JA_DIL_Rev8_2020.redact.pdf

JUSTIFICATION REVIEW DOCUMENT

FOR OTHER THAN FULL AND OPEN

COMPETITION

Program/Equipment: Project Manager Synthetic Environment (PM SE) seeks approval to award a sole source contract for the Digital Integration Lab (DIL) program to continue to provide supply and services for eight (8) PEO STRI Programs of Records (PORs) and supporting organizations by providing Simulation to Command, Control, Communications, Computers, & Intelligence (C4I) Interoperability (SIMCI) with COLSA Corporation (COLSA).

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

Amount:

$1,187,278.

Prepared by:

James F. Dunn, Jr.

DSN:

970-3176

Assistant Product Manager Email:

Date:

Contracting Officer:

David Hagler Contracting Officer Email:

DSN:

Date:

970-3164

Technical Representative:

Connie Perry Chief Engineer, LVC-IA Email:

DSN:

Date:

970-3920

Requirements Representative:

James F. Dunn, Jr.

Assistant Product Manager Email:

DSN:

Date:

970-3176

Control No: ACC ORL 20-008 Contractor: COLSA Corp Program/Equipment: DIL

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

Project Manager Name: COL Marcus L. Varnadore DSN: 970-3650 Signature:

Date:eeeeeeeeee eeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeee eeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeee ee

Legal Counsel: Name: Karin L. Tibbals DSN: 970-3507 eeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeee eeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeee eeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeee eeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeee

Signature: Date:

Command Competition Advocate: Name: Lesley A Sullivan DSN: 970-5432 eeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeee eeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeee eeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeee eeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeee

Signature: Date:

JUSTIFICATION REVIEW DOCUMENT

FOR OTHER THAN FULL AND OPEN COMPETITION

1. Contracting Activity:

U.S. Army Contracting Command – Orlando 12211 Science Drive Orlando, FL 32826

2. Description of Action: Project Manager Synthetic Environment (PM SE) seeks approval to award a Sole Source contract for the Digital Integration Lab (DIL) program to purchase supplies and service for the PEO STRI DIL programs with COLSA Corporation (COLSA) (Address: 6728 Odyssey Dr. Huntsville AL 35806). The Period of Performance (PoP) will be for 6 months consisting of a 2-month base period with 4 (1)-month options. The requiring activity, PM SE, will provide the funds associated with this effort. This effort will be funded using a combination of Fiscal Year (FY) 2020 Research Development Test and Evaluation and FY 2020 Other Procurement, Army (OPA). The total estimated amount of this DIL effort is $1,187,278. The type of Contract Line Items (CLINs) that will be included are Firm Fixed Price (FFP) with Cost CLINs for travel and Other Direct Cost.

3. Description of Supplies/Services:

This bridge effort provides supplies and services for the continuing support of the DIL at the Orlando location until the competitive DIL contract award process is completed. The award of this contract allows for a transition period, in the case that, the new competitive DIL contract encounters a substantiated protest. The DIL provides Mission Command Information Systems (MCIS) integration, development, and testing support for the PEO STRI programs.

The DIL contract provides all personnel, equipment, supplies, facilities, transportation, tools, materials, supervision and non-personal services necessary to perform technical and management support for the DIL as defined in the Performance Work Statement (PWS). The Government will provide workspace, furniture, and automated office equipment, including a Government computer, scanner, fax machines, phone, and local area network printer with paper, for the individuals at the DIL and the off-site location(s).

The Contractor will provide a National Agency Check for each on-site employee prior to being granted network access. The Government will provide all utilities in the facility which will be available for the contractor’s use in performance of tasks outlined in the PWS. The Contractor shall instruct employees in utilities conservation practices. The Government will provide shipping crates, routers, switches mission command computers and other miscellaneous equipment, as identified in the Government

Furnished Equipment (GFE) list will be incorporated in Section J of the contract. These aforementioned activities will allow the current contractor to continue the support uninterrupted. No other source can reasonably continue this support without introducing significant schedule delay and increased costs.

The period of performance for this contract is six 6 months consisting of a 2 month base period and 4 (1) month option periods. The cost of this effort is estimated at $1,187,278.

Base Period: 1 June 2020 to 31 July 2020 : $395,759 Option Period 1: 1 August 2020 to 31 August 2020 : $197,879 Option Period 2: 1 September 2020 to 30 Sept 2020 : $197,879 Option Period 3: 1 October 2020 to 31 October 2020 : $197,879 Option Period 4: 1 November 2020 to 30 November 2020 : $197,879

The Options are intended to be exercised only as needed to provide continued service in the event performance under the competed follow-on contract is stayed pending resolution of a GAO protest.

4. Authority Cited: 1 0 U.S.C. 2304(c)(1), as implemented by 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 at FAR 6.302-1(a)(2)(iii), For PM SE, the support for the DIL may be deemed to be available only from the original source in the case of the follow-on competitive contract for the continued support of the supplies and services when it is likely that award to any other source would result in unacceptable delays in fulfilling the agency’s requirements.

