Redacted Limited Sources Justification_47QFSA22F0036_Dec 02 2021.pdf

Federal Acquisition Service Assisted Acquisition Services Division

Southeast Sunbelt Region

Limited-Sources Justification FAR 8.405-6(a)(1)(i)(B)

1. Requiring and Contracting Activity

a. Requiring Activity: Department of the Air Force F-15 Supply Chain Management Engineering

409 SCMS/GUEA

235 Byron Street Suite 19A Robins AFB, GA 31098

b. Contracting Activity: General Services Administration

Assisted Acquisition Services Division 77 Forsyth Street SW Atlanta, GA 30303

c. Contracting Officer: Kimberly Guest

d. Task Order Acquisition ID: 47QFSA21K0093

e. Estimated Value:

f. Contract Vehicle: Multiple Award Schedule Professional Services Schedules NAICS Code: 541330ENG

2. Nature of Description of Action:

The General Services Administration (GSA), Federal Acquisition Services (FAS), Assisted Acquisition Services Division (AASD) received a requirement from the Department of Air Force, Warner Robins Air Logistics Complex, F-15 Supply Chain Management Engineering, 409 SCMS/GUEA, for contractor support to provide technical expertise and engineering staff necessary to maintain, enhance, and support Test Program Set (TPS) for the Analog Depot Test Station (ADTS) 2000 and Hybrid Depot Test Station (HDTS) used to test the F-15 avionics systems.

This requirement is a follow-on to contract number GS-00F-240CA, task order number GSQ0417DB0016 also awarded by GSA FAS AASD on behalf of the 409 SCMS/GUEA F-15 Supply Chain Management (SCM). The task order was awarded on 28 February 2017 to BAE Systems Technology Solutions & Services, Inc (referred to herein as BAE).

This requirement will be procured with a Firm Fixed Price (FFP) structure utilizing the

GSA Multiple Award Schedule (MAS), Professional Services Schedule (PSS), Engineering Services, Special Item Number (SIN) 871-5 in accordance with FAR 8.405- 6 (a)(1)(i)(B) procedures.

3. Description of Supplies or Services:

a. Description of Services:

The mission objective is to provide services to meet Government’s F-15 Maintenance Testability Analysis Program needs. These services include providing the technical expertise and engineering staff necessary to maintain, enhance, and support TPS for the ADTS 2000 and HDTS used to test the F-15 avionics systems.

This effort is for performance-based engineering services required for the BAE-built ADTS 2000 and HDTS for the TPS, which are used by the 409 SCMS/GUEA for depot maintenance of approximately 140 Shop Repairable Units (SRUs) for the F-15 aircraft.

This effort covers the maintenance of the TPS, making the TPS operate efficiently on the ADTS 2000 and the HDTS.

and this effort will focus on continued maintenance of those TPS already converted to the BAE-built ADTS 2000/HDTS systems. A cadre of BAE-built ADTS 2000/HDTS systems’ specialists work at Government facilities with additional support provided from the contractor facilities. The contractor must have a Quality Assurance (QA) program and system’s engineering processes to minimize the potential of any deficiencies, mitigate risk, and to avoid schedule slips.

The 409 SCMS/GUEA is responsible for technical and engineering tasks necessary to improve the Reliability and Maintainability (R&M) of the F-15 peculiar avionics. Due to aging aircraft, increasing legacy obsolescence, high flying hours, hardware afflicted with latent physical defects, environmentally stimulated intermittent failures, and inconsistencies between system Built-In Test (BIT) and Intermediate-Level (I-Level) tests or between I-Level tests and Depot-Level tests the F-15 peculiar avionics have suffered from poor R&M problems. Failure to address these inconsistencies lead to avionics hardware cycling between Organizational-Level (O-Level) and I-Level and between I-Level and Depot-Level. Avionics assemblies can be falsely labeled as “bad actors” because of these TPS deficiencies. This leads to hardware ultimately being identified and submitted for Product Quality Deficiency Reports (PQDR) and Material Improvement Programs (MIP), which can tie it up indefinitely in the supply/repair pipelines. These factors have and will continue contributing to unsatisfactory F-15 Mission Impaired Capability Awaiting Parts (MICAP) conditions. The services required under this instant acquisition provide for immediate applicable engineering attention to analyze and correct the previously described R&M conditions. These services have been performed by BAE under task order GSQ0417DB0016 and previous contractual vehicles.

