FOE_-_WASP_3_1_ECP_002.pdf

FAIR OPPORTUNITY EXCEPTION (FOE) JUSTIFICATION

I. Contracting Activity

The Contracting Activity for this acquisition is the United States Air Force, Air Force Materiel Command, Air Force Life Cycle Management Center, Airspace Mission Planning Division, Hanscom AFB, MA. This is a Fair Opportunity Exception document. The Procuring Contracting Officer (PCO) for the Weaponeering and Stores Planning (WASP) Delivery Order (DO) under contract number Mission Planning Enterprise Contract II (MPEC II), FA8720-10-D-0003 0003 is Mr. Mark Patten, DSN 845-9753.

II. Nature and/or Description of the Action Being Processed

This FOE Determination and Approval is for the award of an Engineering Change Proposal (ECP) to the existing DO under the MPEC II contract (FA8720-10-D-0001 0003) to be funded with FY14 through FY16 3600 funds and Foreign Military Sales (FMS) funds. This effort incorporates modified requirements to meet the transition from legacy mission planning systems to Joint Mission Planning System (JMPS) F/A-18/EA-18G Mission Planning Environment (MPE). The effort requires:

Additional database updates to support new flight clearances in the Weaponeering and Stores Planning (WASP) application Sanitization of U.S. WASP 3.1, developed under this DO, for release to the Royal

Australian Air Force (RAAF) Sanitization of the database updates for release to the RAAF Increase Period of Performance (PoP) to support government certification testing and integration with the JMPS FA-18/EA-18G MPE

The ECP highlights technical and management tasks associated with the development of new US and RAAF database updates.

III. Description of the Supplies/Services Required to Meet the Agency’s Needs

The MPEC II Multiple Award IDIQ Contract was competitively awarded to five (5) Contractors on 07 June 2010. The MPEC II contract was competed under FAR Part 15. The scope of the MPEC II basic contract includes future mission planning software development, test and evaluation, maintenance, integration, training, and fielding for a ten-year ordering period with a PoP from award to 06 June 2020. The Contracting Officer, Program Manager, and Lead Systems Engineer have determined that the requirements for this effort are within the scope of the MPEC II contract.

The MPEC II WASP Delivery Order (DO) was competitively awarded to DCS Corporation in Alexandria, Virginia on 03 Apr 2012. The original DO PoP (inclusive of all option CLINs) is from contract award through 31 Mar 2014, which is within the scope of the basic MPEC II ordering period. The DO Contract Type is Cost-Plus-Fixed-Fee (CPFF). The total value of the DO is $6.89M. CLIN 0009, EA-18G weaponeering mission planning ($1.12M), was added and awarded 16 July 2012 with ECP 001. Option CLIN 0006, a Database Update version ($362K), was exercised 14 June 2013.

The ECP provides technical and management tasks associated with developing, delivering and updating the WASP DO, a Federated Application hosted on the JMPS FA-18/EA-18G Mission Planning

Environment (MPE) as defined in the Technical Requirements Document (TRD) and the Statement of Work (SOW) for the WASP DO. These tasks include requirements analysis, design, development, integration, documentation, training, test, performance, and delivery as well as update of the WASP application.

The ECP adds requirements by modifying the existing TRD to meet WASP needs (TRD FA8720-10- D-0003 0003, Attachment 2). Additional effort is all related to new WASP requirements. These include:

CLIN 0001-0003: Extend Period of Performance (PoP) from 31 March 2014 to 30 September 2014 for government integration testing of WASP 3.1 into JMPS F/A-18/EA-18G MPE version 3.0.0.

CLIN 0006: Increase the ceiling from $362,039.00 to $440,000.00 to cover the tasking on contract, and extend the Period of Performance from 31 March 2014 to 30 April 2014 for government certification testing of the delivered WASP 3.0.1 Database Update version.

Establish OPTION CLINs updating the WASP databases with latest Interim Flight Clearances data for the WASP 3.0 baseline (versions 3.0.2 – 3.0.4) with PoP to 24 Aug 2016.

Establish OPTION CLINs updating the WASP databases with latest Interim Flight Clearances data for the WASP 3.1 baseline (versions 3.1.1 – 3.1.4) with PoP to 24 Aug 2016.

Establish OPTION CLINs for FMS for RAAF WASP version 3.1 with database update version RAAF WASP 3.1.1 with PoP to 24 Aug 2016. The FMS RAAF WASP versions are U.S. WASP version baselines sanitized for releaseability. No code, logic, data or functionality changes are made to the U.S. baseline versions.

The WASP requirements will be implemented by an integration of existing codes mixed with updates to databases and sanitization of the application for RAAF. The estimate for the WASP requirements, based on similar efforts, is a ceiling of $2.353M and will apply to:

CLINs 0001 - 0003 - WASP 3.1 development Option CLIN 0006 – WASP 3.0.1 development and delivery Option CLINs 0010 – 0023 U.S. WASP database update versions Option CLINs 0024 – 0027 FMS RAAF WASP versions

The work must be completed in concert with other development efforts performed by the Contractor with no disruption of the existing WASP delivery schedule. The PoP for this effort is contract award through to 24 August 2016 and will remain within the PoP of the current MPEC II contract (through June 2020).

