18-00024_JA_(redactedunsigned).pdf

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

20 Apr 2017 Page 1 of 8

Choose the funding level for this J&A Document:

< $700K > $700K and < $13.5M > $13.5M and < $93M > $93M

Contracting Activity: Requirements Generator AFSC 638 SCMG, SCMS/GULB, Contracting Office AFSC/PZABB

Purchase Request / Local ID Number: FD2060-18-00024

Program / Project (and PE, if applicable): AN/ALQ-172 Electronic Countermeasures (ECM) System

Program Type (PEO or Other Contracting): Other Contracting

10 U.S.C. 2304(c)(1), as implemented by FAR 6.302-1, Only One Responsible Source and Authority (include full title): No Other Supplies or Services Will Satisfy Agency Requirements

Estimated Contract Cost (including options): $49,745,662.00 J&A Type: Class Individual

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NOTE: If a Justification and Approval was approved for the preceding acquisition, a copy of the approved J&A for the predecessor action must be included in the staff package for approval of the instant J&A. This applies to J&A staff packages that are submitted for review and approvalat a level above the contracting officer. The predecessor J&A will be used asa reference document by the approving official.

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Note 1: See guidance at the end of this document for completing the following sections.

Note 2: Each field will expand automatically if additional space is needed.

I. Contracting Activity.

This Justification and Approval to request authority for Other Than Full and Open Competition supports requirements generated for the Air Force Sustainment Center (AFSC), 638 Supply Chain Management Group (SCMG), 408 Supply Chain Management Squadron (SCMS)/GULB. The contracting office for this requirement is AFSC/PZABB. The purchase request number supporting this contracting action is FD2060- 18-00024.

II. Nature and/or description of the action being 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 or Services Will Satisfy Agency Requirements.

This action will result in a new predominantly Cost Plus Fixed Fee (CPFF) definitive “C” type engineering services contract. This contract will include a Cost Reimbursement No Fee (CRNF) line item for Travel.

The contract will include a basic and four (4) options (FY18-FY23). The sole source requirement will be obtained from the following source:

Harris Corporation DBA: Electronic Systems, Integrated Electronic Warfare Systems 77 River Road Clifton, NJ 07014-2000

CAGE: 28527

Large Business

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

This requirement is to acquire AN/ALQ-172 Electronic Warfare System Test Program Sets (TPS) development and sustainment of the form, fit, function, and interface (FFFI) of the redesigned ALQ-172 Line Replaceable Units (LRUs). The LRUs (1, 4, 7, 8, 9, 10, and 12) are being redesigned due to obsolescence. Harris Corporation is developing a FFFI replacement for the LRU hardware under contracts awarded by Defense Logistics Agency (DLA) and AFSC. The final first article for the FFFI is due 1st Qtr.

2020. The development contract(s) will result in qualified prototypes and delivery of a full Level-3 data package. In order to produce or repair these LRUs, new TPSs must be developed. This requirement will provide organic test and repair capability for the re-designed LRUs including technical data, updated technical orders (TOs) and TPSs, Test Requirements Documents (TRDs), and Test Procedure Interface Hardware (TPIH) required for test/repair of the new LRUs. The existing ALQ-172 Depot-level testers are obsolete. Therefore, the new TPS will be developed for the latest generation of tester such as the Versatile Depot Automatic Test Set (VDATS). This will circumvent the Diminishing Manufacturing Sources and Material Shortages (DMSMS) issue and reduce the acquisition and Total Ownership Cost (TOC).

The AN/ALQ-172 is on the B-52 aircraft as well as various models of the C-130 aircraft used by Air Force Special Operations Command. The ITT Electronic Systems (now Harris) AN/ALQ-172(V) radar jammer is described as being a "combat proven" equipment that is installed aboard US Air Force (USAF) B-52H strategic bombers (AN/ALQ-172(V)2), Special Operations MC-130 H 'Combat Talon 'II' transports ( AN/

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$45,100,345

An automated diagnostics system allows flight-line crews to run a system self-test and obtain probable cause of failure down to the shop-replaceable unit level "in minutes." Of the three described configurations, AN/ALQ-172(V)1 and (V)2 are fully automatic systems with the two variants differing from one another in the (V)2's use of phased-array antenna technology and its ability to counter monopulse radars in addition to the baseline AN/ALQ-172(V) capability against pulse, pulse-Doppler and continuous wave radar threats. For its part, AN/ALQ-172(V)3 incorporates in-flight re-programmability, extended frequency coverage (including both 'high' and 'low' band) and an improved threat handling capability while the ECP-93 configuration of AN/ALQ-172(V)1 has been upgraded (starting in 1998) with an expanded memory, additional channels and flight-line re-programmability. The AN/ALQ-172 is integrated with the aircraft controls and displays and defensive subsystem to provide the aircrew with protection against radar-directed threats.

