A02 - Redacted JandA.pdf

Control No: JA-20-Adel-049 Contractor: Man-Machine Systems Assessment MSA, Incorporated (MSA, Inc.)

Supply/Service: HSI Field Evaluation Services

JUSTIFICATION REVIEW DOCUMENT

FAR PART 6 JUSTIFICATION AND APPROVAL FOR OTHER THAN

FULL AND OPEN COMPETITION

Supply/Service: Human Systems Integration (HSI) Field Evaluation Services for US Army Combat Capabilities Development Command (CCDC), Data and Analysis Center (DAC), Human Systems Integration Division (HSID).

Authority:

10 U.S.C. 2304(c)(5) as implemented by FAR Part 6.302-5 -- Authorized or Required by Statute. (Refer to FAR Part 6.302-5(b) for specific US Code authorities for purchasing from mandatory sources identified in FAR Part 19.15 Women Owned Small Business (WOSB) Program)

Amount: $3,998,087.30

Prepared by: REDACTED Phone: REDACTED Chief; Air and C2 Systems Branch Date: 1/07/2020 Email: REDACTED

Contracting Officer: Christopher Moy Phone: 301-394-2021 Contracting Officer Date: 1/07/2020 Email: christopher.r.moy.civ@mail.mil

Technical: REDACTED Phone: REDACTED Chief; Air and C2 Systems Branch

Email: REDACTED Date: 1/07/2020

Requirements: REDACTED Phone: REDACTED Chief; Human Systems Integration Div. Date: 1/07/2020 Email: REDACTED

Reviews: I have reviewed this justification and find it adequate to support other than full and open competition.

Program Manager:

Legal Counsel:

Department of Army FAR Part 6 Justification and Approval for Other than

Full and Open Competition

1. Contracting Activity:

Adelphi Contracting Division, Army Contracting Command-Aberdeen Proving Ground (ACC-APG), 2800 Powder Mill Road, Adelphi, MD 20783

2. Description of Action:

The U.S. Army Combat Capabilities Development Command (CCDC), Data and Analysis Center (DAC), Human Systems Integration Division (HSID) requests one (1) base year plus a one (1) year option, Cost-Plus-Fixed-Fee (CPFF) contract with a women owned small business (WOSB). CCDC DAC HSID requests a sole source set-aside award with Man-Machine Systems Assessment (MSA), Incorporated located at 11001 Gary Player, El Paso, TX 79935-3911. The Government projects award for March 2020 and Fiscal Year (FY) 2020 with Research, Development, Test and Evaluation (RDTE) funds.

_X_ An acquisition plan is not required because this procurement does not meet the threshold at Defense Federal Acquisition Regulation Supplement 207.103(d)(i), and is an R&D acquisition that does not meet the definition of services in 10 U.S.C. 2330(c)(2).

3. Description of Supplies/Services:

The CCDC DAC requires Human Systems Integration (HSI) evaluation, research and analysus services for Army System Acquisition and research which will provide general field services to support the CCDC DAC HSID mission as it conducts the HSI assessments, evaluations and research for Army programs. These services are required to support the DAC Human Systems Integration (HSI) assessments, research and evaluation efforts including the areas of research,test planning and execution, system analysis, represent HSI during various meetings and data base support and modeling.

These services will result in technical reports and documentation that support the DAC evaluation, anlaysis and reserach mission, and focus in the area of HSI for acquisition systems related to the Army’s modernization program. The CCDC DAC HSI mission is one of the only disciplines that has Soldier touch points from before the system is a true system and before it is in the acquisition cycle, to include touch points when the system is in the field. Planing discussed in this section references test planning, applied research planning and objective, assessment design planning and execution for all phases of HSI throughout the system life.

