R2B3_J&A_Redacted.pdf

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

FOR OFFICIAL USE ONLY Source Selection Sensitive - See FAR 2.101 and 3.104

FOR OFFICIAL USE ONLY Source Selection Sensitive - See FAR 2.101 and 3.104Updated: 15 Mar 16

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: AFTC/PZRB, Edwards AFB, CA

Purchase Request / Local ID Number: F1SRQR7018B002/FA9300-17-C-0001

Program / Project (and PE, if applicable): ROSS II BRIDGE III

Program Type (PEO or Other Contracting): PEO

Authority (include full title): 10 U.S.C. 2340(c)(1), as implemented by FAR 6.302 (FAR 6.302-1(a)(2)(iii)(b)), Only One Responsible Source

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

COORDINATION (AFFARS 5306.304(a) )

Date

09 Feb 2017

Project Lead/Program Mgr/Requiring Activity

Sarah A. Weber

AFRL/RQR, (661) 525-5900

Signature

Date

09 Feb 2017

Contracting Officer

Ronda M. Satori-Pauls

AFTC/PZRB 661-277-0053

Signature

Date

09 Feb 2017

Local Legal Reviewer

Martin Obrien

AFTC/JA (661) 277-5920

Signature

Date

09 Feb 2017

Contract Approval Authority

Jeffory L. Mohan

AFTC/PZRB, (661) 277-2101

Signature

APPROVAL (AFFARS 5306.304(a) )

Date

10 Feb 2017

Competition Advocate

Robert C. Menard, Colonel, USAF

AFTC/PK (661) 277-2006

Signature

WEBER.SARAH.A

NNE.1027920507

Digitally signed by

WEBER.SARAH.ANNE.1027920507

DN: c=US, o=U.S. Government, ou=DoD, ou=PKI, ou=USAF, cn=WEBER.SARAH.ANNE.1027920507 Date: 2017.02.09 12:36:43 -08'00'

SATORI-

PAULS.RONDA.M.11547067

Digitally signed by SATORI-

PAULS.RONDA.M.1154706719

DN: c=US, o=U.S. Government, ou=DoD, ou=PKI, ou=USAF, cn=SATORI-PAULS.RONDA.M.1154706719 Date: 2017.02.09 12:39:41 -08'00'

OBRIEN.MARTIN.C.

1039431382

Digitally signed by OBRIEN.MARTIN.C.1039431382 DN: c=US, o=U.S. Government, ou=DoD, ou=PKI, ou=USAF, cn=OBRIEN.MARTIN.C.1039431382 Date: 2017.02.09 13:00:25 -08'00'

MOHAN.JEFFORY.

LYNN.1226016518

Digitally signed by

MOHAN.JEFFORY.LYNN.1226016518

DN: c=US, o=U.S. Government, ou=DoD, ou=PKI, ou=USAF, cn=MOHAN.JEFFORY.LYNN.1226016518 Date: 2017.02.09 13:31:21 -08'00'

MENARD.ROBERT.C.1118264416

2017.02.10 10:00:31 -08'00'

FOR OFFICIAL USE ONLY Source Selection Sensitive - See FAR 2.101 and 3.104

FOR OFFICIAL USE ONLY Source Selection Sensitive - See FAR 2.101 and 3.104Updated: 15 Mar 16

I. Contracting Activity.

Department of the Air Force Air Force Test Center, Directorate of Contracting

AFRL/PZRB

5 South Wolfe Ave., Bldg. 2800

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

PR F1SRQR7018B002

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

This will be a new Cost Plus Fixed Fee (CPFF) follow-on contract FA9300-17-C-0001 (R2B3). This award will provide transitional support from Research Operations Support Services (ROSS II) Bridge II (R2B2) services contract to the newly awarded Aerospace Systems Technical Research & Operations Services (ASTROS) services contract.

The purpose of original ROSS II contract FA9300-11-C-0001 was to evaluate, design, construct, reconfigure, and modify experimental research test facilities and systems; perform research and development test operations/support; and maintain special test equipment and support infrastructure.

The highly specialized nature and scale of testing ranges from small bench-scale liquid engine components and tactical motors to launch booster-class engines and strategic rocket motors require personnel that have a practical knowledge regarding all intermediate devices including combined cycle designs, spacecraft propulsion, and space and missile propulsion system component testing. These tasks require a holistic working knowledge of the systems to ensure successful design, build up and test of integrated advanced propulsion systems and their associated facilities (steam-driven vacuum facilities, facility deluge and fire retardant systems).

History:

The original ROSS II Award # FA9300-11-C-0001 was a hybrid Cost-Plus Award Fee (CPAF), Cost and Firm Fixed-Price (FFP) service contract with a three-year basic and one two-year option with a total value of . The FFP CLINS were only on the original ROSS II contract. The follow-on bridge contracts did not use FFP CLINS.

ROSS II was originally solicited as a competitive best value source selection using the Performance Price Trade-off (PPT) technique in accordance with the Air Force FAR Supplement (AFFARS) Mandatory Procedure (MP) 5315.305 and Informational Guidance (IG) 315.101-1.

