JSECTS_2-Yr_Repair_JA_Redacted.pdf

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

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.

Choose the funding level for this J&A Document:

Contracting Activity: AFLCMC/WNKABA

Purchase Request / Local ID Number: FD2060-15-91529

Program / Project (and PE, if applicable): Joint Service Electronic Combat Systems Tester (JSECST) Repair Sustainment

Program Type (PEO or Other Contracting): Other Contracting

Authority (include full title):

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

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

COORDINATION (AFFARS 5306.304(a) )

Date

9 June 2017

Project Lead / Program Mgr / Requiring Activity

AFLCMC/WNAAA,

Signature

Date

9 Jun 2017

Contracting Officer

AFLCMC/WNKABA,

Date

09 Jun 2017

Local Legal Reviewer

78 ABW/JA,

APPROVAL (AFFARS 5306.304(a) )

Date Competition Advocate

AFSC/PZC,

I. Contracting Activity.

This Justification and Approval requests authority for Other Than Full and Open Competition to support requirements generated for Air Force Lifecycle Management Center (AFLCMC)/WNA. The contracting activity for this requirement is AFLCMC/WNKABA. The purchase request supporting this contracting action is FD2060-15-91529.

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

Due to the circumstances described herein, the activity requests authority to acquire 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 the award of a new contract, which will be a

Indefintie Delivery Requirement type contract with a basic year plus one (1) annual option period. This sole source requirement will be purchased from the following company:

AAI Corporation DBA: Textron Systems 124 Industry Lane Hunt Valley MD 21030-3342

CAGE: 97384

Large Business

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

This requirement is for repair services in sustainment of the AN/USM-670/A Joint Service Electronic Combat Systems Tester (JSECST) program. The AN/USM-670/A is a joint service tester that is used on US Air Force and Foreign Military Sales (FMS) aircraft A-10, F-15, F-16, and CV-22. The AN/USM-670 JSECST provides an end-to-end (ETE) functional testing capability to determine the status of an Electronic Combat (EC) system installed in or on operational aircraft. The AN/USM-670/A is an organizational-level flight line test set capable of performing complete ETE testing of Electronic Warfare (EW) systems. There are currently over 150 fielded units. It automatically determines Go/No-Go status of the EC system with minimal technician interaction.

The AN/USM-670/A is only used for military purposes. It has no commercial market sector. The AN/ USM-670/A tests EW systems such as the ALR-69 and ALQ-131, in addition to many other systems.

This requirement includes depot repair of failed Core Test Sets (CTS), including verifying/ troubleshooting operational failure of tester, components and subassembly replacement, component calibration, minor paint repair (touch up), and any other hardware repairs and/or corrosion control to return tester to service in accordance with technical specifications as detailed in the applicable technical orders. This requirement includes installation of retrofit kits as required in accordance with Transcript of Time Compliance Technical Order (TCTO) 33D7-13-229-522 into the National Stock Number (NSN) 4920-01-461-6316KV, part number (P/N) 37534-40001-20 to new NSN 4920-01-618-5101KV, P/N 40469-40001-20 configuration. These services shall also include system calibration, integration and operational verification of core test set. In accordance with Depot Source Of Repair (DSOR) determination, the CTS will be shipped to the vendor for repairs.

Basic Year and one (1) Option:

Contract Period Annual BEQ Est Unit Cost Extended Amount Basic* Option I* Total

* NSN 4920-01-461-6316KV & NSN 4920-01-618-5101KV

The period of performance (PoP) of this effort will be 2 years; a 12-month basic and one annual option.

The PoP is projected to be July 2017 through July 2019 if the annual option is exercised. Operations and Maintenance (O&M) 3400 appropriations will fund the United States Air Force (USAF) requirements and FMS requirements will be by the respective country(s).

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).

The agency's minimum needs can only be satisfied by the highly specialized services and unique qualifications available only from the above cited source demonstrated as follows:

This acquisition is for highly specialized AN/USM-670/A repairs which require knowledgeable expertise of systems and interoperability schemes. The only applications of the USM-670/A are military. The USM-670/A tests specialized EW systems such as the ALR-69 and ALQ-131, among others. There is no technical data available to the Government to facilitate the repair of the JSECST beyond subassembly replacement. The Government has instructional and part breakdown technical manuals available to perform organizational or intermediate level maintenance. The level of repair being addressed in this effort will be beyond organizational or intermediate level maintenance. This acquisition is for the establishment of a specific level of repair that includes knowledgeable expertise of data/drawings/software/firmware not available to the Government. This specific level of repair cannot be performed/duplicated without more extensive technical data (i.e. drawings, schematics, data, etc.) which is proprietary to AAI. AAI developed the JSECST using both Commercial off the Shelf (COTS) and proprietary instruments and software. They possess all ancillary equipment, including CTS which houses the system's control, stimulus, and measurement electronics together with the system's disk drive, power supply, and heat exchanger unit, Remote Measurement Unit (RMU), and Versa Module Europa bus (VME). AAI has an in-house repair capability via the Textron Systems repair depot. Currently, AAI/Textron Systems is the only qualified source that has engineering knowledge/experience on the JSECST, Test Program Set (TPS), and Individual Test Adapter (ITA) hardware and software.

The previous contract number, FA8519-12-D-0001 was awarded to AAI Corporation on a sole source basis. This contract expired on 08 Feb 2017.

AAI has thorough knowledge of the JSECST and can calibrate to resolve any software conflicts presented on the JSECST. Inquiry to sell the technical data was sent to AAI on 08 July 2010. They responded with a quote of . They revised their quote to in 2012. Both responses were not considered due to lack of funds availability and cost restraints. AAI has since revised their position on selling the technical data.

