Redacted_J A_16_0140.doc

J&A_16_0140

J&A_16_0140

JUSTIFICATION AND APPROVAL

FOR USE OF OTHER THAN FULL AND OPEN COMPETITION

1. Contracting Activity.

Naval Air Warfare Center Aircraft Division (NAWC-AD) Lakehurst, NJ

2. Description of the Action Being Approved.

This Justification and Approval authorizes and approves the issuance of a firm fixed-price contract for the procurement of the Commander, Navy Region Japan (CNRJ) Master Site M3 Zone Core Enterprise Land Mobile Radio (ELMR) Reliability Modernization and Technology Refresh of Programming over Project 25 (P25) Compliant Systems on a sole source basis with Motorola Solutions Inc. (Motorola), Columbia, Maryland. This requirement will support the NAWC-AD Special Communications Missions Solutions (SCMS) Division St. Inigoes, Maryland, Commander, Navy Installations Command (CNIC) ELMR network project.

3. Description of Supplies/Services.

The SCMS Division has been tasked by CNIC N6 and CNRJ to perform a complete modernization of the Master Site Zone Core for the CNRJ ELMR network to improve and enhance reliability at Navy Region Japan, and complete a technology refresh of ELMR P25 compliant systems as part of the overall trunked radio communications network located at Yokosuka and Sasebo Naval Stations. The refresh will support nine types of systems within the ELMR network to include:

1.) M3 Master Site Zone Core (Qty. 1)

2.) Redundant Modular Frequency Timing System (Qty. 1)

3.) Network Management System (Qty. 2)

4.) GGM 8000 Gateway Systems (Qty. 3)

5.) SRC 7500 Switching Routing Center System (Qty. 1) 6.) IA Application Logging System (Qty. 1; 4 sub-systems)

7) Key Management Facility Server/Client System (Qty. 1)

8.) MCC 7500 Dispatch Console Systems (Qty. 4) 9.) Logging Recorder System (Qty. 1)

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

10 U.S.C. 2304(c)(1), Only one responsible source and no other supplies or services will satisfy agency requirements.

5. Rationale Justifying Use of Cited Statutory Authority.

The Navy ELMR network provides the communications required by First Responders during safety/security emergencies on Navy installations. In order to maintain interoperability and interchangeability between Navy installations and to provide uniform training and standard operating procedures to their component commands, CNIC has standardized its ELMR network on the Motorola ASTRO 25 Integrated Voice and Data (IV&D) trunked radio system, which includes the Dynamic System Resilience (DSR) technology. This technology enables remote sites to continue to communicate system wide should a site lose visibility to a Zone Core. In the event that a remote site loses Zone Core connectivity, the DSR technology temporarily re-routes that site to another available Zone Core and then moves it back to the original Zone Core when the communications link has been restored and stabilized. The DSR technology is proprietary to Motorola.

In addition to the requirements for interoperability, interchangeability and DSR capability, another required capability for the Navy's ELMR System is that it has an Over The Air Programming (OTAP), and Over The Air Rekey (OTAR) solution that allows subscriber radios to be accessed and updated over-the-air via the ELMR system, thereby enabling authorized managers to reconfigure the functionality of subscriber radios without ever physically touching the radios. The Motorola ASTRO 25 IV&D system provides for OTAP in the existing ELMR network via the Motorola P25 feature which provides the subscribers on the ELMR network the capability of transmitting both voice and data over-the-air. While other manufacturers are capable of providing an OTAP, and OTAR feature similar to POP25, OTAP has not been standardized industry-wide, and the various OTAP capabilities, each proprietary to its manufacturer, are not interchangeable or interoperable.

For OTAP to function, compatible OTAP technology must be installed in the radios, as well as, the supporting radio network infrastructure. The radio network infrastructure is part of a larger worldwide interconnected ELMR infrastructure. Introduction of another vendor’s proprietary OTAP technology into the enterprise network in order to manage non-Motorola subscriber radios would be neither cost nor operationally effective. Each radio’s unique radio programming information, known as a codeplug, is centrally managed using a radio management/OTAP server and following mature processes. Non-Motorola radio codeplugs would not be able to fit within these processes and would require additional infrastructure, processes, and training to manage the code plugs over the life of the system. Performing OTAP on non-Motorola radios would require additional servers and infrastructure be added to the system; which may compromise both the system maintenance construct and the cybersecurity Authority to Operate.

Motorola is the only known source capable of providing DSR, Interoperability, and OTAP capabilities within the confines of the existing infrastructure of the ELMR system. Based on the above, Motorola is the only known source capable of providing the CNRJ Master Site Zone Core modernization and technology refresh of P25 compliant systems. In addition, procurement of alternative equipment would result in increased infrastructure and maintenance costs to CNIC.

