JA13-111A_HEMP_JA_-_redacted_-_8_Oct_13.docx

JUSTIFICATION FOR OTHER THAN FULL AND OPEN COMPETITION (OTFAOC)

FAR Part 6 Justification, Supporting Procurements under FAR Part 12, FAR Subpart 13.501, and FAR Part 15

Purchase Request Number: HEMPFiberOptic Contract Number: HC1013-13-D-0001 Task/Delivery Order Number: N/A Procurement Title: Steelpipe High Altitude Electromagnetic Pulse (HEMP) Protected Fiber Optic Cable System Contracting Office: Defense Information Systems Agency (DISA), Defense Information Technology Contracting Organization (DITCO)-Scott/PL8223 Estimated Value: [REDACTED] Statutory Authority: 10 U.S.C.2304(c)(1) and (FAR 6.302-1(a)(2)(iii)/DFARS 206.302-1)

OTFAOC

Justification for OTFAOC Number: JA13-111A

Upon the basis of the following justification, I, as Procuring Activity Competition Advocate, 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), FAR Part 6.302-1.

JUSTIFICATION

1. REQUIRING AGENCY AND CONTRACTING OFFICE: Requiring Activity:

Air Force Space Command Michael L. Hamilton, DAF Space Command Digital Integrated Network (SDIN) Program Manager 50th Space Communications Squadron (50 SCS)/SCXP 300 O’Malley Avenue, Ste. 37 Schriever AFB, Colorado 80912 (719) 567-2537

DSN 560-2537

Email: michael.hamilton2@us.af.mil

Contracting Activity: Patricia E. Hilton Contracting Officer DISA/DITCO/PL8223 2300 East Drive Scott AFB, IL 62225-5406

618-229-9450 DSN: 779-9450

Email: patricia.e.hilton.civ@mail.mil Steel p ipe H i gh Altitu d e

Elec t ro m ag n etic P u lse HEMP) Protected Fi b er

Optic Cable

System

JA13-111A

Page of 6 Pages

2. NATURE/DESCRIPTION OF ACTION(S): Amend to reflect accurate estimated value of [REDACTED]. The existing Firm Fixed Price contract with Qwest Government Services, Inc. dba CenturyLink QGS for the Steelpipe High Altitude Electromagnetic Pulse (HEMP) Protected Fiber Optic Cable System expires on September 29, 2013. This Justification for Other Than Full and Open Competition is being submitted for the purpose of requesting that this solicitation be awarded in September 2013 as a Firm Fixed Price contract to CenturyLink for a period of 60 months (1 year with 4 one-year options). Service required provides Dense Wave Division Multiplexing (DWDM) OC-48 service between Cheyenne Mountain Air Force Station (CMAFS), Peterson Air Force Base (PAFB) and Schriever Air Force Base (SAFB). Service required provides continuous, uninterrupted High Altitude Electronic Pulse (HEMP) protected service on diversely routed HEMP hardened fiber optic paths at each location, with no electronic breakouts outside of government provided HEMP protected facilities. The service is required for 60 months with estimated value of [REDACTED]. Non-Recurring Charges are not applicable to this proposed requirement. These fiber optic links support the missions of the Colorado Springs Survivable Communications Network.

3. DESCRIPTION OF SUPPLIES/SERVICES: The Contractor shall provide leased telecommunication services and maintenance. The Contractor shall provide network/system/service and equipment terminating at the 3 bases that have the capability of supporting Wave Division Multiplexing (WDM), and have the ability to provide the initial two lambda services with capacity for at least two additional OC-48 wavelengths terminating at each location with no electronic breakouts outside of the terminating HEMP facilities at the 3 bases as described in the Statement of Work.. The service is required for 60 months (1 base year with 4 one year options) with an estimated value of [REDACTED]. This requirement is for the Air Force Space Command.

FAR 52.237-3 (Continuity of Services), FAR 52.217-8 (Option to Extend Services), and FAR 52.217-9 (Option to Extend the Term of the Contract) will be included in this contract, to allow for a phase-in/phase-out period if it is required.

4. IDENTIFICATION OF STATUTORY AUTHORITY:

Only one responsible source and no other supplies or services will satisfy agency requirements, 10 U.S.C.2304(c)(1). (FAR 6.302-1(a)(2)(iii)/DFARS 206.302-1)

5. DEMONSTRATION OF CONTRACTOR’S UNIQUE QUALIFICATIONS: This specialized service has unique communications service requirements which must be met (i.e., the communications service must survive in the event of a nuclear attack). The communication service will terminate in HEMP shielded building/shelters, and must not be affected by the effects of a High Altitude Electromagnetic Pulse (HEMP) that results from nuclear bombs exploding. CenturyLink is the only Contractor which has fiber connectivity, with the associated rights of way, between the three bases which meet the unique HEMP requirements of the government. Their fiber optic cables and service supporting each link are required to meet the diverse routing, fiber integrity, and circuit performance parameters identified in the associated Statement of Work.

CenturyLink, previously named Qwest, initially engineered, installed and provided the current HEMP and Blast Hardened service in 1993 under sole source contract DCA200-93-D-0049 (Cheyenne Mountain AS/Schriever) and later received the competitively re-awarded contract DCA200-95-C-0052 to provide similar services between Cheyenne Mountain AS/Peterson AFB and Peterson AFB/Schriever AFB. CenturyLink provided the initial service, implemented several Government directed changes of fiber routing, and received the competitively re-awarded contract DCA200-98-C-0060 in 1998. Although it was a competitive award, Qwest [now known as CenturyLink] was the only vendor to submit a proposal during the re-compete action. In 2008, the contract was rewarded to Quest [now known as CenturyLink] as a sole source contract. A unique qualification of CenturyLink is that they have total fiber routes in place using existing rights of way with no electronic break outs [which fulfills one of the major requirements of the Statement of Work].

Current market research was performed in January 2013 with a Request for Information (RFI) to determine sources with competencies to provide the services for a Steelpipe High Altitude Electromagnetic Pulse (HEMP) Protected Fiber Optic Cable System. In March 2013 another RFI was issued for a fiber only solution. Although there were several contractors who expressed an interest in providing the service, none of the other contractors currently has infrastructure in place to provide the HEMP protected service that is required. The contractors did not have existing right of ways to provide the service, the existing ducts at the bases were full or almost full, and the bases currently lack the capacity to allow additional construction on the bases or additional ducts to the bases. There are plans for the bases to install new fiber and ducts [which would increase capacity]. However, current plans are for the construction to begin sometime in FY15 or later.

In accordance with FAR 6.302-1(a)(2)(iii), “services may be deemed to be available only from the original source in the case of a follow-on contract 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.” A discussion of unrecoverable duplicate costs follows.

The total, non-recurring cost the Government paid for the installation of the service, under DCA200-93-D-0049 (Cheyenne Mountain AS/Schriever); and follow-on DCA200-95-C-0052 was [REDACTED]. Also, under reawarded contract DCA200-98-C-0060 the government paid leasing equipment costs of [REDACTED] for infrastructure technology upgrade to current Dense Wave Division Multiplexing (DWDM) service which could not be recovered through competition. Based on market research, in addition to these unrecoverable costs, the costs associated with another vendor installing the new fiber (considering diversity, rights of way, equipment, and burying of fiber) would range from $8M - $13M, depending on the type of replacement service desired [the same type of service or a fiber only solution].

6. FEDBIZOPPS ANNOUNCEMENT/POTENTIAL SOURCES: DITCO Contracting Officer will publish a FedBiz Opps notification, informing the business community of the anticipated sole source award. The approval authority will be advised of any responses to the synopsis.

7. DETERMINATION OF FAIR AND REASONABLE COST: A cost and/or price analysis will be performed to determine if the proposed costs/prices are fair and reasonable. Current industry charges will be used for comparison pricing, as well as any in place tariffs for like services. If necessary, an audit by the Defense Contracting Audit Agency will be performed.

8. MARKET RESEARCH: Requests for Information (RFIs) to Industry were issued via FedBizOpps. Contractors who submitted a response to at least one of the two RFIs were: TWTC Public Sector, Stealth Com Solutions, Inc., CenturyLink QGS, and ORCA Communications. There are several carriers in the Colorado Springs area providing fiber optic services, but none have the fiber connectivity without electronic breakouts, or have the associated rights of way to all three facilities. None have the required diverse fiber paths with avoidance criteria, provide HEMP service to these facilities, or have equipment in place at the HEMP facilities. Lastly, at all three sites, space is not available to run concurrent operations should the Government transition service to a new vendor. Disruption is not an option as this service is in support of national defense. Market research was performed in 2013.

9. ANY OTHER SUPPORTING FACTS: The Colorado Springs Survivable Communications Network is part of a local, stand-alone (private), Synchronous Optical Network (SONET) capable of sustained operation in the presence of the threats encountered by the Command and Control facilities at Peterson Air Force Base (PAFB), Schriever Air Force Base (SAFB), and Cheyenne Mountain Air Force Stations (CMAFS). Because of the nature of the threats, the network is mandated to employ path, diversity, communications site dispersal, nuclear effects hardness, and modern systems control (technical control) techniques. A robust nuclear survivable, local communications network is needed to ensure that critical voice, message, video, and data communications reach command authorities quickly and reliably. Survivability analysis shows that the fiber network topology to be provided under this contract meets the above criteria and is technically and financially feasible.

Installation of new fiber between Cheyenne Mountain Air Force Station, Peterson Air Force Base, and Schriever Air Force Base, if awarded to another contractor, would result in a duplication of costs. Based on current market research, purchasing the DWDM equipment, acquiring diverse paths and associated rights of way, and installing/burying new fiber for the 41 miles (216,480 feet) @ $60.00 per foot between the 3 facilities would cost an estimated $13M.

10. LISTING OF INTERESTED SOURCES: Air Force Space Command is not aware of any other vendor who has the fiber connectivity with no electronic breakouts and rights of way necessary to provide the required diversity. Contractors who submitted a response to at least one of the two RFIs were: TWTC Public Sector, Stealth Com Solutions, Inc., CenturyLink QGS, and ORCA Communications.

11. ACTIONS THE AGENCY MAY TAKE TO REMOVE OR OVERCOME BARRIERS THAT LED TO THE EXCEPTION TO FULL AND OPEN COMPETITION. The three bases involved are in the process of installing new duct work that will enable other vendors to be able to have right-of-way access more easily and affordably on base in the future, which is anticipated within 3-5 years. Future funding will be planned to allow for a fiber only solution in the future which is expected within 3-5 years.

12. REFERENCE TO THE APPROVED ACQUISITION PLAN (AP): A written AP was not accomplished.

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:

(Print/Type)

SIGNATURE:

TITLE/ORGANIZATION:

DATE:

PHONE:

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.

DATE:

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

DATE:

PROCURING ACTIVITY COMPETITON ADVOCATE 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 $12.5M, this review serves as approval.

NAME: SIGNATURE:

TITLE/ORGANIZATION: Procuring Activity Competition Advocate/DISA/DITCO PHONE: DATE: September 26, 2013