AH-64E_V6_JandA__1045816547_041315_140657_(JMH)_pdf_with_All_Redactions_19APR2016.pdf

Justification Review Document for Other Than Full and Open Competition

Program/Equipment: AH-64E Development and Integration for Version 6.0 Capability

Authority: 10 u.s.c. 2304(c)(1), as implemented by Federal Acquisition Regulation 6.302-1, Only one responsible source and no other supplies or services will satisfy agency requirements.

Amount: $298,558,274

Prepared by:

Typed Name: Julia Conner

Tille: Acquisition Analyst

E-mail:

Contracting Officer:

Typed Name: Lawrence I. Burton

Date Reviewed: 0 9 fYl Ar I S E-Mail:

Technical Representative:

DSN:

Date: f) f ·ftwt / l.'i ··

DSN:

Typed Name: LTC Brian C. Stehle DSN:

Title: Product Manager Date Reviewed: t,Pt11-1 A & IC Apache Development & Modernization

Requirements Representative:

Typed Name: James R. Tyler

Title: Deputy Project Manager Apache Attack Helicopter

DSN:

Date Reviewed: <{ "1M.'.

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

Program Manager

Typed Name: Jeff@v E. Hager

S;gnotufo . .

Legal Counsel

DSN:

Date: 5 ~r ( £'

T~ped Name J OSN:

S1gnatur .. Date: t{ AttH?.. ?OJ~ Special Competition Advocate

Per ACC-Contracting Note -#14-17, Required Reviews of the Single AMC HCA, dated 28 February 2014, "Unless an action Is specifically required by statute or regulatlon as requiring HCA approval/endorsement and specifically states authority cannot be delegated, it has been delegated to a lower level.•

Principal Assistant Responsible for Contracting

2 0 2015

OSN:

Program Executive Officer

Typed Mam~G Robert L. Marion

Signature: Date: \ ] MA~ I$""

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JUSTIFICATION AND APPROVAL (J&A)

FOR OTHER THAN FULL AND OPEN COMPETITION

APACHE WEAPON SYSTEM

1. Contracting Activity: Department of the Army, Army Contracting Command Redstone (ACC-RSA), CCAM-AP-C, Redstone Arsenal, AL 35898-5000.

2. Description of Action: This justification is for a new contract award for the non recurring development of technical insertions to complete development of the base line AH-64E, and for the integration of Aviation Procurement Army (APA) funded modifications. This is a follow-on to The Boeing Company contract number: W58RGZ- 05-C-0001, Lot 4 System Design and Development (SOD) effort.

a. The proposed contract type to be utilized is cost plus incentive fee (CPIF). At this time it is anticipated the share/target arrangements and profit or fee will be similar to that established in contract W58RGZ-05-C-0001, the SOD contract. The SOD contract has a target fee of %, minimum fee of % and maximum fee of %; the underrun share ratio is % United States Government/ % Boeing and the overrun share ratio is % United States Government/ % Boeing.

b. The estimated period of performance for this effort is thirty-six (36) months from award projected for 1 May 2015 to 30 April 2018. FAR 52.217-8 Option to Extend Services and FAR 52.217.9 Option to Extend the Term of the Contract clauses will be incorporated in the contract.

c. This requirement will be incrementally funded with Fiscal Year (FY) 15, FY16, FY17, and FY18 Research, Development, Test, and Evaluation (RDT&E) funds.

Additionally, FY15 APA funds, and direct cite Foreign Military Sales (FMS) funds from Qatar FMS Letter of Offer and Acceptance (LOA) QA-B-WYX, case line 001, will be utilized as appropriate. APA funds are subject to availability of funds. The technology insertions listed in paragraph 3.f were previously developed using APA funds in accordance with product improvement rules in Defense Finance & Accounting Service - Indianapolis Manual 37-100-15, The Army Management Structure. Therefore, integration of these insertions will be funded by APA.

3. Description of Supplies/Services: The Apache Attack Helicopter AH-64E Project Office has a requirement for non-recurring development and technical integration of force application, battlespace awareness, and net-centric improvements collectively referred to in the AH-64E Capability Production Document as Lot 6 capabilities. As these capabilities may or may not coincide with the eventual Lot 6 production of AH-64E aircraft remanufactured from AH-640, and are heavily software dependent, they are hereafter referred to as Version 6.0 capabilities.

a. FMS-unique requirements include development of Common Configuration Hardware and Software, Air-to-Air Stinger, and technical support of FMS-unique Aviation Mission Planning System/Joint Mission Planning Station (AMPS/JMPS) interface testing.