A substantial duplication of cost would be realized by program and is estimated to be $2,140,000 following the procurement of equipment from any manufacturer other than Motorola. The cost to train personnel to support the different equipment configuration and maintenance would average $40,000. In addition, spare material would need to be procured for established repair banks and is estimated to cost $1,936,000. Lastly, $164,000 is estimated for Information Assurance (IA) documentation and accreditation level of effort. Due to IA accreditation there would be a delay to the program of approximately 12 months. This delay time impacts the Government’s ability to meet its mission.

Motorola is the sole manufacturer of the equipment required for this task. While it does have authorized distributors of its hardware, CNRJ requires installation support and Motorola is the only authorized source for this support.

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

A thorough mmarket research was conducted utilizing various methods to identify additional possible sources for the required equipment and to obtain current information in regards to availability, price, and costs. A search using “LMR P25” was performed and it was found that several original equipment manufacturers, including Raytheon, Thales, RELM, and Harris, provide similar equipment; however, none could meet the Government's requirement because their equipment is not part of the standardized ELMR baseline. It was found that Motorola is the only manufacturer whose equipment meets the Navy’s ELMR requirements while maintaining interoperability and interchangeability with the existing ELMR system. In addition, Motorola is the only manufacturer capable of providing voice and data transmission OTAP capabilities on the Navy’s standardized ELMR network. This is important in order to maintain Office of Designated Approving Authority accreditation and approval for the program. While Harris and RELM have similar OTAP capabilities, if their equipment was placed on the existing Motorola infrastructure it would take away all the functionality with the exception of voice, and therefore do not meet the programs OTAP requirements. Raytheon and Thales units do not offer the OTAP capability.

The market research conducted also found several authorized distributors of the required Motorola equipment via GSA and NASA SEWP. However, none of these distributors are authorized to perform the required installation support for CNRJ.

In accordance with Department of Defense Federal Acquisition Regulation Supplement 206.302-1(d) a Request For Information (RFI) notice was published on the FedBizOpps webpage on 12 February 2016 and closed on 22 February 2016. There were three responses received from this posting. Motorola provided notice of its capability to provide the required complete modernization of the Master Zone Core for CNRJ ELMR network and technology refresh of ELMR P25 compliant Systems. The Harris RFI response did not meet performance requirements and did not provide DSR. Relm did not meet program performance requirements based on their RFI response which did not mention a Zone Core solution, only subscribers. Additionally, Motorola is the OEM of the required equipment and as the OEM is the only vendor authorized to provide the required installation support at CNRJ. The responses to this RFI served to further support the sole source justification outlined above.

In accordance with Federal Acquisition Regulation (FAR) 5.201, a synopsis was posted to FedBizOpps on 03 March 2016. The synopsis closed on 17 March 2016 and no inquiries or challenges were received.

7. Determination of Fair and Reasonable Cost.

The Contracting Officer shall ensure that the price negotiated for this acquisition is fair and reasonable IAW FAR 15.4. An independent government estimate has been provided for this effort. The contractor will submit a formal price proposal with other than certified cost or pricing data and sufficient information to support the accuracy and reliability of the estimate. The proposal will be reviewed by experienced technical personnel at SCMS and the Contract Specialist. The Contracting Officer will utilize price analysis in accordance with FAR 15.404-1, including a review of historical data and commercial price lists, as the basis for negotiating a fair and reasonable price.

8. Actions to Remove Barriers to Future Competition.

For the reasons set forth in paragraph 5, at this time, Motorola is the only known provider that meets required DSR, Interoperability, and OTAP capabilities within the confines of the existing infrastructure of the Navy ELMR system. CNIC and NAWCAD 4.11.4 will continue to monitor the market for technological advances that may drive changes to the system design, and potentially increase competition.

Appendix A

Estimated Dollar Value in Thousands

CERTIFICATIONS AND APPROVAL

TECHNICAL/REQUIREMENTS CERTIFICATION

I certify that the facts and representations under my cognizance which are included in this Justification and its supporting acquisition planning documents, except as noted herein, are complete and accurate to the best of my knowledge and belief.

Technical Cognizance:

Glenn Wilson

Name (Printed) Phone No. Date

LEGAL SUFFICIENCY REVIEW

I have determined this Justification is legally sufficient.

Karin Wiechmann

Name (Printed) Phone No. Date

CONTRACTING OFFICER CERTIFICATION

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

Eric Waterman

Name (Printed) Phone No. Date

APPROVED

Upon the basis of the above justification, I hereby approve the solicitation of the proposed procurement(s) described herein using other than full and open competition, pursuant to the authority of 10 U.S.C. 2304(c)(1), Only one responsible source and no other supplies or services will satisfy agency requirements.

Thomas F. Hill

Date

Chief of the Contracting Office; AIR 2.5.2

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