BROAD AGENCY ANNOUCEMENT (BAA)

BAA09-02

Incident Management IPT Requirements BAA for

Topics Related to Geospatial Location Accountability
and Navigation System for Emergency Responders
(GLANSER)
Published:

23 January 2009

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INTRODUCTION:

This solicitation is a Broad Agency Announcement (BAA) as contemplated in Federal

Acquisition Regulation (FAR) 6.102(d)(2) and 35.016. A formal Request for Proposals
(RFP) will not be issued.

The Department of Homeland Security (DHS) Science & Technology (S&T) Directorate
will not issue paper copies of this announcement. DHS S&T reserves the right to select for
award and fund all, some, or none of the Full Proposals received in response to this
solicitation. No funding for direct reimbursement of proposal development costs will be
allowed. Technical and cost proposals (or any other material) submitted in response to this
BAA will not be returned. However, depending on the markings on the proposal, DHS
S&T will adhere to FAR policy on handling source selection information and proprietary
proposals. It is the policy of DHS S&T to treat all proposals as sensitive competitive
information and to disclose their contents only for the purposes of evaluation.

Awards may take the form of contracts or other transactions agreements (OTAs). In the
event an Offeror or subcontractor is an FFRDC, Department of Energy National
Laboratory, or other Federally funded entity, DHS S&T will work with the appropriate
sponsoring agency to issue an interagency agreement pursuant to the Economy Act (31
U.S.C. 1531) or other appropriate authority. Depending on the nature of the Full Proposals
received, DHS S&T will also consider awarding a grant or cooperative agreement.
Therefore, the applicable laws and regulations governing the legal vehicle used for award
will depend on the legal vehicle chosen by DHS S&T. In this regard, Offerors should
propose a preferred vehicle type for DHS S&T to consider for award.

I. GENERAL INFORMATION

1. Agency Name -

Department of Homeland Security

Science & Technology Directorate
Homeland Security Advances Research Projects Agency
Washington, DC 20528

2. Research Opportunity Title -

Incident Management IPT Requirements BAA for Topics Related to Geospatial Location
Accountability and Navigation System for Emergency Responders (GLANSER)

3. Program Name –

Preparedness and Response – First Responder Technologies

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4. Research Opportunity Number -

BAA09-02

5. Response Date -

White Papers Due: 11 March 2009

Full Proposals Due: 22 April 2009

6. BAA Information –

Copies of this BAA may be downloaded from the FedBizOpps web site
http://www.FedBizOpps.gov or from https://BAA.ST.DHS.gov.

7. Proprietary Protection

All data sent to FedBizOpps web site, BAA09-02@dhs.gov and BAA09-

02Questions@dhs.gov is protected from public view or download. All submissions will be
considered proprietary/source selection sensitive and protected accordingly. Documents
may only be reviewed by the registrant, authorized Government representatives, and
assigned evaluators.

8. Submission of Late White Papers and Full Proposals

White papers and full proposals WILL NOT BE ACCEPTED after the published due dates.

9. Further Assistance Needed for this BAA

The applicable electronic address for all correspondence for this BAA is: BAA09-
02Questions@dhs.gov. Please put DHS S&T BAA09-02 GLANSER in the subject line.

10. Research Opportunity Description -

First Responders, for example firefighters, often operate in extreme incident environments
which can range from a National Incident Management System (NIMS) Type 5 to Type 1 1
situation. These incident environments may expose the first responders and their
equipment to extreme high and low temperatures and humidity, thermal radiation, direct
flame contact or exposure, very noisy and smoky conditions in outdoor, indoor and or
subterranean areas. In addition, during the response or rescue mission the responder may
become disoriented and disabled even in relatively small incidents.

Currently the first responder community is unable to accurately locate, track and monitor
personnel inside structures during an incident, visualize the location and tracks of the
responders on a geospatial map and or structure, and provide that information in a standard

1
FEMA “http://training.fema.gov/EMIWeb/IS/ICSResource/assets/IncidentTypes.pdf”
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way between the interested parties during an incident. A robust and flexible capability is
needed to help incident commanders and tactical decision makers to accurately locate and
track responders anywhere in the incident environment. This capability is also necessary to
allow them to rapidly and effectively deploy, re-deploy and direct their forces to identified
at-risk personnel or understand and respond to the consequences of potential threats to their
responder resources in real-time during an incident. Regardless of the configurations and
designs of the system, there is an overarching requirement and a need for this capability to
have interoperability and seamless integration amongst the other systems in the incident
environment. In this manner, incident commanders and tactical decision makers will be
able to virtually observe responders’ position, tracks, resources, and activities that will
enhance their overall situational awareness during an incident.

To meet the needs of the first responder communities across the nation, DHS S&T has
established the Geospatial Location Accountability and Navigation System for Emergency
Responders (GLANSER) program to develop such a system. The DHS S&T GLANSER
program is aligned with the primary DHS S&T program areas of Transition such that the
development time-line includes test and evaluation in a relevant operational environment,
followed closely by transition to a DHS Stakeholder (to be finalized) and or
commercialized within 3-5 years. The DHS S&T GLANSER program will focus on the
development and transition of a total system solution to include the sensor hardware,
software/firmware, and the visualization component. It is anticipated that a GLANSER
system will be integrated with first responder personal protective equipment (PPE) in the
fire fighting and law enforcement community.

Program Goal
The goal of the program is to ensure the development of a viable Geospatial Location
Accountability and Navigation System for Emergency Responders (GLANSER) for the
first responder community in 3-5 years. The program will provide:

1. Accurate real-time 3D location measurement data of first responders

2. A real-time visualization capability to present responder location and tracks
information on a geospatial map (i.e. building diagrams, floor maps,
office/apartment location) for incident commanders
3. Secure connectivity to incident command posts and or emergency operation centers
(EOCs) that transmit location and track information from the incident environment.
4. Detailed test and evaluation strategy for the viability of GLANSER system(s)
5. The transition strategy to guide the GLANSER prototype(s) into commercialization
in 3-5 years,
6. Specification to guide the development of viable commercial GLANSER systems
7. The stakeholder oversight to ensure that the GLANSER system developed meets
the capability gap identified by the first responder community.

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Capability Gap

Though first responders, the first responder community and the agencies that support them
have defined the capability gap and have, to some degree, already supported the research
and development of possible system concepts, to date, a validated set of system
requirements has not yet been established to develop the total system solution that will
accurately locate and track first responders in operational environments that include multi-
level buildings, collapsed or threatened buildings, subterranean facilities and underground.

Numerous government and private sector studies have been done in the past decade that
articulate the need for the development of the three-dimensional (3D) personnel location
system. These studies address first responder safety, identify the capability gaps in the
current equipment and identify the emerging technologies to fill that gap. 2

• The National Institute for Occupational Safety and Health (NIOSH)

• United States Fire Administration, Four Years Later – A Second Needs Assessment
of the U.S. Fire Service, 2006
• Project Responder, National Technology Plan for Emergency Response to
Catastrophic Terrorism, 2004
• The InterAgency Board (IAB) Science and Technology Research and Development,
2007 Priorities
• DHS Science and Technology Department, Infrastructure and Geophysics Division,
High Priority Technology Needs, 2008
• Project Responder, Review of Response Capability Needs, 2008
• The National Law Enforcement and Corrections Technology Center (NLECTC)
Communications Technologies Center of Excellence (COE) 2008 Goals
• Other private sector organizations.

The GLANSER systems requirements set the boundaries for a total system solution that
will allow incident commanders to optimize command and management activities with the
capability to account for the location of on-scene first responders, in real time, for the
duration of the incident. The GLANSER should also allow incident commanders to
optimize the safety of on-scene first responders with the capability to assess the safety
status of on-scene first responders, in real time, for the duration of the incident. These
combined capabilities should allow deployment and re-deployment of resources for normal
operations as well as alert situations on scene. These capabilities shall be enabled by an
easy to use human-machine interface that has been developed through a human-centered
design approach based on human systems integration methods and data.

