EMREP IV MOD ETFO 13JUL2020 Redacted.pdf

Defense Threat Reduction Agency 8725 John J. Kingman Road, Stop 6201

Fort Belvoir, VA 22060-6201

EXCEPTION TO FAIR OPPORTUNITY JUSTIFICATION

AMENDMENT 1

1. Nature and/or Description of the Action

The Defense Threat Reduction Agency (DTRA) contracting activity proposes to modify, without requesting proposals from all six (6) contractors for the Combating Weapons of Mass Destruction (CWMD) Research and Development (R&D) Indefinite Delivery/Indefinite Quantity (ID/IQ), in a modification to HDTRA1-14-D-0003, Task Order HDTRA1-18-F-0059 additional support under the requirement entitled “ElectroMagnetic Reliability and Effects Predictions Program (EMREP) IV”. This task order was initially awarded on September 10, 2018 through an Exception to Fair Opportunity (ETFO) to Applied Research Associates, Inc. (ARA). Under this ETFO Amendment 1, ARA will be the only contractor solicited to provide the necessary technical effort for this requirement. The original/existing contract: $4.59M Base (PoP 3 years);

Option 1 (years 4-5) $2.97M; Options 2- 6 $3.03M for a total of $10.59M. The modification:

includes additional surge options 7-21, $7.97M; the new total for the 5 year lifetime of the contract is $18.56M.

2. Description of the Supplies/Services Required

ARA is uniquely positioned on the existing task order to serve as DTRA’s technical focal point for the further development of the EMREP Tool in order to provide a capability to predict the effects of hostile EM environments on systems. The predictive capability shall address the full range of uncertainties in the EM effects prediction chain. This is accomplished through a combination of software improvements to the EMREP Tool and the testing of unhardened systems to obtain new test data for the EMREP test database (used by the EMREP Tool). The EMREP Program's EMREP Tool (software), test data (EMREP database) and documentation shall be government owned.

The requirements have not changed and include the following:

1) Population of the EMREP test database by testing unhardened systems. This includes planning, performing and documenting tests of systems.

2) Extension of the current EMREP tool (software) to include more than just the present HEMP reliability predictions (e.g., SREMP).

3) Extension of the current EMREP tool (software) to make use of the new test data added to the EMREP test database.

4) Upgrade existing physics-based models to meet new information (e.g., revision of HEMPTAPS, SREMPTAPS and new DTRA/RD-NTE EMP codes).

5) Verification and Validation (V&V) effort on both the test data and the new version(s) of the EMREP tool (which incorporates the new test data and new EM threat environment (s)).

6) Configuration Management (CM) for both the Tool (software) and the test data and database.

Thus, this effort will focus on proper statistical testing of unhardened systems; documenting the results and including the results into the EMREP database; and updating the EMREP Tool with new test data and environment(s).

Contractors shall possess the current capabilities in the following areas:

• Company has a complement of personnel with sufficient scientific/technical expertise in the following areas:

o Relevant software development experience as demonstrated by resumes for key personnel o Electromagnetic system test experience as demonstrated by resumes for key personnel

Advanced real-time and statistical testing of unhardened systems may be conducted world-wide in the field or in laboratories as tasked by the DTRA technical Contracting Officer’s Representative (COR). This effort also requires documenting and updating test results into the EMREP database, updating the EMREP Tool with new test data and environment(s), which includes the E3 effects on the USA power grid in support of the new Presidential Executive Order on EMP, and additional testing support of the US Army in coordination with USANCA.

The contractor plans, executes, analyzes, and reports all phases of advanced EMP testing and assessment. Continued process improvement and development of innovative and cost-effective test methods and procedures is required. While DTRA provides the performer government furnished equipment, an organic team capability to fabricate special test instruments/fixtures, secure, maintain, repair and procure necessary test equipment and components is also essential to successful execution of the requirement.

After award of the existing task order, a new Presidential Executive Order (EO) 13865 entitled “Coordinating National Resilience to Electromagnetic Pulses” was issued March 26, 2019.

DTRA is playing a lead role for DoD on the new Presidential EO. In particular, the following excerpts from the EO are applicable:

“Conduct R&D and testing to understand the effects of EMPs on Department of Defense systems and infrastructure, and develop technologies to protect Department of Defense systems and infrastructure from the effects of EMPs to ensure the successful execution of Department of Defense missions;”

“Review and update existing EMP-related standards for Department of Defense systems and infrastructure, as appropriate;”

“Within 1 year of the date of this order, and every 2 years thereafter… the Secretary of Defense, shall also identify gaps in available technologies and opportunities for future technological developments to inform R&D activities. [In particular,] within 180 days of the completion of the actions identified the Secretary of Defense, … shall conduct a pilot test to evaluate engineering approaches used to harden a strategic military installation, including infrastructure that is critical to supporting that installation, against the effects of EMPs.”

“Within 180 days of completing the pilot test …, the Secretary of Defense shall report to the President, through the APNSA, regarding the cost and effectiveness of the evaluated approaches.”

