Redacted JA.pdf

CONTROLLED UNCLASSIFIED INFORMATION (CUI)

Controlled Unclassified Information

JUSTIFICATION FOR OTHER THAN

FULL AND OPEN COMPETITION

I. Agency and Contracting Activity.

This Justification and Approval (J&A) is to request authority for Other Than Full and Open Competition supporting the essential engineering services required to assist the Electronic Warfare Avionics Integration Support Facility (EWAISF) with the implementation of an EWAISF real time dynamic Laboratory Intelligence Validated Emulators (LIVE)-Virtual- Constructive (LVC) closed loop test and evaluation capability. This effort encompasses integration of Intelligence Community (IC) “Gold Standard” threat definitions into government Test & Evaluation (T&E) facilities while providing the necessary logistics and testing support to ensure optimal performance of Electronic Warfare (EW) systems in those facilities. The contracting activity for this requirement is the Enterprise Acquisition Branch, AFSC/PZIE-R.

The purchase request number supporting this contracting action is FD2060-18-35556 (increase to estimated contract ceiling amount). This J&A is to increase the estimated contract ceiling by $25M for Essential Engineering Services (EES) requirements. The original J&A was approved by Emily L. Jay (SES), Director of Contracting (AFSC/PK-R), on 19 April 2019 at an estimated contract cost of $93M. The contract was awarded at the same estimated amount. Subsequently, a new stand-alone J&A for the addition of FMS support was approved by the SES on 03 September 2020. The approved J&A allocated an estimated $15M (of the $93M contract ceiling) to FMS requirements. No ceiling increase occurred.

II. Nature and/or description of the action being approved.

Due to the circumstances described herein, the activity requests authority to acquire essential engineering services required to assist the EWAISF with the implementation of an EWAISF real time dynamic LIVELVC closed loop test and evaluation capability using Other Than Full and Open Competition as prescribed by FAR 6.302-3, Industrial Mobilization;

Engineering, Developmental, or Research Capability; or Expert Services. Emphasis will be placed on the Closed Loop Operational Test – Vertical Testability Demonstration (CLOT- VTD) projects, subsequent LVC testing efforts within the EWAISF, Hardware-in-the-Loop (HITL), Installed System Test Facility (ISTF), Open Air Range (OAR) test facilities, and subsequent LVC testing efforts at various government T&E sites including open air ground testing. The CLOT-VTD projects will require the contractor to develop interface control documents and interface test adapters between the ISTF and OAR sites with the EWAISF’s LIVE test stations.

For all CLOT-VTD efforts, the contractor will provide general test support and submit technical reports that provide fully documented results of all analysis, findings and/or tasks.

This action will result in a modification to Contract FA8530-20-D-0001, to increase the estimated ceiling by $25M. This will allow for continuation of services via issuance of task/delivery orders through the end of the contract period. The aforementioned Indefinite Delivery/Indefinite Quantity (IDIQ), Cost Reimbursement No Fee contract was awarded on 26 February 2020. It consists of a base ordering period (26 February 2020 - 31 December

2020), three additional 12-month ordering periods (01 January 2021 - 31 December 2023), and FAR 52.217-8 (Option to Extend Services) which will allow an up to 6-month extension to a task’s performance period.

This sole source support will be provided by the following company:

The Corporation of Mercer University DBA: Mercer Engineering Research Center (MERC) 135 Osigian Blvd.

Warner Robins GA 31088-7810 CAGE Code: 0AC45 Non-Profit Educational Institution

III. Description of the supplies/services required to meet agency needs (including the estimated value).

EES includes core engineering functions within the skill sets of software, aircraft, structural, mechanical, and electrical/electronic engineering needed by Robins AFB customers. This requirement includes engineering, research, development, and operational applications in support of technologies and methodologies applicable to both United States Air Force (USAF) and FMS workloads for aging aircraft, support equipment, and supply chain. The requirement includes, but is not limited to, the following: Aircraft Structural Integrity Program (ASIP) support, Avionics Integrity Program (AVIP) support, Diminishing Manufacturing Sources and Material Shortages (DMSMS) support, Mechanical Equipment and Subsystem Integrity Program (MECSIP) support, Maintenance Steering Group 3 (MSG-

3) support, Reliability Centered Maintenance (RCM) compliant with SAE JA1011 support, environment, safety and occupational health support, reverse engineering support, design/prototype of mechanical and electronic solutions, structural analysis studies, trend identification, design upgrades, ergonomics, energy studies, failures/reliability/safety investigations, extended aircraft interval engineering analysis, Automated Inspection, Repair, Corrosion & Aircraft Tracking (AIRCAT) support, aging avionics support, and support equipment (hardware and software) support.

