JA Standard Wargame Integration Facilitation Toolkit_SWIFT_Redacted.pdf

Defense Threat Reduction Agency 8725 John J. Kingman Road, Stop 6201

Fort Belvoir, VA 22060-6201

JUSTIFICATION AND APPROVAL FOR OTHER THAN FULL AND OPEN

COMPETITION

1. Nature and/or Description of Action

The Defense Threat Reduction Agency (DTRA) contracting activity proposes to procure, without using full and open competition, a contract on behalf of the Nuclear Technologies-Assessments (NTA) Division. The contract will procure Standard Wargame Integration Facilitation Toolkit (SWIFT) wargaming support with Group W, Inc. (Group W), using Only One Responsible Source and No Other Supplies or Services Will Satisfy Agency Requirements.

2. Description of the Supplies/Services Required

The 2018 National Defense Strategy and Nuclear Posture Review instructed the Department of Defense (DoD) to prepare to operate in the context of a nuclear detonation. This means that if a nuclear detonation were to occur, the DoD is required to be prepared to continue functioning and operating under such circumstances. This preparation requires nuclear wargaming. To address operational impacts in a nuclear wargame environment, DTRA-NTA seeks to integrate Group W’s SWIFT software with NTA’s Mission Impacts of Nuclear Events Software (MINES).

The wargaming support for this project shall include:

Integration of conventional and nuclear wargames, exercise participation, and support;

Testing modeling and simulation algorithms in support of wargaming;

Conducting chemical, biological, radiological, or nuclear (CBRN) analysis as required in support of wargaming;

Providing nuclear effects tools and subject matter expertise to wargames, table-top exercises (TTXes), and exercises;

Developing operational wargaming vignettes and use cases for the integration of nuclear wargames with conventional wargames; and Hosting multi-day wargame(s) to play out and analyze vignettes, i.e., to conduct the wargame to completion and to step through the vignettes, making use of the SWIFT integration with MINES as part of this process.

Work on the SWIFT tool itself has been ongoing for eleven years and is currently being performed under contract number HQ003417F0291, a contract for the Office of the Secretary of Defense (OSD) that is serviced by Washington Headquarters Services. Contract HQ003417F0291 does not include work to integrate SWIFT with MINES.

This project will consist of 36 months, to include a 12-month period of performance (PoP), followed by two 12-month option periods using research and development, testing, and evaluation (RDT&E) funding based on mission needs. The total estimated value of this effort is

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Fort Belvoir, VA 22060-6201

. This breakdown of funding is expected to be: FY22 , FY23 , FY24 , and FY25 .

3. Statutory Authority

The statutory authority for this non-competitive action is: 10 United States Code (U.S.C.)

3204(a)(1) as implemented by FAR 6.302-1, Only One Responsible Source.

4. Applicability of Authority

Pursuant to FAR 6.302-1, Only One Responsible Source and No Other Supplies or Services Will Satisfy Agency Requirements, Group W is the only performer that satisfies the criteria necessary for successful performance of this effort without substantial duplication of effort and costs and significant delays to the mission. Group W is the creator and developer of the SWIFT code for OSD and has continued that work for the past 11 years. Group W completed the work previously funded by NTA to develop a nuclear module for SWIFT, called Nuc-SWIFT. Group W therefore possesses the expertise to make the required modifications in an efficient manner. Group W has demonstrated the ability to integrate SWIFT with another code per integration of the software tool “DDFCalc” with Nuc-SWIFT. Group W has clearly cited the overall objective of the project, “to use SWIFT as a testbed for integrating DTRA software tools into existing modeling and simulation platforms and wargame tools, such as SWIFT.” Group W additionally demonstrated understanding of NTA’s requirements for MINES, detailing specific understanding of (1) interpreting nuclear environment modeling in the context of wargaming, (2) the necessity for a fully contained demonstration of MINES, and (3) partnership with MINES developers.

5. Effort to Solicit Potential Sources

DTRA posted a sources-sought (SS) announcement using notice ID HDTRA1-22-R-0008 on https://SAM.gov (formerly FedBizOps). This SS request was open for 34 calendar days, from November 29, 2021 through January 2, 2022. As a result, three responses were received to the SS announcement on SAM.gov, including from Group W. The analysis of the responses is discussed in the Market Research Report (MRR), demonstrating that Group W is the only responsible source to satisfy the requirement without duplication of costs and significant delays to mission.

6. Fair and Reasonable Costs

The estimated cost of this contract action is for a 12-month base period with two 12-month option periods. The final cost of this action will be determined to be fair and reasonable based on the Independent Government Cost Estimate (IGCE), historical pricing, cost realism, and cost analysis performed on the contractor’s proposal.

