J_and_A_Redacted.pdf

Control No: ACC ORL 18-004 Contractor: Ravenswood Solutions

Program: JLTV MOT&E

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

Program Manager:

DSN:

Legal Counsel:

Command Advocate for Competition:

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

1. Contracting Activity: Army Contracting Command – Orlando, 12211 Science Dr.

Orlando, FL 32826-3224

2. Description of Action: Operational Test Command (OTC)/Joint Program Office (JPO) requests a firm-fixed-price new contract with Ravenswood Solutions, 3065 Skyway Court, Fremont, CA 94539. The Government projects award for December 2017 utilizing Research Development Test & Evaluation funds.

☒ 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).

☐ ___________ approved an acquisition plan in accordance with DFARS 207.103(d)(i)(B) on __________.

☐ The required acquisition plan in accordance with DFARS 207.103(d)(i)(B) is currently awaiting ___________ approval.

3. Description of Supplies/Services: This requirement is for the provision of FlexTrain instrumentation, exercise communications, personnel tracking system (to include system set-up, operation, corrective maintenance of all instrumentation, and tear down of equipment) and delivery of an after action review (AAR) package for the Operational Test Command’s (OTC) Joint Light Tactical Vehicle (JLTV) Multi-Service Operational Test & Evaluation (MOT&E) event at Twenty-nine Palms, California. The purpose of the JLTV MOT&E is to provide data in support of the Operational Test Agency Evaluation Report of the JLTV when used by a US Army IBCT, Motorized Cavalry Troop and USMC, Weapons Company in realistic operational conditions to inform a full material release decision.

OTC is tasked with testing different military systems with the exception of medical and uniforms to determine if the system is operationally effective, suitable and if it’s survivable. Data requirements are mandated by Director, Operational Test and Evaluation (DOT&E), Training and Doctrine Command (TRADOC), and Deputy Under Secretary of the Army for Test and Evaluation (DUSA-TE). Instrumentation (scientific or technical equipment used to measure, sense, record, transmit, and process text or display data during materiel testing and examination) used to test one system may not be appropriate to test another system because of the following:

(i) Type of system

(ii) Type of data requirements (performance data, Reliability, Availability, and Maintainability (RAM) data, survivability, safety, and operational employment)

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(iii) Required data listed in the Initial Capabilities Document (ICD), Capabilities Development Document (CDD), Capabilities Production Document (CPD), Test and Evaluation Master Plan (TEMP), and System Evaluation Plan (SEP)

(iv) Data Categories (instrumented, manual, audio visual)

(v) Test location and terrain obstruction, size, site maturity

For the JLTV MOT&E effort, OTC must acquire an accredited test technology solution that will facilitate the building of a representative operational environment (OE) for T&E of the JLTV’s operational effectiveness, suitability, and survivability. The test technology solution must be able to integrate with Multiple Integrated Laser Engagement System (MILES) and the Live Virtual Constructive (LVC) package to develop a full Real Time Casualty Assessment (RTCA) solution. A fully developed RTCA solution will provide force on force engagement data as well as time and space location of each player in the play box, thus depicting every unit, vehicle, and person in the training area over-laid on to a map of the maneuver area/play box and the effect that they are having on other entities. Furthermore, the solution needs to provide test personnel and evaluators the ability to assess casualties from indirect fires and other systems that do not have a supported role in MILES. This ensures that every force on force engagement can be effectively adjudicated by Observer Controllers (OCs) during MOT&E. Moreover, the solution must be scalable based on the size of the maneuver area/play box and have a current ATO that allows the system to operate on its own or exchange information with other Government systems. The solution must also possess the required frequency authorization to operate at the selected test location and provide the Radio Frequency (RF) coverage of the required distances on representative terrain.

The JLTV MOT&E will provide senior leaders data on the operational effectiveness, suitability, and survivability of the JLTV to perform missions under operationally realistic conditions. Data obtained from the JLTV MOT&E will support a Milestone C decision.

The FlexTrain is a rapidly deployable, GPS-based instrumentation system that tracks vehicles and participants down to the individual 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 RTCA availability in real time and a report of all MILES events. This will be used in the Operational Tests (OT) environment to obtain data required for evaluation of the System Under Test (SUT) along with real time tracking of the Warfighter, Opposing Force (OPFOR) and support personnel during execution of the MOT&E. The MOT&E RTCA communications network will consist of FlexTrain communications known as (First Responder Enhanced Dismounted Instrumentation 2nd Version (FREDI-2s) with Multiple Integrated Laser Engagement System (MILES) and Live Virtual Constructive (LVC) Simulation Environment. The FlexTrain system can successfully scale to the needs of any client regardless of the size

Version – February 2017 FOR OFFICIAL USE ONLY 5 or level and can track over 4,500 individual/players. FlexTrain’s services also includes system set-up, operation, corrective maintenance of all instrumentation, tear down, and delivery of an AAR package. The FlexTrain system currently has an Authority to Operate (ATO) under the DIACAP program to operate as a Closed and Restricted Network (CRN). The ATO allows the system to operate on its own or exchange information with other Government systems. FlexTrain is also deployable to remote regions and is self-sustaining.

