Justification Approval.pdf

MICC Control No. 13-86 West Point Control No.13-212

JUSTIFICATION DOCUMENT

FOR OTHER THAN FULL AND OPEN COMPETITION

DESCRIPTION OF PROGRAM: BIOMETRICS API

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

Amount:

Prepared by:

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

Local Small Business Specialist

Legal Counsel

Division Chief

Director

JUSTIFICATION DOCUMENT

FOR OTHER THAN FULL AND OPEN COMPETITION

BIOMETRICS API

1. CONTRACTING AGENCY: MICC – West Point

2. DESCRIPTION OF ACTION: This justification authorizes and approves a firm fixed price contract for research and development of a Biometrics Application Program Interface (API) at West Point, NY. Fiscal Year 2013 RDT&E funding has been provided for this contract.

3. DESCRIPTION OF SUPPLIES/SERVICES: The United States Military Academy (USMA) has a requirement for research and development of a Biometrics API consisting of a secure container for sensor and analysis engine applications and sensor data fusion algorithms to support a multi-modality Active Authentication platform, develop cryptographic algorithms and protocols using biometrics features to support the ability to transmit and receive data security using a key exchange that is client-verified, and conduct technical subject matter expertise support for emerging behavioral based biometric capabilities and platforms. Computer security is essential in protecting safety of Army users as well as protecting Army information. This requirement is essential in continuing to support Army computer security and reducing safety risks resulting from continual and increasing cyber threats.

The tasks under this contract shall be completed by 30 September 2014.

The total estimated dollar value of this acquisition is .

4. AUTHORITY CITED: This action is authorized under provisions of 10 U.S.C.

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.

5. REASON FOR AUTHORITY CITED:

In accordance with FAR 6.302-1(a)(2)(iii), International Biometric Group (IBG), LLC is the only company that can support the requirements of this effort. As described in the following sections, the experience that IBG possesses is critically important to meeting cost, performance, and timing required of West Point. Award to any other source would result in substantial duplication of cost to the Government and most importantly, unacceptable delays in fulfilling requirements.

a. Background:

This requirement necessitates an in-depth technical and operational understanding of the Army operational environment, Army policy requirements, biometric technologies, and current novel research into stylometric/behavioral biometrics. USMA has supported a collection of program requirements that provide the foundation and integration components for a broader DARPA program focused on expanding research and the development of biometrics that can validate an individual’s identity without interrupting what they are doing. The focus of this effort is on “cognitive fingerprints” rather than physical biometrics. The biometrics program is creating a next generation biometric capability built from multiple stylometric/behavioral modalities using standard Department of Defense (DoD) computer hardware capabilities and incorporating Army operating environments, that result in a “cognitive fingerprint.” The new biometrics must support capture using hardware technologies already part of a standard Army office environment. A heavy emphasis is placed on validating these new and novel biometrics with empirical tests to ensure they would be effective in large-scale deployments. The intent is that multiple modalities will be used to collectively develop an aggregate attestation of identity.

This solicitation supports the second phase of a multi-phase effort. The objective of this requirement is to provide platform development which includes; development of a secure container for process execution, biometrics based encryption for data communication, algorithm development for sensor fusion, and subject matter expertise to include researcher engagement and empirical data collection and analysis in support of revolutionary technologies regarding software-based biometric modalities that can capture aspects of the cognitive fingerprint.

In this new phase of the program, USMA will work closely with other DARPA Biometric researchers and The Communications-Electronics Research, Development and Engineering Center (CEDREC). The contractor tasks to be completed under this effort are critically reliant on a detailed understanding of all phase one work, a broad experience in current biometric technologies, and deep experience in developing frame works and evaluating current and emerging biometric modalities for effectiveness. The contractor must provide the expertise to execute the required tasks and meet contract deliverable requirements.

b. Alternatives:

i. Performing the required research and development effort using on hand USMA researchers and knowledge. This option is not acceptable given the lack of available Government personnel in terms of time and availability. If the availability of additional “over-hire” personnel were possible, these personnel would not possess in-depth knowledge of the performer technologies including how the modality works.

ii. Competing this requirement in the open market. As mentioned in the following justification below, this is not a feasible option.

c. Justification: The past performance by IBG in support of the West Point active authentication research program consisted of an in-depth analysis of current biometric authentication protocols and direct consultation to and advisement of researchers participating in the DAPRA Active Authentication program on biometric development best practices and standards. This preparatory work is critical to the foundationally ground-breaking development of multi-modal active authentication protocols.

Even more specifically, the understanding of applying these to DoD environmental characteristics is essential to the effort. A new vendor would require extensive research to be in a position to contribute to the complex development, modeling, and assessment of new active authentication protocols. For an established biometrics vendor, the time required to become familiar with the project’s required experience is not supportable from a timeline perspective. The required areas of foundational experience/knowledge include:

1. existing state of multi-modal continuous authentication protocols and their applicability in DoD environments,

2. the biometric effectiveness data taxonomy developed the previous two

(2) contracts under phase one,

3. and platform integration requirements for the 12 biometric modalities developed under work conducted during the previous two (2) contracts under phase one.

