EFOJ AGNR FINAL Redacted beta_SAM.pdf

Control No: JA-21-B-053 Contractor: L3Harris Technologies, Inc.

Program/Equipment: PM TR Manpack Gen 2 (AN/PRC-158) Software Defined Radio

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FAR Part 16 Justification for an Exception to Fair Opportunity Under Multiple Award Indefinite Delivery Contracts

For Actions Exceeding the Simplified Acquisition Threshold (SAT)

1. Contracting Activity: Army Contracting Command - Aberdeen Proving Ground (ACC-APG), Division B, Tactical Radios Branch Office Symbol: CCAP- CCB 6565 Surveillance Loop, Building 6001 Aberdeen Proving Ground, MD 21005-1846

2. Description of Action: Army Program Executive Office Command, Control & Communications - Tactical (PEO-C3T), Project Manager Tactical Radios (PM TR), Product Manager Handheld, Manpack, and Small-form Fit (PdM HMS), in support of Product Manager Helicopter and Multi-Mission Radios (PdM HAMMR), requests a Firm-Fixed Price, Sole Source Delivery Order to procure equipment by using the Multiple Award Indefinite Delivery-Indefinite Quantity (MA-IDIQ) contract (W15P7T-16-D-0002) held by L3Harris Technologies, Inc., (L3 Harris) 1680 University Avenue, Rochester, NY 14610. The base ordering period of performance for the MA-IDIQ ends on 20 March 2021, but has a five (5) year option period which expires on 20 March 2026. Other Procurement (FY22-2026) Army (OPA) funds will be used.

3. Description of Supplies/Services: PdM HAMMR is the Office of Primary Responsibility (OPR) for all helicopter and multi mission radios which includes testing, training, configuration management, and sustainment. The PdM HAMMR Air to Ground Networking Radio (AGNR) team provides tactical radios to Army Aviation platforms by working with Product Manager Aerial Communications & Mission Command (PdM ACMC) to integrate aerial communications systems into Army Aviation Platforms. Through its current AGNR effort PdM HAMMR intends to integrate Program of Record (POR) Manpack Gen 2 Software Defined Radios (SDR) into Army Aircraft to fulfill the updated requirements for a National Security Agency (NSA) Cryptographic Modernization compliant tactical radio to replace the ARC-201D radio.

AGNR Requirement (Overview): This radio is intended as a multi-channel, software-defined, National Security Agency (NSA) Type 1 networking radio, providing real-time communications in a dynamic combat environment. The radio must be able to support the latest released Single Channel Ground and Airborne Radio System (SINCGARS) waveform on one channel while hosting an Advanced Networking Waveform (ANW), currently TSM or WREN TSM, on the other channel(s), offering the user’s on Army Aviation platforms. The AGNR solution will need to match the performance of ground systems while operating in a tactical aviation platform as well as have many of the characteristics of currently fielded airborne radio systems including physical attributes, reliability and durability, performance and features of current capabilities, interfaces, and be able to maintain high-performance capabilities while exposed to environmental extremes.

The requirements include the following:

1. Size Constraint. The entire AGNR solution is meant to fit into the two spaces of two different dimensions, called herein “Space 1” and “Space 2”. Space 1 and Space 2 have the following dimensions:

Program/Equipment: PM TR Manpack Gen 2 (AN/PRC-158) Software Defined Radio

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• Space 1 is 6.00 in. horizontal, 7.50 in. vertical, and 18.17 in. deep.

• Space 2 is 6.08 in. horizontal, 7.88 in. vertical, and 20.50 in. deep.

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Program/Equipment: PM TR Manpack Gen 2 (AN/PRC-158) Software Defined Radio

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The following table depicts annual forecasted quantities required to replace the ARC-201 D in the UH/HH-60M fleet, based on the UH/HH-60M Army Acquisition Objective (AAO) of 2,678; the dollar values are derived from the Independent Government Cost Estimate.

