RSS LSJ_40thFLTS_FINAL_for redaction_Redacted.pdf

General Services Administration (GSA) Federal Acquisition Service (FAS)

Southwest Supply Acquisition Center (SSAC)

LIMITED SOURCE JUSTIFICATION

ID22200039

IDENTIFICATION OF THE AGENCY AND THE CONTRACTING ACTIVITY

The requiring activity is 40th Flight Test Squadron (FLTS) at Eglin Air Force Base. The contracting activity is the General Services Administration, Global Supply, Southwest Supply Acquisition Center, 819 Taylor St., Fort Worth, TX 76102.

DESCRIPTION OF THE ACTION BEING TAKEN

This action is to justify the purchase of a Limited Source Delivery Order for the supply and installation of one (1) Relocatable Simulator Shelter (RSS) to support the mission of the 40th FLTS. This Limited Source Justification (LSJ) serves to support the procurement as a one source award for the required RSS as it is only available from SeaBox, Inc.

The Delivery Order was awarded against SeaBox’s Multiple Award Schedule (MAS) contract, GS-07F-253AA in accordance with FAR 8.405-6(a), an order exceeding the micro-purchase threshold may be established based on a limited source justification.

DESCRIPTION OF SUPPLIES REQUIRED

For the total turnkey solution of product delivery and installation, the following RSS and shelter options are included in the Delivery Order:

Relocatable Simulation Shelter – 61’8’’ side, P/N SB3897.RSS.8S (No substitute or equal)

Set Up Services for Relocatable Simulation Shelter – 61’8’’, P/N SB3897.RSS.8S.SETUP (No substitute or equal)

Antenna Mounting for Relocatable Simulation Shelters, P/N SB3897.RSS.AM (No substitute or equal)

Security Entry Vestibule for Relocatable Simulation Shelters, P/N SB3897.RSS.VEST (No substitute or equal)

200 Amp Electrical Panel for Relocatable Simulation Shelters, P/N SB3897.RSS.200EP (No substitute or equal)

Ultra-sensitive, non-ultrasonic Fire Detection System for Relocatable Simulation Shelters SB3897.RSS.8S, P/N SB3897.RSS.FDS.8S (No substitute or equal)

Rubber matting floor covering (per frame) for Relocatable Simulation Shelters, P/N SB3897.RSS.RM (No substitute or equal)

Additional Lightening Protection (Open Market) Warranty: The Manufacturer shall warrant labor and materials for one year from the original date of sale and does not include consumables or maintenance items.

Limited Source Justification – SeaBox Relocatable Simulation Shelter

The award value of this Delivery Order for a total RSS solution is $1,132,480.32.

IDENTIFICATION OF STATUTORY AUTHORITY

This acquisition is conducted under the authority of the Multiple Award Schedule (MAS) program. The primary statutory authorities for MAS are Title III of the Federal Property and Administrative Services Act of 1949 (41 USC 251 ET SEQ), and Title 40 U.S.C. 501, Services for Executive Agencies.

To ensure that the Government receives the benefit of previously negotiated pricing, terms, and conditions, competition was limited for in accordance with 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.

Orders placed under the Federal Supply Schedules are exempt from the requirements in FAR 6, thus the requirement for full and open competition does not apply in accordance with FAR 8.405-6. The Contracting Officer (CO) completed this justification document for a sole source acquisition by utilizing the format listed in FAR 8.405-6(c). Approvals at the specified levels in accordance with FAR 8.405-6(d)(2) were obtained.

Additionally, the Federal Supply Schedules allows an ordering activity Contracting Officer to add open market items to an individual order for administrative convenience as long as all applicable acquisition regulations pertaining to the purchase of those items have been followed in accordance with FAR 8.402(f). In addition to the customized lightening protection, the freight and contractor travel for installation are not available on SeaBox’s MAS contract, GS-07F- 253AA, and considered to be open market. The open market contract value represents approximately 6% of the overall contract total. Acquisitions conducted under simplified acquisition procedures are exempt from the requirements in FAR 6 thus the requirement for full and open competition does not apply in the accordance with FAR 8.402(f).

