HC1028-11-A-0107_J A.docx

LIMITED SOURCE JUSTIFICATION & APPROVAL (J&A) Federal Acquisition Regulation (FAR) PART 8 ACQUISITIONS Multiple Award Schedule (MAS)/Multiple Award Contract Orders under MAS/General Service Schedules (GSA)/Federal Supply Schedules (FSS) FAR 8.405-6

Contract Number: GS-35F-5923H Task/Delivery Order Number: Blanket Purchase Agreement (BPA) HC1028-11-A-0107 Procurement Title: Global Mobility and Special Mission Mission Planning (GMSMMP) Software Development and Sustainment Contracting Office: Defense Information Systems Agency (DISA), Defense Information Technology Contracting Organization (DITCO), Non-DISA Services and Mission Support Section (PL8312) Estimated Value: $45,930,000.00 Limited Source Authority: FAR 8.405-6(a)(1)(i)(B)

LIMITED SOURCE JUSTIFICATION

J&A Number: JA14-34

Upon the basis of the following justification, I, as Head of the Contracting Activity, hereby approve this limited source justification in accordance with FAR 8.405-6(a)(1)(i)(B). The acquisition referenced herein is conducted under the authority of the MAS Program.

JUSTIFICATION

1. REQUIRING AGENCY AND CONTRACTING OFFICE:

a. Requiring Activity Air Force Life Cycle Management Center (AFLCMC)/Mission Planning (HBMG) 11 Barksdale Street, Bldg 1614 Hanscom Air Force Base (AFB), MA 01731-1700

b. Contracting Activity

DISA/DITCO/PL8312

2300 East Drive Scott AFB, IL 62225-5406

2. NATURE/DESCRIPTION OF ACTION:

a. The nature of this action is to increase the ceiling amount via modification to the established non-personal services BPA, HC1028-11-A-0107, for GMSMMP Software Development and Sustainment. The scope of this BPA encompasses mission planning software products for the United States and foreign countries holding State Department Agreements with the United States. The services include, but are not limited to, the following actions: development and upgrade of mission planning software components for the United States Air Force’s (USAF’s) aircrafts, such as the C-5, C-17, C-130J, C-130 AMP, C-130 SCNS, KC-10, GMSMMP Ceiling Increase-JA14-34

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KC-46, KC-135, E-3, and E-8. In addition, the development and upgrades may take place on possible future platforms such as the C-27 and the next generation tanker aircraft. Foreign military sales (FMS) partners included in the scope of the BPA also have similar requirements requiring these services for Mission Planning products as the foreign countries fly the same type of aircraft as the USAF.

b. The recommendation is to increase the ceiling amount on the BPA against Tybrin Corporation’s, a large business, GSA FSS number GS-35F-5923H. The increase is needed to address requests for follow-ons to orders placed against this BPA, as well as requests for new TOs that have been identified. KC-46 (item 1) and E-3 Dragon (Item 2) are critical and have not yet been placed on contract. In order to complete these follow-on task orders (TOs) and requests for new TOs, an increase to the ceiling amount is required. Within the next 22 months, 23 TOs are targeted to be placed against the BPA, of which at least 21 will exceed the current ceiling beginning in December 2013. See paragraph 4(b) below for details. The available contract types for task orders are firm fixed price (FFP) and FFP-level of effort (LOE) with cost reimbursable other direct costs. The period of performance for this BPA remains October 20, 2011 through October 19, 2012, with four 1-year option periods, ultimately ending on October 19, 2016. The BPA is currently in the second option period. The estimated life-cycle cost (and associated ceiling) for the BPA will be increased by $45,930,000.00, from $49,500,000.00 to $95,430,000.00. Specific funding and appropriation types will be determined at the call order level as definitized requirements are ordered under the BPA.

3. DESCRIPTION OF SUPPLIES/SERVICES:

a. The purpose of this BPA is to provide software program support to develop, upgrade and sustain the USAF and FMS aircraft mission planning capabilities to include sustainment of prior mission planning software releases. An aircraft’s mission planning environment (MPE) includes all software components that are loaded on the mission planning computer and includes basic mission planning software such as portable flight planning software (PFPS), or Joint Mission Planning System (JMPS). These basic software tools plan the route of flight and calculate the fuel burn so aircrews know when they will get to a specific route point and how much fuel they should have at that same point. The route file is then sent to the Tanker Airlift Special Mission software (TASM) aircraft /weapons/electronics (A/W/E), which is produced under this BPA.

