NNJ16HK08B_-_JOFOC_for_Draper_Follow-on_Procurement.pdf

JUSTIFICATION FOR OTHER THAN FULL AND OPEN

COMPETITION

Advanced Guidance Navigation and Control (GN&C) Technology Development and

Analysis Services II

1. This document is a justification for other than full and open competition prepared by the National Aeronautics and Space Administration (NASA)

Johnson Space Center (JSC) in accordance with the Federal Acquisition

Regulation (FAR) Part 6.3, Other Than Full and Open Competition, and NASA

FAR Supplement Part 1806.3, Other Than Full and Open Competition.

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 with the Charles Stark Draper Laboratory (Draper), in the development, maintenance, and application of Guidance, Navigation, and Control (GN&C) products and services for the Aeroscience and Flight Mechanics Division (AFMD). This is a follow-on to the current Advanced GN&C Technology Development and Analysis

Services contract (NNJ11HA31C).

These services are required to maintain essential research and development efforts and practical application of GN&C theory, specifically for human rated space flight vehicles traveling beyond Low Earth Orbit (LEO), where there is currently not a commercial application. Beyond LEO is a unique environment that creates significant GN&C complexities in planetary geometry, orbital dynamics, and the radiation environment that are not encountered within LEO. In addition, manned missions beyond LEO require a higher level of reliability which requires the maximum reduction risk achievable.

These services will support the research, design, analysis, development, simulation, integration, testing, operation, and certification for advanced space systems to include the

International Space Station (ISS) Program and the Multi-Purpose Crew Vehicle (MPCV)

Orion Program. These services are critical to MPCV success as this is the first manned vehicle being developed to leave LEO since Apollo.

3. Description of the supplies or services required, include an estimated value:

The GN&C services required are in the engineering disciplines as well as support in avionics and navigation instrumentation. The services will support MPCV Orion throughout all mission phases and across all segments of the product life cycle and other conceptual vehicles during the contract period of performance.

There are several NASA mission critical tasks for which AFMD requires technical leadership and expertise across the full range of GN&C competency areas. This includes the development, integration, and testing including definition of the GN&C system architecture, requirements definition, performance analysis, system integration, and test and verification. In addition, onboard GN&C flight software support is required to use automatic code generation tools and simulations; integrate design capabilities; and

JOFOC - Advanced Guidance Navigation and Control (GN&C) Technology

Development and Analysis Services II perform flight mode analysis and testing for ascent, entry, on-orbit, and ascent abort.

Tasks include support to develop the GN&C interfaces required for system automation and providing essential technical expertise, lessons learned, tools, technologies, and facilities to support advanced GN&C system and component development for future

NASA science and exploration missions, including crewed and un-crewed vehicles.

Additionally, the ISS Timeliner software Kernel and Adapter requires sustaining engineering for both the ISS onboard and ground Command and Data Handling elements.

The current Advanced GN&C Technology Development and Analysis Services contract, NNJ11HA31C, is a 5-year contract. It was awarded on December 1, 2010, and ends

November 30, 2015.

This follow-on to the Advanced GN&C Technology Development and Analysis Services contract is expected to have a basic period of performance of 3 years from December 1, 2015, through November 30, 2018, with two 1-year options. This will be a hybrid

Indefinite-Delivery, Indefinite Quantity contract with both cost reimbursable and fixed price task orders. The estimated total contract value, including options is estimated to be

$30 million.

4. Statutory authority permitting other than full and open competition:

The applicable statutory authority is 10 U.S.C. 2304(c)(3)(B) and FAR 6.302-3 Industrial mobilization; engineering, developmental, or research capability; or expert services -

(a)(2)(ii), which allows for other than full and open competition when it is necessary to award the contract to a particular source in order to maintain an essential engineering, research or development capability to be provided by a nonprofit institution. Draper is a non-profit research and development laboratory with expertise and experience in GN&C, advanced algorithms and software solutions. More specifically, NASA requires that essential capabilities be maintained, as authorized in FAR 6.302-3(b)(2)(i), for theoretical analyses, exploratory studies, or experiments in any field of science or technology; and

FAR 6.302-3(b)(2)(ii) for engineering or developmental work calling for the practical application of investigative findings and theories of a scientific or technical nature.

