CRIIS_JA_-_20_Apr_2015.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:

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

Contracting Activity: AFLCMC/EBYC, Eglin AFB FL 32542

Purchase Request / Local ID Number: F1TEBS5251B001

Program / Project (and PE, if applicable): Common Range Integrated Instrumentation System (CRIIS) Modification, Integration, and Support IDIQ

Program Type (PEO or Other Contracting): PEO

Authority (include full title): 10 USC 2304(c)(1), as implemented by FAR 6.302-1(a)(2)(ii)

Estimated Contract Cost (including options): $83,000,000.00 J&A Type: Class Individual

COORDINATION (AFFARS 5306.304(a) )

Date Program Manager

Signature

Date

16 Nov 2015

Contracting Officer

Date Local Legal Reviewer

Date

19 Nov 2015

Competition Advocate

APPROVAL (AFFARS 5306.304(a) )

Date PEO SHAUN Q. MORRIS, Brig Gen, USAF

AFMC AFLCMC/EB

MORRIS.SHAUN.Q.105

5540000

Digitally signed by MORRIS.SHAUN.Q.1055540000 DN: c=US, o=U.S. Government, ou=DoD, ou=PKI, ou=USAF, cn=MORRIS.SHAUN.Q.1055540000 Date: 2015.11.23 12:34:16 -06'00'

I. Contracting Activity.

The Air Force Materiel Command, Air Force Life Cycle Management Center, Armament Directorate, Test and Training Division, Common Range Integrated Instrumentation System (CRIIS) Program Office (AFLCMC/EBYC), 102 West D Ave, Suite 5, Eglin AFB FL 32542 is the contracting activity for this Class Justification and Approval for Other Than Full and Open Competition.

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

This Class Justification and Approval (J&A) supports a new Indefinite Delivery/Indefinite Quantity (IDIQ) contract for supplies and services to modify, integrate, and maintain CRIIS (further described in Section III) in support of Test and Training Division requirements to be issued on a sole source basis to Rockwell Collins, 400 Collins Road NE, Cedar Rapids, IA 52498. The five year ordering period covered by this class J&A is anticipated to be from FY16 through FY21. The Government primarily anticipates Fixed Price (FP) and Cost Reimbursement (CR) contract types to support, integrate and potentially modify the CRIIS although Time and Materials (T&M) may also be considered, depending on the requirement. The estimated value of this contract is $83M with an anticipated award date of April 2016.

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

The Department of Defense (DoD) has a critical requirement to provide Test and Evaluation (T&E) Time, Space, Position Information (TSPI) instrumentation to support the testing of a variety of advanced, highly classified weapon systems and platforms, including advanced aircraft. The CRIIS meets this requirement and provides increased data capacity, sub-meter TSPI accuracy and faster data update rates, along with enhanced system encryption and common configuration across all of the test ranges. The CRIIS will replace the aging Advanced Range Data System (ARDS) on the Air Force, Army, and Navy T&E ranges.

The primary purpose of the anticipated contract is to satisfy the Government's requirements for the following supplies, not covered under the existing contract vehicles: modification and integration of CRIIS, including design, development and testing of system and block upgrades, software updates required for effective use of the CRIIS at the major Department of Defense (DoD) test ranges, upgrades/updates to associated support and test equipment, and integration of CRIIS elements/ subsystems with other Government systems, networks, and range sensors/systems while ensuring existing and verified System Performance Specification (SPS) requirements are retained. In addition, the delivery orders awarded under this contract may also include additional spares/kits, obsolescence and technology refresh, and retrofits.

The Contractor may also be required to provide the following supply and/or services, not covered under existing contract vehicles, in support of the CRIIS that include Government directed repairs, technical and logistic support, associated travel, software maintenance, technical data as well as support/conduct special studies, investigations, analyses and certifications, as directed by the Government and maintain CRIIS in accordance with the SPS and existing program strategies.

Of utmost importance to this strategy is the requirement for continued contractor responsibility to develop, deliver, and sustain a CRIIS that is fully integrated and readily available, and common for all DoD ranges to include strict configuration management and performance.

This contract will be funded by all CRIIS stakeholders, depending on the requirements. OSD funding will consist of Research, Development, Test and Evaluation (RDT&E) appropriations, with the possibility of other stakeholders (US Army, US Navy and US Air Force) providing additional valid appropriations (possible RDT&E, O&M and Production) based on type of requirement. The maximum value of all contract actions awarded under this class J&A is $83M.

