GNC IV - JOFOC.pdf

Rev.: 10/2025

NATIONAL AERONAUTICS AND SPACE ADMINISTRATION

JOHNSON SPACE CENTER (JSC)

JUSTIFICATION FOR OTHER THAN FULL AND OPEN COMPETITION

(JOFOC)

For Advanced Guidance, Navigation, & Control, Avionics Technology Development and Analysis Services IV

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 award a sole-source contract to Charles Stark Draper Laboratory (Draper) for the 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, developing simulation tools and flight software, performing flight mode specific GN&C analysis, participating in defining GN&C system architecture, and executing GN&C test and verification activities. This action is a follow-on to the current Advanced GN&C Technology Development and Analysis Services III contract (80JSC021DA005).

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 (ISS), Orion Multi-Purpose Crew Vehicle (Orion MPCV), and Gateway Programs. These services are critical to Artemis missions and

Rev.:10/2025

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

There are several NASA mission critical tasks for which AFMD requires technical leadership and expertise across the full range of GN&C competency areas. This need includes development, integration, and testing including definition of the GN&C system architecture, requirements definition, performance analysis, system integration, and test and verification.

In addition, onboard GN&C flight software support is required to use automatic code generation tools and simulations, integrate design capabilities, and perform flight mode analysis and testing for ascent, entry, on-orbit, and ascent abort. Tasks include supporting development of the 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. Additionally, the ISS Timeliner software, Kernel and Adapter, requires sustaining engineering for both the ISS onboard and ground Command and Data Handling elements.

AFMD requires specialized expertise and experience in the GN&C in other supplemental areas such as the Safe & Precise Landing – Integrated Capabilities Evolution (SPLICE) project and the Gateway program. SPLICE is key for successful future robotic and human landings on the moon to autonomously avoid hazards at the landing site. Draper already has expertise in developing a Terrain Relative Navigation (TRN) system, which is one of the major components of a hazard avoidance GN&C system required by SPLICE. Draper is available to provide other services including, but not limited to, the development of guidance algorithms and navigation filter flight software. This terrain navigation knowledge can be applied to provide insight support to the EVA and Human Surface Mobility Program, responsible for the systems required for crewed exploration of the moon, specifically surface navigation techniques. The Gateway program also requires discipline-specific expertise on how to perform GN&C in the new destination orbital arena of cis-lunar space. An effective suite of GN&C subsystem capabilities will enable Orion MPCV, Gateway, and other components of NASA’s Artemis campaign of human spaceflight missions to be successful.

The historical experience provided by Draper for NASA vehicles will help enable that effective suite of GN&C subsystem capabilities.

The follow-on contract will be issued as a single award indefinite delivery, indefinite quantity (IDIQ) contract, with a five-year ordering period (5-year base), beginning June 1, 2026, through May 31, 2031, at a not-to-exceed value of $95 million. Performance-based task orders will be issued on an as-needed basis, each with its own respective period of performance.

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), only one responsible source and no other supplies or services will satisfy Agency requirements, is described below.

Per FAR 6.103-1(c)(2)(ii), services may be deemed as available from only one source when awarding a competitive follow-on contract for the continued provision of highly specialized services would result in unacceptable delays in fulfilling the Agency’s requirements. If the Agency requirements were to be competed, there would not be enough time to switch functions over to a new company. Draper has institutional knowledge and tools that are embedded in the execution of AFMD tasks. The resultant delays would be unacceptable because the Agency has been tasked to fast-track Artemis III work to meet the direction of Boots on the Moon by end of 2028. In addition, there would be significant impacts to Artemis II flight support (if not flown by end of the current contract) and post-flight analysis, reconstruction, and best estimated trajectory. Given how embedded Draper is with the AFMD programs it supports, like the Orion program, with its GN&C expertise, personnel, and tools, it would take at least 2 or more years to help transition to a new company.

Currently, this timeframe is untenable if NASA intends to fulfill the vision outlined by the administration and Congress.

