Justification for Other than Full and Open Competition (JOFOC) - SEER (Final)_Redacted.pdf

Rev.:4/2026

NATIONAL AERONAUTICS AND SPACE ADMINISTRATION

NASA IT Procurement Office (ITPO)

JUSTIFICATION FOR OTHER THAN FULL AND OPEN COMPETITION

(JOFOC)

For SEER Annual Site License Renewal

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) IT Procurement Office (ITPO).

The procuring agency is NASA, and the contracting activity is ITPO.

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 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), Kennedy Space Center (KSC), Langley Research Center (LaRC), NASA Headquarters (HQ), and Marshall Space Flight Center

(MSFC).

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):

NASA requires the renewal of the Galorath SEER Annual Site Licenses. Galorath offers a suite of cost estimating software used by the agency to estimate project costs. NASA uses three principal 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 (IGCE) of . The period of performance is 08/28/2026 - 08/27/2027.

Rev.: 4/2026

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.

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 Galorath is the sole source provider for this requirement as described below.

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 are 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 itself 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.

NASA has relied on the Galorath SEER suite for more than two decades as a foundational component of its cost estimating capability. The Agency first implemented the SEER-H model at Marshall Space Flight Center in the early 1990s, and its use expanded across the NASA cost estimating community. Since 2002, multiple NASA Centers and Headquarters organizations have operated under corporate or Agency-wide site license agreements. The Office of the Chief Financial Officer (OCFO), Strategic Insight and Budget (SIB), provides these cost analysis tools to support Agency-wide cost estimating activities. The SEER suite has become an established and standardized analytical tool used throughout NASA to produce consistent, repeatable, and defensible cost, schedule, and staffing estimates for software and hardware development efforts. Continued use of the existing SEER licenses ensures compatibility with NASA's established estimating methodologies, historical cost models, and ongoing analytical processes.

Selecting an alternate product would adversely affect NASA's mission by eliminating one of the Agency's primary independent cost estimating tools and disrupting long-established analytical processes. Alternative software would not provide compatibility with NASA's existing SEER-based estimating models, historical data, methodologies, or analytical baselines and would require substantial redevelopment of cost models, revalidation of estimating methodologies, retraining of personnel, and modification of established business processes. These efforts would result in significant additional costs, increased schedule delays, and reduced productivity while introducing unnecessary technical and programmatic risks. Furthermore, replacing SEER would diminish NASA's ability to perform comparative cost analyses across its established suite of estimating models, thereby reducing confidence in cost and schedule estimates used to support Agency decision-making. Failure to renew the existing Galorath SEER Annual Site Licenses would significantly degrade NASA's cost estimating capability, negatively impact programmatic analysis, and impair the Agency's ability to develop accurate, consistent, and defensible cost, schedule, staffing, and risk estimates that are essential to effective mission planning and execution.

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 Subpart 5.1 and, if not, which exception under 5.101 applies:

A notice to the Government Point of Entry (GPE) website (Sam.gov) was published on 07/29/2026, in accordance with FAR Subpart 5.1. 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 6.104-1(a)(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 and the commercial list price. The contract file will include a statement of price reasonableness based on the comparisons.

8. FAR 6.104-1(a)(8) – Description of the market research conducted, and the results, or a statement of the reasons market research was not conducted (e.g., urgent, and compelling requirement):

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

None.

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 Subpart 5.2 (See Section 6 above). The Notice of Intent was posted on 07/29/2026, and closed on 08/05/2026. NASA received a response from one (1) interested vendor, R3 UNIQ INC (DBA Name Quadyster), who submitted a capability statement and other documentation. All were unrelated to the SEER Annual Site License Renewal requirement. Based on its review, NASA determined that Quadyster did not demonstrate the capabilities or qualifications necessary to fulfill the requirement.

Accordingly, the requirement remains available only from the sole-source provider, Galorath Incorporated.

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 will continue to examine the market in the future for alternative solutions or new sources before executing any subsequent acquisitions for the same requirements.