Failure to continue these services in a timely manner would severely hinder the required and necessary support of the program. Any contractor awarded this effort must be fully functioning and competent on the station and Unit Under Tests (UUT) on the first day of performance.

b. Period of Performance

The Period-of-Performance (POP) will consist of a one-year base period, four one-year option periods, and a six-month extension period in accordance with Federal Acquisition Regulation (FAR) Clause 52.217-8.

Base Period: 02 December 2021 to 01 December 2022

Option Period One: 02 December 2022 to 01 December 2023 Option Period Two: 02 December 2023 to 01 December 2024 Option Period Three: 02 December 2024 to 01 December 2025 Option Period Four: 02 December 2025 to 01 December 2026 Extension Period: 02 December 2026 to 01 June 2027

c. Source:

BAE Systems Technology Solutions & Services, Inc.

520 Gaither Road Rockville, MD 20850-6198 Cage Code: 99789

d. Price breakdown:

4. Identification of Statutory Authority:

FAR 8.405-6(a)(1)(i)(B): Only one source is capable of providing the services required at the level of quality required because the services are unique and highly specialized.

5. Applicability of Authority:

Only one source is capable of providing the services required at the level of quality required because the services are unique and highly specialized. It is to be noted that the tasks of documenting audits, performing analysis, conducting research, gathering information, etc., are not tasks inside themselves that are unique or highly specialized.

The unique and highly specialized aspect of the services comes in with knowing the parts and systems in which the required tasks are related to. Without this knowledge, performing the required tasks would be time consuming and the time taken to perform the tasks could be of great detriment to the Government. Therefore, the knowledge required to perform the services correlate into the services having a highly specialized and unique nature in order to be delivered to the required level of quality.

Although Market Research identified other potential sources, none have the knowledge or proprietary tools and processes which BAE possesses and as such could not perform the services at the required level of quality. In addition to the detriments associated with losing the level of quality currently being provided, competing this effort would pose

Period Labor Travel Total Base Period Option Year One Option Year Two Option Year Three Option Year Four Extension Totals monetary constraints to accommodate for a period of learning. The below will discuss all aspects in detail.

BAE originally manufactured and supplied the ADTS 2000 and HDTS test systems to Government in support of the F-15 Program. These BAE test systems contain BAE proprietary hardware and software designs. Though having access to this proprietary hardware and software designs is not necessary to provide the required services, it is at times very valuable in the way of providing the required services at the required level of quality in a timely manner. In other words, the access furthers the knowledge and understanding of the systems and thus allows BAE to provide the required services more efficiently and effectively at the level of quality required.

In addition to BAE owning the proprietary hardware and software design for the system supported, BAE also possesses a wealth of essential knowledge regarding the utilization of the ADTS 2000 and HDTS test systems on the F-15 aircraft. This knowledge is necessary to quickly and successfully perform the required services. In general, BAE is uniquely qualified to provide the required services as BAE alone possesses the knowledge on how items within the station directly affect TPS support work, such as synchronization circuitry and the emulation of the precision Alternating Current/Direct Current (AC/DC) sources that were in the old station. Additionally, BAE is intimately familiar with the F-15 avionics systems tested on the ADTS 2000 and HDTS above.

BAE essential knowledge is more specifically addressed below.

BAE has in-depth knowledge and understanding of the unique functionality of over 150 different F-15 peculiar avionics circuit cards. This knowledge and understanding includes System/Line Replaceable Unit (LRU)/Shop Replaceable Unit (SRU) circuit design, system interfaces, capabilities, and test requirements.

BAE has in-depth knowledge of the unique and specific functionality of two different F-15 peculiar avionics systems’ Automatic Test Equipment (ATE) stations used to test and troubleshoot the systems. This knowledge and understanding includes test station equipment, components, operation of station to test systems, and ability to evaluate the suitability and capability of the ATE to accurately and consistently perform testing.

