JA LRU-21 Redacted.pdf

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

FOR OFFICIAL USE ONLY

March 2018 FOR OFFICIAL USE ONLY Page 2 of 9

I. Contracting Activity.

This Justification and Approval is to request authority for Other Than Full and Open Competition supporting requirements generated for the Air Force Sustainment Center (AFSC), 638 Supply Chain Management Group (SCMG), 408 Supply Chain Management Squadron (SCMS) / GULB. The contracting activity for this requirement is AFSC/PZABB. The purchase request number supporting this contracting action is FD2060-20-00066.

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

Due to the circumstances described herein, the activity requests authority to acquire the engineering services listed in this document using Other Than Full and Open Competition 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 new definitive contract which will be Cost Plus Fixed Fee (CPFF) and Cost Reimbursement No Fee (CRNF). The period of performance (PoP) will be a 36-month basic (FY20-FY24) with no options or ordering periods. The anticipated award of this contract is in May 2020.

The sole source requirement will be obtained from the following source:

HARRIS CORPORATION

DBA: Electronic Systems, Integrated 77 River Road Clifton, NJ 07014-2000

CAGE: 28527

Large Business

III. Description of supplies/services required to meet agency needs.

This requirement is to acquire non-recurring engineering (NRE) services to resolve Obsolete Part and Vanishing Vendor issues with the AN/ALQ-172, Line Replaceable Unit (LRU)-21. This requirement is engineering services for form, fit, function, and interface (FFFI) replacement and redesign of the AN/ALQ-172 (LRU-21) National Stock Number (NSN) 5865-01-485-6252EW, Part Number 2680721G00. These services include a LRU-21 FFFI redesign, prototype fabrication, test, and delivery of redesigned AN/ALQ-172 (LRU-21) to meet legacy LRU specification performance requirements. The FFFI prototypes will exhibit improved system reliability, availability and performance equivalent to or exceeding the legacy specifications of the AN/ALQ-172 (LRU-21).

The final redesigned LRUs will require extensive system integration testing to ensure integrity of the engineering design and limit developmental risk. System integration testing includes sell off at the contractor's facility on the Enhanced Maintenance Test Set (EMTS) and at the depot on their EMTS.

The EMTS tester includes a test rack and a full system mock-up of all the LRUs for the ALQ-172, as

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

This agency's minimum needs can only be satisfied by the unique supplies or services available from the above cited qualified source that possesses unique capabilities demonstrated as follows:

The AN/ALQ-172 is a highly specialized Electronic Warfare System on the B-52 aircraft as well as the various models of the C-130 aircraft used by Air Force Special Operations Command (AFSOC).

The AN/ALQ-172(V) radar jammer is described as being a “combat proven” equipment that is installed aboard US Air Force (USAF) B-52H strategic bombers (ALQ-172(V)2), Special Operations MC-130H “Combat Talon II” transports (ALQ-172 (V)1) and AC-130U (ALQ-172 (V)1) gunships.

The B-52H is scheduled to fly until 2060.

The AN/ALQ-172 system design features include full automation, multiband coverage, simultaneous multiple threat recognition and jamming, digital computer control, "advanced" jamming techniques, a "high" effective radiated power value, threat re- programmability, a high-gain antenna array, a threat warning display, dual MILitary STanDard (MIL-STD)-1553 data bus interfaces and "extensive" built-in test capabilities. An automated diagnostics system allows flight-line crews to run a system self-test and obtain probable cause of failure down to the shop-replaceable unit level "in minutes." ALQ-172(V)1 and (V)2 are fully automatic systems with the two variants differing from one another in the (V)2's use of phased- array antenna technology and its ability to counter monopulse radars in addition to the baseline ALQ-172(V) capability against pulse, pulse-Doppler , and continuous wave radar threats. The ALQ-172 is integrated with the aircraft controls and displays and defensive subsystem to provide the aircrew with protection against radar-directed threats.

The highly specialized LRU-21 is the Control Display Unit (CDU). The CDU controls the operating status of the four subsets (PR FWD, PR AFT, PD FWD and PD AFT) of the AN/ALQ-172(V) Countermeasures System (CMS). The CMS controls the power to the entire system, the Control- Indicator can place each or all of the four subsets in a standby or operate mode. It monitors the test status of each LRU in the system and allows the operator to initiate a self-test mode. It also monitors the under-temperature and over-temperature condition of the LRUs and provides a temporary override in the event of an over-temperature shutdown. This acquisition is necessary to resolve Obsolete Part and Vanishing Vendor issues with the AN/ALQ-172, Line Replaceable Unit (LRU)-21and to continue repairs to fulfill mission needs.

