Redacted JA.pdf

Justification and Approval (J&A) for Other Than Full and Open Competition

FOR OFFICIAL USE ONLY

March 2018 FOR OFFICIAL USE ONLY Page 1 of 7

NOTE: If a Justification and Approval was approved for the preceding acquisition, a copy of the approved J&A for the predecessor action must be included in the staff package for approval of the instant J&A. This applies to J&A staff packages that are submitted for review and approval at a level above the contracting officer. The predecessor J&A will be used as a reference document by the approving official.

Is this a new or amended J&A Document? New Amended ( Prior to Award Only! )

Is this a Bridge Action as defined in the AF Bridge Action Reduction Plan? Yes No

Funding level for this acquisition: < $700K > $700K and < $13.5M > $13.5M and < $93M > $93M

Contracting Activity: AFSC/PZAAC

Purchase Request / Local ID Number: FD2060-20-00033

Program / Project (and PE, if applicable): B1B ATS

Program Type (PEO or Other Contracting): Other Contracting

Authority: 6.302-1 – 10 USC 2304(c)(1), Only One Responsible Source and No Other Supplies or Services Will Satisfy Agency Requirements

Estimated Contract Cost (including options): J&A Type: Class Individual

COORDINATION (AFFARS 5306.304(a) )

Date Project Lead / Program Mgr / Requiring Activity Ryan Evangelo 410th SCMS 472-2219

Signature

Date

23 Oct 2019

Contracting Officer

DAVID P MILTNER

AFSC/PZAAC/472-3757

Signature

Date

24 Oct 2019

Local Legal Reviewer Bradley S. Adams

78 ABW/JA/478-472-0569

Signature

APPROVAL (AFFARS 5306.304(a) )

Date

24 Oct 2019

Competition Advocate Elizabeth F. Kennedy

AFSC/PZCA/472-1102

Signature

EVANGELO.RYAN.JAME

S.1133158690

Digitally signed by

EVANGELO.RYAN.JAMES.1133158690

Date: 2019.10.21 08:42:19 -04'00'

MILTNER.DAVID.P.1230119631

2019.10.23 13:37:04 -04'00'

ADAMS.BRADLEY.S.101

6901063

Digitally signed by

ADAMS.BRADLEY.S.1016901063

Date: 2019.10.24 08:17:01 -04'00'

KENNEDY.ELIZABETH.F.

1383983009

Digitally signed by

KENNEDY.ELIZABETH.F.1383983009

Date: 2019.10.24 10:00:32 -04'00'

March 2018 FOR OFFICIAL USE ONLY Page 2 of 7

I. Contracting Activity.

This Justification and Approval is to request authority for Other Than Full and Open Competition (OTF&OC) supporting requirements generated for the Air Force Sustainment Center (AFSC), 410th Supply Chain Management Squadron SCMS/GULA. The contracting activity for this requirement is AFSC/PZAAC. The purchase request number supporting this contracting action is FD2060-20-00033.

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

Due to the circumstances described herein, the activity requests authority to acquire repairs listed in the document using OTF&OC as prescribed by FAR 6.302-1, Only One Responsible Source and No Other Supplies or Services Will Satisfy Agency Requirements. This action will result in the award of a new Requirements Indefinite Delivery Contract (IDC) consisting of a basic year and (4) four one year ordering periods (OPs). It is anticipated that the resulting contract will consist of Firm Fixed Price (FFP) repairs and data line items. The validity period of the IDC is projected to be 05 June 2020 to 04 June 2025.

This sole source requirement will be acquired from the following company:

Support Systems Associates Inc. (SSAI) 709 S Harbor City Blvd, STE 350 Melbourne, FL 32901-1936

CAGE 60877

Large Business

III. Description of supplies/services required to meet agency needs.

This requirement will provide essential sub-assembly repair and overhaul in support of the B-1B Automatic Test System (ATS). This requirement is for repairs to serviceable “A” condition in accordance with the manufacturer's specifications for 20 National Stock Numbers (NSNs) in support of B-1B ATS. This effort includes the disassembly, test, bench check, inspection, and repair of the NSN(s) specific to Power Supply, Radio Frequency (RF) Amplifier, Circuit Card Assembly (CCA), Voltage Regulator, Signal Generator, and Spectrum Analyzer.

