JOFOC JWST - Phase E_Redacted.pdf

Rev.:01/2021

NATIONAL AERONAUTICS AND SPACE ADMINISTRATION

GODDARD SPACE FLIGHT CENTER

JUSTIFICATION FOR OTHER THAN FULL AND OPEN COMPETITION

(JOFOC)

For the James Webb Space Telescope (JWST) Phase E Operations and Sustainment Contract

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 the

National Aeronautics and Space Administration (NASA) Goddard Space Flight Center

(GSFC).

The procuring agency is NASA and the contracting activity is NASA GSFC, 8800 Greenbelt Road, Greenbelt, MD 20771.

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 contract to Northrop Grumman Systems Corporation (NG) for the James Webb Space Telescope (JWST) Phase E Operations and Sustainment.

The contract will provide products and services required to sustain the JWST Observatory on orbit and enable the continued execution of the JWST mission operations and science program.

JWST launched on December 25, 2021. The current JWST contract (NAS5-02200) provides a period of performance through December 24, 2022 (launch plus one year). The plus one-year activities include six months of on-orbit checkout and commissioning and six months of science operations.

JWST’s mission is for five years of operations. Since the current contract only covers six-months of operations, this new contract will cover the remaining 4.5 years of operations.

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):

NG will provide the products and services required to sustain the JWST Observatory to enable execution of the mission operations and science program. The scope of effort includes Flight Software (FSW) engineering support to the NG-developed Command & Telemetry Processor (CTP) and Deployment Electronics Unit FSW. This entails troubleshooting and FSW update/patch development, maintenance, and repair of the Software Development Lab, currently maintained and located at NG, as well as maintenance of the spacecraft support assets such as: Observatory Test Bed, Engineering Model Test Bed, and various Spacecraft simulators. In addition, the engineering effort includes analysis of Optical Telescope Element behavior, data trends, telemetry signatures, and critical spacecraft operations not yet identified. The engineering effort will also include fault isolation, anomaly resolution, diagnostics, recovery, and reporting. To assure full operations support throughout JWST’s 5-year mission, the planned period of performance for this contract will be 4.5 years (commencing after six months of operations under the existing contract NAS5-02200).

The total value of the full effort is estimated to be based on the Government in-house estimate.

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 only one responsible source as described below.

NG is uniquely qualified to continue the operations and sustainment of the JWST observatory due to NG’s exclusive knowledge of the specialized hardware and supporting systems.

NG is the prime contractor who designed and developed the JWST spacecraft and telescope as well as the prime contractor who led observatory integration and testing. Northrop Grumman Systems Corporation is headquartered in Falls Church, VA and employs 85,000 across the United States and more than 25 countries.

The NG-provided spacecraft bus supplies the support functions for the operation of the observatory. The bus houses the six major subsystems needed to operate the spacecraft:

Electrical Power Subsystem, Attitude Control Subsystem, Communication Subsystem, Command and Data Handling Subsystem, Propulsion Subsystem, and Thermal Control Subsystem. The following is a further description of these subsystems: (1) Electrical Power Subsystem converts sunlight into power to operate the other bus subsystems and science instrument payload; (2) Attitude Control Subsystem senses the orientation of the observatory, maintains the observatory in a stable orbit, and provides the coarse pointing of the observatory for science observations; (3) Communication Subsystem receives commands from the Mission Operations Center (MOC) and transmits the science and status data to the MOC; (4) Command and Data Handling Subsystem uses the CTP to take commands from the communication subsystem and direct them to the appropriate recipient, stores telemetry and data on the Solid State Recorder (SSR), and controls the interactions between the SSR, science instruments and communication subsystem; (5) Propulsion Subsystem includes the fuel tanks and rockets that, when directed by the Attitude Control System, are fired to maintain orbit; and (6) Thermal Control Subsystem maintains the operating temperature of the spacecraft bus. NG also provided the momentum flap which balances the solar pressure on the sunshield and five-layer sunshield which will prevent the background heat from the sun from interfering with the telescope’s infrared sensors. NG also designed the telescope’s optics which works with other elements to support the observatory’s ability to look back over

13.5 billion years to see the formation of the first stars and galaxies.

