JOFOC FILMSS Ext2 final redacted.pdf

NATIONAL AERONAUTICS AND SPACE ADMINISTRATION

Ames Research Center (ARC)

JUSTIFICATION FOR OTHER THAN FULL AND OPEN COMPETITION

(JOFOC)

For Fully Integrated Lifecycle Mission Support Services, Contract No.

NNA14AB82C

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) Ames Research Center (ARC):

The procuring agency is the National Aeronautics and Space Administration (NASA) and the contracting activity is the Procurement Office located at ARC. This JOFOC is recorded in the ARC JOFOC Log as JA-FY21-J05.

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 an extension to contract number NNA14AB82C with KBR for Fully Integrated Lifecycle Mission Support Services (FILMSS). The contract extension will increase the current period of performance (POP) of the FILMSS Contract for up to nine months. The POP of the cost-plus-fixed-fee (CPFF) Core and ordering period of the CPFF indefinite-delivery, indefinite-quantity (IDIQ) will be extended from February 1, 2021 to October 31, 2021, if all options are exercised; this includes a five-month base period, and four (4) one-month option periods. The CPFF Core will increase by ~$10M; while the ordering period of the IDIQ will be extended, the maximum ordering value will not be increased. The purpose of the extension is to provide on-going program, science, engineering, operations and project management support for mission critical requirements at NASA ARC pending completion of a competitive follow-on procurement, FILMSS 2.

NASA ARC conducted a competitive procurement that resulted in the award of the FILMSS contract on July 28, 2014 with a POP of August 1, 2014 through July 31, 2019 (after exercising all of the options). In 2019 the FILMSS performance period was extended eighteen months through January 31, 2021.

Procurement efforts for the follow-on to the FILMSS contract began in June 2017. This JOFOC documents the basis and authorities to increase the contract value and enters into an extension period for a maximum of nine months. This extension will allow time to complete the competitive procurement for the FILMS II, which includes proposal evaluations, negotiations, contract award, debriefings, and preparation for phase-in/phase-out.

ARC has prepared a Request for Deviation that is being routed to NASA Headquarters requesting approval from the Associate Administrator for Procurement to extend the

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FILMSS contract beyond its current six and one-half year POP (inclusive of the original five years plus the current eighteen-month extension).

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 FILMSS contract provides critical program, science, engineering, operations and project management support for such efforts as biosciences flight development projects (e.g., mission implementation, instrument development, and technology advancement efforts), collaborative science programs (e.g., astrobiology and virtual institutes), aeronautics research projects, and mission support functions for ARC. For flight and mission projects the FILMSS contract provides science support for all phases of engineering and project management in a project life cycle as defined in NASA Procedural Requirement (NPR) 7120.5.

The FILMSS contract provides important program support to ARC in the following areas and it is contemplated that support in these areas will continue during this nine month extension:

• Program and Projects Support (e.g., Aeronautics Projects Office Support)

• Spaceflight Project Support

• Virtual Communications and Collaboration Support (e.g., collaborative team support, NASA Solar System Exploration and Research Virtual Institute (SSERVI), program support, annual reports, virtual workshops)

• Science/Research Support (e.g., Design of laboratory experiments, data analysis, GeneLab and archiving for Space Biosciences)

• Hardware and Technology Development Support (e.g., for Cell Science)

• Innovative Partnerships Support (e.g., help identify potential partners, SBIRs, space act agreements, intellectual property, and technology transfer)

• Strategic Planning and Analysis Support

• Proposal Development

• Solicitation Support

• Public Affairs, Outreach, and Education Support (the Office of Public Affairs)

• Workshops, Meetings and Conferences Support

• Data, Document Management, and Archival Support

• Laboratory and Office Safety and Facility Support

• Subject Matter Expertise

The current contract POP is from August 1, 2014 to January 31, 2021; the contract will be extended from February 1, 2021 to October 31, 2021, if all options are exercised. The nine-month extension includes a five-month base period, and four (4) one-month option periods.

As shown in the table below, the estimated value of this action covered by the JOFOC is $9,992,872 and covers the increased ceiling required for the Core (management and technical). This estimate is consistent with the IGCE for the extension period which was based on historical costs under the FILMSS Contract and an estimate of the labor and material necessary to perform all requirements projected to be completed under the nine-month extension. The current value of the Core is ~$88M. The value of IDIQ task orders

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ARC anticipates that the value of the Core will need to increase by ~$10M; ~$5.6M for the five-month extension and ~$1.1M for each of the four (4) one-month options; for continuation of the existing core requirements during the nine-month extension. The Core consists of the Core Management Contract Line Item Numbers (CLINs) and Core Technical CLINs. The Government will negotiate the increase with the contractor. The total estimated cost for the extension of the combined Core and IDIQ task orders is ~$27M (~$10M for Core and ~$17M for IDIQ). The Government’s total estimated contract costs from the award of the original contract through the proposed extended period, if all options were exercised, and all tasks were extended, is $277,074,882. The Independent Government Cost Estimate (IGCE) of both the Core and IDIQ for the extended period is based on historical costs and a review of labor, materials, and a technical review of the maximum value of continuing requirements for nine months of routine work.