Based on the above, a modification to the existing task order HDTRA1-18-F-0059 is necessary as the demand for this support has far exceeded the original anticipated Level of Effort (LOE) and associated costs related to the above mentioned EMP EO. Specifically, a new unclassified version of EMREP is being developed for use by the community including those supporting the EMP EO. The interest is the response of unhardened electronics associated with the US infrastructure to EMP. In addition, the burn rate has been due to increased due to requested support to USSTRATCOM and USANCA for system testing with multiple additional tests per year. These are unhardened systems supporting DoD missions.

Therefore, this modification to the task order will add surge options to replenish the LOE due to the high burn rate as well as accommodate for anticipated and potential future support. The overall period of performance for this task order will not exceed 5 years, including the exercise of any options. The estimated cost to cover the surges is $7.97M, which includes the anticipated surge and a 25% buffer should unexpected surges be required (e.g. Presidential Executive Order).

3. Exception to Fair Opportunity

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.

4. Justification Rationale

This is an amendment to the existing ETFO utilizing the aforementioned exception. This task order modification does not change the overall scope of the existing task order, rather it leverages off the existing scope. ARA has the only highly specialized contractor team to meet the needs of the Government, providing the most economic and efficient means to accommodate the unanticipated increase in demands.

The EMREP Tool, and the ability to update and expand the scope to capture unclassified systems and the development of an unclassified version of the EMREP code, is a niche market capability with limited persons or companies possessing the necessary team composition, qualifications and relevant experience to perform the required technical services.

The prime, ARA has an exceptional familiarity with nuclear weapons and their method of inclusion into HEMPTAPS and SREMPTAPS. This exceptional familiarity is a major strength in that this knowledge is acquired over a significant period of years and, therefore, is a substantial benefit to the EMREP Program. It also makes the risk of unacceptable performance low, especially dealing in complex code writing, data bases and data reduction.

ARA has demonstrated in the existing TO a high-level of understanding of the scientific/technical complexities and scope of the SOW. This high-level of understanding is broad-based across the entire SOW and as such provides a unique benefit to the program.

Therefore, the risk of unacceptable performance is considered to be low. Further, for another contractor to develop this level of understanding will take a significant amount of time (on the order of 2 -3 man years or approximately $1M).

Based on the existing TO DTRA knows that ARA has the number, experience, and qualifications of key personnel required to meet the contract requirements and, thus, are exceptionally capable of leading to a low-risk, successful performance of the SOW. Based on our market research it is not clear that any other IDIQ Team has the required senior personnel to perform this work. The previous cost estimate is based on the availability of appropriately skilled senior scientists to develop the required understanding of the EMREP program and we do not believe this expertise exists within the IDIQ, thus significantly increasing the risk of unacceptable performance if the TO modification is awarded to any other Team but ARA.

The ARA Team includes several qualified small businesses which allows them the depth to support the test and evaluation assessments that generate the data that feeds into EMREP. The teaming capabilities allows two or more test of equipment to perform required testing.

The ARA team has continued to expand their expertise building, testing, and maintaining EMP hardened structures for government and commercial clients around the world. Development of multiple sets of ‘Next Generation' HEMP test equipment with leading performance characteristics for DTRA funded work that exceeds Mil STD 188-125 requirements has occurred under this research effort. The ARA has repeatedly demonstrated that their state-of-the-art test equipment and world class engineering staff are able to accelerate the test process and minimize mission down time requirements.

Continuously, teaming efforts yields engineering capabilities and innovative material solutions and equipment for RF/EMP shielding applications. Extensive research and development and RF/ Pulse test capabilities are utilized by DTRA to verify proper adherence to military standards. The ARA team has the expertise and experience to perform the verification and validation assessments required for the EMREP tool; which includes assisting in training of the EMREP program to users. After intensive Market Research, DTRA/RD-NTS, was unable to find any evidence another team encompasses required capabilities to perform the required work.

In addition, the ARA team has unique abilities and expertise in “Physics-based modeling & simulation which is one of the core capabilities on which ARA was founded more than 35 years ago. Since then, our M&S tools and experience have enhanced decision-making, product development, testing, and training for defense applications and national security, the transportation community, the medical and life sciences industry, and emergency management professionals. We complement our custom M&S tools with an expansive suite of government-and commercial-off- the-shelf software. In addition, we leverage our planning tool codes to the highest extent possible to develop highly reusable, extensible, and scalable codes.” Moreover (https://www.ara.com/projects/nuclear-capabilities-services-nucs) the “NuCS and SAM program supports DTRA’s development and integration of nuclear effects software capabilities. The program refactors, enhances, assesses and develops modeling capabilities that undergo full verification and validation and fill critical gaps in modeling capabilities. Nuclear phenomenologies of interest include electromagnetic pulse (EMP), blast, fire ignition, ground shock, cratering, radiation transport, electromagnetic propagation and response of structures, personal and other military assets. Enhanced capabilities are deployed in a net-centric environment and include full documentation of the methodology, assumptions, limitation and applicability. The program develops state-of-the-art applications for missile defense study, vulnerability analysis and environment and response predictions.”

