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The US Air Force wants to continue its light-attack experiment. Will industry buy in?
By: Valerie Insinna
WASHINGTON — If the U.S. Air Force takes two years to conduct a light-attack experiment — made possible in part by industry investments — and then abandons it, why should defense contractors buy into the next one?
That was the question posed to the Air Force's top uniformed acquisition official by one attendee of a Feb. 1 event held by the Air Force Association.
"I think there's a skepticism out here,” said Mike Loh, a retired Air Force four-star general who now runs a consulting firm.
“There's got to be a requirement or funding or both at the end of that, otherwise you've got guys in industry that are investing a lot of money, and they're looking back at light-attack aircraft,” he said. “What did you do? Nothing. You put it on the back burner.”
Loh's question highlights the confusion surrounding the Air Force's path forward on the light-attack experiment, as well as unease about the way the service approaches industry investment in short-term experimentation or development campaigns with no clear contract award at the end of the process.
Industry investments have already allowed the service to fly the aircraft, set up logistics infrastructure and try new capabilities
Last month, Air Force officials confirmed the service would not put out a final solicitation for the light-attack program. Matt Donovan, its undersecretary, said on Jan. 18 that the service preferred to conduct additional experiments and wanted to broaden the campaign.
This latest shift follows a failed attempt to acquire a light-attack plane about a decade ago. In 2009, the Air Force began the Light Attack/Armed Reconnaissance program, and its competitors — the Textron AT-6 and Sierra Nevada Corp.-Embraer A-29 Super Tucano — are the same two aircraft involved in the current experimentation campaign.
That program fizzled out due to political reasons around 2013, but the Air Force is still hopeful it can press ahead with its latest light-attack effort.
“I have ideas of how we go forward, and I think we know how we go forward,” Lt. Gen. Arnold Bunch, the military deputy for the Office of the Assistant Secretary of the Air Force for Acquisition, said of the light-attack experiment on Friday. ”We are planning to broaden the experimentation out and carry the experimentation forward, and I think when our budget hits, you'll understand more of what we're doing."
Bunch said the experiment has helped validate the Air Force's requirement for a light-attack capability that can counter violent extremist threats in a low-cost manner.
“What I don't want to do is end up in a position that I've got F-35s chasing small buses or mopeds or whatever else we may be trying to chase,” he said.
But when it came down to it, Air Force officials looked at the new National Defense Strategy — which prioritizes a high-end fight — and decided against making a large-scale buy of light-attack planes in the upcoming budget, he said.
The Pentagon's annual report by the director of operational test and evaluation, released Thursday, shed some light on what may have been the Air Force's initial plans for the light-attack program.
The service would have purchased 359 aircraft for eight operational squadrons and three training units, with a contract for either the AT-6 or A-29 to be awarded before September, the report said. The Air Force also considered getting a waiver so that it conduct component-level, live-fire tests for both aircraft before making a final downselect.
An Air Force spokeswoman confirmed to Defense News that the timeline and procurement quantities noted in the DOT&E report are no longer accurate.
Expanding the experiment
What becomes of the light-attack experiment remains unknown — Air Force officials haven't made it clear what the service wants to see in future stages of the effort.
Air Force Chief of Staff Gen. Dave Goldfein stressed the importance of getting buy-in from international militaries during a Jan. 26 interview with Defense News. He also said aircraft like helicopters and drones could be considered in addition to the turboprop planes that dominated the first phases of the experiment.
On Friday, Bunch said the service could look at “technologies we may be able to put on platforms or solutions that we may not have thought of” during the first phase of the experiment.
“I know many people have talked about specific platforms. What I want to talk about [is] not necessarily that,” he said. That may point to a systems-of-systems approach similar to what the Air Force is seeking with its Advanced Battle Management System — a replacement for its JSTARS ground surveillance planes that will be comprised of a network of existing and new sensors.
But the Air Force will need to be clear with industry about what it wants, said Andrew Hunter, head of the defense-industrial initiatives group at the Center for Strategic and International Studies.
For example, “if the answer is that they need to do some kind of dramatic cost-cutting initiative, give them a number,” he said.
It might also benefit the Air Force to incorporate prototypes in the large-scale international exercises it regularly holds with partners, which has the added benefit of giving foreign militaries more exposure to technology that the U.S. might buy, he said.
“I think people will stick with it for a while because there's still a belief that the Air Force will invest and, more important, that there is still a broad international market for this capability,” Hunter said of the light-attack experiment.
But, he added, the uncertainty regarding the future of the effort illustrates the constraints of rapid prototyping and experimentation: There's no promise of a program of record at the end of the road.
