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SECTION L-III - INFORMATION TO OFFERORS (ITO)

DISCOVERER II PROTOTYPE DEMONSTRATION
CONTRACT F04701-9X-C-00XX
ATTACHMENT 1

DISCOVERER II PHASE I – Trade studies, prototype design(s) and objective system design(s).
DRAFT SOLICITATION, OFFER AND AWARD
1998 Sep 02

F04701-98-R-0045

Discoverer II Joint Program Office
Defense Advanced Research Projects Agency
3701 N. Fairfax Drive
Arlington, VA 22203

1.0 Program Structure and Objectives

1.1 Program Background

The Discoverer II (DII) program is a Defense Advanced Research Projects Agency (DARPA), Air Force and National Reconnaissance Office (NRO) joint initiative. It will develop and demonstrate an affordable space-based radar (SBR) with High Range Resolution Ground Moving Target Indication (HRR-GMTI), Synthetic Aperture Radar (SAR) imaging capabilities and Digitized Terrain Mapping Elevation Data (DTED) that will revolutionize reconnaissance, surveillance and precision geolocation support to the tactical warfighter.

The Discoverer II leverages the key concepts of the DARPA STARLITE initiative. The STARLITE concept was advanced in early 1997 following the completion of a DARPA-sponsored study. This study reported the feasibility of developing, deploying and operating a constellation of relatively inexpensive radar satellites designed to affordably provide near-continuous, day/night, all-weather, SAR imaging support to the warfighter that could be directly tasked by the warfighter and directly downlinked to theater for processing and exploitation. Shortly thereafter, the concept was modified to incorporate a low cost approach to space-based HRR-GMTI collection as well as SAR imaging capabilities in response to Air Force interest in complementing the Unmanned Air Vehicle (UAV), U-2 and Joint Surveillance Targeting Attack Radar System (JSTARS) battlefield HRR-GMTI surveillance with near-continuous, deep-look HRR-GMTI coverage from space. In addition, to resolve both the technical and operational uncertainties inherent in the concept’s small, low-cost space-based radar, DARPA proposed a STARLITE on-orbit demonstration in FY2001.

At the time STARLITE was proposed, the NRO was in the midst of defining its Future Imagery Architecture (FIA) intended to serve as the basis for acquiring the next generation of imaging satellite systems. The Department of Defense, the Directors of DARPA and the NRO asked the Defense Science Board (DSB) to establish a Task Force on Satellite Reconnaissance (the so-called “Hermann Panel”) to review the operational, technical, industrial and financial aspects of both the STARLITE and FIA initiatives. In late 1997 the Task Force convened and received a series of briefings from DARPA, the NRO, NIMA, the Air Force, and the Joint Staff.

In December 1997, a Senior Warfighter’s Forum (SWARF), composed of senior representatives of the Unified CINC’s, the Joint Chiefs of Staff, the Services, and the national intelligence agencies also considered the STARLITE concept in the course of reviewing FIA requirements. The SWARF acknowledged support and interest for space-based sensor attributes central to the STARLITE concept of: 1) dynamically and directly tasking space-based sensors, 2) receiving direct downlink of sensor data in theater and 3) obtaining rapid revisit rates over an area of interest. The satellite quantity restrictions imposed on FIA precluded the SWARF from incorporating these capabilities within the FIA program.

In January 1998, the DSB Task Force on Satellite Reconnaissance issued its report. The Task Force recommended that a modified STARLITE program be initiated, as a “Military Space Radar Surveillance Program,” in an effort to achieve broad-area, all-weather, near-continuous radar access that could be integrated with military operations. Two central findings of the Task Force are: 1) an on-orbit demonstration would likely be needed, and 2) a technical risk reduction program should be undertaken in advance of the demonstration. The risk reduction program is to bring leading edge, higher risk technologies to meet warfighter needs at lower cost, and to enhance system maturity and thereby facilitate a more direct and rapid transition to a follow-on operational system.

Because the principal objective of an operational system would be to support military operations, the DSB Task Force emphasized the importance of designing the follow-on system for integration with existing and planned systems supporting combatant forces. The DSB recommended the Air Force assume the acquisition, organization and training role under its normal Title X service responsibilities. Similarly, the Task Force recommended DARPA play its normal role of developing innovative military system capabilities, and the NRO participate in the program, given its space reconnaissance systems competence and the expected operational interaction between NRO systems and the new follow-on military space-based radar system.