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b. The period of performance for the effort is estimated to be 36 months, projected for 1 May 2015 to 30 April 2018. FAR 52.217-8 Option to Extend Services and FAR

52.217.9 Option to Extend the Term of the Contract will be incorporated in the contract.

c. The total estimated value for (FY) 2015 is $104, 171,000, FY 2016 is $56,418,320, FY 2017 $122,516,030, and FY 2018 $15,452,924, for an estimated total for this acquisition of $298,558,274. The total of this justification includes estimated RDT&E funding of $242,582,794, including an option for Soldier Waveform Radio (SRW) in the amount of $6,704,385. APA funding is estimated at $20,575,847, and direct cite source-directed FMS funding at $35,399,633.

d. The proposed action will acquire from Boeing, on an other than full and open competitive basis, the non-recurring engineering required for development, integration, and testing of technology insertions into the AH-64E Lot 4 baseline configuration.

e. The Version 6.0 technology insertions to be funded by RDT&E funds include the following efforts:

(1) Design integration of enhancements into the AH-64E baseline configuration previously developed under SOD contract W58RGZ-05-C-0001. The incorporation of previously demonstrated capabilities allows the continuous improvements to meet user needs and keep costs lower.

(2) Development, design integration, test and qualification of Link 16 messages, and an option for SRW voice and data capability using the second channel within the Link 16/SRW radio. Link 16/optional SRW gives the AH-64E the ability to better support the warfighter while meeting the net centric requirement to provide direct voice communications with supported soldiers and exchange individual Position Location Information data to increase situational awareness and prevent fratricide within the joint fight.

(3) Testing, Integration Design, and Qualification of Multi-core Mission Processors (MMP). MMPs are a required upgrade and obsolescence mitigation of the Mission Processor (MP), providing more memory and faster processing speeds.

(4) Integration and qualification of the Fire Control Radar (FCR) enhancements of Maritime Targeting, Range Extension, Air Targeting Mode (ATM) Combat Identification, FCR Single Target Track, FCR Operational Improvements.

Current and potential future conflicts mandate the need for the Apache to counter enemy Anti-Access/Area Denial (A2AD) such as Unmanned Aircraft, Amphibious Assault Vehicles and Hovercraft, at extended ranges and under adverse weather conditions.

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(5) Design integration of the Hellfire A-Model missile and Modernized Rocket Launcher (MRL) capability. This will allow the most advanced version of the Attack Helicopter to employ the most advanced version of the Hellfire missile.

(6) Development, design integration, test and qualification of Cognitive Decision Aiding System (CDAS) behaviors. CDAS will increase AH-64E effectiveness and improve aircraft survivability. CDAS decreases pilot workload and increases pilot efficiency by providing timely and accurate information to support pilot weapons employment and flight navigation decisions.

f. The Version 6.0 technology insertions to be funded by APA funds include the following efforts:

(1) Integration of the Tactical Common Data Link (TCDL) and Manned Unmanned Teaming- Extended (MUMT-X), which is the upgraded solution to combine the advantages of UAS TCDL Assembly (UTA)/MUMT-2 technology while adding Level of Interoperability (LOI) 2-4 compliance.

(2) Design integration of the Modernized Day Side Assembly (MDSA) and Color Target Acquisition Designation System (TADS) Electronic Display and Control (CTEDAC). The MDSA and its components give the pilot better detection capabilities during the day by utilizing color television. MPVNS Low Light Camera allows the utilization of Forward-Looking Infrared (FUR) and Night Vision capabilities simultaneously.

(3) Integration and qualification of the Modernized Radar Frequency Interferometer (MRFI).

g. The Version 6.0 technology insertions to be funded by FMS direct cite funds include the following efforts:

(1) Common Configuration Hardware and Software for United States Government (USG) and export versions. Common Configuration will provide mutual benefits to all Apache program participants by lowering the software development cost to each Apache program, reducing the cost and time to export USG upgrades, reducing life cycle costs through use of common software baseline by all users, better aligning USG's and FMS aircraft configuration for improved interoperability and supportability, and lowering recurring and non recurring production costs for all participants.