The Aircraft specific A/W/E software tailors the route of flight and adds additional information such as radio communication pre-set into the mission and creates an image for upload into the on-board aircraft computers. Then the aircrew has the navigation database and mission image in the aircraft cockpit during their flights. The software components developed under this program have specific functions and acronyms, such as: A/W/E, common component, flight performance module, joint precision airdrop system-mission planner (JPADS-MP) to include the consolidated airdrop tool (CAT) software, Aeronautical Advisories Notices to Airmen Tool (AANT), the global flight planning (GFP) tool and any requested mission planning related specialized software applications . The Mission Planning products under this contract effort must meet Department of Defense (DoD) network security requirements as well as provide ancillary aircraft support as needed. These developments and upgrades are subject to mission planning combined test force reviews and development and operational testing, to include deficiency write-ups and test reports, prior to fielding.

b. An increase in the BPA ceiling will allow the contractor to continue to provide GMSMMP software development and sustainment to the USAF’s aircrafts as detailed in paragraph 2a. There are currently 10 foreign partners using the current TASM architecture. Each version is configured for use by each unique FMS case. These requirements are separate from United States Government requirements, but normally will create synergy for the overall GMSMMP program as code and training materials can benefit all users.

4. IDENTIFICATION OF LIMITED SOURCE AUTHORITY AND DEMONSTRATION OF CONTRACTOR’S UNIQUE QUALIFICATIONS:

a. Circumstances Justifying Limiting the Source. FAR 8.405-6 (a)(1)(i)(B), only one source is capable of providing the supplies or services required at the level of quality required because the supplies or services are unique or highly specialized.

b. Description of the Justification. Due to the tremendous growth in air traffic, with its increasing challenges for air traffic service providers, air carriers, and the military, the International Civil Aviation Organization, Federal Aviation Administration, and other Civil Aviation Authorities (CAAs) are implementing the communication, navigation, surveillance/air traffic management (CNS/ATM) air traffic architecture. This new architecture takes advantage of emerging technologies in communication, navigation, and surveillance to improve air traffic management. The goal for the new air traffic environment is to culminate in the attainment of dynamic routing which gives operators the freedom to choose their own routes, speeds, and altitudes, in near real-time. Dynamic routing also provides visual flight rules flexibility with instrument flight rules protection and separation and a shift from air traffic control to air traffic management. If aircrafts are not equipped with the appropriate new technologies, they will be excluded from airspaces where new separation standards and air traffic management procedures are implemented by CAAs. For DoD aircrafts to operate in this new environment, significant modifications to existing aircrafts must be accomplished. The current mission planning components also require upgrading to comply with this CNS/ATM concept. CNS/ATM compliant upgrades to the current mission planning components need to be enhanced and re- packaged to fit into the PFPS and follow on mission planning systems.

Due to the unanticipated increase in level of requirements encompassed under the scope of the BPA, the BPA ceiling needs to be increased in order to for the contractor to accomplish the required work to support Air Mobility Command (AMC) operational capability requirements. As an example of these unexpected changes after award of the BPA, the KC-46 aircraft came on board as a new concurrent development with preliminary mission planning requirements. As the KC-46 requirements were finalized, it was realized that the efforts dictated a more software intensive solution than expected and would not be available under other available contract vehicles. The KC-46 effort alone is now expected to cost $10.57 million, which, by itself, is 21 percent of the current BPA ceiling value.

The Government analyzed other available contract vehicles as potential sources, such as the Mission Planning Program Office’s Mission Planning Enterprise Contract II (MPEC II). MPEC II is contracted out of the Aerospace Mission Planning Directorate at Hanscom AFB, MA and is a multiple award contract, consisting of five mission planning developers that were each awarded a contract under the vehicle. The purpose of the MPEC II program is to develop mission planning capability on the new JMPS for Air Combat Command and AMC. This contract was awarded in June 2011 with a base period through June 2016 with options available to extend it through 2020. Of the five awardees, none are currently capable of fully meeting the requirement due to a lack of the necessary performance capability and ability to obtain CNS/ATM certification as discussed in further detail in 4.c.

c. Justification:

(1) Minimum Government requirements.

The Government requires the contractor to continue to provide GMSMMP software development and sustainment, including development and upgrade of mission planning CNS/ATM software components for the USAF’s current and future aircraft.