GLANSER Benefits

There are two direct and equally important benefits of the GLANSER:

2
See Related Works Section for more details.
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 • Optimized First Responder Safety
Provide an efficient mechanism to detect and respond to the needs of a first responder that
became trapped or disoriented while on an active incident.
• Optimized Command and Management
Provide improved Command and Management information to enable Incident Commanders
and the Incident Management Team to better utilize resources in the prosecution of an
incident response.

Stakeholder Oversight and Input

DHS S&T will work closely with FEMA/USFA and other stakeholders through periodic
meetings to ensure that a GLANSER system developed fills the capability gaps identified
by the first responder communities. The S&T Directorate will provide guidance and
oversight on total system development to include Test and Evaluation activities and human
systems integration principles which will allow for a user-friendly, usable, maintainable,
supportable, reliable and safe system.

GLANSER Requirements

Although there are many types of 3D location and tracking technologies currently
available, not all of these technologies are capable of meeting the GLANSER user
requirements. The GLANSER program is focused on development and subsequent
transition of a viable product commercially available in 3-5 years. At the same time, it
recognizes that the evolution of technologies in the short, mid and long term will allow for
the GLANSER user requirements to be more fully met over the next ten years. The
GLANSER program has developed the following high level requirements to guide the first
version of the GLANSER and to support the development of a total system solution, in the
short term. This approach helps ensure that the most immediate needs of the first
responder community are addressed first.

The design and operation of the deliverable system shall be verified and demonstrated by
scenarios constructed to include conditions, events and timelines challenging for first
responder and incident management personnel performance, including representative and
worst case hazards for first responders and to the public.

It is envisioned that GLANSER will include, but not be limited to, the following non-
functional and functional requirements:

1. General
a. Total System
i. Shall consist of point-to-point network structure of locator nodes
(referred to herein as nodes) able to share information between
points. Some nodes shall be host nodes and some nodes shall be
base station nodes.

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 ii. Shall operate both inside and outside building structures of varying
sizes and composition
iii. Shall provide data points and visualization for first responder
location and tracking at all times
iv. Shall provide connectivity between active first responders and
incident management team at all times
v. Shall have the ability to connect to all nodes
vi. Shall have the ability to issue an alarm
vii. Shall not impede activities, sight or hearing of first responders
viii. Shall be compatible 3 with existing first responder equipment and
procedures
ix. Shall require little to no set-up time and set-up time shall be within
and commensurate with typical operational procedures
x. Shall operate autonomously with internal controls for fault
management and redundancy
xi. Shall be intrinsically safe
xii. Shall support rescue teams to locate first responders in need.
xiii. Shall minimize training requirements, optimize human performance,
xiv. Shall not impose additional manpower requirements on first
responders, and be operable by the expected population in terms of
cognitive skills as well as anthropometrics.

b. Packaging
i. Shall function in extreme temperatures (hot and cold), extreme
humidity, high altitude, and extremely wet conditions typical of
operational environments encountered by first responders 4 .
ii. Shall be portable and transportable by a single first responder, based
on ergonometric standards and operational procedures
iii. Shall be operable by users wearing gloves and protective clothing in
environments including high temperatures, reduced visibility, high
levels of noise, and confined spaces.
iv. Shall be the minimum weight possible, commensurate with the
ergonometric standards and operational procedures
1. Shall weigh no more than 1 pounds including packaging,
power source and all components
v. Shall be the minimum size possible, commensurate with the
operational procedures
1. Shall be no more than 15.24cm (6in) long by 10.16cm (4in)
wide by 5.08cm (2in) deep, including packaging, power
source and all components.
c. Power Source

3
Compatibility is defined as being able to work along side other internal or external components without
either interfering or hindering the operation of the other.
4
Potential first responder communities can include but are not limited to law enforcement, disaster
responders, USCG, EPA, miners, SWAT, USAR, correctional facilities, power plants.
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 i. Shall have a minimum incident life of 4 hours (threshold) with a
minimum of 12 hours preferred (objective) for all components
ii. Shall be commercially available AC/DC power source(s)
iii. Shall be replaceable with gloved hands and wearing protective
clothing in a manner that reduces the potential for erroneous
installation without interruption to operations.

d. Maintenance
i. Shall be able to self-initialize, self-calibrate, and execute self-
diagnostics in less than 1 minute
ii. Shall be modular to allow for replacement of power sources and
components as necessary for maintenance or repairs
iii. Shall have backwards compatibility after upgrade
iv. Shall be rated for a reasonable service life.
v. Shall be designed to reduce the time to repair.
vi. Shall be designed to reduce maintainer skills.

e. Alarm Features
i. Shall be capable of being switched to the alarm mode by a single
gloved hand. The fingers of gloves utilized for this function may
have a thickness of 2.5 mm to 4 mm (3⁄32 in. to 5⁄32 in.)
ii. Shall have only one action required to switch the mode selection
device(s) from any mode to alarm for the first responder to request
“HELP" from the incident management team
iii. Shall be capable of being reset by at least two separate and distinct
manual actions to silence the alarm signal.
iv. Shall be discriminable and recognizable in environments that are
noisy and have reduced visibility.

f. Interfaces
i. Shall be modular to allow integration with current first responder
systems and equipment such as but not limited to:
1. Personal Alert Safety Systems (PASS) and other legacy
emergency responder personnel accountability and tracking
technology
2. Self-Contained Breathing Apparatus (SCBA)
3. Personal Protective Equipment (PPE)
4. Current radio communications and emergency frequencies
5. Thermal imaging cameras
6. HAZMAT equipment
7. Air quality sensors
8. Skin temperature sensors
9. Physiological monitors
10. Related commercial-off-the-shelf (COTS) technologies,
especially those listed in the Authorized Equipment
List/Standardized Equipment List (AEL/SEL).

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 g. Total System Cost
i. Shall facilitate widespread adoption by the responder community
and include all expected components and services
ii. Must be cost effective to:
1. Manufacture
2. Own
3. Maintain
4. Sustain
5. Retire

2. Sensor hardware
a. Sensor components
i. Design shall allow for flexible integration of sensor into one
platform with non-proprietary “plug and play” interfaces
ii. Shall operate in any operational environment such as subterranean
and above ground structures of varying sizes and composition; and
provide equal performance and reliability of current COTS GPS
systems in outdoor environments
iii. Shall provide accurate and reliable location measurements to be
processed on host and/or at the base station
iv. Shall allow for other to-be-determined (TBD) components and
sensors that improve the host’s safety or effectiveness.

b. Processor
i. Shall be able to run all necessary software including navigation
algorithm, management modules (alarm, fault, and data),
communications protocols, security and other supporting software in
real time and compatible with operational requirements
ii. Shall provide an open platform to run other supporting applications.

c. Signal Propagation
i. Shall experience constant propagation above ground, below ground
and outside of buildings inside or outside of structures and through
rubble
ii. Shall be able to transmit/receive user-defined data, to incident
command posts, first responders, an off-site emergency operations
center, and/or other authorized parties.
iii. Shall have a minimum range of 15 meters (49.21ft) with 30 meters
(98.43ft) preferred, for non-line-of-sight communications between
each node (through walls of standard high rise buildings such as
concrete and steel, rubble, etc)
iv. Shall have a minimum range of 30 meters with a minimum of 100
meters (328ft) preferred, for line-of-sight communication between
each node

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 v. Quality of service should be available for each node in the network
based on priority and risk
vi. When communication is available, connectivity to the next node
shall be at a rate of 90% with 99% preferred
vii. If ancillary antennas are used to relay communications between
nodes, highly accurate or fixed locations for the relays shall not be
required
viii. Shall be able to transmit/receive data between each node in the
network

3. Sensor software
a. Navigation Algorithms
i. Shall be robust and provide a navigation solution with an accuracy
with a threshold value of 1 meter (3.28ft) (average over 45 minutes)
and an objective value of 50 centimeters (19.68in) (average over 25
minutes)
ii. Shall provide relative and absolute navigation solution
iii. Shall provide user customizable data filtering/system settings.

