J A_post_to_FBO.pdf

COORDINATION AND APPROVAL

FOR OTHER THAN FULL AND OPEN COMPETITION

ACQUISITION GREATER THAN S6SOK, BUT NOT EXCEEDING Sll.S MILLION

Estimated

Category: State PEO or Other Contracting

Authority: I 0 U.S.C. 2304(c)(1) as implemented by FAR 6.302-1

Based on the justification provided herein, acquisition of the supplies/services is recommended using Other than Full and Open Competition (OTF&OC) using the authority cited above.

Staff Judge Advocate

JUSTIFICATION FOR OTHER THAN

FULL AND OPEN COMPETITION

I. CONTRACTING ACTIVITY

This Justification and Approval to request authority for Other Than Full and Open Competition supports requirements generated for the AFLCMC/WIUEE. The contracting authority for this requirement is AFLCMC/WIKAA. The purchase request number supporting this contracting action is FD2060-13-30267.

II. NATURE AND/OR DESCRIPTION OF THE ACTION PROCESSED

Due to the circumstances described herein, the activity requests authority to acquire the engineering services listed in this document using Other Than Full and Open Competition as prescribed by FAR 6.302-1, Only One Responsible Source and No Other Supplies Will Satisfy Agency Requirements. This action will result in the award of a new contract, which will be a Cost Reimbursable type (no fee) contract with a basic year plus four one year ordering periods.

This sole source requirement will be purchased from the following company:

Mercer Engineering Research Center (MERC) (CAGE Code 1 WDH9) 135 Osigian Blvd.

Warner Robins, GA 31088 Large Business

III. DESCRIPTION OF THE SUPPLIES/SERVICES REQUIRED TO MEET THE

AGENCY'S NEEDS

This requirement is in support of Special Operations Forces (SOF) C-130 engineering requirements for structural support and engineering services. A new contract will be awarded as a direct follow on to FA8504-08-G-0001-0018 (SOF C-130 Structural Support and Engineering Services). The continuance of a long term strategic engineering services type contract develops a comprehensive supplier relationship and allows efficient engineering services in the supply chain to support the warfighter. This is a follow-on effort for continuing structural support and engineering services for the SOF C-130 Engineering group as part of the overall Aging Aircraft sustainment effort. It requires specialized knowledge, advanced capabilities, and fast response in structural mechanics, fatigue analysis, damage tolerance methods, reverse engineering, prototyping, and testing. Central to the effort is an accurate Finite Element Model (FEM) of the aircraft primary structure. Changes in aircraft usage, weight and configuration since the time of initial design and manufacturing require this global structural model in order to analyze the effects of the loads distributed throughout the major members of the airframe structure. Such a global model is necessary to identify "hot spots" or structural areas exhibiting high stress levels when operational loads are applied and provides the starting point for damage tolerance analyses.

The model also permits rapid response analysis for mishaps and other critical, short-schedule analyses. Under prior efforts, MERC constructed and validated a global C-130H FEM, which was used for the latest C-130 Damage Tolerance Analysis (DTA) updates. MERC has, under the "pr~ce~in~"--~ntracts for SOF C-130 Engineering, Air Force Life Cycle Managemen! Center 1

(AFLCMC/WIUEE), expanded and refined the model to fit the needs of SOF C-130 Engineering. This program will focus on support of the needs of the SOF C-130 fleet with regard to analysis of modifications, repair design and analysis, reverse engineering of components, testing through laboratory and field methods, development and support of the Aging Fleet Integrity and Reliability Management (AFIRM) system, and quick-tum prototyping to improve aircraft availability and reduce maintenance burden on the SOF fleet. Additionally, MERC will develop an addendum to the current Tactical Airlift C-130 Mechanical Equipment and Subsystem Integrity Program (MECSIP) and Avionics Integrity Program (A VIP) Master Plans that will cover the SOF related C-130 subsystems. This addendum will identify all subsystems and equipment that are to be covered by SOF MECSIP and A VIP, establish analysis prioritization, develop a SOF unique subsystem Reliability Centered Maintenance (RCM) analysis schedule, and detail how SOF RCM analyses are to be integrated with the Tactical Airlift C-130 RCM analyses. At the conclusion of development of the SOF portion of the C-130 MECSIP and A VIP Master Plans, the contractor will review all previous C-130 RCM analyses for SOF unique issues and recommend and implement the approved actions. The MECSIP and A VIP purpose is to maintain and enhance system safety and operational reliability throughout the remainder of the SOF C-130 operational service life.