When mission planning tools, such as AANT, fields on PFPS, an inherent requirement exists to ensure the platforms associated with the AMC Mission Planning transition to JMPS in fiscal year (FY) 2016, have the same capability as the PFPS version. AANT provides mission planners with the ability to visualize Aero Nautical Advisories in Falcon View Mission Planning mapping software. The AANT adaptation layer call order must be awarded by March 2014 or the AMC Mission Planning software transition to JMPS will not have the full capability available on PFPS, specifically lacking the capability associated with AANT. This will delay Tanker Airlift Control Center/aircrew planning and reduce aircrew situational awareness and safety.

As another example, the GFP tool provides the capability to view routes coming from the AMC Advanced Computer Flight Plan (ACFP) software in Falcon View. The GFP Tool requires software to be installed on the AMC ACFP Server. AMC requires that the JMPS version have the same capability as the PFPS version which must be modified on this BPA to allow for the capability on JMPS. Without a ceiling increase provided under this BPA, AMC will not receive the software required to meet this critical mission requirement.

(2) Proposed sole source contractor.

The incumbent contractor, Tybrin Corporation, hereafter referred to as Tybrin, is the only contractor that can meet these requirements in the timeframe necessary to avert mission impact to the USAF and FMS partners world-wide. This extension will assure continuity of operations until the transition of services in 2016 to new JMPS that is being procured under another vehicle; however, transition is not feasible until 2016 as the software developed is not scheduled to be ready until that time. Afterwards, time will be needed for a conversion period. The legacy software product support, that only Tybrin can currently provide, is required until the new software is ready and certified.

The interface between the avionics and the mission planning route and navigation data are defined in avionics contractor proprietary interface control documents (ICDs). It has taken 10 years of trial and error and countless load tests and avionics contractor meetings for Tybrin to gain the knowledge and understanding of how to code the images so that they load properly into the avionics. Other contractors would need to acquire those proprietary documents by establishing agreements with the proprietary rights holder, to gain an understanding of the aircraft ICDs and Operational Flight Program (OFP) as well as to achieve the CNS/ATM certification that Tybrin already possesses. Currently, Boeing, Rockwell-Collins, Honeywell, and General Electric Aviation Systems are the manufacturers and owners of the proprietary data. Tybrin has agreements with each manufacturer in order to access the proprietary data.

(3) Discussion regarding cause of the limited source situation.

Until May 2013, four of six C-17 FMS countries (Australia, Qatar, North Atlantic Alliance (NATO) and United Arab Emirates (UAE)) had planned to migrate to JMPS in FY 2014, years ahead of the AMC fleets planned FY 2016 transition to JMPS. However, in May 2013, five of the six countries (Australia, Canada, United Kingdom, Qatar and NATO) updated requirements and mandated their MPEs align with AMC's version, following AMC vice leading AMC. The FMS C-17 countries decision to upgrade their PFPS software and follow AMC was not a planned requirement when the current BPA requirements were originally established. A JMPS solution was anticipated to be available with Windows 7, but slipped into FY 2016. The countries current need now mirrors the AMC fleet. If not upgraded, FMS countries will be operating with legacy PFPS on a Windows XP Operating System (OS) that is no longer supported by Microsoft. Additionally, AMC moved to Windows 7 OS in July 2013 and no longer supports the previous XP versions of the mission planning software. Besides the PFPS 4.2.1/TASM 5000 upgrade, the FMS countries have also stated that they want to continue to upgrade behind AMC to PFPS 4.2.2/TASM 5001 in FY15 until the JMPS transition in FY 2016. Again this requirement was not foreseen as part of the original BPA ceiling. The FMS need is to complete the software in May 2014 in order to make the in-country fielding requirement of the PFPS 4.2.1/TASM software by July 2014. There is not sufficient time to solicit a new contractor, award a new contract, test and qualify products, overcome learning curves, secure data rights and develop source code at a cost that the FMS countries can afford with the July 2014 mission planning software need date.

(4) Demonstration of limited source.

Tybrin is the company that developed the AMC fleet legacy PFPS as well as current PFPS 4.2.1/TASM software. They have the TASM source code, required data rights, avionics ICDs, skilled workforce experienced with PFPS/TASM sanitization and MPE integration, and in-depth background and learning curve history needed to develop FMS releasable versions of the MPEs needed by the FMS users.

