FAR-Part16-EFOJ_ACC_W911NF20F0001.pdf

Control No:

Contractor: Draper Labs

Program/Equipment: Soldier-Borne ISR

FOR OFFICIAL USE ONLY

JUSTIFICATION REVIEW DOCUMENT

FAR PART 16 EXCEPTION TO FAIR OPPORTUNITY JUSTIFICATION

For Actions Exceeding the Simplified Acquisition Threshold (SAT)

Program/Equipment: Combat Capability Development Center Soldier Center (formerly Natick Soldier Research, Development and Engineering Center) is developing Global Positioning System Denied Navigation algorithms that enable Small Unmanned Aerial Systems (SUAS) to operate in all environments.

Authority:

10 U.S.C. 2304c(b)(3) as implemented by FAR Part 16.505(b)(2)(i)(C) – The order must be issued on a sole-source basis in the interest of economy and efficiency because it is a logical follow-on to an order already issued under the contract. All awardees were given a fair opportunity to be considered for the original order.

Amount: $557,144

Contracting Officer: Joel Koppinger Ph: 919-541-0580 Contracting Officer Date:

Email: joel.m.koppinger.civ@mail.mil

Technical: John Paul Kruszewski Ph: 508-206-3865 Systems Engineer Date:

Email: john.p.kruszewski2.civ@mail.mil

Reviews: I have reviewed this justification and find it adequate to support an exception to fair opportunity.

Program Manager:

Typed Name: John Paul Kruszewski

Signature:

12/5/2019

X John Paul Kruszewski John Paul Kruszewski Program Manager Signed by: KRUSZEWSKI.JOHN.PAUL.1380919920

Legal Counsel:

Brian P. Weber

CCDC-SC-CC

brian.p.weber3.civ@mail.mil; 508.206.3705

X Brian P. Weber Brian Weber

Signed by: WEBER.BRIAN.PAUL.1015815791

Contracting Officer:

Typed Name: Joel Koppinger

12/10/2019

X JOEL KOPPINGER

Joel Koppinger

Signed by: KOPPINGER.JOEL.MICHAEL.1263996786

FAR Part 16 Exception to Fair Opportunity Justification Under Multiple Award Indefinite Delivery Contracts

For Actions Exceeding the Simplified Acquisition Threshold (SAT)

1. Contracting Activity: ACC-APG-RTP Division

2. Description of Action: Combat Capability Development Command Soldier Center (CCDC SC) requests a cost-plus-fixed-fee task order under contract W911NF15D0006 with The Charles Stark Draper Laboratory, Inc. The Government projects award for December 2019. Fiscal year 2019 RDT&E funds will be used. An acquisition plan is not required because this procurement does not meet the threshold at Defense Federal Acquisition Regulation Supplement 207.103(d)(i)(B).

3. Description of Supplies/Services:

Enhancement of operational performance of the Soldier Borne Sensor GPS-denied navigation software will be accomplished by improving the computational speed, accuracy and robustness (i.e. the ability of the software to cope with errors during execution and to cope with erroneous input) of the Soldier Borne Sensor GPS-denied navigation software originally developed by Draper. Transition to a new platform of interest will include thorough documentation for the field use of the platform as well as thorough testing on new platforms as provided by potential new vendors.

Estimated Period of Performance: 12 Months Total Estimated Value: $557,144

4. Authority Cited:

10 U.S.C. 2304c(b)(3) as implemented by FAR 16.505(b)(2)(i)(C).

5. Reason for Authority Cited:

Logical Follow-on.

The order must be issued on a sole-source basis in the interest of economy and efficiency. This order is a logical follow-on in terms of scope, period of performance and value to an order already completed under contract W911NF15D0006 with The Charles Stark Draper Laboratory, Inc.. The predecessor task order (TO), TO 0002, was issued on 08 August 2016. All Advanced Expeditionary Warfare Development (AEWD) contract awardees were provided a fair opportunity to compete for the order.

Under TO 0002, Draper conducted research, development and integration activities relating to the Prox Dynamics PD-100 Black Hornet (BH) 3 Personnel Reconnaissance System (PRS). This effort included the study of advanced sensors (Long Wave Infrared (LWIR), Obstacle avoidance), GPS denied algorithms in both visible and Thermal / Low light conditions and advanced collaborative behaviors (swarming). This undertaking also included the development of both hardware and software to support the goals of the program – addressing the gaps of operating in GPS denied environments (e.g.

indoor, subterranean, megacities, triple canopy).

This new effort builds off the research, development, and integration conducted under the previous order through enhancement of operational performance. “Enhancement” is expected to be accomplished by improving the computational speed, accuracy and robustness of the Soldier Borne Sensor GPS-denied navigation software as well as integration of the enhancements into platforms of interest, currently the PD100 BH3.

