842468948 ACE LMR JA24-051_Redacted.pdf

CUI

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Controlled By: Product Lead Base Emergency Communications System (PL BECS)

CUI Category: PROCUREMENT AND ACQUISITION Distribution/Dissemination Control: Acquisition Sensitive

POCs: Clive Flores, 703-806-8488 and Robert Good, 571-355-0643

JUSTIFICATION FOR OTHER THAN FULL AND

OPEN COMPETITION (OTFAOC)

Federal Acquisition Regulation (FAR) Part 6 Justification & Approval (J&A), Supporting Procurements under FAR Part 12, and FAR Part 15

Purchase Request Number: 12078910, 12079167, 12079251 Contract Number: To Be Determined (TBD) Task/Delivery Order Number: TBD Procurement Title: United States (US) Army Contiguous United Stated (CONUS) Enterprise (ACE) Land Mobile Radio (LMR) Fort Novosel, Alabama, and Holston Army Ammunition Plant (HAAP), Tennessee Modernization Effort Estimated Value:

Statutory and Regulatory Authority: 10 U.S.C. 2304(c)(1) and FAR 6.302-1, Only One Responsible Source and No Other Supplies Will Satisfy Agency

Justification for OTFAOC Number: JA24-051

Upon the basis of the following justification, I, as Procuring Activity Competition Advocate (PACA), hereby approve the use of other than full and open competition of the proposed contractual action pursuant to the authority of FAR 6.302-1, Only One Responsible Source and No other Supplies Will Satisfy Agency Requirements

1. REQUIRING AGENCY AND CONTRACTING ACTIVITY:

Requiring Agency:

Product Lead Base Emergency Communications System (PL BECS)

ATTN: SFAE-PST-LR

9351 Hall Road Building 1456 Fort Belvoir, VA 22060

Contracting Activity:

Defense Information Systems Agency (DISA)/Defense Information Technology Contracting Organization (DITCO)/PS8411 2300 East Drive, Building 3600 Scott AFB, Illinois 62225

2. NATURE/DESCRIPTION OF ACTION(S):

This is a new, sole source, firm fixed price requirement utilizing Fiscal Year (FY) 23 and FY24 Procurement dollars.

JA24-051 Fort Novosel, AL, and Holston Army Ammunition Plant, TN Land Mobile Radio Subsystem into the Army CONUS Enterprise LMR System

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3. DESCRIPTION OF SUPPLIES/SERVICES:

This procurement will supply Fort Novosel and HAAP each with a stand-alone LMR system to be integrated into the Army CONUS Enterprise LMR system. The LMR system is a wireless communications system intended for use by users in vehicles (mobiles) or on foot (portables) consisting of subscriber devices (portable, mobile and desktop radios) and system infrastructure (towers, repeaters, antennas, dispatch consoles, management terminals, logging recorders) that support those devices. LMR systems are used by emergency first responder organizations such as police, fire, and ambulance services, in addition to public works organizations and non-first responder organizations such as the Department of Public Works.

The Governments minimum requirements include Engineer, Furnish, Install, Secure and Test (EFIS&T) and make operational a turnkey LMR system comprised of LMR infrastructure, subscriber equipment, services, warranty, and licenses to ensure all necessary equipment is fully functional and integrated with existing CONUS LMR system. Services include project management, systems engineering, site preparation, equipment installation and optimization, security implementation, acceptance testing, training, and maintenance support for the subsystems.

The Period of Performance will be 24 months from contract award. The estimated value of contract award is .

4. IDENTIFICATION OF STATUTORY AUTHORITY:

Only one responsible source and no other supplies or services will satisfy agency requirements, 10 U.S.C. 3204(a)(1)

5. DEMONSTRATION OF CONTRACTOR’S UNIQUE QUALIFICATIONS:

At this time, the incumbent contractor/system owner, Motorola Solutions, Inc. (Motorola), is the only source capable of executing this requirement, as they are the current Original Equipment Manufacturer (OEM) and the only source with access to the proprietary software and information required to perform the modernization at Fort Novosel and HAAP.

(a) Description of events.

