Approved_Band_8_JA_(Redacted).pdf

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

FOR OFFICIAL USE ONLY

March 2018 FOR OFFICIAL USE ONLY Page 1 of 10

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 approval at a level above the contracting officer. The predecessor J&A will be used as a reference document by the approving official.

Is this a new or amended J&A Document? New Amended ( Prior to Award Only! )

Is this a Bridge Action as defined in the AF Bridge Action Reduction Plan? Yes No

Funding level for this acquisition: < $700K > $700K and < $13.5M > $13.5M and < $93M > $93M

Contracting Activity: AFLCMC/WNKD

Purchase Request / Local ID Number: FD2060-18-31302

Program / Project (and PE, if applicable): AN/ALQ-161 Band 8 Reactivation (B-1 11126F)

Program Type (PEO or Other Contracting): PEO

Authority: 6.302-2 – 10 USC 2304(c)(2), Unusual and Compelling Urgency

Estimated Contract Cost (including options): J&A Type: Class Individual

COORDINATION (AFFARS 5306.304(a) )

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I. Contracting Activity.

This Justification and Approval to request authority for Other Than full and Open Competition supports requirements generated for the Air Force Life Cycle Management Center (AFLCMC), Agile Combat Support Directorate, Electronic Warfare and Avionics Division (WNY). The contracting authority for this requirement is AFLCMC Avionics and Electronic Warfare (WNK). The purchase request number supporting this contract action is FD2060-18-31302.

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

Due to the circumstances described herein, the activity requests authority to acquire the necessary supplies and services to support reactivation of Band 8 Transmitter capability associated with the AN/ ALQ-161A Defensive Avionics System (DAS) supporting the B-1B aircraft using Other Than Full and Open Competition as prescribed by FAR 6.302-2, Unusual and Compelling Urgency. This individual action will result in the award of a new Undefinitized Contract Action (UCA) for prototype kit design through Flight Test. The pricing arrangement for the UCA will be Cost-Plus-Fixed-Fee (CPFF) and Cost-Reimbursable/No Fee (CRNF). The UCA will be awarded no later than 31 March 2018 in order to meet an operational need date of Dec 2019. The estimated value of the UCA is . The UCA period of performance (PoP) is 31 March 2018 through completion of flight test, June 2019.

The UCA will include the delivery of two Design Verification Test (DVT) kits and three Qualification Test Kits to be used during lab and flight testing. At definitization of the UCA, options will be included for 18 shipset prototypes, installation of prototype kits on 18 combat coded aircraft, prototype test support, and a performance incentive that the contractor can earn during each contract period through delivery of the prototype shipsets. The pricing arrangements for the options will be CPFF, Firm-Fixed-Price (FFP), and To be Negotiated (TBN). The estimated value of the options is

. The total estimated acquisition value of the UCA and options is .

The estimated PoP for the UCA and options is Mar 2018 through Mar 2022 (48 months).

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

Georgia Tech Applied Research Corporation (GTARC) 505 10th St Atlanta, GA 30318-5775 CAGE Code: 1FEZ4

GTARC is considered a not for profit university affiliated research organization.

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

The purpose of this requirement is to support reactivation of Band 8 Transmitter capabilities and to address deficiencies in the ALQ-161 system's ability to fight threats within a threat environment. The B-1B aircraft Band 8 Transmitter Capability is one of the Radio Frequency (RF) Electronic Countermeasures (ECM) jamming bands for the AN/ALQ-161A Radio Frequency Surveillance (RFS)/ Electronic Countermeasures System (ECMS). This acquisition is for design, development, fabrication, qualification, test, delivery and fielding installation support of B-1B DAS prototype modification kits to fulfill Air Force Global Strike Command (AFGSC) identified requirements to reactivate Band 8 Transmitter capability. The reactivation tasks required for this work effort are those

March 2018 FOR OFFICIAL USE ONLY Page 3 of 10 necessary to equip 18 combat coded aircraft with a need date no later than Dec 2019. The desired Band 8 Mission Capability (MC) Rate must match requirements specified in Band 6 and 7 Mission Essential Subsystem List (MESL).

