JA_CETS__CSL_(2)_2015-068.pdf

CMO Control Number: 2015-068

FOR OFFICIAL USE ONLY

DEPARTMENT OF THE ARMY

JUSTIFICATION AND APPROVAL

FOR OTHER THAN FULL AND OPEN COMPETITION JUSTIFICATION

1. Contracting Activity: The U.S. Army Contracting Command-Warren (ACC-WRN)

2. Description of Action: ACC-WRN proposes to award a new cost-plus-fixed-fee sole source contract with OASIS Advanced Engineering, Inc. (OASIS) (a.k.a. Orion Advanced Simulation and Intel Systems, Inc.), Auburn Hills, MI for the modification, revision, and updating of the Common Embedded Training Software System (CETS) and the Common Software Library (CSL) for the M1 Abrams Tank and the Bradley Fighting Vehicle. The proposed contract is for one three year ordering period. The total estimated dollar value is $9,898,292. ACC-WRN will fund the contract with Fiscal Year 2015 Operation and Maintenance Army (OMA) and Army Procurement Appropriation (APA) dollars.

3. Description of Supplies/Services: This proposed action is for the procurement of services to modify, revise, and update existing computer software developed by OASIS embedded within the software carried within all models of the M1 Abrams Tank, the Bradley Fighting Vehicle, and sub-variants of both systems. The CETS software package is used to maintain a constant stream of gunnery training for the soldier within the vehicle. The CSL is a system of software maintained and updated so that vehicles can be updated quickly and efficiently through periodic updates and released to the field. The proposed software services will include updating and maintaining the CSL and CETS and updates to interrelated vehicle or Training Aids, Devices, Simulators, and Simulations (TADSS) software products required for review, update, information sharing, and consultation as necessary for the management of each software program.

The performance period is for one three year ordering period as shown below.

TOTAL MAN-HOURS AMOUNT

47,040 $9,898,292

4. Authority Cited: The statutory authority permitting Other Than Full and Open competition for this acquisition is 10 U.S.C. 2304 (C) (1), as implemented by FAR 6.302-1 (a) (2) (ii), “Only One Responsible Source and No Other Supplies or Services will Satisfy Agency Requirements.” Specifically, FAR 6.302-1(a)(2)(ii) and (iii) provide that supplies and services may be deemed to be available only from the original source in the case of follow-on contracts 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, or

(B) Unacceptable delays in fulfilling the agency’s requirements.

5. Reason for Authority Cited: OASIS is the single industry software developer company capable of providing this service of military unique and tailored application products designed specifically for PEO Ground Combat System (GCS) vehicles.

OASIS as the original and current developer of the Abrams and Bradley Common Software Library (ACSL/BCSL) and CETS is the only source with the institutional knowledge, extensive expertise, and established operations capability to meet and immediately execute the Army’s requirement for this effort. OASIS software products produced (and validated) and delivered are integral to soldier training and skills qualification and performance of essential technical and tactical functions on vehicle platforms and training device systems such as Advanced Gunnery Training System (AGTS), Close Combat Tactical Trainer (CCTT), Synthetic Environment (SE) Core terrain databases, and Common Moving Models (CM2). OASIS services are required to incorporate emerging and previously installed configuration changes that have and continue to evolve as a result of vehicle engineering and design changes. In a short timeframe, OASIS can immediately affect the vehicle platform and training device software functionality updates commensurate with current systems technical and tactical operational requirements that are paramount to mitigate safety risks, avoid negative soldier training, and provide mandatory skills training for gunnery qualification.

OASIS has significant knowledge of Abrams and Bradley hardware and software architectures used in the development of the CETS/CSL product. As a third party contractor, OASIS has been able to successfully negotiate agreements with the Original Equipment Manufacturers (OEMs) to acquire access to proprietary software used in the CSL. The commonality (ability to replicate identical function whether on the Bradley or Abrams) aspect of CETS/CSL is a significant benefit for PEO GCS. OASIS is also uniquely qualified to field updates to CSL and continue the development of CETS based on a thorough understanding of combat vehicles and the training systems that use the CSL and CETS.