The PL BECS mission includes acquisition, management, and delivery of non-tactical LMR systems used for public safety and base operations at Army posts, camps, and stations. This effort will support the acquisition of the LMR system as required for Fort Novosel and HAAP.

The current Army model for existing LMR systems throughout CONUS/OCONUS is mainly standalone systems implemented on an installation-by-installation basis. The requested ACE LMR model provides enterprise-level LMR systems with redundancy throughout CONUS and OCONUS.

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The system cores are the central management equipment of the LMR systems that diagnose and monitor system faults and performance, program infrastructure elements, maintain and perform system security functions, and log usage information for the LMR system. One of the main functions of the core is to support the voice call processing throughout the system with seamless roaming. This function provides radio authentication (identifying the radio as an authorized end user on the system) and routes the voice call to the appropriate end user device (radio, dispatch console) through the Radio Frequency (RF) site(s). This function also provides mobility management or seamless roaming from site to site on the system. Seamless roaming allows end users to maintain connectivity to the LMR system through the RF coverage area regardless of which RF site is closest to the user. This ensures critical communications capability for all first responders in the jurisdictional area.

The LMR System cores in and of themselves cannot perform the functions identified above without the infrastructure equipment required to control, monitor, diagnose, and manage an onsite LMR system. As the proprietary vendor for the Fort Novosel and HAAP locations, Motorola is the only vendor able to propose the best solution for these locations.

This PL BECS effort along with Motorola will support the acquisition of the LMR systems as required for Fort Novosel and HAAP. Motorola is the only source capable of executing this requirement, as they are the current Original Equipment Manufacturer (OEM) and the only source with access to the proprietary software, hardware, and services required to perform the modernization at Fort Novosel and HAAP. The cybersecurity efforts to bring the system into PL BECS Authorization to Operate (ATO) boundary are considered proprietary. Lastly, Motorola develops and teaches the training unique to this specific procurement for LMR systems.

The current Army model for legacy LMR systems throughout CONUS/OCONUS is a standalone system implemented on a post/camp/station. The ACE LMR model provides enterprise-level LMR systems with redundancy throughout CONUS. One set of main system components (also known as the system core) is located at a prime core location designated for the specific system with a redundant core located at a backup location. The system cores are the central management equipment of the LMR systems that diagnose and monitor system faults and performance, program infrastructure elements, maintain and perform systems security functions, and log usage information for the LMR system. The system core for Motorola is proprietary and no other vendors are interoperable.

(b) Justification.

(1) Minimum Government requirements.

Motorola provides for enterprise-level LMR systems throughout the Army, both CONUS/OCONUS. LMR systems are developed based on the APCO P25 standards.

The P25 standards specify how the LMR equipment interfaces within an LMR system.

Since the P25 standards only mandate interoperability at the interface level and are

Page 4 of 8 Pages written to allow propriety hardware and software, no two manufacturers’ systems are ever 100% interoperable. This means that one manufacturer’s system cannot control, manage, monitor, diagnose, program, or perform security functions on another manufacturer’s system and vice versa. Only the OEM can provide updated equipment, infrastructure, maintenance, and cybersecurity patching for its own proprietary system. No other manufacturers, resellers, or system integrators can provide updated equipment and perform sustainment services over the system lifecycle; current agreements do not provide the authority to resell the entire system and the OEMs have indicated that such authority will not be provided for this effort.

Motorola Solutions, Inc. is the only source capable of executing this requirement, as they are the current OEM and the only source with access to the proprietary software, services and proprietary training required to perform the modernization at Fort Novosel and HAAP.

(2) Proposed sole source contractor. Motorola Solutions, Inc. This requirement is to supply Fort Novosel and HAAP with a modernized LMR system and connect into the Army CONUS Enterprise LMR system. As the incumbent, Motorola is the only OEM that can provide the P25 capabilities for the Novosel and HAAP LMR systems. There are no other sources for the Motorola system and modernization efforts available.

(3) Discussion regarding cause of the sole source situation.

