NextSTEP-2_BAA_Appendix_K-10-3-19.pdf

National Aeronautics and Space Administration

NASA Johnson Space Center

Houston, TX 77058

Next Space Technologies for Exploration Partnerships-2

(NextSTEP-2)

Broad Agency Announcement NNH16ZCQ001K-CDFF

Appendix K: Commercial Destination Development in Low Earth Orbit (LEO) Free Flyer

Draft: October 3, 2019

NOIs Due: TBD, 2019, 4:00 PM Central Time

Proposals Due: TBD, 2020, 4:00 PM Central Time

NextSTEP-2 Appendix K: Commercial Destination Development in Low Earth Orbit (LEO) Free Flyer – NNH16ZCQ001K-CDFF ii

CHANGE LOG

Version Description of Changes Date

Draft --- October 3, 2019 iii

TABLE OF CONTENTS

PARAGRAPH PAGE

1.0 Introduction and Background

1.1 Background

1.2 Definitions

1.3 Objectives of Appendix K

1.4 Acquisition Strategy

1.5 NASA’s Long Term LEO Goals and Objectives

1.6 Definition of Roles

2.0 Funding Opportunity Description of Solicitation Topic

2.1 Contract Structure

2.2 General Information for Respondents

3.0 Eligibility Information and Other Considerations

3.1 Eligibility of Applicants

3.1.1 Domestic Source Criteria and Compliance

3.2 Intellectual Property Considerations

3.2.1 Data Rights

3.2.2 Inventions – Patent Rights

3.3 Title Rights in Property

4.0 Proposal Submission Information

4.1 Instructions for Proposals

4.1.1 Proposal Format and Contents

4.2 Additional Proposal Guidance

4.2.1 Attachment A, B, and C Instructions

4.2.2 Use of Government Resources

4.2.3 Access to Research Results/Data Management Plan

5.0 Proposal Review Information

5.1 Compliance Review

5.2 Evaluation

5.3 Selection Official

5.4 Personnel

5.5 Evaluation Criteria

5.5.1 Factor 1 – Business Relevance

5.5.2 Factor 2 – Technical Merit

iv

5.5.3 Factor 3 – Price

5.6 Price Review and Programmatic Relevance/Balance

6.0 Award Information

6.1 Funding Availability

6.2 Funding Allocation

6.3 Period of Performance

6.4 Award Date

7.0 Technical Library Access

8.0 Attachments

9.0 List of Acronyms

1.0 Introduction and Background

1.1 Background

In 2018, the National Aeronautics and Space Administration (NASA) in conjunction with the

Department of Commerce and the Department of State defined four overarching goals for human spaceflight in Low Earth Orbit (LEO) in a report submitted to the National Space Council:

To achieve a continuous U.S. presence in LEO – both with government astronauts and with private citizens – in order to support the utilization of space by U.S. citizens, companies, academia, and international partners and to maintain a permanent

American foothold on the nearest part of the space frontier.

To facilitate a regulatory environment in LEO that enables American commercial activities to thrive.

To conduct human spaceflight research in LEO that will advance the technology and systems required for long-duration spaceflight systems, including systems for interplanetary travel and permanent space habitation.

To expand and extend commercial opportunity through international partnerships and engagement.

On June 7, 2019, NASA announced it is opening the International Space Station (ISS) for commercial business, unleashing U.S. industry on the path to a commercial economy in low-

Earth orbit. With this announcement (see https://www.nasa.gov/leo-economy/low-earth-orbit-economy/), “NASA’s Plan for Commercial LEO Development” was published to address both supply and demand, providing a framework of near-term, mid-term and long-term steps that will be taken as well as a five part plan of near-term actions that will build on the work of the last two decades. This solicitation serves as the second element of Part 3 of that plan to initiate the process for commercial development of LEO destinations.

NASA supports public-private partnerships for achieving its strategic goals and objectives for expanding the frontiers of knowledge, capability, and opportunities in space. An important part of NASA’s strategy is to stimulate the commercial space industry to develop commercial capabilities and markets.

1.2 Definitions

Commercial Element – any individual habitable module, external platform, or deployable structure, owned and operated by a U.S. Industry Entity to accommodate on-orbit activities.

Commercial Destination Free Flyer (herein referred to as FF) – permanently human-occupied or human-tended non-governmental platform in LEO, consisting of the sum of all Commercial

Elements of the contractor, and all commercial business operations that are required to sustain the FF. At least one element shall be a habitable module.

Commercial Demonstration – conducting Commercial Destination Free Flyer demonstrations for a finite time to validate the proposed commercial capabilities to enable:

Reliable performance of habitation capabilities

Spaceflight demonstration of attitude control and orbit maintenance capability

Supply and return of consumables and products https://www.nasa.gov/leo-economy/low-earth-orbit-economy/ https://www.nasa.gov/leo-economy/low-earth-orbit-economy/

Crewed missions that exercise the contractor’s Business Approach

Proposed services targeting NASA’s needs as a customer

Proposed services targeting the contractor’s commercial market(s)

Commercial Destination Free Flyer Crew – any Crew member who is approved for flight to the

FF beginning upon assignment of the crew for a specific government or commercial mission and ending upon completion of the post-flight activities.

United States Government (USG) Astronaut - an individual who meets the definition of

“government astronaut” under 51 USC 50902 (4)(A), (B), and (C)(i), which means an individual who is an employee of the U.S. Government, including the uniformed services, engaged in the performance of a federal function under authority of law or an Executive act and designated as a government astronaut by NASA in accordance with applicable NASA requirements.

Commercial Contractor Astronaut – a Commercial Destination Free Flyer Crew member who is an employee or customer of the contractor and is to be transported to/from the FF.

United States Industry Entity – any corporation, partnership, joint venture, association, or other entity that meets the requirements of 51 United States Code (U.S.C.) § 50101, excluding government entities such as NASA Centers, National Laboratories, and Federally Funded

Research and Development Centers.

1.3 Objectives of Appendix K

The primary objective of the Next Space Technologies for Exploration Partnerships-2

(NextSTEP-2) Omnibus Broad Area Announcement (BAA) Appendix K is to form a public-private partnership for integration and spaceflight demonstration where the Contractor objectives to be accomplished are:

Successfully develop commercial markets through demonstration of products and services in LEO in habitable commercial destinations

Provide a plan to establish a long-term, sustainable, commercial, human spaceflight enterprise in LEO where NASA is one of many customers

Through this Appendix, the Government intends to purchase data deliverables and insight to support demonstration of the FF in LEO and demonstration of commercial capabilities. The responsibility for developing the commercial markets and achieving commercial viability is on the Contractor, not the Government. The requirements for the purchase of commercial services that meet NASA’s long-term needs will be developed and released in a future solicitation.

1.4 Acquisition Strategy

This Appendix K solicits proposals from U.S. Industry Entities to develop and demonstrate commercial destination technologies and markets in LEO. Because the Government is not acquiring hardware, it is NASA’s intention that title to all real or personal property developed or acquired under this contract will remain with the contractor.

Through this Appendix K, the Government intends to purchase data deliverables and insight to support demonstration of the FF in LEO and demonstration of commercial capabilities. NASA intends to select one or more Offerors for award of a contract with performance ordered and executed through the issuance of Task Order(s). All selected awardees will receive an initial

Task Order, at a minimum. Following a portfolio-based decision on the future capabilities potentially available to NASA at both the ISS port and FF, awardees may be issued future Task

Orders. Ideally, one or more awardee(s) will complete Design, Development, Test, and

Evaluation (DDT&E) and deliver the FF to LEO in order to conduct a long-duration demonstration of commercial products and services ultimately leading to a self-sustaining

Commercial Destination to serve both NASA and non-NASA needs. Offeror(s) not selected for subsequent Task Orders can, by written request to the Contracting Officer, request an early end date of the Ordering Period of this contract (i.e., Off Ramp) in accordance with the clause entitled “Down-Select Off Ramp Option.”

1.5 NASA’s Long Term LEO Goals and Objectives

NASA seeks to enable multiple privately owned and operated destinations in LEO that are commercially viable in the long term, providing services to the Government as one of many customers. NASA seeks to potentially transition away from full reliance on the ISS and cost-effectively meet its long-term needs in LEO by purchasing services from commercially owned and operated destination(s) that offer a broad portfolio of products and services to both the commercial market and NASA. NASA’s long-term needs in LEO are as outlined in the report referenced (ref) in the technical library: “Forecasting Future Demand in Low Earth Orbit:

Revision Two – Quantifying Demand.” NASA seeks continued use of the LEO microgravity and space environment to conduct basic and applied research and technology demonstrations. In order to open up the design trade space and encourage innovation and efficiencies, NASA is not requiring specific system concepts or configurations. Each Offeror must determine the system requirements and concepts that best fit its target customer base while addressing some or all

NASA’s future needs in LEO. NASA will conform to the requirements and configurations of the

FF for services it acquires.

1.6 Definition of Roles

The contractor retains overall authority and responsibility for safe FF operations. The contractor will be responsible for transportation of any Commercial Contractor Astronauts and cargo. The contractor will be responsible for ensuring the health and safety of any FF crew. The contractor may develop a plan that includes transportation of USG Astronauts and cargo in lieu of NASA retaining sole responsibility for those roles.

The conduct of all USG Astronauts, related to the performance of commercial activities, will be governed by Government ethics requirements 5 CFR 2635.702 (c) and 5 CFR 2635.101 (7).

2.0 Funding Opportunity Description of Solicitation Topic

2.1 Contract Structure

NASA anticipates awarding firm-fixed-price single-award Indefinite Delivery, Indefinite

Quantity (IDIQ) contracts with performance authorized via Task Orders as described in Table 1:

https://www.nasa.gov/leo-economy/long-term-needs https://www.nasa.gov/leo-economy/long-term-needs

Task Order Descriptions and Milestones.

All awardees will receive Task Order 1 (TO1) for Milestone 01 (M01), Mission Concept, which is described in BAA Attachment A – Statement of Work (SOW). At the time of contract award, depending on the concept maturity and availability of funds, NASA may award Task

Order 2 (TO2) to one or more awardees for Milestone 2 (M02), which is described in BAA

Attachment A – Statement of Work.

NASA intends to require deliverables in each Task Order that address the plans for development and operation of the final FF.

