CSS0112_JA_FINAL_Redacted.pdf

CSS0112 United States Coast Guard Large Cutter Connectivity-JA22-027

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On November 13th, 2019, Inmarsat Government, Inc. (hereinafter referred to as ‘Inmarsat’) was awarded the BPA HC101320A0001 for commercial Ku-band SATCOM services to support the USCG with a 1-year base and four, 1-year option periods. The award was made based on a competitive acquisition using GSA Schedule 70 SIN 132-55 (now known as GSA MAS 517410). Inmarsat completed contract performance for the base period and Option Period 1 (14 Nov 2019 – 13 Nov 2021). A request for Option Period 2 extension was not received, and therefore not exercised. However, it was discovered in mid January (2 months after expiration), that a need for existing services to continue under this BPA still existed, until the USCG modernization contract can be completed (estimated second quarter calendar year 2023). Continuous service is needed to provide critical satellite service.

The prior BPA, HC101320A0001 (CSS0093) provided the USCG with terrestrial connectivity to commercial internet as well as access from USCG designated Points-of- Presence (PoPs). Building a new commercial infrastructure to replace the current network would take additional time that is unavailable to the USCG. Standard industry lead times to establish agreements and build physical terrestrial connections is at least 120 days, which, if this BPA were to be openly competed, could result in even further delays.

Additionally, building out a new terrestrial network would force the USCG to pay duplication in costs previously paid to establish new connections. It is not in the interest of economy and efficiency to the Government to compete the bridge contract for follow-on work to the original BPA.

Currently, the USCG equipment has greatly exceeded its life expectancy and is in urgent need of replacement. Outdated equipment is difficult to support and limits interested parties for competition; as such, there are limited benefits of openly re-competing this BPA. The USCG has been working an effort to modernize their fleet under their COMSATCOM Infrastructure Modernization (NextGen) effort being procured by the USCG contracting office. This NextGen effort is scheduled to be awarded in the Spring of 2023, and services available under the new USCG BPA in November 2024.

USCG/TISCOM has been working this NextGen effort over the last two years to ensure a contract vehicle is in place to modernize their fleet and provide services beyond the end of the CSS0093 BPA. The USCG currently has no vehicle to provide/procure services for their cutters active around the globe. NextGen will be a turn-key managed service solution that includes new equipment for all USCG cutters and global network operations and support services including, program management, hardware installation / support, and technical support. NextGen is poised to be the true re-compete of BPA CSS0093, and if the BPA had not expired, would have fully met the USCG operational needs through to its end and allowed the USCG to fully transition from the BPA onto their new modernization contract without service loss or impact to operations.

If this effort were to be fully re-competed, the USCG would suffer significant operational impacts through loss of service, including the inability to meet operational needs and provide support to its operations partners around the globe. Additionally, the USCG would be expected to incur duplicative costs for the build out of a terrestrial infrastructure that is already existing. In the interest of economy and efficiency, a new BPA awarded to

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Inmarsat for the required services will ensure continuity of service with zero interruption or additional cost to the Government.

Justification:

(1) Minimum Government requirements. The USCG requires commercial Ku-band bandwidth, teleport, terrestrial backhaul, equipment replacement and frequency clearances to provide network support to Coast Guard ships in oceans and seas throughout the globe in addition to mobile units stationed on land in CONUS, as well as a commercial managed service to support connectivity to commercial teleports and terrestrial backhaul that will provide internet access and VoIP services. The USCG currently supports outdated and end-of-life equipment on their vessels, which limits the number of contractors capable of supporting this effort. The incumbent currently maintains existing infrastructure that supports the USCG and has successfully supported operational needs and tempo.

(2) Proposed sole source contractor.

The proposed sole source contractor for this effort is Inmarsat 11600 Sunrise Valley Dr, Ste 200, Reston VA 20191-1410. Inmarsat is currently supporting the USCG/TISCOM under current Order HC101321F0112 (CSS009304) and previous

BPA HC101320A0001 (CSS0093).

Transferring service to another provider would result in unacceptable delays to the USCG. Inmarsat currently provides the USCG technical support as well as terrestrial connections to commercial internet and USCG PoPs. Re-establishing these connections would take at least 120 days (industry standard lead times), which would be in addition to the required competitive lead time if this effort were fully re-competed. Therefore, the USCG would be without capabilities needed to support their missions around the globe while the new BPA was established, and new leased lines installed. The new lines could cost an estimated $3.7M based on current Independent Government Cost Estimates from the current GSA MAS 517410, which would result in financial duplication of cost for the USCG, without any ability to recoup those costs.

(3) Discussion regarding cause of the limited source situation. Inmarsat was providing COMSATCOM services to USCG under BPA CSS0093 from 14 November 2019 through 13 November 2021 (base period plus option period 1). In that time, five Orders were placed against the BPA for standard and seasonal services. While the previous BPA expired at the end of Option Period 1, it was determined after expiration that the USCG’s mission need was still present until such time as the NexGen follow-on requirement is awarded and available (estimated November 2024).

(4) Demonstration of limited source. Inmarsat has in-depth knowledge of USCG operations as well as current terrestrial and bandwidth leasing agreements to support follow-on and renewal Order efforts. Another vendor would require significant lead

Page 5 of 7 Pages time to be able to stand up a new supporting network, staff, and leasing agreements to be able to provide the required services. Standard lead times for terrestrial connections is at least 120 days, and new bandwidth agreements and network instantiation would take at least 30-60 days. These setbacks would impede the Government’s ability to meet its current need. In addition, there would be extra expenses from having multiple transition periods over a short period of time between contractors. This extra expense is not expected to be recouped through competition.

