TFOME II - JOFOC - Redacted.pdf

Rev.:9/2025

NATIONAL AERONAUTICS AND SPACE ADMINISTRATION

Glenn Research Center (GRC)

JUSTIFICATION FOR OTHER THAN FULL AND OPEN COMPETITION

(JOFOC)

FOR Test Facilities Operations, Maintenance & Engineering II (TFOME II)

NNC15BA02B

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) Glenn Research Center (GRC).

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

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 extension of three, one-month extension periods to contract number NNC15BA02B with HX5 Sierra, LLC (HX5 Sierra) for Test Facilities

Operations, Maintenance & Engineering (TFOME II) services at NASA GRC.

The current TFOME II contract period of performance, inclusive of all options, six-month extension, and previous two-month deviation, is May 1, 2015, through December 31, 2025.

On September 12, 2025, NASA GRC awarded the Test Facilities Operations, Maintenance &

Engineering III (TFOME III) contract, which is the follow-on contract to TFOME II.

TFOME III has a two-month phase in period and its planned start date at the time of award was January 1, 2026. Phase-out of TFOME II was previously planned to be completed by

December 31, 2025.

However, due to the lapse of Government funding on October 1, 2025, and the resulting

Government shutdown from October 1, 2025, through November 12, 2025, the phase-out of

TFOME II and the phase-in of TFOME III was postponed. The new phase-in period for

TFOME III is December 1, 2025, through January 31, 2026. To account for this change to phase-in, it is anticipated the TFOME III contract’s start date will be changed from January

1, 2026, to February 1, 2026.

An extension of TFOME II is necessary to ensure continuity of testing operations at GRC until the TFOME III contract is fully implemented on the new planned start date of February

1, 2026.

This is a time only extension and the contract value will not be increased. NASA GRC is requesting the following three, one-month extension periods:

• One-Month Extension from January 1, 2026, through January 31, 2026. To be exercised at time of deviation approval.

• One-Month Extension from February 1, 2026, through February 28, 2026. To be exercised if the phase-out/phase-in is delayed beyond January 31, 2026.

• One-Month Extension from March 1, 2026, through March 31, 2026. To be exercised if the phase-out/phase-in is delayed beyond February 28, 2026.

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):

Description: The TFOME II contract provides and manages the engineering and technician support, the manufacturing and development support, and the operations, maintenance, inspection, and certification support services needed to conduct aeronautics and space related testing in GRC test facilities and laboratories. TFOME II provides these services at both

Lewis Field in Cleveland, Ohio, and at the Neil A. Armstrong Test Facility (ATF) in

Sandusky, Ohio. The success of research and development (R&D) activities at GRC depends on the safe, timely, efficient and quality completion of the statement of work (SOW). The test facilities and laboratories include wind tunnels, engine altitude chambers, engine component facilities, space simulation chambers, zero gravity facilities, instrumentation

R&D laboratories, materials and structures R&D laboratories, clean rooms, and rocket test facilities. The TFOME II contract includes the following scope of work:

• Testing: Testing services are comprised of the four phases of a test in GRC’s facilities: Test Pursuit and Planning, Test Preparation, Test Operations, and Post-Test

Activities. TFOME II reviews and balances the schedule, cost, and test requirements in all these phases.

• Maintenance: TFOME II’s maintenance and repair services include Preventative

Maintenance, Program Maintenance, Predictive Testing & Inspection (PT&I), Trouble Calls, Repairs, Replacement of Obsolete Items, Service Requests, Calibration

Services, and Configuration Control.

• Manufacturing: In conjunction with the Facilities, Test and Manufacturing

Directorate (FTMD), TFOME II, through a blended workforce with Civil Servants, is responsible for all centralized manufacturing activities at GRC. The work includes machining; fabrication including joining, welding, and sheet metal; instrumentation;

machine repair; and bonded storage. The organization provides manufactured hardware to support all internal and external GRC customers.

• Lifting Devices and Equipment (LDE): TFOME II provides the technical support services that are necessary to meet GRC requirements for lifting devices and equipment. TFOME II provides for certification, inspection and maintenance of GRC lifting devices and equipment in compliance with NASA Standards and the GRC

Safety Manual. This work includes nondestructive testing, Replacement of Obsolete

Items, trouble calls, service requests (including critical lifts) and repair of equipment and system components. LDEs include Cranes (Overhead and mobile), Hoists and winches, Derricks, Hooks, Hydra-sets and Load Measuring Devices, Man Lifts, Rigging equipment (i.e. shackles, D-rings, swivel D-rings), Slings, Rescue Lines, Engine Hoists, Aerial Platform Lifts, Forklifts and Jacks

The above requirements are continuous and remain after TFOME II’s period of performance end date of December 31, 2025, and before TFOME III’s planned start date of February 1, 2026.

Estimated Value: This is a time only extension and the contract value will not be increased because TFOME II retains sufficient value to support ongoing requirements throughout the extension period. The January, February and March estimates, provided by HX5 Sierra, total

$13,297,737. The $13,297,737 is in-line with historical TFOME II costs and the TFOME II

Budget Analyst reviewed and found the estimates reasonable. Per the chart below, the total contract value does not need to be increased for the during the extension periods.