Table 1. Task Order Descriptions and Milestones

Task Order Description Milestones

TO 1 Mission Concept M01

TO 2 System Requirements M02

TO 3 Preliminary Design M03

TO 4 Final Design M04

TO 5 Operational Readiness M05

TO 6 Capability Demonstration Completion M06

2.2 General Information for Respondents

Agency: National Aeronautics and Space Administration

Announcement Title: NextSTEP-2 BAA, Appendix K: Commercial Destination

Development in Low Earth Orbit Free Flyer

NAICS Code: 541715 – Research and Development in the Physical, Engineering, and

Life Sciences (except Nanotechnology and Biotechnology)

Responsible Office: NASA/Johnson Space Center, Mail Code BA

2101 NASA Parkway

Houston, Texas 77058

Point of Contact: Contracting Officer: J.R. Carpentier

Technical Point of Contact (POC): George C. Nelson

NASA Johnson Space Center (JSC)

E-mail: john.r.carpentier@nasa.gov

Industry Forum: A NextSTEP-2 Industry forum will be held for this Appendix and prospective

Offerors will have a chance to submit written questions about this particular solicitation. The tentative date for the forum is TBD, 2019. The meeting agenda and related information will be posted to the following website:

https://www.fbo.gov/index?s=opportunity&mode=form&id=f9769ca109ec1326e29364f6bb1b5b

79&tab=core&_cview=0.

Notice of Intent: Due TBD, 2019, 4:00pm Central Time. To assist in the planning of the proposal evaluation process, NASA strongly encourages the submission of a Notice of Intent mailto:john.r.carpentier@nasa.gov https://www.fbo.gov/index?s=opportunity&mode=form&id=f9769ca109ec1326e29364f6bb1b5b79&tab=core&_cview=0 https://www.fbo.gov/index?s=opportunity&mode=form&id=f9769ca109ec1326e29364f6bb1b5b79&tab=core&_cview=0

(NOI) to propose by all prospective Offerors. The NOI should contain the following information:

name, address, telephone number, e-mail address, and institutional affiliation of the respondent, and the solicitation topic in which you intend to propose (NextSTEP-2, Appendix K). NOIs shall be submitted electronically to the POC e-mail address above. Please note that NOIs are strongly encouraged, but are not required. Not submitting an NOI will not impact the selection process.

Inquiries: Due TBD, 2019, 4:00pm Central Time. Offerors may submit written questions for this Appendix. The questions shall not contain proprietary information nor require proprietary information in the response. NASA’s responses to questions will be publicly posted to ensure the information is available to all prospective Offerors. NASA will not provide evaluations, opinions, or recommendations regarding any suggested approaches or concepts. All questions shall be directed via e-mail to john.r.carpentier@nasa.gov no later than the date specified above.

Inquiries shall identify the BAA number and this Appendix in the subject field of e-mails.

Proposals Due: Proposals must be submitted electronically in accordance with instructions detailed in Section 4.1: Instructions for Proposals no later than TBD, 4:00pm Central Time.

3.0 Eligibility Information and Other Considerations

3.1 Eligibility of Applicants

3.1.1 Domestic Source Criteria and Compliance

This Appendix is restricted to United States industry entities as defined in Section 1.2:

Definitions. Proposals including international team members shall comply with Section 3.2.1, Guidelines for International Team Members on U.S. Proposals, of the NextSTEP-2 Omnibus

BAA.

The selected Offeror(s) shall adhere to 51 United States Code (U.S.C.) § 50131 in performance of this contract by acquiring space transportation services from United States commercial providers. The Offeror(s) also shall comply with the National Space Transportation Policy by using U.S. manufactured launch vehicles. For a launch vehicle to qualify as a domestic end product, the cost of its components, mined, produced, or manufactured in the United States must exceed fifty (50) percent of the cost of all of its components. The cost of each component includes transportation costs to the place of incorporation into the launch vehicle and any applicable duty (whether or not a duty-free entry certificate is issued). “Components” means those materials and supplies directly incorporated into the domestic end product.

3.2 Intellectual Property Considerations

To support the objectives of this Appendix K, the following intellectual property considerations are applicable.

3.2.1 Data Rights

3.2.1.1 Data Rights (Deviation)

Contracts awarded under this Appendix will use a different approach to Data Rights. The model contract includes a deviation to the 52.227-14 “Rights in Data - General” clause by which the

Government will acquire limited rights, instead of unlimited rights, for data first produced under the contract, if developed partially or exclusively at private expense. The Government only receives unlimited rights in data produced exclusively at Government expense. In event of

Termination for Default, the Agency receives an additional right to manufacture for the

Government’s benefit/use, but not unlimited rights. (See BAA Attachment B – Model Contract

Section I, 52.227-14 Rights In Data – General, (Dec 2007) (Deviation) / Alternate I, (Dec 2007)

(Deviation) / Alternate II, (Dec 2007) (Deviation) / Alternate III (Dec 2007) (Deviation)).

To assist the Government in its use of the Rights in Data – General (Deviation) clause (FAR

52.227-14) with its Alternates I, II, and III, an Offeror shall, when executing the Model Contract, and consistent with FAR 52.227-15 "Representation of Limited Rights Data and Restricted

Computer Software," represent that it has reviewed the requirements for the delivery of technical data or computer software. In addition, the BAA Attachment B – Model Contract includes a

Section H.26 clause entitled “Identification and Representation of Limited Rights Data and

Restricted Computer Software (Pre-Award),” which provides a “Data Rights Assertion Table” that allows Offerors to identify and represent pertinent data related to its specific limited data rights assertions. Any identification of limited rights data or restricted computer software in the

Offeror’s response is not determinative of the status of the data should a contract be awarded to the Offeror. Identification and representations may be made after award pursuant to a Section

H.27 clause entitled “Identification and Representation of Limited Rights Data and Restricted

Computer Software (Post-Award).” Depending on NASA’s specified needs, irrespective of funding source (NASA or Contractor funded contributions), for technical data, the nature and extent of what is delivered with unlimited rights, and/or limited rights and restricted computer software, may be discussed/negotiated with the Offeror(s).