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

10 USC 2304(c)(1), as implemented by FAR 6.302-1(a)(2)(ii)(B), Only One Responsible Source And No Other Supplies Or Services Will Satisfy Agency Requirements, as required by FAR 6.303-2(b)(4).

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

1. The CRIIS is a non-ACAT, OSD Test Resource Management Center (TRMC) project under the Central Test and Evaluation Investment Program (CTEIP). The current CRIIS contract FA8678-10-C-0058, covered under a separate J&A, was awarded in 2010 and includes Engineering and Manufacturing and Development (EMD) and pre-priced options for Interim Contractor Support (ICS), Contractor Logistics Support (CLS), initial spares, and three lots of production. This effort is a follow-on contract for continued modification, integration, and support of highly specialized equipment, with $250M expended to date. The CRIIS system, currently near EMD completion, was developed by Rockwell Collins to replace the obsolete ARDS currently in use at the United States Army, Navy, and Air Force T&E ranges. In developing the CRIIS system, Rockwell Collins integrated existing Rockwell Collins technology/design with new development to provide the most affordable product to the Government. Obtaining the required technical data for these proprietary technologies would be of limited value without the knowledge and experience required to efficiently digest and utilize the data.

CRIIS is a highly specialized, fully integrated T&E instrumentation system that provides significantly enhanced real-time TSPI capability for high dynamic aircraft. CRIIS unique attributes include enhanced data transfer flexibility, control, and transmission capabilities including increased data capacity with a spectrally efficient datalink, increased sub-meter TSPI accuracy and faster data update rates under high-dynamic conditions. CRIIS depends on component miniaturization and modularity for better internal mounting flexibility, standardization of interface protocols and an open architecture to support flexibility. One of the key capabilities of CRIIS is enhanced system encryption using National Security Agency (NSA) certified multiple independent levels of classification (MILS) Type 1 encryption device, otherwise known as KOV-74, enabling simultaneous operations at up to four (4) different classification levels. The KOV-74 integrated with a high assurance data guard provides a complete, state-of-the art, MILS distributed security architecture. At the core of the KOV-74 is the Rockwell Collins proprietary MILS capable Janus multichip module (MCM), which underwent a separate NSA certification accomplished by Rockwell. The KOV-74 provides a much needed MILS capability for 5th generation aircraft and other highly classified programs.

CRIIS is compatible with legacy aircraft (F-15, F-16, and F-18) as well as advanced, 5th generation, aircraft (F-22 and F-35).

The equipment that performs these functions is grouped into two segments: the Participant Package (PP) and the Ground Subsystem (GS). PPs include the Configuration 4 pod (light and heavy); the Configuration 5 liquid cooled 2-box internal mount (IM) for F-35 and F-22; and the Configuration 6 1-box IM for legacy fighter aircraft. The GS consists of one or more CRIIS Control Centers, Mission Room Equipment, Remote Ground Stations with optional Reference Receivers, and associated network and support equipment (e.g., ground guards, cryptographic keying equipment, etc.). Additionally, a Portable Test Set (PTS) is used to maintain and troubleshoot CRIIS equipment.

The requirements to be awarded on this contract are considered to be highly specialized since detailed knowledge of the baseline CRIIS design and performance and the field and range infrastructure and networks are required in order to perform each task. Additionally, robust experience with the state-of-the-art NSA certified MILS encryption technology is required to ensure appropriately secured transmission of classified and unclassified data during system performance. Therefore, this acquisition will be for a follow-on contract for the continued development, modification, and repair and support of highly specialized equipment.