BAE has in-depth knowledge of the peculiar avionics systems’ and ATE’s TPS language and design specific and unique to each system. This knowledge and understanding includes Abbreviated Test Language for All Systems (ATLAS), Teradyne L-200, Logic Automation Stimulus And Response (LASAR), MS- DOS, MS Windows, Visual Basic, C, C++, and the multiple WR- ALC databases used in managing assets.

BAE has in-depth knowledge of the testing and repair processes and procedures unique to F-15 peculiar avionics to ensure Operational Safety, Suitability and Effectiveness (OSS&E). This knowledge and understanding includes all levels of testing from aircraft to system, LRU and SRU, performance of SRU, assembly and component level repair and/or replacement, Air Force technical data, and Technical Order (T.O.) documentation controlling the operation of depot equipment and repair of avionics systems.

BAE has identified causes of SRU test deficiencies, such as high failure procedures, the effect of obsolete part replacement, and the use of components and subassemblies in a manner inconsistent with their original design and how these identified problems impact next higher assemblies (SRU, LRU, major aircraft systems).

BAE possesses the ability to specify whether the problem is an inherent reliability or maintainability deficiency due to LRU or SRU design or whether the problem is due to TPS design deficiency.

BAE possesses the ability to determine, through analysis, solutions to each problem identified and the TPS performance improvement to be gained by each solution.

BAE has the ability to identify specific test incompatibilities and deficiencies with ATE design, TPS, and compilation and provide integration of proposed corrections or changes to improve ATE capability and/or eliminate fault identification and isolation problems.

BAE has conducted testing to verify modifications which do not adversely impact system ATE operation, that existing maintenance testing concept is minimally impacted if at all, and that intended design of the solution has been met.

Furthermore, in order to the effectively and efficiently perform the required services, BAE has developed and maintained certain propriety tools and processes. One such example is a proprietary software tool that captures original ATLAS-416 digital stimulus pattern data and converts it to reformatted LASAR stimulus pattern files that are used for simulation. This conversion tool saves countless hours of conversion.

Additionally, BAE developed software to convert original ATLAS test software to the ADTS 2000 and HDTS format again saving countless hours of conversion.

Additionally, BAE has developed propriety software that compares original digital response data with results of LASAR simulations saving countless hours of data analysis. Though it is possible that another contractor could develop similar tools, it would require numerous years of experience and knowledge to duplicate them and decrease the efficiency and effective of the services provided.

Historically, many examples are available in relation to the knowledge posed by BAE which equates to the level of quality necessary for mission success. One such example is related to the SRUs of the Wide Field of View Head Up Display (WFOV HUD) which is one of the F-15 peculiar avionics systems covered under this requirement. The WFOV HUD is a highly complex system and wavered between the number one and two grounding supply items for the F-15 fleet for six months. The WFOV HUD accumulated over 100,000 MICAP hours. The WFOV HUD was carcass constrained by problems encountered with the supply of combiner assemblies. Therefore, each WFOV HUD SRU that came in for repair or engineering investigation (PQDR/MIP) equaled a grounded aircraft, making the turn-around time critical in supporting the war fighter. Utilizing the knowledge and experience gained since working for the Government, BAE was able to address problems with the SRU testing to make sure that all “A” condition assets were meeting the requirements of the WFOV HUD.

As mentioned above, the Market Research conducted indicated there are other potential sources; however, in order for them to successfully perform this effort at the required level of quality, a lengthy learning curve period is required. BAE is the only company who can currently supply, with a meaningful degree of confidence, the unique knowledge needed to successfully meet the Government’s requirement without any significant or maybe even detrimental learning curves. This learning curve is based on the fact that a new contractor would have to obtain the required unique skill set that BAE has built over the past fourteen years. Though another contractor would likely not be able to duplicate that skill set, if another contractor was successful at duplicating the skill set, the Government estimates approximately three years, before the contractor would be at an acceptable, not per say experienced, level in regards to skill set. A transition period was considered for this effort in order to train a new contractor in the skill sets necessary to perform the required services and perhaps lessen the amount of time a new contractor would need to obtain an acceptable skill set to perform the required services. However, since BAE utilizes several propriety tools and processes, mentioned above, in order to perform the required services, a transition period would likely not be effective and would only cost the Government monetarily. A new contractor would have to develop new systems or procedures for performing these functions as the current systems are proprietary to BAE. During a transition period, BAE would only be able to train the new contractor in very basic skills and not the daily performance of the required services, thus making a transition period largely ineffective and costly.

