JOFOC_NNC16CA11C TIALS II_2026 FINAL REDACTED.pdf

NATIONAL AERONAUTICS AND SPACE ADMINISTRATION

Glenn Research Center (GRC)

JUSTIFICATION FOR OTHER THAN FULL AND OPEN COMPETITION

(JOFOC)

For NNC16CA11C – Technical Information, Administrative, and Logistics Services II (TIALS II)

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) Glenn Research Center (GRC).

The procuring agency is NASA, and the contracting activity is the GRC Office of Procurement.

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 extension modification to contract number NNC16CA11C with Alcyon Technical Services (ATS) JV, LLC for logistics and metrology services at GRC.

The current period of performance for contract NNC16CA11C, titled “Technical Information, Administrative, and Logistics Services II” (TIALS II), is April 1, 2015, through March 31, 2026. The original scope of the TIALS II contract included logistics services, administrative/clerical services, media services, library services and records management, stock purchases, and metrology/calibration services. Only the logistics and metrology/calibration services are still remaining on the TIALS II contract. The follow-on contract, Glenn Logistics and Metrology (GLAM), when awarded, will acquire all the requirements remaining on TIALS II. Any requirements that were transitioned to other agency-wide contract vehicles in the past three (3) years have already been descoped from the TIALS II contract.

The commencement of the GLAM contract has been delayed due to a protest filed in response to the contract award in February 2025. Therefore, an extension to the TIALS II contract is requested for up to twelve (12) months to allow enough time for completion of corrective action, contract award, and phase-in. The anticipated structure of this extension would be an initial three (3) month extension followed by nine (9) optional one-month extensions for a total of up to twelve (12) months.

The extension periods would be structured as follows:

Initial Three-Month Extension April 1, 2026 – June 30, 2026 First Optional One-Month Extension July 1, 2026 – July 31, 2026 Second Optional One-Month Extension August 1, 2026 – August 31, 2026 Third Optional One-Month Extension September 1, 2026 – September 30, 2026 Fourth Optional One-Month Extension October 1, 2026 – October 31, 2026 Fifth Optional One-Month Extension November 1, 2026 – November 30, 2026 Sixth Optional One-Month Extension December 1, 2026 – December 31, 2026 Seventh Optional One-Month Extension January 1, 2027 – January 31, 2027 Eighth Optional One-Month Extension February 1, 2027 – February 28, 2027 Ninth Optional One-Month Extension March 1, 2027 – March 31, 2027

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 TIALS II contract supports the Facilities, Test, and Center Operation Directorate at NASA GRC. The logistics services and metrology/calibration services are essential to GRC’s mission support functions. The current contractor, ATS, has the responsibility of ensuring the requirements under the TIALS II contract are fulfilled and comply with all GRC, NASA, state, and national laws/regulations. The TIALS II contract extension will include support for Center operations in the following areas:

• Logistics Services o Property Management o Supply Management o Freight Traffic o Transportation Operations o Move Operations o Mail Processing o Special Events o Airport Courier

• Metrology o Calibration Services

These services are unique and highly specialized in that they require comprehensive knowledge of a wide range of local, state, and federal environmental and safety regulatory requirements, an understanding of various NASA policies and procedures, and familiarity with NASA GRC facilities at both Lewis Field in Cleveland, Ohio and Armstrong Test Facility in Sandusky, Ohio. The extension is necessary as the follow-on contract, GLAM, is not anticipated to be awarded prior to the completion of the current contract’s period of performance end date, which is March 31, 2026. The extension is intended to allow for the current contract to be extended initially by three (3) months, followed by nine (9) optional one-month extensions for a total of up to twelve (12) months of additional time added to the period of performance. Any number of the additional nine (9) one-month options shall only be exercised if necessary and will be exercised to the minimal extent possible to allow only the necessary time to award the follow-on GLAM contract, complete phase-in, and begin full contract performance. The estimated total increase in contract value, inclusive of all options, is approximately $10,100,000. This estimate is based on the historical cost incurred on the current contract and accounts for increases due to inflation and other cost factors.

