JFOTFOC_ID07180023_Redacted_.pdf

Justification for Other Than Full and Open Competition Task No ID07180023

4) Identification of Statutory Authority:

The statutory authority authorizing this action is (Citation 41 U.S.C. 253 (c)(1) as implemented by (FAR 6.302- 1). The supplies or services required by the agency are available from only one responsible source.

5) Demonstration that the Acquisition Requires the Use of the Authority Cited:

Historically, ANG has been shifting its focus from expensive live-fly training to simulator-based training due to its increased accessibility and cost efficiency. The HH-60G MMCT is a replica of the HH-60G cockpit and platform, including the navigator and flight engineer stations. The HH-60G MMCT provides pilot, copilot, and Special Mission Aviator (SMA) training systems that are fully populated with touchscreen switches, knobs, and displays that are representative of the location and appearance of a HH-60G helicopter. The HH-60G MMCT acts as a Flight Training Device (FTD) to support cockpit familiarization training, cockpit procedure training, and more; including Distributed Mission Operations (DMO) training through the Distributed Training Operations Center (DTOC). Due to the expanding HH-60G training requirements, as well as the increasing expense and limited availability of live-fly aircraft, the HH-60G MMCT fills a significant training need for the ANG HH-60G community. While the HH-60G MMCT is not a replacement for high-end Operational Flight Trainers (OFTs) or Weapons Systems Trainers (WSTs), the HH-60G MMCT acts as a low cost and efficient training simulator with the added benefit of a reduced footprint.

In FY13, ANG searched for a cost-effective training solution to provide ANG units with a HH-60G simulator. In the same fiscal year, ANG contracted Booz Allen Hamilton (BAH) and its subcontractor, JF Taylor, Inc., (JFTI) to develop a low cost and efficient simulator that would allow HH-60G flight crews to experience various simulation environments, train in random or configurable scenarios, provide performance monitoring, allow for instructor oversight and scenario control, and to provide portable handle held instructor control. This contract was awarded as a module under the Randolph Trainer Development (RTD) contract administered by GSA.

As the program office for many ANG simulators including the HH-60G MMCT, the 502 TDS relayed all simulator specifications and design requirements to BAH and to JFTI to ensure that the HH-60G MMCT would meet the necessary operating requirements.

The HH-60 MMCT effort started with the procurement of a SH-60F from the Aerospace Maintenance and Regeneration Group on Davis-Monthan Air Force Base (AFB) in Tucson, AZ. As the start of multiple phases, this SH-60F was shipped as Government Furnished Equipment (GFE) to JFTI to modify the cockpit to HH-60G specifications and to prepare the fuselage for future modifications. The HH-60G MMCT was slowly created into a Cockpit Familiarization Trainer (CFT) and in the next five phases will be integrated into a Cockpit Procedures Trainer (CPT) and then a Push to Talk (PTT). The HH-60G MMCT CFT started with the implementation of easy, low-end solutions to accomplish training as soon as possible. While the HH-60G MMCT is still undergoing design implementation which has been set in multiple phases throughout the next several fiscal years, including the implementation of Distributed Mission Training (DMO) operations, the HH-60G MMCT was installed in a Relocatable Simulation Shelter (RSS) for the 150th Special Operations Wing (SOW) at Kirtland AFB. Since the early design phase and through its installation, the HH-60G MMCT proved to be the best solution for ANG to mitigate the lack of funding and aircraft availability for live-fly training for ANG HH-60G units.

The HH-60G MMCT will continue to act as the premiere prototype for other HH-60 training simulators, including additional, new HH-60 models. It is ANG’s intent to continue to upgrade the HH-60G MMCT with extra capabilities as well as to fund additional HH-60 MMCT trainers as able at CONUS ANG HH-60 locations. Since the early design phase, the HH-60G MMCT is proving to be the best solution for ANG to mitigate the lack of funding and aircraft availability for live-fly training for ANG HH-60 units.

In an effort to provide sustainment and support for the HH-60G MMCT device, the ANG, through the 502 TDS, contracted BAH, with JFTI as a subcontractor, to provide ANG HH-60G MMCT TSSC services under ID07130017065 (Module 065). The ANG HH-60G MMCT TSSC was implemented at Lexington Park, Maryland with COMS support at Kirtland AFB in Albuquerque, New Mexico. To date, JFTI, as a subcontractor to BAH, has been the original service provider for the requested ANG HH-60G MMCT TSSC services. ANG has identified JFTI as the only provider able to meet the requirement for standardized HH-60G MMCT TSSC service and sustainment.

