GLADS_JA_Redacted_10_Oct.pdf

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

FOR OFFICIAL USE ONLY

March 2018 FOR OFFICIAL USE ONLY Page 1 of 7

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

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

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

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

Contracting Activity: 763 SCONS / PKC

Purchase Request / Local ID Number: TBD

Program / Project (and PE, if applicable): Global Awareness and Decision Support (GLADS)

Program Type (PEO or Other Contracting): Other Contracting

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

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

COORDINATION (AFFARS 5306.304(a) )

Date

20 Mar 2019

Mission Partner

AMC A3/A3CG,

Signature

Date

Contracting Officer

763 SCONS/PKC,

Date

Legal Reviewer

HQ AMC/JAQ,

Date

22 Mar 2019

Chief of the Contracting Office (COCO)

763 SCONS/CL,

Date

10 Apr 2019

Command Competition Advocate

AFICA/KM,

APPROVAL (AFFARS 5306.304(a) )

Date

30 Jul 2019

Command Services Advocate

HQ AMC/DA4,

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I. Contracting Activity.

The Department of the Air Force (AF), Air Force Installation Contracting Agency (AFICA), 763rd Specialized Contracting Squadron (SCONS) located at 510 POW/MIA Drive, Bldg P40, Suite E1004, Scott AFB IL 62225-5022 is responsible for the proposed contracting action.

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

763 SCONS/PKC intends to award a new sole source firm-fixed-price (FFP) contract for the integration of Non-classified Internet Protocol Router Network (NIPRNet) and Secret Internet Protocol Router Network (SIPRNet) Authoritative Data Sources (ADS) and Decision Support Tools (DST) and capabilities to address mission critical materiel solution gaps and shortfalls documented in the 618 Air Operations Center (AOC) Capabilities Base Assessment (CBA) and Intelligence Surveillance Reconnaissance Division (ISRD). This effort will also allow United States Transportation Command (USTC) to explore/exploit/field this capability to meet their specific Combatant Command (COCOM) requirements.

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

Air Mobility Command Global C2 Branch (AMC/A3) requires System Tool Kit (STK) Commercial Off-the-Shelf (COTS) software and integration support for associated GLADS capability. The contractor will provide two levels of access; STK Online Client License and STK Viewer License. The GLADS users with STK Online Client will support the 618 AOC personnel that have direct organizational relationships to the AOC (e.g. AMC Commander). The GLADS viewer with STK Viewer License will be available to any 618 AOC personnel with access to the network.

This effort builds on the $ Phase I through V by adding mission critical Decision Support Tools (DST), connections to authoritative data sources (ADS) and refined capabilities to the existing sustainable solution that provides web based access to a variety of information sources and Situational Awareness (SA) products to support work flows and collaboration. The primary tasks include integration of authoritative data and services with data sources, customer specified DSTs, testing and integration into a web-based environment supporting Air Mobility Command (AMC) 618 AOC, on both SIPRNET (classified) and NIPRNET (unclassified network).

Under the contemplated contract, NextGen Federal Systems, LLC will provide the following supplies and sustainment of the GLADS program:

(1) Additional modules for STK COTS software and integration support consists of the following; (a) mission critical customer specified DSTs, connections to Authoritative Data Sources (ADS), and refinements as specified in Annex A and B of the Performance Work Statement.

(2) Approximately System Engineering hours will be required to complete notional Phase VI through Phase X integration of DTS, connection ADS, and refinements.

The current effort on contract is with Analytical Graphics, Inc (AGI). For all previous efforts up to and including Phase 5, AGI has not utilized any strategic partnerships or resellers for GLADS. For all future contracts to include the contemplated effort, AGI has entered into an exclusive strategic relationship with NextGen becoming AGI's integration partner. AGI will allow NextGen certain reseller rights that will enable them to perform custom integrations of AGI's GLADS solution, and perform prime contractor responsibilities for those integrations. In this relationship, AGI will still be the Sole Source provider of the software products.

No other entity has a similar strategic relationship.

As outlined in Table 1 below, the total estimated dollar value of this acquisition is $ , based on the Independent Government Cost Estimate (IGCE) and will utilize appropriate Fiscal Year (FY) year funding.

