Sole_Source_Justification_and_Approval-Redacted.pdf

Control No. 2017-20 Contractor: Ravenswood Solutions

Program/Equipment: FlexTrain Instrumentation and Communication Support Services

Version – MAY 2016 FOR OFFICIAL USE ONLY

JUSTIFICATION REVIEW DOCUMENT

FAR PART 6 JUSTIFICATION AND APPROVAL FOR OTHER THAN

FULL AND OPEN COMPETITION

Program/Equipment: This requirement is for the Army Capabilities Integration Center (ARCIC) to provide FlexTrain Instrumentation and Communications Support Services

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

Amount:

Prepared by:

Contracting Officer:

Technical:

Requirements:

Reviews: I have reviewed this justification and find it adequate to support other than full and open competition.

Program Manager

Signature: ___________________________ Date: _____________

Small Business Specialist, Small Business Programs

Division Chief, MICC-Eustis

Director, MICC-Eustis

Deputy Assistant Director, Small Business Programs:

Legal Counsel:

FAR Part 6 Justification and Approval for Other than Full and Open Competition

1. Contracting Activity: Mission and Installation Contracting Command (MICC)-Fort Eustis, Virginia.

2. Description of Action: The Brigade Modernization Command (BMC), Army Capabilities Integration Center (ARCIC) requests a new Firm-Fixed Price (FFP) contract with Ravenswood Solutions, 3065 Skyway Court, Fremont, California. The Government projects award for March 2017 and fiscal year 2017 Operations and Maintenance funds will be used.

An acquisition plan is not required because this procurement does not meet the threshold at Defense Federal Acquisition Regulation Supplement 207.103(d)(i)(B).

3. Description of Supplies/Services: This requirement is for the provision of FlexTrain instrumentation, exercise communications, and personnel tracking system to include system set-up, operation, corrective maintenance of all instrumentation, teardown, and delivery of an after action review (AAR) package for the U.S. Army Training and Doctrine Command (TRADOC)’s Network Integration Evaluation (NIE) exercise program.

FlexTrain (Ravenswood Solutions, a subsidiary of SRI International, the Original Equipment Manufacturer) is a rapidly deployable, Global Positioning System (GPS) -based instrumentation system that tracks vehicles and participants down to the Soldier level, allowing unit leaders to view the entire battlefield on the Common Operational Picture (COP) or Tactical Analysis Facility (TAF) from any location or vantage point. It enables Real Time Casualty Assessment (RTCA) availability and a report of all Multiple Integrated Laser Engagement System (MILES) events. The BMC, ARCIC located at Fort Bliss, Texas, requires the provisioning and integration of 1,500 FlexTrain First Responder Enhanced Dismount Instrumentation 2nd version (FREDI-2s) into a number of vehicles, individuals, and command post locations supporting the execution of the NIE

17.2 event preparation at Fort Campbell (8-31 March 2017) and Fort Bliss and White Sands Missile Range (WSMR) (1 June 2017-10 August 2017). The BMC mission is to conduct physical integration and evaluations of network, capability packages and other adaptive and core capabilities in order to provide doctrine, organization, training, materiel, leadership and education, personnel and facilities recommendations to the Army for future doctrine, and training development and implementation. The use of this electronic equipment and software will minimize the labor intensive process of data collection and provide FlexTrain and MILES support throughout the defined exercise scenario area of operations.

Period of Performance: 8-31 March 2017 and 1 June 2017- 10 August 2017.

Total Value:

Control No.

Contractor: Ravenswood

4. Authority Cited: 10 U.S.C. 2304(c)(1), as implemented by FAR 6.302-1 (a)(2), Only One Responsible Source and No Other Supplies or Services Will Satisfy Agency Requirements

5. Reason for Authority Cited: Ravenswood Solutions, (wholly owned subsidiary of SRI International) is the only responsible source that can satisfy the Army’s requirements.

a. As described at FAR 6.302-1(a)(2), when the supplies or services required by the agency are available only from one responsible source, or for DoD, NASA and the Coast Guard, from only one or a limited number of responsible sources, and no other types of supplies or services will satisfy agency requirements, full and open competition need not be provided for. As further described in FAR 6.302-1(c), an acquisition or portion of an acquisition that uses a brand-name description or other purchase description to specify a particular brand-name, product, or feature of a product, peculiar to one manufacturer does not provide for full and open competition, regardless of the number of sources solicited; and shall be justified and approved in accordance with FAR 6.303 and 6.304.

