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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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:
12052011
:
Justification and Approval (J&A)
:
FAR 6.302-1 - Only one responsible source (except brand name)
:
February 28, 2012
:
28022012
:
Added: Mar 12, 2012 4:50 pm

Purchase Request Number:



JUSTIFICATION FOR OTHER THAN FULL AND OPEN COMPETITION



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.


JUSTIFICATION


1. REQUIRING AGENCY AND CONTRACTING OFFICE:


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


2. NATURE/DESCRIPTION OF ACTION(S):


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


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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.


3. DESCRIPTION OF SUPPLIES/SERVICES:


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.


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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:


(REDACT)


4. IDENTIFICATION OF STATUTORY AUTHORITY.


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).


5. DEMONSTRATION OF CONTRACTOR'S UNIQUE QUALIFICATIONS:


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


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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)


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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


bridges.


(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


Nation.


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.


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6. FEDBIZOPPS ANNOUNCEMENT/POTENTIAL SOURCES:


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.


7. DETERMINATION OF FAIR AND REASONABLE COST:


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.


8. MARKET RESEARCH:


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.


9. ANY OTHER SUPPORTING FACTS:


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.


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10. LISTING OF INTERESTED SOURCES:


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


any potential offerors a reasonable opportunity to respond.


11. ACTIONS TAKEN TO REMOVE BARRIERS TO COMPETITION:


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,


STRATCOM/J6 and DISA.


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.


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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.


12. REFERENCE TO THE APPROVED ACQUISITION PLAN (AP) PROGRAM


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


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TECHNICAL CERTIFICATION:

"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."


NAME: KARL S. MATHIAS, Ph.D, GS-15, DAF


SIGNATURE: ___(REDACT)________________


TITLE: Executive Director, 844th Communications Squadron


DATE: ___1 Feb 12_________


REQUIREMENTS CERTIFICATION:

"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."


NAME: ANTHONY J. THOMAS, Colonel, USAF


SIGNATURE: ___(REDACT)_________________


TITLE: Commander, 844th Communications Group


DATE: __3 FEB 12___________


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CONTRACTING OFFICER CERTIFICATION: Include the following determination:


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


belief."


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


TITLE: Contracting Officer DATE: ___10 Feb 2012______________


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PROCURING ACTIVITY COMPETITON ADVOCATE APPROVAL


"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))


SIGNATURE: (REDACT)


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


Printed/Typed Name and Title Organization Phone Date


ALL QUESTIONS REGARDING THIS JUSTIFICATION FOR OTFAOC ARE TO BE


REFERRED THE CONTRACTING OFFICER


Marcia Ann Ferranti, DISA/PL8211, DSN 779- 9473, Marcia.Ferranti@disa.mil


(REDACT)



:
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