b. Alarm notification
i. Shall provide alarm notification of user-defined parameters
1. Alarm frequency shall be identical for each unit produced.
2. Alarm tone shall be audible in identical but variable or
noncontinuous tone
3. The reason for the alarm shall be immediately identifiable by
the user
ii. Shall be capable of being manually dismissed by at least two
separate and distinct manual actions to silence the alarm signal once
the alarm situation has been responded to
iii. Shall provide an evacuation alert from the incident management
team to a customizable group of first responders
iv. Shall work with legacy Personnel Alerting Safety Systems (PASS)
v. Shall have a false alarm error rate of at-risk responders of no more
than 10%.
vi. Shall be designed to comply with human systems integration
standards/principles

c. Fault management
i. Shall undergo a Failure Mode and Effects Analysis (FMEA)
throughout the development cycle to systematically identify potential
failures in the system or any subsystem
ii. Shall manage systems faults internally and provide self healing
options for continual operation of the system.

d. Data management (includes personalization options)

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 i. Each host shall be able to collect and store data for a minimum of 45
minutes with network connectivity and a minimum of 240 minutes
(4 hours) without network connectivity
ii. The system shall be capable of collecting data during an incident for
instant replay on scene and for training.

e. Security
i. Shall accommodate industry security standards for wireless
networks

f. Data transfer
i. Shall include the necessary functionality and interface to allow data
transfer at the incident from external sources.

4. Real-time visualization
a. Floor maps
i. Shall show 3D coordinates of each first responder on a map using
the same coordinate system
ii. Shall have an open interface to accept geospatial data in formats
typically used in computer-aided drafting and mapping systems.
iii. Shall allow for addition of extra features to be visualized
dynamically & quickly in seconds.

b. Incident Scene/Building Display

i. Shall be able to generate 3D maps in real-time from data collected
on-scene
ii. Shall be able to generate 3D representations of the affected building
and the incident scene using a map utilizing the 3D coordinate
system as the first responder location coordinate system
iii. Shall be able to show and add architectural elements, such as doors,
windows, elevators, and stairs, as needed and available
iv. Shall display all geospatial data at a user-selectable scale.
v. Shall include the ability to update conditions (e.g., collapsed stairs,
hazardous routes) as required as well as illustrations of safe routes.
vi. Shall provide several aspects of the same scene

c. Responder management
i. Shall display a minimum of 10 first responder tracks with the ability
to selectively display any of 500 first responders being tracked
ii. Shall display a minimum of 100 first responder locations with the
ability to selectively display any of 500 first responders being
located
iii. Shall display first responders, first responders in need and rescue
team members differently
iv. Shall allow the user to customize the display
v. Shall be able to display identification of personnel

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 vi. Shall be able to display general-to-specific information (the ability to
drill down from an overall scene to a specific individual) about an
operation/incident and its first responder participants.

d. Hazard icon management

i. Shall use standard FEMA icons for Hazards
ii. Shall be able add/delete hazard icons.

e. User Experience
i. Shall display the incident scene with the 3D location of first
responders in easy to understand and customizable ways
ii. Shall allow the user to identify, group, and categorize first
responders as desired and according to the Incident Command
System (ICS)
iii. Shall update the display with an interval that is adjustable to a
minimum of 1 seconds with .05 seconds preferred
iv. Shall be able to customize the user display according to the incident
scope, size and scale
v. Shall allow for addition of extra features to be visualized
dynamically & quickly in seconds
vi. Shall avoid clutter of data, icons, tracks and maps
vii. Shall be reconfigurable to allow user to have ready access to critical
data on the fly.
viii. Displays shall incorporate human systems integration requirements
when established by the first responder community.

5. After-Action Review / Training System program and materials

a. Shall be provided by the vendor/manufacturer
b. Shall be designed to meet federal grant funding requirements
i. DHS course review and approval requirements
c. Shall be able to analyze and replay captured data

Standards
The goal of the GLANSER program is to develop a viable GLANSER system that will
transition into a commercial product; however, the contractor must be aware that before the
system is ready for commercialization it must meet a variety of standards to be accepted by
the first responder communities. Therefore, during the development process, the contractor
must take into consideration standards that include, but not limited to:

• Shall be ruggedized to survive in normal operational environments to

comply with NFPA 1981 & 1982
• Shall be tested for intrinsic safety as specified in ANSI/UL 913, Standard
for Intrinsically Safe Apparatus and Associated Apparatus for Use in Class
I, II, and III, Division 1 Hazardous (Classified) Locations, and shall meet

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 the requirements for Class I, Groups C and D, and Class II, Groups E, F, and
G, Division 1 hazardous locations.
• System shall utilize the Open Systems Interface (OSI) model for data
communications as described in International Organization for
Standardization (IOS) 7498-1
• System shall utilize P25 open communication standards
• System shall comply with IEEE 1451 “Non-Incendiary Criteria”
• System shall comply with NFPA 1800: Standard on Electronic Safety
Equipment for Emergency Services. The NFPA 1800 Standard specifies the
design, performance, testing, and certification requirements for electronic
safety equipment used by emergency services personnel during emergency
incident operations. It specifies requirements for the systems, protection
layers, and devices using electronics embedded in or associated with new
emergency services electronic safety equipment.
• System shall comply with NFPA 1982: Standard on Personal Alert Safety
Systems (PASS). The NFPA 1982 Standard specifies minimum
requirements for the design, performance, testing, and certification for all
Personal Alert Safety Systems (PASS) for emergency services personnel. It
specifies the requirements for all new PASS, including but not limited to
stand-alone PASS and integrated PASS.
• System shall comply with NIOSH NPPTL Functional Safety for
Programmable Electronics Used in PPE Best Practice Recommendations
• System shall comply with the NFPA standards 1500 ed. 2007 Fire
Department Occupational Safety and Health Program, 1521 ed. 2008 Fire
Department Safety Officer, 1561 ed. 2008 Emergency Services Incident
Management System, 1670 Operations and Training for Technical Rescue
• System shall support the National Incident Management System (NIMS)
and the Incident Command System (ICS).
• System shall be compatible with Personal Protective Equipment (PPE) used
by firefighters and emergency responders including Structural Firefighting
Protective Clothing (per NFPA 1971), Wildland Firefighting Protective
Clothing (per NFPA 1977), HAZMAT/WMD Protective Suits (per NFPA
1991, NFPA 1992, and NFPA 1994), Self Contained Breathing Apparatus
(per NPFA 1981), Rescue Personal Protective Clothing (per NFPA 1951),
EMS Response Clothing (per NFPA 1999), and Duty Work Uniform (per
NFPA 1975). This would include not causing heat transfer potential
leading to burns, causing interference with air seals, allowing contaminants
through PPE, not cause electric shock or conduction, causing entanglements
or having device interfering with ability to safely operate, etc.
• System shall be tested by manufacturers according to ISO 17025, General
requirements for the competence of testing and calibration laboratories
• Shall be listed to ANSI/ISA-12.12.01, Nonincendive Electrical Equipment
for Use in Class I and II, Division 2 and Class III, Divisions 1 and 2
Hazardous (Classified) Locations, and shall meet the requirements for at
least Class I, Division 2, Groups C and D hazardous locations; and with a
Temperature Class of T3 through T6.
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Deliverables and Reporting:
Deliverables for each awarded year will include the following:

• Non-proprietary quad chart and program summary sheet with graphics, to be

submitted to the COTR 15 days after contract award, and then updated as necessary.
The quad chart will be one page with four annotated summary sections and the
program summary sheet will contain an expanded summary and be no longer than
one page in length,
• Monthly status teleconferences,
• Quarterly reports, and
• Final report.

