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Lease of the Chairman Joint Chiefs of Staff Alert Network (CJCSAN) equipment and associated transmission circuits

Solicitation Number: 12052011
Agency: Defense Information Systems Agency
Office: Procurement Directorate
Location: DITCO-Scott
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Justification and Approval (J&A)
FAR 6.302-1 - Only one responsible source (except brand name)
February 28, 2012
Added: Mar 12, 2012 4:50 pm

Purchase Request Number:


Justification for OTFAOC Number:

Upon the basis of the following justification, I, as Procuring Activity Competition

Advocate, hereby approve the use of other than full and open competition of the proposed

contractual action pursuant to the authority of 10 U.S.C. 2304 (c) (1). Only one

responsible source and no other supplies or services will satisfy agency requirements.



Requiring Activities:

844 CG/SCN

1600 Air Force Pentagon

Washington, DC 20330-1600

POC: Mr. Anton Vanterpool

Phone: (703) 692-0878

Phone: DSN 222-0878

Contracting Activity:

Defense Information Technology Contracting Organization (DITCO)

ATTN: PL8211

2300 East Drive

Scott AFB, IL 62225-5406


The purpose of this action is to obtain approval for a class justification to contract with

AT&T for the lease of the Chairman Joint Chiefs of Staff Alert Network (CJCSAN)

equipment and the associated transmission circuits. CJCSAN is comprised of a primary

and alternate voice conference network located at Waldorf, MD and Raleigh, NC

respectively. Each network has a conference "W" switch, dedicated 3 Kb voice circuits,

and three 1.544Mb (T1) circuits connecting the CJCSAN conference switch to the

dedicated network. In the past J&As were requested and approved for CJCSAN.

CJCSAN is due for re-award. CJCSAN was built in the 1960s. The technology and

capability of the legacy system is reliable and functionally intact. CJCSAN is not web

based and is not subject to the problems associated with the web. The current CJCSAN

circuits had an approved sole source J&A to award circuits to AT&T. The DTS-CE

contract was used as a vehicle to award circuits to AT&T. The AT&T circuits supporting

CJCSAN network must be transitioned off the DTS-CE contract by its expiration date of


March 2012. The DISN Access Transport Systems (DATS) contract cannot be used as a

contracting vehicle. The DATS contract is divided into regions. AT&T is awarded only

one of those regions. AT&T as the incumbent would lose sole source access to circuits

outside of their region. There is no other available follow-on contract at this time.

Approval of this J&A will permit the award of contracts to the incumbent vendor, AT&T,

via individual Communication Service Authorizations (CSAs). This will allow AT&T to

continue to provide highly reliable, critical conferencing capability to the National

Command Authority, Joint Chiefs of Staff and Combatant Commanders.


A. CJCSAN is an AT&T leased, non-secure, voice circuit network originally fielded in

the 1960s which is still used for time critical Nuclear Command and Control (NC2)

communications. This network provides rapid and reliable conferencing capability

between the National Command Authority, National Military Command Center (NMCC),

United States Strategic Command (USSTRATCOM), other Combat Commanders and

their subordinate military commands. While the technology and capability of the legacy

systems are over 40 years old, its reliability and functionality are intact.

B. CJCSAN consists of conference switches located at two locations. Each switch is

connected to different DSN circuits and, the switches are controlled from multiple sites.

Should a problem occur, only Site-R or USSTRATCOM can take over control of the

CJCSAN conference. The essential CJCSAN components are a primary and secondary

AT&T switches located at one of the following locations; AT&T Special Government

Operations Center (SGOC) at Waldorf MD and the AT&T Center at Raleigh NC. These

switches allow one of the three main control sites to manage the CJCSAN voice traffic

via a priority hierarchy that allows control of the conference calls. Due to criticality and

sensitivity of the missions associated with CJCSAN, it is imperative that customers

contact a single location (SGOC) for network management, system and circuit

troubleshooting, and all equipment and system maintenance.

