NAMS REDACTED JOFOC.pdf

NATIONAL AERONAUTICS AND SPACE ADMINISTRATION

Ames Research Center (ARC)

JUSTIFICATION FOR OTHER THAN FULL AND OPEN COMPETITION

(JOFOC)

For NASA Academic Mission Services, Contract No. NNA16BD14C

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) Ames Research Center (ARC):

The procuring agency is the National Aeronautics and Space Administration (NASA) and the contracting activity is the Procurement Office located at ARC. This JOFOC is recorded in the ARC JOFOC Log as JA-FY24-J08.

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 NNA16D14C with Universities Space Research Association (USRA) for up to six (6) additional months pending completion of a competitive procurement for the follow-on NAMS-2 contract. The potential six months would consist of a two-month base with four one-month options. This extension will extend the current period of performance from June 1, 2024, to no later than November 30, 2024, if all options are exercised.

ARC awarded the original NAMS contract on April 7, 2016, with a performance period of June 1, 2016, through May 31, 2021 (after exercising all of the options). The current contract is a Cost-Plus-Fixed-Fee (CPFF) type contract with Core Requirement Contract Line Item Numbers (CLINs) and Indefinite Delivery/Indefinite Quantity (IDIQ) CLINs under which CPFF task orders are awarded. The performance period was extended twelve months, June 1, 2021, through May 31, 2022, after receiving NASA Headquarters approval of a first deviation request and approval of the first JOFOC by the Head of the Contracting Activity. ARC extended the performance period of the contract for an additional 18 months, June 1, 2022, through November 30, 2023, after receiving NASA Headquarters approval of the second deviation request and approval of the second JOFOC by the Competition Advocate. The contract was extended six months, December 1, 2023, through May 31, 2024, pursuant to FAR 52.217-8 Option to Extend Services after receiving approval of the third JOFOC by the Competition Advocate.

The purpose of this fourth extension is to provide on-going academic program, engineering, operations and project management support for mission critical requirements at NASA ARC pending completion of a competitive follow-on procurement, NAMS-2. The critical programs that this contract extension will permit uninterrupted support of include Aerospace and Air Traffic Management Exploration (ATM-X) (ARMD), and AMP/Airspace Operations

(ARMD), Air Mobility Pathfinders (ARMD), Upper E Traffic Management (ARMD), Advanced Technology Systems, Nanoelectronics and Devices, and Quantum Computing.

Further delays have occurred in the NAMS-2 procurement process, due to, among other things, the highly technical nature of the NAMS-2 procurement. This delay resulted in the procurement being delayed; therefore, a potential six-month extension is necessary. This extension will allow the Source Evaluation Board to finalize its proposal evaluation, present initial findings to the Source Selection Authority (SSA), establish a competitive range (if necessary), conduct discussions (if necessary), prepare Final Proposal Revisions (if necessary), present final findings to the SSA (if necessary), issue contract award, conduct debriefings, conduct the 60-day phase-in of the new contract.

ARC has prepared a Request for Deviation that is being routed to NASA Headquarters requesting approval from the Associate Administrator for Procurement to extend the NAMS contract beyond its current period of performance.

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 purpose of this JOFOC is to extend the current NAMS contract for up to six months, pending completion of a competitive follow-on NAMS contract. The NAMS contract provides fundamental scientific research, concept development, prototype testing and operations, and the creation of new technologies. The research supports both ARC’s mission and NASA’s overall mission and goals in Aeronautics, Science, Space Technology and Human Exploration and Operations. ARC directorates manage various R&D science missions for NASA and collaborate with other NASA centers, academia, other Federal organizations, not for profit organizations and industry partners. Many of ARC’s programs and projects span multiple technological and scientific disciplines. The success of NASA and ARC missions demands leading edge technical and research expertise from both student and faculty researchers. The Contract provides academic or university-based program and project support for science and engineering teams at the Center to form and nurture innovative partnerships to further NASA and ARC missions.

The NAMS contract provides important program support to ARC in the following areas, and it is contemplated that support in these areas will continue during this extension:

Core Requirements:

• Air Traffic management automation research conducted for the following projects:

Air Mobility Pathfinders (AMP) formerly Advanced Air Mobility (AAM); Air Traffic Management Exploration (ATM-X), which includes NAS Exploratory Concepts and Technologies (NExCT) formerly Extensible Traffic Management (xTM); Unmanned Traffic Management Beyond Visual Line of Sight (UTM BVLOS) formerly Extensible Traffic Management (xTM); Pathfinding for Airspace with Autonomous Vehicles (PAAV); and Digital Information Platform (DIP).