2. The CRIIS system is supported by the Rockwell Collins manufacturing facilities, a CRIIS System Integration Laboratory (SIL) and depot, which are uniquely capable of supporting development, repairs and sustainment, and integration of CRIIS with other Government systems and platforms. The contractor has developed specialized test equipment to support verification of CRIIS performance and acceptance test for production. Rockwell Collins has appropriate supply chain management capability and maintains key relationships with vital suppliers while also employing engineering and program management personnel who possess the unique expertise to efficiently support continuous improvement, configuration management and other efforts. During pre-award planning of the CRIIS Phase II contract, the Government chose not to purchase license rights for the technical data required to competitively procure the requirements of this J&A due to the short production schedule length. The contractor provided technical expertise in support of the four-year process to certify the KOV-74 End Cryptographic Unit (ECU) and the Janus MCM while also possessing the required knowledge of the NSA certification requirements to implement any necessary changes to the ECU or related functionality that other vendors do not possess. In addition, Rockwell Collins has achieved Manufacturing Readiness Level (MRL) 7 and is on track to achieve MRL-8 before the end of EMD. Rockwell Collins gained significant experience during the transition from design to production, given that the contractor had to resolve many complex technical difficulties and included termination of a major subcontractor. This technical growth period uniquely prepared Rockwell Collins to support the Government’s integration and modification requirements. Under the current contract, Rockwell Collins has system performance responsibility of the CRIIS during ICS and CLS and configuration control for changes below the System Performance Specification (SPS) level. Awarding the follow-on effort to a vendor other than Rockwell Collins would create inconsistencies in the product baseline and require modification to the existing contract resulting in additional delays as described in the next paragraph.

3. The CRIIS Program Office believes that award to any other source would result in unacceptable delays in fulfilling the DoD T&E requirements. The CRIIS was developed under an evolutionary strategy in two phases. Phase I, Risk Reduction and Technology Maturation, was awarded, after full and open competition, to two separate contractors. Each of the two contracts were valued at approximately $40M and allowed for 24 months of development effort. After a competitive down select, the Phase II contract for EMD with additional FFP options for spares, ICS, CLS, and three production lots was awarded to Rockwell Collins in 2010. The CRIIS development effort (EMD) is expected to finish in June 2016. There are no indications that any firms other than Rockwell Collins have developed comparable, mature technologies critical to the CRIIS, such as NSA certified MILS encryption device and sub-meter TSPI technology under high dynamic conditions. The nature of this IDIQ contract requires quick turn procurements to maintain efficient use of the system and to satisfy emerging T&E requirements and unplanned maintenance requirements, such as user induced failures. Award to any other source would require additional time to develop an equivalent level of capability, causing an unacceptable delay of approximately 24 months for simple tasks and possibly exceeding 48 months for complex efforts, in addition to the 12-18 months needed to conduct a competitive acquisition. The total schedule impact for developing a new competent supplier is further exacerbated by two additional elements: (1) the majority of tasks awarded under this contract are expected to have duration of 12-18 months and (2) introducing a second source vendor which overlaps the existing Rockwell Collins design in Contract FA8678-10- C-0058, extending through 2025, would lead to multiple production and fielding configurations, and could not be sustained under the existing ICS/CLS options. The current contract contains the EGLIN-H001 clause outlining Rockwell Collins accountability for system performance and for the design and control of the allocated and product baselines. Introduction of differing configurations from any other contractor would diminish the effectiveness of this requirement and would increase support costs for the system. The indicated timeframe is based on: (1) the time required for a secondary contractor to understand CRIIS technologies and interfaces; (2) obtain required expertise addressed in subsection 2; (3) reverse engineer CRIIS due to non-availability of technical data and source code; (4) build and qualify/test first article and/or (5) obtain new security certifications and accreditations depending on the requirement in accordance with the system performance specifications. Due to the integrated nature of the system, even a seemingly simple change would require an extended time to test/implement. Several projects are slated to be procured on this IDIQ and any delay for a contractor to acquire the necessary data and experience to perform these requirements would result in an inability to meet the required need dates.

In addition, the certification and accreditation of the system depends on rapid generation and implementation of urgent actions, as required. Any delays would result in jeopardizing weapon systems testing needed to support warfighter needs.

Awarding this follow-on contract to another vendor would introduce very high risk to the Government and would make it very difficult to maintain all CRIIS certifications and a common configuration of the system.

4. Accordingly, Rockwell Collins is the only firm capable of providing the highly specialized supplies and services described in Section III without the U.S. Air Force experiencing unacceptable delays in fulfilling its requirements.

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

The CRIIS program office released a Sources Sought Synopsis/Request for Information (RFI) notice (Solicitation Number FA8678-CRIIS-15-0TBD) on FedBizOpps on 6 May 2015 to determine potential sources capable of performing the requirements of this contract. In response, five vendors submitted their Statement of Capability (SOC) to the Government on 22 June 2015.

