A02 - JA-25-B-0434_PD BECS LMR Fort Gregg-Adams_Approved_25JUN2025 Redacted_Redacted 25 August 2025.pdf

CUI

Control Number: JA-25-B-0434

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Controlled By: Product Director Base Emergency Communications System (PD BECS)

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

POC: Clive Flores, (571) 355-1391

CUI//SP-SSEL

(Source Selection Information - See FAR 2.101 and 3.104-4)

Justification Review Document For Other than Full and Open Competition - FAR Part 13.501

Program/Equipment: Army CONUS Enterprise Land Mobile Radio (LMR) Subsystem Modernization and Interoperability into Base Emergency Communications System (BECS) at Fort Gregg-Adams. The mission is to modernize and provide the integration of Fort Gregg-Adams Land Mobile Radio (LMR) system with Army CONUS Enterprise (ACE) LMR system. This modernization will include requirements to Engineer, Furnish, Install, Secure, and Test (EFIS&T) a turnkey LMR system comprised of BECS infrastructure, subscriber equipment, services, warranty, and licenses to ensure all necessary equipment is fully functional and integrated with existing ACE LMR system.

Authority: 41 United States Code (U.S.C.) 1901 as implemented by Federal Acquisition Regulation (FAR) Subpart 13.501(a), sole source (including brand name) under the authority of the simplified procedures for certain commercial items.

Amount: The total estimated value is $ .

Prepared by:

Contracting Officer:

Technical Representative:

Requirements Representative:

Reviews

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Justification and Approval (J&A) for Other than Full and Open Competition - FAR Part 13.501

1. CONTRACTING ACTIVITY AND REQUIRING AGENCY:

Contracting Activity:

Army Contracting Command – Aberdeen Proving Ground (ACC-APG) 6590 Reconnaissance Street (BLDG 6010) Aberdeen, MD 21005

Requiring Agency:

Product Director Base Emergency Communications System (PD BECS)

ATTN: SFAE-CCC-BC

9351 Hall Road Building 1456 Fort Belvoir, VA 22060-5576

2. DESCRIPTION OF ACTION: Product Director Base Emergency Communications System (PD BECS) requests to award a new sole source Firm Fixed Price (FFP) Contract with Motorola Solutions, Inc. (MSI)to provide the required ACE LMR Fort Gregg-Adams Modernization effort. The requirement will consist of a twenty-four (24) month base period with no option years. The award is projected for August 2025 and will obligate FY25 Other Procurement, Army (OPA) dollars.

An Acquisition Plan is not required for this procurement because it does not meet the threshold at DFARS 207.103(d)(i)(B).

3. DESCRIPTION OF SUPPLIES/SERVICES: The PD BECS mission includes the acquisition, management, and delivery of non-tactical LMR systems used for public safety and base operations at United States Army Installations/Depots/Activities (I/D/As) worldwide. This procurement will modernize the current LMR system at Fort Gregg- Adams with a stand-alone LMR system to be integrated with the ACE LMR system architecture. The currently fielded LMR equipment is near end-of-life/end-of-service, and the legacy system must therefore be updated with current technology that improves interoperability and, ultimately, system performance. An LMR system consists of subscriber devices (portable, mobile and desktop radios) and system infrastructure (towers, repeaters, antennas, dispatch consoles, management terminals, logging recorders) that support those devices. These devices and systems are used by emergency first responder organizations, such as police, fire, and ambulance services, and other garrison organizations, such as the Directorate of Public Works, to support

Page 4 of 24 Pages the emergency needs of Soldiers and civilians. A trunked LMR system allows sharing of radio frequency channels amongst a large user population which eliminates the need for a one-to-one communication between user groups and radio frequency channels.