Finally, this LSJ will document that the products/features are essential to the Government’s requirements as market research indicates that no other company’s products or services meets or can be modified to meet the requirements of the 40th FLTS. This LSJ will be posted to beta.SAM within fourteen (14) days of contract award in accordance with FAR 8.405-6(a)(2)(i).

DEMONSTRATION OF THE PROPOSED MANUFACTURER’S UNIQUE

QUALIFICATIONS TO PROVIDE THE REQUIRED SUPPLY

The 40th Flight Test Squadron (FLTS), as a part of the 96th Operations Group (OG) and Test Wing (TW), is an active duty USAF unit which tests and evaluates weapons, navigation and guidance systems, and command and control systems. The 40 FLTS, as a part of the 96 TW, provides support for three wings, the Armament Systems Directorate, nine operating locations, five detachments, and more than 25 associate units. In addition to the 40 FLTS active duty mission, the 40 FLTS also supports the Air National Guard (ANG) Air Force Reserve Test Center (AATC) who utilizes its simulators and aircraft for training and testing.

Historically, the USAF has shifted its focus from expensive live-fire training to simulator-based training due to its increased accessibility and cost efficiency. However, lack of adequate facility space has forced many USAF and ANG units to either reallocate existing, necessary operating space for simulator programs or utilize DoD-funding to perform expensive facility compliance actions to make existing areas suitable for high powered simulators. Due to the expanding need for simulators within the USAF, as well as the limited facility space across many USAF bases, both the USAF and the ANG required a cost-effective solution to provide additional areas for simulator installations. That solution was found through the Relocatable Simulation Shelter as manufactured by SeaBox, Inc.

In FY15, the US Army Program Executive Office of Simulation, Training, and Instrumentation (PEO STRI) contracted SeaBox, Inc. to develop a relocatable shelter for ANG simulators. As the program office for many ANG simulators, the 502 Trainer Development Squadron (502 TDS) relayed all simulator specifications and design requirements to PEO STRI and SeaBox, Inc. to ensure that the RSS developed would not only meet the operating requirements for the ANG but would also remain a versatile shelter to support of variety of ANG simulators. After considerable market research and the evaluation of multiple vendor solutions, SeaBox’s Relocatable Simulation Shelter proved to be the best solution for ANG to mitigate the lack of facility training space on ANG bases.

Through FY16 and into FY17, PEO STRI and SeaBox, Inc. fielded five (5) standard (1X) SeaBox RSSs capable of housing three (3) different types of ANG simulators. In FY17 through FY19, the 502nd TDS worked with SeaBox to field the Relocatable Simulation Shelter into a more robust shelter which better met mission requirements for a variety of ANG simulators, including for the F-16 Mission Tactics Trainer-G (MTT-G). During this time, the 502nd TDS supported the fielding of a total of seventeen (17) “Generation 3” Relocatable Simulation Shelters. This resulted in the ANG being fleeted with the SeaBox The 502 TDS remains the program management office and contracting officer representative (COR) for the Relocatable Simulation Shelter program, and as a result of the 502 TDS’ experience and expertise with the Relocatable Simulation Shelter program, the 40 Flight Test Squadron (FLTS) requested assistance with the procurement of a Relocatable Simulation Shelter through the 502 TDS’ existing Blanket Purchase Agreement (BPA), GS07Q17BGA0002.