(2) Design integration of the Air-to-Air Stinger missile.

(3) Technical support during the FMS AMPS/JMPS interface testing.

4. Authority Cited: The authority permitting other than full and open competition is Section 2304(c)(1 ), Title 1 O, United States Code, as implemented by Federal Acquisition Regulation (FAR) 6.302-1 (a)(2)(ii)(A) and (B) entitled "Only one responsible source and no other supplies or services will satisfy agency requirements."

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5. Reasons For Authority Cited:

a. The proposed acquisition is limited to The Boeing Company, 5000 East McDowell Road, Mesa, Arizona 85215-9797, CAGE Code: 8V613.

b. Unique Qualifications: Boeing is the only source capable of performing this effort economically and within the Government's time constraints. There are currently no other domestic or foreign sources or Government-sponsored programs that possess the detailed technical data and subject matter knowledge necessary to develop, fabricate, integrate, and test the Version 6.0 technology enhancements into the AH-64E.

c. The MMP is an integral upgrade to the MP in currently fielded AH-64E aircraft that was developed by Boeing under sole source authority during the W58RGZ-05-C- 0001 SDD contract and is projected for further integration and testing in the proposed contract action.

d. The technical data packages (TDPs) to include software source code for these systems were not procured from Boeing during system development. A TDP would be required for other interested contractors to meet the cost and schedule requirements for development and integration of these enhancements. The USG requires production representative hardware and software to support AH-64E Follow-On Test and Evaluation (FOT&E) II of the Lot 6 capabilities beginning March 2017. Based on the program manager's analysis, it was determined the cost to develop the software would be approximately million with a potential schedule and performance delay of years. Any attempt to use another contractor would exceed this schedule requirement due to the lack of technical data the Government could provide.

e. The AH-64E Apache program is the fourth iteration of an upgrade program to the AH-64 Apache. During the AH-64E SDD phase, Boeing developed and tested all of the platform software using their internal software development and test environment and developed the software documentation, including specifications and test description documents. As a result, the USG does not possess the data rights within the platform software required for competition. The complete software baseline with the planning enhancements consists of over 1.5 million lines of source code. Re-hosting software on a different system would require prohibitively expensive unit, module and configuration item testing with schedule delays. An Apache Attack Helicopter (AAH) Program Manager Office (PMO) analysis determined that the cost to redevelop the software would be approximately with a potential schedule delay of years. That cost, and the cost of obtaining the TDP, as outlined in paragraph 1 O.c of this justification, combined with the delay in schedule, makes qualifying other sources detrimental to the overall cost and schedule limitations of the program and jeopardizes future production and fielding timetables.

f. Currently, there are no data rights available for AH-64E unique components to provide to other sources for competition. The Boeing Company has asserted limited rights for the manufacture and sustainment of the AH-64E unique components based on

Highlight their independent research and development investments. Through the SDD effort, the program procured a complete performance specification as well as the production and component drawings. However, without other significant technical data and knowledge inherent in the role of the design authority/OEM, such as the design and assembly technical data, that specification will lack the detail required to compete future technical insertions. Furthermore, with only a performance specification (versus a design) significant duplication of program costs for retesting and requalification of a system with insertions from a different manufacturer would be required to meet airworthiness standards in accordance with Army Regulation 70-62, Airworthiness Qualification of Aircraft Systems.

g. The position of the Apache PM, outlined in the Apache AH-64E Acquisition Plan dated 22 January 2014, is that the Government will insist on unlimited rights, IAW DFARS 252.227-7013, Rights in Technical Data, for all component and software technical data developed and paid for by the Government. Technical data assertions declared by the Contractor to be "limited" or "restricted" will be reviewed by the Government and challenged appropriately under the authority of Section 2320, Title 10, United States Code. Government Purpose Rights will be accepted by the Government for all technical data or computer software for non-commercial parts when these item were clearly developed with "mixed" Government and Contractor funding.