3.2.1.2 Data Rights Access to Insight Data

The BAA Attachment A – Statement of Work requires the Offeror to provide NASA (i) insight data to support development of the FF and (ii) corresponding business planning data.

Additionally, the BAA Attachment B – Model Contract includes an Insight Clause H.28 emphasizing the importance of the Government’s ability to gain an understanding of the

Contractor’s activities to assess the status, critical paths, and risk associated with successfully completing contract requirements, launching the FF, and conducting commercial capability demonstrations. This clause will be used in combination with the Rights in Data – General

(Deviation) Clause I.91 for instances in which Government access to Contractor’s Limited

Rights Data is needed, but delivery may not be required.

3.2.2 Inventions – Patent Rights

The Government has certain statutory rights in inventions conceived or first actually reduced to practice under a NASA contract. 51 U.S.C. 20135 provides that title to such inventions vests in the United States, except where 35 U.S.C. 202 provides otherwise for nonprofit organizations or small business firms.

Where 51 U.S.C. 20135 applies, a large entity contractor may request a waiver to obtain title to inventions made under the award in accordance with 51 U.S.C. 20135(g) and 14 Code of Federal

Regulations (C.F.R.) 1245 Subpart 1. Such a request may be made in advance of the award or within 30 days thereafter as given in NASA FAR Supplement (NFS) 1852.227-71, Requests for

Waiver of Rights to Inventions. Even if a waiver request is not made, a large business contractor may request a waiver on individual inventions made during the course of the award. To support the public/private partnership approach of this BAA, the Government intends to grant all waiver requests submitted pursuant to 14 C.F.R. 1245. See BAA Attachment B – Model Contract

Section H.22, “Statement on Waiver of Rights to Inventions.”

For all contractors, the patent rights provision in a resulting award will require the disclosure to

NASA of all subject inventions made under the contract. NASA considers the reporting of inventions an important metric in assessing whether new technologies are being developed.

Reporting of inventions also protects a contractor’s ownership to such inventions since NASA has the right to obtain title in unreported inventions.

3.3 Title Rights in Property

Because the Government is not acquiring hardware, it is NASA’s intention that title to all real or personal property developed or acquired under this contract will remain with the contractor.

4.0 Proposal Submission Information

4.1 Instructions for Proposals

See NextSTEP-2 Omnibus BAA for general instructions. The specific instructions in this section are in addition to or supersede the general instructions in the NextSTEP-2 Omnibus BAA and apply to this Appendix only.

Failure to submit a complete electronic proposal by the due date and time specified for this

Appendix shall result in the proposal being considered late, and shall be handled in accordance with FAR 15.208(b).

All Offerors shall follow FBO.gov usage requirements as defined in the Vendor User Guide posted on the home page of FBO.gov. The Government is not responsible for any failure attributable to the transmission or receipt of documents submitted using electronic means, including the missing of any established deadlines. It is the Offeror’s responsibility to submit correct proposal package(s) and to verify correct submission by using the instructions provided in FBO Vendor User Guide. Although FBO.gov sends an email upon submission, the email receipt from FBO.gov shall not constitute record of proper bid submission. It is the Offeror’s responsibility to confirm the Government’s receipt of transmitted information matches the information submitted by the Offeror per the instructions in the FBO Vendor User Guide.

Offerors are advised that, as stated in the FBO Vendor User Guide, file sizes over 100MB may experience system difficulties. All the proposal files may be compressed (zipped) into one file titled “NNH16ZCQ001K_CDFF_VENDORNAME.zip” or uploaded individually. The electronic proposal shall contain all information required by the solicitation to be determined responsive.

Files shall not have password protection, encryption, or any access or viewing restrictions.

4.1.1 Proposal Format and Contents

The proposal format and content requirements as outlined in this section below are specific to this Appendix. Electronic copies of the proposal shall be prepared and submitted in Microsoft

Office® 2016 applications (Word and Excel), with the exception of Attachment 7: DRD-002, Integrated Master Schedule which shall be submitted in Adobe PDF. Further, the Microsoft

Excel spreadsheets shall be submitted in Microsoft Excel format, not in a scanned Microsoft

Word or Adobe PDF file. Microsoft Word documents shall be submitted in Microsoft Word https://www.nasa.gov/content/nextstep-2-omnibus-baa format, not in an Adobe PDF file. For electronic submissions, each volume of the proposal shall be submitted as a separate electronic file. The Offeror shall not embed or provide external links for sound or video files into the proposal files. Minimize the use of scanned images and keep embedded graphics as simple as possible.

All pages in each section shall be numbered sequentially with Arabic numerals (1, 2, 3, etc.) for contents subject to page limitations. A page is defined as one side of an 8 ½” x 11” sheet of paper, with at least one-inch margins on all sides, using not smaller than 12-point font size, with the exception of tables, schedules, and figures, which may use 8-point font size and may be 11” x

17”. These 11” x 17” pages shall be counted as two pages against the page limitations. Pages in excess of the page limits specified in Table 2: Overview of Proposal Sections and Page

Limitations for each section will not be evaluated. Minor informalities or irregularities in a proposal that can be adjusted, corrected, or waived without being prejudicial to other Offerors may be accepted if it is immaterial to the Appendix. Pages contained in a page limited sections of the proposal which do not comply with the Proposal Format and Contents requirements may be returned by the Government and not evaluated.