(1) Program Background and Identification of Proposed Source: The DIL requirement was first established in 2001. The original program management, planning and oversight of the DIL were competed as a small business set aside within the Simulation Training Omnibus Contract (STOC), resulting in an award of Contract Number N61339-00-D-0702, Delivery Order 0002 with a Period of Performance (PoP) of November 2001-November 2006. Extensions were approved and issued in 2006 and 2007. In 2008 the requirements were reduced and a new task order was issued under Contract Number W900KK-07-D-0702, Delivery Order 0002 (The contract number changed from N61339 to W900KK because the Army received their contracting authority). During this timeframe, COLSA Corp, the DIL contractor since 2001, graduated from being a Small Business to a Large Business. In 2009 responses from the ID/IQ pool, the team determined that there were not two responsible small businesses that could be considered to be competitive under STOC II, Lot II to execute the DIL requirement. STOC II, Lot II was the Small Business set aside portion of the STOC II ID/IQ, while the “Full and Open” portion was Lot I. Therefore, the effort was awarded competitively under STOC II, Lot 1, for 5 years (Base Year plus four one Option Years. A competitive task order was again placed under STOC II for 5 years beginning in 2014 (Base Year plus four one Option Years). This order will be completed on 31 May 2020.

The non-personal services provide technical and management support for the DIL by the contractor, COLSA, under the STOC II Contract Number W900KK-09-D-0310, Delivery Order 0004. The services provided under the delivery order ends on 31 May 2020. During the entire operational period of the DIL, COLSA Corporation has been the contractor.

(2) Schedule Constraints: The DIL provides a secure and centralized location for all PEO STRI programs to integrate with Army Mission Command Information Systems (MCIS). It also provides a critical risk reduction capability in preparation for formal Army Interoperability Certification (AIC) testing by supporting the Project Managers’ (PMs’) software development and integration initiatives across PEO STRI.

Tasks and services include program and operational management, planning and oversight of the PEO STRI DIL; Simulation to Mission Command Interoperability (SIMCI) project support; first line MCIS technical support and operator expertise;

management of distribution and control of MCIS system hardware and software; support of pre-AIC and formal AIC testing; requirements analysis; systems engineering;

integration, test and experimentation; software and hardware evaluation; configuration management; property accountability; data collection; technical demonstrations; off-site visits and support; and technical analysis.

Support request for the Synthetic Training Environment (STE) for multiple MCIS will be provided by the DIL once the STE contractor’s facility is accredited. MCIS interoperability has been proven for constructive and virtual simulations and environment generators used across the One Semi Automated Force (OneSAF), Live, Virtual, Constructive Integrating-Architecture (LVC-IA), Joint Land Component Constructive Training Capability (JLCCTC), Close Combat Tactical Trainer (CCTT), Aviation Combined Arms Tactical Trainer (AVCATT), Synthetic Environment Core (SE- CORE), Games for Training (GFT) and Intelligence Electronic Warfare Tactical Proficiency Trainer (IEWTPT). Also, National Simulation Center (NSC) support with MCIS is provided by the DIL.

An award to another source for the required DIL supplies and services are estimated to total $1.25 million in duplicative costs that are not expected to be recovered through competition. It is estimated that it would cost $70K to conduct a source selection. The cost of a 2 month Phase In Phase for a new contractor would be approximately $395,759. Stopping this effort will impact the development efforts in the Live, Virtual, Constructive Integrating-Architecture contract which will cost $150K per each month of schedule slip.

In order to maintain DIL’s continuous support, the Government requires the significant experience of the current prime contractor, COLSA. They are the only source that can reasonably satisfy the PWS in the time frame allotted, without interrupting support if the new competitive award were to be protested. Also, the new DIL contract requires that the Government provide a 2 month transition period. This transition period provides for a “who, what, when, where and why” handoff of working knowledge from the incumbent to the successor contractor. Colsa, as the incumbent, is the only company that possesses the corporate knowledge required to support this transition. The competitive award is scheduled to be in place no later than (NLT) 22 May 2020.

(3) Impact: Disruption of the ongoing services would impact the following:

(a) Support request from the STE will not be met. STE has requested multiple

MCIS for development purposes. This MCIS equipment will be part of the Development Test and Support Equipment that has existing Authority to Operate documentation.

(b)The execution of current MCIS integration to support development and testing in 8 PEO STRI programs: CCTT, AVCATT, LVC-IA, JLCCTC, IEWTPT, SE CORE, GFT and OneSAF. This will cause a delay in schedules which will ultimately result in delay of capability being delivered to the warfighter

(c) The NSC at Ft. Leavenworth exists to ensure that the Army has the right live and synthetic training tools to train Leaders and Soldiers to fight and win in a complex environment. This mission will be degraded if MCIS cannot be supported by the DIL.

