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Control No. JA-11-0267

JUSTIFICATION REVIEW DOCUMENT

FOR OTHER THAN FULL AND OPEN COMPETITION

1. Contracting Activity: The Army Contracting Command-National Capital Region (ACC-NCR), 200 Stovall Street, Alexandria, VA 22331-1700

2. Description of Action: The purpose of this Justification and Approval (J&A) in accordance with (IAW) FAR 52.217-8 Option to Extend Services, for six (6) months period for approximately $3.1M is requested in order to maintain the level of support for the Publications Content Management Program (PCMP) contract W74V8H-06-D- 0021, supporting the Enterprise Content Management Services (ECMS). This contract is an Indefinite Delivery, Indefinite Quantity (IDIQ) Labor-Hour (LH) contract which was awarded as a Competitive Small Business set aside to Dynamic Technology Systems, Inc. (DTS) on 30 September 2006. The period of performance was a base and four (4) one year option periods expiring on 29 September 2011. The task orders awarded from this contract have been firm fixed-price (FFP). This 6 month extension will allow completion of a competitive re-compete. This contract will continue to be funded with Operations and Maintenance Army (OMA) funds.

3. Description of Supplies/Services: The Army Publishing Directorate (APD) is responsible for managing Army departmental publications and the electronic publishing process, including the life-cycle management of departmental forms, in accordance with Army Regulation (AR) 25-30. The contract extension will provide the Program Management and Support Services necessary to design, build, operate, maintain and sustain the technology platforms, software tools and applications necessary to accomplish that mission. The existing infrastructure and applications support the departmental publishing mission as well as other critical Army business processes. The existing system is known as the Enterprise Content Management Service (ECMS) and was known in the past as the Army Publishing Content Management System (APCMS) and the Publications Content Management Program (PCMP). Contractor support provided under the contract includes not only developing, operating, maintaining and sustaining the IT systems, but also developing software applications that facilitate all aspects of the publishing mission and other critical Army missions. Although to many, the “face” of ECMS is the “My Forms” portal, with identity authentication via Army Knowledge Online (AKO), ECMS provides a wide range of services that support critical business processes used by soldiers and civilians throughout the Army. These services are available, and are utilized, on a 24x7, 365 day per year basis, and include services that directly support war-fighters. All electronic media only (EMO) Army departmental publications are made available to Soldiers via an electronic library and web site hosted by ECMS, as are all departmental forms. The electronic publishing process for all departmental media, including training and doctrine, technical and electronic, and administrative publications, is supported by ECMS.

ECMS also supports the Officer Evaluation / Non-commissioned Officer Evaluation automated process (sponsored by HRC), the automated medical evaluation board (MEB) process (sponsored by Army Medical Command), the Army civilian employee entry on duty process (under development - sponsored by G1), and other critical applications currently in service or being developed.

This contract provides:

Development and implementation of automated business processes, reengineering products, solutions, and best practices to support the efficient and rapid deployment of IT systems, modification of systems, updates, system integration activities, migration and transformation strategies.

System interfaces for data transfers; contingency planning and support for systems not identified that will be required for future interfaces in ECMS.

Responsive and cost-effective IT support solutions to respond to customer requirements and challenges, to include day-to-day needs, rapid turnaround on problem resolution, support of emerging technologies, and support of continuity of operations and business recovery strategies.

Proactive monitoring, management, and support of the IT services and applications that can scale to the growing demands of Army business to deliver high performing services to users.

Support of emerging future force structures, and provides certified personnel to support the ECMS services and applications that support Army-wide customers and other organizations.

This action will extend PoP to 29 March 2012. The estimated total value is $3,141,876.96. There are no options as the contract states, “The total duration of this contract, including the exercise of any options under this clause, shall not exceed sixty (60) months; plus the six (6) months permitted under 52.217-8.

4. Authority Cited: The statutory authority permitting Other Than Full and Open Competition for this acquisition is 10 USC 2304(c) (1); as implemented in FAR 6.302-1(a)(2). Only one responsible source and no other supplies or service will satisfy the agency requirements.

5. Reason for Authority Cited: Pursuant to FAR 6.302-1(a)(2)(iii)(A), this requirement is available only from the incumbent contractor for services described above. Award to any other source would result in substantial non-recoverable duplication of cost to the Government.