Additionally, the vendor will be required to modernize the Fort Gregg-Adams system so that it enables interoperability with the other four (4) Base Emergency Communications System (BECS) capabilities; Computer Aided Dispatch, Enterprise Mass Warning and Notification, Next Generation 911, and First Responder Broadband Network. The BECS Capability Development Document directs the modernization for an interoperable solution for Public Safety Communication systems currently used by I/D/As. Specific requirements include to EFIS&T a turnkey LMR system comprised of BECS infrastructure, subscriber equipment, services, warranty, and licenses to ensure all necessary equipment is fully functional and integrated with existing ACE 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 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 Original Equipment Manufacturer (OEM) at Fort Gregg-Adams, Motorola Solutions is the only vendor available to modernize the current LMR system at Fort Gregg-Adams without replacing the entire system or suspending services. This PD BECS effort along with Motorola Solutions will support the acquisition of the LMR system as required for Fort Gregg-Adams. The cybersecurity efforts to bring the system into the ACE LMR Authorization to Operate (ATO) boundary are considered proprietary. Lastly, Motorola Solutions 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 Solutions is proprietary and no other OEMs are interoperable.

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5. REASON FOR AUTHORITY CITED: As provided in FAR 13.106-1(b)(2), for purchases exceeding the simplified acquisition threshold, the requirements at FAR 13.501(a) apply to sole-sourcing (including brand-name) acquisitions of commercial products and commercial services conducted pursuant to subpart 13.5.

(a) The Association of Public Safety Communications Officials Project 25 (APCO P25 or 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 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 integrated solution & equipment provider for the Fort Gregg-Adams site (Motorola Solutions) can currently provide updated equipment, infrastructure, maintenance, and cybersecurity patching for its own proprietary system. No other manufacturers, resellers, or system integrators can provide updated equipment, cybersecurity controls, 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.

Currently, replacing the legacy LMR system at Fort Gregg-Adams is not cost effective and strains resources such as funding, schedule, compatibility, and labor. The program is not funded to support a complete lifecycle replacement of the legacy system and undertaking such an effort would incur costs that far exceed the program’s current budget of and will significantly impact our ability to modernize effectively. To execute a complete life cycle replacement of the legacy LMR system would entail replacing all LMR related equipment and infrastructure components, such as, but not limited to, Radio Frequency Combiners and Repeaters, Routers, Switches, Servers, Dispatch Console Workstations etc., thereby, increasing costs by approximately $2-3M over the current budget.

The additional level of effort involved with the complete life cycle replacement of the legacy LMR system is a potential risk to schedule that would add 6-12 months to the schedule. Ultimately, a life cycle replacement would not allow the program to be a means to recoup these costs through competition because the effort would still be awarded to Motorola Solutions due to proprietary software. Motorola Solutions has limited resellers authorized to provide these services and is uniquely qualified to provide services due to the proprietary nature of the hardware and software. The LMR system directly supports emergency communications at Fort Gregg-Adams and must always remain operative. As such, they are the only source capable of executing this

Page 8 of 24 Pages requirement, and the only source with access to the proprietary software and information required to perform the LMR modernization at Fort Gregg-Adams.

Market research has demonstrated that no other manufacturers, resellers, or system integrators can provide the interoperability utilizing Motorola Solutions Truck waveform technology that is required to perform sustainment services over the current system lifecycle without an entire new system. The only alternatives to entering into a sole source contract with Motorola Solutions is to suspend operations when the LMR system becomes inoperative, or to replace the LMR system with a system of a different manufacturer. Neither alternative is feasible. The LMR system directly supports emergency communications at Fort Gregg-Adams and must always remain operative.

This would require significant developmental efforts, and a full replacement is not economically viable.

The currently fielded LMR equipment is at end-of-life/end-of-service, and the legacy system must therefore be updated with current technology that improves interoperability and, ultimately, system performance (an LMR system’s life expectancy is 7-10 years and Fort Greg-Adams’ LMR system was installed 10 years ago in 2015).

The BECS Capability Development Document, signed 3 February 2023 by General James E. Rainey, USA Commanding, Army Futures Command directs the modernization for an interoperable solution for Public Safety Communication systems currently used by all Installations/Depots/Activities. Fort Gregg-Adams is currently not connected to the Army CONUS Enterprise (ACE) LMR network, which may negatively impact redundancy and response time of the ACE LMR system.

