N00167-14-R-0005_J A_Redacted.pdf

DEPARTMENT OF THE NAVY

NAVAL SURFACE WARFARE CENTER

CARDEROCK DIVISION

9500 MACARTHUR BOULEVARD

WEST BETHESDA, MD 20817-5700

IN REPLY REFER TO

J&A Number: 4317-001-00 Code:

P.R. No: N00167-I4-R-0005

JUSTIFICATION AND APPROVAL

FOR USE OF OTHER THAN FULL AND OPEN COMPETITION

JUSTIFICATION

I. Contractin2 Activity

Naval Sea Systems Command, Naval Surface Warfare Center, Carderock Division (Code 41)

2. Description of Action Being Approved

This is a sole source action to be awarded without providing for full and open competition for FYI 5-FYI 8 engineering and technical services for Synthetic Signature Generation (SSG) based systems. The proposed contract is a follow-on Indefinite Delivery/Indefinite Quantity, Cost Plus- Fixed Fee type contract that provides for the issuance of Task Orders during the period from date of award of the contract through forty-eight months thereafter. This contract is to be awarded to Leidos, previously Science Applications International Corporation (SAIC).

3. Description of Supplies/Services

The contractor shall provide scientific, engineering, and technical services required for the design, development, fabrication, integration, test, fleet implementation, and maintenance of SSG based systems utilizing the All World Environment Simulation (AWESIM). High fidelity SSG team trainers to be supported utilize the AWESIM acoustic simulation and the Periscope Simulation (PSIM) visual simulation. This shall include full documentation of the existing AWESIM and PSIM simulation system and team trainers system architecture. This effort will also require provision of a technical software code and system engineering documentation package in sufficient detail to allow software and system updates and modifications and full software configuration management by government or future competitive contracted efforts. The documentation packages will be provided for via a Contract Data Requirements List (CDRL).

The period of performance for this contract is forty-eight (48) months from the date of contract award. The period of performance of individual task orders under the contract shall be specified on each individual task order.

The Government’s minimum needs have been verified by the certifying technical and requirements personnel.

J&A Number: 4317-001-00

The estimated dollar value of this procurement is approximately $49,618,000 as indicated below:

Estimated Dollar Value ($K)

Leidos FY15 FY16 FY17 FY18 Total Percent

RDTE $882 $905 $930 $955 $3,672 7.4%

OPN $9,089 $9,334 $9,587 $9,849 $37,859 76.3%

OMN $1,941 $1,994 $2,048 $2,104 $8,087 16.3%

Total $11,912 $12,233 $12,565 $12,908 $49,618 100%

4. Statutory Authority Permitting Other Than Full and Open Competition

10 U.S.C. 2304(c) (1), “Only One Responsible Source and No Other Sources and Services Will Satisfy Agency Requirements”.

5. Rationale Justifying Use of Cited Statutory Authority

This proposed contract is a follow-on to competitively solicited Seaport Task Order N00 I 78-04-D- 41 19-FDO9 under which Leidos (formerly SAIC) was the only offeror. Under previous government contracts, Leidos has designed, developed and delivered a SSG-based system called the AWESIM.

AWESIM is complex and challenging to maintain and update. Specifically the sound propagation path management for acoustic ray bundling and the active sonar handling of complex reverberation and clutter modeling has been uniquely developed by Leidos to support the real-time high fidelity simulation requirements of Anti-Submarine Warfare (ASW) training, testing, and analysis systems.

The Leidos developed simulation system is uniquely capable of supporting the simultaneous real time acoustic simulation of all acoustic sensors on-board the submarine with the fidelity and realism that the fleet requires to allow crew certification within a shore-based combat system trainer. This Submarine Multi-Mission Team Trainer (SMMTT) systems developed and fielded under the previous Leidos contract provides this critical role for the submarine force. This effort requires updates and modifications to this complex simulation software and the tactical training system architectures that Leidos has previously fielded to support the updated tactical Sonar and Combat Control configurations and addition of simultaneous multi-sensor simulation across submarine, surface and surveillance trainers to support the current and emerging combat system configurations requiring training in the fleet. These training system updates must be accomplished in time to support pre-deployment training as combat systems upgrades are installed.

While Leidos has provided all documentation required pursuant to its various contracts for fleet deployment and operational usage of these training systems, this documentation does not provide the detail necessary to allow development and maintenance of this software. This level of detail requires improved documentation of software design, source code documentation for data structures, data flow and software interfaces for all inter-process communication. In addition to the detailed software documentation, the system level documentation must be provided to support the

J&A Number: 43 17-001-00 multiple configurations of 550 training systems deployed across submarine, surface, and surveillance fleet training systems. This requires improved system documentation of system firmware and operating system configurations, physical and virtual network configurations, and system-to-system interface documentation sufficient to allow a new vendor to recreate the correct training system configurations from “bare metal” hardware.

Per the program sponsor’s tasking, we obtained the required operational documentation for the fielded fleet simulation and training systems. Although we had planned for a competitive follow-on contract, it was identified that the low-level system and software source code documentation for these complex simulation and training systems is not sufficient for re-procurement purposes.

Accordingly, improved processes for creating the technical documentation are required. Tracking software documentation by the contractor through electronic systems such as JIRA, task tracking software, and Confluence, team collaboration software, has been established but the extent of documentation which has been completed across all trainer builds is still insufficient. This effort will include requirements to provide the addition of software code and system engineering documentation in a technical data package which could allow other vendors to provide the required modifications and updates in the future. With the current documentation it would be impossible for another vendor to maintain and update these systems.