The companies that responded to the Sources Sought/RFI were: Rockwell Collins, Cubic Defense Applications, Inc., Lexycom Technologies, Inc., Colorado Professional Resources, LLC, and Aerospace Engineering and Research Associates, Inc.

expressed interest to participate as a prime contractor or subcontractor, while expressed interest primarily as a subcontractor.

Upon receipt, the CRIIS technical team reviewed each SOC to determine the scope of the response in comparison to the posted Sources Sought and conducted evaluation in nine separate capability areas. Each of the areas was assigned a color

(red, yellow, or green) depending on the knowledge, experience, and risk. A red rating was assigned to areas where "little or no demonstrated knowledge or experience" was shown, or where "high risk to cost and/or schedule" existed, such as lack of experience with NSA certified MILS encryption and technology. A yellow rating was assigned to areas where companies had "demonstrated knowledge and experience with comparable systems," but had a “significant risk to cost and/or schedule” due to the known constraints such as no access to the appropriate technical data and source code for CRIIS. A green rating was assigned to areas where the vendor "demonstrated knowledge and experience with the CRIIS technology or system" and where "low risk to cost and/or schedule" existed. Only Rockwell Collins had a proven capability in all nine evaluation areas, including a certified MILS encryption technology; all other vendors were rated red in that highly specialized area of capability. Therefore, the technical evaluation of the sources listed above found only one capable source, Rockwell Collins.

Furthermore, the remaining vendors would require significant time to acquire necessary expertise, reverse engineer the existing system, and be able to obtain required certifications to satisfy the requirements described in Section III, resulting in unacceptable delays to the program.

Additional market survey information from professional periodicals, web search, and industry contacts was also used. The US Navy Tactical Combat Training System (TCTS) Increment II was also reviewed to identify additional sources, as the TCTS Increment II system is similar in nature to the CRIIS. This additional market research did not identify any additional sources capable of supporting this follow-on effort for CRIIS.

For the contracting actions contemplated by this approval document, a Notice of Proposed Contract Action Synopsis will be issued in accordance with FAR Part 5.201 and the PCO will consider any responses received.

VII. Determination by the Contracting Officer that the anticipated cost to the Government will be fair and reasonable.

The Contracting Officer will ensure that the negotiated final price/costs of the contracting actions awarded under this J&A shall be fair and reasonable to the Government in accordance with guidance contained in the Federal Acquisition Regulations and its respective supplements. A traditional pricing approach will be used by AFLCMC/EBYC to determine whether prices are fair and reasonable to include the following measures: Cost or Price Analysis; Technical Evaluation addressing technical data packages, specifications, engineering descriptions, SOW or SOO; Certified Cost or Pricing Data evaluation IAW FAR 15.403-4, DCAA analysis, historical actuals analysis, and rate analysis IAW Forward Pricing Rate Agreement (FPRA) and/or Forward Pricing Rate Recommendation (FPRR).

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

As described in Section VI, market research, in accordance with FAR Part 10, was conducted by sources sought synopsis of the proposed acquisition, advising industry of the pending acquisition and soliciting inquiries from interested parties.

Additional research and examination of previous acquisition history was also conducted and has shown that Rockwell Collins is the only contractor who possesses the technical knowledge and experience to accomplish the CRIIS efforts without unacceptable delay to the Government. This market research provides a high level of confidence that no other qualified sources exist and no alternate equipment or substitutes can fill the government’s needs with only minor modification.

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

The program office does not intend to buy technical data from Rockwell Collins for reprocurement purposes, as the expected return on investment for the limited quantities to be procured for this system is not cost effective. The CRIIS program is currently in EMD phase, with three optional production lots yet to be awarded. The program office also has ICS/CLS options on current contract, during which Rockwell Collins is fully responsible for system performance in accordance with the SPS and the CRIIS acquisition strategy approved in 2007. Introduction of a second contractor may require SPS revisions which would most likely require a modification to the currently negotiated option prices resulting in increased sustainment costs.

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

See Section VI.

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.

Section XI of the CRIIS J&A signed in March 2010 in support of the current contract asserts that CLS will be re-competed after the initial CLS period of performance. This statement remains in effect; the Government plans to award the option for the initial CLS in May 2020 which will extend through 2025. In the event the Government has additional requirements beyond those stated in this class J&A, the Government will perform market research, as required by the Federal Acquisition Regulation, to support those future acquisitions. Based on the results of that research, the Government will determine whether a business case exists for pursuing competition at that time.

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.