BH4-17-026_JOFOC_80JSC019D0010.pdf

Enclosure

NATIONAL AERONAUTICS AND SPACE ADMINISTRATION

(NASA) LYNDON B. JOHNSON SPACE CENTER (JSC)

JUSTIFICATION FOR OTHER THAN FULL AND OPEN COMPETITION (JOFOC)

Pursuant to 10 United States Code (U.S.C.) 2304(c)(1) and Federal Acquisition Regulation (FAR) 6.302-1

For the International Space Station (ISS) Global Positioning System (GPS) and Specialized Exploration Test Support 2 Contract

1. The nature and/or description of the action being approved:

This justification provides the rationale for contracting by other than full and open competition for the follow-on ISS GPS and Specialized Exploration Test Support 2 contract with Honeywell International, Inc. to provide continued engineering support services for the development of the Space Integrated GPS/Inertial Navigation System (SIGI) and JSC hardware/software integration in the JSC Avionics Laboratories.

2. A description of the supplies or services required, to meet the Agency’s needs (including the estimated value):

This will be a Firm-Fixed Price (FFP), Indefinite-Delivery/Indefinite-Quantity (IDIQ) contract with a total contract value not to exceed $6.5 million and a performance period of 5 years, from April 10, 2018 to April 9, 2023. The tasks required for this contract consist of two major areas, as set forth below:

1) Technical Support of the ISS SIGI:

The SIGI is a criticality one system that is a key part of the navigation system of the ISS. Criticality one is a rating that means failure of the system would result in loss of life or vehicle. The SIGI provides position, velocity, time, and attitude information that is critical to the operation of the ISS Guidance, Navigation, and Control System.

The required support includes developing engineering firmware loads to resolve anomalies observed with the existing SIGI firmware on-orbit and/or improve performance capabilities of the existing SIGI units. An example of prior performance enhancements to SIGI firmware included adding additional GPS raw measurements to the SIGI outputs. These additional GPS raw measurements are used by visiting vehicles to ISS to support safe Rendezvous and Docking operations. Another example includes an improvement to SIGI firmware, which allows vehicle attitude to be calculated with measurements from only two on-board GPS antennas instead of a four GPS antenna configuration. This performance enhancement allows the ISS GPS system to be usable for attitude determination when two of the GPS antennas fail on-orbit.

The effort also includes performance of flight qualification software testing and delivering certified software for use on the ISS. The firmware inside of the SIGI is

BH4-17-026 ISS GPS and Specialized Exploration Test Support 2 2

Honeywell proprietary code and can only be analyzed and modified by Honeywell. As part of this task, Honeywell shall also repair SIGI development and verification test unit hardware as required.

2) Technical Support to Avionics Labs and Hardware:

For this effort, Honeywell will continue to provide support to various laboratories at NASA JSC, including the Kedalion Laboratory. The Kedalion Laboratory is an institutional JSC Engineering avionics support lab, primarily supporting the Orion program, and also supporting the ISS program. All Orion avionics software run on Honeywell’s custom developed Vehicle Management Computer (VMC). These custom hardware components and software tools, including the VMC and associated hardware, test/interface tools, and simulation tools, are uniquely available from Honeywell as they include proprietary technology and Orion unique designs, making NASA/Kedalion access to these assets essential and integral to the success of the Orion Program. The Kedalion organization utilizes these assets for analysis, risk mitigation, and Government Furnished Equipment (GFE) support to the Orion Program. As Kedalion provides in-line Orion services, the Orion Program has become dependent on these services for its overall success.

3. Identification of the statutory authority permitting other than full and open competition:

The statutory authority permitting other than full and open competition for this action is pursuant to FAR 6.302-1(a)(2)(iii) and 10 U.S.C. 2304(c)(1), where only one responsible source and no other supplies or services will satisfy agency requirements.

4. Demonstration that the proposed contractor’s unique qualifications or the nature of the acquisition requires use of the authority cited and any other facts supporting the use of other than full and open competition:

To demonstrate the authority permitting other than full and open competition, Honeywell maintains limited data rights and proprietary software for the VMC and VMC tools/ simulations. Honeywell provides the unique engineering capability, as the owners of proprietary avionics technology selected by the ISS and Orion programs, to evaluate analytical, computational, and system engineering efforts in support of the Avionics and Control Systems for the ISS and Orion. These tools allow for rapid prototyping of Avionics and Control Systems and offer the opportunity to shorten the development cycle of these systems for the Orion vehicle.