In late February 1998 DARPA, the Air Force and the NRO signed a Memorandum of Agreement (MOA) establishing a joint program to undertake a “Space-based Radar Risk Reduction and Demonstration Program” and a Joint Program Office (JPO) to execute the program. In April the joint SBR HRR-GMTI/SAR demonstration program was designated Discoverer II.

1.2 Mission Vision

The Discoverer II Objective System is envisioned to be a lightweight, affordable satellite constellation capable of providing responsive, assured and near real time (NRT) persistent surveillance of the earth. It combines ground HRR-GMTI for wide and small area ground surveillance and SAR imagery products to support surveillance; target situation development, acquisition and analysis and reconnaissance operations. This system can support the National, Strategic and Operational organizations, however, the Discoverer II’s primary mission is dedicated support to the Joint Task Force (JTF) Commander as a theater asset in support of campaign objectives. The Discoverer II Objective System will complement future C4ISR capabilities available to the Commander to achieve the tenants of Joint Vision 2010.

The Discoverer II Objective System will work within the intelligence, surveillance and reconnaissance infrastructure, adding a near-continuous world-wide deep look dimension to the system of systems architecture used to detect and monitor threats and potential threats to U.S. national security interests. Examples may include the search for and tracking of weapons of mass destruction, monitoring of sea lines of communication and commerce, and assessment of military readiness and scientific and technical intelligence of the capabilities of potential "rogue" nations.

The Discoverer II Objective System will provide critical information in all phases of military conflict or military and security operations other than war, such as humanitarian assistance, peace enforcement and the like. During all phases of operation, the system will mutually support both the National and Tactical Intelligence and Operational community based on priorities of need. The primary use of the system will transition to the Joint Task Commander as conflicts arise. The National community’s utility of Discoverer II data may focus on indications and warning, post intelligence processing and use of processed DTED product data generation. As tensions escalate the National Command Authority will use the system to monitor an adversary's military activities to obtain warning of hostile actions. As hostilities begin, the system will aid intelligence preparation of the battlespace through collection of digital terrain elevation data, identification of targets within the enemy order of battle, and track establishment for high value and high payoff targets. At the height of combat or contingency operations, the system will support direct targeting and action, discernment of hostile intent and continuous situational awareness.

Discoverer II will be capable of providing in-theater dynamic tasking, theater downlink and rapid revisit capability to the Services based on an apportionment of pass and operations during all phases of operation, from peace to conflict. This methodology tasking and dissemination methodology will be possible from any theater of operations. CINC’s and Service use of Discoverer II during all operations include surveillance of their respective areas of operation; tracking and classification of ground moving targets, the collection of high level DTED for map product collection, geolocation target generation of known entities in preparation of their respective areas of operation, support of precise planning, peacekeeping and training exercises on how to task, conduct collection management planning and allocation of pass familiarization. This will contribute to a Commander’s continual effort to conduct Theater Battle Management and visualization of their respective area of operations, even during peacetime operations, as well as establishing baseline levels of activity or norms.

The maximum utility of the Discoverer II Objective System will result from commander’s use of this asset in coordination with other available intelligence, surveillance and reconnaissance assets. The multiple "look angles", different sensor types, volume of revisits and resolution and accuracy of collection systems such as national capabilities, airborne reconnaissance assets, unattended ground sensors, human intelligence sources and Discoverer II will provide commanders with dominant battlespace awareness and knowledge.