The 40 FLTS, in partnership with the 96 TW, and under the Air Force Material Command (AFMC), on Eglin Air Force Base in Okaloosa County, FL, has six (6) various F-15 and F-16 simulators that are currently without adequate training space. Specifically, the 40 FLTS has been identified as the first unit to receive the new F-15EX and its subsequent simulators. As a lynch pin for fourth generation fighter developmental tests (DTs), the 40 FLTS continues to remain in-line for new aircraft and training systems, but does not have adequate facilities to house and operate corresponding training and mission rehearsal devices. After considerable research, the 40 FLTS has determined that adequate facilities that meet necessary volume, HVAC, electrical power, and security requirements for both on-hand and forecasted adds of training and mission rehearsal devices does not exist at Eglin AFB, FL.

The F-15EX is being procured to help meet the fighter aircraft requirement outlined in the National Defense Strategy. To help quickly meet this need, a rapid acquisition timeline is being followed. Due to the rapid nature of the F-15EX program, the 40 FLTS is precluded from utilizing military construction (MILCON) funds to build a new facility which would meet its requirements. Currently, while a MILCON strategy is in progress, any MILCON facility with a required, expanded security vault could not be procured for at least five (5) years and would in additional estimated costs of $5,000,000.00 Both the MILCON timeline and its cost is prohibitive to the F-15EX and simulator procurement timeline which is currently expected to be delivered in Q1, FY21. As part of its mission to create a “test town plan,” and as the first unit for at least three (3) years to receive it, the 40 FLTS will test the F- 15EX for all other F-15 USAF units. As a result, it is imperative that the 40 FLTS procures an adequate space for the F-15EX before its expected delivery. The 40 FLTS currently has no space to house the F-15EX and any additional delay with procuring a suitable simulator location forces the F-15EX manufacturer to store the trainer for at least four (4) extra months.

While the manufacturer can currently provide storage at no additional cost to the Government, delay in installation will not only directly and adversely affect aircrew training and qualification, it will also cause insurmountable delays in the overall test schedule.

Currently, the Government estimates that a six (6) month to twelve (12) month delay will ultimately incur up to $50,000,000.00 in extra costs for the Government. Aside from the cost, and perhaps more critically, the schedule slippage will cause the Government to miss serious milestones to field the F-15EX to the warfighter community while also forcing the Government to further sustain the aging F-15C models in its place.

In addition to the upcoming F-15EX simulator, the 40 FLTS’ shelter requirements also includes unique equipment for all F-15 variants (F-15E and F-15C) as well as multiple configurations of the F-16C (Block 40/50). Current generation simulators have increased security requirements and need larger volume space and electrical power to accommodate advanced visual displays and processing hardware for high fidelity training. The 40 FLTS has identified six (6) different types of simulators which need to be consolidated in one training location. Due to severe space limitations across Eglin AFB, several simulators are currently not set up for training and therefore cannot be utilized. The Relocatable Simulation Shelter would allow for the consolidation of all 40 FLTS simulators, would free up space in existing buildings, centralize training, and standardize security requirements.

To add to the criticality in finding a suitable location for the 40 FLTS F-15 and F-16 simulators, the 85 Test and Evaluation Squadron (TES), also on Eglin AFB, simultaneously utilizes these same simulators for training and testing. To date, the 85 TES cannot operate many of the noted simulators due to the space limitations on Eglin AFB. As the Operational Test section of the Air Combat Command (ACC), two listed MAJCOMS (ACC and AFMC) would immediately and routinely utilize the Relocatable Simulation Shelter upon its installation. The consolidation of the 40 FLTS simulators in a Relocatable Simulation Shelter would allow multiple MAJCOMS, with the potential for more as simulator needs change, to benefit from the Relocatable Simulation Shelter and the enormous scope that it will support.