Continuation of incumbent contractor support results in significant risk avoidance and cost avoidance. Though it is likely another contractor could obtain enough knowledge over the course of three years to perform reasonably, the Government would face needless burdens, additional costs, and a detriment in the level of quality and output throughout that period. These burdens, costs, and determents will likely cause great burden on the overall mission for the F-15.

Accordingly, BAE Systems is the only source capable of providing the services described in Section 3 without the USAF experiencing unacceptable detriments in fulfilling its requirements. BAE has a proven history of performance of the required services and has invaluable knowledge and understanding of the ADTS 2000 and HDTS test stations and software being the manufacturer of the stations and have been performing TPS maintenance at Robins AFB and contractor facilities for approximately fourteen years. Award to any source, over than BAE, would be difficult given the propriety nature of the hardware and software within the ADTS 2000 and HDTS, the propriety tools and processes BAE has developed which assist in the performance of the effort, and the years of invaluable knowledge gained from supporting the ADTS 2000 and HDTS against the F-15 aircraft.

6. Efforts to Obtain Competition:

As required, and as appropriate funding allows, actions will be taken to develop replacement units for those F-15 avionics systems that drive the highest availability issues. Inherently, newly developed replacement systems will provide for increased reliability, maintainability, and supportability. Newer systems typically are tested on different test stations, not the ADTS 2000 or HDTS, so BAE’s expertise on these stations will be less of a factor. Any newly developed replacement systems should aid in reducing the critical nature of services required by the Government. However, as this is anticipated to be a slow process, BAE’s assistance with the present test stations will be needed as long as they are in use by the F-15 avionics depot.

Were the above effort to come to fruition prior to the end of the effort described in Section 3, the Government would evaluate the competitive environment prior to exercising the next option year.

7. Contracting Officer Determination:

The Contracting Officer has determined that the anticipated cost to the Government for this acquisition will be fair and reasonable, as services offered on the GSA MAS Professional Services Schedule have already been determined fair and reasonable.

Assisted Acquisition Services Division

Southeast Sunbelt Region

Limited-Sources Justification (FAR 8.405-6(a)(1)(i)(B))

1. Requiring and Contracting Activity

a. Requiring Activity: Department of the Air Force 409 SCMS/GUEA/F-15 Supply Chain Management (SCM)

235 Byron Street Suite 19A Robins AFB, GA 31098

b. Contracting Activity General Services Administration Federal Acquisition Service Assisted Acquisition Services Division 401 West Peachtree St., NW Suite 2700 Atlanta, GA 30308

c. Contracting Officer: Keith Echols

d. Task ID: ID04160054

e. Estimated Value of This Action:

f. Professional Services Schedules (PSS), Professional Engineering Solutions, SINs 871-4 and 871-6

2. Nature of Description of Action:

The General Services Administration (GSA), Federal Acquisition Services (FAS), Assisted Acquisition Services Division (AASD) received a requirement from the US Air Force 409 SCMS/GUEA F-15 Supply Chain Management (SCM) directorate for the procurement of engineering services required for the BAE Analog Depot Test System (model ADTS 2000) and Hybrid Depot Test System (model HDTS) Test Program Sets (TPSs). This requirement will include the maintenance of TPSs and making the TPSs operate proficiently on the ADTS 2000 and the HDTS. These services will be procured on a Firm-Fixed-Price basis. This acquisition is conducted under the authority of the Multiple Award Schedule Program (see FAR 8.401).

3. Description of Supplies or Services:

The WR-ALC F-15 Supply Chain Management Engineering Organization, 409 SCMS/GUEA, provides the technical expertise and engineering staff necessary to implement the hardware and software updates, F-15 production support, and modifications necessary to sustain and/or maintain F-15 avionics systems.

This effort is for performance-based engineering services required for the BAE Analog Depot Test System (model ADTS 2000) and Hybrid Depot Test System (model HDTS) Test Programs Sets (TPSs), which are used by the 409 SCMS/GUEA for depot maintenance of approximately 140 Shop Repairable Units (SRUs) for the F-15 aircraft.