1.3 Program Plan

Discoverer II is an R&D prototype demonstration program to identify and validate the technology growth path required to a launch a capability by 2008. It develops an “Objective System” design that exploits leading edge technology in an affordable system. It will demonstrate this growth path and warfighter utility in a one-year on-orbit demonstration, with a potential of extending to a second year. If the program successfully meets its objectives, the Government anticipates continuing development and fielding the technology after a low cost mini-EM&D program. To do this the Government will empower, enable, and challenge industry to “think out of the box”, exploring multiple alternatives in an innovative Government and industry partnership. The Discoverer II Program consists of a Core Program and five risk reduction programs. This solicitation is for the Core Program. The Core Program consists of two phases. Phase I includes conducting cost/performance trades and preliminary design for the Objective System. Additionally, the preliminary design for the R&D prototype is also developed and linked to the Objective System design, illustrating the technology growth is achievable, the design viable, and the cost credible on a unit by unit level. Risk mitigation and management is also addressed and is a key to transition into Phase II. Phase II is focused on the R&D prototype; further risk reduction activities, completing the design, fabrication, integration, launch and the on-orbit demonstration. The offeror should establish program scope and milestones to meet the Statement of Objectives in the model contract, Attachment 1. Figure 1.1 describes a notional schedule. This solicitation is for Phase I only, however, offerors must be able to execute the Phase II to be considered a viable offeror for Phase I.

1.3.1 Phase I

Phase I begins with the award of approximately four System Integration (SI) contracts, and continues through the last of three Interim Evaluations Reviews (IER). The contracts will consist of a basic contract and an option to continue. The basic contract period of performance will extend from contract award to the completion of the second IER (IER2) including the closure of all action items. The option will continue Phase I to the third IER (IER3). The SI contractors will select and schedule milestones, including the three IERs, in their Integrated Master Plan/Integrated Master Schedule. Fixed payments for work completed will be tied to successfully completing these milestones, as agreed to by the Government/Contractor team. Input regarding mission and capability priorities is planned for shortly after the first IER (IER1) for feed back into the design trades.

The Government anticipates down selecting to two SI contractor teams in January 2000, based on performance during the basic contract award and the second IER deliverables. Offerors should plan to accomplish the second IER with sufficient time to resolve open items and provide deliverables to support the down select. Additionally, the Government anticipates offering a Call For Improvements to the option prior to its award to allow contractors to refine their risk mitigation activities. The Government anticipates exercising the option to continue beyond the second IER for the selected contractors in January 2000. The Government intends to issue the Phase II solicitation to all qualified suppliers.

The Government is pursuing a moderate risk R&D prototype program meeting the launch date and on-orbit demonstration objectives. The Government will evaluate proposals for long-lead enabling Phase II risk reduction activities during the option Call For Improvements.

Progress will be assessed at each IER as described in the offeror’s Statement Of Work (SOW) and Integrated Master Plan/Integrated Master Schedule (IMP/IMS). Proposed Technical Performance Measurements (TPM) and performance metrics evaluated in the standard scenarios provided in the System Capabilities Document, Appendix 3, will provide a nominal measure of performance. SI(s) may offer additional criteria/scenarios for evaluation. Phase I may be extended beyond IER3 for SI(s) with Objective System designs which merit continued development. The focus for each IER follows:

1.3.2 Phase II

The Government anticipates awarding Phase II in May 00. The Government may elect to award one or two Phase II contracts based on either technical merit and/or budgetary constraints. Risk reduction activities and Critical Design Review (CDR) for the R&D prototype are in this phase. Launches using GFE EELV or Delta II class launch vehicles are programmed for 4 th quarter FY 2003 and 1 st quarter FY 2004. The Government may elect to fund the SI directly for commercial launch services as a Phase II task if proposed. An on-orbit system demonstration will consist of contractor run check-out, system characterization, experiments, and system optimization, to evaluate system performance, and a series of operational demonstrations to evaluate operational utility.

1.4 Core Program Scope

A key objective for the program is Total System Responsibility (TSR), for both Phases I and II. The selected SI contractor(s) will construct and manage a program with a seamless, comprehensive management and systems engineering approach. For the Objective System, the SI team must consider the entire Space Based Radar architecture including Tasking, Processing, Exploitation, and Dissemination (TPED) in developing missions, Objective System Concept, CONOPS and when designing the satellite, radar, communications and ground segment processing requirements and connectivity into the C4ISR infrastructure. The Government desires to leverage the migration path of the CIG/SS infrastructure, and ultimately the Distributed Ground Station (DGS), and expects the SI teams to establish requirements for the ground segment interface consistent with a projected growth path.