The page count limits are described in Table 2: Overview of Proposal Sections and Page

Limitations. Other Volumes and attachments as described in Table 2: Overview of Proposal

Sections and Page Limitations will not be included in the page count. Sections of the proposal that are not page limited do not need to abide by the font, size or margin requirements of the page limited sections, although it is the Offeror’s responsibility to ensure readability.

There is no file size limit for proposals (This is an exception to Section 2.3.1(c) of the NASA

Guidebook for Respondents). Only attachments that are specifically requested either in this solicitation or in appendices to this solicitation should be submitted.

Table 2. Overview of Proposal Sections and Page Limitations

Volume No. Section

No.

Title Page Limits

Title Page 1

1 Executive Summary 5

2 LEO Commercialization Approach

2.1 Proof of Eligibility 3

2.2 Technical Approach 35

2.3 Business Approach 25

Price Proposal

3.1 Pricing Template No Limit

3.2 Offeror Narrative / Basis of

Estimate

No Limit

Attachments 1 Statement of Work No Limit

2 Model Contract No Limit

3 Data Requirements List (DRL) and

Data Requirement Descriptions

(DRDs)

No Limit http://www.hq.nasa.gov/office/procurement/nraguidebook/ http://www.hq.nasa.gov/office/procurement/nraguidebook/

4 Requested Government Furnished

Property/Services and Letters of

Intent (LOIs)

No Limit

5 Business Case Analysis Worksheet No Limit

6 DRD-001, Commercialization

Roadmap

7 DRD-002, Integrated Master

Schedule

8 DRD-003, Concept of Operations 20

9 DRD-005, Organizational Conflict of Interest (OCI) Plan

No Limit

10 DRD-007, Mishap Preparedness &

Contingency Plan

11 DRD-008, Safety & Health Plan 10

12 DRD-009, Insight Management

Plan

Note: Initial submission DRD page limitations are for proposal purposes only

4.1.1.1 Title Page

Include any Notice of Restriction on Use and Disclosure of Proposal Information.

An optional graphic image may be included.

The Offeror’s name for the proposal or proposed project.

Date of the proposal.

The title, solicitation number and Appendix being responded to of this

Announcement.

Entity name and address.

Offeror POC name, title, e-mail address, and phone number.

4.1.1.2 Volume 1 – Executive Summary

Proposals shall include an executive summary describing the prominent and distinguishing features of Volume 2 of the proposal that demonstrate the Offeror’s plans and ability to meet the goals and objectives in Section 1.3: Objectives of Appendix K.

The executive summary shall include the name and Data Universal Numbering System (DUNS) number of the Offeror, subcontractors, and other team members. The executive summary shall stand alone and not directly reference other sections of the proposal. The executive summary submitted with the proposal may include proprietary data as it will not be publically released. A publically releasable version of the executive summary will be required following contract award.

4.1.1.3 Volume 2 – LEO Commercialization Approach

Each proposal shall include the following content as described below.

4.1.1.3.1 Proof of Eligibility

The proposal shall provide information showing that the Offeror and all team members are eligible participants as stipulated in NextSTEP-2 Omnibus BAA, Section 3: Eligibility

Information, and Section 3.1: Eligibility of Applicants of this Appendix. The Offeror shall describe how the corporate contribution resources will be utilized.

Describe compliance with participation requirements as needed.

4.1.1.3.2 Technical Approach

The technical approach shall address each of the content requirements below and provide sufficient information and rationale that is consistent with the Offeror’s proposed Business

Approach for the Government to evaluate per Section 5.5. The Offeror’s proposal shall include a description of significant risks and mitigation plans; and describe its approach to meeting

NASA’s insight needs as defined in the NASA-provided Model Contract.

a) Technical Concept and Evolution

The Offeror shall provide an overview of the long-term configuration, end-to-end schedule, and approach for a FF in LEO. The Offeror shall describe their FF concept, architecture, capabilities, features, system specifications, performance specifications, and concept of demonstration and operations.

The Offeror shall provide a high-level schedule, including earliest realistic launch date, the point when the FF is habitable, and the point when the FF is commercially viable.

If the FF will consist of more than one Commercial Element, the Offeror shall describe the assembly sequence for constructing the FF including iterative Commercial Element configurations and docking capability; schedules; technology maturation; and proposed uses of Government resources, services, and assets.

For the FF, the Offeror shall provide an overview of major systems (including, but not limited to: Guidance Navigation & Control (GN&C), Power, Life Support, Command &

Data Handling (C&DH), Communications, Thermal), the Offeror shall describe performance capabilities, and Technology Readiness Levels. An overview of “NASA

Technology Readiness Levels” can be found in the Technical Library (see Section 7.0:

Technical Library Access).

The Offeror shall identify the NASA ground services, resources, and assets requested to support development, launch and operations of the FF in Attachment 4: Requested

Government Property/Services and LOIs of the proposal. The Offeror shall provide an overview of the proposed NASA services, resources, and assets to be used as well as the rationale for use and how the use reduces risk to the approach. The Offeror shall describe their approach if utilizing existing ground services, resources, and assets, and mitigations if these NASA-supplied items cannot be utilized as planned. The ISS Commercial

Element Port Accommodations Handbook (ref: ICEPAH), located in the Technical

Library (see Section 7.0: Technical Library Access), provides a reference in Table 8.0-3, Summary of Surplus Government Assets, of the assets NASA may be able to provide to

Offerors.

