REDACTED - IntelSat JA6.302-1.pdf

J&A NO.: J&A6.302-1-26EN01

DEPARTMENT OF THE NAVY

NAVAL RESEARCH LABORATORY

4555 OVERLOOK AVE SW

WASHINGTON, DC 20375-5320

REPLY REFER TO:

J&A No.: J&A6.302-1-26EN01 19 Nov 2025

JUSTIFICATION AND APPROVAL

FOR USE OF OTHER THAN FULL AND OPEN COMPETITION

1. Identification of Agency and Contracting Activity.

Naval Research Laboratory, 4555 Overlook Avenue, SW, Washington, DC 20375-5000.

2. Nature/Description of Action.

This Justification and Approval is requested to authorize award of a five-year Cost-Plus-Fixed- Fee (CPFF) contract on a sole-source basis to Intelsat General Communications LLC (hereinafter referred to as “Intelsat”), located in McLean, Virginia, to continue and expand applied radio frequency (RF) research and development (R&D) using Naval Research Laboratory (NRL) owned antennas located on the island of Oahu in Hawaii. This effort enables the test, transmission, and analysis of atmospheric effects on advanced RF waveforms in support of operational military space missions and ensures uninterrupted mission performance utilizing the NRL’s uniquely positioned large-aperture antenna infrastructure.

Due to the specialized nature of these highly technical operations, the requirement for secured access to contractor owned facilities, and the incumbent’s unique ability to provide immediate continuity of service, only one responsible source is capable of meeting the Government’s needs in accordance with FAR 6.302-1.

3. Description of Supplies/Services.

NRL Code 8140, Command, Control, Communications, Computers, Intelligence, Surveillance, and Reconnaissance (C4ISR) Branch under the Space Systems Development Division, develops advanced C4ISR technologies for space, airborne, and ground systems to support Navy, Department of War (DoW) and national security requirements. Code 8140 requires continued research, development, operations, maintenance, and systems engineering support for NRL owned large aperture antennas located in Hawaii.

Code 8140 has a requirement for research, development, operations, maintenance, and systems engineering expertise in support of NRL’s space technology research utilizing the NRL owned 30-meter (m) (PAM2) and 11 m (PAM3) antennas located at Intelsat’s Paumalu (PAM) Teleport site on Oahu, Hawaii.

This acquisition supports continued RF atmospheric exploration in support of DoW space and airborne assets. The effort shall provide for scientific, technical and engineering research as well as antenna system maintenance support for NRL research utilizing NRL-owned antennas to include the PAM and Opana facilities as well as other current and future NRL owned antenna systems on the island of Oahu, Hawaii. The intent of the research and experiments to be conducted under this effort is to transmit and receive RF energy as well as perform assessments of the atmospheric effect on RF transmissions that result in definition of RF signals for custom designed equipment, precise generation of RF signals at varying power levels, high sensitivity receiver systems, precise pointing accuracy of large apertures and hardware that is custom designed or commercial off-the-shelf (COTS) hardware that is modified for the antenna that will execute the software to generate the requisite RF signal precision. This research includes the detection and categorization of space anomalies to include characteristics, causes and mitigation techniques.

This effort continues and expands the prior Large Aperture Atmospheric Research Support (LAARS) work performed under NRL contract N0017321C2008 that advances RF technology development in support of the warfighter operational needs. Additionally, this contract sustains support for new research efforts in the United States Indo-Pacific Command region leveraging NRL’s unique antenna capabilities and regional access in Hawaii.

The requirements defined in the Statement of Work will be primarily performed at the PAM contractor owned facility and the Opana Government-owned facility, with ancillary support for other NRL antennas on Oahu as research dictates.

The estimated Period of Performance is 15 July 2026 through 14 July 2031. The total estimated dollar value for this acquisition is $38M.

4. Identification of Statutory Authority. The statutory authority permitting other than full and open competition is:

o Title 10 U.S.C. 2304(c) (1), Only one responsible source, as implemented by the Federal Acquisition Regulation (FAR) 6.302-1(a)(2)(iii) -- For DoD, NASA, and the Coast Guard, services may be deemed to be available only from the original source in the case of follow-on contracts for the continued provision of highly specialized services when it is likely that award to any other source would result in-o (A) Substantial duplication of cost to the Government that is not expected to be recovered through competition; or o (B) Unacceptable delays in fulfilling the agency’s requirements. (See 10 U.S.C.

