TSL-EXD-15-038_LSJ_MMWIDX_Proof_of_Concept_-Final.pdf

Limited-Sources Justification (LSJ) For orders or BPAs exceeding the Simplified Acquisition Threshold

LSJ No.: FY15-0302

This acquisition is conducted under the authority of the Multiple-Award Schedule Program, 41 U.S.C. 152(3), Competitive Procedures, and 40 U.S.C. 501, Services for Executive Agencies.

1. Agency and Contracting Activity. Identification of the agency, contracting activity, and specific identification of the document as a “Limited-Sources Justification.”

The Department of Homeland Security (DHS), Office of Procurement Operations (OPO), Science and Technology Acquisition Division (STAD) proposes to award a BPA call pursuant to FAR 8.405-6(a), Limiting Sources.

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

DHS/OPO intends to limit the number of sources solicited pursuant to FAR Part 8.405- 6(a) for the procurement of Millimeter Wave Research and Development, which includes Millimeter-Wave Signatures (MMW-SIG); MMW Image Quality Tool (MMW-IQT) Design and Analysis; and MMW Identification of Explosives (MMW-IDX) to proposed contractor: Battelle Memorial Institute, 505 King Avenue, Columbus, Ohio 43201-2693 as a new task order under the BPA HSHQDC-13-A-00023.

3. Description of Supplies/Services. Describe the supplies or services to be acquired. Provide the estimated total value (including options, if any).

The requirement is to provide DHS/TSL with continued critical mission support to continue effort relating to patentable technology as provided under three previous BPA task orders:

1- Task Order 3: HSHQDC-13-J-00209 “Multiple-Frequency Millimeter-Wave

Reflectometry for Identification of Explosives (MMW-IDX) Concealed Under Clothing - Proof of Concept.” This task order solicitation was sent to all three BPA holders and 2 proposals were received. The value of this task order is $501,503.46.

2- Task Order 6: HSHQDC-13-J-00444 “MMW Phantom and Image Quality Tool Research and Development.” This task order solicitation was sent to all three BPA holders and 2 proposals were received. The value of this task order is $385,949.56.

3- Task Order 7: HSHQDC-13-J-00462 “MMW Signatures for Explosives, Benign Objects, and Simulants.” This task order solicitation was sent to all three BPA holders and 2 proposals were received. The value of this task order is $280,858.40.

The work performed by Battelle under these three BPA Task Orders accomplished three major goals:

• The successful demonstration of the benchtop application of US Patent 8,946,641

– “Method for identifying materials using dielectric properties through active millimeter wave illumination,” B.T. Smith, J. C. Weatherall, and J.B. Barber

• Development of Mathematica code for extraction of dielectric parameters / thickness from broadband millimeter wave reflectometry

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• The successful construction and demonstration of an XY millimeter wave imaging system

The results of the analysis of broadband millimeter wave reflectometry show that the dielectric constant can be detected at modest range to an accuracy of a few percent by fitting the reflectivity spectrum across a broad range of frequencies to a suitable optical model. The detection is independent of thickness. In principle, multi-frequency interrogation is established as a way to identify concealed materials on personnel at a checkpoint. Project results were compiled in several internal reports as well as two planned external publications at SPIE DSS 2015 (accepted proceedings paper) and in IEEE Transactions on Microwave Theory and Techniques (journal article pending submission).

Under the new BPA Call, Battelle will perform the following:

1. Millimeter Wave Signatures

a. Measuring dielectric properties of explosives, benign materials, metamaterials, and candidate explosive simulants

b. Measuring new materials

2. Millimeter Wave Image Quality Tool Design and Analysis

a. Design of Phantoms

b. Testing and Analysis of Design

c. Collaboration with Industry and Government Partners

3. Millimeter Wave Identification of Explosives Patent Reduction to Practice

a. Widen proof of concept analysis to more military and commercial explosives.

b. Use realistic human phantom to back target.

c. Use human phantom and imaging stage to begin development of integrated software.

4. Technical Reporting: Battelle will prepare and deliver task based quick look reports, interim, and final reports on findings and recommendations associated with the viability of the patent concept.

The estimated value for this effort is as follows:

Period of

Performance

ESTIMATED

VALUE

Estimated Value of support for MMW Research and Development

30 Months $ 3,581,891.00

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4. Authority and supporting rationale.