The projected Best Estimated Quantity (BEQ) and estimated price per NSN is shown below for each ordering period:

NSNs Basic OP I OPII OPIII OPIV Unit Price Total Cost

4920-01-215-3686 1 1 1 1 1 5996-01-378-7636 1 1 1 1 1 5996-01-378-8028 1 1 1 1 1 5996-01-380-1424 1 1 1 1 1 5996-01-383-8418 1 1 1 1 1 5998-01-272-0128 1 1 1 1 1

March 2018 FOR OFFICIAL USE ONLY Page 3 of 7

5998-01-272-5999 1 1 1 1 1 5998-01-306-5596 1 1 1 1 1 6110-01-222-0470 5 1 1 1 1 6110-01-222-0471 1 1 1 1 1 6110-01-235-5345 1 1 1 1 1 6130-01-214-9931 1 1 1 1 1 6130-01-215-2774 1 1 1 1 1 6130-01-231-6388 1 1 1 1 1 6130-01-258-1134 5 1 2 1 2 6130-01-293-0246 2 2 1 1 1 6130-01-294-0999 1 1 1 1 1 6625-01-215-3765 1 1 1 1 1 6625-01-530-9614 2 2 2 1 1 6625-01-584-5846 5 5 5 5 5 Total

The total estimated contract value is . The basis for this estimate was derived from the Forecast Unit Price on the March, D200A, Automated Budget Compilation System Summary computation. An escalation factor of 1.02% was applied to each out-year OP and an overall average price is shown in the table above. This effort will be funded with 4930 Consolidated Sustainment Activity Group (CSAG) funds.

The validity period of the Requirement IDC will be five years after contract award, anticipated to be June 2020 through June 2025. The ordering periods are as follows:

Basic: 05 June 2020 - 04 June 2021 Period I: 05 June 2021 - 04 June 2022 Period II: 05 June 2022 - 04 June 2023 Period III: 05 June 2023- 04 June 2024 Period IV: 05 June 2024- 04 June 2025

This J&A covers the ordering validity period of the Requirement IDC through completion of all task orders and any increases beyond the stated BEQs. The repair delivery schedule is anticipated to be 30 business days after receipt of asset; 20 business days for MICAP; 10 business days for SURGE.

The nominal Contract Line Item Numbers (CLINs) structure anticipated for all periods is as follows:

CLIN DESCRIPTION COST TYPE

CLIN X001-CLIN X020 Repair FFP CLIN X021 Data Requirements IAW DD Form 1423-1 FFP

These NSN's were screened and assigned Repair Method Code /Repair Method Suffix Code of “R5R.”

The meaning of “R5” is repair directly from a sole source contractor which is not the actual

March 2018 FOR OFFICIAL USE ONLY Page 4 of 7 manufacturer; “R” signifies the Government does not own the data or data rights to the data needed to contract repair of this part from additional sources. It has been determined to be uneconomical to buy the data or rights to the data. It's uneconomical to reverse engineer the part. This code is used when the Government did not initially purchase the data and/or rights.

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

10 U.S.C. 2304 (c) (1) as implemented by FAR 6.302-1, Only One Responsible Source and No Other Supplies or Services Will Satisfy Agency Requirements.

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

The agency's minimum needs can only be satisfied by the unique supplies or services available from SSAI as demonstrated in the following paragraphs.

These sub-assembly NSNs are highly specialized as they are specifically designed to integrate with the B1-B tester software and meet the configuration baseline requirements. Other similar commercial ATS are not a viable alternative as they do not meet the configuration required for the B-1B ATS.

BAE is the original equipment manufacturer (OEM) that integrated these items during the design and development phase of the B-1B ATS. BAE utilized sub vendors for these NSN components during development however these sub vendors do not have repair capability. Additionally there is no historical repair procurement information associated with BAE for these NSNs.

Repair data and the rights to use the data was requested by the Government from all known sources on 18 April 2019 and 19 April 2019. All known OEMs were contacted to ascertain their willingness to give or sell the repair data and the rights to the data. Several NSNs listed have "base parts" because the current OEM assigned part numbers (P/Ns) to the original OEM parts when they were altered so they could be mounted into a rack. The original OEMs for the base parts have been contacted as well as listed OEMs to obtain repair data.

SSAI has repaired each of these NSN's since 2005 via separate contracts and is the only contractor currently approved for repair. The most recent sole source SSAI repair contract for these NSNs, with exception to NSN 6625-01-530-9614, is Requirements contract FA8517-15-D-0004. This contract was awarded 05 June 2015 and is set to expire on 04 June 2020. SSAI was awarded a Sole Source contract FA8517-14-D-0022, specific for the repair of NSN 6625-01-530-9614 on 10 July 2014. This contract expired on 09 July 2018.

SSAI has developed and/or acquired the repair procedures, equipment, and expertise necessary to repair each NSN specified for this effort. The Government does not own or possess the proprietary technical data, repair procedures, or test procedures necessary to compete the requirements for the B-1B ATS. The Government does not have access to the input/output specifications which would allow a new vendor to build their own design in accordance with the specifications. This would be high risk to the Government as the alternate vendor must redesign/re-engineer a new design for each NSN based on input/output specifications. An e-mail was sent to BAE on 17 April 2019 requesting repair data and the rights to the technical data. No response was provided from BAE on selling the

March 2018 FOR OFFICIAL USE ONLY Page 5 of 7 data or repairing the NSNs listed in the RFI. SSAI was contacted on 18 April 2019 requesting their interest in selling the repair technical data. SSAI has not responded to the Government's inquiry, however historically they have declined to sell their technical data to the Government.

