APPROVED FOR RELEASE FOE.pdf

JUSTIFICATION for an EXCEPTION to FAIR OPPORTUNITY for the placement of an order >$150K under a Multiple Award Contract (MAC)

Upon the basis of the following justification, I, Sharon Pritchard, Competition Advocate of SPAW ARSYSCEN, Pacific, hereby approve the Justification for an Exception to Fair Oppmtunity Pursuant to FAR 16.SOS(b)(2).

,JUSTIFICATION

I. Agency and Contracting Activity. Department of the Navy, SPAW ARSYSCEN, Pacific.

2. Nature/Description of Action. This a fair opportunity exception to place an order with Ca VU Consulting, Inc. ("Ca VU") under multiple award contract number N66001-16-D-O 119. The task order number will be determined prior to award.

3. Description ofSupplies/Scrvices.

Space and Naval Warfare Systems Center (SPA WARSYSCEN) Pacific, Networks Analysis Team supports Program Executive Office (PEO) Command, Control, Computer, Communications and Intelligence (C4I) Program Management Warfare Air and Carrier Integration Program Office (PMW 7SO) to assist with the systems engineering integration support and project management services for the Unmanned Carrier Aviation (UCA) Program Office (PMA-268) Mission Control System (UMCS) integration with PEO C41 Programs of Record (PoR) for shipboard and shore instances.

The SPAW AR Support to UCA Integrated Project Teams (IPT) is responsible for the development, delivery and support of the C4! enterprise level architecture to support connectivity requirements for the UMCS ACAT III PoR internal to PMA-268.

The Contractor will suppmt SPAW ARSYSCEN Pacific's Air and Sensor Net-centric Integration Branch in its duties as PEO C4I's PMW 750's designated agent for leading the SPAW AR Support to UCA project IPTs.

The scope of Contractor support to SPAW ARSYSCEN Pacific to provide SPAW AR Support to UCA Integrated Project Teams (!PT) includes the development, delivery and suppmt of the C41 enterprise level architecture to suppmt connectivity requirements for the UMCS ACAT III PoR internal to PMA-268. This will fulfill PMW 7SO objectives for meeting UCA requirements.

Specific task areas include:

- UMCA specification validation

- UMCS MD-SA systems and interfaces engineering with the CANES PoR

- UMCS MD-SA I Unmanned Airborne Warfare Center shipboard integration

- UMCS MD-SB systems and interfaces engineering with shore networks

- Open architecture initiatives for mission and control systems

- Integrated government scheduling

- Project management support, and

- Test and evaluation support.

Exception to Fair Opportunity Template Update AUG 2017

The estimated dollar value of this acquisition is $1,696,420.55.

4. Identification of the Exception to Fair Owortunity. (FAR 16.505 (b)(2))

Identification/Justification for Exception:

D a. The agency need for services is of such urgency that providing fair opportunity would result in unacceptable delays. ·

D b. Only one such awardee is capable of providing such services required at the level of quality required because the services ordered are unique or highly specialized.

c><J c. The order must be issued on a sole-source basis in the interest of economy and efficiency as a logical follow-on to an order already issued under tlie MAC, provided that all the awardees were given fair opportunity to be considered for the original order.

The previous task order N66001-16-D-O 119/N 600 l- l 7-F-0070 envisioned support to the Unmanned CmTier Aviation C41 project that would result in delivery of government furnished equipment and government furnished information of sufficient maturity to the MQ-25A Stingray aircraft manufacturer to provide for the delivery of the air vehicle and modifications to the control station. Delays in the government's work have stretched out the timelines for the delivery of these products, necessitating the need for ongoing support. Overali, the costs and schedule delay to the government far exceed any savings or benefit that would accrue from competition. The expe1tise obtained by Ca VU is completely applicable to this continued effort as des'cribed in the task area impact summaries below.

As a result of the !mow ledge, experience and expertise gained to date and the logical continuation of effort now required by the MQ-25A/UMCS Progrmn, no other rnultiple award contract holder possesses the capability to provide continuation of effort without impact to schedule and cost. The following paragraphs summarize the requirement and Program impact in each of the critical tasking areas that competing this logical continuation of effort would entail.

(b)(7)(e)

Impact in nearly every task area results in tens of thousands of dollars and one to three months scheduling delay at a minimum. In addition, as noted below, any delay in continuation of interface engineering with the CANES PoR will result in the loss of the use of as a test platform for the program and a cost of millions of dollars to recover with use of a West Coast test platform.