The AN/ALQ-172 components, from software design to hardware components, are tightly intermingled with most system documentation which creates barriers to sanitizing information for release. The Government did not procure the legacy ALQ-172 system-level data including hardware, software, and test interfaces between the system/LRU level test equipment upon the development of the system. The Government does not possess a full technical data package and lacks drawings sufficient to allow for competition. Harris, (formerly ITT Electronic Systems; and, Exelis) is the Original Equipment Manufacturer (OEM) and developer of the AN/ALQ-172 CMS and is the only vendor with the specialized test equipment, drawings, and interface data for the AN/ ALQ-172, LRU-21 system. The Harris proprietary components are so widespread that many small redesign efforts would be required to eliminate proprietary items. Harris has the knowledge of how to integrate and test each SRU or LRU module and the required test set to successfully integrate, test

March 2018 FOR OFFICIAL USE ONLY Page 5 of 9 and deliver the LRUs. This effort requires the timing specification between other LRUs which is proprietary to Harris. Harris has experience and expertise to support AN/ALQ-172 production, repairs, and hardware modifications, provide reliability & maintainability support, and hardware/ software engineering support. Harris is also the OEM for the EMTS in which this effort outlines the necessity for the EMTS to be updated. The EMTS is also the depot level tester used for repairs.

The current workload is contract repair and will remain contract repair based on the core decision in Source Of Repair Activity 09-154. Upon completion of the LRU- 21 FFFI, an organic repair strategy will be considered for future repair requirements.

The Government sent an inquiry to Harris requesting a purchase price for the TDP (if a complete TDP was available). Additionally a request was also sent for an estimated cost to develop and deliver a complete TDP if existing technical data was incomplete, therefore requiring Harris to develop missing technical data in order to deliver a complete TDP. Harris responded on 15 May 2018 with an estimated cost of which included an estimate of labor hours to develop the drawings and specifications through reverse engineering efforts of the hardware and software for system sustainment purposes. The Government determined this to be uneconomical to buy the current data from Harris for the legacy system because the redesign (NRE) includes the requirement for delivery of the complete TDP, including a production-level data package for LRU-21 for After providing the estimate in May 2018, Harris advised in November 2018 they were not interested in selling the Government system-level data and/or LRU interfaces and EMTS required for LRU level production.

The Government also generated an internal estimate for the development of a complete data package organically for the legacy AN/ALQ-172 system through a reverse engineering effort. The estimated cost would be based on labor hours. This estimate is based on an engineering review and analysis using FY17 Depot Maintenance Activity Group labor rates. The Government determined this uneconomical due to the lower cost anticipated with the redesign through Harris in which a complete TDP will be provided.

Award to any other source would result in substantial duplication of cost and unacceptable delays in fulfilling AF requirements since the Government does not have rights to the technical data of the current legacy system. A new vendor would have to reverse engineer the AN/ALQ-172, LRU-21 and support equipment required for testing in order to develop a technical data package (TDP). This would include RE on system subsystem specifications for each AN/ALQ-172(V) CMS version, Functional Performance Specs for each LRU, Source Control Drawings for SRUs, high-level timing diagrams for signal paths, detailed timing diagrams for radio frequency (RF), video and digital circuits within time-critical signal paths, software requirements specifications for each AN/ ALQ-172(V) CMS version, and architectural and detailed design documents for each AN/ ALQ-172(V) CMS version. At this time, the Government does not have a spare LRU-21 to support a reverse engineering effort. In addition, a new vendor would need to fabricate an EMTS/Hot Mockup of the AN/ALQ-172(V)-2 LRU Test Set in order to qualify a new LRU-21 replacement. The vendor could not acquire an EMTS due to its obsolescence.

The anticipated cost involved for a new vendor to develop the TDP and acquire all necessary equipment in addition to time required to develop expertise would not be cost effective or timely to fulfill mission requirements. The redesign portion (NRE) of the effort by Harris is estimated to cost

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. The total cost to reverse engineer the legacy AN/ALQ-172 system organically or through a new source, verse pursuing the redesign effort with Harris is significant and would not result in a return on investment for the Government within the anticipated life cycle of the system or aircraft it supports. It is less costly to the Government to create a new data package through the redesign with Harris versus overhauling a legacy package. The current TDP development effort is estimated to take three + years. The estimated time for another vendor to become familiar with the ALQ-172 PAAM and system would take three to five years and cost around million based on the manpower, equipment, skills, and knowledge needed for this effort. These estimates are based on prior ALQ-172 projects where a vendor not familiar with the ALQ-172 attempted redesign efforts.

Additionally once an RE effort was completed by the new vendor, the Government would then need to qualify the source which would entail new supplier startup, performing qualification, first article testing, acceptance testing, and flight test. The new source would also require a LRU-21 asset which the Government is not in position to provide due to the current depletion of supplies. Due to the critical demand, limited schedule, and cost, it is not in the Government's best interest to develop a new source of supply. The impact to drawings, software, and hardware would be monumental and the Government would be unable to recoup the cost through any savings gained by competition. A three to five year delay would be unacceptable to meet Air Force mission requirements. Without the LRU-21, the AN/ALQ-172 system cannot be utilized and leaves the B-52H aircraft defenseless against threats.

Accordingly, Harris is the only firm capable of providing the requirements described in Section III above without the U.S. Air Force experiencing substantial duplication of cost that could not be expected to be recovered through competition and unacceptable delays and in fulfilling its requirements.

