JA_Rev4_22M-586A-PR_Pressure Controller for PG-7601_Signed_Redacted.pdf

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

CONTROLLED UNCLASSIFIED INFORMATION

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Was a J&A approved for the preceding acquisition? Yes No

Is this a new or amended J&A Document? New Amended ( Prior to Award Only! )

Is this a Bridge Action as defined at AFFARS 5302.101? Yes No

Dollar Value of this Acquisition:

Contracting Activity: AFLCMC/WNMK

Purchase Request (if available): 22M-586A-PR

Program / Project (and PE, if applicable): Pressure Controller for PG7601

Program Type (PEO, Enterprise, of Operational): PEO

Authority: 6.302-1 – 10 USC 2304(c)(1), Only One Responsible Source and No Other Supplies or Services Will Satisfy Agency Requirements

Estimated Contract Cost (including options): J&A Type: Class Individual

COORDINATION ( AFFARS 5306.304(a))

Date

19 Aug 2021

Signature

15 Sep 2021

23 Sep 2021

Signature

18 Oct 2021

APPROVAL ( AFFARS 5306.304(a))

Date

22 Oct 2021

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I. Agency and Contracting Activity.

AFLCMC/WNMK, 813 Irving-Wick Dr., W Horton Building, Heath, OH 43056.

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

This J&A is for a new firm fixed price contract with Fluke Calibration. AFMETCAL has a requirement to procure new pressure controllers for the PG7601 system to ensure capability is not lost. The proposed contractor will be a large business, Fluke Calibration, 4765 East Beautiful Lane, Phoenix, AZ 85044-5318 (hereinafter Fluke) (Cage 4U744).

The current inventory of PG7601 Deadweight systems were acquired in 2005 from small business DH Instruments via contract FY2333-05-C-0001 to deliver 75 PG7601-SYS-AF systems. The systems included a PPC3 pressure controller component that automatically floats the piston-cylinder at each test pressure. The PG7601-SYS-AF is a specific configuration of a commercial PG7601 primary pressure system. DH Instruments sold many PG7601 Systems to other customers with the PPC3 as the pressure controller. Since that time, Fluke acquired DH Instruments in 2007 and has continued to support the PG7601-SYS-AF systems. When Fluke replaced the PPC3 with the PPC4, it included the PPC4 with new PG7601 Deadweight systems as the pressure controller for all new customers. Fluke introduced the 6270A pressure controller (which replaced the PPC4) to float PG7601 deadweight pistons in 2015.

These systems function as the primary standard for AF pressure measurements. The system needs to function within the parameters of the Air Force Metrology Calibration Program to maintain the accuracy and traceability of the Pressure Calibrator. The PG7601 is needed to calibrate Precision Measurement Equipment Laboratories (PMEL) pressure gauges, monitors, and calibrators used in support of aircraft and Jet Engine Test Stands. The PG7601 piston/cylinders and weights sets used as Calibration Standards in the PMEL have to be calibrated at the Air Force Primary Standards Lab (AFPSL) against the Air Force Primary Standards.

Based on Market Research, Fluke is the only vendor that can successfully meet our total requirement by operating with the existing AF Calibration Standards (piston/cylinders and weights sets). There are other vendors that create pressure controllers, but the software compatibility between the PG7601 Deadweight tester and the pressure controller is proprietary.

Thus, Fluke is the only company that can be considered for this procurement.

The purpose of this requirement is to replace the PPC3 pressure controllers with new 6270A pressure controllers. The risk should be minimal as Fluke produces this piece of equipment and system configuration routinely at their facility. Since 2017, Fluke has sold 400+ units of 6270A throughout the Americas to both U.S. Government and commercial customers.

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

The current pressure controller is a PPC3, which works in unison with the PG7601 Deadweight tester to calibrate the respective test instrument (TI). These pressure controllers are aging and beginning to show signs of failure. The PG7601 system will not be able to function efficiently if they do not have a sufficient pressure controller. The intent of the procurement is to maintain the current capability and to not experience significant system downtime due to the potential failure of the current pressure controller.

The acquisition will make the Air Force PG7601-SYS-AF identical to the new ones currently being sold by Fluke. The new unit is expected to have a life-cycle of 15 to 20 years, including anticipated supportability of at least 10 years.

Quantities to be purchased are 81 units from FY22-FY25 using 3080/Investment funds at a total estimated price of

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

10 USC 2304(c)(1), as implemented by Federal Acquisition Regulation (FAR) Part 6.302-1(a)(1) Only One Responsible Source and No Other Supplies or Services Will Satisfy Agency Requirements, and required by FAR 6.303-2(b)(4).