Draper, who performed the contract for the previous phase, has knowledge and experience with the project that no other company possesses and which accrues to the benefit of the Government. Draper’s prior efforts were highly specialized – developing and integrating Visual Inertial Odometry (VIO) solutions within a size, weight, power and computing (SWaP-C) constrained platform. In common parlance, Draper’s prior efforts determined the position and orientation of the UAV platform by analyzing camera images in conjunction with the data generated by an inertial measurement unit (IMU)1 used within the platform. Given the specialized nature of the proposed work (VIO on a SWaP-C constrained platform), Draper’s in depth knowledge of the current code base due to its prior contract, and Draper’s comprehensive understanding of the PD100 BH3 platform, award of the current effort to Draper will avoid duplication of effort, increased costs, and schedule delays that are expected should an award be made to another contractor. Simply stated, a different contractor would have to work to catch up in order to perform the follow-on, which would cost time and money and increase project or program cost, schedule, or performance risk. Draper, as the incumbent, would be significantly more efficient in the accomplishment of the proposed work and has not only prior experience, but also the specialized knowledge required to perform the work requested.

Competition alone is unlikely to be able to recover the appreciable aggregate difference in cost and schedule between the proposed awardee, Draper, and a party selected through competitive means. CCDC SC expects to transition this effort in FY20 to support Soldier Borne Sensor prototyping work in which the SB-ISR algorithms are a key capability. There will be significant schedule impacts going to a different vendor which would negatively impact the scheduled completion and transition of this work.

1 An IMU measures and reports the UAV’s specific force, angular rate, and orientation, using a combination of accelerometers, gyroscopes, and sometimes magnetometers.

Other Considerations Affecting Efficiency.

Draper has developed a continuous integration pipeline which allows them to build and test the software in the Cloud enabling rapid integration of changes and the subsequent evaluation of t changes. Draper’s familiarity with the code base, the surrogate, and the necessary software development practices for the platform, would require another vendor to invest considerable time to get up to speed.

Draper has experience with various Unmanned Aerial System (UAS) vendors through previous research and development efforts. Draper has existing relationships in place with numerous vendors and has a Technical Assistance Agreement (TAA) with FLIR Systems, the current manufacturer of the targeted platform for this work, the PD100

BH3.

Draper demonstrates an expertise in Autonomy, Guidance, Navigation and Control and Visual Inertial Odometry. Draper has associated, critical experience in computation sensitive platforms ranging from Apollo spacecraft to recent efforts in Unmanned Systems. Some of the technical challenges in this field are still an active area of research and development in academia and within the DOD in general, and are not problems with generally accepted solutions. Draper has extensive experience from their previous work on related programs such as Joint Precision Airdrop System (JPADS), Defense Advanced Research Projects Agency’s (DARPA) Fast Light Autonomy Program, and their ties with academia. Having such a broad technical base to develop and prototype concepts and approaches, would likely take another entity months to put in place.

Additional Follow-on Efforts. The current effort is expected to carry the Government through the end of the projected program. The effort will mature the algorithms to a point that can be transitioned and that demonstrate integration into a representative platform. It is not expected that any additional development will take place. The SBS Program Office may fund one or more vendors to support the integration of this capability into a platform.

6. Actions to Increase Competition:

The Government will require, via contract clauses, that the prime contractor compete subcontractor opportunities to the maximum extent practicable for any subcontracts.

Further, the Government will require both a Technical Data Package and Software Data Package for all work developed so that all the capabilities can be transitioned to allow the Government to increase the competition in future efforts.

The SB-ISR algorithms under this effort will be delivered with at least Government Purpose Rights. This will allow the government to seek competition in the support or advancement of the work being performed under this effort in the future. The government also is seeking alternative technical solutions to increase competition including modular open systems architectures with well-defined interfaces. This would allow the government to break down the effort into smaller ones which could be more effectively competed than the larger effort proposed currently.

7. Market Research:

Technical team personnel in the Advanced Soldier and Small Unit Equipment Team (ASSET) program office have been heavily involved in the Small Unmanned Aircraft Systems (SUAS) and Soldier Borne Sensor (SBS) arenas going back to 1997.

Currently, technical members of the ASSET team have maintained a high level of awareness of competing technologies by attending conferences, symposia and trade shows. Overall, the agency’s market research demonstrates an absence of entirely software-based, platform agnostic solutions to GPS denied flight and collision avoidance within the micro-UAV environment.

Consumer Electronics Show (CES), January 2019. A representative from ASSET attended the CES in January 2019 to survey the market of technology that would be useful to the Soldier and small unit, with a focus on SUAS and exoskeleton technologies. The CES is the largest electronics show in the world covering nearly three million square feet with four thousand exhibitors. CES includes a dedicated “Drone Zone” as well as a remote outdoor site for the demonstration of UAS. While there were dozens of drone manufacturers in attendance, ASSET representatives did not find any vendors offering monocular vision, collision avoidance algorithms. The solutions offered were more hardware focused using binocular vision - a capability not resident on any current platforms – and, inherently, would add weight to the platform.

