A03_-_J_A_-_W909MY12D0008_Task_Order_22_Redacted.pdf

Control No: JA-Belv-16-657 Contractor: MTEQ

Supplies/Services: Sensor Interoperability and Integration Support

Version – MAY 2016

JUSTIFICATION REVIEW DOCUMENT

FAR PART 16 EXCEPTION TO FAIR OPPORTUNITY JUSTIFICATION

For Actions Exceeding the Simplified Acquisition Threshold (SAT)

Program: Night Vision Electronic Sensors Directorate, Modeling and Simulation Division, Simulation Applications (SA) Branch: Engineering Support for designing, developing, integrating and testing interoperability solutions such as the Integrated Sensor Architecture (ISA), Sensor Compute Environment (SensorCE), Compliance Tools and/or new application or interfaces supporting sensor and sensor systems interoperability in support of the Army, DoD, and other government organizations.

Authority: 10 U.S.C. 2304c(b)(2) as implemented by FAR Part 16.505(b)(2)(i)(B) – Only one awardee is capable of providing the supplies or services required at the level of quality required because the supplies or services ordered are unique or highly specialized.

Amount:

Prepared by:

Electronics Engineer Date:

Contracting Officer:

Contracting Officer

Technical:

Project Lead, Integrated Sensor Date:

e

Requirements:

Chief, Simulation Applications Branch D

Reviews: I have reviewed this justification and find it adequate to support an exception to fair opportunity.

Program Manager:

Date: ____________________

Legal Counsel:

Date: ____________________

8/31/2016

/2016

Supplies/Services: Sensor Interoperability and Integration Support

Version – MAY 2016

Department of the Army FAR Part 16 Exception to Fair Opportunity Justification

Under Multiple Award Indefinite Delivery Contracts For Actions Exceeding the Simplified Acquisition Threshold (SAT)

1. Contracting Activity: U.S. Army Contracting Command Aberdeen Proving Ground, Belvoir Division

ATTN: CCAP-CCV-B-4

10205 Burbeck Road, Building 362 Fort Belvoir, VA 22060-5863

2. Description of Action: The Night Vision and Electronic Sensors Directorate (NVESD) requests a Cost-Plus-Fixed-Fee (CPFF) modification to contract number W909MY-12-D-0008 Task Order (TO) 0022 with Manufacturing Techniques, Inc. (MTEQ), 140 Technology Park Drive, Kilmarnock, VA 22482-3837. The requested modification is to extend the period of performance (PoP) for six (6) months, and increase the ceiling for task order 0022 by from to . Contract number W909MY-12-D-0008-0022 was awarded on 28 September 2015. The referenced task order is under the Warrior Enabling Broad Sensor (WEBS) Services Multiple Award / Indefinite Delivery Indefinite Quantity (MA/IDIQ) contract and has an 18-month Period of Performance, 28 September 2015 to 24 March 2017.

The Government projects award of the modification by September 2016 in which fiscal year 2016 (FY 16) Research, Development, Testing & Evaluation (RDT&E), and Operations and Maintenance, Army (OMA) funds will be used as appropriate. An Acquisition Plan (AP) was written and approved for the overarching WEBS MA/IDIQ at time of award. A separate AP is not required for this modification because this procurement does not meet the threshold at Defense Federal Acquisition Regulation Supplement (DFARS) Subpart 207.103(d)(i)(B).

3. Description of Supplies/Services: This task order provides for contractor support to the SA Branch’s mission to design, develop, integrate and test interoperability solutions, such as the ISA and SensorCE, supporting DoD sensor and sensor systems interoperability. During performance over the last 12 months, it has become clear to the Government and the contractor that the level of effort proposed is not sufficient to complete the intended tasks. Further development and implementation of SensorCE compliance tools and ISA testing support is required to successfully transition into the SensorCE Common Operating Environment (CoE) 3.0 and 4.0. Specifically, system engineering support and technical input will be required, including requirements definition, architecture design documentation for ISA 6.x seamless planning and integration of ISA 6.x.

Additional field testing and lab-based risk reduction activities are required to demonstrate and prove interoperability of ISA 6.x with programs of record (PORs) and fielding program managers (PMs).

