Loren Data's SAM Daily™

FBO DAILY ISSUE OF SEPTEMBER 11, 2009 FBO #2848
SOLICITATION NOTICE

99 -- Global Broadcast Service

Notice Date

9/9/2009
 

Notice Type

Justification and Approval (J&A)
 

NAICS

541330 — Engineering Services
 

Contracting Office

Department of the Air Force, Air Force Space Command, SMC - Space and Missile Systems Center, 483 North Aviation Blvd, El Segundo, California, 90245-2808
 

ZIP Code

90245-2808
 

Solicitation Number

FA8823_09_GBS_JA
 

Archive Date

11/29/2009
 

Point of Contact

Kimberly S. McGough, Phone: 7195562919
 

E-Mail Address

kimberly.mcgough@peterson.af.mil
(kimberly.mcgough@peterson.af.mil)
 

Small Business Set-Aside

N/A
 

Award Number

FA8823-06-D-0001
 

Award Date

10/30/2009
 

Description

JUSTIFICATION AND APPROVAL FOR OTHER THAN FULL AND OPEN COMPETITION I. Contracting Organization a. Requiring Activity: SLG/MCLT MILSATCOM Logistics 1050 E. Stewart Ave. Peterson AFB, CO 80914-2902 b. Procuring Activity: SLG/PKM 1050 E. Stewart Ave. Peterson AFB, CO 80914-2902 II. Description of Acquisition The Global Broadcast Service (GBS) is a joint service program providing vital information to the nation's warfighters using space-based, high data rate communications links. The purpose of this J&A is to extend the operational and sustainment support for the GBS for up to three additional years. Upon approval of this J&A, the Air Force will modify the existing Indefinite Delivery Indefinite Quantity (IDIQ) contract, FA8207-06-D-0001, to Raytheon Company by adding the following additional ordering periods: 2 one-year options and 2 six-month options at a total estimated cost of $74.5M. The current IDIQ contract which consists of a two-year basic effort and two one-year options ends on 31 Oct 2009. All options have been exercised. III. Description of Supplies/Services The Global Broadcasting Service (GBS) is part of the existing Military Satellite Communications (MILSATCOM) program and provides a high-speed, one-way information flow of high volume data to units in garrison or deployed in the field, at sea, or on the move. This allows existing and planned two-way communications systems to support the lower volume communications needs of force elements while providing a means for GBS user requests. The GBS system does not replace any existing MILSATCOM systems. Instead, it supports existing Combatant Commanders' (COCOM) requirements by providing the capability to quickly broadcast information products to user platforms. Information products are distributed to avoid saturating deployed forces with "information overload." The services being acquired under this J&A include high caliber sustaining engineering/technical support, Operation and Maintenance (O&M) of Primary Injection Points for the GBS Satellite Broadcast Managers (SBMs), and supply chain management support and software support for GBS. SBM O&M consists of highly trained personnel responsible for providing broadcast content and Help Desk support to warfighters deployed in support of Overseas Contingency Operations (OCO) and Homeland Defense. This effort will provide support for three locations: the Space and Missile Systems Center's MILSATCOM System Sustainment Office located at Peterson AFB, CO, 50 Space Wing located at Schriever AFB, CO, and the Ogden Air Logistics Center's Space Supply Chain Management branch and Software Engineering Division located at Hill AFB, UT. The estimated value of this action is as follows: 3rd 4th 5th 6th Option Option Option Option Total Estimated Cost Redacted Data $74.5M The above basis of estimate was derived from historical data from the current GBS sustainment contract for the periods of 2005 through 2009. Additionally, cost data was used from previously awarded task orders to estimate the value for the contract. IV. Authority 10 USC 2304 (c)(1), as implemented by FAR 6.302-1 (a)(2)(iii), Only One Responsible Source and No Other Supplies or Services Will Satisfy Agency Requirements. Services are available only from the original source in the case of follow-on contracts for the continued provision of highly specialized services. It is likely that award to any other source will result in unacceptable delays in fulfilling the agency's requirements and substantial duplication of cost to the Government that is not expected to be recovered through competition. In accordance with 10 USC 2304a(e)&(f) and IAW DFAR 217.204(e)(i), the ordering period of a task order or delivery order contract awarded by DoD, pursuant to 10 USC 2304a may be for any period up to 5 years; may be subsequently extended for one or more successive periods in accordance with an option provided in the contract OR a modification of the contract and shall not exceed 10 years. V. Applicability of Authority The above authority was selected because this contract is for highly specialized services and the Air Force's minimum needs can only be provided by Raytheon. Raytheon is the only source that has the knowledge and expertise to provide Integrated Logistics support, Satellite Broadcast Manager O&M and Help Desk support required to meet the government's