200501 KC-135 ATS JA 6month EOS 22 April 2020v2 PEO_Redacted.pdf

Justification and Approval (J&A) for Other Than Full and Open Competition

Justification and Approval (J&A) for Sole Source Extension of Services

March 2018 Justification and Approval (J&A) for Sole Source Extension of Services Page 1 of 6

NOTE: If a Justification and Approval was approved for the preceding acquisition, a copy of the approved J&A for the predecessor action must be included in the staff package for approval of the instant J&A. This applies to all J&A staff packages that are submitted for review and approval at a level above the contracting officer. The predecessor J&A will be used as a reference document by the approving official.

Is this a new or amended J&A Document? New Amended ( Prior to Award Only! )

Is this a Bridge Action as defined in the AF Bridge Action Reduction Plan? Yes No

Funding level for this acquisition: < $700K > $700K and < $13.5M > $13.5M and < $93M > $93M

Contracting Activity:

Department of the Air Force, Air Force Material Command (AFMC), Air Force Life Cycle Management Center (AFLCMC), Agile Combat Support (ACS) Directorate (AFLCMC/WN), Simulators Division (AFLCMC/ WNS), Contracting Branch, Wright Patterson Air Force Base (WPAFB), Ohio

Purchase Request / Local ID Number: FA8223-10-C-0013

Program / Project (and PE, if applicable): KC-135 Aircrew Training System (ATS)

Program Type (PEO or Other Contracting): Air Force Program Executive Officer for ACS

Authority: 6.302-1 – 10 USC 2304(c)(1), Only One Responsible Source and No Other Supplies or Services Will Satisfy Agency Requirements

Estimated Contract Cost (including options): J&A Type: Class Individual

COORDINATION (AFFARS 5306.304(a) )

Date

Date

07 Apr 2020

Date

13 Apr 2020

Date

20 Apr 2020

Date

29 Apr 2020

March 2018 Justification and Approval (J&A) for Sole Source Extension of Services Page 2 of 6

APPROVAL (AFFARS 5306.304(a) )

Date

30 April 2020

March 2018 Justification and Approval (J&A) for Sole Source Extension of Services Page 3 of 6

I. Contracting Activity.

The Department of the Air Force, Air Force Materiel Command (AFMC), Air Force Life Cycle Management Center (AFLCMC), Agile Combat Support Directorate (AFLMC/WN), Simulators Division (WNS), Tankers Branch proposes to enter into a six-month extension of services (EOS) for the KC-135 Aircrew Training System (ATS). The KC-135 ATS Government Program Office (GPO) is located at 2300 D ST, Wright Patterson Air Force Base (WPAFB), OH 45433.

II. Nature and/or description of the action being processed.

AFLCMC/WNS is seeking approval to enter into a six-month extension of services with the current ATS contractor, CAE (Tampa, FL) to address critical mission requirements. The current contract is set to end 30 Sep 20. This six-month extension will be Firm Fixed Price (FFP), and it will include the continuation of student training on all devices, Contractor Logistics Support (CLS), interoperability, concurrency, Training School Support Center (TSSC) support, and Simulator Common Architecture Requirements and Standards (SCARS) support. The EOS will include all aspects of the current contract, FA8223-10-C-0013. The original contract was awarded 31 Aug 10 for ~$25M.

Following the end of services period under FA8223-10-C-0013, a Fair Opportunity Proposal Request (FOPR) will be awarded (FA8621-20-R-0022) to take over the continuation of requirements; expected award date is 01 Apr 21. The 6-month base extension will be IAW FAR 52.217-8, Option to Extend Services clause included in the current contract.

Approval of this extension will allow for continued support of the KC-135 aircrew training for all KC-135 ATS pilots and boom operators until the Fair Opportunity Selection (FOS) for the requirement can be concluded.

III. Description of supplies/services required to meet agency needs.

The Government currently has an Operational Flight Trainer (OFT), specifically OFT 11, located at CAE's facility in Tampa, FL. OFT 11 was moved to CAE's facility in preparation for a KC-46 trainer arriving at Seymour Johnson. OFT 11 is used to train queen bee students/aircrew in the SE region of the US. Since the SE region only has two OFTs (one located at MacDill and one at CAE), it has a stressed training pipeline.