A contract extension is critical to the APD mission because the immediate impact of a service disruption includes the cessation of the following vital services provided to soldiers:

The Enterprise Content Management Service (ECMS) “My Forms “portal which operates through identity authentication via Army Knowledge Online (AKO). ECMS provides a wide range of services that support critical business processes used by the soldiers and civilians throughout the Army. These critical processes would not be accessible.

The AKO services are available and are utilized on 24x7, 365 day year basis, and directly support the war-fighters would cease.

All electronic media Army departmental publications, including training and doctrine, technical and administrative publications which support Officer and Non-commissioned Officer Evaluations processes would not be available.

The current contract, W74V8H-06-D-0021 expires on 29 September 2011 and as such, it is necessary to extend services for a period of 6 months to prevent a lapse in services, as well as provide time to conduct a full and open competition for a follow-on contract. ADP has been directed by the CIO/G-6 to move from the Army Processing Center (Green Space) to DISA. This move is very likely to occur during this 6-month extension. An extension for six months of services is required based on the need for continued critical mission support services. A competitive procurement of the services prior to 29 September 2011 is not feasible due to a three-week mobilization period that is required, along with a 30-day phase-in, phase-out period. The three week mobilization coupled with the 30 day phase-in/out is estimated to require duplicative, non-recoverable costs of approximately $700,000.00 (payments to 2 contractors during the phase-in/out period at the contract rate. Current contract cost is approximately $100,000.00 per week).This extension will ensure uninterrupted critical APD services to client forces worldwide, as well as provide sufficient time for development of requirements documentation, acquisition strategy, required transition activities, phase-in and phase-out activities, and other activities associated with the process of securing a new contract and contractor for follow-on activities. The scope of work for the extension will remain relatively unchanged; only an extension of current services is required.

The DTS team’s unique qualifications for fulfilling the contract requirements are as follows:

DTS has over twenty four (24) years cumulatively of experience, and five (5) years as the current contractor. DTS has applied absolute and total focus of all available material and personnel resources toward assuring the Mission Critical Success of ADP and to all its customers and end-users. DTS employs a staff of highly skilled audio visual design engineers, project managers, and installation technicians who possess a wealth of experience in design, installation, integration and maintenance of complex systems as is facilitated in the PCMP/ECMS system. As one of the few AV/IT integrators to be successfully certified ISO 9001-2008, DTS manages the convergence of leading-edge infrastructures that regulate voice, video and data communications by taking a global approach to ensure the successful integration of the diverse systems needed to run today’s state-of the-art facilities. DTS’ AV/IT team ensures successful project completion from conception to closeout and provides niche services in requirements mission critical requirements such as PCMP/ECMS which operates in both classified and non-classified environments. DTS’ areas of expertise relative to the PCMP/ECMS systems that completely qualifies them to fulfill the contract requirements are:

Installation & Maintenance, Help Desk Services Software Support, and Network Support & Administration

The revolutionary approach to business automation using these specific components has never been implemented at the enterprise level by any other contracting team other than the DTS team. The ECMS solution developed under the existing PCMP contract brings together many enterprise, advanced, world-class, software and hardware components in one of the most successful enterprise business automation solutions in the world. The solution consists of several IBM software and hardware components including FileNet, an enterprise repository and workflow technology recently acquired by IBM. The solution also includes an enterprise implementation of Silanis digital signature software and several other third party applications.

Replacing this team without an extensive request for proposal process with a very detailed requirements document and sufficient time to review and analyze a contract team’s proposal and past performance could have severe negative impacts on the existing enterprise solution. In addition, a new vendor, at this critical time, without the immediate experience and historical knowledge to execute this monumental unpredicted effort would greatly increased the possibility of delays and disruption. It is more cost efficient for the Government to endorse this short term extension for this sensitive and complex system as transitioning to a new vendor would result in a substantial duplication of costs in which the Government could not recover through competition. The anticipated cost for this extension is approximately $3.1M. This vendor has continually maintained a satisfactory level of performance to this organization for the past five years and there is no indication that improved services or lower costs are feasible through potential acquisition to another source for a six month period.

The alternative to the Government is to allow the contract to expire on 29 September 2011. This alternative is not feasible because of the many critical services to the soldiers and civilians, as discussed previously being interrupted, causing harm to the warfighters.