requirement for an uninterruptable GBS broadcast. The following supporting information is provided: A. Unacceptable Delays: This is the first and foremost concern. GBS provides mission critical data essential to protect US military personnel supporting worldwide operations. To meet daily COCOM operational requirements we must provide uninterrupted GBS access to the joint warfighting forces engaged in Operation Enduring Freedom, Operation Iraqi Freedom, and other activities associated with the OCOs. Any break or interruption in the GBS service, for even a few minutes, creates unacceptable situations for the warfighter with 4-star General Officer attention applied to even the most minor service interruptions. Because GBS is used to relay Unmanned Aerial Vehicle (UAV) video and other Intelligence, Reconnaissance and Surveillance (ISR) data directly into the theater of operations for immediate use by combatant commanders, missions that use this data may be cancelled if GBS is unavailable. Without the combat situational awareness provided by GBS, the risk of loss of life or equipment is an unacceptable consequence. No other contractor other than Raytheon can satisfy this critical requirement for complete uninterrupted GBS access. Contracting sole-source with the GBS developer/integrator/sustainer is the only way to ensure there are no unacceptable delays in service. GBS has proven to be an exceptional theater warfighting information dissemination tool, and the war fighters rely on its services daily. GBS provides near real-time mission-critical support; when the GBS broadcast is not available Combatant Commanders cancel missions. Only Raytheon is capable of performing the effort due to their involvement in earlier and continuation phases of development and sustainment and the critical need for complete uninterrupted GBS operational support. OSD directed the Satellite Broadcast Management (SBM) function to move from their current locations to the Defense Enterprise Computing Centers (DECC) in Dec 2006. This move entails a complete redesign of the current SBM architecture and drives a significant change in the current sustainment strategy. While the GBS architecture is being updated, the current GBS baseline must be sustained. The acquisition and fielding is expected to take approximately 2 years until the transition to the DECCs is completed. Providing additional ordering capability under Raytheon's current IDIQ contract to support GBS sustainment requirements, until transition to the DECC is complete, ensures there is no lapse in sustainment support and no interruption in support to the warfighters. The acquisition community initially planned to field the new architecture in FY10. However, due to slips in awarding the acquisition contract, SLG/MCLT is now being required to sustain the current system longer than originally planned for. Since the actual fielding date of the new system was not clear until the award of the acquisition contract to Lockheed Martin on 14 May 2009, SMC/MCLT does not have adequate time to ascertain and assemble the new requirements, complete a competitive proposal process and award the new sustainment contract. It would take 24 to 36 months to pursue a competitively solicited contract. At best, award would be in June 2011; most likely, it will take the full 36 months which would result in an award in June 2012. Current PoP will expire 31 Oct 09. This will leave an unacceptable period of 14 - 26 months without mission critical coverage. Potential competitors must also have appropriate financial and technical resources (or the ability to obtain them) and the technical experience and organizational controls needed to accomplish the work within the required delivery schedule. This is because the current contract has no transition time built into it and no other contractor can immediately start up operations without some transition/learning time. The Government requirement for uninterrupted GBS support and operational requirements preclude any transition/learning time. GBS is a critical dissemination system and combatant commanders rely on GBS to provide daily mission-critical data to support Operation Iraqi Freedom/Operation Enduring Freedom (OIF/OEF). GBS is instrumental in getting UAV data down to the Brigade/Wing level, disseminating large imagery files to support decision makers, populating Imagery Product Libraries (IPLs) in hours versus days and providing situational awareness. The SBM builds the broadcast that is transmitted to the COCOMs and provides 24x7 help desk support for the warfighters. Due to the fact that the current contract does not include any transition time between the old and new contractor there would not be any overlap in SBM support. A new contractor would be required to immediately be able to build the broadcast and support the warfighters without any interruption in broadcast service. Due to the complexity of the system, a new contractor could not perform these functions without some transition/learning time. We anticipate that it would take a new contractor a minimum of 6 months from contract award to become fully