UAI J_A Redacted_Redacted.pdf

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

CONTROLLED UNCLASSIFIED INFORMATION

August 2023 CONTROLLED UNCLASSIFIED INFORMATION Page 2 of 11

The Air Force Life Cycle Management Center, Fighters and Advanced Aircraft Directorate, WAX, AFLCMC/WAX, Universal Armament Interface (UAI) program will manage, execute, and administer the acquisition. This acquisition will be negotiated pursuant to FAR 6.302-1(a)(2)(ii), only one responsible source, requiring a Justification for Other Than Full and Open Competition.

AFLCMC/WAX

2725 C Street, Building 553 Wright-Patterson AFB, OH 45433-7218 Program Manager: Brianne Guy Contracting Officer: Lisa Matthews

This is a follow-on requirement to continue the development and sustainment of the UAI effort currently under the four Original Equipment Manufacturer (OEM) contracts FA8628-20-C-2269 (Boeing), - 2266 (Lockheed Martin), - 2268 (Northrop Grumman), and - 2267 (Raytheon). UAI development and sustainment will continue in response to advancing technology, new and advancing weapon systems, and emerging implementing program requirements. The four OEMs cover about 85% of the Air Force and the Navy platforms and weapons. The US Air Force is currently working with foreign partners to allow them to accomplish UAI tasks. This J&A should be considered to apply to such foreign partner scope of work requirements that will be created during the follow-on contracts' period of performance be it through FMS Cases or other appropriate means. It is anticipated each new contract will have a five-year period of performance and up to a six-month extension (one Base Year, four One-Year Options, six-month extension) and could include Cost-Plus-Fixed-Fee (CPFF), Cost - Reimbursement (CR), and Time-and-Material (T&M), or a hybrid approach as the contract type. Future efforts/CLINs may be Firm-Fixed-Price (FFP) or Incentive type based on requirements, complexity, and the best interests of the Government. The current estimate of the contract cost (including options) for this acquisition is $85,000,000. The four contractors specified will be fulfilling the requirements specified in the UAI Performance Work Statement (PWS). The estimated award date for these contracts is September 2024, with an effective start date in October 2024. The Period of Performance will be October 2024 - October 2029 (possibly through April 2030 with a six- month extension).

This Class Justification and Approval (J&A) is in support of four new sole source contracts to the following four OEMS:

1) The Boeing Company; 6200 James S McDonnell Blvd, St. Louis, MO 63134 Service Contract: CPFF/CR/T&M/Hybrid PoP: 5 Year (1 Base + 4OY), 6-month PoP extension Contract Award: October 2024

2) Northrop-Grumman Systems Corporation; Northrop Grumman Defense Systems; 7555 Colshire

Drive, McLean, VA, 22102 Service Contract: CPFF/CR/T&M/Hybrid PoP: 5 Year (1 Base + 4OY), 6-month PoP extension Contract Award: October 2024

3) Raytheon Company; 1151 E. Hermans Rd, Tucson, AZ 85756 Service Contract: CPFF/CR/T&M/Hybrid PoP: 5 Year (1 Base + 4OY), 6-month PoP extension Contract Award: October 2024

August 2023 CONTROLLED UNCLASSIFIED INFORMATION Page 3 of 11

4) Lockheed Martin Aeronautics Company; 1 Lockheed Blvd, Fort Worth, TX 76108 Service Contract: CPFF/CR/T&M/Hybrid PoP: 5 Year (1 Base + 4OY), 6-month PoP extension Contract Award: October 2024

The current UAI contracts are a mixture of CPFF and cost reimbursable contract types, awarded as a sole source acquisition (effective 19 Nov 2019). The period of performance of the current contracts ends with Boeing on 31 October 2024 and the remainder (Lockheed Martin, Northrop Grumman, and Raytheon) on 19 November 2024.

UAI was initially developed by the United States Air Force (USAF) in 2004 to define a standardized specification & method of integrating MIL-STD-1760, AS5725 Miniature Mission Store Interface (MMSI) and AS5726 Interface for Micro Munitions (IMM) guided weapons independent of aircraft Operational Flight Program (OFP) cycles. The primary components of UAI include Interface Control Documents (ICD), Certification Compliance Plans (CCP), Certification Tool (CT) Software, and governance processes that allow and support integrations at a fraction of legacy costs and schedule. UAI increases weapon system interoperability through standard interfaces and streamlines the weapon integration process.

