Genesis_Bridge_Contract_J A.pdf

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Control No. 14-003

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JUSTIFICATION REVIEW DOCUMENT

FOR OTHER THAN FULL AND OPEN COMPETITION

Program: Comprehensive Engineering and Logistics Support for the Intelligence

Community

Authority: 10 U.S.C. 2304(c)(1) as implemented by FAR 6.302-l, Only one responsible source and no other supplies or services will satisfy agency requirements

Amount: $32 8-4501, Operations and Maintenance (O&M) Funds

Prepared by: Typed Name: Ms. Iskra Martinez DSN: 328-4501

Title: Contracting Officer’s Date: 25 Nov. 13 Representative (COR) E-mail: iskra.martinez.civ@mail.mil

Contracting Officer: Typed Name: Mr. Christos Daoulas DSN: 328-4527

Title: Contracting Officer Date: 5 Dec. 13 E-mail: christos.j.daoulas.civ@mail.mil

Technical Representative: Typed Name: Ms. Iskra Martinez DSN: 328-4501

Title: Contracting Officer’s Date: 25 Nov. 13 Representative (COR) E-mail: iskra.martinez.civ@mail.mil

Requirements Typed Name: Mr. Hugh Robinson DSN: 328-4496 Representative: Title: Chief, G-4 Plans & Date: 25 Nov. 13

Programs E-mail: hugh.g.robinson.civ@mail.mil

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Justification and Approval for Other than Full and Open Competition

1. Contracting Activity: United States Army Intelligence and Security Command (INSCOM) Acquisition Center, 8825 Beulah Street, Fort Belvoir, VA 22060

2. Description of Action: The purpose of this Justification and Approval (J&A) is to execute a sole-source bridge contract with CACI, Inc. (14370 Newbrook Drive, Chantilly, VA 20151-4206) to continue the requirements of logistics and engineering support at Contingency locations under Genesis III Task Order W911W4-09-D-0001-0024 until a new task order under the INSCOM Global Intelligence (GI) contracts is awarded. It is anticipated that the GI contracts will be awarded in late September 2014.

The bridge contract will have a period of performance (POP) of 9 months. The POP of Task Order 0024 ends on 27 March 2014. The bridge contract’s POP will be from 28 March 2014 through 27 December 2014, and will include two 3-month option periods. If exercised, the options’ POPs will be from 28 December 2014 through 27 March 2015 and 28 March 2015 through 27 June 2015. The bridge will be a cost-plus-fixed-fee (CPFF) contract with an anticipated value of Ms. Iskra Martz.

3. Description of Services: Genesis III provides the U.S. Army G-4 flexible, comprehensive logistics & engineering support for INSCOM, INSCOM’s major subordinate commands (MSCs) and other members of the intelligence community (IC) at contingency locations around the world. The contract’s support services encompass comprehensive worldwide engineering and logistics support for ground-based, airborne and facility intelligence electronic warfare (IEW) systems including associated electrical and mechanical systems and subsystems. The contract also includes transportation, shipping, training, facilities engineering and maintenance of worldwide Sensitive Compartmented Information Facilities (SCIFs). Furthermore, Genesis III provides sustainment support at designated locations for Quick Reaction Capability (QRC) deployments; training; war-game exercises;

amplified operational tempo mission surges; maintenance and repair services for security;

Signal Intelligence (SIGINT), Measurement & Signature Intelligence (MASINT); Counter Intelligence / Human Intelligence (CI/HUMINT) systems; hardware & software suites;

networks and facilities.

4. Authority Cited: The statutory authority permitting other than full and open competition is 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.

5. Reason for Authority Cited: CACI is the only source that can provide uninterrupted services, cost effectively and in a timely manner until the GI contracts are awarded. The implications of soliciting this effort (1) will result in substantial duplication of costs to the Army, INSCOM, and the Intelligence Community that are not expected to be recovered through competition; and (2) will result in unacceptable delays in fulfilling the agency’s

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requirements at a critical time as the Army winds down its combat operations in Afghanistan.

