Redacted_J_and_A.pdf

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

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I. Contracting Activity.

The contracting agency responsible for the proposed contract action is the Air Force Test Center (AFTC), Directorate of Contracting, Specialized Contracting Division (AFTC/PZZ), 5 South Wolfe Avenue, Building 2800, Edwards Air Force Base, CA 93524. The requiring organizational activity for this action is the 412th Test Wing, Test Engineering Group (412 TW/TENG), 812th Airborne Instrumentation Test Squadron (812 AITS). The Contracting Officer for this acquisition is Mr. Craig J. Keelen.

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

The proposed contract is a follow-on to FA9302-13-D-0002 for Instrumentation Configuration, Management, Support and Development (ICMSD) services and supplies which was awarded utilizing other than full and open competition in accordance with Federal Acquisition Regulation (FAR) 6.302-1(a)(2)(iii) to EMC Corporation with a period of performance end date of 30 Sep 2018.

The proposed contract action will result in a Firm-Fixed Priced (FFP), Indefinite Delivery/Indefinite Quantity (ID/IQ) commercial contract with a base period of performance of five years. The anticipated period of performance for the follow-on contract will commence on 01 Apr 2019 and end on 31 Mar 2024. A Technical Option CLIN for software code refactoring/modernization will be priced in this acquisition and has been included in the estimated contract dollar value. Refactoring will improve software code readability and reduce complexity which improves source-code maintainability. EMC Corporation is a large business and is the proposed source for this action.

EMC Corporation 2201 Dupont Dr 500 Irvine, CA 92612

CAGE: 1XL56

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

The ICMSD II program seeks to provide instrumentation support and information technology development/ enhancement services to flight test customers at EAFB and other Air Force agencies specifically for Instrumentation Loading, Integration, Analysis and Display (ILIAD) and data management systems. ICMSD is designed to support data acquisition systems and related applications including recorders, transmitters, transceivers, antennas, and other systems utilizing similar paradigms.

The projected Period of Performance is based on a contract start date of 1 Apr 2019 and ending on 31 Mar 2024, (FAR 52.217-8 will apply). Task/delivery orders will be issued against the basic contract and will be executed IAW the basic contract’s terms, conditions, and Performance Work Statement, as well as each individual order's Statement of Objectives, and any other terms identified in each individual order. The period of performance for each order will vary depending upon complexity and need date, and will be negotiated individually.

The total aggregate not to exceed contract value is estimated at . The contract effort cost by year, with Technical Option for software code refactoring, is estimated as follows:

Year 1 Year 2 Year 3 Year 4 Year 5 Technical Option

Total

This estimate was derived from the requirements of known and estimated flight test programs coming to the AFTC over the next five years. Funding for the efforts will come from those programs as their requirements are refined and the programs are executed. Appropriation types will be 3600 and 3400, with the majority being 3600.

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The requirement described in this document is a follow-on action to previous contracts: F04700-97-D-0053, F04700-02- D-0005, FA9302-07-D-0004 and FA9302-13-D-0002 which expired on 30 Sep 18.

Contract number FA9302-07-D-0004 had a maximum dollar value of $47M and expired on 27 Sep 12. The subsequent contract, FA9302-13-D-0002 had a total maximum dollar value of $22M at time of award. The reduction in value from $47M to $22M (-$25M) was based on removing other DoD entities from ordering off of the contract and authorizing Air Force only orders be executed. Due to higher than originally anticipated test missions estimated at contract award, an additional $11M in value was added on P0008, executed on 14 Sep 17, which increased the total maximum dollar value to $33M.

This contracting action increases the total maximum value by to and estimated maximum dollar value of based on further increases in flight test missions from F-35, KC-46 and future B-21 programs.

The minimum guarantee shall be $100,000 and the amount of each order issued after award of the initial task order will be no less than $2,500 and the maximum amount will be $8M.

The government estimated value of each CLIN is as follows:

CLIN 0001 Products CLIN 0002 Maintenance Services CLIN 0003 System Enhancement & Development CLIN 0004 Training CLIN 0005 Knowledge Management CLIN 0006 Travel CLIN 0007 Contract Data Requirements List CLIN 0008 Technical Option for ILIAD Refactoring

Total

The ICMSD support includes maintenance and operational services, supplies, system enhancements, software/ hardware modification, integration, repairs, manuals, and licenses including legacy systems. The ILIAD design allows different agencies the opportunity to contribute and share information relevant to the design, maintenance, and support of data acquisition systems. The ILIAD system encompasses two core subcomponents and two data management systems as follows:

1. ILIAD Core Subcomponents - Designed to provide tools necessary to manage data fidelity, to program and configure instrumentation components, for pre-flight validation and troubleshooting, and for post-test analysis for airborne and ground based systems.

a. Quick Look System (QLS) - Designed to enable engineers an opportunity to batch process jobs for the conversion of digitized raw data into user specified raw samples or engineering units that can be output into several format types.

b. mViSiion - Software that enables Chapter 10 video players to view multiple channels of video data from an Inter- Range Instrumentation Group (IRIG) 106 Chapter 10 file. The player allows users to move to a time segment, play at different speeds, and save preset window sizes and locations for each of the video displays. Systems operate on Commercial Off-the-Shelf (COTS) computer hardware, data storage systems and associated peripherals.