This effort covers the maintenance of TPSs, making the TPSs operate efficiently on the ADTS 2000 and the HDTS.

and this effort will focus on continued maintenance of those TPSs already converted to the BAE-built ADTS 2000/HDTS systems. A cadre of BAE ADTS 2000/HDTS systems’ specialists work at Government facilities with additional support provided from contractor facilities.

Period of Performance

The Period-of-Performance (POP) will consist of a nine (9) month Basic period with four one-year option periods.

Each option will be funded during its fiscal year. At present, the avionics depot has no plans to eliminate the ADTS 2000 or HDTS test stations, so the multi-year contract is to ensure maintenance of the TPSs during the time the depot will be using the test stations.

Source:

BAE Systems Technology Solutions & Services, Inc. (BAE) 520 Gaither Road Rockville, MD 20850-6198 Cage Code: 99789

Cost Breakdown:

Labor Travel Total

Basic Period

Option Year One

Two

Three

Four

Totals

4. Authority:

The authority to pursue a sole source acquisition is FAR 8.405-6(a)(1)(i)(B): “Only one source is capable of providing the supplies or services required at the level of quality required because the supplies or services are unique or highly specialized.”

5. Justification Rationale:

The F-15 Supply Chain Management Engineering Organization, 409 SCMS/GUEA, is responsible for technical and engineering tasks necessary to improve the Reliability and Maintainability (R&M) of the F-15 peculiar avionics. Due to aging aircraft, increasing legacy obsolescence, high flying hours, hardware afflicted with latent physical defects, environmentally stimulated intermittent failures, and inconsistencies between system built-in test (BIT) and I-Level tests or between I-Level tests and depot level tests the F-15 peculiar avionics have suffered from poor R&M problems. Failure to address these inconsistencies lead to avionics hardware cycling between organizational level (O-Level) and intermediate level (I-Level) and between I-Level and depot level. Avionics assemblies can be falsely labeled as “Bad Actors” because of these TPS deficiencies.

This leads to hardware ultimately being identified and submitted for the Product Quality Deficiency Reports (PQDR) and Material Improvement Programs (MIP), which can tie it up indefinitely in the supply/repair pipelines. These factors have and will continue contributing to unsatisfactory F-15 MICAP conditions. Immediate applicable engineering attention to analyze and correct the previously described R&M conditions has been necessary to resolve them. Failure to continue this effort in a timely manner would severely hinder the required and necessary support of the program. Any contractor awarded this effort must be able to start on the first day fully functioning and competent on the station and Unit Under Tests UUTs.

BAE is the only company that possesses the unique engineering capabilities and knowledge needed to successfully meet the Government’s requirement without any significant learning curves. Although Market Research identified other potential sources, none have the knowledge or proprietary tools and processes which BAE possess and as such could not perform the services required at the required level of quality. In addition to the detriments associated with losing the level of quality currently being provided, competing this effort would pose monetary constraints to accommodate for a period of learning. The below will discuss all aspects in detail.

BAE originally manufactured and supplied the ADTS 2000/HDTS Test Systems to Warner Robins ALC in support of the F-15 Program. These BAE test systems contain some BAE proprietary hardware and software designs. BAE Systems is intimately familiar with the F-15 avionics systems tested on the ADTS 2000 and HDTS above.

BAE’s wealth of essential knowledge is needed to quickly and successfully perform this requirement. In general, BAE is uniquely qualified to provide the required services as

BAE alone possesses the knowledge on how items within the station directly affect TPS support work, such as synchronization circuitry and the emulation of the precision AC/DC sources that were in the old station. In more specific terms, this knowledge includes:

- In-depth understanding of the unique functionality of over 150 different F-15 peculiar avionics circuit cards. This knowledge/understanding includes System/Line Replaceable Unit (LRU)/Shop Replaceable Unit (SRU) circuit design, system interfaces, capabilities, and test requirements.

- In-depth knowledge of the unique and specific functionality of two (2) different F-15 peculiar avionics systems’ Automatic Test Equipment (ATE) stations used to test/troubleshoot the systems. This knowledge/understanding includes test station equipment/components/ operation of station to test systems, and ability to evaluate the suitability and capability of the ATE to accurately and consistently perform testing.