functioning, and this is only with the costly assistance of the incumbent contractor. This is not to say that there would be a total 6 month work stoppage. There would be certain aspects of the requirements that would be shut down completely for a period (see "test lab relocation" discussion, below); however the Government anticipates a 30% reduction in productivity during the phase in period compounding an unacceptable decrease in operational availability and induce a longer mean time to repair. During this learning period, there will be a much greater risk of unacceptable delays. B. Substantial Duplication of Costs The secondary concern that justifies this action is avoiding a substantial duplication of costs. The current sustainment contract does not include any funding to transition the workload to another contractor. Due to the requirement to maintain a continuous broadcast the government would have to hire Raytheon to train a new contractor in several locations worldwide to operate and sustain the system which would result in a duplication of $Redacted Data in costs on a system that is 12 to18 months from the end of its useful life. Raytheon would not incur this additional cost as they have the expertise and processes to successfully fulfill the requirements. The Government estimates that award to another company would result in an additional $Redacted Data. This does not represent "best value" and does not include the additional administrative costs incurred by the Government to attempt to compete this requirement and, as results of the sources sought synopsis suggests, ultimately fail to achieve a competitive award. Based on historical cost information from the current contract, the Government has a very good understanding of costs. Therefore, the Government estimate of $Redacted Data (first year) is considered highly reliable. To recoup the additional costs incurred during Option Year 3, an acceptable proposal would have to be priced at about $18M for the first year of effort. Any company, including Raytheon with their level of experience, could not submit a responsible or viable proposal that could cover all these requirements and still be priced below the Government estimate. The approximately $Redacted Data additional cost are estimated as follows: 1. Test Lab Relocation Costs Teardown and pack Redacted Data Shipping Redacted Data Unpack and setup Redacted Data Training (6 Months) Redacted Data Total Relocation Cost Redacted Data Performance Reduction/Increased Hours Redacted Data Total Cost $2,133,460 The System Integration Test Lab (SITL) equipment is currently located at the Raytheon facility in Reston, VA. The SITL is government furnished equipment that is required by the sustainment contractor, currently Raytheon, to perform system engineering, Satellite Broadcast Manager (SBM) and Transportable Satellite Broadcast Manager (TSBM) deficiency investigation and resolution, test and evaluation and associated systems engineering and software maintenance tasks as required for sustainment of the GBS system baseline. In the event the sustainment contract was awarded to another contractor, the government would have to bear the cost of relocating the SITL and training new personnel in its operation. It would take approximately three months to package, ship, unpack and install the test lab equipment into a new location and another 6 to 12 months to establish information assurance connectivity to Secret and Unclassified government networks. Awarding the bridge contract to Raytheon will save the government $Redacted Data in relocation and training costs. These cost savings become even more significant when a first year performance reduction is realized. It is anticipated that basic tasks will take an average of 30% longer due to lack of GBS experience/knowledge. Based on the FY09 sustaining engineering and software maintenance task orders, a 30% increase in hours would cost the government $Redacted Data. Additionally, during the relocation and training of personnel we will be unable to test software changes and modifications to the system. This will prevent critical hot fixes and Information Assurance Vulnerability Assessments (IAVA) from being installed on the GBS system. Identified software security vulnerabilities will not be applied, putting DoD information and information systems at risk of intrusion or attack and could lead to the loss of our Authority to Operate. The SITL is slated for end-of-life in 2012, providing further justification for maintaining current operations until this legacy equipment can be removed from service. 