Fort Belvoir, VA 22060-6201

7. Market Research

In accordance with FAR Part 10, market research was conducted for this acquisition to determine potential sources that are able to integrate the SWIFT software tool with MINES and to execute wargames and demonstrations testing and using the reults of that integrative effort. Market research consisted of prior acquisition information, i.e., the Nuc-SWIFT work under contract number HQ003417F0291, a contract for OSD that is serviced by Washington Headquarters Services, which was described in section 4. An internet-wide search was conducted using http:\\www.google.com to search for any other sources of information regarding work with the SWIFT code or any performers that describe work with SWIFT. This internet-wide search returned no results that indicated.

Additionally, a SS notice was posted on SAM.gov. DTRA posted a SS notice ID HDTRA1-22- R-0008 via https://SAM.gov from November 29, 2021, through January 2, 2022. DTRA received three responses to the SS announcement on SAM.gov, including from Group W. Group W demonstrated the ability to integrate SWIFT with another code per integration of the software tool “DDFCalc” with Nuc-SWIFT. Group W clearly cited the overall objective of the project “to use SWIFT as a testbed for integrating DTRA software tools into existing M&S platforms and wargame tools, such as SWIFT.” Group W additionally demonstrated understanding of NTA’s requirements for MINES, detailing specific understanding of (1) interpreting nuclear environment modeling in the context of wargaming, (2) the necessity for a fully-contained demonstration of MINES, and (3) partnership with MINES developers.

The response failed to mention SWIFT or MINES in its SS documentation.

response demonstrated expertise in facilities development, renovation and maintenance, but failed to justify any experience or competency in wargaming, coding, or software integration.

The response indicates experience in DTRA software development and integration in the HPAC and JEM programs, including nuclear environment modeling. However, the respondent neither demonstrated experience integrating the SWIFT code specifically with any other programs nor demonstrated knowledge on how to run SWIFT code itself for a specific scenario.

Of these three respondents, only Group W demonstrated the capability to execute the tasks in the Statement of Objectives (SOO) without a duplication of effort and additional cost to the government.

8. Other Facts

Group W has been the sole developer of SWIFT for 11 years and award to any other source would result in duplication of cost and delays in fulfilling the Agency’s requirement. Group W will continue to work on the SWIFT code for OSD. If the USG were to give the SWIFT code to a developer other than Group W, it would be expected to require, at a minimum, a group of three full-time equivalent (FTE) experienced developers nine months at a cost of approximately to become familiar enough with SWIFT to begin work on the coding required for this project.

Fort Belvoir, VA 22060-6201

Additionally, the Joint Staff (JS) recently selected SWIFT as its modeling and simulation platform for its future wargames. The JS has asked that nuclear weapons effects be included in SWIFT for the upcoming Globally Integrated Wargame (GIWG) in June 2022. While it will not be possible to complete the integration of MINES into SWIFT for 2022, it is vital that DTRA get MINES integrated into SWIFT as soon as possible so the 2023 and beyond wargames can benefit from the MINES nuclear wargaming software. Not using Group W, the current developer of SWIFT, would require an extensive period of time for another developer to learn the SWIFT source code and make modifications, delaying the integration of MINES well beyond 2023. The JS is an important DTRA customer, and General and Flag-Officer-level representatives from all of the Services and Combatant Commands attend GIWG each year, making this a critical venue to demonstrate the capabilities of MINES and to show the JS’s requirements are being met.

Therefore the risk of delay would be that wargames do not have a nuclear component integrated, which would create a deficiency in the government’s preparation if a nuclear attack or event were to occur. Mission risk would further include not meeting the JS's requirements in a timely manner.

9. Interested Sources

Per the sources-sought results, the interested sources are Group W, Inc. (Group W), , and .

10. Subsequent Actions

DTRA will post a notice of intent to award a sole-source contract.

Technical Certification

I certify that the data and information forming the basis for this justification are accurate and complete to the best of my knowledge and belief.

Program Manager Date

2-18-2022

Fort Belvoir, VA 22060-6201

Contracting Officer Certification

I certify that this justification is accurate and complete to the best of my knowledge and belief.

Contracting Officer Date

General Counsel Coordination

This justification is legally sufficient.

Attorney Date

Approval

Based on the above justification, I hereby approve accomplishment of this acquisition by means other than using full and open competition.

Competition Advocate Date

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SALIM.TABASSA

M.S.

2/22/2022

3/1/2022

03/02/2022