Economy and Efficiency in the area ofUMCS Specification Validation (PWS 3.1):

The sponsor, PMA-268 Unmanned Carrier Aviation Program Office, has directed continued development of the MD-S UMCS. With UMCS 1.1, to be delivered in , proving to have significant limitations and cybersecurity challenges, successful UMCS 2.0 development is critical to program success. The incumbent is deeply involved with UMCS network design and mission essential interfaces with PEO C4I systems. To regain this level of expertise and lmowledge is a major endeavor that would result in schedule delay and significant cost to the Government, estimated at 3 months of effort, approximately $4S,OOO of effort.

Economy and Efficiency in the area ofUMCS MD-SAIUA WC Shipboard Integration (PWS 3.2):

Ensuring the successful integration of the MD-SA UMCS on the USN CVN fleet is a challenging task requiring coordination among and across PEO C4I, SPAW AR, SSC Pacific, PMA-2S8, and NA VAIR 4.11. The incumbent has significant depth and breadth of expertise and is expertly managing multiple SCDs for PEO C4I - MD-A related systems. These SCDs range from "in execution" to "initial planning" and require extensive cross-SYSCOM knowledge, interface and collaboration. To regain the incumbent's level of expettise and knowledge is a major endeavor that would result in schedule delay and significant cost to the Government, estimated at 1 month and approximately $20,000.

Economy and Efficiency in the area of UMCS MD-SA Interface Engineering with CANES (PWS 3.3.1):

Preparation for and participation in Application Integration/Systems Integration Test (AI/SIT) events will occur before and after the period of performance for this task order. Coordination and successful execution of iterative AI/SIT events is a crucial MD-SA Milestone, and is absolutely essential to the successful fielding of the MD-S on suppo1t of the MQ-2S Stingray program. The first MD-S AI/SIT is imminent, with a structured test period slatting in (AI/SIT-9). The incumbent's knowledge and expertise has proven essential to meeting initial milestones. Any delay or schedule slip puts this activity on the MQ-2S UCA critical Path and is unacceptable to the sponsor.

Aligning UMCS version releases with the CANES AI/SIT schedule is difficult and requires continuous coordination with PMW 160, the UMCS development team, as well as a clear understanding of the AI/SIT process and the UMCS development cycle. UMCS needs to test with CANES HWl .2 I SW3 and AI/SIT-9 is the first AI/SIT with this CANES configuration and that aligns with the UMCS release, thus, permitting integration testing with UMCS 1.1 and providing valuable feedback for follow-on UMCS development. The risk to completing AI/SIT 9 successfully in turn jeopardizes the ability of the sponsor (PMA-268) to use as a test platform for the program. Shifting to an alternate west coast based aircraft carrier will result in additional costs to the government on the order of millions of dollars, as no other east coast based aircraft carriers are available for preliminary sea trials.

Economy and Efficiency in the area of UMCS MD-SB Interface Engineering with Shore Networks

(PWS 3 .3 .2):

MD-SB (Shore) Integration. Fundamental differences between the MD-SA (CVN) and MD-SB (Shore) are primarily at the Network Processing Group (NPG) and directly relate to the differences between CVN and shore transp01t networks. These differences require a unique MD SB NPG design, a separate development cycle, and tailored integration events. The sponsor has deferred detailed MD-SB initiatives under the current task order. MD-SB integration is a significant element of the sponsor's interest in SSC Pacific support; the incumbent' s extensive in-depth lrnowledge of the lJMCS, CANES services and shore connectivity with Navy Networks is a key enabler of future success of this mission critical work. Any loss of the incumbent's expertise and knowledge would result in schedule delay and significant cost to the Government, estimated at I month and approximately $20,000.

Economy and Efficiency in the area of Open Architecture Engineering (PWS 3.3.3):

The Sponsor deferred planned work on Open Architecture initiatives involving AFRCO, FACE and the USAF's CMCC to accelerate air vehicle development. With the MQ-2S now in source selection, the sponsor intends to re-emphasize this Statement of Work area. A major element of this is Concepts of Employment (CONEMPS) refinement. Development ofMQ-2S CONEMPS is directly dependent on MQ-2S system specifications, host-CVN air vehicle supp01t, communications, and network capabilities. As these key variables evolve or the fielding plan of essential C4I systems change, analysis must be conducted to determine impacts to the MQ-2S CONEMPS, and make any necessary CONEMP modifications. The incumbent's deep knowledge of all aspects of the MQ-2S System is a crucial element of the sponsor's cross SYSCOM, cross-Service engagement. Any loss of the incumbent's expertise and knowledge wonld result in schedule delay and significant cost to the Government, estimated at 2 months and approximately $40,000.

