SOLICITATION NOTICE
D -- Joint Information Environment (JIE) Engineering and Testing Support
- Notice Date
- 11/24/2014
- Notice Type
- Fair Opportunity / Limited Sources Justification
- NAICS
- 541712
— Research and Development in the Physical, Engineering, and Life Sciences (except Biotechnology)
- Contracting Office
- Defense Information Systems Agency, Procurement Directorate, DITCO-Scott, 2300 East Dr., Building 3600, Scott AFB, Illinois, 62225-5406, United States
- ZIP Code
- 62225-5406
- Archive Date
- 12/24/2014
- Point of Contact
- Brittney Galle,
- E-Mail Address
-
brittney.e.galle.civ@mail.mil
(brittney.e.galle.civ@mail.mil)
- Small Business Set-Aside
- N/A
- Award Number
- HC1028-08-D-2015
- Award Date
- 11/20/2014
- Description
- JUSTIFICATION & APPROVALS (J&A) FOR FEDERAL ACQUISITION REGULATION (FAR) SUBPART 16.5 ACQUISITIONS EXCEPTION TO FAIR OPPORTUNITY Multiple Award Schedule/Multiple Award Contract (MAC) Orders under MAC/Fair Opportunity, FAR 16.505, Defense FAR Supplement 216.505-70, Procurement Guidance Instructions 216.505-70 Purchase Request Number: To be determined (TBD) Contract Number: HC1028-08-D-2015 Task Order Number: TBD Procurement Title: Joint Information Environment (JIE) Engineering and Testing Support Contracting Office: Defense Information Systems Agency (DISA) - Defense Information Technology Contracting Organization (DITCO) - Scott/PL83 Estimated Value: $3.5M Authority: FAR 16.505(b)(2)(i)(B) JUSTIFICATION FOR AN EXCEPTION TO FAIR OPPORTUNITY Number: JA15-007 Upon the basis of the following justification, I, as the Procuring Activity Competition Advocate, hereby approve this exception to fair opportunity, pursuant to the authority of FAR 16.505(b)(2)(i)(B). 1. REQUIRING AGENCY AND CONTRACTING OFFICE: a. Requiring Agency: DISA, Mission Assurance Executive (MAE)/MA31 P.O. Box 549 Fort Meade, Maryland 20755-0549 b. Contracting Office: DISA/DITCO/PL8313 2300 East Drive, Building 3600 Scott Air Force Base, Illinois 62225-5406 2. NATURE/DESCRIPTION OF ACTION: The purpose of this action is to issue a new task order (TO) to Booz Allen Hamilton (BAH) against ENCORE II contract HC1028-08-D-2015 for continued JIE support. The TO will be issued as a firm-fixed-price (FFP) for a 12-month period to provide the necessary engineering support, to include additional testing execution and documentation. Tasks associated with this requirement include technical lab support in developing documentation and executing network engineering, and the build-out of the JIE lab. The 12-month period will be funded with fiscal year (FY) 15 operations and maintenance funds, with an estimated life cycle value of $3.5M. JIE Engineering Support, 831505494, ENCORE II-JA15-007 3. DESCRIPTION OF SUPPLIES/SERVICES: DISA/MAE is working to support the JIE Security Technical Synchronization Office (JTSO) in developing and integrating a secure JIE. The objective of the JIE is to establish a single security architecture (SSA) that, when implemented Department of Defense (DoD)-wide, will collapse network security boundaries, reduce external attack surfaces, and standardize the management, operational, and technical security controls. This architecture will ensure the confidentiality, integrity, and availability of DoD's information assets within all required mission contexts while providing rapid attack detection, diagnosis, containment, and response. JIE will ensure the secure dynamic information sharing within the DoD and with our mission partners by shifting the focus from securing the systems and networks to securing data and its use. It will also enable the DoD to consolidate and decrease the complexity of the network and its operations, which will enable long-term cost savings. This contract supports full range of program technical management, enterprise architecture design, engineering, certification and accreditation (C&A), deployment, and lab and property management services in order to fully implement the enterprise-wide SSA for DISA. The continued extension of support of these programs includes testing execution and documentation of DISA/MAE's JIE lab. Prior to implementation, the contractor shall complete the testing of systems in support of JIE to include, but not limited to, associated test plans and test reports. The contractor shall develop, execute, report, and maintain testing documentation required for all functional vulnerability testing as well as contractor software, hardware, firmware testing and any configuration changes testing. The contractor shall generate C&A documentation in order to achieve and maintain accreditation for all of its systems in support of these programs. In addition, the contractor will provide support to the JIE Emergency Operation Center/Joint Management Network (JMN) Integrated Design Team as well as assistance and Information Technology (IT) Service Management expertise in the design of the JMN and Joint Management System, including the development of use cases, service descriptions, engineering documentation, briefings, whitepapers, requirements documentation, and other required artifacts. The estimated life-cycle value is $3.5M. The period of performance (POP) is as follows: 12 month period: November 5, 2014 - November 4, 2015 4. SUPPORTING RATIONALE, INCLUDING A DEMONSTRATION