J_A_JSECST_redacted.pdf

CUI

JUSTIFICATION FOR OTHER THAN

FULL AND OPEN COMPETITION

I. Agency and Contracting Activity.

This Class Justification and Approval (J&A) is to request authority for Other Than Full and Open Competition (OTF&OC) to support requirements generated for the Air Force Lifecycle Management Center (AFLCMC), Automatic Test Systems (ATS) Division, AFLCMC/WNA.

The contracting activity for this requirement is AFLCMC/WNKAB, Robins AFB, GA 31098.

The purchase request number supporting this contracting action is FD2060-22-30016.

II. Nature and/or description of the action being approved.

This is an amendment to approved J&A 22-30016 dated 13 Jan 2022. This amendment converts the original J&A from an Individual to Class J&A, adds contract line item numbers (CLINs) and revises CLIN estimates, and updates the total estimated dollar value from to . The anticipated contract award date is updated from 16 March 2023 to 30 June 2023. Changes/additions are in bold font.

Due to the circumstances described herein, the activity requests authority to acquire Repair and Engineering Services listed in this document using OTF&OC as prescribed by FAR 6.302-1, Only One Responsible Source and No Other Supplies or Services Will Satisfy Agency Requirements. This action will result in the award of a follow-on contract, which will be a Cost Plus Fixed-Fee (CPFF), Firm Fixed Price (FFP), Cost Reimbursable No Fee (CRNF), and Not Separately Priced (NSP) Requirements Indefinite Delivery Contract (IDC) with one (1) year basic period, plus four one-year option periods in accordance with FAR Clause 52.217-9, Option to Extend the Term of the Contract, as well as a six month option per FAR Clause 52.217-8, Option to Extend Services, against applicable orders. Based on projected contract award date, orders can be issued on the Requirement IDC from 30 June 2023 through 29 June 2028, if all options are exercised.

This sole source requirement will be purchased from the following company:

Textron Systems Corporation 124 Industry Lane Hunt Valley, MD 21030-3342

CAGE: 97384

Large Business

III. Description of the supplies/services required to meet agency needs (including the estimated value).

This requirement is for repair and engineering services of the AN/USM-670 National Stock Number (NSN): 4920-01-461-6316KV, AN/USM-670A (NSN: 4920-01-618-5101KV), Joint Service Electronic Combat Systems Tester (JSECST) retrofit kits (NSN: 4920-K-300-070A), and the Laboratory JSECST (NSN: 6940-01-619-8416KV). The JSECST repair and engineering services requirements include system repair, sustaining engineering, cybersecurity, and program management. JSECST retrofit kit installation is conducted during repair and includes the installation of retrofit kit (4920-01-618-5101KV) in accordance with Time Compliance Technical Order (TCTO) 33D-7-13-229-522, the kit is installed into the legacy 4920-01-461- 6316KV (USM-670). Once kit is installed the JSECST is upgraded to newest configuration 4920-01-618-5101KV (USM-670A). There are currently over 600 units of JSECST systems fielded across the Department of Defense (DoD) with a projected system service life ending in 2030. The JSECST is used to support the testing of Electronic Combat (EC) systems installed on operational aircraft. The JSECST supports all Air Force Major Commands, as well as the Army, Navy, and Foreign Military Sales. Aircraft platforms include, but are not limited to A-10, F-15, F- 16, F-18, AC/MC-130, CV-22, HH-47 and HH-60. The JSECST USM-670A provides End-to-End (ETE) Electronic Warfare (EW) systems functional testing capability;

automatically/manually determines the GO/No-Go status of an EC systems installed in or on operation aircraft with minimal technician interaction. The JSECST provides an ETE functional testing capability to determine the status of the EC systems installed in or on operational aircraft and is only used for military purposes.

BASIC

Option I

Option II Option III Option IV

6-Months For Orders

Estimated Amounts

Total

CLIN DESCRIPTION BEQ U/I UNIT

PRICE

TOTAL

COST

CLIN

Type

Basic:

0001 Engineering Services

Recurring

12 MO CPFF

0002 Sustaining Engineering Non-Recurring

1 EA FFP

0003 Program Management 12 MO FFP 0004 Repair 4920-01-461-6316 18 EA FFP 0005 Retrofit 4920-01-461-6316 to 4920-01-618-5101

