LMR_DAS_SoleSource_justification_Redacted.pdf

Sole Source (Including Brand Name) Justification - Simplified Procedures for Certain Commercial Items

CONTROLLED UNCLASSIFIED INFORMATION

March 2023 CONTROLLED UNCLASSIFIED INFORMATION Page 2 of 5March 2023 CONTROLLED UNCLASSIFIED INFORMATION Page 2 of 5

I. Contracting Activity.

FA5000, Joint Base Elmendorf-Richardson, 673d CONS/PKB

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

Joint Base Elmendorf-Richardson (JBER) will award a Motorola sole source firm-fixed-price contract for a Land Mobile Radio Distributed Antenna System. This will be a new contract award.

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

To meet the critical communication needs of first responders and military units within the 673d MDG at JBER's Military Treatment Facility (MTF), a Motorola in-building Land Mobile Radio (LMR) Distributed Antenna System (DAS) is required.

673d MDG's current LMR infrastructure is based on Motorola equipment. The MDG and their local Comm Squadron (CS) (operating as the first line maintenance and technical support for this infrastructure) are only trained on Motorola equipment. The Motorola LMR equipment was recently refreshed in FY24, and it is not anticipated that new LMR equipment will be acquired in the near future as AFMAN 17-1203 recommends that it is only refreshed every 10 years.

To use Motorola LMR equipment, 673d MDG relies on the Alaska Land Moblie Radio system (ALMR). The ALMR was put into place following an August 2001 mandate of the Deputy Secretary of Defense. The ALMR network architecture is based on Motorola and Motorola approved components. It is P25 compliant and utilized by over 122 federal, state, and municipal entities. ALMR provides both autonomous and interoperable communications capabilities.

To use the ALMR, 673d MDG requires a DAS. DAS systems are designed to meet building safety code coverage requirements. DAS systems distribute radio signals throughout a building. The concrete and metal materials used to construct the MTF reduce the effectiveness of radio signals movement into and throughout the MTF and can affect communication. This DAS system will amplify and distribute the ALMR radio signal throughout the MTF, ensuring consistent and reliable communication for emergency response and daily operations.

Given the ALMR system's Motorola architecture and the need for reliable communication during emergencies, the required DAS solution must be fully compatible with Motorola and Motorola approved components. This includes supporting Very High Frequency (VHF) and R-56 Standards. A DAS solution from a vendor other than Motorola or a cannot guarantee seamless integration with the ALMR network or existing Motorola LMR equipment. A lack of seamless integration could lead to signal degradation, communication failures during emergencies, and increased maintenance costs due to training and experience gaps. To ensure reliable and cost-effective performance, a Motorola or Motorola-approved DAS solution is required.

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

This sole source acquisition is justified under the statutory authority permitting the limiting of competition in accordance with FAR 13.501(a) because a Motorola DAS system is required as no other system will satisfy

Sole Source (Including Brand Name) Justification - Simplified Procedures for Certain Commercial Items

March 2023 CONTROLLED UNCLASSIFIED INFORMATION Page 3 of 5March 2023 CONTROLLED UNCLASSIFIED INFORMATION Page 3 of 5 agency requirements.

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

Joint Base Elmendorf-Richardson (JBER) requires the procurement of LMR DAS equipment and firmware that is fully compatible with the existing Motorola trunking system currently in use across the installation. The existing Motorola trunking system is critical for maintaining effective communication and coordination during daily operations and emergency response scenarios.

The proposed procurement of a Motorola DAS system is essential to ensure seamless interoperability with the existing Motorola trunking system and ALMR network. Motorola is the original equipment manufacturer (OEM) system designer and maintains exclusive control over the ALMR network's firmware, hardware configurations, and system architecture. This proprietary control is essential, as the DAS must be precisely engineered and configured to ensure 100% compatibility and interoperability with the ALMR network. If non-Motorola certified technicians install, service, or maintain the system, the entire radio system Authority to Operate (ATO) will be invalidated. Introducing LMR DAS systems from other manufacturers would degrade mission readiness and increase the cost of operation and waste of installed resources due to the need for replacement and non-interoperability. The new DAS must seamlessly integrate with the existing Alaskan Land Mobile Radio network. The ALMR network is a mission-critical communications infrastructure vital for Joint Base Elmendorf-Richardson and the surrounding community. Specifically:

- Degraded Mission Readiness: Non-Motorola LMR DAS systems may not be fully compatible with the Motorola trunking system in place, leading to communication failures, reduced range, and delayed response times. This would directly impact the ability of JBER personnel to effectively respond to emergencies and maintain situational awareness.

