JSHIFT Consolidation Memo_Final_Redacted.pdf

Rev.: 07/2022 2

NATIONAL AERONAUTICS AND SPACE ADMINISTRATION

Langley Research Center - LaRC

Determination and Findings (D&F) for Consolidation of Requirements Joint Safety Health Institutional Facilities Team (JSHIFT)

Findings

I. Requirement Specific Information

A. Proposed/New Requirement

1. Description of Services: Joint Safety Health Institutional Facilities Team (JSHIFT) JSHIFT is a requirement to support the National Aeronautics and Space Administration (NASA) Office of Safety and Mission Assurance (OSMA). The purpose of the single-award Firm-Fixed Price (FFP) Core effort with Indefinite Delivery, Indefinite Quantity (IDIQ) task orders contract is to provide all aspects of institutional safety and occupational health support services for NASA. Through the JSHIFT contract, OSMA aims to standardize the institutional safety and occupational health support services provided at NASA Goddard Space Flight Center (GSFC), Lyndon B. Johnson Space Center (JSC), and Langley Research Center (LaRC) by providing a centrally managed contract vehicle for use throughout these OSMA functional communities while supporting Agency strategic sourcing initiatives. Additionally, the Statement of Work (SOW) of the core effort will provide, manage, maintain, and evolve institutional safety and occupational health products and services to support current and future requirements across the enterprise. This award is the result of the approved Procurement Service Line (PSL) A-102.21 Safety and Mission Assurance.

2. Identify whether the requirement will be competed or sole source: Competitive 8(a)

3. Solicitation Number, Contract Name, or Contract Number if known: 80LARC25R7001

4. Contract Vehicle (e.g. contract, task order, IDIQ contract): Single award FFP contract with both Cost-Plus-Fixed-Fee (CPFF) and FFP IDIQ task orders.

5. Period of Performance (including all options): Five (5) years (2-year base period with three (3) one-year option periods), beginning September 15, 2025, and ending September 14, 2030.

6. Estimated Value of the New Requirement:

Rev.: 07/2022

B. Current/Former Requirement(s) i.e. the impacted contract(s)/those that will not be recompeted:

Institutional Safety and Occupational Health Contracts

Contract Awardee Business

Size Location

Overall Contract

Value

80GSFC19C0045 – Occupational Safety Support* 8(a) GSFC

80GSFC21CA0019 – Industrial Hygiene* 8(a) GSFC

80JSC020D0006 – Center Safety & Fire Operations II 8(a) JSC

80LARC20D0005 – Facility Assurance, Inspection, Monitoring and Occupational Safety II (FAIMOS II)

8(a) LaRC

Total *These contracts have been continued as Task Orders under FAIMOS II for 10 months while JSHIFT is competed as an 8(a)

Description of Services:

80GSFC19C0045 – Occupational Safety Support (OSS) – GSFC with Wallops Flight Facility (WFF): The Contractor provides Comprehensive Occupational Safety Program services, including all professional occupational safety and administrative personnel necessary to operate the programs, for the GSFC/Greenbelt Campus. Related services will also be provided for NASA employees located at the Goddard Institute for Space Studies (GISS) in New York City, the IV&V Facility in Fairmont, WV, and the White Sands Complex (WSC), New Mexico. This effort is now a task order under FAIMOS II.

80GSFC21CA0019 – Industrial Hygiene (IH) and Radiation Protection Support – GSFC: The contractor provides comprehensive IH and Radiation Protection Program services for GSFC as well as additional NASA facilities, federal government locations, and contractor locations on an as-needed basis. This effort is now a task order under FAIMOS II.

80JSC020D0006 – Center Safety & Fire Operations II (CSFO II) – Lyndon B. Johnson Space Center (JSC): The Contractor provides institutional and test safety to primarily support the NASA’s Johnson Space Center (JSC), other NASA centers, and Government agencies in accomplishing its institutional safety program objectives. At JSC, the Contractor primarily supports the JSC Safety and Test Operations Division (STOD). The mission of CSFO II is to assist NASA’s management and employees and Government agencies in reducing and preventing injuries, damage to the environment, facilities, systems, and equipment.