The plan is to move the device from CAE's facility in Tampa, FL to MacDill AFB, but there has been a delay in the Military Construction (MILCON) schedule for the new facility being built to house the device. The current contract ends 30 Sep 20, and the facility at MacDill is supposed to be ready to receive OFT 11 in Mar/Apr 21. The 6-month EOS Period of Performance (PoP) will be 1 Oct 20 - 31 Mar 21. Air Mobility Command (AMC) requires OFT 11 to remain "in training" to align more closely to the Building Occupancy Date (BOD) of the MILCON at MacDill AFB.

If the 6-month EOS does not get approved, the OFT will be put in storage, resulting in significant impact to the students and training capability.

The driver behind including everything that is on the current contract within the 6-month EOS are the concurrency and consistent training needs for all 28 devices. If CAE were only to maintain OFT 11 and a new contractor took over the other 27 devices, OFT 11 would fall behind the pipeline with concurrency needs, courseware and software updates, in addition to failing to meet cyber and interoperability requirements.

The PoP for this effort will be a maximum of 6 months, and the effort will be funded the same as the current contract, with Fiscal Year (FY) 2021 3400 and 3010 funds, as applicable. The overall value of the 6-month EOS is estimated to be

Below are the scope of CLINs that will be extended:

Program Management, TSSC Support, Instruction, Continuation Training, Academics, CRM Training, Travel, Material Support, Consumables, Spares, Site Security/IA Support, Site MAF DMO Training, MAF DMO Phase I, Cyber Security, SCARS Support, and Information Systems Support

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IV. Statutory authority permitting other than full and open competition.

10 U.S.C.2304(c)(1), as implemented by FAR 6.302-1, and required by FAR 6.303-2(b)(4). Only one responsible source and no other supplies or services will satisfy agency requirements. Award to any other source would result in unacceptable delays in fulfilling agency requirements; unsatisfactory completion of student training throughput identified for this region; significant increase in TDY costs to utilize another location in lieu of OFT 11; and negative contractor staffing impacts to adjust instructor hours to support additional throughput at other sites.

V. Demonstration that the contractor's unique qualifications or nature of the acquisition requires the use of the authority cited above (applicability of authority).

(1) CAE is the sole responsible source for the O&S of the KC-135 ATS program. This effort to extend the current CAE contract will continue concurrency, student instruction, CLS, and TSSC support for the existing training devices at all 13 locations when the current contract expires 30 Sep 20. CAE has been the contractor on this contract since 2010.

Currently, the program office's team is conducting a separate FOS for the follow-on KC-135 Training Systems (TS) contract, as well as the daily execution needs of the current contract. Extension of the current contract via the 6-month EOS clause will provide the necessary time for MILCON to complete the new facility for the OFT. It is the intent of the USG to exercise the minimum number of months to avoid a break in training, allow for construction of the MacDill site facility to complete, complete the FOS, and allow the new awardee a proper transition period, which is currently planned to be 90 days. The requirement is highly specialized due to the KC-135 ATS operation experience required of instructors and the uniqueness and complexity of each of the training devices. Therefore, this acquisition is for continued performance of a highly specialized service.

(2) CAE, as the incumbent contractor, has the current resources to perform this EOS due to already employing instructors and CLS support required to continue classroom instruction, maintenance, and TSSC support without having a break in service.

(3) The team has considered only exercising the 6-month EOS for OFT 11 only. However, this breakup of work would create redundancy with two vendors supporting the KC-135 ATS. It would also result in a loss in sustainment, courseware and software updates; cybersecurity and interoperability requirements (Mobility Air Force (MAF) Distributed Mission Operations (DMO) and SCARS), and concurrency with the aircraft. With CAE continuing as they do today for an additional 6 months, OFT 11 gains the ability to maintain consistent support with the other 27 devices.

Then, the turnover of the entire program to the new vendor post Fair Opportunity Selection will provide a smooth flow with all devices maintaining the necessary maintenance support and aircrew training.