Finally, the multiple transition periods would introduce additional risk to the Government of unsuccessful performance. The Government is severely limited in its ability to re-compete this effort because the USCG currently has no vehicle under which to renew their current global coverage TO or place new TOs to support new missions. Therefore, in the interest of economy and efficiency, the new follow-on work to the original BPA can only be supported by Inmarsat.

(5) Procurement discussion.

This procurement must be completed in a timely manner. The USCG mission is currently supported by an Order under the expired BPA throuh 30 April 2022. A follow-on BPA must be in to issue a new Order prior to 30 April 2002 to ensure the USCG does not experience a break in service.

CSS0093 (HC101320A0001) was a competitive award to Inmarsat and demonstrates that other sources of supply were available at the time of the initial award. Because of the expediency required for this acquisition and because it also allows sufficient time for the NexGen requirement to be competed and awarded. Inmarsat is the only source that can provide the required services under these circumstances.

(6) Impact.

Because the initial BPA expired, the USCG is currently without a vehicle to renew or request new Orders to support its mission around the globe. Re-competing this requirement would result in unacceptable delays to the USCG and leave them without a vehicle to order new services. A new contract of this size has a procurement acquisition lead time of at least 157 calendar days and would then require at least 120 days of transition time to establish the new network connections and bandwidth leases, totaling at least 277 days. The USCG cannot operate without a contract vehicle because of the need to respond to ongoing events around the globe.

Additionally, the USCG is currently working a follow-on effort, NextGen, to support the USCG modernization efforts to replacing aging and end-of-life (EOL) equipment currently onboard the cutters. The lead time and transition time required to award a new BPA would cause a break in service and would mean the USCG would have no network to support their mission and cutters would have severely degraded or no satellite communications onboard their fleet.

The impact of the delay required to re-compete this effort would leave the USCG unable to support its missions around the globe and would sever connectivity for their

Page 6 of 7 Pages entire fleet of cutters. Additionally, a re-compete for this service would be an identical requirement from the current (expired) CSS0093 BPA.

Continuity of Ku-band COMSATCOM service is critical to Coast Guard mission execution, as the bandwidth demands of current generation Command and Control (C2) systems installed on Coast Guard cutters, coupled with increased reliance on web-based applications far exceed the capability of Fleet Broadband, the Coast Guard’s secondary connectivity solution. A lapse in Ku-band COMSATCOM service would drastically impair the cutters’ abilities to effectively carry out Homeland Security and Joint Chiefs of Staff directives, including joint service operations, intelligence gathering, counter narcotics, alien-migrant interdiction, and enforcement of national security objectives throughout the global maritime domain.

5. BEST VALUE DETERMINATION:

The Contracting Officer will determine fair and reasonable pricing for this BPA through price analysis conducted in accordance with FAR 15.404-1. The price analysis will utilize historical data, current contract prices, and comparison with the Independent Government Cost Estimate.

The Contracting Officer will ensure that the resulting negotiated price is fair and reasoanble to the Government.

6. MARKET RESEARCH:

Market research was conducted by Space Systems Command Commercial Satellite Communications Office (CSCO) from December 2021 through January 2022. Market research performed specifically for this requirement included reviewing the acquisition history of the previous BPA (CSS0093, HC101320A001) and all associated modifications and Orders, as well as a review of contracts with similar scopes and requirements (CSS0045, HC101316A0002 and CSS0063, HC101317F0010). Market research showed that in the interest of economy and efficiency to the Government, Inmarsat is the only contractor that can meet the Government’s existing need.

7. ANY OTHER SUPPORTING FACTS:

Not Applicable.

8. ACTIONS THE AGENCY MAY TAKE TO REMOVE BARRIERS THAT LED TO THE

RESTRICTED CONSIDERATION:

Procurement history. BPA CSS0093 (HC101320A0001) was awarded competitively to Inmarsat. The base period of performance was 14 November 2019 – 13 November 2020.

The Government exercised option period 1 which had a period of performance of 14 November 2020 – 13 November 2021. No exception to fair opportunity, limited sources, or exception to full and open competition authorities were cited for this action. The Government placed five Orders against the BPA with the current Order expiring 30 April 2022. No set-aside was used in the solicitation of this acquisition.

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TECHNICAL CERTIFICATION: I certify that the supporting data under my cognizance which are included in the J&A are accurate and complete to the best of my knowledge and belief.

NAME: LT Derek Campbell SIGNATURE:

TITLE/ORGANIZATION: Project Manager, USCG C5ISC-ISD-TSB-DCS

PHONE: (703) 965-9701 DATE: 22 February, 2022

REQUIREMENTS CERTIFICATION: I certify that the supporting data under my cognizance which are included in the J&A are accurate and complete to the best of my knowledge and belief.

NAME: Randy Robish SIGNATURE:

TITLE/ORGANIZATION: Section Chief, USCG C5ISC-ISD-TSB-DCS

PHONE: (703) 313-5561 DATE: 22 February, 2022

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

NAME: TINA M VOSS SIGNATURE:

TITLE/ORGANIZATION: Contracting Officer, DITCO/PL8222

PHONE: 618-418-6266 DATE: 24 February 2022

HEAD OF THE CONTRACTING ACTIVITY (HCA) APPROVAL: I have reviewed this justification and find it to be accurate and complete to the best of my knowledge and belief.

Since this justification does not exceed $100M, this review serves as approval.

NAME: DOUGLAS W. PACKARD SIGNATURE: See separate signature page

TITLE/ORGANIZATION: Head of Contracting Activity

PHONE: DATE:

ALL QUESTIONS REGARDING THIS JUSTIFICATION ARE TO BE REFERRED TO

Melissa Winkeler, 618-418-6142, melissa.j.winkeler.civ@mail.mil