These types of requirements may be phased so that an individual task addresses an area or problem requiring investigation, study, or analysis, and a follow-on task further develops or implements the solution. Production of the equipment/kit installs, spares, and repairs resulting from the engineering solutions developed by MERC may be performed by a commercial firm. As a nonprofit entity, MERC is prohibited from entering into any type of production contract, but is available to provide engineering and technical assistance to commercial firms, when necessary, such as the technical assistance required in qualifying a commercial firm in fabrication of the design defined in a MERC developed technical data package. This $25M increase will expand usage of the contract to support Robins, AFB customers, specifically AFLCMC/WNY. The CLOT-VTD projects are expected to demonstrate scenario data correlation between the various Hardware-in-the-Loop (HITL), Installed System Test Facility (ISTF), & Open Air Range (OAR) test facilities; thereby, enhancing the Department of Defense (DoD) T&E capability to assess more realistic installed EW and Jammer one-on-one performance with growth to more complex engagement scenarios at reasonable cost in a more secure manner. In addition, the various LVC test stations will be utilized throughout the EWAISF to ensure Operational, Safety, Suitability, & Effectiveness (OSS&E) compliance and to document the baseline capability of each EW system in the AFLCMC/WNY portfolio.

Task orders will be funded with Operations & Maintenance (O&M) (3400), Aircraft Procurement (3010), Working Capital Funds (4930), and Research Development Testing & Evaluation (3600) appropriations. Use of other appropriations is not anticipated, but additional fund types may be incorporated if appropriate. Orders can be issued under this IDIQ contract through 31 December 2023. The performance period of issued task orders may continue through 30 June 2025 (if FAR 52.217-8 (Option to Extend Services) is exercised on individual task orders). The contract modification, resulting from approval of this J&A, will not extend the contract period of the IDIQ but will increase the total estimated ceiling to allow for uninterrupted EES support through the end of the contract.

The nominal contract line item numbers (CLINs) and estimated cost for each upcoming Ordering Period is as follows:

Ordering Period III (01 Jan 2022-31 Dec 2022) CLIN X001 – Engineering Services

USAF $9,000,000.00

FMS No change CLIN X002 – Material $500,000.00 CLIN X003 – Travel $500,000.00 CLIN X004 – Data NSP Total $10,000,000.00

Ordering Period IV (01 Jan 2023-31 Dec 2023) CLIN X001 – Engineering Services

USAF $9,000,000.00

FMS No change CLIN X002 – Material $500,000.00 CLIN X003 – Travel $500,000.00 CLIN X004 – Data NSP Total $10,000,000.00

Optional Six Month Extension to Task Orders (Performance Must Not Extend Beyond 30 Jun 2025) CLIN X001 – Engineering Services

USAF $4,000,000.00

FMS No change CLIN X002 – Material $500,000.00 CLIN X003 – Travel $500,000.00 CLIN X004 – Data NSP Total $5,000,000.00

The increase of $25M is an estimated cost based on contract burn rate and estimated requirements data received from the Robins AFB customers. Since contract award, approximately $60.59M of the $93M estimated contract ceiling has been obligated in support of USAF requirements of which approximately $32.4M remains. In the first year of contract performance, 19 requirements were approved and 16 were executed. In addition to the high burn rate and new customers/requirements, there are legacy customers that rely on the use of this contract vehicle. AFLCMC/WNYB is one of those legacy customers. Additional EWAISF LVC integration and test efforts are scheduled for FY22 through FY24. Integration of LIVE, virtual Threat Modeling Analysis Program (TMAPS)/Standard TMAP Interface Model Structure (STIMS) and constructive threat models are identified in the classified EWAISF LVC 5-YR Plan. Programs currently in development will be requesting test and evaluation in the EWAISF LVC. Examples include Radio Frequency Countermeasures (RFCM), Eagle Passive Active Warning Survivability System (EPAWSS), ALR-56, etc.