VI. Description of efforts made to ensure that offers are solicited from as many potential sources as practicable.

A Sources Sought (SS)/Request for Information (RFI) synopsis was posted to Federal Business Opportunities (FeBizOpps) on 07 Mar 2019 with a response date of 07 Apr 2019. The posting was under Solicitation Number FA8522-FY-20-00066. The SS/RFI requested responses from interested vendors that possess the expertise, capabilities, and experience to meet qualification requirements for this effort. The Government received no responses to the SS/RFI.

The requirement will be synopsized in FedBizOpps 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.

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

The overall cost of this acquisition will be fair and reasonable to the Government. In accordance with FAR 15.403-4, the contractor will be required to provide certified cost or pricing data to be used to support the Government's evaluation of the proposed cost. The proposed skill mix of labor, labor hours, types and quantities of material and other direct costs, and direct and indirect rates will be

March 2018 FOR OFFICIAL USE ONLY Page 7 of 9 negotiated by the Government based on recommendations from the Defense Contract Management Agency and expert technical personnel supporting the program. The contract price will be negotiated in accordance with the procedures in FAR Part 15 ensuring the ultimate cost to the Government is fair and reasonable.

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

Market research was conducted during February and March 2019 and finalized on 09 April 2019 in accordance with FAR 10.001 and 10.002. The following market research techniques and methods were utilized:

Engineering personnel actively engaged in component product sustainment, staying abreast of industry developments by reviewing industry reports, trends and product developments, communicating with field personnel, and maintaining an active dialog with Harris.

As described in Section VI above, a SS/RFI was posted to the FedBizOpps advising industry of the pending acquisition and soliciting inquiries from interested vendors. The SS/RFI was posted on 07 Mar 2019 under Solicitation Number FA8522-FY-20-00066 in which zero responses were received.

Queries were conducted within Government databases for the AN/ALQ-172(V) system and through contacting knowledgeable individuals, including the system engineer, equipment specialist, and program manager regarding market capability of other known possible sources. The research provided no additional sources.

The Government performed several queries in the marketplace. The ALQ-172 Systems Engineering team searched the databases and websites by NSN, part number, and/or item description. The key terms used in the searches were: "ALQ-172 Control Display Unit, ALQ-172 CDU, and ALQ-172 LRU-21.” Queries were conducted at the following websites:

• http://www.aerospace-technology.com/contractors/index.html

• http://www.globalspec.com/ProductFinder

• http://www.eem.com/

• http://web.sba.gov/pro-net/search/dsp_dsbs.cfm

• http://www.google.com

A small business search was conducted using keyword “LRU-21.” It identified four potential vendors.

After investigating each vendor, they were determined not capable because none were qualified to perform a LRU-21 redesign. The vendors could perform general LRU work, but had no experience specific to LRU-21. They did not possess the knowledge or TDPs required to support the ALQ-172 system or knowledge necessary for integration of all the LRUs. A query using keyword “ALQ-172 LRU-21” identified one potential vendor. This vendor was determined not capable based on the same criteria stated above.

Google searches were conducted on each set of keywords. The first 100 hits were reviewed from each search. Google identified over 22,400 hits for the search of “ALQ-172 LRU-21.” The searches did not

March 2018 FOR OFFICIAL USE ONLY Page 8 of 9 display any LRU-21 hardware but they were all geared towards LRU algorithms. Google identified over 38,400 hits for the search of “Control Display Unit.” All the results were focused on piece-parts and none at a full box-level, therefore these searches did not reveal any new potential sources.

The AN/ALQ-172 does not fit the definition of a commercial item as defined in FAR 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. No commercial product data sheets, test data, qualification data, and support manuals are available for the LRU-21.

The market research concluded Harris is the only source with the proprietary technical data, required capabilities and knowledge to meet the Government's requirements and delivery schedule for this instant acquisition.

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

None.

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.

The Government does not possess the AN/ALQ-172 (LRU-21) TDP. This effort requires the timing specification between other LRUs and that is proprietary to Harris. Harris responded on 15 May 2018 to the Government's inquiry on selling the TDP. They estimated the cost to develop and deliver a complete TDP at , but later advised the Government in Nov 2018 that they were not interested in selling the TDP. The Government estimate to develop a complete data package organically through a reverse engineering effort is based on labor hours. It would not be economically feasible for the Government to invest in in a reverse engineering effort of the legacy AN/ALQ-172 LRU-21.

It would take a new vendor three to five years to become familiar with the AN/ALQ-172 system due to its complexity. In addition, a new vendor would require a LRU-21 asset which the Government is not in position to provide due to the current depletion of our supply. To pursue such an action would cause an unacceptable delay in the Government meeting critical mission requirements.

To break barriers to competition, the Government will require delivery of a complete TDP, including production-level data for the redesigned LRU-21 at the System Subsystem Specifications level. The procurement of the TDP will allow for future competition on requirements supporting the B-52H

March 2018 FOR OFFICIAL USE ONLY Page 9 of 9 which is scheduled to fly until 2060.

This is a new redesign effort therefore the requirement for higher level approval in accordance with DFARS PGI 206.304(a) (S-70) (ii) is not applicable.

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 signature above, I certify that any supporting data contained herein, which is my responsibility, is both accurate and complete.