Attachment 2 - Class Justification and Approval - EFB Tablets.pdf

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

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Record (PoR), the PGL is not expected to be complete and ready for review until Q4 of CY18 and a Program Objective Memorandum (POM) is not expected until FY21. Until there is further direction from HQ AF, this Class J&A will enable AF flying units to complete vital technology refreshes of their assigned devices and/or procure new tablets to meet mission demands.

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

Electronic Flight Bag (EFB) commercial mobile devices (CMDs) are used as general purpose computing devices to present relevant information to Air Force flight crews for safe, efficient and effective flight operations. Under this Class J&A, approved EFB Apple iPad tablets will be provided to AF flying units at a rate of approximately 14,800 tablets per year beginning in FY19 through FY20 (three calendar years), with an expected annual cost of $ . Authorizing a three year period will enable AF aircrews to receive replacement and/or new CMDs that are capable of running the most recent National Information Assurance Partnership (NIAP), National Institute of Standards and Technology (NIST) compliant and Defense Information Systems Agency (DISA) approved version of Apple's iOS until a Program of Record can be established for AF EFB CMDs (expected to occur sometime in FY21). This estimate is inclusive of EFB requirements for all Air Force flying units and is expected to result in the standardization of devices to ensure safety of flight and mission assurance.

The total amount of EFBs required by specific Air Force mission area or capability are:

Combat Air Forces:

- Current EFB inventory by the end of FY18 is expected to be ~11,000 tablets

- Projected EFB growth is ~7,000 tablets

- Total projected need for the period of 1 October 2018 through 30 September 2021 is ~18,000 tablets

Mobility Air Forces:

- Current EFB inventory by the end of FY18 is expected to be ~15,000 tablets

- Projected EFB growth is ~3,000 tablets

- Total projected need for the period of 1 October 2018 through 30 September 2021 is ~18,000 tablets

Strategic Air Forces:

- Current EFB inventory by the end of FY18 is expected to be 1,700 tablets

- No projected EFB growth (tech refresh only)

- Total projected need for the period of 1 October 2018 through 30 September 2021 is 1,700 tablets

Training Air Forces:

- Current EFB inventory by the end of FY18 is expected to be ~1,200 tablets

- Projected EFB growth is ~5,500 tablets

- Total projected need for the period of 1 October 2018 through 30 September 2021 is ~6,700 tablets

Expected appropriations to be used for the purchase of EFB tablets will be O&M funds--appropriation type codes 3400 (Air Force), 3740 (Air Force Reserve) and 3840 (Air National Guard), respectively.

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

10 U.S.C. 2304(c)(1), as implemented by FAR 6.302-1 "Only One Responsible Source and No Other Supplies Will Satisfy Agency Requirements."

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

The Air Force is required to preserve the operational security of its weapon systems across all domains--human, signals, imagery, and communications intelligence. The use of Apple's mobile device "i" operating system (iOS) is essential to maintaining the operational security needs of Air Force commercial mobility device (CMD) users and Apple iPads are the only electronic tablets capable of running Apple's iOS. While there are different forms and many versions of Apple

March 2018 Page 5 of 8 iPads, this Class J&A will ensure that only those Apple iPad CMDs capable of running Apple iOS 11 or higher with a DISA Security Technical Implementation Guide (STIG) will be procured for the purposes of being used as EFBs at all AF locations that require them. Additionally, only those Apple iPad models that have undergone proper testing by the responsible Air Force functional community requiring them and are capable of running Apple iOS 11 or higher with an assigned DISA STIG (Wireless STIG Guidance for Unclassified Mobility GFE Connections can be found here: https:// iasecontent.disa.mil/stigs/pdf/Mobility_Conections.pdf)

CMDs that utilize a mobile device operating system that does not have an approved DISA STIG are considered more vulnerable to attack and pose significant network security concerns. Additionally, CMDs that have not been tested or configured by the responsible Air Force functional community of interest may not be capable of running electronic Flight Information and Publications (eFLIP) applications which are necessary for safe flight operations and mission success. To be considered an EFB, every CMD must be compliant with all applicable cybersecurity standards and Federal Aviation Administration, Department of Defense and Air Force "airworthiness standards" before being given the authorization to operate (ATO) on an aircraft. To be considered "air worthy" there are five testing areas that must be completed before an EFB is approved for fielding, they are:

1. Electromagnetic Environmental Effects

2. Hazards of Electromagnetic Radiation to Ordnance (HERO)

3. Explosive Atmosphere

4. Explosive Decompression

5. Rapid Decompression

In addition to passing all required testing measures, each approved EFB CMD must be capable of running the required mission-specific applications. Aviation software that provides flight publications and reference material for the commercial airline industry and the military is now available for Apple iOS, Microsoft Windows and Android operating systems. However, certain applications, such as ForeFlight (https:// www.foreflight.com/), an in-flight application used to provide critical safety of flight weather and notices to airmen (NOTAMS) data, runs exclusively on Apple's iOS. For certain aircraft such as the Mobile Airborne Firefighting System C-130s and the entire fleet of C-21A Executive Airlift aircraft, the ForeFlight application is mandatory use software. Additionally, because Apple's iOS and iPad are the only mobile device operating system and tablet, respectively, that have been tested and approved by the AF in accordance with AFI 62-602, Airworthiness, 14 June 2017, the Apple CMD EFB solution has been given the required ATO for aircrew across the Air Force.

It is for the reasons cited above that only those Apple iPads that have been properly tested, configured for use by the requiring functional Air Force community, are capable of running a version of Apple iOS with an approved DISA STIG and are able to run eFLIP applications may be purchased under the auspices of this Class J&A.

If the Air Force was not allowed to purchase tablets to be used as EFBs and instead was forced to revert to traditional paper flight publications and reference materials, there would be a considerable increase in total costs to the AF due to repetitive publication expenses and decreased efficiency in Air Force operations. Aircrews must have immediate access to information vital to complete their missions, such as in-flight guidance, world-wide navigation, operational capabilities of their aircraft and specific mission information, to name a few. Prior to the use of electronic tablets, aircrews were required to carry a considerable amount of documentation, estimated to weigh ~100lbs, which was cumbersome, difficult to navigate through the multiple reams of paper and would increase the amount of fuel required to carry the additional weight of the flight bag. By converting this mission essential information to a digital medium, for Mobility Air Forces alone, the Air Force is expected to save an estimated $700,000 in aircraft fuel costs per annum and 25,334 man-hours per year or $1,200,000 in annual printing and distribution costs. An additional, immediate consideration is at some point in FY19, the Defense Logistics Agency (DLA) will no longer procure paper FLIP products, creating a situation that demands the use of an electronic alternative to obtain critical flight information. DLA is scheduled to begin the pilot program of eliminating the automatic shipment of paper FLIP products on or about 1 Sep

18. The pilot program will effect all DoD flying units (Navy, Army, Coast Guard, etc.). As part of the program, flying units will have to travel to a DLA central warehouse to pickup their paper FLIP products. If the results of the pilot program are successful, it is anticipated that DLA will implement a 100% digital flight publications policy or "eFLIP" delivery of the required publications.

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For the reasons cited above, the Air Force requires standardization of the mobile device operating system used to run mission essential applications across the entire Air Force inventory of aircraft. The use of a mobile device operating system other than Apple's iOS, and subsequently the use of dissimilar devices, could result in disruption of Air Force flight operations and potential mission failures across the enterprise. Additionally, the introduction of a diverse mobile operating system and devices other than those capable of running Apple's iOS would require a significant recapitalization of existing hardware and a substantial capital investment in both new hardware and software, resulting in the replacement of ~28,900 previously fielded devices and potentially 15,500 additional devices to be procured over the next three (3) years.