IV. Authority Permitting a Fair Opportunity Exception

FAR 16.505(b)(1)(i) requires that the Contracting Officer provide each Contractor under a multiple award contract, a fair opportunity to be considered for each order exceeding $3,000 unless a statutory exception applies. The new WASP requirements are considered a logical follow-on [(FAR 16.505(b)(2)(i)(C)] to the existing WASP requirements.

V. Demonstration of the Contractor’s Unique Qualifications or Nature of the Acquisition Requires the Use of the Authority Cited Above to Provide the Required Supply/Service (Applicability of Authority)

DCS Corporation is the current prime Contractor for the WASP DO. The new WASP requirements will become part of WASP deliverable software. DCS Corporation is already on contract to perform the existing WASP requirements. The new WASP requirements will be tightly interwoven with the existing requirements and must be delivered/fielded in a single software release. The operational need date for the Option CLIN 0006 requirements to be implemented in the WASP software is 30 April 2014, CLINs 0001 – 0003 requirements through 30 September 2014, and Option CLINs 0010 – 0027 requirements through 24 August 2016.

DCS Corporation was the original designer and developer of the WASP Federated Application precursor from 1993 continuing through the current WASP versions in 2013. Their long-term knowledge of all levels of the software code base is critical to meeting the current and future requirements needed by the Mission Planning user community.

DCS Corporation is on contract to deliver a database update release of WASP 3.0 by 30 April 2014 and a release of WASP version 3.1 by February 2014. Version 3.1 is to be delivered before 3.0 due to further integration into an MPE (Mission Planning Environment) and additional Government testing requirements prior to fielding; Whereas Version 3.0 will be fielded immediately upon delivery and Government acceptance. The software code and database update changes are tightly woven into the existing WASP software. Technically, it is not feasible for another Contractor to insert itself in between on-going WASP releases in a cost-effective manner without inducing a very high technical and cost impact to the program. Ramping up a new Contractor at this time would require that the Contractor’s engineers learn hundreds of thousands of lines of unfamiliar WASP code and database tier design and structure, assimilate hundreds of pages of design, use cases, software code and interface documentation with which the incumbent is already intimately familiar. The additional time required to compete this effort among other MPEC II Contractors and get a new Contractor ramped up would add an additional six months to the schedule and cost the Government an additional $1.5M overthe $2.353M ECP amount. This $1.5M estimate was based on an average staff of ten people at an MPEC average development labor rate of $150/hour for six months (not to include management or support staff). The NAVAIR independent cost estimators indicate that historically, it takes six months to one year for a new contractor to ramp up to become proficient with a program comparable in size to WASP (300,000 plus lines of source code, databases, and data scheme). This figure does not take into account lower productivity rates of a new contractor which are typically encountered and would further drive cost.

The WASP-specific requirements in this ECP will be met by reusing and integrating existing software developed by DCS Corporation for use on the current version of WASP, and requires development of new code and databases for implementation, integration and interface of WASP with the FA-18/EA-

18G MPE.

The aggressive schedule is already in place and the overlapping development and software coding and database updates already on contract and the inclusion of the new WASP requirements will make it impracticable, if not impossible, for any new Contractor to accomplish the development and integration without incurring duplicative and additional prohibitive costs.

VI. Description of Efforts Made to Ensure Competition between all Awardees

In accordance with FAR 16.505(a)(1), orders under indefinite-delivery contracts do not have to be synopsized. Paragraph V, above, justifies why competition among all awardees is not possible for this acquisition.

VII. Determination by the Contracting Officer that the Anticipated Cost to the Government Will Be Fair and Reasonable

DCS Corporation will be required to provide certified cost or pricing data due to the value of this effort exceeding the certified cost or pricing data threshold. The pricing will be evaluated and compared with the Defense Contract Audit Agency (DCAA) rates. The final contract price will be evaluated and negotiated by the PCO in accordance with FAR Part 15 to ensure the ultimate cost to the Government is fair and reasonable.

VIII. Description of Market Research Conducted Among All Awardees and the Results or a Statement of the Reason Market Research Was Not Conducted

Based on Market Research, no other offeror can satisfy the WASP requirements. A competitive RFP was issued to the five MPEC II contractors and DCS Corporation was selected as the best choice to fulfill the WASP requirements. Competing this work and possibly awarding to a new contractor would introduce unacceptable delays and technical risk into the program. See paragraphs V and VI above.

IX. Other Facts Supporting the Justification

None.

X. List of Any Awardee That Expressed Interest in the Acquisition

Northrop Grumman, the Boeing Corporation, BAE Systems, Lockheed Martin Integration Systems and Solutions, and DCS Corporation all had an opportunity to compete for the initial WASP DO.

XI. Actions the Agency May Take to Remove or Overcome Any Barriers to Increasing Fair Opportunity before Any Subsequent Acquisition for the Supplies or Services

The WASP software suite is classified and cannot be posted to Mission Planning Central (MPC). The WASP software was mailed via classified mailing methods to each potential bidder for evaluation purposes on the original delivery order . This same methodology will be followed for each subsequent competitive event. Future major WASP development efforts will be competed, and an RFP will be posted on MPC or made available to all competing contractors.

XII. Contracting Officer’s Certification

The PCO’s signature on the Justification for Exception to Fair Opportunity evidences that he has determined this document to be both accurate and complete to the best of his knowledge and belief.

XIII. Technical/Requirements Personnel’s Certification

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