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

Fluke is the manufacturer of all the PG7601 Deadweight systems, which utilizes the pressure controller to function in an effective manner. The units are connected together via different pressure lines and tubes. The system also has a terminal that is connected digitally to the pressure controller. The compatibility between those devices is proprietary, as well as the algorithms to communicate precision pressure measurements with all supporting accessories. These pressure measurements serve as the baseline for a multitude of pressure measurements in the Air Force that lead to critical safety-of-flight platforms. The altitude and airspeed indications of fixed and rotary wing aircraft are essentially all derived from the PG7601 Deadweight piston working in unison with the pressure controller.

Award to any other source would result in substantial duplication of cost to the government that is not expected to be recovered through competition. Fluke is the only manufacturer that can meet our requirements and supply systems that use these standards. The total estimated price for the pressure controller is per unit times 81 units for a total of

Replacement cost of the entire AF inventory with new deadweight piston systems, including new pistons and weights, would cost in the realm of $7M for 81 completely new Fluke Systems. No other contractor makes a similar Deadweight Tester that would meet the AF requirements. The AFMETCAL Technical Team determined the proposed acquisition would result in a savings of approximately and provide the same capability as the full replacement option.

Without this acquisition, AFMETCAL risks causing significant delays in providing the customer with their equipment and increased calibration costs because future calibrations will have to be obtained from commercial calibration sources, which is not cost effective.

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.

AFMETCAL Contracting and Small Business Representative issued a Sources Sought Synopsis on March 1, 2021, and only 1 response was received (Fluke). The efforts made to find multiple vendors include research on the Internet, the GSA website, and e-mail correspondence with the vendor. Based on the market research, there is only one source that was discovered to have a COTS item that can meet the government's requirements. The OEM manufactures the PG7601 which utilizes proprietary algorithms to communicate with its supporting accessories. Fluke is the only source of an automated pressure controller that interacts with the PG7601 Deadweight tester in order to float the piston at each test point. If any other vendor is selected, it would result in a substantial duplication of cost. Further, the Air Force would potentially lose calibration capability for a period of time, as research and tests would have to be done to re-characterize all the pistons and calculate all the necessary force pressure conversions. To obtain competition, new Deadweight systems with pressure controller and pistons would need to be purchased.

As required by FAR 5.2, the proposed contract action will be synopsized on Sam.gov. We intend on posting this proposed contract action on, or around, 1 October 2021.

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

A price analysis will be used to verify the overall price offered is fair and reasonable. Price Analysis will be based on comparison to the Government estimate per FAR 13.106-3(a)(2)(vi).

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

As described in Section VI of this document, market research, IAW FAR Part 10, was conducted by synopsis to advise industry of the proposed acquisition and to solicit inquiries from interested parties. Based on the results of this market research, the Air Force Technical Team determined that this procurement will provide the best value to the Government at this current time. Other manufacturers have not advanced to the capability that is required by the Government. Future procurements for this calibration equipment will involve Market Research to find if a new manufacturer has come forth to supply a similar

April 2021 CONTROLLED UNCLASSIFIED INFORMATION Page 4 of 4April 2021 CONTROLLED UNCLASSIFIED INFORMATION Page 4 of 4 product. Throughout Market Research and the development of the acquisition strategy to purchase a new pressure controller, the government has attempted to identify and/or promote existing or emerging companies that could provide a product to meet the government's requirement and foster effective competition.

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

Completely Full and Open Competition could be used to purchase new Deadweight systems. However, as discussed in Section V, the benefits of preserving the current calibration infrastructure (calibration standards, procedures, training, and software) results in the best option for the government.

The purchase of new pressure controllers manufactured by Fluke will be able to satisfy customer requirements based upon the market research performed and the engineer's knowledge of the items to be procured. The component items are commercial-off-the-shelf items, so delays in delivery are not expected. There is little expectation that administration of this contract will be difficult.

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

Fluke Calibration 4765 East Beautiful Lane Phoenix, AZ 85044-5318 POC: Jeff Grossman Phone: (602) 773-4713 E-mail: jeff.grossman@flukecal.com

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.

Fluke is the manufacturer of the original systems in 2005 via contract FY2333-05-C-0001 to deliver 75 PG7601-SYS-AF systems. The systems included a PPC3 pressure controller component that automatically floats the piston-cylinder at each test pressure. The PG7601-SYS-AF is a specific configuration of a PG7601 primary pressure system. DH Instruments sold many PG7601 Systems to other customers with the PPC3 as the pressure controller. The pressure controllers contain proprietary software, which the manufacturer is unwilling to release to another company. For this requirement, there is no other action that can be accomplished to generate competition without substantial duplication of costs. This procurement will provide the best value to the Government at this time. A limited source effort is required to prevent significant downtime and increased calibration costs due to the proprietary data involved.

AFMETCAL will continue to monitor the market place to see if other viable vendors become available for future acquisitions.

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.