Business Transformation Agency (BTA) Net Centric Test Support

JUSTIFICATION & APPROVAL (J&A) FOR FEDERAL ACQUISITION REGULATION (FAR) SUBPART 16.5 ACQUISITIONS EXCEPTION TO FAIR OPPORTUNITY Multiple Award Schedule (MAS)/Multiple Award Contract (MAC) Orders under MAC/Fair Opportunity - FAR 16.505, Department of Defense FAR Supplement (DFARS) 216.505-70, Procedures, Guidance and Information (PGI) 216.505-70 Purchase Request Number: 37128-8 Contract Number: HC-102812-D-0026 Task/Delivery Order Number: HC102818F0293 Procurement Title: Business Transformation Agency (BTA) Net Centric Test Support Electronic Business Systems - Test Facility (EBS-TF) & Tools Contracting Office: Defense Information Systems Agency (DISA)/Defense Information Technology Contracting Organization (DITCO)/Joint Interoperability Test Command (JITC) Mission Support Section (PL83l5) Estimated Value: RADACTED Statutory Authority: FAR 16.505(b)(2)(i)(C) JUSTIFICATION FOR AN EXCEPTION TO FAIR OPPORTUNITY 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)(C). - 1. REQUIRING AGENCY AND CONTRACTING OFFICE: (a) Requiring Agency: DISA/JITC 2001 Brainard Road, Building 57305 Fort Huachuca, Arizona 85670 (b) Contracting Office: DISA/DITCO/PL8315 2300 East Drive, Building 3600 Scott Air Force Base, Illinois 62225 - 2. NATURE/DESCRIPTION OF ACTION(S): The nature of this action is to ensure critical, uninterrupted JITC system hosting, administration and testing expertise support to the Defense Logistics Agency Programs awarding a follow-on task order to ManTech on the current Testing and Evaluation (T&E) Mission Support Services (MSS) indefinite-delivery/indefinite-quantity (ID/IQ) contract. The action will ensure that four years of test lab configuration, management and specifically test support knowledge for the Wide Area WorkFlow (WAWF), Global Exchange (GEX) Service, Defense Agency Initiative (DAI) and Joint Contingency Expeditionary Service (JCXS) testing is not lost and can be smoothly transitioned to another contractor while testing and deploying WAWF 5.11.1 User Acceptance Test (UAT) effort and conducting WAWF 5.12.0 System Integration Test (SIT) effort. This will allow overlap to transfer knowledge and not negatively impact WAWF's deployment schedule. Additionally, Global Exchange (GEX) Service, Defense Agency Initiative (DAI) and Joint Contingency Expeditionary Service (JCXS) depend on continuation of the test facility support to avoid interruptions of their test activities which are covered under existing tasking. The PoP on the current task order ends February 28, 2018. The EBS-TF is multi-customer support facility that includes hosted physical and virtual servers, network connectivity, security management, account management, configuration and requirements management, application installation and configuration of test enclaves/environments to specific program test requirements. The Testing as a Service (TaaS) tool suite is comprised of the following software: HP Load Runner, HP Application Lifecycle Manager and HP Quick Test Professional which supports performance testing of Electronic Commerce Business Systems. The follow-on task order will include an approximate level of effort of 4,418 labor hours. The required PoP is March 1, 2018 to May 4, 2018. This effort is funded with 2018 defense working capital funds and operational and maintenance funds. - 3. DESCRIPTION OF SUPPLIES/SERVICES: JITC maintains the EBS-TF and the TaaS HP tool suite. The EBS-TF supports hosting test environments for Department of Defense (DoD) business systems. Current systems supported include the WAWF eBusiness Suite including iRAPT, Electronic Document Access (EDA), myInvoice, Item Unique Identification (IUID), Contracting Officer Representative Tracking (CORT) Tool, eMIPR, Management Reporting System (MRS), National Industrial Security Program (NISP) Contract Classification System (NCCS), Contract Closeout, Contract Deficiency Report (CDR), Contracting Communication Module (CCM), and Data Lake], GEX Service, DAI and JCXS. The TaaS tool suite is comprised of the following software: HP Load Runner, HP Application Lifecycle Manager and HP Quick Test Professional which supports performance testing of Electronic Commerce Business Systems Test Infrastructure Support Functions; JITC shall maintain and as required, enhance, the existing test infrastructure. These duties shall include the performance of Systems, Database, Security and Network administrative functions, updating the lab Standard Operating Procedures (SOP), networks, computers, laptops, power