ID07190065_REAP_Phase_2_JOTFOC-7.11.2019_Redacted.pdf

JUSTIFICATION FOR OTHER THAN FULL AND OPEN COMPETITION

1) Identification of the Agency, Contracting Activity, and Document being approved:

Procurement Office: General Services Administration (GSA) – Region 7, Federal Acquisition Services (FAS), Acquisition Operations Division (AOD) Agency: Air National Guard (ANG) Contract Number: ID07190065 Description of Requirement: Rosetta Echo Advanced Payloads (REAP®) Phase 2 in accordance with the Performance Work Statement (PWS).

Estimated Dollar Value:

Period of Performance (PoP): Twenty-two (22) months from date of award (non-severable)

Contractor Name: General Atomics – Aeronautical Systems Incorporated (GA-ASI) (Prime)/Ultra Electronics (Subcontractor)

2) Description of action being approved:

GSA proposes to award a noncompetitive, noncommercial Time & Materials (T&M) contract to GA-ASI to provide program management and engineering support for the continued modernization of the REAP® System under the Phase 2 effort.

__X___ 6.302-1 Only one responsible source and no other supplies or services will satisfy agency requirements.

(a) Authority.

(1) Citations: 10 U.S.C. 2304(c)(1) or 41 U.S.C. 253(c)(1).

3) Description of Supplies or Services Required:

The objective of the ANG MQ-9 REAP® Phase 2 Operational Utility Evaluation (OUE) effort is to demonstrate integration of critical capabilities for airborne disaster relief and recovery using the MQ-9 aircraft and the AGILEPOD® 16, resulting in a fieldable System.

AGILEPOD® is an open architecture, reconfigurable multi-mission pod for command and control, Intelligence, Surveillance and Reconnaissance (ISR) and global strike operations.

The REAP® Phase 2 effort will include design tradeoffs, engineering, integration, test, certification and Time Compliance Technical Order (TCTO) development. The objective of the requirement is to provide a solution suitable for use with MQ-9 Block 5 and Block 1 Barrett Asymmetric Digital Datalink Computer (BADDC)-equipped aircraft, Block 30 Ground Control Station (GCS), and 2400 series software. The REAP® Phase 2 solution will provide 4th Generation Long Term Evolution (4G LTE) and 3G cellular capability, upgradable to 5G, and accompanying high-bandwidth backhaul component to support mission-critical high-bandwidth data tools and applications being developed for military and public safety use. This capability will augment airborne disaster relief/recovery communications.

The REAP® Phase 2 solution will be incorporated into AGILEPOD® 16.

Engineering support will be provided for the following:

Government Airworthiness process to execute the ground and flight testing.

Government Cybersecurity Authorization process to achieve the goal of an updated Authorization to

Operate (ATO) for the REAP® Phase 2 System.

B-6

Justification for Other Than Full and Open Competition Contract ID07190065

Operational Utility Evaluation (OUE) to be conducted by the ANG Air Force Reserve Command Test Center (AATC).

4) Identification of Statutory Authority:

The statutory authority for 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. REAP® Phase 1 was awarded on January 4, 2017 to Alion Science and Technology Corporation in the amount of $43,847,242 under Task Order FA8075-14-D-0014/FA8075-17-F1308. This task order was issued against the Defense Systems Technical Area Tasks (DS TATS) multiple award, indefinite delivery/indefinite quantity IDIQ contract by the Air Force Installation Contracting Agency, Defense Technical Information Center (AFICA/KD). As the Prime contractor, Alion Science and Technology Corporation subcontracted a portion of this effort to GA-ASI, the lead platform integrator and Ultra Electronics, the manufacturer of the Tactical Airborne Communications Pod (TACPOD).

REAP® Phase 1 leveraged the achievements of the TACPOD Beyond Line of Sight (BLOS) Command and Control Employment Quick Reaction Capability (QRC) conducted by the United States Air Force (USAF) Life Cycle Management Center (LCMC) at Hanscom, AFB. The TACPOD system is a persistent communications repeater capability for MQ-9 Remotely Piloted Aircraft (RPA. The ANG accepted transfer of the TACPOD system in the first quarter of 2017 and possession is maintained by the 163rd Reconnaissance Wing at March Air Reserve Base. In 2018, the REAP® Phase 1 effort configured the TACPOD to suit the ANG’s mission using MANET radios, P-25 radio, KOR-24A STTs, ADS-B and other software updates.

