SOLICITATION NOTICE
D -- Defense Industrial Base Network-Engineering, Implementation and Sustainment Support - Package #1 - J&A for DIBNet - Package #3
- Notice Date
- 7/9/2014
- Notice Type
- Justification and Approval (J&A)
- 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
- Solicitation Number
- HC1020-08-D-2015-0035
- Archive Date
- 7/30/2014
- Point of Contact
- Lara K. Huegle, Phone: 6182299655
- E-Mail Address
-
lara.k.huegle.civ@mail.mil
(lara.k.huegle.civ@mail.mil)
- Small Business Set-Aside
- N/A
- Award Number
- HC1028-08-D-2015-0035
- Award Date
- 6/30/2014
- Description
- J&A for DIBNet J&A for DIBNet J&A for DIBNEt JUSTIFICATION & APPROVALS (J&A) FOR FEDERAL ACQUISITON 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 (DFARS) 216.505-70, Procedures, Guidance, and Information 216.505-70 Purchase Request Number: E200506.00 Contract Number: HC1028-08-D-2015 Task/Delivery Order Number: 0035 Procurement Title: Defense Industrial Base Network (DIBNet) Development and Sustainment Contracting Office: Defense Information Systems Agency (DISA)/Defense Information Technology Contracting Organization (DITCO)/PL83 Estimated Value: $4,849,980 Authority: FAR 16.505(b) (2) (i) (B) JUSTIFICATION FOR AN EXCEPTION TO FAIR OPPORTUNITY Number: JA14-097 1. REQUIRING AGENCY AND CONTRACTING OFFICE: Requiring Activity: DISA Mission Assurance Executive (MAE) 6914 Cooper Avenue Fort Meade, Maryland 20755 Contracting Activity: DISA/DITCO/PL8311 2300 East Drive, Building 3600 Scott Air Force Base, Illinois 62225 2. NATURE/DESCRIPTION OF ACTION: The nature of this action is to procure a 6-month extension to contract HC1028-08-D-2015 task order (TO) 0035 with Booz Allen Hamilton (BAH). The 6-month extension will continue services beyond the current period of performance ending on June 30, 2014. Period of performance (PoP) for the 6-month extension will be July 1, 2014 through December 31, 2014; a 4-month base with a 2-month option to be exercised, as needed. The 6-month extension is required to allow time to re-evaluate proposals for the follow-on award to TO 0035. Additional time to re-evaluate proposals is due to a corrective action ordered by the DIBNet Development and Sustainment Recompete Protest-JA14-097 Government Accountability Office (GAO) on January 27, 2014 and DITCO's corrective action plan filed on March 27, 2014. The corrective action is result of a post-award protest on HC1028-08-D-2006-0013, received by the contracting officer on October 4, 2013 and a pre-award protest on the re-evaluation of E200549.00, received by the contracting officer on March 21, 2014. A modification to HC1028-08-D-2015 TO 0035 is estimated at a contract value of $4,849,980. The contract value includes an optional contract line item number (CLIN) in the amount of $1,787,074 for additional requirements from the DIBNet Department of Defense (DoD) Chief Information Office (CIO). The modification will contain firm-fixed-price (FFP) and cost reimbursable (CR) CLINs. Fiscal year (FY) 14 operations & maintenance (O&M) funding will be used for the base period of four months; FY15 O&M will be used for the 2-month option period. 3. DESCRIPTION OF SUPPLIES/SERVICES: The DoD CIO oversees the DoD-Defense Industrial Base (DIB) Cyber Security/Information Assurance (CS/IA) program whereby classified and unclassified information is shared between the DoD and the DIB companies. The DIBNet is a multi-year, multi-phased project initiated in FY10 as part of DISA's DoD Network Operations and Cyber Situational Awareness program. The project addresses critical DIB CS/IA program deficiencies like the inability to streamline and automate program activities and the communication of cyber threat information to and with cleared defense contractors (CDCs). DIBNet is a web-based tool that enables CDCs to exchange classified and unclassified cyber threat information and collaborate with the DoD Cyber Crime Center (DC3) on an on-going basis. The DIB CS/IA Program is critical to assisting the DoD community in securing DoD program information on DIB unclassified networks that are under threat daily, mitigating attacks as they occur, and to protect against future attacks. This multi-phased project will facilitate the sharing, analysis, integration, and visualization of network attacks and is a critical milestone in opening the DIB CS/IA program to all qualified CDCs. An initial post-award protest was filed on October 1, 2014. The GAO rendered a decision which sustained the protest on January 27, 2014 and as a result, the Agency took corrective action. DISA/DITCO is currently evaluating offers received. Because the source selection for the corrective action has taken longer than anticipated, the additional 6-month extension will provide continuity of the DIBNet services until the follow-on task order is awarded. The extension is to be set up for a total of six months; a 4-month base to be exercised July 1, 2014 and a 2-month option period to be exercised as needed. A minimum of 60 days for transition is needed to get the new contractor up to speed on all of the programs' requirements and processes. The maximum total estimated cost of full support for the current contractor for the 6 months is $4,849,980. The additional requirements referenced above would be implemented in the 4-month base period in support of a draft interim DFARS rule initiated on November 18, 2013, DFARS Case 2013-D018. The DFARS rule affects the DIBNet Program, specifically, any unclassified controlled Page 2 of 7 Pages DIBNet Development and Sustainment Recompete Protest-JA14-097 technical information. This includes the amended DIB (DIB CS/IA) activities, Code of Federal Regulations (CFR) 32, Part 236, and DFARS Case 2013-D018, Enhanced Protection and Reporting for DoD Information. As a result of the DFARS draft interim rule, all mandatory cyber reporting from DoD contractors will use the DIBNet-U portal to report cyber incidents, and all DoD contractors will have to use DoD-approved medium assurance certificates to access the portal. And, as part of amended 32 CFR, part 236, the eligibility of the DIB CS/IA voluntary program expands to include all CDCs. The optional CLIN will be available to be exercised in order for BAH to begin the process of looking at alternatives in conjunction with the DoD CIO, to determine what technology would meet the requirement and how it will affect the current system. BAH will be developing and integrating a system for all partners to use and access within the DIBNet. This will allow for the DIBNet program to be in immediate compliance with both DoD policy and the DFARS rule. 