13.501 J&A MassAutonomy__FINAL_Redacted.pdf

V220T.07 08/15

Procurement Request (PR) No.

DEPARTMENT OF TRANSPORTATION

OFFICE OF THE ASSISTANT SECRETARY OF RESEARCH AND TECHNOLOGY

VOLPE NATIONAL TRANSPORTATION SYSTEMS CENTER (VOLPE CENTER)

(V342 – Aviation Systems Engineering, V343 – Air Traffic Management Systems)

JUSTIFICATION AND APPROVAL FOR OTHER THAN FULL AND OPEN COMPETITION

PART I - TECHNICAL SUPPORTING DATA

Recommend that negotiations be conducted with MassAutonomy on a noncompetitive basis for award of a contract in an amount estimated to be . The supporting data for this recommendation are as follows:

A. Description of Supplies/Services - USDOT/Volpe Center is currently supporting Massachusetts

Department of Transportation (MassDOT) to promote and develop state-wide Unmanned Aerial System (UAS), Counter UAS (CUAS), Advanced Air Mobility (AAM), Airspace Situational Awareness (ASA), and Training, Test, and Evaluation (TTE) capabilities as part of MassDOT’s Commonwealth UAS Integration Program (CUIP). Volpe is assisting MassDOT in defining options and collaboration opportunities to address both capability and need by leveraging pathways, partnerships, policies, and cost-effective solutions. Volpe is assisting Mass DOT in testing and evaluation of radar coverage and UAS and sensor capabilities, developing integration strategies for use with MassDOT entities such as MBTA and MassDOT Highway Division, and supporting MassDOT in the establishment of a National CounterUAS Center of Excellence. Volpe is also assisting MassDOT in technical demonstrations for UAS Emergency Medical Delivery Pilot program. These demonstrations will necessitate deep integration with all different modes and agencies throughout MassDOT. Volpe’s overall effort will involve supporting future federal and/or commercial initiatives to engage Massachusetts in a pilot program to bring together federal, state, local, and commercial partners to develop public and commercial capabilities and to use the lessons learned as a blueprint to leverage future Commonwealth efforts.

Volpe is supporting MassDOT’s mission of developing a plan to foster the creation of a commercial UAS and AAM ecosystem within the Commonwealth of Massachusetts and the region, and to ensure a reliable state transportation infrastructure that is safe from evolving UAS threats. Advanced sensor capabilities will allow for improved infrastructure inspection and security by MassDOT and state agencies. Volpe requires support to assist MassDOT and the MassDOT Drone Team in evaluating advanced sensor capabilities and integrating with Massachusetts stakeholders (MBTA, Mass Highway, Mass State Police, etc.) conducting infrastructure inspections and security. Volpe requires assistance in training activities with the MassDOT Drone Team to continue safe and effective operations across the Commonwealth. Massachusetts seeks to establish a National cUAS Center of Excellence that will allow Massachusetts to collaborate with Federal, State, and Local governments to better leverage work being done across jurisdictions and in academia. The intent of the CoE is to collaborate with other stakeholders and provide sharing opportunities for research on similar UAS issues. MassAutonomy shall assist Volpe in establishing this Center of Excellence and defining guidelines for interaction, communication, and data sharing between CoE members. Massachusetts also seeks to establish a pilot program to test emergency medical drone deliveries to communities lacking rapid access to medical facilities. The combination of sensor evaluation, training, and the National CoE will aid in defining requirements for this medical drone delivery pilot program. Volpe requires support in integrating all stakeholders, regulatory requirements, and documentation necessary to receive approval for this pilot program.

B. Market Research – Volpe conducted a Market Research Survey through GSA OASIS (Multiple Award Schedule (MAS), OASIS Small Business, Other GSA Contract or BPA, OASIS Unrestricted). A sources sought was conducted in July 2022. A Performance Work Statement (PWS) along with questions to explore the potential of contractors being able to perform this specified work (See RFQ1570571, RFQ1570573, RFQ1570574, RFQ1570575 posting on GSA OASIS) was posted for 10 days. Questions ranged from general questions inquiring about business size, to previous contracts related to this work, to detailed questions relating to the required work. A specific question was asked, and it stated the following: “Does your firm have specific knowledge or expertise with different MassDOT operations such as Massachusetts highway infrastructure and administration, Massachusetts Bay Transportation Administration (MBTA) infrastructure and administration, and Commonwealth strategic planning and financial management models?” This information is critical to the work being performed. Of the 13 small businesses, only 4 responded in the affirmative to this question. Upon further examination of these businesses, 2 of these businesses are focused on project management roles and do not have UAS experience, 1 business does not appear to have UAS experience nor the detailed experience in MassDOT operations, and the other business has been acquired by a large business and does not have the necessary experience with MassDOT operations required for this work.

Internet searches of respondent’s capabilities and history was conducted post Market Survey Report. The government researched each respondents’ websites and capabilities as well as prior contracts completed.