At the conclusion of the ROSS II contract, # FA9300-11-C-0001, a full and open competitive award was anticipated for the follow-on ASTROS contract. However, during the re-competition process it was realized that the new award would not be signed prior to ROSS II contract's expiration date. On 09 Feb 2016 a Justification and Approval was signed by Colonel Robert C. Menard, Competition Advocate, Air Force

FOR OFFICIAL USE ONLY Source Selection Sensitive - See FAR 2.101 and 3.104

FOR OFFICIAL USE ONLY Source Selection Sensitive - See FAR 2.101 and 3.104Updated: 15 Mar 16

Test Center Directorate of Contracting approving a sole source award to the incumbent Jacobs Technology Inc. (JTI). ROSS II Bridge I contract, #FA9300-16-C-0002, a Cost Plus Fixed Fee bridging contract with a 6 month period of performance was awarded on 31 March 2016 and expired 30 Sep 2016 with a value of

The Ross II Bridge I contract #FA9300-16-C-0002 allowed for the completion of the re-compete and the award of ASTROS contract #FA9300-16-C-0001 which was signed 30 June 2016.

On 11 July 2016 a protest was filed by the incumbent JTI. When ASTROS Contract #FA9300-16-C-0001 was awarded there were exactly 90 days remaining on the first bridge. CLIN 0001 is for the 90 day transition period, the 90 days start from the effective date of the award.

R2B2 Award #FA9300-16-C-0006 a Cost Plus Fixed Fee bridging contract with a 5 month period of performance was awarded on 28 September 2016, with the POP from 01 October 2016 through 28 February 2017 with a value of . As a result of the sustained protest, the technical team was required to reevaluate the technical portion of the Source Selection Decision (SSD), at this time that evaluation has not been completed. Once the final SSD is reached, it will take several days to complete the paperwork required.

Based on past acquisitions similar to ASTOS the amount of time needed to complete all paperwork and reviews is approximately 30 days. A minimum of 90 days will be needed for transition, as; therefore, a third bridge with a base period of 4 months is needs to be in place for continuity of services. The decision to add the 2 option months is to prepare for any additional delays needed to complete the evaluation and the final SSD paperwork.

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

Under the contemplated contract, JTI will provide services to support a full range of activities to include:

receipt of initial customer requirements, cost planning, facility design and modification, final reporting, and facility recapitalization. Specialized services contribute to the advancement of liquid, solid, spacecraft, hybrid, combined cycle and other space and missile propulsion technologies. Without this service, the Air Force Research Laboratory (AFRL) lacks the manpower and resources to continue test operations valued at approximately $20M per year at facilities and valued over $2.3B Department of Defense (DoD) wide.

The CPFF follow-on contract will be for the same services as outlined in the attached PWS, which is essentially identical to the expiring R2B2 contract, FA9300-16-C-0006. This effort will provide AFRL at Edwards AFB, California, with on-site test operations; as well as personnel who possess superior competence in all aspects of liquid, solid, spacecraft, hybrid, combined cycle and other space and missile propulsion technologies. Due to the limited number of such facilities, mission loss would also reduce the number of active unique national assets available to other arms of the government and industry.

The service will be comprised of a four month base period of performance with two 1 month options to be exercised as needed. This provides the government with the most flexibility to support the AFRL mission to support transition to ASTROS.

The bulk of the funds to be used on this action are 3600 Research & Development funds; however, some 3400 Operation & Maintenance might be used as well.

FOR OFFICIAL USE ONLY Source Selection Sensitive - See FAR 2.101 and 3.104

FOR OFFICIAL USE ONLY Source Selection Sensitive - See FAR 2.101 and 3.104Updated: 15 Mar 16

The delivery dates, period of performance, and estimated costs for each period are outlined below.

Start Date End Date Value Base 1-Mar-17 30-Jun-17 Option 1 1-Jul-17 31-Jul-17 Option 2 1-Aug-17 31-Aug-17

Total

CLIN 0001 Technical Effort: The contractor shall provide personnel and supplies needed to support transition activities - IAW Performance Work Statement.

CLIN 0002 Non DD250 CDRLS: The contractor shall provide data IAW the contract data requirements list

(CDRL)

CLIN 0003 Contractor Acquired Property (CAP)

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

10 U.S.C. 2340(c)(1), as implemented by FAR 6.302 (FAR 6.302-1(a)(2)(iii)(B)), Only One Responsible Source.

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

JTI is the only firm capable of providing the services described in Section III above without the Air Force (AF) experiencing unacceptable delays. The existing service contract, R2B2, was awarded to JTI. A follow-on contract, R2B3, will provide the same type of support that the R2B2 contract currently provides and is the most effective way for the AF to maintain this vital service and transition to ASTROS after the resolution of the protest.

