MDVTE ATC Service JA 27 Feb 20 - Final.pdf

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

FOR OFFICIAL USE ONLY

18 Jun 2019 FOR OFFICIAL USE ONLY Page 1 of 3

NOTE: If a Justification was approved for the preceding acquisition, a copy of the approved Justification for the predecessor action must be included in the staff package for approval of the instant Justification. This applies to Justification staff packages that are submitted for review and approval at a level above the contracting officer. The predecessor Justification will be used as a reference document by the approving official.

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

Is this a Bridge Action as defined in the AF Bridge Action Reduction Plan? Yes No

Funding level for this acquisition: >SAT and < $700K > $700K and < $13.5M

Contracting Activity: AFICC 338 SCONS/PKDA

Purchase Request / Local ID Number: TBD

Program / Project (and PE, if applicable): Multiplatform Distributed Virtual Training Environment (MDVTE)

Program Type (PEO or Other Contracting): Other Contracting

Authority: AFFARS 5313.501 - 10 U.S.C. 2302b, Implementation of Simplified Acquisition Procedures (41 U.S.C. 1901)

AFFARS 5313.501 - 10 U.S.C. 2304a, Special Emergency Procurement Authority (41 U.S.C. 1903)

Estimated Contract Cost (including options): $2.8M Justification Type: Class Individual

COORDINATION (AFFARS 5306.304(a)) Sign and Save Procedure

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Date

28 Feb 2020

Project Lead / Program Mgr / Requiring Activity Maj Steve Briones

19AF/A5 210-652-1581

Signature

X

Date

27 Feb 2020

Contracting Officer Erin L. Mehaffie

338 SCONS/PKDA 210-652-7885

Signature

X

Date

27 Feb 2020

Section Chief Stephen S. Pritchett

338 SCONS/PKDA 210-652-7860

Signature

X

Date

28 Feb 2020

Legal Review Ryan C. Springer

AETC/JAQ 210-652-9835

Signature

X

APPROVAL (AFFARS 5306.304(a) )

Date

28 Feb 2020

David E. Jones Competition Advocate

AFICC/KT 210-652-1722

Signature

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

18 Jun 2019 FOR OFFICIAL USE ONLY Page 2 of 3

I. Contracting Activity.

AFICC 338 SCONS/PKDA

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

This is a new contracting action that will be awarded as a sole-source IDIQ contract with a one-year base ordering period and a one-year option ordering period.

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

Air Education and Training Command (AETC) implemented Undergraduate Pilot Training (UPT) 2.5 to revolutionize pilot training in an attempt to address the serious pilot shortage facing the Air Force. UPT 2.5 is an interim or temporary strategy being utilized while UPT 3.0 is being developed. A primary facet of UPT 2.5 is the implementation of Virtual Reality (VR) training devices which utilize actual FAA licensed air traffic controllers to communicate with student pilots utilizing MDVTE vs. utilizing the existing legacy simulators and Air Traffic Control (ATC) voice recognition training software. Student pilots using existing ATC voice recognition training software know they are talking to the computer and so do not perform as if they were actually flying in a realistic controlled airspace. The services to be contracted are required to provide a virtual space for pilots in training to receive real life/real time ATC instructions in a realistic training environment that will work with current VR flight training devices.

Pilot classes for AETC's 19th AF implemented Undergraduate Pilot Training (UPT 2.5) will begin on 11 March 2020.

Initial plans were to utilize the Pilot Training Next (PTN) contract to obtain MDVTE services; however, on 20 Feb 2020 it was determined the PTN contract does not have enough contract ceiling left on it to facilitate this plan.

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

FAR 13.501(a)(2) and AFFARS 5313.501 - 10 U.S.C. 2302b, Implementation of Simplified Acquisition Procedures (41 U.S.C. 1901)

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

Group EM3, Inc is the only contractor with the unique capabilities who can currently meet all the Air Force's requirements in the time-frame required. Group EM3's software/service was implemented and tested successfully with the Pilot Training Next (PTN) initiative in Austin, TX and JBSA-Randolph, TX as well as the VR Pilot Innovation Cell at Vance, AFB. As shown by the Market Research Report, any other interested contractors require various degrees of development in order to provide the software and services in the time-frame required by the Air Force. Due to the training needs driving the requirement to have a MDVTE system in place beginning on 11 March 2020, Group EM3 is the only company who can provide a proven, tested solution to meet this schedule. The Government estimates it would take approximately 4-6 months to conduct a source selection and provide any other contractor the required development/mobilization time to fill this requirement. This delay would not allow UPT 2.5 to begin on 11 March 2020 with a proven MDVTE system and exacerbate an already severe pilot shortage crisis. Accordingly, Group EM3 is the only contractor who can currently meet the Air Force's requirements to begin performance on 11 March 2020 without an unacceptable delay to the program.

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

19th AF requested the 338th SCONS do a sources sought/RFI to industry to determine whether there were any other contractor services available that could provide the MDVTE communication training services required by UPT 2.5. Four companies responded to the government inquiry. Each respondent had various degrees of expertise within the ATC training realm with alternate approaches, however none of the respondents currently have the capability to fill this requirement except for Group EM3. Each respondent stated that they would require varying degrees of development and testing in order to provide the Air Force the level of fidelity and real life/real time services necessary.

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

18 Jun 2019 FOR OFFICIAL USE ONLY Page 3 of 3

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

IAW FAR 13.106-3 the Contracting Officer will determine whether the price is fair and reasonable utilizing one or a combination of the following methods; market research, comparison of the proposed price with prices found reasonable on previous purchases, and comparison with the independent government estimate.

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

Market research yielded four contractors (one small/three large) with the potential to provide capabilities to meet the government's requirement. However, through analysis of responses, in regards to technical capability, only one contractor currently possesses the capability; the other three have the potential to be capable based on the need for additional development and testing. Therefore, Group EM3, Inc (small business) is the only contractor whose software solution/training capability is currently fielded, maintains proven compatibility with AF simulators and requires no development or testing to operate.

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

Not applicable

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

Four contractors (Adacel, CAE, Lockheed Martin, and Group EM3) expressed an interest in the acquisition. The Market Research Report details the contractors and their proposed solutions.

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.

As UPT 2.5 and 3.0 evolve, planned large scale purchases of VR training devices will be implemented at all UPT bases, which will require a more permanent solution to MDVTE training services. More extensive market research and exchanges with industry will occur at that time. The planned time frames to implement these more permanent systems will facilitate ample time periods for industry to develop new systems/services that can fill the long term AETC requirement.

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.

Remove the Guidance pages below.

Sole Source (Including Brand Name) Justification - Simplified Procedures for Certain Commercial Items 18 Jun 2019 Page of International Agreement Competitive Restrictions (IACR) March 2018 Page of NOTE: If a Justification was approved for the preceding acquisition, a copy of the approved Justification for the predecessor action must be included in the staff package for approval of the instant Justification. This applies to Justification staff packages that are submitted for review and approval at a level above the contracting officer. The predecessor Justification will be used as a reference document by the approving official.

Is this a new or amended J&A Document?

Is this a Bridge Action as defined in the AF Bridge Action Reduction Plan?

Funding level for this acquisition:

Authority:

Justification Type:

COORDINATION (AFFARS 5306.304(a)) ** The text in the signature blocks below is editable, including the title.

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APPROVAL (AFFARS 5306.304(a)) NOTE: A signature block will appear here based on the funding level selected above.

(See "Specific Guidance for Completing this Template" below.)

I. Contracting Activity.

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

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

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

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

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

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

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

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

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

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.