b. The constraints to this acquisitions include mandatory exercise schedule requirements, unique features, and the existence of proprietary licenses. The exercise schedules for this requirement are 8-31 March 2017 and 1 June 2017- 10 Aug 17. This training schedule is determined by the Army Chief of Staff Training priority. FlexTrain provides unique features to the military to include seamless review of specific times and training events using a highly realistic interface. The FlexTrain support requires interoperability and validity of training data captured, and training area coverage for the 100x170 kilometer range in Fort Bliss and White Sands Missile Range (WSMR). It provides the capability for trainers to produce a detailed review of any moment in the recorded mission and visibility to display graphics allowing the training participant (soldiers) to gain invaluable insight. It also provides logistic capabilities to assure all exercise events occur on schedule. The FREDI-2’s support provided by Ravenswood Solutions meets the technical capabilities for the highly specialized and unique requirements of this effort and the required interoperability and synchronization between FlexTrain and MILES. Ravenswood Solutions (wholly owned subsidiary of SRI International) is the only responsible source. FlexTrain is a complete and turn-key package for successful training and exercise events. Any attempt to compete this requirement would result in unreasonable delays as other competitors work at trying to develop the existing FlexTrain technology and interface with MILES. Consequently, these delays will result in a substantial duplication of costs to the Government that would not be offset by a theoretically lower price after competition. Furthermore, Ravenswood Solution has proprietary rights for the FlexTrain equipment and they do not permit the resale or distribution of their equipment through a third-party.

There are no other than brand-names identified and available to provide the instrumentation and communication services to ARCIC that require the brigade level training and experiment support. BMC requires an instrumentation solution that will meet its needs and be integrated and tested for the commencement of NIE 17.2 In its assessment of systems currently available, BMC reviewed those in full-time use at the

National Training Center (NTC) and Joint Readiness Training Center (JRTC); both of which were evaluated as potential solutions, however, the immediate cost, recurring maintenance costs, and the timeline for implementation render them not cost effective or timely for this annual event.

BMC looked at potential eXportable Combat Training Capability (XCTC) systems, and identified (1) the Home Station Instrumented Training Systems (HITS), a system of record that the Army owns but which does not meet BMC’s need for an expanded XCTC;

and (2) FlexTrain by Ravenswood Solutions, the OEM, which can meet the required expanded XCTC. While both systems can track individuals on the battlefield, over-laid onto a map, and allow for remote adjudication of battlefield effects, HITS is only capable of tracking up to 200 entities (a company sized element) within a 20 x 20 kilometer (km) area. NIE 17.2 exercise scenario requires coverage of training areas at Fort Bliss and WSMR that cover a 100x170 km training range and tracking up to 1,500 entities (personnel and vehicles). The FlexTrain instrumentation has the capabilities to track 1,500 individual entities (that covers a 60 km x 100 km maneuver area (or larger, scalable as required); it has also been tested to MIL-STD-810F standards and possesses a Closed Restricted Network Authority to Operate (DA302507). FlexTrain has a proven track record with the U.S. Army National Guard (ARNG) who owns the rights to all of the equipment needed to conduct instrumented training events, including tracking systems, relay towers, and the software to run the systems. All equipment, hardware, and software was developed and produced by SRI International. The performance work statement is written performance based and the FlexTrain support is provided by Ravenswood Solutions commercially.

c. Alternatives. Ravenswood Solutions is a wholly owned subsidiary of SRI International. SRI International developed and deployed FlexTrain. SRI International owns the intellectual property in several critical FlexTrain software modules and granted Ravenswood Solutions an exclusive license to these modules for military instrumented test and training events. FlexTrain instrumentation communication is proprietary in nature and Ravenswood Solutions provides the ARCIC with the complex and simultaneous exercise support required for FlexTrain integration and communication.

Ravenswood Solutions is the only company who can provide the personnel with the knowledge on the intricacies of the system that can integrate, synchronize, and transmit the data and communications that enable the interface between Multiple Integrated Laser Engagement Systems (MILES) and FlexTrain. Ravenswood Solutions has the expertise to coordinate, integrate and synchronize the FlexTrain instrumentation and communications support services.

Although this requirement in the short-term is for the provision of instrumentation capability and training exercise support of NIE 17.2, the Department of the Army (DA) has not identified FlexTrain or any other type of training exercise support to be utilized by the Army Brigade Combat Team (A-BCT) for future training requirements. However, FlexTrain is the only system to date that has been identified to effectively fill the instrumentation capability gap in support of a training exercise such as NIE 17.2 based on the data collected and overall results from the large-scale training exercises conducted by the ARNG that have similar training exercise requirements to NIE 17.2.

