MOMA PH6 JOFOC _ Redacted.pdf

Rev.:4/2023

NATIONAL AERONAUTICS AND SPACE ADMINISTRATION

Goddard Space Flight Center (GSFC)

JUSTIFICATION FOR OTHER THAN FULL AND OPEN COMPETITION (JOFOC)

For ExoMars Mars Organic Molecule Analyzer Mass Spectrometer (MOMA-MS) Power

High Voltage (PH6) Module Solicitation # 80GSFC24R0018

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) Goddard Space Flight Center (GSFC).

The procuring agency is the National Aeronautics and Space Administration (NASA) and the contracting activity is NASA’s Goddard Space Flight Center (GSFC), Greenbelt, MD.

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 a sole-source cost reimbursement contract to procure the sixth iteration of the power-high voltage module (PH6) of the Mass Spectrometer (MS) portion of the Mars Organic Molecule Analyzer (MOMA) instrument from the Space Physics Research Laboratory (SPRL) at the University of Michigan (UM). This acquisition aims to optimize the current design and manufacturing of power-high voltage modules specific to the MOMA mass spectrometer instrument.

SPRL previously supplied the fifth iteration of the MOMA power-high voltage module (PH5) under contract NNG12CR34C. Under the new follow-on contract, NASA’s GSFC proposes to award a Cost-No-Fee (CNF) Contract to SPRL to procure the sixth iteration of the PH6 MS portion of the MOMA instrument. The proposed period of performance (POP) for this follow-on CNF contract is sixteen (16) months from date of award.

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 Mars Organic Molecule Analyzer (MOMA) is a joint NASA and European Space Agency (ESA) instrument comprised of two, complementary mode mass spectrometers: a gas chromatograph mass spectrometer (GC-MS) and laser desorption mass spectrometer (LD-MS).

The GC-MS and LD-MS are located in the Analytical Science Drawer carried by a Mars Rover known as ExoMars.

GSFC was directed by NASA HQ to develop the MS portion of the MOMA instrument. Under this directive, GSFC is responsible for providing the MOMA-MS instrument which includes the Radio Frequency (RF) Electronics, the Main Electronics Box (MEB) and Secondary Electronics Box (SEB).

This effort consists of the engineering, development and practical application of engineering development activities for the production of electronics that control and power the MOMA mass spectrometer (MOMA-MS) instrument. In addition, the effort includes providing support for the associated Electrical Ground Support Equipment (EGSE) as needed to emulate the function of the hardware being delivered. This EGSE is crucial for parallel development and integration activities ongoing by the Agency and International Partners.

Activities include modifications of existing flight hardware, fabrication, manufacturing and integration of the power-high module essential to the operation of the MOMA-MS instrument.

Specifically, the role of the contractor under the follow-on contract is to build the sixth iteration of the MOMA power-high voltage module (PH6) essential to the operation of the MOMA-MS instrument. This iteration of the PH6 module will replace a previous iteration of the module and will be integrated with the Power Supply (PS) module, the Filament Bias-High Voltage (FB-HVPS) module, the Control (CTL) module and the Radio Frequency (RF) electronics that were previously developed, manufactured, and delivered by the vendor to NASA Goddard.

Each of these modules have a unique and highly integrated role in meeting the requirements of operation for the MOMA-MS and the associated International Partners’ hardware.

The PS module provides power to two of the International Partners’ hardware contributions to the MOMA system: the Gas Chromatograph and Laser Head as well as to the Agency’s ion trap and detector in the mass spectrometer. Following further, detailed analysis of the mission-level thermal and power requirements with the International Partners, an updated PH voltage module is required to include the addition of an integrated heater and provide a more robust and reliable design of the high voltage output.

The deliverables and products require specific expertise in the fabrication, manufacturing, integration, and testing of analog and digital electronics unique to mass spectrometry for the MOMA-MS instrument. The deliverables also require a limited amount of engineering expertise available at SPRL for hardware design, testing, documentation, and sustainment engineering. In order to provide a high voltage power supply for mass spectrometers, NASA requires specialized experts in high voltage development to test hardware and interpret results.

Because the MOMA instrument is going to Mars, the pool of experts is very limited. SPRL has experts building this type of power high voltage systems for both NASA Goddard and JPL.

The European Space Agency (ESA) requires a need date of June 2025 in order to have enough time to integrate the PH6 module into the MOMA instrument that will launch on the Rosalind Franklin Mission (RFM) rover. In order to allow 4 to 5 months testing time to assess performance prior to delivery of the PH6 module to ESA, Goddard is requiring SPRL to meet a delivery date of January 2025. Additionally, NASA will be requesting vendor support to assist with any troubleshooting efforts and closing out documentation until a month past integration with the rover.

The estimated value of the procurement is . The proposed period of performance is from April 1, 2024, through July 31, 2025.

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. 2304(c)(1), as implemented by FAR 6.302-1, “Only one responsible source and no other supplies or services will satisfy agency requirements”.

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. 2304(c)(1), “Only one responsible source and no other supplies or services will satisfy agency requirements” is described below.

In accordance with FAR 6.302-1(a)(2)(iii), for DoD, NASA, and the Coast Guard, services may be deemed to be available only from the original source in the case of follow-on contracts for the continued provision of highly specialized services when it is likely that award to any other source would result in unacceptable delays in fulfilling the agency’s requirements.

