GTMP DIA Threat Mitigation Support

UNABLE TO ADD ATTACHMENTS: Signed J&A presented in full below that was included as an attchment for pre-solicitation notice GSC-QF0B017-33149 posted to FBO on August 17, 2017. General Services Administration Federal Systems Integration and Management Center JUSTIFICATION AND APPROVAL FOR OTHER THAN FULL AND OPEN COMPETITION The General Services Administration (GSA) makes this Justification and Approval (J&A) for Other Than Full and Open Competition orders pursuant to Federal Acquisition Regulation (FAR) 6.302. 1) Identification of Agency and Contracting Activity: Agency: General Services Administration (GSA) Federal Systems Integration and Management Center (FEDSIM) Acting in support of: Defense Intelligence Agency (DIA) Contracting Activity: GSA FEDSIM Contracting Office 1800 F Street, NW Suite 3100 (QF0B) Washington, D.C. 20405 2) Nature and/or Description of Action Being Approved: The Global Threat Mitigation Program (GTMP) Task Order (TO) GSC0015AJ0047 was competitively awarded to Booz Allen Hamilton (BAH) on a Cost-Plus Award Fee (CPAF) basis. The GTMP TO's awarded ceiling value was $937,419,229.00 and the Period of Performance (PoP) is from September 23, 2015 through September 22, 2020. The purpose of the GTMP TO is to provide the United States (U.S.) military, other military forces, and U.S. Department of Defense (DoD) interagency partners responsible for combating threats and increasing the security posture of the U.S. and partner nation forces with assessments which identify and analyze evolving and emerging threats and provide potential capabilities the U.S. military can utilize to combat these threats. The capabilities provided include, but are not limited to, Information Operations (IO) activities, messaging platforms based on modern marketing techniques, Ballistic Missile Defense (BMD) strategies, and CounterImprovised Explosive Device (C-IED) measures. The ultimate objective of the GTMP TO is to bolster the U.S.' security interests and positions, both at home and abroad, and to protect forces from emergent threats. Since its inception, the GTMP TO has been highly successful at being able to quickly provide subject matter expertise and resources to military organizations requiring threat mitigation support. The level of demand across the U.S military for GTMP support far exceeded the Government's expectations and the user base of supported organizations has increased faster than originally planned. Within the first two years of its existence, supported GTMP organizations grew from seven to 45 military and partner organizations worldwide. This unplanned growth has been tremendously helpful with assisting the supported organizations combating and defending the U.S against ongoing and emerging threats at home and abroad. Included in the organizations supported under the GTMP TO is DIA. DIA has been able to successfully leverage the GTMP TO to support its all source analysis requirements. The increased use of the GTMP TO has created ceiling challenges for organizations requiring more mission critical threat mitigation support, including DIA. To address the harmful implications and adverse impacts these ceiling challenges present to DIA's mission, GSA FEDSIM will be competitively awarding a new contract to support DIA's all source analysis requirements. Unfortunately, GTMP TO will not be able to support the continued use by DIA during its competitive pre-award phase. DIA's ceiling demands during that period would severely affect other mission critical support of other commands. As such, to ensure DIA is able to continue to receive threat mitigation support for its all source analysis requirements, GSA FEDSIM intends to award a 12-month sole source CPFF (Term) contract to BAH. Awarding this sole source contract will provide GSA FEDSIM the time required to complete the competitive source selection activities and transition of the DIA all source analysis requirements currently supported under GTMP to the competitively awarded contract as well as preserving the ceiling under GTMP to provide support for current and emerging operations. The estimated total value of the sole source contract will be $65,000,000 over the 12-month period. The resulting contract will also include the option to extend services clause, FAR 52.217-8, for an additional sixmonth period. FAR clause 52.217-8 will be included to account for circumstances beyond the control of GSA FEDSIM contracting such as protests. 3) Description of Supplies/Services and Estimated Value: The GTMP TO was awarded to provide U.S. military, other military forces, and U.S. DoD interagency partners support against threats such as Irregular Warfare (IrW), Hybrid Warfare, Asymmetric Warfare (AW) and regional threats such as hostile nation states, terrorist organizations, and extremists acting alone or in concert with global organizations. These global and prolific threats continue to drive GTMP supported organizations' strategic, operational, and tactical mission sets; planning and intelligence gathering activities; training requirements development; and, mission readiness requirements. The support provided under the GTMP TO continues to deliver mission critical solutions impacting the security interests of the GTMP supported organizations across these mission areas. Ultimately, the GTMP TO has enabled supported organizations to strengthen, defend, combat and defeat current, evolving and emerging threats on a daily basis throughout the world. Threat mitigation support for the DIA all source analysis requirements are currently supported under the GTMP TO. It is the Government's intention to competitively award an order to provide DIA a long-term solution for its all source analysis and threat mitigation support. While the Government completes all competitive source selection activities