MASC-F Extension J and A Final Redactions Applied_Redacted_Updated.pdf

MISSILE DEFENSE AGENCY

JUSTIFICATION AND APPROVAL

FOR

OTHER THAN FULL AND OPEN COMPETITION

MODELING AND SIMULATION CONTRACT

FOR FRAMEWORK AND TOOLS (MASC-F)

DISTRIBUTION STATEMENT D. Distribution authorized to Department of Defense and U.S. DoD contractors only (reason, Procurement) (date of determination 20210929). Other requests for this document shall be referred to MDA/DE, Bldg 5224, Martin Rd, Redstone Arsenal, AL 35898

J&A No: 23-0042 Contract No: HQ0147-19-D-0002

JUSTIFICATION AND APPROVAL

FOR OTHER THAN FULL AND OPEN COMPETITION

1. Introductory Paragraph. Upon the basis of the following justification, I, as the Director for Contracting for the Missile Defense Agency (MDA), hereby approve the issuance of the contractual action discussed below using other than full and open competition, pursuant to the authority cited herein.

2. Agency and Contracting Activity (FAR Part 6.303-2(b)(1)). The requiring agency for this Justification and Approval (J&A) is the MDA Directorate for Engineering (DE). The Contracting Activity is the MDA Director of Contracting for Engineering (DEK). The point of contact for this action is

3. Nature and Description of the Action Being Approved (FAR Part 6.303-2(b)(2)). This J&A authorizes the Ordering Period extension of the competitively awarded Indefinite Delivery/Indefinite Quantity (IDIQ) contract to provide continuity for the development and sustainment of MDA’s Objective Simulation Framework (OSF) Modeling and Simulation (M&S) System.

The IDIQ extension will allow for the uninterrupted execution of MDA’s Integrated Master Test Plan (IMTP) that includes Ground Test (GT) events, Flight Test (FT) events, and Warfighter Training and Combatant Command (COCOM) exercise events. Specific MDA milestones that require the OSF M&S System to execute include Increment 6B.2 (Limited Additional Mid-Term Discrimination and Residual Layered Homeland Defense), Increment 6C / 7 (Expanded Regional and Homeland Defense), Increment 8 / 9 (Key Subsystem Updates), Increment 10 (Integration of Ground-Based Midcourse Defense Next Generation Interceptor (NGI)) (Initial Homeland Defense Threat Space), and Increment 11 (Defense of Guam (DoG) (Emergent Threat and Expanded Sensor Discrimination and Electronic Protections and Mitigations). Without the OSF M&S System, MDA will not be able to execute the tests and events planned in the IMTP.

This IDIQ extension mitigates the Agency’s risk of failure in executing the critical IMTP events by providing the needed continuity of services. The M&S Programs deliver essential M&S capabilities required for Missile Defense System development, integration, test, training, and fielding. The OSF M&S System development and sustainment is on the critical path for multiple IMTP and COCOM events, and maintaining Lockheed Martin Rotary and Missions Systems (LMRMS) as the Prime developer is key to achieving these agency milestones.

This J&A would authorize an IDIQ extension valued at a total of $99.601M comprised of three

(3) options: two (2) 12-month options and one (1) 6-month option exercised as needed to reduce risk of any lapse in service. Any potential gap in IMTP support services is untenable and puts the Agency at a very high risk of not meeting critical Agency and Warfighter milestones. The

COCOM exercise events. LMRMS has been the developer of the OSF M&S System for the past four years culminating in the successful completion of 26 GTs, FTs, and other Warfighter events, including Ground Test Integrated (GTI)-21 Sprint 1 Terminal High Altitude Area Defense 4.0, Flight Test Aegis Weapon System-44 System Pre-Mission Test, Flight Test Patriot-27, Ground-based Midcourse Defense Weapon System Booster Vehicle Test-03 Pre-Mission Test, and Hypersonic Air-Breathing Weapon Concept-9.

LMRMS is developing, maintaining and sustaining the OSF M&S System for use in current and upcoming critical IMTP test events as shown in Table 2. These critical IMTP events require the current developer of the OSF M&S System, LMRMS, to design, develop, deploy, and / or execute the GT-08b, GTI-100/101, GT-13, GT12 series of events, along with associated FT.

Long-lead M&S development activities include NGI, DoG Systems, and expanded / emerging threat stimulus. LMRMS is currently the only provider of these services.

The Government has invested five years and over $159M in the development, fielding, testing, and sustainment of these M&S Programs to support fielding of the Missile Defense System.