A reverse engineering effort is estimated to take 18 -24 months to complete per NSN based on similar engineering projects on like NSNs such as signal generators, power supplies and pulse scan generators. The life of the B-1B EASTE/IATE program is through approximately 2025. A complete reverse engineering effort for all NSNs would exceed the life of the program, and would not provide the Government with a return on investment. Conducting a reverse engineering effort would cause an unacceptable delay in meeting Air Force requirements, and is therefore determined non-feasible. SSAI is the only contractor that can meet the Government's immediate need.

Accordingly, SSAI is the only firm capable of providing the supplies and services described in Section III above without the U.S. Air Force experiencing unacceptable delay in meeting mission requirements.

VI. Description of efforts made to ensure that offers are solicited from as many potential sources as practicable.

A Sources Sought (SS)/Request for Information (RFI) was posted to Federal Business Opportunities (FedBizOpps) on 20 March 2019 with a response date of 22 April 2019 under Solicitation Number FA8517-19-DMRF104. The RFI requested responses from interested vendors that possess the expertise, capabilities, and experience to meet qualification requirements for this effort. No vendors responded to the SS/RFI.

The requirement will be synopsized in FedBizOpps in accordance with FAR 5.201. It is anticipated that sources having an interest in subcontracting may be identified through synopsis. Any source who responds to the Government as a result of this synopsis will be identified to the prime contractor as a potential subcontracting possibility.

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. In accordance with FAR 15.403-4, the contractor will be required to provide certified cost or pricing data to be used in supporting the Government's evaluation of the proposed cost. The proposed skill mix of labor, labor hours, types, and quantities of material, other direct costs, and direct and indirect rates will be negotiated by the Government based on recommendations from the Defense Contract Audit Agency and expert technical personnel supporting the program. The contract price will be negotiated in accordance with the procedures in FAR Part 15 ensuring the ultimate cost to the Government is fair and reasonable.

March 2018 FOR OFFICIAL USE ONLY Page 6 of 7

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 and 10.002. The market research was completed on 29 April 2019. Market research techniques used are as follows:

As described in Section VI above, a SS/RFI was posted to FedBizOpps advising industry of the pending acquisition and soliciting inquiries from interested vendors. The SS/RFI was posted on 20 March 2019 under Solicitation Number FA8517-19-DMRF104. The Government received no responses to the SS/RFI.

Queries were conducted within the Government databases and through various internet searches.

Several searches were done via the Small Business Administration website using the following key words: Repair, Amplifier, Power Supply, Circuit Card, and Signal Generator. There were no small business opportunities identified during this search that possessed the required technical repair data necessary to repair. The Government does not own or have access to the necessary technical data to afford small businesses the opportunity to participate in this repair effort.

Market research did not reveal any other contract vehicle(s) that could be used to satisfy this requirement.

There are no commercial product sheets, test data, qualification data, support manuals, or related data that defines the performance and manufacturing characteristics for each NSN. These items were originally integrated and/or developed by the OEM, BAE, who then subcontracted components to other OEMs in accordance with military standards/specifications identified during the design/ development phase of the B-1B ATS. These assets have options specifically designed to integrate with the B-1B tester software and meet the configuration baseline requirements. The Government does not own the proprietary detailed technical data or internal technical drawings required to repair all these items for the B-1B Testers that will allow for a competitive acquisition. Two sources provided repair data for NSNs 5998-01-272-0128, 6130-01-214-9931, 6625-01-215-3765, 6625-01-530-9614 and 6625-01-584-5846 however the data is incomplete and not suitable for competition. The Government does not have access to the input/output specifications which would allow a contractor to build their own design in accordance with the specifications. All OEMs for each NSN were contacted and were found non-capable as each, either possessed outdated repair technical data, or did not have access to other OEMs technical data, in order to fulfill this instant requirement.

Market research concluded SSAI is the only vendor capable of repairing these items as they possess the required technical data for each NSN in order to meet the Government's requirement in a timely manner.

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

None.

March 2018 FOR OFFICIAL USE ONLY Page 7 of 7

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.

The Government does not possess the technical data package to support full and open competition. An e-mail was sent to BAE on 17 April 2019 requesting repair data and the rights to the technical data.

No response has been received from BAE, historically BAE has not offered to sell any data or rights.

BAE has also not responded to repair requests in the past.

A reverse engineering effort is estimated to take 18 -24 months to complete per NSN. An RE effort would cause an unacceptable delay in meeting Air Force requirements and therefore is determined non-feasible. The life of the B-1B EASTE/IATE program is through approximately 2025.

The Government's plan to overcome barriers to competition is to continue to engage BAE as well as SSAI on an annual basis, prior to each ordering period, to determine the feasibility of procuring the technical data.

XII. Certification by the Contracting Officer.

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