JWST is a large, complex, nationally and scientifically important observatory. Designing, developing, integrating, and testing these subsystems and components required expertise and experience that are unique to NG. The JWST spacecraft flight software employs 1,333 protocols that are customized for JWST operations. Moreover, NG developed a customized tool suite to update the flight software and has a well understood software patch process.

NG’s knowledge and experience extends beyond that gained with JWST. The JWST thermal control subsystem is built on NG heritage systems developed for the NASA’s Aqua and Aura missions and the JWST attitude control subsystem is built on the NG system developed for the Chandra Observatory. Building on heritage systems gives NG very extensive experience in these JWST subsystems. In addition to these unique features, NG developed mission operations documents that detail the procedural actions necessary to accomplish spacecraft functions. NG worked closely with the ground systems operations contractor to develop standard and contingency operations procedures based on these operations documents. Thus, they have extensive knowledge in ground systems operations and a solid working relationship with the operations contractor. Furthermore, NG designed and developed the high-fidelity simulator that is used during development to test and exercise the operations procedures. This simulator, the Observatory Testbed, will be used post-launch to certify changes in all observatory flight software, scripts, and operations procedures. As the spacecraft and simulator designer, NG has unique expertise to quickly handle any situations or anomalies that occur in operations.

Transitioning this in-depth and long-term knowledge and experience to another contractor will result in inadvertent knowledge gaps that can delay understanding of operational situations, delay solutions, and possibly jeopardize the overall health and safety of the JWST Observatory.

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 March 16, 2022, in accordance with FAR Subpart 5.2. This posting informed potential sources of NASA’s intent to award this sole-source contract to Northrop Grumman Systems Corporation. 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.

Specifically, the Contracting Officer’s Representative will evaluate NG’s proposed technical basis of estimate for work content, labor skill mix, and other direct costs. The Contracting Officer will determine that the direct labor hours, direct labor rates, indirect rates, other direct costs, and fee(s) are fair and reasonable. This evaluation will include support from external organizations such as the Defense Contract Management Agency rate recommendations as needed. Because this action continues the science operations currently under contract NAS5- 02200, the Government will rely on NAS5-02200 cost data as applicable.

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:

Senior Project engineers and scientists identified other potential sources for this procurement using their extensive knowledge of the unique capabilities vital to JWST’s maintenance and science operations. These engineers and scientists based their assessment on career knowledge of the relevant mission contractor marketplace gained from other procurements, industry conferences, and NASA-sponsored workshops, augmented by information contained on public websites maintained by the organizations researched. As a result, three other potential sources for this procurement were identified and researched: Lockheed Martin Space Systems, Boeing, and Ball Aerospace. Specific comments on the experience and suitability of each are provided in the paragraphs below. However, two general comments apply:

1) While each of these organizations is recognized for significant contributions to satellite development, none have detailed knowledge of the complex JWST spacecraft, its operational constraints, advanced optics, sunshield, and spacecraft technologies which were described in Section 5 of this JOFOC. Working knowledge of the unique and complex intricacies of each operating spacecraft component cannot reasonably be attained, much less implemented proficiently, without a significant phase-in period of at least a minimum of 18 months, and hence, a considerable period of cost duplication. Additionally, this knowledge handoff would increase risk to the JWST program in the event of on-orbit anomalies jeopardizing JWST health and safety. Specifically, gaps in knowledge and history could lead to decisions that damage the spacecraft with negative impacts to the instruments, science return, mission life, and extended mission life.

2) JWST will operate at the Lagrange 2 (L2) point which is a million miles from earth.

Operating a flag ship mission at the L2 point has significant differences, constraints, and operational considerations when compared to a ground-based observatory or low-earth orbiting satellite. Positioning and operating JWST at the L2 point allows JWST to take advantage of the thermal environment at the sun-Earth L2 point and provides a vantage point of our planet and space that cannot be achieved from ground-based or low-earth orbiting telescopes.