J&A Attachment 1 is the Robins AFB Engineering Home Office EES Matrix. It defines the scope of EES support for the various Robins AFB platforms. As new engineering requirements generate, the EES Matrix is used as a basis for determining if the requirement is within scope of the contract.

IV. Statutory authority permitting other than full and open competition.

10 U.S.C. 2304(c) (3), as implemented by FAR 6.302-3, “Industrial Mobilization;

Engineering, Developmental, or Research Capability; or Expert Services,” required by FAR 6.303-2(b) (4).

FAR 6.302-3(a) (2) (ii) states: “Full and open competition need not be provided for when it is necessary to award the contract to a particular source or sources in order . . . [t]o establish or maintain an essential engineering, research, or development capability to be provided by an educational or other nonprofit institution or a federally funded research and development center.”

FAR 6.302-3(b)(2)(i)-(ii) states: “Use of the authority if paragraph (a)(2)(ii) of this subsection may be appropriate when it is necessary to . . . [e]stablish or maintain an essential capability for theoretical analyses, exploratory studies, or experiments in any field of science or technology” or “[e]stablish or maintain an essential capability for engineering or developmental work calling for the practical application of investigative findings and theories of a scientific or technical nature.”

V. Demonstration that the contractor’s unique qualifications or the nature of the acquisition requires use of the authority cited above (applicability of authority).

The agencies needs can only be satisfied by maintaining the unique supplies, services, and essential engineering capabilities available from MERC as identified in the Performance- Based Work Statement. MERC provides essential engineering, research, and development services that augment and extend organic engineering capabilities at Robins AFB. MERC's facility is located within 50 miles of Robins AFB. It has a structural test lab to provide static and fatigue testing of aircraft and ground equipment structure, a mechanical prototype shop which can be used for fabrication of prototypes to prove out designs and assembly, and other engineering capabilities. MERC has experience in every category of essential engineering required by Air Force programs Robins AFB supports. No other local source maintains the necessary equipment to support Robins Research and Development efforts. MERC's knowledge, expertise, and capability is required to ensure timely responsiveness in meeting essential engineering requirements to support Robins AFB.

Mercer University created the School of Engineering in 1985. In 1987, Mercer University created MERC to provide engineering services to Robins AFB. For over 30 years, MERC has provided facilities, advanced design tools, design program experience, and faculty to augment Robins AFB engineering needs. Doctorate level engineering and science professors at Mercer University provide insight on aging aircraft engineering projects and weapon system integrity program requirements. Through MERC, Robins AFB has received the engineering services needed to supplement Air Force engineers, scientists, and technicians in sustaining Air Force legacy aircraft and weapon systems.

The Air Force Materiel Command (AFMC) restructure resulted in the consolidation of 12 separate Centers into 5. Currently, only 17 engineering positions exist at the directorate level as opposed to over 350 prior to the consolidation. Due to the roughly 80% reduction, the specialized engineering support previously available to the stakeholders is limited to specific individual offices within AFLCMC and the Air Logistics Complex (ALC). As a result, there is limited availability of specialized engineering skills available in the Robins AFB workforce. Based on this, Robins AFB has a mission need to maintain the MERC augmented support of these essential skills which are no longer available from United States Air Force (USAF) engineers or scientists.

Systems managed at Robins AFB are aging at a greater rate than originally projected because of the global war on terrorism, mission extensions, service life extensions, and rapidly changing battle tactics with no forecast for replacement of these weapon systems. This places a heavy burden on Robins AFB to provide swift and dependable engineering services.

Engineering analysis, design, prototyping, test delays, or failure to address problems with aging aircraft and related products are costly to the Government but, more importantly, may impact mission readiness if the aircraft cannot return to flight status quickly. The current Robins AFB workforce is not sufficient to cover the current Robins AFB engineering needs.