5. A demonstration that the proposed contractor’s unique qualifications or the nature of the acquisition requires use of the authority cited:

Draper Laboratory is a nationally recognized laboratory with subject matter experts that were the prime developer of the Apollo and Lander Guidance algorithms for the first landing on the moon and successful return from the moon. Draper pioneered many of the technologies that are used in the GN&C industry today, such as algorithms for rendezvous and docking that were developed during the Apollo program. This Apollo mission experience in GN&C of nine successful lunar flights created proven design and unique lessons learned about the many challenges of GN&C in manned missions beyond

LEO. The GN&C complexities are significantly increased with missions beyond LEO and make returning to Earth much more difficult. Moreover, manned vehicles are more complex in nature due to stringent safety requirements and increased vehicle reliability requirements that NASA imposes to mitigate the potential for loss of crew. Draper’s expertise from the 15 Apollo missions provided proven algorithms as well as flight computer and software that was successful in a man rated vehicle beyond LEO. The proven design reduces program and cost risk and ensures the safe return of crew.

The MPCV program utilizes a majority of the beyond LEO guidance algorithms from the

Apollo missions that Draper developed and leverages the lessons learned. Draper has extensive knowledge and experience in implementation of Human Space Flight (HSF) software from the long history supporting man-rated vehicles through the Apollo, Shuttle, and Space Station missions. This experience developing and implementing challenging and one-of-a-kind hardware and software applications for HSF makes Draper’s engineering services essential to NASA’s mission success.

Draper has provided essential support and leadership to the development, integration, analysis, and testing of the GN&C software and hardware for the Crew Module of the

MPCV Orion vehicle for Exploration Flight Test One (EFT-1) flown December 2014.

The contractor’s skills and experience, especially with the tools, and algorithms they developed for EFT-1, are particularly important for the development and integration of the GN&C system for the Exploration Missions 1 and 2 (EM-1/2), as these missions will leverage heavily from the EFT-1 mission. Any disruption or loss of these unique and essential Draper capabilities will adversely impact the MPCV Program and increase cost, schedule, and risk of meeting the EM-1/2 milestones.

Draper possesses the demonstrated ability to combine the lessons learned from heritage aerospace designs and flight experience with cutting edge technology and “out-of-the-box” thinking to rapidly conceptualize, develop, validate, implement, and evolve innovative and practical solutions to complex GN&C related space flight challenges including real-time on-orbit anomaly resolution.

Additionally, Draper has a unique ability to partner with sponsors for the development of technology and systems without a bias towards production profits. Although Draper maintains the capability for limited production and long-term maintenance support, several developments have been transitioned to industry for full-scale production. Some examples include a transfer of the ISS Timeliner software to Boeing, and the Linear

Covariance analysis tool which is now in use at both JSC and Goddard Space Flight

Center. In addition, the Cygnus Guidance and Targeting and Fault Detection Isolation and Recovery software were developed in conjunction with Orbital Sciences, and the algorithms have been transferred to Orbital Sciences Corporation. In terms of hardware, Draper developed micro-electro mechanical system accelerometers and the technology has been transferred to Honeywell with a licensing agreement.