Current CIG/SS architecture employs the Common Imagery Processor (CIP) and Modular Interoperable Surface Terminal (MIST). During Phase I, the Interface Control Documents (ICD) will be provided. The SI’s TSR includes the satellite, radar, communications, and the ground segment including tasking, control, and data processing and display, but excluding target tracking and exploitation. The Government will provide GFI target tracker software for integration by the SI. The SI is responsible for providing a tasking and mission planning capability to control the satellite and constellation. It is anticipated in Phase II that the SI(s) will establish a capability/facility for tasking, Tracking, Telemetry & Control (TT&C) and ground processing and display to enable testing and evaluation.

The ground interface for the Phase II operational demonstrations will use CIG/SS compliant infrastructure resident in the Tactical Exploitation System (TES), and disseminated using existing infrastructure. It is anticipated the Phase II SI(s) will establish a relationship with the CIP prime contractor, Northrop-Grumman, and ICD(s) will be established to integrate DII processing requirements into the CIP. The actual coding and integration into the TES will be accomplished outside the scope of the core contract, on the current CIP contract with participation from the SI on the Core Program contract. A similar arrangement is expected with the MIST prime contractor, L3COM, for any modifications to that equipment. TT&C and tasking management will be accomplished using the contractor’s facility during testing and may be used in conjunction with the Services assets during operational demonstrations.

The Army and DARPA have several development programs ongoing in data exploitation and will lead the effort to integrate advanced exploitation capability, including target tracking, into the TES. The Core Program scope does not include design of exploitation algorithms. However, the offeror’s system must have characteristics sufficient to enable tracking, DTED processing and target classification when exploitation is employed, to have the desired utility. The SI will interface with the Government to ensure their design enables the benefits of the exploitation processing. A relationship linking the offeror’s system HRR-GMTI performance to tracking is in System Capability Document, appendix 3 at attachment 2. The Offeror may propose a different relationship for Government approval. During Phase I, the Government will provide the tracker for inclusion in the SI’s modeling and simulation. This tracker is the anticipated tracker for Phase II operational demonstrations. The Government will accomplish the DTED processing. The Government will provide an initial requirements document for interface with the Government algorithms as described in section H. Target classification, specifically, is not included in the scope of the core program. However the tracking Probability of Correct Associations (PCA) can be improved with target characterization. A FOM to credit tracking performance as a result of target characterization is planned to be available as listed in section H. The SI will participate with the Government to establish Discoverer II ICDs during Phase II, and support testing for the exploitation and processing algorithms. Table1.1 Summarizes the SI TSR for the Core Program, Phases I and II.

1.5 Other Discoverer II Risk Reduction Programs

Discoverer II includes five risk reduction programs designed to identify/demonstrate the capabilities that could be exploited directly by the tactical warfighter. Additionally, the programs mature these enabling technologies, reducing the risk to the Core Program and ultimately, E&MD. These programs are separate contract activities. Data available from these programs are described in section H. The risk reduction programs are:

1.6 Integrated Product Development

The Government is implementing a streamlined approach based on Integrated Product Development (IPD) for this Discoverer II effort. This approach provides flexibility to the contractor in conducting an effective effort while giving the Government greater visibility into this effort. Two of the major features of this approach are reviewed in this introduction.

The first major feature addresses planning the contract work effort and preparing the contract documentation, see Figure 1.2. The Government’s RFP provides the Offeror with the elements shown in the left column of the figure; i.e., Model Contract (Sections A - K), Section L, Section M, System Capability Document (SCD), Statement of Objectives (SOO), Preliminary Work Breakdown Structure (PWBS), Applicable Documents, Contract Data Requirements List (CDRL), and Contract Line Item Numbers (CLINs). Based on the RFP requirements, the Offeror shall submit a proposal containing the items listed in the center column of the figure; i.e., a completed Model contract, Contract WBS (CWBS), Statement of Work (SOW), Applicable Documents, an Integrated Master Plan (IMP) and Schedule (IMS), CDRL, and CLINS in accordance with the detailed proposal preparation instructions found in this RFP. The definitive contract contains the elements shown in the right hand column of the figure. The IMP expands on the CWBS, its dictionary, and the CSOW tasks, and establishes, by key events and selective narratives, the significant accomplishments and corresponding accomplishment criteria for both the products and processes necessary to accomplish the effort. Selected narratives will be included to explain where in the process the criteria apply. The IMP will be placed on contract. The IMS supports the IMP and shows the schedule of tasks necessary to achieve each significant accomplishment. The IMP and IMS will be used to track the progress of the effort, based heavily on the accomplishment criteria that serve as measures of the progress. A briefing describing the IMP/IMS and common numbering system is located in the Discoverer II reference library (see section 2.1.5).