XII. Certification by the Contracting Officer.

XIII. Certification by the technical/requirements personnel.

Specific Guidance for Completing this Template

I. Contracting Activity. (FAR 6.303-2(b)(1))

Fully identify the contracting agency and organizational activity responsible for the proposed contracting action.

II. Nature and/or description of the action being processed. (FAR 6.303-2(b)(2))

State whether the action will be awarded as a new contract or by modification to an existing contract (identify contract number) and identify the type contract planned (FAR 12.207 and DFARS 212.207).

An individual Justification cannot be used to support more than one contract irrespective of the quantities or the dollar value stated therein. If a proposed contract will contain unpriced options (including NTE prices), those options must be supported by a separate Justification prior to option exercise or the Justification supporting the basic contract must be a Class Justification. For Class Justification situations (covers more than one contract) where the number of contracts in the class can be identified: (1) Provide a brief general description of actions; (2) identify the supplies and services that are being acquired; and (3) for each contract in the class identify the contractor, estimated value, type of contract and rationale for contract length, and estimated award date. Where the same information applies to more than one contract within the class, it need only be stated one time.

III. Description of the supplies/services required to meet agency needs. (FAR 6.303-2(b)(3))

Specifically describe the supplies and/or services to be acquired, the total estimated value of the acquisition - including options (provide cost estimate by year and, for class Justifications, by contract action), and the estimated delivery dates/periods of performance If commodities are being procured, provide quantities. All contract line items (CLIN) -- e.g., technical data, support equipment, support services, etc. -- should be listed. If all of the ancillary requirements associated with a particular item are not specifically described in the Justifications, those ancillary requirements cannot be included in the resulting contract and would require a second Justification. Also, state the type of appropriation (e.g., 3010, 3400) that will be used to fund each requirement listed.

If approval for more than one fiscal year requirement is needed, give the rationale for this request. Generally, the scope of these actions is limited to current requirements only, so that actions may be taken to facilitate competition for out-year requirements.

In some cases, there are no feasible actions that could develop future competition, and it is reasonable to seek approval for more than one fiscal year's requirements.

For ID/IQ or requirements contracts, use the maximum dollar value of the total estimated orders as the estimated Justification dollar value.

IV. Statutory authority permitting other than full and open competition. (FAR 6.303-2(b)(4)) V. Demonstration that the contractor's unique qualifications or nature of the acquisition requires the use of the authority cited above (applicability of authority). (FAR 6.303-2(b)(5))

Provide, in narrative form, a detailed explanation supporting and clearly relating to the conditions described by the FAR for using the particular authority cited. This section is normally the most detailed part of the justification as the essence of the justification is presented here. For acquisitions that include both supplies and services, separately justify the use of the authority for the services and supplies.

Contracting without providing for full and open competition shall not be justified on the basis of lack of advance planning by the requiring activity or concerns related to the amount of funds available (e.g., funds will expire) (10 U.S.C. 2304(f)(4)).

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

(FAR 6.303-2(b)(6))

Describe all efforts taken (or to be to be taken) to ensure that offers are solicited from as many potential sources as practicable under the circumstances. Although Market Research is covered in Section VIII, the information in Section VI should correlate with the Market Research described in Section VI. The following issues should be addressed in this paragraph:

Sources Sought Synopsis (used as part of market research). If a sources sought synopsis was issued, state the date the synopsis was issued and a brief description of its content. If any responses were received, describe in detail the results of the screening process and the rationale for determining the unacceptability of any synopsis respondents. Reference FAR 13.105, Synopsis and Posting Requirements.

Other Actions. In this paragraph, discuss any other actions taken or planned to facilitate competition for this acquisition. The discussion should include actions tried or considered even if the actions were unsuccessful. If the efforts were unsuccessful, so state and describe why.

Qualifying Country Sources. If qualifying country sources have expressed interest, but are to be excluded, provide supporting rationale.