• Air Mobility Pathfinders (AMP)/Airspace Operations (formerly ATM-X/Urban Air Mobility

• Advanced Capabilities for Emergency Response Operations (ACERO) concepts and second shift capabilities.

• Programs and Projects – Program/Project Analysis, and R&D trade studies.

IDIQ Requirements executed under Task Orders:

• Advanced Technological Systems – Human Systems Integration, Intelligent Systems, Quantum Computing, Data Mining and Machine Learning, and Nanoelectronics and Devices;

• Air Mobility Pathfinders (AMP) formerly Advanced Air Mobility (AAM), Airspace Technology, ARMD System-Wide Safety (SWS), Digital Twin, Secure Airspace Architecture, and Data Reasoning and Fabric projects;

• Safety and Mission Assurance;

• North Texas Research Station;

• Information Technology – Advanced Networking, Cloud Computing, Information and Data Systems, Cyber Security, Software Engineering and Synthesis;

• Simulation Modeling & Flight Controls Development, Human Systems Software

Development; and

• Collaborations and Student Internships

The current contract is a hybrid contract consisting of both CPFF Core (Consists of the Core Management Core Technical CLINs) and IDIQ CLINs under which CPFF task orders are executed. The contract has a total potential value of $287.9 million. To date, the value of the Core, including Core Management and Core Technical is FOIA Ex. 5 and IDIQ task orders awarded to date total FOIA Ex. 5. The estimated value of the requirements for the proposed potential six (6) month extension is approximately FOIA Ex. 5 for the Core and FOIA Ex. 5 for IDIQ based on the Independent Government Cost Estimate (IGCE). This JOFOC requests approval to increase the total potential value of the NAMS contract FOIA Ex. 5, utilizing FOIA Ex. 5 of the existing IDIQ contract value. The IGCE was based on a review of the current requirements, historical direct labor costs, subcontracts, other direct costs, and projected future requirements needed to continue performance of the NAMS contract during the potential six (6) month contract extension. The Core and each IDIQ task order awarded during the proposed contract extension will be negotiated to ensure the cost is fair and reasonable. The Government’s total estimated contract costs from the award of the original contract through the proposed extended period and all tasks are extended, is FOIA Ex. 5.

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) is the determination that the highly specialized services required by NASA for the follow-on contract extension are only available from one responsible source and no other services will satisfy the agency’s requirements as described below. In accordance with FAR 6.302-1(a)(2)(iii)(B), for DoD, NASA, and Coast Guard, services may be deemed to be available 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. Based on the rationale set forth below, USRA, the incumbent contractor, is the only responsible source that can reasonably satisfy the scope of work required during the proposed six (6) month contract extension without incurring unacceptable delays in fulfilling the agency’s requirements, while the competitive follow-on NAMS-2 procurement is completed, in accordance with FAR 6.302-1(a)(2)(iii)(B).

Failure to extend the contract would result in unacceptable delays in critical projects currently underway on the NAMS contract. The continued provision of the highly specialized services by USRA is the only way to prevent disruption or a gap in performance of these ongoing requirements, which would cause significant delays in schedule, impact program budgets, increase risk to providing quality deliverables, and would have potentially damaging long-term consequences to the missions of the Agency and customers that are supported by the NAMS contract.

The primary mission critical and essential ARC projects that would be negatively impacted if USRA did not continue to provide highly specialized support under an extension of the NAMS contract include operation, implementation, and research and development efforts for ATM-X and (AMP), ACERO, ARMD System-Wide Safety (SWS), Advanced Technology Systems, Nanoelectronics and Devices, and Quantum Computing.

The Aeronautics Research Mission Directorate (ARMD) has indicated that the AMP/Airspace Operations research at NASA is among its highest priorities. That work at NASA provides the essential backbone to addressing research and implementation issues for advanced air mobility. The research being conducted is critical to the understanding of future airspace operations in the U.S., is associated with highly time-critical development, and involves agreements and collaborations with external industry partners. The NASA AMP/Airspace Operations team and industry partners are considering issues associated with airspace design, infrastructure, procedures, human factors, and early implementation of advanced air mobility operations. For example, there are concerns about how critical data can be shared and verified within the airspace and within local communities who may allow advanced air mobility vehicles to operate at scale.