HSI Data and Analysis Domain includes the responsibility for analysis, enhanced system development, experimentation, and applied research for the development of materiel and non-materiel solutions to optimize human system performance, reduce Soldier injury/loss and life cycle costs, and maximize Force Readiness.The CCDC DAC is providing HSI developmental, assessment and test support to the Program Executive Offices (PEOs), U.S. Army Test and Evaluation Command (ATEC) and G1 office to meet the acquisition time line for modernizing the Army with a focus on but not limited to long-range precision fires, next-generation combat vehicle, future vertical lift platforms, mobile & expeditionary Army networks, Air and Missile Defense (AMD) capabilities, and soldier lethality.

Manpower, personnel, training, human factors, safety, cognitive readiness, situational awareness, anthropometric and workload are key HSI assessment areas of the analysis.

This effort requires implementation of a systems approach for examining usability, functionality, and Soldier performance from an operator and staff perspective. Both qualitative and quantitative data support the HSI assessment, evaluation and research will be implemented.

Base Period: 23 March 2020 to 22 March 2021 Value: $ 1,998,438.70 Option Period 1: 23 March 2021 to 22 March 2022 Value: $ 1,999,648.60

Total: $ 3,998,087.30

4. Authority Cited:

10 U.S.C. 2304(c)(5) as implemented by FAR Part 6.302-5 -- Authorized or Required by Statute. (Refer to FAR Part 6.302-5(b) for specific US Code authorities for purchasing from mandatory sources identified in FAR Part 19.15 Women Owned Small Business (WOSB) Program)

5. Reason for Authority Cited:

As described in FAR 6.302-5, full and open competition need not be provided for when a statute expressly authorizes or requires that the acquisition be made through another agency or from a specified source, or the agency’s need is for a brand name commercial item for authorized resale.

A cost analysis consisting of approved/provisional rates and escalated rates from BLS.gov will be conducted by the Adelphi Contracting Division to ensure the Government obtains a fair and reasonable price for this requirement. The Government will also use cost realism to compare the rates provided against work already performed from the previously completed contract: REDACTED. Additionally the Government intends to review these labor rates against GSA Calc and compare them to ensure all rate adjustments made are fair and reasonable.

This acquisition is being executed pursuant to FAR Part 19.15 Women Owned Small Business (WOSB) Program.

As described in paragraphs 5-7 below, there is not a reasonable expectation that offers would be received from two (2) or more WOSB small business concerns.

The anticipated price of the contract, including options, will not exceed the $4 million threshold for a WOSB sole source. The requirement is classified under NAICS code 541490 Other Specialized Design Services. In accordance with FAR 19.1506(b)(1), both the Small Business Professional and the Contracting Officer concurred that per the NAICS code, the WOSB concerns are underrepresented in Federal Procurement. The Small Business Professional also provided proof of the WOSB concerns being underrepresented on 11 February 2020 with the following link:

https://www.sba.gov/document/support--qualifying-naics-women-owned-small-business-federal-contracting-program.

The exclusions for WOSB Concerns identified in FAR Subpart 19.1503 were considered and determined, by the Adelphi Contracting Division on 07 January 2020, that the requirement could not be satisfied based upon the following:

A. Federal Prison Industries, Inc: The required services are not on the UNICOR list of supplies and services found at Website http://www.unicor.

B. AbilityOne participating non-profit agencies for the blind or severely disabled: The required services is not applicable to the services provided on the Procurement List at http://www.abilityone.gov.

C. Orders under indefinite-delivery contracts: This is a discretionary WOSB small business concern set-aside pursuant to FAR Subpart 16.505(b)(2)(i)(F) and in accordance with section 1331 of Public Law 111-240 (15 U.S.C. 644(r).

D. Orders against Federal Supply Schedules: This is a discretionary WOSB small business set-aside concern pursuant to FAR Subpart 8.405-5 and in accordance with section 1331 of Public Law 111-240 (15 U.S.C. 644(r).

E. The requirement is not currently being performed by an 8(a) participant under the provisions of subpart 19.8 or has been accepted as a requirement by SBA under subpart 19.8.

