JA 23-019 Global Distribution Management System.pdf

Control No: 23-019 Contractor: Tapestry Solutions

Supply/Service: Global Distribution Management System

Est Dollar Value:

JUSTIFICATION REVIEW DOCUMENT

FOR JUSTIFICATION AND APPROVAL FOR OTHER THAN

FULL AND OPEN COMPETITION

Supply/Service: The Global Distribution Management System (GDMS) provides global positioning system data to the Army to maintain in-transit visibility (ITV) of transportation assets in real time.

Authority: 10 U.S.C. 3204(a)(1)

Prepared by:

Contracting Officer:

Technical:

Requirements:

Brooke Sheraden Contract Specialist brooke.b.sheraden.civ@army

Jennifer J. Cramblett Procuring Contracting Officer jennifer.j.cramblett.civ@army.mil

DSN: 309-793-1868

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

Legal Advisor:

Supply/Service: Global Distribution Management System

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Department of Army Justification and Approval for Other than

Full and Open Competition

1. Contracting Activity: U.S. Army Contracting Command - Rock Island (ACC-RI) Rock Island Arsenal, Rock Island, IL 61299-8000.

2. Description of Action: The 1st Sustainment Command (Theater) (TSC) requests a Firm Fixed Price contract with Tapestry Solutions, Inc. ACC-RI projects award for

Overseas Contingency Operations, Operations and Maintenance, Army funds. An Acquisition Plan is not required because this procurement does not meet the necessary threshold in accordance with Defense Federal Acquisition Regulation Supplement (DFARS) 207.103(i)(B).

Since 2018, Tapestry Solutions has been providing GDMS under contract W52P1 J-18- C-0049, in support of the Heavy Lift 8 (HL8) contracts. The HL8 contracts provide commercial line-haul transportation services throughout Iraq, Kuwait and the Trans Arabian Network (TAN), which includes most of the countries in the Arabian Peninsula (Bahrain, Oman, Saudi Arabia, and United Arab Emirates) and most countries in the Levant (Egypt, Israel, and Jordan). The current contract for GDMS ends on■

, and the new contract, GDMS 2.0, will provide the same system and support to HL9, the successor to HL8. The HL9 acquisition is underwa with award anticipated in June 2023 and a period of performance (PoP) of - The Government did not compete the requirement prior to this action under the authority of Federal Acquisition Regulation (FAR) 6.302-1. Justification and Approval (J&A) 18- 07 4, approved in May 2018, supported the award of W52P1 J-18-C-0049 and provided for services with Tapestry Solutions through 26 March 2021 . J&A 21-036, approved in March 2021, supported extending services under W52P1 J-18-C-0049 through 31 August 2023. The services were later extended through , see paragraph 3 below. J&A 21-036's paragraph 7, Actions to Increase Competition, stated:

"1st TSC has determined it is most efficient and cost effective to extend the current ITV contract with Tapestry through the end of the HL8 PoP in August 2023. This would allow adequate time to conduct a thorough source selection for ITV options ahead of the award of Heavy lift 9. The 1st TSC will continue conducting market research and analysis for this requirement in the future."

Supply/Service: Global Distribution Management System

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The 1st TSC and ACC-RI conducted market research and determined there is another contractor who has a product that could work.

provide additional time to develop a competitive acquisition plan and compete the requirement.

After J&A 21-036, J&A 21-120 was approved in January 2022, which added GDMS services to Army units in Europe and Africa through the end of the current GDMS contract. Services in Europe and Africa will not be continued in GDMS 2.0.

3. Description of Supplies/Services: The use of the current Army transportation system of record, Transportation Coordinators' - Automated Information for Movements System II Theater Operations (TC-AIMS II TOPS), is required across all the U.S. Army's transportation programs. TC-AIMS II TOPS relies on Tapestry Solutions' software package to provide integration of a data-fusion system and serve as a gateway that enables near real-time visibility, tracking and accountability on all registered commercial logistics (i.e. a truck tracking system). Tapestry Solution's GDMS is a global positioning system (GPS) based software that operates within the TC-AIMS II TOPS program, associating logistic support and incidental hardware, which includes transponders, to support 1st TSC's mission to track the movement of military equipment and supplies traveling on civilian transportation assets throughout Iraq, Kuwait, and the TAN. The primary requirement for Tapestry Solution's GDMS software is for it to feature graphical displays of mission data, including vehicle locations on topographical maps with the capability of providing very accurate location data. The secondary requirement is for the software to manage transportation movement requests, capture actual delivery times, correlate actuals to scheduled requirements, validate demurrage charges, finalize shipments, and support invoicing. The GDMS 2.0 contract will be required to archive all HL9 data to assist with litigation support against future carrier claims.