Market research does not indicate any significant industry changes. The anticipated period of performance

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(POP) will include one five year ordering period.

Table 1 - Estimated Dollar Value of GLADS Requirement

CLIN DESCRIPTION Period of Performance PRICE

CLIN X001 AMC GLADS Requirement 30 Sep 2019 - 29 Sep 2024 $

CLIN X002 USTC GLADS Requirement 30 Sep 2019 - 29 Sep 2024 $

CLIN X003 Travel 30 Sep 2019 - 29 Sep 2024 $

TOTAL $

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

10 USC 2304(c)(1), as implemented by FAR 6.302-1(a)(2), required by FAR 6.303-2(b)(4)

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

Only One Responsible Source (FAR 6.302-1)

Global Awareness and Decision Support User Defined Operational Picture (UDOP) capability has been integrated operationally into 618 AOC daily operations and resulted in a paradigm shift with respect to how the monitor, assess, and execution phases of their mission are conducted, and represents an existing core baseline capability of the 618 AOC as specified in the AOC Capabilities Based Assessment (7 Apr 16).

Implementing a new solution would jeopardize the safety of MAF air crews operating in current and future contested environments, and degrade operational Command Relations (COMREL). The 618 AOC's ability to fuse disparate sources of information into coherent and sharable operational picture would be unavailable.

This would deprive AMC leadership of the ability to visualize an integrated operational picture impacting everything from to contingency support and daily operations. This is the primary means for 618 AOC to interoperate with other COCOMs, AOCs, and other agencies across the entire mission spectrum.

Global Awareness and Decision Support UDOP capability is utilized to meet a longstanding critical requirement by AMC and TACC to enable effective maintaining of situational awareness of MAF forces and enable interaction with other COCOMs/AOCs as well as visibility into the mission in support of USSTRATCOM.

Deployment of this critical capability delivers a relevant, user defined near real-time operational picture for all levels for situational awareness, combined with advanced analytics and alerting capability to support effective employment and C2 of MAF aircraft in the monitor, plan and execute areas. It is also essential to allow AMC and the 618 AOC (TACC) aircraft to operate in an anti-aircraft/access denied environments, and critical to support the nuclear mission by enabling the Commander to share the near real-time of common operational picture with USSTRATCOM.

The capability delivered in year one through five provided key situational awareness on MAF participation in the recent short fused Yemen evacuations of US personnel, Ebola crisis, Sinjar Mountain Relief, and various Central Command (CENTCOM) and United States Indo-Pacific Command (INDOPACOM), formally Pacific Command (PACOM), operations, and Joint Exercises. Capability allows fusion of current intelligence, weather, and threat information to enable AMC leadership to visualize these complex operations and respond pro-actively.

Analytical Graphics, Inc. STK is highly specialized software that allows classified information to be shared across multiple DoD systems. The integration services that accompany this software are also highly

March 2018 FOR OFFICIAL USE ONLY Page 4 of 7 specialized, and required to utilize the software's functionality.

The Government has determined that award to any source other than AGI's integration partner, NextGen, would result in substantial duplication of cost to the Government that is not expected to be recovered through competition and unacceptable delays in fulfilling the Air Force's requirements.

Subsection 1

(a) Previous Acquisition History: Purchase order (792759) was awarded lowest price technically acceptable to Atlantic Diving Supply as a 100% pass through, and ran from 30 Sep 14 to 29 Sep 15. The software and support for this effort are the same as those being performed under the current contract FA4452-15-C-0013.

The current FFP contract was awarded to AGI as a sole source contract on 30 Sep 15 and expires 29 Sep 19.

Both NIPR and SIPR instances of the web enabled capability to achieve Initial Operating Capability (IOC) status and a follow-on contract for five additional years will allow AMC to integrate to required ADSs and DSTs to address previously defined requirements.

Analytical Graphics, Inc. (AGI) has developed STK COTS analysis software used by the national security and space communities for analysis of land, sea, air, and space assets. Analytical Graphics, Inc. (AGI) carries a portfolio of products designed and developed to address very specialized areas, markets and functionality.

System Tool Kit (STK) as well as all of its associated modules are proprietary products, which are manufactured, owned, sold, distributed and supported by AGI. AGI has entered into an exclusive relationship with NextGen becoming AGI's integration partner. NextGen has certain reseller rights that will enable them to perform custom integrations of AGI's GLADS solution, and perform prime contractor responsibilities for those integrations. Next Gen will not be competing with AGI, and no other entity has a similar strategic relationship.