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 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 the determination that the highly specialized services required by NASA are only available from one responsible source and no other services will satisfy the agency’s requirements as described below. In accordance with FAR 6.302-1(a)(2)(iii) (B), for DoD, NASA, and Coast Guard, services may be deemed to be available from the original source in the case of follow-on contracts for the continued provision of highly specialized services when it is likely that award to any other source would result in unacceptable delays in fulfilling the agency’s requirements. Based on the

Phase-In $454,909 $454,909 $0 $454,909 $454,909

Core $88,727,889 $88,727,889 $9,992,872 $98,720,761 $98,720,761

IDIQ $204,557,089 $160,731,952 $17,167,260 $177,899,212 $204,557,089

Total $293,284,979 $249,914,750 $27,160,132 $277,074,882 $303,732,759

Estimated Value of the Original

Five-Year Contract plus the Current Eighteen Month Extension

Estimated Value of the Original Five-Year Contract plus the Current Eighteen Month Extension

Estimated Value of Core and Task Orders through January 31, Total Estimated Contract Cost (Original + Extensions including all Options)

Estimated Value of 9 month Extension (Feb 1, 2021 – Oct

31, 2021)

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rationale set forth below, KBR, the incumbent contractor, is the only responsible source that can reasonably satisfy the scope of work required during the contract extension without incurring unacceptable delays in fulfilling the agency’s requirements, given the projected follow-on award schedule of FILMSS II in accordance with FAR 6.302-1(a)(2)(iii)(B).

Failure to extend the contract would result in disruption of critical requirements which will continue to be performed under the FILMSS 2 contract. A gap in performance of this requirement would cause significant delays in schedule, impact program budgets, increase risk to providing quality deliverables, and would have potentially long term, damaging consequences to our programmatic relationships within the Agency and customers.

Examples of the work for ARC mission critical and essential ISS and ground projects, missions, and critical R&D that would be impacted include sustaining engineering, operations and science development and implementation for biological science payloads (rodent research, cell science, microbial), world-class science experiments, management of facilities, data/sample archival and bioinformatics development. The work on the Rodent Research Sustaining Engineering (RRSE) project, an International Space Station (ISS) payload, provides continuous service of flight worthy experimental hardware for research on orbit. In order to meet the required launch schedule, the FILMSS support contract must continue on or risk missing mission critical milestones. Missing RRSE mission critical milestones would generate a major disturbance in the overall ISS launch schedule, with a ripple effect forcing the ISS Program and multiple science sponsors to re-plan and re-phase launch dates for the Rodent Research community and other subsequently impacted payloads, causing a large negative impact on the cost, quality and schedule of the ISS effort. The FILMSS contractor is also performing critical work to support major upcoming SSERVI events/tasks, preparing the SSERVI Regolith Testbed Facility for build of a second testbed and receipt of lunar simulant in preparation to support VIPER testing; supporting the virtual collaboration logistics for the monthly NASA HQ Lunar Surface Science Workshop Series;

and resigning a major Website frontend and building out of a new backend. The FILMSS contractor is also currently working on a critical, time-sensitive project to develop a Bluetooth based instrument platform based on NASA Ames’ E-Nose gas sensing array for use by NASA Ames to detect COVID-19 that includes a gas chromatography-mass spectrometry (GC-MS) analysis of the breath of COVID-19-infected and uninfected individuals and others.

The current FILMSS contractor, KBR, has the base of knowledge and experience with the critical and specialized support for the ARC projects that are necessary to successfully perform the on-going FILMSS requirements. A separate competition and award, potentially to a different Contractor, for a nine-month period, would neither be feasible nor reasonable, given the current and on-going competitive FILMSS 2 procurement. Developing a competitive procurement that would serve to span the gap between the expiration of the FILMS contract and the orderly transition of requirements to the FILMSS 2 contract is considered impractical based on the aforementioned facts, would further slow the FILMSS 2 procurement because personnel involved would need to re-focus their efforts from FILMSS 2 to an additional procurement.

A maximum nine-month extension to complete the FILMSS 2 competition, rather than a new procurement for the same period, is the only feasible approach and most prudent course of action for NASA to take, such that it may continue to obtain the NASA ARC mission essential services provided under the FILMSS contract. This makes the incumbent the only responsible source that can reasonably satisfy the subject requirements pending completion of the competitive FILMSS 2 procurement.

