JandA_VISTA AIRFRAME_FA930421R0002 CompAdvSigned_Redacted.pdf

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

Controlled Unclassified Information (CUI)

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I. Agency and Contracting Activity.

The contracting organization that is responsible for the proposed contract action is the Air Force Test Center (AFTC), Directorate of Contracting, Installation Contracting Division, AFTC/PZI, 5 South Wolfe Avenue, Edwards AFB, CA 93524-1185. The Contracting Officer for this acquisition is Mr. Thomas J. Shea.

This is a Justification for Other than Full and Open Competition. The Purchase Request (PR) number for this acquisition is F1STAB5068B001. The requiring activity is the United States Air Force Test Pilot School (USAF

TPS).

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

The proposed contract action will result in a new Cost Plus Fixed Fee (CPFF), and Cost Reimbursable (CR) Indefinite Delivery/Indefinite Quantity (ID/IQ) contract to provide Variable Stability In-Flight Simulator and Test Aircraft (VISTA) Airframe and support services for USAF TPS. This acquisition will be procured under the purview of FAR Part 6.302-1(a) (2); only one responsible source and no other supplies or services will satisfy agency requirements. The proposed source is: Lockheed Martin Corporation (LM Aero), 1 Lockheed Blvd, Fort Worth, Texas 76108-3619. LM Aero is a large business with a CAGE Code of 81755. The period of performance will be 01 Jan 2022 - 31 Dec 2026. There will not be any priced options on this acquisition.

III. Description of supplies/services required to meet agency needs (including the estimated value).

The requirement is to directly support the VISTA and curriculum for the USAF TPS at Edwards AFB, CA. The VISTA is a critical part of the TPS curriculum.

Support services for the VISTA include: engineering support, test management support, documentation support, logistical support, Aircraft Structural Integrity support and special project support. This support will provide mission essential information and support for the Variable Stability In-Flight Simulator Test Aircraft (X-62A, previously called VISTA NF-16D) and TPS curriculum.

This is a non-commercial service effort. Support will include the following:

CLIN 0001 - VISTA Engineering Support Services Engineering support includes aircraft systems, flight controls, instrumentation support, avionics systems work, troubleshooting, EMC2 box support and software integration for curriculum support and test bench support. Logistical support includes supply and/or repair of non- standard parts associated with VISTA.

Special projects consist of flying qualities, systems, and performance qualities support to include, but not limited to student Test Management Projects (TMPs), staff projects, and hot bench support and simulator operations. Documentation support will consist of aircraft Time Compliance Technical Orders (TCTOs) review, prioritization of previous editions and development of future VISTA/F-16 TCTOs. Contractor shall provide documentation as required to support basic aircraft systems, flight controls, instrumentation and avionics system, and all applicable F-16 structures. Logistical support will consist of repair of non-standard parts. F-16s utilized by TPS may require non-standard supply items: spares, spares parts, system/ subsystems, and other equipment not stocked, stored, issued, maintained or otherwise bought for regular use by the USAF (such as VISTA's Digital Flight Recorder or the General Support Fleet Data Acquisition System F-16 beta vanes). Aircraft Structural Integrity Program Maintenance (ASIP) will consist of ongoing support for VISTA's modified structures inspections. This is usually a combination of software development an direct support on the aircraft to ensure the integration works properly. They also support

March 2020 Controlled Unclassified Information (CUI) Page 3 of 7March 2020 Controlled Unclassified Information (CUI) Page 3 of 7 the various meetings with the students to ensure they understand what changes they made to the existing software. Many times the students will travel to Fort Worth to operate the system in their flight simulator in order to get a better understanding and point out bugs in the system. The average time used on this contract is approximately 2,000 hour per year. The breakout is approximately one to one, 1,000 hours for software development and 1,000 for test support.

CLIN 0002 - Special Projects Contractor shall provide engineering and documentation support to investigate, determine the feasibility of and execute specific projects for the TPS. These projects will be conducted in support of curriculum development, student Test Management Projects and staff projects. Due to the expanding complexity of TMP, USAF TPS has been partnering with AFRL, DARPA, AFIT and others to ensure TPS has quality projects for the students to test. Projects are becoming more and more complex. With this comes the added burden of being able to fund these projects. Over the past four years USAF TPS has used this contract as a vehicle to support the organizations listed above through LM Aero in order to develop software for flight test.

CLIN 0003 - Travel Contractor shall participate in program reviews, technical interchange meetings (TIMs), and test and planning working groups (TPWGs) and ASIP reviews and meetings as required. Travel mix is not anticipated to change from the current VISTA Airframe Support Contract. Estimates are based on 20 2-men, 5-day trips to Edwards AFB, CA and 10 2-men, 5-day trips to Hill AFB, UT.

The total estimated ID/IQ contract independent government cost estimate (IGCE) value is $13,240,738.