The total estimated cost for this effort is-Estimated award date is February 2013 or sooner.

IV. STATUTORY AUTHORITY PERMITTING OTHER THAN FULL AND OPEN

COMPETITION

I 0 U.S.C. 2304( c) (1) as implemented by FAR 6.302-1, only one responsible source and no other suppliers or services 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

The purpose ofthis contract is to continue critical support to SOF C-130 Engineering, AFLCMC/WIUE, continuing efforts from contract F A8504 -08-G-000 1-0018 (SOF C-130 Structural Support and Engineering Services (SSES)) and earlier SOF C-130 SSES contracts, providing critical analysis, developing rapid response prototypes, providing unique lab and field/flight test capabilities, and supporting development ofthe C-130 AFIRM tool for fleet management, Airworthiness Tracking, Configuration Management Tracking, and the Hazard Tracking Database. The scope of this contract includes all C-130 Mission Design Series (MDS) managed by SOF C-130 Engineering, AFLCMC/WIU.

MERC developed the C-130 global Finite Element Model (FEM) that was validated and updated through recent years, saving AFLCMC millions of dollars which would have been required for development of a new FEM. MERC has incorporated SOP-specific structures and configurations through the various tasks issued through prior years of SOF C-130 SSES including detailed models of the AC-130U Vertical Stab, AC-130W 30mm Pressurization Structure, AC-130W Cargo Door/Dragon's Breath, AC-130W 105mm, AC-130W Pylon, and EC-130J Aileron. The model provides a unique capability to generate detailed local meshes within the Global C-130 FEM and analyze modification, repair, and damage impact to the aircraft using the design loads at a level of detail superior to the Global C-130 FEM currently available to any other contractor. In addition to the detailed model, MERC maintains a library of aircraft loads, both maneuver-based and SOF-specific. Possession and understanding of the loads and their applications is a key capability that supports such work as optimizing the AC- 130W 1 05mm gun interface utilizing actual recoil versus time loading, assessing aerodynamic loads on the Nose Landing Gear Door, and pressurization load distribution for gunship gun boots.

Support ofSOF C-130 engineering requires an in-depth knowledge ofmaintenance requirements and inspections and inspection intervals for the C-130. MERC's Level3 non-destructive inspection (NDI) inspector and other MERC specialists completely rewrote the outdated TO I C- 130A-36, using Probability oflnspection and Probability of Detection criteria, incorporating state-of-the-art inspection methods, and validating these inspections. MERC is currently updating the Force Structural Maintenance Plan (FSMP), first developed by MERC in 2005. I MERC is uniquely capable of developing the FSMP, due to intimate knowledge and experience with the finite element model, Damage Tolerance Analysis (DTA), Automated Inspection Repair I Corrosion & Aircraft Tracking (USAF-AIRCAT), and Inspection, Corrosion And Repair Recording (I CARR-3D). ICARR-3D, developed by MERC, is used by Conditioned Based Maintenance+ (CBM+) and now C-130 High Velocity- Programmed Depot Maintenance (HV PDM) personnel in maintenance to provide a point of maintenance data capture on a 3-D solid model of the C-130 aircraft. The expertise directly assisted SOF C-130 System Program Office by allowing MERC to provide a quick assessment of flight-hour critical ISO inspections and a set of contingency Isochronal (ISO) inspections to support improved aircraft availability in theater.