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. 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. (10 United States Code §2304c (b), FAR 16.505(b) (2) (i) (B)). Providing a fair opportunity is not an acceptable course of action, because MAE and DITCO are awaiting the outcome of the source selection for corrective action in response to protests received. (b) Description of the Justification. The current task order, HC1028-08-D-2015 TO 0035, was extended 6 months through December 31, 2013, under FAR 52.217-8, Option to Extend Services. A competitive follow-on task order HC1028-08-D-2006-0013, tracking number E500249.00, was awarded on September 24, 2013. The award was protested and a stop work order was issued on October 7, 2013. As a result of the post-award protest, and to provide continuity of DIBNet services, TO 0035 was extended under J&A (JA14-030) for 6 months. This extended the PoP to June 30, 2014. The 6-month extension J&A planned for the time required to cross-train and incorporate a new team with the same level of expertise across the diverse infrastructure that exists within the DIBNet systems and while providing for a full transition period of 60 days. Currently, the new proposals submitted under the corrective action are being evaluated. This J&A to extend additional 6-months is needed to prevent a gap in service by covering the time-frame while the evaluations are being conducted and to allow for a transition period to ensure the Page 3 of 7 Pages DIBNet Development and Sustainment Recompete Protest-JA14-097 success of the new awardee for E200549.00. This action to extend TO 0035 is for additional 6 months (a 4-month base and a 2-month option). (c) Justification: (1) Minimum Government Requirements. The estimated maximum government requirement is for full service for 6 months, which includes transitioning to a new contractor. The actual minimum government requirement time will be known after the follow-on TO 0035 for the DIBNet has been awarded. The time required to cross-train and transition a new team is a minimum of 60 days. The transition time will help assist the new contractor in completing the necessary training and adhering to the same level of expertise the DIBNet program demands and the complex infrastructure that exists within the DIBNet systems. (2) Proposed sole-source contractor. BAH is the current proposed sole-source incumbent on the original TO 0035, originally awarded on September 21, 2012. (3) Discussion regarding cause of the sole source situation. The aforementioned protests and re-evaluation is the cause for this J&A, as described in above section 2. (4) Demonstration of unique source. Disengaging from BAH at this time would effectively cause the DIBNet program to come to a complete halt. After the corrective action of the DIBNet follow-on contract is complete and an award is made to the new contractor, they will need to transition key personnel and processes and acclimate to the technical and operational business processes that need to be performed. A work stoppage would critically affect the program schedules of DoD CIO and DC3. BAH's technical expertise and knowledge of the system engineering is vital. Halting of these services, even temporarily, will create unacceptable delays in requirements to the DoD CIO. BAH has accumulated significant technical expertise and unique knowledge during the performance of this initial effort. Engineering processes of systems, as well as technical data accumulated during BAH's support, is unlikely to be readily available at other organizations without sufficient transition time and training. In addition to BAH's technical and operational knowledge of the system, BAH has developed an extensive knowledge of the unique security and IA requirements of the DIB CS/IA program. BAH's specific knowledge includes security hardening for the commercial off-the-shelf tools used for securing DIBNet at the baseline and maintaining it against the DoD 8500 controls. The DoD 8500 controls are in place as follows: to maintain an Interim Authority to Operate Page 4 of 7 Pages DIBNet Development and Sustainment Recompete Protest-JA14-097 /Authority to Operate (ATO); to integrate DIBNet with DoD-approved external Public Key Infrastructure to develop the unique roles and permissions scheme to onboard DIB users in stages; and to develop a secure company registration process that allows company administrators to manage their own company's users. The DoD 8500 also controls an approach to secure the SECRET, but other than Secret Internet Protocol Router Network enclave that is accessible via commercial networks. These security requirements are unique and specialized to the program and are a critical requirement for the success of DIBNet. BAH has over three years of direct implementation experience with these requirements and can continue to ensure they are properly supported as the DIBNet system evolves and transitions to the new awardee. BAH has continuously developed an extensive understanding of the operational business processes used by DoD CIO and DISA/MAE in the delivery of DIBNet along with developing technical materials and supporting IA efforts needed to receive an ATO. BAH fully supports MAE's 12-step agile delivery methodology, which has been used to successfully implement 15 separate deliveries of DIBNet-Unclassified and DIBNet-SECRET-level within 12 spirals, since March 2010. Further, BAH understands DISA/MAE's unique lifecycle processes and does not require any transition or ramp-up time for DISA to meet DoD CIO's delivery schedule and milestones. (5) Procurement discussion. Please see section 4(b) above for details and dates on the protest history, the follow-on award, and history of the procurement. (6) Impact. Failure to maintain consistent contractor support, while undergoing the corrective action, will result in a loss of services urgently needed to meet DoD CIO's schedule and IA requirements of the DIB CS/IA program. Additionally, failure to provide contractor support will impede the follow-on task order until it can be fully transitioned. The services that BAH is currently providing are significantly instrumental to DISA's ability to support the DIBN CS/IA effort. Without the support, the ability for DIB partners to collaborate and share threat information with the DoD will be diminished. DoD and DIB partners must continue to maintain situational awareness regarding the extent and severity of cyber threats through the DIBNet system in order to protect DoD information from emerging, advanced, and persistent cyber threats.
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