F. The acquisition exceeds the micro-purchase threshold and is greater than the simplified acquisition threshold.

G. Requirements for commissary or exchange resale items is not applicable.

Responsibility Determination: MSA, Inc. has been determined responsible within the meaning of FAR 9.103 and based upon the following:

MSA, Inc. is a certified WOSB concern and is eligible for a sole source contract award under the applicable laws and regulations cited above. Certification date: 06 November 2020 (Self-Certifying WOSB expiration in SAM). MSA, Inc. had the DD2579 approved on 05 December 2019 contigent upon approval of sole source justification.

Adequate Resources: MSA, Inc. has adequate resources to perform the contract, or the ability to obtain them. MSA is currently providing these services under Contract REDACTED and there have been no issues with performance to date.

System for Award Management (SAM) was checked at https://www.sam.gov on 03 December 2019 and shows MSA, Inc. is currently registered and reflects active reporting.

The Federal Awardee Performance and Integrity Information System (FAPIIS) was checked at www.ppirs.gov on 04 December 2019. There are no records that indicate MSA, Inc. has any integrity and business ethics issues. MSA, Inc. record reflects no negative reporting indicating a record of satisfactory performance as denoted in PPIRS on 04 December 2019.

The Excluded Parties List System (EPLS), was accessed via the internet at https://www.sam.gov on 03 December 2019. EPLS does not list MSA, Inc. as being debarred, suspended, or otherwise declared ineligible for award by any Federal agency.

MSA, Inc. has complied with Offeror Representations and Certifications – Commercial Items, the Online Representations and Certifications Application (ORCA) at https://www.sam.gov was checked on 03 December 2019 to verify that MSA, Inc. has complied with the requirement to complete their annual representations and certificates.

MSA. Inc. is currently registered in ORCA until 06 November 2020.

Proposal will be reviewed and determined to be fair and reasonable prior to award. MSA, Inc. has adequate financial resources to perform the contract, or the ability to obtain them. A Certificate of Current Price or Costing data will be obtained prior to award.

MSA, Inc. has the capability to meet the Government’s requirement for this contract because it has the unique experience working with the CCDC DAC HSI research, evaluation and analysis on Army systems, specifically the complex, highly automated AMD Systems command and control capabilities. Their indepth technical specific system knowledge of the systems, knowledge of the HSI theory and principles, along with knowledge of Soldier capabilities and limitations, allows for the evaluation and analysis of the next generation of Army systems. MSA, Inc. has the capability to meet the Government’s requirement for this contract because it posseses the experience and knowledge of HSI theory, system technical knowledge and Soldier capabilities, and limitations integrated. They also have the necessary organizational structure, experience, accounting and operational controls, technical skills and necessary equipment or the ability to obtain them. MSA, Inc. specifically has:

1. Experience in assessing manpower, personnel, training, human factors, safety, cognitive readiness, situational awareness, anthropometric and workload for key HSI assessment, research and evaluation areas.

2. Knowledge of Army Evaluation Center (AEC) and Operational Test Command’s (ATEC) OTC)) suitability T&E process, regulations, data collection, survey development, data storage, briefing and reporting procedures, and processes.

3. Knowledge and experience in HSI assessments of missile defense, Army’s Enterprise Research Planning, Ground Combat vehicles, and the Army set of C4ISR Systems.

4. Experience with Joint Tactical Ground Systems (JTAGS).

5. Expertise in Access databases, SPSS Statistics, and other Microsoft office products and how they integrate together

Moreover, MSA, Inc. has the capability to meet the Government’s requirement for this contract because it possesses more than a decade of experience supporting Human Systems Integration for program mangers (PMs) and ATEC and has successfully performed similar work as the prime contractor under contract REDACTED. MSA, Inc.

has a satisfactory record of integrity and business ethics taking into consideration all existing governmental business commitments and based upon work accomplished under REDACTED. There is no indication that MSA, Inc. will not be able to comply with the required performance schedule.

MSA has the human system integration expertise, along with the theoretical knowledge to support HSI assessments, research and evaluations. If the proposed requirement is not fulfilled by MSA, Inc., CCDC DAC HSI support to PEOs and ATEC will be severely hindered and CCDC DAC will not be equipped to continue supporting Army Regulation (AR) 602-2 – “Human Systems Integration in the System Acquisition Process” and the role of the human in the Department of Defense (DoD) acquisition process. This could result in fielding systems that are ineffective or unsafe for use by Government personnel.