(b) This acquisition is not a "bridge" effort.

(c) Therefore, this acquisition will be a follow-on contract for the continued production of highly specialized product and integration services.

Subsection 2

Award to any other source would result in substantial duplication of cost to the Government that is not expected to be recovered through competition and unacceptable delays in fulfilling the Air Force's requirements.

(a) Switching to another solution would cause a total duplication of cost of $4,707,638 for the Government to go with another solution ($ - $ = $ ). Notional phase VI-X costs for NextGen are projected from the Independent Government Cost Estimate (IGCE) and based on market research and other factors as listed in the below paragraphs.

Table 1: GLADS - UDOP Notional Phased Solution Comparison (rounded to the whole number)

VI VII VIII IX X Total

NextGen $ $ $ $ $ $

Vendor Solution $ $ $ $ $ $

Phase VI integration and training would cost $ for another vendor to get up to speed with NextGen (calculations are shown as follows): Air Mobility Command expended approximately $ on integration and training in phase I through phase V of the current contract. The Government estimates that at least % ($ ) of these integration and training (T&I) costs would be lost and would need to be re-accomplished under a new vendor solution. Next, % inflation was added to the % integration and training costs totaling $ ($ X % = $ ) to escalate for phase VI. Last, $ was added for phase VI Government hosting solution Risk Management Framework (RMF) needing to be re-accomplished by a new vendor solution. This represents an additional $ ($ + $ + $ =

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) of integration and training over the projected NextGen notional Phase VI IGCE amount of $ . Therefore, it is estimated that any other vendor solution besides NextGen would cost approximately $ ($ + $ = $ ). Phase VI estimated cost for a new solution and the projected amount for NextGen is based on market research and historical costs to support integration of additional UDOP capabilities.

AMC's multi-year participation in the USTRANSCOM Geospatial Integration Working Group and the fly-off of COP/UDOP capabilities was conducted in Dec 2016 for the USTRANSCOM Commander (General McDew) by the USTRANSCOM Geospatial Integration Working Group. Based on AMC's Information Systems (IS) Initial Capability Document (ICD) requirements, the other solutions demonstrated (Google Earth, IRRIS, GCCS-J, ESRI) did not have a Physics Based Analytics capability to build user specific Decision Support Tools and alerts and fell short on meeting stated requirements. Google Earth was the nearest competitor meeting 36% of the requirements with no projected ability to meet the remaining 64%. GLADS UDOP met 70% and had the capability to meet the remaining 30%. Given this disparity, AMC could not find a comparable mature COTS capability and this would have led to a custom development effort. A custom development effort would take significantly more time with increased cost to implement and would not meet AMC's urgent operational need requirements.

(b) Based on historical integration efforts, an impact to operations would be caused by substantially delaying implementation. Switching to another solution would require redoing much of the work from Phase I through Phase V and would set back implementation of this capability by approximately three years. GLADS is the only solution that has been integrated to draw information from authoritative data sources through the integration effort of the current contract. No other source has this capability. For example, GLADS along with alternate commercial analytical software packages on the market were demonstrated to the working group and a capabilities gap analysis/matrix was prepared. Results from this matrix revealed that AMC GLADS/STK/UDOP met significantly more of these requirements today (70% of the 90 requirements identified) than any other analytic software available in the commercial market. Also, GLADS-UDOP has been optimized for the Air & Space environment, and can accept/ingest info/data from the other systems to incorporate them into user defined displays and decision support tools. Air Mobility Command found the other options were significantly lacking which re-enforced justification of the previous sole source procurement of the STK solution. Further, experience gained with the capability during Phase I through V, also supports AMC's selection of GLADS-UDOP from a qualitative and effectiveness standpoint.

Subsection 3

Accordingly NextGen is the only firm capable of providing the continued performance of highly specialized integration services described in Section III above without the U.S. Air Force experiencing substantial duplication of cost is not expected to be recovered through competition and unacceptable delays in fulfilling its requirements.