Through GA-ASI, the MQ-9 aircraft interfaces, software, and GCS have elements that are restricted rights, i.e. proprietary, while the TACPOD and equipment integrated into it in REAP® Phase 1 by Ultra Electronics have proprietary interface and design elements.

Under REAP® Phase 2, the objective is to take the equipment that was integrated into the TACPOD in REAP Phase 1, integrate that same capability into the Government-developed AGILEPOD®, and also integrate the 4G LTE and 3G Cellular capability into that same baseline. The AGILEPOD® has more capacity and is meant to replace the TACPOD.

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

Exception is justified due to the proprietary nature of the MQ-9 Block 1 and Block 5 aircraft produced by GA-ASI. The USAF has been purchasing the MQ-9 system with restricted rights asserted by GA-ASI on multiple contracts since the program requirements were approved in 2004. Since some of the MQ-9 initial capabilities were developed at private expense by GA-ASI, the USAF has been documenting and requiring that GA-ASI provide assertions, reviewed by USAF Data Rights Team. With respect to REAP® Phase 2, GA-ASI has asserted that the MQ-9 software and hardware baseline has restricted rights in the Redundant Control Module (RCM), Digital Flight Control System (DFCS) Datalink, Digital Ground Control System (DGCS) Inter-rack, RCM Interface, Payload Power Distribution Module (PPDM), and Mission Control Module (MCM). Additionally, the engine control system, nose wheel steering, brake servos, and the ground control of those systems by the pilot are also asserted as limited rights. Assertions were made in ASI- 10588C Proprietary Documents for MQ-9 Block 1 and Block 5 Requirement Description Documents, dated September 12, 2017, and delivered under Contract FA8620-10-G-3038/0033.

GA-ASI has the proprietary interface for the communications interface with the aircraft in the MCM, to get commands and data from the datalink to the pod, and back. The DGCS proprietary interface controls the messages from the ground operator to the ground data link module to the proprietary DFCS module on the aircraft. The proprietary electrical interface (PPDM) controls power for the aircraft avionics, any pods and weapons, and controls the battery back-up system. The RCM module is the central controller in the MQ-9, and controls the commands sent to the Flight control system, the engines, and the PPDM. The PPDM controls the power distribution, so to get power from the aircraft to the equipment in the pod, the PPDM must be configured to provide the correct power up for all the payloads in the aircraft and any pods. If done in the incorrect process, over current draws and power spikes damage the equipment and may cause the aircraft to go on battery back-up power only. In that case, the mission is scrubbed, and the aircraft may sustain damage. These key interfaces control turning the power on to the pod and setting up the communications between the equipment and the operator.

Additionally, the REAP payload integration of the communications equipment into the AGILEPOD® is a modification to the design done by Ultra Electronics under Phase 1. Due to Ultra Electronics’ proprietary design and interface elements, the Government is restricted from using competitively.

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

Due to the proprietary nature of the aircraft integration, software, GCS and the internal design of the pod equipment interfaces, it is not practicable to compete this requirement. If the requirement were competed, directed subcontracting to GA-ASI and Ultra Electronics would then be necessary. The majority of work would be completed by these two subcontractors, leaving the prime contractor primarily as the focal point for any documentation, i.e. reports, generated.

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

Pricing from similar efforts for the Airworthiness documentation and analysis, integration, and logistics support to include updating technical manuals, flight testing from actual integration efforts by the MQ-9 Program will be utilized.

The Contracting Officer will also do a comparison of the GA-ASI’s proposed price with the historical cost from the previous task order and the Independent Government Cost Estimate (IGCE) to determine that quoted pricing is fair and reasonable before award of this contract.

8) Description of market survey conducted:

A Request for Information/Sources Sought was posted on the Federal Business Opportunities website for seven (7) days. No responses were received. Although GA-ASI did not respond, they have expressed interest in doing this requirement as the prime. A Sources Sought was also conducted for seven (7) days with the One Acquisition Solution for Integrated Services (OASIS) Pool 4, both small business and unrestricted. One (1) response was received from each Pool. The response from the OASIS Small Business Pool 4 was found to be technically non-capable. For the OASIS Pool 4 Unrestricted, the response from Alion, Inc. was found to be technically capable; however, due to the MQ-9 proprietary interfaces and the communications systems domain knowledge being used from the REAP Phase 1 design subcontracting with GA-ASI and Ultra Electronics would be required for successful flight testing and fielding of the required capabilities. It is the Government’s intent to allow for competition on all requirements. If this were to be competed, market research indicates that it would have to occur as full and open competition on the open market to allow both Alion, Inc. and GA-ASI to compete. Since Alion, Inc., or any other contractor, would have to subcontract to GA-ASI, it is unlikely that GA-ASI would submit a proposal with Alion, Inc. or any other contractor if GA-ASI intends to submit a proposal as the prime. As a result, it is anticipated that only one (1) proposal would be received from GA-ASI. Therefore, due to the proprietary nature of the aircraft integration, software, GCS and the internal design of the pod equipment interfaces, competing this effort is not in the best interest of the Government.

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

The MQ9 is too far into the operational lifecycle to consider the cost of re-engineering. It is more beneficial in the short term to support new capabilities rather than fund redevelopment.

The Contracting Officer has determined that no other contractors have the immediate resources or skilled personnel to appropriately support the ANG with the REAP® Phase 2 requirements. It is necessary to continue the work with GA-ASI/Ultra Electronics.

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

GA-ASI/Ultra Electronics

11) Statement of Actions to overcome barriers of competition:

The Government has full data rights for AGILEPOD®, as it was developed by AFLCMC/AFRL and AFLCMC/WI. AFLCMC/AFRL and AFLCMC/WIN are currently developing additional payloads for the AGILEPOD® with several small businesses and vendors to be integrated at a later date into the AGILEPOD®. Once the AGILEPOD® is integrated with the MQ-9 aircraft, the opportunity for new capabilities from other vendors will be widely available.

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 her knowledge and belief.

SIGNATURE/APPROVAL ROUTING

Technical Representative’s Certification: By signatory below, I state that I have read, understand, and agree with the technical information/representation made herein. The ANG provided the Agency the 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 other than full and open competition, in accordance with FAR Subpart 6.302-1, and the information described herein.

The Project Manager and Contracting Officer certify by signature below that the information contained in this justification is accurate and complete to the best of her knowledge and belief.

JANET GILLIAM Date Project Manager

ERIN QUINN-NEUENDORF Date Contracting Officer

Coordination/Review/Approval:

LATASHA M. GOINES Date Section Chief, Assisted Acquisition Services

AMY COOK Date Legal Counsel

ERIN QUINN-NEUENDORF Digitally signed by ERIN QUINN-NEUENDORF Date: 2019.07.10 09:13:54 -05'00'

AMY COOK

Digitally signed by AMY COOK Date: 2019.07.10 10:54:27 -05'00'

JANET GILLIAM Digitally signed by JANET GILLIAM Date: 2019.07.10 11:16:45 -05'00'

WILSON.CURTIS.GLENN.1

258907163

Digitally signed by

WILSON.CURTIS.GLENN.1258907163

Date: 2019.07.10 12:30:39 -04'00'

LATASHA GOINES Digitally signed by LATASHA GOINES Date: 2019.07.10 12:52:16 -05'00'

ALAN SEARSY Date Chief, Assisted Acquisition Services

MIKE MCDANIEL Date Competition Advocate

GEORGE PROCHASKA Date FAS Regional Commissioner/Head of the Contracting Activity

ALAN SEARSY Digitally signed by ALAN SEARSY Date: 2019.07.10 14:14:02 -05'00'

MICHAEL MCDANIEL Digitally signed by MICHAEL MCDANIEL Date: 2019.07.10 17:57:26 -05'00'

GEORGE PROCHASKA Digitally signed by GEORGE PROCHASKA Date: 2019.07.11 09:59:06 -05'00'