8.405-6(a)(1)(i)(C) In the interest of economy and efficiency, the new work is a logical follow-on to an original Federal Supply Schedule order provided that the original order was placed in accordance with the applicable Federal Supply Schedule ordering procedures. The original order or BPA must not have been previously issued under sole-source or limited-sources procedures.

This acquisition is being conducted under the authority of the Multiple-Award Schedule Program, 41 U.S.C. 152(3), Competitive Procedures, and 40 U.S.C. 501, Services for Executive Agencies, in accordance with FAR 8.405-6, Limiting Sources. An award will be made in the interest of economy and efficiency as a logical follow-on to three original Federal Supply Schedule orders: HSHQDC-13-J-00209; HSHQDC-13-J-00444; and HSHQDC-13-J-00462 pursuant to FAR 8.405-6(a)(1)(i)(C). The original awards were competitively solicited and awarded using the ordering procedures at FAR 8.405.

Battelle’s performance on all three task orders has been excellent and they are the only BPA holder that can do the MMW requirements in the interest of economy and efficiency. By selecting Battelle to continue supporting the development and implementation of the SIG/IQT/IDX methodology, this avoids the significant delays – likely on the order of years – that would arise from bringing new staff up to the same level of expertise already in place with the current cleared and suitable performers.

The work for the task order will continue the progression of work on MMW requirements in the three specialized areas; signature of systems and targets, the development of an image quality tool for Advanced Imaging Technology systems, and the demonstration and development of a material identification using millimeter wave systems. This new task order will continue the work of the previous task orders by measuring the remaining commercial explosives not completed under the previous task orders and design simulants for explosives in the frequency range measured. The new task order will also continue using the resin identified in the previous task order and will design a range of shapes for image testing with the AIT systems available at TSL and with the XY scanning frame and antennas. Additionally, this new task order will widen the proof of concept analysis to more military and commercial explosives.

Much work remains to further this technique towards implementation in a mature setting such as a checkpoint. This includes: (1) using an imperfectly reflecting background, such as a flat surface with dielectric properties similar to skin (skin simulant); (2) collimating and imaging optics to mitigate surface artifacts and thickness variation with less ideal objects; (3) employing multiple frequency bands to improve detection precision of materials across a large absorption parameter range; (4) expanding dielectric signatures to detect dielectric dispersion; and (5) incorporating material and explosive measurement data into a dielectric space look-up table.

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5. Determination by the ordering activity contracting officer that the anticipated order represents the best value consistent with FAR 8.404(d).

The Contracting Officer has determined that issuing a task order directly to Battelle to continue this effort represents the best value and will result in the lowest overall cost alternative, considering price and administrative costs, to meet the Government’s needs.

This task order will be placed in accordance with FAR 8.404, “Use of Federal Supply Schedules.” General Services Administration has already negotiated fair and reasonable pricing and discounts to the GSA schedule rates will be requested. Additionally, prior to issuance of the task order, the ordering activity will consider the level of effort and the mix of labor proposed to perform the specific task being ordered in order to determine that the total price is reasonable.

6. A description of the market research conducted among schedule holders and the results, or a statement of the reason market research was not conducted.

Extensive market research was concluded as part of the initial BPA solicitation in September 2012 and included the following activities: reviewing acquisition history;

interviewing technical experts and knowledgeable individuals within DHS; researching GSA schedules; and considering the vendors identified with the market research conducted for the issued RFQs.

7. Any other facts supporting the limited-sources justification.

Battelle is the only BPA holder with the patent. Dr. James Weatherall and Dr. Jeff Barber, Battelle, are co-inventors on the IDX concept, US Patent 8,946,641, and are uniquely positioned to continue support of this project. Both are considered subject matter experts on millimeter wave imaging and dielectric measurements, having a combined 24 years of direct support to TSL. They have been instrumental to the development of the physics of the IDX patent, the electronic systems in use in the EMXLAB, the development of simulant materials for explosives and skin, and the creation and use of dielectric measurement systems.

8. A statement of actions, if any, the agency may take to remove or overcome any barriers that led to restricted consideration (i.e., limited-sources) before any subsequent acquisition for the supplies or services is made.

The government anticipates continuous needs for further development of this patent technology. After performance under the options, the government will assess the need for further proof of concept research or determine a need for research and development. At that time, the government may decide to prepare a follow-on task order solicitation to undergo the competitive process under the BPA for future test requirement, if applicable.

9. DHS intends to post this requirement on Fedbizopps pursuant to FAR 8.405-6(a)(2)(i).

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