In Q4, FY19 the 40 FLTS began the process to procure an “out of cycle site survey” (OOCSS) from SeaBox through GSA in an effort to utilize the 502 TDS’ established BPA GS07Q17BGA0002. In anticipation of their funding meeting in February 2020, the 40 FLTS expressed a need for an advance site survey in order for the manufacturer to approve proposed sites which would allow them to approach the funding meeting with several courses of action. The 40 FLTS sent the required OOCSS funding to GSA, and the manufacturer performed the OOCSS in February 2020. Additionally, as an indication of the Relocatable Simulation Shelter’s specific technical capabilities, the Operational Fly Program (OFP) Combined Test Flight (CTF), also on Eglin AFB, is investigating SeaBox to install the same shelter besides the 40 FLTS’ Relocatable Simulation Shelter. The OFP CTF will be utilizing the same project plans and contractor for site preparation and is currently partnering with the 40 FLTS to pour its required concrete pad in advance at a significant cost savings initiative to the Government. After receipt of the OOCSS manufacturer report, the 96 TW and the F-15, F-16, and F-15EX Special Programs Offices (SPOs) provided advanced funding in excess of $930,000 which will be utilized for site preparation for both the 40 FLTS and the OFP CTF Relocatable Simulation Shelters. The award for the site preparation is expected to be awarded by the end of December 2020.

Additionally, in coordination with the OOCSS, the 40 FLTS, 502 TDS, and SeaBox partnered to perform significant, in-depth analysis of the 40 FLTS’ simulators and its fit in the proposed 2X Relocatable Simulation Shelter. During the OOCSS effort and the associated analysis, the Government expended significant labor costs and time to define specifications tailored for the 40 FLTS simulators. Specifically, the 40 FLTS and 502 TDS representatives held multiple teleconference design review meetings with SeaBox throughout Q1 and Q2, FY20 which resulted in the confirmation that a customized 2X Relocatable Simulation Shelter could be utilized for all the identified 40 FLTS simulators, and that at least two of the proposed sites could be used as viable COAs for the upcoming Wing-level funding meeting. The Government has expended considerable time and funding to determine that the SeaBox Relocatable Simulation Shelter can meet the technical needs of the 40 FLTS’ simulators and to ensure that it can be received in the stringent timeline outlined by the F-15EX installation schedule. No other manufacturer can provide a simulator housing solution with these same technical requirements and in the same fast-tracked schedule as the Relocatable Simulation Shelter manufacturer.

Generally, the support and operation of a second shelter system brand would cost more to the Government in terms of time, labor costs, site surveys and reports, and design analysis between current SeaBox Relocatable Simulation Shelters and other shelter systems. Installing another shelter system via another manufacturer would not be in the best interest of the Government.

Although the 40 FLTS approached the Relocatable Simulation Shelter with the intent to utilize the existing 502 TDS BPA, unforeseen Government funding delays pushed its effort beyond the BPA expiration date. Despite this, a procurement of the SeaBox Relocatable Simulation Shelter from the GSA schedule as a one-time buy against the vendors mass contract would expedite the fielding, maintain utilization of existing analysis, and allow for the continuation of already in-progress site preparation activities.

The main factors that justify the restriction to this single vendor are as follows:

The Relocatable Simulation Shelter is essential to the 40 FLTS since it allows for the installation of critical simulators where facility space does not currently exist. This is highly crucial for on-going training operations which are vital to meet mission readiness goals, the national Defense Strategy, and the rapid acquisition timeline for F-15EX procurement.

A procurement of the Relocatable Simulation Shelters from the GSA schedule is expected to expedite the fielding of the 40 FLTS Relocatable Simulation Shelter versus other procurement streams. A fielding delay of a shelter solution would critically impact training and would require the following additional costs:

o Reduced training and continued storage for two F-16 simulators. Due to the lack of existing space, there are no plans to utilize either of these simulators until an acceptable and secure location like the RSS is procured.

o A delay in fielding a shelter and its respective F-15EX simulator would result in continued training delays and storage costs. Fielding of the F-15EX to units around the world is dependent on the testing, training and analysis completed by the 40 FLTS over the next three years.