The Offeror shall describe their approach and schedule, to support crew habitability including life support, waste management, hygiene, crew quarters, and exercise equipment, with special emphasis on Environmental Control and Life Support Systems

(ECLSS).

b) Development and Demonstration Approach

The approach should include an overview of technical risks and associated mitigations

(system design, hardware lifecycle management, etc.), project and program risk management, schedule management (including schedule task interdependencies, critical path analysis, and identified schedule margin), approach for industry design and development standards, software development and lifecycle plans, and meeting the

Milestones as defined in BAA Attachment A – Statement of Work.

The Offeror shall provide:

i. A detailed schedule including major milestones and critical path activities.

ii. The approach for use of in-house and major supplier expertise for hardware design, external teaming arrangements, engineering services, and FF integration.

iii. The requirements development approach.

iv. The test and verification approach.

v. The approach for mission design and orbit maintenance.

vi. The approach to achieve FF habitability in accordance with BAA Attachment C

– Human Rating and Habitability Criteria for FF.

vii. The approach for accommodating Visiting Vehicles.

viii. The approach for satisfying research capabilities of the FF.

c) Sustaining and Operations of the FF

The Offeror shall describe the approach to sustaining engineering and operations of the

FF, ground rules and assumptions for use, services and interfaces capabilities, real-time operations interfaces. The approach should include the following subjects:

i. A high-level operations concept, including element delivery, activation and checkout, outfitting, nominal crewed operations, and recurring maintenance.

ii. Approach to teaming with other organizations (e.g. for-profit corporations, non-profit organizations, international organizations).

iii. Forecast and implementation approach for vehicle traffic planning, upmass, downmass, and FF crew rotations, crew provisions, and consumables management.

iv. FF sustaining approach, including reliability and maintainability, logistics and maintenance, sustaining engineering, hardware sparing, vendor retention plans and ground testbeds.

v. Approach for FF crew health and medical screening and medical monitoring (pre-flight and in-flight).

vi. Concept of facilities used to support training of FF crew and ground teams.

vii. Approach to mission operations capabilities including FF Control Center operations and supporting ground/space network.

viii. Approach to stowage management of crew provisions, consumables, and spares, including trash disposal and hardware or research return.

d) Safety and Mission Assurance

i. Safety and Mission Assurance Process

The Offeror shall describe their proposed approach for the Safety and Mission

Assurance (S&MA) process from the development through the completion of demonstrations of the FF, including the items listed below:

a. Assurance of crewmember safety and survivability such as providing medical support, safe-haven and emergency egress capability. Include all phases of the

S&MA process (e.g., test operations, range, ground, and flight) incorporating safety, reliability, maintainability, quality, and software assurance.

b. Any utilized Government or industry safety processes standards (e.g., ref: NASA

Procedural Requirement (NPR) 8715.3, Space Station Program (SSP) 30599), including hazard analysis and control (e.g., SSP 30309), and approach for incorporation into the Offeror’s safety process.

c. Interactions between the safety function, engineering function, and project management.

ii. Safety and Mission Assurance Requirements

The Offeror shall identify the S&MA technical requirements to be applied for completion of the FF, including the following:

a. Identify hazard classifications and applicable levels of failure tolerance required.

b. Payload Safety incorporating a Government (e.g., ref: SSP 51700) or comparable standard. Identify hazard classifications and subsequent levels of failure tolerance required.

c. Quality Assurance incorporating compliance with SAE AS9100 standard. Discuss approach for providing independent oversight of safety critical processes by a certified government or industry agency.

e) Technical Risk Management Strategy and External Dependencies

The Offeror shall describe the technical, schedule, and safety-related risks and include the risk level (low, medium, or high) along with a strategy to mitigate each risk. The Offeror shall specifically identify any aspects of their mission strategy that poses a risk to the public, crew, personnel, and high-value equipment and property.

The Offeror shall describe their external dependencies, including U.S. and foreign provider dependencies. The Offeror shall specifically identify any aspects of their mission strategy that are dependent on or can be significantly affected by external factors or dependencies.

The Offeror shall describe their technical approach for ensuring continuous capability to safe the FF in the event of business or technical failure.

4.1.1.3.3 Business Approach

This section shall address each of the content requirements below and provide sufficient information, rationale and any available substantiation for the government to evaluate per

Section 5.5.

Within this section, the proposal shall describe the approach to a long-term FF, consistent with the proposed Technical Approach, SOW, and Commercialization Roadmap (DRD-001).

The Offeror shall define the anticipated dates when individual revenue streams become commercially viable and the recommended dates for initiating and completing a commercially sustained FF. The Offeror shall provide a cash flow summary showing the expected break-even point and the level of profitability at the establishment of a FF in LEO.

a) Governance Structure & Management Strategy

The Offeror shall describe the organizational structure, roles and responsibilities, and governance model including the top-level management team, Board of Directors, and any other advisory boards that impact the decision-making process.

The Offeror shall describe their approach to acquiring the personnel and facilities necessary to implement their Technical and Business approaches. The Offeror shall describe teaming arrangements, as applicable. If selected for award, small business goals will be negotiated as part of contract negotiations post-selection, as applicable, and

Offerors will be required to provide a Small Business Subcontracting Plan, in accordance with DRD-006, Small Business Subcontracting Plan and Reports, detailing plans to achieve the goals specified in clause H.5 Small Business Subcontracting Goals and addressing the requirements of FAR 19.704, if applicable.