Maintaining LMRMS as the provider of these requirements mitigates any risk to the current testing/development schedule of the Missile Defense System. Specific Missile Defense System capability delivery milestones currently exist for these systems and any delay would negatively impact deliveries of capability required to fulfill a stated warfighter requirement.

7. Description of Market Research Conducted (FAR Part 6.303-2(b)(6), (8) and (10)).

Market research was conducted for M&S Futures using Request for Information (RFI) #1 MDA21-DE-RFI01 posted to SAM.gov on 7 September 2021 and RFI #2 MDA22-DE-RFI02 posted on 1 September 2022. Based on the analysis of the responses, industry has the capability to support a new M&S Futures - Framework requirement as stated in the RFI. Although, the market research indicates the opportunity to compete the new requirements, it is critical to extend the current contract in order to prevent a gap in performance, duplication of costs, and mitigate risk with the ongoing IMTP schedule while simultaneously soliciting for the future M&S Futures - Framework contract. MDA/DE assessed that a full and open competitive acquisition strategy at this time creates a significant risk for negative technical and schedule impacts on crucial Systems Engineering and Integration (SE&I) data deliverables directly linked to the MDA’s ability to achieve DoD mandated capability deliveries. At this time, the MDA would bear duplication costs that are not likely to be recovered through potential competitive activities if the MDA pursued a full and open competitive strategy for this extension.

LMRMS, the current developer of the OSF M&S System, is required to execute the GT-08b, GTI-101/102, GT-13, GT12 series of events, along with associated Flight Tests as defined in the IMTP. Once these tasks are completed, the Government will award a new competitive contract.

8. Determination of Fair and Reasonable Cost (FAR Part 6.303-2(b) (7)). To ensure the price will be fair and reasonable, the Contracting Officer will perform cost and price analysis in accordance with FAR 15.404-1. The MDA team will conduct a thorough technical evaluation, audit, and cost analysis of the proposed costs to form the basis for the PCO's determination of fair and reasonable cost. The analysis will include rate checks, a comparison of the proposed cost to similar procurements, and historical cost analysis from previous contract efforts performed by LMRMS. The cost will exceed $2M; therefore, certified cost or pricing data is required. Pursuant to ensuring prices are fair and reasonable, the PCO will obtain information from sources other than the Contractor (e.g. forward pricing rate agreement information from Defense Contract Audit Agency and Defense Contract Management Agency). In turn, the Contractor’s proposed costs/prices will be reviewed by experienced technical subject matter experts, cost/price analysts, Contract Specialists and the PCO.

9. Any Other Facts Supporting the Use of Other Than Full and Open Competition (FAR Part 6.303-2(b)(9)). Specific Missile Defense System capability delivery milestones currently exist for these systems and any delay would negatively impact deliveries of capability required to fulfill the stated warfighter requirements. Any subsequent contract will require a minimum 6 to 12-month transition period to allow enough time and learning curve to assume performance of these requirements which would leave an untenable gap in service and put the Agency at a very high risk of not meeting critical Agency and Warfighter milestones.

10. Actions Taken to Remove Barriers to Competition (FAR Part 6.303-2(b)(ll)).

Concurrent with the completion of the critical IMTP events defined in this J&A, the Government will also pursue a follow-on competitive contract to be awarded once the vital events have been completed and the requisite data has been obtained. The anticipated acquisition milestones for the full and open competition are a Draft Request for Proposal (RFP) in 2QFY2024, Pre-solicitation Conference in 3QFY2024, and Final RFP in 1QFY2025.

11. Technical/Requirements Official Certification (FAR Part 6.303-2(c)). “I certify that this justification for other than full and open competition is made in good faith and that the supporting data and information are accurate and complete to the best of my knowledge and belief. I further certify that this request is not the result of a lack of advance planning.”

Director for Engineering, MDA/DE

12. Contracting Officer (FAR Part 6.303(b)(12)). “I have determined that the anticipated cost to the Government will be fair and reasonable and certify that the justification is accurate and complete to the best of my knowledge and ability.”

Procuring Contracting Officer, MDA/DEK

13. Legal Counsel. “I have reviewed the justification and determined it to be legally sufficient.”

Deputy General Counsel, Acquisition MDA/GCA

14. Contracting Director (Program Level). “I have reviewed the justification and recommend it be approved.”

Deputy Director of Contracts for Engineering, MDA/DEK

15. Recommendation of Competition Advocate. “I recommend approval of the above justification.”

Competition Advocate, MDA/DA

16. Approval (FAR Part 6.304). “In accordance with FAR Part 6.304, the above justification for other than full and open competition is hereby approved.”

Director for Contracting, MDA/CT