80LARC20D0005 – Facility Assurance, Inspection, Monitoring and Occupational Safety II (FAIMOS II) – Langley Research Center (LaRC): The Contractor supports two service organizations at Langley Research Center, the Safety and Mission Assurance Office (SMAO) and the Center Operations Directorate (COD) in the execution of the functional responsibilities described herein. Technical services in support of SMAO shall include Industrial Hygiene, Occupational Safety, Facility Safety Assurance, Materials Analysis and Mission Assurance. Technical services in support of COD shall include Construction Inspection, Construction Management and Facilities Monitoring. The services are delineated into two major categories: sustained core performance and work issued via task order. The Contractor provides the necessary on-site management, personnel, equipment, facilities, materials, supplies, and services, except as may be expressly set forth in the contract as Government Furnished Property, to effectively implement, control, track, perform and sustain all requirements of this contract.

C. Is this a contract/order as a result of a Product Service Line (PSL) in accordance with PIC 18- 01?

Yes. If so, provide the PSL: A-102.21 Safety and Mission Assurance No.

II. Justification

A. Market research has been conducted (FAR 7.107-2(a)(1)).

A request for information/sources sought synopsis was issued on SAM.gov on April 18, 2024, to obtain industry input on this requirement.

B. Quantify the specific benefits of the proposed consolidation/consolidated requirement by completing each of the following tasks (each task must be completed) (FAR 7.107-2(c)):

1. Compute the contract cost savings or reduction:

In April 2022, the Safety and Mission Assurance PSL approach was approved by NASA Headquarters and the Office of Safety and Mission Assurance (OSMA) and was determined to achieve savings. Using that analysis, the contract savings that is attributable to the JSHIFT procurement is estimated to be $4.6M or 6.7% due to an overall reduction in contract management and related functions such as subcontract management, financial, and possible other areas such as logistics, property, and IT functions to support the overall effort. This cost savings projected $8M in total savings of which only 60% ($4.6M) is attributable to JSHIFT since only three of the five contract reductions are included in the JSHIFT procurement. The remaining 40% will be attributable to other procurement strategies.

In addition, an analysis was done to compare the known requirements of the consolidated contract as developed in the Independent Government Cost Estimate (IGCE) with the historical spend under the four legacy contracts. That analysis made appropriate adjustments to make the comparison of the IGCE with the historical spend. For example, an adjustment was made to use constant-year dollars and to ensure the future ID/IQ estimate did not include margins for work not likely to materialize. This comparison did not identify a significant difference. In summary, the PSL analysis results in a savings as stated above.

2. Compute the administrative or personnel cost savings and provide the supporting documentation for this computation:

Based on the approved PSL Strategy and Procurement Assignments for Safety and Mission Assurance, dated April 2022, once adjusted for inflation indicates this strategy avoids $1.3 million in competitive acquisition costs and another $1.7 million in government effort administering additional contracts as was done under the legacy contracts. The first table below indicates pre-award savings of $1.3M and the second table represents post award savings of $1.7. In summary, the analysis depicted in the tables below supports this consolidation and will result in an administrative savings of $3M which represents 4.3%.

3. State the percentage of the cost savings or reduction: Based on the above, the cost savings from contract cost ($4.6M) plus the administrative/personnel cost savings ($3M) divided by the estimated value of the new requirement reflects a cost savings of $7.6M or 11%.

Check here if this requirement meets the substantial benefits definition/threshold as described at FAR 7.107-2(d).

C. Describe the additional benefits of the planned consolidation, FAR 7.107-2(c).

The consolidation has an additional benefit of standardizing institutional safety and occupational health services and support across multiple Centers. The information below discusses this in greater detail.