Due to the specialized design and function of the HH-60G MMCT and due to the unique sustainment services required by the TSSC, the procurement of services from other service providers would ultimately reduce device usability and functionality, and would negatively affect the detailed integration timeline already preset by ANG for device upgrades.

The provided services listed above will be solely utilized by the 150 RW and other future gaining units when the HH-60G MMCT reaches its full operating potential after all design needs are implemented. After accreditation, which is expected shortly after the HH-60G MMCT start up, the HH-60G MMCT will be the only HH-60G MMCT training device capable of providing accredited qualification and mission rehearsal requirements currently employed by ANG units. As a result, the ANG will be pure-fleeted with HH-60G MMCT devices. Currently, no other ANG units are utilizing other similar HH-60G MMCT training devices serviced by other vendors.

During the initial procurement for ANG HH-60G MMCT TSSC services, the Government expended significant labor costs and time to define sustainment specifications tailored for its HH-60G MMCT simulators.

Specifically, ANG representatives met with JFTI on multiple occasions for design, development, and sustainment meetings which resulted in the creation of a standard service support system specific for the HH-60G MMCT device. Generally, the support and operation of a different HH-60G MMCT service provider would cost more to the Government in terms of time, labor costs, maintenance, replacement of COMS employees, and reduced interconnectivity between current HH-60G MMCT sustainment and the practices of other service providers. The implementation of another service provider would not be in the best interest of the Government.

Justification:

To meet the program requirements, JFTI has developed a hardware and software tools and processes for the design and operation of the HH-60G MMCT. JFTI’s unique technical approach allows for significantly reduced schedules and costs associated with development and each required phase of integration. The cost to develop these tools and processes cannot be recovered with increased competition.

To date, JFTI, as the HH-60G MMCT Original Equipment Manufacturer (OEM), has been the original service provider for the requested ANG HH-60G MMCT TSSC and the only known vendor capable of meeting the delivery schedule for next concurrency update. ANG evaluated the technical solutions proposed by other known HH-60 simulator contractors (L3/Boeing/Lockheed). These vendors do not have an installed baseline and system architecture matching the ANG requirement of an HH-60G MMCT. The cost to replicate the system is significant and cannot be recovered through competition, and would result in an unacceptable delay of the delivery of ANG concurrency requirements.

Under Module 065, JFTI has retrofitted a TSSC facility which meets the needs of the HH-60G MMCT.

The standup of this facility has taken approximately one (1) year and includes the implementation of a lab which is currently in use for the testing of software integration, the validation of cybersecurity processes, and the verification of cold-start processes. The costs for another vendor to build and modify similar facilities and acquire appropriate personnel cannot be recovered through competition, and would cause unacceptable delay of ANG concurrency requirements.

Summary.

The main factors that justify the restriction to this single service provider are as follows:

JFTI has the facilities, personnel, and equipment to continue uninterrupted TSSC services.

As the HH-60G OEM, JFTI has direct expertise and working knowledge of all facets of the HH-60G MMCT device (hardware, software, maintenance procedures) necessary to affordably sustain the systems.

Because of the semi-automatic processes, and hardware architecture that matches the aircraft, there is no known alternative that can match the price, quality, and timeliness of the JFTI approach.

Switching vendors, even if one could be qualified, would require a substantial change to both the computational hardware and software (modification of the existing HH-60G MMCT), would take significant time to build facilities and hire personnel to meet the requirements, would require substantial upfront costs, and would cause unacceptable delays to the integration phase schedule. Costs cannot be recovered through competition. There is no scenario where a financial or operational advantage to the government can reasonably be expected by switching to another vendor.

Operational Considerations:

Since the HH-60G MMCT is currently still in production, with design implementation to continue over the next several fiscal years, and since JFTI is wholly responsible for the continued design, development, and installation aspects of the HH-60G MMCT, it would not be in the Government’s best interest to change to a different vendor while in mid-production. JFTI has the experience to support the evolving requirements of HH-60G sustainment across all ANG units. The introduction of a new vendor would put all existing and upcoming devices at risk.

JFTI is currently in mid-production and the use of any other vendor to handle the assembly, set-up and operation of this simulation equipment not only involves substantial cost risks to the Government, but security risks as well. To consider award of this requirement to another vendor involves risk to the Government’s financial investment.