MERC engineers developed the MC-130W 30mm Gun pressurization loads through innovative analysis techniques, designed a replacement Gun Port Seal Assembly or "Cattle Guard" in under 6 months, and supported full deployment through static and fatigue laboratory testing and direct measurement/verification of pressurization loads with the kit proof for both the "Cattle Guard" configuration and loads directly applied through pressurization to the 30mm Gun Box.

MERC engineers provided rapid prototyping ofEC-130J Vertical Trailing Wire Antenna (VTW A) lenses, which had no existing technical data and were suffering unexpected cracking. 1

MERC further used Coordinate MeasurementMachine (CMM) modeling to develop the part and assembly models and drawings for the lens and all associated tooling, improving component fit and material selection and producing prototypes and tooling for USAF assessment/future production in under 6 months.

MERC provided quick turnaround testing for ground-based live fire testing of the 1 05mm M2 Howitzer pallet. In less than 2 months, MERC developed a test plan to measure loads in the C- 130 fuselage due to gunfire and executed the fuselage portion of the test. MERC successfully used the transient load profiles generated to analyze the impact of the gunfire to the floor structure of the MC-130W. Accurate modeling of transient gunfire loads into the structure represents a unique capability and is itself supported by the capability to perform accurate ground and flight testing and measurements.

MERC provides ongoing support for the C-130 Aging Fleet Integrity & Reliability Management (AFIRM) system and the associated hosting for SOF C-130 Airworthiness, SOF C-130 Configuration Management, and the Hazard Tracking Database. The development of these tools supports the continued health of the fleet and represents an important capability for the airworthiness, configuration, and system safety teams. MERC is the only organization with the detailed knowledge to effectively continue development of these tools and continue accurate support of the data housed within AFIRM.

MERC provides contract support to implement the C-130 MIL-HDBK-1798B Mechanical Equipment and Subsystem Integrity Program (MECSIP) for the Tactical Airlift SPO. MECSIP is an organized and disciplined process to ensure the design integrity (e.g.; durability, reliability, and supportability) of C-130 mechanical systems and equipment is maintained throughout the C- 130's operational life. MECSIP is designed to improve C-130 aircraft availability, reliability, and reduce C-130 Total Ownership Costs (TOC) while enhancing safety. The process is in direct support of the Operational, Safety, Suitability, and Effectiveness (OSS&E), Air Force Policy Directive 63-12, and the Air Force Instruction 63-1201 requirements to establish a disciplined I engineering process that will ensure the physical and functional integrity of the system. The 330 ACSG is required to maintain a MIL-STD-1798A MECSIP program.

The objective of A VIP is to achieve and maintain the physical and functional integrity of the avionic/electronic elements of airborne, support, and training systems. The goal of the program is to ensure the OSS&E of a weapon system, while reducing total operating cost. The process is in direct support ofthe OSS&E Air Force Policy Directive (AFPD) 63-12 and the Air Force Instruction (AFI) 63-1201 requirements to establish a disciplined engineering process that will ensure the physical and functional integrity of the system. Under this contract, MERC develops, implements and enhances the C-130 A VIP Master Plan focusing on recommended improvements in C-130 Aircraft Sustainment Group (ASG) Reliability & Maintainability analysis techniques, processes, data sources, data mining tools/systems, and analysis tools/systems.

Therefore, this acquisition is for continued performance of a highly specialized, highly technical, engineering services.

MERC has extensive experience with the SOF C-130 fleet and systems, unique lab and flight testing capabilities, a global C-130H model, an extensive library of aircraft loads and SOP specific models, and the experience to combine the use ofthese for support of modifications, repairs, and assessments.

MERC has the software development and review expertise to develop and maintain the C-130 Aging Fleet Integrity & Reliability Management (AFIRM) system, which hosts configuration control and documentation for SOF C-130 Airworthiness, Configuration Management, and Hazard Tracking. These represent critical tools in maintaining the fleet's airworthiness, monitoring fleet health, and maintaining configuration control of the varied Mission Design Series managed by SOF C-130 SPO.