The estimate is based on historical information, an increase to historic support levels based on the projected TPS curriculum requirements (i.e., increased engineering support for flying qualities development, increased program support) and a labor escalation factor of . The value increase and continued use of a cost-type contract from previous VISTA Support contract efforts is due to the anticipated ramp up of special projects / outside customer funding. Special Project Support in CY17 through CY21 has increased significantly ( spent on Special Projects in CY16 v. spent on Special Projects in CY21), supporting the TPS VISTA VSS NexGen program during this timeframe. The proposed increase in value for this follow-on is due to the expanding complexity of the Test Management Projects (TMP) through partnerships with AFRL, DARPA, AFIT and others to ensure TPS has quality projects for the students to test. The type of appropriation that will be used is 3600 (RDT&E) and 3400 (Operational) monies. The period of performance will be 01 Jan 2022 - 31 Dec 2026.

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

The statutory authority permitting other than full and open competition is 10 U.S.C. 2304(c)(1), as implemented by FAR Part 6.302-1(a)(2)(iii)(B), which states, “For DoD, NASA, and the Coast Guard, 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 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. (See 10 U.S.C.2304(d)(1)(B).)”

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

The VISTA supports three of the four phases of the USAF TPS curriculum (Systems, Flying Qualities and Test Management). VISTA provides research and development, evaluation, and in flight simulation capabilities for guidance, navigation, and control systems and cockpit display research and development. By using VISTA, the entire aerospace vehicle system (which includes simulated aircraft dynamics, guidance, navigation, flight control laws, ground stations, communication links, etc.) can be tested in a real world flight environment without risking an actual test vehicle, compromising test results and provide students higher learning objectives.

A delay or break in service would create a significant mission impact in unacceptable delays of fulfilling TPS requirements. VISTA is used for student curriculum sorties and to support flight research through the TPS Test Management Projects and for support of the AFRL Skyborg Vanguard program. This contract is necessary to perform any engineering changes required of VISTA to support the efforts listed above. The contractor is required to do engineering and safety analysis on the VISTA airframe to ensure that the vehicle is safe and flight worthy. Further, the contractor supports the added Security Access Control System on the aircraft, which is vital to use on the Skyborg and any future autonomy research programs.

Without the contractor actively engaged with VISTA USAF TPS is unable to determine vehicle safety impacts to flights proposed on VISTA, and TPS is unable to be an active participant in autonomous aircraft flight test programs such as the Skyborg program.

The main value to USAF TPS for flying qualities is the individual effects of flight control system design trade-offs in a back to back manner and wholesale differences can be demonstrated. The value is not just in seeing all the differences between aircraft X and Y, but also in seeing the difference of just one characteristic, and then another. With VISTA, the USAF TPS has an in-flight flying qualities laboratory/class room that allows training of students to test the flight controls for aircraft of the 21st Century like the F-35 Joint Strike Fighter and F/A-22 Raptor.

The requirements of the USAF TPS in the area of engineering, documentation, logistic support and special projects, are critical and mission essential to support the curriculum established for test pilot training. The services supplied will be beneficial to VISTA as it will shorten maintenance turn-around times, provide USAF TPS students and staff increased availability of the aircraft, and thereby improve overall support of the USAF TPS curriculum. The F-16 Program Office mandates aircraft structural and avionic requirements as needed for an aging fleet. Modifications to aircraft configurations (structural and/or systems) may be required for VISTA therefore; systems may need to be modified and drawings updated as applicable. As the manufacturer of VISTA, one-of-a-kind research aircraft, LM Aero is the only organization that has the technical expertise for the highly specialized support required to support VISTA. The services will encompass all areas of the above mentioned support, to include TCTO updates for the VISTA aircraft. The requirement for this particular service, being requested by the USAF TPS, will necessitate the use of proprietary information that is solely owned and distributed by LM Aero. LM Aero is the designer and manufacturer of the USAF F-16 fleet and the company holds all rights and documentation associated with the F-16 aircraft.

In prior market research, Government inquired on the potential acquisition of rights in technical data and computer software with LM Aero in lieu of pursuing a follow-on to VISTA Support. Reverse engineering is not a viable solution for this program. LM Aero stated that they would not be able to kick off a pricing estimate for F-16 data rights licenses without a formal and detailed request for the said licenses. Any request to estimate or price F-16 data rights licenses needs to be made to the Integrated Fighter Group in Ft Worth, TX. After engaging with the Ft. Worth office, LM Aero stated that F-16 data rights is a very "broad

March 2020 Controlled Unclassified Information (CUI) Page 5 of 7March 2020 Controlled Unclassified Information (CUI) Page 5 of 7 topic" and that they would need to know specifically what data and what type of rights (unlimited, government purpose, etc.) The process would be lengthy, due to all requests for licensing of intellectual property having to go through a review and approval board and coordination would be needed from multiple departments. Technical data packages, specifications, engineering descriptions, statements of work, or purchase descriptions suitable for full and open competition are not available. VISTA is a sophisticated, unique, one-of-a-kind aircraft that can replicate the handling qualities of an unlimited number of aircraft types. This program supports all maintenance, curriculum development, and TPS student sorties for the VISTA.

For the reasons stated above, this acquisition is for continued performance of a highly specialized service.