These FlexTrain services are critical for the accomplishment of the upcoming NIE 17.2 exercise program and the data collection of valid products. If these services are not performed, BMC cannot ensure assessment of capabilities are sufficient to adjudge test outcomes accurately which are used to support the Warfighter in theater.

There was also the consideration to not include a Common Operating Picture (COP).

A COP is a digital networking technology that allows a commander, regardless of their physical location, to share information in real-time and collaborate with other leaders on a COP of the battlefield. In order for TRADOC to develop and refine the standard on how to do “mission command” in tactical Army units, a COP is necessary to allow battlefield leaders to share data, plot real-time tactical efforts like firefights on a three-dimensional map, instantly see the updates that staff make to those efforts, improve everyone’s understanding of the situation on the ground and be able to brief to “what you see, is what I see” baseline. To not have a COP would cause mission failure, and at the very least be a detriment to the safety of any soldier on the battlefield. A COP is critical to the successful outcome of NIE 17.2 as it is a requirement of this exercise to provide TRADOC with the data to measure any capability gaps in the ever-evolving Command Post of the Future. To not procure the FlexTrain instrumentation and technical support that will provide this COP is not a viable alternative.

d. Impact. Failure to approve this non-competitive action will result in the inability of the BMC to meet Chief of Staff of the Army directives to change how the Army assesses future changes in doctrine, techniques, and equipment, to meet emerging gaps in capabilities by warfighter function. This capability is essential for providing accurate assessment of capabilities and identify systems able to fill these capabilities gaps in support of the Soldiers in theater and the eventual success in their mission protecting the United States. Without the FlexTrain support services provided by Ravenswood Solutions, the ARCIC will experience an inability to assess and continue to improve the execution of the NIEs. The NIEs will fail, the mission of the exercise will be at risk, and ultimately the failure of the NIE 17.2 event will not help the Army achieve an agile process to optimize the battle command training network.

6. Efforts to Obtain Competition: The Contracting Officer shall publish the notices required by FAR 5.201 and any bids or proposals received shall be considered. A Sources Sought synopsis was posted to FedBizOpps on 02 February 2017 with a closing date of 15 February 2017.

a. Effective Competition: Because this is a sole source action, effective competition is not applicable.

b. Subcontracting Competition: This is a single source situation. The contractor, Ravenswood Solutions is required to submit an acceptable subcontracting plan in accordance with the FAR 19.702.

7. Actions to Increase Competition: This acquisition will be synopsized in the Federal Business Opportunities as a notice of contract action IAW FAR 5.201. If other sources express interest as a result of the synopsis or other action, they will be listed in the official contract file, and the Contracting Officer may change the acquisition strategy based on the relevance of comments.

A Sources Sought synopsis was posted to FedBizOpps on 02 February 2017 with a closing date of 15 February 2017. No responses were received. Therefore the capability required for the successful completion of this effort cannot be obtained economically or efficiently through award of a competitive contract. SRI International is the OEM and owns all proprietary data and patent rights to this equipment. SRI owns intellectual property in several critical FlexTrain software modules (Antares, Transport) and has granted Ravenswood Solutions an exclusive license to these modules for use in military instrumented test and training events.

8. Market Research: Market research was conducted to determine if any other sources would be able to provide the required technical support for the equipment being used during the NIE 17.2 exercise program. It was determined that the capability required for the successful completion of this effort cannot be obtained economically or efficiently through any other source. Due to the highly specialized and unique requirements for this effort, including expertise in MILES operation and its interoperability and synchronization with the FlexTrain system, the Government has determined that Ravenswood Solutions, (a wholly owned subsidiary of SRI International) is the only source with the requisite experience and unique knowledge and expertise in performing this support.

Market Research was conducted by the Contract Specialist from 20-25 January 2017.

This research includes validating exclusion of mandatory sources, using web-searches (FPDS-NG), General Services Administration (GSA), and the world-wide web.

Procurement history was also reviewed. The previous contract was sole-sourced to SRI International with a performance period of 15 Aug 15 – 24 Oct 15; Modification P0001 extended performance to 5 Jan 16. There was not another contractor found capable to provide the highly specialized support to the BMC ARCIC required.

In accordance with Defense Federal Acquisition Regulation Supplement (DFARS) 205.205-71, DFARS 206.302-1(d), and DFARS Procedures, Guidance and Information (PGI) 206.302-1(d), Sources Sought was posted to Federal Business Opportunities on 02 Feb 17 for 14 days and the results were no responses were received.