All test participants involved in Operational Tests (OT) must be accounted for during operations in accordance with (IAW) Director, Operational Test and Evaluation (DOT&E). Additionally, all test infrastructure, resources, and tools used in OT must undergo accreditation prior to OT in accordance with Army Regulation (AR) 73-1.

Period of Performance: 1 DEC 2017 to 6 JUL 2018 Estimated Value:

4. Authority Cited: 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.

5. Reason for Authority Cited: Ravenswood Solutions is the only responsible source that can provide FlexTrain and the required services. Ravenswood has proprietary rights to FlexTrain and does not permit the resale or distribution of its equipment through a third-party. Consequently, Ravenswood Solutions is the only company with the unique capability of providing 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 MILES and FlexTrain. The FlexTrain services is critical for data collection of valid products during the JLTV MOT&E. The nonperformance of these services will prohibit the ability to measure, sense, record, transmit, and process test data, as well as create a test environment representative of natural and battlefield conditions. Additionally, all test infrastructure, resources, and tools used in OTs must undergo accreditation prior to OT in accordance with (IAW) Army Regulation (AR) 73-1. An accreditation of FlexTrain will be completed prior to the JLTV MOT&E. Therefore, FlexTrain is the only accredited instrumentation that can be used for the JLTV MOT&E. Any attempt to compete this requirement would result in unreasonable delays, up to a year, and no other competitor solution can meet the test requirements such as communication coverage of the play box.

(a) Specific subparagraph: 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

Version – February 2017 FOR OFFICIAL USE ONLY 6 sources, and no other types of supplies or services will satisfy agency requirements, full and open competition need not be provided for. The Government is not procuring, developing, or providing technical data packages, specifications, or engineering descriptions to make the JLTV MOT&E effort suitable for full and open competition because the instrumentation used may not be appropriate to test another system.

Therefore, procuring the data rights to one instrumentation would not be in the Government’s best interest.

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. The FlexTrain system enables RTCA availability in real time and a report of all MILES events. This will be used in the OT environment to obtain data required for evaluation of the SUT along with real time tracking of the Warfighter, OPFOR, and support personnel during execution of the MOT&E. The MOT&E RTCA communications network will consist of FlexTrain communications known as FREDI-2s with MILES and LVC Simulation Environment. The FlexTrain system can successfully scale to the needs of any client regardless of the size or level and can track over 4,500 individual/players. FlexTrain’s services also includes system set-up, operation, corrective maintenance of all instrumentation, tear down, and delivery of an AAR package. The FlexTrain system currently has an ATO under the DIACAP program to operate as a Closed and Restricted Network. FlexTrain is also deployable to remote regions and is self-sustaining. Additionally, all test infrastructure, resources, and tools used in OTs must undergo accreditation prior to OT in accordance with AR 73-1. An accreditation of FlexTrain will be completed prior to the JLTV MOT&E. Therefore, FlexTrain is the only accredited instrumentation that can be used for the JLTV MOT&E.

OTC conducted an analysis of potential test technology solutions to support the JLTV MOT&E. Below are the solutions and results of the analysis:

(i). An evaluation of the Combat Training Center-Instrumentation System (CTC- IS) currently in use at the National Training Center (NTC) and Joint Readiness Training Center (JRTC), showed that CTC-IS cannot satisfy the required needs. CTC-IS is the home-station training system for both NTC and JRTC and is currently non-deployable for use at the Twenty-nine Palms. The Cell on Wheels (COW), which provides portable capabilities is not cost effective, challenging to implement, and will not be available for MOT&E in FY18. CTC-IS currently operates on the commercial AT&T service for the ground network system which does not exist within the Twenty-nine Palms training

Version – February 2017 FOR OFFICIAL USE ONLY 7 area. Additionally, the size and weight of the CTC-IS communication device (Data Communications Interface Units (DCIU)) inhibits Human System Integration for the JLTV space and weight constraints.

(ii). The Home Station Instrumented Training Systems (HITS) and Army Mobile Instrumented Training System (AMITS) HITSv4 was also evaluated. AMITS and HITS do not provide the required scalability (expanded maneuver/play-box coverage) that is available by using FlexTrain. While both systems can track individuals on the battlefield and allow for remote adjudication of battlefield effects, AMITS and HITS are only capable of tracking entities within a 20 x 20 kilometer (km) box. Coverage is required for the Twenty-nine Palms training area which is an estimated 60 x 70 km range. The FlexTrain instrumentation covers an 80km x 90 km maneuver area or larger and is scalable as required. OTC used HITS during the JLTV Limited User Test (LUT) and it could not aggregate the RTCA engagement data. Furthermore, AMITS does not possess the required Authority to Connect (ATC) and lacks the mobility required to for instrumentation in remote areas.