In 2019, the CCDC DAC HSI Division provided developmental input, assessments, or evaluations on 43 ACAT I, 21 ACAT II and 56 ACAT III programs and numerous research initiatives. In order to continue to support all of these programs which was over 180 systems, surge personnel with HSI expertise is required. Contracting with MSA, Inc.

who is an experienced and qualified provider of these services will ensure continued success for these programs.

HSI assessments, development suggestions and evaluations provide mitigations, benefits and improvements to Army Systems that make them usable, safe and trainable.

Examples of potential issues that may not be mitigated if HSI input is not provided include 1. Soldier system interface designs that mitigate fratricide. 2. Soldier system interface designs that improve system performance; and 3. Safety issues. Therefore, it is in the best interest of the Government to sole source to MSA, Inc. for the required HSI field evaluation services.

6. Efforts to Obtain Competition:

On 17 October 2019, a Sources Sought notice was issued on the Federal Business Opportunities Site (FBO) (www.fbo.gov) for five (5) days for the subject requirement surveying the market for potential sources in order to set-aside the requirement for a WOSB Concern. During this period, three (3) capability statements/responses were received from: MSA, Inc., REDACTED, and REDACTED. REDACTED did not provide a capability statement, and instead requested more time to reply to the Sources Sought.

The Sources Sought closing date was not extended, however REDACTED was still allowed to provide a capability statement after the closing date. To date, REDACTED has still not provided any capability statement or response REDACTED did not include any information addressing the Government’s requirement within their capability statement, and both their capability statement and past performance proved they tailor to optics rather than the requirements in the Performance Work Statement (PWS).

REDACTED’s capability statement and past performance was forwarded to both the technical office and Small Business Professional for review, and all parties confirmed that REDACTED does not appear to be capable of performing the required effort. Based upon the aforementioned, and in accordance with FAR 5.201, a Synopsis was posted to https://beta.sam.gov/ (beta SAM) from 12 November 2019 to 26 November 2019 notifying the intent to make a WOSB sole source set aside award to MSA, Inc. pursuant to FAR 19.1506. No interested sources responded to the synopsis.

Based on the market research performed by the technical office (See Section 8), Sources Sought posting, and Notice of Intent to Sole Source - Synopsis, it was determined that only MSA, Inc. was capable of meeting the requirement. Because this is a sole source action, effective competition is not applicable and there are no subcontracting possibilitites. Consequently, MSA, Inc. is the only known WOSB who can meet the Government’s minimum requirements. To date, no other sources have written to express interest in this requirement.

a. Effective Competition: Because this is a WOSB set aside and only one (1) capable vendor was identified upon conclusion of beta SAM synopsizing, effective competition is not applicable.

b. Subcontracting Competition: MSA, Inc. is a WOSB small business; therefore, a subcontracting plan is not required. However, MSA, Inc. will be encouraged to utilize small businesses for subcontracting opportunities to the maximum extent practicable.

This justification will be made available within 14 days after contract award in accordance with (IAW) FAR 6.305(a) and will remain posted for a minimum of 30 days IAW FAR 6.305(d).

7. Actions to Increase Competition:

Based on the market research performed (reference Section 8), currently, there are no WOSB sources other than MSA, Inc. capable of meeting the Government’s aforementioned requirements; therefore, at this time, this procurement will be pursued on an Other Than Full and Open competition basis. Prior to the initiation of future acquisitions for Human Systems Integration (HSI) Field Evaluation Services for Army System Acquisition, the market place will be continually surveyed in order to determine whether another WOSB source has emerged that can fulfill the Government’s requirements. In the event that another WOSB source is capable of meeting the Government’s minimum requirements, future acquisitions will be pursued as a competitive WOSB set aside under the WOSB Program.

