JA_F-16 MTT TSSC_Redacted.pdf

DocuSign Envelope ID: D4015256-BDCD-467D-98AF-5CA51BF9428E

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)/Federal Acquisition Services

(FAS)/Assisted Acquisition Services (AAS) Region 7

Agency: National Guard Bureau (NGB)/Air National Guard (ANG) A3T

Task Number: 47QFWA23R0003

Description of Requirement: Provide Technical System Support Center (TSSC) services for up to forty

(40) F16 Mission Task Trainer devices for one (1) base year- from .

Estimated Dollar Value: $ , includes $ M of NTE for Special Projects

2) Description of action being approved:

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).

X 6.302-2 Unusual and compelling urgency.

(1) Citations: 10 U.S.C. 2304(c)(2) or 41 U.S.C. 253(c)(2).

6.302-3 Industrial mobilization; engineering, developmental, or research capability; or expert services.

(1) Citations: 10 U.S.C. 2304(c)(3) or 41 U.S.C. 253(c)(3).

6.302-4 International agreement.

(1) Citations: 10 U.S.C. 2304(c)(4) or 41 U.S.C. 253(c)(4).

6.302-5 Authorized or required by statute.

(1) Citations: 10 U.S.C. 2304(c)(5) or 41 U.S.C. 253(c)(5).

6.302-6 National security.

(1) Citations: 10 U.S.C. 2304(c)(6) or 41 U.S.C. 253(c)(6).

6.302-7 Public interest.

(1) Citations: 10 U.S.C. 2304(c)(7) or 41 U.S.C. 253(c)(7).

3) Description of Supplies or Services Required:

The mission of the F-16 MTT TSSC is to provide SAP level training system support services and onfield

Justification for Other Than Full and Open Competition

Task No 47QFWA23R0003 support for the installed F-16 MTT device and any future, fielded devices. TSSC support services include, but are not limited to: -

• Managing, conducting, and executing SAP hardware and software engineering trade studies, design, development, fabrication, integration, test, and fielding

• Managing and supporting Risk Management Framework (RMF) SAP Cybersecurity, SAP Authority to

Operate (ATO), Authority to Connect (ATC), and Simulator Common Architecture Requirements and

Standards (SCARS) support functions

• Managing, developing, and executing centralized maintenance actions, including common spares pool and help desk support

• Managing and executing F-16 MTT configuration management

• Managing and executing obsolescence management

• Managing, developing, and executing SAP device upgrades and concurrency

• Managing, developing, and executing training content management and coordination

• Collaborating and coordinating with dedicated F-16 MTT operator/maintainer (COMS) at each site

4) Identification of Statutory Authority:

The statutory authority authorizing this action is 41 U.S.C. 253 (c) (2) as implemented by FAR 6.302-2. The supplies or services required by the agency of such an unusual and compelling urgency that the Government would be seriously injured unless the agency is permitted to limit the number of sources from which it solicits bids or proposals.

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

Background.

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 F-16 MTT-G is a high-fidelity, full mission trainer that is designed to meet the full spectrum training requirements for ANG F-16 Block 30 pilot training at all levels, including SAP Distributed Mission Operations (DMO) training through the Distributed

Training Operations Center (DTOC). Due to the expanding F-16 training requirements, as well as the increasing expense and limited availability of live fly aircraft, the F-16 MTT fills a significant training need for the ANG F-16 community. With a high-fidelity cockpit system and advanced geo-specific visual databases and a 360-degree visual display, the F-16 MTT-G acts as efficient training simulator with the added benefit of a reduced footprint.

The ANG previously used F-16 Block 30 Unit Training Devices (UTDs) to train pilots on F-16 cockpit familiarization. The F-16 Block 30 UTDs have since become obsolete and, as a result, ANG decided to utilize excess cockpits from various sources, combined with Government-furnished software from the Air

Force Reserve Command (AFRC) F-16 Multi-Task Trainer (MTT) to maintain concurrency in the design and build of the F-16 MTT. The F-16 MTT was designed to serve as a squadron-level pilot training device to support initial, qualification, and continuation training of full-time and part-time F-16 pilots in both training and operational F-16 units. Most critically, the F-16 MTT provides pilots with training in normal checklist procedures/systems operation, instrument flight and approaches, weapons system employment under all conditions, threat detection, and night vision training.

The F-16 MTT effort started with the procurement of nine (9) Government Furnished Equipment (GFE) F-

16 Block 50 surplus cockpits which Trident Military Systems, LLC(TMS) is modified and converted into F-hardware design includes specific processors and architecture that match those of the aircraft computers at the bit level.

o TMS has a proprietary process to develop software from F-16 Block 30 aircraft source code and run/convert it to commercial processors. This process reduces the duplication of costs to the government due to its efficiency and accuracy. TMS’s unique and innovative approach to software development has been developed over the last 30+ years of TMS OFP experience.

o Proprietary hardware cockpit interface that includes custom boards to work in VME chasse to allow whole cockpit package to interface with software (physical inputs to a digital interface).

This management of digital and analog inputs/outputs comes from hardware expertise with OEM parts that will continue to develop over the upcoming years—not having this hardware and the expertise will cause unacceptable delays in fulfilling the concurrency requirements needed for the F-16 MTT.

o TMS has a proprietary software interface for checklist-based F-16 emergency procedures. This software is built over current software and minimizes the duplication of costs to the government.

In addition, it reduces console operator/instructor training and increases training fidelity while allowing for easy updates and greater training alignment as the F-16 MTT advances.

These proprietary technical approaches are unique to TMS and significantly reduce schedules and costs associated with concurrency updates.

