Signed_JOFOC_for_FedBizOpps.pdf

NATIONAL AERONAUTICS AND SPACE ADMINISTRATION

GEORGE C. MARSHALL SPACE FLIGHT CENTER

NNM07AA75C

PR: JOFOC #16-10

JUSTIFICATION FOR OTIIER TIIAN FULL AND OPEN COMPETITION (JOFOC)

PURSUANT TO TITLE 10 U.S.C. 2304 (C) (1)

1. This is a Justification for Other Than Full and Open Competition (JOFOC) prepared by the NASA Marshall Space Flight Cent.er (MSFC) in accordance with Federal Acquisition Regulation (FAR) Part 6.3, Other Than Full and Open Competition, and NASA FAR Supplement (NFS) Part 1806.3, Other Than Full and Open Competition, FAR 6.302-1, ''Only One responsible Source and No Other Supplies or Services Will Satisfy Agency Requirements."

2. Nature and/or description of the action being approved:

NASA MSFC proposes to add and redirect the current obsolescence activities under the statement of work associated with the Space Launch System (SLS) Booster from Orbital ATK, Inc. (OATK), due to the age and depletion of existing heritage Space Shuttle hardware. The changes proposed will result in an efficient use of contractor resources directed toward solving known and unknown obsolescence issues, based on SLS program priorities.

The Agency plans to use the existing baselined SLS Booster hardware components through the flight of Exploration Mission 3 (EM-3), which will be the third SLS flight. In addition, NASA plans to utilize the existing SLS Booster contract's established personnel and unique facilities to initiate research and development on SLS Booster obsolescence issues that could affect SLS flights beyond EM-3. The activities to address obsolescence for the current SLS Booster do not replace or preclude the future competition of an Advanced Booster since an Advanced Booster will likely be needed to meet some of the future flight requirements such as landing on Mars. NASA bas not determined at this time when the flight manifest will require the use of an advanced booster. Meanwhile, NASA desires to make the best use of available heritage Space Shuttle hardware components along with advances in technology to ensure the current SLS booster, or an evolved version of it, could be available for flights that take place prior to the development of an advanced booster. This contract's obsolescence activities will be performed though the end of the contract's EM-3 period of performance; obsolescence activities will not extend the contract's period of performance. It is anticipated that EM-4 will require a new contract and if applicable will include additional obsolescence activities. The obsolescence activities being added to the current contract, NNM07 AA 7 SC, are considered new scope since this magnitude of obsolescence activities was not initially considered in the previous Justification for Other Than Full and Open Competition (JOFOC) for the Ares !First Stage which was selected by NASA as the SLS Booster.

NASA MSFC shall issue a modification to SLS Booster contract, NNM07 AA 75C, with OATK to direct the contractor's efforts to implement booster obsolescence activities in accordance with specified priorities.

These actiVities will addn:ss long-term obsolescence issues and evolve components to incorporate advancements in materials and processes .

3. DesCription of the supplies or services required to meet the agency's need, including estimated value:

The focus areas for the SLS Booster obsolescence activities are thrust vector control, booster structures, and cases. These priority areas are based on the age and depletion of Space Shuttle heritage hardware. The statement of work for these obsolescence activities will include : (1) one year of requirements definition;

(2) one to two years evolved options, design trade studies, preliminary designs, and off-ramp definitions;

and (3) defined Design, Development, Test, and Evaluation (DDT&E) scope that initiates development

JOFOC Form (Rev 0512016) Pagel of5

NNM07AA75C

testing. Some additional areas may be developed concurrently as they interrelate with the focus areas (including but not limited to, avionics and nozzle, and propellant). This effort will not extend the current contract's period ofperfonnance or add additional flight motors beyond EM-3. This effort might include producing demonstration motors, if needed; however, no new qualification motors or booster flight tests would be covered under this justification.

For the avionics, efficient concurrent development may be needed for the Thrust Vector Control (TVC) system since each system relies heavily on the other. The current TVC system uses hydrazine and NASA desires to phase out the use of this Space Shuttle heritage system due to its hazardous nature.