It is impractical to solicit a new contractor to update existing CETS/CSL software installed on the Bradley Fighting Vehicle and Abrams Tank. The Government could provide the executable files of the CETS, executable files for the CSL, and supporting documentation but another vendor would have to reverse engineer these products in order to derive source code and learn how CETS/CSL was written. Soliciting a new contractor would result in the duplication of efforts and costs. A new contractor would have to have an in-depth knowledge of the workings of combat vehicles and their respective training devices. The new contractor would have to have an in-depth knowledge of the workings of Force XXI Battle Command Brigade and Below (FBCB2) and Joint Capability Release (JCR) – Log software. The contractor would have to have a Nuclear Regulatory Commission License (NRCL) to house combat vehicles. The contractor would have to negotiate agreements with each OEM to obtain access to proprietary software. The contractor would have to develop a System Integration Laboratory (SIL) for development and testing of the CSL. The SIL is a risk reduction facility where software and hardware is developed, integrated, tested, and evaluated for both stand alone functionality and interoperability prior to fielding. The estimated duplication in cost for soliciting a new contractor is $2,764,260, broken out as follows:

Cost ($) Category $1,759,680 In-depth knowledge of Abrams/Bradley architectures and training devices $180,480 In-depth knowledge of FBCB2 and JCR-Log Software

$10,100 NRCL

$270,720 Negotiate agreements to obtain access to proprietary software $543,280 Development of SIL for CSL development and testing

Total Cost $2,764,260

The basis of calculations for the duplication of cost in the chart above is based on hourly rates multiplied by the amount of hours worked per week for employees in each category.

Attempting to award a contract to a source other than OASIS would result in unacceptable delays of approximately three years to bring another contractor up to the knowledge level of OASIS. The current training software (CETS and CSL) has not been updated for training devices since 2012 for the current Bradley and Abrams and the Government requires periodic training software updates. Sequential updates have not been integrated into Training Aids, Devices, Simulators, and Simulations (TADSS) which results in degraded operational training on the Abrams and Bradley for the war fighters. Therefore, a delay in software updates is not acceptable. A delay of three years would hamper the Army’s training mission of new gunnery training advancements for all the variants for the Abrams and Bradley Fighting Vehicles.

6. Efforts to Obtain Competition:

a. Effective competition: For the reasons stated above, effective competition is not anticipated for this acquisition.

b. Subcontracting competition: As the proposed contractor, OASIS, is a small business concern, a subcontracting plan is not required. The services performed by OASIS are carried out by a relatively small staff without the use of large subcontracts for supplies and services.

7. Actions to Increase Competition: For the reasons stated in paragraph 5, no action is currently being taken to increase competition for the effort covered by this J&A.

OASIS as the original and current developer of the Abrams and Bradley Common Software Library (ACSL/BCSL) and CETS is the only source with the institutional knowledge, extensive expertise, and established operations capability to meet and immediately execute the Army’s requirement for this effort. Market research will be performed to determine methods to increase competition for all future CETS/CSL requirements.

8. Market Research:

In May 2014, PM AFV Director of Logistics and Procurement Analyst conducted google internet searches for CETS, CSL, and simulation training software development companies to find prospective CETS/CSL vendors. The searches showed that there were no other contractors with the ability to fulfill the requirement. No new sources had come forward and no viable alternate sources had been identified with a background in developing software or computer based training for combat vehicle gunnery training.

Market research revealed a few software contractors that could potentially perform similar efforts, but a new contractor would also bring an added dimension of performance risks by having to learn how to revise and update software while dealing with software source code as it is integrated and related to other software embedded within the vehicle platform and related training devices.

On 8 September 2014, PM AFV TADSS Manager updated the market survey by contacting SAAB Training, General Dynamics, and OASIS by email with 23 critical questions required to perform CETS/CSL. The following are a few of the critical questions: what is your detailed knowledge of the inner working of FBCB2 software and knowledge of how to enable FBCB2 to run in a simulation environment; what is your understanding of various trainers using the CSL (Gunnery, Close Combat, Driver and Maintenance Trainers) and how to meet the training unique requirements in the context of CSL architecture; and what is your experience in software development systems in Linux?

SAAB Training and OASIS responded to the market survey. PM AFV Director of Logistics, System Engineer, and TADSS Manager reviewed the responses to the market survey and determined OASIS had demonstrated the requisite knowledge and experience to perform the required services.