This effort covers a PoP from contract award to Mar 2022 (48 months) for initial prototypes and flight test and options to include additional prototype fabrication (18 ea.), prototype testing support, optional Traveling Wave Tube (TWT) replacement, aircraft integration support, and Reliability Growth Demonstration Test (RGDT) study with driver/transmitter. The B-1B DAS prototype modification kit is currently identified as replacement of six (6) Shop Replaceable Units (SRUs) within two Line Replaceable Units (LRUs), the AMPLIFIER, RADIO FREQUENCY (BAND 8 DRIVER TRANSMITTER) AM-7196/ALQ-161A (PN 001-006812-011) LRU and the REPEATER, RADIO (BAND 8 REPEATER/RF SOURCE) RT-1431/ALQ-161A (PN 435029-12) with associated cabling, wiring, firmware and software changes.

As a part of this acquisition, the complete, non-proprietary design drawings will be procured, to include identification of the processes and materials for the items associated with this design. The Government will have sole ownership of this technical data package after Option I (FY20); however approval for full implementation across the B-1B fleet will not occur until the period of performance associated with this effort is complete. Therefore the potential for full and open competition cannot be determined until after completion of this urgent contract, including all options.

The total estimated cost of the contract is estimated to be . The type funding will be Operation and Maintenance (O&M) Centralized Asset Management (CAM) 3400, Sustaining Engineering- 583, and Contractor Logistics Support (CLS) - 578 appropriations.

UCA Contract Line Item Number (CLIN) Structure and Estimated Total :

There are seven (7) Options to be included at UCA Definitization. These options have the ability to be exercised any time from time-to-time, between contract award and completion of flight test, and final fielding of 18 prototype shipsets. Each option has a set of CLINS defined as follows (CLINS X002, X003, X004 are specific to Over and Above (TBN), Travel (TBN) and Data (NSP)):

Option I: 1006 Option II: 2007 Option III: 3008 Option IV: 4008 Option V: 5009 Option VI: 6009 Option VII: 7010

Options to be included at UCA Definitization

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Option CLIN Description Cost Type

CLIN 1006: Fabrication of Additional Prototypes (18 ea.) CPFF

CLIN 3008/4008: Contractor Logistics Support (Prototype CPFF

Testing Support) (x2)

CLIN 2007: Traveling Wave Tubes (TWTs) CPFF

(to be negotiated)

CLIN 5009/6009: Aircraft Integration Support (x2) CPFF

CLIN 7010: Reliability Growth and Demonstration CPFF

Study w/ Driver/Transmitter

CLIN X002: Over and Above CPFF

CLIN X003: Travel CRNF

BASIC (Not Part of UCA- included upon definitization)

CLIN 0005: Performance Incentive FFP

Total Cost Estimate (UCA and Options)

In accordance with AFFARS 5306.302-1(d) (1(ii), DAS(C) (SAF/AQC) approval is required for FAR 6.302-2 J&A with PoP exceeding one year. The timeline to complete the tasks associated with Band 8 Reactivation will exceed the one year limitation. The timeline to complete the design and building of prototype kits, to include the testing and installation, is estimated to take approximately 24 months, with options built in for an additional two years of CLS and for final approval of the delivered TDP, for a total of four years support (48 months).

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

10 U.S.C. 2304(c) (2), as implemented by FAR 6.302-2, Unusual and Compelling Urgency.

V. Demonstration that the contractor's unique qualifications or nature of the acquisition requires the use of the authority cited above (applicability of authority).

The B-1B aircraft is currently unable to counter certain adversary threat systems. Air Force Global Strike Command (AFGSC)/A5B requested (2 Aug 2017 memorandum with Classified Addendum), the B-1B System Program Office (SPO) AFLCMC/WWD, reactivate the B-1B Band 8 transmitter to provide active jamming capability necessary for accomplishment of B-1B Combatant Command tasked missions. Reactivation of Band 8 transmitter is a prerequisite to meet the referenced JROCM 082-15 requirement. The Classified Addendum of the 2 Aug 17 memorandum contains an explanation of the requirement parameters. These requirement parameters encompass advanced surface to air

March 2018 FOR OFFICIAL USE ONLY Page 5 of 10 missile (SAM) threat systems with associated ground, airborne, and naval variant threat systems and their subsystems. As described above, the supplies and services for the AN/ALQ-161A system are needed at once due to urgency outlined within the classified memo issued on 2 August 2017. As such this effort is being limited to the above cited source to prevent serious injury to the B-1B mission and its operators.

The B-1B, initially fielded in the early 1980's, is a multi-role, long-range bomber, capable of flying intercontinental missions without refueling, then penetrating present and predicted sophisticated enemy defenses. It can perform a variety of missions, including strategic bombing in addition to serving as a conventional weapons platform for theater operations. The B-1B's electronic jamming equipment, infrared countermeasures, radar location and warning systems complement its low radar-cross-section and form an integrated DAS for the aircraft.