Unique qualifications: SPRL is a laboratory in an educational institution. Their team is specially qualified to safely execute this work through their experience from previous NASA spaceflight science missions, including Cassini-Huygens, Sample Analysis at Mars (SAM), Lunar Atmosphere and Dust Environment Explorer (LADEE) and Mars Atmosphere and Volatile Evolution Mission (MAVEN). In addition, SPRL has previously developed, manufactured, and delivered previous iterations of this hardware to the MOMA-MS project at NASA Goddard.

Their experience in this specialized area has been developed through internal research and development as well as competitively awarded contracts. They have unique knowledge and extensive experience with the fabrication, manufacturing and testing of mass spectrometer electronics required to support the delivery of spaceflight-qualified electronics. Due to significant time and resources invested by SPRL in the past for research and development of the previous PH modules (1-5), the historical knowledge and expertise needed to accomplish this procurement within the required schedule, cannot be replicated by another company without incurring significant duplicated costs and unacceptable delays in fulfilling the Agency's obligations to its International Partners by ensuring completion of the integrated MOMA-MS instrument.

This iteration of the PH6 module will replace the previous iteration of the module and will be integrated with the Power Supply (PS) module, the Filament Bias-High Voltage (FB-HVPS) module, the Control (CTL) module and the Radio Frequency (RF) electronics that were all previously developed, manufactured, and delivered by the same vendor to NASA Goddard.

Each of these modules have a unique and highly integrated role in meeting the requirements of operation for the MOMA-MS and the associated International Partners’ hardware. No other source can perform all of the highly specialized services meeting the safety, performance, and schedule requirements. SPRL’s highly trained technicians and engineers are required to fabricate the power high module. Historically, based on data from PH3 through PH5, SPRL averaged 289 days for the build of a power high module. For any source other than SPRL, the development and fabrication schedule would not be met, and unacceptable delays would result.

For an award period commencing April 1, 2024, it would not be realistic for any other source to train the required personnel and fabricate and deliver the instrument in time for the 2025 delivery date to the ESA to meet their scheduled launch. In addition, the Government estimates a minimum of in duplicated costs to acquire the sustained engineering to build the PH6 from another source.

Minimization of Integration Risks: The power-high voltage module required for the MOMA- MS is highly integrated and requires specialized expertise to minimize additional risk and maintain successful integration with the Filament Bias-High Voltage (FB-HVPS) module and the Control (CTL) module of the MOMA instrument. Having another vendor attempt to make this module (ignoring schedule constraints) could lead to incompatibility with the FB and the CTL units and possibly risk damage to existing hardware. Because previous iterations of this module were developed and manufactured by SPRL, transitioning to a different supplier(s) for this module would result in the unnecessary additional technical risk and cost risk associated with compatibility issues during integration.

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 December 12, 2023, in accordance with FAR Subpart 5.2. This posting informed potential sources of NASA’s intent to award this sole-source contract to the Space Physics Research Laboratory (SPRL) at the University of Michigan (UM) and provided potential sources with the opportunity to be considered based on their qualifications and capability statements. 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 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 cost for the contract action is fair and reasonable. The Contracting Officer will utilize all sources such as the Defense Contract Audit Agency (DCAA) and Government technical and financial representatives in determining a fair and reasonable cost. In addition, historical data established under the existing NASA missions and in-house estimate will be used for cost comparisons, as applicable. Additionally, the Contracting Officer and the Contracting Officer’s Representative

(COR) will monitor SPRL’s performance. SPRL will be required to submit technical progress reports and financial management reports to be reviewed and analyzed by the Government.

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:

The Government has conducted market research and determined SPRL is the only responsible contractor for this effort. Power-high voltage modules of the Mass Spectrometer (MS) portion of the MOMA instrument are unique for which specialized expertise is required to produce, integrate, and troubleshoot anomalies within these subsystems. Although there are other companies that produce high voltage power systems, SPRL is the only vendor that currently has the unique capability to develop, manufacture, and test the sixth iteration of the power-high voltage modules (PH6) of the MOMA-MS instrument as they were responsible for designing, developing, and providing the previous iterations of the PH voltage modules for the MOMA instrument. No other institution currently has the historical knowledge of the power-high voltage modules and box-level integration support needed to integrate the module into the Flight Model (FM) Secondary Electronics Box (SEB) of the MOMA-MS instrument. This market research is a result of years working with instrument developers. The project’s past and current experience with this instrument developer have been invaluable in determining the path forward to ensure instrument health and safety. The Government assessed performance of the mission and the effectiveness of other hardware providers in terms of risk, meeting requirements and minimizing costs. It was determined that there are no sources other than SPRL that have the heritage, expertise, and facilities required to operate and provide the sixth iteration of the MOMA power-high voltage module (PH6) essential to the operation of the MOMA-MS instrument.

9. FAR 6.303-2(b)(9) – Any other facts supporting the use of other than full and open competition:

None

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 (See Section 6 above) on December 12, 2023. The synopsis notified all interested sources that this requirement will be issued on a sole-source basis and provided them an opportunity to submit their interest and capabilities to the Contracting Officer within 15 days of the synopsis publication. The synopsis closed December 28, 2023

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:

It is not expected that GSFC can overcome the barriers to competing the ExoMars Mission - MOMA-MS, PS Module, FB-HVPS Module, CTL Module and RF Electronics procurement.

A non-competitive acquisition is currently the only available means of providing ExoMars Mission that meets MOMA-MS instruments technical and schedule requirements. However, given the schedule-driven nature of the MOMA-MS project as well as its critical role to NASA and essential nature of the above-described electronics components to the International Partners from the ESA, the Agency may consider removing barriers to competition before subsequent acquisitions for similar instrumentation are required. There are no follow-on procurements for power high voltage modules anticipated for this mission.