F16 MTT TSSC JA Redacted.pdf

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JUSTIFICATION FOR OTHER THAN FULL AND OPEN COMPETITION

1) Identification of the Agency, Contracting Activity, and Document being approved:

Procurement Office: General Services Administration – FAS AAS

Agency: National Guard Bureau (NGB)/Air National Guard (ANG) A3T

Task Number: 47QFWA24K0013

Description of Requirement (Specified Brand Name(s)): Provide Technical System Support Center

(TSSC) services for up to forty (40) F16 Mission Task Trainer devices for a three (3) month base period -from 14 March – 14 June 2024 with FAR 52.217-8 included to be exercised in monthly increments as needed.

Estimated Dollar Value (brand name items only): $ ($ including FAR 52.217-

8)

2) Description of action being approved:

X 6.302-1 Only one responsible source and no other supplies or services will satisfy agency requirements.

(a) Authority.

(1) Citations: 10 U.S.C. 2304(c)(1) or 41 U.S.C. 253(c)(1).

6.302-2 Unusual and compelling urgency.

(a) Authority.

(1) Citations: 10 U.S.C. 2304(c)(2) or 41 U.S.C. 253(c)(2).

6.302-3 Industrial mobilization; engineering, developmental, or research capability; or expert services.

(a) Authority.

(1) Citations: 10 U.S.C. 2304(c)(3) or 41 U.S.C. 253(c)(3).

6.302-4 International agreement.

(a) Authority.

(1) Citations: 10 U.S.C. 2304(c)(4) or 41 U.S.C. 253(c)(4).

6.302-5 Authorized or required by statute.

(a) Authority.

(1) Citations: 10 U.S.C. 2304(c)(5) or 41 U.S.C. 253(c)(5).

6.302-6 National security.

(a) Authority.

(1) Citations: 10 U.S.C. 2304(c)(6) or 41 U.S.C. 253(c)(6).

6.302-7 Public interest.

(a) Authority.

(1) Citations: 10 U.S.C. 2304(c)(7) or 41 U.S.C. 253(c)(7).

3) Description of Supplies or Services Required:

The mission of the F-16 MTT TSSC is to provide SAP level training system support services and on field support for the installed F-16 MTT device and any future, fielded devices. TSSC support services include, but are not limited to: -

Justification for Other Than Full and Open Competition

Task No.: 47QFWA24K0013

• Managing, conducting, and executing SAP hardware and software engineering trade studies, design, development, fabrication, integration, test, and fielding

• Managing and supporting Risk Management Framework (RMF) SAP Cybersecurity, SAP Authority to Operate (ATO), Authority to Connect (ATC), and Simulator Common Architecture Requirements and Standards (SCARS) support functions

• Managing, developing, and executing centralized maintenance actions, including common spares pool and help desk support

• Managing and executing F-16 MTT configuration management

• Managing and executing obsolescence management

• Managing, developing, and executing SAP device upgrades and concurrency

• Managing, developing, and executing training content management and coordination

• Collaborating and coordinating with dedicated F-16 MTT operator/maintainer (COMS) at each site

4) Identification of Statutory Authority:

The statutory authority authorizing this action is 41 U.S.C. 253 (c) (1) as implemented by FAR 6.302-1.

The supplies or services required by the agency are available from only one responsible source.

5) Demonstration that the Acquisition Requires the Use of the Authority Cited:

Background.

Historically, ANG has been shifting its focus from expensive live-fly training to simulator-based training due to its increased accessibility and cost efficiency. The F-16 MTT-G is a high-fidelity, full mission trainer that is designed to meet the full spectrum training requirements for ANG F-16 Block 30 pilot training at all levels, including SAP Distributed Mission Operations (DMO) training through the

Distributed Training Operations Center (DTOC). Due to the expanding F-16 training requirements, as well as the increasing expense and limited availability of live fly aircraft, the F-16 MTT fills a significant training need for the ANG F-16 community. With a high-fidelity cockpit system and advanced geo-specific visual databases and a 360-degree visual display, the F-16 MTT-G acts as efficient training simulator with the added benefit of a reduced footprint.

The ANG previously used F-16 Block 30 Unit Training Devices (UTDs) to train pilots on F-16 cockpit familiarization. The F-16 Block 30 UTDs have since become obsolete and, as a result, ANG decided to utilize excess cockpits from various sources, combined with Government-furnished software from the Air

Force Reserve Command (AFRC) F-16 Multi-Task Trainer (MTT) to maintain concurrency in the design and build of the F-16 MTT. The F-16 MTT was designed to serve as a squadron-level pilot training device to support initial, qualification, and continuation training of full-time and part-time F-16 pilots in both training and operational F-16 units. Most critically, the F-16 MTT provides pilots with training in normal checklist procedures/systems operation, instrument flight and approaches, weapons system employment under all conditions, threat detection, and night vision training.

