Request for Proposal HQ0006-96-R-0016
The Ballistic Missile Defense Organization (BMDO) is entering into a procurement to obtain a Lead Systems Integrator (LSI) contractor. This contractor will have the responsibility to design, develop, test, integrate, and potentially deploy and sustain the National Missile Defense (NMD) system. The LSI will integrate all NMD element development to include the Ground Based Interceptor (GBI), Battle Management Command, Control and Communications (BMC3), Ground Based Radar (GBR), Upgraded Early Warning Radar (UEWR), Forward Based X-Band Radar (FBXB), and the Spaced Based Infrared Sensor (SBIRS-Low) system when it becomes available.
The LSI procurement consists of two phases: an LSI Concept Definition (CD) phase in which up to three contracts will be awarded, followed by a down select to a single contractor for the LSI Execution phase. (See Figure ES-1: LSI Acquisition Strategy.) The purpose of this CD phase is to define the concept upon which the LSI Execution phase will be executed.
After the recent DOD Ballistic Missile Defense program review, the Secretary of Defense announced on 16 February 1996 the change from the NMD Technology Readiness program to the NMD Deployment Readiness Program, also known as the NMD "3+3" program. The "3+3" concept is an evolutionary acquisition program to develop and demonstrate an ICBM defense capability within three years of the program's initiation. If necessary, the program will deploy an initial defense capability within another three years. The first three years of development will include an integrated system test in FY99 (the FY99 Integrated System Test) and culminate with a Deployment Readiness Review in FY00. If a deployment decision is not warranted, then development will continue into a more deliberate, reduced-risk acquisition while maintaining the capability to field an NMD system within three years.
Overall NMD program acquisition strategy goals are:
Evolve from individual element technology development to integrated system development ready for deployment
Move from total Government integration to increased contractor responsibility
Plan, design, and develop an NMD system that will meet system requirements
Conduct a successful FY99 Integrated System Test (IST) followed by a deployment readiness review
Develop and maintain a viable three-year NMD system deployment option
Provide flexibility to deploy or continue to improve and test the system
LSI Concept Definition (CD) Phase
Using full and open competition, BMDO will award up to three $8M firm fixed price contracts, lasting approximately six-months. During this phase, each contractor will develop and deliver detailed plans and schedules for the follow-on LSI Execution contract. These data deliverables will include an Integrated Master Plan (IMP) and an Integrated Master Schedule (IMS) that will cover element development and integration, system demonstration, potential deployment plans, and further evolutionary development of the NMD system.
A key objective of the CD phase is to determine the specific roles and responsibilities of the LSI contractor in the FY99 Integrated System Test. Planning during the CD Phase should strive to balance a number of factors, including:
The level of responsibility for the LSI contractor in the performance of the FY99 Integrated System Test;
How the FY99 IST test articles relate to the LSI contractor's NMD design and integration concept, and therefore the fidelity that could be achieved in the test; and
Considerations of risk and technical objectives
While the Government desires that the LSI accept the maximum responsibility for this test, it understands that the legacy of current element development may be different from the LSI contractor's NMD design. In addition, the extensive test planning, preparation and acquisition that will have been performed by the Government will significantly impact the degree of responsibility assumed by the LSI.
Each CD contractor will conduct life cycle trade studies on various Ground Based Interceptor (GBI) booster stack options. One option must be based on the Minuteman (as Government furnished equipment), and another on a contractor-proposed new, modified, or off-the-shelf booster stack and infrastructure. Contractors will have to consider which GBI configuration will be available in FY99, a three-year deployment option as early as FY03 but sliding for several years thereafter, and the objective system sometime beyond FY07. The CD phase Statement of Objectives (SOO) requires consideration of existing systems and infrastructure. However, contractors are to conduct trade studies and provide recommendations to the Government based on the best value GBI configuration to meet system performance requirements. These GBI trade studies are due two months into the contract, followed by a booster alternative recommendation for the GBI. There is no preferred Government solution to these studies. The CD contractors will also establish Kill Vehicle selection/evaluation criteria and propose a down-select plan.