2. Data Management Systems

a. Odyssey - An enterprise level web application which works with ILIAD meta data information that allows multiple engineers to search, retrieve, and analyze vast amounts of test data quickly and readily from scalable data storage and archive systems.

b. Enterprise Test Data Management System (ETDMS) - Focused on supporting scientific, experimental, and engineering test mission data through the entire life cycle.

The products and services on contract are currently being used by flight test efforts at the AFTC and other AF locations and support various weapon systems and/or platforms used to collect flight test data for weapons systems to include:

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- B-1, B-2, B-52, Bombers;

- KC-46;

- F-16 to include USAF Test Pilot School F-16; F-35 DT EAFB and F-35 OT Nellis AFB;

- Joint Air-To-Surface Standoff Missile (JASSM), Hurlburt Field;

- RQ-4 Global Hawk;

- 412 RANS, 812 AITS/ENI and other activities.

The contractor shall provide all personnel, equipment, tools, materials, vehicles, supervision, other items and services necessary, except as provided as Government Furnished Property, to perform ICMSD related to ILIAD and flight test instrumentation systems operation. This support includes maintenance and operational services; engineering technical services and development; supplies, tools, and equipment; system enhancements and software/hardware modification; integration; emergency repairs; manuals, documentation, and licenses to include legacy systems. Unless otherwise specified, the contractor shall provide COTS products and services as listed in the contract price list, and as outlined in the Delivery and/or Task Order authorized by the Contracting Officer (CO).

Products (Hardware and Software): The contractor shall provide automated data processing equipment (ADPE), computer data center equipment, data network equipment, data center supplies, and ADPE software as listed in price list and as specified in the order. Hardware and software provided shall be the vendor’s COTS products. Products may be assembled or integrated into higher level more complex systems. The contractor may propose new, upgraded, or modified lines of hardware/software for addition to the price list, provided the line is production ready and not in a developmental state. For new, upgraded, or modified lines of hardware/software proposed to replace older, obsolete, or discontinued hardware/software, the contractor shall describe the relationship between the current and proposed.

In order to be added, the contractor shall describe the unique nature of the proposed addition, above and beyond other commercially available similar hardware/software. Warranties shall remain in effect on discontinued hardware/ software and kept on the price list.

Services: Services pricing and delivery terms shall be as listed in the price list unless otherwise specified in the order.

The contractor shall apply professional project management knowledge, skills, tools and techniques to project activities to meet the project requirements. The contractor shall report the project management method and metrics used to manage tasks. The contractor shall perform risk assessments and apply risk management techniques during all stages of task execution. All concerns considered to be High Risk before mitigation action shall be specifically reported to the Government order Point of Contact as soon as practical, and no more than 30 days after discovery.

Services in support of flight test data acquisition, processing, analysis, storage, and in support of the ILIAD software suite (and supported equipment database) including technical support (e.g. answering questions about usage, configuration, suitability, and correct performance of software), software engineering and development, database engineering and development, change control, configuration control, and configuration management of the ILIAD Toolset shall be provided as specified in orders.

Services also include:

- On-site and remote engineering support, maintenance and repair support for databases, software, and hardware;

- Requirements elicitation, documentation, and analysis;

- Database, software, and hardware design;

- Database, software and hardware engineering;

- Database and software development, hardware fabrication;

- Component and system testing for hardware, software, and databases;

- Component and system integration for hardware, software, and databases;

- Component and system installation and start up;

- Hardware, software, and database change management;

- Database, software, and hardware configuration management, and other services to develop and maintain flight test data applications and systems; and

- Training.

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IV. Statutory authority permitting other than full and open competition.

The statutory authority permitting other than full and open competition for this requirement is 10 U.S.C. 2304(c)(1) which states, "The head of an agency may use procedures other than competitive procedures only when the property or services needed by the agency are available from only one responsible source or only from a limited number of responsible sources and no other type of property or services will satisfy the needs of the agency." and as implemented by the Federal Acquisition Regulation (FAR) 6.302-1(a)(2)(ii) and (iii).

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

FAR 6.302-1(a)(2)(ii) and (iii) state that supplies/services may be deemed to be available only from the original source in the case of follow-on contracts for the continued provision of highly specialized supplies/services when it is likely that award to any other source would result in (A) Substantial duplication of cost to the government that is not expected to be recovered through competition, or (B) Unacceptable delays in fulfilling the agency's requirements.

ILIAD is comprised of component software suites operating together as a highly specialized tool-set requiring support be provided under the ICMSD requirement. ILIAD utilizes commercially available software and hardware components integrated to meet the specific needs of flight test operations. This data acquisition solution has developed over many years of flight test evolution. Through prior and current contract services EMC commercial products have been utilized for continued maintenance, technological upgrades, and to expand the overall functionally of ILIAD. In doing so, both software and hardware source code has been modified to ensure the overall functionality and integrity of the system. Arbitrarily replacing any component with that of another manufacturer could result in system errors, unreliability, degradation in function, etc.

Throughout the ICMSD effort, over a hundred diagnostic and development tools have been developed and modernized by EMC.

Engineering services required are only available from EMC due to access to proprietary information and various source code owned by EMC which would need to be accessible to ensure interoperability. Any other contractor would have to obtain access rights to the source code, or subcontract to EMC in order to maintain or deliver working software, adding substantial cost and overhead to the contract to provide the same software and service as EMC. The AFTC believes 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 Air Force's requirements.

EMC has performed this effort as a sole source acquisition for more than 20 years for Edwards AFB, Eglin AFB, and various other DoD agencies. The Government estimates in duplicative costs to re-create this effort in-house. This includes for the cost of the incumbent to continue services, while the government takes this effort in-house at a cost of , purchase proprietary diagnostic tools for and recreate on-site computer laboratory for . Estimate of Duplicative Costs is outlined as follows:

Duplicative Cost Basis of Estimate Cost for incumbent to continue next 5 years (less cost of products) In-house labor projections Purchase of proprietary diagnostic tools Recreate on-site computer laboratory (Total does not include cost of hiring and mission impact.)

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a. Market research indicates there are no other sources capable of providing supplies and services to meet the requirements of ICMSD. Therefore, the Government would have to meet this requirement in-house. To avoid a break in service while creating the on-site capability, the incumbent would need to continue service for the next 5-6 years as validated below, in paragraph e. Based on our IGE, the estimated costs for continued service less the cost of products is .

b. The expertise required for the ICMSD requirement resides entirely with EMC. The Government would have to become familiar with the various systems involved and possible re-engineering of software for integration into existing systems before they could perform maintenance and system enhancements. Based on the current 5 year projection provided by the Air Force using the ICMSD systems, historical engineering and software development experience, in order to bring this capability in-house, the effort would involve hiring 9 people to work side-by-side with EMC, transition to the government, set-up laboratory/facility, development, and validation of the resulting tool-sets.

c. The government has/owns unlimited rights to ILIAD Core, Odyssey and MviSiion, (excluding commercially developed derivative software), and has negotiated Government Purpose Rights on predecessor contracts wtih EMC for the Enterprise-Test Data Management System (ETDMS). The ETDMS development was financed solely by EMC and is required to sustain and validate tool sets.

d. EMC has a developed off-site proprietary laboratory to support development, integration, and validation testing.

The costs needed to set-up an on-site Government computer laboratory would duplicate costs and impact mission support.

e. Additionally, the Government would incur unacceptable delays in various test missions caused by system downtime based on the steep learning curve affecting lifecycle sustainment. It is estimated that the delay would be a minimum of 5 years to become fully competent based on historical, engineering and software development. The estimate is based on CMEs listed in paragraph V.b. and shown in the table below. Specific test programs that would be impacted are F-35, KC-46, F-16, MQ-9 Global Hawk, Joint Air to Surface Standoff Missile (JASSM), and various other programs not yet identified. The delay would primarily be caused by

March 2018 Page 8 of 10 learning the existing code and tool sets, hiring and training the workforce, re-establishment of relationships and contracts with various vendors, developing local laboratories and facilities, and development/validation of resulting tool sets.

Transition Period Phase Basis of Estimate

A - Procure Diagnostic Tools 1.0 Years (Concurrent with Phase B) B - Hire & Train Personnel 1.5 Years (Concurrent with Phase A) C - Laboratory/Facility Set-up 2.0 Years D - Perform Development 2-3 Years E - Validate Results/Tools 0.5 Years

Total 5 - 6 Years

f. The impact and delay to flight test missions can be measured by the time saved in using the ILIAD tool which results in significant savings of manpower during programming, pre-flight, and post flight operations. In the event of a break in service support and discontinued evolutionary upgrades to ILIAD, EMC supports and continually sustains ILIAD, which is a tool that provides an expedient and accurate way of programming all the equipment linked to a system at one time versus programming each data acquisition component individually. The estimated time to program individual components of a flight test system and corresponding ground stations in order to receive accurate flight test data is estimated at hours per flight, depending on mission requirement. These data acquisition systems include recorders, sensor calibrations, and telemetry devices which are integrated and programmed into ILIAD.

