Redacted_RMCD JA_06252025.pdf

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

CONTROLLED UNCLASSIFIED INFORMATION

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The MFDU contains proprietary software, which receives information from the Versatile Integrated Avionics/Axillary Interface Unit (VIA/AIU) and formats that information into displayable information. Information is received from the DS Computer Software Component (CSC) housed on the VIA/AIU, a proprietary software CSC within the C-5M Operational Flight Profile (OFP). The MFDU can receive 1553B, ARINC-429, and ARINC-708 signaling.

Additionally, the C-5 Galaxy air vehicle platform was developed and produced by in the 1960s. It has been the Air Force's only outsized strategic airlifter since then. In the 2000s, the C-5 System Program Office (SPO) executed two major upgrades to the C-5A/B/C fleet with the C-5 RERP and C-5 AMP, wherein was the prime contractor, bringing the fleet to the C-5 Super Galaxy configuration. The C-5 AMP turned the C-5 from an analog to digital platform, upgrading several systems, including the controls and displays (C&D) subsystem, integrating modern displays, and developing robust software, proprietary to , for the modernization of the C-5. utilized substantial internal processes for documenting these major upgrades, resulting in the complete knowledge of the upgrades being held internally by

Since the completion of the C-5 AMP, has been intimately involved in the upgrade and modification of most C-5 capability enhancements and modifications. While other major defense companies have integrated their own hardware into the C-5, has been required to be involved in each of these upgrades/modifications due to hardware, firmware, structural and mechanical components, and specific data rights issues. Similarly, replacing the MFDUs will present several data rights issues regarding software, mechanical, structural, cooling, wiring, power, and human factors.

developed multiple software components that currently reside in the MFDU and the Core Mission Computer (CMC). The software displays critical safety of flight information.

The systems include the MFDU application Client, Operating System, and Engine Operating System. Furthermore, Display Software services was developed within the CMC to enable communication between the airplane and the MFDU. The replacement of the MFDU would require the development of software currently in the MFDU and the CMC. The Government does not have sufficient data rights to compete the effort, which makes the only candidate to develop the necessary software for integration.

The C-5 Program Office has determined 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 Government's requirements.

Throughout the program history, multiple attempts have been made to obtain Government-purpose rights (GPR) to accomplish the RMCD program organically by requesting to procure the required data rights from Prime Contractor responded in 2003 stating they were not interested in selling GPR, and if they did it would be valued at approximately $ .

The C-5 SPO reached out again to to purchase the data rights in early 2019 but were rebuffed. stated in an official memorandum dated 05 Feb 2019 that they were not interested in providing GPR. The Government requested a ROM on 15 Apr 2019 for data rights and were rebuffed. An additional attempt was made on 06 May 2019 to address specific sets of data to RMCD. Once again, responded with their unwillingness to sell and participate as a subcontractor to another company within the RMCD program. On 13 February

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2023, a Rough Order of Magnitude was sent to requesting an estimate for all technical data used in support of the C-5 aircraft with no data rights restrictions. This includes, but is not limited to, drawings, data tables, models, specifications, software, processes, and procedures, excluding those with licensing rights. responded on 15 February 2023 that they would like to no-bid this request citing justification from previous requests of the same data.

A Specifically Negotiated License Agreement (SNLA) was signed on May 31, 2016, between and the Government further clarifying that the Government does not have sufficient rights for the data required in this program. In addition, the SNLA provides that the United States Government (USG) cannot develop or create �derivative works� except for in certain situations, utilizing certain data, IAW Category IV (Special License Rights Restrictive) and Category V (Special License Rights Partnership). Each of these categories limits the USG's ability to create derivative works. Category IV data does not permit USG to create derivative works and Category V only permits derivative works through partnership with As determined by a legal review performed by RAFB legal office on Jan 2020, the Government is required to partner with for software integration, eliminating the opportunity for other than full and open competition.

a. MFDU Software

MFDU Application Client (MAC)

The MAC for the C-5M consists of a single Computer Software Component Interface (CSCI) residing within each MFDU. Also residing within the MFDU is the MFDU Operating System (MOS) Computer Software Configuration Item (CSCI) and the Digital Engine Operating System (DEOS), which will be referred to later in this section. Each MFDU consists of a single processor executing these CSCIs and one Active-Matrix Liquid Crystal Display (AMLCD) for rendering the cockpit instruments digitally in lieu of mechanical gauges.

