80NSSC24Q0001 Seer Justification for Other than Full and Open Competition (JOFOC)_Redacted.pdf

JOFOC-2024-001

Rev.:4/2023

NATIONAL AERONAUTICS AND SPACE ADMINISTRATION

NASA SHARED SERVICES CENTER (NSSC)

JUSTIFICATION FOR OTHER THAN FULL AND OPEN COMPETITION

(JOFOC)

For 80NSSC24Q0001 Seer SW Renewal

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) Shared Services Center (NSSC).

The procuring agency is NASA and the contracting activity is the NSSC Enterprise Software

Purchasing (ESP).

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 firm-fixed price purchase order to Galorath Incorporated for the agency’s Seer software renewal for existing software licenses at multiple NASA centers. This requirement is to renew annual site licenses for six (6) SEER for Software –

Estimator Edition, one (1) SEER for Software – Project Manager Edition, two (2) Electro

Optical Sensors Option for SEER-H, and nine (9) SEER for Hardware – Estimator Edition.

This requirement is an agency standard and utilized at Ames Research Center (ARC), Glenn

Research Center (GRC), Goddard Space Flight Center (GSFC), Headquarters (HQ), Johnson

Space Center (JSC), Jet Propulsion Laboratory (JPL), Langley Research Center (LaRC), and

Marshall Space Flight Center (MSFC).

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 requires Galorath SEER software. Galorath offers a suite of cost estimating software used by the agency to estimate project costs. NASA uses three principle cost estimating models, along with any number of specific tailor-made models, to perform comparative analysis of its project estimates. Because each model approaches the estimating process differently, comparing estimates gives the Agency, through detailed analysis, greater confidence in its estimates and the ability to defend them.

The continued product offering and software maintenance support has an independent government estimate (IGE) of . The period of coverage will consist of a base year and one (1) one-year option year commencing on August 28, 2023.

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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 for acquisitions using the procedures in FAR subpart 13.5 is 41 U.S.C. 1901.

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:

NASA utilizes the SEER by Galorath series estimation and analysis tools to conduct programmatic analysis to inform planning, procurement, and project management functions. These tools enable

NASA to define, analyze, and manage software, hardware, and DFM Engineering, Inc. projects from early concepts through upgrade and maintenance phases. SEER by Galorath tools derive cost, schedule and staffing estimates by assessing the interaction and impact of product, organizational and operational variables. The SEER packages utilize a proprietary parametric methodology, coupled with the industry's most comprehensive knowledge bases to create a rapid and powerful view of the critical factors driving program decision and determining success. SEER software provides accuracy and flexibility in incorporating multiple variables, which is not available in any other commercially available software tools.

NASA uses SEER-SEM as a decision-support tool for estimating software development and maintenance cost, labor, staffing, schedule, reliability, and risk as a function of size, technology, and any project management constraints. SEER-SEM has demonstrated to be effective for all types of software projects, from commercial IT business applications to real-time embedded aerospace systems. No other software package delivers the same capability and accuracy for estimating software projects, particularly those of specific interest for NASA. Other commercially available software packages without Galorath’s proprietary knowledge base may have the capability to develop cost estimates using NASA technical inputs; however, those estimates have significantly degraded accuracy and cannot provide cost estimates beneficial to NASA.

The SEER suite has been used by NASA for over 20 years. The Office of the Chief Financial

Officer (OCFO) Strategic Investments Division (SID), through Agency Programmatic Analysis and Research Capability (APARC) provides cost analysis support tools to the Agency. NASA first began using the SEER-H cost estimating model in the early 1990’s at NASA’s Marshall Space

Flight Center (MSFC). Over the next 15 years, the model gained popularity across the NASA cost estimating community. In order to transition to another tool suite, the estimated costs for retraining analysts at all the centers are estimated to be . The basis of this estimate assumes

. A tool that provides lower accuracy of estimates and inefficiencies due to its lack of institutional knowledge base will ultimately incur additional costs to the final project. In addition, the replacement cost is estimated to be over

This does not include the already invested time, effort, and resources used to select an enterprise solution that meets NASA’s requirements.

SEER software provides the flexibility to consider multiple variables and scenarios in regards to cost, schedule, and staffing estimates to assist NASA in programmatic decisions. Galorath

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Incorporated is the only supplier of SEER series and SEER specific training. An extensive internet search was performed in an effort to identify other sources. Failure to procure this software developed by Galorath will result in significant degradation of NASA’s cost estimating capability, negatively impacting NASA’s programmatic analysis capability and ability to accurately estimate cost and schedule performance.

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

September 18, 2023, in accordance with FAR Subpart 5.2. This posting informed potential sources of NASA’s intent to award this sole-source contract to Galorath Incorporated. 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 Government anticipates a fair and reasonable-priced offer from Galorath Inc since this software is offered commercially, NASA has pricing history on the items being renewed, and pricing for this software has historically remained flat. The contracting officer will compare the price offer to prices found reasonable on previous purchases, the commercial list price, the GSA

FSS price and the IGE. The contract file will include a statement of price reasonableness based on the comparisons.

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 determined that the requirement is a commercial item. A distribution network for the software does not exist, and the software is available only through a direct sell from the publisher, Galorath Incorporated. Galorath confirmed via email and attached a sole-source letter to indicate Galorath is the sole provider of SEER Software and SEER Hardware licenses and license maintenance.

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

Other facts are not applicable to this justification.

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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). One firm expressed interest but did not demonstrate the technical capabilities to meet this requirement.

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.

Rev.:4/2023

JUSTIFICATION FOR OTHER THAN FULL AND OPEN COMPETITION

For 80NSSC24Q0001 Seer SW Renewal

SIGNATURE PAGE

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

Technical Representative

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

Contract Specialist

Approved by:

Lead Contracting Officer