FlexTrain_J&A_Redacted.pdf

JUSTIFICATION REVIEW DOCUMENT

FAR PART 6 JUSTIFICATION AND APPROVAL FOR OTHER THAN

FULL AND OPEN COMPETITION

Program/Equipment: The U.S. Army National Guard Training Division (ARNG-TR) Exportable Combat Training Capability (XCTC) program procurement for FlexTrain hardware, network infrastructure and software licensing.

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

Amount:

Prepared by: Ph:

Program Manager Date: 13 Jun 2018

Contracting Officer: DSN:

Procuring Contracting Officer Date: 18 Jun 2018

Technical: Ph:

Requirements: Ph:

Control No: ACC-ORL 18-015 Contractor: Ravenswood Solutions, Inc.

Program/Equipment: XCTC/FlexTrain Multi-Mission Instrumentation System

For Official Use Only

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

1. Contracting Activity: Army Contracting Command, Orlando (ACC-Orlando)

2. Description of Action: Approval is requested to award a non-competitive Firm Fixed-Price (FFP) type contract to procure FlexTrain Multi-Mission Instrumentation Systems in support of the Army National Guard's (ARNG) Exportable Combat Training Capability (XCTC) program. The estimated value of this requirement is

The award is projected for September 2018, Fiscal Year (FY) 18, using Department of Defense appropriated National Guard and Reserve Equipment Appropriation (NGREA) funding. Congressionally appropriated each year, NGREA is not programmed or budgeted, and must be obligated within three years. NGREA funds are limited to integration and procurement of off-the-shelf solutions that leverage Research, Development, Test & Evaluation previously accomplished via other government programs. The ARNG was provided NGREA as supplemental funding for the procurement of equipment where shortfalls exist as well as for equipment modernization.

The preparation of a written acquisition plan is required in accordance with Defense Federal Acquisition Regulation Supplement 207.103(d)(i)(B), as the contract base price is expected to exceed the established threshold of during one fiscal year.

The ARNG is seeking to leverage ACC-Orlando’s unique training services core expertise and contracts portfolio. As ACC-Orlando has been identified as the Training Contracting Center of Excellence, we have been requested to support this requirement.

The ARNG has a huge military and civilian infrastructure associated with their XCTC program. As a result, they do not require PMO augmentation from PEO STRI. The ARNG utilizes PEO STRI for program management when they don't believe they have the internal skills and capacity; however, the XCTC requirement is managed internally.

3. Description of Supplies/Services: This requirement is for the procurement of two FlexTrain Multi-Mission Instrumentation (FlexTrain) Systems and associated software licenses. The software licenses shall provide the Government with the authority to use the operational software embedded in the two new FlexTrain Systems as well as for the FlexTrain Systems currently in the ARNG’s XCTC inventory. This is the ARNG’s final FlexTrain System purchase to increase the XCTC’s strategic training capacity. This

FlexTrain Brigade Set Components

Mobile After Action Review Center (MAARC) Masthead Assembly for tower

Hand Held Video (HHV) Kit Communications Cable Set for Masthead

Video Take Home Package Kit (VTHP) Communications Electronics Package (CEP)

Video Editing Station EFJ UHF Mobile vehicle

FREDI-2, MBITR Battery, Cables EFJ UHF Hand-held Type

FREDI-2 Basic Transit Case EFJ UHF HT Single Bay Charger

FREDI-2 Basic Pouch Transit Case EFJ UHF Multi Bay Charger

M2K Cable Transit Case EFJ UHF Batteries

MBITR Battery Transit Cases - Empty Programming Cables for UHF Admin

Comms

MBITR Battery Transit Cases - Full Battery Support Center (BSC) Trailer

Vehicle Kits (Connects FREDI to vehicle) Night Vision Camera Kits

Tactical Analysis Center MAARC overflow kits

Mobile Relay Tower (105 ft.) ORION Software License

Total Equipment Est. Value: (FlexTrain Hardware) Total Software Est. Value: (Software Licensing) Total Est. Base Value w/Options:

Contract Award Date: 21 September 2018 Delivery Date: 28 June 2019

A FFP contract award, using FAR Part 12 Acquisition of Commercial Items procedures, for two FlexTrain Brigade Sets is scheduled for September 2018. The award will consist of NGREA funded FFP Contract Line Item Numbers (CLINS) for the components comprising the FlexTrain Brigade Sets and a FFP CLIN for the Software License.