6. Efforts To Obtain Competition: Market research has been performed and the requirement was published in the Competition Advocate Shopping List (CASL) on 4 August 2014, and revised 30 January 2015. To date, no other contractor has shown an interest and/or proven the capability to perform this effort. A Sources Sought Synopsis (SSS) was released 19 September 2014 and no replies were received. The Apache Project Management Office (PMO) attended various conferences throughout the year with the defense industry to keep abreast of new technologies, capabilities, and manufacturers in the aerospace sector. One of the largest aviation-focused conferences is the Army Aviation Association of America annual professional forum and exposition. The 2014 Army Aviation Association of America (AAAA) convention was held 4 - 6 May 2014, in Nashville, Tennessee with a large number of aerospace contractors in attendance. The Apache Program Manager (PM) and Apache Production and Fielding Product Manager also attended the AAAA conference. Constant communication and regular interaction among Government representatives from the different Government agencies and aviation project management offices provide additional knowledge and insights into industry's available technologies, capabilities, and resources. In addition to Government agency communication, the PM frequently receives marketing and business development communication and conducts industry site visits to keep abreast of current capabilities of the industrial base. This contract effort is for capability modernization of current full rate Aircraft production systems that possess unique capabilities utilizing Boeing-proprietary algorithms. These proprietary algorithms were developed by Boeing using Internal Research and Development (IRAD) to reduce development costs to the Government on prior contracts and are integral to the operations of the Apache helicopter. Boeing also utilizes qualified structural safety critical items developed using Boeing funding to which the Government does not own data rights. Because of the cost and difficulty to obtain this data, the legacy contractor

Highlight is considered the only source capable of performing these efforts. All market investigations of aerospace manufacturers have identified that no other qualified sources would be capable, competent, timely, and economical.

a. In accordance with (IAW) FAR 5.404, this requirement was published in the CASL on 4 August 2014, and revised on 30 January 2015, in order to announce the procurement to interested sources. To date, no other contractor has shown an interest and/or proven the capability to perform this effort. Based on information gathered in market research, it has been determined that the efforts covered in this action are not of a commercial nature, and cannot be purchased IAW FAR Part 12. Competition at the subcontract level by Boeing is considered the best strategy to foster any future competition on this program.

b. Boeing will maintain a subcontracting plan, periodically reviewing the potential for future subcontracting efforts to small, veteran-owned small, service-disabled veteran owned small, Historically Underutilized Business (HUB) zoned small, small disadvantaged, and women-owned small business concerns. Boeing will be encouraged to subcontract with small business and small disadvantaged business concerns, as well as labor surplus concerns, and to restrict subcontracting competition to small disadvantaged businesses whenever possible. To further implement these economic programs, FAR 52.204-10, Reporting Executive Compensation and First-Tier Subcontract Awards; FAR 52.219-8, Utilization of Small Business Concerns; FAR 52.219-9, Small Business Subcontracting Plan; FAR 52.244-5, Competition in Sub contracting; FAR 52.244-6, Subcontracts for Commercial Items; DFARS 252.209-7004, Subcontracting with Firms that are Owned or Controlled by the Government of a Terrorist Country; and 252.244-7000, and Subcontracts for Commercial Items and Commercial Components (DoD Contracts) will be contained in the proposed new contract.

c. A synopsis will be published in the Army Single Face to Industry (ASFI) FedBizOpps pursuant to FAR 5.201 on or about 21 April 2015, stating that ACC-RSA intends to procure the effort required for the design, development, fabrication, integration, and testing of technology insertions into the AH-64E. Based upon the factors stated above, no additional competition is expected as a result of this synopsis.

Any additional sources identified through the synopsis procedure will receive due consideration as prescribed by law.

d. The justification for W58RGZ-05-C-0001, the SDD effort, supported a sole source contract for SDD of the AH-640 Block Ill, which has since become the baseline AH- 64E. The justification of a sole source contract was due to the technical complexities and unavailability of technical data packages required to create and compete the Block Ill Apache. The costly impact of procuring technical data packages to compete this effort made competition unobtainable for this effort.

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(1) The justification stated the Government had requested a ROM for the AH-64D TDP, on , and was waiting for formal submission by the contractor.

The contractor responded with a ROM of under Boeing letter on , which was not in the USG's best interest to procure. The Government requested additional ROMs from Boeing for design and assembly technical data on and , under contracting officer letters and , respectively. The contractor responded with a ROM of under Boeing letter

, , which was not in the USG's best interest to procure.