Materiel/ Service Costs Thousands AGNR* Quantity Cost Warranty Quantity Cost Licenses Quantity Cost AGNR Accessory Kit** Quantity Cost

Total

FY

FY

FY 2023 FY 2024 FY 2025 FY 2026 Total

* The quantity ofllll and costs above depict the total cost required to equip the entire UH/HH- 60M fleet. Quantities procured in a given fiscal year may vary dependent on availability of funds, vendor production capacity, and operational requirements. The unit price for the AGNR includes the cost of the B-Kit and the aircraft spares, which is 10% of the total unit price.

**AGNR Accessory Kits (specific to the POR radio) are 10% of the total radio cost.

The IGCE Hardware basis of estimate was derived from the HMS Manpack MA-IDIQ contracts' W15P7T-16-D-0002 (Harris) and W15P7T-16-D-0003 (Collins Aerospace) Firm-Fixed Price Quantity Range Unit Pricing.

Required Initial Delivery Date: January 2022 Total Value:-

4. Authority Cited: 10 U.S.C. 2304c(b)(2) as implemented by FAR 16.505(b)(2)(i)(B)-Only one awardee is capable of providing the supplies or services required at the level of quality required because the supplies or services ordered are unique or highly specialized.

5. Reason for Authority Cited: Pursuant to FAR 16.505(b)(2)(i)(B), only L3Harris is capable of providing the supplies or services required at the level of quality required because the supplies or services are unique or highly specialized. The UH/HH-60M helicopter has a narrowly defined space (Requirement #1 above) with which a replacement radio can fit and accommodate physical size, input voltage, control mechanisms, software control commands, and protocols for remote installation. Due to space limitations in the aircraft, alternative locations are not available.

Army Aviation needs a solution that does not require significant redesign of the structural aircraft

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Program/Equipment: PM TR Manpack Gen 2 (AN/PRC-158) Software Defined Radio

Distribution A CUI components, but will also accommodate required ancillaries, which includes filters, diplexers, and a SATCOM Low Noise Amplifier (LNA) in the transition space between the cargo area and the tail boom. Once the radio and all of the ancillaries are installed in the aircraft the mounting equipment must have the ability to isolate shock and vibration when the aircraft is in flight.

The ARC-201D radio has been in the Army inventory for over 30 years providing Aviation platforms with its primary Single Channel Ground and Airborne Radio System (SINCGARS) solution. Beginning in 2017 market research and rough orders of magnitude (ROM) were conducted to establish a baseline for upgrading the radio’s form, fit, and function, as well as compliance with the latest National Security Agency (NSA) standards. The ROM estimated the non-recurring engineering (NRE) costs at $30 million dollars, and a two year development lead time that would add an additional 18-24 months to the schedule. In November of 2018, PdM HAMMR briefed the Army Acquisition Executive (AAE) regarding courses of action to fulfill this requirement with a purpose built aviation radio. Given the approximate four (4) year timeframe to bring the existing ARC-201D into compliance, Army leadership deemed modernization of the ARC-201D not feasible and directed PEO Aviation to find an alternative solution. The AAE directed the PdM HAMMR team to research existing Department of Defense (DOD) Program of Record (POR) ground radios and integrate the available technology into the Army’s fleet of aircraft. Based on this directive, PdM HAMMR intends to integrate Program of Record (POR) Manpack Gen 2 Software Defined Radios (SDR) into Army Aircraft to fulfill the updated requirements for a National Security Agency (NSA) Cryptographic Modernization compliant tactical radio to replace the aging and obsolete ARC-201D radio.

There are two current IDIQ contract holders that produce the Manpack Gen 2 radio, L3 Harris and Collins Aerospace. Collins Aerospace produces the PRC-162 Manpack Gen 2 radio and L3Harris produces the PRC-158. As the Army moves forward to field the Manpack Gen 2 into the aviation fleet, the AGNR requirements listed in Section 3 were incorporated, via contract modification, into a revised Performance Requirements Document (PRD) for each contract.