(iii). The ATEC Player and Event Tracking System (TAPETS) does not currently possess a Closed Restricted Network Authority to Operate (ATO) (DA302507). The ATO allows the system to operate on its own or exchange information with other Government systems. The FlexTrain system currently has an ATO under the DIACAP program to operate as a Closed and Restricted Network (CRN) and was tested to MIL- STD-810F standards.

(b) Alternatives: Ravenswood Solutions is the only known source that provides the FlexTrain technology and services. A Sources Sought synopsis was posted to the Federal Business Opportunities (FBO) on 4 OCT 2017 seeking contractors that may be able to perform this requirement besides Ravenswood Solutions; to date, no other sources have written or express interest or their capability to provide the service.

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 (Ravenswood Solutions is a wholly owned subsidiary) is the OEM and owns the proprietary data and patent rights to this equipment. OTC does not intend to procure the proprietary data and patent rights to make the JLTV MOT&E effort suitable for full and open competition because the FlexTrain system may not be appropriate to test another system; therefore, procuring the data rights would not be in the Government’s best interest. However, the FlexTrain services is critical for data collection of valid products during the JLTV MOT&E. The nonperformance of these services will prohibit the ability to measure, sense, record, transmit, and process test

Version – February 2017 FOR OFFICIAL USE ONLY 8 data, as well as create a test environment representative of natural and battlefield conditions.

Develop Appropriate Instrumentation: The development of appropriate instrumentation would be not be completed in time for the MOT&E in FY18. It would also not be cost effective and would have to meet numerous and strenuous regulatory requirements.

Additionally, all test infrastructure, resources, and tools used in OTs must undergo accreditation prior to OT in accordance with AR 73-1. An accreditation of FlexTrain will be completed prior to the JLTV MOT&E. Therefore FlexTrain is the only accredited instrumentation that can be used for the JLTV MOT&E.

Eliminate Common Operational Picture (COP): A COP is a single identical display of relevant information that allows a commander, regardless of their physical location, to share information simultaneously and instantaneously in real-time and collaborate with other leaders on the battlefield. A COP assists all echelons to achieve situational awareness as well as eliminate the potential for human placement errors. Eliminating the COP would limit OTC’s ability to share data, plot real-time efforts, and see adjustments. The elimination of a COP would also present an extremely high probability of a catastrophic safety incident because of the inability to track soldiers.

The FlexTrain instrumentation and technical support provides the COP required for the accreditation event and the JLTV MOT&E.

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 was posted to Federal Business Opportunities on 4 OCT 2017 for 30 days seeking contractors that may be able to perform this requirement besides Ravenswood Solutions; to date, no other sources have written to express interest in the acquisition; however, any bids, proposals, quotations or capability statements will be considered.

(a) Effective Competition: Effective competition is not available due to the results of market research that shows two or more sources, capable of providing services, do not exist. OTC does not intend to procure the proprietary data and patent rights to make the JLTV MOT&E effort suitable for full and open competition because the FlexTrain system may not be appropriate to test another system; therefore, procuring the data rights would not be in the Government’s best interest.

(b) Subcontracting Competition: It is anticipated that Ravenswood will team with one or more Small Businesses on this requirement to provide shipping services. In addition, a subcontracting plan will be requested.

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7. Actions to Increase Competition: This acquisition was synopsized in the Federal Business Opportunities as a notice of contract action IAW FAR 5.201. FlexTrain is the only accredited instrumentation that can be used for the JLTV MOT&E. OTC does not intend to procure the proprietary data and patent rights to make the JLTV MOT&E effort suitable for full and open competition because the FlexTrain system may not be appropriate to test another system; therefore, procuring the data rights would not be in the Government’s best interest.

8. Market Research: 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 was posted to Federal Business Opportunities on 4 OCT 2017 for 30 days seeking contractors that may be able to perform this requirement besides Ravenswood Solutions; to date, no other sources have written to express interest in the acquisition.

A search of GSA Advantage returned SRI International’s Mission Oriented Business Integrated Services (MOBIS) contract, GS-10F-0554N, for FlexTrain hardware and services. However, SRI International’s contracts manager informed the contract specialist that SRI has a pending modification with GSA to remove them from the Special Item Number (SIN) as they no longer provide FlexTrain supplies or services.

9. Interested Sources: To date, no other sources have written to express interest in the acquisition.

10. Other Facts:

(a) Procurement History: None

(b) Acquisition data availability: Not Applicable

(c) Unusual and compelling urgency: None