(2) The justification stated the resultant contract would be subject to DFARS Appendix D, Component Breakout. DFARS Appendix D was removed 21 March 2006, and is no longer applicable.

(3) The justification stated the contractor would be encouraged to subcontract with small business and small disadvantaged business, as well as labor surplus concerns whenever possible. The resultant contract included all applicable FAR and DFARS clauses.

7. Actions To Increase Competition: Boeing is required to subcontract with small business and small disadvantaged business concerns, as well as labor surplus concerns, and to encourage subcontracting competition to small disadvantaged businesses whenever possible. The applicable FAR and Defense Federal Acquisition Regulation Supplement (DFARS) clauses will be included in the request for proposal (RFP) and the proposed contract.

a. A Source Sought Synopsis (SSS) for this effort, W58RGZ-14-R-0322, was released 19 September 2014, and closed 4 October 2014 with no responses received.

b. The technical insertion for MUMT-X capability is currently being competed between two small business concerns under RFP W58RGZ-14-R-0288. The Statement of Work (SOW) was reviewed for opportunities for development of technical insertions that could be performed by other than the proposed systems integrator; one insertion identified from that investigation was MUMT-X.

c. The Apache Attack Helicopter Project Manager maintains continuous surveillance of domestic suppliers, foreign suppliers, and cost-effective opportunities for joint developments with other U.S. military or foreign military services. There are no other domestic or foreign commercial or Government sponsored programs which have or are in the process of developing technologies which approach the capability needed to design, develop, integrate, and test these technology insertions into the Apache aircraft.

8. Market Research: Market research, in accordance with FAR Part 10, was conducted in April 2014. This requirement was published in the CASL on 4 August 2014, and revised on 30 January 2015. Market Research was performed and submitted electronically on 4 December 2014. The Market Research was approved 4 December 2014, and clarification provided by addendum on 12 December 2014. As a result, it has been determined that no other sources are available to meet the USG requirement and there are no equivalent commercial sources. Therefore, FAR Part 12 procedures will not be utilized for this acquisition. Market Research was performed as detailed in the Market Research Report.

a. The Overarching Integrated Product Team (OIPT) leads were tasked to review opportunities for development of technical insertions that could be performed by other than the proposed systems integrator of the complete set of Version 6.0 capabilities before the SOW was finalized over the period June through November 2014. One insertion was identified from that investigation, MUMT-X. This Version 6 effort now requires integration of the MUMT-X technical solution that will be Government-furnished as a result of award of a separate contract, currently being competed. Other knowledgeable persons include PM division chiefs, IPTs, and engineers from the Apache and Aircraft Survivability Equipment PMs.

b. The PM office also reviewed the following recent Market Research Reports/Commerciality Determinations (MRR/CD) for similar services 2-4 December 2014: MRR-CD #131750 (Seventeen AH-64E New Build Aircraft), #142001 (Development, Integration 7 Test of Technology Insertions for the AH-64E Fire Control Radar's Radar Electronic Unit and Unmanned Aerial Systems Tactical Common Data Link Assembly), and #142228 (AH-64 Peripheral Production Engineering Support Services).

c. A SSS was posted 19 September 2014 on the Federal Business Opportunity webpage (www.fbo.gov), with no responses received.

d. The PM office reviewed the ASFI between June and November 2014 for similar aviation research and developmental efforts, and reviewed the following publications for articles and paid advertisements applicable to non-developmental items (and their vendors) that could meet partial requirements for the AH-64E Version 6 capability set:

Aviation Week & Space Technology weekly magazine, Army Aviation monthly magazine of the AAAA, and Rotor and Wing monthly magazine.

e. PM Office personnel attended the AAAA Gribbins symposium 3-6 November 2014 gathering industry contacts and useful intelligence for potential AH-64E technical insertion opportunities. In addition, the determination has been made, as presented in paragraph 5 above, that the estimated cost to develop an alternate source and additional time it would take for an alternate source to achieve capability for this would not support the required delivery schedule and would not be within available funding.