8. Market Research:

Market Research was conducted from August 2019 to October 2019 by the requiring point of contacts, REDACTED and REDACTED, Electronics Engineer, Complex Ground Systems & Operations Branch, 29 years of experience. Market research was conducted via querying Government-wide databases of contracts and other procurement instruments intended for use by multiple agencies and other subject matter experts (SMEs), conducting interchange meetings, reviewing historical data for W911QX-17-C- 0011, reviewing GSA schedules, and a sources sought posting. Market research identified only one (1) potential source for the required services: MSA, Inc. A Sources Sought Notice was posted on 16 October 2019 to 21 October 2019. REDACTED, REDACTED, and MSA all responded however we didn’t receive a capability statement from REDACTED. All three (3) contractors are categorized as WOSBs. After reviewing the company website and available capability statements, REDACTED stated that REDACTED and REDACTED do not have the capabilities to perform this requirement.

REDACTED did not provide any information to support the HSI request and therefore from what was presented is not capable of providing the service. The request was for Human System Integration support with research, analysis and human system integration assessments and evaluations with the Soldier being the focus. The HSI mission includes provided analysis and applied research in cognitive and physical demands; complex control and decision making; future ground operations in socio-cultural diverse contexts; and network science to inform the design of Army systems.

The 7 HSI domains include Manpower, Personnel, Training, Habitability, Human Factors Engineering (HFE), Safety and Occupational Health and Force Protection and Soldier Survivability.

REDACTED highlighted their Electro Optical (EO) and Infrared (IR) capabilities in their capability statement which included the following statement: " REDACTED’s optical design team provides innovation and non-traditional approach to the design of free-form and aspheric optics, engineering and opto-mechanical as well integration and test support for development and production of optical systems." While their expertise is important to the Army, it is not within the scope of the request for HSI support. Based on REDACTED’s input, they are not capable to provide HSI service.

The referenced contract requires HSI in-depth expertise applied to the test and evaluation of AMD Systems. AMD Systems, particularly those used in command and control, are some of the most complex in the Army's inventory. Moreover, future concepts, such as Multi-Domain Operations, will increase the complexity of these already complex systems. The learning curve associated with supporting the HSI aspects of test and evaluation on such systems is long. REDACTED does not have (1) experience in HSI applied to evaluation of complex AMD systems and systems of systems; (2) Army test and evaluation organizations, practices, policies or regulatory structures; or (3) direct experience dealing with the various agencies comprising the Army and Joint test and evaluation enterprise. The contract also requires placing skilled and experienced HSI analysists on-station for long periods of time at Army test sites such as Ft. Bliss, TX, and White Sands Missile Range, NM. REDACTED does not have personnel on-site at these locations, and sending in teams of off-site personnel to support lengthy test and evaluation events would be both cost prohibitive and potentially ineffective. REDACTED is not capable to provide HSI service.

MSA, Inc. has the capability to meet the Government’s requirement for this contract because it has the unique experience working with the CCDC DAC HSI research, evaluation and analysis on Army systems, specifically the complex, highly automated AMD Systems command and control capabilities. Their indepth technical specific system knowledge of the systems, knowledge of the HSI theory and principles, along with knowledge of Soldier capabilities and limitations, allows for the evaluation and analysis of the next generation of Army systems. MSA, Inc. has the capability to meet the Government’s requirement for this contract because it posseses the experience and knowledge of HSI theory, system technical knowledge and Soldier capabilities, and limitations integrated. They also have the necessary organizational structure, experience, accounting and operational controls, technical skills and necessary equipment or the ability to obtain them. MSA, Inc. specifically has:

1. Experience in assessing manpower, personnel, training, human factors, safety, cognitive readiness, situational awareness, anthropometric and workload for key HSI assessment, research and evaluation areas.

2. Knowledge of Army Evaluation Center (AEC) and Operational Test Command’s (ATEC) OTC)) suitability T&E process, regulations, data collection, survey development, data storage, briefing and reporting procedures, and processes.

3. Knowledge and experience in HSI assessments of missile defense, Army’s Enterprise Research Planning, Ground Combat vehicles, and the Army set of C4ISR Systems.