USRA is also providing the AMP/Airspace Operations, PAAV, and DIP subprojects with crucial software development, research and data analysis, project management and engineering functions for several flight tests, including simulations leading up to flight tests, and are scheduled in FY24. There is a dependency by the ATM-X and AMP projects and industry partners for data and results from these simulations and flight tests. For those two projects, several critical tests and experiments are scheduled over the next year that depend on timely deliverables. In FY24, Upper Class-E airspace conflict analysis delivers to the Federal Aviation Administration (FAA) a concept and analysis of safe separation between multiple aircraft. NASA is expected to deliver this research as part of a signed Research Transition Team agreement between NASA and FAA. This is a commitment to the FAA and is a highly visible activity that is tracked by NASA’s Airspace Operations and Safety Program (AOSP) and FAA Nextgen Office. Any delay in this work will have to be reported to those entities and will have to renegotiate those deliverables.

ATM-X has two Annual Performance Indicators (API) to satisfy in FY24 which are highly visible accomplishments. APIs are reported out annually by NASA and are typically a combination of multiple milestones to satisfy the API. The milestones for the APIs are completed by ATM-X. Successful completion of these APIs is a major goal of ATM-X.

The PAAV subproject is an essential ARMD effort that addresses the requirements and research necessary for the development of autonomous vehicle concepts and technologies.

One of the challenges of this work is designing airspace capabilities that enable manned and autonomous vehicles to operate jointly in the national airspace. This work requires research, software development, and data analyses to ensure safe operations in this emerging environment, and many of these tasks are supported by USRA. A flight demonstration in FY24 to demonstrate key capabilities to address contingency management utilizing a planned research airspace ecosystem between Monterey and Moffett Field. This research airspace aims to be a persistent capability to test autonomous aircraft integration into the airspace for use by government entities and industry. Significant research in the Unmanned Aircraft Systems (UAS) reduced technical barriers associated with integrating UAS into the airspace system. Leveraging that research, PAAV addressed significant additional barriers that remain toward enabling the routine access of UAS into the airspace system.

The FY24 flight will be risk-reduction flight to evaluate the ground-based assets and interaction with aircraft systems to address contingencies such as lost communication from the autonomous aircraft for future tests in that airspace ecoSystem. Any lapse in work will result in re-negotiation of this highly visible activity.

AMP/Airspace Operations plans to conduct flights with Joby Aviation towards setting requirements for a collaborative airspace management system based on the UTM framework.

This is another highly visible activity which is tracked closely by AOSP. Airspace services and the management system will be developed NASA and tested in flight with Joby.

Concepts and development of the services are supported by the Contractor. There is no NASA alternative to developing the management system which will developed by the Aviation Systems Division’s software team and are supported by USRA.

Digital Information Platform (DIP) is another ATM-X subproject that is central to the ARMD research portfolio. The overall goal of the DIP subproject is to accelerate transformation of the National Airspace System (NAS) and airspace operations through the development of a foundation for advanced, data-driven, digital services for both traditional and emergent operations towards cohesive decision making. DIP is establishing an accessible cloud-based Digital Information Platform utilized by a community of data and service providers. USRA is conducting software development and analytical services to enable the continuing development of this platform. In particular, there is a DIP API that is at risk if the contract is not extended.

The USRA software development team is currently in the process of developing DIP platform capabilities, including Authentication to access the platform and Catalog Service for the service providers to search and discover services, and register services through the DIP platform. This software development effort is a critical milestone in order to achieve the API scheduled to complete in FY24. NASA is currently in the field collecting data to support successful completion of that API.

USRA is currently supporting the upcoming DIP Sustainable Aviation (SA-1a Cloud) demonstration that is scheduled in FY24 utilizing cloud technologies. The analytics team have been developing and enhancing the performance of multiple Machine Learning models that will be used to provide predictions, such as configuration, departure runway, OFF time prediction, for the Collaborative Digital Departure Reroutes (CDDR) capability. The SA-1a Cloud demo involves major airlines operating at Dallas-Fort Worth International Airport (DFW) and Dallas Love Field Airport (DAL) and multiple Air Traffic Control facilities, including DFW tower, DAL tower, Dallas TRACON (D10), and Fort Worth Center (ZFW).