Monthly Status Teleconferences will consist of the following:

A monthly teleconference will take place within 10 days of the end of the month between
the Principle Investigator and DHS S&T Program Manager. In addition, a supplemental
document, not to exceed one page in length, will be electronically submitted to the Program
Manager at least 48 hours prior to the scheduled teleconference. This document will
describe the previous 30 calendar days’ activity, technical progress achieved against goals,
difficulties encountered, recovery plans (if needed), and plans for the next 30 day period.
The teleconference and one page document will satisfy monthly reporting requirements.

Quarterly Reports will consist of the following:

Quarterly reports, not to exceed 10 pages with cover page, will be electronically submitted
to the Program Manager and are due 48 hours prior to the reviews. These reports will
describe the previous 90 calendar days’ activity, principals involved in the actual work of
the period, technical progress achieved against goals, difficulties encountered, funds
expended against each sub-task in the previous 90 day period, recovery plans (if needed),
and explicit plans for the next 90 day period.

Final Reports will consist of the following:

For a final report, each performer will provide a technical report of their work performed
during the preceding Phase or Phases. This will include, where applicable, performance
predictions, estimates of life-cycle cost of ownership, and an enumeration of remaining
unknowns and uncertainties. This final report will be a cumulative, stand-alone document
that describes the work of the entire Phase leading up to it. It must include any technical
data gathered, such as, measurements taken, models developed, simulation results, and
formulations/algorithms developed. This final report should also include “lessons learned”
from the effort, recommendations for future research in this area, and a comprehensive
account of all funds expended. Performers will develop a plan for executing future Phases
of projects addressing the topic areas. In addition, a test plan must be included for
evaluating the prototype system(s) where appropriate. The final report will also include

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documentation of the executed work plan, including the contracted Statement of Work
(SOW), as well as a work plan and SOW for proposed future efforts where appropriate.

Other Reports:

Additional deliverables will be required depending upon specific program attributes. The
contractor and government will come to mutual agreement of the format and extent of such
deliverables at the time of award. Additional deliverables may include, but are not limited
to:
• Participation in an annual DHS event at the discretion of the Program Manager.
Possible events include presentation or exhibition at Stakeholder’s meetings,
customer events, or select technical conferences,
• Review meetings, in addition to PDR and CDR, include a kickoff meeting, two
interim reviews per 12 month period, and a final review meeting. Location of these
meetings will be at the discretion of the DHS program manager, but will likely be at
the preferred location of the vendor or DHS S&T,
• Where appropriate, system engineering drawings, blueprints, specifications,
graphics and logos will be compiled and delivered to DHS S&T along with the final
report.

Program Structure:

Base (12 months) System Requirements and Preliminary Design Review (PDR):
There will be a funding cap of $1.8M for the base period. Depending on the proposals
received and the viability of technologies proposed, DHS S&T may consider multiple
awards.

A significant demonstration and review, including PDR, presented to the government is

required. The performer(s) must demonstrate the potential utility of their technology at the
completion of the base year. In addition, the performer must provide notional accuracy
figures of merit, including, but not limited to, availability and reliability of measurements
and false alarm rate. Guidelines for the feasibility demonstration and figures of merit will
be mutually agreed upon by the government and the performer(s) at the time of award.
• Major Deliverables: System concept design and successful feasibility demo
• Technical Reviews
• System Requirements Review
• Preliminary Design Review
• Prototype System Demonstrations
• System Performance Assessment Review
• Plan of Action for Option Years

At the end of the base year, the government will retain the right to select performer(s) to
continue in the option years. There will be a maximum of 4 options years.

Option 1 (12 Months) Critical Design Review (CDR) and Prototype Demonstration:
There will be a funding cap of $2.2M planned for this option period.
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The performer will give a CDR to the government during this phase to determine the
progress and eventual utility of the technology. By the completion of Option 1 the
performer will give a demonstration of the developed Technology Readiness Level (TRL 5 )
4-5 prototype to DHS S&T. This demonstration will assess the current design and further
establish potential technologies to achieve the overall 3-D location accuracy and system
capabilities of GLANSER. Guidelines for the CDR and assessment demonstration will be
mutually agreed upon by the government and the performer at the time of award.
• Major Deliverables: 15 TRL 4-5 prototype locators and 3 base stations with a
successful multi-team tracking, locating, and rescue demonstration in a TBD
location
• Critical Design Review
• Prototype Development
• Field Demonstrations
• Performance Assessment Review
• Test Plan Development and Review
• System Upgrade Review

Option 2 (12 Months) System Integration and Deployment Spiral 1:

There will be a funding cap of $2.4M planned for this option period.

The performer will deliver a Test and Evaluation Review to the government during this
phase to determine performance specification and technology maturity. By the completion
of Option 2, the performer will give a demonstration of a TRL 6 prototype to DHS S&T in
a relevant operation scenario and environment. This evaluation will further establish
technology readiness for deployment and transition. Guidelines for the Test and Evaluation
Review, system integration, and system deployment will be mutually agreed upon by the
government and the performer at the time of award.
• Major Deliverables: 20 TRL 6 prototype locators and 3 base stations (includes 15
from Option 1) to be used for testing in a relevant operational test environment at a
TBD location
• Test and Evaluation Plan Development and Review
• External System Integration
• Field Demonstrations
• System Performance Assessment Review
• System Deployment (Spiral I)
• Product Transition (Spiral I)

Option 3 (12 Months) Field Test and Evaluation and Deployment Spiral 2:
There will be a funding cap of $2.2M planned for this option period.

At the completion of Option 3, the performer will deliver an advanced, TRL 7 operational
prototype system with user and maintenance manuals, as well as sufficient training
packages. Prior to delivery to the government, preliminary acceptance testing at an

5
Technology Readiness Level http://www.dhs.gov/xlibrary/assets/product_realization_chart.pdf
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operational relevant test site will be conducted. Preliminary testing results will be
delivered as part of the Option 3 package. Additionally, final acceptance testing will be
performed at the point of delivery and installation.
• Major Deliverables: 25 TRL 7 locators and 5 base stations (includes 20 locators
and 3 base stations from Option 1 and 2) that have been tested and performance
verified by TBD testing agent of the government choosing.
• External System Integration
• Field Test and Evaluation
• Performance Verification and Validation
• System Deployment (Spiral II)
• Product Transition (Spiral II)

Option 4 (12 Months) Manufacturing Review and Product Deployment:

Funding is anticipated to be $900K for this option period.

At the completion of Option 4, the performer will deliver an advanced, TRL 8 system that
can be transitioned to the manufacturing phase according to the Transition Strategy/Plan
developed by the performer. Any resulting standards from this program will be used by
DHS to ensure interoperability among the vast array of equipment for the first responder
communities. Both user and maintenance manuals as well as sufficient training packages
will also be delivered. Prior to final delivery to the government, preliminary acceptance
testing at an operational relevant test site will be conducted. Preliminary testing results will
be delivered as part of the Option 4 package. Additionally, final acceptance testing will be
performed at the point of delivery and installation.
• Major Deliverables: (1) Updated 25 locators and 5 base stations units from Option
1, 2, and 3 that have been tested and performance verified by TBD testing agent of
the government choosing. (2) Final complete system specification for production of
an initial lot of 1000 TRL 8 locator units
• Product Deployment
• Field Test and Evaluation
• Product Training
• Product Transition

11. Government Representatives -

Technical:

Jalal Mapar
Program Manager
Department of Homeland Security
Science and Technology Directorate
Washington, DC 20528

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Business:

Joseph Wolfinger
Contracting Officer
Department of Homeland Security
Science & Technology Acquisitions
Washington, DC 20528

12. Additional Background Information – N/A

II. AWARD INFORMATION

Anticipated Award Information is as follows:

• Anticipated Award Types: Anticipated to be in the form of a Cost Reimbursement

type contract. However the Government reserves the right to award grants,
Cooperative Agreements (CAs), Other Transactions (OTs) Agreements, or
interagency agreements to appropriate parties should the situation warrant.
• Previous Year(s) Average Individual Award Amounts: N/A
.

III. ELIGIBILITY INFORMATION

This BAA is open to ALL responsible sources.