The second major feature of the IPD approach is the use of Integrated Product Teams (IPTs) in implementing the event-driven plan described above. This approach involves a teaming of Government and contractor functional disciplines to integrate and concurrently apply all necessary processes to produce effective and efficient products that satisfy mission requirements. The Discoverer II System Program Director (SPD) is a senior Air Force officer (Col Hughes). He implements and executes an integrated, streamlined program consisting of the Core Program and risk reduction programs. The SPD has assigned a Core Program Manager (Lt Col Netzer). He and his technical team will interface with the SI(s) for day to day operation in an IPT structure.

1.7 Contracting Objectives

The fixed price nature of the Phase I solicitation accompanied by a full and open competition and a competitive down-select strategy goes a long way toward assuring the Government that fair and reasonable prices can be obtained without imposing cost data requirements. We are requesting industry assistance in structuring the solicitation to obtain only that information necessary to conduct price analysis for both the basic contract and any subsequent modifications. We do not anticipate requiring cost data for Phase I and have structured the draft solicitation to require the minimum data necessary.

Offerors may decide to invest corporate funds toward efforts that may advance related technologies or reduce risk on this or related programs. Government accounting requirements prohibit the use of Independent Research and Development (IR&D) funds for effort required under a Government contract. If you choose to conduct related research and development activities, the effort must be segregated from the effort you propose in your statement of work for Discoverer II. Further, we are considering including corporate experience in related research and development activities in our evaluation of offeror technical capabilities for Phase I and welcome your comments on this issue.

In addition, the JPO intends to pursue non-statutory waivers and deviations to FAR requirements when it can be demonstrated that waiving or revising a clause is in the mutual interest of both the Government and the offeror based on a business case proposed by the offeror. For example, the Government intends to obtain Government Purpose License Rights for data pursuant to the standard DFARS provisions. However, we recognize that there may be cases where the offeror may propose an alternative licensing arrangement which may further restrict the Government’s rights. Current DFARS provisions allow some flexibility to negotiate rights. We will consider doing so only where it can be demonstrated by the offeror that trading rights will result in some quantifiable value or benefit to the Government.

As part of this effort to streamline the DII solicitation, we request each offeror and potential subcontractors and team members actively review the standard FAR, DFARS, AFFARS, and AFMC provisions contained in the model contract and provide us with an assessment of those clauses that, if waived or altered in some way, would provide benefit to the offeror, which in turn would be passed to the Government. Such benefits should be quantified in terms of cost, schedule and/or performance impacts, ie. greater efficiencies, cost savings, administrative savings, better technical solutions, etc. To the maximum extent practicable offerors should accompany any suggested waivers and/or deviations with the anticipated impacts to the program if the waiver was granted. We will pursue as many waivers and deviations as appropriate prior to issuing a formal solicitation. After the solicitation is issued we urge potential offerors to include additional waivers/deviations as part of your proposal accompanied by appropriate justification and quantifiable impacts to the program. We assure you that we will pursue proposed waivers and deviations expeditiously, but cannot guarantee their approval. Therefore, a compliant proposal must be submitted to ensure you are responsive to the RFP requirements.

On a final note, we want to encourage innovative approaches to establishing the best teams to accomplish the objectives of this solicitation. To that end, we will support your efforts to seek commercial solutions wherever possible. In order to maximize commercial firm participation, we solicit your input regarding requirements to flow-down clauses to subcontractors and other team members. It is imperative that prime offerors encourage participation at the subcontractor level and seek relief to FAR requirements at the subcontractor level when appropriate. For example, when dealing with strictly commercial firms, the Department of Defense has been delegated authority to waive Cost Accounting Standards. The text of the delegation is included in the solicitation. We strongly endorse any efforts to seek such waivers where appropriate.

We will continue to refine this solicitation during the draft comment process. Your input is critical to ensuring the successful execution of this program. Direct your comments concerning the contract aspects of this solicitation to Mr. Ron Poussard, Chief of Contracts, Discoverer II.