On 20 Mar 2017, they stated, Additionally, Department of Defense (DoD) Automatic Test Set (ATS) Policy, letter dated 28 Jul 2004 and DoD ATS Executive Directorate Master Plan dated 2009 that designates this tester as a “Family of Testers” and is required to be used for testing EW Systems on DoD aircraft. DoD 5000.2 para. 8c (1) (c) 2c also states JSECST “preference for approved DoD Automatic Test Systems (ATS) Families to satisfy ATS requirements". With these references in mind and the fact that the Original Equipment Manufacturer (OEM) owns the proprietary data, we are required to utilize JSECST first to eliminate the proliferation of testers. A waiver through the ATS management board is required before a new tester is allowed to test EW systems.

Reverse engineering is not considered a viable option for this repair effort. It is estimated to take a minimum of three (3) years to reverse engineer the hardware. The most significant impediment to successfully reverse engineering is the firmware that operates the tester which is also proprietary to AAI.

The firmware is considered extremely difficult to decipher is expected to take an additional three years to complete. Based on experience with other less complex test systems such as the PLM-4 Radar Signal Simulator (RSS), ALM-288 Countermeasures Dispenser Tester (CDT), and Common Organizational Level Tester (COLT), a reverse engineering effort is estimated to cost an average of . A reverse engineering effort would include, but not be limited to initial capabilities document (ICD), procurement, production and maintenance level drawings and schematics, creation and delivery of illustrated parts breakdown (IPB), and prototyping/thorough testing of the reverse engineered system. Due to the extensive amount of research and collaboration, the total estimated time required to reverse engineer the AN/USM-670 JSECST tester is 3-6 years. To undertake a reverse engineering effort would greatly impact the schedule and cost of the JSECST program. Additional testing and build of test adapters to facilitate troubleshooting & repair and core software development would take an additional five (5) years to complete before investment could be realized. Due to the time it will take to have a complete stand-up of the reverse engineered solution, there could be potential schedule slips for deploying users' availability to facilitate testing. Based on complexity of the tester, subject matter experts (SMEs) in EW and ATS Policy groups have stated that without data, a reverse engineering effort the JSECST would be high risk. Further, there are no out-year plans to acquire additional JSECST past FY 2021 which also justifies the feasibility of not reverse engineering or procuring the data.

Accordingly, AAI is the only company capable of providing the services described in Section III above without the United States Air Force experiencing duplication in cost and unacceptable delays in fulfilling its requirements.

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

A Request for Information was posted to Federal Business Opportunities (FedBizOpps) (https:// www.fbo.gov/) on 10 Mar 2016 under solicitation number FA8519-16-JSECST with responses due by 11 Apr 2016. The RFI was conducted to identify potential sources that may possess the expertise, capabilities, and experience to meet the requirements for Software Sustainment Support for the AN/USM-670A JSECST. Only two sources responded, but only one (AAI) was determined capable to support this effort.

The other respondent was determined not capable based on the inability to acquire the drawing package and inability to reverse engineer the JSECST.

This requirement will be synopsized on the FedBizOpps website as required by FAR 5.201, citing conditions which preclude full and open competition. It is anticipated that sources having an interest in subcontracting will be identified through the synopsis. Any source who responds to the Government as a result of the 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 certified cost or pricing data to support the Government's evaluation of the proposed cost. The proposed cost elements of labor, labor hours, types and quantities of material and other direct costs, and direct and indirect rates will be negotiated by the Government based on assistance from Defense Contract Management Agency (DCMA) and local pricing 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 on 11 Apr 2016. Market research techniques used are as follows:

It included discussions between Integrated Product Team (IPT) and senior technical members familiar with the vendor's past performance on similar efforts.

RFI FA8519-16-JSECST was posted to FedBizOpps on 10 Mar 2016. It yielded two responses, including one from the incumbent. The Government does not own any of the data; therefore, an in-depth investigation was required in evaluation of the respondent companies by using a Request for Information Responses (RFIR). The RFIR yielded additional information which determined the other interested source could not provide the required hardware support based on their inability to acquire the drawing package or reverse engineer the JSECST.

Internet searches were conducted to identify potential sources. Search terms such as “JSECST”, “USM-670”, “end-to- end tester”, and “O-level tester” were used. Websites used include Google, etesters.com, and GSA Advantage. No company, other than AAI was identified as a result of these queries

Research was performed using the Small Business Dynamic Search (DSBS) engine using the following website: http://www.dsbs.sba.gov. The search criteria included the keyword JSECST and USM-670, but returned no matching hits.

The USM-670/A is only used for military purposes. It has no commercial market sector.

The market research concluded AAI has the technical data, experience, as well as the specialized equipment and facilities required to perform hardware repair for the JSECST.

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.

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.

AAI is the only company with the necessary technical data to currently repair this item for the Government.

As of 20 Mar 2017, AAI stated they are not willing to sell the technical data to the Government.

Due to the extensive amount of research and collaboration required to reverse engineer the AN/USM-670 JSECST tester, it is estimated to take 3-6 years at an estimated cost of to complete such an effort.

This would greatly impact the schedule and cost of the JSECST program, therefore determined not feasible.

The life cycle of the JSECST program is expected to be until 2035. There are no plans to acquire additional JSECST past FY 2021.

To overcome barriers to competition for future acquisitions, the Government will take the following actions:

• The RMC/RMSC screening will be reaccomplished prior to any subsequent buy action.

• Re-engage AAI/Textron Systems on authorizing

XII. Certification by the 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) signature(s) above, I (we) certify that any supporting data contained herein, which is my (our) responsibility, is both accurate and complete.