After this search, it was determined that respondents who replied in the affirmative were not acceptable or did not have experience in the required fields. MassDOT and Volpe also rely upon continuity of a critical working group referred to as the AAM ITF. MassAutonomy has been a member of this group since its inception. In addition, Volpe utilized research and review of acquisition history. Two previous competitive contracts were awarded to MassAutonomy. These contracts were 6913G621P800039 and 6913G622P800023. 6913G621P800038 aimed to map current capabilities existing within MassDOT’s UAS portfolio to the CUIP framework and identified gaps, barriers, and opportunities across the MassDOT CUIP initiatives. A conceptual framework to organize different entities contributing to these overall goals to promote alignment of team member efforts was created. 6913G622P80023 built upon the previous contract mentioned by supporting the implementation of the conceptual framework developed previously. MassAutonomy was tasked to develop methodologies to deploy remote sensors to map overall airspace situational awareness for both cooperative and non-cooperative aircraft. They were tasked to map updated and evolving UAS capabilities to the MassDOT CUIP framework and continue to track and identify ongoing and evolving gaps, barriers, and opportunities across the MassDOT CUIP initiatives.

Additionally, an intent to sole source notice was posted to SAM.gov on 14 October 2022 with the performance work statement and the rationale for sole source. The notice advised interested parties to respond by 21 October 2022 with capabilities statements. The notice did not yield any responses from interested parties.

MassAutonomy, currently performing work with Volpe and MassDOT, is the only contractor who has the direct experience and expertise to complete this work without major program interruption, delay, and overburdening expense. MassAutonomy has previously competed and won 2 previous contracts solicited by Volpe for this work showing a proven track record of successful work for this program.

MassAutonomy was the only offeror in the first solicitation and the only offeror deemed to be technically acceptable in the second solicitation. MassAutonomy is the only contractor who has the existing domain and operational expertise to complete this work. MassAutonomy has intimate knowledge with MassDOT operational environment as well as other entities within MassDOT such as Massachusetts Highway Division, Massachusetts Rail and Transit Organization, and Massachusetts Bay Transportation Authority.

MassAutonomy has expert knowledge and operational experience with the Massachusetts Drone Team conducting daily flights within the Commonwealth. MassAutonomy is the only contractor who can support MassDOT CUIP priorities. MassAutonomy is also a founding member of the Massachusetts Advanced Air Mobility Integrated Task Force (AAM ITF). The AAM ITF is critical to the advancement of AAM priorities within the Commonwealth. This domain knowledge, operational expertise and active leadership role is irreplaceable.

C. Background [Optional]: N/A

D. Circumstances Requiring the Use of Other Than Full and Open (F&O) Competition.

Volpe requires specialized support in the areas of Massachusetts Drone Program operations, such as MassDOT rail inspections and training, Massachusetts Highway Infrastructure and administration, Massachusetts Bay Transportation Administration operations, and Commonwealth Strategic Planning and Financial Management Models. The Volpe Center requires a successful offeror that has the existing domain knowledge, as well as specialized conceptual expertise, and awareness of the above statements, as well as expertise of the MassDOT CUIP (Commonwealth UAS Integration Program) to allow for support of and contribution to the end products. This contribution will lead to reports, white papers, and other documentation that will be necessary for successful implantation of MassDOT UAS goals such as routine UAS operations for inspection and security across the commonwealth. Volpe requires a successful offeror who can continue to administer the Massachusetts Advanced Air Mobility Integrated Task Force (AAM ITF) and provide coordination of Training, Test, and Evaluation (TTE) capabilities within Massachusetts. The AAM ITF group is a critical collaborative group with both industry, state, and local partners within Massachusetts. The successful offeror shall have the capability to engineer the documentation that defines current state and future state of the MassDOT CUIP. MassAutonomy is the only contractor who meets all these requirements.

The Volpe Center and MassDOT invested 18 months of expertise developing the CUIP. Throughout this time, MassAutonomy has developed a MassDOT approved training program for drone operators, devised MassDOT approved safety regulations and procedures as well as provided leadership of the Advanced Air mobility Integrated Task Force which brings together government and industry personnel to further UAS and AAM operations throughout the Commonwealth. MassAutonomy, currently performing work with Volpe and MassDOT, is the only contractor who has the direct experience and expertise to complete this work without major program interruption, delay, and overburdening expense. Should this be awarded to another contractor, procedures, processes, and documentation would need to be updated and personnel trained. Current UAS operations that provide critical data to MassDOT would be halted until processes could be replicated and personnel can be properly trained and integrated into the current processes.

Tasking another contractor and replicating processes established in the past 18 months, will require additional months of support estimated to be a least 6-8 months or of added budget based on level of effort of previously awarded contracts, current operational requirements, and expected rapid pace of development.

1. Only One Responsible Source and No Other Supplies or Services will Satisfy Agency

Requirements -

(a) MassAutonomy has critical knowledge of the work Volpe is supporting. MassAutonomy has domain knowledge specific to MassDOT operations including Massachusetts Highway operations, MBTA operations, and other aspects of MassDOT operations. MassAutonomy has experience in leading the AAM ITF that is critical to advancing MassDOT’s goals of integrating drones into the Commonwealth for governmental and commercial use.

(b) MassAutonomy employs a number of former MassDOT and MassDOT agency personnel.

MassAutonomy employees have intimate experience with the operations of MassDOT agencies