Redacted_P00012_Ja.pdf

JUSTIFICATION FOR OTHER THAN FULL AND

OPEN COMPETITION (OTFAOC)

Federal Acquisition Regulation (FAR) Part 6 Justification & Approval (J&A), Supporting

Procurements under FAR Part 12 and FAR Part 15

Purchase Request Number: 821913734

Contract Number: HC1047-14-C-4000

Procurement Title: Enhanced Mobile Satellite Services (EMSS) Airtime Bridge Effort

Estimated Value: increase Modification (MOD) 01)

Statutory Authority: 10 U.S.C. 2304(c) (1) and FAR 6.302-1

MODIFICATION JUSTIFICATION FOR OTFAOC

Justification for OTFAOC Number: JA19-076 MOD 01

Upon the basis of the following justification, I, as Head of Contracting Activity, hereby approve the use of other than full and open competition of the proposed contractual action pursuant to the authority of 10 U.S.C. 2304(c)(1) and FAR 6.302-1.

1. REQUIRING AGENCY AND CONTRACTING OFFICE:

Requesting Agency:

Air Force Space Command (AFSPC) Commercial Satellite Communications (COMSATCOM)

Direct Reporting Unit (DRU)

Enhanced Mobile Satellite Services

P.O. Box 549

Ft. Meade, MD 20755-9088

Contracting Office:

Defense Information Systems Agency (DISA)

Defense Information Technology Contracting Organization (DITCO) – Scott Field Office (PL8)

Mobile Satellite Services Section (PL8221)

2300 East Drive

Scott Air Force Base, IL 62225-5406

2. NATURE/DESCRIPTION OF ACTION(S):

Original: The purpose of this procurement is to issue a Firm Fixed Price (FFP) bridge contract to Iridium Satellite, LLC. This procurement will provide airtime services for the EMSS

Department of Defense (DoD)//United States (U.S.) Government customers. The anticipated period of performance (PoP) shall be no more than two months (April 22, 2019 through June 21, 2019). The anticipated lifecycle value is , which will be funded by Fiscal Year 19

Defense Working Capital Funds.

MOD 01: The requested lifecycle is being extended in five 1-month options not to exceed a total of five months (June 22, 2019 through November 21, 2019). The resulting contract lifecycle value may increase up to thus making the final contract lifecycle value if all options are exercised.

EMSS Airtime Bridge Effort-JA19-076

Page 2 of 7 Pages

3. DESCRIPTION OF SUPPLIES/SERVICES:

The DISA EMSS Airtime Service Program provides secure and non-secure mobile satellite communications access in areas of the world where other forms of communication are non-existent to support 100% global, government/military operations, Very Important Person communications, search and rescue operations, disaster relief, and other Command, Control, Communications and Intelligence (C3I) missions worldwide. In today’s information threat environment, EMSS provides a valuable combat-multiplier function to off-load some communications from scarce Military Satellite Communications (MILSATCOM) resources to accommodate Warfighter requirements and those of other DoD, Federal, and state agencies.

Presently, the DISA EMSS Airtime Service Program provides mobile satellite services via the commercial Iridium satellite constellation. The EMSS service is provided through a direct wholesale relationship to the DoD/U.S. Government, from Iridium. The Iridium network provides global coverage, reaching 100% of the Earth’s surface including all oceans, air corridors, and Polar Regions. Iridium owns, operates, and controls the commercial satellite constellation, with the licenses in place to uplink/downlink from U.S. based DoD owned terrestrial feeder-link gateways. As discussed below, the Iridium satellite constellation is the only network available that provides the required global coverage and support.

The EMSS Airtime contract must provide: fixed price standard services, comprised of Satellite

Communication (SATCOM) voice communication (including Type 1 voice encryption), two-way short burst data (SBD) radio communication, “netted” tactical global voice/messaging radio communication, paging/messaging, global data broadcast, and medium-speed data internet/virtual private network (VPN).