Eglin AFB, home of the 40 FLTS, is located in a hurricane evacuation zone and all buildings and shelters must meet stringent hurricane protection requirements. With its foundation, the Relocatable Simulation Shelter is designed to meet or exceed the required environmental load conditions per IBC 1806.2, ASCE 7-10, and NEHRP FEMA P-750 with load cases of 200 mph wind/0 psf snow, 100 mph wind/80 psf snow, and Seismic Design Category D. Unique to the Relocatable Simulation Shelter, these ratings are achieved without the use of guy wires which has the potential to create hazardous obstructions during maintenance and upkeep of the surrounding area. As a real-life example of hurricane criticality, in October 2018, Hurricane Michael, a Category 5 hurricane, decimated Tyndall AFB which is approximately 60 miles away from Eglin AFB. The 40 FLTS’ vulnerability in a hurricane-prone area critically necessitates the use of the hurricane rated Relocatable Simulation Shelter.

The identified 40 FLTS simulators are very costly and very technical, and require installation in specific conditions for optimal operation. Comparable shelters may have significant issues such as light leaks, material that promotes static electricity, unbalanced floors, and non-sound deadening structures. The Relocatable Simulation Shelters and its accessories are constructed of sturdy galvanized steel with specialized floor anchors to eliminate bowing and unbalance, and can support even the largest 40 FLTS simulators. Critically, the 40 FLTS is located in Florida which sees more lightning than any other area of the United States. Due to its propensity for thunderstorms, particularly in the summer, and its immediate positioning in a lightning prone area, it is particularly crucial that the 40 FLTS utilizes a shelter that has adequate lightning protection. In its technical discussions with the manufacturer, SeaBox was able to outline an updated design which utilizes a grounding ring that ties into the concrete pad to protect the costly and one-of-a-kind simulators inside the Relocatable Simulation Shelter. As a part of its site preparation activities, the 40 FLTS has already contracted the work to lay the required grounding ring in the concrete pad for tie-in into the Relocatable Simulation Shelter electrical network. Rushing a procurement with another manufacturer would put the Government at risk if key design implementations such as lightning protection were missed.

Due to the constantly evolving training requirements at the 40 FLTS, simulators often need to be moved to other locations to meet mission requirements, and new simulators will be routinely fielded for developmental testing as a part of the test town plan. The SeaBox 2X Relocatable Simulation Shelter can be set up in two weeks without any specialty equipment and can be disassembled, packed, transported, and reinstalled with relative ease. The redeployable design increases the usable life span and cost-effectiveness, and represents a versatile training solution for the 40 FLTS.

While many of the 40 FLTS simulators have varying power requirements, the

Relocatable Simulation Shelter has customizable and expandable power capabilities that have been designed to meet the requirements of various and numerous trainers.

SeaBox has performed an analysis of the 40 FLTS power requirements and created an electrical plan for the identified existing and future simulators that make up its test town plan.

Many of the 40 FLTS simulators will need to operate in a classified environment which requires a security vault. The SeaBox Relocatable Simulation Shelters have been designed for Open Storage capability and each shelter meets ICD-705 physical security requirements. Additionally, the Relocatable Simulation Shelter cost options, such as the security vestibule and the upgraded Sensitive Compartmented Information Facility (SCIF) doors represent accessories that the 40 FLTS requires when operating with classified information. The accessories and built-in security capabilities will dramatically expedite the ability of two MAJCOMs on Eglin AFB to utilize vital simulators essential for continued testing and training.

The Relocatable Simulation Shelter requires limited funds for site preparations, including concrete, power, and communication requirements. Additionally, these funds have already been requested and received at the 40 FLTS upon completion of the OOCSS, and subsequent contract work for site preparation has already begun.

SeaBox, Inc. is the original equipment manufacturer (OEM) for the requested Relocatable Simulation Shelter listed in “Description of Supplies Required” section above. The SeaBox RSS and accessories listed above are updated reproductions of the shelters fielded by PEO STRI in FY16 and FY17, and are fully compatible in form, fit, and function. As a result of the PEO STRI procurement, with the exception of one shelter located in Alaska, ANG is pure-fleeted with SeaBox Relocatable Simulation Shelters and no other ANG simulators are housed in other brands of shelters. As ANG has identified the SeaBox brand as the only relocatable simulation shelter available to meet the requirement for standardized equipment due to the specialized design of the SeaBox Relocatable Simulation Shelters, the procurement of other brand name shelters would ultimately reduce functionality and integration time.