“[While] there is some value of exercising the muscle ... not every one of these is going to lead to a production program,” he said.
After two years of experimentation, the Air Force still doesn't have an answer for how it should fill its light-attack requirement, but Bunch, the acquisition official, was adamant the experiment has had value.
"I may be the only one that believes it, but I actually believe it has been a success. We tried something we hadn't done. We built a partnership with industry. We experimented. We learned a lot, and we got to the point where we weren't ready to make a large buy decision at this stage. I still believe that is learning,” Bunch said.
“And I believe it is something we will take the lessons learned and roll it into how we go forward,” he added. “We've got to look at ourselves in the mirror and say: ‘Was that good or was it bad, and how do we do it better?' We've got to do our own image check."
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Contract Awards by US Department of Defense - March 13, 2019
ARMY Northrop Grumman, Huntsville, Alabama, was awarded a $349,377,402 firm-fixed-price, Foreign Military Sales (Poland) contract for the procurement of two complete battery sets of Integrated Air and Missile Defense Battle Command System production hardware and software. One bid was solicited with one bid received. Work will be performed in Huntsville, Alabama, with an estimated completion date of June 30, 2026. Fiscal 2019 foreign military sales funds in the amount of $349,377,402 were obligated at the time of the award. U.S. Army Contracting Command, Redstone Arsenal, Alabama, is the contracting activity (W31P4Q-19-C-0003). Intuitive Research and Technology Corp.,* Huntsville, Alabama, was awarded a $36,479,628 modification (0014 45) to Foreign Military Sales (Taiwan) contract W31P4Q-09-A-0016 to provide rapid response and cost effective hardware solutions. Bids were solicited via the internet with six received. Work will be performed in Huntsville, Alabama, with an estimated completion date of March 12, 2020. Fiscal 2019 foreign military sales; research, development, test and evaluation; operations and maintenance, Army; and other procurement, Army funds in the amount of $36,479,628 were obligated at the time of the award. U.S. Army Contracting Command, Redstone Arsenal, Alabama, is the contracting activity. Manson Construction Co., Seattle, Washington, was awarded an $18,122,000 firm-fixed-price contract for dredging. Bids were solicited via the internet with three received. Work will be performed in Portland, Oregon; and San Francisco, California, with an estimated completion date of Sept. 26, 2019. Fiscal 2019 operations and maintenance, Army funds in the amount of $18,122,000 were obligated at the time of the award. U.S. Army Corps of Engineers, Portland, Oregon, is the contracting activity (W9127N-19-C-0011). Zodiac-Poettker HBZ JV LLC,* St. Louis, Missouri, was awarded a $7,330,000 firm-fixed-price contract for Department of Energy Interpretive Center. Bids were solicited via the internet with two received. Work will be performed in St. Charles, Missouri, with an estimated completion date of Aug. 7, 2020. Fiscal 2019 operations and maintenance, Army funds in the amount of $7,330,000 were obligated at the time of the award. U.S. Army Corps of Engineers, St. Louis, Missouri, is the contracting activity (W912P9-19-C-0002). AIR FORCE The Boeing Co., Oklahoma City, Oklahoma, has been awarded a $250,000,000 indefinite-delivery/indefinite-quantity contract for Long Range Stand-Off Cruise Missile weapon system integration. This contract provides for aircraft and missile carriage equipment development and modification, engineering, testing, software development, training, facilities, and support necessary to fully integrate the Long Range Stand-Off Cruise Missile on the B-52H bomber platform. Work will be performed in Oklahoma City, Oklahoma, and is expected to be complete by Dec. 31, 2024. This award is the result of a sole-source acquisition. Fiscal 2019 research and development funds in the amount of $6,343,893 are being obligated at the time of award. Air Force Nuclear Weapons Center, Eglin Air Force Base, Florida, is the contracting activity (FA2103-19-D-3000). Schuyler Line Navigation Company LLC, Annapolis, Maryland, has been awarded a not-to-exceed $23,042,991, indefinite‐delivery/indefinite‐quantity contract for the Thule Base Air Base Sea Lift Support contract. This contract provides for all management, labor and services to accomplish the functions and responsibilities of receiving cargo from vendors, providing in‐transit origin storage, loading/offloading and transporting U.S. government and U.S. government-sponsored cargo to and from Denmark and Thule Air Base, Greenland. Work is expected to be complete by Sept. 30, 2023. This award is the result of a competitive acquisition and three offers were received. Fiscal 2019 operations and maintenance funds in the amount of $846,000 are being obligated on the first task order at the time of award. The 21st