In FY17, ANG searched for a cost-effective training solution to provide ANG units with an F-16 simulator.

In the same FY, TMS worked as a subcontractor on the F-16 MTT production and sustainment contracts to develop a low cost and efficient simulator that would allow F-16 flight crews to experience various simulation environments, train in random or configurable scenarios, provide performance monitoring and allow for instructor oversight and scenario control. In both the production and sustainment contracts, TMS led and executed the engineering, design, fabrication, assembly, fielding, integration, and test efforts.

Simulator specifications and design requirements were communicated to TMS to ensure that the F-16 MTT would meet the necessary operating requirements. Currently, TMS continues to lead and execute the technical and engineering aspects of F-16 MTT production and fielding efforts, and have had no issues, to date.

The F-16C aircraft is a software intensive system and includes eleven (11) specific Operational Flight

Programs (OFPs) that determine the total system functionality. The OFPs are updated on an 18–24-month cycle and represent the operational capability of the aircraft. There are approximately 2,000,000 Software

Lines of Code (SLOC) of which a typical concurrency update requires 10%-15% change. The TSSC is responsible for delivering the SAP updates to the F-16 MTT at least 30 days prior to aircraft updates. This process is generically referred to as “concurrency” and is the critical training and safety of flight requirement. The TSSC contractor will be responsible for delivering software updates to the fielded and new F-16 MTT-G.

The F-16 MTT TSSC contract is currently held by Trident Military Systems LLC (TMS), operating out of

Mesa, Arizona. The Contract Number is 47QFWA23C0003, awarded on 14 March 2023 as an unusual and compelling urgency contract award IAW FAR 6.302-2. This effort was made to TMS due to unsatisfactory performance by the previous contractor which caused the final option year (OY4) of the previously competed contract not to be exercised. The current unusual and compelling urgency contract to TMS expires on 13 Mar 2024. To date, TMS has made more progress with security in the past 10 months than the previous contractor’s performance over 3.5 years. ANG & AFRC is on a good trajectory and interrupting this would be disastrous to the program from an engineering and classified risk perspective because a change in contractors would leave a gap in personnel and facility clearances and classified knowledge that would expose the simulators to security risks given the ongoing hardening and maturation of the security posture.

The objective of this requirement is to ensure realistic training in a networked environment capable of using constructive and virtual simulation entities, and live assets to emulate real world situations with concurrent, and leading-edge training systems the way the F-16 is employed in combat continues. This contract will prevent a lapse in critical training and while allowing for a fully competitive contract award later in 2024. Any lapse in service could compromise national security by failing to deliver the ability for pilots to train on simulators concurrent with the F-16 aircraft.

The F-16 MTT will continue to act as the premiere prototype for other F-16 training simulators. It is

ANG’s intent to fund a total of up to forty (40) MTT devices at seven (7) locations, all of which require sustainment services. The only viable solution to overcome the execution setbacks of the previous four years, and still meet the stringent software, security, and execution program requirements, is to award the

TSSC contract to TMS as they have developed unique solutions to replicate these changes in the Sim that only they have the corporate knowledge to integrate.

Justification.

o To meet the concurrency requirements, TMS has developed a proprietary set of software, hardware, and processes that bring unrivaled value to the government while minimizing costs. The TMS proprietary hardware design includes specific processors and architecture that match those of the aircraft computers at the bit level.

o TMS has a proprietary process to develop software from F-16 Block 30 aircraft source code and run/convert it to commercial processors. This process reduces the duplication of costs to the government due to its efficiency and accuracy. TMS’s unique and innovative approach to software development has been developed over the last 30+ years of TMS OFP experience.

• Software Capability Upgrade (SCU) 10 is delivered with no limitations. It is concurrent to the software in the aircraft.

• SCU 11 is delivered and running at about the 90% fidelity level based on the most recent testing that ANG & AFRC has done at Trident and pilots have done at Buckley, Space

Force Base (SFB). Getting SCU 11 to 100% fidelity and stability and as concurrent to the jet as possible will allow the ANG & AFRC to expedite engineering on SCU 12.