Another essential aspect of Draper is their strong and vital reach back between their local workforce supporting AFMD and their extensive corporate resources in Cambridge. This ability allows them to draw on a broad and deep technical knowledge base including strategic systems, space systems, tactical systems, special operations, biomedical systems, and energy solutions and facilities to solve practical, integrated, multidisciplinary solutions to complex problems. The Draper Fellow Program provides a link between academia and industry, and specifically with a direct link to the

Massachusetts Institute of Technology (MIT) and Rice University (Rice). MIT and Rice both have professors focused on research related to advanced GN&C. In addition, some of the graduate students thesis work is directly applicable to JSC, such as the vision navigation algorithms thesis. This is also a cost effective way to advance technology, working with graduate students, and receiving access to exceptionally knowledgeable professors. Draper corporate resources also include cutting edge micro electro-mechanical systems hardware and Multi-Chip Module packaging technologies and a

Matrix Laboratory (Matlab) computing grid. The Matlab provides rapid turnaround of

Monte Carlo simulations and real-time mission support and enhances mission success and crew safety. The Matlab has been used extensively for MPCV GN&C development.

6. Description of the efforts made to ensure that offers are solicited from as many potential sources as practicable:

In accordance with FAR Subpart 5.2 in an effort to locate any qualified firms, JSC issued a Presolicitation Synopsis NNJ15534157R on the NASA Acquisition Internet Services on

February 3, 2015, and it closed on February 18, 2015. An extensive amount of information was provided in the Presoliciation Synopsis to help industry determine if they possess the capabilities and qualifications to perform the requirements. As a result, interested organizations were given the opportunity to submit their capabilities and qualifications to the Contracting Officer (CO). As a result of the synopsis, industry responded with written responses from two companies, both from small businesses (see paragraph #8 for details on sources that expressed an interest in the acquisition).

7. Determination by the Contracting Officer that anticipated cost is “fair and reasonable” or best value:

The contractor’s proposed cost will be evaluated in accordance with FAR 15.404-1. The

CO will work closely with the Contracting Officer Representative to determine if

Draper’s proposed price (cost and fee) is fair and reasonable. This includes development of an Independent Government Cost Estimate (IGCE) prior to receipt of the proposal and performing a technical evaluation. Draper’s proposal will be compared against the

IGCE. A technical evaluation will also be performed to analyze the Basis of Estimate for each cost element proposed to assess if Draper’s proposal is adequate to meet the requirements of the Statement of Work (SOW). For example, the proposed labor hours will be evaluated to determine if appropriate skill mix and quantity is adequate to satisfying the SOW requirements. The CO will use cost analysis to determine all proposed rates and factors are fair and reasonable. The proposed rates will be evaluated using Defense Contract Management Agency Forward Pricing Rate Recommendations, the current actual labor rates available to the Government, and the current Department of

Labor Wage and Determination. The reasonableness of any proposed indirect cost and other direct costs (material, travel, subcontract, etc.) will also be evaluated. The NASA

Form 634 Structured Approach Profit/Fee Objective will also be used to determine an appropriate fee. The CO will review the results of the technical and cost analysis to identify any major issues or concerns and to establish the cost positions to negotiate a fair and reasonable price for this effort. Any issues or concerns with Draper’s proposal will be addressed during fact finding and resolved prior to negotiations. Draper will also be required to submit a certificate of current cost or pricing data upon completion of negotiations.

8. Description of the market survey conducted, and the results, or a statement of the reasons a market survey was not conducted:

The market was surveyed through multiple avenues. GN&C market information was solicited and received from Government technical experts. Also, a review was conducted of the existing NASA GN&C contracts. In addition, the Government issued a

Presolicitation Synopsis and received two capability statement responses, one from BMT

Consulting, Inc., and one from Emergent Space Technologies. Each response was reviewed and evaluated against the Presolicitation Synopsis requirements.

BMT is a Disabled-Veteran-Owned Small Business and Other Small Business. BMT is an Information Technology firm that provides technology, administration, and management services to clients of the public and private sectors. The technical review of

BMT’s response found no GN&C hardware or software experience nor any experience with any NASA programs. Overall, the response revealed no relevant experience with any of the Presolicitation Synopsis requirements. Given the information provided, it is determined that BMT cannot meet any of the Government’s requirements.