Support of ISA 6.x includes incorporating PM and POR feedback, service definitions, cyber unique approaches, and cross-domain incorporation into 6.x data model and services. While these activities were planned for in the PWS and contractor’s proposed approach, the number of events was under estimated by both the Government and the contractor. Therefore, an extension and ceiling increase is required. After award the new period of performance and task order value will be:

Supplies/Services: Sensor Interoperability and Integration Support

Version – MAY 2016

Period of Performance: 28 September 2015 to 25 September 2017 Total Value:

4. Authority Cited: 10 U.S.C. 2304c(b)(2) as implemented by FAR 16.505(b)(2)(i)(B) – Only one awardee is capable of providing the supplies or services required at the level of quality required because the supplies or services ordered are unique or highly specialized.

5. Reason for Authority Cited:

The proposed source of this action is Manufacturing Techniques, Inc. (MTEQ). MTEQ has been providing support under TO 22 that was issued against Contract Number W909MY-12-D-0008 since 28 September 2015, which was awarded competitively under fair opportunity, and has the resources in place to continue mission support. During the current period of performance, MTEQ has gained critical expertise in Sensor Interoperability and has been integral in the design, architecture, definition and overall functionality of the current ISA 6.0 version. MTEQ and its subcontractors have been supporting the main efforts for SensorCE and have the knowledge of the historical problems and challenges faced with integrating and designing an interoperability solution to meet the Army’s needs from both the network and security requirements under this effort.

MTEQ’s engineers and support contractors understand the source code of ISA that will allow them to seamlessly incorporate changes and requests, and understand the impacts of those requests and changes on the inner workings of the ISA.

The work to be completed under TO 0022 is based on the Government’s and contractor’s increased understanding of the requirements set forth in the PWS. The original requirements of the PWS have not changed. A new competitive requirement solicited under the WEBS IDIQ will incorporate the updates made to the stable ISA 6.x baseline and ISA documentations from MTEQ TO 0022;

therefore the work to be completed under this effort must be finished on time so it can be transitioned to the new vendor supporting SensorCE CoE 3.0 and 4.0 under a new, competitive order. The solicited WEBS requirement’s anticipated award date is 30 September 2016. To stay on schedule and prevent delays or work stoppages occurring under this task order, the work under the scope of TO 0022 must be completed by the end of second quarter FY18.

Award to another contractor to complete the ISA 6.0 transition would result in the Government incurring duplication cost of approximately (based on current contract expenditures under TO 0022). This approximation is based on TO 0022’s level of effort for six months under the current labor rates and mix. This is the estimate for the new awardee to familiarize itself with the critical programs and systems supported, which is based on past experience for training and familiarization of products and fielded systems. The would be in addition to the extension and the current task order’s $4.39M value, as the order would continue performance.

Additional to the duplication of costs, awarding to a new contractor would create a significant break in support to deployed and integrating sensors and systems which is unacceptable. This break would cause ISA to not meet the requirements of the implementing Program/Project Managers. The new ISA 6.0 was released in June 2016, and there is a limited opportunity to receive feedback and update any bug fixes, Information Assurance requests and functionality concerns. ISA is being tested at the new Army warfighter assessment (AWA) in October 2017. If there is a six (6) month delay, ISA will not be able to pass and support the AWA causing a slip with NIE (Network Integration Evaluation) 18.2 and the fielding requirement for FY19. Any other contractor would have to build

Supplies/Services: Sensor Interoperability and Integration Support

Version – MAY 2016 a complete team with a sufficient number of subject matter experts with detailed knowledge and understanding of the inner workings of the ISA, as well as experienced personnel to research, develop, test, support integration designs and integrate program management (PM) and PORs to support the aforementioned initial fielding of systems in FY17 and FY19. The duplication of cost and schedule are not expected to be recovered through competition due to the temporary nature of work under this task order modification. Failure to extend this effort would cause the project to be unable to meet the needs of NVESD’s customers and integration partners. The fielding deadlines would be missed, as well as the operational tests. In turn PORs will not be able to meet operational capability, which harms the warfighter’s mission.

The notional schedule for this effort over the next FY is as follows:

Events Notes End of FY16 ISA 6.X release October – December

ISA6.X release will go through planning, development and testing.

December 2016 ISA 6.X is run at Technical Support Operational Analysis (TSOA) event.

TSOAs is where the Government determines if ISA has bugs.

December 2016 Package ISA 6.X Updating appropriate ISA documents and merge with baseline

ISA

January 2016 Sustainment ISA 6.X and plan/develop new ISA 6.X Release

Sustainment is spiral development

This process is repetitive throughout FY17. After the release in January, another release occurs in February along with a TSOA. The last two releases and TOSAs occur in June and September 2017.