In addition, due to the proprietary nature of the information, the developer must have agreements with the avionics contractor in place along with the aircraft ICD. Currently, no other mission planning contractors have an agreement in place, nor have they obtained the proprietary avionics ICD’s. Additionally, the data requirements matrix (DRM), a derived document from the navigation ICD, is a critical part of a CNS/ATM certification. Tybrin has created these avionics contractor documents, which are not releasable to third parties, through years of working directly with the avionics contractors under license and through proprietary agreements. The DRM defines the mapping interpretation of the navigation data ICD to the mission planning navigation image. The avionics contractor must sign off that the navigation ICD interpretation for each element of a specific aircraft OFP version is correct in order to obtain CNS/ATM certification.

(5) Procurement discussion.

Due to the unique nature of this requirement and unforeseen delays during the procurement process, it took 20 months from approval of the acquisition strategy to award of the current BPA (HC1028-11-A-0107). Although it’s not certain whether a subsequent follow-on would take as long to award, it is clear that no other contractor is currently positioned to execute the full scope of work required under the BPA within the associated timeframe.

For example, C-130 FM country, Korea, has requested an interim PFPS capability until JMPS is available. Tybrin is the company that developed the FMS releasable interim PFPS solutions for all the FMS C-17 and C-130 countries based on their AMC fleet PFPS software requirements. Because of Korea’s needs, the software must be completed by January 2014 in order to make the in-country fielding requirement of March 2014.

In the case of the French KC-135, FMS received a case June 2012 for an avionics upgrade. France then put the mission planning work on hold as it revised budgets. The “hold,” in effect, has eaten up all schedule flexibility to contract, develop and deliver the MPE. France has established requirements for PFPS 4.2.1/TASM 5000 MPE for its KC-135 fleet. Delivery of the FMS releasable MPE is June 2014. FMS planned to put the French TASM on contract utilizing this BPA in August 2013.

FMS also has an established requirement for a conventional CAT that will be integrated into the JMPS baseline for C-130, C-17 and C-27J. Tybrin was awarded this effort on this BPA. Australia and several other FMS countries (United Arab Emirates & Norway) have or are pursuing JPADS; therefore, the JMPS CAT will need to be upgraded to precision and then be integrated into the JMPS software. This requirement also exists for the USAF, which is planned for this BPA. The FMS lead and early start in this effort will lower the USAF cost by an estimated $2.3 million, as well as provide a baseline developed software product for the USAF to build upon. This estimate was derived from program office analysis of the software code baseline and the hours which would be saved by accomplishing this work under the FMS task.

(6) Impact.

Tybrin has been the prime contractor on this effort for over 2 years, with over 10 years of experience in this field. Transitioning to a new company would result in a 9-to-12-month schedule delay with an unknown resulting product and quality of the product. Moreover, it would require an additional $1.75 million investment to develop the product from scratch with a different contractor, based on historical expenses for the current product development. Ultimately, the AANT capability will not be delivered on time to the warfighter which will result in degraded efficiency when planning a mission. Tybrin is in the middle of engineering and manufacturing development of the latest PFPS AANT version which makes the contractor critical to the completion of this version. More specifically, they have already accomplished approximately 40 percent of this particular effort. If the ceiling of this BPA is not increased, the Government will not realize the benefits of the $650,000 already invested on the engineering and manufacturing development of the latest PFPS AANT version.

Without this ceiling increase, TASM 6000 series, already on contract, will not be able to accomplish the full set of requirements planned with the limited value and capability received Thus, the TASM 6100 series, the next phase of the project, will not be able to be completed either without the increase to the BPA ceiling.

The USAF will lose its ability to produce a CNS/ATM compliant navigation database and its AMC aircraft will be forced out of required navigation performance airspace resulting in an estimated $37 million yearly additional fuel costs and will subject aircrews to en route delays. This estimate was provided by AMC/A5 from analysis they have conducted on the matter, which is based on the estimations and calculations of AMC aircraft flying at lower performance routes, altitudes, and speeds; therefore significantly increasing fuel consumption and costs.

Further, the CAT data will quickly go out of date and leave the system vulnerable to missed airdrop resupplies and jamming of the airdrops resulting in troop missed resupply with dire consequences for the Government’s forces.

Without the ceiling increase in place, the milestones and critical missions supported by this budgeted authority will be at risk. This will result in a loss of viable mission planning capability for AMC aircraft if the ceiling increase is not approved.