4. Authority Cited: The statutory authority permitting other than full and open competition is 10 U.S.C. 2304(c)(1) as implemented by FAR 6.302-1(a)(2) which provides that when supplies or services required by the agency are available from only one responsible source and no other type of supplies or services will satisfy agency requirements, full and open competition need not be provided for.

5. Reason for Authority Cited:

a. This action is being conducted under 10 U.S.C. 2304(c)(1) as implemented by FAR 6.302-1, "Only One responsible Source and No Other Supplies or Services Will Satisfy Agency Requirements." In accordance with subsections 6.302-1 (a)(2)(ii)(A) & 6.302-1 (a)(2)(ii)(B) the government intends to make a sole source award to Ravenswood Solutions Incorporated (RSI) for the FlexTrain specific equipment sets and components and exclusive software object models required to operate the sets. Given the needed technical capability of additional FlexTrain equipment and the exclusivity of supporting software, RSI is currently the only source capable of meeting the Government's requirement with no production learning curve and without causing an unacceptable delay in equipment delivery. Furthermore, the anticipated lead time for RSI to produce all needed items is approximately 40 weeks from receipt of contract.

With the lead time being so close to the start of the training year and RSI having knowledge of how to put the items together, the utilization of another contractor will not provide adequate time to deliver the equipment to the ARNG in order to meet their needs.

The network infrastructure currently used during training events is specific to FlexTrain requirements. The potential introduction of a new network through the competitive process would require the replacement of hundreds of millions of dollars of existing Government-owned FlexTrain compatible equipment. Furthermore, the amount of time likely required to produce FlexTrain network-compatible hardware and components and replace existing equipment would significantly impact the ARNG ERP, starting with the summer training schedule in FY19. The two FlexTrain Brigade Sets are required to support XCTC training starting in May 2019.

b. Alternatives: This acquisition requires the compatibility with existing ARNG collective training instrumentation systems that are currently in use, and will add additional equipment in order to increase the capacity of the ARNG XCTC program.

Alternatives to meeting the FlexTrain requirement include maintaining the current equipment levels and suspending the software licensing procurement.

Maintaining the current level of FlexTrain Brigade Sets would result in a deficient capacity to meet the ARNG ERP, as addressed in the Army’s Chief of Staff, Decision Point 58.3. In order to meet the needed capacity to sustain the ARNG ERP, complete FlexTrain Sets are required to make it through a given summer training season. Though capacity deficiencies could be improved with the rental of multiple FlexTrain Sets, the rental option is not viable to the Government, as RSI currently has only one Brigade Set periodically available for rent. The only viable option available to ensure the successful sustainment of ERP requirements is to increase the ARNG’s existing training capacity through the procurement of two additional FlexTrain Brigade Sets. The two sets will be added to the Government Furnished Property inventory, raising the total number of FlexTrain sets from to .

Suspending the software licensing procurement will significantly impact the ARNG ERP starting upon conclusion of the existing XCTC Task Order when the current software license expire. Without the authority to use the software, all capabilities provided to the ARNG through the FlexTrain system become inoperable.

6. Efforts to Obtain Competition: The need for the additional trainers derives from the Army Chief of Staff’s decision to increase the number of annual XCTC rotations from per year. In order to satisfy this increased OPTEMPO requirement, the ARNG requires two additional training systems and no other company has been identified that can provide the systems without substantial increases in cost and within the desired time period. Failure to provide this capability will have a direct negative impact on ARNG readiness.