CACI is providing the engineering and logistical support services to INSCOM during the drawdown of U.S. Forces for Operation Enduring Freedom (OEF) and transition to a Resolute Support Mission (RSM). As coalition forces transition to an enduring mission, the overall troop strength and presence across Afghanistan will significantly reduce. The drawdown of forces has inherent risks and the exact time table for execution will change based on the threat and ability of the Afghan National Army to assume control of the battle space. Notwithstanding these variables, drawdown actions and the transition to RSM must be completed before 31 December 2014. The 9-month base period of the proposed bridge contract, ending on 27 December 2014, is in accord with the Resolute Support Mission of completing drawdown activities before the end of 2014.

CACI has been inextricably engaged in the planning and execution of the support plan for the drawdown and transition to RSM which includes the deconstruction and decommission of facilities as well as the Redistribution, Redeployment, Reset, Return and Disposal (R4D) mission for Military Intelligence Non-Standard Equipment (NSE). The delivery of these services has been synchronized to provide continuity of support in an expedient manner to meet time-sensitive intelligence requirements as forces withdraw. The familiarity CACI has with the theater’s mission enables CACI to develop methodologies and solutions for providing drawdown services that are aligned with the strategic and operational requirements of U.S. Forces-Afghanistan (USFOR-A), Commander International Security Assistance Force (COMISAF) and IC partners. The implications of soliciting this effort and changing vendors during the drawdown will impose major operational risks to U.S.

Forces and, disrupt ongoing efforts to support critical events. The inability to perform these critical functions in a seamless manner throughout the transition period would significantly degrade INSCOM's ability to provide actionable intelligence to the war-fighter. This contract ensures that the Army continues to receive the support it needs until the Army places a task order for similar services under the GI IDIQ contract.

Related to the work that CACI will perform under this contract is the support that CACI will continue to perform under Task Order 25 - CONUS/ OCONUS engineering and logistics support to INSCOM MSCs and IC partners. Under Task Order 24 (supporting OEF) and Task Order 25 (CONUS/OCONUS), CACI maintains and stores NSE – including equipment returned from OEF – at its Secure Compartmentalized Information Facility (SCIF) and logistics warehouse facility in Springfield, VA. INSCOM utilizes this NSE to support emerging requirements of Army Service Component Commands (ASCC), the Global Response Force (GRF), Army Force Generation (ARFORGEN) training requirements and/or the Foundry Program. Awarding this contract to another vendor would require that vendor to either (1) provide a SCIF and logistics warehouse, or (2) coordinate the maintenance and storage of the NSE with CACI and rely on CACI to provide that NSE when needed for other missions. This sole source contract provides INSCOM seamless support as there will only be one vendor that is responsible for these assets. The cost of an additional SCIF, together with spares and additional program support, is estimated at $13.5M, approximately 30% of the total value of this sole source

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contract. And there could be a disruption of services if a new vendor had to coordinate with CACI for the NSE (some of which is in short supply with acquisition lead times in excess of nine (9) months), resulting in delays in support and mission degradation negatively impacting the war-fighter’s ability to conduct drawdown operations. The practical and prudent decision would be to execute a sole-source contract and continue with the current service provider until the eventual transition to the GI contract.

Additionally, there are economies of scale that have been achieved as a result of CACI providing support to the theater since OEF began. The experience CACI gained supporting USFOR-A and IC partners has resulted in an optimization of manpower/staffing as well as an optimization of inventory levels of critical spares necessary to sustain the readiness of Intel systems and associated facilities. This knowledge and experience of the war-fighter’s requirements is not easily transferrable. Another contractor would require a minimum of 45 days to transition and build-up the necessary support structure; and the efficiencies lost by having a new contractor provide support during this critical juncture (e.g., during the OEF drawdown and prior to the transition under the GI IDIQ) will cause delays and jeopardize INSCOM’s to meet the theater’s mission requirements. The potential inability to perform critical logistics functions in a seamless manner during the drawdown will negatively impact ongoing operations. INSCOM recognizes that there could be a transition to a different vendor when this effort is awarded under the GI contracts. But making a transition at the end of the current task order during the drawdown, and then again after the GI contracts are awarded, would be highly disruptive to the Army’s operations, resulting in a realistic potential of three contractors within a 12 – 15 month period. The continuation of services with CACI provides operational forces with a level of expertise vital to match the operational tempo (OPTEMPO) in Afghanistan.