The current sole source contract (FA9304-17-D-0002), started on 01 Jan 2017 and will end on 31 Dec 2021.

VI. Description of efforts made to ensure that offers are solicited from as many potential sources as practicable, including whether a notice was or will be publicized as required by subpart 5.2 and, if not, which exception under

FAR 5.202 applies.

Through a combination of internet research, calls to companies that provide aircraft training and a review of market research of previous contracts, no other potential sources could be found to support this requirement. USAF TPS has contacted National Test Pilot School and the Navy Test Pilot School and they are unaware of any other sources that can provide this service.

A notification of proposed contract action of only one responsible source for this requirement will be posted on Sam.gov publicizing the Government's intent to enter into a sole source procurement with Lockheed Martin Corporation, IAW FAR 5.201.

The support that the contractor provides is based on a long history of building, supporting, and modifying the F-16 platform. The VISTA is based on a F-16 platform that is further specialized and is not part of the normal F-16 logistics fleet support. Asking any other contractor to step in and provide this same level of support would require years of learning not only the F-16 systems but all the specialized systems that are used on VISTA. During this learning period, a contractor would not be able to meet the requirements of this contract to evaluate safety critical aspects of the aircraft. Due to VISTA’s significant use supporting TPS curriculum and research projects waiting for a contractor to learn all this information through reading and also direct testing and experimentation on a one of a kind vehicle, it is not feasible to wait for another contractor to become proficient to support this contract. Waiting would incur unacceptable delays that affect the program. It is not anticipated that the Government will receive viable sources at this time.

However, any responses received will be assessed to see if another source is capable of satisfying any of the Government's current or future requirements as they relate to the scope.

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 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. The offeror may be requested to provide other than certified cost and pricing data for analysis. A technical

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

The market research effort failed to identify another source capable of satisfying this requirement, as Lockheed Martin Corporation owns the proprietary data to support the government requirement for both the VISTA and F-16 support fleet. Alternate sources / substitutes do not exist in the industry, based on the rationale provided in other paragraph sections of this document. A comprehensive market research report is available upon request.

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

Acquisition Data Availability - The Engineering Support, Documentation Support, Logistic Support, ASIP and Special Projects to support the school's curriculum are solely proprietary to LM Aero and are not available to USAF TPS. The costs to obtain this data are prohibitive. The lack of adequate acquisition data to provide for full and open competition does form the basis for this justification. Because of the conditions cited in paragraph V., full and open competition is not practical and not in the best interest of the Government.

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.

The TPS Program Office will continue to monitor the industry through trade journals, technical symposia, and contacts with industry representatives to evaluate changing contractor capabilities and new offerings to determine if they have the capabilities to meet Government requirements. Future requirements will be synopsized as applicable and market surveys will be conducted as practical to determine feasibility of competition.

The requirements of the USAF TPS in the area of engineering, documentation, logistic support and special projects, are critical and mission essential to support the curriculum established for test pilot training.

Attempts to overcome competition were conducted via industry inquiry and a recent sources sought synopsis posted in Sep-2021. No responses, other than the incumbent, are expected prior to award.

As the manufacturer of all F-16's, and specifically the X-62A VISTA, a one-of-a-kind research aircraft, LM Aero is the only company that has the technical expertise to support VISTA. They also own the logistics contract for all F-16's for the USAF, which means they are the only ones who have the technical background and expertise to modify the aircraft, whether it is software or hardware related. LM Aero engineering support is required in order to ensure safe and effective upgrades to the VISTA. Currently LM Aero is collecting the part numbers necessary for the avionics upgrade due to start in FY24. The avionics effort has been a low level of effort for several years as USAF TPS has explored many options to include harvesting components from retiring aircraft to new and creative solutions to integrate modern avionics with the older F-16 airframe that is used for VISTA, with cost being the primary driver for the trade study.

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It is expected that TPS will have the money in place in 2024 to begin the avionics upgrade. They also just completed an avionics study for the VISTA in order to keep the aircraft flying for the next 20 years. No other company in the world can do this type of work without the proprietary information associated with the aircraft.

It would not be cost effective for the Government to solicit for a proposal for data rights, or entertain a reverse- engineering scenario, at this stage of the program's existence. To date, LM Aero has been utilized across four contract vehicles (FA9302-05-D-0001, FA9302-08-C-0015, FA9302-12-D-0002, and FA9304-17- D-0002) since FY05, for a total value of . A proposal for F-16 data rights is anticipated to far-exceed the IGE anticipated value for this 5-year follow-on for continued effort/support, with the length of time to acquire these rights time-prohibitive. The VISTA support staff has not made an attempt to acquire data rights since the last inquiry, since the cost was so prohibitive, and no evidence has been found to suggest that the cost of the data rights would reduce significantly. According to the current VISTA aircraft support staff, the projected cost is estimated over to ace a new F-16 with same technology. The Government relies on LM Aero for technical expertise, a vital component to system sustainability. The loss of this expertise is not an option for USAF TPS.

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 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.