Limited Source Justification, Pr 0040007734

2011.12-13

LIMITED SOURCE JUSTIFICATION, PR 0040007734

REF: FAR 8.405-6 FAR 17.502-1(a) DIAPR 2008-10

1. Identification of the agency and contracting activity, and specific identification of the document as a “Limited Source Justification.” The U.S. Geological Survey, Office of Acquisition and Grants, Sacramento Branch (OAG Sacramento) intends to award a noncompetitive, single- award Blanket Purchase Agreement (BPA) under the authority of the Multiple Award Schedule Program (see Federal Acquisition Regulation (FAR) 8.401.) This document is specifically identified as a “Limited Source Justification” and prepared in the format prescribed at FAR 8.405-6(c). This document also contains the Contracting Officer’s “Determination of Best Procurement Approach,” which is required by FAR 17.502-1(a), within paragraph 5 below.

2. Nature and/or description of the action being approved. OAG Sacramento intends to negotiate and award a noncompetitive, single-award BPA against GSA Schedule contracts GS- 35F-0156V with Avaya Federal Solutions, Inc. and GS-35F-4366G with Avaya Government Solutions, Inc. (formerly Nortel Government Solutions), hereafter collectively referred to as “Avaya.”

3. Description of the supplies or services required and the estimated value thereof. The USGS has an aging voice (telephone) infrastructure and has been systematically replacing/upgrading end-of-life systems since 2009 under predecessor contract G09PC00066 with Avaya. The USGS plans to continue to replace or upgrade all voice systems that have not been replaced or upgraded since 2009 over the next approximately five (5) years, at an approximate rate of fifteen (15) systems per year. In addition to replacement/upgrades of full systems, the BPA’s scope will include piece and replacement parts (generally telephone handsets), installation and design services, and out-year hardware and software maintenance. Inclusive of piece and replacement parts, and out-year maintenance, the USGS estimates that the value of the intended BPA will not exceed $10M over its life, planned as one (1) base year and four (4) option years.

4. Rationale for limiting competition. Please reference the attached “Special Notice – U.S. Geological Survey enterprise voice network program” for a detailed history of the USGS’ enterprise voice network and a discussion of the circumstances surrounding our consolidation on an Avaya platform. In summary:

Limited Source Justification, PR 0040007734 - Page 1 of 5  Approximately 93% of the USGS’ existing voice infrastructure can be considered Avaya branded. Approximately half of the USGS’ existing voice infrastructure is relatively new; the other half is scheduled to be replaced in the next five (5) years.

 The three largest USGS offices are Avaya branded, and have been recently upgraded to current standards.

 All systems that have been purchased in the last 2 ½ years have been Avaya branded; thus USGS telephone infrastructure personnel are well-trained and very familiar with that platform.

 It is highly desirable to integrate distributed voice systems into a single voice network, to realize centralized administration, ensure system interoperability and compatibility, streamline maintenance and operational requirements, simplify management of warranties, reduce training and troubleshooting costs, maximize consistency of voice features and applications enterprise-wide, and standardize security protocols and administration. Platform and brand consistency throughout the organization is necessary to achieve these goals.

 It is highly desirable to purchase bundled hardware and software support or software support with upgrades, necessitating purchase of out-year maintenance from either the manufacturer directly or a manufacturer-authorized provider.

 Given predecessor contract G09PC00066 and the recent system upgrades at Reston, Denver, and Menlo Park “main” offices, the USGS has a substantial recent investment in the Avaya platform.

 Continuing to purchase Avaya systems would achieve the goal of an integrated voice network while leveraging existing assets to the maximum extent practicable.

For these reasons, the USGS has determined it necessary to limit consideration of any future voice infrastructure equipment to Avaya products only. Establishing a single-award BPA with Avaya directly will provide the USGS access to both new systems and to out-year maintenance, and to Avaya’s network of business partners which are authorized to act as agents for Avaya’s GSA Schedule contracts. Most orders would be placed with, and fulfilled by, Avaya directly, but the business partner network could be called upon in locations where Avaya’s direct presence is limited (Alaska and Hawaii, for example), or where local area or subject matter expertise is determined beneficial.

The USGS did not arrive at the decision to limit competition in this way lightly. In fact, the USGS posted the attached special notice specifically to solicit industry feedback for ways to achieve the goal of an integrated voice network while maximizing competition and efficiently leveraging our existing resources. The notice was available from 03 November 2011 through 21 November 2011; during that time, no relevant responses were received.