The Offeror shall describe their approach to acquiring necessary permits, licenses, titles, approvals, or other regulatory authorizations, as applicable (for example, launch licenses, export control licenses or Technical Assistance Agreements). The Offeror shall describe their insight management approach to interacting with NASA through the contract to ensure an effective technical interchange between NASA and the Offeror throughout the development and operation phases.

b) Commercialization Strategy

i. The Offeror shall describe the portfolio of products and services to be offered and how these will be differentiated from earth-based, sub-orbital and orbital alternatives. The Offeror shall describe the state of readiness for the underlying technology and plans to mature/demonstrate those products and services. The

Offeror shall describe the estimated quantities and pricing of products and services, including key assumptions. The Offeror may include products and services targeting NASA’s long-term needs in LEO (reference Section 1.5:

NASA’s Long Term Goals and Objectives) based on their contribution to the

Offeror’s business case and long-term viability. The Offeror’s portfolio of products and services should focus on services that support long-term viability in the commercial market rather than focus exclusively on NASA’s needs.

ii. The Offeror shall define and describe the market(s) to which it will provide products and services, including size, anticipated growth rate, target customers, domestic and foreign. The Offeror shall provide a market revenue forecast and key assumptions for all proposed products and services over a 15 year period, including total addressable market and expected revenue capture for both

Government and commercial markets. The proposal shall specify anticipated

NASA and non-NASA revenues. The Offeror shall include this revenue data in

Attachment 5: Business Case Analysis Worksheet of the proposal.

iii. The Offeror shall describe the core aspects of its business development strategy, including the plan for marketing and selling products and services, and key assumptions that enable customer acquisition and stimulation of non-NASA demand.

c) Financial Strategy

i. The Offeror shall provide a detailed cost estimate of the various DDT&E activities including non-recurring and recurring engineering, consistent with the approach outlined in the Technical Approach and SOW. The Offeror shall describe the estimated full life-cycle cost to develop, launch, operate and sustain the FF over a minimum of 15 years. The proposal shall describe key assumptions and a basis for the cost estimate, including a breakout of the costs of goods sold and transportation costs for elements, crew and cargo. It is NASA’s intent that the

Offeror is responsible for transportation costs. The Offeror shall include this cost data in Attachment 5: Business Case Analysis Worksheet of the proposal.

ii. The Offeror shall describe the approach and timing for securing the required funds, which may include considerations such as the target Return on Investment

(ROI) or Internal Rate of Return (IRR) to meet investor payback requirements, as well as the exit strategy for major investors. The Offeror shall describe in the

Attachment 6: DRD-001, Commercialization Roadmap the proposed schedule of performance milestones, including payment amounts, objective success criteria, rationale, and planned achievement dates. The Offeror shall specify the funding requested of the Government in the Pricing Proposal and in the response to BAA

Attachment B – Model Contract as specified in Section 4.2.1: Attachment A, B, and C Instructions. Specify the Government funding requested through the completion of the SOW, and include this data in Attachment 5: Business Case

Analysis Worksheet.

d) Business Risk Management Strategy and External Dependencies

The Offeror shall describe risks associated with the Business Approach and include the risk level (low, medium, or high) along with a strategy to mitigate each risk. The Offeror shall describe contingency plans for markets that do not develop as expected and any external business dependencies, including U.S. and foreign provider dependencies. This section shall also describe any relevant macroeconomic factors (such as marketing, potential competition, etc.).

The Offeror shall describe their business approach for financing the technical approach for ensuring the continuous capability to safe the FF in the event of business or technical failure.

e) Organizational Conflict of Interest

In accordance with FAR Part 9.5, Organizational Conflicts of Interest, the Offeror and the

Offeror’s proposal will be reviewed for existing and potential Organizational Conflict of

Interest (OCI) issues in relation to this announcement. Data delivered in the performance of the contract may be provided to NASA support contractors (and/or Commercial

Vehicle Providers). The Offeror shall identify existing OCI issues, if any, and submit a plan to mitigate each issue as part of Attachment 9: DRD-005, Organizational Conflict of

Interest (OCI) Plan of the Offeror’s proposal.

4.1.1.4 Volume 3 – Price Proposal

The Price Volume for the Offeror shall consist of two sections. Each Section shall be clearly labeled. The Price Volume structure shall consist of the following sections:

4.1.1.4.1 Pricing Template

NASA intends to waive the requirement for certified cost or pricing data per FAR 15.403-1(c)(4).

The Price Proposal shall include the completed template provided as BAA Attachment H –

Pricing Template to this Appendix.

4.1.1.4.2 Offeror Narrative / Basis of Estimate

The Offeror’s price proposal shall:

a) Provide traceability to the Technical and Business Approaches.

b) Provide a basis of estimate that explains all pricing and estimating techniques. The basis of estimate for each milestone in the Pricing Template shall include supporting rationale for all deliverables proposed to accomplish the SOW and completion criteria. Additionally, Offerors shall provide payment amounts and milestone completion dates for milestones in the Pricing Template in accordance with their proposed Technical and Business Approaches. The price to NASA reflected in Row 7 of the Pricing Template shall be consistent and traceable to Row 32 of the “Revenue and Cost Info” Tab within the Attachment 5: Business Case Analysis Worksheet required under the Technical Factor.

c) The Offeror’s price proposal shall be submitted in one volume labeled Volume 3

Price Proposal.

