4) The Government planned to release a RFP for a full and open competition TO against the GSA ALLIANT ALL 1 (Large Business) GWAC vehicle in December 2016 for this effort, however this milestone was achieved on 24 March 2017.

(5) The previous procurement was not Full and Open Competition.

(6) No unusual patterns were identified.

(7) A “Justification and Approval for Other Than Full and Open Competition” (ACC- NJ Control No. CAO-17-0038) was approved on 02 December 2016 to fulfill an immediate need to meet the PMO mission requirements and avoid a lapse in service and put the IPPS-A program in jeopardy of not meeting critical developmental milestones so a sole source contract was awarded to the incumbent contractor (BAH). No significant changes have occurred.

(1) Contract No. W15QKN-14-C-0032-P00019; date of award: 29 June 2016.

(2) Competitive status: Sole Source.

(3) Authority cited: FAR 6.302-1(a)(2)(iii)(B)1 - Only one responsible source and no other supplies or services will satisfy agency requirements and unacceptable delays in fulfilling the agency’s requirements.

(4) An internet search on the GSA website found several companies that were capable of satisfying the Government’s requirements. A Request for Information (RFI) was released in June 2015 during the previous market research followed by an industry day on 16 June 2015. The response to the RFI and previous industry day showed that GSA had the capability to provide the required services; however, for the immediate need at that time, a five month contract extension to the current effort with BAH was in the best interest of the IPPS-A program and the Government. Due to the increase in demand for the IPPS-A Program Portfolio, the updated market research and another Industry Day were needed to address the additional requirements to the IPPS-A Program Portfolio. A full and open competitive effort for these requirements was anticipated to be awarded in February 2017 to replace this sole source extension.

(5) The previous procurement was not Full and Open Competition.

(6) No unusual patterns were identified.

(7) A “Justification and Approval for Other Than Full and Open Competition” (ACC- NJ Control No. CAO-16-0247) was approved on 29 June 2016 to fulfill an immediate need to meet the PMO mission requirements and avoid a lapse in service and put the IPPS-A program in jeopardy of not meeting critical developmental milestones so a sole source contract was awarded to the incumbent contractor (BAH). No significant changes have occurred.

(1) Contract No. W15QKN-14-C-0032-P00013; date of award: 29 January 2016.

(2) Competitive status: Sole Source.

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(3) Authority cited: FAR 6.302-1(a)(2)(iii)(B)1 - Only one responsible source and no other supplies or services will satisfy agency requirements and unacceptable delays in fulfilling the agency’s requirements.

(4) An internet search on the GSA website found several companies that were capable of satisfying the Government’s requirements. A RFI was released in June 2015 during the previous market research followed by an industry day on 16 June 2015. The response to the RFI and previous industry day showed that GSA had the capability to provide the required services; however, for the immediate need at that time, a five month contract extension to the current effort with BAH was in the best interest of the IPPS-A program and the Government. Due to the increase in demand for the IPPS-A Program Portfolio, the updated market research and another Industry Day were needed to address the additional requirements to the IPPS-A Program Portfolio. A full and open competitive effort for these requirements was anticipated to be awarded in April 2016 to replace this sole source extension.

(5) The previous procurement was not Full and Open Competition.

(6) No unusual patterns were identified.

(7) A “Justification and Approval for Other Than Full and Open Competition” (ACC- NJ Control No. CAO-16-0072) was approved on 08 January 2016 to fulfill an immediate need at that time to meet the PMO mission requirements and avoid a lapse in service and put the IPPS-A program in jeopardy of not meeting critical developmental milestones so a sole source contract was awarded to the incumbent contractor (BAH). No significant changes have occurred.

(1) Contract No. W15QKN-14-C-0032-P00008; date of award: 29 January 2015

(2) Competitive status: Sole Source

(3) Authority cited: FAR 6.302-1(a)(2)(iii)(B)1 - Only one responsible source and no other supplies or services will satisfy agency requirements and unacceptable delays in fulfilling the agency’s requirements.