There is known obsolescence within the existing tester and the tester is now obsolete. The resultant contract is for development of new TPS and not updating existing TPS. The Government will not purchase any equipment or hardware on this project except the interface adapter.

The requirements for this effort are as follows:

Task Descriptions Cost Estimated

PoP FY18 (Basic)

Versatile Depot Automatic Test Set (VDATS) Development for redesign LRU's LRU-1

LRU-7

LRU-4

LRU-8

LRU-9

LRU-10

LRU-12

RFIU

FY18 VDATS Sub-Total

AN/ALQ-172 Unit Under Test (UUT) Labor Material Travel

FY18 UUT Total

FY18 Total (VDATS & UUT) 36 months

FY19 (Option 1) AN/ALQ-172 UUT Labor

Material Travel

12 months

FY19 Total

$6,200,000 $2,300,000 $9,500,000 $6,400,000 $3,100,000

$11,900,000 $2,000, 000 $2,300,000

$43,700,000

$1,092,002 $6,300

$12,897 $1,111,199

ALQ-172(V)1) gunships. System design features include full automation, multiband coverage, simultaneous multiple threat recognition and jamming, digital computer control, "advanced" jamming techniques, a "high" effective radiated power value, threat re-programmability, a high-gain antenna array, a threat warning display, dual Military Standard (MIL-STD)-1553B data bus interfaces and "extensive" built-in test capabilities.

$1,377, 300 $8, 7 0 0 $14,345 $1,400,345

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FY20 (Option 2) AN/ALQ-172 UUT Labor $1,124,762 12 months

Material $6,300 Travel $12,897

FY20 Total $1,143,959

FY21 (Option 3) AN/ALQ-172 UUT Labor $1,158,505 12 months

Material $6,300 Travel $12,897

FY21 Total $1,177,702

FY22 (Option 4) AN/ALQ-172 UUT Labor $1,193,260 12 months

Material $6,300 Travel $12,897

FY22 Total $1,212,457 FY18 - 22 TOTAL $49,745,662 60 months*

*This specific contract action will have a basic period of performance of 36 months for TPS development and 12 initial months of Unit Under Test (UUT) support utilizing FY18 funding. There will be four sequential options, each for 12 months of UUT support, following the initial 12 months of UUT support. Those options will use FY19-22 funding respectively.

The projected cost estimate was based on the Rough Order of Magnitude (ROM) submitted by the contractor and an analysis of the ROM based on prior contracts projects accomplished by similar Electronic Warfare programs.

The type of appropriation that will be used to fund this effort(s) is FY18-FY23 Sustainment Engineering Funds. Although the funds are no-year funds, the Office of the Secretary of Defense (OSD) controls the funds by issuing one-year Cost Authority (CA) to Head Quarters Air Force Materiel Command (HQ AFMC) based on project ranking in the Maintenance Engineering Project Sustainment Tool (MPST).

IV. Statutory authority permitting Other than Full and Open Competition.

10 U.S.C. 2304(c)(1), as implemented by FAR 6.302-1, Only One Responsible Source and No Other Supplies 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 (applicability of authority).

This agency's minimum needs can only be satisfied by the unique supplies or services available from only the above cited qualified source that possesses unique capabilities demonstrated as follows:

Harris Corporation is the only vendor with unique capabilities, experience, expertise, and relationships to satisfy the Government's requirements of the TPS for these highly specialized services.

Harris Corporation is the original designer and developer of the AN/ALQ-172 Countermeasures System.

They are currently on contract for the AN/ALQ-172 redesigns of LRUs -1, 4, 7, 8, 9, 10, 12 and Radio

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Frequency Interface Unit (RFIU). The equipment (including VDATS is Government Furnished Equipment

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(GFE) accountable under contract FA8522-15-D-0002) required for the redesign effort and development of the TPS is located at Harris Corporation.

It is estimated to take 42 months for another vendor to become familiar and acquire specialized skills with the AN/ALQ-172 system before the vendor could begin a TPS development project. Due to the complex nature of the development of the AN/ALQ-172 system, another vendor would require an extensive amount of time to become familiar with the AN/ALQ-172 system. There are no commercial vendors for this type of TPS development or repair sustainment. The only source of supply for this development and repair service is the original equipment manufacturer (OEM) for the AN/ALQ-172 system. The 42 month estimate is based on the accumation of time from contract award to completion of System Requirement Review (SSR) for the AN/ALQ-172 LRU redesign contracts. A new vendor would require this same amount of time or more time to become familiar because the AN/ALQ-172 components, from Software design to Hardware components, are tightly intermingled with most system documentation, creating barriers to sanitizing information for release. Additionally, the TPS development or repair sustainment requires the vendor to have a comprehensive system knowledge of the AN/ALQ-172 system architecture which is not available beyond the OEM. Due to obsolescence, another source cannot acquire an Enhance Maintenance Test Set (EMTS) or GFE required to support the setup for the EMTS. The cost and time involved in having another source acquire the equipment and expertise would not be cost effective and feasible.