PM AFV determined that the responses from SAAB were deficient on several questions.

SAAB did not demonstrate the ability to modify FBCB2 software to enable a seamless integration of FBCB2 source code with each vehicle source code to create a simulated battlefield environment over an Internet Protocol Network. SAAB did not demonstrate a detailed knowledge of the in working of FBCB2 software and the knowledge of how to enable FBCB2 to run in a simulation environment. SAAB did not provide an understanding of the various trainers using the CSL and how to meet the training unique requirements in the context of the CSL architecture. SAAB did not demonstrate the knowledge and experience to perform CETS/CSL in a timely and efficient manner.

Therefore, PM AFV determined that the market survey supports limiting competition for this acquisition to OASIS.

9. Interested Sources: As detailed in paragraph 8 above, although several companies responded to the market survey for this effort, only OASIS was considered capable of providing the services required by the Government for the Abrams and Bradley CETS/CSL, within the required timeframe. ACC-WRN will synopsize this requirement in

FedBizOpps and will consider any proposal received as a result of the synopsis for future requirements.

10. Other Facts:

a. Procurement history.

Contract # Award Amount

Award Date

Competitive Status

Authority

W52H09-08-C-0066 $11,249,570 02/19/08 Non-Competitive FAR 6.302-1

DAAE20-03-C-0108 $8,725,123 06/19/03 Non-Competitive FAR 6.302-1

DAAE20-97-C-0224 unknown 07/97 Non-Competitive FAR 6.302-1

DAAE20-95-C-0276 unknown 06/95 Non-Competitive FAR 6.302-1

A sole source Justification and Approval (J&A) dated 24 July 2007 was approved for contract W52H09-08-C-0066. The Government limited the effort to OASIS due to the specialized expertise and knowledge required for the acquisition. Future competition was not anticipated. The statutory authority permitting other than full and open competition for the award was 10 U.S.C. 2304(c)(1) as implemented by FAR 6.302-1.

“Only one responsible source and no other supplies or services will satisfy agency requirements.”

OASIS successfully completed contract W52H09-08-C-0066 with no reported negative issues with delivery or quality of the products and services that were delivered.

The J&A for Contract DAAE20-03-C-0108 was approved on 30 July 2002. The Government concluded that competition for this requirement was not forecasted in the foreseeable future due to the specialized expertise and knowledge required for performance. The statutory authority permitting other than full and open competition for the award was 10 U.S.C. 2304(c)(1) as implemented by FAR 6.302-1, “Only one responsible source and no other supplies or services will satisfy agency requirements.”

The Government issued Contract DAAE20-95-C-0276 to OASIS as a sole source in June 1995 in response to an unsolicited proposal. The contract was issued for two years to determine the feasibility of taking Abrams M1A2 software and convert it for use in the vehicle’s training devices. A follow-on sole source was issued to OASIS under Contract DAAE20-97-C-0224 in July 1997. The statutory authority permitting other than full and open competition for the award was 10 U.S.C. 2304(c)(1) as implemented by FAR 6.302-1. “Only one responsible source and no other supplies or services will satisfy agency requirements.”

b. Other facts: N/A

11. Technical Certification: I certify that the supporting data under my cognizance which are included in the justification are accurate and complete to the best of my knowledge and belief.

NAME: Patrick L. Macheske Date: 5 March 2015

TITLE: Acquisition Director PM Armored Fighting Vehicles Signature:

12. Requirements Certification: I certify that the supporting data under my cognizance which are included in the justification are accurate and complete to the best of my knowledge and belief.

NAME: Craig H. Carson Date: 9 March 2015

TITLE: Logistics Director, PM Armored Fighting Vehicle Signature:

13. Fair and Reasonable Cost Determination: I hereby determine that the anticipated cost or price to the Government for this contract action will be fair and reasonable based on a cost and price analysis. Certification of cost and pricing data will be required.

NAME: Raena R. Swanson Date: 10 Mar 15

TITLE: Contracting Officer Signature:

14. Contracting Officer Certification: I certify that this justification is accurate and complete to the best of my knowledge and belief.

NAME: Raena R. Swanson Date: 10 Mar 15

TITLE: Contracting Officer Signature: