B-297112, Carahsoft Technology Corporation, November 21, 2005

B-297112 Nov 21, 2005 Jump To VIEW DECISION DOWNLOADS RELATED PAGES GAO CONTACTS Highlights Carahsoft Technology Corporation protests the terms of request for quotations (RFQ) No. 1435-04-05-RQ-44166, issued by the Department of the Interior--GovWorks for a web-based executive pay and performance appraisal system (EPPAS) for the Department of Justice (DOJ), Justice Management Division (JMD). Carahsoft argues that the requirement that the software system be capable of being installed on the agency's internal computer networks is unduly restrictive of competition. We deny the protest. View Decision B-297112, Carahsoft Technology Corporation, November 21, 2005 Decision Matter of: Carahsoft Technology Corporation File: B-297112 Date: November 21, 2005 Frederick W. Claybrook, Jr., Esq., and Edward R. Murray, Esq., Crowell & Moring LLP, for the protester. Barry C. Hansen, Esq., Kristen E. Bucher, Esq., and John Caterini, Esq., Department of Justice, and Sherry Kinland Kaswell, Esq., Department of the Interior, for the agencies. Kenneth L. Kilgour, Esq., and Christine S. Melody, Esq., Office of the General Counsel, GAO, participated in the preparation of the decision. DIGEST Solicitation for software to computerize employee appraisal process that calls for the same software to be used both agency-wide and for one agency component that requires its own separate, internally-hosted software system is not unduly restrictive of competition where the record shows that the requirement furthers agency's need for efficiency and risk avoidance in its modernization efforts. DECISION Carahsoft Technology Corporation protests the terms of request for quotations (RFQ) No. 1435-04-05-RQ-44166, issued by the Department of the Interior--GovWorks for a web-based executive pay and performance appraisal system (EPPAS) for the Department of Justice (DOJ), Justice Management Division (JMD). [1] Carahsoft argues that the requirement that the software system be capable of being installed on the agency's internal computer networks is unduly restrictive of competition. We deny the protest. DOJ is a large agency, with approximately 37 components[2] and 727 Senior Executive Service (SES)-level positions, 250 of which are in the FBI. Currently, all SES performance work plans, performance appraisals, mid-year and annual evaluations, and bonus and award documents are prepared manually. According to DOJ, the performance work plans may be modified throughout the year in response to occasional changes in policies or priorities. The process is paper-intensive, time-consuming, and susceptible to database entry errors and other inefficiencies. The RFQ at issue here reflects DOJ's decision to convert from the current manual process to a computer-based process. The RFQ seeks a commercial off-the-shelf or government off-the-shelf web-based EPPAS product suitable for the performance appraisal modernization effort. The RFQ calls for one copy of the EPPAS software, to be installed for use by all DOJ components except the FBI. The agency explains that the FBI's EPPAS system will contain classified information, and FBI protocol therefore requires its system to be housed internally on the FBI Intranet, which does not communicate electronically with the department-wide system. Accordingly, the agency states that it intends to amend the RFQ to add an option to purchase a second copy for use by the FBI. Agency Report (AR), Tab 6, Director of Personnel Staff Affidavit at 6, para. 18. Because the FBI's system must be housed internally, and because the agency wants two identical EPPAS systems, the RFQ required that the contractor quote an EPPAS product capable of being installed on DOJ's internal network. AR, Tab 3, RFQ Statement of Work at 2. In addition, the RFQ required that the product be fully compatible with DOJ's existing hardware and software infrastructure, and designed, developed, documented, tested, and implemented in accordance with DOJ's programming and security standards. Id. at 6. The EPPAS must also interface with the NationalFinanceCenter, which processes DOJ's payroll, so that salary increases and bonuses flow automatically to the payroll system. Id. at 5. Prior to final acceptance, the system must have been fully certified and accredited by an independent source with no technical findings of deficiencies; the certification and accreditation process was to be separately funded. Id. at 6. The agency explains that once both the FBI and the rest of DOJ have EPPAS products in place, there are two times in the annual operation of the two systems that they will need to share information with each other. After review at the component levels within DOJ, and in preparation for the review agency-wide, pertinent data in the FBI's system, absent any classified information, will be transferred via disk from that system to the department-wide system.