Previously neither vendor’s radio met all of the requirements listed, however, through software modifications both Manpack Gen 2 will meet the threshold requirements of the PRD. As for the non-software requirements, they are being addressed by the AGNR team through re-allocation, and reconfiguration of the existing installation kit, which is being redeveloped to specifically accommodate the Manpack Gen 2 radios. However, as previously stated, a critical restriction for the integration of the Manpack Gen 2 on the UH/HH-60M is the size constraint on that platform.

The PRC-162 does not meet PdM HAMMR’s size requirement, in that the dimensions are too large to fit in the airframe spaces allocated within the UH/HH-60M. The L3Harris PRC-158 Manpack Gen 2 radio fits into the allocated space within the aircraft without the need for airframe or internal structural reconfiguration, accommodates the required ancillaries, and utilizes UH/HH- 60M mounting equipment.

The main integration issue when comparing the Collins Aerospace and L3Harris solutions is the physical size of the radio. Within the UH/HH-60M fleet there are two spaces currently occupied by the ARC-201D, one is mounted under the co-pilot’s seat, and the other is co-located with the Improved Frequency Modulated (IFM)-101 amplifier in the avionics bay, also called the transition area, between the cargo area and the tail boom. The transition space between the cargo area and the tail boom houses the required ancillaries, which includes filters, diplexers, and a

Program/Equipment: PM TR Manpack Gen 2 (AN/PRC-158) Software Defined Radio

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SATCOM Low Noise Amplifier (LNA). The space allocation for mounting of the ancillaries is the underside of a shelf located directly above the radio.

The L3Harris PRC-158 is able to mount and fit in both of these locations. The Collins PRC-162 size dimensions prohibit the radio from mounting in these locations without significant redesign of structural aircraft components.

In October 2020, Collins Aerospace released a white paper highlighting their radio as a solution to the ARC-201D based on a fit-check completed on the UH/HH-60M at Redstone Arsenal, Alabama, on 1 October 2020. The fit-check utilized a UH/HH-60M helicopter and a PRC-162 Manpack Gen 2 radio in an installation configuration under the co-pilot’s seat. The Collins Aerospace PRC-162 radio is vertically 1” larger than the allocated space under the co-pilot’s seat (Space 1) and vertically .62” larger than the allocated space in the transition area (Space 2). In analyzing the result of the fit-check under the co-pilot seat, the PRC-162 radio encroaches into the Co-Pilot Crash Stroke Zone. The Stroke Zone supports the Seat Stroke safety requirement.

The Stroke Zone is the space between the seat bottom and the aircraft floor which allows for co-pilot seat decompression during a hard landing or crash. Space allocations are crucial to the Seat Stroke safety constraints. Given the allotted space and the constraints within the airframe, the Collins Aerospace radio will not fit. The L3Harris PRC-158 radio fits the dimensions of both spaces and does not encroach upon the decompression space required for the co-pilot seat. Therefore, L3Harris is the only vendor that can provide a Manpack Gen 2 radio to replace the ARC-201D radio in the available airframe locations in the UH/HH-60M.

The following table summarizes these findings:

PdM HAMMR reviewed the requirement for AGNR and considered the following alternative options:

1. Delay integration and fielding schedules in order to conduct non-recurring engineering (NRE) for the PRC-162 radios. This is not a suitable alternative as it goes against the AAE directive to utilize a POR radio that meets the size requirements to fit into the allocated space without the need for airframe reconfiguration.

2. Compete the requirement between the two HMS Manpack Gen 2 IDIQ contract holders. This is not suitable as the Collins Aerospace solution does not fit in the allocated spaces.

Upon review of the aforementioned courses of action, PdM HAMMR has deemed an Exception to Fair Opportunity Justification (EFOJ) is the only mechanism available that meets the established guidelines directed by the AAE. Integration of the current Manpack Gen 2 POR

Program/Equipment: PM TR Manpack Gen 2 (AN/PRC-158) Software Defined Radio

Distribution A CUI radio via the existing multiple award IDIQ contract avoids duplicative costs, maintains the first scheduled milestone for FY 2028, and fields critical capability in support of Multi-Domain

Operations. The L3Harris PRC-158 is the only solution available to support the UH/HH-60M aircraft, given the constraints.