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 November 4, 2020, in accordance with FAR Subpart 5.2. This posting informed potential sources of NASA’s intent to award this sole-source extension to KBR. 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 cost analysis techniques will include comparing the proposed cost to historical actuals for similar work previously performed on the FILMSS contract, completing a detailed cost element analysis, and completing a price analysis by comparison of proposed price to the IGCE to ensure that the final agreed-to costs and fee for Core requirements and any task orders issued during the extension period are fair and reasonable. The objectives will be developed and documented in a Pre-Negotiation Position Memo (PPM) prior to the initiation of negotiations and will be approved in accordance with FAR 15.406 prior to conducting negotiations. A Price Negotiation Memorandum (PNM) will be completed to document the settlement agreement after the conclusion of negotiations.

8. FAR 6.303-2(b)(8) – Description of the market research conducted, and the results, or a statement of the reasons a market research was not conducted:

ARC conducted market research in support of the decision to award this contract extension to KBR. Based on the Contracting Officer’s Representative’s (COR) technical knowledge of the current FILMSS requirements, and for all of the other reasons stated herein, market research supports that KBR is the sole responsible source able to fulfill the short-term FILMSS requirements.

Market research was performed in November 2020 which included a synopsis posted on November 4, 2020 on the Contract Opportunities site located on www.beta.SAM.gov. The purpose of the synopsis was to (1) notify industry of NASA’s intent to extend the contract on a sole source basis and (2) solicit information about interested sources that are capable of providing the required highly specialized support services during the extended POP. Interested organizations were requested to submit their capabilities and qualifications in writing. The Contracting Officer received no capability statements in response to the synopsis.

Additional market research was completed which included reviews of the following Government databases: the Dynamic Small Business Search (DSBS) and the NASA Vendor Database (NVD). These market research tools revealed several firms that can provide various types of space flight and bioscience support. However, only KBR would be able to perform the work without adversely impacting important schedules of work currently being performed on the contract.

The COR and the Contracting Officer (CO) conducted research to determine whether there were sources capable of performing the above stated requirements for extended to NASA’s project and engineering support services. The research included a series of meetings with the COR and members of Code S management and other requirements owners. Based on those discussions, it was clear that while there are numerous firms in the industry, the scope of highly specialized work required can only be accomplished by the current contractor under the proposed extension without creating substantial duplication of work efforts performed and cost incurred to date. Failure to extend the contract within a short timeframe would cause significant disruption and impacts to NASA ARC missions and to the R&D facilities.

Market research indicates that in accordance with FAR 6.302-1(a)(2)(iii)(A) and (B), KBR is the only responsible source that can provide the required highly specialized services without substantial duplication of cost to the Government that will not be recovered through competition and unacceptable delays in meeting agency requirements. There has been no significant interest in this proposed contract extension.

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

None.

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 provided instructions for interested organizations to submit capabilities and qualifications to perform the required effort to the CO. The synopsis was posted on November 4, 2020 for a fifteen-day duration with a response date of November 19, 2020. The Government received no written capability statement submissions in response to the synopsis.

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:

ARC is currently in the process of evaluating offers received in response to the competitive follow-on procurement – FILMSS 2. A copy of the Request for Proposal (RFP) is currently available at the GPE Contract Opportunities website (https://beta.SAM.gov).

This sole source award of a potential nine-month extension to the FILMSS contract is necessary to provide additional time needed to complete the FILMSS 2 procurement and to provide continued support services during this time. Since the FILMSS 2 RFP is a competitive procurement, there are no actions the agency needs to take to remove or overcome any barriers to competition before any subsequent acquisition for these services.

Fully Integrated Lifecycle Mission Support Services

JUSTIFICATION FOR OTHER THAN FULL AND OPEN COMPETITION

SIGNATURE PAGE

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

Arlene Schwartz Technical Representative

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

Devin Mooers Contract Specialist

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

Jeannette Albiez Contracting Officer

CONCURRENCE:

Sarah Pollock Procurement Officer

APPROVED:

Carol W. Carroll Competition Advocate, (ARC)

Cc: (after approval) JAB/241/1

ARLENE SCHWARTZ Digitally signed by ARLENE SCHWARTZ Date: 2020.11.19 13:16:16 -08'00'

Devin Mooers Digitally signed by Devin Mooers Date: 2020.11.19 14:35:41 -08'00'

JEANNETTE ALBIEZ Digitally signed by JEANNETTE ALBIEZ Date: 2020.11.19 15:06:45 -08'00'

Sarah Pollock Digitally signed by Sarah Pollock Date: 2021.01.04 11:43:22 -08'00'

CAROL CARROLL

Digitally signed by CAROL

CARROLL

Date: 2021.01.12 15:52:49 -08'00'