MDA__MTOC_JA_Redactions_9Nov18.pdf

Approved for Public Release 18-MDA-9833 (2 Nov 18)

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

I. Contracting Activity.

Range and Launch Support Flight, 30 CONS/PKD 1515 Iceland Ave, (Bldg. 8500, Rm 150) Vandenberg AFB, CA 93437-5212

II. Nature and/or description of the action being processed.

a. This justification and approval is for the 30th Space Wing to award a sole source contract to InDyne, Inc. for work that is currently being performed by InDyne Inc. under the Interim Range Operations Support (iROS) contract FA4610-15-C-0001. Specifically the work is in support of the Missile Defense Agency (MDA) requirements. The current contract is scheduled to expire on 30 Nov 18.

The proposed contract period of performance is 2 years and 4 months, from 1 Dec 18 to 31 Mar 21. The contract will consist of a 12 month base award (1 Dec 18 – 30 Nov 19); one 10-month Option (1 Dec 19 – 30 Sep 20) and one 6-month Option (1 Oct 20 to 31 Mar 21). The type of contract planned is Cost Plus Fixed Fee (CPFF). The estimated cost of these services for approximately 2 years and 4 months is $9,464,445.80 to include anticipated Work Requests. Basis for this award is FAR 6.302-1, Only One Responsible Source and No Other Supplies or Services will Satisfy Agency Requirements.

b. InDyne is classified as a large business under NAICS 517110. The Government intends to require subcontracting under this contract. The government will impose a minimum of 3% subcontracting.

c. Background: The InDyne contract POP currently ends November 2018, shortly after completion of the Ground-based Midcourse (GM) Launch Control Center (LCC) upgrades, including a fully Integrated VAFB Unified Display Unit (VUDU) system in the LCC, and four months before the execution of the MDA GM’s FTG-11 flight test. Pre-mission activities in support of FTG-11 will begin 4 to 6 months prior to Best Estimate Test Date (BETD). There is significant risk if InDyne, Original Equipment Manufacturer (OEM) contractor, is not available should any issues arise associated with the VUDU system as there would be no engineering support available for repair or to address network and operational issues prior to FTG-11. Introducing a new contractor prior to FTG-11, who is unfamiliar with the VUDU and LCC upgrades induces significant technical, schedule and performance risk which causes unacceptable delays for MDA to execute the GM flight test FTG-11. A new contractor would have to get familiar with a unique and complex launch communication suite requiring a steep learning curve, which is an unacceptable risk four months prior to the first GM Operational salvo test and most complicated mission GM has ever conducted. There are numerous “firsts” including a new LCC with a new digital Range Interface VUDU and telemetry transport systems; and upgraded power and communications systems. The fully upgraded and integrated LCC will require operation and sustainment during this critical period prior to FTG-11. The acquisition lead-time to proceed through a competitive source selection combined with any transition time-period to qualify another vendor for GM support at VAFB will severely increase the technical risk associated with execution of FTG-11 and could cause schedule delays which preclude the Agency from reasonably delivering accelerated GMD capability by the National Defense Authorization Act (NDAA) of 2018, December 31, 2021 initial deployment date.

This important FTG-11 test provides the American public, White House, Congress, and warfighters with confidence in the basic design, effectiveness, and operational capability to destroy an inbound intercontinental ballistic missile (ICBM) threat. In preparation for a future FTG-11 salvo mission (the most complicated flight test mission the program office has ever conducted) and Ground Test Campaign, the Ground-based Midcourse Defense (GMD) LCC at VAFB, which directly supports GMD Interceptor Test Launches, is currently being upgraded by InDyne, a GMD OEM currently executing GMD requirements for 30th Space Wing’s Western Range Operations. The GMD OEM’s LCC upgrades eliminates hardware obsolescence risks associated with continued use of existing legacy equipment interfaces as well as provide a state-of-the-art LCC that includes safety, communications, control, and data collection for multiple in-flight objects and two test launch operations teams. These LCC upgrades are vital to executing Congressional mandates for annual flight testing, future developmental and operational testing, and fielding of the next-generation payloads to counter the evolving ICBM threat. These LCC upgrades are scheduled for completion in the 1st Quarter of Fiscal Year 2019. The continuation of the GMD OEM’s efforts are critical to executing and testing actual GMD hardware, cybersecurity, and a hit-to-kill set of capabilities to demonstrate intercepting an ICBM under operationally realistic conditions.