C. The CJCSAN conferencing capability and connectivity is critical in conducting

day-to-day activities, contingency operations and when the U.S. is under hostile attack.

This class justification is to provide the basis for the re-award of CJCSAN AT&T switch

equipment and circuits contracts. CJCSAN has a total of 30 circuits with Communication

Service Authorizations (CSA). A list of current CSAs and CCSDs is attached. The long

haul service orders under the DTS-CE contract expire March 2012. The continuation of

service via new individual CSAs contracts is included in this J&A.


D. This class justification will be in effect for 60 months. Individual contracts/CSAs

will contain a standard provision to disconnect circuits with one month notice and no

financial penalty to the government.

E. The forecasted cost for CJCSAN is based on an estimated service life of 60 months.

An attached spreadsheet includes 30 current contracts/CSAs. These circuits are funded

on the firm-fixed price DTS-CE CSA and individual CSA contracts. In summary:



10 U.S.C.2304(c) (1), only one responsible source and no other supplies or service will

satisfy agency requirements, (FAR 6.302-1/DFARS 206.302-1).


A. The legacy capability needs to remain in-place until a suitable replacement has been

engineered, fielded, tested, and mission certified. Due to the criticality and time

sensitivity of the missions supported by the CJCSAN conferencing system it is

imperative the network is managed and maintained by a single contractor. AT&T

provides a 24 hour a day Special Government Operating Center (SGOC) that supports

other National Command Authority (NCA) Command and Control networks. The SGOC

provide a level of security required for this mission set. The Network at Waldorf, MD is

located in AT&T's Special Government Operations Center (SGOC), facility. This colocation

provides the survivability of the conferencing capability during natural and manmade

disasters. The SGOC at Waldorf is a secure facility with access to backup power

and AT&T maintenance personnel 24-hours a day. The co-location of the CJCSAN

network with AT&T maintenance personnel enables circuit and conference problems to

be quickly resolved. Access to maintenance support is a key factor in achieving a high

level of service availability and reliability required for this mission. This co-location

would not be possible if another vendor is awarded circuit contracts. This co-location

alleviates duplication cost for additional secure facility. Also, the government is not

responsible for configuration management, documentation or schematics required for

fault identification or repair; a service AT&T provides at no additional cost.

B. For over forty years the current contractor has provided the functionality and features

the operators require to effectively manage time sensitive conferences between the NCA

and strategic military forces. The contractor provided a zero threat network configuration

using non-IP based primary and backup switch systems along with legacy transport

circuits and network central office equipment (NCOE). The use of leased circuits along

with the military features of Multilevel Precedence and Preemption (MLPP) ensures the

zero threat environment is carried end-to-end. An award to any contractor other than

AT&T would result in loss of system survivability, security, operation performance and

access to round the clock maintenance. This would result in increased cost associated

with the ability of a vendor having to provide multiple survivable, secure, round the clock


maintenance supported locations to assure sustained bridge operation. To transition to a

new vendor, dual operations would be required until the new vendors' system has

achieved operational capability and mission certification. (REDACT)


C. As a component of national survival, the CJCSAN sytems requires positive assured

conference connectivity in time of crisis. For another vendor to take over CJCSAN, they

would have to:

(1). Replace the 24 hours network control center at Waldorf, MD and replace the

alternate location in Raleigh, NC for the secondary circuit connectivity.

(2). Locate suitable secure, protected, and survivable locations for the conference


(3). Find a conference bridge that can obtain JITC and operational mission certifications,

and demonstrate the bridge will meet the mission requirements.

(4). Obtain a suitable non-IP based replacement for W Switches.

(5). Ensure bridge and circuit performance is monitored 24-hours a day to insure the

availability of the conferencing capability to meet the needs of the NCA, JCS and

Combatant Commanders during time of crisis.

(6). Have personnel available on a 24-hour , seven days a week basis to perform end to

end engineering support to the base level requirement and provide fault level isolation to

ensure the service provides 99.99% availability.

