J and A FA8730-21-D-0001 Redacted.pdf

Justification and Approval (J&A) for Other Than Full and Open Competition

FOR OFFICIAL USE ONLY

March 2020 FOR OFFICIAL USE ONLY Page 3 of 8

I. Agency and Contracting Activity.

This Class Justification and Approval (J&A) is to request authority for Other Than Full and Open Competition supporting the requirements generated for AFLCMC/HB, Program Executive Officer (PEO) Digital Directorate. The contracting office for this requirement is AFLCMC/HBSK, Hanscom Air Force Base, MA. Ordering Contracting Officers are located within Hanscom Air Force Base PEOs and their Geographically Separated Units (GSUs).

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

This action will be awarded as a new Indefinite Delivery Indefinite Quantity (IDIQ) basic contract which will allow the issuance of individual orders. Anticipated Contract Types, include, but are not limited to, Cost Plus Fixed Fee, Cost-Reimbursable (No Fee), and Firm Fixed Price based on individual requirements. Other Contract Types may be determined appropriate at the individual Task and Delivery Order (TO/DO) level. Orders will be issued on a decentralized basis. The IDIQ will have a ten (10) year ordering period. The basic ordering period will be for five (5) years with a five (5) year Option to be awarded at any time. The period of performance for orders may extend one year beyond the last date to order.

It is anticipated that TO/DOs issued under this IDIQ may include, but not be limited to, the following CDRL deliverables: Contract Summary Report, Conference Agenda, Conference Minutes, Presentation Material, Funds and Man-Hours Expenditure Report, Contractor's Progress, Status, and Management Report, Status Report (Technical Progress Report), Data Accession Lists, Contract Funds Status Report, Integrated Program Management Data and Analysis Report, Technical Report - Study/Services, Program Protection Implementation Plan, Software Transition Plan, Software Requirements Specification, Software Design Document, Interface Design Description, Test Procedure, Test/Inspection Report, Course Conduct Information Package, System Safety Hazard Analysis Report, Engineering Change Proposal, Request for Variance, Specification Change Notice, Product Engineering Design Data and Associated Lists, Interface Control Document, Reliability and Maintainability Predictions Report, and Technical Manual Contract Requirements. Technical Data, Computer Software, and Data Rights will be addressed in the Acquisition Strategy for each individual TO/DO. As such, the Ordering Contracting Officer will include these requirements in resultant Requests for Proposals and evaluate for fair and reasonable costs/pricing prior to award.

GTARC will provide the Government with Unlimited Rights to all Technical Data, Computer Software and Computer Software Documentation under this IDIQ. In a very few cases, GTARC will provide the Government with Government Purpose License Rights to Technical Data , Computer Software, and computer software documentation that GTARC developed with Independent Research and Development funding but enhanced under this IDIQ.

This Class J&A will be applicable to all programs issuing orders in scope of this IDIQ. The Ordering Contract Officer will determine if the requirement in the TO/DO description meets the scope of essential engineering and mission/ core competencies of the IDIQ. The Ordering Contracting Officer will submit an Essential Capability Worksheet to the IDIQ Program Team to document the scope determination and request ceiling. The HBS team will provide ceiling and retain the documentation for each order issued within the scope of the IDIQ.

The IDIQ ceiling is based on a decrease in available Federally Funded Research and Development Center (FFRDC) funding and personnel coupled with expanding IDIQ usage to two (2) additional Hanscom PEOs and their GSUs. In addition, weighted factors were applied in the event other Air Force and DoD Components requested IDIQ use.

These resulted in the ceiling being established. Historical growth, forecasted growth, FFRDC reductions, and forecasted external agency utilization all factored into establishing the ceiling, which was approved by the Digital Directorate Service Designated Official / PEO.

Historical Growth: The ceiling estimate began with the evaluation of the initial IDIQ, FA8527-16-D-0001. This initial Class J&A was approved by the Program Executive Officer (PEO) on 3 July 2016 for a ceiling and a five (5) year

March 2020 FOR OFFICIAL USE ONLY Page 5 of 8 electrical/electronic engineering. Supplemental mission essential engineering support capabilities are limited to the 17 Core Competencies, for GTARC, identified in Attachment 1.

The technical scope of this Class J&A includes, but is not limited to, electro-optical sensor systems research and development; test and evaluation, integration, validation and operations; data analysis, data exploitation and data fusion; phenomenology measurements; sensor modeling and simulation; communications, cyber and counter-cyber warfare; and small/micro components and systems. This list, along with the 17 core competencies identified in Attachment 1, is described as a basic expression of the work to be performed. Specific requirements will be defined in individual orders. GTARC was the only UARC that is capable of meeting all eight (8) technical scope requirements.