Briefly reviewing the procurement history from the inception of the Army LMR program, all contracts awarded from September 2013, were awarded either under full and open competition or to a small business 8(a) Integrator. Full and Open Competition was determined appropriate since the market research revealed that there were at least two LMR manufacturers capable of meeting the Army LMR requirements, namely L3Harris and Motorola. Previously, the Army implemented each post/camp/station as a stand-alone LMR system; however, the LMR industry could not technically support a CONUS-wide enterprise LMR system model as the technology did not yet exist. With the technological advances over the last several years, the LMR industry now has the capability to implement a CONUS-wide enterprise LMR system to support all Army users. Only an OEM (L3Harris or Motorola) can provide the equipment, infrastructure, maintenance, and cybersecurity patching required for the CONUS-wide system. Resellers/Integrators do not have the comprehensive capabilities required.

There are 288 Army post/camp/stations with LMR systems which are either an L3 Harris or Motorola system. If the incumbent of the legacy LMR system is not awarded the delivery order, an additional cost of approximately was born to the post/camp/stations to fund the equipment not updated or replaced under the BECS Program modernization efforts.

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(4) Impact.

Motorola is the proprietary vendor for both Fort Novosel and HAAP and considering the amount of First Responders and agency personnel which use the LMR system, a lapse in service would be detrimental to the health, life and safety of First Responders and personnel on a post/camp/station. No other vendor can meet the current need for this integrated post/camp/station infrastructure that will ensure 100% of First Responder communications are interoperable between Fort Novosel and HAAP.

6. CONTRACT OPPORTUNITIES ANNOUNCEMENT/POTENTIAL SOURCES:

A synopsis for this requirement, along with a redacted justification OTFAOC, will be published to SAM.gov website, as required by FAR 5.2.

7. DETERMINATION OF FAIR AND REASONABLE COST:

A determination will be made by the contracting officer that the order represents the best value to the Government, as defined in FAR 2.101, and results in the lowest overall cost alternative (considering price, special features, and administrative costs) to meet the Government's needs.

The contracting officer will also determine the pricing information valid for comparative purposes. Certified cost and price data is not required for this commercial item acquisition, in accordance with FAR 15.403-1(b)(3). The contracting officer will determine whether the price is fair and reasonable based on:

a. Comparison of the proposed prices to historical and existing prices paid, whether by the Government or other than the Government for the same or similar items.

b. Comparison with competitive published price list and published market prices of the same commodities.

c. Comparison of proposed prices with the independent Government cost estimate.

8. MARKET RESEARCH:

Market research was conducted by PL BECS from January 2023 through December 2023.

Through this research, PL BECS determined that only Motorola and L3Harris Corporation manufacture commercially available P25 compliant trunked LMR systems that are capable of meeting EFI&T and cybersecurity demands for an enterprise LMR system in accordance with Army requirements. Motorola has the capability to provide an enterprise-wide system supporting more than 100,000 end users. Additionally, Motorola has invested resources over the last 10 years to develop and engineer proprietary LMR systems that meet the AR 25-2 cybersecurity requirements described above. Motorola has multiple systems accredited under the DoD and Army Cybersecurity policies and procedures. Moreover, AR 25-2 also requires

Page 6 of 8 Pages that LMR systems have a valid ATO or IATO before being connected to the Army network.

Motorola fully complies with this AR 25-2, since the Motorola LMR systems are currently accredited by the Army and have a valid Authority to Operate (ATO) and interim authority to operate (IATO) on the Army network.

Ongoing market research also indicates that while EF Johnson does manufacturer P25 trunked LMR systems, EF Johnson has not committed continuous effort to meeting the Army’s cybersecurity requirements. Specifically, EF Johnson does not have an LMR system with any valid ATO/IATO. Since the current timeline for developing and accrediting an LMR system to meet cybersecurity requirements is estimated at 18 to 24 months, neither EF Johnson nor other similarly situated vendors will be able to meet the Army’s cybersecurity requirements in a timely manner to deliver the LMR systems requirement.

A small business 8(a) company was utilized previously for modernization efforts; however, it was determined that the company was not executing 50% of the work as identified for supply contracts. The OEM, Motorola, has been executing most of the work as a subcontractor to the 8(a) company. Removing this modernization effort from the 8(a) program is essential to ensure a cost savings to the Government is realized. By removing this effort from the 8(a) program, the Government will save approximately in labor and fees.