Economy and Efficiency in the area oflntegrated Government Scheduling (PWS 3.3.4):

The incumbent's scheduling team is an integral patt of the SSC Pacific - UCA management team and provides crucial, force multiplying data to leadership. Managing the UCA C4I Integrated Government Schedule (IGS) is a continuous process, is directly dependent on ever evolving MQ-2S IPT schedules, and requires an in-depth understanding of four IPT schedule, the UCA C4I schedule, and the C/S!P and technical drivers that influence them. IPT schedule changes linked to the UCA C41 IGS require schedule data updates and thorough analysis to· understand and report the impact of changes. Any loss of the incumbent' s expertise and knowledge would result in potential losses to schedule fidelity.

Economy and Efficiency in the area of Project Management (FWS 3.3.S):

Managing SSC Pacific's support of the MQ-2S iind associated MD-S requires unique and detailed understanding ofbudget and financial processes of the NA VAIR sponsor. The incumbent' s depth of knowledge and breadth of expertise has proven crucial to management's· successful execution. Any loss of the incumbent' s expe1tise and knowledge would require significant overhead expenditure to master program-specific financial repmiing requirements of one month of effort at $10,000.

Economy and Efficiency in the area of Test & Evaluation (PWS 3.3.6):

The MQ-25 and associated MD-5 systems will constitute the most networked system in the Navy. The system is entirely dependent upon SSC Pacific supported networks for its mission, and SSC Pacific labs have a vital role to play in system development testing, end to end testing, and DT/OT events. The incumbent's lmowledge and demonstrated expertise in all aspects of the MQ-25 system is crucial to T&E's success. T&E is an ongoing initiative and the human capital necessary for success is UCA system unique. Any loss of the incumbent's expertise and !mow ledge would result in schedule delay and significant cost to the Government, and is estimated at 1 month and $10,000.

All of the MAC awardees were given a fair and equal opportunity to be considered for the original order, TO #N66001l7F0070. An initial RFP was issued on 1 February 2017 to all (four) of the MAC awardees. Two of the MAC awardees elected not to bid. Questions were received from the offerors and Government answers to all of the questions received were equally shared among the offerors in time and content. An updated RFP was then issued on 9 February 2017.

Thorough cost and technical evaluations were performed on proposals received from Ca VU Consulting, Inc. and from SOLUTE, Inc. Selection was fmally made on a LPTE basis and award was made to Ca VU on 10 April 2017. No rebuttals or fmiher requests for out-briefs were received.

0 d. It is necessary to place an order to satisfy a minimum guarantee.

0 e. For orders exceeding the simplified acquisition threshold, a statute expressly authorizes or requires that the purchase be made from a specified source.

5. Determination of Fair and Reasonable Cost. Based on the historic cost information currently available, the contracting officer has adequate information to ensure that the cost to the government for this acquisition will be fair and reasonable. Costs were detern1ined to be fair and reasonable during the award of the basic contract under FAR15.404-l(b), and the labor rates for this task order will be in accordance with the basic contract rates. Additionally, the technical code will be reviewing the labor categories and hours proposed to ensure the labor mix and hours will be able to meet the requirements of the PWS.

6. Any Other Facts Supporting the Justification.

None.

7. Actions Taken to Remove or Overcome Barriers that Led to the Exception to Fair Oppmiunity.

For the reasons set fo1th in Paragraph 4, SSC PAC has no plans at this time to compete future contracts for the types of services covered by this docnment. If another potential sonrce emerges, SSC PAC will assess whether competition for future requirements is feasible. If competition is deemed likely, the UCA Program Office expects to obtain a technical data package or develop a performance specification that will support competition for future acquisitions of the same services.

TECHNICAL AND REQUIREMENTS CERTIFICATION (FAR 16.505(b)(2)) I certify that the facts and representations under my cognizance, which are included in this Justification and which form a basis for this justification are complete and accurate.

Technical Cognizance/or COR:

5150 553-3419 8 March 2018 Printed/Typed Name and Title Code -Phone Date -------

APPROVAL:

CONTRACTING OFFICER CERTIFICATION (FAR 16.505(b)(2)): (::>$3K to <-$700K) l certify that this justification is accurate and complete to the best of my knowledge and belief.

Printed/Typed Name and Title Code Phone Date

REVIEW:

2.0 BRANCH HEAD (FAR 16.505(b)(2)): (>$700K)

Signature: ___________________________ _

Printed/Typed Name and Title Code Phone Date

APPROVAL:

COMPETITIO~ AJlVOCATE (F\R 16.~05(b)(2)J (>$700K to $13.SM):

Signature:

=1-v . '"'lJ '· j c::>J tl(Dr 0\ l 'r I r;Cf/(111/t Printed/Typed Name and Title Code Phone Date

APPROVAL:

HEAD OF THE CONTRACTING ACTIVITY (FAR 16.505(b)(2)) (>$13.SM to $93M):

Signature: ___________________________ _

Printed/Typed Name and Title Code Phone Date

Exception to Fair Opportunity Template Update AUG 2017

(b)(6)

(b)(6)

(b)(6)