for that effort, DIA still requires contractor support for its current mission. During this time, BAH is in the unique position to continue to provide DIA the highly services at quality required without negatively impacting DIA current mission requirements. Specifically, DIA requires continued contractor support to fulfill the following tasks currently being support through the GTMP TO: a. Task 1 - Accounting for Contract Services b. Task 2 - Provide Program Management c. Task 3 - Execute Transition-Out d. Task 4 - Strategic Planning and Capabilities, Threat, and Intelligence Analyses and Assessments e. Task 5 - Training Support f. Task 6 - Surge Support The estimated value for Labor, Travel, Equipment and Material, Other Direct Cost (ODC) and Contract Access Fee (CAF) required to provide DIA continued all source analysis and threat mitigation support is provided below: Description 12-Month Ceiling Labor $49,000,000 Travel $1,500,000 Equipment & Material $6,500,000 ODCs $7,936,000 CAF $64,000 TOTAL $65,000,000 4) Identification of the Statutory Authority Permitting Other Than Full and Open Competition: This sole source contract will be awarded pursuant to the authority of 41 United States Code (U.S.C.) 253(c)(1) as implemented by FAR 6.302-1, only one responsible source and no other supplies or services will satisfy agency requirements. 5) Demonstration that the Proposed Contractor's Unique Qualifications or the Nature of the Acquisition Requires Use of the Authority Cited The contractor's unique ability to mitigate mission risk, experience with the current capabilities, availability of cleared personnel and ability to allow for minimal transition risk which formed the basis for this justification are outlined below: Mitigate Mission Risk: The DIA provides military intelligence to warfighters, defense policymakers and force planners in the DoD and the Intelligence Community, in support of U.S. military planning and operations and weapon systems acquisition. In support of that mission, DIA has been leveraging BAH's on-site support under the GTMP TO to provide threat mitigation support for its all source analysis requirements. The on-site GTMP support for DIA's current all source analysis requirements requires BAH to provide experienced, qualified, and appropriately cleared subject matter experts to ensure mission requirements are adequately supported. The GTMP support currently being provided to DIA by BAH was the result of months of approvals, strategic planning and resourcing through the GTMP TO by all parties involved: GSA FEDSIM, DIA, and BAH. DIA's current GTMP support continues to be driven by the threats impacting its mission, operational environment and the Warfighter. The highly specialized nature of DIA all source analysis requirements and the contingent requirement for continuity of on-going mission operations has BAH in the unique position to provide and successfully transition that support when the source selections procedures for the competitive requirement are completed. Experienced Contractor Support: The threat mitigation support currently being provided to DIA requires contractor support that is knowledgeable of the military tactics, techniques, and procedures being used in support of the GTMP TO, as well as the operational and technical environment governing the on-going activities currently being supported by BAH under the GTMP TO. As the current GTMP incumbent, BAH was institutional in developing and executing the threat mitigation solutions brought to bear in support of the DIA current requirements including instances where support didn't previously exist. With ceiling challenges jeopardizing DIA's all source analysis requirements and the threat mitigation support currently being provided through the GTMP TO, BAH is in the unique position of currently having personnel on site with the requisite knowledge, subject matter expertise, and experience who are capable of providing continued support for those requirements without a break in service or adverse impacts to the DIA mission while source selection is conducted for a new TO. Cleared Personnel: The contractor is required to provide cleared personnel due to the nature of the work being provided. The BAH contractor personnel currently providing support for the GTMP TO are required to access classified information. The GTMP BAH contractor personnel are responsible for safeguarding intelligence, information, and solutions in support of national security interests that are fostered through TO execution. As such, clearances for contractor personnel under the GTMP TO include requirements for Secret, Top Secret (TS), Top Secret/Sensitive Compartmented Information (TS/SCI), and TS/SCI with polygraph. In addition, the BAH personnel supporting GTMP requirements are co-located with DIA in order to effectively support mission requirements. BAH is the only contractor with the personnel currently on-site with the appropriate clearances who are capable of providing uninterrupted services until the follow-on TO is awarded. Failure to fully transition-in personnel with the appropriate clearances will hinder DIA's ability to adequately support the classified mission requirements through the TO. Ultimately, this inadequacy equates to mission failure for DIA given the security clearance requirements governing all personnel supporting mission requirements. Minimized Transition Risk: The support provided to DIA through the GTMP TO is aimed at combatting threats and improving the security posture. This support impacts U.S. interests at home and abroad as well as the safety of the Warfighter. Accordingly, transitioning in a new contractor in support of such a critical mission can be detrimental with inadequate transition time. Successful transition of the current DIA mission to a new contractor under a new contract will