• SCU 11 is fielded at Buckley SFB and Tucson AFB, although the SCU software has extreme limitations. Only sites with SCU 11 have the option to run SCU 10 due to ongoing efforts to get the other facilities accredited with the proper security officials. 14 sims out of the total amount are running SCU 11. Due to the major differences between SCU 11 and previous software in the actual aircraft, sites that have SCU 10 will only run that software in a contingency situation. Otherwise, the differences between the sim and the aircraft create safety-of-flight problems for pilots. Once the cybersecurity officials approve the other sites, it will take approximately 3 months to get them to the point of being able to run the latest

SCU because constant improvements and updates to the hardware/software are being done while approval is pending. The Government takes on a large amount of delayed technical work that must be accomplished once the cybersecurity officials approve the sites and unit’s operating plan.

o Proprietary hardware cockpit interface that includes custom boards to work in Versa Module

Eurocard (VME) chassis to allow whole cockpit package to interface with software (physical inputs to a digital interface). This management of digital and analog inputs/outputs comes from hardware expertise with Original Equipment Manufacturer (OEM) parts that will continue to develop over the upcoming years—not having this hardware and the expertise will cause unacceptable delays in fulfilling the concurrency requirements needed for the F-16 MTT.

o TMS has a proprietary software interface for checklist-based F-16 emergency procedures. This software is built over current software and minimizes the duplication of costs to the government. In addition, it reduces console operator/instructor training and increases training fidelity while allowing for easy updates and greater training alignment as the F-16 MTT advances.

These proprietary technical approaches are unique to TMS and significantly reduce schedules and costs associated with concurrency updates.

• To date, TMS, as the F-16 MTT Original Equipment Manufacturer (OEM) has been the original service provider for the requested ANG F-16 MTT TSSC and the only known vendor capable of meeting the delivery schedule for manufacture and TSSC sustainment (concurrency).

• In addition to the proprietary, semi-automatic concurrency processes, TMS as OEM for F-16 MTTs, has the following established and operational capabilities:

o Secure SAP communications connectivity via CV2 with appropriate permissions and accounts to relevant USAF technical and security entities. Required over fifteen (15) months for approval and installation. Without this connection undue harm will come to the government, delaying the ATO and putting F-16 units into operational risk.

o Multiple personnel with current F-16 SAP access. Without already approved personnel, there will be a minimum delay of 6 months to get employees approved. This will cause undue schedule delays and substantial duplication of costs to the government that is not expected to be recovered.

o Only known company approved to receive ANG F-16 Block 30 aircraft SAP OFP source code. The distribution of aircraft OFP source code is rigorously restricted for security purposes and is an enabling factor for concurrency.

o Over 6,800 square feet of ICD-705 accredited SAP Facility including a simulator bay of 2,500 square feet which houses the TSSC development system.

o Has built or is under contract for ANG’s fleet of ANG F-16 MTT simulators. Note: All TMS systems are built to match the hardware requirements for the semi-automatic conversion of aircraft OFPs whether refurbished GFE components or newly manufactured.

Summary.

The main factors that justify the restriction to this single service provider are as follows:

• TMS possesses cost effective and time efficient, proprietary software, hardware, and processes that meet the SAP system concurrency critical requirement, are compatible with the delivered systems, and are not available to other contractors. There is no known substitute technology.

• TMS has the required CV2 network connection to continue continuous ATO and security services.

• TMS has the accredited facilities, personnel, and equipment to continue uninterrupted TSSC services.

• Only TMS can meet the installation milestone in F-16 MTTs (30 days prior to aircraft fielding) and the follow-on SAP updates on such a compressed aircraft modification schedule.

• As the F-16 MTT OEM, TMS has direct expertise and working knowledge of all facets of the F-16 MTT device (hardware, software, maintenance procedures) necessary to affordably sustain the systems.

• Because of the semi-automatic processes, and hardware architecture that matches the aircraft, there is no known alternative that can match the price, quality, and timeliness of the TMS approach.

• Switching vendors, even if one could be qualified and accredited in the future, would require a substantial change to both the computational hardware and software (modification of existing F-16 MTTs), require substantial upfront and duplication of costs, and with recurring costs expected to exceed $ M. The delay in critical concurrency updates for the F-16 MTT-G is unacceptable to the ANG & AFRC because the differences between the sim and the aircraft create safety-of-flight problems for pilots.

Operational Considerations.

• Since the F-16 MTT is currently still in production, on contracts (47QFWA19F0051 &

47QFWA21F0044), and since TMS is wholly responsible for the continued design, development, and installation aspects of the F-16 MTT, it would not be in the Government’s best interest to change to a different vendor while in mid-production. TMS has the experience to support the evolving requirements of

F-16 MTT sustainment across all ANG & AFRC units, and the introduction of a new vendor would put all existing and upcoming devices at risk.

• TMS is currently in mid-production with the F-16 MTT devices and the use of any other vendor to handle the assembly, set-up and operation of this simulation equipment not only involves substantial cost risks to the Government, but security risks as well. The costs of a typical F16 MTT- simulation trainer is in excess of $ million. To consider award of this requirement to another vendor would involve risk to the

Government’s financial investment in the simulation equipment.