Association for Unmanned Vehicle Systems International (AUVSI) annual Xponential Conference, May 2019. The Xponential Conference is the largest conference dedicated to UAS in the world. This annual event has a large exhibition area, numerous demonstrations as well as technical presentations from a wide range of UAS community members including academia, the Government, and private industry. ASSET representatives attended this conference and, once again, did not find any vendors offering monocular vision, collision avoidance algorithms.

UAS Technical Analysis and Applications Conference (UAS TAAC), December 2018.

ASSET members attended the UAS TAAC. The trend remained a focus on hardware-based solutions using multiple cameras or special sensors for localization. There were no entirely software-based, platform agnostic solutions.

Interactions with the User Community. ASSET participates in a wide range of engagements with users in the UAS community including through Joint Ground Robotics Integration Team (quarterly), Robotics Community of Practice (quarterly), Army Robotics Integration Community of Interest (weekly) and The Technical Cooperation Partnership Constrained Urban Environment Working Group. Through these events, ASSET gains exposure to a wide range of efforts and has determined there are no other efforts developing these capabilities within the DoD or any other Government agencies. Further, as part of working with Government stakeholders, the

ASSET personnel attend a number of meetings with other Government agencies including those within Combat Capability Development Command and DARPA. These meetings range from home-on-home meetings to focused program exchanges. One common theme from discussions with a variety of other Government representatives is the types of technologies that the representatives desire. Two of the top desires are a capability to address GPS denied flight and a capacity for collision avoidance. The response from the requirements community is that these specialized innovations are either immature or completely nonexistent in any form.

Interactions with the Commercial Marketplace. Overall, the commercially available off-the-shelf (COTS) SUAS market and associated capabilities are focused on the commercial industry and not the complex and challenging operating environments where the Army intends to operate, to include night operations and transitions from GPS enabled to GPS denied environments within the same flight. Compared to the commercial industry, the DoD is a minute market (typical lifetime acquisition goals are monthly or weekly volumes for commercial manufacturers). Of relevance to the requirement discussed herein, the Government has been unable to identify a commercial market for mature, platform agnostic GPS Denied software algorithms. The vast majority of the commercial marketplace is focused on building their own in-house solutions and tend not to pursue marketplace compatibility with or share their proprietary technology development.

8. Other Facts:

Procurement History:

RDT&E for The Soldier Borne - Intelligence, Surveillance, and Reconnaissance (SB- JSR) Advanced System Development

Contract: W911NF15D00060002 Contractor: Charles Stark Draper Laboratory Award Date: 8 August 2016 Competitive Status: Fair opportunity to all AEWD contract holders

9. Technical Certification: I certify that the supporting data under my cognizance which are included in the justification are accurate and complete to the best of my knowledge and belief.

Typed Name: John Paul Kruszewski Date:

Title: Systems Engineer Signature:

X John Paul Kruszewski John Paul Kruszewski

10. Requirements Certification: I certify that the supporting data under my cognizance which are included in the justification are accurate and complete to the best of my knowledge and belief.

Typed Name: John Paul Kruszewski Date:

Title: Systems Engineer Signature:

X John Paul Kruszewski John Paul Kruszewski

11. Fair and Reasonable Cost Determination: I hereby determine that the anticipated cost or price to the Government for this contract action will be fair and reasonable.

This determination will be made using the following: ☒ cost analysis ☒ price analysis ☐ should cost ☒ IGCE comparison ☐ other: identify the methodology or combination of methodologies that will be used

As a part of this basis, certified cost or pricing data:

☐ will be required.

☒ will not be required and the following exception applies (FAR 15.403):

☐ Prices that will be agreed upon are based on adequate price competition.

☐ Prices that were established during the original competition that are not subject to negotiation.

☐ Prices that will be agreed upon are based on prices set by law or regulation.

☐ A commercial item is being acquired.

☐ A waiver has been granted by the head of the contracting activity (HCA) in accordance with DFARS PGI 215.403-1.

☐ The contract action is a modification to a contract or subcontract for commercial item(s).

☒ The estimated cost of the contract action is less than the threshold for certified cost or pricing data.

Typed Name: Joel Koppinger Date:

Title: Contracting Officer Signature:

X JOEL KOPPINGER

JOEL KOPPINGER

12. Contracting Officer Certification: I certify that this justification is accurate and complete to the best of my knowledge and belief.

Approval

Based on the foregoing justification, I hereby approve the procurement of Enhancement of operational performance of the Soldier Borne Sensor GPS-denied navigation software in the amount of $557,144 using an exception to fair opportunity pursuant to the authority of FAR 16.505(b)(2)(i)(C) as a logical follow-on, subject to availability of funds, and provided that the services or supplies herein described have otherwise been authorized for acquisition.