Justification for Other than Full and Open Competition _TIALS II_Final Redacted.pdf

NATIONAL AERONAUTICS AND SPACE ADMINISTRATION

Glenn Research Center (GRC)

JUSTIFICATION FOR OTHER THAN FULL AND OPEN COMPETITION

(JOFOC)

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

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) Glenn Research Center (GRC).

The procuring agency is the National Aeronautics and Space Administration (NASA), and the contracting activity is GRC.

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 NNC16CA11C with Alcyon Technical Services (ATS), JV, LLC for logistics and metrology services at NASA 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, 2024. The original TIALS II contract included logistics services, administrative/clerical services, media services, library services and records management, stock purchases, rand metrology/calibration services. Only the logistics, stock purchases, and metrology/calibration services are remaining on the TIALS II contract until the follow-on contract, Glenn Logistics and Metrology (GLAM), acquisition is awarded. All other requirements that were on TIALS II have been transitioned to other agency-wide contract vehicles throughout the past six (6) months.

The GLAM acquisition has been delayed and an extension of the TIALS II contract has been requested for up to twelve (12) months to allow enough time for contract award. The anticipated structure of this extension would be an initial six (6) month extension followed by six (6) optional one-month extensions for a total of up to twelve (12) months. The extension periods would be structured as follows:

Initial Six-Month Extension April 1, 2024 – September 30, 2024 First Optional One-Month Extension October 1, 2024 – October 31, 2024 Second Optional One-Month Extension November 1, 2024 – November 30, 2024 Third Optional One-Month Extension December 1, 2024 – December 31, 2024 Fourth Optional One-Month Extension January 1, 2025 – January 31, 2025 Fifth Optional One-Month Extension February 1, 2025 – February 28, 2025 Sixth Optional One-Month Extension March 1, 2025 – March 31, 2025

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 TIALS II contract supports the Facilities, Test, and Center Operation Directorate at NASA GRC. The logistics services, stock purchases, 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

Stock Purchases Metrology o Calibration Services o Measuring and Test Equipment (MTE) Instrument Pool Management

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, 2024. The extension is intended to allow for the current contract to be extended initially by six-months, followed by six (6) 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 six (6) 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. The estimated total increase in contract value, inclusive of all options, is $12,467,046.35. 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 6.303-2(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.

3204(c)(1), as implemented by FAR 6.302-1(a)(2)(iii), the supplies and services required are unique and are available from only one responsible source, Alcyon Technical Services JV, LLC, and no other supplies or services will satisfy agency requirements. The current contractor will provide uninterrupted services without substantial duplication of cost and that would otherwise be incurred if GRC were to award to another source in the interim period.

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. 3204(a)(1) is 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 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 6.303-2(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 February 21, 2024, in accordance with FAR Subpart 5.2. This posting informed potential sources of NASA’s intent to award this sole-source extension to Alcyon Technical Services JV, LLC. 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 was required and did 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.

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 proposal costs to be lower than the Government Cost Estimate, indicating costs remain in line with current contract estimates.

Overhead, G&A, fee remain consistent with the current contract rates and ODCs are also in line with historical contract data. 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 6.303-2(b)(8) – Description of the market research conducted, and the results, or a statement of the reasons market research was not conducted:

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. 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. The Government is aware, based on the industry responses to the market research described above and to 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 with the follow-on to TIALS II and to award a contract that provides the best value to the Government. 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 competition.

9. FAR 6.303-2(b)(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 the Statement of Work (SOW) needed by the current contract end date of March 31, 2024. Only two 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 6.303-2(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 on February 21, 2024, and closed on March 7, 2024.

Two interested parties responded and are identified below.

V&M Global Solutions, LLC, a small business, and the first respondent, provided an email disclosing their interest in the metrology, calibration services, and MTE portions of the SOW. The email included a list of various areas of expertise for V&M Global Solutions, LLC and they later provided a qualification statement describing their years of experience and past/current customers. V&M Global Solutions, LLC did not express interest or provide capability information regarding the logistics services or stock purchases portions of the requirements.

Zion Imperial Transport Inc., a small business enterprise, and the second respondent, provided an email disclosing their interest in the transportation services portion of the TIALS II SOW, specifically truck hauling services. The respondent also provided a capability statement describing what they do as well as core competencies/differentiators and past customers. Zion Imperial Transport Inc. did not express interest or provide capability information for any other portions of the of requirements such as metrology/calibration services, stock purchases, or the other logistics services.

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. Both respondents expressed interest in only some of the requirements.

In order 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, 2024. 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 6.303-2(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 is currently conducting the GLAM follow-on acquisition which is anticipated to be awarded in August 2024 with full contract performance in September/October 2024. This extension is necessary to ensure GRC continues to receive essential logistics, stock purchases, 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.

Technical Information, Administrative, and Logistics Services II (TIALS II)

JUSTIFICATION FOR OTHER THAN FULL AND OPEN COMPETITION

SIGNATURE PAGE

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

Boyd M. Vance Technical Representative

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

Rita K. Dickens Contracting Officer

CONCURRENCE:

Kurt A. Straub Procurement Officer

APPROVED:

Competition Advocate

BOYD

VANCE

Digitally signed by BOYD

VANCE

Date: 2024 03.13 08:22:41 -04'00'

Rita Dickens Digitally signed by Rita Dickens Date: 2024.03.13 09 54:12 -04'00'

Kurt Straub Digitally signed by Kurt Straub Date: 2024.03.13 14:45 05 -04'00'

LEAHMARIE

KOURY

Digitally signed by

LEAHMARIE KOURY

Date: 2024.03.13 14:09:15 -04'00'