4. IDENTIFICATION OF STATUTORY AUTHORITY:

In accordance with 10 U.S.C. 2304 (c) (1), FAR Part 6.302-1: The supplies or services needed by the agency are available from only one responsible supplier and no other type of supplies or services will satisfy the needs of the agency.

5. DEMONSTRATION OF CONTRACTOR’S UNIQUE QUALIFICATIONS:

(a) Description of events.

On August 1, 1996, the original EMSS contract (DCA100-97-D-0001) was awarded to

Motorola/Iridium using the Iridium infrastructure. The PoP was a 12-month base period with four 1-year options. The contract type was an Indefinite Delivery/ Indefinite Quantity

(IDIQ) with unlimited airtime service for 20,000 users.

The first follow-on EMSS contract was awarded as a sole source to Motorola/Iridium. In

December of 1998, Motorola/Iridium filed for bankruptcy. In December of 2000, under court guidance, Iridium Satellite Limited Liability Corporation (ISLLC) purchased the entire

Motorola/Iridium satellite infrastructure. DISA renegotiated the contract, which was subsequently awarded to ISLLC on December 12, 2000. The purpose of the contract was to provide secure, global, lightweight, handheld, wireless, communications capabilities to support high priority and special needs for five years to cover unlimited airtime services up

Page 3 of 7 Pages to 20,000 users.

Since 2006, DISA has awarded three sole source, FFP contracts to ISLLC, now named

Iridium Communications, Inc. The most recent sole source Iridium airtime service contract

(HC1047-14-C-4000) was a five-year contract that provided airtime services from October 22, 2013 through April 21, 2019.

(b) Justification.

1. Minimum Government requirements.

At a minimum, the Government requires program management and commercial satellite airtime services that utilize both commercial and non-commercial devices

(provided through other contracts) in support of EMSS DoD users. The satellite communication services must be available globally, to include the poles, and the space segment must not be reliant on third party or terrestrial infrastructure in order to route calls for security reasons (e.g., third party terrestrial fiber and facilities are not certified to DoD security and information assurance standards). The network must support the use of small form-factor and portable, hand-held equipment. In addition, this global coverage is provided from a single, government-owned access point allowing the government to interconnect with government-owned terrestrial networks and provide security oversight of the complete terrestrial infrastructure system use to provide government service. All requirements need to be met for the life of the contract.

2. Proposed sole source contractor.

Iridium is the owner and operator of the Iridium constellation and the only source capable of meeting the requirements for the EMSS Airtime Service contract.

Iridium has the technical expertise, capability, and acquired satellites to successfully meet all requirements for the EMSS Airtime Service contract. There are no other known providers of service that meets the requirement for global coverage and non-reliance on third party or terrestrial infrastructure in order to route calls.

3. Discussion regarding cause of the sole source situation.

This contract initiated a FAR extension for six months to 21 April 2019, and two subsequent one-month bridge contracts. Due to the length of negotiations with

Iridium, an agreement will not be in place by the expiration of the extension period. This bridge effort is to provide additional time for negotiations while allowing EMSS customers to continue to receive access for this critical capability.

This new airtime service contract will be a follow-on to sole source contract

HC1047-14-C-4000 awarded October 22, 2013, continuing airtime services that have been in place since 1996. At the present time, no other contractor can fulfill all airtime service requirements. Motorola/Iridium, until its bankruptcy when it was acquired by Iridium Satellite Limited Liability Corporation (ISLLC), has been the sole source provider since the initial contract. ISLLC is the only

Page 4 of 7 Pages provider able to support complete global coverage (pole-to-pole) communications requirements from 90 degrees North to 90 degrees South latitude. Only Iridium operates a satellite constellation capable of meeting the global coverage demand.

4. Impact.

If the current EMSS Airtime contract is not extended, on-going government/sponsored operations and the survivability of deployed forces that rely on EMSS DoD Gateway airtime service will be at risk. Lack of this capability will result in the non-delivery of information critical to National Security and military operations world-wide. Either result is unacceptable to DISA's commitment to deliver a secure communications capability to the Warfighter.