UAI is also a cost avoidance program, enabling compressed weapon integration cycle time, independent from costly and time-consuming OFP software updates. This is accomplished through the use of standardized and defined interface requirements that are easily tailored for each user. Implementing UAI on platforms and smart weapons provides the capability to field integrated weapon capabilities at a significantly faster rate than is possible through legacy approaches. An analysis of a Turkish and a Norwegian weapon demonstration program of similar size and complexity (in ~2013) showed a cost and schedule savings of $22M and six years, when compared to two previous weapon demonstration programs.

The UAI program's focus is on standardizing data interfaces to allow for integration of weapons onto fighter and bomber aircraft outside of the OFP update process. This decoupled integration approach reduces the cost and cycle time required to integrate a weapon delivery capability across diverse platforms.

Platforms and Stores included in the continuation of development, implementation, and sustainment of UAI are shown below whether as Platform-Store interface participants, Mission Planning interface participants, Launch Acceptability Region participants, or some combination of working group participation:

Platform:

Mission Planning:

August 2023 CONTROLLED UNCLASSIFIED INFORMATION Page 4 of 11

Stores:

International:

UAI is a unique program that is focused on the development and sustainment of a truly universal armament interface that will apply across all weapon-carrying platforms and munition systems. Successful execution of the UAI program requires extensive cooperation among the OEMs, via Integrated Associate Contractor Agreements (IACAs), to acquire and share the appropriate technical weapon system knowledge to advance the UAI specification. As demonstrated in section V below, the four OEMs' knowledge and expertise is critical to the success of UAI during the time frame covered by this J&A. Until UAI is the sole implemented standard interface for both platforms and weapons, the four OEMs' expertise will be required to update and enhance UAI. The proprietary knowledge these OEMs' have is still necessary until UAI has developed to the point where the interface is truly universal and no longer has a driving factor of a specific platform or weapon.

August 2023 CONTROLLED UNCLASSIFIED INFORMATION Page 5 of 11

The tasks to be performed by the four OEMs include, but are not limited to:

UAI Certification Tool Tasks: Universal implementation of the UAI requirements across multiple platforms and store program is facilitated by use of common test and development tools developed and provided by the UAI Program Office. Contractors will be required to provide continued support of these development tools, including, but not limited to:

Mission Planning Certification Tool (MPCT): Provides Mission Planning (MP) Software engineering and design and computer program code for the MPCT software, changes to Joint Mission Planning System (JMPS) or Next-generation Open Mission Systems (NOMS) framework, and changes to the UAI Common Component (CC). Perform systems analysis, design, and programming tasks to integrate UAI MPCT with JMPS and NOMS and analyze design and computer programming integration of UAI MPCT with Unique Planning Components (UPCs) and UAI CC. Perform testing and system level integrations of the

MPCT.

System Integration Laboratory (SIL) CT: Provide SIL Certification Tool (CT) hardware engineering, design, and testing. Provide integration training and support of the hardware that hosts the Universal Store Simulator (USS) and Universal Platform Simulator (USP) software. Analyze, design, and generate technical specifications and computer code to incorporate Platform/Store ICNs into the SIL CT. Perform testing and Formal Qualification.

o Universal Store Simulator (USS): Provide USS software engineering, design, programming, and testing. Provide integration training and support of the USS software. Analyze, design, and generate technical specifications and computer code to incorporate Platform/Store Interface Change Notices (ICNs) into the USS software. Provide the USS in usable condition as a test asset to be interoperable with the Universal Platform Store (UPS). Perform testing and Formal

Qualification Test (FQT) as necessary to deliver USS CSCI, CMT & USS Script File updates.

o Universal Platform Simulator (UPS): Provide UPS software engineering, design, programming, and testing. Provide integration training and support of the UPS software with the implementing programs. Analyze, design and generate technical specifications and computer code to incorporate Platform/Store ICNs into the UPS software. Perform testing and FQT as necessary to deliver UPS CSCI, VMT and UPS Script File updates.

UAI Common Component (UAI CC): Implement software changes corresponding to changes to the UAI MP ICD. Perform Formal Qualification Test/Testing (FQT) and deliver software releases. Develop and maintain software compatibility and interoperability with all operating system and MP frameworks. Conduct integration tests against JMPS and NOMS framework updates, as required, to support Platform and Store UPC development and sustainment. Perform UAI MP ICD and CCP assessments and updating during ICN development. Participate in the UAI MP ICD, CCP, and ICP revision review cycles.