9. Interested Sources: Ravenswood Solutions, a subsidiary of SRI International, is the only source capable of providing the proprietary equipment, setup, integration, and on-going maintenance for the FlexTrain instrumentation and tracking system. To date, no other sources have written to express an interest in this acquisition. Ravenswood Solutions developed the equipment specifically for the Army National Guard (ARNG), therefore they are the only company that can accomplish the required coordination, set-up, integration and synchronization for the 1,500 ARNG FREDI-2’s (being provided under an interagency agreement at no cost to the Government), with the balance of FREDI-2’s being provided under this contract. The notices required by FAR 5.201 shall be or have been published, and any bids or proposals received shall be considered.

10. Other Facts:

a. Procurement History:

(1) FY15, Contract Number: , SRI International Inc., Period of Performance: 15 August 2015 – 24 October 2015

(2) Contract was awarded as FFP as a sole source with SRI International.

(3) Authority: 10 United States Code 2304(c) (1) as implemented in Federal

Acquisition Regulation 6.302-1(a)(2)(iii)(B); Only one responsible source and no other supplies or services will satisfy agency requirements.

(4) The previous justification included the following actions to increase competition in paragraph 7. This acquisition will be synopsized in the Federal Business Opportunities as a notice of contract action IAW FAR 5.201. If other sources express interest as a result of the synopsis or other action, they will be listed in the official contract file, and the Contracting Officer may change the acquisition strategy based on the relevance of comments.

b. Background:

The Chief of Staff of the Army directed a change to how the Army assesses future changes in doctrine, techniques, and equipment, to meet emerging gaps in capabilities by warfighter function. (MFR, CSA, Mission Command Network Modernization Way Ahead Memorandum dated 20 February 2015) The NIE is a concept in which once yearly, an exercise is conducted focused on modernization and force development. NIE are opportunities to maximize collective resources to advance interoperability, readiness and modernization priorities by bringing as many entities and capabilities together as possible in a single event. NIE aims to assess new capabilities, organizations, and doctrine in order to determine interim solutions to Warfighter Challenges, refine and improve the Coalition Network, and develop and assess new Tactics, Techniques, and Procedures (TTPs).

The BMC identified the need to track as many entities as possible in NIE 17.2 in order to effectively assess every new capability, organization, and doctrine change that will be present. To aid in controlling the event, as well as gathering of raw data to be analyzed, BMC needs to be able to see the entire event from a central location while being able to visualize how battlefield effects are impacting the event. In order to do this, BMC needs a Common Operating Picture that depicts every unit, vehicle, and person in the training area over-laid onto a map of Fort Bliss, and the effect that they are having on other entities. Additionally, BMC needs the ability to assess casualties from indirect fires, attack aviation, and other systems that do not have a supported role in MILES.

This ensures that every solution to a Warfighter Challenge can be effectively adjudicated by Observer Controllers during the exercise.

11. Technical Certification: I certify that the supporting data under my cognizance, which are included in the justification are accurate and complete to the best of my knowledge and belief.

12. Requirements Certification: I certify that the supporting data under my cognizance which are included in the justification are accurate and complete to the best of my knowledge and belief. I certify that the supporting data under my cognizance, which are included in the justification are accurate and complete to the best of my knowledge and belief.

13. Fair and Reasonable Cost Determination: I hereby determine that the anticipated cost or price to the Government for this contract action will be fair and reasonable. As a part of this basis, certified cost or pricing data will not be required as the exception at FAR 15.403-1(c)(3)(iii)(A) is applicable since a commercial item is being acquired. This determination will be made using price analysis techniques in 15.404-1(b). The independent government estimate (IGE) will be the primary tool used in the analysis of the contractor’s proposed cost. The Government will also use historical prices for the same or similar services acquired. The IGE will compare the prices proposed for the labor, materials and supplies (including ODCs), and the travel. This comparison includes the labor categories and the hours proposed. The pricing of the same or similar services acquired will be compared to the labor, materials and supplies, and travel proposed on historical contracts that are similar to the pricing proposed by the contractor.

14. Contracting Officer Certification: I certify that this justification is accurate and complete to the best of my knowledge and belief.

Approval Based on the foregoing justification, I hereby approve the procurement of Flex Train Instrumentation and Communication support on an other than full and open competition basis pursuant to the authority of 10 U.S.C.2304(c)(1), Only One Responsible Source and No Other Supplies or Services Will Satisfy Agency Requirements, subject to availability of funds, and provided that the services or property herein described have otherwise been authorized for acquisition.