Offerors may include single entities or teams from academia, private sector organizations,
Government laboratories, and Federally Funded Research and Development Centers
(FFRDCs), including Department of Energy National Laboratories and Centers.

Federally Funded Research & Development Centers (FFRDCs), including Department of

Energy National Laboratories and Centers, are eligible to respond to this BAA, individually
or as a team member of an eligible principal Offeror, so long as they are permitted under a
sponsoring agreement between the Government and the specific FFRDC.

Historically Black Colleges and Universities (HBCU), Minority Institutions (MI), are
encouraged to submit proposals and to joining others as team members in submitting
proposals is strongly encouraged. However, no portion of this BAA will be set-aside
pursuant to FAR Part 19.502-2.

Organizational Conflict of Interest issues will be evaluated on a case-by-case basis; as

outlined below. Offerors who have existing contract(s) to provide scientific, engineering,
technical and/or administrative support directly to DHS S&T will receive particular
scrutiny.

Organizational Conflict of Interest

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 (a) Determination. The Government has determined that this effort may result in an actual
or potential conflict of interest, or may provide one or more Offerors with the potential to
attain an unfair competitive advantage.

(b) If any such conflict of interest is found to exist, the Contracting Officer may (1)
disqualify the Offeror, or (2) determine that it is otherwise in the best interest of the United
States to contract with the Offeror and include the appropriate provisions to mitigate or
avoid such conflict in the contract awarded. After discussion with the Offeror, the
Contracting Officer may determine that the actual conflict cannot be avoided, neutralized,
mitigated, or otherwise resolved to the satisfaction of the Government, and the Offeror may
be found ineligible for award.

(c) Disclosure: The Offeror must represent, as part of its proposal and to the best of its
knowledge that: (1) It is not aware of any facts which create any actual or potential
organizational conflicts of interest relating to the award of this contract; or (2) It has
included information in its proposal, providing all current information bearing on the
existence of any actual or potential organizational conflicts of interest, and has included the
mitigation plan in accordance with paragraph (d) of this provision.

(d) Mitigation/Waiver. If an Offeror with a potential or actual conflict of interest or unfair

competitive advantage believes it can be mitigated, neutralized, or avoided, the Offeror
shall submit a mitigation plan to the Contracting Officer for review. Award of a contract
where an actual or potential conflict of interest exists shall not occur before Government
approval of the mitigation plan.

(e) Other Relevant Information: In addition to the mitigation plan, the Contracting Officer
may require further relevant information from the Offeror. The Contracting Officer will
use all information submitted by the Offeror, and any other relevant information known to
DHS, to determine whether an award to the Offeror may take place, and whether the
mitigation plan adequately neutralizes or mitigates the conflict.

(f) Corporation Change. The successful Offeror shall inform the Contracting Officer
within thirty (30) calendar days of the effective date of any corporate mergers, acquisitions,
and/or divestures that may affect this provision.

(g) Flow-down. The contractor shall insert the substance of this clause in each first tier
subcontract that exceeds the simplified acquisition threshold.

IV. APPLICATION AND SUBMISSION INFORMATION

1. Application and Submission Process -

The application process will occur in a two stage process: mandatory White Papers
followed by mandatory Full Proposals.

Submitting a Response to this BAA:

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Responses to this BAA should be submitted electronically to BAA09-02@dhs.gov. All
submitted documents by the offeror should be in PDF or similar format. All questions for
the BAA should be directed to BAA09-02Questions@dhs.gov and will be answered in a
timely fashion and displayed on the FedBizOpps and HSARPA websites.

We anticipate a two stage source selection. It is required that a white paper be submitted
prior to a full proposal to determine the acceptability of the proposed concept to the Broad
Agency Announcement. This allows for comments to the proposer and full proposals will
be encouraged or discouraged based on the review. If an offeror is discouraged from
submitting a Full Proposal based upon review of the offeror’s White Paper, the offeror is
still not precluded from submitting a Full Proposal.

White Papers

The due date for white papers is no later than 4:30 pm (Local Eastern Time) on 11 March
2009. Initial DHS S&T evaluation of the white papers will be issued via e-mail
notification on or about 27 March 2009.

White Paper Preparation and Submission Guidelines

• 8.5 x 11 inch paper size. 11 x 17 pages maybe used but shall count as two pages
• 1 inch margins
• Single or double spaced
• Times New Roman font 12 point
• Quad chart – Maximum one-page PowerPoint or compatible file and shall not have
smaller than 12 point, except in graphics or tables, which may use 10-point fonts
and shall include Proposed Solution to include technology, design, performance,
unique features; Proposer and team member (if applicable);
deliverables/Milestones; and Total Cost
• Program details - Maximum of 5 pages and shall not exceed three (3) single-sided
pages (excluding cover page, resumes, cost, schedule, and socioeconomic
commitment), one (1) page Cost Summary and one (1) page Project Schedule with
milestones and deliverables. The core of the White Paper shall include a small
background, no more than one page, to establish knowledge in the topic area, but
shall not take away from the technical description of the proposed work. A
technical description of the proposed work, including concepts of operations,
proposed 3D location and tracking capabilities, and system design, where
applicable, shall compose the majority of the White Paper. All White Papers will
be evaluated solely on its contents, therefore all pertinent information shall be
presented within the White Paper. White Papers exceeding the page limit will not
be evaluated.

Full Proposals

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The due date for receipt of full proposals is 4:30 P.M. (Local Eastern Time) on 22 April
2009. Full Proposals WILL NOT BE ACCEPTED after the published due date. It is
anticipated that award announcements will be made on or before 15 May 2009. As soon as
the final proposal evaluation process is complete, the offeror will be notified via e-mail of
its selection or non-selection for an award. Proposals exceeding the page limit will not be
evaluated.

Full Proposal Preparation and Submission Guidelines

ONLY OFFERORS WHO SUBMIT A WHITE PAPER THAT IS DEEMED AS HAVING

“PARTICULAR VALUE” TO DHS S&T, WILL BE ENCOURAGED TO SUBMIT
FULL PROPOSALS. THE GOVERNMENT WILL ADVISE IN WRITING THOSE
OFFERORS ENCOURAGED TO SUBMIT FULL PROPOSALS AND THOSE OFFERS
NOT ENCOURAGED TO SUBMIT FULL PROPOSALS. NOTWITHSTANDING, IF
AN OFFEROR IS DISCOURAGED FROM SUBMITTING A FULL PROOSAL BASED
UPON REVIEW OF AN OFFEROR’S WHITE PAPER, THE OFFEROR IS NOT
PRECLUDED FROM SUBMITTING A FULL PROPOSAL.

Full proposals will consist of two volumes: a Technical volume and a Cost Proposal
volume.
• 8.5-by-11-inch paper
• 1 inch margins
• Single- or double-spaced
• Times New Roman, 12 point. Text embedded within graphics or tables in the
body of the full proposal may not be smaller than 10 point.
• Number of Pages –All Full Proposals will be evaluated solely on its contents,
therefore all pertinent information shall be presented within the Full Proposal.
Full Proposals exceeding the page limit will not be evaluated.
o Volume 1: No more than 25 single-sided pages,
o Volume 2: No page limitations.
• Copies – Each volume shall consist of ONE electronic file in portable document
format (PDF), readable by IBM-compatible PCs. The file size must be no more than
10 MB.