System Engineering Tasks: The Contractor shall provide systems engineering and weapon

August 2023 CONTROLLED UNCLASSIFIED INFORMATION Page 6 of 11 system technical expertise and products. Leverage weapon system knowledge and UAI technical expertise. Assess and analyze Requests for Change (RFC) for technical impact to the ICD and estimate workload to convert the RFCs to ICNs. Generate ICNs that are consistent with current ICDs and are compatible/ interoperable with current and planned UAI implementations in aircraft and weapons.

Program Management Tasks: Perform technical and administrative planning, coordinating, controlling, and approving actions required to accomplish the PWS objectives. Provide the services and products required to develop and maintain a planning and control system which encompasses program scheduling, technical progress and cost reporting. Support international cooperative activities by participating in international meetings and executing export licenses.

For purposes of this J&A, a five-year period of performance and up to a six-month extension is required to ensure that platforms and weapons currently implementing UAI will be supported through development, testing, fielding, and maintenance. Therefore, this acquisition will be follow-on contracts for the continued development and sustainment of highly specialized equipment (Certification Tools) and SME services.\\

USC 3204(a)(1), as implemented by FAR 6.302-1(a)(2)(ii), only one responsible source and no other supplies or service will satisfy the agency requirements.

The four named OEM contractors are the only known sources, as demonstrated by the responses to the Sources Sought, described in section VIII below, with the technical capability to continue the development, enhancement, and sustainment of UAI without substantial duplication of cost to the government that is not expected to be recovered through competition, and unacceptable delays in fulfilling the agencies requirements.

The contracts described in the J&A will be for follow-on contracts for the continued development and sustainment of highly specialized equipment (Certification Tools) and SME services. To develop, enhance, and maintain UAI, both detailed knowledge and experience in DoD weapon systems is required. Entering into a contract absent of the Platform and Store OEMs would require the USAF to gain technical data rights to intellectual property along with continued access to the experience and tacit knowledge that only the OEMs can provide. Development and maintenance of a common interface between the growing number of platforms, stores, and platform/store variants cannot be done without the data and experience that only the platform and store manufacturers can provide. Purchasing the data rights of ~30 systems would exceed UAI's budget authority. The cost to the USAF to buy data rights to each platform, store, and platform/store variant would be unsustainable if even possible. In previous years the UAI program office personnel attempted to purchase the data rights and was denied several times. Currently UAI doesn't have sufficient funding to purchase all the necessary data rights even if the OEMs were willing to sell. Another issue with trying to purchase the data rights is obtaining the expertise pertaining to the data. This knowledge and experience include product specific experience, as well as proprietary knowledge of existing platform to store logical interfaces, mission planning systems, and Launch Acceptability Region (LAR) algorithms/ coefficients. The current UAI compliant weapon systems are comprised of smart weapons and aircraft manufactured by Boeing, Lockheed Martin, Northrop Grumman, and Raytheon, which are all part of the current �Industry Team� Contract, referred to as a �Consortium� that is enabled by their IACAs. Of the US

August 2023 CONTROLLED UNCLASSIFIED INFORMATION Page 7 of 11 weapon systems listed below, the only additional OEM is General Atomics Aeronautical Systems for the , which does not use UAI for Mission Planning. Only the current Industry Team OEMs have the comprehensive and requisite platform and weapon/store knowledge of their products to develop and enhance UAI.

Original Equipment Manufacturer and UAI Compliant Weapon Systems

Boeing:

Lockheed Marting:

Northrop Grumman:

Raytheon:

*Platforms with asterisk only implement the UAI Mission Planning Interface

Attempting to acquire the necessary technical weapon system knowledge outside of the OEMs IACAs would create risk to the UAI program and to the platforms and weapons integrating UAI. IACAs allow contractors to share information, data, technical knowledge, expertise, or resources between OEMs to ensure the joint participation required for successful execution of the UAI program. Schedule risk is incurred while 3rd parties attempt to create the IACAs. If data rights and IACAs are not arranged by a 3rd party, UAI must accept a significant technical/performance risk in the common standards interoperability across weapon systems. Finally, OEM participation in updating of the UAI core documents allows the USG to develop a common UAI standard without the need to further acquire OEM weapon system proprietary data from each of the OEMs. It is not technically or economically feasible for any other source(s) to obtain all the platform/weapon system information and gain sufficient understanding of the data to accept the risk of implementing a universal design standard for the interface on all affected products without presenting unacceptable delays to fielding the standard interfaces.