The AN/ALQ-161A system is an integrated RF electronic countermeasures system designed specifically for the B-1B bomber aircraft. It is designed to detect and counter all modes of radar-based weapon systems. It also provides a tail warning function to detect and counter incoming missiles from the aircraft sector. The AN/ALQ-161A is a highly specialized system with 12,000+ sub-assemblies. The system has been sustained through a series of hardware and software sustainment projects to incorporate modifications necessary to detect and counter the ever changing threat.

Program Management Responsibility Transfer (PMRT) of the system was accomplished without a complete set of documentation. The PMRT deferred logistics data was never funded, and the DAS was fielded with known data deficiencies and as a result, a technical data package is not currently available to support these changes. As a part of this acquisition, the complete, non-proprietary design drawings will be procured, to include identification of the processes and materials for the items associated with this design. The Government will have sole ownership of this technical data package.

The package will be delivered during Option I of this effort after fabrication of the 18 urgent prototypes. Approval however for full implementation across the B-1B fleet will not occur until the period of performance for this full urgent effort is complete, FY22 (48 months).

A complete replacement of the AN/ALQ-161A was attempted 1992-2002 as Block F of the aircraft Conventional Munitions Upgrade Program (CMUP). The AN/ALQ-161A was in end-of-life status during this time frame, and the Band 8 Driver/Transmitter LRU was the highest sustainment cost driver with high failure rates. Interim Time Compliance Technical Order (TCTO) 1B-1B-1198, dated 15 Sept 2000, removed power for Band 8 Driver/Transmitter resulting in Band 8 active jamming becoming not operational. Utilization of the onboard ALE-50 for threat protection was planned until Block F was operational. Technical difficulties resulted in multiple cost and schedule breaches and the Block F replacement program was terminated in Dec 2002. The AN/ALQ-161A's original end of life was planned for 2040. Based on extensions to the B-1B end of life, the AN/ALQ-161A is currently projected to remain on the B-1B until aircraft retirement currently estimated as 2045+.

Studies indicate the aircraft life could possibly be extended to 2062. Since Band 8 has been turned off, no redesigns, etc. have been fielded to reinstate Band 8 active jamming capability.

The B-1B Major Command (MAJCOM) and SPO have funded multiple risk mitigation study efforts to demonstrate that the DAS architecture is sufficient for modification to effectively counter modern threat advancements. The RF Pulse Processing study, SENSIAC TAT No. SN-12-426, HC1047-05- D-4000, DO 0217, was initiated 27 Sep 2012 resulting in demonstrations, brass boards and prototypes

March 2018 FOR OFFICIAL USE ONLY Page 6 of 10 of the highest risk technology items. The Band 8 Transmitter LRU Reactivation Study, DS-TAT 14-1008, HC1047-05-D-4000, DO 0276, was initiated19 Sep 2014 and demonstrated approximately 25% yield rate for reactivation of the Band 8 Driver/Transmitter LRU, including reactivation of LRU Original Equipment Manufacturer (OEM) factory test equipment. The ECM Study, DS-TAT 15-1143, FA8075-14-D-0018, DO 0004, was initiated 01 Sep 2015 resulting in engineering modification of Band 8 RF Source LRU for Electronic Warfare Avionics Integration Support Facility (EWAISF) and flight test demonstration of JROCM 082-15 capability. The current on-going Band 8 Reactivation Study is Task 6 of FA8075-14-D-0018, DO 0025, and was initiated 03 July 2017. In progress, Task 6 has a 12-month PoP and will develop and deliver Band 8 Reactivation: Deficiency Analysis Report (DAR); Analysis of Alternatives; and Corrective Action Reactivation Implementation Plan. This Reactivation Implementation Plan is the baseline for this reactivation of current Band 8 transmitters work effort.

The following contract and delivery orders are past and current AN/ALQ-161A Engineering study efforts supported by GTARC (NAICS 541330).

