MSA BOA CJA 25-0084 (V23 approved)_Redacted Final.pdf

CJ&A 25-0084

CLASS JUSTIFICATION AND APPROVAL

FOR USE OF OTHER THAN FULL AND OPEN COMPETITION

1. Contracting Activity.

Naval Air Systems Command (NAVAIR) Headquarters

2. Description of the Action Being Approved.

This Class Justification and Approval (CJ&A) authorizes and approves the issuance of orders on a sole source basis under a Basic Ordering Agreement (BOA) with Maritime Surveillance Associates (MSA), 39 Peterson Lane, Brunswick, ME 04011 for design, development, and improvements to the Global Reconstruction and Measurement Systems (GRAMS) and its processing applications. Such efforts are currently accomplished under BOA N00019-20-G-0003, which expires 27 April 2025. Authority to act under this class justification expires 30 November 2030.

3. Description of Supplies/Services

PMA-264 has a requirement to migrate the GRAMS-Desktop to a fully Cloud-Native solution (GRAMS-Cloud). This migration will provide a greater processing capability such as the ability to run processes for a variety of functions including Localize Frequency and Ranging (LOFAR) gram generation. The GRAMS data model is “Cloud Ready” and is easily consumed by downstream users. The GRAMS-Cloud capability will significantly enhance Artificial Intelligence/Machine Learning (AI/ML) development by Navy and allied partner developers. GRAMS is certified by the Office of Naval Intelligence (ONI) and used to determine Sound Pressure Level of signals radiated by threat submarines, surface ships, and weapons. This data is also utilized in Anti-Submarine Warfare (ASW) mission planning, classifying new enemy capabilities, and updating any changes in acoustic signature. GRAMS provides a tactical situational display for advanced sensors during missions; provides Post Flight Analysis Tools (PFATs) for all platform missions; and is used as a training aid for ASW missions. Regular software maintenance, upgrades and training for GRAMS and its indentured processing applications including Operational Replay of Inflight Originated Events Geospatial display system are required in order to maintain parity with current and future data collection formats. This technology maturation is critical to the overall success of Fleet Air ASW operations.

Planned Delivery Orders (DOs) under this BOA will include improvements to the GRAMS and PFAT Software which may include, but not limited to, contacts of interest metadata, signals analyses, event reconstruction tools, target tracker, map data, signal processing, archiving, geospatial display/processing baseline management, as well as training related to data acquisition, analytics and development.

The Period of Performance (PoP) for this BOA is anticipated to be five (5) years. These orders will be funded with Research Development Test & Evaluation (RDT&E) and Operations and Maintenance, Navy (O&MN) funds with the estimated values shown in the table below:

DEPARTMENT OF THE NAVY

NAVAL AIR SYSTEMS COMMAND

RADM WILLIAM A. MOFFET BUILDING

47123 BUSE ROAD, BLDG 2272

PATUXENT RIVER, MD 20670-1547

FY26-FY31

Estimated Dollar Value in Millions

4. Statutory Authority Permitting Other Than Full and Open Competition.

10 U.S.C. 3204(a)(1),Only one responsible source and no other supplies or services will satisfy agency requirements.

5. Rationale Justifying Use of Cited Statutory Authority.

This effort will be procured by other than full and open competition under 10 United States Code 3204 (a)(1), only one responsible source and no other supplies or services will satisfy agency requirements, as implemented by FAR 6.302- 1(a)(2)(ii)(A). MSA is the only company with the technical expertise, and knowledge that no other entity (Organic or Vendor) has to further develop GRAMS that can meet the Government's requirement. This is a follow-on for supplies and services previously awarded on a non-competitive basis.

Although the Government procured the Level III TDP, extensive market research was conducted by the Program Office to identify another capable company (other than MSA) that could meet the requirements for the continued development of software for GRAMS. This market research resulted in two (2) responses The Program Office assessed the respondents and found only MSA as capable of fulfilling the requirements. The NAVAIR Small Business Office and the U.S. Small Business Administration also reviewed the market research that the Program Office conducted to ensure it was not too restrictive that other companies would be unable to compete. Upon review, the SBA determined that the market research was not too restrictive and that no other capable sources expressed interest in this requirement. The complexity of the GRAMS/PFAT product is such that a vendor must possess a high degree of expertise with various processes (such as Acoustic Intelligence Performance, Modeling and Simulation, Enhanced Mission Planning, Bathymetric, Oceanographic modeling and Software Sustainment) in order to fulfill Fleet requirements. In addition, this effort requires high levels of mathematical calculators in order to meet ONI requirements.

Therefore, a company could not take the TDP and just start making updates to the software without first expending a great deal of time and money. The most recent NAVAIR Cost, Schedule and Analysis Department estimate to develop and qualify another source is (in Then Year dollars) which is not expected to be recovered through competition.

The cost estimate utilized historical and actual costs as the basis of estimate.

In accordance with Federal Acquisition Regulation (FAR) 6.302-1(a)(2)(ii)(A), the Government has determined that the supplies meeting the Government’s requirements are available from only one source because it is likely that award to any other source would result in a substantial duplication of cost to the Government, which is not expected to be recovered through competition.

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

Program office experts in the field, current on trade studies and the technology environment, have no knowledge of any other capable sources. Other methods of market research utilized included contacting knowledgeable individuals in Government and industry.

A sources-sought notice was posted to SAM.gov on 20 December 2023; the notice closed 04 January 2024. Only one

(1) response was received which was MSA. A synopsis was posted to the SAM.gov website on 06 March 2024; no responses were received. A more recent sources-sought was posted on 03 July 2024 and closed on 02 August 2024;

two (2) responses were received. The companies that responded were and MSA. The Program Office assessed the capability of these respondents and determined that MSA was the only company capable of fulfilling requirements. The other respondent was unable to fulfill the requirement due to a lack of relevant experience and technical capabilities. Respondents were notified of the Program Office’s determination via a letter from the Contracting Officer.

Additionally, each order under this BOA will be synopsized and posted to SAM.gov. Any responses received will be evaluated by the Contracting Officer prior to award of each order.

7. Determination of Fair and Reasonable Cost.

The Contracting Officer has determined the anticipated cost to the Government of the supplies/services covered by the CJ&A will be fair and reasonable.

8. Actions to Remove Barriers to Future Competition.

As this is a follow-on for supplies and services previously awarded on a non-competitive basis, the prior CJ&A (CJ&A 19-0542) was provided to the approval authority for review. Approval of this CJ&A signifies the approval authority has made the determination required by DFARS PGI 206.304(a)(S-70)(ii).

For the reasons set forth in paragraphs 5 and 6, NAVAIR has no plans at this time to compete future contracts for these types of supplies/services covered by this document. If another potential source emerges, NAVAIR will assess whether competition for future requirements is feasible.