(7). Provide similar hardening and survivability of new conferencing locations. Today

the secure, survivable facility is located at Waldorf, MD and houses numerous AT&T

programs supporting POTUS, USSTRATCOM and JCS. CJCSAN takes advantage of

the facility constructed to meet multiple purposes. A new vendor, if the facility is not

already existing, would require facility modifications to conform to DODI 8500.01A

security standards and provide the ability to sustain operation during periods of high

stress (capable to provide survivable and sustainable communications) in protecting the


D. If the circuits were awarded to another vendor, the following "best scenario" delays

could be encountered:

(1). The contractor would be required to locate the conference bridges in protected,

secure facilities with access to backup power and to their longhaul network and

maintainers for sustained operation. The location must be approved by the JCS and

Combatant Commanders.

(2). A new contractor would be required to construct or purchase a new non-IP based,

JITC certified conference bridges, and demonstrate the bridges and their longhaul

network, meet the requirements of the NCA, JCS and Combat Commanders for the EAM

mission. The estimated time required to have bridges approved by the Joint Staff and

Combatant Commanders is 24-36 months. This does not include the time to develop a

consolidated Performance Work Statement approved by all conference bridge users.

(3). Circuits supporting CJCSAN must be replaced. Currently there are 30 circuits. The

time for submitting Telecommunication Requests, contractor circuit engineering, testing,

and delivery is estimated to be another 6-12 months. This does not include any time for

contractor build-out work if facilities do not exist in the contractor's network.

(4). This "best scenario" barring any unforeseen problems in establishing the network

could result in the customer being without the CJCSAN network for at least 36 months

resulting in grave impact on the mission or mission failures to include mass destruction or

death. Divulgence of the grave mission impact would compromise tactics and procedures

cited in classified Emergency Action procedure documents.



A notice was published in the FedBizOpps 5 Dec 11 as required by FAR Subpart 5.2.

The notice will state the U.S. Government intends to issue a sole source contract to

AT&T to operate and maintain the CJCSAN network to provide critical command and

control communications. The CJCSAN network consists of multiple points located

throughout the Unites States. No responses were received. Any future responses

received in response to the FedBizOpps notice will be given due consideration by the

contracting officer as required by law.


The contracting officer will make a determination that the anticipated cost of circuit

connectivity is fair and reasonable based upon similar requirements of the same circuit

size, installed in similar locations.


An 844 CS market survey was conducted by contacting Government and industry experts

and research was conducted via fielding technical proposals to determine if there were

any alternatives in the marketplace that could provide the unique communications

capabilities provided by the CJCSAN network. The market analysis was conducted from

March to October 2011 revealed that no other commercial or military service could

provide the services CJCSAN currently delivers to DoD and Joint Staff senior leaders.

One commercial vendor, Raytheon, could supply the conference switch infrastructure but

could not supply or maintain the required dedicated circuit network. A single vendor

needs to be responsible to provide equipment and longhaul connectivity. It's critical a

single vendor or point of contact immediately respond in the event of outages or events

involving equipment and longhaul connection failures. The current availability of other

command and control conferencing networks does not exist primarily due to the expense

necessary for creating and maintaining the infrastructure that has been created over the

years and the exclusive nature of the CJCSAN design and equipment. To date, we have

found no other provisioning solution utilizing market research.


Due to the criticality and sensitivity of the missions associated with CJCSAN, it is

imperative a single contractor manage the system, controls the circuits and all CJCSAN

equipment, and conducts maintenance. Circuit performance is currently being monitored

by dedicated AT&T personnel 24 hours a day, seven days-a-week 365 days-a-year.

Trouble reporting is accomplished through the AT&T SGOC at Waldorf MD. AT&T's

security policy prohibits non-AT&T contractors from entering their facilities to conduct

installation or maintenance on AT&T proprietary equipment.



There has been a FedBizOpps posting 5 Dec 11 and the Contracting Officer will afford

any potential offerors a reasonable opportunity to respond.


As previously stated AT&T provides the switch and longhaul connections to two control

sites. In order to remove barriers to competition we plan to pursue removing the services

from the vendor's facilities and housing the conference control sites in government

facilities. This action will permit access to multiple vendors to the government's long

haul infrastructure.