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), a Sources Sought Notice was posted to Federal Business Opportunities (FBO) on 30 October 2017 for thirty five days. The notice emphasized the Government's intent to award a sole source contract to RSI for the FlexTrain Brigade Sets and Software License, along with applicable maintenance and support. The notice was used to inquire whether industry entities possessed the capability to produce supplies and the necessary supporting software to meet the Government's requirement without causing unacceptable delays or an incurrence of duplicative costs. Prior to the closing date of 4 December 2017, RSI, the developer, was contacted to convey the Government’s anticipation of a response. The RSI representative affirmed the company’s capabilities with respect FlexTrain and their commitment to fulfilling the Government's requirements. RSI submitted their response on 30 November 2017; no other responses were received. A description of the market research is discussed in paragraph 8, below.

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

b. Current Market Research: In accordance with FAR Part 10, the ARNG program office and ACC-Orlando have conducted market research to support the acquisition of FlexTrain Systems and Software Licenses using Other Than Full and Open Competition.

ACC-Orlando reviewed the Federal Business Opportunities (FedBizOpps) website and identified a March 2018 posting by MICC-Ft Hood, a Sources Sought notice of intent to Sole Source a task order contract to Ravenswood Solutions, Inc. for the procurement of the FlexTrain System using Federal Acquisition Regulation 6.302-1(a)(2)(iii), Only One Responsible Source and No Other Supplies or Services Will Satisfy Agency Requirements. An additional review of a contract previously awarded by the Department of Interior, D16PC00048, dated 11 February 2016, revealed an award to Ravenswood Solution, Inc. for the production of FlexTrain System equipment in support of XCTC.

ACC-Orlando also searched the Small Business Association’s Dynamic Small Business Search (DSBS) engine. The search was conducted using North American Industry Classification System (NAICS) Code 334220 Radio and Television Broadcasting and Wireless Communications Equipment Manufacturing. During the search, the NAICS yielded a large number of Television related parts and wireless equipment manufacturers, but none that indicated businesses involved in or related to the production of FlexTrain System equipment.

A search of GSA Ebuy was initially conducted by the Program Manager and a more comprehensive search was conducted by ACC-Orlando using FlexTrain as the primary search term in the supply and service categories. The search revealed the existence of a GSA Schedule contract GS-10F-0054N, awarded to SRI International, which reflected the listing of FlexTrain. After numerous inquiries, it was discovered that SRI International ceased all sales of FlexTrain associated components or equipment, but allowed RSI to continue the manufacture and sales of FlexTrain as their wholly-owned subsidiary. Though the GSA Schedule contract remains current and still reflects the FlexTrain System capability, FlexTrain is no longer offered by SRI International through any means.

Based on market research results and feedback from industry, RSI is the only contractor available, possessing the requisite capability to produce FlexTrain equipment and the necessary software to make FlexTrain components function as needed.

9. Interested Sources: RSI is the only vendor capable of providing the material product and software license for this request. To date, no other sources have expressed interest in this procurement. However, all offers received shall be considered.

10. Other Facts: It is imperative that the two requested FlexTrain Brigade Sets are available for training in May 2019. Accordingly, the Government maintains high expectations that RSI possesses the production capabilities to meet training demands in May 2019, with delivery of the two required FlexTrain Brigade Sets within from the anticipated contract award date.

a. Procurement History: Contract number D14PC00015, dated 11 March 2014 and contract number D16PC00048, dated 11 February 2016, for the procurement of identical FlexTrain components. Both contracts were awarded and executed according to the requirements requested and awarded by DOI. The authority cited was 10 U.S.C.

2304(c)(1) as implemented by FAR 6.302-1, "Only One responsible Source and No Other Supplies or Services Will Satisfy Agency Requirements." As a result of contract efforts with SRI International and subsequently RSI, it was determined not to be advantageous to the Government to pursue a competitive award at that time.

Furthermore, it was recognized that FlexTrain is specially modified commercial equipment and no other vendors have the experience or knowledge base in place without sacrificing time and duplicating costs. There have been no circumstances nor significant changes to the previous justification.