2. Broadcast Management Costs Training at Norfolk Redacted Data Training at Wahiawa Redacted Data Training at Sigonella Redacted Data Total Training Cost Redacted Data Performance Reduction/Increased Hours Redacted Data Total $3,150,420 Raytheon has over 10 years of experience in operating and maintaining the Satellite Broadcast Manager. No other contractor has their level of experience in: (1) building and maintaining the broadcast content; (2) advising the Theater Information Managers and STRATCOM Satellite Operations Manager in matters related to the CONOPS and OPLANSs for each theater; (3) assisting end users in troubleshooting anomalies with their receive suites and (4) validating and maintaining the GBS transmit suite security accreditation. A new contractor would require a minimum of 6 months of hands on experience/training to gain an adequate level of knowledge to operate and maintain the SBM. Since there is no transition time built into the current sustainment contract and any lapse to train and provide the service is unacceptable to the COCOMs the government would be required to hire Raytheon contractors to train the new contractors. This effort would cost approximately $Redacted Data. Additionally, due to the lack of knowledge and experience we anticipate an approximate 30% increase in hours which translates to $Redacted Data (based on FY09 SBM O&M task order) in lost production. C. Highly Specialized Services: (Move this next paragraph to Section IX since this does not directly support the authority quoted in Section IV, nor does this paragraph address "Highly Specialized Services". Raytheon, and only Raytheon, is currently able to provide the mission essential services described below: 1. "Reach Back" for Technical Information Raytheon has developed highly specialized knowledge of the GBS system; as the Lead Systems Integrating contractor for GBS development and deployment, the company has evolved to be the single repository of experience and capability for the GBS system. Also, this Raytheon team of uniquely qualified system experts is fully integrated with the operational commands. The Government requires a "reach back" capability to Raytheon to access this information/expertise, which is needed to fulfill GBS Sustaining Engineering requirements and to continue to meet system operations. This core of expertise will only be preserved so long as Raytheon is acting in the capacity of system integrating contractor. GBS is a continuously evolving development system that needs, at this point in time, specialized integration knowledge to ensure the various subsystems and components work together to ensure continued operations. Only Raytheon currently has the specialized knowledge required to successfully perform this integration. 2. Need for system integration A system sustainment approach with overall systems integration is essential for continued GBS operation and support. The requirements for both sustainment and operations support must occur simultaneously and be fully integrated to ensure program success. Only Raytheon has the required expertise to integrate, coordinate, operate and maintain the system. If another contractor were to attempt sustainment of the system, the necessary cross feed of information flows between the new contractor and Raytheon would inject unacceptable program risk; one qualified contractor needs to integrate all sustainment requirements, hardware and software to ensure system functionality and interoperability. 3. Commercial Off-The-Shelf (COTS) GBS heavy utilizes COTS. While there is the possibility to acquire COTS items directly from the original equipment manufacturers, many key system COTS items and software experience rapid obsolescence. An expert integrating contractor is needed to perform obsolescence management of the total GBS system, including world-wide Primary Injection Points (PIPs) and SBM sites as well as in all the different configurations of the joint military services' fielded Receive Suites (RS). GBS is a specialized system that utilizes COTS hardware and software in conjunction with GBS unique software to meet challenging military mission requirements. This has driven unique, non-traditional uses of COTS hardware and software in system implementation; personnel performing system O&M in turn require specialized experience with GBS in order to perform these functions. Currently, only Raytheon has the resident expertise to maintain the required inherent GBS design capability, ensure proper system operation and maintenance of the PIPs and SBMs and provide for proper supply chain management of spares and repairs. Without the integration of all aspects of sustainment using a system sustainment approach by a qualified contractor, the GBS system will suffer significant unacceptable loss of system effectiveness, operational capability, system interoperability and incompatibilities. Only Raytheon can currently provide this support. 4. Specialized Software The Government has limited access to specialized/unique software knowledge and how this software makes critical system non-developmental hardware items work to properly operate the GBS. Raytheon is the only known source for this expertise. Any other contractor could only acquire this expertise from Raytheon. This would result in both a duplication of cost and unnecessary time delays. As the result of the software partnership with Raytheon and OO-ALC, the organic depot has assumed the sustainment responsibility for the Receive Suite software. This workload consists of approximately 10 percent of the total software sustainment requirement and does not include any SBM software sustainment. Due to the total redesign of the SBM architecture and the impending transition to the DECCs the government determined it would not be cost effective to train OO-ALC software engineers on a software baseline that would be completely replaced within the next two years. OO-ALC will acquire the necessary knowledge of the new software architecture. Support from the software developer will not be required. D. 10 USC 2304 a(e) In accordance with 10 USC 2304a(e), Contract Modifications, "The scope, period, or maximum value of the contract may be increased only by modification of the contract. 