The most feasible and practical alternative is to extend services for an additional six (6) months to allow services to continue without interruption.

6. Efforts to Obtain Competition: Based upon market research, in June 2011, DTS is the only source capable of providing interim, short term extension of services, without incurring unacceptable non-recoverable duplicative costs, and unacceptable delays/ disruption in APD programs services.

7. Actions to Increase Competition: A re-compete between small businesses will take place in FY12; with a contract award NLT 28 March 2012 timeframe. Based on recent market research (see 8 below), the re-compete process identifies those competitive sources for an enterprise solution of this magnitude will attract many vendors.

Control No. JA-11-0267

8. Market Research: Market research was conducted through evaluation of the GSA IT Schedule 70 and review of other contracts with similar expertise requirements across the specific labor categories and functions in order to perform mission support of the ECMS. The spreadsheet is attached with documentation on validation of this market research conducted on 01 June 2011. The history of this requirement and the results of the market research have demonstrated that there is sufficient interest for a competitive solicitation in FY12. At present time, DTS is the only firm capable of meeting the noted requirements within the required time frame. Any future acquisition will be synopsized in accordance with FAR 6.302-1(d).

9. Interested Sources: At this time APD is not aware of any specific interested sources but anticipate a large response during the competitive re-compete process.

10. Other Facts:

a. Procurement history.

(1) The Publications Content Management Program Contract Number W74V8H-06-D-0021 was awarded to DTS on 30 September 2006. Period of Performance and Period Pricing are as follows:

Base Period of Performance: PoP: 30 September 2006 to 29 September 2007

Estimated Price: $6, 087, 206.36 + Phase Out Pricing $2,146,176.00 = $8,233,382.36

Option Period One: PoP: 30 September 2007 to 29 September 2008

Estimated Price: $6,437,154.00

Option Period Two: PoP: 30 September 2008 to 29 September 2009

Estimated Price: $6,552,934.68

Option Period Three: PoP: 30 September 2009to 29 September 2010

Estimated Price: $6,800,550.12

Option Period Four: PoP: 30 September 2010 to 29 September 2011

Estimated Price: $6,561,424.80

Total Award Value: $28,688,445.96

There have been five (5) task orders, W74V8H-06-D-0021-0001 through 0005 awarded under IDIQ contract W74V8H-06-D-0021. The cumulative estimated values of those task orders total $21,414,233.94.

(2) This action was a Competitive Small Business award.

(3) No unusual patterns have occurred in this contract.

The contract states, “The total duration of this contract, including the exercise of any options under this clause, shall not exceed 60 months; plus the six (6) months permitted under 52.217-8. It is the intent to award one task order during the six (6) month extension.

b. Acquisition data availability: APD is exercising due diligence is preparing an acquisition package to included performance work statement and technical data that will be appropriate for a follow-on full and open competition acquisition. Because of the complexity and magnitude, it takes time and numerous reviews of the many documents required for the re-compete acquisition package.

The current milestones chart for the follow-on procurement is as follows:

Revised Procurement Request Received 03-Oct-11 Procurement Package Complete 21-Oct-11 Solicitation Issued 31-Oct-11 Solicitation Closed/Proposal Receipt 09-Jan-12 Technical Evaluation Requested 11-Jan-12 Technical Evaluation Received 30-Jan-12 Pre-Negotiation Objective Approved 06-Feb-12 Negotiation/Discussions Completed 13-Feb-12 Post Negotiation Approved/Source Selection Approved 05-Mar-12 PreAward Survey Received (if applicable)

Contract Award 26-Mar-12

c. Subcontracting competition. The DTS team obtains competition in its subcontracting to ensure the Army is receiving the best possible value for subcontracted services and the acquisition of hardware and software. The DTS team works closely with APD in this process and has done an excellent job over the past four years of providing competitive value in all subcontract actions.

Approval

Based on the foregoing justification, I hereby approve the procurement of an enterprise solution for an estimated $3.1M on an Other Than Full and Open Competition basis pursuant to the authority of Title10 U.S.C.2304(c)(1) subject to availability of funds, and provided that the services and property herein described have otherwise been authorized for acquisition.

Date: __September 28, 2011_____________ Signature: _ E-Signed by C OU IER E IZABE H B 1009258821

VE I authen ic ty w h App ve t

Elizabeth B. Cloutier Special Competition Advocate