Exhibits A and B of the RFP describe CD contract deliverables. Exhibit A contains eight data deliverables: Integrated Master Plan (IMP); Integrated Master Schedule (IMS); Life Cycle Cost Analysis; Conference Management; Data Accession List; Updates to Documentation; analysis of the performance of alternate architectures; and a summary of the Test and Evaluation program to be used for ABM treaty compliance review. A draft IMP and IMS are due five months after contract award, with the final due two months later. Exhibit B contains the GBI trade study deliverables (GBI Alternatives Evaluation and Recommendation), which are due two and four months respectively after contract award. The Government expects the CD phase deliverables to form the basis of the Offeror's proposal for the LSI Execution phase of the program.
The Government plans to provide three technical briefings in a Technical Interchange Meeting (TIM) format. These TIMs will occur immediately after CD contract award to describe the status of various elements of the NMD system. First, an overview of NMD and discussions on BMC3 will be held in the Washington DC area. Next is a briefing at Huntsville, AL to review the EKV and GBR status. The final briefing will be at Hill AFB, UT to review the Minuteman system and infrastructure. If deemed necessary by the CD contractor(s), a site visit to the North Dakota missile fields is possible.
A contractor-conducted In-Process Review (IPR) will provide results of the Booster trade studies and the status of the IMP/IMS at a contractor-proposed time not later than three months after contract award. The Government will consider CD contractor requests for additional IPRs.
During the CD phase, the Government will progressively review CD products. The Army has been assigned the responsibility to lead a Joint Service Team to assess the GBI alternatives evaluation and recommendation products, and to advise BMDO on the analysis. These products are not evaluated directly as part of the LSI down selection. However since the deliverables are reflected in the contractor's overall NMD strategy, they bear directly on the credibility of the proposed integration concept.
The Government will review the proposed GBI and Test and Evaluation concepts for treaty compliance and evaluate the performance of alternative architectures which may be treaty compliant. The Government's objective is to understand the treaty implications of the proposed NMD program. Treaty compliance of the deployed NMD system is not a requirement, and will not be evaluated as part of the Source Selection process. If the Government review indicates that changes in LSI requirements are necessary, these will be provided as an amendment to the LSI RFP prior to proposal submission.
The primary basis for the technical evaluation of the LSI proposals is the Integrated Master Plan (IMP) and Integrated Master Schedule (IMS) data products, as well as cost estimates and element descriptions provided in the Life Cycle Cost (LCC) estimate. The Government may provide additional feedback on these products, as reflected in the LSI proposals, prior to the request for Cost Proposals.
BMDO intends to work in partnership with industry to ensure a meaningful NMD LSI CD. Industry comments are encouraged on the draft LSI RFP content and schedule so that industry may contribute to requirements definition. Continued industry comments are essential to ensure government and contractor understanding of LSI responsibilities. A draft SOO, down-select evaluation criteria, and instructions for proposal preparation for the LSI Execution phase will be posted on the Internet during the CD phase for real-time industry feedback. The Government will release an RFP for the LSI Execution phase approximately four months into the CD contract. Formal contract discussions can take place during this period with an expected LSI Execution phase proposal submission seven months after CD contract award.
LSI Execution Phase
The objective of the LSI Execution phase is to execute the plans developed during the CD phase, updated as required throughout the NMD program. The execution phase consists of two segments. The first segment is the base development program culminating in the Deployment Readiness Review in FY00 to assess the viability of deploying an NMD capability as early as FY03. The second is continued acquisition/development toward the objective system, while reducing program risk, incrementally improving system capabilities, and maintaining a viable three-year NMD deployment option.
The base LSI Execution phase is a 36 month cost plus award/incentive fee effort. The goal of this period is to have a system capable of being deployed within 3 years of a decision. This development effort includes an integrated system test in FY99 that will demonstrate system performance effectiveness against a representative threat. The base period ends with a Deployment Readiness Review in FY00.
