80ARC021D0002 TPS JOFOC Redaction.pdf

NATIONAL AERONAUTICS AND SPACE ADMINISTRATION

Ames Research Center (ARC)

JUSTIFICATION FOR OTHER THAN FULL AND OPEN COMPETITION

(JOFOC)

For Contract No. 80ARC021D0002 Flight Thermal Protection Systems (TPS) for Science Mission Directorate (SMD) Missions

1. Federal Acquisition Regulation (FAR) 6.303-2(b)(1) – Identification of the agency and the contracting activity, and specific identification of the document as a “Justification for other than full and open competition.”

This document is a justification for other than full and open competition prepared by National Aeronautics and Space Administration (NASA) Ames Research Center (ARC).

The procuring agency is the National Aeronautics and Space Administration (NASA) and the contracting activity is the Procurement Office located at ARC. This JOFOC is recorded in the ARC JOFOC/JEFO/LSJ Log as JA-FY24-J03.

2. FAR 6.303-2(b)(2) – The nature and/or description of the action being approved:

This justification provides the rationale for contracting by other than full and open competition to award a sole-source modification to extend Contract No. 80ARC021D0002 with Fiber Materials Inc. (FMI) for an additional five (5) years and to increase the Indefinite Delivery Indefinite Quantity maximum value by $17 Million (M). This will bring the maximum value from $24M to $41M. The extended period would consist of one (1) 5-year base period from January 20, 2026 to January 19, 2031.

The contract provides support for agency missions that require an Atmospheric Entry Vehicle which must be covered with Thermal Protection System (TPS) materials. Examples of current SMD missions requiring an entry vehicle with TPS are: (1) Mars Sample Return – Sample Retrieval Lander (MSR SRL); (2) Mars Sample Return – Earth Entry Vehicle (MSR EEV); (3) Dragonfly; and (4) Deep Atmosphere Venus Investigation of Noble-gases, Chemistry and Imaging (DAVINCI). These and potential future missions require fabrication of various flat and/or curved composite panels of TPS materials developed and patented by NASA.

Specifically, the NASA developed TPS options that support the range of SMD missions include one or more of the following material systems: Phenolic Impregnated Carbon Ablator (PICA), Conformal PICA (C-PICA), 3D Mid Density Carbon Phenolic (3MDCP) and/or Heatshield for Extreme Entry Environment Technology (HEEET). One or more of the mentioned TPS materials have been baselined (or is a backup) for missions in support of NASA’s Science Mission Directorate (SMD). Execution of this 5-year extension will ensure continuity of critical services through January 19, 2031.

3. FAR 6.303-2(b)(3) – A description of the supplies or services required, to meet the Agency’s needs (including the estimated value):

NASA's Science Mission Directorate (SMD) is undertaking several critical robotic missions, necessitating advanced Thermal Protection System (TPS) materials for atmospheric entry protection listed below.

Project Overview

• Mars Sample Return (MSR) Program: Comprises of two spacecrafts (the MSR Surface Return Lander (SRL) and the MSR Earth Entry Vehicle (EEV)), requiring TPS materials for mission success. The SRL will deliver payloads to Mars, and the EEV will return samples to Earth.

• Dragonfly Mission: Aims to deploy a quad-copter drone to Titan, Saturn's moon, exploring its atmosphere and surface.

• DAVINCI: A flying analytical chemistry laboratory that will measure critical aspects of Venus’ massive atmosphere-climate system for the first time, many of which have been measurement goals for the Venus science community since the early 1980s.

The Dragonfly mission is solely using PICA material, specifically the third iteration known as PICA-Domestic (PICA-D), and the MSR SRL mission will either use PICA-D or Conformal PICA (C-PICA), which is a carbon felt based version of the PICA material. The MSR EEV mission uses the 3MDCP material. The DAVINCI mission has called out 3MDCP as a backup TPS – project testing planned for 2025-2026 will determine if 3MDCP or HEEET will need to be elevated to mission baseline. The Dragonfly and MSR SRL missions have baselined 5-m diameter aeroshells that will be comprised of PICA or C-PICA tiles that will be assembled onto a composite structure. This work has been done on prior NASA Mars Projects such as the Mars Science Lab (MSL) and various Mars 2020 projects. In order for mission success, the agency uses the contractor, FMI, to fabricate the PICA-D, C-PICA, 3MDCP or HEEET TPS materials, all of which require an infusion of phenolic resin into various substrate materials.

The current contractor, FMI has successfully infused TPS materials such as PICA, PICA-D, C-PICA, and 3MDCP and HEEET for NASA’s projects and can manufacture the TPS materials at a large industrial scale, which is not available anywhere else.

The intended effect of this JOFOC is to document the justification for executing a sole-source modification to the current contract to ensure critical NASA mission support continues for three agency projects without interruption. Due to the complex and developmental state of the project requirements, the potential 5-year extension will allow time for the contractor to create, develop, test, analyze, and infuse the 3MDCP material to yield flight readiness heatshields.

The 3MDCP material development requires increased fabrication, tooling, testing, and storage to fulfill project requirements. Market Research was conducted on sam.gov and no Offeror stated this capability. The Mars Sample Return Projects require extensive fabrication of materials along with testing, which has resulted in changes of the resin infusion from 54-inches

3MDCP to 80-inches 3MDCP. This demonstrates the criticality of this contract to allow further testing and analysis of TPS materials for project success.

The Independent Government Cost Estimate (IGCE) for this effort is FOIA Ex. 5 , primarily due to the increased development costs related to 3MDCP development from sub-scale to full-scale/flight. The additional 5-year period of performance to January 19, 2031 will accommodate on-going material development, testing, analysis, and the Mars Sample Return Program sequential missions with launch timelines extending into the mid-decade to late-2030s.

4. FAR 6.303-2(b)(4) – An identification of the statutory authority permitting other than full and open competition:

The statutory authority permitting other than full and open competition is 10 U.S.C 3204(a)(1), as implemented by FAR 6.302-1(a)(2), Only One Responsible Source and No Other Supplies or Services Will Satisfy Agency Requirements.

5. FAR 6.303-2(b)(5) – A demonstration that the proposed contractor’s unique qualifications or the nature of the acquisition requires use of the authority cited:

The rationale supporting the use of 10 U.S.C. 3204(a)(1) is when the supplies or services required by the agency are available from only one responsible source as described below.

Entry Vehicle TPS Requirements: For the success of these missions, the Entry Vehicles will utilize TPS materials such as PICA, PICA-D, C-PICA, 3MDCP, and HEEET: all of which have substantial ground and flight test heritage. These materials are essential to preserve the integrity of the returned samples and FMI is the sole company that is capable of meeting the thermal and structural environments for the Mars Sample Return (MSR) project, the Dragonfly project as well as DAVINCI mission to Venus.

Detailed Market Research: Extensive market research has confirmed that FMI is the sole provider capable of fabricating the essential TPS materials for the MSR EEV, MSR SRL, Dragonfly and DAVINCI projects. A Sources Sought Synopsis was posted on sam.gov for Offeror’s but the Government received no response to the public announcement. Additional market research was conducted as described in Section 8 below. This research evaluated potential suppliers based on their ability to meet stringent NASA specifications and timelines.

Criteria included flight heritage, material properties, and production capabilities. Despite thorough investigation, no other supplier was found to meet the necessary criteria other than

FMI.

Risk Analysis: FMI minimizes the risk to mission timelines and objectives. Alternative sourcing would necessitate new development cycles, potentially compromising mission schedules and increasing costs as no other company offered the resources and tools to meet NASA’s project requirements. FMI provides continuity of significant flight heritage across multiple NASA missions (e.g., Stardust, MSL, OSIRIS, and Mars 2020 projects), ensures compatibility with existing NASA databases and minimizes programmatic risk.

Proprietary Capabilities and Processes: FMI possesses unique, proprietary capabilities essential for the fabrication of the required TPS materials. The Contractor’s in-house ability to fabricate carbon Fiber Form aeroshells and to resin infuse PICA is a unique capability. FMI’s capacity to produce billets and/or near-net shape single piece articles of carbon Fiber Form, combined with their existing in-house tooling, infusion, processing, and machining equipment, underlines their unique position. These capabilities, coupled with FMI’s extensive experience and established process specifications, staff, and training, enable immediate production start-up without the need for significant capital investment in new equipment, trained staff, and facility modifications.

Given the specific TPS material requirements, the critical importance of maintaining mission timelines, and the proprietary nature of FMI’s fabrication capabilities, it is determined that FMI is the only responsible source capable of fulfilling NASA's needs for the MSR EEV, MSR SRL, Dragonfly and DAVINCI projects. Current and future SMD missions, expected to launch from 2028 to 2038, depend on the ongoing TPS development by FMI. This justification supports the sole-source selection of FMI, ensuring that NASA can meet critical SMD milestones and uphold the integrity and success of its missions.

6. FAR 6.303-2(b)(6) – A description of the efforts made to ensure that offers are solicited from as many potential sources as practicable, including whether a notice was or will be publicized as required by Subpart 5.2 and, if not, which exception under 5.202 applies:

A notice to the Government Point of Entry (GPE) website (Sam.gov) was published on February 06, 2024, in accordance with FAR Subpart 5.2. This posting informed potential sources of NASA’s intent to award a sole-source modification to FMI. The synopsis results are summarized in Section 10 below.

7. FAR 6.303-2(b)(7) – A determination by the contracting officer that the anticipated cost to the Government will be fair and reasonable:

The Contracting Officer’s signature on this document indicates that the Contracting Officer has determined that the anticipated cost to the government will be fair and reasonable. The Contractor shall be required to submit a proposal to be evaluated and negotiated by the Government. Prior to execution of the contractual instrument, a proposal analysis will be performed. The proposal analysis will ensure that the final agreed-to price for the contract action is fair and reasonable. Prior to the award of this modification, an analysis will be performed in accordance with FAR 15.404. The analysis will encompass a cost element analysis, comparison with the Independent Government Cost Estimate (IGCE), and the application of other cost and price analysis techniques. The analysis will ensure that the final negotiated position on cost/price for each delivery order awarded during the contract's period of performance is justifiable. Pre-negotiation objectives will be established before negotiations begin and must receive approval in accordance with FAR 15.406. The Contracting Officer will document both the pre-negotiation position and the outcomes of the negotiations in a Price Negotiation Memorandum, as mandated by FAR 15.406.

8. FAR 6.303-2(b)(8) – Description of the market research conducted, and the results, or a statement of the reasons market research was not conducted:

ARC posted a synopsis to the GPE website (Sam.gov) as stated in paragraph 6 above. The Contract Specialist received no capability statements in response to the synopsis.

The Contract Specialist also searched Small Business Administration (SBA) Dynamic Small Business Search (DSBS), General Services Administration (GSA) e-Library, Federal Procurement Database System (FPDS) NASA Vendor Database, and other databases using the keywords “Phenolic Impregnated Carbon Ablator,” “HEEET,” and North American Industry Classification System (NAICS) code 541715, Research and Development in the Physical, Engineering, and Life Sciences (except Nanotechnology and Biotechnology). NAICS code 541715 reflects the development required to define and implement the novel and new HEEET and PICA production processes required for application to the MSR EEV. The NASA Vendor Database, using search criteria such as, “Phenolic Impregnated Carbon Ablator” and “HEET,” revealed the incumbent as the only vendor which provides these supplies to NASA. Other market research tools, using similar search criteria, revealed no matches. The scope of work required during the remaining period of performance can only be accomplished by the current contractor without incurring a substantial duplication of cost to the Government that is not expected to be recovered through competition and unacceptable delays in fulfilling the agency’s requirements. Only FMI would be able to perform the work without adversely impacting important schedules of work currently being performed on the contract.

Market research indicates that in accordance with FAR 6.302-1(a)(2)(iii)(A) and (B), FMI is the only responsible source that can fabricate PICA, C-PICA ,3MDCP, and HEEET on a large scale without substantial duplication of cost to the Government that will not be recovered through competition and unacceptable delays in meeting agency requirements. FMI has successfully performed all requirements for TPS material such as PICA, PICA-D, C-PICA, 3MDCP, and HEEET fabrication since 2003.

9. FAR 6.303-2(b)(9) – Any other facts supporting the use of other than full and open competition:

None.

10. FAR 6.303-2(b)(10) – A listing of the sources, if any, that expressed an interest in writing in the acquisition:

A notice of NASA’s intent to award this sole-source action was synopsized on the GPE website (Sam.gov) per FAR Subpart 5.2 (See Section 6 above). The notice was posted on February 06, 2024, with a closing date of February 22, 2024. The Government received no responses to the synopsis.

11. FAR 6.303-2(b)(11) – A statement of actions, if any, the agency may take to remove or overcome any barriers to competition before any subsequent acquisition for the supplies or services required:

The agency missions supported by this contract have been extended into the mid-late year of 2030; however, NASA will only extend this contract until year 2031. This provides other industry entities sufficient time to explore and develop new means to enter the market and/or change the competitive landscape. The agency will continue to examine the market up to the end of this contract’s period of performance for alternative solutions or new sources before executing any subsequent acquisitions for the same requirements in support of the extended NASA missions.

MATTHEW

GASCH

Digitally signed by

MATTHEW GASCH

Date: 2024.03.26 12:46:12 -07'00'

Flight Thermal Protection Systems (TPS) for Science Mission Directorate (SMD) Missions

JUSTIFICATION FOR OTHER THAN FULL AND OPEN COMPETITION

SIGNATURE PAGE

I certify that the facts presented in this justification are accurate and complete.

Matthew J. Gasch Technical Representative

I hereby certify that the above justification is complete and accurate to the best of my knowledge and belief.

Veronica Gutierrez

Digitally signed by Veronica Gutierrez Date 2024.03.26 13 04 07 -07'00'

Veronica L. Gutierrez Contracting Officer

CONCURRENCES:

Lauren N. Johnson Competition Advocate Ames Research Center

Todd J. Pospisil Procurement Officer Research Centers Procurement Office

APPROVAL:

Todd J. Pospisil Head of Contracting Activity Research Centers Procurement Office

Lauren Johnson

Digitally signed by Lauren Johnson Date: 2024.08.28 20:31:21 -05'00'

TODD

POSPISIL

Digitally signed by TODD

POSPISIL

Date: 2024.09.06 16:25:43 -04'00'

TODD

POSPISIL

Digitally signed by TODD

POSPISIL

Date: 2024.09.06 16:35:38 -04'00'