Based on current market research, it has been determined that only the proprietary LMR System to be delivered at Fort Novosel and HAAP, provided by Motorola, can fully meet the Government’s need.

9. ANY OTHER SUPPORTING FACTS:

None.

10. LISTING OF INTERESTED SOURCES:

The OEM, Motorola Solutions, Inc., is the only vendor that can provide the LMR system and integration services at Fort Novosel and HAAP.

11. ACTIONS THE AGENCY MAY TAKE TO REMOVE OR OVERCOME BARRIERS

THAT LED TO THE EXCEPTION TO FULL AND OPEN COMPETITION:

Procurement History: The procurement of the P25 LMR system to be integrated into the Army CONUS Enterprise LMR system is a new requirement. The requirements listed below show other departments within the Army that procured LMR systems and solutions without the integration services needed for this requirement.

E-ELMR - Italy & Benelux W52P1J-16-D-0088 W52P1J-18-F-0408 Sole Source

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LMR - SWA (Jordan & Iraq) W52P1J-20-C-0044 N/A Sole Source ACE LMR Fort Bliss W52P1J-17-D-0037 W52P1J-20-F-0444 FAIR OPPORTUNITY ACE LMR Fort Hood (Fort Cavazos) W52P1J-17-D-0038 W52P1J-20-F-0453 FAIR OPPORTUNITY E-ELMR - Romania/Bulgaria (ROBU) W52P1J-21-C-0005 N/A (8a ANC) ACE LMR Fort Carson W52P1J-21-C-0020 N/A (8a ANC) ACE LMR Fort Drum W52P1J-21-C-0028 N/A (8a ANC) ACE LMR Fort Bragg (Fort Liberty) W52P1J-21-C-0033 N/A (8a ANC) ACE LMR Fort Leonard Wood W52P1J-21-C-0042 N/A (8a ANC) ACE LMR JBLM/YTC (COVID-19 DELAY) W52P1J-17-D-0038 W52P1J-21-F-0061 FAIR OPPORTUNITY ACE LMR Letterkenny W52P1J-22-C-0011 N/A (8a ANC) ACE LMR Fort Stewart W52P1J-22-C-0014 N/A (8a ANC) ACE LMR Fort Leavenworth W52P1J-23-C-0032 N/A (8a ANC) ACE LMR Fort Johnson/JRTC HC1084-24-P-0001 N/A Sole Source

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TECHNICAL CERTIFICATION: I certify that the supporting data under my cognizance which are included in the J&A are accurate and complete to the best of my knowledge and belief.

NAME: Robert J. Good SIGNATURE/DATE: See separate signature page

TITLE/ORGANIZATION: Assistant Project Manager, PL BECS

PHONE:

REQUIREMENTS CERTIFICATION: I certify that the supporting data under my cognizance which are included in the J&A are accurate and complete to the best of my knowledge and belief.

NAME: Robert J. Good SIGNATURE/DATE: See separate signature page

TITLE/ORGANIZATION: Assistant Project Manager, PL BECS

PHONE:

CONTRACTING OFFICER CERTIFICATION: I certify that this justification is accurate and complete to the best of my knowledge and belief.

NAME: Kevin L. Poore SIGNATURE/DATE: See separate signature page

TITLE/ORGANIZATION: Contracting Officer, DISA/DITCO/PS8411

PHONE:

PROCURING ACTIVITY COMPETITION ADVOCATE APPROVAL: I have reviewed this justification and find it to be accurate and complete to the best of my knowledge and belief.

Since this justification does not exceed $15M, this review serves as approval and my written determination that the aforementioned FAR circumstances apply.

NAME: Gay D. Arnold SIGNATURE/DATE: See separate signature page

TITLE/ORGANIZATION: PACA, DISA/DITCO

PHONE:

ALL QUESTIONS REGARDING THIS JUSTIFICATION ARE TO BE REFERRED TO:

Contract Specialist, Lauren Koerkenmeier,