4. Experience with Joint Tactical Ground Systems (JTAGS).

5. Expertise in Access databases, SPSS Statistics, and other Microsoft office products and how they integrate together

9. Interested Sources:

In accordance with FAR 5.201, an Notice of Intent to Sole Source - Synopsis was posted to beta SAM from 12 November 2019 to 26 November 2019. No capability statements or responses were received. To date, no responses have been received. Based on the aforementioned, MSA, Inc. is the only WOSB capable of providing Human Systems Integration (HSI) Field Evaluation Services for Army System Acquisition as detailed in Section 5 above. As required by FAR 5.201, any other bids or proposals received shall be forwarded to the approving official for consideration, and should additional information be received prior to award, it will also be considered.

10. Other Facts:

a. Procurement History

Contract: REDACTED Contractor: MSA, Inc.

Award Date: REDACTED Period of Performance: REDACTED

Dollar Value: $ REDACTED Competitive Status: Non-Competitive, 100% Small Business Set-Aside – WOSB Sole Source Authority: 10 U.S.C. 2304(c)(5) as implemented by FAR Part 6.302-5 -- Authorized or Required by Statute. (Refer to FAR Part 6.302-5(b) for specific US Code authorities for purchasing from mandatory sources identified in FAR Part 19.15 Women Owned Small Business (WOSB) Program)

The previous contract noted above was competed as a 100% small business set aside – sole source and the awardee (MSA, Inc.) was a WOSB. Consequently, upon consultation with Small Business Advocate REDACTED, the proposed contract was authorized for limitation to WOSB concerns, and ultimately, due to the results of the synopses process, a sole source award to WOSB concern MSA, Inc. Subject to FAR 31.205-32, "Precontract Costs", the Contractor was authorized precontract costs, effective 1 February 2017.

11. Technical 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.

Signer’s Title: REDACTED, Chief (A), Air and C2 Systems Branch

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.

Signer’s REDACTED: Chief; Human Systems Integration Division

13. Fair and Reasonable Cost Determination: I hereby determine that the anticipated cost or price to the Government for this contract action will be fair and reasonable.

As the required Human Systems Integration (HSI) Field Evaluation Services for Army System Acquisition is non-commercial, the Contracting Officer shall require submission of cost or pricing data per FAR 15.403-1(b)(3). Market analysis of the prices being offered and evidence of previous contracts issued for same/similar services/efforts will also be compared and used for the basis of determining price reasonableness

This determination will be made using the following:

_X_ Cost analysis __ Price analysis __ Should cost

_X_ IGCE

__ Audit:

__ Other:

As a part of this basis, certified cost or pricing data:

_X_ Will be required.

__ Will not be required and the following exception applies (FAR 15.403):

__ Prices that will be agreed upon are based on adequate price competition.

__ Prices that will be agreed upon are based on prices set by law or regulation.

__ A commercial item is being acquired.

__ A waiver has been granted by the head of the contracting activity (HCA) in accordance with DFARS PGI 215.403-1.

__ The contract action is a modification to a contract or subcontract for commercial item(s).

__ The estimated cost of the contract action is less than the threshold for certified cost or pricing data.

14. Contracting Officer Certification: I certify that this justification is accurate and complete to the best of my knowledge and belief.

Approval Based on the foregoing justification, I hereby approve the procurement of Human Systems Integration (HSI) Field Evaluation Services for Army System Acquisition for the Combat Capailities Development Command (CCDC), Data and Analyis Center (DAC), for an estimate of $ 4,000,000.00 and for a Period of Performance of one (1) base year with one (1) option year, on an other than full and open competition basis pursuant to the authority of 10 U.S.C.2304(c)(5), subject to availability of funds, and provided that the services or supplies herein described have otherwise been authorized for acquisition.

(End of J&A)

REVIEWS

4/1/2020

X Christopher Moy

Contracting Officer (KO) Signed by: MOY.CHRISTOPHER.RYAN.1285356217