Emergent is a small business that provides consulting and engineering services in the areas of spacecraft guidance, navigation and control, satellite ground systems, and space mission automation. The technical review of Emergent’s response determined they have a background to address a subset of the requirements listed in the Presolicitation

Synopsis, including some experience with MPCV. However, they failed to demonstrate the required knowledge of GN&C system design, development, analysis, and integration expertise needed to address the full scope of the requirements. Given the information provided, Emergent may be able to meet at most one-third of the Government’s requirements. The requirement Emergent can provide cannot be separated from the scope as it would fragment the overall requirement and create significant gaps in knowledge and skill that would likely increase the schedule and significantly increase susceptibility of risk and error. There is a critical synergy gained by leveraging the knowledge and experience from multiple projects as well as among various tasks within a project which leads to a decrease in schedule time and technical impacts.

Based on the market research conducted the Government has not found any other company except Draper, with the capability, qualifications, and experience to meet the

Government’s minimum requirements.

9. Other facts supporting the use of other than full and open competition:

Draper possesses an unmatched combination of technical experience, high quality skills, and expert knowledge concerning HSF and integrated GN&C service. Draper also has experience working with international partners, having formed strong international relationships, which will help with integration of the MPCV Service Module, which is being built by the European Space Agency. It is in the best interests of the Government to maintain its 40 year partnership that leverages Draper’s integrated GN&C expertise and prevents the loss of the invaluable knowledge base and capabilities that provides an essential engineering, research and development capability.

As an independent nonprofit institution, Draper is less encumbered by organizational conflict of interest issues and is uniquely positioned to advise the Government with unbiased technical inputs and recommendations on advanced GN&C systems and components from concept development through system integration, implementation, and operation.

Per FAR 31.702 and the Office of Management and Budget (OMB) Circular A-122, Draper is listed as a non-profit that is exempt from the cost principles that are laid out in

OMB Circular A-122. This allows Draper to earn fee. Any fee earned is applied to activities such as corporate funded research development efforts that benefit future programs by enhancing next generation technologies that ultimately provide a benefit to the Government. There are multiple examples of these activities that have benefited JSC including the development of next generation Extra Vehicular Activities and application of advanced control techniques to save fuel and provide better worksite stability;

development of a software based computer voting architecture for human rated systems;

advancement of interoperability and reduction of size, weight, and power; advancement of multicore computing systems for Space and Fault tolerance which are needed to process the amounts of data required for future deep space missions; research of future avionics architectures for future human rated exploration systems; application of

Multicore Computing packaging techniques for use with integrated circuits for space; the study of the operation of spacecraft around very low gravity bodies such as asteroids and the moons of Mars; vehicle fault management which builds the modern tools and infrastructure to develop vehicle fault management systems; development of Advanced

Aerocapture and advanced Entry, Descent, and Landing Guidance techniques applicable to any vehicles returning from beyond LEO; and the PredGuide guidance algorithm that flew on the Orion EFT-1 test flight back to earth.

10. Sources, if any, that expressed an interest in writing in the acquisition:

Two written responses were received.

1. BMT Consulting, Inc (Disabled-Veteran-Owned Small Business and Other

Small Business)

1337 Locust Road, N.W.

Washington, DC 20012

Phone: (202) 441-7220

2. Emergent Space Technologies (Small Business)

6411 Ivy Lane, Suite 303

Greenbelt, MD 20770

Phone: (301) 345-1535

11. The 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:

Draper’s business model is to transition development to industry for full-scale production allowing for transition of the critical technology to other companies. This transfer of technology advances the engineering capability of the overall industry, which is a benefit to the Government and enhances the competition of future GN&C efforts. This allows companies other than Draper to develop capabilities that could allow competitive procurements for these requirements in the future.

NASA will continue to assess the GN&C industry capabilities and qualifications to see if they can satisfy the Governments requirements. As opportunities to fulfill new GN&C requirements materialize, NASA will compare the governments need with the qualifications available in the GN&C industry. The new requirements will be assessed pre-award for their ability to competitively fulfill the requirement. Agency-wide, NASA strives to seek out new sources and make requirements open for competition when industry can meet the capabilities and qualification