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

A Sources Sought notice, AFICAFA4452-18-R-0075, was posted to Federal Business Opportunities (FBO) on 03 Aug 2018. The closing date of the notice was 03 Sep 18.

The Sources Sought Notice requested interested businesses submit a brief capabilities package which provided information of whether or not the contractor is an STK certified re-seller, integration and training skills, current security clearance level, and contract vehicles available to the Government for the procurement of the product. Two responses to this Sources Sought were received; AGI and GRI Technology Solutions, LLC. GRI's response consisted of an email stating they were able to provide STK, no capability package was submitted. A follow-up question was sent to GRI Technology Solutions, LLC confirming that their company had access to STK software and support services proprietary data from AGI and to provide the contact information for their AGI representative. Analytical Graphics, Inc. was contacted via email to ensure that they do not have any certified

March 2018 FOR OFFICIAL USE ONLY Page 6 of 7 resellers. Analytical Graphics, Inc. Director of Integrated Solution confirmed that no certified resellers are available and only AGI has access to their proprietary data. This survey of the market place confirms previous findings that AGI is the only company capable of meeting the Government's requirement. Analytical Graphics, Inc. is a large business under the applicable NAICS code 541512.

After the Sources Sought notice was closed and all responses were received, AGI informed the Government that they have entered into an exclusive strategic relationship with NextGen Federal Systems LLC to become AGI's integration partner. AGI will allow NextGen certain reseller rights that will enable them to perform custom integrations of AGI's GLADS solution, and perform prime contractor responsibilities for those integrations. In this relationship, AGI will still be the sole source provider of the software products. NextGen will not be competing with AGI, and no other entity will have a similar strategic partnership. Therefore the contemplated award will be to NextGen Federal Systems LLC.

A Notice of proposed Contract Action IAW FAR 5.201 is required for this effort and will be included with the combined synopsis/solicitation IAW FAR 5.203.

This sole source requirement will be synopsized in accordance with (IAW) FAR 5.201(b)(1)(ii) through FBO, and any sources indicating interest will be considered.

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

The Contracting Officer will determine the price fair and reasonable based on price analysis for commercial items as described in FAR Part 15.404-1.

To ensure the final price will be fair and reasonable, the contracting officer reserves the right to enter price negotiations IAW FAR Part 15. Information obtained from market research and pricing data received will be utilized. A preliminary Price Negotiation Memorandum (PPNM) will be created with proposed, objective and maximum negotiation positions. Analytical Graphics, Inc. (AGI's) technical and price proposal, information obtained from market research, past prices paid by the United States Air Force for similar support, and "other than certified cost or pricing data as defined in FAR 2.101 as required IAW FAR 15.403-3(c) will be utilized in the creation of the minimum, objective and maximum negotiation positions.

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

As described in Section VI above, market research, in accordance with FAR Part 10, was conducted by synopsis of the proposed acquisition, advising industry of the pending acquisition and soliciting inquiries from interested parties. Market research was conducted using a variety of techniques including: discussions with the requiring activity, review of the current contract for GLADS, and a Sources Sought synopsis posted to FBO, AFICAFA4452-18-R-0075, on 03 Aug 18. Along with a sources sought posted to FBO, AMC/A3C participates in USTC UDOP Working Group conducting further research on GLADS capability as described in section V. The results of the market research further confirm the previous findings that AGI is the only company capable of meeting the Government's requirement.

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

None.

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

See Section VI above.

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

At the time the previous J&A was initiated only AGI possessed the unique capability of fulfilling the requirement as they already had developed and fielded the software and data to provide STK for GLADS. Air Mobility Command Global C2 Branch (AMC/A3) and 763 SCONS has continued to monitor the market and AGI has now entered a strategic relationship with NextGen to become AGI's integration partner. Searches of the market have identified other similar systems, but also identified that if we change the system now it would be a substantial duplication of cost. NextGen has certain reseller rights for AGI that will enable them to perform custom integrations of AGI's GLADS solution, and perform prime contractor responsibilities for those integrations. No other entity has a similar strategic partnership with AGI.

Air Mobility Command Global C2 Branch (AMC/A3) and 763 SCONS will keep dialog open with industry and will monitor the market to see if a competitive environment develops.

XII. Certification by the Contracting Officer.

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

XIII. Certification by the technical/requirements personnel.

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