The priority for Booster structures and cases obsolescence is driven by the existence of a limited number of heritage assets. Although NASA has not yet decided the future acquisition strategy for Boosters post EM-3, or the acquisition strategy for Boosters after the last available flight set (in the best case, available assets could support flights through EM-8), if additional structures and cases arc needed, the ability to produce additional such a,ssets in support of SLS would be cost prohibitive using the existing materialB and processes. Development efforts on replacement hardware designs have to be initiated far in advance of the need date for such hardware.

The contract modification will enable task orders to be written with a potential of up to $250,000,000. This will include labor hours and materials in support of testing.

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

This Justification for Other than Full and Open Competition ( JOFOC) is made pursuant to FAR Subpart 6.302-1 , which implements the authority for 10 U.S.C. § 2304(c)(l) for acquisition of supplies or services from only one source and no other supplies or services will satisfy agency requirements.

This authority supports the obsolescence activities of a major system, the SLS Booster, where it is likely that award to any other SOW'CC at this time would result in substantial duplication of cost to the Government that is not expected to be recovered through competition, as well as una.cccptable delays in fulfilling Agency requirements. As the SLS Booster DDT&E and manufacturing contractor, OATK is the only source that has the extensive knowledge and understanding of the SLS Booster design and functional capabilities, requisite testing experience, modeling of performance, and the tooling to manufacture a solid propellant booster of this size in the United States. Additionally, during the Space Shuttle era through today, OATK has been and continues to be the only United States based source of highly specialized services of development and production of NASA's human-rated solid rocket boosters which are major components ofSLS.

This action will modify the current SLS Booster contract As it relates to FAR 6.302-1 ( a)(2)(ili)(A), NASA has a substantial investment in SLS specific tooling and processing equipment which is uniquely integrated into OATK facilities. Any replication of such assetS would create a substantial duplication of cost to the Government. As it relates to FAR 6.302-1 (a)(2)(iii)(B), such modifications of an existing system require intimate knowledge of the basis for the design and analysis of the current booster as well as how the booster integrates into the SLS vehicle. OATK is the only source with such knowledge of the existing design and currently maintains cognizance of all models, drawings and anal}'llis for the current system.

Developing another contractor's capability to the level of OA TK would result in substantial unacceptable delays in fulfilling the agency's requirements. Fwthermore, due to the industry consolidation over the decades OA TK is the only domestic source known to possess the infrastructure and physical ability to manufacture a large solid propellant based booster to the scale required for the SLS vehicle. This larg~ scale manumcturing capability will be needed in the development and testing of new hardware to address obsolescence issues.

S. A demonstration that the proposed contractor's unique qualifications or the nature of the acquisition requires the authority cited:

JO.FOG Form (Rev 0512016) Page 2 ofS

OA TK has unique insight regarding the obsolescence of the SLS Booster due to their prime contractor involvement in the booster redesign from the 'Space Shuttle solid rocket 4-segment motor to the 5-segment SLS Booster. The SLS Booster encompasses the solid rocket motor, separation system, avionics, nose cap, and aft skirt hardware. Other sources would result in substantial duplication of cost to the government that is not expected to be recovered through competition. OATK has evolved the NASA solid rocket booster from the 1970's through today. OATK has developed and maintained the design and analysis engineering, for the solid rocket motor from the Space Shuttle to the SLS Booster.

Only OA TK bas established unique facilities to readily perform testing and evaluation required for this effort. NASA and OA TK have a substantial investment in buildings and equipment located on-site at OA TIC that will be beneficial in analyzing evolvability of the large motor such as decks that rotate motors, large scale casting pits, large crane capabilities, non-destructive evaluation, and test stands capable of accommodating a full range of test environments for largo-scale solid rocket motors. A large portion of the Government-owned facilities and equipment are integrated with and cannot feasibly be relocated away from the OA TK facility. Included in these facilities is a storage facility that is unique for the handling of a large scale motor like that required for the SLS Booster, and an x-ray facility used to detect imperfections in propellant and insulation. In addition, OATK. supports multiple Government agencies that utilize and share solid rocket knowledge and facilities at Promontory, Clearfield, and Bacchus, which cannot be met with any other contractor due to the unique business base developed by OATK. Duplicating this infrastructure, equipment and knowledge with another contractor at one or multiple facilities would result in a substantial duplication of cost estimated in the hundreds of millions of dollars based on the most recent similar effort which was to construct the Bacchus West Facility at OATK's Magna Utah location which represented an investment of approximately $350 million dollars in 1985.