Continuing to contract with MERC for EES will enable Robins AFB to maintain an essential set of capabilities required for performing various sustainment requirements. Some examples of type of efforts it currently supports and may continue to support via this follow-on IDIQ are as follows:

MERC developed and transitioned emerging technologies and methodologies of EW with award of Task Order (TO) FA8509-12-G-0001-0005, against expired sole source Contract FA8509-12-G-0001, on 14 October 2016. The effort included short-turn-around, quick-response tasks as well as more extensive complex sustainment engineering tasks related to on-going and budgeted projects. Applicable tasks were systems product engineering, software engineering, software maintenance, testing and evaluation related to software sustainment issues and problems associated with the lifecycle extension of fielded baseline software on associated hardware of the EW subsystems on the B-52 and B-1B aircraft.

MERC was awarded Delivery Order (DO) FA8523-18-F-0024, against expired sole source Contract FA8530-17-D-0001, on 10 July 2018. The effort assisted the EWAISF with implementation of a real time dynamic LVC closed loop test and evaluation capability. The LIVEs are threat radar signal emulators that emulate both the transmitter and the receiver functions of a radar. That is, they provide the full functionality of a radar versus only the transmit signature of a radar as typical threat simulators provide.

They are based and developed in accordance with validated IC models, and are therefore validated as true representations of the radars they emulate.

MERC was awarded follow-on DO FA8523-20-F-0029, against current sole source Contract FA8530-20-D-0001, on 14 May 2020. This effort encompasses integration of IC “Gold Standard” threat definitions into T&E facilities while providing the necessary logistics and testing support to ensure optimal performance of EW systems in those facilities. Emphasis was placed on the CLOT-VTD projects and subsequent LVC testing efforts at various T&E sites, including open air ground testing. The CLOT-VTD projects are expected to demonstrate scenario data correlation between the various HITL, ISTF, & OAR test facilities thereby enhancing the DoD T&E capability to assess more realistic installed EW and Jammer one-on-one performance with growth to more complex engagement scenarios at reasonable cost and in a more secure manner. In addition, the various LVC test stations will be utilized throughout the EWAISF to ensure OSS&E compliance and to document the baseline capability of each EW system in the AFLCMC/WNY portfolio.

MERC worked with the F-15 program office to ensure both the accuracy and currency of technical content for outdated technical manuals. MERC developed new Non-destructive Inspection (NDI) procedures utilizing USAF approved equipment based on recommendations in the Force Structural Maintenance Plan and results from the F-15 Full Scale Fatigue Test.

MERC supported E-8C RCM in the Joint STARS (JSTARS) program. The JSTARS platform lacked the engineering capability to support the minimum essential engineering research or development services required to support the RCM program.

MERC provides C-130 software support for the AIRCAT system. Current C-130 engineering workload exceeds Robins, AFB organic capability. MERC augments C-130 engineering support with approximately 20 equivalent engineers and technicians.

Essential engineering augmentation support is required at Robins AFB since the engineering organization entities are not staffed sufficiently to cover the multi-year periods required to accomplish lengthy analyses. In addition, the organization lacks the staffing of personnel with advanced degrees in the subjects to be investigated. MERC engineers, computer scientists, mathematicians, logisticians, and scientists provide support defined by the Robins mission partners as essential engineering and research and development skills. MERC engineers have system level hardware and software experience with a number of key systems. This experience enables MERC to develop complex Radio Frequency de-interleaving and geolocation algorithms for Operational Flight Programs to improve aircrew situational awareness and aircraft survivability. MERC also works directly with Air Force Research Lab (AFRL) supporting advanced Mission Data development for these systems and provides a conduit of advanced technology infusion from research laboratories into fielded systems managed by Robins AFB.

MERC's staff has experience in the design and test of aircraft and vehicle systems, machine component design, aircraft maintenance equipment development, test system development, and ground vehicle testing and analysis. MERC personnel are experienced in three dimensional modeling on several Computer Aided Drafting software platforms and reverse engineering using coordinate measuring machines. Robins AFB has no dedicated organic structural modeling engineers for the F-15, C-130, and Special Operations Forces (SOF) helicopter programs to develop highly accurate and complex structural finite element analysis and provide life assessment algorithms and methodologies for ASIP program support. MERC can provide finite element modeling/simulation for legacy weapon systems.

MERC has used this modeling capability to investigate possible causes and structural failures that lead to an F-15 safety incident. No other firm has demonstrated this capability, as the model was built by MERC.