Introducing a new vendor unfamiliar with the upgrades prior to FTG-11; allowing for vendor/supplier learning against current incomplete technical data packages; and shepherding a new vendor through requisite Test Concepts of Operations processes; and validation for a flight test causes significant technical, transition, and performance risks to the Government, causing unacceptable delays to MDA’s mission. Also, a new vendor who does not have the comprehensive knowledge of all the upgraded critical

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elements/components unique to its enhanced Vandenberg Unified Display Unit (VUDU) poses high risk to the mission. VUDU integrates all existing analog interfaces from the 30th Space Wing Range for presentation and situational awareness within the GMD LCC at each user workstation and at the Operational Readiness Station (RS) which was designed and developed to exacting MDA Test and Operational standards resulting in a next-generation digital user interface within the LCC and RS. These LCC upgrades, enhanced VUDU, and the conduct of FTG-11 will be the most complicated flight test and high risk mission GM has ever conducted. The FTG-11 Test CONOPS walk up activities begin 6 months prior to BETD and introducing a new vendor, who will require a steep learning curve poses unacceptable risk and delays.

It was anticipated that the follow-on requirements from iROS would transition to the Launch Operations Support Contract (LOSC) that was awarded Nov 2017. However, it has since been determined that not all of the current iROS requirements were added to that contract and would be a scope increase. The government has decided that it’s more mission effective to add all of MDA communication support to the 45SW Eastern, Western, Operations Communication Support (EWOCS) contract because this contract will consolidate all user communication support across the Eastern Range and Western Range (ER/WR) launch enterprise.

This acquisition is in its early stages and will capture all of the current iROS requirements and additional forecasted MDA requirements. MDA will work with both the 30SW and 45SW to ensure their requirements are added to EWOCS. The EWOCS is slated to be awarded NLT 31 Mar 2021.

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

a. The Request for Proposal and accompanying Performance Work Statement (PWS) will describe the work as follows: This Missile Defense Agency support includes operations, maintenance, and sustainment services for the communication systems, and adherence to all aspects of Information Assurance (Systems Security); Maintenance support and security services for communications systems within the confines of the MDA facilities. Systems include, inside/outside plant cable systems, circuits, distribution facilities/equipment, operational voice systems, and other MDA Specialty notification and telemetry transport systems. Operations, Maintenance and Sustainment includes: preventive/corrective, scheduled/unscheduled maintenance, operations support, and information assurance (IA) services for the following systems: red/black Operational Voice System (OVS), CCTV, Inter Range Instrument Group (IRIG) timing distribution, Missile Lift-Off (MLO), Status and Alert (S&A), communication battery backup systems, telemetry distribution, public address, aural/visual warning, Vandenberg Power Monitoring System (VPMS), Warfighter Topside Cameras and VUDU system. Services include integration of new equipment, provide adds, moves, and changes to existing systems as necessary to support changing MDA requirements. Engineering support includes: reviewing projects for improvement, or modernization of existing systems, and making recommendations for integration of new systems into existing systems, to include assurance that launch support systems meet operational performance standards. Maintenance Support and Security Services includes: monitoring and maintenance of security awareness of all construction, and maintenance activities occurring on MDA SSL-A/PL-1 restricted areas.

Additional responsibilities include: rapidly responding to unscheduled and unforeseen technical challenges in a timely manner, minimization of system recovery time, planned equipment upgrades, preventative maintenance, proactive incorporation of software patches, software-builds, Information Assurance updates/periodic hardenings; all while minimizing impacts to GMD system operations and/or test campaign schedules.

b. The type of contract planned is Cost Plus Fixed Fee (CPFF), with Cost Reimbursement CLINS (non-fee bearing) for Materials, and Travel. The Work Request CLINs will be Cost Plus Fixed Fee (CPFF).

c. The period of performance for the proposed contract extension considered the schedule uncertainties of the salvo launch and the off ramp to EWOCS. The proposed period of performance (PoP) is summarized in the table below:

Award PoP Length Cost Estimate

Basic 1 Dec 18 – 30 Nov 19 12 - months $2,985,064.11

Option 1 1 Dec 19 – 30 Sep 20 10 - months $2,562,180.42

Option 2 1 Oct 20 – 31 Mar 21 6 - months $1,583,201.27

Sub-TOTAL 2 yrs. & 4 mths $7,115,147.69 Proposed Post-award Work Requests (WRs)

$2,334,000.00

Grand-Total 2 yrs. & 4 mths $9,464,445.80

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

The Statutory authority for this action is Contracting by Other than Full and Open Competition, 10 U.S.C.2304 (d) (1) (B), 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).

a. InDyne has long term institutional technical knowledge and is singularly capable to rapidly develop, engineer, and insert advanced technologies, to include cybersecurity and range interface protection capabilities, into GMD components within available funding without causing unacceptable delays or risks in fulfilling the agency’s flight test requirements at Vandenberg Air Force Base, California. InDyne developed the VUDU system as the backbone of the modernized LCC, replacing the legacy systems and thus providing both the capability of meeting the salvo operation while providing needed flexibility to meet future mission requirements. The development and employment of the VUDU system for operational support provides a modern approach to interfacing with the Western Range Launch infrastructure. InDyne’s continued support for VUDU and the other systems integrated into the LCC through the FTG-11 mission is considered vital by MDA to ensure both mission success and thus overall reduced risk to this high visibility and extremely costly mission. This risk mitigation is consistent with the direction received from the MDA leadership. Currently, InDyne is executing these requirements under the 30th Space Wing (30 SW) Interim Range Operations Support (iROS) contract that ends November 2018.

The GMD is the primary system in the Ballistic Missile Defense System (BMDS) for defense of the Homeland. GMD is a deployed system that provides active protection of the Homeland, while responding to ever changing threats by developing and testing the future capabilities of the system. The MDA and GMD Joint Program Office have Operational, Developmental and Test capabilities at VAFB supporting the GMD mission. There are planned test objectives with dual interceptors for future GMD Flight Test Ground Based Interceptor (FTG) missions that present new challenges to existing VAFB test operations support and safety infrastructure.

In preparation for a future FTG-11 and Ground Test Campaign, the GMD Launch Control Center (LCC) at VAFB, which directly supports GMD Interceptor Test Launches, is currently being upgraded by InDyne and will fulfill robust BMDS test requirements including safety, communications, control, and data collection for multiple in-flight objects and two test launch operations teams.

InDyne’s approach in upgrading the LCC reduces equipment footprint needed to support each user within the LCC and capitalizes on new technology which will greatly improve the overall efficiencies and capabilities of the LCC while eliminating obsolescence risks associated with continued use of existing legacy equipment interfaces. The InDyne upgrades will provide MDA with a state-of-the-art LCC that is vital to executing Congressional mandates for annual flight testing, future developmental and operational testing, and fielding of the next-generation payloads for the GMD Program, specifically the Redesigned Kill Vehicle (RKV) and the Multiple Object Kill Vehicle (MOKV). As part of these initiatives, InDyne developed a new system for the LCC called the Vandenberg Unified Display Unit (VUDU). VUDU integrates all existing analog interfaces from the 30th Space Wing Range for presentation and situational awareness within the GMD LCC at each user workstation and at the operational RS which was designed and developed to exacting MDA Test and Operational standards resulting in a next-generation digital user interface within the LCC and RS.

b. In looking at the MDA mission at the Western Range, the one consistent factor is that the missions continue to be more complex and challenging. InDyne has provided integral support to MDA since the inception of the MDA mission on the Western Range 14+ years ago. This support has included initial mission communications fiber installation, installation and maintenance of over 43 miles of communications infrastructure supporting GMD Operations, the Aural/Visual Warning, site Emergency Mass Notification, and Top Side Camera Safety Systems for all GMD Launch Facilities and processing facilities, as-well-as last mile communications integration and connectivity for all MDA facilities at VAFB.