take a minimum of eight months to include a minimum of 60 days for transition-in period. Real-world events could further impact this transition should emergency situations arise which require sustained support.. With the ceiling challenges currently jeopardizing DIA's ability to increase to scale in response to emerging and evolving threats, GSA FEDSIM will not have the time needed to complete all the acquisition activities to include contractor transition-in without possibly impacting DIA's ability to effectively support current mission requirements. DIA's missions rely on the threat mitigation support afforded to them through the GTMP TO; failure to fully transition-in a new contractor before the DIA exceeds the GTMP TO's ability to provide the ceiling needed to support threat mitigation requirements and DIA's mission will result in negative consequences with real world implications. BAH is the only contractor in the position to provide support that will minimize the transition risks to DIA until the competitive contract can be awarded. In summary, BAH is the only contractor with the personnel currently in place that possesses the required security clearances and experience to support DIA's current all source analysis and provide provide threat mitigation operational, tactical and strategic support. BAH currently has the personnel with requisite knowledge, expertise and institutional knowledge and technical expertise to achieve continuity of mission-critical services without interruption. Any attempt to replace BAH with another contractor without proper transition to turnover contractor support would jeopardize ongoing and future missions as well as the safety of warfighters and the people of the United States whom they protect. As a result, BAH is the only contractor capable of providing DIA the highly specialized services at the level required until the follow-on requirement is competitively awarded with an adequate transition-in period. 6) Description of Efforts Made to Ensure that Offers are Solicited From as Many Potential Sources as Practicable As required by FAR Part 5.201, a synopsis will be published on FedBizOpps to serve as the Government's notice of intent to sole source this acquisition. As previously indicated, the Government is in the process of preparing a competitive acquisition to which this sole source bridge contract will transition. As a result, the Government will not be soliciting offers from any sources other than BAH for this sole source acquisition. 7) A Determination by the Contracting Officer that the Anticipated Cost to the Government will be Fair and Reasonable The estimated valued for this acquisition is $65,000,000. This estimate is based on the level of effort required to provide DIA continued support for current and emerging threats for 12 months. FEDSIM will compare the labor rates, hours, and costs for the sole source TO with the actual hours and costs being incurred under the current GTMP TO for these services. To ensure that the anticipated cost to the Government will be fair and reasonable, the Contracting Officer will evaluate the cost elements and fixed fee of BAH's proposed costs to ensure that the anticipated costs are fair and reasonable. 8) A Description of the Market Research Conducted and the Results or a Statement of the Reason Market Research was not Conducted For the above reasons stated in this Justification, market research was limited to the contract vehicles available to BAH for this sole source acquisition. Market research will be expanded to the greater marketplace for the competitive acquisition that will follow this sole source bridge contract. 9) Any Other Facts Supporting the Use of Other Than Full and Open Competition All relevant facts have been identified and discussed elsewhere in this justification. 10) A Listing of the Sources, if any, That Expressed, In Writing, An Interest in the Acquisition To date, the Contracting Officer has not received any statements of interest regarding the proposed sole source effort. 11) A Statement of the Actions, if Any, the Agency May Take to Remove or Overcome Any Barriers to Competition Before Any Subsequent Acquisition for the Supplies or Services Required To ensure that the circumstances that led to the Government using other than full and open competition procedures for the sole source contract for this requirement are limited to this action only, the Government has implemented and is executing an acquisition schedule that will complete all the necessary pre-solicitation and pre-award actions before this bridge contract expires. Furthermore, to ensure that industry is made aware of all future information related to the follow-on requirement, all information will be posted and made available to all vendors under the contract vehicle selected for the follow-on requirement. 12) Contracting Officer Certification that the Justification is Accurate and Complete to the Best of the Contracting Officer' s Knowledge and Belief I certify that this justification is accurate and complete to the best of my knowledge and belief, and determine on the basis of the findings above that other than full and open competition approach is in accordance with the requirements and is in the best interest of the Government. ________________________________________________________________________ Jeffrey L. McMullan Date Contracting Officer FEDSIM Acquisition, Army/Navy Sector Final Approval I certify that this justification is accurate and complete to the best of my knowledge and belief, and determine on the basis of the findings above that other than full and open competition approach is in accordance with the requirements and is in the best interest of the Government. _________________________________________________________________________ Tom Howder Date Head of Contracting Activity JEFFREY