Costed as of

10/31/25

Gov’t

November

Forecast

Gov’t

December

Forecast

HX5 Sierra

January

Estimate

HX5 Sierra

February

Estimate

HX5 Sierra

March

Estimate

Estimate

Costed at End of PoP (3/31/26)

Total Contract

Value

Value

Remaining at

End of PoP

$534,421,295 $4,344,243 $4,570,539 $4,413,964 $4,168,217 $4,715,555 $556,633,814 $562,158,447 $5,524,633

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(c)(1), as implemented by FAR 6.302-1(a)(2)(iii), the supplies or services required are unique and are available from only one responsible source, HX5 Sierra, and no other supplies or services will satisfy agency requirements in the interim period. The current contractor will provide uninterrupted services without substantial duplication of cost and unacceptable delays that would otherwise be incurred if GRC were to award to another source for the interim period.

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 the current contractor, HX5

Sierra, is the only responsible source as described below.

Only HX5 Sierra has the specialized labor skills, experience and knowledge necessary to provide and manage the engineering and technician support, the manufacturing and development support, and the operations, maintenance, inspection, and certification support services needed to conduct aeronautics and space related testing in GRC test facilities and laboratories from January 1, 2026, through March 31, 2026.

• Specialized Labor Skills: HX5 Sierra has a large, approximately 400 personnel workforce that is specially trained and certified. This uniquely qualified workforce is on-site at both GRC locations, and they cannot be quickly replaced due to their size, extensive training and certification requirements.

• Experience and Knowledge: HX5 Sierra’s exclusive knowledge, unique experience, familiarity with GRC’s highly specialized equipment cannot be easily replicated.

HX5 Sierra’s years of previous experience at GRC’s test facilities, with its highly specialized equipment, test maintenance requirements, and test implementation procedures makes them the only responsible source to deliver these services until the

TFOME III contract is fully implemented on an anticipated date of February 1, 2026.

• Schedule and Timeliness: The time that would be required for another contractor to transition into this role is neither practical nor feasible for the extension period, especially considering the length of time it would take for another contractor hire and certify the large number of employees required to learn and manage the extensive

SOW requirements. An expedited phase-in of another contractor, without the specific knowledge of the unique NASA GRC facilities and testing requirements, would pose a high probability of a disruption or lapse in essential test services at NASA GRC.

Attempting to procure these services from any other source for the extension period would likely lead to duplication of costs, unacceptable performance issues, and delays in testing services at GRC. Additionally, the phase-in costs, especially in relation to a short, two-month extension, could potentially cause undue burden on a small business that they may not recover within the short period of time these services are needed until the TFOME III contract is awarded. As such, HX5 Sierra is the only responsible source to continue providing test support services until the full implementation of the TFOME III contract.

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 5.2 and, if not, which exception under 5.202 applies:

A notice to the Government Point of Entry (GPE) website, SAM.gov, was published on

November 18, 2025, in accordance with FAR Subpart 5.2. This posting informed potential sources of NASA’s intent to award a sole source to HX5 Sierra. 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 CO has determined that the anticipated cost to the government will be fair and reasonable.

The Contractor submitted a proposal for January, February and March 2026. An analysis was performed by the CO, the Contracting Officer’s Representative (COR), and the TFOME II

Budget Analyst utilizing historical contract cost data, a Government Cost Estimate, and an analysis of current market environment. Based on this analysis, the CO determined that the price of the three, one-month extensions remain in-line with the government cost estimate and current contract estimates are fair and reasonable.

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):

No market research was conducted specifically for the TFOME II extension.

The follow-on TFOME III requirement conducted market research in 2024 and 2025 and identified potential small business sources for the follow-on requirement. TFOME III was solicited as a small business set aside and awarded to a small business.

However, the TFOME III market research did not identify any responsible sources that could fulfill the Government’s test service requirements without a lengthy lead-time and phase in prior to contract start date. This market research demonstrates that there is insufficient time, and that it would be burdensome and inefficient, for a small business to conduct the extensive hiring of a large, specialized labor force, provide them training, and meet certification requirements for a two-month extension.

For the reasons above, the Government does not believe there are any responsible offerors other than HX5 Sierra that are able to fulfill NASA GRC’s needs for test facilities operations, maintenance and engineering services for the interim period without unacceptable delay or substantial duplication of cost to the Government, which are not expected to be recovered through competition.

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 on November 18, 2025, with a close date of

December 2, 2025.

No inquiries regarding the SAM.gov posting were received. The Government has determined that it is likely there are no contractors available to meet the Government’s requirements in the time frame.

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 follow-on TFOME III has been awarded with an initial planned start date of January 1, 2026, which was revised to a new start date of February 1, 2026 (due to the 43-day lapse in

Government funding and resulting shutdown). The Government’s acquisition strategy for

TFOME III encouraged competition and maximum participation among small businesses. If the TFOME III awardee does not begin performance by the end of the TFOME II extension period, the Government will examine the market for alternative solutions or new sources before executing any subsequent acquisitions for the same requirements.

Rev.: 9/2025

Test Facilities Operations, Maintenance & Engineering II (TFOME II)

JUSTIFICATION FOR OTHER THAN FULL AND OPEN COMPETITION

SIGNATURE PAGE

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

Samantha L Yousef Technical Representative

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

John A. Christel Contracting Officer

APPROVED:

Leahmarie Koury Competition Advocate Glenn Research Center

Samantha Yousef

Digitally signed by Samantha Yousef Date: 2025.12.03 14:48:31 -05'00'

John Christel

Digitally signed by John Christel Date: 2025.12.04 08:04:19 -05'00'

LEAHMARIE KOURY

Digitally signed by LEAHMARIE

KOURY

Date: 2025.12.10 11:33:33 -05'00'