We conclude that the ARA Team possesses the unique required capabilities needed to perform the required work. Their extensive experience with EMREP and nuclear weapons effects is unique in the DoD community. The ARA Team is one of the most qualified EMP testing collaboration in the DoD community. Further, ARA is committed to using 25% of its funding in supporting small businesses.

Based on the justification above, DTRA knows that the ARA Team will significantly lower performance risk and provide monetary saving to the government. The ARA team has a complement of personnel with exceptional scientific/technical expertise in the areas required to perform the SOW; specifically, these personnel have demonstrated expertise with EMP effects in: a) software development including V&V, b) EMP testing and c) determining the EMP effects on systems. This group of ARA SME teaming personnel covers all the major elements of the new EMREP IV TO Program, leaving no gaps and as such the selection of ARA assures a thorough understanding of the program goals that should result in the risk of unacceptable performance as low. The EMREP team performs assessments at multiple DoD military systems and equipment as well as COTS equipment as needed. The cost to the government to develop this expertise in another group of companies exceeds millions of dollars of training. These companies also own unique equipment to allow EMREP testing such as continuous wave illumination (CWI) and data acquisition equipment. They also have the expertise to use specialized GFE equipment provided by DTRA.

5. Market Research

In accordance with Federal Acquisition Regulation (FAR) part 10, market research has been conducted for this requirement and was conducted within the last 18 months. The following techniques were used to conduct market research:

a. Historical Acquisition Information Examined.

This market research updates the results rendered on the current task order HDTRA1-18-F-0059.

DTRA issued a Request for Information (RFI) in July 2017; no companies responded to the RFI.

(Note: ARA inquired if a response was required from them as the RFI anticipated ARA, as the incumbent, would receive the TO award. The Government did not require a response.) The current task order is a follow-on awarded as a sole source to Applied Research Associates, Inc.

(ARA).

The previously awarded task order was competitively awarded under DTRA CWMD task order (HDTRA1-14-D-0003-0009). For the original effort, all 7 original DTRA CWMD IDIQ teams were solicited to bid. Applied Research Associates, Inc. (ARA) was the only respondent to Task Order (TO) Request for Proposal (RFP) No. HDTRA1-14-WMD-0019, issued under the DTRA

HDTRA1-18-F-0059 requirements. RD-NTS definitively concludes that at present, the only existing CWMD IDIQ Team with the skill and expertise to meet the new options SOW requirements identified in item (5) above is the ARA Team. DTRA RD/NTS has no additional evidence that the remaining CWMD IDIQ teams’ capabilities have significantly changed.

6. Other Supporting Facts

• The EO focuses on unhardened electronics and the requirement to develop an unclassified EMREP code for unclassified systems. This additional work was not anticipated at the time the contract was let and this is why we need the extra surge options. Additional work from USSTRATCOM and USANCA was also not anticipated and will be covered via the additional surge options.

• The ARA Team has a unique capability based on their experience. The scope of this work, which is predominantly Research and Development in nature, requires the contractor to develop an EMREP Tool that perform predictions of unhardened-system effects produced by an electromagnetic pulse (EMP) either a high-altitude EMP (HEMP) or a Source Region EMP (SREMP). The predictive capability shall address the full range of uncertainties in the EM effects prediction chain. This is accomplished through a combination of software improvements to the EMREP Tool and the testing of unhardened systems to obtain new test data for the EMREP test database (used by the EMREP Tool). The EMREP Program's EMREP Tool (software), test data and documentation shall be government owned and the specific nature of the tasks do not meet the commercial item definition of FAR Part 2.101; therefore it does not represent services customarily used by the general public or non-Government entities. Moreover, the existing ARA IDIQ task is being performed and the ARA Team remains the obvious candidate to continue the work. An EFTO has been completed and it is estimated that it will cost at least $1M for other qualified technical personnel to come up to speed to perform the EMREP SOW surge option work. Moreover, we conclude based on the market research that no other team has adequate senior personnel with EMP modeling, effects and testing expertise to adequately perform the work required by the SOW.

• For another contractor to develop this level of understanding for EMREP will take a significant amount of time (on the order of 2 -3 man years or approximately $1M). This assumes they can find the relevant expertise. Our estimate is based on having the correct knowledgeable people and we still think it will take 2 -3 man years for these people to come up to speed with the extremely complex EMREP Tool and Database.

• For another contractor to develop the expertise and acquire test equipment to support both CWI and threat-level pulsing will take seral man years and cost on the order of 1 million dollars. Further, to have the depth of test teams that the ARA Team provides (at least 3 separate test teams) will be very difficult to find.

7. Subsequent Actions

This requirement covers existing and future program requirements for the remaining task order’s period of performance. Currently, the incumbent, Applied Research Associates, Inc. (ARA) is the only known source with the depth and breadth of knowledge and experience, and has demonstrated capability based on previous performance to fulfill these unique and highly