KOTNOUR LSJ GSA FSS_final redacted 2021 (002).pdf

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NATIONAL AERONAUTICS AND SPACE ADMINISTRATION

John F. Kennedy Space Center

LIMITED-SOURCES JUSTIFICATION

For Strategic Management Support Services (SMSS)

This is a Limited-Sources Justification (LSJ) prepared by the National Aeronautics and Space Administration (NASA), John F. Kennedy Space Center (KSC), Procurement Office.

This acquisition will be conducted under the Multiple Award Schedule (MAS) Program (Title 41 United States Code §152(3)). This action is for a new Blanket Purchase Agreement (BPA). The Launch Services Program (LSP), Exploration Ground Systems (EGS) Program and Advanced Planning Office (APO) in the KSC Integration Office, are responsible for performing, managing, and integrating strategic planning activities for their respective organizations, and the KSC Executive Management Team. In order to meet its objectives, these organizations require a contractor to provide strategic management support services to assist personnel in the development and implementation of strategic planning, strategic management process, and associated strategic management tools.

NASA KSC intends to establish a follow-on, single-award Federal Supply Schedule (FSS) BPA for the required strategic management support services with The Performance Knowledge Group, LLC (TPKG), General Services Administration (GSA) schedule contract GS-10F-0202S, SIN 874 1 (R/C) – Integrated Consulting Services. This acquisition will result in a BPA with firm fixed rates with a base period of performance of July 1, 2021, through June 30, 2022, three -year options, and one -month option to align with TPKG’s GSA contract end date. The total potential performance period is July 1, 2021, through March 29, 2026.

The acquisition is for contractor support to provide strategic management expertise and assistance to LSP, EGS Program, APO, and support to the KSC directorates, and the KSC leadership team in accomplishing strategic management and implementation tasks. Specifically, the scope of work includes the following:

a. Identifying and making recommendations on strategic issues to be addressed by the Executive Management Team;

b. Coaching on the strategic management and organizational transformations, planning and implementation;

c. Identifying strategic issues to be addressed by the requiring office;

d. Assisting in framing strategy development and benchmarking objectives;

e. Assisting in developing tools and training on scenario planning process and facilitation;

f. Facilitating the requiring office, directorate and Center teams;

g. Providing project specific and ad hoc support to directorate and executive support to the Director.

The total estimated value of this acquisition is over the potential -year and -month period of performance. This estimate is based on historical ordering by NASA KSC for the same services, using the discounted rates provided by TPKG on April 19, 2021.

Authority Cited and Rationale:

F A R 8.405-6(a)(1)(A). An urgent and compelling need exists and following normal procedures would result in unacceptable delays.

FAR 8.405-6(a)(1)(i)(B). Only one source is capable of providing the supplies or services required at the level of quality required because the supplies or services are unique or highly specialized.

FAR 8.405-6(a)(1)(C). In the interest of economy and efficiency, the new work is a logical follow-on to an original GSA FSS order provided that the original order was placed in accordance with the applicable GSA FSS ordering procedures. The original order or BPA must not have been previously issued under sole-source or limited-sources procedures.

FAR 8.405-6(b), Items Peculiar to One Manufacturer. An item peculiar to one manufacturer can be a particular brand name, product, or a feature of a product, peculiar to one manufacturer. A brand name item, whether available on one or more schedule contracts, is an item peculiar to one manufacturer.

Rationale:

FAR 8.405-6 requires an ordering activity to justify its actions when restricting consideration of schedule contractors to fewer than required in FAR 8.405-1, 8.405-2, or 8.405-3. The specific circumstance that justifies restriction for this acquisition is FAR 8.405-6 (a)(l)(i)(B), "Only one source is capable of providing the supplies or services required at the level of quality required because the supplies or services are unique or highly specialized."

TPKG has a unique set of capabilities and is the only company capable of successfully completing this effort because of the specialized knowledge, expertise, and experience of the company's Principal Partner. The Partner has been engaged with NASA KSC since 1996, and since 2003, has provided strategic management services to KSC on over 30 separate acquisitions from various directorates within KSC, making the Partner uniquely familiar with KSC's strategic management needs.

The Partner has provided strategic management support services to numerous NASA programs, including LSP, EGS, International Space Station and

Exploration Research and Technology Programs. The Partner's specialized knowledge and unique prior experience at KSC include: (1) facilitating senior management reviews; (2) providing training for senior management and various directorate personnel; (3) facilitating the development of KSC's strategic and implementation plans; (4) facilitating the development of KSC's measures; (5) facilitating KSC senior management teams in developing scenarios; and (6) coaching KSC's executive teams on strategic management, strategy, and change management.