As stated above, J&A 21-036 supported an extension to contract W52P1 J-18-C-0049 through 31 August 2023. The extension consisted of a one-year base period through 26 March 2022, a one-year option through 26 March 2023, and five month extension from 27 March 2023 through 31 August 2023, using FAR clause 52.217-

8. ACC-RI included a final five-month extension, rather than a six-month extension as is typical when using FAR clause 52.217-8, so the end date of GDMS 1.0 would sync with the end of the HL8 contract. Later, the HL8 contracts were extended from

, and GDMS 1 .0 was, in turn, extended for an additional month from under modification P00024. No justification was prepared to support the further extension under FAR 52.217-8.

Supply/Service: Global Distribution Management System

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4. Authority Cited: 10 U.S.C. 3204(a)(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.

6. Reason for Authority Cited: As described at FAR 6.302-1 (a)(2)(ii)(B), supplies may be deemed to be available only from the original source in the case of a follow-on contract for the continued development or production of a major system or highly specialized equipment, including major components thereof, when it is likely that award to any other source would result in unacceptable delays in fulfilling the agency's requirements.

a. Tapestry Solutions has been providing its GDMS software and support to the Army on a sole source basis since 2015. Tapestry Solutions first provided GDMS/ITV software in Afghanistan in support of the National Afghan Trucking (NAT) program under contract HTC711-15-C-W002, as supported by J&A 15-

46. Based on market research conducted at the time, the Government determined Tapestry Solutions to be the only vendor that could meet the ITV requirements of the NAT contract. The Army has since awarded Tapestry Solutions three sole source contracts.

b. Prior to award of another long-term contract to Tapestry, ACC-RI and 1st TSC conducted market research using the salient characteristics of the current software to determine if any other contractor can provide a product that will meet 1st TSC's needs. As described in paragraph 8, the market research supported another product can potentially meet the Government's needs, therefore, ACC-RI and 1st TSC will compete the follow-on requirement.

Milestones for conducting the competitive acquisition are as follows:

c. Only Tapestry can meet the 1st TSC's needs while the follow-on contract is competed. The GDMS and its GPS technology are interoperable with TC AIMS II TOPS and has proved to be successful over the past eight years.

GDMS includes proprietary software licensed by Tapestry Solutions, and

Supply/Service: Global Distribution Management System

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therefore, is a unique product offered by this sole contractor. Over the last eight years, the U.S. Army has relied on GDMS and has requested Tapestry conduct multiple code changes that were tailored solutions to expand the program's functionalities to provide increased control, ownership, and accountability for the military to effectively manage its total transportation movement process. Although the Government worked with Tapestry to clarify which software coding was needed, most of the tailored software coding was developed at Tapestry Solution's expense. GDMS provides GPS data which allows the Army to maintain ITV transportation assets in real time. Before GDMS, U.S. Army officials were tasked with managing thousands of civilian cargo shipments per month with manual spreadsheets and limited resources.

As a result, trucks and cargo were frequently sent to incorrect locations in war zones and reports were inaccurate. It is also extremely difficult to track deliveries, verify demurrage claims and manage Contractor performance without the GDMS software.

GDMS is the Army's solution to distinguish between civilian and enemy truck movements, provide alert capability to allow units under enemy attack to notify quick reaction forces, and to provide the control, ownership, and accountability that the military requires to effectively manage its operations.

e. The upcoming HL9 contract requires contractor ITV systems (Le.transponders) be compatible with the Government ITV service provider (Tapestry's GDMS). The HL9 and ITV contracts are integral to each other, and it is in the Government's best interest to consider them a holistic transportation program and award them on a synchronized acquisition cycle.

This synchronization of contracts will enable the U.S. Government to maintain continuity of effort across military customer deployment cycle s, military customer training, and HL companies. This J&A will provide additional to

Supply/Service: Global Distribution Management System

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develop a completive acquisition plan and compete the requirement without any unacceptable delays in services.

f. The U.S. Army has mandated that the NAT and HL9 Contractors use GDMS and transponders that are compatible with the existing ITV system that the U.S. Government has under contract. Tapestry Solutions is the only company to date whose GDMS program has demonstrated complete interoperability with TC-AIMS II TOPS and whose hardware is installed in the current HL8 vehicles and that will be installed in vehicles as part of the newly awarded HL9 contract.