The Government estimates that for a contractor to gain this required foundational experience/knowledge it would take a minimum of three (3) months (960 hours - two personnel per task listed above, one month per task). The cost for such labor is estimated to exceed $268,000.00 (based on labor and travel costs) and is not reasonably expected to be recovered through competition.

The Government has determined that IBG is the only company that can meet the ultimate completion date of 30 September 2014 based on the foundational experience/knowledge that IBG already possesses from completion of phase one work under the previous two (2) contracts.

Considering the additional three (3) months required to gain foundational experience/knowledge, no other company can complete this required effort by the 30 September 2014 timeline.

d. Prior Acquisitions: USMA conducted two efforts in the field of stylometric active authentication biometrics: the first focusing on a review of the “biometric state of the art” and an additional specific technical report requested near the end of the original period of performance.

To support the initial effort, USMA conducted a competitive acquisition.

This award went to the International Biometric Group (IBG) (W911SD-12- P-0035). Near the end of the period of performance West Point conducted an additional technical review of biometric technologies that was an extension of the existing work. As a result a follow-on sole source contract was awarded to IBG (W911SD-12-P-0424).

e. Impact: Should this request be denied, a minimum three (3) month delay in completion of this effort would ultimately delay completion of the larger development effort involving both DARPA and CERDEC. This delay translates into a significant loss of progress, potential failure of the broader program, waste of resources dedicated to other tasks of the effort, and the Army’s continual risk of security threats.

6. EFFORTS TO OBTAIN COMPETITION:

A sources sought notice was posted on the Army Single Face to Industry (ASFI) on 23 August 2013. The notice invited interested concerns to provide capability packages to MICC – West Point on 29 August 2013.

7. ACTIONS TO INCREASE COMPETITION:

This requirement meets the thresholds in FAR 5.201(b)(1)(i), therefore the notice required in FAR 5.2 will be posted to Federal Business Opportunities (FedBizOpps or FBO) via the Army Single Face to Industry (ASFI) prior to commencing award. As required by FAR 5.207(c)(16)(ii), the synopsis will include a statement that all responsible sources may submit a capability statement or proposal, which shall be considered.

It is anticipated that the Government will seek Government use rights for any resulting data generated from this contract effort. As a result, this Open Business Model will allow the Government to potentially minimize future sole-source requests especially when it comes to the potential production phase of this program.

8. MARKET RESEARCH:

The market research conducted included: a review of FBO, the Small Business Administration’s (SBA) Dynamic Small Business Search (DSBS), GSA Advantage, historical contract information, the DARPA BAAs, and the sources sought posting.

9. INTERESTED SOURCES:

Although market research demonstrates that there is more than one (1) small business firm in the biometric industry, no firms were indentified with the expertise available to support this research and development effort as described in the sources sought posting and evaluation of the capabilities submitted by the firms above.

To date, no other sources have expressed an interest in writing.

In addition, the notice required by FAR 5.201 shall be published and any proposals received shall be considered.

10. OTHER FACTS:

a. Procurement History:

Contract Number

Contractor Type of Set-

Aside

Contract Amount

Period of Performance

Description of Contract

W911SD-12-

P-0035

International Biometrics Group, LLC

SB $172,400

.00

12/13/11 – 9/4/12

Biometrics Research

W911SD-12-

P-0424

International Biometrics Group, LLC

Unrestri cted

$79,750.

9/29/12 – 5/29/13

Biometrics

SME

W911SD-12-P-0424 was awarded to IBG as a follow-on sole source contract to a previously competed action.

b. Acquisition data availability:

The development of novel behavioral based biometrics and integrating them into Army IT systems in operational environments is primarily research and development. The requirements for this effort were announced in a sources sought to determine the availability of qualified respondents, however none of the submissions demonstrated the capability to execute the requirement.

Further, the detailed knowledge of the ground-breaking novel behavioral biometrics that could only be obtained through work with the DARPA BAA performers, would take any new organization three (3) to four (4) months of technical integration to be able to understand the data taxonomy and normalization requirements. The tasks have minimal overlap in background;

the secure container design for the sensors and analysis engine applications and the sensor data fusion algorithms are dependent on first understanding the emerging behavioral biometrics being integrated into the biometric authentication scheme. This delay is not supportable under the required timeline.

c. Unusual and compelling urgency: N/A

d. Subcontracting Competition:N/A

Approval

Based on the foregoing justification, I hereby approve the procurement of research and development for a Biometrics API on an other than full and open competition basis pursuant to the authority of 10 USC 2304 (c)(1), as implemented by FAR 6.302-1, subject to the availability of funds, and provided that the services herein described have otherwise been authorized for acquisition.

Signature: ____________________________ Date: ___________________ Joseph W. Farrell Special Competition Advocate MICC - Fort Eustis

FARRELL.J

OSEPH.W.1

229106321

Digitally signed by

FARRELL.JOSEPH.W.1229106321

DN: c=US, o=U.S. Government, ou=DoD, ou=PKI, ou=USA, cn=FARRELL.JOSEPH.W.1229106 Date: 2013.11.04 07:41:13 -05'00'