10 USC 2304a(f), Contract Period, as implemented by DFAR 217.204 (e)(i) states that the ordering period of a task order or delivery order contract, awarded by DoD pursuant to 2304a, may be for any period up to five years; may be subsequently extended for one or more successive periods in accordance with an option provided in the contract OR a modification of the contract and shall not exceed ten years. AFFAR 5317.204(e) defines/delegates authority to approve contract periods in excess of five years. For the acquisition described in this J&A, the total ordering period, if all options are exercised, will be less than 10 years. VI. Efforts to Obtain Competition The Program Office pursued potential sources for this acquisition through the use of FedBusOps. The effort described in this J&A was synopsized on 12 Sep 08 and amended on 10 Nov 08 and 02 Jul 09 in accordance with FAR 5.201 and 5.202(a)(11). The 12 Sep 08 synopsis announced a One-Year Basic and One-Year Option ordering period. The 10 Nov 08 amendment reflected a One-Year Basic and two One-Year Option ordering periods; and the 02 Jul 09 amendment revised the last One-Year Option ordering period from One-Year to two Six-Month ordering periods. The rationale for this minor revision was to build in flexibility for the planning of a follow-on competitive acquisition. The Raytheon Company was the only contractor to respond to the synopses, as described in Section VIII below. VII. Fair and Reasonable Cost In accordance with FAR 15.402, the Contracting Officer will ensure the proposed prices are fair and reasonable using both price and cost analysis techniques. The contractor will be required to provide a Basis of Estimate with supporting hours and dollars. In accordance with FAR 15.403-4, certified cost and pricing data will be required for this action. The contracting officer will determine the costs based on any form of, but not limited to the following: Audit Reports from DCAA, Defense Contract Management Agency (DCMA) recommendations, technical evaluations, and past history. VIII. Market Research Market Research was conducted IAW FAR Part 10. A Sources Sought synopsis was publicized in FEDBIZOPS on 12 Sep 08 followed by amended synopses on 10 Nov 08 and on 02 Jul 09 respectively notifying industry of the Government's intention to award a Sole-Source contract to Raytheon. The notice allowed other interested parties to provide Statements of Capability. Raytheon was the only contractor to respond to the synopsis and submit a Statement of Capability. The Capability Statement was review by the Program Office and determined to have met all program requirements as outlined in Section V of this J&A. Additionally, the Government utilized the Central Contract Registration program to search for potential vendors capable of performing the GBS effort within the MILSATCOM arena. Searches were conducted for Large and Small Businesses. No additional sources were found capable of performing the GBS support effort. IX. Interested Sources The source listed below is the only firm that responded to the Sources Sought synopsis posted in the FEDBIZOPS on 12 Sep 08 as amended on 10 Nov 08 and 02 Jul 09. For reasons stated in previous paragraphs, Raytheon is the only viable source. Raytheon Company 16800 E Centretech Pkwy Aurora, CO 80011 X. Steps to Foster Competition The Government is in the process of planning for a competitive follow-on acquisition for GBS sustainment and support services based on GBS Architectural Re-design requirements. The anticipated award date is MAR 2012. XI. Contracting Officer's Certification The Contracting Officer's signature on the Justification Review Document evidences that he/she has determined this document to be both accurate and complete to the best of his/her knowledge and belief. XII. Technical/Requirements Personnel's Certification As evidenced by their signature of the Justification Review Document, the technical and/or requirements personnel have certified that any supporting data contained herein, which is their responsibility, is both accurate and complete.
 

Web Link

FBO.gov Permalink
(https://www.fbo.gov/spg/USAF/AFSC/SMCSMSC/FA8823_09_GBS_JA/listing.html)
 

Place of Performance

Address: Peterson AFB, Colorado Springs, Colorado, 80914, United States

Zip Code: 80914
 

Record

SN01946598-W 20090911/090910000200-a68670e1b904436b2482f7f90fbb5ac0 (fbodaily.com)
 

Source

FedBizOpps Link to This Notice
(may not be valid after Archive Date)

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