20 EA FFP

0006 Repair 4920-01-618-5101 1 EA FFP 0007 Repair 6940-01-619-8416 1 EA FFP 0008 BER/BPR/Condemnation 1 EA FFP

0009 Travel 1 LO CRNF 0010 Data 1 LO NSP

0011AA Replacement Digitizer

PN 78209-40004-10

1 EA FFP

0011AB Replacement Power Supply PN 38360-40110-

1 EA FFP

0011AC Replacement Receiver

PN 78209-47070-10

5* EA FFP

0011AD Replacement Modulator

PN 78209-40230-10

5* EA FFP

0011AE Replacement DTO

PN 78209-47015-10

5* EA FFP

0011AF Replacement RF Controller PN 78209- 47001-10

1 EA FFP

0011AG Replacement Disk Bay

PN 40469-40060-10

1 EA FFP

0011AH Replacement CPU Assy

PN 78209-40008-10

1 EA FFP

0011AJ Replacement Pwr Monitor PN 39818-47030-

1 EA FFP

0011AK Replacement HHCU

PN 37534-90007-4

1 EA FFP

0011AL Replacement - VME Bucket PN 38360-90100-1

1 EA FFP

Option I:

1001 Engineering Services Recurring

12 MO CPFF

1002 Sustaining Engineering Non-Recurring

1 EA FFP

1003 Program Management 12 MO FFP 1004 Repair 4920-01-461-6316 10 EA FFP 1005 Retrofit 4920-01-461-6316 to 4920-01-618-5101

12 EA FFP

1006 Repair 4920-01-618-5101 1 EA FFP 1007 Repair 6940-01-619-8416 1 EA FFP 1008 BER/BPR/Condemnation 1 EA FFP

1009 Travel 1 LO CRNF 1010 Data 1 LO NSP

1011AA Replacement Digitizer

PN 78209-40004-10

1 EA FFP

1011AB Replacement Power Supply PN 38360-40110-

1 EA FFP

1011AC Replacement Receiver

PN 78209-47070-10

5* EA FFP

1011AD Replacement Modulator

PN 78209-40230-10

5* EA FFP

1011AE Replacement DTO

PN 78209-47015-10

5* EA FFP

1011AF Replacement RF Controller PN 78209- 47001-10

1 EA FFP

1011AG Replacement Disk Bay

PN 40469-40060-10

1 EA FFP

1011AH Replacement CPU Assy

PN 78209-40008-10

1 EA FFP

1011AJ Replacement Pwr Monitor PN 39818-47030-

1 EA FFP

1011AK Replacement HHCU

PN 37534-90007-4

1 EA FFP

1011AL Replacement - VME

Option II:

2001 Engineering Services

Recurring

12 MO CPFF

2002 Sustaining Engineering Non-Recurring

1 EA FFP

2003 Program Management 12 MO FFP 2004 Repair 4920-01-461-6316 9 EA FFP 2005 Retrofit 4920-01-461-6316 to 4920-01-618-5101

12 EA FFP

2006 Repair 4920-01-618-5101 2 EA FFP 2007 Repair 6940-01-619-8416 1 EA FFP 2008 BER/BPR/Condemnation 1 EA FFP 2009 Travel 1 LO CRNF

3011AA Replacement Digitizer

1 EA FFP

3011AB Replacement Power Supply PN 38360-40110-

1 EA FFP

3011AC Replacement Receiver

PN 78209-47070-10

5* EA FFP

3011AD Replacement Modulator

PN 78209-40230-10

5* EA FFP

3011AE Replacement DTO

PN 78209-47015-10

5* EA FFP

3011AF Replacement RF Controller PN 78209- 47001-10

1 EA FFP

3011AG Replacement Disk Bay

PN 40469-40060-10

1 EA FFP

3011AH Replacement CPU Assy

PN 78209-40008-10

1 EA FFP

3011AJ Replacement Pwr Monitor PN 39818-47030-

1 EA FFP

3011AK Replacement HHCU

PN 37534-90007-4

1 EA FFP

3011AL Replacement - VME

Option IV:

4001 Engineering Services

12 MO CPFF

4002 Sustaining Engineering Non-Recurring

1 EA FFP

4003 Program Management 12 MO FFP 4004 Repair 4920-01-461-6316 2 EA FFP 4005 Retrofit 4920-01-461-6316 to 4920-01-618-5101

12 EA FFP

4006 Repair 4920-01-618-5101 9 EA FFP 4007 Repair 6940-01-619-8416 1 EA FFP 4008 BER/BPR/Condemnation 1 EA FFP 4009 Travel 1 LO CRNF 4010 Data 1 LO NSP

4011AA Replacement Digitizer

1 EA FFP

4011AB Replacement Power Supply PN 38360-40110-

1 EA FFP

4011AC Replacement Receiver

PN 78209-47070-10

5* EA FFP

4011AD Replacement Modulator

PN 78209-40230-10

5* EA FFP

4011AE Replacement DTO

PN 78209-47015-10

5* EA FFP

4011AF Replacement RF Controller PN 78209- 47001-10

1 EA FFP

4011AG Replacement Disk Bay

PN 40469-40060-10

1 EA FFP

4011AH Replacement CPU Assy

PN 78209-40008-10

1 EA FFP

4011AJ Replacement Pwr Monitor PN 39818-47030-

1 EA FFP

4011AK Replacement HHCU

PN 37534-90007-4

1 EA FFP

4011AL Replacement - VME Bucket PN 38360-90100-1

1 EA FFP

6-Month Extension

52.217-8, Option to Extend Services (Applicable to Individual Orders)

5001 Engineering Services

6 MO CPFF

5002 Sustaining Engineering Non-Recurring

1 EA FFP

5003 Program Management 6 MO FFP 5004 Repair 4920-01-461-6316 1 EA FFP 5005 Retrofit 4920-01-461-6316 to 4920-01-618-5101

6 EA FFP

5006 Repair 4920-01-618-5101 5 EA FFP 5007 Repair 6940-01-619-8416 1 EA FFP 5008 BER/BPR/Condemnation 1 EA FFP 5009 Travel 1 LO CRNF 5010 Data 1 LO NSP 5011AA Replacement Digitizer

5011AB Replacement Power Supply PN 38360-40110-

1 EA FFP

5011AC Replacement Receiver

PN 78209-47070-10

5* EA FFP

5011AD Replacement Modulator

PN 78209-40230-10

5* EA FFP

5011AE Replacement DTO

PN 78209-47015-10

5* EA FFP

5011AF Replacement RF Controller PN 78209- 47001-10

1 EA FFP

5011AG Replacement Disk Bay

PN 40469-40060-10

1 EA FFP

5011AH Replacement CPU Assy

PN 78209-40008-10

1 EA FFP

5011AJ Replacement Pwr Monitor PN 39818-47030-

1 EA FFP

5011AK Replacement HHCU

PN 37534-90007-4

1 EA FFP

5011AL Replacement - VME

*Minimum order quantity

Repairs are now established as Standard Repairs: Tier 1 and Specific Line Replaceable Units (LRU):

Tier 2. Therefore, CLINS X011 (Tier 2) are added. This allows for a lower standard repair price for units that do not require an LRU. All Core Test Sets (CTS) units will be sent in as Tier 1 Repairs. If all the components are repairable, work will be accomplished, and the unit will be returned as a Fully Mission Capable (FMC) condition unit. If after evaluation it is determined that an LRU is not repairable and requires a replacement, the contractor will inform the Government of the faulty LRU(s). Notification will require an email to the Contracting Officer, Contract Specialist and Program Manager detailing which LRU(s) are affected. If agreed upon, the Government will issue a contract modification to incorporate funding for the LRU(s) under the Tier 2 CLIN. This funding will be in addition to the Standard Repair fee which will remain in place. Tier 2 CLINS X011 includes specific LRUs that occur only when a unit cannot be repaired due to component obsolescence or lack of backwards compatibility. Each of these components will be pre-negotiated and separately priced. The pre-negotiated price list will be incorporated into the basic contract via an attachment in Section J, List of Attachments. Due to continuing Diminishing Manufacturing Sources and Material Shortages (DMSMS), components may be added to the list during the performance of this contract.

Not Separately Price (NSP); Beyond Economic Repair (BER); Beyond Physical Repair (BPR) To Be Negotiated (TBN). CLINS X002, X011AF & X011AK are TBN. For financial planning purposes, an estimated amount has been inserted and is included in the total estimated cost.

The total estimated cost for this contract is . Slight differences in amounts are due to rounding of figures. The initial cost basis and Best Estimated Quantities (BEQs) were derived from previous repair contract FA8533-18-D-0004 and software services contract FA8519-16-C-0004. The estimated amount includes a 3% inflation factor for each option period, estimating methodology utilizes previous option period pricing to derive next option pricing. The updated total estimated cost is based on the contractor’s proposal, minimum order quantities, and the addition of Tier 2 LRU repairs. The DMSMS scope of work intended for this effort had not been factored into the original Government estimate. Tier 2 components are 11 high value LRUs that are not used during a standard JSECST repair but all 11 must be included for repair estimates. The updated estimate also contains values for the Sustaining Engineering, Non-Recurring TBN CLINs that may occur in the future. The table includes cost estimates for terms of contract clause FAR 52.517-8, Option to Extend Services (6-month extension clause). The cost of the 6-month extension was based on 50% of the estimated CLIN value and minimum order quantities for option IV. The 6-month extension will incorporate the same rates as negotiated for orders.