Limited Source Justification, PR 0040007734 - Page 2 of 5 5. Determination by the ordering activity Contracting Officer that the order will represent the best value to the Government consistent with FAR 8.404(d), and “determination of best procurement approach” consistent with FAR 17.502-1(a). The intended BPA will incorporate the entirety of Avaya’s GSA schedule supplies and services list, plus the legacy Nortel supplies and services list, with an additional agency discount anticipated at REDACTED off of list price. It has been previously discussed that continuing to purchase Avaya equipment, and acquiring manufacturer-authorized and provided out-year maintenance, is the best value to the Government considering the dual goals of establishing an integrated voice network and efficiently leveraging existing resources; establishing the intended BPA will provide an additional discount over and above the prices already determined by GSA to be fair and reasonable (see FAR 8.404(d)). In accordance with FAR 17.502-1(a)(2), establishing a single-award BPA with Avaya is the “best procurement approach.” The existing GSA schedule contracts are perfectly suited to the USGS’ requirement; establishing a BPA is a “high value” acquisition proposition, considering the administrative savings of using an existing contract vehicle and the anticipated additional price discounts to be provided over and above the prices already determined fair and reasonable; and the USGS possesses the necessary expertise to place and administer orders throughout the life of the intended BPA.

6. Description of the market research conducted among schedule holders and the results, or a statement of the reason market research was not conducted. As stated above, the USGS posted a special notice in the Governmentwide Point of Entry (GPE) prior to finalizing this acquisition plan, specifically for the purpose of conducting market research and soliciting industry feedback. No relevant responses were received.

7. Any other facts supporting the justification. No other facts are necessary to support this limited source justification.

8. Actions, if any, the agency may make to remove or overcome any barriers that led to the restricted consideration before any subsequent acquisition. None. The USGS does not anticipate a subsequent acquisition for a similar requirement in the foreseeable future. Once the USGS’ voice infrastructure has been upgraded, which is expected to fully occur under this immediate action, any subsequent acquisition will likely encompass out-year maintenance and replacement parts only. Even if additional site upgrades were required under a subsequent acquisition, the logic that leads to the instant conclusion that only Avaya is suitable would continue to hold true in the future, only more so, as the Avaya installed base would be that much larger.

9. Concurrence from the Chief of the Contracting Office. In accordance with Department of Interior Acquisition Policy Release (DIAPR) 2008-10 with Amendment 1 thereto, concurrence from the Chief of the Contracting Office is required prior to the Contracting Officer’s Certification (see paragraph 10 below) on all noncompetitive actions exceeding $25,000.00 in total value. Based on the information presented herein, I concur with this limited source justification.

Limited Source Justification, PR 0040007734 - Page 3 of 5 SIGNATURE REDACTED

NANCY V MILLER Chief U.S. Geological Survey Office of Acquisition and Grants, Sacramento

THE REMAINDER OF THIS PAGE INTENTIONALLY BLANK

10. The ordering activity Contracting Officer’s certification that the justification is accurate and complete to the best of his knowledge and belief. By signature below, the ordering activity Contracting Officer certifies that this justification is accurate and complete to the best of his knowledge and belief.

SIGNATURE REDACTED

JEFFREY M. CARAVELLI Contracting Officer U.S. Geological Survey Office of Acquisition and Grants, Sacramento

11. Evidence that any supporting data that is the responsibility of technical or requirements personnel and which form a basis for this justification have been certified as complete and accurate by the technical or requirements personnel. By signature below, the technical/requirements point of contact certifies that technical information which forms a basis for this justification is accurate and complete to the best of his knowledge and belief.

SIGNATURE REDACTED

DAVID C. CAHOON Telecommunications Specialist U.S. Geological Survey Office of Administration and Enterprise Information Telecommunications Policy and Planning Group

12. Approval. In accordance with FAR 8.405-6(d)(2), I have reviewed this justification and I APPROVE.

Limited Source Justification, PR 0040007734 - Page 4 of 5 SIGNATURE REDACTED

SANDRA LINTZ Bureau Competition Advocate (Acting) U.S. Geological Survey Office of Acquisition and Grants, Denver

13. Attachments. There is one (1) attachment hereto, entitled “SPECIAL NOTICE – U.S. Geological Survey enterprise voice network program,” four (4) pages.

Limited Source Justification, PR 0040007734 - Page 5 of 5