3204(b)(B)Only One Responsible Source and No Other Supplies or Services Will Satisfy Agency Requirements.

NRL requires uninterrupted applied RF research, engineering, operations, maintenance, and security support for NRL owned large-aperture antennas located on the island of Oahu, Hawaii.

This requirement includes site access, classified operations, and highly specialized research capabilities unique to one source, which are necessary to support ongoing DoW space mission operations.

Intelsat is the only responsible source with the required facility access rights, established site infrastructure, Top Secret/Sensitive Compartmented Information (TS/SCI) cleared workforce, technical expertise, and operational familiarity to continue performing these critical research activities. Transitioning these systems to any other contractor would result in unacceptable mission delays, significant duplication of cost, operational risk, and interruption of essential space research and testing activities. Therefore, competition is not feasible, and award to any other source would not satisfy the Government’s needs in accordance with FAR 6.302- 1(a)(2)(iii).

5. Demonstration of Contractor’s Unique Qualification.

In accordance with FAR 6.302-1(a)(2)(iii), competition is not feasible because Intelsat is the only responsible source capable of providing the required services without an unacceptable interruption to critical mission operations. NRL-owned antennas located on Oahu are situated on contractor owned property (PAM Teleport site), requiring an established site access agreement, existing facility security accreditation, and a fully cleared workforce with TS/SCI eligibility.

Performance of this effort requires a unique combination of specialized RF research capability, large aperture antenna operations experience, secure facility access, and proven ability to sustain mission-critical systems supporting sensitive DoW space operations. Intelsat is the only source with the required access, infrastructure, and historical system knowledge necessary to meet these requirements.

The incumbent contractor possesses:

Exclusive operational access to the PAM Teleport site and associated Government-owned antennas.

Proven performance conducting highly specialized RF research and real-time DoW space mission support.

Existing cleared facilities and personnel capable of supporting TS/SCI operations.

Deep system familiarity with Government-owned antenna signal systems, antennas, networks, and associated infrastructure.

Further, the PAM2 antenna is uniquely positioned geographically in a low-noise RF environment with optimal space-target geometry. The antenna required for the research to be conducted under the SoW resides on land owned by Intelsat, and site access is controlled exclusively by Intelsat. Alternative sites cannot replicate the required infrastructure, security environment, or mission-critical operational conditions. Disruption of access or change of operator would cause unacceptable operational delays, duplication of cost, and mission risk to ongoing DoD space research and national security activities.

6. Description of Efforts to Ensure Other Potentials Sources Were Sought.

Market research was conducted in accordance with FAR Part 10 and NRL acquisition procedures to assess the availability of sources capable of providing the highly specialized research, engineering, security, and antenna operations required for this effort. No other potential sources were identified as being capable of meeting the requirements of the SoW. This requirement involves continued applied RF R&D utilizing NRL owned high-power, large-aperture antennas located on the contractor-controlled PAM Teleport site and other NRL antenna locations on Oahu, Hawaii.

Additionally, in accordance with FAR 5.201, a Sources Sought/Request for Information No.

N0017325RFIEN02 notice was posted to SAM.gov on 10 July 2025 with a closing date of 28 July 2025 to identify potential sources capable of fulfilling this requirement. No responses were received from any other contractor other than the incumbent, Intelsat.

7. Determination of Fair and Reasonable Cost.

The Contracting Officer will determine the final negotiated cost to be fair and reasonable in accordance with FAR 15.402, FAR 15.404-1 and FAR 16.301-3. A CPFF contract is appropriate due to the R&D nature of the requirement and the inability to accurately estimate the cost of performance with reasonable certainty.

Cost reasonableness will be established through a comprehensive evaluation of the contractor’s certified cost or pricing data, detailed cost proposal, and supporting breakdowns, to include labor categories, indirect rates, fee, materials, and subcontracting elements. The Government will conduct cost analysis, evaluate realism of labor rates, review historical performance data, and utilize Defense Contract Audit Agency (DCAA) and/or Defense Contract Management Agency (DCMA) rate guidance as applicable.

The negotiated price will reflect fair and reasonable costs consistent with historical performance under prior phases of this effort, the specialized nature of the work, the security requirements, and the unique technical expertise required. Historical and current salary verification via payroll data will be required and submitted with any proposal submission The Contracting Officer will document the final determination of fair and reasonable cost in the pre-negotiation and post-negotiation Business Clearance Memorandums prior to award.