OSMA currently does not have institutional safety and occupational health requirements across all centers uniformly. With varying levels of need at each center, achieving economies of scale becomes challenging. By consolidating contracts, the agency can standardize institutional safety and occupational health services and support across multiple centers, while supporting center unique requirements. This standardization not only enhances efficiency but also enables centers with little or no institutional safety and occupational health capabilities to leverage agency investments made at centers with those capabilities that would lead to optimized resource allocation and reduced overhead costs. By extending existing capabilities to other centers, the agency will avoid redundant start-up costs (money/time) associated with a center pursuing new institutional safety and/or occupational health capabilities and allows new capabilities to be implemented at centers quickly and efficiently while maintaining strategic alignment. The institutional safety and occupational health contracts at GSFC, JSC and LaRC allows other NASA Centers to utilize those requirements on these contracts if the need arises. NASA Centers that utilized this contract mechanism have benefited from this structure through sharing of best practices, resources, and cost savings by moving to a consolidated structure.

To ensure the requirements are met and align with the agency’s decision to enable a multi-center contract, creating a contract with standardized language to obtain the capability reduces the burden for agency-wide policy and governance to enable multiple centers to build the capability consistently. Otherwise, the process of utilizing all technical managers and leadership to develop that policy and governance formally and ensure its implementation across contracts would require additional time from contracting officers. By incorporating standardized language and governance into the multi-center contract, strategic alignment is organically enabled, reducing potential fulltime equivalent (FTE) time in strategic alignment planning and implementation of policy/governance. Standard contract language also allows for establishment and enforcement of consistent quality and standards. With standardized processes, procedures, and deliverables outlined in the contract, the agency can ensure that institutional safety and occupational health services meet uniform quality benchmarks and adhere to established standards. This consistency improves overall performance, enhances reliability, and fosters trust among stakeholders.

A reduced number of contracts facilitates streamlined communication and collaboration among stakeholders involved in institutional safety and occupational health requirements.

With centralized contract management and clear lines of communication established under the multi-center contract, stakeholders can collaborate more effectively, share information efficiently, and coordinate activities seamlessly. This streamlined communication enhances decision making, reduces errors, and promotes synergy, ultimately improving overall performance and efficiency.

This streamlined procurement process reduces administrative burden, expedites the acquisition of institutional safety and occupational health services, and allows customers to focus on their core mission objectives rather than contract management tasks. By consolidating contracts, the agency gains better negotiation power with vendors. With a larger contract scope and volume, the agency can negotiate more favorable terms, pricing, and conditions, leading to cost savings and increased value for money. This enhanced negotiation power allows the agency to maximize the benefits derived from the multi-center contract and achieve greater efficiency in procurement activities.

The efficiencies gained by having fewer contracts will enable the agency to reinvest those savings and provide more economy of scale. This reinvestment can be directed towards enhancing institutional safety and occupational health capabilities further or supporting other mission-critical initiatives. By leveraging the cost savings achieved through consolidation, the agency can maximize the value derived from the multi-center contract and drive further efficiencies across its operations.

Pursuit of a centralized procurement for OSMA institutional safety and occupational health support services was a key component of the OSMA Mission Support Future Architecture (MAP) KDP-C Phase 1 recommendation approved by the Mission Support Council in April 2022. The approved MAP recommendation including creating a centrally managed enterprise capability within OSMA, consolidating enterprise architecture to standardize institutional safety and health requirements to all centers, establishing minimum service levels to ensure all centers meet standards, providing institutional safety and occupational health support at centers through a centralized procurement. The stated benefits for the recommendation included:

Increase quality and availability of institutional safety and occupational health products and services across the centers and OSMA functions.

Reduce labor costs and limit pursuit of redundant institutional safety and occupational health efforts across Centers through centralized procurement.

Reduce current software license, hardware, and overhead costs and mitigate future costs for centers individually pursuing enterprise capabilities.

Consolidation of JSHIFT not only supports the OSMA and Office of Procurement (OP) MAP goals of pursuing an enterprise operating model but also aligns with the broader NASA strategic goal to transform mission support capabilities for the next era of aerospace and space flight. As stated in the benefits above, JSHIFT will expand the reach of institutional safety and occupational health requirements across the Centers, providing decision makers at all levels access to authoritative and accurate requirements. Better requirements equal better decisions on how OSMA executes the limited funds it receives to sustain the agency’s safety infrastructure.