The actions identified below show the user's intent to reach an optimal solution which

maintains operational needs while removing barriers to competition. Some of the actions

below are occurring at this time to provide opportunities to pursue alternate technical

solutions. A solution to house the capability on a Military facility through its switch

could utilize leased or DISN infrastructure. As part of the ongoing process, a solution

reflecting these parameters has been developed and has been presented to the Joint Staff,


The optimal solution is a government owned conference bridge connected to control

site(s) and using the DISN network. The user community (USSTRATCOM and the Joint

Staff) intend to ratify their Conference Bridge requirements. The National Military

Command System engineering community follows up by developing, collaboratively or

separately, a technical approach meeting the user's requirements. The conference switch,

currently the W-Switch, is integral to the operation of the system. This action should

include a Defense Industry Solicitation to vendors. The solicitation is expected to meet

the technical parameters to support the Joint Staff and USSTRATCOM, offer a zero risk

solution, and include Emergency Action Message (EAM) certification. The next action

should be to identify a conference bridge with preference to procurement versus setting

up leased bridges with conference control from a long haul vendor. The conference

bridge must be JITC certified prior to demonstration, be on the Unified Capabilities (UC)

Approved Products List and be UC Certified. Additionally the bridges must have the

ability to meet the mission technical performance criteria. Housing the equipment,

especially the conference bridge and conference control switch, in a government facility

enables more vendors to provide connectivity. Housing the conference control switches

in government facilities also permits access to the government's long haul infrastructure,

further reducing the cost while enhancing competition. The next action should be to

request a lease versus purchase cost study for the conference system. The final

configuration would only require long haul leases that could be delivered by any carrier.

The past DISA Transport Service contract had the provision to acquire or lease

equipment not associated with the long haul requirement. This process should lead to

demonstrating a selected conference bridge solution. This includes confirming the

network configuration meets EAM capability for certification.


Technology improvements and communications requirement changes will be evaluated

by DISA/GE-242 (CJCSAN Systems Engineer) the requiring activities,

USSTRATCOM J6 and Air Force Pentagon, 844 CG, on a continuing basis to determine

if technology advances will eliminate existing barriers to competition. Our approach

seeks convergence to DOD Unified Capabilities policy while meeting user requirements.

When transitioning from the current system, individual CSAs include provisions that

allow them to be disconnected on 30 day notice without penalty.


PLAN (PP): Not applicable since J&A doesn't exceed $33 million.



"I certify that the supporting data under my cognizance which are included in the J&A

are accurate and complete to the best of my knowledge."


SIGNATURE: ___(REDACT)________________

TITLE: Executive Director, 844th Communications Squadron

DATE: ___1 Feb 12_________


"I certify that the supporting data under my cognizance which are included in the J&A

are accurate and complete to the best of my knowledge."


SIGNATURE: ___(REDACT)_________________

TITLE: Commander, 844th Communications Group

DATE: __3 FEB 12___________


CONTRACTING OFFICER CERTIFICATION: Include the following determination:

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


NAME: Marcia Ann Ferranti SIGNATURE: __(REDACT)______

TITLE: Contracting Officer DATE: ___10 Feb 2012______________



"I have reviewed this justification and find it to be accurate and complete to the best of

my knowledge and belief. Since this justification for OTFAOC does not exceed $11.5M,

this review serves as approval."

APPROVED BY: (FAR 6.304(a) (2))


ANN M. VAUGHN, Procuring Activity Competition Advocate, PLA, 9-9608, 28 Feb 12

Printed/Typed Name and Title Organization Phone Date



Marcia Ann Ferranti, DISA/PL8211, DSN 779- 9473,


2300 East Dr.
Building 3600
Scott AFB, Illinois 62225-5406
United States
2300 East Dr.
Building 3600
Scott AFB, Illinois 62225
United States Minor Outlying Islands
Barbara A. Hylla
Phone: 6182299268