If the requested service is not provided by the proposed vendor, the installation will be noncompliant with Homeland Security Presidential Directive (HSPD) 5, Management of Domestic Incidents dated 28 February 2003, which directs the United States to manage domestic incidents by establishing a single, comprehensive incident management system. All force protection, public safety, installation management and homeland security activities on Fort Gregg-Adams, and with local mutual aid agencies, will be at risk of no or extremely limited communications. Fort Gregg-Adams customers and tenants will be at-risk and unable to expect proper levels of protection from police, fire, and emergency services as they will be required to switch to point to point radios, which limit communication in any emergency. Further, if there is a lapse in services, Fort Gregg-Adams communications will be down, which is not just a safety concern, but also slows mission work and progress for all tenants that rely on the LMR for their daily means of communication. The LMR backbone system maintenance contract is necessary to maintain a fully functioning emergency radio network on Fort Gregg-

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Adams. If these services are degraded there is a potential for significant loss of government property (due to fire and other disasters) and even the loss of life that could result from delayed emergency response. Furthermore, without factory level support, repairs, security updates and software patches being performed, the LMR systems are at risk for potential cyber threats, vulnerabilities, and outages to user equipment and the LMR network. This in turn will reduce or disable the availability of LMR communications to all force protection, public safety, installation management and homeland security activities on Fort Gregg-Adams. Mutual aid agreements with local Police and Fire agencies will cease without reliable LMR communications. If this action is not approved, Fort Gregg-Adams customers and tenants will be at-risk and unable to expect levels of protection needed from police, fire, and emergency services. The local civilian population surrounding Fort Gregg-Adams will also be at risk in the event of a testing mishap and a delayed response. The LMR system is the predominant public safety communication system at Fort Gregg-Adams and is relied upon 24/7 by emergency personnel, law enforcement and others to minimize situational risks related to life, health, and safety issues. The LMR backbone system maintenance LMR Fort Gregg- Adams contract is necessary to maintain a fully functioning emergency radio network.

(b) Technical data packages, specifications, engineering descriptions, statements of work, or purchase descriptions suitable for full and open competition have not been developed at this time. Should future competition be pursued, these documents will be made available for solicitation at a specified date, in accordance with Army acquisition regulations and at the discretion of the Product Director.

6. EFFORTS TO OBTAIN COMPETITION:

ACC-APG shall publicize the notice for this contract action as required by FAR 5.201.

This procurement is a sole-source action; therefore, competition will not be possible.

Small Business Participation will be effectuated via the Contracting Officer’s approval of the Motorola Solutions Master Subcontracting Plan prior to award of the Contract.

Motorola Solutions meeting the subcontracting goal will be reviewed for compliance over the course of the period of performance of the Contract.

(a) The notices required by FAR 5.201 shall be or have been published. The Government intends to post a combined synopsis/solicitation to sam.gov anticipated on or before 31 MAY.

(b) While the Prime contractor for this sole-source contract has established subcontractors and partners, the government has taken steps to expand the marketplace and has worked with the OEM in partnership to drive costs down through subcontractor competitive pricing.

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7. ACTIONS TO INCREASE COMPETITION:

To increase effective competition in the future, the Government will continue conducting market research, including posting Requests for Information (RFI’s) to seek out available capabilities to fulfil the Army’s requirements. Continuous review of the state of industry capabilities will enable the Government to obtain information necessary to best influence its decisions and capitalize on commercial LMR systems. Additionally, any future Request for Proposal (RFP) will be posted in draft form well in advance of the solicitation to allow Industry the opportunity to view and comment on the future requirements. The Government will ensure any future RFP is clear, concise, and allows adequate time for proposal preparation and that any bids or proposals received shall be considered.

When the current systems reach their end-of-life, the Government intends to modernize the entire Army ACE LMR System simultaneously to allow for full and open competition.

PD BECS anticipates a subsequent modernization of the LMR subsystems based upon a seven-to-ten (7-10) year lifecycle.

8. MARKET RESEARCH:

Market Research Techniques used were:

• Contacted knowledgeable Government and Industry contacts in LMR specific markets.