MERC has the facilities, tools, and expertise to support design, analysis, proof of concept, and testing in one location, providing fast response and allowing for optimization of design through analysis.

The SOF C-130 SPO believes that award to any other source would result in substantial duplication of cost to the Government that is not expected to be recovered through competition and unacceptable delays in fulfilling the Air Force's requirements in reducing SOF C-130 maintenance costs, improving aircraft availability, and providing immediate support for modification and repair efforts.

MERC has spent the last twenty years in actively developing a detailed understanding ofthe C-130 airframe and systems as well as C-130 data systems and maintenance data requirements. To develop an alternate source with the relevant technical experience equivalent to MERC at this time 1 would re~ated amount in both direct start-up costs and indirect diminished-capability losses of-and represent almost two full years of value on this effort to recreate the depth ofFEM capabilities, system knowledge, testing capabilities, software/system support capabilities for C-130 AFIRM and the associated tracking tools for SOF C-130 Airworthiness, Configuration Management, and Hazard Tracking (System Safety). This estimate is based on the time it takes to get acquainted with an aircraft and its systems, study and understand the relevant data sources, establish appropriate contacts within the C-130 community, and begin to develop the techniques and library of loads and models for analysis. During this interim time period, improvements and cost reductions in C-130 maintenance will not be delivered. The impact to ongoing efforts for testing ofMERC-redesigned Lower Aft Nacelles to account for the extreme environment of the gunship IR Tubs and to testing support for the AC-130W, specifically the 1 05mm Phase II and Phase III flight tests, would lead to delays and additional costs in ongoing modification efforts that stand to reduce the maintenance load on the gunship fleet and improve the capabilities of the AC-130W, respectively. The cost is derived by estimating another contractor operating at 70% ofMERC's capability for the first the same · and 85% in the second year, for a loss of 45% of one (1) current capability costs where the capabilities would take time to build up currently performs. This captures the lost capability to the government while the contractor "warms up" to the level of performance of MERC, while much of the work would have to be vetted through other support contracts in order to meet program and/or operational schedule constraints, or labor costs to re-work delivered reports due to loss of existing knowledge base.

Therefore, this acquisition is for continued performance of a highly specialized, highly technical, engineering services.

Accordingly, MERC is the only organization capable of providing the services described in Section III above without the U.S. Air Force experiencing substantial duplication of cost that could not be expected to be recovered through competition and unacceptable delays in ongoing efforts to maintain the aircraft availability, improve aircraft function, and reduce maintenance burden on the SOF C-130 fleet, which constitute low availability/high demand platforms. The majority of the work accomplished on this effort is to support the increased workload AC 130 Gunships. And with the current war efforts abroad and training required for the war effort, the government (AFSOC) will not accept any delays in providing the best service and support for the troops. _____ ,_, __________ ,~ ___ , ______ , _____________ , __ _

VI. DESCRIPTION OF EFFORTS MADE TO ENSURE THAT OFFERS ARE

SOLICITED FROM AS MANY POTENTIAL SOURCES AS DEEMED PRACTICABLE

This requirement will be synopsized and solicited on the Federal Business Opportunities web page in accordance with FAR 5.20 1.

VII. DETERMINATION BY THE CONTRACTING OFFICER THAT THE

ANTICIPATED COST TO THE GOVERNMENT WILL BE FAIR AND REASONABLE

The overall cost of this acquisition will be fair and reasonable to the Government. The proposed prices from the contractor will be negotiated by the Government based on recommendations from the technical evaluation from the requiring agency and the experience of the Contracting Officer. The contract price will be negotiated in accordance with the procedures in FAR Part 15, ensuring the ultimate cost to the Government is fair and reasonable.

