GNC III JOFOC - Final.pdf

Rev.: 10/2025

NATIONAL AERONAUTICS AND SPACE ADMINISTRATION

Johnson Space Center

JUSTIFICATION FOR OTHER THAN FULL AND OPEN COMPETITION (JOFOC)

For 80JSC021DA005/Advanced Guidance, Navigation and Control (GN&C) and Avionics

Technology Development and Analysis III (GN&C III)

1. Federal Acquisition Regulation (FAR) 6.104-1(a)(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) Johnson Space Center (JSC).

The procuring Agency is NASA, and the contracting activity is JSC.

2. FAR 6.104-1(a)(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 increase the ceiling value by $18,000,000 of a sole-source contract, number 80JSC021DA005, with The Charles Stark Draper Laboratory, Inc. (Draper) for additional development, maintenance, and application of Guidance, Navigation, and Control (GN&C) products and services for JSC’s Engineering Directorate’s Aeroscience and Flight Mechanics Division (AFMD). The required products and services include, but are not limited to, providing expertise across the full range of GN&C competency areas, development of simulation tools and flight software, performing flight mode specific GN&C analysis, participate in defining GN&C system architecture, and executing GN&C test and verification activities.

3. FAR 6.104-1(a)(3) – A description of the supplies or services required, to meet the

Agency’s needs (including the estimated value):

The development, maintenance, and application of GN&C products and services are required to maintain essential research and development efforts and practical application of GN&C theory, specifically for human rated space flight vehicles traveling beyond Low Earth Orbit (LEO), where there is currently not a commercial application. Beyond LEO is a unique environment that creates significant GN&C complexities in planetary geometry, orbital dynamics, and radiation environments that are not encountered within LEO. In addition, crewed missions beyond LEO require a higher level of reliability which requires the maximum reduction in risk that is achievable.

These services will support the research, design, analysis, development, simulation, integration, testing, operation, and certification for advanced space systems to include, but not limited to, the International Space Station, Orion Multi-Purpose Crew Vehicle (Orion MPCV), and Gateway Programs. These services are critical to Artemis missions and Orion

Rev.:10/2025

MPCV as this vehicle is the first crewed vehicle being developed to leave LEO and support lunar missions since Apollo.

The estimated value of the new work modification associated with this JOFOC is $18,000,000.

4. FAR 6.104-1(a)(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 6.103-1, only one responsible source and no other supplies or services will satisfy Agency requirements.

5. FAR 6.104-1(a)(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 only one responsible source and no other supplies or services will satisfy Agency requirements as described below.

Per FAR 6.103-1(c)(2)(ii), services may be deemed as available from only one source when awarding a follow-on contract for the continued provision of highly specialized services would result in unacceptable delays in fulfilling the Agency’s requirements. A sole-source new work modification is required to increase the current ceiling value for GN&C III to continue providing highly specialized advanced GN&C support services to AFMD for the International Space Station, Orion MPCV, Gateway, United States Deorbit Vehicle, and other programs. If this action is delayed or awarded to any other source, it would result in unacceptable delays in fulfilling the Agency’s requirements for those efforts.

Draper has expertise across the full range of GN&C competency areas and extensive knowledge and experience in implementation of human space flight software from a long history supporting human-rated vehicles through the Apollo, Shuttle, Space Station, and recent Orion/Artemis missions including Exploration Flight Test-1 and Artemis I. Draper is a nationally recognized laboratory with subject matter experts that were the prime developers of the Apollo and Lander Guidance algorithms for the first landing on and successful return from the moon. Draper pioneered many of the technologies that are used in the GN&C industry today, such as algorithms for rendezvous and docking that were developed during the Apollo program. This Apollo mission experience in GN&C, which resulted in nine successful lunar flights, created a proven design and unique lessons learned about the many challenges of GN&C in crewed missions beyond LEO. The GN&C complexities are significantly increased with missions beyond LEO and make returning to Earth much more difficult. Moreover, crewed vehicles are more complex in nature due to stringent safety requirements and increased vehicle reliability requirements that NASA imposes to mitigate the potential for loss of crew. Draper’s expertise from the multiple Apollo missions provided proven algorithms as well as flight computer and software that was successful in a human-rated vehicle beyond LEO. Orion PredGuid Entry guidance algorithm was created from Draper’s Apollo Entry guidance methodologies. The proven design reduces program and cost risk and ensures the safe return of crew. The historical knowledge base Draper has retained through years of mentorship, familiarity, and continued analysis directly benefits NASA’s Artemis campaign of missions and will enable NASA to not just return to landing on the moon, but to create a sustained presence in lunar vicinity.