Finally, the Air Force Flight Standards Agency (AFSSA) has completed a Capabilities Based Assessment (CBA) and presented the information to the respective Air Force functional communities (HAF Air Staff) with the intent of obtaining authorization to submit this requirement to the Joint Capabilities Integration Development System (JCIDS) and begin the process of establishing a Program of Record (PoR) for AF EFBs. HAF (SAF/A5) approved the CBA on 4 August 2016, however, until a PoR can be established, the Air Force must maintain its current CMD capability in order to maintain current and future flight operations.

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

IAW AFMAN 17-1203, 18 May 2018, procurement of all [unclassified] Air Force (AF) Information Technology (IT) hardware is accomplished by using one of the applicable AF Information Technology Commodity Council (ITCC) enterprise buying programs available through AFWay--https://www.afway.af.mil/ (waivers are processed through AFWay.

All AF IT hardware that is not purchased through one of the ITCC programs must be purchased using one of the NETCENTS-2 contracts--https://www.netcents.af.mil/.

Approval of this Class J&A does not alleviate procuring activities from the cybersecurity risk management responsibilities outlined in AFI 17-130, Cybersecurity Program Management nor does it relieve the EFB requirements/ program managers from their mobile device management (MDM) responsibilities or Commanders from their responsibility to manage the IT hardware procured under this Class J&A (ref. AFMAN 17-1203, Ch 2).

Additionally, EFB requirements managers shall be responsible for all Air Force Information Technology investment, compliance, management and enterprise architecture integration responsibilities as described in AFGM 2018-17-02 (supersedes AFI 17-100), AFI 17-110 and AFI 17-140.

Finally, approval of this Class J&A does not waive FAR Part 5 synopsis requirements. A redacted copy of this Class J&A shall be made available in accordance with FAR 6.305(c), (d) & (e). Additionally, procurement of Apple iPad CMDs shall be compliant with applicable laws and regulations as they pertain to the Buy American statute and/or Trade Agreements Act of 1974 (ref. DFARS Subpart 225.4 and/or 225.5 and DFARS 252.225-7020).

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

Various commercial vendors are able to provide Apple iPads. In accordance with FAR 15.403-1(c)(1)(i), within the AF Information Technology Commodity Council (ITCC) and/or NETCENTS-2 multiple-award indefinite delivery/indefinite quantity contract (MAC ID/IQ) purchasing vehicles, the Air Force reasonably expects to obtain adequate price competition from at least two or more responsible vendors. Depending on the model purchased from commercial resellers, the estimated average price for an Apple iPad CMD is between $460 and $1,130 and between $360 to $1,030 (based on the lowest priced BPA/contract offering) when purchased through AFWAY from one of the AF ITCC blanket purchase agreements or the NETCENTS-2 product MAC ID/IQ. Under the NETCENTS-2 contract vehicle, six of the twenty-four NETCENTS-2 vendors are authorized Apple distributors and are able to provide the required Apple iPad CMDs. However, this does not preclude the remaining eighteen vendors from participating in a fair opportunity ordering competition.

All Apple iPads shall be procured using a lowest price, technically acceptable approach, but in no case will iPads

March 2018 Page 7 of 8 considered "end of life" be procured as these tablets may not be fully supported by Apple shortly after procurement, defeat the purpose of performing a "technology refresh" and therefore do not represent the overall best value to the Air Force.

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

As described in Sections II and VI, the market research requirements of FAR Part 10 were satisfied prior to initial procurement of the current EFB Apple iPads in the Air Force's inventory. The Government requested information from Apple, Microsoft, Astronautics and Getac and has continued regular contact with the interested parties. The interested vendors were assessed and determined to be incapable of meeting the Government's requirements based on the following:

Getac provided the Air Mobility Command (AMC) Electronic Flight Bag (EFB) Integration Office three of their T800 units for testing from July to September 2015. The units were evaluated to determine whether they could be connected to the AFNET while on the ground and also operate in a disconnected environment in flight. Evaluation determined that the unit lacked the ability to connect to the AFNET. Additionally, the units were far too heavy and thick to be used in the flight environment. The Getac tablets were also priced at $2,500 each plus additional docking station fees, making them cost prohibitive.