If the Justification is not approved and the UAI Program Office is required to compete the UAI effort, the Program Office anticipates the following schedule and costs impacts associated with meeting the Government's requirements.

At least ~18 months to undergo a source selection to choose a new source. Additionally, any new source would require an IACA between the OEMs and a third-party (non-Industry Team) contractor to access the required proprietary data and technical expertise. OEMs continue to indicate they will not sign these agreements with third parties regarding UAI. If such agreements could be achieved, all the costs and time to develop, negotiate, and execute them would be additive to the planned acquisition strategy, and would require additional funding and staff.

Estimate ~18 months for the four OEMs to execute contracts and deliver data packages in a usable format. The UAI Program Office analyzed 2018 USAF cost information from 35 platform and engine programs to estimate the cost of the data packages that would be required to support UAI, absent of a contract with the OEMs. The average cost of the data packages per program was ~ $77M. Factoring in the data requirements of UAI, the Program Office cost estimate assumes $20M for a technical data package supporting each UAI weapon system (14 fielded x $20M = $280M). Accounting for a 3% inflation per year from 2019-2024, the average estimated cost per data package is ~$92M. Factoring the same inflation rate for the UAI data requirements, the Program Office cost estimates ~$23.8M for each UAI weapon system (14 fielded x ~$23.8M), at a total estimated cost of $333.2M. This is a fair assessment in how acquiring these packages wouldn't be the best use of the limited

August 2023 CONTROLLED UNCLASSIFIED INFORMATION Page 8 of 11

Government funding received. A further analysis could be completed to breakdown the current package cost, however, that would not change the outcome that due to the increased inflation and/or other causes these packages are still unaffordable to UAI.

OEMs continue to indicate data is not for sale. If data was ultimately sold, the cost and time to develop a contract and receive the data would be additive to the planned acquisition cost and strategy. Additionally, several years would be required for the new source to gain the same level of productivity as the OEMs have achieved in the past 15 years of UAI support, even for the most experienced engineers.

Estimate ~18 months for a new source to achieve similar productivity, after an IACA is in place between the Contractors. The below learning curve cost assumes a steady ramp-up from 0% productivity on day one to equally productive to current Contractors after 18 months. The Program Office estimates a first-year cost of approximately $16M for all four OEM contracts combined. ($16M/year is $24M for 1.5 years of service x .5 average productivity = ~$12M in lost productivity by switching to a new source.

There is no expectation that OEMs will agree to provide technical data or to sign IACAs, however the schedule explanation that follows makes this assumption. The overall schedule delay would be approximately 4.5 years to the ongoing UAI development and sustainment effort. Through this delay, there would be substantial risk for upcoming weapons integration efforts. Platforms and weapons that have already committed to using UAI for integration would be forced to halt integration efforts. The alternative for these platforms and weapons would be to revert to legacy integration methods, which is a path that comes with an equally long delay. A delay over four years to the UAI program has the potential to create a ripple of cost and schedule impacts for every platform and weapon that UAI touches, severely impeding fielding and warfighter readiness which is unacceptable.

Therefore, this acquisition will be a follow-on contract for the continued provision of highly specialized services. Accordingly, Lockheed Martin, Raytheon, Northrop Grumman, and Boeing are the only firms capable of providing the supplies and services described in Section III above without the Government experiencing substantial duplication of cost that could not be recovered through competition and unacceptable delays in fulfilling its requirements.

As discussed further in Section VII, a Sources Sought was posted to SAM.GOV on 14 Dec 2023 to gauge industry capability to perform the work required to advance and maintain the UAI specification.

Respondents were asked to provide written responses that contained sufficient documentation and present an understanding and show experience within UAI. A draft copy of the PWS was provided to better facilitate the responses. The Sources Sought responses were limited to 10 pages. We received no questions on the Sources Sought. Upon approval of this Justification, the program will synopsize the proposed contract action for a minimum of 15 days prior to release of the solicitation in accordance with the requirements set forth by FAR subpart 5.2.

ractors will be required to submit certified cost and pricing data that is completed, current, and accurate, in accordance with 41 U.S.C. Ch. 35: Truthful Cost or Pricing Data. The Team, with the assistance of government pricing and a cost analyst, will accomplish a complete cost analysis of the

August 2023 CONTROLLED UNCLASSIFIED INFORMATION Page 9 of 11 contractor's proposals including subcontractor review as required by the FAR. The final contract price and any changes will be negotiated in accordance with FAR Part 15 procedures, to ensure the final price to the government is fair and reasonable.

in Section V above, market research, in accordance with FAR Part 10, was conducted by Sources Sought of the proposed acquisition, advising industry of pending acquisition and soliciting inquiries from interested parties.

The Sources Sought aimed to determine whether alternate vendors possessed the weapon system knowledge and skills necessary to develop, enhance, and manage UAI. This knowledge and experience includes product-specific experience, as well as knowledge of existing platform-to-store logical interfaces, mission planning systems, and LAR algorithms/coefficients. The UAI current and planned weapons systems are comprised of products predominantly manufactured by Boeing, Lockheed Martin, Northrop Grumman, and Raytheon, as well as foreign partners and General Atomics Aeronautical Systems.

The current UAI contractors self-identify as an �Industry Team� and �Consortium� that is enabled by their IACAs. This same group responded as the UAI Industry Team to our Sources Sought.

The Sources Sought resulted in four responses (3 independent and 1 consortium). The current UAI Industry Team (Consortium), Smart Munitions Expert Solutions, Inc (Small Business), General Dynamic Missions Systems, and TANGRAFLEX (Small Business). The Industry Team was the only vendor response we received from the Source Sought that was able to show understanding and their ability to meet the needs of the UAI Program Office. The other vendors were missing support and/or experience in key aspects to support the overarching UAI effort. Specific concerns with their capabilities included, but were not limited to, a lack of demonstrated knowledge of UAI applicability to weapon systems, expertise in implementing UAI or similar interfaces, and/or lack of demonstrated experience with managing an Interface Control Working Group which would result in associated program risks. Any new contractor would require an IACA between themselves and the existing OEMs to access required proprietary data and technical expertise. OEMs continue to indicate they will not sign these agreements.

See section IV above

See section VII above.

will continue to assess the potential for competing parts or all of the UAI requirement, August 2023 CONTROLLED UNCLASSIFIED INFORMATION Page 10 of 11 by performing appropriate Market Research to gauge industry capability, prior to award of any future contracts. Many functions defined in the UAI Interface Change Process (ICP) core document are currently contracted out due to lack of government expertise or personnel. Functions such as website management and administrative UAI data management may be brought back under control of the US Government.

The UAI Program Office supported the development and signing of the HAF/A57 memo, �Universal Armament Interface/Common Flexible Weapon Interface Control Document Implementation Priority� signed April 2024 implementing an AF level UAI mandate that with the merger of Common Flexible Weapons (CFW) would cover both air-to-air capabilities and air-to-ground capabilities. In the short term, this will not have significant impacts to overcoming barriers. However, in the long term this will support the removal/overcoming of barriers as the interface for all weapons and platforms would become more universal mitigating some of the current proprietary constraints.

The UAI Program Office is analyzing the potential future merger with CFW which could allow for open competition to include additional OEMs or other vendors by integrating systems. The Program Office is also evaluating the use of the current CFW digital models, alternative contract vehicles across the Air Force and its implementation into the UAI Program Office.

The changes to the UAI Program Office based on the Great Power Competition will also provide support in overcoming barriers to competition with the future location and management of the UAI Program Office being evaluated along with the work scope associated with it. These changes will allow ample opportunity to re-evaluate the future of UAI regarding utilizing the latest and greatest tools and programs available and supporting the Warfighter in the ever-changing environment.

Other methods of acquiring and utilizing technical data may materialize in the future to create the possibility for other contractors to compete to participate in UAI integration, even though they may not be OEMs. As the Department of Defense moves towards open systems for development, barriers to competition, such as those pertaining to data rights, may be removed, or overcome.

As the overall future home and requirements of the UAI Program Office change there may be more opportunities for how UAI is structured allowing for more diverse opportunities in how the work is completed.

The Contracting Officer's signature on the Coordination and Approval Document evidences that she has determined this document to be both accurate and complete to the best of her knowledge and belief (FAR 6.303-2(b)(12)).

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.

August 2023 CONTROLLED UNCLASSIFIED INFORMATION Page 11 of 11