Volume 1: Technical Proposal

Shall contain the following sections:
• Cover Sheet
• Cover Page: The words “Technical Proposal” should be displayed and the
following:
o BAA09-02
o Title of Proposal
o Topic Area: Geospatial Location Accountability and Navigation System
for Emergency Responders
o Technical Point of Contact of the prime Offeror and complete list of
subcontractors name and addresses if applicable
o Administrative Point of Contact
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 o Duration of effort (separately identify the basic effort and any options)
• Official Transmittal Letter: This is an official transmittal letter with authorizing
official signature. For an electronic submission, the letter can be scanned into the
electronic proposal. The letter of transmittal shall state whether this proposal has
been submitted to another government agency, other than DHS S&T, and if so,
which one and when,
• Table of Contents
• Executive Summary: Summarize the proposal and the expected benefits of the
solution,
• Quad Chart
• Abstract of Proposal: This is a one-page synopsis of the entire proposal including
total costs proposed for the effort. Provide a description of the
technical/engineering, and management approaches you propose to address the
goals of the BAA. Highlight what is unique about your proposed solution. Include
a brief summary of your concept’s anticipated performance relative to the Topic
goals. This section should be separable, i.e., it should begin on a new page with the
following section beginning on a new page as well as be a self standing synopsis of
the proposal,
• Proposal: This section describes the proposed work and associated technical and
management issues. Below are the general guidelines for writing a technical
volume, but the Offeror should be aware that additional details/information may be
required for a particular topic.
o Ability of proposed work to meet the program goals. This section should
describe the overall methodology and how it will meet the required and
desired attributes and functionality specified in the BAA. Describe how the
proposed prototype will be operated by the end users under field
environments specified. This section should also address a plan to enter
production or otherwise supply the capability to DHS users if the prototype
is successful.
o Detailed technical descriptions and approach. This is the centerpiece of
the proposal and at a minimum should describe the proposed solution,
system design, components, performance, test and evaluation, reliability and
maintainability, product manufacturing and transition. Of particular
importance are details of planned/expected cost per unit and assumptions
used in calculating such costs.
o Statement of Work (SOW), Schedule, and Milestones. Provide an
integrated display for the proposed work, including major milestones. The
section for the schedule and milestones should be separate and clearly
marked. It important to note that the SOW will be used for the initiation of
contract negotiations for selected proposals. Accordingly, the draft SOW
must be non-proprietary and not include any classified information,
o Deliverables. Provide a detailed list, schedule for delivery, and description
of all deliverables proposed under this effort, including prototype hardware,
technical data, computer software, or other intellectual property, test plans,
and reports consistent with the objectives of the work involved and as
specified in the Topic requirements. The following section will be
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 severable, i.e., it will begin on a new page. It is anticipated that the
proposed detailed list and description of all deliverables will be incorporated
as an attachment to the resultant award instrument. To this end, proposals
must include a severable self-standing detailed list and description of all
deliverables without any proprietary restrictions, which can be attached to
the contract or agreement award,
o Management Plan. Provide a brief summary of the management plan,
including an explicit description of what role each participant of team
member will play in the project, and their past experience in the technical
areas related to this proposal and complexity of project managed. This
section should also address program risks and mitigation plans.
o Facilities. Describe key facilities that will be used in the proposed effort.
Delineate between classified and unclassified facilities.
o Requirements for Government Furnished Resources (GFR). Provide a
brief summary of required hardware, information, and data which must be
provided by the Government to support the proposed work, if any.
o Assertion of Data Rights. Include here a summary of any assertions to any
technical data or computer software that will be developed or delivered
under any resultant award. This includes any assertions to pre-existing
results, prototypes, or systems supporting and/or necessary for the use of the
research, results, and/or prototype. Any rights asserted in other parts of the
proposal that would impact the rights in this section must be cross-
referenced. If less than unlimited rights in any data delivered under the
resultant award are asserted, the Offeror must explain how these rights in the
data will affect its ability to deliver research data, subsystems, and toolkits
for integration as set forth below. Additionally, the Offeror must explain
how the program goals are achievable in light of these proprietary and/or
restrictive limitations. If there are no claims of proprietary rights in pre-
existing data, this section shall consist of a statement to that effect.

Proposals submitted in response to this solicitation shall identify all

technical data or computer software that the Offeror asserts will be furnished
to the Government with restrictions on access, use, modification,
reproduction, release, performance, display, or disclosure. Offeror's pre-
award identification shall be submitted as an attachment to its offer and shall
contain the following information:

(1) Statement of Assertion. Include the following statement: “The

Offeror asserts for itself, or the persons identified below, that the
Government's rights to access, use, modify, reproduce, release, perform,
display, or disclose only the following technical data or computer software
should be restricted:”

(2) Identification of the technical data or computer software to be

furnished with restrictions. For technical data (other than computer software
documentation) pertaining to items, components, or processes developed at

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 private expense, identify both the deliverable technical data and each such
item, component, or process as specifically as possible (e.g., by referencing
specific sections of the proposal or specific technology or components). For
computer software or computer software documentation, identify the
software or documentation by specific name or module or item number.

(3) Detailed description of the asserted restrictions. For each of the

technical data or computer software identified above in paragraph (2),
identify the following information:

(i) Asserted rights. Identify the asserted rights for the technical data or
computer software.

(ii) Copies of negotiated, commercial, and other non-standard licenses.

Offeror shall attach to its offer for each listed item copies of all proposed
negotiated license(s), Offeror's standard commercial license(s), and any
other asserted restrictions other than Government purpose rights; limited
rights; restricted rights; rights under prior government contracts,
including SBIR data rights for which the protection period has not
expired; or government’s minimum rights.

(iii) Specific basis for assertion. Identify the specific basis for the
assertion. For example:

(A) Development at private expense, either exclusively or

partially. For technical data, development refers to development
of the item, component, or process to which the data pertains.
For computer software, development refers to the development
of the software. Indicate whether development was
accomplished exclusively or partially at private expense.

(B) Rights under a prior government contract, including

SBIR data rights for which the protection period has not
expired.

(C) Standard commercial license customarily provided to

the public.

(D) Negotiated license rights.

(iv) Entity asserting restrictions. Identify the corporation,

partnership, individual, or other person, as appropriate, asserting the
restrictions.

Previously delivered technical data or computer software. The Offeror shall

identify the technical data or computer software that are identical or

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 substantially similar to technical data or computer software that the Offeror
has produced for, delivered to, or is obligated to deliver to the Government
under any contract or subcontract. The Offeror need not identify
commercial technical data or computer software delivered subject to a
standard commercial license.

Estimated Cost of Development. The estimated cost of development for that

technical data or computer software to be delivered with less than Unlimited
Rights.

Supplemental information. When requested by the Contracting Officer, the

Offeror shall provide sufficient information to enable the Contracting
Officer to evaluate the Offeror’s assertions. Sufficient information must
include, but is not limited to, the following:

(1) The contract number under which the data or software were
produced;

(2) The contract number under which, and the name and address of the
organization to whom, the data or software were most recently delivered
or will be delivered; and

(3) Identification of the expiration date for any limitations on the

Government’s rights to access, use, modify, reproduce, release, perform,
display, or disclose the data or software, when applicable.

Ineligibility for award. An Offeror's failure to submit or complete the

identifications and assertions required by this provision with its offer may
render the offer ineligible for award.

This section must be severable, i.e., it will begin on a new page and the
following section shall begin on a new page. It is anticipated that the proposed
Assertion of Data Rights will be incorporated as an attachment to the resultant
award instrument. To this end, proposals must include a severable self-standing
Assertion of Data Rights without any proprietary restrictions, which can be
attached to the contract or agreement award.

• Cost Summary: Summarize the projected total costs for each task in each year of
the effort, including a summary of subcontracts, man hours, and consumables.
• Resumes for Key Personnel: In Appendix A, provide resumes and curriculum vitae
(CVs) for each of the key personnel.
• Other DHS Support: As an appendix, provide a list of any current or pending
awards or proposals with DHS. (This section will not count toward the 25-page
limit).

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VOLUME 2: Cost Proposal

Cost Proposal (no page limits) shall consist of a cover page and two parts. Part 1 will
provide a detailed cost breakdown of all costs by cost category by calendar/fiscal year
and Part 2 will be a Cost breakdown by task/sub task using the same task numbers in
the Statement of Work. The Cost Proposal should be consistent with the proposed
SOW. Activities such as demonstrations required to reduce the various technical risks
should be identified in the SOW and reflected in the Cost Proposal. Options must be
separately priced.

• Cover Page: The words “Cost Proposal” should appear on the cover page in
addition to the following information:

o BAA number;
o Title of Proposal;
o Identity of prime Offeror and complete list of subcontractors, if applicable;
o Technical contact (name, address, phone/fax, electronic mail address)
o Administrative/business contact (name, address, phone/fax, electronic mail
o address) and;
o Duration of effort (separately price out the basic effort and any options)

• Part 1: Detailed breakdown of all costs by cost category by calendar/fiscal year.

The offeror should provide a total estimated price for major demonstrations and
other activities associated with the program, including cost sharing, if any. The
offeror should state whether any Independent Research and Development (IR&D)
program is or will be dedicated to this effort, or if IR&D is being pursued to benefit
related programs as well. Any cost sharing estimates should include the type of
cost share, i.e. cash or in-kind. If in-kind is proposed, the offeror should provide a
discussion of how the cost share was valued.

o Direct Labor. Individual labor category or person, with associated labor

hours and unburdened direct labor rates;
o Indirect Costs – Fringe Benefits, Overhead, G&A, COM, etc. (Must show
base amount and rate)
o Travel – Number of trips, destinations, durations, etc.
o Subcontract – A cost proposal as detailed as the Offeror’s cost proposal
will be required to be submitted by the subcontractor. The subcontractor’s
cost proposal can be provided in a sealed envelope with the Offeror’s cost
proposal or will be requested from the subcontractor at a later date;
o Consultant – Provide consultant agreement or other document which verifies
the proposed loaded daily/hourly rate;
o Materials should be specifically itemized with costs or estimated costs.
Where possible, indicate purchasing method, (Competition, engineering
estimate, market survey, etc.)
o Other Directs Costs, particularly any proposed items of equipment or
facilities. Equipment and facilities generally must be furnished by the

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 contractor/recipient. Justifications must be provided when Government
funding for such items is sought
o Fee/Profit including fee percentage.

• Part 2: Cost breakdown by task/sub-task using the same task numbers in the
Statement of Work.

The Cost Proposal should be consistent with your proposed SOW. Activities such as
demonstrations required to reduce the various technical risks should be identified in the
SOW and reflected in the Cost Proposal. The offeror should provide a total estimated
price for the major Research, Development, Test, and Evaluation (RDT&E) activities
associated with the program.

Significant Dates and Times:

DHS S&T will review all white papers in accordance with the below table, anticipated
schedule of events, using the evaluation criteria described below. After the white paper
review, DHS S&T will notify offerors, electronically or in writing, regarding whether
offerors are encouraged or discouraged to submit a full proposal based upon that review.
DHS S&T plans to review full proposals in accordance with the below anticipated schedule
of events. A review panel will evaluate the full proposals using the criteria specified under
the evaluation criteria discussed above. Following that review, offerors will be notified
whether or not their proposal has been selected for negotiation. Multiple awards may be
made under this BAA.

The Government reserves the right to fund none, some, or all of the proposals received. It is
the intention upon completion of proposal evaluation to notify offerors of an initiation of
negotiation for awards or rejection of their proposal. Awards will be made based on the
evaluation, funds availability, and other programmatic considerations. There will be no
debriefing for those white papers that result in the Government discouraging the offeror
from submitting a full proposal. Offerors may request a debriefing for full proposals that
are not selected.

2. Anticipated Schedule of Events-

Anticipated Schedule of Events *

Event Date (MM/DD/YEAR) Time (Local
Eastern Time)
White Paper Website Registration 2/13/09 4:30 PM
deadline
White Paper Due Date 03/11/09 4:30 PM
Notification of DHS S&T Evaluations of 3/27/09
White Paper

Full Proposal Due Date 04/22/09 4:30 PM

Notification of Selection for Award 5/15/09 N/A
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Contract Award TBD N/A
Kickoff Meeting TBD TBD
* These dates are estimates as of the date of this announcement.

V. EVALUATION INFORMATION

1. Evaluation Criteria:

White Papers

The evaluation of White Papers will be accomplished through an independent technical

review of each using the following criteria, which are listed in descending order of relative
importance:

• Overall Scientific and Technical Merit: The proposed technology solution is

innovative, feasible, achievable, complete and supported by a proposed technical
team that has the expertise and experience to deliver a Location Tracking System
that accomplishes the program objectives, goals, and performance requirements as
detailed in the BAA Section 10. Proposers must demonstrate understanding of the
critical technology challenges required to address the desired system performance
parameters and a strategy to address those issues, including a risk mitigation
strategy and total cost of ownership and expected unit costs.
• Test and Evaluation: The proposer’s Test and Evaluation Plan to verify and
validate the system performance in several venues, ranging from lab environment,
various building structures, and training grounds with the involvement of end user
communities. Included in this is a realistic plan to conduct technology
demonstrations as part of the T&E effort.
• Proposer’s Capabilities and/or Related Experience: The proposer's prior
experience in similar efforts must clearly demonstrate an ability to deliver products
that meet the proposed technical performance within the proposed budget and
schedule. The proposed team’s expertise to manage technical performance, cost,
and schedule will be evaluated.
• Plans and Capability to Accomplish Technology Transition: The capability and
plan/options to transition the technology to the operational first responder
communities in such a way as to enhance emergency operations will be assessed.
This also includes the potential of the proposed solution to address the desired end-
user needs, performance requirements, and affordability for relevant homeland
security, law enforcement, and/or public safety applications
• Cost Realism: The objective of this criterion is to establish that the proposed costs
are realistic for the technical and management approach offered, as well as to
determine the proposer’s practical understanding of the effort. This will be
principally measured by cost per labor-hour and number of labor-hours proposed.
The evaluation criterion recognizes that undue emphasis on cost may motivate
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 proposers to offer low-risk ideas with minimum uncertainty and to staff the effort
with junior personnel in order to be in a more competitive posture. DHS S&T
discourages such cost strategies. Cost reduction approaches that will be received
favorably include innovative management concepts that maximize direct funding
for technology and limit diversion of funds into overhead.

Full Proposals

Volume I will be the primary Proposal for the evaluation, with Volume II used as
supplementary material at the discretion of the individual reviewer. The evaluation of
Proposals will be accomplished through an independent technical review of each using the
following criteria, which are listed in descending order of relative importance:

Technical Approach The proposed scientific/technical concept and methodology is clearly

described and sound and includes a demonstrated understanding of the indoor location
tracking technology challenges required for achieving the goals of the topic. The technical
approach is innovative and/or has advantages over other solutions, if successfully
implemented. Of importance is how the proposed technology will meet or exceed the
performance requirements for this program. All critical scientific and technical issues are
clearly identified, and the planned development approach and risk-mitigation efforts are
clearly defined and feasible.
Milestones, task descriptions, and associated technical elements provided are complete and
in a logical sequence with all proposed deliverables clearly defined such that a final
product that meets and/or exceeds the proposed performance can be expected as a result of
an award. In general, the following items will be considered and evaluated:

• Innovation, technology uniqueness, and realism

• Understanding of the problem and methods to quantify accuracy performance
relative to stated requirements for X, Y, and Z
• Concept of operation, scalability, and integration with existing equipment to include
how the system will be developed and demonstrated
• Understanding of the current state-of-the-art technology including anticipated unit
costs
• Use of open standards for technical solutions
• Demonstrated experience in and understanding of location tracking systems and
operational users
• Identification of key performance metrics and methodology for assessing technical
progress
• Identification of the critical issues and risks and proposed mitigation plans for
executing the effort
• Identification and description of the critical path to involving the responder
community
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 • Expected system and unit costs, use, and adherence to standards (if applicable)

Management Approach Sound managerial approach to the proposed work, including a

demonstrated understanding of the critical technology challenges required for achieving the
goals of the topic, and a strategy to address those issues, including a risk mitigation strategy
and the uniqueness of the approach. The management approach should demonstrate the
ability of the proposers to work with the responder community, build consensus, and
provide a solid approach for managing the development and promulgation of the Location
Tracking System among various communities. The proposers should discuss their
approach for connectivity with equipment vendors and the use of any partnerships to
achieve the program goals.