Contracting Squadron, Detachment 1, Copenhagen, Denmark, is the contracting activity (FA2523‐19‐D‐0001). The Raytheon Co., Aberdeen Proving Ground, Maryland, has been awarded a $21,186,712 firm-fixed-price, cost-plus-fixed-fee, and time-and-materials contract to retrofit the F-15 fleet. This contract provides for retrofitting the F-15 fleets current Identify Friend of Foe units, which provides Mode 5 capability for the APX-114 and APX-119 on the F-15 models C/D/E via a hardware retrofit and software upgrade. These units also provide National Security Agency approved cryptography and robust anti-jam interrogation and reply encryption capabilities. Work will be performed at Aberdeen Proving Grounds, Maryland; and Largo, Florida, and is expected to be complete by August 2022. Fiscal 2018 and 2019 procurement funds in the full amount are being obligated at the time of award. This award is the result of a sole-source acquisition. Air Force Life Cycle Management Center, Wright-Patterson Air Force Base, Ohio, is the contracting activity (FA8634-19-C-2700). NAVY Omega Aerial Refueling Services Inc., Alexandria, Virginia, is awarded $92,370,920 for modification P00024 to a previously awarded firm-fixed-price, cost-type contract (N00019-13-D-0010). This modification provides for additional aerial refueling services in support of the Department of the Navy, other Department of Defense agencies, and Foreign Military Sales customers during missions ranging from basic training to multi-national exercises. Work will be performed in Riverside, California (50 percent); Brunswick, Georgia (40 percent); and various locations outside the continental U.S. (10 percent), and is expected to be completed in March 2020. No funds are being obligated at time of award, funds will be obligated on individual delivery orders as they are issued. The Naval Air Systems Command, Patuxent River, Maryland, is the contracting activity. United Technologies Corp., Pratt & Whitney Engines, East Hartford, Connecticut, is awarded $71,407,381 for firm-fixed-price-incentive-fee, cost-plus-fixed-fee task order N0001919F0001 against a previously issued basic ordering agreement (N00019-17-G-0005) in support of the F-35 Lightning II Joint Strike Aircraft for the Navy, Air Force; non- Department of Defense (DoD) participants and Foreign Military Sales (FMS) customers. This order provides for supplies or services for non-recurring engineering for the identification and correction of service safety and durability deficiencies, maintains specification performance, and matures the propulsion system in advance of service operational use. Work will be performed in East Hartford, Connecticut (92 percent); and Indianapolis, Indiana (8 percent), and is expected to be completed in December 2023. Fiscal 2019 research, development, test and evaluation (Navy and Air Force); non-DoD participant; and FMS funds in the amount of $64,600,166 will be obligated at time of award, none of which will expire at the end of the fiscal year. This order combines purchases for the Navy ($25,363,518; 36 percent); Air Force ($24,943,370; 35 percent); non-DoD Participants ($12,930,389; 18 percent); and FMS customers ($8,170,105; 11 percent). The Naval Air Systems Command, Patuxent River, Maryland, is the contracting activity. Space Ground Systems Solutions LLC, West Melbourne, Florida, is awarded a $19,729,508 modification for task order N00173-17-F-6203 under previously awarded indefinite-delivery/indefinite-quantity contract N00173-15-D-2015 for spacecraft engineering, software, research and development services to the Naval Center for Space Technology. Work will be performed at the Naval Research Laboratory, Washington, District of Columbia (50 percent); and Space Ground Systems Solutions LLC, Melbourne, Florida (50 percent), and is expected to be competed July 1, 2020. Fiscal 2019 research, development, test and evaluation (Navy) funds in the amount of $1,796,029 will be obligated at the time of award. These funds will expire at the end of the current fiscal year. The Naval Research Laboratory, Washington, District of Columbia, is the contracting activity. Ocean Ships Inc., Houston, Texas, is awarded a $13,097,120 modification under previously awarded firm-fixed-price contract N3220517C3001 to exercise the first one-year option period for operation and maintenance of two USNS Gordon Class Surge Large, Medium-Speed Roll-On/Roll-Off vessels and two USNS Shughart Class Surge Large, Medium-Speed Roll-On/Roll-Off vessels. With all options exercised, it would bring the cumulative value of this contract to $220,028,462. Work will be performed at sea worldwide and is expected to be completed March 2020. If all options are exercised, work will continue through March 2023. Fiscal 2019 and availability of 2020 working capital contract funds in the amount of $13,097,120, and will not expire at the end of the fiscal years. The U.S. Navy's Military Sealift Command, Norfolk, Virginia, is the contracting activity. *Small business https://dod.defense.gov/News/Contracts/Contract-View/Article/1784315/