A02 - PD BECS LMR APG - JA for Sole Source FAR Part 13.501_Final Redacted_03July2025.pdf

CUI

Control Number: JA-25-B-0135

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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: William M. Taylor, (571) 421-5755

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 Aberdeen Proving Ground (APG). The mission is to modernize and provide

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:

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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) 6515 Integrity Ct, Bldg 4130 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 L3Harris Technologies, Inc. (L3Harris) to provide the required ACE LMR APG Modernization effort. The requirement will consist of a twenty-four (24) month base period with no option years. Award is projected for June 2025 and will obligate FY24 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 APG 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

Page 4 of 23 Pages organizations, such as the Directorate of Public Works, to support 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 APG 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 APG, L3Harris is the only vendor available to modernize the current LMR system at APG without replacing the entire system or suspending services. This PD BECS effort along with L3Harris will support the acquisition of the LMR system as required for APG. The cybersecurity efforts to bring the system into the ACE LMR Authorization to Operate (ATO) boundary are considered proprietary. Lastly, L3Harris 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 L3Harris is proprietary and no other OEM are currently interoperable.

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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 a means to recoup these costs through competition because the effort would still be awarded to L3Harris due to proprietary software. L3Harris 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 APG and must remain operative at all times. As such, they are the only source capable of executing this requirement, and the only source with access to the proprietary software and information required to perform the LMR modernization at APG.

Market research has demonstrated that no other manufacturers, resellers, or system integrators can provide the interoperability utilizing L3Harris 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 L3Harris 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 APG and must remain operative at all times. This would require significant developmental efforts, and a full replacement is not economically viable.

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 APG, and with local mutual aid agencies, will be at risk of no or extremely limited communications. APG 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, APG 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 APG. 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.

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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 APG. Mutual aid agreements with local Police and Fire agencies will cease without reliable LMR communications. If this action is not approved, APG customers and tenants will be at-risk and unable to expect needed levels of protection from police, fire, and emergency services. The local civilian population surrounding APG 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 APG 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- APG 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.

the L3Harris Master Subcontracting Plan prior to award of the Contract.

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.

(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.

7. ACTIONS TO INCREASE COMPETITION:

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In order to increase effective competition in the future, the Government will continue conducting market research, including posting out available capabilities to fulfil the 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:

A comprehensive Sources Sought was released by ACC-APG on July 24, 2024, and the 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 industry (other users).

Contacted known sources of providers including those that could potentially have the corporate experience and capabilities to deliver compliant equipment .

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.

Obtained source lists of similar services from other contracting activities and other sources, such as ACC-Rock Island, Defense Information

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(10) days, five (5) responses were received, including one from each of the two incumbent OEMs. Through this research, PD BECS determined that only L3Harris can manufacture a commercially available P25 compliant trunked LMR system at Aberdeen Proving Ground which is capable of meeting EFIS&T and cybersecurity demands. In accordance with Non-Tactical Trunked Radio Guidance requirements specific for LMR, MSI cannot complement/augment, so full replacement costs would not be supported by PD BECS. L3Harris has the capability to provide an enterprise-wide system supporting more than 100,000 end users. Additionally, L3Harris 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. L3Harris 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. L3Harris fully complies with AR 25-2, since the L3Harris 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 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 cybersecurity requirements in a timely manner to deliver the LMR systems requirement.

Based on current market research, it has been determined that due to proprietary aspects of the current LMR system procured from L3Harris for Aberdeen Proving Ground that only L3Harris 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.

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10. OTHER FACTS:

(a) Procurement History and Background:

The procurement of the Aberdeen Proving Ground 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 LMR local subsystem.

The existing LMR infrastructure which includes L3Harris 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 twenty-four (24) month Period of Performance.

The Government will continue to canvas 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 requirements, namely L3Harris and MSI. However, at that time the LMR industry (and available technology) could not technically support a CONUS-wide enterprise LMR system model. With the technological advances over the last several years, the LMR industry has the capability to implement a CONUS-wide enterprise LMR system to support all Army users. However, only an OEM (L3Harris and MSI) can provide the equipment, infrastructure, maintenance and cybersecurity patching required for the CONUS-wide system. If the ACE LMR modernization effort is not executed, public safety communication could be severely degraded and there is an unquantifiable risk of loss of life due to the unreliability of the legacy equipment.

Resellers do not have the comprehensive capabilities required. This change in the fundamental OEM capabilities required provides the justification for limiting sources

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ACE LMR Fort Carson

Local LMR System Refresh & Upgrades

W52P1J- 21-C-0020

Solutions71, LLC (outsourced/subcontracted to OEM)

Sole Source 8(a)

ANC

E-ELMR -

Romania/Bulgaria

(ROBU)

Local LMR System Refresh & Upgrades

W52P1J- 21-C-0005

Solutions71, LLC (outsourced/subcontracted to OEM)

Sole Source 8(a)

ANC

ACE LMR Fort Drum

Local LMR System Refresh & Upgrades

W52P1J- 21-C-0028

Solutions71, LLC (outsourced/subcontracted to OEM)

Sole Source 8(a)

ANC

ACE LMR

Letterkenny

Local LMR System Refresh & Upgrades

W52P1J- 22-C-0011

Solutions71, LLC (outsourced/subcontracted to OEM)

Sole Source 8(a)

ANC

ACE LMR Fort Stewart

Local LMR System Refresh & Upgrades

W52P1J- 22-C-0014

Solutions71, LLC (outsourced/subcontracted to OEM)

Sole Source 8(a)

ANC

ACE LMR Fort Buchanan

Local LMR System Refresh & Upgrades

W52P1J- 22-C-0047

Solutions71, LLC (outsourced/subcontracted to OEM)

Sole Source 8(a)

ANC

ACE LMR Tooele

Local LMR System Refresh & Upgrades

W519TC-

23-C-0038

Solutions71, LLC (outsourced/subcontracted to OEM)

Sole Source 8(a)

ANC

ACE LMR Fort Leavenworth

Local LMR System Refresh & Upgrades

W519TC-

23-C-0032

Solutions71, LLC (outsourced/subcontracted to OEM)

Sole Source 8(a)

ANC

ACE LMR Fort Campbell

Local LMR System Refresh & Upgrades

W519TC-

23-C-0033

Solutions71, LLC (outsourced/subcontracted to OEM)

Sole Source 8(a)

ANC

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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. APG currently has a L3Harris branded LMR Trunk systems in use; therefore, L3Harris Corporation is the only one who can service the APG 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.