c. With evolving program requirements addressing emerging threats, MDA must have contractor support to maintain continuity and flexibility while meeting accelerated support equipment development/integration/testing/fielding of new capabilities to outpace the threat. To meet these challenges, 30SW and MDA have discussed and decided that longer term MDA contractor support requirements would be better supported by moving those requirements onto a contract vehicle whose focus is more centric to communications/security/IA rather than facilities maintenance (as with LOSC). This decision is also in line with the strategic sourcing decision on the part of both 30SW and 45SW to centralize both user communications and network support requirements under the same contract (EWOCS – Follow-on to the 45th ROS Contract). It should be noted that although most of the iROS requirements were added and are now part of the baseline PWS of the LOSC, the recent additional requirements (IA and Cyber Security) have not been included in that contract in light of MDAs desire to be supported with a more communications/IA/Security focus contract vehicle.

This strategic approach has been embraced by MDA in that it will provide a longer term support vehicle (well into the next decade) through a follow-on competitive source selection. All of MDAs current requirements with the added flexibility to support in-scope, unpriced efforts have been evaluated and mesh well with existing 45SW ROS requirements.

This J&A addresses and implements the direction to accelerate the delivery of missile defense capabilities and provides the only feasible means to execute the test and operational support at VAFB without substantial increases in technical, schedule, and operational risks.

Viewed against the backdrop of the evolving ICBM threat against U.S. interests, the Congressional and Administration direction to accelerate, and given the need to sustain and maintain available GMD facilities and infrastructure at VAFB, the government believes that InDyne is the only source with the present capability to support GMD requirements without impacting GMDs accelerated capability mandate (December 31, 2021) that would be impacted if the current support is allowed to expire.

Expiration of the current contract would create a gap in critical operational and test support.

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

A Notice of Intent to issue a sole source contract in accordance with FAR 6.302-1 was publicized in FedBizOpps on July 3, 2018 for a mandatory (15) days (FAR 5.203(a)). The Notice informed industry that the Government is contemplating awarding a sole source contract to InDyne, Inc. Responses to the notice were due July 19, 2018 by 4pm (PST), and 2 responses were received, one written and one verbal.

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

The Contracting Officer anticipates the costs for this effort will be fair and reasonable. In accordance with FAR 15.403-4, the contractor will be required to provide certified cost and pricing data. The Contracting Officer will make a determination as to the cost fairness and reasonableness based on, but not limited to, the following recommendations: Program Office technical evaluations, historical cost information, and the Independent Government Estimate (IGE).

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

The 30th Contracting Squadron market research included posting a Special Notice titled “Notice of Intent to Award Sole Source” to the Federal Business Opportunities website on 3 Jul 18, with a suspense of 18 Jul 18. Two responses were received. Market research was completed on the proposed contract on July 20, 2018. Market research activities were initiated to assess business interest and high-level capabilities to meet the proposed contract requirements. In addition to contacting industry partners, other government agencies were contacted to gather maximum marketplace acquisition knowledge on opportunities and challenges associated with achieving a producible, reliable, maintainable, and cost effective weapon system to defend the nation. The market research identified there is capacity, capability, and interest in competing for all work contained in the proposed contract.

However, due to the tight launch schedule and significant risk of failure of the mission if a new contractor were to take over the contract requirements, the government determined that the incumbent contractor InDyne Inc. should be awarded the proposed contract to insure continuity of these critical services. The government has further determined that it's more mission effective to add all of MDA communication support to the future 45 SW Eastern, Western, Operations Communication Support (EWOCS) contract currently being developed because that contract consolidates all user communication support across the ER/WR launch enterprise. This EWOCS acquisition is in its early stages and will capture all of the current iROS requirements and additional forecasted MDA requirements. MDA is working with both the 30SW and 45SW to add their requirements to EWOCS.

The EWOCS is slated to be awarded NLT 31 Mar 2021.

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

There are extremely high inherent technical performance, schedule and cost risks that can impede the success of the program by causing unacceptable delays if awarded to a new source in the current environment; which is unacceptable to the government (Ref: FAR 6.302-1(a) (2) (iii) (B). InDyne, Inc. the incumbent, holds all required certifications and clearances, is familiar with the complexity of the facility and equipment, and is fully capable of continuing to perform for a 2 year 4 month interim contract extension. The proposed interim contract would ensure continuation of the mission essential services.