backups Uninterrupted Power Supply (UPS), switches/routers, and associated lab equipment. - 4. SUPPORTING RATIONALE, INCLUDING A DEMONSTRATION THAT THE PROPOSED CONTRACTOR'S UNIQUE QUALIFICATIONS OR THE NATURE OFTHE ACQUISITION REQUIRES USE OF AN EXCEPTION TO FAIR OPPORTUNITY: (a) Exception to Fair Opportunity. In accordance with FAR 16.505(b)(2)(i)(C),the order must be issued on a sole-source basis in the interest of economy and efficiency, because it is a logical follow-on to an order already issued under the contract, provided that all awardees were given a fair opportunity to be considered for the originalorder. (b) Description of the Justification. This action requires the authority cited as the PoP of the task order will expire prior to completion of testing activities. The current contractor for this task, ManTech, is uniquely qualified to complete the testing activities as they have been responsible for the program for the last four years. As a result, they provide highly specialized capabilities and resources that are not available from any other contractor. (c) Justification (1) Minimum Government Requirements. The Government requires immediate and highly specialized knowledge of WAWF and Subsystem requirements and WAWF testing strategy and artifacts to support ongoing system administration and test facility configuration for test events. Due to the aggressive nature of the WAWF and GEX T&E schedules, there is no gap or time between during the regression test planning, execution, and reporting efforts to compete a new task. In addition, contract classification restrictions may prevent a new contractor from being able to immediately begin work and meet the scheduled timelines due to lead time necessary for requesting, approving, and onboarding of new accounts. (2) Proposed Sole Source Contractor. A follow-on task order with the current contractor, ManTech, provides the Government substantial benefits as the work is an extension of what they are currently performing. Substituting contractors for the additional work at this phase of WAWF test cycle will be detrimental by adding unnecessary delays and increasing costs to field the version. This is due to the amount of time already invested in the ongoing testing lab configuration efforts, resulting in their unique and highly specialized knowledge of legacy WAWF and GEX configuration and account management requirements, new WAWF configuration and account management requirements, and DLA and DoD Contracting Policy; as well as their working knowledge of testing lab configuration requirements for programs on Deputy Assistant Secretary of Defense (DASD), DT&E, Director, Operational Test and Evaluation (DOT&E), and DLA oversight. Additional costs will include duplicative familiarization and training of a new contractor, as well as the unavoidable coordination amongst stakeholders engaged in preparing for and conducting multiple, complex, and, in some cases, concurrent detailed T&E events. These costs would be in addition to the costs incurred for direct T&E labor which includes required labor to sufficiently support this effort. (3) Discussion Regarding Cause of the Sole Source Situation. The reason for this sole source situation is that ManTech has completed the majority of the necessary lab set up and configuration and deliverables on the task order to support ongoing testing. As such, they can provide the Government highly specialized knowledge of the WAWF and GEX systems, and they are best suited to adapt quickly to the changes without incurring excessive additional cost as a result of the re-baseline. Given that the testing is nearly complete, it is impractical to compete a new task order, engage another contractor, and still meet Production release dates for WAWF 5.11.1 and for GEX 5.5. (4) Demonstration of Unique Source. ManTech brings over four years of outstanding WAWF and subsystem knowledge and test experience to the hosted DLA programs. They are uniquely qualified with experts in specialized configurations and interoperability issues for Government Contracting, Government Invoicing, Data Lake strategies, and Federal, DoD, and DLA acquisition support policies. ManTech has been indispensable in making test support for this critical task effective and successful. ManTech is the only qualified contractor capable of providing these unique services without incurring significant additional time and duplicative costs, which is currently estimated to be RADACTED. ManTech is currently in place, with the proper security