- In-depth knowledge of the peculiar avionics systems’ and ATE’s Test Program Sets (TPS) language and design specific and unique to each system. This knowledge/understanding includes Abbreviated Test Language for All Systems (ATLAS), Teradyne L-200, Logic Automation Stimulus And Response (LASAR), MS-DOS, MS Windows, Visual Basic, C, C++, and the multiple WR- ALC databases used in managing assets.

- In-depth knowledge of the testing and repair processes and procedures unique to F-15 peculiar avionics to ensure Operational Safety, Suitability and Effectiveness OSS&E. This knowledge/understanding includes all levels of testing from aircraft to system/LRU/SRU, performance of SRU, assembly, and component level repair and/or replacement, Air Force technical data, and Technical Order (T.O.)

documentation controlling the operation of depot equipment and repair of avionics systems.

- Identify causes of SRU test deficiencies, such as high failure procedures, the effect of obsolete part replacement, and the use of components and subassemblies in a manner inconsistent with their original design and how these identified problems impact next higher assemblies (SRU, LRU, major aircraft systems).

- Specify whether the problem is an inherent reliability or maintainability deficiency due to LRU or SRU design or whether the problem is due to TPS design deficiency.

- Determine, through analysis, solutions to each problem identified and the TPS performance improvement to be gained by each solution.

- Identify specific test incompatibilities and deficiencies with ATE design, TPS, compilation and provide integration of proposed corrections or changes to improve ATE capability and/or eliminate fault identification/isolation problems.

- Conduct testing to verify modifications do not adversely impact system ATE operation, that existing maintenance testing concept is minimally impacted if at all, and that intended design of the solution has been met.

TPS maintenance is facilitated by a proprietary software tool developed by BAE that captures original ATLAS-416 digital stimulus pattern data and converts it to reformatted

7. Market Research:

Market Research was conducted as outlined by FAR 10.002. The review consisted of internet searches including the U.S. Federal Government System of Award Management (SAM) website, which included the CCR dynamic small business (SB) search database, various company capabilities statements, past experience with similar contracts, and discussions with other Government personnel who have lead similar efforts. As described in Section VI above, market research, in accordance with FAR Part 10, was conducted by synopsis of the proposed acquisition, advising industry of the pending acquisition and soliciting inquiries from interested parties. A number of large, small, and small disadvantaged businesses were looked at and researched as to whether or not any could provide the F-15 unique services without requiring a time consuming, risky learning curve. No company found in the NAICS search conducted during research listed experience with Test Program Set Development. Although Tyonek displays some familiarity with ATLAS programming language, they do not show experience necessary in writing TPS software in ATLAS test language.. Only BAE has the unique and highly specialized talent and knowledge necessary to perform the Government’s requirement successfully. This highly specialized talent and knowledge is required to mitigate mission impacts which could lead to excessive mission detriments such as, F-15 MICAP rates and grounded aircraft.

In response to a Request for Information (RFI) posted on FedBizOpps, one other company responded with information. Tyonek’s submission was reviewed and detailed information is in the market research report included in this package. The learning curve of 3 years will make it impossible for Tyonek to immediately step in and begin work on the requirements of the 409th as they do not have the experienced people available to work on the ADTS 2000 or HDTS stations and BAE holds proprietary software tooling..

The Government has determined that these services could be procured from BAE through the Professional Services Solution, SINs 871-4- and 871-6.

8. Other Supporting Facts:

BAE has the capability to provide the services that will meet the Government’s requirement. Utilizing BAE for this requirement would allow the Government to receive the greatest potential in delivering the maximum amount of serviceable F-15 avionics peculiar assets For example, the SRUs of the Wide Field of View Head Up Display (WFOV HUD) is one of the F-15 peculiar avionics systems covered under the Government’s requirement. The WFOV HUD is a highly complex system and wavered between the number one and two grounding supply item for the F-15 fleet for six months in FY12. In FY12, the WFOV HUD accumulated over 100,000 MICAP hours. The WFOV HUD was carcass constrained by problems encountered with the supply of combiner assemblies. Therefore, each WFOV HUD SRU that came in for repair or engineering investigation (PQDR/MIP) equaled a grounded aircraft, making the turn-