VII. Determination by the Contracting Officer that the anticipated cost to the government will be fair and reasonable. (FAR 6.303-2(b)(7))

Include a statement by the contracting officer that the anticipated cost will be considered fair and reasonable and provide the basis for this determination. The steps that will be taken to ensure the final contract price will be fair and reasonable are also described here. Describe the extent of cost or price analysis anticipated including the requirements for certified cost or pricing data, technical evaluations, and audits.

VIII. Description of the market research conducted and the results, or explain why market research was not conducted. (FAR 6.303-2(b)(8))

Generally, some form of market research should be conducted. Discuss any market research conducted pursuant to FAR Part 10 and describe results of that research. Market research is any effort undertaken to determine if sources capable of satisfying the agency's requirements exist and to determine if commercial items or non-developmental items are either available or can be modified so that they will satisfy the agency's needs. Market research should be focused not only on identifying alternate sources, but also on alternate equipment or substitutes that might fulfill the Government needs with only minor modification. Regardless of the approach used, the results should provide a high level of confidence that no other qualified sources exist.

When other exceptions from the requirement to obtain full and open competition are relied upon, the market research might be limited to an examination of the acquisition history and experience with the marketplace under previous acquisitions for the same or similar items.

If no market research was conducted, so state and provide the rationale.

IX. Any other facts supporting the use of Other Than Full and Open Competition. (FAR 6.303-2(b)(9)(i))

Provide any other facts supporting the use of other than full and open competition, including an explanation of why technical data packages, specifications, engineering descriptions, statements of work, statements of objectives, or purchase descriptions suitable for full and open competition have not been developed, are not being developed, are not being used, or are not available.

X. List of sources, if any, that expressed interest in the acquisition. (FAR 6.303-2(b)(10))

If a sources sought synopsis was done and all interested sources are included in Section VI, it is acceptable to state, “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. (FAR 6.303-2(b)(11))

Describe any actions taken or to be taken to foster competition for future acquisitions of the supplies or services being acquired. Describe potential actions that could be taken to remove the barriers to competition that have been identified in the justification and include a milestone schedule, where available, for accomplishing these actions. For example, if a follow-on competitive acquisition is planned, so state and provide the planned award date, or state that the Government will attempt to acquire rights in technical data and computer software sufficient to compete follow-on acquisitions as a priced option in the contract action that is the subject of this Justification, or (if applicable) state how the Government intends to challenge nonconforming markings on technical data and computer software delivered to it under previous contracts so those markings can be removed in order that the technical data and computer software may be used in support of a follow-on competitive acquisition, or describe plans to qualify additional sources.

Address efforts to ensure competition for future spare parts and maintenance in support of systems or equipment covered by the justification, even when these acquisitions will be accomplished by other organizations. Include a discussion on available breakout data.

If no actions are planned, so state and provide reasons. If approval is sought for more than one year, explain why a sole source effort is required for the planned time duration.

For a non-competitive follow-on acquisition to a previous award for the same supply or service supported by a Justification citing the same authority, include a discussion of the actions planned to overcome barriers to competition established in the previous justification, the status of those actions, and the results of those actions. The approval authority shall determine whether the planned actions were completed. If the planned actions were not completed, the justification for the follow-on acquisition shall be approved by the approval authority one-level above the approval authority for the previous justification (see FAR 13.501(a)(2)). If the previous justification was approved by the Senior Procurement Executive (SPE), the approval remains at the SPE level.

[DFARS 213.501(a) and DFARS PGI 206.304(a)(S-70)(ii)] XII. Certification by the Contracting Officer. (FAR 6.303-2(b)(12))

As evidenced by his/her signature, the contracting officer has determined this document to be both accurate and complete to the best of his/her knowledge and belief.

XIII. Certification by the technical/requirements personnel. (FAR 6.303-2(c))

As evidenced by their signatures, the technical and/or requirements personnel have certified that any supporting data contained herein, which is their responsibility, is both accurate and complete.

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