If this EFOJ is not approved, the Army will incur an additional, and un-programmed cost of $25M in NRE and an additional four (4) year schedule delay. Additionally, the Army Aviation forces ability to transmit or receive secure voice or data communications will be delayed by an additional three years, increasing operational risk and the possibility of mission failure, and resultant loss of life.

6. Actions to Increase Competition: The near-term strategy for replacing the ARC- 201D is to find a Program of Record radio that is easily integrated into the aircraft to interface with existing controls. For the UH/HH-60M, this requires the integration of the PRC-158 due to the UH/HH-60M’s narrowly defined space in which a replacement radio can fit and accommodate physical size, input voltage, control mechanisms, software control commands, and protocols for remote installation that fits within the existing footprint of the UH/HH-60M. As discussed above, this strategy reduces both cost and schedule that would otherwise be directed toward either non-recurring engineering (NRE) efforts, or developing a new, airborne specific radio.

For other aviation platforms, the near-term plan is to add aviation specific requirements to the existing Performance Requirements Document (PRD) and issue a Request for Proposal (RFP) to both vendors on the current contract. The Army’s assessment is that both vendors are capable of meeting these additional technical requirements with software modifications to the existing hardware offerings already presented. Plus, other aviation platforms do not have the space issue associated with the UH/HH-60M. This provides an immediate competitive opportunity for all future, non UH/HH-60M platforms within the Army’s Aviation fleet.

The Army’s long term plan for aviation communications is a Modular Open Suite of Standards supported radio. This technology is currently in the Material Solution and Analysis phase of the acquisition lifecycle. Once this technology has matured, tested, and market research shows industry has a viable replacement that meets the requirements PM TR will request ACC-APG to conduct a Full and Open Competition to find the best value solution for the Army.

7. Market Research: Between February and March 2019, PdM ACMC conducted a technical review of both the Collins Aerospace PRC-162 and L3Harris PRC-158 Manpack Gen 2 radios and confirmed the sizes of the two radios, as compared to the space requirements of the UH/HH- 60M. PdM ACMC also researched the use of the 2-Channel, handheld Leader Radio, also in the PdM HMS portfolio, but determined the

, and did not have the proper connections to allow for integration into the aircraft.

In December 2019 a Request for Information (RFI) was sent to both PdM HMS Manpack Gen 2 IDIQ contract holders, L3Harris and Collins Aerospace, for the purpose of assessing the ability of the existing, ground-based, Program of Record (POR) radio solution to meet requirements for

Program/Equipment: PM TR Manpack Gen 2 (AN/PRC-158) Software Defined Radio

Distribution A CUI modernization of the ARC-201D SINCGARs radio within the Army’s aviation fleet. The information received from the vendors was used to better understand cost, schedule, and performance risk associated with utilizing the Manpack Gen 2 ground-based, POR radio in an aviation application. Both vendors provided detailed responses. Initial assessments of each response suggested that, but for the space issue, either vendor’s Manpack Gen 2 radio could, with modifications, be an acceptable option to replace the ARC-201D.

In its response to PM TR’s December 2019 RFI Collins Aerospace proposed the Army switch to a different amplifier in the UH/HH-60M in order to accommodate the size of its radio. This solution was based on the premise that additional space would be available to fit the PRC-162 in the transition area of the aircraft if the Government removed the current IFM-101 amplifier and replaced it with a different VHF amplifier. However, the IFM0101 amplifier is a dual-channel amplifier and the alternative amplifier suggested by Collins is a single channel amplifier. Further, this proposed solution is specific to the installation location within the transition area; it does not address the space issue under the co-pilot seat.