Accordingly, EMC Corporation is the only firm capable of providing the supplies and services described in Section III above without the U.S. Air Force experiencing substantial duplication of cost that could not be expected to be recovered through competition. Additionally, the time required to compete, qualify, integrate, and resolve issues related to different vendors would create unacceptable delays fulfilling the needs of the Air Force.

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

A Sources Sought Synopsis (FA9302-18-R-0004) was posted 15 Dec 2017 to FBO, with a response time of 16 Jan 2018 and subsequently extended to 2 Feb 2018. The synopsis provided a section by section summary of the contract PWS.

One written response was received from the incumbent vendor, EMC Corporation and one verbal expression of interest was received by telephone from Smartronix, Inc., but no written statement of capabilities or information was subsequently submitted. In verbal discussions with the representative of Smartronix by the PM it was determined that Smartronix could not support our requirement and that they no longer were interested in proposing.

The Program Manager continually engages with customers on ongoing and projected requirements and seeks potential alternatives to meet requirements; however, EMC Corporation asserts the rights to source code for ILIAD non- Core software, ETDMS software, and EMC Corporation hardware source code. At present, no other entity is capable or responsive to requests for providing required services and supplies presently being provided by EMC Corporation.

Vendors attending the 2017 International Telemetering Conference in Las Vegas, NV were queried as to their capabilities to support the requirements of the contract. Several vendors had expertise and capability to support specific hardware used in flight test data acquisition but could only support their own hardware and software.

This acquisition will require a Notice of proposed Contract Action (NOCA) IAW FAR 5.201. The expected date of publication to the Government-wide Point of Entry is 20 Oct 2018, and is required to be posted at least 15 days prior to the solicitation issuance.

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

The Contracting Officer will determine that costs to the Government will be fair and reasonable by utilizing a combination of proposal analysis techniques as outlined in FAR 15.404-1(b) Price analysis for commercial and non-commercial items. Specifically, proposed product prices and labor rates will be compared to historical prices paid for similar products and services, comparison of labor rates to published labor indexes, and comparison of proposed prices with prices obtained through market research for the same or similar products and services. Additionally, DCAA/DMCA audit and technical support will be requested. Due to this requirement being commercial, the offeror may be requested to provide other than certified cost and pricing data for analysis. A technical analysis will be provided by the Program Manager and will provide technical assistance in evaluating labor mix/categories proposed as well as assisting in the evaluation of items that are "similar to" items proposed.

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 the acquiring activity as follows: Reference the ICMSD Product/Service Market Research Report dated 31 Jul 18.

Summary. Market Research was performed using the following techniques: Internet Searches; Sources Sought Synopsis on FedBizOpps; contacts with vendors at ITC 2017; Search of known sources of similar products and searching government databases.

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

EMC is the original developer of ILIAD. EMC has the experience and knowledge to maintain and alter the system configured specifically for flight test applications. Additionally, EMC has full access to all intellectual property to fully and properly maintain the system. Any other vendor would have to substitute their own hardware and software products, license or otherwise obtain the intellectual property from EMC, or take the risk of attempting to do maintenance on proprietary EMC hardware with their own tools.

This initial cost along with any costs required to invest in a new contractor or for the government to assume knowledge and dedicate manpower for the sustainment of the system would result in risk greatly outweighing any benefits.

X. List of any sources that expressed, in writing, an 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.

Actions addressed in the Justification and Approval (J&A) for FA9302-13-D-0002 included participation in Central Test and Evaluation Investment Program (CTEIP) to develop networked enhanced telemetry instrumentation, (iNet Program). Currently, the time-frame for mature iNet systems and components is at least five years away compared to the 7-10 years identified in the previous J&A. Other actions addressed in the previous J&A remain ongoing.

Legacy hardware still in use will remain proprietary to EMC. It is primarily computing hardware and is likely to have a limited useful lifespan. When the time comes to replace it, those items may be competed on the open market, assuming open market products have the computing capability required at the time. If that is the case, then the proprietary legacy hardware will be replaced. However, there is no guarantee that the new equipment will not itself be proprietary to another vendor. In general, there is no way to assure that hardware of adequate computing power will not be proprietary, especially given the fact that hardware developed on this contract is often custom integrated.

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In an effort to increase future competitive opportunities for this type of equipment and associated support, Government technical personnel shall keep abreast of developments in the technical field by reviewing professional journals, attending technical trade shows, and continually monitoring the existing marketplace.

XII. Certification by the Contracting Officer.

As evidenced by his signature, the Contracting Officer has determined this document to be both accurate and complete to the best of his knowledge and belief.

XIII. Certification by the technical/requirements personnel.

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