The required technical documentation must be distributed across sponsor funded builds over multiple years to ensure the documentation burden can be accounted for within resourced budgets.

The sponsor funding supports the required system updates and installations required across the Submarine, Surface, and Surveillance training system configurations and must provide combat system training capability fielded in conjunction with tactical system updates to fleet units. This will include system updates for the Submarine Multi-Mission Team Trainer, Common Operational Analysis and Employment Trainer, Sonar Employment Trainer and Submarine Bridge and Piloting and Navigation Trainers with fielding to fleet sites in Norfolk, San Diego, Groton, Pearl Harbor, Bangor, Kings Bay, Guam, and Australia. Surface trainer configurations are required for the Surface ASW Synthetic Trainer embedded within the AN/S QQ-89 Sonar and the Combined Integrated Air Missle Defense (IAMD) and Anti-Submarine Warfare (ASW) Trainer which will field to fleet training sites in Dahlgren, Norfolk, Pearl Harbor, San Diego, and Yokosuka.

Surveillance trainer configurations are required for the Surveillance Towed Array Sensor System (SURTASS) Team Trainer and the ICP Training Device which support towed and fixed sensor training at Whidbey Island, and Dam Neck. System integration configurations for these systems must be supported in Bethesda MD, Dahlgren VA, Newport RI, and Manassas VA.

Leidos developed the AWESIM high fidelity acoustic simulation capability and the submarine multi-mission team training infrastructure over 12 years following an earlier prototyping effort. It is the government’s estimate, based on technical experience with these systems, that development and replication of the software and the training system configurations and functionality that are utilized would take at least 48-60 months if this contract is not awarded. In addition, implementation and fielding of the new simulation and trainer configurations under the requirements of this development effort would require an additional 48 months. If this contract is not awarded these delays would result in failure to meet training system fielding requirements in support of Fleet ASW crew certification to go to sea.

Therefore, based on the above, Leidos is the only company capable of satisfying the Navy’s requirement.

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

A synopsis of this proposed procurement was published on the Federal Business Opportunities (FEDBIZOPS) web page on 12 June 2014 in accordance with FAR 5.2. To date, no sources have responded to the official notification. No additional market research was conducted because it is not practicable, for the reasons discussed in paragraph 5 above, for any other contractor than Leidos to provide the required supplies and services.

7. Determination of Fair and Reasonable Costs

In accordance with FAR 15.402, the Contracting Officer shall ensure that all supplies and services provided under this contract are procured at a fair and reasonable price. The Contractor will submit a formal price proposal with certified cost or pricing data and sufficient information to support the accuracy and reliability of the estimate. DCMA pricing assistance and/or DCAA audit of contractor’s proposal will be requested along with offeror’s certificate of current cost and pricing to support the fair and reasonable cost determination. The Contractor’s proposal will be reviewed by experienced technical analysts, cost analysts and contract specialists with the aid of necessary field pricing support. The Contracting Officer will utilize cost and price analysis as the basis for negotiating a fair and reasonable price.

8. Actions to Remove Barriers to Competition

The Government will obtain a TDP that will support competition for future acquisitions of the same or similar items. This effort will require a technical software code and system engineering documentation package in sufficient detail to allow software and system updates and modifications and full software configuration management by government or future competitive contracted efforts.

The Government intends to obtain the TDP package with unlimited rights, and a minimum of GPR rights for all aspects.

Under this contract software and system documentation will be apportioned to each of the training system configurations to be funded across the submarine, surface, and surveillance training programs. All new software development will require the detailed software design and source code documentation as it is developed. The improved documentation required for all existing source code will be allocated as a percentage of the overall software development effort per program to ensure all existing software and system configurations and build updates can be fully documented by the completion of the third year of the period of performance in order to initiate a new competitive solicitation and ensure award can occur by the completion of this contract at the end of year4.

CERTIFICATIONS AND APPROVAL

TECHNICAL AND REQUIREMENTS CERTIFICATION - (FAR 6.303-2(b))

I certify that the facts and representations under my cognizance, which are included in this justification and its supporting acquisition planning data, including the MOPAS for the effort dated 11 July 2014, except as noted herein, are complete and accurate to the best of my knowledge and belief.

TECHNICAL COGNIZANCE:

Signature Name (Print) and Title (Code)

REQUIREMENTS COGNIZANCE:

Technical Operations Manager

Name (Print) and Title (Code)

Signature Name (Print) and Title (Code) J04641

Phone No. Date

APPROVAL BLOCK (FAR 6.304 for Approving Official)

Upon the basis of the above justification, I hereby approve, as Designee of the Head of the Procuring Activity, the solicitation of the proposed procurement(s) described herein using other than fhll and open competition, pursuant to the authority of 10 U.S.C. 2304(c)(1).

De~i~ee of the d of the Procuring Activity signature

DatePhone No.

Phone No. Date

LEGAL SUFFICIENCY REVIEW (NMCARS 5206.303(90))

I have determined that this justification is legally sufficient.

/0/2/19’ Name (Print) and Title (Code) Phone No. Date

CONTRACTING OFFICER CERTIFICATION - FAR 6.303-2(a) (12)

I certify that this justification is accurate and complete to the best of my knowledge and belief

6 ~ Name (Print) U

//k4Y Date