Production of equipment/kit installs, spares, and repairs resulting from the engineering solutions developed by GTARC may be produced by a commercial firm. However, production by a commercial firm may require GTARC to provide engineering and technical assistance to assist with fabrication of the design defined in a GTARC-developed technical data package.

Multiple funding appropriations may be utilized under this IDIQ. Anticipated funding appropriations include, but are not limited to, Research and Development (3600), Procurement (3010, 3080, 3020), and Operation and Maintenance (3400, 3840) funding.

IV. Statutory authority permitting other than full and open competition.

10 U.S.C. 2304(c)(3)(b) as implemented by FAR 6.302-3(a)(2)(ii): “Industrial Mobilization; Engineering, Developmental, or Research Capability; or Expert Services”.

V. 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 GTARC, as a University Affiliated Research Center (UARC). As previously stated, GTARC is currently providing these services under IDIQ contract FA8527-16-D-0001. This will be a follow-on effort to this contract. The technical scope, as related to the incumbent IDIQ and the following eight (8) requirements, remains unchanged: [1] electro-optical sensor systems research and development; [2] test and evaluation, integration, validation and operations; [3] data analysis, data exploitation and data fusion; [4] phenomenology measurements; [5] sensor modeling and simulation;

[6] communications, cyber and counter-cyber warfare; and [7] small/micro components and [8] systems.

It is necessary to award this contract to GTARC in order to establish and maintain an essential research and development capability for the Digital Directorate. GTARC has achieved significant advancement in their core competency areas through its substantial progress in system development, signal processing, modeling and analysis, phenomenology, and test and evaluation, and its weapon system engineering/investigations/assessment for emerging science and communication techniques. GTARCs specialized facilities and equipment consist of the Far-Field Range; Near-Field Range; RCS Turntable Range; Antenna Chamber; Compact Reflectivity range; Electronic Protection Mobile Test Vehicle (EPMTV); the Collaborative Visualization Environment (CoVE); and the Modeling and Simulation Research and Education Center, all of which require in-depth knowledge and experience to assure successful research and /or technical development. GTARC is a multi-discipline, defense oriented, scientific and technical research and development institution.

Only GTARC can provide critically needed scientific and technological research such as weapons system guidance, control, communications, information, technology, and force sustainability. The above mentioned critically needed scientific and technological research is not available from any existing Government agency or private firm. The proposed effort has been reviewed to assure it falls within GTARCs core competencies and that it maintains essential engineering capability. GTARC meets AFLCMC's science and engineering needs and has a proven strategic relationship with DoD. This IDIQ will be awarded based on FAR 16.504(c)(1)(ii)(D)(1)(iii), as GTARC is the only source

March 2020 FOR OFFICIAL USE ONLY Page 6 of 8 qualified and capable of performing all the aforementioned requirements of AFLCMC/HB at a reasonable price to the Government.

Although the ceiling is established at the average HBS Delivery Order has been with a one or two year Period of Performance (PoP). Further, the nature of work issued to GTARC under the statutory and regulatory authority of 10 USC 2304(c)(3)(B) and FAR 6.302-3(a)(2)(ii), generally have short performance periods. This allows GTARC the ability to move resources between Delivery Orders/programs as activities begin and end.

Additionally, and as required by the UARC Engagement Guide, HBS coordinated and received approval from the UARC Sponsor (Army) on our acquisition approach and requirements. The Sponsor will be provided Contract status updates annually. As a special interest item, the Sponsor (Army) reviews and approves UARC Core Competencies every five years to ensure there are no changes to the institutions technical capabilities. Since 2003, GTARC Core Competencies have only been revised once. This revision increased GTARC's Core Competency list by adding one additional technical capability.

GTARC has provided the Government additional information affirming their commitment to the Department of Defense. GTARC has affirmed their FY11 to FY19 revenues grew from /year to /year. They expect FY21 revenues to approach . With this knowledge of incoming programs, GTARC was able to hire qualified engineers and scientists to work on HB, HN, and NC3 programs. GTARC opened a field site at Hanscom AFB and is presently expanding the facility to include special program space. GTARC also acquired over 900,000 sq ft office and laboratory space at their Cobb County Research Facility in support of several GTARC labs that work closely with PEO HB and PEOC3NI

In closing, this IDIQ is a continuation of technical work already being performed. GTARC has demonstrated their technical capabilities to scale to meet programmatic needs during the current five (5) year IDIQ, with satisfactory performance. A Contractor's ability to scale personnel to meet programmatic needs is inherent in all Contracts. HBS feels the overall risk rating for this particular IDIQ to be low to average (Acceptable).

In accordance with AFFARS 5316.504(c)(1)(ii)(D)(1), a separate written determination for a single award IDIQ contract expected to exceed is not needed as this J&A addresses FAR 16.504(c)(1)(ii)(D)(1)(iii), only one source is qualified and capable of performing the work at a reasonable price to the Government.