• Contacted Contracting Officers, Contract Specialists, and Project Officers in other federal agencies and private industries (other users).

• Contacted known sources of providers including those that could potentially have the corporate experience and capabilities to deliver compliant equipment in accordance with the Army’s requirement.

• Reviewed market surveys prepared by commercial entities.

• Conducted market surveys to obtain information from potential sources.

• Queried Government databases (FPDS-NG, PPIRS, CPARS, GSA, FedBizOpps, SBA databases, e-Portals in Commerce (e-PIC), Contract Management in Research Tool in ASFI etc.) that provide relevant information on acquisitions.

• Used Internet tools and performed web-based searches.

• Reviewed results of recent market research on similar or identical requirements.

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Motorola Solutions, Inc.

7H229 Large Business;

Technology Solutions Provider

Response to Specific Questions for Industry provided. Answered all government questions.

As the incumbent Original Equipment Manufacturer (OEM) and current solution provider for Fort Gregg- Adams, Motorola demonstrated technical understanding and proven full-lifecycle, scalable LMR capabilities and experience.

Finding(s): Motorola’s currently deployed proprietary LMR solution is fully interoperable and compatible with all Motorola system components and BECS capabilities, which will promote site-specific cost and schedule efficiencies for technical refresh and interoperability.

New Tech Solutions, Inc.

1QN24 Minority-owned Small Business;

Technology Solutions Provider

Signed letter of authorization from Motorola Solutions indicating New Tech is an authorized reseller of MSI products and services. Corporate Capabilities summary brochure.

Blank quote template. Did not answer government questions directly.

Provide professional integration services solutions including Data Center Compu�ng, Cyber Security, Cloud Compu�ng, Unified Communications, Big Data, Virtualization and Storage.

No specialization, capabilities, or experience with LMR or LMR-like solutions or technologies.

Finding(s): Due to the proprietary aspects of the Motorola system, New Tech Solutions, Inc. is unable to provide a compatible solution to Fort Gregg-Adams.

Additionally, Sources Sought

Page 14 of 24 Pages identified no specialization or experience with LMR.

Market research was conducted by PD BECS from January 2023 through December 2023 and then refreshed with a comprehensive Sources Sought released by ACC-APG on 24 July 2024. As a result of July 2024 Sources Sought posted to SAM.gov, for a period of ten (10) days, five (5) responses were received, including one from each of the two incumbent OEMs. Through this research, PD BECS determined that only Motorola Solutions can manufacture a commercially available P25 compliant trunked LMR system at Fort Gregg-Adams which is capable of meeting EFIS&T and cybersecurity demands. In accordance with Non-Tactical Trunked Radio Guidance from the Army’s Installation Management Command (IMCOM) and requirements specific for LMR, L3H cannot complement/augment, so full replacement costs would not be supported by PD BECS. Motorola Solutions has the capability to provide an enterprise-wide system supporting more than 100,000 end users. Additionally, Motorola Solutions 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 Solutions has multiple systems accredited under the DoD and Army Cybersecurity policies and procedures.

Moreover, AR 25-2 also requires that LMR systems have a valid ATO or Interim ATO (IATO) before being connected to the Army network. Motorola Solutions fully complies with AR 25-2, since the Motorola Solutions LMR systems are currently accredited by the Army and have a valid ATO and IATO on the Army network.

Ongoing market research also indicates that while handheld radio supplier EF Johnson Technologies (EF Johnson) does, in fact, 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’ modernization requirement.

Based on current market research, it has been determined that due to proprietary aspects of the current LMR system procured from Motorola Solutions for Fort Gregg-

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Adams that only Motorola Solutions is able to provide the LMR system modernization effort the Government requires.

9. LISTING OF INTERESTED SOURCES: The only sources that have expressed a written interest in this requirement are identified in the market research report and in section 8 above.

10. OTHER FACTS:

(a) Procurement History and Background:

Small Business Administration – Washington Metropolitan Area District (SBA-WMADO) emailed a SBA release letter providing a new requirement determination for APG LMR removing the APG LMR work from the 8(a) program on 31 January 2025. The SBA release letter applies to all LMR efforts.

