JnA_P8A_IDIQ_for posting_Redacted.pdf

DEPARTMENT OF THE NAVY

NAVAL AIR WARFARE CENTER TRAINING SYSTEMS DIVISION

12211 SCIENCE DRIVE

ORLANDO FLORIDA 32826-3224

J&A No. 25-0050

JUSTIFICATION AND APPROVAL

FOR USE OF OTHER THAN FULL AND OPEN COMPETITION

1. Contracting Activity.

Naval Air Warfare Center Training Systems Division (NAWCTSD)

2. Description of the Action Being Approved.

This Justification and Approval (J&A) authorizes and approves a follow-on sole source Indefinite Delivery Indefinite Quantity (IDIQ) contract vehicle with The Boeing Company (Boeing), St.

Louis, Missouri to procure new training systems, as well as upgrades and modifications to existing United States Navy (USN), Royal Australian Airforce (RAAF), and other Foreign Military Sales (FMS) P-8A training systems to ensure that the training systems are representative of the fleet aircraft and systems. Non-commercial spares, support equipment, cyber support services, technical manual updates and on-site training will also be procured under this contract.

3. Description of Supplies/Services.

NAWCTSD intends to acquire new, or modify existing, P-8A training devices and associated systems for the USN, RAAF, and FMS customers. The training devices are grouped to include flight training systems and maintenance training systems. These training devices and associated systems will include all required software and hardware required to support all system and subsystem upgrades, production changes, and device retrofits. Specifically, the training devices and systems associated with this effort are:

Flight training system devices include:

Operational Flight Trainers (OFT) Electronic Classrooms (EC) Flight Management System Trainers (FMST) Mission Systems Desktop Trainers (MSDT) Weapons and Tactics Trainers (WTT) Part Task Trainers (PTT) Deployable Mission Rehearsal Trainers (DMRT) Mission Systems Avionics Trainers (MAST) Training System Support Center (TSSC)

Maintenance training system devices include:

Virtual Maintenance Trainers (VMT) Ordinance Load Trainers (OLT) Hardware type 2 maintenance device trainers

J&A Number: 25-0050

Boeing is the only known source that possesses the required technical expertise and knowledge to complete the work. As the P-8A aircrew and maintenance training systems designer and integrator, the Boeing Company possesses the unique engineering knowledge and systems expertise to modify existing training devices and deliver new training devices. The P-8A aircrew and maintenance training devices utilize Boeing proprietary Common Simulation Framework (CSF), as the underlying software architecture, and Insight as the Instructor Operator Station (IOS).

Additionally, P-8A training system devices utilize the aircraft operational flight software, Tactical Operational Mission Software (TOMS). The trainer upgrades and modifications contemplated for this IDIQ require modifying this software. The Government, however, does not have the source code (in the case of TOMS) or sufficient data rights in the source code (Restricted Rights in CSF and IOS) to enable a third party to perform the contemplated upgrades and modifications. The cited other than commercial software was obtained by the Government with restricted rights in accordance with DFARS § 252.227-7014(b)(3). This restricts the Government from releasing the data to third parties for modification without obtaining additional rights. The Government has requested to purchase the data rights necessary to compete these requirements numerous times and Boeing has repeatedly denied those requests, most recently on 21 Feb 2025. Performance of the contemplated upgrades and modifications by another source would require the re-development of trainer architecture and training devices and retrofit of the newly developed training devices into the existing suite of devices. This will result in an estimate of in duplication of costs for re-development to bring the devices to current configuration state. This estimate is based on past actuals and assumes initial set-up costs and maximum potential re-use of existing training system hardware. Furthermore, the existing suite of devices must remain operational and current while the new architecture is developed, mandating two P-8A Trainer baselines be maintained to continue to meet fleet demands for trainer concurrency.

6. Description of Efforts Made to Solicit Offers from as Many Offerors as Practicable.

NAWCTSD maintains in-depth knowledge of simulation and training system technology developments and industrial base. This includes insight into marketplace technology, and knowledge of the technical and production capabilities of industry contractors. NAWCTSD representatives maintain this knowledge through routine review of industry journals and attendance at the annual Training and Simulation Industry Symposium and the annual Interservice/Industry Training, Simulation and Education Conference. These representatives also periodically visit industry facilities for briefings on Independent Research and Development efforts. Based on its knowledge and expertise, NAWCTSD has determined that no company other than Boeing has the knowledge and technical capability required to produce the P-8A training systems and upgrade them.

In accordance with DFARS § PGI 206.302-1, the proposed contract was synopsized as a Sources Sought Notice on the System for Award Management (SAM) website on 22 May 2023 and was open for responses for 30 days. The posting included both courseware and training systems requirements. Four responses with capabilities statements were received, including one from the P- 8A Original Equipment Manufacturer (OEM) (Boeing).

. The Government evaluated all the statements and accompanying documents submitted to determine each respondent’s capability to fulfill the

J&A Number: 25-0050 requirements. Only one of the respondents, Boeing, was found capable of fulfilling all requirements.

Based on the results of the sources sought and the capabilities assessments, the Government will pursue a different acquisition strategy for procuring the courseware portion, unless directed otherwise for FMS via an LOA, as capabilities exist in the market from multiple sources to fulfill that portion. However, for most of the requirements, only Boeing has the capabilities necessary to complete the work. As a result, future potential interested parties will be referred to The Boeing Company Subcontracting Manager for possible subcontracting opportunities. The results of the Source Sought Notice evaluation were communicated to the three respondents determined incapable of performing the training systems requirements and no further questions were received.

The Government is currently unaware of any other parties able to fulfill the current contract requirements. In accordance with FAR § 5.204, a Pre-Solicitation Notice was published to SAM.gov on 06 August 2024 to summarize the Government’s intent to sole source for the P-8A training system requirements, and to summarize the results of the market research. It was open for response through 21 August 2024 and did not result in any further interest regarding the current P- 8A Training Systems requirements. Any additional responses received prior to contract award will be considered and addressed by the Contracting Officer.

7. Determination of Fair and Reasonable Cost.

The Contracting Officer has determined the anticipated cost to the Government of the supplies/ser-vices covered by this J&A will be fair and reasonable.

8. Actions to Remove Barriers to Future Competition.

For reasons set forth in paragraph 5, NAWCTSD has no plans at this time to compete future requirements for the types of supplies and services covered by this document. However, NAWCTSD has been able to successfully procure commercial spares, visual databases, and models from con-tractors other than Boeing. NAWCTSD intends to continue to evaluate the competitive market-place for future potential industry partners to fill P-8A training systems needs through continued market research. If another potential source emerges, NAWCTSD will assess whether competition for future requirements is feasible.

As this is a follow-on for supplies and services previously awarded on a non-competitive basis, in accordance with DFARS § PGI 206.304(a)(S-70)(i), the prior justification (Class J&A: 18-0224) is provided to the approval authority for review. Approval of this J&A signifies the approval authority has made the determination required by DFARS § PGI 206.304(a)(S-70)(ii).