8. Description of Market Research.

Market research was conducted in accordance with FAR Part 10 and NRL acquisition procedures to assess the availability of sources capable of providing the highly specialized research, engineering, security, and antenna operations required for this effort. This requirement involves continued applied RF R&D utilizing NRL-owned high-power, large-aperture antennas located on the contractor-controlled PAM Teleport site and other NRL antenna locations on Oahu, Hawaii.

In accordance with FAR 5.201, a Sources Sought/Request for Information No.

N0017325RFIEN02 notice was posted to SAM.gov on 10 July 2025 with a closing date of 28 July 2025 to identify potential sources capable of fulfilling this requirement. No responses were received from any other contractor other than the incumbent, Intelsat. Continued market outreach and technical engagement conducted by NRL further confirmed that no other entities have the required site access, TS/SCI-cleared workforce, security posture, and technical capability to support this mission without disruption.

Based on market research results and technical analysis, it has been determined that only one responsible source can meet the Government’s requirements without unacceptable schedule impact, mission disruption, or duplication of cost. Future opportunities for competition will continue to be evaluated; however, at this time, competition is not practicable.

9. Any Other Supporting Facts.

Code 8140 continuously surveys the market for large aperture antennas capabilities that could support NRL’s research mission. Market research identified only seven antennas globally that are 30 m or larger:

1. 576 m antenna: Owned by Russia

2. 100 m antenna: Owned by Germany

3. 100 m antenna: Owned by United States (US)

4. 76 m antenna: Owned by England

5. 70 m antenna: Owned by Russia

6. 46 m antenna: Owned by US (NRL owned) and operated by SRI International

7. 34 m antenna: Owned by US (NRL owned) and operated by NRL

Antennas 1 through 6 listed above do not operate at the frequency and power levels required, nor do they provide the transmit capability necessary to support this effort; they are only able to collect data. The 34 m and 46 m NRL owned antennas do not meet the mission geographical locations and environmental characteristics required for the effort.

The PAM2 antenna is uniquely positioned geographically in a low-noise RF environment with optimal space-target geometry, alternative sites cannot replicate the required infrastructure, security environment, or mission-critical operational conditions. Disruption of access or change of operator would cause unacceptable operational delays, duplication of cost, and mission risk to ongoing DoD space research and national security activities.

The NRL owned 30m PAM2 antenna at Paumalu is the only antenna in the world that meets all mission requirements, including power, frequency agility, atmospheric conditions, geographic location, and real-time support for space operations. Ancillary support from smaller apertures may be leveraged at Opana, Wahiawa, Lualualei, and Kaena Point.

Accordingly, Intelsat remains the only responsible source capable of meeting the Government’s requirements.

10. Listing of Interested Sources.

A Sources Sought/RFI (RFI No. N0017325RFIEN02) was posted to SAM.gov and no interested parties responded other than the incumbent, Intelsat. No additional capable sources were identified through this posting or through independent market research conducted by NRL.

Accordingly, no other contractors have demonstrated the capability to perform the requirements of this effort.

11. Actions Taken to Remove Barriers to Competition.

Future competition is not feasible due to the contractor’s ownership and control of the land on which the PAM2 antenna is located and the associated classified site access requirements. The uniquely optimal geographical location, security, facility access, and technical environment required for this effort cannot be replicated elsewhere without incurring significant cost, schedule delay, and mission risk and even then, it is unlikely the research results generated from antenna placement elsewhere in the world would provide the necessary outcomes and support to warfighters and the intelligence community that the PAM site currently provides.

NRL continually monitors the industrial base and antenna infrastructure community for emerging capabilities; however, at this time there are no viable alternative sources capable of performing this requirement. Should conditions materially change in the future, the Government will reassess competitive opportunities.

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, Acquisition Plan/ISTRAP-M No.

ACP-26-001 except as noted herein, are complete and accurate to the best of my knowledge and belief.

TECHNICAL COGNIZANCE:

Telephone No. Date

LEGAL SUFFICIENCY REVIEW:

I have determined that this Justification is legally sufficient.

. Date

CONTRACTING OFFICER CERTIFICATION:

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

Richard Waterstreet Telephone No. Date Contracting Officer, Code 1330

CHIEF OF THE CONTRACTING OFFICCE (CCO) CONCURRENCE

Craig S. Barton, Code 1300 Telephone No. Date

SENIOR EXECUTIVE OF THE STRL APPROVAL

Dr. Bruce G. Danly, Director of Research Telephone No. Date