OA TK. has unique capabilities and facilities to conduct this effort in Bacchus and Promontory Utah:

1. Depth and diameter of casting pits are unique to OATK.

2. Only identified domestic supplier that can provide composite filament wound case segments ofSLS

Booster diameter and structural requirements

3. Only entity with the design authority to perform the required performance enhancements associated with the obsolescence and service life extension effort. Design authority refers to the prime contractor accountability for ensuring the integrity of the SLS Booster with an inward focus on reliability, safety, and performance and with an outward focus for consistency with the SLS infrastructure planning, interfaces with other SLS hardware and Ground Launch systems, ensuring that new and upgraded systems are fit for purpose and comply with the standards necessary to maintain a robust, consistent, efficient, effective and integrated technical infrastructure. Any other contractor would lack the specific knowledge, basis and capabilities needed to evaluate any SLS Booster changes to impact the SLS Vehicle.

4. OATK has unique technical understanding of the baseline design

5. Only facility able to incorporate integrated design, development, test, and evaluation

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

This proposed contract action was published on September 2, 2016, as a prcsolicitation synopsis in accordance with FAR Subpart 5.201 via the Government Point of Entry (FedBizOpps). The Internet site, or URL, for the Federal Business Opportunities home page is www.fesibjzopps.gov.

7. A determination by the contracting officer that the anticipated cost to the Government will be fair and reasonable:

A cost analysis will be performed as described in FAR Subpart 15.4, Contract Pricing. OATK. will submit a proposal that will be evaluated and negotiated by the Government All sources such as the Contracting Officer, cost and price analysts, the Defense Contract Management Agency (DCMA), and Government technical representatives will be utilized in the determination of a fair and reasonable cost/price as well as

JOFOC Form (Rev 0512016) Page 3 of5 historical information concerning the DDT &E for the SLS Booster. In addition, after negotiations OA TK will render A Certificate of Current Cost or Pricing Data to further solidify a fair and reasonable cost/price.

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

Marlcct research for the proposed acquisition included information obtained from the Apollo Program, Space Shuttle Program, the Constellation Program, and the SLS Program that led to the establishment of the SLS architecture.

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

The NASA Authorization Act of 2010 directed NASA to initiate the development of a new SLS vehicle leveraging existing propulsion systems. This action directly aligns with the strategy for risk and cost minimiz.ation by using existing contracts, investments, workforce, industrial base, and capabilities. OA TK is the only United States large-scale solid rocket motor facility.

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

There were no formal responses to the presolicitation synopsis posted in accordance with Section 6 above.

11. The actions, if any, the Agency may take to remove or overcome baniers to competition before any subsequent acquisition for the supplies or services required:

Due to the extensive, unique, and historical knowledge and experience ofOATK with the SLS boosters and their predecessors, there are no specific actions that the Agency may take at this time to remove or overcome barriers to competition for the activities descnbed. OATK's unique knowledge of and experience with large scale solid rocket motors, and its established facilities and manpower available while it serves as the SLS booster prime contractor puts OATK in the only position to successfully satisfy the Government's requirement for addressing booster obsolescence issues.

I hereby certify the facts in this justification and any supporting data used for this justification are accurate and complete to the best of my knowledge.

/!?--rd?~ Alex S. Priskos Manager, Booster Project Office

I hereby certify that the above justification is complete and accurate to the best of my knowledge and belief. In addition, I hereby determine that the anticipated cost to the Government will be fair and reasonable.

Ke ·e D. Craig Contracting Officer Office Manager

JOFOC Form (Rev 0512016) Page 4 of5

Concurrence:

~c07J· Steven C. Miley ~ Procurement Officer

William H. Gersten.maier Head of Contracting Activity

~ ft ' Mom~~~ Agency Competition Ad-

Approved:

JOFOC Fonn (Rev 0512016)

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