clearances, and has the capability to support this task without interruption. No phase-in or ramp-up will be required to expand this support. Therefore, it is not in the best interest of the Government to compete a new task order to address the imposed changes to the requirement. (5) Procurement Discussion. The nature of this action is to issue a follow-on cost- plus-fixed-fee task order with a PoP ending on May 4, 2018. This sole sourcetask is required to ensure timely completion of testing activities to ensure DLA is able to meet its T&E and fielding schedule. (6) Impact. Failure to issue a follow-on sole source task order with an extended PoP will result in JITC not being able to execute the DLA T&E schedule which would result in DLA mission failure. Soliciting for a new contractor will result in a significant amount of time, duplicative effort, and associated cost. This is due to the substantial amount of activities by multiple stakeholders it would take for a new contractor to establish the appropriate accounts on all WAWF subsystems and Help Desk; sufficiently understand the test lab management and configuration requirements to support testing; develop SOP, manage user accounts and provide configuration and requirements management, conduct the required coordination; and validate connectivity and user accounts. Therefore, the logical action is to issue a sole source task order to the existing contractor, ManTech. If the requirement were to be re-competed, it would delay the start of the task up to three-months based on the timelines to issue a competitive task order and up to nine-months, with maximum stakeholder support, to transition to a tester(s) with full knowledge and understanding of the DLA systems, specifically the critical WAWF system, subsystems, and integrated environments. Selecting another prime contractor would increase costs, due to the time required to obtain required security clearances and familiarize the contractor with EBS-TF capabilities to adequately support multiple, simultaneous planning and test events. - 5. COST/PRICE FAIR AND REASONABLE DETERMINATION: During source selection of solicitation number HC1028-12-D-0026-0055, a cost/priceevaluation was conducted in accordance with FAR 15.404. The contract prices were determined to be reasonable. The proposed cost/prices for the follow-on task order will be compared to the current contract prices as well as the Independent Government Cost Estimate in order to determine fair and reasonableness in accordance with FAR 16.505(b)(2)(ii)(B)(5). - 6. MARKET RESEARCH: In accordance with FAR Part 10.002, market research has been conducted to identify all qualified sources and results thereof. The initial market research was completed from 2012 to 2013 at the basic Test and Evaluation Mission Support Services (T&E MSS) contract level, and annually thereafter at the task order level in accordance with FAR 10.002(b)(1). The formal market analysis included reviews of contractors found on General Services Administration (GSA) Schedule 70, and analysis of historical contract costs. As a result of the review, it was determined that the only way to avoid the loss of invested resources and additional costs to the Government is to issue a follow-on sole source task order to accomplish this expanded effort that is within scope of the original. Market research has always identified that all prime T&E MSS contractors can complete the scope of work; however, ManTech competitively won this task order award and is the only contractor that can complete the work within the required timelines mentioned above. - 7. ANY OTHER SUPPORTING FACTS: None - 8. ACTIONS THE AGENCY MAY TAKE TO REMOVE OR OVERCOME BARRIERS THAT LED TO THE EXCEPTION TO FAIR OPPORTUNITY: (a) Procurement History. Contract Number: HC1028-12-D-0026-0055 Contractor: ManTech Contract Period: March 1, 2013 - February 28, 2018 Total Contract Value: REDACTED (original TEP; Base + all options) Contract Type: CPFF (b) This TO was awarded following a fair opportunity competition using the JITC T&E MSS IDIQ. All T&E MSS contractors were afforded the opportunity to beconsidered. (c) The action proposed to remove barriers to full and open competition is that EBS-TF and TasS testing lab and environment management will be awarded utilizing the new TEC contract after this sole source award period of performance is complete. - 9. REFERENCE TO THE APPROVED ACQUISITION PLAN (AP): This requirement does not require a written acquisition plan, as one was completed at the base contract level.