These NSNs were screened, except NSN 4920-K-300-070A because it is a TCTO kit and does not require screening. The other NSNs are assigned Repair Method Code (RMC)/Repair Method Suffix Code (RMSC) of R3/R. RMC “R3” means Repair, for second subsequent time, directly from the actual manufacturer. RMSC “R” means the Government did not initially purchase the data and/or rights. The Government does not have sufficient data rights to provide drawings or technical engineering data pertaining to the repairable assets. The Government does not possess rights to the test procedures, repair processes and test equipment required to certify the repair. It has been determined to be uneconomical to buy the data or rights to the data. It is uneconomical to reverse engineer the part.

This Class J&A can be used for any order placed against this contract to include the exercise of FAR 52.517.8 – Option to Extend Services and the negotiation of Sustaining Engineering, Non- Recurring if required.

IV. Demonstration that the contractor’s unique qualifications or the nature of the acquisition requires use of the authority cited above (applicability of authority).

The agency's minimum needs can only be satisfied by the unique supplies or services available from Textron Systems. AAI Corporation was the Original Equipment Manufacturer (OEM) of JSECST. Textron Systems acquired AAI Corporation in July of 2007 and has proprietary rights to all the detailed hardware and core software data. The Government does not own any schematics, detailed drawings, flowcharts, or software development tools specific to JSECST. Textron Systems is the only qualified vendor that possesses the expertise, test equipment, facilities, and processes to sustain AN/USM-670A. In addition, Textron Systems owns the proprietary Level III Technical Data Package (TDP) for software sustainment of the JSECST tester. Textron Systems is identified on the design requirements and source-controlled drawings. A complete TDP is required in order to repair and sustain the JSECST. The Government has limited repair data and does not possess any commercial product sheets, test data, qualification data, support manuals or related data that defines the performance and manufacturing characteristics of the JSECST. Textron Systems has the systems software architecture to ensure that changes to core system software does not impact operation of Test Program Sets or jeopardize proper testing of on aircraft EW counter measure systems.

The team sent inquiry to the 402nd EMSS/MXDEK in FY17 on the possibility, schedule, and cost of a reverse engineering project to support organic sustainment. No response to that inquiry is documented. At present, a reverse engineering effort is expected to cost and take three to six years to complete. The basis for this estimate is current Engineering Change Proposals (ECP) costs, Government ability to replace or refresh each Tester Replaceable Unit (TRU) along with associated hardware, software development, and testing. The JSECST expected life cycle is through 2035. Based on cost/time and future plans to reverse engineer JSECST modules, the Government does not consider a JSECST reverse engineering effort a viable alternative at this time.

To reduce the deficiency of data issue, the JSECST production contract FA8533-19-D-0005, the Engineering Change Proposal (ECP) terms allow for Government limited technical data rights as Class I ECPs are completed by Textron Systems. To date, there are seven Class I ECPs in process.

The amount of technical data to be provided is unknown at this time. Data delivery and the extent of data will be negotiated with Textron Systems for each Class I ECP requirement. For instance, if the Printed Circuit Board (PCB) is redesigned due to obsolescence, then the Government will have rights to all technical data associated with that redesign. This technical data may include assembly processes, schematics, PCB Gerber files, Vendor Item Control Drawings, and any other information to compete the build of the PCB for the production units or for repair. If there are a sufficient number of ECPs and depending on the type of changes, the Government can complete the reverse engineering effort or have enough critical data that other vendors can complete the reverse engineering process. In addition, the Government obtained a clarification from Textron Systems on 04 May 2020 concerning software data rights. The Government only has software license usage rights. The Government cannot modify use of software to support competitive acquisition.

The Government contacted Textron Systems via email on 05 March 2021 inquiring its interest in selling the JSECST TDP to the Government. Textron Systems responded on 08 March 2021 stating it was not willing to sell the TDP to the Government.

Textron Systems has previously provided JSECST repair and software sustainment services in the form of testing, repair, functional check, and certification of items. The previous JSECST repair and software sustainment contracts were FA8533-18-D-0004 and FA8519-16-C-0004. Repair services contract FA8533-18-D-0004 awarded 07 May 2018, expired 6 November 2020. Software sustainment contract FA8519-16-C-0004 awarded 28 September 2016, expired 28 Mar 2022. These contracts were awarded sole source to Textron Systems.