THAT THE PROPOSED CONTRACTOR'S UNIQUE QUALIFICATIONS, OR THE NATURE OF THE ACQUISITION, REQUIRES USE OF AN EXCEPTION TO FAIR OPPORTUNITY: a. Exception to Fair Opportunity: FAR 16.505(b)(2)(i)(B). Only one awardee is capable of providing the supplies or services required at the level of quality required because the supplies or services ordered are unique or highly specialized. b. Description of the Justification: The current contractor has built a level of expertise over the course of the current Federal Systems Integration and Management (FEDSIM) Anti-Drug Network (ADNET) contract awarded to Booze Allen Hamilton (BAH) supporting the JIE program. This contractor continuity gives the government the benefit of having already trained contractor personnel with the familiarity of establishing a SSA. Introduction of a new contractor Page 2 of 7 JIE Engineering Support, 831505494, ENCORE II-JA15-007 at this time would require considerable resources, time, and effort to build the same level of expertise. c. Justification: (1) Minimum Government requirements: Only one source is capable of responding, due to the unique or highly specialized nature of the supplies or services. BAH is capable of immediately continuing this work without causing delays that would arise from having to wait for a new contractor to obtain the requisite subject matter expertise to be capable of meeting the requirements of this effort. Such delays would jeopardize the ability to meet expected capability upgrades as laid out by the DoD Chief Information Officer (CIO) and JTSO. BAH is providing the expertise DISA needs to complete the current set of DISA-specific requirements for lab development, documentation, and execution. Awarding a contract to perform this work to any other contractor would include costly time to hire and onboard personnel, develop situational awareness, and become familiar with the requirements. (2) Proposed sole-source contractor: BAH, 8283 Greensboro Drive, McLean, Virginia 22102 can effectively and efficiently provide the uninterrupted expertise to satisfy the requirements for this award. DISA/MAE has made a significant investment (over $4M for the 2012-2014 time periods) to date in the current contractor; and therefore, it is logical to sole-source this new award to BAH. The expertise in the JIE program, obtained by BAH from 2010-2014, exists nowhere else; and given the time constraints that exist to get a new award in place, BAH is MAE's only viable option. (3) Discussion regarding cause of the sole-source situation: BAH has accumulated significant technical expertise and unique knowledge of the JIE program and its requirements during the performance of this initial effort. Engineering processes of systems, analytic capabilities, as well as technical data and knowledge accumulated during this support is not resident at organizations other than BAH, as they are the only contractor with actual knowledge of the program requirements and history. Once the complete set of support roles and requirements for DISA to provide support to the JIE program is identified, the re-compete will be shaped to fit the finalized roles and requirements. Once identification of the complete set of supported requirements is determined (to include a realistic transition of responsibility), DISA will engage DITCO to make a competitive award by August 01, 2015. (4) Demonstration of unique source: BAH's long tenure on this effort has resulted in a workforce that has seen a very low turnover rate, resulting in staff that is cross-trained in the many different tasks called for in this TO. BAH's staff has become intimately familiar with all aspects of the technical baselines, operational policies, and organizational requirements. The skills and legacy of this workforce are required in order to ensure the system adequately supports schedule requirements that DoD CIO requires. Failure to maintain contractor support provided by BAH (until such time that a new TO can be fully competed, awarded, and transitioned) will result in a loss of continuity of services and be significantly detrimental to DISA's ability to support the JTSO, which will significantly increase the threat to the DoD. DISA's ability to continue deploying and securing the JIE will be diminished without BAH's support, effectively un-doing the architecture and process foundation work done by DISA in support of JTSO. BAH JIE Engineering Support, 831505494, ENCORE II-JA15-007 has the expertise needed to provide DISA with the support it needs to be able to meet the DoD CIO requirements for JIE lab testing and capability upgrades. (5) Procurement discussion: (a) This service was provided via a contract modification to the FEDSIM ADNET contract, GS-00T-99-ALD-0202; no J&A was required for this action. The original POP was May 22, 2014 - September 28, 2014. Service was extended an additional month through October 27, 2014. The cost of support for this POP was approximately $1.88M. (b) Previously, these services were provided via a sole-source TO under ENCORE II, awarded to BAH, HC1028-08-D-2015/0038, POP April 28, 2013 through April 27, 2014. The cost of support for the 1-year POP was approximately $1.55M. (c) The original services were provided via a TO placed against the Defense Technical