The Government’s estimate will sustain the planning and development, testing and packaging, and sustainment of the ISA 6.X releases. Also, it will cover the materials and travel required to support these efforts. These events’ processes may vary during each stage depending on what bugs are discovered, as well as the topics that drive the ISA 6.X releases. These factors are: (1) Compliance Tools; (2) CoE 3.0 Support for Initial Operational Capability (IOC) for FY19;

(3) software user feedback; (4) cyber community inputs and requests; (5) SensorCE service definitions; (6) SensorCE CDS support and approach; and (7) POR/PM integration support. The increase in release events due to customer feedback and preparation for the FY17 and 19 requirements is causing MTEQ’s burn rate to increase, and calls for a greater task order ceiling to complete the effort in which TO 0022 was awarded.

Supplies/Services: Sensor Interoperability and Integration Support

Version – MAY 2016

6. Actions to Increase Competition: The Army has issued a Request for Task Execution Plan under WEBS to compete the future ISA/SensorCE requirements for supporting sensor and sensor systems interoperability in support of Army, DoD, and other Government organizations. It is anticipated that a new effort, which will incorporate some of the results from TO 0022, will be competed under Fair Opportunity under the WEBS contract vehicle and awarded by Q4 FY2016.

7. Market Research: As a result, MTEQ was the only contractor that had the knowledge and experience needed to perform the requirement in the required timeframe, without a break in service.

In accordance with FAR 10.002(b)(2), NVESD is continually performing market research to support its requirements by contacting knowledgeable individuals in Government and industry regarding market capabilities and reviewing the results of recent market research undertaken to meet similar or identical requirements. As part of this, NVESD held a WEBS Industry Day on June 8, 2016 with the six (6) WEBS vendors. Based on NVESD expert analysis, MTEQ is the only contractor that had the knowledge and experience needed to perform the requirement in the required timeframe, without a break in service.

8. Other Facts:

a. Procurement History:

Contract: W909MY-12-D-0004/0022 Contractor: Manufacturing Techniques, Inc.

Award Date: 28 September 2015 Competitive Status: Fair Opportunity Period of Performance: 28 September 2015 – 24 March 2017 Amount of Award: $4,399,775.84

b. Additional Supporting Facts: Not applicable.

9. 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.

Typed Name: Date:

Title: Project Lead, Integrated Sensor Architecture Signature:

10. 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.

Typed Name: Date:

Title: Chief, Simulations Applications Branch Signature:

Supplies/Services: Sensor Interoperability and Integration Support

Version – MAY 2016

11. 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

This determination will be made using the following: cost analysis price analysis should cost IGCE audit: identify the audit type other: identify the methodology or combination of methodologies that will be used

As a part of this basis, certified cost or pricing data:

will be required.

will not be required and the following exception applies (FAR 15.403):

Prices that will be agreed upon are based on adequate price competition.

Prices that were established during the original competition that are not subject to negotiation.

Prices that will be agreed upon are based on prices set by law or regulation.

A commercial item is being acquired.

A waiver has been granted by the head of the contracting activity (HCA) in accordance with

DFARS PGI 215.403-1.

The contract action is a modification to a contract or subcontract for commercial item(s).

The estimated cost of the contract action is less than the threshold for certified cost or pricing data.

Date:

Title: Contracting Officer Signature:

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

Date:

Title: Contracting Officer Signature:

09/01/2016

09/01/2016

Supplies/Services: Sensor Interoperability and Integration Support

Version – MAY 2016

Approval

Based on the foregoing justification, I hereby approve the procurement of Sensor Interoperability and Integration Support, in the amount of ; and the extension of the period of performance (PoP) for a period of six (6) months under contract number W909MY-12-D-0008- 0022, to MTEQ using an exception to Fair Opportunity pursuant to the authority FAR 16.505(b)(2)(i)(B) Only one awardee is capable of providing the supplies or services required at the level of quality required because the supplies or services ordered are unique or highly specialized, subject to availability of funds, and provided that the services or supplies herein described have otherwise been authorized for acquisition. If the proposed contract action is not completed within 180 days from the date below or if there is a change to the substance of this J&A that does not meet the AFARS 5106.303-1-90 conditions for an amended J&A, the Contracting Officer shall document these changes in a memorandum for file and obtain revalidation from the approval authority below.

Date:

Special Advocate for Competition Signature: