80GRC021R0010_80GRC022CA006_JOFOC_Final.pdf

NATIONAL AERONAUTICS AND SPACE ADMINISTRATION

NASA Glenn Research Center (GRC)

JUSTIFICATION FOR OTHER THAN FULL AND OPEN COMPETITION

(JOFOC)

For Request for Proposal #80GRC021R0010 “Combined Cycle Engine – Large Scale Inlet Mode Transition Experiments (CCE-

LIMX) Modified WJ38 Engine Support”

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) Glenn Research Center (GRC):

The procuring agency is the National Aeronautics and Space Administration (NASA) and the contracting activity is NASA GRC.

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 contract with Williams International, Co. LLC for a follow-on contract to the work conducted pursuant to NASA RTAPS 2 Contract NNC15BA08B, Task Order NNC16TA02T, with Williams International, Co. LLC. The original contract and task order were not sole-sourced efforts.

This new statement of work continues the original research beyond the 5-year contract limit.

It includes the engineering analysis and related support for the integration of a modified WJ38 engine and its subsystems into a planned NASA wind tunnel experiment. Also included is on-site support for the tests and related posttest documentation.

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):

The National Aeronautics and Space Administration is conducting research into the performance, operability and control methodologies for airbreathing Turbine-Based Combined Cycle (TBCC) propulsion systems. Tests have been conducted to evaluate the performance and operability of an existing TBCC inlet with engine simulation in a representative operating environment. Experiments are planned to be conducted to evaluate the integration of the inlet with a Williams International, Co. LLC WJ38 turbine engine for which it has been uniquely designed and constructed. Based upon the work that has been completed to date, the purpose of this follow-on sole source procurement is to secure technical support in preparation for, relevant to and for the remaining tasks of integrating the WJ38 engine into the existing experiment. This includes support for engine installation, engine accessory hook-ups and instrumentation, implementation of safety provisions and engine operation during the planned experimental tests.

Work completed to date has included WJ38 engine simulation, singular engine modifications and the design and fabrication of custom built Engine Control Unit (ECU), control panel, fuel panel and auxiliary engine system components for integration into NASA’s test facility. The work to be completed under this sole source contract includes technical support for the installation of the modified WJ38 engine and these associated panels and components. This includes an experiment “dry run” for test procedures development. The contractor shall develop engine control sequences and operating procedures for experiment integrated engine operation including startup and shutdown as well as potential hazard scenarios over the NASA-provided range of test conditions. Also included is technical support for operation of the modified WJ38 engine throughout the range of conditions to be tested during NASA’s test program as well as related work.

Options are provided for engine refurbishment and checkout in a conforming test facility as well as procurement of custom-built engine shipping and storage containers. Per FAR 17.207(f), the options will be included in the original RFP sent to the contractor and then evaluated in the technical and cost analysis. If the option is exercised a written determination will be made to satisfy the competition requirements of FAR part 6.

This sole source procurement supports NASA’s Aeronautics Research Mission. The period of performance for this work is 22 months, estimated to be from July 2021 through April 2023, and has an estimated dollar value of $870k.

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.

2304(c)(1), as implemented by FAR 6.302-1(a)(2)(iii) 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. 2304(c)(1) is that Williams International, Co.

LLC is the only responsible source as described below.

Williams International, Co. LLC is the only contractor that is capable of performing the unique and specialized work of analyzing and supporting the integration and test of its singular modified WJ38 engine, which NASA has procured and is specific to its CCE-LIMX experiment. This is due to Williams International, Co. LLC’s unique and proprietary knowledge of the baseline WJ38 engine and its work modifying and otherwise preparing the engine and its support systems to date.

Williams International Co. LLC’s proprietary knowledge of the baseline WJ38 engine includes ownership of proprietary data in which the Government has limited rights, and utilization of such data will be necessary for successful performance of this effort. Williams International, Co. LLC has its unique and proprietary knowledge of the baseline WJ38 engine as well as its work on the engine and support systems to date. Williams International, Co. LLC is the only responsible source that has the required knowledge to apply the results of its preparatory engineering thermal, structural and other analyses.

Only Williams International, Co. LLC has the knowledge needed to employ and adapt its custom developed engine control system to the wind tunnel test sequences. Only Williams International, Co. LLC has the unique knowledge, specialized labor skills and highly specialized equipment to refurbish the WJ38 engine and complete the subsequent check run of the engine on a properly conforming test stand. Finally, Williams International, Co. LLC solely has the proprietary engine design specifications needed to provide shipping and storage containers should they be required.

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 (beta.sam.gov) was published on March 15, 2021 in accordance with FAR Subpart 5.2. This posting informed potential sources of NASA’s intent to award this sole-source contract to Williams International, Co.

LLC. The results of this synopsis 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.

The proposed cost and fee will be determined reasonable per FAR 15.4 by first conducting the NASA required cost analysis which examines every line of cost within the proposal and includes a cost realism analysis. The proposal will also be evaluated against an independent government cost estimate (IGCE) for a more thorough analysis of the proposed costs and fee.

This contract will be a cost plus fixed fee (CPFF) contract because of the level of risk to both the contractor and the government. The uncertainty of research does not allow for a fixed price contract.

Certified cost data will not be required for this proposal as it is estimated to be less than $2 million per FAR 15.403-4(a)(1).

The technical team will perform an analysis of the fairness and reasonableness of the proposed cost, fee, and pricing by conducting a comparison with past nominally comparable efforts, experience, and detailed engineering knowledge of the requirements of the work.

The team plans on first reviewing costs of this effort in terms of the proposed level of effort, categories of proposed labor and associated labor rates to ensure that they are appropriate and comport with levels identified by an independent NASA assessment of the work.

The fairness and reasonableness of the fee will subsequently be evaluated on a percentage of cost basis against comparable past contracted efforts.

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:

Market research for this acquisition includes a posting the notice of intent to sole source on beta.sam.gov as well as previous and ongoing research surrounding the statement of work.

There were no responses to the posting as was expected due to the unique nature of the work.

At this time, the CCE-LIMX experiment requires the Williams International, Co. LLC’s WJ38 engine support. The requirement has been carefully considered and defined based upon the best available scientific data from technical journals as well as many other publications, logistics, and cost reviews.

The required unique modified WJ38 engine engineering preparations and test support do not exist as a commercial service. As determined based upon prior and ongoing work, there is no available alternative on the market, and a sole source contract to Williams International, Co.

LLC is the only valid path forward to continue the CCE-LIMX research.

Alternative contractors are not feasible options in that millions of dollars of existing wind tunnel model hardware would need to be substantively modified and/or replaced to do so (e.g.

to accommodate use of an alternate jet engine). The researchers’ ongoing efforts have not identified any responsible, feasible, alternative sources offering equal technical and/or business approaches to meeting the CCE-LIMX program requirements.

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

FAR 6.303-2(b)(9)(i) – Technical data packages, specifications, engineering descriptions, statements of work, or purchase descriptions suitable for full and open competition have not been developed and are not applicable. Such data would include Williams International, Co.

LLC proprietary information that is not available for general release. Such data further are subject to restrictions against public release imposed by applicable International Traffic in Arms Regulations (ITAR).

FAR 6.302-1(a)(2)(iii) – The subject sole source procurement is a follow-on acquisition to NASA RTAPS 2 Contract NNC15BA08B, Task Order NNC16TA02T. The cost of competing the anticipated follow-on contract would not be in the best interest of the government. A competition would cause the Government unnecessary costs since a new contractor would have to re-do all the work previously accomplished in NNC16TA02T. This would include repeating $2.239M of WJ38 engine related work that has been completed. It would also require NASA to purchase an alternate to the WJ38 engine which NASA has already procured at a cost of $4.0M. The duplication of this work would also include a substantial redesign, fabrication and possibly retest of the CCE-LIMX experiment to interface with and support an alternate engine.

Assuming that retesting the CCE-LIMX inlet could be avoided, this cost would be approximately $1.5M. If retesting the CCE-LIMX inlet in NASA’s 10’x10’ Supersonic Wind Tunnel (SWT) could not be avoided, this cost would conservatively rise to at least $10M. The bases of these estimates are respectively:

1.) The total cost of this follow-on contract’s research, about $870k total.

2.) The sum of completed CLIN 1 cumulative actual costs and ongoing CLIN 2 work that has been completed to date. These amounts are as documented in NASA’s current

RTAPS 2 task order contract and the most recent 533M report provided by Williams International, Co. LLC ($2.239M).

3.) The purchase price NASA paid for its modified WJ38 engine as documented in Mod 6 of the current RTAPS 2 task order contract (i.e. as Government Furnished Property provided to Williams International, Co. LLC under which further engine modifications were made) ($4.0M).

4.) The costs of modifying NASA existing CCE-LIMX experiment and retest in NASA’s 10’x10’ SWT to accept an alternate jet engine is based upon prior engineering experience designing and testing large-scale experiments in both NASA’s 10’x10’ and 8’x6’ Supersonic Wind Tunnels. Notably, the retest costs include the support of the staff of the 10’x10’ SWT wind tunnel facility for the duration of that work ($1.5M – $10M).

FAR 6.302-1(a)(2)(iii)(B) – FAR 6.302-1(a)(2)(iii)(B) also applies. If the support being sought by this procurement were required to be obtained via full and open competition, the CCE- LIMX test program would be delayed far beyond the 10’x10’ SWT test entry which it has been allocated. This would likely lead to the entire CCE-LIMX Task being cancelled, failure to obtain critically important enabling high speed inlet mode transition data and the millions of dollars of work done in preparation for these tests to be wasted. The subject procurement must immediately follow the current RTAPS 2 task order contracted effort.

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 (beta.sam.gov) per FAR Subpart 5.2 (See Section 6 above). The synopsis was posted on March 15, 2021 and closed on March 30, 2021. There were no contractor responses.

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 will continue to examine the market in the future for alternative solutions or new sources before executing any subsequent acquisitions for the same requirements.