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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 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.
1. REQUIRING AGENCY AND CONTRACTING OFFICE:
1600 Air Force Pentagon
Washington, DC 20330-1600
POC: Mr. Anton Vanterpool
Phone: (703) 692-0878
Phone: DSN 222-0878
Defense Information Technology Contracting Organization (DITCO)
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
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.
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:
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
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
(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.
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.
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
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.
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.
"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
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."
NAME: ANTHONY J. THOMAS, Colonel, USAF
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______________
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))
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
2300 East Dr.
Scott AFB, Illinois 62225-5406
2300 East Dr.
Scott AFB, Illinois 62225
United States Minor Outlying Islands
Barbara A. Hylla
Justification and Approval (J&A)
March 12, 2012
Automatic, on specified date
April 13, 2012
Original Set Aside:
D -- Information technology services, including telecommunications services
517 -- Telecommunications/517110 -- Wired Telecommunications Carriers