CONTRACT ORDER COST PoP

HC1047-05-D-4000 0217 27 Sep 12 - 15 Dec 15

HC1047-05-D-4000 0276 19 Sep 14 - 18 Sep 15

FA8075-14-D-0018 0004 01 Sep 15 - 31 Aug 18

FA8075-14-D-0018 0025 Task 8 30 Sep 16 - 29 Sep 17

FA8075-14-D-0018 0025 Task 14 30 Sep 16 - 29 Sep 17

FA8075-14-D-0018 0025 Task 15 01 Jul 17 - 30 Jun 18

FA8075-14-D-0018 0025 Task 6 03 Jul 17 - 01 Jun 18

FA8075-14-D-0018 0025 Task 4 31 Jul 17 - 30 Jan 19

To date, GTARC has been awarded to conduct deficiency engineering study efforts that include studies and implementation for the ALQ-161A system to continue to operate and/or be survivable while engaged in military operations. Defense Technical Information Center (DTIC) initiated competitive solicitations with subsequent contractor inquiries, but GTARC was the only vendor to submit a proposal. In addition to the urgency of need for the reactivation of Band 8 transmitter and potential harm to the B-1B mission, AFLCMC/WNY believes 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. The Government estimates it would take more than and four plus (4+) years training for another contractor to acquire the expertise and capability to perform the requirements of this effort. This estimate is based on the above identified efforts that have been in work for more than 5 years.

Therefore, sources without detailed experience with the AN/ALQ-161A system, modern threat advancements and electronic countermeasures cannot be qualified in a timely manner to perform the required work effort. Due to the unique expertise gained by GTARC, they are the only source who can perform and/or meet this urgent requirement without resulting in substantial harm to the B-1B mission and its operators.

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Because the Band 8 Reactivation Study was already in work when AFGSC officially requested Band 8 Reactivation, the Integrated Product Team (IPT) is aware of all the necessary actions to ensure the mission need date of Dec 2019 is met. These timelines include design, testing and installation of the prototypes. The time necessary to complete all the required tasks does not allow for normal contracting timelines to take place. To meet the need date of Dec 2019, Mar 2018 has been identified as the latest contract start date to complete all prototyping, testing, delivery and installation of Band 8 LRU's. This plan allows four months for installation starting August 2019. The Government has not received the final Reactivation Implementation Plan being developed under Task 6 of FA8075-14- D-0018, DO 0025, but preliminary findings indicate an unacceptable technical risk to the B-1B mission would result if work is performed by a vendor without detailed technical experience. GTARC is the only known source with direct applicable experience and technical expertise of AN/ALQ-161A systems engineering and integration. GTARC is the only capable source with experience and unique knowledge required to support this contract effort, and complete the design and testing of prototypes for 18 combat coded aircraft no later than Dec 2019.

Accordingly, GTARC is the only source capable of providing the supplies and services described in Section III above without the U.S. Air Force experiencing mission critical harm or injury to the B-1B mission and its operators.

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

Due to the urgency of need, this requirement will not be synopsized on the Federal Business Opportunities (FedBizOpps) website in accordance exception at FAR 5.202(a) (2).

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 determined fair and reasonable to the Government. In accordance with FAR 15.403-4, the contractor will be required to provide 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 materials, other direct costs, and direct and indirect rates will be negotiated by the Government based on recommendations from the Defense Contract Management Agency (DCMA), Defense Contract Audit Agency (DCAA), 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. The UCA portion of this effort will specify a not to exceed amount and the maximum Government liability as required by FAR 16.603-1(d).

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 for this effort over the period of Dec 2017 through Jan 2018. Market Research was completed on 22 January 2018. The market research techniques used are as follows:

The IPT conducted on-going and continual research over the last decade, which consisted of reading electronic warfare trade journals and attending electronic warfare conferences.

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On an annual basis, the IPT has reviewed the last decade of AN/ALQ-161A engineering contracts to identify those vendors with potential technical expertise for accomplishing the work effort. The review identified only one potential vendor with direct Band 8 reactivation experience; GTARC. Four subcontractors contributed to the RF Pulse Processing study and ECM Techniques Study, therefore an evaluation was conducted for these potential vendors. Based on other contract actions, five (5) additional potential vendors were evaluated. These additional five vendors were assessed for their detailed JROCM 082-15, Enhanced Tracker Unit (ETU) and Jamming Technique Hardware (JTH), Band 8 Driver Transmitter and reactivation experience. After all evaluation were completed, GTARC was determined to be the only source with identified direct applicable experience and technical expertise of AN/ALQ-161A systems engineering and integration. The other vendors did not have the required experience and capability to meet the requirements of this effort.

The team performed a Small Business Administration (SBA) Dynamic Small Business Search (DSBS) in search of qualified small businesses that could perform the work. Query criteria used North American Industry Classification System (NAICS) 541330 and general key terms “ALQ-161” followed by “Band 8 driver transmitter” and “Electronic Warfare.” There were no filters applied to the NAICS code so that the maximum number of hits would be identified. The term “ALQ-161” resulted in one hit. The vendor's capability was reviewed but there was no indication they had any experience with ALQ-161, therefore the IPT assessed them as Not Capable. The search return was based on Navy work efforts with other ALQ nomenclature systems. The search term “Band 8 driver transmitter” resulted in a return which did not identify any potential vendors.