Due to the type of requirements received and work performed, it is necessary that a facility/research center is located within 50 miles of Robins, AFB in order for Robins’ personnel to access the facility and for the contractor to access the Base in less than one hour if needed. This close proximity is required in order to provide timely responsiveness and ensure hands-on interaction between the contractor and the Government. Having the facility located within close proximity to Robins AFB allows the engineers to work with MERC at their facility on a daily basis without generating travel costs. In addition, in critical, time-sensitive situations it allows for an immediate response by MERC when response time determines if an aircraft will be grounded or the mission will continue. Further, Robins' engineers are allowed access and use of equipment at MERC's facility. For example, MERC's RCM lab is routinely used by Robins' engineers and maintenance personnel to visualize and optimize field and depot maintenance practices in order to increase maintenance velocity and reduce Program Depot Maintenance (PDM) costs. MERC's metrology lab supports quick reaction design and reverse engineering projects, such as the F-15 nose landing gear alignment fixture and 40 mm gun breach block assembly.

Accordingly, it is necessary for Robins AFB to maintain core competencies and capabilities provided by MERC in order to fulfill critical mission requirements for the warfighter. MERC has been instrumental in researching, providing engineering support in critical areas, and developing solutions to resolve sustainment issues. MERC's EES augmentation will increase Robins AFB's efficiency to support its system platforms. MERC has the technical expertise, facilities, and unique capacity to support the engineering requirements of Robins AFB. It is necessary to maintain this capability in order to sustain day-to-day essential engineering functions needed by Robins AFB.

VI. Description of efforts made to ensure that offers are solicited from as many potential sources as practicable, including whether a notice was or will be publicized as required by subpart 5.2 and, if not, which exception under FAR

5.202 applies.

A Sources Sought (SS)/Request for Information (RFI) synopsis was posted to BetaSam.gov, under FA8530-EWAISF_Live_Virtual_Constructive (LVC), on 16 July 2021 with a response date of 6 August 2021. The SS/RFI requested responses from interested vendors that possess the expertise, capabilities, and experience to support the additional EWAISF MERC2-IDIQ requirement. Two vendors, Mercer Engineering Research Center (MERC), and RV Global Solutions Inc., responded to the SS/RFI. An evaluation of the respondents was performed using the documentation each vendor submitted in response to the SS/RFI. The evaluation concluded MERC was the only institution capable of meeting the performance criteria for the EES requirement.

The actions covered by this J&A will cover multiple efforts to maintain essential engineering, research, and development capabilities at Robins AFB through supplemental support provided by MERC. This will provide rapid response as needed to meet transient workload shifts and emerging workload requirements. In addition, availability of essential engineering skills is fragile due to a lack of specialized skills available. These situations have reinforced the need for technically competent personnel capable of providing timely, integrated engineering answers to difficult technical challenges. The operational environment will not accommodate an expenditure of additional resources (both in terms of personnel and cost) to support the period necessary for the development of an alternative engineering source for this effort. Therefore, offers will not be solicited from other sources for work that fit the definition of essential engineering, research, or development capabilities.

VII. Determination by the Contracting Officer that the anticipated cost to the Government will be fair and reasonable.

The overall cost of this acquisition will be fair and reasonable to the Government. MERC has the status of a non-profit educational institution. In accordance with DFARS 215.403-1(c) (4) (D), DoD has waived certified cost or pricing data requirements for nonprofit organizations (including educational institutions) on cost-reimbursement-no-fee contracts. The contracting officer shall require:

(1) Submission of data other than certified cost or pricing data to the extent necessary to determine price reasonableness and cost realism; and

(2) Certified cost or pricing data from subcontractors that are not nonprofit organizations when the subcontractor's proposal exceeds the certified cost or pricing data threshold at FAR 15.403-4(a)(1).

All proposals will be evaluated and negotiated to establish fair and reasonable prices to both the Government and the contractor. The procuring or ordering contracting officer will require a technical evaluation of the proposed material, hours, and labor categories and will conduct negotiations and make a determination that the negotiated prices/costs are fair and reasonable prior to award of any resultant order contract.

VIII. Description of the market research conducted and the results, or a statement of the reasons market research was not conducted.

Market Research was conducted in accordance with FAR Part 10.001 & 10.002, and completed in February 2018. An addendum was accomplished on 11 August 2021, to incorporate the results of the EWAISF SS/RFI into the MERC2-IDIQ market research report.