Award to any other source would result an unacceptable delay in fulfilling the Air Force’s requirements. The Government would incur cost and schedule delays of having to qualify additional repair source(s) to include

Testing and evaluation of a new vendor would require at a minimum three years. The development of associated hardware and software required to run the JSECST is estimated to take between six and eight years. Using best case scenario of reverse engineering estimates for , another contractor would need to develop test procedures and assembly/disassembly procedures for

. The Government conservatively estimates it would take 23 months to perform the above stated work based on current ECPs in-work.

Additionally, another two years would be necessary for procurement package development, funding, and award of a competitive acquisition. Based on this, a total of eight to ten years would be required to pursue a competitive acquisition strategy via a reverse engineering effort. This would cause an unacceptable delay in the support of JSECST repair and engineering service requirements.

Reverse engineering was re-addressed for this amended J&A, but no cost savings or delay reductions could be achieved since the majority of cost increases are related to Tier 2 replacement components.

Accordingly, Textron Systems is the only vendor capable of providing the requirements described in Section III above without the U.S. Air Force experiencing unacceptable delays in fulfilling its requirements.

V. Description of efforts made to ensure that offers are solicited from as many potential sources as practicable, including whether a notice was or will be publicized as required by subpart 5.2 and, if not, which exception under FAR 5.202 applies.

A Sources Sought (SS) / Request for Information (RFI) synopsis was posted to SAM.gov on 31 August 2021 under Notice ID FA8533-21-R-JSECST with a response date 01 October 2021. The SS/RFI requested responses from interested vendors that possess the expertise, capabilities, and experience to meet qualifications for this effort. Four vendors, including the incumbent responded to the SS/RFI. The vendors were evaluated for their capability and determined to be not capable based on whether they have access to the proprietary data necessary to support this repair effort. The incumbent, Textron Systems, was determined to be the only capable vendor.

The requirement will be synopsized in SAM.gov in accordance with FAR 5.201. It is anticipated that sources having an interest in subcontracting may be identified through synopsis. Any source who responds to the Government as a result of this synopsis will be identified to the prime contractor as a potential subcontracting possibility.

VI. Determination by the Contracting Officer that the anticipated cost to the Government will be fair and reasonable.

conducted using NAICS code 541330 and keywords “JSECST Repair and end to end tester repair” to search for potential vendors. These queries presented no results.

The JSECST does not fit the definition of a commercial item as defined in FAR Part 2.101. This item is defined as military unique and is not customarily used by the general public or by non- Governmental entities. The Government requires parts that meet an exact form, fit, and function as determined by the specific mission. There are no aircraft in the commercial market with the same or similar components.

The market research concluded Textron Systems is the only vendor capable of fulfilling the Government’s requirement.

VIII. Any other facts supporting the use of Other Than Full and Open Competition.

None.

IX. List of any sources that expressed, in writing, an interest in the acquisition.

See Section VI above.

X. A statement of the actions, if any, the agency may take to remove or overcome any barriers to competition before making subsequent acquisitions for the supplies or services required.

The Government does not possess the TDP for the JSECST to support full and open competition.

The JSECST expected life cycle is through 2035. Based on cost/time and future plans to reverse engineer JSECST modules, the Government does not consider a complete JSECST reverse engineering effort a viable alternative at this time.

The plan to remove or overcome barriers to competition is to inquire with Textron Systems, the OEM, about its interest in selling the technical data package to the Government. The OEM will be contacted annually prior to exercise of option. The Government will continue to gather information from submitted ECPs. If there are sufficient number of ECPs and depending on the type of changes, the Government may pursue a reverse engineering effort or have enough critical data that other vendor(s) can perform a reverse engineering effort.

The plan to overcome barriers to competition in the prior J&A (FD2060-15-91529) stated “The RMC/RMSC screening will be accomplished prior to any subsequent buy action,” and “Re-engage AAI/Textron on Authorizing.” These actions have been accomplished, therefore higher-level approval in accordance with DFARS PGI 206.304 (a) (S-70) (ii) is not required for the instant J&A.

XI. Certification by the Contracting Officer.

As evidenced by my signature on the Coordination and Approval Document (CAD), I have determined this document to be both accurate and complete to the best of my knowledge and belief.

XII. Certification by the technical/requirements personnel.

As evidenced by my (our) signature(s) on the CAD, I (we) certify that any supporting data contained herein, which is my (our) responsibility, is both accurate and complete.