DEPARTMENT OF THE NAVY
NAVAL AIR WARFARE CENTER AIRCRAFT DIVISION
IN REPLY REFER TO:
JUSTIFICATION AND APPROVAL
FOR USE OF OTHER THAN FULL AND OPEN COMPETITION
1. Contracting Activity.
Naval Air Warfare Center Aircraft Division (NAWC-AD) Lakehurst, NJ
2. Description of the Action Being Approved.
AIR 4.5X Special Surveillance Programs (SSP) has been tasked by the Department of Defense to enhance
existing Persistent Ground Surveillance Systems (PGSS) and procure additional enhanced PGSS for Forward
Operating Bases (FOBs) throughout Afghanistan and Iraq. This action will be a Firm Fixed Price (FFP) contract
(Hardware) and Cost Plus Fixed Fee contract (Services) with FLIR Systems, Inc. (FLIR), 27700 SW Parkway
Ave., Wilsonville, Oregon.
3. Description of Supplies/Services.
The FFP portion of this contract is for the purchase of up to twenty-five (25) Star Safire HD turrets, forty (40) Star
Safire 380 HD turrets, and the CPFF portion of this contract is for nine man-years (9) of Field Service
Representative (FSR) support including travel. The requested FLIR hardware is designed to enhance the
capabilities of the existing Persistent Ground Surveillance Towers (PGST) systems currently fielded in support of
Operation Enduring Freedom (OEF) as well as outfit additional PGST sites as requested by Joint Urgent
Operational Needs Statement JUONS CC-0306 through Mod 3. The planned period of performance is 36
The PGSS System provides round-the-clock real time Intelligence, Surveillance, and Reconnaissance (ISR),
force protection, FOB protection, and route and counter-improvise explosive device support to the FOBs
throughout OEF. The system has been responsible for numerous improvised explosive device emplacement
detections, person of interest tracking and capture, weapons detection, and overall improved battlefield
awareness to the Combatant Commander. System enhancements include the addition of PGST as an ISR
supplement for the FOB when the aerostat is moored or undergoing service, the use of Wide Area Surveillance
turrets to provide 360 degrees of constant ISR coverage in the area immediately around the FOB and the ability
of other FOBs to share the video being provided of an area to give increased situational awareness.
The total estimated value of this action is $58.915 Million dollars and will be funded with FY11 through FY13
Other Procurement Army (OPA) and Operations/Maintenance Army (OMA) funds. (See Appendix A for
Estimated Dollar Value).
See Appendix A for Estimated Dollar Value
4. Statutory Authority Permitting Other Than Full and Open Competition.
10 U.S.C. 2304(c)(1), Only one responsible source and no other supplies or services will satisfy agency
5. Rationale Justifying Use of Cited Statutory Authority.
The United States (U.S.) military has had a continuing and urgent problem with maintaining the physical security
and force protection of FOBs in remote locations operating as part of the global war on terror. Isolated FOBs
have been repeatedly attacked without warning by Enemies Of Freedom (EOF), which have inflicted heavy
casualties on U.S. forces. The technology being fielded as part of the PGSS is specifically tailored to protect U.S.
forces by providing the ability to detect, locate, identify and conduct surveillance of potential EOF forces that are
approaching in the distance, giving U.S. forces ample time to assess the threat and respond appropriately. The
rapid deployment of the PGSS will help minimize the loss of life of U.S. forces, will decrease casualties, will
improve force protection and will immediately and seamlessly interface with already-deployed ISR systems. The
immediacy and urgency of this requirement has been documented and validated throughout the Department of
Defense as set forth below.
This procurement action is in direct support of the PGSS which addresses a JUONS designated by the U.S.
Central Command as being critical to the warfighting activities in Afghanistan. JUON CC-0306 through
Modification 3 dated January 7, 2011 supports this requirement. This requirement has been designated a priority
02 and given a DO-A7 rating. To date, FLIR has delivered 16 turrets to the warfighter.
PGSS is undergoing a standardization program. A common platform simplifies training, logistic support and
interoperability within the fleet. FLIR is the sole designer, developer, manufacturer, and distributor of the Star
Safire turrets being utilized within the PGSS and PGST. The FLIR Star Safire turrets have been integrated and
are a critical component of the standardized PGSS and PGST. The Government does not possess the technical
data required to manufacture the sensors internally. It is not economically feasible for NAVAIR to procure the
development rights to these systems based upon the item being a commercial item.
Use of any source other than FLIR for these turrets would require months of testing and would require personnel
to be trained in the use and maintenance of another piece of equipment which would then have to be added to
the operation and maintenance manuals. Additionally, another part would have to be added to the logistics
support of the PGSS. The result would be substantial duplication of cost that would not be recovered through
competition. The delays would in turn jeopardize troops deployed in hostile areas and endanger mission
6. Description of Efforts Made to Solicit Offers from as Many Offerors as Practicable.
Technical subject matter experts from AIR 4.5x (AIR 4.5x) conducted demonstrations and assessments to
identify manufacturers of supplying 360 degree long range E/O and IR real-time imaging capability and that are
able to operate in a wartime environment. This included both an internet search to identify possible vendors and
a query through the Central Contractor Registration System. Subject matter experts contacted potential
manufacturers in order to determine company capabilities. Based on AIR 4.5x experience with Special
Surveillance contractors and equipment, along with research done under existing contracts for similar
surveillance programs, potential sources conducted demonstrations of their equipment at Yuma Proving
Grounds. These demonstrations took place in several phases from September 8 to 22, 2009, October 19 to 23,
2009 and 16 to 20, November 2009. As a result of these demonstrations a candidate PGST was configured and
tested prior to deployment to Afghanistan. More than 100 operators and mission commanders have been trained
prior to deployment. Operation and maintenance manuals have been developed. A system has been established
to provide spares and other logistics support. Since 2010, more than 10 of these systems have been developed
and delivered for deployment and incremental improvements have been made based on feedback from
A synopsis was posted to the FedBizOpps on April 19, 2011 with a response date of May 4, 2011. There was a
total of one response received from Goodrich Cloud Cap Technologies on 28 March 2011. Experienced
technical personnel at AIR 4.5X provided a technical analysis of the response. It was determined that Goodrich
Cloud Cap Technologies is not a viable solution at this time.
7. Determination of Fair and Reasonable Cost.
In accordance with FAR 15.402, the Contracting Officer shall ensure that the price negotiated for this acquisition
is a fair and reasonable price. An independent government estimate and price analysis has been provided for
The proposal will be reviewed by experienced technical personal at SSP, cost analysts and contract specialists.
The price reasonableness for the commercial hardware will be based on prices for the commercial items sold to
the public, acquisition history, as well as product catalogs and price lists. The cost proposal for the services
portion of this effort will be forwarded to DCMA and/or DCAA for verification of labor rates. The Contracting
Officer will utilize cost and price analysis in accordance with FAR 15.404-1, including a review of historical data,
as the basis for negotiating a fair and reasonable price.
8. Actions to Remove Barriers to Future Competition.
For the reasons set forth in paragraph 5, NAVAIR has no plan at this time to compete this contract for the types
of supplies/services covered by this document. The Government does not possess the technical data required to
compete this contract since the items being procured are commercial items. Also, these items were previously
procured by another prime vendor who went to FLIR as a subcontractor. The Government has broken away from
the original sole source and gone directly to the vendor. There are no future requirements for this equipment, as
this procurement will support the existing systems now and in the future. If another potential source emerges,
NAVAIR will assess whether competition for future requirements is feasible.