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(b), the supplies or services required by the agency are available from only one responsible source and no other type of supplies or services will satisfy agency requirements. The current contractor, ATS, will provide uninterrupted services without substantial duplication of cost and unacceptable delays that would otherwise be incurred if GRC were to award to another source in the interim period.

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 that the current contractor, ATS, is the only responsible source, as described below.

Only ATS has the unique regulatory proficiency, NASA knowledge, and NASA GRC facility experience necessary to provide the essential logistics services, stock purchases, and metrology/calibration services to NASA GRC for the period at issue. ATS’s unique experience, knowledge, and capability to deliver these services makes it the only responsible source to continue providing them until the TIALS II successor contract, GLAM, is awarded.

The time that would be required for another contractor to transition into this role is neither practical nor feasible, especially considering the length of time it would take for another contractor to learn and start managing the statement of work (SOW) requirements. Another contractor would require significant lead time to be able to successfully deliver the logistics, stock purchases, and metrology/calibration services, which would entail substantial contractor duplication of efforts. Thus, attempting to procure these services from any other source for that period likely would lead to unacceptable delays in critical facilities support services to GRC. Similarly, attempting to procure these services from any other source would lead to substantial duplications of costs that are not expected to be recovered through competition.

Any expedited phase-in of another contractor without the unique knowledge and capability required to perform these essential, highly specialized services would pose a high probability of substantial duplication of costs, and unacceptable delays to ongoing or new Center events, projects, and daily services at NASA GRC. Accordingly, ATS is the only responsible source to continue providing the TIALS II services until implementation of the successor GLAM contract.

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 13, 2025, in accordance with FAR part 5. This posting informed potential sources of NASA’s intent to award this sole-source extension to ATS. 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 Contractor was required to and has submitted a cost/price proposal to be evaluated and negotiated by the Government. Prior to execution of the contract modification, a complete proposal analysis will be performed. The proposal analysis will ensure that the final agreed to price for the contract action is fair and reasonable. A preliminary analysis has been performed by the Contracting Officer (CO) and Contracting Officer’s Representative (COR), utilizing historical contract cost data, a Government cost estimate, and an analysis of the basis of estimate for the extension proposal, including costing assumptions. Initial analysis shows the costs will remain in line with current contract estimates. Additionally, the number of direct labor hours have been reviewed and the COR has offered his concurrence with the proposed amount. Based on this preliminary analysis, it is anticipated that the price of this extension will be fair and reasonable.

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):

Market research was performed for the follow-on contract, GLAM, including a sources sought notice, request for information, industry day, one-on-one sessions, and a dynamic small business search. The market research for GLAM is detailed below.

• On November 10, 2022, a sources sought synopsis was posted on SAM.gov to gain insight on industry interest in the acquisition.

• On April 28, 2023, a Request for Information (RFI) was posted on SAM.gov to gain additional industry input on potential Organizational Conflicts of Interest (OCIs) as described in Federal Acquisition Regulation (FAR) Subpart 9.5, in relation to the GLAM acquisition.

• The GLAM Presolicitation Synopsis was posted on SAM.gov on May 26, 2023. The posting included both a synopsis of the GLAM acquisition as well as the invitation to an industry day.

• On June 13, 2023, an industry day for all interested parties to attend was held onsite at NASA GRC. The schedule for industry day included a presentation, a questions and answers period, and a tour. Following industry day, on June 14th and 15th, 2023, the GLAM Source Evaluation Board (SEB) held thirty (30) minute one-on-one sessions virtually via Microsoft Teams with organizations who had requested one.

• On June 16, 2023, the GLAM Presolicitation Synopsis was amended to release industry day information on SAM.gov. The amendment included questions and answers from industry day/one-on-one sessions, the industry day/one-on-one sessions list of attendees, and the industry day presentation.

• On June 23, 2023, a draft Request for Proposal (DRFP) was posted as the second amendment to the Presolicitation Synopsis on SAM.gov, which included the draft contract terms and conditions, draft attachments, draft performance work statement, and cover letter.