Information Center, Information Assurance Technology Analysis Center, technical area task contract vehicle (SP070098D40020287/0394). The contract was issued to BAH on May 15, 1998. The TO POP expired on April 27, 2013. Support for this JIE requirement began in FY12 and with a cost of about $500K. (6) Impact: Award to a contractor other than BAH would result in substantial duplication of cost to the Government that is not expected to be recovered through competition. It would cost MAE an estimated $3.5M in transition costs and over 24,000 labor hours to bring a new contractor up to speed to where BAH is performing to date (October 2014). The estimate combines a mix of historical data covering support work done to get outside staff up to speed, to include an expedited "ramp up" of costs to meet the FY15 capability upgrade schedule. The incumbent has been the sole technical JIE support contractor. They meet all of the current requirements for support and are positioned to continue providing unique experience in JIE architecture and design for required lab testing. BAH has accumulated significant technical expertise and unique knowledge of the JIE program and its requirements during the performance of this initial effort. Engineering processes of systems and analytic capabilities as well as technical data and knowledge accumulated during this support is not resident at organizations other than BAH, as they are the only contractor with actual knowledge of the program requirements and history. A contractor other than BAH would inflect unnecessary risk to an accelerated schedule, causing delays in critical DoD infrastructure programs. Based on the time to competitively procure a separate contractor before capability upgrades and required testing, BAH is the only responsible and knowledgeable source that supplies the services needed without a break in service for the JIE program. BAH's long tenure on this effort has resulted in a workforce that has seen very low turnover rate, resulting in staff that is cross-trained in the many different tasks called for in this contract. BAH's staff has become intimately familiar with all aspects of the technical baselines, operational policies, and organizational requirements. The skills and legacy of this workforce is required in order to ensure the system adequately supports schedule requirements that DoD CIO has placed on DISA. Page 4 of 7 JIE Engineering Support, 831505494, ENCORE II-JA15-007 Failure to maintain contractor support provided by BAH until such time that a new TO can be fully competed, awarded, and transitioned will result in a loss of continuity of services and be significantly detrimental to DISA's ability to support JIE JTSO, which will significantly increase the threat to the DoD. DISA's ability to continue deploying and securing the JIE will be diminished without BAH's support, effectively un-doing the architecture and process foundation work by DISA in support of JTSO. No other contractor has the expertise to provide the urgent support that DISA needs for continuity of operations to meet the DoD CIO requirements for JIE lab testing and capability upgrades without an already identified transition plan, putting the DoD at a severe disadvantage. 5. COST/PRICE FAIR AND REASONABLE DETERMINATION: A cost evaluation will be accomplished to determine that the anticipated cost to the government will be fair and reasonable. The contracting officer will obtain a certificate of current cost or pricing data. 6. MARKET RESEARCH: Market research was accomplished October 2014. Review was done on ENCORE II large and small businesses and identified several options, given a proper transition time, that a competitive acquisition will potentially meet the future JIE engineering requirements. A query of several ENCORE II large businesses including BAH, General Dynamics, Northrop Grumman, Pragmatics, and Science Applications International Corporation identified them as providing knowledge and skills associated with specific IT policy and planning procedures, program management, certification and accreditation, and testing and engineering with similar enterprise-level architectural framework tasks identified within associated JIE engineering-supported performance work statement (PWS). Market research identified several ENCORE II small businesses that could potentially compete in a future JIE engineering support competitive acquisition, given proper transition time. Due to the need for continuity of operations, the government would have significant risks associated with the transition of responsibility. While small business can demonstrate experience in one functional area or another, they do not appear to be able to provide subject matter experts and experience across the entire MAE JIE concept. Any such limited support of qualified personnel would put the government and supported projects at an unacceptable risk. Those ENCORE II small businesses' capabilities which were reviewed for this market research include Data Systems Analysts, Inc. and Solers, Inc. Each contractor had a specific area of expertise or advantage to a particular task, while not being able to provide support to all tasks without a proper transition period identified.
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