Lockheed Martin Space Systems is a global security and aerospace company headquartered in Bethesda, Maryland. Lockheed Martin employs approximately 110,000 people worldwide and is principally engaged in the research, design, development, manufacture, integration, and sustainment of advanced technology systems, products, and services. Under contract to NASA, Lockheed Martin Space Systems designed and built the Hubble Space Telescope (HST) spacecraft and provided spacecraft systems integration. Since the 1990 launch, Lockheed Martin has helped NASA manage the day-to-day spacecraft operations of the telescope, and provided extensive preparation and training for the telescope servicing missions. Lockheed Martin Space Systems also operates the ground-based United Kingdom Infrared Telescope atop Mauna Kea along with the University of Arizona and the University of Hawaii and is the prime contractor building the Orion Multi-Purpose Crew Vehicle. While Lockheed Martin has relevant sustaining engineering experience with the HST mission, Lockheed Martin also has no experience with a similar observatory at the L2 point.

Boeing is a large aerospace company and leading manufacturer of commercial jetliners and defense, space, and security systems. Boeing products and services include commercial and military aircraft, satellites, weapons, electronic and defense systems, and launch systems.

With corporate offices in Chicago, Illinois, Boeing employs approximately 161,000 people across the United States and in more than 65 countries. Of these, 33,757 work in Boeing’s Defense, Space & Security sector. Currently, Boeing has contracted with NASA to develop and produce ten (10) Space Launch System core stages and up to eight (8) Exploration Upper Stages to support the third through the twelfth Artemis missions. The first core stage has completed development and been transported to Stennis Space Center for hot-fire testing.

Boeing also has a NASA contract to continue providing engineering support services and capability enhancements for the International Space Station (ISS). While Boeing has provided extensive NASA support in developing launch vehicles and in supporting the ISS, Boeing has no mission operations experience outside its own satellite fleet and airplane operations. Boeing has no experience in sustaining a similar space observatory system and also has no experience with observatory missions at the L2 point.

Ball Aerospace is a subsidiary of Ball Corporation. Ball Aerospace specializes in space services including launch vehicle contracting and commissioning activities, mission control facilities support, remote ground stations, and data processing. Headquartered in Boulder, CO, Ball Aerospace currently has 18,300 employees across all discipline areas. Ball has a long history with the HST, building seven science instruments, two (2) star trackers, five leave-behind equipment subsystems and custom tools to support astronauts during servicing missions. Ball also built the NASA Wide-field Infrared Survey Explorer, three (3) instruments for the Spitzer Space Telescope and is currently providing advanced optical technology and lightweight mirror system for the JWST. While Ball Aerospace has provided extensive NASA support in developing instruments and other technologies and is available through several NASA contracts for supporting earth-orbiting satellites, Ball has no experience in sustaining a space observatory system similar to JWST and also has no experience with observatory mission operations at the L2 point.

In time, there might be other organizations who could learn the operational complexities and intricate design of the JWST Observatory, but none could be expected to accomplish this task without a significant and costly learning curve as described in Section 5. The JWST science mission is only five (5) years. Any delays transitioning Northrop Grumman’s in-depth and long-term knowledge and experience to another contractor will result in unacceptable loss to the science schedule, and possibly jeopardize the overall health and safety of the JWST Observatory.

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 (Sam.gov) per FAR Subpart 5.2 (See Section 6 above). The synopsis period was March 16, 2022 through April 7, 2022. No companies expressed interest during the synopsis period.

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 beyond the

4.5 years period of performance of this contract. However, JWST is expected to operate while its science productivity is sufficiently cost effective. Future contracts will depend on the continued viability of the observatory, but as a minimum, the final data calibration and closeout period may occur beyond the period of performance for this contract. A JOFOC based on similar rationale that Northrop Grumman is the only responsible source is anticipated if an additional acquisition becomes necessary.

JWST Phase E Operations and Sustainment Contract

JUSTIFICATION FOR OTHER THAN FULL AND OPEN COMPETITION

SIGNATURE PAGE

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

Michael Davis Technical Representative

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

Bruce Tsai Contracting Officer

CONCURRENCES:

Mary V. Stevens Procurement Officer (Acting)

Raymond Rubilotta Competition Advocate

NASA GSFC

APPROVAL:

Mary V. Stevens Head of Contracting Activity (Acting)