American Airlines, Envoy Air, and Southwest Airlines are participating in SA-1a Cloud demo and have been actively collaborating with NASA in planning this demo. Without continuing support from USRA through a contract extension, NASA would not be able to meet its commitment to these partners and may result in the airlines losing interest in collaborating with NASA on future Demonstrations. Continuation of this foundational work is critical to ensuring future viability and scale up on ARMD programs and projects.

USRA’s subcontractors currently support trade studies, fast-time simulations, and Concept of Use (ConUse) development. This work contributes to the scope and timely completion of FY24 Milestones. Critical APIs would be delayed if the contract is not extended. Work on the following proposed Level 2 and 3 are critical milestones that will be conducted that would be impacted:

Milestone Level 2 Level 3 FY 24 DIP – Complete analysis of benefits of the CDDR system during the FY24 stormy season time window

DIP - Complete research Concept Review/System Requirement Review (RCR/SRR) meeting for the concept of SFNP-Ops-1b CDDR for Complex Airspace Demo

AMP/Airspace Operations – Deliver Visualization Tool to Flight Ops Subproject

PAAV – Complete update of Sub Project Plan to include flight with aircraft partner

Currently there are special requirements/projects currently supported under the NAMS contract. This includes machine learning support for the ARMD System-Wide Safety (SWS) project, Simulation Modeling & Flight Controls Development, Human Systems Software Development, and UBC Healthy Cities project that is collaborating with us on machine learning for air quality monitoring. The SWS project engagement with the National Airspace System (NAS) is to validate NASA’s understanding of customer technology requirements and to sequence NASA’s technology development. The support under the NAMS contract includes planning by engaging with new entrants, FAA, airports, airlines, service providers, and aviation industry groups. Any entity other than USRA attempting to assume responsibility for completing these requirements that are currently underway would result in unacceptable delays in meeting the milestone for delivery of the technology development which would jeopardize completion of the overall deliverable to the AOSP Technology Transfer to FAA and aviation industry.

Additionally, the NAMS contract focuses on the internship program with the goal to recruit and encourage students to continue their education in STEM and potentially work in the STEM fields either within the government, academia or commercially. NASA is interested in continuing to add value in Science, Technology, Engineering and Math (STEM) education and jobs in the United States and one proven way to do this is to have student interns working in our projects and programs from universities and colleges. Internships offer essential input to Aeronautics work, particularly implementing scientific methods to Ames aeronautics research approach, such as, the development of an initial adapter software to connect AMP and TestBed with Deutsches Zentrum für Luft- und Raumfahrt (DLR) / German Aerospace Center; and the integration of Autonomy Development Toolkit software with AMP and TestBed in support of the Pathfinding for Airspace with Autonomous Vehicles (PAAV). The impact would affect the milestone deliverable of the Autonomy Development Kit (ADK) integration with TestBed for PAAV, initial adapter connecting TestBed with DLR facilities, data analysis products developed with subject matter expertise (SME) for sharing with partners, the FAA, and standards bodies, and validate and verification process and documentation for field demonstrations with industry partner components. Delays to the internships may result in delays to research milestone delivery in projects and programs.

Therefore, the current NAMS contractor, USRA, has the base of knowledge and experience to continue providing the highly specialized services necessary to complete the ongoing projects under the NAMS contract without incurring unacceptable delays in fulfilling the agency’s requirements for six (6) months.

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 (beta.sam.gov) was published on March 27, 2024, in accordance with FAR Subpart 5.2. This posting informed potential sources of NASA’s intent to award this sole-source extension to USRA. 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 price for the contract action is fair and reasonable.

The Contracting Officer (CO) will use various cost analysis techniques including a comparison of the proposed cost to historical actuals for similar work previously performed on the NAMS contract, completing a detailed cost element analysis, and completing a price analysis by comparison of proposed price to the IGCE to ensure that the final agreed-to costs and fee for Core requirements and any IDIQ task orders issued during the extension period are fair and reasonable. The objectives will be developed and documented in a Pre- Negotiation Position Memo (PPM) prior to the initiation of negotiations and will be approved in accordance with FAR 15.406 prior to conducting negotiations. A Price Negotiation Memorandum (PNM) will be completed to document the settlement agreement after the conclusion of negotiations.

8. FAR 6.303-2(b)(8) – Description of the market research conducted, and the results, or a statement of the reasons a market research was not conducted:

ARC conducted market research in support of the decision to award this contract extension to USRA on a sole-source basis. Based on the Contracting Officer’s Representative’s (COR) technical knowledge of the current NAMS requirements, and for all of the other reasons stated herein, market research supports that USRA is the sole responsible source able to fulfill the NAMS requirements during the potential six (6) month extension while the competitive procurement for the follow-on NAMS-2 contract is completed.