(4) If the 6-month EOS does not get approved, the OFT will be put in storage, resulting in significant impact to the students and training capability. In addition, long term storage of the simulator introduces rust and wiring degradation issues due to lack of current flowing through them that will impact the readiness of the device once it is put back into operation from a storage capacity.

(5) If the approval to award the 6-month EOS is not granted, the program office and customer (AMC) will be faced with a difficult decision. Two alternatives would need to be considered:

1. Putting the device in storage by 30 Sep 20, while waiting for the site at MacDill to complete

2. Moving the device to a different region, which has congressional impact, increased TDY costs, and puts higher risk on the trainer breaking

(6) In conclusion, CAE is the only firm capable, in the immediate future, of providing the services described in the section above without a break in training service due to their highly specialized knowledge and experience associated with this contract. The extension of CAE's contract will give the Government additional time as MILCON completes the facility at MacDill, which allows for the continuation of student training, concurrency, CLS, and TSSC support for the entire contract. This extension avoids unacceptable delays in fulfilling the AF requirement for the qualification and training of KC-135 ATS pilots and boom operators.

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VI. Description of efforts made to ensure that offers are solicited from as many potential sources as practicable.

A Sources Sought Synopsis was published to www.beta.sam.gov on 12 Dec 19 for 28 days to elicit as many potential sources as possible for this extension. The solicitation closed out on 10 Jan 20 with only a single response from a large business, "CAE USA Inc." CAE presented competencies and performance history in regards to student instruction, CLS, TSSC, modifications, device relocations, and cybersecurity.

CAE's response was determined to be applicable to our requirements for the ATS, which includes CLS, TSSC, interoperability, and student training. Therefore, CAE's inputs were deemed "relevant."

As a result of these efforts to conduct market research, the program team has concluded that there is one potential source that is capable of satisfying the ATS requirements.

The GPO is currently in the acquisition planning process for the follow-on recompete IDIQ task order under Training Systems Acquisitions (TSA) III. Once awarded, the new contractor will take over all aspects of the KC-135 TS. Based on market research, the GPO anticipates substantial competition for the new contract.

VII. Determination by the Contracting Officer that the anticipated cost to the Government will be fair and reasonable.

The Contracting Officer (CO) will determine whether the cost to the USG is fair and reasonable based on this effort being a continuation of prices supported by adequate price competition. This is based on FAR 52.217-8, which allows the CO to unilaterally extend the current prices.

VIII. Description of the market research conducted and the results, or a statement of the reasons market research was not conducted.

As described in Section VI above, market research was conducted IAW Far Part 10. Market research was conducted by synopsis of the proposed acquisition strategy, advising industry of the pending acquisition and soliciting inquiries from interested parties. As a result of the market research, the procurement team has determined there is one potential source that is capable of meeting the ATS requirements.

IX. Any other facts supporting the use of Other Than Full and Open Competition.

None.

X. List of any sources that expressed, in writing, an interest in the acquisition.

CAE, USA Inc.

XI. A statement of the actions, if any, the agency may take to remove or overcome any barriers to competition before making subsequent acquisitions for the supplies or services required.

This J&A provides services for up to 6 months, which affords the the Government the authority and time required for the following: (1) Plan for any mitigating circumstances related to the current COVID-19 pandemic; (2) Avoid a break in service for the current ATS contract; (3) Afford the Source Selection Team (SST) adequate time to evaluate any proposals submitted by 30 April 2020; (4) Obtain MILCON to complete construction of the facility at MacDill AFB, which will house the OFT 11 and (5) Permit for a 90 day transition period between the incumbent and new contractor. The FOS will be awarded, and it will permit the incoming contractor (awardee) sufficient time to prepare, transition, and accomplish the KC-135 ATS performance requirements. Finally, this EOS extension will allow current ATS contract activities to align under a holistic approach that will be performed under the resulting award from FOPR

FA8621-20-R-0022.

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XII. Certification by the Contracting Officer.

As evidenced by my signature above, I have determined this document to be both accurate and complete to the best of my knowledge and belief.

XIII. Certification by the technical/requirements personnel.

As evidenced by my (our) signature(s) above, I (we) certify that any supporting data contained herein, which is my (our) responsibility, is both accurate and complete.