6. Efforts to Obtain Competition: ACC-RI shall publish the notices required by FAR

5.201. Because this is a sole source action, effective competition is not applicable. The Government will achieve subcontracting competition by including FAR clause 52.244-5, Competition in Subcontracting, in the solicitation and resultant contract, which states that the Contractor shall select Subcontractors, if applicable, on a competitive basis to the maximum practicable extent.

7. Actions to Increase Competition: After re-evaluating the market research, the U.S.

Government identified another product that has the potential to perform successfully with TC-AIMS II TOPS and the current software. ACC-RI and the 1st TSC will conduct a competitive acquisition to provide services

Market Research: In accordance with Defense Federal Acquisition Regulation Supplement (DFARS) 205.205-71, DFARS 206.302-1 (d), and DFARS Procedures, Guidance and Information 206.302-1 (d), ACC-RI posted a sources sought to SAM.GOV on 8 August 2022. ACC-RI received■ responses to the sources sought as listed below.

However, the evaluation of the responses focused primarily on Tapestry's existing GDMS proprietary software. In June 2023, ACC-RI and 1 TSC re-evaluated the market research and determined there was another contractor that demonstrated complete interoperability with TC-AIMS II TOPS.

Supply/Service: Global Distribution Management System

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Tapestry Solutions; San Diego, CA - Tapestry Solutions, Inc. , a Boeing Company (Tapestry) develops commercial off-the-shelf software and highly specialized custom software. Tapestry is the original developer of the GDMS software that is provided to the U.S. Government as part of the total GDMS system. Tapestry has provided the commercial trucking ITV system of record for all of the prior iterations of the trucking contracts to include Kuwait HL 8 contract, Host Nation Trucking and the NAT contracts.

Supply/Service: Global Distribution Management System

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8. Interested Sources: To date, no other sources have expressed a written interest in this requirement.

9. Other Facts:

a. Procurement History

Contract: W52P1 J-18-C-0049, P00012, added services for Europe and Africa Contractor: Tapestry Solutions, Inc.

Award Date: 25 June 2021 Competitive Status: Sole Source, J&A 21-120 Authority: FAR 6.302-1

Contract: W52P1 J-18-C-0049, P00011, extended the contract through August Contractor: Tapestry Solutions, Inc.

Award Date: 25 March 2021 Competitive Status: Sole Source, J&A 21-036 Authority: FAR 6.302-1

Contract: W52P1 J-18-C-0049 Contractor: Tapestry Solutions, Inc.

Award Date: 26 September 2018 Competitive Status: Sole Source, J&A 18-07 4 Authority: FAR 6.302-1

Contract: W91 B4N-17-P-0002 Contractor: Tapestry Solutions, Inc.

Award Date: 13 March 2017 Competitive Status: Sole Source, J&A 17-03 Authority: FAR 6.302-1

Contract: HTC711-15-C-\/\,002

Contractor: Tapestry Solutions, Inc Award Date: 11 September 2015 Competitive Status: Sole Source, J&A 15-46 Authority: FAR 6.302-1

Supply/Service: Global Distribution Management System

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10. 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

11. 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

12. 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. The basis for this determination will be a cost analysis in which certified cost or pricing data will be required.

Date: 6/30/23 CRAMBLETT.JENN gi:~~~~;~NIFER.J.12644

IFER.J.1264491912 ~:~~~2023.06301o:o3:13 -os'Oo'

Jennifer J. Cramblett Contracting Officer

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

Date: 6/30/23

CRAMBLETT.JENNI gi:~~~~;~NIFER.J.126449

FER.J.1264491912 ~!!!: 2023.o6so 10:03:44 -os'Oo'

Jennifer J. Cramblett Contracting Officer

Supply/Service: Global Distribution Management System

Est Dollar Value:

Approval

Based on the foregoing justification, I hereby approve the procurement of GDMS on an other than full and open competition basis pursuant to the authority of 10 U.S.C.

3204(a)(1 ), subject to availability offunds, and provided that the services or suppl ies herein described have otherwise been authorized for acquisition.

Date: 7 /3/23 Signature:

l.P a t, Q O Q_,.. Digitally signod by T)atR.c.J' "tJ.

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O.te: 2023,07.031$:39:02 -05'00'

RACHEL M. PHELPS

Competition Advocate