DETERMINATION THAT THE ANTICIPATED AWARD WILL BE THE BEST

VALUE

A best value determination will be documented. Prior to award the contract, the Contracting Officer will seek additional price reductions from Sea Box. The quote was reviewed to ensure that pricing and terms were in accordance with the quoter’s Multiple Award Schedule (MAS) contract.

The Contracting Officer used a variety of price analysis techniques in order to substantiate the price reasonableness of the items requested in the award decision document. These techniques included, but were not limited to, the following:

- requesting recent commercial and Government sales history

- making indirect pricing comparisons to:

o the same or similar items in the marketplace, o competitive published price lists, or o Independent Government Estimates

DESCRIPTION OF THE MARKET RESEARCH CONDUCTED

Market research was conducted among schedule holders to determine if there were other available sources. A review of schedule contract vendors listed under the GSA Schedule program show items of similar intended functionality; however, none with the SeaBox Relocatable Simulation Shelter specifications and customizable design features as outlined in this document that are critical to meeting the ANG’s need. To date, GSA has identified only SeaBox, Inc. as a provider of these required items. No distributors of the Sea Box relocatable shelters are known at this time.

Additionally, market research was conducted using the manufacturer’s website and other Internet sources to determine if there are any other brands compatible with the ANG’s minimum need.

At this time, no other known product meets the requirements of the 40th FLTS for a shelter’s capability of accommodating multiple types of simulators in addition to being efficiently relocatable.

OTHER FACTS SUPPORTING THE USE OF A LIMITED SOURCE PROCUREMENT

All factors are described under DEMONSTRATION OF THE PROPOSED

MANUFACTURER’S UNIQUE QUALIFICATIONS TO PROVIDE THE REQUIRED

SUPPLY above.

Additionally, the Army’s Boom Operator Simulator System (BOSS) prime contractor, FAAC, Inc., purchased one Oshkosh brand shelter for an ANG simulator at Eielson Air Force Base near Fairbanks, Alaska. This purchase was conducted prior to the PEO STRI awarding their initial contract to Sea Box. It was found by the ANG that Oshkosh brand shelters were only manufactured in one size, were not able to be transported by air, were not easily relocatable, and were nearly four times the cost of a standard SeaBox Relocatable Simulation Shelter.

The Oshkosh brand shelters, as a result of the factors stated above, were ultimately determined to not be in the best interest of ANG and its simulator programs. Aside from the one Oshkosh brand shelter at Eielson Air Force Base, the ANG has no other simulators housed in “other than” SeaBox branded shelters and is otherwise pure-fleeted with SeaBox brand Relocatable Simulation Shelters.

As a result of the purchase of the single Oshkosh simulator shelter under the BOSS contract, PEO STRI and ANG determined that the utilization of the SeaBox Relocatable Simulation Shelters alone was and continues to be in the best interest of the Government.

STATEMENTS OF ACTION TO OVERCOME BARRIERS TO COMPETITION

For any future requirements, the ANG has the ability to conduct additional market research to determine if other vendors are capable of providing products that meet the ANG’s shelter requirements of flexibility, customization, and ease of relocation. For this procurement, however, Sea Box has already performed the OOCSS under the now expired BPA GS07Q17BGA0002.

To have another company provide an alternative shelter would result in a duplication of costs in terms of the site survey.

Competition Advocate’s Certification:

I, the approving authority, determine that the circumstances identified in this document are accurate; therefore, limiting sources under FAR 8.405-6(a)(1)(i)(B) is justified. The signature below also represents approval of this Limited Source Justification.

Competition Advocate FAS Greater Southwest Region