The Government does not possess a full technical data package for the AN/ALQ-172(V) System. A contractor must have access to the technical data and have extensive knowledge and expertise of the AN/ ALQ-172 system in order to complete this effort. A critical part of the effort is to create TRDs at LRU and SRU levels. Due to the lack of functional/interface specifications between the LRUs, system knowledge and experience will be required in order to properly stimulate Radio Frequency (RF) and digital and analog signals between the UUTs. A vendor must have expertise on the ALQ-172 theory of operation, not knowledge of a generic radar or Circuit Card Assembly level expertise. Harris Corporation is the only vendor that possesses the knowledge and expertise of the redesigned AN/ALQ-172 Countermeasures System.

Harris Corporation is currently developing a FFFI replacement for the LRU hardware. The development contract(s) will result in qualified prototypes and delivery of full Level-3 technical data package for each redesigned LRU. The Government will have full data rights to compete future acquisition of LRU production units. This service requirement does not include any redesigned AN/ALQ-172 LRU production units but the TPS for repair and sustainment of redesigned units. In order to produce or repair these LRUs, the Government requires the development of new TPS for the VDATs. Since this is a TPS development effort, there is currently no technical data available to request access or rights thereto from Harris Corporation.

The LRUs (LRU-1, 4, 7, 8, 9, 10, 12 and RFIU) are highly specialized to the AN/ALQ-172 system because the AN/ALQ-172 system provides Situational Awareness (SA) and Self-Protection (SP) capabilities to large aircraft such as B-52 and C-130s. This is a unique capability for the B-52 and C-130 aircraft defenseless against threats. The AN/ALQ-172 Electronic Countermeasures (ECM) System has been upgraded footprint of the system requirement resulted in a distributed processing architecture between the subsystems, each performing specialized functions while collaborating with other subsystems. Therefore, internal system interfaces, and other timing requirements between subsystems, LRUs and SRUs are critical factors for the over the last 40+ years since its inception in the early 1970s. The system architecture is comprised of three (3) subsystems, pulse (LRU-1 and 2), PD/CW (LRU-4 and 10) and antenna (LRU-7, 8, and 9), in order to meet its requirements with a significantly reduced number of LRUs. The small

20 Apr 2017 Page 7 of 8 proper integration and full operations of the system. Harris Corporation is the only vendor who has knowledge of the critical factors required to make the system fully operational.

There are currently no redesigned LRUs available. A new vendor would not only need knowledge of the AN/ALQ-172 system but would need a redesigned LRU(s) in order to develop the TPS(s). Waiting on availability of redesigned LRUs would cause an unacceptable delay in meeting mission requirements.

Furthermore, the Government does not own the complete data package. It is estimated to take a new vendor over 3.3 years, with a team of 30 personnel to reverse engineer and develop a data package. This estimate is based on the same amount of time required by Harris for the LRU redesign effort. If the Government were to undertake an organic reverse engineering effort, it is estimated to cost $40,543,410 based on 251,432 labor hours and 4+years to complete. This is based on the premise of the depot having the available manpower and required skill sets to complete an organic reverse engineering effort. The Air Force Life Cycle Management Center (AFLCMC)/WNY AN/ALQ-172 Operational Safety, Suitability and Effectiveness System Program Office Engineering and 408 SCMS Engineering took a bottom-up drawing reconstruction approach to develop the estimated cost. The estimate was based on an engineering review and analysis of the tasks, which included analyzing, capturing the requirements, and generating all required technical drawings required to develop the data; and the FY14 Depot Maintenance Activity Group (DMAG) rate was used to calculate labor costs. The estimated time to complete of 4+ years is based on similar duration needed to capture the requirements for the development of TPS since the purpose of the SSR is to generate the top level requirements and allocate the requirements to the product level which is TPS products.

Due to the critical demand of the legacy LRU's, obsolescence of the legacy LRU's, limited schedule, and cost, it's in the Government's best interest to pursue TPS development and repair sustainment of the redesigned LRUs from the OEM. Accordingly, Harris Corporation is the only firm capable of providing the services described in Section III above without the U.S. Air Force experiencing substantial duplication in cost and unacceptable delays that is not expected to be recovered through competition.