Also in response to PM TR’s 18 December 2019 RFI Collins Aerospace made claims of a possible alternate, small form fit mounting solution for its radio that is not part of the PdM HMS POR. The vendor claims this alternate solution may reduce the footprint of the PRC-162. As of this writing, these claims have not been verified by PEO Aviation as a solution for meeting the Size, Weight and Power (SWaP) requirements of the UH/HH-60M aircraft. Collins Aerospace’s new mounting solution is currently in early prototyping stages and has not been tested or proven to meet environmental, structural, electrical, and air worthiness requirements.

In July 2020, ACC-APG hosted a Technical Exchange Meeting (TEM) where L3Harris and Collins Aerospace engaged in discussions with Government team members from PdM ACMC, PdM HMS, and PdM HAMMR that included proposed additions to the Manpack Gen 2 PRD and responses to the aforementioned RFI from December 2019. During the Collins Aerospace portion of the TEM, the vendor further discussed its non-POR mount as a solution for fitting its PRC-162 radio in the UH/HH-60M platform; however, Collins’ subsequent fit-check (October 2020), which presumably included its new mount, illustrated that a space issue still remains for the PRC-162 under the co-pilot seat. PEO Aviation is currently working to execute a bailment agreement that will provide PdM ACMC equipment necessary to ascertain the use of Collins Aerospace’s small form fit mount in other platforms.

Additionally, the Army’s amplifier requirements are not met by Collins’ solution in the transition space. The Army does intend to obtain sample mounts to ascertain the use of Collins’ mount in other platforms through the bailment agreement mentioned above.

The Collins Aerospace PRC-162 solutions discussed in its RFI response do not meet the requirements for integration into the UH/HH-60M aircraft. Significant reconfiguration within the aircraft would be required to accommodate the PRC-162 including, but not limited to, reconfiguring the avionics bay/transition area, installing additional shelving on walls, and moving existing equipment. The Collins Aerospace PRC-162’s physical dimensions preclude it from fitting in the allocated spaces. Reconfiguring the UH/HH-60M aircraft to accommodate the Collins Aerospace radio dimensions would require a major structural redesign, full airframe testing and airworthiness reviews, add a four (4) year schedule delay, and add approximately

Program/Equipment: PM TR Manpack Gen 2 (AN/PRC-158) Software Defined Radio

Distribution A CUI of non-recurring engineering costs. For these reasons, the L3Harris PRC-158 is the only viable ManPack Gen 2 radio which meets the Army’s integration requirements and meets the Army’s schedule requirements to field radios in

FY23.

8. 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.

Timothy Homan Technical Management Division Chief

9. 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.

LTC Raymond Yu PdM HMS

10. Fair and Reasonable Cost Determination: Certified cost and pricing data will not be required for this action, as sufficient data exists to demonstrate that the estimated price is reasonable in comparison with current or recent prices for the same or similar items ordered on the existing Manpack contract W15P7T-16-D-0002. In accordance with FAR 15.404-1(b)(2)(ii), and based on the Independent Government Cost Estimate (IGCE), which utilized historical data from previous orders associated with contract W15P7T-16-D-0002, I hereby determine that the anticipated cost or price to the Government for this contract action will be fair and reasonable

Nancy S. Williams Contracting Officer

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

Nancy S. Williams Contracting Officer

Program/Equipment: PM TR Manpack Gen 2 (AN/PRC-158) Software Defined Radio

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Approval

Based on the foregoing justification, I hereby determine that only one awardee is capable of providing the supplies or services required at the level of quality required because the supplies or services ordered are unique or highly specialized. I hereby approve the procurement of Manpack Gen 2 Software Defined Radio AN/PRC-158 in the amount of using an exception to fair opportunity pursuant to the authority of 10 United States Code 2304c(b)(2) as implemented by Federal Acquisition Regulation Part 16.505(b)(2)(i)(B), subject to availability of funds, and provided that the services or supplies herein described have otherwise been authorized for acquisition.

Kenyata L. Wesley, Sr.

Senior Contracting Official Army Contracting Command Aberdeen Proving Ground, MD