Raytheon Company, B-291449, January 7, 2003

B-291449 Jan 07, 2003 Jump To VIEW DECISION RELATED PAGES GAO CONTACTS Highlights A FAB-T is a satellite communications vehicle consisting of an antenna that transmits and receives radio signals to and from communications satellites. The FAB-T will have: a common design approach with common interfaces that work across multiple platforms. Which is to provide the FAB-T architecture and satisfy the TRD. The RFP established a split proposal submission schedule under which cost proposals were submitted last. The first two factors were of equal importance and each was more important than cost. Proposals were to be rated under the mission capability/proposal risk factor with a color rating and a proposal risk rating. Was to be assigned under each subfactor to reflect the assessed strengths and inadequacies of each proposal. View Decision Raytheon Company, B-291449, January 7, 2003 * REDACTED DECISION DIGEST Attorneys DECISION Raytheon Company protests an award to The Boeing Company under request for proposals (RFP) No. F19628-01-R-0033, issued by the Department of the Air Force, Air Force Materiel Command, Hanscom Air Force Base, Massachusetts, for the development of the Family of Advanced Beyond-line-of-sight Terminals (FAB-T) and related tasks. Raytheon protests the agency's technical evaluation and source selection decision. We deny the protest. BACKGROUND Currently, the Air Force has over 100 different types of satellite communication terminals, each of which requires specially trained personnel to operate and maintain it; the Air Force states that it cannot afford to continue that communications approach and seeks to replace it with the FAB-T program. Agency Report, Tab 5E, Technical Requirements Document (TRD), at 1. A FAB-T is a satellite communications vehicle consisting of an antenna that transmits and receives radio signals to and from communications satellites, a modem/processor that provides primary computer processing resources, operator interface devices that provide the operator with the capabilities to command and monitor the terminal operation, and supporting equipment. Hearing Transcript (Tr.) at 7-10; Agency Report, Tab 5E, TRD, at 4. Terminals can be located on the ground or on aircraft. The FAB-T will have: a common design approach with common interfaces that work across multiple platforms, multiple applications, and for all branches of the U.S. military; multiple configurations available to meet various user needs; and an architecture that can be modified (or extended) to incorporate technology/capability upgrades. Agency Report, Tab 5E, TRD, at 1. The FAB-T program has an evolutionary acquisition approach. The present RFP addresses the first increment, which is to provide the FAB-T architecture and satisfy the TRD. The RFP requires prototype platforms to be developed for five airborne platforms, i.e., B-2, B-52, E-4B, E-6B, and RC-135, as well as for two ground platforms, i.e., ground-fixed and ground-transportable command posts. This acquisition does not include the production and delivery of FAB-T equipment. The RFP, issued March 27, 2002, contemplated the award of a cost-plus-award-fee contract (with cost-plus-fixed-fee and fixed-price components and options) for a period of approximately 6 years. The RFP established a split proposal submission schedule under which cost proposals were submitted last, after the agency had evaluated technical proposals. Award would be on a "best value" basis considering three evaluation factors: (1) mission capability/proposal risk, (2) past performance and (3) cost. The first two factors were of equal importance and each was more important than cost. Mission capability/proposal risk had two subfactors with subfactor 1--architecture and system performance--more important than subfactor 2--integrated processes. /1/ The RFP evaluation plan under the mission capability/proposal risk factor provides for evaluating proposals based on the extent that they address, meet or exceed the statement of objectives (SOO) for the FAB-T program, /2/ the threshold requirements stated in the TRD, and additional non-mandatory "objective requirements" (enhancements) in support of future communications capability identified in the TRD. The RFP included a case study to evaluate proposals under the architecture and system performance subfactor to assess such matters as the proposal's flexibility to accommodate future changes and upgrades, and the ability to provide engineering development models for the B-2 and the ground command post terminals by February and October 2006, respectively. Proposals were to be rated under the mission capability/proposal risk factor with a color rating and a proposal risk rating. A color rating--blue (exceptional), green (acceptable), yellow (marginal) or red (unacceptable)--was to be assigned under each subfactor to reflect the assessed strengths and inadequacies of each proposal.