The procurement of the Fort Gregg-Adams LMR system modernization, which will integrate the current LMR system into the ACE LMR system is a new requirement. Other departments within the Army procured their previous LMR solution without integration leveraging various best-in-class Governmentwide Acquisition Contracts and Indefinite Delivery Indefinite Quantity contract vehicles. This is a new contract to modernize Fort Gregg-Adams LMR local subsystem.

The existing LMR infrastructure which includes Motorola Solutions hardware, software, services, and training elements must be upgraded to be 100% compliant with DoDD 8510.01, Risk Management Framework for DoD Systems, July 2022. Compliance will be achieved at the end of the project’s twenty-four (24) month Period of Performance.

The Government will continue to canvass the marketplace to identify any future contractors that can offer a suitable product suite as the technology landscape evolves.

Accordingly, ACC-APG will continuously refresh LMR market research and evaluate the use of other brands of equipment and their compatibilities with equipment currently in use as industry competitors emerge with innovative technologies. The Government will continue to evaluate potential use of other brands as part of the PD BECS ACE LMR system in use.

Below is a review of the procurement history from the inception of the Army LMR program. Army LMR contracts have been awarded to both full and open competition and sole source/8(a) sole source. Full and Open Competition was possible because there were at least two LMR manufacturers capable of meeting the Army LMR

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II-

Equipment III-Tech Assist

EF Johnson Inc. Small LMR Manufacturer

I-Systems

II-

Equipment

15 DOs

Booz Allen & Hamilton Large LMR Service (Consultant)

II-Tech Assist 6 DOs

(b) Other Facts:

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 two LMR manufacturers capable of meeting the Army LMR requirements: L3Harris and MSI. Both L3Harris and Motorola (MSI) are acceptable; however, each vendor will service their specific brand LMR Trunk System as prime maintenance contract holders. Each has developed their own software, and each is licensed to work exclusively on its own product. Fort Gregg-Adams currently has a Motorola Solutions branded LMR Trunk systems in use; therefore, Motorola Solutions, Inc is the only one who can service the Fort Gregg-Adams LMR System.

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 MSI) can provide the equipment, infrastructure, maintenance, and cybersecurity patching required for the modernization effort to a CONUS-wide system.

Resellers/Integrators do not have the comprehensive infrastructure management and technology integration capabilities required.

There are 288 Army I/D/As with LMR systems which are either a L3Harris or MSI system.

11. TECHNICAL CERTIFICATION:

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I certify that the supporting data under my cognizance, which are included in the justification, are accurate and complete to the best of my knowledge and belief.

NAME: Christina Martin

TITLE/ORGANIZATION: Deputy Product Director Base Emergency Communications System (PD BECS)

12. REQUIREMENTS CERTIFICATION:

I certify that the supporting data under my cognizance, which are included in the justification, are accurate and complete to the best of my knowledge and belief.

NAME: Christina Martin

TITLE/ORGANIZATION: Deputy Product Director Base Emergency Communications System (PD BECS)

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13. FAIR AND REASONABLE COST DETERMINATION:

I hereby determine that the anticipated price to the Government for this contract will be fair and reasonable.

I hereby determine that the anticipated cost or price to the Government for this contract action will be fair and reasonable through contract negotiations as required with Motorola Solutions, Inc. Price analysis will be completed and compared to other current LMR requirements currently being provided for other NETCOM customers. In accordance with FAR 15.403-1(b)(3) the services and products from Motorola Solutions, Inc. are considered Commercial in nature and therefore the Contracting Officer is not required to obtain Certified Cost and Pricing Data.

14. CONTRACTING OFFICER CERTIFICATION:

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

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Approval

Based on the foregoing justification, I hereby approve the procurement of the ACE LMR Fort Gregg-Adams Modernization effort for a base period of 24-months estimated at $ , on an Other than Full and Open competition basis pursuant to the authority of 41 U.S.C. 1901 as implemented by FAR 13.501, subject to availability of funds, and provided that the supplies and property herein described have otherwise been authorized for acquisition.