After the Deployment Readiness Review, the Government will exercise LSI Execution contract options for up to seven additional years for deployment planning and evolutionary development. The extent of the effort depends on the deployment decision and program direction. The core of this phase is the continued acquisition/development of NMD toward the objective system while reducing program risk, incrementally improving system capabilities, and maintaining a three-year deployment option. The contractor will price the evolutionary development toward the objective system in the LSI Execution proposal, and provide Not-to-Exceeds for other options.
Government management of the development of the NMD system requires major efforts by BMDO and the Services. The intent is to utilize a Program Office comprised of a geographically distributed organization with the people located where they can best manage that aspect of the program for which they are responsible. While BMDO is responsible for the development of the overall NMD system, the Services will continue to be responsible for the individual elements which are currently assigned to them. This means the Services will continue to oversee the development (i.e. technical oversight, schedule oversight, and budget formulation and cost monitoring responsibility) of their respective elements under the LSI contract. Overall program responsibility and contracting authority will remain with the program office in Washington to insure a balanced, integrated perspective.
NMD Requirements and Architecture
The ultimate NMD system could include up to 200 GBIs, possibly located with a GBR at one site or divided among several United States locations; a BMC3 system that interfaces with National Command Authority for system control; and SBIRS-Low and potentially other sensors at other locations. Most of these elements are in various stages of development under on-going Government contracts.
System level requirements for NMD are derived from the approved User Capstone Requirements Document (CRD), and supporting materials, such as the Concept of Operations (CONOPS). From these mission requirements, BMDO has identified the NMD system requirements, including performance requirements and other required system characteristics (e.g., interoperability requirements, supportability, operational constraints). These requirements are identified in Paragraphs 3.2 through 3.6 of the System Requirement Document (SRD). Flow-down of the NMD element requirements is provided in paragraph 3.7 of the respective SRD's. Associated system-level Quality Assurance provisions are supplied in Section 4.0 of the SRD. These documents form the compliance requirements for the LSI effort. The LSI contractor will have the ability to design to these system requirements, and to develop lower level testing strategies that support the overall requirements of the SRD and NMD Test and Evaluation Master Plan (TEMP). These elements can be combined into C1, C2 and C3 architectures that have been developed through this process.
C1 architecture: The initial NMD System capability is designed to defend all 50 states from a single United States site. The C1 architecture is structured to defend effectively against small numbers of threatening warheads from Third World adversaries. The GBI and GBR will be located at a yet to be selected site. The existing Grand Forks, North Dakota BMD site has been evaluated, as have sites in the state of Alaska. Low earth orbit space-based sensors (i.e. SBIRS-Low) are not likely to be available if this architecture is deployed by 2003. Therefore, the architecture includes existing space-based sensors (DSP and SBIRS-High), Upgraded Early Warning Radars and the option to use forward-based radars, whose location will depend on the specific Third-World threat against which the NMD system is deployed. The C1 architecture will include: GBI - 20; GBR; Upgraded Early Warning Radar; a forward based X-band radar option; and a BMC3 system.
C2 architecture: The C2 capability is designed to provide excellent protection for all 50 states against a small of number of complex threats. This architecture adds a constellation of infrared tracking and discrimination satellites (SBIRS-Low) to the elements of the initial system. The sensor satellites will provide early-trajectory tracking and discrimination capability. The C2 architecture will include: GBI-100; possible GBRs; SBIRS-Low; Upgraded Early Warning Radars; DSP and/or SBIRS-High; a forward based X-Band option; and a BMC3 system.
C3 architecture: The C3 capability includes adopting the C2 architecture to a multi-site deployment within the United States with appropriate GBIs.
C1(a) and C2 (a) architectures: These capabilities include the C1 and C2 architectures located at the Grand Forks, North Dakota BMD site without FBXB radars.
In order to satisfy the requirements of the Capstone Requirements Document, and if the threat warrants, NMD deployment may require modifications to the ABM Treaty.
A summary of the LSI Acquisition Strategy is provided in Figure ES-1. A schedule for some of the critical events during the CD phase and Down Select process is provided in Figure ES-2.
Figure ES-1 LSI Acquisition Strategy
Figure ES-2 CD Phase and Down Select Process