4.1.1.5 Proposal Attachments

Along with the proposal, the Offeror shall provide the following attachments:

Attachment 1: Statement of Work

Attachment 2: Model Contract

Attachment 3: DRL and DRDs

Attachment 4: Requested Government Property/Services and LOIs

Attachment 5: Business Case Analysis Worksheet

Attachment 6: DRD-001, Commercialization Roadmap

Attachment 7: DRD-002, Integrated Master Schedule

Attachment 8: DRD-003, Concept of Operations

Attachment 9: DRD-005, Organizational Conflict of Interest (OCI) Plan

Attachment 10: DRD-007, Mishap Preparedness & Contingency Plan

Attachment 11: DRD-008, Safety & Health Plan

Attachment 12: DRD-009, Insight Management Plan

4.2 Additional Proposal Guidance

4.2.1 Attachment A, B, and C Instructions

The Model Contract, SOW, DRL and DRDs are provided as BAA Attachment B – Model

Contract, BAA Attachment A – Statement of Work, and BAA Attachment D: Data

Requirements List (DRL) and Data Requirement Description (DRDs). The Offeror may propose minor exceptions or specific modifications to the Model Contract, SOW, and DRL and

DRDs based on their Technical and Business Approach. These exceptions or changes shall be clearly identified and described, with supporting rationale, and with revision tracking turned ON.

A model contract is provided as BAA Attachment B – Model Contract. The model contract contains specific terms and conditions applicable to this Appendix. The Offeror shall submit this entire model contract with their proposal as Attachment 2: Model Contract with all required

Offeror fill-ins (OFI) completed, clearly indicating proposed modifications and exceptions along with rationale and revision tracking turned ON. Sections designated with the text [TBD] stand for “To Be Determined.” The Offeror shall not fill in the [TBD]s. The Government will update these after contract award. Offerors are cautioned that any material exceptions to the model contract terms and conditions may result in the Offeror’s proposal being deemed unacceptable.

A SOW is provided as BAA Attachment A – Statement of Work, which contains NASA’s minimum mandatory requirements for all defined Milestones. The Offeror shall submit this

SOW with their proposal as Attachment 1: Statement of Work with all Offeror fill-ins (OFI) completed, clearly indicating proposed modifications and exceptions to the NASA-provided

SOW along with rationale and revision tracking turned ON.

The Task Orders shall be Firm Fixed Price. The Government will award IDIQ Task Order 1 at contract award.

A list of data requirements and descriptions is provided as BAA Attachment D: Data

Requirements List (DRL) and Data Requirement Description (DRDs). The Offeror shall submit the DRL and DRDs with their proposal as Attachment 3: DRL and DRDs, clearly indicating proposed modifications and exceptions to the NASA-provided DRL and DRDs along with rationale and revision tracking turned ON.

4.2.2 Use of Government Resources

4.2.2.1 Government Furnished Property and Services

The Offeror shall obtain necessary property and services from a commercial source when available. The Offeror may propose use of ground Government Furnished Property (GFP) or

Government Furnished Services (GFS), as part of their proposal. The Offeror shall complete

BAA Attachment F - Requested Government Property/Services for all proposed GFP/GFS and submit as Attachment 4: Requested Government Property/Services to the proposal. Any requested Government Property/Services will be assessed and may be provided on an as-available, non-interference basis with other NASA priorities and are not guaranteed. Should such requests be approved, these items will be provided in “as-is” condition. In addition, NASA will negotiate reimbursable Space Act Agreements (SAAs), when appropriate.

The Offeror may propose to purchase and take title to surplus government property to be consumed in their technical approach through a directed “negotiated sale” administered by the

Government Services Administration under the authority in NPR 4300.1C, Section 5.4. In this scenario, the Offeror shall define a fair market value for the asset as part of their Business

Approach in accordance with NPR 9090.1 Appendix E.

4.2.2.2 Requests for Government Support

While the majority of work to be completed is anticipated to be performed by the contractor at the contractor or subcontractor facilities, the Offeror may propose the use of NASA facilities, property, and/or workforce to support specialized analysis or services that may be useful for this

Appendix. NASA facilities and property include facilities and property at the NASA Centers and/or at the Jet Propulsion Laboratory (JPL). Workforce is defined as the personnel necessary to support the specialized request from the NASA Center, including supporting contractors, or JPL.

Such requests do not apply to the NASA workforce associated with the management and insight of the contract and are not to be utilized for the provision of any spacecraft ground or flight hardware or software.

The Offeror is encouraged to provide a detailed Request for Support (RFS) to the appropriate

Government POC to obtain a Letter of Intent (LOI) from the Government noting the availability of the requested support and a Rough Order of Magnitude (ROM) cost estimates. The Offeror is requested to submit an RFS for any proposed support within 28 calendar days of release of this

Appendix as described in BAA Attachment I –Request for Government Support

Instructions. The Government POC will coordinate with the NASA performing organization to prepare and deliver the LOI to the Offeror. NASA’s intention to provide the requested support is non-binding, non-exclusive and is contingent on the Offeror’s proposal being selected, relevant

Task Order authorization, and the availability of the requested resources. The Government may refuse any Offeror’s RFS for any reason, and will determine the appropriate implementation strategy and mechanism.