This acquisition is for continued performance of a highly specialized service and JTI has personnel with highly specialized skills, experience, and knowledge to perform the required services. JTI currently provides the AFRL at Edwards AFB, California, with on-site test operations, engineering and technical personnel who possess superior competence in all aspects of liquid, solid, spacecraft, hybrid, combined cycle and other space and missile propulsion technologies as well as experimental test operations, systems integration and analysis. The R2B3 purpose is to evaluate, design, construct, reconfigure, and modify experimental research test facilities and systems, perform research and development test operations/ support, and maintain special test equipment and support infrastructure. The tasks associated with the PWS requirements demand specialized knowledge of all aspects of rocket propulsion testing. The scale of testing ranges from small bench-scale liquid engine components and tactical motors to launch booster-class engines and strategic rocket motors. Practical knowledge regarding all intermediate devices including combined cycle designs, spacecraft propulsion, and space and missile propulsion system component testing will also be required. These tasks require a holistic working knowledge of the systems to ensure successful design, build up and test of integrated advanced propulsion systems and their associated facilities including steam-driven vacuum facilities, facility deluge and fire retardant systems.

JTI has an established workforce on-site that has been fully vetted for security and safety purposes to

FOR OFFICIAL USE ONLY Source Selection Sensitive - See FAR 2.101 and 3.104

FOR OFFICIAL USE ONLY Source Selection Sensitive - See FAR 2.101 and 3.104Updated: 15 Mar 16 provide continued test support and operation services. The current workforce already possesses the required security/safety training, and does not require transition time to attain and meet the current requirements. JTI does not require time to familiarize themselves with RQ-West test operations before submitting the required safety plan. As the government cannot direct the hiring of incumbent employees to a new contractor or a new contractor may not be able to fully capture incumbent employees, JTI is the only firm capable of providing uninterrupted services.

Based on experience a 90 day transition period is needed to get new employees proficient in the support of current AFRL programs. During transition there is reduced productivity, the lower level of productivity can cause delays, which would increase the number of days needed to complete the test activity. Currently there are two; high-risk test campaigns in progress both of which require specific test articles, these articles must be maintained at an extremely high cleanliness level to prevent accidental explosions in addition to maintaining the aggressive facility build-up/availability schedule. These test articles must be maintained even when not in use; therefore, a delay in schedule will increase the length of time these articles will need maintenance, with a historically average of a 60 day delay, the cost of those additional maintenance months would be upwards of $1M causing a duplication of cost.

This follow-on contract is for the same services that JTI currently provides to AFRL under the R2B2 award. A break in service will cause mission loss that would reduce the number of active unique national assets available to government and industry, and will have an adverse impact on the acquisition of multiple programs of record such as Hydrocarbon Boost Program and the Third Stage Rocket Motor Program.

This acquisition has a four month base period of performance with two 1 month options to be exercised as needed. This period of performance provides the government the maximum amount of flexibility to meet the AFRL mission and to also support transition to ASTROS. It is estimated that the ASTROS protest will be resolved during month 1 of the period of performance of this follow-on contract, leaving 3 months for transition. The two additional one month options are in place in case there is another protest on the ASTROS award.

Accordingly, JTI is the only firm capable of providing the supplies and services described in Section III above without the U.S. Air Force experiencing unacceptable delays and duplication of cost.

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

Solicitation #FA930017R0001 a Sources Sought Synopsis seeking engineering and technical personnel who possess superior competence in all aspects of liquid, solid, spacecraft, hybrid, combined cycle and other space and missile propulsion technologies as well as experimental test operations, systems integration and analysis was A was posted 9 January 2017 and remained active for 5 days; the only response received was from the incumbent.

The award will be synopsized on FedBizOpps IAW FAR 5.301(d), via a notice of contracting action (NOCA). A redacted version of the approved J&A will be posted with the NOCA within 14 days of award.

Since the reason for this award is to support a fully competed award, that has a delayed start date due to a protest filed by the incumbent JTI; which, required the awardee to stop work until determination could be made regarding the validity of the submitted protest.

No additional actions will be taken to ensure that offers are solicited from as many potential sources as

FOR OFFICIAL USE ONLY Source Selection Sensitive - See FAR 2.101 and 3.104

FOR OFFICIAL USE ONLY Source Selection Sensitive - See FAR 2.101 and 3.104Updated: 15 Mar 16 practicable for this type of award.

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

The Contracting Officer anticipates that the award of the bridging contract (FA9300-17-C-0001) will be fair and reasonable and best value to the government based upon the following: the government will negotiate with JTI to maintain the rate structure from the existing ROSS II bridge contract, which in turn maintained the rate structure from the previous ROSS II contract. Those rates have already been reviewed and have been determined to be fair and reasonable. If the contractor does not maintain the rate structure from the previous ROSS II bridge contract, the government will perform additional cost/price analysis IAW

FAR 15.404-1.

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 above, market research, in accordance with FAR Part 10, was conducted by synopsis of the proposed acquisition, advising industry of the pending acquisition and soliciting inquiries from interested parties.

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

There are no additional facts.

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.

Since this is a bridge to support the ongoing ASTROS protest there are no actions to overcome any barriers to competition are possible with an action of this type. However all subsequent contracts for the acquisition of the original services will be acquired through a competitive environment.

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.

FOR OFFICIAL USE ONLY Source Selection Sensitive - See FAR 2.101 and 3.104

FOR OFFICIAL USE ONLY Source Selection Sensitive - See FAR 2.101 and 3.104Updated: 15 Mar 16