A synopsis was posted on March 27, 2024, on the Contract Opportunities site located on www.beta.SAM.gov. The purpose of the synopsis was to (1) notify industry of NASA’s intent to extend the contract on a sole-source basis and (2) solicit information about interested sources that are capable of providing the required highly specialized support services during the extended POP. Interested organizations were requested to submit their capabilities and qualifications in writing. The Contracting Officer did not receive any capability statements in response to the synopsis which closed on April 10, 2024.

Additional market research was completed which included reviews of the following Government databases: the Dynamic Small Business Search (DSBS) and the NASA Vendor Database (NVD). These market research tools revealed that several vendors can provide various types of aeronautic, engineering, air traffic, aerospace testing, quantum computing, data mining, research and development, machine learning, predictive analytics, and software engineering support. However, the CO and COR determined that the vendors identified in the search have the capability to support limited requirements individually and not as a whole NAMS requirement. Only USRA would be able to perform all the work without adversely impacting important schedules of work currently being performed on the existing NAMS contract.

The COR and the CO conducted additional research to determine whether there were sources capable of performing the above stated academic, project and engineering support services. The research included a series of meetings with the COR and members of NASA Code A, Code T, and other requirements owners under the NAMS contract. Based on those discussions, it was clear that while there are numerous firms in the industry, the scope of highly specialized work required can only be accomplished by the current contractor under the proposed extension without creating substantial duplication of work efforts performed and cost incurred to date. Failure to extend the contract would cause significant disruption in critical projects and adversely impact various NASA ARC missions and R&D facilities.

Market research indicates that in accordance with FAR 6.302-1(a)(2)(iii)(B), USRA is the only responsible source that can provide the required highly specialized services for this follow-on contract extension without incurring unacceptable delays in meeting agency requirements. There has been no interest in this proposed contract extension.

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

The COR has determined that USRA is highly qualified to perform the proposed contract extension at ARC through November 2024 and, for the reasons stated herein, is the only responsible source reasonably capable of continuing to provide the services required to support critical programs and projects pending the award of the NAMS-2 follow-on procurement. USRA can continue to provide seamless, quality support services for the current critical and highly specialized mission support, programs and projects conducted at ARC without unacceptable delays or substantial duplication of costs to the Government.

Core Requirements and task order performance—in terms of safety, milestones, scheduled metrics, and deliverables—is organized, prioritized, and safely completed on time and within budget. Since the award of the NAMS contract, USRA received annual performance ratings of FOIA Ex. 5.

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 (beta.sam.gov) per FAR Subpart 5.2 (See Section 6 above). The synopsis provided instructions for interested organizations to submit capabilities and qualifications to perform the requirements to be performed during the potential six (6) month contract extension. The synopsis was posted on March 27, 2024, for a fifteen-day duration with a response/closing date of April 10, 2024. The Government did not receive any written capability statement submissions in response to the synopsis.

No other source expressed interest in providing the additional work required by under this contract extension.

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:

There are no actions the agency needs to take to remove or overcome any barriers to competition before any subsequent acquisition for these services. ARC is currently in the process of conducting a follow-on competitive procurement for NAMS-2 contract. This sole-source award of a potential six (6) month extension to the current NAMS contract is necessary to provide the additional time needed to support the competitive NAMS-2 procurement while ensuring critical ongoing research and development support services continue without interruption under the NAMS contract. Contract award of the NAMS-2 is expected to occur within the time of the extension.

For the foregoing reasons and to prevent unacceptable delays and substantial duplication of costs in fulfilling the Agency’s critical and highly specialized requirements, USRA is clearly the only one responsible source to support the current NAMS requirement for the proposed potential six-month contract extension pending award and phase-in of the follow-on NAMS- 2 contract.

NASA Academic Mission Services NNA16BD14C

JUSTIFICATION FOR OTHER THAN FULL AND OPEN COMPETITION

SIGNATURE PAGE

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

Karen Tambua Technical Representative

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

Starr Strong Contracting Officer

CONCURRENCE:

Lauren N. Johnson Deputy Procurement Officer (Acting)

Todd J. Pospisil Procurement Officer

APPROVED:

Lauren N. Johnson Competition Advocate, (ARC)