The aforementioned additional benefits will include but are not limited to quality improvements that will save time, improve, or enhance performance or efficiency, reduction in acquisition cycle times and better terms and conditions.

To accomplish the aforementioned goals and achieve additional benefits, OP is working to reduce the number of contracts across the agency that are providing the same services, resulting in potential consolidation requirements as it synchronizes institutional safety and occupational health requirements. An enterprise acquisition strategy is required to support the transition of current contract requirements to a centralized acquisition vehicle that aligns with new business models, PSLs.

D. Identify alternative contracting approaches that have been considered that would involve a lesser degree of consolidation (FAR 7.107-2(a)(2)).

While other alternative contracting approaches were considered, they would have resulted in less consolidation and, therefore, the savings would be less. Therefore, the contract management reductions nor the civil servant administrative savings would be fully realized.

For example, if each Center solicited its own requirements individually, it would have resulted in four new institutional safety and occupational health support contracts. This alternative contracting approach would require additional resources to award and administer the contracts. The additional benefits of quality improvements that will save time, enhance performance or efficiency, reduce acquisition cycle times, and provide better terms and conditions as described above in Sections II.B. and C. will be negated or significantly diminished if the alternative contracting approach was considered. More importantly, continuing to use multiple contracts does not allow for the level of standardization and efficiencies that a single consolidated contract provides. In addition, the standardized requirements that will be formed under the consolidated contract will create reliable buying practices for institutional safety and occupational health support services, which would be appropriate for a single contractor.

LaRC concluded this consolidation optimally furthered the Agency’s Procurement Transformation Initiatives which include (1) establishing clearly defined enterprise requirements/deliverables; (2) streamlining acquisition practices and business processes; and

(3) reducing redundant contracts and other instruments across the Agency to meet evolving mission needs. Therefore, LaRC determined the recommended strategy optimally addressed the Agency Procurement Initiatives and other criteria including (1) meeting the breadth and depth of institutional safety and occupational health performance requirements, (2) small business impacts, (3) reducing overlap in requirements, (4) more effective vendor management, and (5) reducing the number of SEBs.

E. Describe the impacts of the acquisition strategy on contracting with small business concerns:

1. There is no impact to small business. As a result of the consolidation, the annual amount that was previously obligated to small businesses that will no longer be obligated as a result of the planned consolidation is $0; the planned consolidation will be awarded to an 8(a) business. The prior contracts were all awarded to 8(a) businesses.

2. There will be a change in the number of small businesses that have prime-level contracts with NASA from four (4) prime contractors to one (1) as a result of the planned consolidation.

F. Select all of the steps taken to include small business concerns in the acquisition strategy for the planned consolidation. In addition to numbers 1 and 2 below, include any other steps taken. Check all that apply below. None of the below apply, as this acquisition will be 100% set aside for 8(a) businesses.

Incorporated recommended small business subcontracting goals in the draft and final request for proposal (RFP), in accordance with NPD 5000.2 Small Business Subcontracting Goals and NFS 1815.304(c)(4)(B).

Evaluation of offerors’ small business subcontracting commitment as a part of the evaluation criteria, NFS 1815.304(c)(4)(C).

III. Determination

In accordance with the findings provided above, I determine that it is in the best interest of the Agency to consolidate the aforementioned requirements. This written determination demonstrates that this consolidation is necessary and justified in accordance with 15 U.S.C. 657q.

DETERMINATION AND FINDINGS FOR AUTHORITY TO CONSOLIDATE

REQUIREMENTS SIGNATURE PAGE

Contracting Officer LaRC Small Business Specialist

Legal: I have reviewed the above determination and findings and have no legal objection with respect to it. Comments, if any, are included in the file.

Office of the General Counsel

Procurement Officer

Program Manager Office of Small Business Programs

Associate Administrator Office of Small Business Programs

Associate General Counsel for Procurement Law HQ Office of the General Counsel

APPROVAL:

Senior Procurement Executive