The Orion MPCV program utilizes a majority of the beyond LEO guidance algorithms from the Apollo missions that Draper developed and leverages lessons learned. Draper has extensive knowledge and experience in implementation of human space flight software from a long history supporting human-rated vehicles through the Apollo, Shuttle, and Space Station missions. This experience developing and implementing challenging and one-of-a-kind hardware and software applications for human space flight makes Draper’s engineering services essential to NASA’s mission success. Specific examples of Draper heritage supporting the Orion program are:

• Orion PredGuid Entry guidance algorithm was created from Draper’s Apollo Entry guidance and Draper’s predictor corrector from a previous program

• Orion OrbGuid Orbit/Ascent Abort guidance algorithm was created from Draper’s Shuttle PEG guidance heritage

• Orion Controller design is anchored by Draper Shuttle controller expertise

• Orion Navigation algorithms and Navigation analysis is defined by use of Draper’s proprietary Linear Covariance tool

Another prime example of Draper’s highly specialized expertise is its being the primary GN&C algorithm Point of Contact for a large portion of the Orion GN&C Flight Software.

After project completion, Draper continues to provide expertise to the AFMD should defects or other issues arise.

Additionally, Draper has provided essential support and leadership to the development, integration, analysis, and testing of the GN&C software and hardware for the Crew Module of the Orion MPCV for EFT-1 flown December 2014 and Artemis I flown November 2022.

The contractor’s skills and experience, especially with the tools and algorithms developed for EFT-1 and Artemis I, are particularly important for the development and integration of the GN&C system for Artemis II and III, as these missions will leverage heavily from the EFT-1 and Artemis I missions.

Draper has already provided key products and services that have enabled the GN&C subsystem to close out all major milestones for Artemis II and III including Preliminary Design Review, Critical Design Review, Delta-Critical Design Review, and verification for Artemis II specifically. Any disruption or loss of these highly specialized Draper capabilities resulting from not increasing the ceiling value and awarding a follow-on contract at this time will adversely impact the Orion MPCV Program with increased costs, schedule disruption, and loss of institutional knowledge and lessons learned. These factors would impede the ability to meet remaining Orion Program Artemis mission milestones, placing the success of those flights at risk.

Under the current contract, Draper provides services that include developing GN&C interfaces required for system automation and providing essential technical expertise, lessons learned, tools, technologies, and facilities to support advanced GN&C system and component development for future NASA science and exploration missions, including crewed and un-crewed vehicles, and advanced technology research and development for ongoing and future NASA science and exploration missions. These services are required to maintain essential research and development efforts and practical application of GN&C theory, specifically for human rated space flight vehicles traveling beyond LEO. Maintaining this essential research and development capability can be achieved by leveraging Draper’s integrated GN&C expertise and will prevent the loss of an invaluable knowledge base. Draper possesses an unmatched combination of technical experience, high quality skills, and expert knowledge concerning human space flight and integrated GN&C services.

Draper possesses the demonstrated ability to combine lessons learned from heritage aerospace designs and flight experience with cutting edge technology and “out-of-the-box” thinking to rapidly conceptualize, develop, validate, implement, and evolve innovative and practical solutions to complex GN&C related space flight challenges including real-time on-orbit anomaly resolution.

Draper is a key team member of the Safe & Precise Landing – Integrated Capabilities Evolution Project team performing a critical role in GN&C flight software development.

Draper provides the Safe & Precise Landing – Integrated Capabilities Evolution team with deep expertise in guidance and navigation. Draper is building the flight code applications for the guidance, navigation filter, and Terrain Relative Navigation. These algorithms are a critical part of a planned set of flight demonstrations on a suborbital rocket and lunar landing for a Precision Landing and Hazard Avoidance system. Draper provides extensive maturity and unique experience with their Terrain Relative Navigation hardware and software capabilities. Other contractors do not have the deep and specialized experience to replace these capabilities.