Recognizing that proper management of a program can either debilitate or enhance the
results, S&T will review proposals for attention to schedule and budget management
approach for completing all task milestones on time and on budget. In general, the
following will be considered and evaluated:

• Clear and sound approach for program management and coordination among all
team members and organizations and the level of proactive management involved in
achieving the program goals and objectives
• Organizational structure of the proposal team
• Management approach to developing a successful Location Tracking system and
any associated standards
• Clear delineation of milestones and tasks among all team members
• Plan for managing technical, schedule, and cost risks
• Management experience of program manager or program management team
• Utilization of appropriate management tools for timely dissemination of program
information

Capability and Experience of Team in Advanced Technology Development and

Manufacturing
Capability to perform proposed work and history of performance of the proposers and any
team members in developing related technologies. This factor includes the skills,
experience, and certification of the proposed team as well as the proposed facilities to
accomplish the work.
In general, the following items will be considered and evaluated:

• Prior experience in related efforts demonstrating an ability to perform development

and advanced technology prototyping of sensor hardware and software systems

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 • Demonstrated ability to develop and deliver products that meet or exceed the
proposed operational and technical performance within the proposed budget and
schedule
• The proposed team is sufficiently complete: key personnel are identified with the
required range of competencies to execute this effort and the team includes
appropriate experience
• Demonstrated experience with and understanding of the responder community
needs and operational requirements and constraints
• Level of reach back and capabilities; partnerships with large/small
private/public/educational institutions as needed

Cost Realism

The objective of this criterion is to establish that the proposed costs are reasonable and
realistic for the technical and management approach offered, as well as to determine the
proposer’s practical understanding of the effort. This will be principally measured by cost
per labor-hour and number of labor-hours proposed, by major capital expenditures and
consumables in the early phases and likelihood of completing the effort on time and at the
proposed cost.

This evaluation criterion recognizes that undue emphasis on cost may motivate proposers
to offer low-risk ideas with minimum uncertainty and to staff the effort with junior
personnel in order to be in a more competitive posture. S&T discourages such cost
strategies.
The final evaluation will be based upon an assessment of the overall best value to the
government based upon these criteria.

NOTE: DHS S&T reserves the right to select for award and fund all, some, or none of
the Full Proposals received in response to this solicitation.

2. Evaluation Panel

All properly submitted white papers and full proposals that conform to the BAA
requirements will be evaluated by a review panel comprised of government technical
experts drawn from staff within DHS S&T and other Federal agencies. All government
personnel are bound by public law to protect proprietary information.

The Government may use selected support contractor personnel to assist as technical
advisors during the evaluation process and to support administrative functions pertaining to
the receipt and evaluation of any ensuing white papers, presentations, and proposals from
this announcement. These support contractors will be bound by appropriate non-disclosure
agreements to protect proprietary and source-selection information. They will not be
permitted to release any source-selection information to third parties, including others in
their organization.

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VI. AWARD ADMINISTRATION INFORMATION

1. Objections

Any objections to the terms of this solicitation or to the conduct of receipt, evaluation, or
award of agreements must be presented in writing within 10 calendar days of: 1) the release
of this solicitation; or 2) the date the objector knows or should have known the basis for its
objection.

Objections should be provided in letter format, clearly stating that it is an objection to this
solicitation or to the conduct of the evaluation or award of an agreement, and providing a
clear, detailed, and factual statement of the basis for objection.

Failure to comply with these directions is a basis for summary dismissal of the objection.

Mail objections to:

U. S. Department of Homeland Security
ATTN: Timothy Davis
Office of Procurement Operations/Science & Technology Division
Washington, DC 20528

2. Reporting

The following minimum deliverables will be required under traditional procurement

contracts or other transactions agreements awarded to those offerors whose full proposals
are selected for award.

Monthly Program Report

Brief narrative reports (not more than two pages) will be electronically submitted to the
program manager within one week after the last day of each month (not more than two
pages). These reports will describe: the previous calendar month’s activity; technical
progress achieved against goals; difficulties encountered; recovery plans (if needed);
explicit plans for the next calendar month; and financial expenditures (including
expenditures during the past calendar month period plus cumulative expenditures, and
projected expenditures for the coming calendar month).

The following deliverables, primarily in contractor format, are anticipated as necessary.

However, specific deliverables should be proposed by each Offeror and finalized with the
contracting agent:

• Technical and Financial Progress Reports

• Presentation Material

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 • Other Documents or Reports
• Final Report

3. Project Meetings and Reviews

Program status reviews may also be held to provide a forum for reviews of the latest results
from experiments and any other incremental progress towards the major demonstrations.
These meetings will be held at various sites throughout the country. For costing purposes,
offerors should assume that 40 percent of these meetings will be at or near DHS S&T,
Washington D.C., and 60 percent at other contractor or government facilities. Interim
meetings are likely, but these will be accomplished via video telephone conferences,
telephone conferences, or Web-based collaboration tools.

4. Additional Deliverables

Performers should define additional program-specific deliverables as appropriate for the

proposed approach. The Government may describe additional deliverables at the time full
proposals are requested.

VII. OTHER INFORMATION

1. Government Property, Government Furnished Equipment (GFE), and Facilities

The Government may provide government-furnished equipment (GFE), resources (GFR),

information (GFI), or services (GFS) under the terms of each negotiated contract or
agreement. GFE, GFR, GFI, or GFS requested by an offeror must be factored into the
offeror’s project cost. Each offeror must provide a very specific description of any
equipment or hardware it needs to acquire to perform the work. This description should
indicate whether or not each particular piece of equipment or hardware will be included as
part of a deliverable item under the resulting award.

In addition, this description should identify the component, nomenclature, and

configuration of the equipment or hardware that it is proposed to purchase for this effort.
The Government wants to have the contractor purchase the equipment or hardware for
deliverable items under its contract. It will evaluate case-by-case the purchase, on a direct
reimbursement basis, of special test equipment or other equipment, not included in a
deliverable item will be evaluated for allowability on a case-by-case basis. Maximum use
of Government integration, test, and experiment facilities is encouraged in each of the
offeror’s proposals.

Government research facilities may be available, and should be considered as potential

GFE. These facilities and resources are of high value, and some are in constant demand by
multiple programs. The use of these facilities and resources will be negotiated as the

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program unfolds. Offerors should explain which of these facilities they recommend and
why.

2. Security Classification

No Classified White Papers or Full Proposals (or portions of proposals) will be accepted.

3. Information for White Paper and Full Proposal Respondents

This BAA is for planning purposes only. It will not be construed as an obligation on the
part of the Government to acquire any products or services. No entitlement to payment of
direct or indirect costs or charges by the Government will arise as a result of submission of
responses to this BAA and the Government’s use of such information. Respondents to this
BAA may be requested to provide additional information based on their submittals.
Unnecessarily elaborate responses containing extensive marketing materials are not
desired.

4. SAFETY Act

As part of the Homeland Security Act of 2002, Congress enacted the Support Anti-
Terrorism by Fostering Effective Technologies Act of 2002 (the “SAFETY Act”). The
SAFETY Act puts limitations on the potential liability of firms that develop and provide
qualified anti-terrorism technologies. DHS S&T, acting through its Office of SAFETY Act
Implementation (OSAI), encourages the development and deployment of anti-terrorism
technologies by making available the SAFETY Act’s system of “risk management” and
“liability management.” Offerors submitting proposals in response to this BAA are
encouraged to submit SAFETY Act applications for their existing technologies. They are
invited to contact OSAI for more information, at 1-866-788-9318 or
helpdesk@safetyact.gov. They also can visit OSAI’s Web site at www.safetyact.gov.

5. Points of Contact

BAA Questions: BAA09-02Questions@dhs.gov

BAA Submissions: BAA09-02@dhs.gov
Technical: Jalal Mapar, Jalal.Mapar@dhs.gov
Business: Joseph Wolfinger, Joseph.Wolfinger@dhs.gov

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