Voice, data, and paging services using the Iridium satellite constellation are offered by other providers for commercial services. However, these providers and resellers cannot provide the Distributed Tactical Communications System (DTCS) because it is not commercially available. Only Iridium can provide DTCS as the satellite operator.

Iridium provides the only true global coverage satellite network with coverage in the Polar Regions. No other provider can supply the types of services offered in these regions.

6. FEDERAL BUSINESS OPPORTUNITIES ANNOUNCEMENT/POTENTIAL SOURCES:

A synopsis for this action will be published on the FedBizOpps website, as required by FAR

5.201.

7. DETERMINATION OF FAIR AND REASONABLE COST:

In coordination with the DITCO’s Cost and Pricing Branch and the Technical Evaluation team, the Contracting Officer (KO) will determine whether the cost/price is fair and reasonable. In order to do so, price analysis to include comparison with prices obtained through market research, historical data, and comparison with Independent Government Cost Estimates may be utilized. Cost analysis may also be used if fair and reasonable price cannot be determined through price analysis alone. Cost and pricing data may be requested if necessary. Technical evaluations will also be conducted. The KO and Contracting Specialist will ensure that the resulting negotiated price is fair and reasonable to the government.

8. MARKET RESEARCH: In accordance with DISA Acquisition Regulation Supplement

(DARS) 10.002 (S-91) (2), a market research report is not required because this is a bridge contract action. However, the acquisition history for these services was reviewed. Since the establishment of the EMSS DoD Gateway, Iridium has been the only available source to meet the Government’s requirement by providing satellite communications that support end-to-end security interoperability with Type 1 SATCOM equipment and DTCS netted/push-to-talk services. Market Research for the follow-on contract has confirmed that Iridium remains the only satellite communications provider capable of providing global coverage, including the Polar

Regions, from 90 degrees North latitude to 90 degrees South latitude. Iridium represents a complete solution by owning, operating, and controlling their own commercial satellite

Page 5 of 7 Pages constellation, with licenses in place to uplink to/downlink from US-based DoD-owned terrestrial feeder-link antenna gateways. This solution provides enhanced security, control, and reliability of service to the DoD community.

9. ANY OTHER SUPPORTING FACTS: Not Applicable (N/A)

10. LISTING OF INTERESTED SOURCES:

Iridium Communications, Inc.

1750 Tysons Boulevard, Suite 1400

McLean, VA 22102

Phone: l-703-287-7400

11. ACTIONS THE AGENCY MAY TAKE TO REMOVE OR OVERCOME BARRIERS

THAT LED TO THE EXCEPTION TO FULL AND OPEN COMPETITION:

(a) Procurement History.

1) Airtime Contract Number: HC1047-14-C-4000

Contractor: Iridium Satellite LLC.

Objective of Contract:

The contract with provides DoD with global satellite communications services for handset, pager, and other potential mobile/stationary user equipment configurations.

This contract provides for an unlimited number of EMSS Government users and devices.

Contract Type: FFP, Sole Source

Total Contract Value:

Contract Period: October 22, 2013 - April 21, 2019

2) Airtime Contract Number: HC1047-08-C-4004

Contractor: Iridium Government Solutions LLC.

Objective of Contract:

The contract with provides DoD with global satellite communications services for handset, pager, and other potential mobile/stationary user equipment configurations.

This contract provides unlimited monthly voice, data and messaging services for up to fifty three thousand (53,000) Government subscribers.

Contract Type: FFP, Sole Source

Contract Period: April 2007 - March 2012

3) Airtime Contract Number: HC1047-06-C-4009

Objective of Contract:

The contract with ISLLC provides the DoD with global satellite communications services for handset, pager, and other potential mobile/stationary user equipment configurations. This contract provides unlimited monthly voice, data and messaging services for up to thirty thousand (30,000) Government subscribers.