6. Efforts to Obtain Competition: The proposed bridge contract is needed until the award of the multi-award GI contracts, which are anticipated to be awarded in late September 2014. In response to the GI requirement, over 300 participants (large and small businesses) attended an information session. After award of the multi-award GI contract, a task order for the Genesis requirement will result from fair-opportunity competition.

7. Actions to Increase Competition: On 15 March 2013, INSCOM issued a request for proposal (RFP) for the GI Support Services Contract under full and open competition. The GI contracts will be awarded to multiple vendors and all post-award requirements will be competed via fair-opportunity among the multiple-award vendors. The bridge contract is needed until the task orders under the GI contracts are awarded.

8. Market Research: In December 2013, a search of General Services Administration

(GSA) Professional Engineering Services Schedule 871-5 for Integrated Logistics Support revealed that there are:

462 contractors listed on the GSA Schedule 871-5 which supports ‘Integrated Logistics

Support’;

137 contractors listed on the GSA Schedule 874 V which supports ‘Logistics Worldwide’;

167 contractors listed on the GSA Schedule 03FAC which supports ‘Facilities Maintenance

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and Management’;

53 contractors listed on the GSA Schedule 00CORP which supports ‘The Consolidated Schedule’.

Additionally, a Small Business Administration (SBA) Quick Market Search for engineering and logistical services yielded approximately 5,500 businesses that performed similar work in the Washington metropolitan area. These findings are not new to the command, as on 15 March 2013, INSCOM issued a request for proposal (RFP) for the Global Intelligence Support Services Contract under full and open competition. This RFI revealed multiple contractors who can provide logistical and engineering services in support of Task Order Alpha of the GI contract which encompasses the Genesis support to contingency operations. The anticipated award of the GI contracts is September 2014. Task Order Alpha is expected to be awarded by January/February 2015.

Analysis of the market research revealed that although these services are readily available in the market place, the current vendor (CACI) has a labor cost advantage over its larger competitors (i.e. Northrop Grumman, Lockheed Martin, ManTech). Additionally, the current efforts in support of Overseas Contingency Operations require the vendor to provide separate Secure Compartmentalized Information Facility (SCIF) as well as logistics warehouse. This market research did not confirm whether other vendors have an available SCIF/warehouse facility. Even though INSCOM’s major concern is associated with the disruption of services, this research revealed that the cost of establishing a separate Secure Compartmentalized Information Facility (SCIF), Program Management Office (PMO) structure and logistics warehouse would create a duplication of cost to the Government will not be recovered through competition.

This research also identified other contractors who are currently providing services in the CENTCOM AOR (i.e. ISIS, FASCOM, Radiance, etc.). The level of services by these contractors is limited in scope, size and complexity which pose a risk to the war-fighter’s mission. The level of services required under this contract calls for a mature/large contractor who has the ability to field, train, maintain, and integrate systems and facilities, and synchronize the delivery of these services in an expedient manner to meet time-sensitive intelligence requirements. The current vendor (CACI) has performed the above capabilities for over 10 years. Therefore, executing a sole-source bridge contract with CACI provides the government with the most cost effective and timely acquisition strategy until GI is awarded. No other vendor has the capacity to fulfill the immediate requirement during such a short window without posing a substantial duplication of costs to the Government as it relates to support cost (e.g. SCIF/warehouse facility, transition cost, staffing).

9. Interested Sources: The market research obtained in response to the GI requirement revealed various contractors are interested sources.

10. Other Facts: None.