This information was revisited for reliability and applicability during this contract extension request, but the market research did not indicate that there are any responsible sources that could fulfill the Government’s requirements in their entirety within the current time constraints.

This is not the first extension past the original TIALS II period of performance end date.

Previous contract deviations for period of performance extensions have been requested and subsequently, intents to sole source were posted on SAM.gov. The previous intents to sole source were posted on March 15, 2023, February 21, 2024, and February 21, 2025, in addition to the most recent posting on February 13, 2026. For each posting, any respondents’ capabilities statements were evaluated for technical acceptability. There have been no instances where an entity could seamlessly perform all the requirements of the TIALS II contract. The ongoing GLAM acquisition promotes the most competition and provides the best value to the Government.

The Government is aware, based on the industry responses to the market research described above and from prior solicitations, that there are both large and small businesses which may be capable of performing the requirements of this contract outside of the time period identified above for this extension. The intent of this extension is to provide the Government the additional time needed to promote competition within the follow-on contract, GLAM.

For these reasons, the Government does not believe there are any responsible offerors other than Alcyon Technical Services JV, LLC which are able to fulfill NASA GRC’s needs for critical facility services without unacceptable delay; and without substantial duplication of cost to the Government, which are not expected to be recovered through a new competition outside of GLAM.

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

Due to the specialized knowledge required to provide these services, no other source can provide services that meet the SOW requirements needed by the current contract end date of March 31, 2026. Three responses to the posted synopsis were received, and the respondents did not substantiate their ability to provide the entire scope of services within the stated time constraint, or how they would prevent an interruption to services. As stated in Section 5 above, ATS has specialized knowledge of the required services, processes, and procedures in support of the TIALS II SOW. If there was a lapse in service, it would be significantly detrimental to NASA GRC operations.

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). The synopsis was posted on February 13, 2026, and closed on March 1, 2026. Three companies expressed interest in writing and are identified below.

An 8(a) and HUBZone Small Disadvantaged Business with experience in the logistics and technical services areas. The capability statement submitted discussed their phased transition-in plan, core competencies, and contract administration support. The interested business stated they have experience in all areas of the TIALS II SOW requirements except it did not go into detail on their calibration experience. Additionally, they provided three past performance references. Based on the capability statement provided, there is not enough evidence to merit re-competing the already on-going follow-on contract to TIALS II.

A Small Disadvantaged Business stated that their organization could not complete the TIALS II requirements as a whole but could provide a sub-set of the requirements as a subcontractor or if the contract was split into multiple smaller contracts. Those services they have experience in are freight traffic, transportation operations (cargo), supply management, mail processing, and airport courier functions. Due to the necessity of the entire TIALS II contract continuing seamlessly over the next months, this organization is not a viable option but could be considered as a subcontract by the prime contractor when the follow-on contract is awarded.

A second Small Disadvantaged Business also expressed interest in portions of the TIALS II contract. This interested organization has experience in transportation operations, freight traffic, move operations, and courier support. As stated above, due to the necessity of the entire TIALS II contract continuing seamlessly over the next months, they are not a viable option but could be considered as a subcontract by the prime contractor when the follow-on contract is awarded.

As this is currently a single contract and the follow-on is as well, it would not be in the best interest of the Government to award a singular contract for only a portion of the SOW requirements. All respondents that expressed interest would only be able to complete a portion, if any, of the requirements. To ensure there is no loss of service, an extension or new award needs to be in place no later than close of business March 31, 2026. Based on the respondents’ written responses, the Government has determined it is not feasible for the respondents to meet the Government’s need in the available time frame.

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 is currently conducting the GLAM follow-on acquisition which is anticipated to be awarded in the April 2026 to June 2026 time frame, including the forty-five (45) day phase-in period. This extension is necessary to ensure GRC continues to receive essential logistics and metrology/calibration services while the follow-on source evaluation board completes the acquisition process and make a best value selection to meet the Government’s needs. The Agency will continue to examine the market in the future for alternative solutions or new sources before executing any subsequent acquisition for the same requirements.