Market research was conducted to identify new entrants, since the research was completed in November 2018. Subsequent market research, to include FMS support, was completed on 29 July 2020. Most importantly, the market research in support of this ceiling increase commenced on 10 November 2020 and was completed on 10 August 2021. The market research performed an analysis of available vendors that have facilities that could support essential engineering requirements within 50 miles of Robins AFB. The latest market research revealed that the market did not change from the Market Research Report Addendum dated 29 July 2020 and that the findings remain current, accurate, and relevant.

The market research techniques used consisted of SS/RFI synopsis, internet searches, review of similar efforts, and past experience with educational institutions, other nonprofit institutions, or federally funded research and development center sources that provided engineering services.

As described in Section VI above, a SS/RFI was posted on 16 July 2021 and two vendors responded. However, MERC was determined to be the only institution capable of fulfilling this EEC requirement.

The internet searches were limited to educational, nonprofit institutions, or federally funded research and development centers potentially capable of meeting the Government's requirements. Multiple sources were found through internet searches, due to the broad nature of engineering services. The market research team performed a focused internet search to assess each source's ability to meet the key performance requirements for the engineering services. Based on past experience, the following educational institutions were evaluated for their capabilities: MERC, Georgia Tech Research Institute (GTRI), Southwest Research Institute (SwRI), and University of Dayton Research Institute (UDRI). Research was conducted in the areas of core engineering to include staff composition, prior experience in a sample of required tasks, access to advanced degree disciplines, and existence of a research facility located in close proximity to Robins AFB. Although the other institutions were found to have experience in a myriad of areas, they were not capable of meeting all the EES requirements to fully support the Robins AFB mission. Moreover, MERC possessed all of the specialized technical expertise areas necessary to meet all Robins AFB performance requirements.

Commercial Opportunities: The engineering services defined within market research do not meet the definition of support of a commercial item as defined in FAR Part 2. There are no commercial items or services available that meet the Government's requirement. The Government's requirement is unique and complex and does not lend itself to the commercial market. The streamlined acquisition procedures under FAR Part 12 do not apply to this effort.

MERC has the requisite experience in every category on the essential engineering capability matrix and have identified Air Force programs they have previously supported for each category. MERC has a local facility located at 135 Osigian Boulevard, Warner Robins, GA 31088. This facility is within 50 miles of Robins AFB and supports the requirement to have a facility near Robins AFB. MERC has the capability and past experience to support Robins AFB essential engineering requirements. The market research concluded that MERC is the only institution (vendor) capable of fulfilling the Government's current EES needs.

IX. Any other facts supporting the use of Other Than Full and Open Competition.

None.

X. List of any sources that expressed, in writing, an interest in the acquisition.

See Section VI above.

XI. A statement of the actions, if any, the agency may take to remove or overcome any barriers to competition before making subsequent acquisitions for the supplies or services required.

Maintaining an essential engineering capability for research and development capability is critical and in the best interest of the Government. This rationale is demonstrated under the statutory authority of 10 U.S.C. 2304(c) (3), as implemented by FAR 6.302-3, “Industrial Mobilization; Engineering, Developmental, or Research Capability; or Expert Services.”

MERC's expertise and rapid response capability are necessary to accomplish the tasks generated by organizations at Robins AFB. The technical expertise and engineering presence that MERC provides is vital to the Robins AFB engineering workforce and the programs they support. Without MERC on hand to accomplish the aforementioned tasks, the warfighter's mission will be gravely impacted.

To overcome barriers to competition, the Government team is exercising due diligence in researching various avenues for engineering, research, and development capability. In fact, the team is currently in the early acquisition planning stages for the EES follow-on effort.

The forthcoming acquisition will expand the scope of EES support by providing an enterprise-wide multiple award contract vehicle comprised of several educational institutions and nonprofit research centers that will augment Air Force installation essential engineering needs across the continental United States.

XII. Certification by the Contracting Officer.

As evidenced by my signature on the Coordination and Approval Document (CAD), I have determined this document to be both accurate and complete to the best of my knowledge and belief.

XIII. Certification by the technical/requirements personnel.

As evidenced by my (our) signature(s) on the CAD, I (we) certify that any supporting data contained herein, which is my (our) responsibility, is both accurate and complete.