In June 2016, the AMC EFB Integration Office met with representatives of Microsoft to discuss the latest developments and capabilities of their Surface Pro. As was the case for the Getac tablet, he size of the Surface Pro 3 was determined to be less optimal for flight and flightline operations.

The previous synopsis of proposed acquisitions was limited to only those vendors that could meet the requirement of running the required eFLIP applications and eTools Lite. These acquisitions were procured under the Class J&As mentioned in Section II.

Only tablets utilizing Apple iOS and Microsoft Windows operating software have been employed in the commercial airline industry and have the capability to operate required aviations applications such as Jeppesen FliteDeck or AERO eFLIP (used by the National Geospatial-intelligence Agency (NGA) to provide aircrews with the ability to view a suite of publications and military airfield charts). However, because certain aircraft required specific flight applications such as ForeFlight that would operate exclusively on Apple's iOS, the Apple iPads were determined to be the only commercial mobile end user tablet device capable of meeting the Air Force's mission requirements.

Additionally, because Apple's iOS is considered a tested and proven medium to run eFLIP applications, introducing a different mobile device operating system and tablet would cause fragmentation of an existing, viable, secure and fully functioning EFB architecture that is centered around Apple's iOS. This fragmentation could possibly induce flight safety issues and jeopardize the aircrews ability to complete their mission due to interoperability concerns of using multiple system architectures (both hardware and software). Additional mobile device management and technical subject matter experts would be required if more than one system architecture (operating system, tablet configuration and eFLIP applications) was deployed.

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

Commercial mobile end user electronic tablet devices for EFB purposes are limited to devices using Microsoft Windows Mobile and Apple iOS operating systems. The Windows Mobile OS is found on numerous tablet manufacturers (Acer, Asus, HP, Dell, Microsoft, Samsung, and Lenovo), although Microsoft has acknowledged the Surface Pro 3 is not suitable for military use. Considering the existing inventory of Apple iPads being used for EFB purposes, the introduction of new devices would disrupt the current standardization efforts of hardware and software over the previous four years (ref. Section II) and would potentially require the Air Force to make an additional capital investment and significant recapitalization of existing hardware and software (ref. Section V).

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

Apple's iOS is currently the only mobile device operating system software capable of running all the required aviation applications for the Air Force. Representatives of Microsoft have stated that their commercial partners may have devices that meet Air Force EFB needs, although they acknowledge the Surface Pro 3 is not suitable for military use.

While there are other mobile device manufacturers with DISA approved mobile device operating system software such as Microsoft's Windows 10 Mobile and Samsung's Android OS 8, the current aviation and maintenance applications used by the Air Force rely on Apple's iOS.

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.

The Air Force Mobility Command (AMC) A5 conducted an Industry Day in the July 2016 timeframe. During this time, some potential industry partners expressed interest in providing EFB software to the Air Force, but stated that their technology was not yet mature enough to fulfill the Air Force's needs. When the Air Force creates a Program of Record for Mobile End User Devices or specifically EFBs, it is assumed that that office will hold another Industry Day and/or conduct an Analysis of Alternatives (AoA) or similar study to develop a strategy to meet future Air Force EFB requirements. It is also assumed that mobile end user device manufacturers and software developers other than Apple will be interested in potential future Air Force EFB requirements and will participate in any fair market competitions thereof.

Additionally, DISA has created a website for STIG approvals to allow vendors to initiate and coordinate the STIG process (http://iase.disa.mil/stigs/Pages/vendor-process.aspx). When a potential competitor has an approved DISA STIG and their product meets the Air Force's aviation and/or maintenance application needs, the Air Force will consider that product for operational testing and determine whether that product meets safety and suitability requirements for fielding (ref. Section V "testing areas").

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 our signatures above, we certify that any supporting data contained herein, which is our responsibility, is both accurate and complete.