The final cost will depend on the costs approved by the ACO according to the cost principles defined in FAR 31.303, which states that allowable costs under contracts with educational institutions shall be deemed to refer to and shall have the allowability of costs determined by the Contracting Officer in accordance with the revision of OMB Circular A-21 in effect on the date ofthe contract.

A certificate of current cost or pricing data pursuant to FAR 15.406-2 dated 16 September 2011 will be executed and received from the contractor.

VIII. DESCRIPTION OF THE MARKET RESEARCH CONDUCTED AND THE

RESULTS, OR A STATEMENT OF THE REASONS MARKET RESEARCH WAS NOT

CONDUCTED

Market research conducted pursuant to FAR Part 10.001 and 10.002. Web-based searches consisted of the Central Contractor Registration (CCR) search engine, the Small Business Administration's Dynamic Small Business Search Engine, research of contractor's web pages, and updating historical information. This research began prior to the CCR database no longer being used. However, we did not want to exclude the use of this database as there were many companies that were looked at during this research listed on that database that are still in business and still have some of the capabilities that are required for this contract.

While these contractors could provide some of the services, they would still need months if not years to make up for the experience and expertise that MERC has gained since winning the initial SOF C-130 SSES contract. MERC has collected the data, generated the models and techniques, and has the existing capability necessary to support the program for the future.

MERC also has a contract with the C130 Structures office to maintain the common C130 model, and this model is updated when a Finite Element Analysis (FEA) is completed on a specific section of the aircraft. Issuing a contract to a contractor other than MERC for the SOF support would require that both contractors be able to use the same model and often at the same time.

This would require that both models be updated by both contractors and would be impossible to maintain configuration control.

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IX. ANY OTHER FACTS SUPPORTING THE USE OF OTHER THAN FULL AND

OPEN COMPETITION

MERC has provided engineering services and finite element modeling and analyses for the SOF C-130 SPO through this program for several years. MERC has the resources and geographical location to be the best fit for the requirements posed by this effort. MERC has the experience needed on the SOF C-130 fleet, specifically structural analysis including finite element methods, 3D Computer-Aided Design, flight test support, proof of concept production, and reverse engineering. MERC has the capability and personnel available to perform all of these tasks in their Warner Robins, GA, facility. MERC is a proven partner with the SOF C-130 program office, providing rapid response, such as the reverse engineering and proof of concept production ofthe EC-130J VTWA lens and support ofloads measurement for 105mm Ground Fire testing.

MERC has the history of providing reliable, effective, economic solutions to SOF C-130 aircraft life-cycle management along with PhD level oversight of all taskings.

X. LIST OF SOURCES, IF ANY, THAT EXPRESSED INTEREST IN THE

ACQUISITION

See Section VI above.

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 nature of this engineering support effort is such that it must be provided by MERC at this time. Loss of the MERC expertise would result in the loss of significant modeling and analysis expertise and would require significant investment and time to bring another contractor into position to support and complete the ongoing test, analysis, and design efforts. In summary, any effort to qualify another source for the C-130 SSES engineering program would cost the Government an estimated- in both direct start-up costs and indirect diminished capability losses of, and r~ost two full years of value on this effort for another contractor to develop the team and complete the level of research that MERC has already performed, thus creating a significant delay in the future benefits of these programs. With DoD budget cuts looming in the immediate future, the Air Force cannot afford the cost duplications associated. Also, there would be no added benefits to competing this effort due to MERC being a non-profit organization the Government is receiving the best possible rates.

XII. CONTRACTING OFFICER'S CERTIFICATION

The contracting officer's signature on the Coordination and Approval Document evidences that he/she has determined this document to be both accurate and complete to the best of his/her knowledge and belief. (FAR 6.303-2(b)(12)).

XIII. TECHNICAL/REQUIREMENTS PERSONNEL'S CERTIFICATION

As evidenced by their signatures on the Coordination and Approval Document, the technical and/or requirements personnel have certified that any supporting data contained herein, which is their responsibility, is both accurate and complete. (FAR 6.303-2( c)).