(4) A review of the Program Management Support Services – 2 (PMSS-2) multiple award contract vehicle determined all five contract holders, including BAH, were capable of meeting the Government’s requirement; however, the period of performance for this contract vehicle expired. The PMSS-2 multiple award vehicle is designed specifically for PEO EIS. The original award for this requirement was done competitively off of this vehicle. After that award expired, the next action was sole source to continue the current services. Once the Program Management Support Services – 3 (PMSS-3) is awarded, as discussed below, this effort will be competed through that vehicle. Also, an internet search on the GSA website found several companies (Lockheed Martin, General Dynamics, Inc., Pragmatics, Inc.) that were capable of satisfying a portion of the Government’s requirements, but not the entire scope. As discussed above, while there were multiple vendors capable of performing this requirement under the PMSS-2 vehicle, those vendors are not capable of doing it in the timeframe needed. The amount of time it would take to synopsize, solicit, evaluate, and award on a full and open basis would cause unacceptable schedule delays to the IPPS-A program.

(5) The previous procurement was not Full and Open Competition.

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(6) No unusual patterns were identified.

(7) A “Justification and Approval for Other Than Full and Open Competition” (ACC- NJ Control No. CAO-15-0026) was approved on 11 December 2014 to fulfill an immediate need to meet the PMO mission requirements and avoid a lapse in service and put the IPPS-A program in jeopardy of not meeting critical developmental milestones so a sole source contract was awarded to the incumbent contractor (BAH). No significant changes have occurred.

(1) Contract No. W15QKN-14-C-0032; date of Award: 29 January 2014

(2) Competitive status: Sole Source

(3) Authority cited: FAR 6.302-1(a)(2)(iii)(B)1 - Only one responsible source and no other supplies or services will satisfy agency requirements and unacceptable delays in fulfilling the agency’s requirements.

(4) A review of the Program Management Support Services – 2 multiple award contract vehicle determined all five contract holders were capable of meeting the Government’s requirement. Also, an internet search on the General Services Administration website found several companies (Lockheed Martin, General Dynamics, Inc., Pragmatics, Inc.) that were capable of satisfying a portion of the Government’s requirements, but not the entire scope. Therefore, market research showed that other companies had the capability to provide the required services, however for the immediate need at that time, a sole source award to the incumbent, BAH, was the only viable alternative for meeting the mission requirements at this time. A full and open competitive effort for this requirement was planned to take place during 1QFY2015 to replace this action.

(5) The previous procurement was not Full and Open Competition.

(6) No unusual patterns were identified.

(7) In December 2013 a “Justification and Approval for Other Than Full and Open Competition” (ACC-NJ Control No. CAO-14-0040) was approved to fulfill an immediate need to meet the PMO mission requirements and avoid a lapse in service and put the IPPS-A program in jeopardy of not meeting critical developmental milestones so a sole source contract was awarded to the incumbent contractor (BAH). No significant changes have occurred.

b. Other facts: There are no other facts that were not previously stated.

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11. Technical Certification: I certify that the supporting data under my cognizance which are included in the justification are accurate and complete to the best of my knowledge and belief.

SALVADOR E. BATLLE Date: 25 April 2017 Chief, Technical Management Division, Signature: //Signed//

12. Requirements Certification: I certify that the supporting data under my cognizance which are included in the justification are accurate and complete to the best of my knowledge and belief.

PAUL B. PHILLABAUM Date: 25 April 2017 Deputy Project Manager, PMO IPPS-A Signature: //Signed//

13. Fair and Reasonable Cost Determination: I hereby determine that the anticipated cost or price to the Government for this contract action will be fair and reasonable. This determination will be made using the IGCE along with cost and technical analysis. As a part of this basis, certified cost and pricing data will be required.

MARK L. SCHEPER Date: 27 April 2017 Contracting Officer Signature: //Signed//

14. Contracting Officer Certification: I certify that this justification is accurate and complete to the best of my knowledge and belief.

MARK L. SCHEPER Date: 27 April 2017 Contracting Officer Signature: //Signed//

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Approval

Based on the foregoing justification, I hereby approve the modification for a 6 month extension of Contract No. W15QKN-14-C-0032 for the procurement of Integrated Personnel and Pay System-Army Project Management Office Support Services on an other than full and open competition basis pursuant to the authority of Title 10 United States Code (U.S.C.) Section 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, subject to availability of funds, and provided that the services or property herein described have otherwise been authorized for acquisition.

BETH-ANN MENDELL Date: XX XXX 2017

Advocate for Competition Army Contracting Command – New Jersey