A sole-source follow-on contract is required to provide continued highly specialized advanced GN&C support services to AFMD for the ISS, Orion MPCV, Gateway, United States Deorbit Vehicle, and other programs. Award to any other source 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 fifteen Apollo missions provided proven algorithms as well as flight computing 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 are defined by use of the Linear

Covariance tool developed by Draper.

The above highlights the ability to reach back to Draper personnel and its extensive knowledge, whether directly supporting Orion or not.

Another prime example of this knowledge and experience is that Draper personnel are the primary GN&C algorithm Point of Contact for a large portion of the Orion GN&C Flight Software. As those GN&C capabilities are completed, Draper personnel often go on to support other Draper programs. However, AFMD always has reach back to bring those folks back for any defect resolutions or issues that might arise. It is valuable to AFMD and the Orion program that Draper is able to provide reach back support, with specialized expertise, as needed, to support mature algorithms without having to retain personnel fully.

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 vehicle for EFT-1 flown December 2014 and Artemis I flown November 2022. The contractor’s skills and experience, especially with the tools and algorithms it 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 unique and essential capabilities 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 SPLICE Project team performing a critical role in GN&C flight software development. Draper provides the SPLICE team with deep expertise in guidance and navigation. Draper is building the flight code applications for the guidance, navigation filter, and TRN. 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 TRN 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. Massachusetts Institute of Technology and Rice University 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 August 25, 2025, in accordance with FAR Subpart 5. This posting informed potential sources of NASA’s intent to award this contract action on a sole-source basis 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 (CO) signature on this document indicates that the CO has determined that the anticipated cost to the Government will be fair and reasonable. The contractor must be required to submit a proposal to be evaluated and negotiated by the Government. Prior to execution of the contractual instrument, a cost analysis will be performed. The analysis will ensure that the final agreed-to price for the contract action is fair and reasonable.

The contractor’s proposed rates will be evaluated in accordance with FAR 15.404-2 Cost Analysis. The Government will use applicable Defense Contract Management Agency Forward Pricing Rate Recommendations for the contractor, the current actual labor rates available to the Government, and the current Department of Labor Wage Determination to establish negotiated rates the contract. The reasonableness of any proposed indirect cost and other direct costs (material, travel, subcontract, etc.) will also be evaluated. The NASA Form 634 Structured Approach Profit/Fee Objective will also be used to determine an appropriate fee. The CO will review the results of the technical and cost analysis to identify any major issues or concerns and to establish the cost positions to negotiate a fair and reasonable price for this effort. Any issues or concerns with Draper’s proposal will be addressed during fact finding and resolved prior to negotiations.

The Contractor shall be 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 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 will be determined by the negotiated task orders under the contract. A Certificate of Current Cost or Pricing Data will be requested at the conclusion of the negotiations, and prior to award of the contract.

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):

The follow-on effort was determined beyond the scope of the other engineering contracts in the Agency’s portfolio. In addition, 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). A synopsis was posted on August 25, 2025, and closed on September 10, 2025. The intent of the notice was to determine any interest and ability of industry to perform the effort.

One response was received from industry on this acquisition. Odyssey Space Research (OSR) submitted a capabilities statement on September 8, 2025, and demonstrated a compelling rationale to warrant a detailed review to assess if it could be a capable offeror.

After careful review by AFMD of OSR’s submittal, it was determined that OSR did not have the current capabilities to successfully meet all requirements. A follow-up meeting with OSR was held on December 9, 2025, to provide context on that determination.

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, were awarded to Draper as sole source acquisitions. Draper is an independent, non-profit research and development laboratory with expertise and experience in 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) 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 Subpart 5 (See Section 6 above). A synopsis was posted on August 25, 2025, and closed on September 10, 2025. The intent of the notice was to determine any interest and ability of industry to perform the effort. Only one response was received from OSR on September 8, 2025. The capabilities statement was detailed enough to warrant a review to determine if OSR could be a potential offeror. After careful review by the technical customer, it was determined that OSR did not have the current capabilities for the requirement, and a meeting was held scheduled on December 9, 2025, to debrief OSR on that determination.

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.