The search term “Electronic Warfare” resulted in identification of 104 potential vendors. The information for each potential vendor was reviewed and no vendor was shown to have ALQ-161A or Band 8 driver transmitter experience, therefore the IPT assessed them as Not Capable. Overall, the DSBS queries did not reveal any small businesses capable of accomplishing the required work effort.

A general web search was accomplished to identify potential vendors for the work effort, beginning with the general key term “ALQ-161” followed by “Band 8 driver transmitter.” The web searches were on http://www.bigyellow.com, http://www.gsaadvantage.gov, http://www.testmart.com, http:// www.thomasnet.com and http://www.ism.ws/. These searches resulted in no results of potential vendors.

The first query key term was “ALQ-161” and the second query key term was “Band 8 driver transmitter” with results as shown in the table below. Searches utilizing the two (2) web search tools in the table below yielded no additional potential vendor than those already identified.

Search Site Term # Results Additional Vendors https://www.fbo.gov/ ALQ-161 2 0 http://www.google.com ALQ-161 323,000 0 https://www.fbo.gov/ Band 8 driver transmitter 16,826 0 http://www.google.com Band 8 driver transmitter 3,770,000 0

The webpage https://www.fbo.gov (FedBizOpps) identified two (2) solicitations/pre-solicitations in

March 2018 FOR OFFICIAL USE ONLY Page 9 of 10 response to the “ALQ-161” search term in the past year. The webpage identified 16,826 hits in response to the “Band 8 driver transmitter” search term in the past year. The results did not identify any additional vendors that had not already been identified and evaluated.

The google search identified 323,000 hits in response to the “ALQ-161” search term. The google search identified 3,770,000 hits in response to the “Band 8 driver transmitter” search term. The results reviewed did not identify any additional vendors that had not already been identified and evaluated.

Vendor Survey:

Ten (10) potential vendors were found, contacted via phone and analyzed for the vendor survey. Only one vendor, GTARC, was shown to have the knowledge and critical specialized experience to accomplish the required work effort at an acceptable risk in the time frame required.

These services are not available in the commercial marketplace because the system has a military only application.

Conclusion:

No vendor, other than GTARC, was found to have the knowledge and experience required to support the reactivation of B-1B Band 8 transmitter capability. GTARC is the only source capable of providing the systems engineering, design, development, fabrication, qualification, test, systems integration, flight test support, and fielding installation support associated with the reactivation of the B-1B Band 8 transmitter within the urgent timeline required without negatively impacting the B-1B mission and its operators.

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

None

X. List of any sources that expressed, in writing, an 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 AFGSC memo requested Band 8 Reactivation for 18 combat coded aircraft, which is supported via this J&A request. In addition to outfitting 18 combat coded aircraft, AFGSC requested the program team develop a strategy for implementation of Band 8 Reactivation for the entire B-1B fleet.

There are multiple on-going and future efforts that could support Band 8 Reactivation for the entire B-1B fleet. It is too early to determine the path forward to reactivate the entire fleet. As a part of the short-term requirement to reactivate Band 8 for 18 combat coded aircraft, a reliability demonstration growth test will be conducted to determine the reliability of the Band 8 transmitter with the planned changes for the 18 combat coded aircraft and as indicated above in Section III. A complete, Government owned technical data package (TDP) will be procured as part of that contract action. The information gathered during the reliability demonstration growth test and delivery of the TDP will

March 2018 FOR OFFICIAL USE ONLY Page 10 of 10 allow the Government to compete the fleet wide Band 8 Reactivation effort to the maximum extent possible.

Once this initial effort is completed, the acquisition strategy for implementation of “fleet wide” Band 8 Reactivation will be developed. The feasibility of a full and open competition will be addressed at that time. Completion of the acquisition strategy for fleet wide implementation will be planned no later than FY21 timeframe.

The B-1B aircraft retirement is currently estimated between 2045 and 2062.

XII. Certification by the Contracting Officer.

As evidenced by his/her signature, the contracting officer has determined this document to be both accurate and complete to the best of his/her knowledge and belief.

XIII. Certification by the technical/requirements personnel.

As evidenced by their signatures, the technical and/or requirements personnel have certified that any supporting data contained herein, which is their responsibility, is both accurate and complete.