• The F-16 MTT will be used by all gaining units for training ahead of deployments. If a different service provider was selected, the training would be delayed while the changeover occurred and while the new provider learned the complex architecture and software design of the F-16 MTT. It is difficult to put an end date on the time to transition due to the requirement to develop a substitute for the TMS proprietary, semi-automated OFP conversion tools, the standup of ICD-705 facilities, and access for personnel. A conservative estimate based on previous USAF programs indicate that the transition to a new contractor would take 1-2 years with no guarantee of success. During this period, there will be a lapse in service.

Awarding this contract to TMS to provide support for devices which they already design, install, and integrate represents the most cost-effective, timely, and streamlined approach to TSSC implementation and will avoid interrupting the training and mission readiness of the warfighters at each ANG unit.

• TMS delivers the F-16 MTTs with an Authority to Operate (ATO) package to allow the F-16 MTTs to operate in a classified environment when connected to Distributed Mission Operations (DMO). The ATO requires specific software configuration overlaid and integrated with the aircraft OFP software. This tightly coupled software requires specific, detailed knowledge of the OFP code, the system operational software, and the ATO requirements.

• The use of TMS allows for a reduction in duplicate efforts, including standup requirement reviews and the turnover and retraining of COMS employees. The use of TMS would seamlessly allow for ANG F-16

MTT TSSC sustainment efforts to continue across all ANG F-16 units, saving the government an estimated

Million.

6) Description of Efforts to Solicit as Many Offers as Practicable or Exception:

There is no known vendor that can meet the critical schedule or cost constraints. This sole source requirement provides an immediate solution and is required to maintain support of the F-16 MTT TSSC systems. Due to the Critical Need for concurrent F-16 Simulator software of this requirement (FAR 6.302-

1) and because Trident Military Systems, LLC as the MTT OEM has the capability to meet the immediate need, no further market research was conducted.

The updates to SCU-11 brought significant changes and software stability issues to the Simulator that only

Trident has been able to develop solutions for. There were also changes to Weapons, Radar, and Targeting

Methods at the classified level. Trident has developed unique solutions to replicate these changes in the

Simulator and only they currently have the corporate knowledge to integrate as the MTT OEM. Other existing F-16 programs run a completely different software code baseline. These changes to the F-16 software present a unique education challenge to the pilots. The Simulator environment is the only place that flying units can fully exploit the pilots’ capabilities and a delay in that critical training is unacceptable because each pilot must train in a certain number of simulator sessions based on the pilot's experience level as a required component of each pilot's annual readiness.

Selecting another vendor would require significant hardware changes to operate with the new vendor’s architecture, plus substantial software design costs, in addition to the significant schedule impact.

Until other companies establish processes to meet the concurrency requirements, it would be neither reasonable nor feasible to consider any other contractor. To ensure the above is met, NGB A3T will continue to research other contractor’s capabilities. Continued efforts in this regard will ensure that the

Government is getting the best value at a fair and reasonable price by ensuring the Government utilizes the most efficient and economical products.

7) Determination by the Contracting Officer that the Anticipated Cost to the Government will be

Fair and Reasonable:

The cost/price of this contract will be considered fair and reasonable to the government based upon the historical pricing data available to the government from the previous contract. This contract will be negotiated on a sole source basis.

8) Description of market survey conducted:

Market research included historical, contractual data for the F-16 MTT program, IAW FAR 6.302-1, Only one responsible source and no other supplies or services will satisfy agency requirements and because

Trident Military Systems, LLC has the capability to meet the immediate need, no further market research was conducted. A justification for other than full and open competition has been prepared, please reference this document for more information about the only one responsible source nature of this requirement and the capabilities and unique qualities of the firm Trident Military Systems, LLC.

9) Other facts supporting other than full and open competition:

N/A

10) List of sources that expressed an interest in the acquisition:

None

11) Statement of Actions to overcome barriers of competition:

Concurrent with this bridge. The competitive follow-on is already in process and market research demonstrated that the government would have robust competition. The government estimates the award of the competitive follow-on in June of 2024. Time will be required to finalize the evaluation, hold possible negotiations, make an award and to set up and appropriate transition/phase-in period should the follow-on be awarded to an alternate vendor. The government has also included FAR 52.217-8 included to be exercised in monthly increments as needed. This short bridge will ensure the government takes every step to evaluate proposals, negotiate (if needed), and make an award that is in the best interest of the government.

Additionally, the government also has the option of placing control of this requirement under the USAF simulator program office for all NGB/ANG F-16 MTT devices. If the former, the Government will analyze competing processes and technology to meet the concurrency requirements. The Government will also evaluate any cost savings anticipated by separating the field support (COMS) from the TSSC support in an effort to qualify other vendors once the initial fielding is completed.