Moreover, this noncompetitive acquisition is also based on the need for a seamless continuation of the ongoing stakeholder initiatives, as TPKG has been integral in assisting APO and stakeholders in developing KSC's strategic future. Without delay, TPKG can provide the most effective strategic guidance for KSC's future support because TPKG is the strategic support company that possesses an intimate institutional knowledge of KSC's culture, environment, history, and evolution. The continued strategic support services that TPKG provides are vital to retain as KSC transitions from previous programs and projects to the planning and further development of a multiuser Spaceport. It would require significant efforts for another contractor to research APO requirements, interview stakeholder's senior managers and APO personnel, research and understand stakeholder's plans and processes, research KSC's strategic history, and gain a thorough understanding of stakeholder expectations, operations, and process needs. No other strategic management consultant can seamlessly provide continuity of services across directorates and projects because TPKG's Principal Partner is the only consultant that has served in this capacity since 1996.

Determination by the ontracting fficer that the order represents the best value consistent with FAR 8.404(d):

As part of the best value determination, the Contracting Officer (CO) will perform a price reasonableness determination before establishing the FSS BPA. The CO requested price reductions from the published prices listed in TPKG's FSS contract per FAR 8.405-4. On April 19, 2021, the CO received TPKG’s proposed labor rates of for the Partner rate reduction from the current GSA rate of and for the Consulting rate reduction from the current GSA rate of . The Partner labor category has been the labor category historically used. The proposed Partner rate is lower than the current NASA BPA Partner rate of per hour. The CO will review the catalogs and price lists of at least three other FSS contractors that have contracts under the Professional Services Schedule (00CORP) category 874 1 - Integrated Consulting Services, to verify the rates quoted by TPKG are in line with industry rates for similar consulting services.

In addition to price, when determining the best value, the CO will consider TPKG's past performance and review the performance evaluations reported in Contractor Performance Assessment Report System. The CO will also review the BPA at least once a year, in accordance with FAR 8.405-3(e), to ensure that the BPA continues to represent the best value to the Government.

Market Research:

The CO met with the APO to get more information on TPKG's unique capabilities.

The APO is intimately familiar with the market for these services and is not aware of any other company that has the knowledge or expertise to provide KSC with the required strategic management services. TPKG is the only source that has the level of knowledge and experience with strategic management at KSC because of its Principal Partner, Dr. Tim Kotnour. Dr. Kotnour has been a consultant for NASA KSC for over 24 years and has helped senior leaders in the organization plan and ma e crucial decisions to enhance NASA KSC's core capabilities as it continues to transition to a functional, multiuser spaceport.

The CO reviewed TPKG’s GSA contract, GS-10F-0202S, which was found on GSA eLibrary. The TPKG contract lists numerous labor categories that can fulfill the required strategic management support services and be incorporated into NASA KSC's FSS BPA. The terms and conditions in TPKG's GSA contract do not conflict with NASA's requirements, and therefore can be incorporated into a BPA. Single-award BPAs are limited to one year, but may have up to four, -year options. Additionally, a BPA can only extend beyond the current term of its GSA schedule contract if there are option periods in the GSA schedule contract that will cover the BPA's period of performance.

Market research was conducted among GSA schedule holders to identify other interested sources capable of performing this requirement. A Request for Information (RFI) with the draft Performance Work Statement (PWS) was posted to GSA's eBuy on September 3, 2020. The RFI stated that NASA planned on issuing a sole source BPA to TPKG and requested that other interested schedule holders submit their capability statement to the CO no later than September 11, 2020. Two responses were received. The COR reviewed the capabilities statements provided by the two interested parties; neither had the specific skill set or space industry knowledge that is required for this scope of work (one discussed secretarial services and the other pulled their NASA knowledge off of the NASA Web site).

In late November 2020, the PWS requirements were revised and another RFI was posted to GSA’s eBuy. Fifteen interested parties responded to the RFI. Upon completion of the evaluation of these responses, it was determined that four respondents, including TPKG, could potentially meet these revised requirements.

In late February 2021, the PWS requirements were revisited again and it was determined that the original PWS requirement document more accurately reflected the needs of KSC, including the need for someone with extensive knowledge of NASA KSC’s mission, culture, environment, programs history and multiuser spaceport activities, as well as the space industry. The November 2020 RFI responses were reevaluated against the original requirements and it was determined that TPKG was the only company with the requisite KSC/space knowledge to meet the requirements of KSC’s organizations and Agency stakeholders, and the level of experience to support senior management and leadership teams in developing strategic initiatives and implementation plans that address significant issues and benefit KSC and the mission directorates.

Other Facts:

Within 14 days of establishing the BPA, the LSJ will be posted for a minimum of 30 days, as required by FAR 8.405-6(a)(2).

A statement of the actions, if any, the Agency may take to remove or overcome any barriers that led to the restricted consideration before any subsequent acquisition for the supplies or services is made:

There are no known actions that could be taken to overcome barriers to future restricted acquisitions, as there are no sources identified (other than TPKG’s principal partner) that have the unique qualifications coupled with the institutional knowledge and experience at NASA KSC necessary to effectively and successfully provide the required services.

However, if a subsequent requirement arises, efforts will be made to survey the market for potential new sources.