• To date, TMS, as the F-16 MTT Original Equipment Manufacturer (OEM) has been the original service provider for the requested ANG F-16 MTT TSSC and the only known vendor capable of meeting the delivery schedule for manufacture and TSSC sustainment (concurrency), without issue.

• In addition to the proprietary, semi-automatic concurrency processes, TMS as OEM for F-16 MTTs, has the following established and operational capabilities:

o Secure SAP communications connectivity via CV2 with appropriate permissions and accounts to relevant USAF technical and security entities. Required over fifteen (15) months for approval and installation. Without this connection undue harm will come to the government, delaying the ATO and putting F-16 units into operational risk.

o Multiple personnel with current F-16 SAP access. Without already approved personnel, there will be a minimum delay of 6 months to get employees approved. This will cause undue schedule delays and substantial duplication of costs to the government that is not expected to be recovered.

o Only known company approved to receive ANG F-16 Block 30 aircraft SAP OFP source code. The distribution of aircraft OFP source code is rigorously restricted for security purposes and is an enabling factor for concurrency.

o Over 6,800 square feet of ICD-705 accredited SAP Facility including a simulator bay of 2,500 square feet which houses the TSSC development system.

o Has built or is under contract for ANG’s fleet of ANG F-16 MTT simulators. Note: All TMS systems are built to match the hardware requirements for the semi-automatic conversion of aircraft OFPs whether refurbished GFE components or newly manufactured.

Summary.

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

• TMS possesses cost effective and time efficient, proprietary software, hardware, and processes that meet the SAP system concurrency critical requirement, are compatible with the delivered systems, and are not available to other contractors. There is no known substitute technology.

• TMS has a CV2 network connection to continue continuous ATO and security services.

• TMS has the accredited facilities, personnel, and equipment to continue uninterrupted TSSC services.

• Only TMS can meet the installation milestone in F-16 MTTs (30 days prior to aircraft fielding) and the follow-on SAP updates on such a compressed aircraft modification schedule.

• As the F-16 MTT OEM, TMS has direct expertise and working knowledge of all facets of the F-16

MTT 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 TMS approach.

• Switching vendors, even if one could be qualified and accredited, would require a substantial change to both the computational hardware and software (modification of existing F-16 MTTs), require substantial upfront and duplication of costs, and with recurring costs expected to exceed TMS. The delay in critical concurrency updates for the F-16 MTT-G is unacceptable to the ANG. 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 F-16 MTT is currently still in production, and since TMS is wholly responsible for the continued design, development, and installation aspects of the F-16 MTT, it would not be in the

Government’s best interest to change to a different vendor while in mid-production. TMS has the experience to support the evolving requirements of F-16 MTT sustainment across all ANG units, and the introduction of a new vendor would put all existing and upcoming devices at risk. TMS offers a fair price with performance that meets or exceeds the ANG requirements.

• TMS is currently in mid-production with the devices 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 F16 MTT- simulation trainer is in excess of $5 million. To consider award of this requirement to another vendor would involve risk to the Government’s financial investment in the simulation equipment.

• The F-16 MTT will be used by all gaining units for training ahead of deployments. If a different service provider 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 F-16 MTT. It is difficult to put an end date on the time to transition due to the requirement to develop a substitute for the TMS proprietary, semi-automated OFP conversion tools, the standup of ICD-705 facilities, and access for personnel. A conservative estimate based on previous USAF programs indicate that the transition would be 1-2 years with no guarantee of success. Allowing TMS to provide support for devices which they already design, install, and integrate represents the most cost-effective, timely, and streamlined approach to TSSC implementation since it would avoid interrupting the training and mission readiness of the warfighters at each ANG unit.

• TMS delivers the F-16 MTTs with an Authority to Operate (ATO) package to allow the F-16

MTTs to operate in a classified environment when connected to Distributed Mission Operations

(DMO). DMO connection will dramatically increase training capabilities and will allow the gaining units to train together across a secure network. The ATO requires specific software configuration overlaid and integrated with the aircraft OFP software. This tightly coupled software requires specific, detailed knowledge of the OFP code, the system operational software, and the ATO requirements.

• The use of TMS allows for a reduction in duplicate efforts, including standup requirement reviews and the turnover and retraining of COMS employees. The use of TMS would seamlessly allow for ANG F-16 MTT TSSC sustainment efforts to continue across all ANG F-16 units, saving the government an estimated $ .-

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

There is no known vendor that can meet the critical schedule or cost constraints. This requirement is unusual in the fact that an immediate solution is required to maintain support of the F-16 MTT TSSC systems. Due to the unusual and compelling urgent nature of this requirement (FAR 6.302-2) and because Trident Military

Systems, LLC has the capability to meet the immediate need, no further market research was conducted.

Selecting another vendor would require significant hardware change out to operate with the new vendor’s architecture, plus substantial software design costs, in addition to the significant schedule impact. Retaining a vendor with no previous experience in F-16 MTT design, development, fielding, and sustainment is a high-risk decision in terms of performance, cost, and schedule.

Until other companies establish processes to meet the concurrency requirements, it would be neither reasonable nor feasible to consider any other contractor. To ensure the above is met, NGB A3T will 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:

The cost/price of this contract will be considered fair and reasonable to the government based upon the historical pricing data available to the government from the previous contract. This contract will be negotiated on a sole source basis.

8) Description of market survey conducted:

Market research included historical, contractual data for the F-16 MTT program, and current evaluations of the existing vendor’s (L3/CAE) capabilities and performance, to date. Because all known competitors use processes that do not match the aircraft hardware and software configuration, and therefore require extensive manual processes for updates, they have not and cannot meet the concurrency requirements in a timely manner.

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