The HH-60G MMCT is used by the gaining units for training prior to deployments. If a vendor was selected, the training would be delayed while the changeover occurred and while the new provider learned the complex architecture and software design of the HH-60G MMCT. It is difficult to put an end date on the time to transition due to the requirement to develop a substitute for the JFTI proprietary, semi-automated OFP conversion tools, the standup of ICD-705 facilities, and access for personnel. A conservative estimate based on previous USAF programs indicates that the transition would be 1-2 years with no guarantee of success. Allowing JFTI to provide support for a device which they already designed, installed, and integrated represents the most cost-effective, timely, and streamlined approach to TSSC implementation, since it would avoid interrupting the training and mission readiness of warfighters at each ANG unit.

The 502 TDS and JFTI are currently pursuing an Authority to Operate (ATO) which will allow the HH-60G MMCT to operate in a classified environment when connected to Distributed Mission Operations (DMO). DMO connection will dramatically increase training capabilities and will allow the 150 RW and other units to train together across a secure network. Additionally, JFTI is currently working to upgrade the HH-60G MMCT devices to ensure that the hardware and software meets the DMO connectivity requirements to operate across the secure network. JFTI’s partnership with the 502 TDS and their experience and understanding of the security constraints and requirements will dramatically expedite each unit’s ability to connect to DMO for training.

6) Description of Efforts to Solicit as Many Offers as Practicable or Exception:

No efforts were made to solicit other offers given that JFTI is currently in mid-production with the device and the use of any other vendor to handle the assembly, set-up and operation of this simulation equipment not only involves substantial cost risks to the Government, but security risks as well. The costs of a typical HH-60G MMCT simulation trainer is in excess of $500k. To consider award of this requirement to another vendor would involve risk to the Government’s financial investment in the simulation equipment. Furthermore, the effort to continue to create and support the computational hardware and software provided through this effort will be classified as SECRET once connected to Distributed Mission Operations (DMO). As such, these reasons are the principal basis for the noncompetitive award.

Until other companies establish an equal HH-60G MMCT in form, fit and function that can integrate other like trainers over DMO, it would be neither reasonable nor feasible to consider any other contractor. To ensure the above is met, 502 TDS will however, continue to research other contractor’s capabilities. Continued efforts in this regard will ensure that the Government is getting the best value at a fair and reasonable price by ensuring the Government utilizes the most efficient and economical products.

7) Determination by the Contracting Officer that the Anticipated Cost to the Government will be Fair and Reasonable:

Comparisons with the previous years’ costs for the same effort were accomplished as well as market research regarding the booth rental costs and hardware costs associated with the booth demonstration components.

8) Description of market survey conducted:

Market research was limited to past procurements and the JFTI website. Other advertised vendors cannot provide all of the necessary services involved in successfully setting up or supporting this highly complex simulation equipment. Furthermore, use of other vendors to provide the needed solution would either be impractical or impossible.

9) Other facts supporting other than full and open competition:

N/A

10) List of sources that expressed an interest in the acquisition:

N/A

11) Statement of Actions to overcome barriers of competition:

There are no actions to overcome the current barriers to competition. The Government will continue to utilize other sources when warranted, and will conduct research to maximize competition whenever possible. Once design implementation has been completed, the TSSC may be competed.

12) The Contracting Officer and the responsible technical or requirements representative certifies by signature below that the information contained in this justification is accurate and complete to the best of his/her knowledge and belief.

SIGNATURE/APPROVAL ROUTING

Task ID: ID07180023

* Technical Representative’s Certification: By signatory below, I state that I have read, understand, and agree with the technical information/representation made herein. The 502 TDS provided the Agency and site specific technical information expressed herein, which is current, accurate, and complete based on the knowledge/information available up and until the date of signature.

Technical Representative Date

By signatory below, I state that I determine the statutory authority as cited herein and expressed in FAR Subpart 6.302-1 apply to this justification, and the justification is hereby approved on its merits as noted. Technical information was presented as being accurate and complete as received from the client, and was fully relied upon to document the request for limiting sources of supplies under Federal Supply Schedules, in accordance with FAR Subpart 6.302-1, and the information described herein.

This document, complete with the signature below serves as the Contracting Officer’s certification that this justification is accurate and complete to the best of the ordering activity contracting officer’s knowledge and belief .

* Contracting Officer’s Certification/Approval:

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Contracting Officer

Legal Counsel Date

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Section Chief, Assisted Acquisition Services

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Chief, Assisted Acquisition Services

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Competition Advocate