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

The 30th CONS posted a Special Notice titled "Notice of Intent to Award Sole Source Extension” to the Federal Business Opportunities website on 3 Jul 18, with a suspense of 18 Jul 18. Two responses were received. A verbal response was received from the incumbent contractor Indyne Inc. expressing their continued interest and a second response was received on 18 Jul 18 from Call Henry, Inc. (CHI) expressing interest and was questioning why the proposed contract is intended as a sole source to InDyne. Call Henry requested clarification as to why the proposed work was not transitioned over to their existing contract FA4610-18-C-0005 as originally planned.

A meeting was held on 23 Jul 18 with 30 CONS Contracting Officer, Program Management Office and Call Henry to clarify the government’s position on the intended sole source award by explaining the significant risk to the program and the short time remaining with the current contract which expires on 30 Nov 18. It was explained that it was not a matter of “lack of advance planning” but a matter of trying to find a low risk transition period. The risk to the Government if any new contractor took over at this point in time was explained along with the potential business risk to CHI if the project was not successfully accomplished. It was further explained the visibility of the project is at the highest level and is a White House and Congressional priority. It was emphasized to CHI that the technical risks are too high to change contractors during the support of a critical Salvo/Dual Launch Interceptor Ground Based Interceptor Flight Test. CHI was also informed that the Government does not want to introduce a vendor unfamiliar with the upgrades immediately post FTG-11 execution. After the flight test, the GMD OEM must continue: a) Cyber Management and Reporting; b) Configuration Management/Property accountability of new equipment; c) DoD Information Assurance Certification/Compliance of new equipment/upgrades; d) participate in the next GMD Ground Test Walk Up activities (Preparation for the next major ground and flight tests); and e) Maintenance of the new equipment – removal and replacement of COTS upgrades to Software transitioning from System to System. The Government will continue to seek and plan for transition between contracts at low risk points throughout the program, operational readiness, and test activities. However, the preferred follow on plan for the MDA I-ROS requirements is to transition to EWOCS, which will be competitively awarded in 2021. Due to MDA’s current state of affairs and future outlook, operational readiness, communications, security and information assurance is a critical area, whereby major emphasis will be placed. With this knowledge, the Government, has since determined that these requirements will be better supported by a contract vehicle whose focus is more centric to communications/security/IA rather than facilities maintenance as with LOSC. Call Henry was advised the upcoming 45 SW EWOCS contract was being developed and will incorporate the current MDA range operations support requirements and is scheduled to be competed open market and awarded NLT 31 Mar 2021. They were advised they would be welcome to propose on the upcoming acquisition. As a result of this meeting Call Henry informed the Government that they understood the government’s rationale for a sole source contract.

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 market research as discussed in paragraph VIII above identified the capacity, capability and interest in competing for all work contained in the proposed contract. As stated above with evolving program requirements addressing emerging threats, MDA must have contractor support to maintain continuity and flexibility while meeting accelerated support equipment development/integration/testing/fielding of new capabilities to outpace the threat. To meet these challenges, 30SW and MDA have discussed and decided that longer term MDA contractor support requirements would be better supported by moving those requirements onto a contract vehicle whose focus is more centric to communications/security/IA rather than facilities maintenance (as with LOSC). This decision is also in line with the strategic sourcing decision on the part of both 30SW and 45SW to centralize both user communications and network support requirements under the same contract (EWOCS – Follow-on to the 45th ROS Contract). It should be noted that although most of the iROS requirements were added and are now part of the baseline PWS of the LOSC, the recent additional requirements (IA and Cyber Security) have not been included in that contract in light of MDAs desire to be supported with a more communications/IA/Security focus contract vehicle. This strategic approach has been embraced by MDA in that it will provide a longer term support vehicle (well into the next decade) through a follow-on competitive source selection. All of MDAs current requirements with the added flexibility to support in-scope, unpriced efforts have been evaluated and mesh well with existing 45SW ROS requirements. MDA will utilize the EWOCs contract or find their own contract vehicle for any future efforts of these requirements.

XII. Certification by the ContractingOfficer.

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 bythe technical/requirements personnel.

As evidenced by our signature(s) above, we certify that any supporting data contained herein, which is our responsibility, is both accurate and complete.