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

6. Efforts to Obtain Competition: A Notice of Intent (NOI) to Sole Source was posted under the System for Award Management Portal on 08 April 2020. On 21 April 2020, an update was made to the notice to add the verbiage, “The award of this contract will only commence if the new competitive Digital Integration Lab (DIL) contract encounters a protest.” Intelligent Decision Systems, Inc. (IDSI) answered the NOI however, they were unaware that the 6 month award was to be used as a transition period in case of a protest. When they referred back to the NOI update, they withdrew their petition. A re-compete action is being pursued by the Program Office to award the next DIL contract in 3rd Quarter FY20 on a competitive basis. However, the competition for the DIL five year contract was competed as a Small Business set aside and is anticipated to be awarded NLT 22 May 2020.

7. Actions to Increase Competition: This Bridge effort action is to support a two month transition period and continued performance in the event of a protest.

8. 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 (PGI) 206.302-1(d), a synopsis was posted to Federal Business Opportunities on 08 April 2020 and updated on 21 April 2020 with one response received from IDSI on 23 April 2020. The IDSI response was withdrawn once they were informed this action would only be undertaken in the event the competitive solicitation is not awarded prior to the current contract end date, 30 May 2020.

Market research indicates that there is no other known source of supplies and services that can provide the required supplies and services in a timely or effective manner.

COLSA is the only source that can provide the product in the timeframe necessary because COLSA is the only source with extensive knowledge, skills, and expertise which is needed to continue the support of the PM SE effort in support of DIL. In addition, COLSA is already the current Prime on this contract, thereby providing them with exclusive insight into the PEO STRI programs thereby minimizing impacts to existing DIL. No other source can reasonably continue the support and services of DIL programs without introducing significant schedule delay and increased costs. A market research report has been completed for the new DIL competitive procurement. Based on extensive market research, the new DIL competitive procurement has been competed as a small business set aside.

9. Interested Sources: Only one source expressed interest in the acquisition for the bridge contract. However, once they were informed this acquisition would be made only in the event the successor contract is not awarded prior to the expiration of the current contract, they withdrew their response. In accordance with FAR 5.201, this requirement was synopsized on System for Award Management and no responses were received.

10. Other Facts: Procurement History: There have been no other J&A’s submitted for the DIL program. DIL program is currently being supported by the contractor, COLSA, under the STOC II Contract Number W900KK-09-D-0310, Delivery Order 0004. ACC- Orlando exercised FAR 52.217-8, extending the ordering period by extend services by 2 months for Exercised Option 4 on 31 March 2020. The performance under this delivery orders is required to support DIL.

Since the award of the current DIL Contract back in 2014, there have not been any major shifts in the market place, with the exception of the incumbent (COLSA, Corp) transitioning from a “Small” business to a “Large” business. Previous market research found that market conditions could not support at least two small businesses capable of performing the requirements. This was due to contractors going out of business, mergers, acquisitions, and constrained DoD budgets (lacking of funds) that forced companies to re-invent themselves. Because of this, the companies that were available to bid this effort during the previous 17 years no longer exist and competition was more difficult. Logical follow-on” it is in the interest of economy and efficiency for this limited effort.

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.”

eeeeeeeeeeeeeeeeeeeeee Name: Connie Perry eeeeeeeeeeeeeeeeeeeeeeeeee

Signature Date LVC-IA Chief Engineer

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.”

Name: James F Dunn, Jr eeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeee eeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeee eeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeee

APM LVC-IA

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 following: ☒ cost analysis ☐ price analysis ☐ should cost ☒ IGCE ☐ audit: N/A ☐ other:

As a part of this basis, certified cost or pricing data:

☒ Will be required.

☐ Will not be required and the following exception applies (FAR 15.403):

☐ Prices that will be agreed upon are based on adequate price competition.

☐ Prices that will be agreed upon are based on prices set by law or regulation.

☐ A commercial item is being acquired.

☐ A waiver has been granted by the head of the contracting activity (HCA) in accordance with DFARS PGI 215.403-1.

☐ The contract action is a modification to a contract or subcontract for commercial item(s).

☐ The estimated cost of the contract action is less than the threshold for certified cost or pricing data.

Date: eeeeeeeeeeeeeeeeeeeeeeeeee eeeeeeeeeeeeeeeeeeeeeeeeee eeeeeeeeeeeeeeee David Hagler Contracting Officer

14. Contracting Officer Certification: In accordance with FAR 15.402, the Contracting Officer shall ensure that all supplies and services ordered under this contract are procured at a fair and reasonable price. The contractor will submit a price proposal with pricing cost and data with sufficient information to support the accuracy and reliability of the estimate. Experienced technical analysts and contract specialist will review the contractor’s proposed costs with the necessary field pricing support.

Analysis will be based upon historical costs and rate information provided by the field pricing support agencies. The Contracting Officer will utilize cost and price analysis as the basis for negotiating a fair and reasonable price. I certify that this justification is accurate and complete to the best of my knowledge and belief.

Name: David Hagler eeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeee eeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeee eeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeee

Contracting Officer

Approval Based on the foregoing justification, I hereby approve the procurement of DIL effort for the estimated amount of $1,187,278 on an other than full and open competition basis pursuant to the authority of 10 U.S.C.2304(c)(1) as implemented by FAR Part 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.

Date:________________ ___________________________ Lesley Sullivaneeeeeeeeeeeeeeeee Command Advocate for Competition