VI. 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.

The proposed sole source award is not based on a determination that GTARC is the only responsible source, but rather that the Government desires to maintain an essential engineering research, and development capability provided by an educational, nonprofit institution as authorized by 10 U.S.C. 2304 (c)(3)(b) and implemented by FAR 6.302-3.(a)(2)(ii)

In accordance with FAR 5.202(a)(10) a sources sought synopsis is not required and was not issued.

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

The Contracting Officer anticipates the cost to the Government will be fair and reasonable. The Contracting Officer will evaluate the contractor's price/cost proposal in accordance with FAR 15.404-1, using proposal analysis techniques to include price analysis, cost analysis, and profit/fee analysis. The Contracting Officer will utilize cost and pricing data to support the Government's evaluation of the proposed costs. A technical evaluation will be completed of the proposed material, hours, and labor categories and will conduct negotiations and make a

March 2020 FOR OFFICIAL USE ONLY Page 7 of 8 determination that the negotiated prices/costs are fair and reasonable prior to award of any order or contract.

Orders issued hereunder will adhere to the appropriate regulations cited herein and a determination will be made by the Contracting Officer for fair and reasonableness prior to award.

VIII. Description of the market research conducted and the results, or a statement of the reasons market research was not conducted.

Market research for Defense Research, Engineering, Science and Technology Development was conducted in May 2019 (Attachment 2: Market Research Report, May 2019) in response to the need to continue a long-term partnership performed for a class of anticipated essential engineering tasks for the Digital Directorate. This Market Research supported the increase to the ceiling of the predecessor GTARC IDIQ contract, FA8527-16-D-0001 from to -- a percent increase.

As the focus of this effort is to establish and maintain an essential engineering, research, or development capability to be provided by an educational or other nonprofit institution, the market research was limited to sources in these categories. Educational and nonprofit sources within the University Affiliated Research Center (UARC) program were reviewed for this capability.

The North American Industry Classification System code used for the market research query was 541330 - Engineering Services. In 2019, market research conducted by AFLCMC/HBG was leveraged which reviewed 39 potential companies included in the Classified Class J&A #16-HBG-0019. Based on the limiting factors above, the 2019 market research team identified and reviewed three educational and nonprofit sources within the UARC program for this capability. GTARC is the only capable UARC available to provide all eight Defense Research, Engineering, Science and Technology development engineering services requirements identified in Section V. They have all the resources, facilities, core competencies, and skilled personnel on staff to continue supporting the eight requirements. The other two institutions evaluated were not considered capable as they only have the resources/ facilities, core competencies, and skilled personnel on staff to support five of the eight required performance capabilities/requirements. The 2020 market research provided additional validation that GTARC remained the only institution capable of meeting 100 percent of the eight requirements identified in Section V.

There are no commercial opportunities for this requirement. This requirement does not meet the definition of FAR 2 in terms of commercial items or non-developmental items, which can use the streamlined acquisition procedures under FAR Part 12. The capabilities supported by this acquisition are not available in the commercial marketplace under similar terms and conditions required by the Government.

The market research concluded GTARC is the only capable UARC available to provide the Defense Research, Engineering, Science and Technology Development engineering services in support of AFLCMC/HB requirements.

The recommended contracting strategy for this effort is to continue use of GTARC. GTARC has all the resources/ facilities, core competencies, and skilled personnel on staff to support these requirements.

In June 2020, AFLCMC/HBS revisited the market research analysis accomplished by AFLCMC/HBG, for FA8527-16- D-0001, and found that the overall market conditions are unchanged (Attachment 3: Market Research Memorandum, Jul 2020). GTARC remains the only UARC able to provide 100 percent of the capabilities and requirements of the AFLCMC/HB portfolio. As such, a sole source award to GTARC is recommended as the Government's most feasible acquisition strategy to fulfill the Defense Research, Engineering, Science and Technology Development follow-on effort.

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

None

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

See Section VI above

XI. 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.

No actions are being taken to remove competitive barriers for this IDIQ or the orders being issued under this contract. Other engineering requirements for Digital Directorate will be competed to the maximum extent possible.

However, maintaining a source for essential engineering, research and development capability is critical and in the best interest of the Government. GTARC's expertise and rapid response capability are necessary to accomplish the tasks being generated by AFLCMC/HBS. Without GTARC on hand to accomplish the aforementioned tasks, the warfighter's mission would be gravely impacted.

XII. Certification by the Contracting Officer.

As evidenced by my signature above, I have determined this document to be both accurate and complete to the best of my knowledge and belief.

XIII. Certification by the technical/requirements personnel.

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