Proprietary software exists within the VMC for which Honeywell has sole data rights.

Honeywell is the only vendor who has legal rights to maintain and modify the source code of the software within the VMC. For this reason, Honeywell is the only source available to provide design insight and make changes to this firmware to resolve anomalies and improve performance in support of its operational use on Orion. Without support from Honeywell, NASA would not be able to have insight into VMC anomalies or the

BH4-17-026 ISS GPS and Specialized Exploration Test Support 2 3 capability to update software to resolve these anomalies, which could result in potential mission failure and/or catastrophic mission loss.

5. 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:

Pursuant to FAR 5.201, the proposed contract action was synopsized and posted to the Federal Business Opportunities (FBO) September 21, 2017, and closed October 5, 2017.

Two parties expressed interests in the procurement. See paragraph 9 for detailed information.

6. Determination by the contracting officer that the anticipated cost to the Government will be fair and reasonable:

The contractor’s proposed price will be evaluated in accordance with FAR 15.404-2. The Contracting Officer (CO) will work closely with the Contracting Officer’s Representative to determine if Honeywell’s proposed price is fair and reasonable. This includes development of an Independent Government Estimate prior to receipt of the proposal and performance of a price/cost analysis as part of the proposal evaluation. As requested in the proposal, individually identified fixed-price services will be analyzed using historical prices, internal governmental data, and data requested from the Offeror. A technical evaluation will also be performed to analyze the basis of estimate and assess if Honeywell’s proposal is adequate to meet the requirements of the Statement of Work (SOW). The CO will review the results of the technical and price/cost analysis to identify any major issues or concerns. Any proposal issues or concerns will be addressed during fact finding and resolved as necessary through negotiations.

The final price to the Government will be determined by negotiated task/delivery orders under the contract not to exceed $6.5 million. The ISS GPS and Specialized Exploration Test Support 2 contract is being procured as a commercial service and is therefore exempt from the requirement to submit a certificate of current cost or pricing data.

7. Description of the market survey conducted, and the results, or a statement of the reasons a market survey was not conducted:

As discussed in paragraph 5 above, a Sources Sought Synopsis was posted to the FBO and two parties expressed interests in the procurement.

8. Other facts supporting the use of other than full and open competition.

See above item # 4.

9. Listing of the sources, if any, that expressed an interest in writing in the acquisition:

1. Emergent Space Technologies, Incorporated (Small Business)

BH4-17-026 ISS GPS and Specialized Exploration Test Support 2 4

7901 Sandy Spring Road, Suite 511 Laurel, Maryland 20707 Phone: (301) 345-1535 Founded in 2001, Cage Code: 3A2W3, DUNS number: 101537046

2. The Bionetics Corporation (Small Business)

101 Production Drive, Suite 100 Yorktown, VA 23693 Founded in 1969, Cage Code: 1WS12, DUNS number: 040197613

While both Bionetics and Emergent Space Technologies demonstrated in their responses that they have the capabilities for testing and systems engineering of GPS systems, they do not have the capability to provide direct engineering support to the proprietary designs utilized by both ISS GPS SIGI and the Orion avionics architecture as required in this contract. Specifically, the two respondents did not address how they would be able to do the following tasks outlined in section 3 of the SOW:

1. Development of engineering firmware loads to resolve anomalies observed with the existing SIGI firmware on-orbit or improve performance capabilities of the existing units: This task requires access to the source code and the software design, which is proprietary to the incumbent contractor.

2. Repair of development and flight SIGI hardware: The SIGI hardware design is proprietary to the incumbent contractor and thus other contractors would not have the design knowledge and capability to make repairs.

3. Technical support to Avionics Labs and Hardware: The Orion avionics software runs on the incumbent contractor’s custom developed VMS. These custom hardware components and software tools are uniquely available from the incumbent contractor as they include proprietary technology and Orion unique designs.

Bionetics and Emergent Space Technologies were notified that this procurement will be evaluated on a sole source basis due to the proprietary nature of the requirements.

10. 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 requiring organization has a continuing need for support services provided under the ISS GPS and Specialized Exploration Test Support Contract. At this time NASA does not believe that any practical measures can be taken in order to overcome the barriers to competition as a result of the incumbent holding proprietary data rights to the hardware and software design currently in use. This procurement would be open for competition should NASA require development of a new hardware and software design.