Contract Type: FFP, Sole Source

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Contract Period: April 2006 - September 2007

4) Airtime Contract Number: DCA100-01-C-4007

Objective of Contract:

The contract with ISLLC provides the DoD with global satellite communications services for handset, pager, and other potential mobile/stationary user equipment configurations.

This contract provides unlimited monthly voice, data and messaging services for up to thirty thousand (30,000) Government subscribers.

Contract Type: FFP, Sole Source

Contract Period: December 2000- September 2005

The Government’s security and interoperability requirements have made these procurements sole-source for the past 17 years. The sole source awards were made to Motorola/Iridium, a large business and subsequently to its successor, ISLLC. A number of key services offered by Iridium are not otherwise available commercially. The Iridium satellite constellation is the only one in the world that provides true global coverage. All other satellite providers are constrained by geostationary orbits. These orbits prevent signals from reaching beyond 70 degrees North and

South latitude. This leaves the polar regions of the planet uncovered. Until the Government or private industry invests in a comparable system, competition is not feasible for airtime services.

Additionally, the cost to create a comparable system is unduly high and utilizing the current

Iridium system is in the best interest of the Government.

12. REFERENCE TO THE APPROVED ACQUISITION PLAN (AP): The original Acquisition

Plan dated October 11, 2013 was amended in accordance with DARS 7.103 (S-91).

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TECHNICAL CERTIFICATION: I certify that the supporting data under my cognizance which are included in the J&A are accurate and complete to the best of my knowledge and belief.

NAME: SIGNATURE: See separate PDF

TITLE/ORGANIZATION:

PHONE: DATE:

REQUIREMENTS CERTIFICATION: I certify that the supporting data under my cognizance which are included in the J&A are accurate and complete to the best of my knowledge and belief.

CONTRACTING OFFICER CERTIFICATION: I certify that this justification is accurate and complete to the best of my knowledge and belief.

HEAD OF THE CONTRACTING ACTIVITY APPROVAL: I have reviewed this justification and find it to be accurate and complete to the best of my knowledge and belief. Since this justification for OTFAOC does not exceed $93M, this review serves as approval.

ALL QUESTIONS REGARDING THIS JUSTIFICATION ARE TO BE REFERRED TO:

Michael A. Clifton at michael.a.clifton.civ@mail.mil or 301-225-2091.

Modification 01 Signature Page

TECHNICAL CERTIFICATION: I certify that the supporting data under my cognizance which are included in the J&A are accurate and complete to the best of my knowledge and belief.

NAME: LEROY LONG SIGNATURE:

TITLE/ORGANIZATION: EMSS Program Manager/IE21

PHONE: 301-225-4066 DATE:

REQUIREMENTS CERTIFICATION: I certify that the supporting data under my cognizance which are included in the J&A are accurate and complete to the best of my knowledge and belief.

NAME: Leroy Long for Clare Grason SIGNATURE:

PHONE: 301-225-2030

Chief COMSATCOM/ AFSPC

DATE:

CONTRACTING OFFICER CERTIFICATION: I certify that this justification is accurate and complete to the best of my knowledge and belief.

NAME: JARID L. SCHULTE SIGNATURE:

TITLE/ORGANIZATION: Contracting Officer

PHONE: 618-418-6567 DATE:

HEAD OF THE CONTRACTING ACTIVITY APPROVAL: I have reviewed this justification and find it to be accurate and complete to the best of my knowledge and belief. Since this justification for OTFAOC does not exceed $93M, this review serves as approval.

NAME: DOUGLAS W. PACKARD SIGNATURE:

TITLE/ORGANIZATION: Head of the Contracting Activity / DISA/DITCO

PHONE: 301-225-4120 DATE:

ALL QUESTIONS REGARDING THIS JUSTIFICATION ARE TO BE REFERRED TO:

Michael A. Clifton at michael.a.clifton.civ@mail.mil or 301-225-2091.

Page 7 of 7 Pages mailto:michael.a.clifton.civ@mail.mil