Other examples of program support include United States Deorbit Vehicle, Commercial LEO Development Program, and Commercial Crew Program, all of which utilize one or more of Draper’s tools and capabilities, for example, structural loads, orbit stability, and spacecraft control with structural interactions software tools.

Another essential capability provided by Draper is strong and vital reach back between its local workforce supporting AFMD and its extensive corporate resources in Cambridge, Massachusetts. Draper is able to draw on a broad and deep technical knowledge base including strategic systems, space systems, tactical systems, special operations, biomedical systems, and energy solutions and facilities to develop practical, integrated, multidisciplinary solutions to complex problems. The Draper Fellow Program provides a link between academia and industry, specifically a direct link to the Massachusetts Institute of Technology and Rice University (Rice). Massachusetts Institute of Technology and Rice both have professors focused on research related to advanced GN&C. In addition, some of the graduate students’ thesis work is directly applicable to NASA, such as the vision navigation algorithms thesis. This program is also a cost-effective way to advance technology, working with graduate students, and receiving access to exceptionally knowledgeable professors.

Draper corporate resources also include cutting edge micro electro-mechanical systems hardware, Multi-Chip Module packaging technologies, and a Matrix Laboratory (Matlab) computing grid. The Matlab computing grid provides rapid turnaround of Monte Carlo simulations and real-time mission support to enhance mission success and crew safety. The Matlab grid has been used extensively for Orion MPCV GN&C development.

6. FAR 6.104-1(a)(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 part 5 and, if not, which exception under part 5 applies:

A notice to the Government Point of Entry (GPE) website (Sam.gov) was published on February 25, 2026, in accordance with FAR part 5. This posting informed potential sources of NASA’s intent to award this sole-source modification to Draper. The results of this synopsis are summarized in Section 10 below.

7. FAR 6.104-1(a)(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 ceiling increase is fair and reasonable.

For future work turned on after the ceiling increase, the Contractor shall continue performing in accordance with the contract, being required to submit a proposal for each Task Order requirement. The Government team shall evaluate each proposal for price reasonableness prior to their execution. The analysis will include verifying the contractor’s use of the negotiated rates in Section B of the contract, comparing historic Task Order prices for similar work, incorporating Technical Evaluator (Contracting Officer Representative) input in the analysis, along with any other pertinent information that is available to the Government at the time of evaluating the Contractor’s proposal. The final cost to the Government shall be determined by the negotiated task orders under the contract. A Certificate of Current Cost or Pricing Data will be requested, as applicable.

8. FAR 6.104-1(a)(8) – Description of the market research conducted, and the results, or a statement of the reason market research was not conducted (e.g., urgent, and compelling requirement):

A notice of NASA’s intent to award this sole-source action was synopsized on the GPE website (sam.gov) per FAR Subpart 5 (see Section 6 above). An intent to issue a sole-source work order was posted on February 25, 2026 and closed on March 12, 2026. The intent of the notice was to determine any interest and ability of industry to perform the effort. No responses were received from industry regarding this action.

The new work modification was determined beyond the scope of the other engineering contracts in the Agency’s portfolio.

9. FAR 6.104-1(a)(9) – Any other facts supporting the use of other than full and open competition:

The predecessor and current GN&C Avionics Technology Development and Analysis contracts, NNJ11HA31C, NNJ16HK08B, and 80JSC021DA005 (current), were awarded to Draper as sole source acquisitions. Draper is an independent non-profit research and development laboratory with expertise and experience with the GN&C, advanced algorithms and software solutions in the human spaceflight domain. NNJ11HA31C ended on March 31, 2016, at an estimated Cost Plus Fixed Fee (CPFF) Indefinite Delivery Indefinite Quantity (IDIQ) value of $45.8 million. NNJ16HK08B ended on March 31, 2021, at an estimated CPFF IDIQ value of $38.7 million. 80JSC021DA005 will end on May 31, 2026, at an estimated CPFF IDIQ value of $67 million.

10. FAR 6.104-1(a)(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 Part 5 (See Section 6 above). An intent to issue a sole-source work order was posted on February 25, 2026 and closed on March 12, 2026. The intent of the notice was to determine any interest and ability of industry to perform the effort.

No companies expressed interest or provided a response.

11. FAR 6.104-1(a)(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.