The USG requires production representative hardware and software to support AH-64E Version 6.0 Follow-on Operational Test & Evaluation II in March 2017. The Contractor needs to be on contract by May 2015 to meet this Government requirement. Any attempt to use another contractor would exceed this schedule requirement due to the lack of technical data the Government could provide.

f. The Apache Attack Helicopter Project Manager technical personnel conduct on going monitoring of the market place by attending technical conferences involving industry: AAAA Symposium in May 2014 and Industry Days in Huntsville, Alabama in February 2014. Constant communication and regular interaction among Government representatives from the different Government agencies and aircraft project management offices provide additional knowledge and insights into industry's available technologies, capabilities and resources. The PM Office has determined that the technical reason stated above are accurate and reflect the current market environment.

As a result, it has been determined that no other sources, other than Boeing, are available to meet the Government requirement and no commercial courses are equivalent.

9. Interested Sources: A SSS for this effort, W58RGZ-14-R-0322, was released 19 September 2014, and closed 04 October 2014 with no responses received. To date, no other sources have expressed an interest in this proposed technical enhancements acquisition. Boeing is the only known contractor who can satisfy the Government's requirements within the required timeframe. However, the Government will monitor sources expressing an interest in this requirement as a result of the synopsis notice that will be published on or about 21 April 2015, as required by FAR 5.201. Any contractor who expresses written interest in this requirement will receive full consideration as required by law and regulation. All proposals received will be considered.

1 O. Other Facts/Other Factors:

a. Procurement History: The most recent history for Apache Block Ill AH-64E requirements is1provided below. The contracts were awarded as sole source to Boeing under Section 2304(c)(1 ), Title 1 o, United States Code as implemented by FAR 6.302- 1 (a)(2)(ii), entitled "Only one responsible source, and no other supplies or services will satisfy agency requirements":

CONTRACT AMOUNT AWARD DATE

W58RGZ-05-C-0001, System Development and Demonstration (P00006) N/A $685.4M 14 July 2006

b. There have been no significant changes to the reasons cited in the justification of the procurement before this one, 10.a above. After PM review of opportunities for development of technical insertions that could be performed by other than Boeing, only MUMT-X was identified as a candidate for competition.

c. The Longbow Engineering and Manufacturing Development (EMO) contract, DAAJ009-89-C-A086, awarded in 1989 included provisions for the USG to procure technical data suitable for competition of the assembly of the aircraft; however, the option was not exercised. On , the USG requested a rough order of magnitude (ROM) for the AH-640 base design technical data. The contractor responded with a ROM of under Boeing letter on

, which was not in the USG's best interest to procure. The Government requested additional ROMs from Boeing for design and assembly technical data on and , under contracting officer letters and , respectively. The contractor responded with a ROM of under Boeing letter , , which was not in the USG's best interest to procure. Boeing has indicated that they would not be willing to entertain discussion of providing the TOP to the USG. The acquisition data procured by the USG to date is insufficient for full and open competition.

11. Technical and 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.

NAME: BRIAN C. STEHLE DATE: t?J~ If? Ar .a. IC

LTC, AV

TITLE: Product Manager SIGNATURE:

Development and Modernization ~

12. Fair And Reasonable Price Determination:

I hereby determine that the anticipated cost to the Government for this contract action will be fair and reasonable. This determination is based on the use of techniques which will include Price and Cost Analysis, Field Pricing support, and Technical Evaluation, and will include Certified Cost or Pricing Data, as required IAW FAR - 15.403-4.

NAME: LAWRENCE I. BURTON DATE: Qlj y'Y) A 1Q I S

TITLE: Contracting Officer SIGNATURE:

13. Contracting Officer Certification:

I certify that this justification is accurate and complete to the best of my knowledge and belief.

NAME: LAWRENCE I. BURTON DATE: oq rn AA L6 TITLE: Contracting Officer SIGNATURE:

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APPROVAL

Based on the foregoing justification, I hereby approve the procurement of the effort that will provide the non-recurring activity necessary to complete the development and technical integration of Version 6 capabilities from The Boeing Company, on an Other Than Full and Open Competition basis pursuant to the authority of Section 2304(c)(1 ), Title 10, United States Code, as implemented by Federal Acquisition Regulation 6.302-1 (a)(2)(ii). The total estimated dollar amount for this proposed requirement is $298.6 million, subject to the availability of funds, and provided the services and property herein described have otherwise been authorized for acquisition.

COOROINATrON;