- Increased Cost of Operation: Integrating non-Motorola LMR DAS systems would require significant investment in new infrastructure, training, and maintenance procedures. It would also necessitate the creation of separate spare parts inventories and potentially require the replacement of existing Motorola equipment to ensure full interoperability. Replacing existing Motorola equipment would create a substantial duplication of cost to the Government that is not expected to be recovered through competition and would result in unacceptable delays in fulfilling the MDG's mission.

Therefore, it is in the best interest of the Government to continue with the use of Motorola LMR equipment and Motorola firmware by acquiring a Motorola LMR DAS system. This approach maximizes standardization across the installation, creating further savings in training, maintenance, inventory, and replacement due to interoperability. This standardization also ensures consistent performance and reliability, which is crucial for maintaining mission readiness.

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

Joint Base Elmendorf-Richardson recognizes the importance of ensuring a competitive acquisition process for its LMR DAS requirement. To that end, a comprehensive market analysis was conducted by CS to identify potential vendors capable of meeting JBER's critical operational requirements. This analysis encompassed several key activities:

Requirements Analysis: A detailed analysis of JBER's operational requirements was performed to identify the

Sole Source (Including Brand Name) Justification - Simplified Procedures for Certain Commercial Items

March 2023 CONTROLLED UNCLASSIFIED INFORMATION Page 4 of 5March 2023 CONTROLLED UNCLASSIFIED INFORMATION Page 4 of 5 essential features and functionalities necessary for effective LMR communication. This analysis highlighted the critical importance of over-the-air rekeying (OTAR) and over-the-air programming (OTAP) for maintaining secure and efficient radio communications across the base. These functions significantly reduce the manpower and associated costs of manually updating all JBER radios several times per year, which would be necessary without these features. Furthermore, these functions must operate seamlessly within the same-vendor system to ensure reliable performance.

CS looked for vendors that could demonstrate full P25 compliance and seamless support for Motorola LMR equipment OTAR and OTAP functionalities. L3Harris Technologies was considered as a potential vendor;

however, their equipment is currently incompatible with JBER's existing APX CPS R31.00 software used to program and manage the base's Motorola LMR equipment. Adopting L3Harris would necessitate a complete replacement of the existing LMR infrastructure, including all radios, programming software, and related equipment. This would represent a significant financial burden and would disrupt critical communications operations.

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

The Contracting Officer will ensure that the items described herein are negotiated at a fair and reasonable price to the Government. IAW the FAR as supplemented, the contractor will be required to submit Other Than Certified Cost or Pricing Data. A detailed price analysis will be conducted.

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

Market research, compliant with FAR Part 10, concluded that Motorola, as OEM of the existing ALMR network and 673 MDG LMR infrastructure, was the sole source for the required DAS system.

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

Acquisition will be conducted as a simplified acquisition under FAR 13.501(a) using the format in 6.303-2;

simplified acquisitions are generally exempt from FAR Part 6 requirements. However, this acquisition will strictly adhere to the authority granted by FAR 6.302-1 and 10 USC 2304(c)(1) Only One Responsible Source and No Other Supplies or Services Will Satisfy Agency Requirements, justifying the approach due to only one responsible equipment manufacturer possessing the requisite expertise and proprietary knowledge to meet the agency's specific and critical requirements.

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.

Prior to subsequent procurements for Land Mobile Radio (LMR) supplies or services, the agency will implement a multi-pronged approach to proactively mitigate barriers to competition. Firstly, ongoing market analysis is conducted with a specific focus on identifying emerging technologies that facilitate

Sole Source (Including Brand Name) Justification - Simplified Procedures for Certain Commercial Items

March 2023 CONTROLLED UNCLASSIFIED INFORMATION Page 5 of 5March 2023 CONTROLLED UNCLASSIFIED INFORMATION Page 5 of 5 interoperability between non-Motorola radios and the existing Motorola ASTRO 25 Land Mobile Radio (ALMR) network. This includes a detailed evaluation of solutions that maintain OTAR and OTAP functionality while utilizing alternative vendor equipment.

Specifically, the agency continues to investigate solutions employing standards-based interfaces, such as the Inter-Subsystem Interface (ISSI) and Console Subsystem Interface (CSSI), to ensure seamless integration and interoperability. Secondly, the agency will actively monitor the vendor landscape, identifying new distributors, dealers, or system integrators possessing the requisite technical expertise to support and maintain LMR systems. This will involve assessing their capabilities in areas such as RF engineering, network management, encryption key management, and adherence to Project 25 (P25) standards. Finally, in the event of equipment obsolescence, a comprehensive technical assessment and cost-benefit analysis will be performed to evaluate the feasibility of migrating to alternative LMR solutions. This assessment will include a detailed examination of compatibility with existing infrastructure, adherence to industry standards (e.g., P25), and the availability of robust support and maintenance services. The ultimate goal of these actions is to foster a competitive procurement environment, reduce reliance on single-source vendors, and ensure access to the most technologically advanced and cost-effective LMR solutions.

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.