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

A Sources Sought (SS)/Request for Information (RFI) synopsis was posted to the Federal Business Opportunities (FedBizOpps) website (www.fbo.gov) on 30 March 2017 under Solicitation Number FD2060-17-VDATS with a response date of 01 May 2017. The SS/RFI was to conduct market research to identify potential sources for the TPS development effort and redesigned LRU repair sustainment. One vendor, other than Harris Corporation replied to the SS/RFI. The vendor was assessed and found incapable of doing the work required.

This requirement will be synopsized on FedBizOpps web page as required by FAR 5.201. It is anticipated that sources having an interest in subcontracting may be identified through synopsis. Any source who responds to the Government as a result of this synopsis will be identified to the prime contractor as a potential for subcontracting possibilities.

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. In accordance with FAR 15.403-4, the contractor will be required to provide a proposal with certified cost or pricing data to be used in supporting the Government's evaluation of the proposed cost. The proposed skill mix of labor, labor hours, types and quantities of material, other direct costs, and direct and indirect rates will be negotiated by the Government based on recommendations from Defense Contract Management Agency (DCMA) for

20 Apr 2017 Page 8 of 8 appropriate field pricing assistance and expert technical personnel supporting the program. 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.

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

Market research was conducted and completed April 2017 in accordance with FAR Part 10.001 and 10.002 using the following market research techniques:

Reviewed industry reports, trends and product developments; discussions with industry representatives;

internet searches; and industry knowledge possessed by the AN/ALQ-172 Engineering staff.

A SS/RFI synopsis was posted to FedBizOpps on 30 March 2017 under Solicitation Number FD2060-17- VDATS. Only one response was received. This respondent was not Harris Corporation. The respondent was evaluated and determined not capable.

The team conducted a review of several industry-wide searches on the Internet, using the following AE-recommended component search engines. The key terms used in the search were: AN/ALQ-172 TPS, TPS, Versatile Depot Automatic Test Set, VDATS, and TEST PROGRAM SETS:

• http://www.aerospace-technology.com/contractors/index.html,

• http://www.globalspec.com/ProductFinder,

• http://www.eem.com/,

• http://dsbs.sba.gov/dsbs/search/dsp_dsbs.cfm

• https://www.google.com

The Government performed several queries in the marketplace, as well as databases listed on the approved Automated Commercial Environment (ACE) website. The AN/ALQ-172 Systems Engineering team searched the databases and websites by item description. Vendor survey was conducted on six potential vendors but all with exception to Harris Corporation were determined not capable.

Commercial Opportunities: This requirement does not fit the definition of “commercial items” as described in FAR Part 2. This requirement is defined as developmental and is not customarily required by the general public or by non-governmental entities.

The market research concluded Harris Corporation is the original designer and developer of the AN/ ALQ-172 Countermeasures System and they possess all the equipment and expertise necessary for this TPS development effort. Harris Corporation is the only vendor available with the unique experience, expertise, and relationships to satisfy the Government's requirements of this highly specialized TPS development and redesigned LRU repair effort.

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

None

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

See Section VI above.

http://www.aerospace-technology.com/contractors/index.html http://www.globalspec.com/ProductFinder http://www.eem.com/ http://dsbs.sba.gov/dsbs/search/dsp_dsbs.cfm http://www.google.com/

20 Apr 2017 Page 9 of 8 over 3.3 years, with a team of 30 personnel to reverse engineer and develop $40,543,410 a and take 4+ years to complete

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.

Harris Corporation is in process of redesigning AN/ALQ-172 Countermeasures System LRUs. They will deliver qualified prototypes and a full Level-3 data package as part of the redesign effort. In order to produce or repair these redesigned LRUs, new TPSs must be developed. Based on Harris Corporation's knowledge of the AN/ALQ-172 and redesign of the system, they are the only vendor capable of performing the TPS development.

The Government does not possess a full technical data package for the AN/ALQ-172(V) System. It is estimated to take a new vendor data package. The Government estimates an organic reverse engineering effort would cost . Based on the time required and cost, neither is considered feasible.

The AN/ALQ-172 does not have an established “life cycle or life of program.” AFLCMC is currently working to develop the AN/ALQ-172 Life Cycle plan at the Major Command (MAJCOM) level.

There was no previous J&A therefore the higher-level approval of DFARS PGI 206.304(a) (S-70) (ii) is not applicable for this acquisition.

The delivery of full production-Level 3 LRU drawing packages and completion of this TPS development effort will allow the Government to break barriers to competition and/or allow for organic sustainment on future production and repair requirements. Delivery of the Level 3 LRU drawing packages is scheduled in 2021.

XII. Certificationbythe Contracting Officer.

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 by the technical/requirements personnel.

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

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