The MAC communicates with the system outside the MFDU via the MOS, using vendor-supplied function calls to retrieve the information. MAC software is responsible for processing, parsing, and preparing the data for use by the Graphics Server (part of MOS) and the Graphics Processor. The Virtual Avionics Prototyping System/Computer-Aided Passive Ranging Indicator-generated Dynamically Linked Library portion of the MAC software is used to drive the on-screen graphics that are viewed by the cockpit crew. This functionality is the utmost vital part of the MFDU processing capability, which is based on proprietary software.

The MAC CSCI will receive flight and navigation data from the Display Services (DS) CSCI through the Military Standard (MIL-STD)-1553B bus to the MIL-STD-1553B card that is within MFDU chassis. Each MFDU is capable of displaying any of the six display formats:

Primary Flight Display (PFD), Engine, Navigation, Air Traffic Control (ATC), Maintenance Display (MX), or Caution Warning and Advisory (CWA). The MAC will also receive ARINC-429 data input from the Cursor Control Device (CCD) or Cursor Control Panel (CCP), which is used to allow the crewmembers to command user-selectable menu items on the MFDU and ARINC-708 video data input in order to display terrain or weather radar information, whichever is selected, when the Navigation format is active. On 15 April 2019, the Government attempted to once again procure the necessary data rights required for this application via a Rough Order Magnitude (ROM) request and were denied based on

March 2023 CONTROLLED UNCLASSIFIED INFORMATION Page 9 of 11 program schedule. This estimate is a substantial duplication of cost that cannot be recovered through competition. Assuming that we would save $ ( of a per year effort), there will not be a return on investment from competition. The current service life of the C-5 is 2040.

Lack of technical data and computer source code for multiple LRUs within the RERP system coupled with the prime contractor's configuration control further preclude issuance of the required support for C-5M RMCD modernization to any other contractor.

The is the only source with the background and knowledge of the current C-5 OFP baseline. Also, they possess Restricted Rights to the C-5 core processing source code and documentation, Limited Rights to the hardware data for the VIA/AIU, and multiple developmental and test benches necessary to support an EMD effort.

Accordingly, is the only firm capable of providing the requirements described in Section III above without the U.S. Air Force experiencing substantial duplication of cost that could not expected to be recovered through competition and unacceptable delays in fulfilling its requirements.

A Request For Information (RFI) synopsis was posted to SAM.gov on 8 August 2023, with a response date of 08 September 2023 under solicitation number FA8525-23-RMCDROAR.

The SS/RFI requested responses from interested vendors that possess the expertise, capabilities, and experience to meet qualification requirements for this effort.

Four (4) vendors responded to the SS/RFI. Those respondents were evaluated for their capability and determined to be not capable to meet the requirements of this effort. The incumbent, , was determined to be the only capable vendor.

The requirement will be synopsized on SAM.gov in accordance with 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 subcontracting possibility.

Based upon (1) certified cost or pricing data provided in the offeror's proposal in accordance with FAR 15.403-4; (2) the program office or expert technical personnel analysis of the offeror's Basis of Estimates; (3) inputs from the Defense Contract Management Agency, the contracting officer expects to determine the anticipated cost to the Government to be fair and reasonable.

Market research was completed on 13 September 2023 in accordance with FAR 10.001 and 10.002.

The market research techniques used are as follows:

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As described in Section VI above, a SS/RFI was posted to SAM.gov on 8 August 2023, with a response date of 8 September 2023, to ask vendors about their experience in successfully developing software and integrating a multi-functional display into the C-5M aircraft. Four responses were received and through thorough evaluation, the Government determined that none of the respondents are qualified to meet the requirements of the RMCD program.

Internet searches are used on a consistent basis to research and gain insight into multiple aspects of market research to accrue additional context and data on various aspects of the RMCD program.

The market research concluded is the only vendor capable of fulfilling the Government's requirement.

None.

See Section V above.

While the current market research indicates a sole source environment for , the Government will continue to negotiate/contract for Government Purpose data rights from via the SNLA to compete future modifications.

Furthermore, a requirement to upgrade the CMC is currently in development. The future software architecture of the CMC is being developed in a manner that leverages nonproprietary technologies to foster competition when integrating future modifications into the C-5M. This requirement is still being pursued by the C-5 program office.

The plan to break barriers to competition in the prior J&A was to continue engaging the OEM on selling the TDP to the Government. The plan was completed; however, the OEM continues to decline sell of the TDP to the Government. Based on fulfillment of the prior plan, the current J&A does not require higher level approval in accordance with DFARS PGI 206.304(a)(S-70)(ii).

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