Revised JOFOC - Keysight Radio Frequency HW and SW_Redacted.pdf

Rev.:4/2026

NATIONAL AERONAUTICS AND SPACE ADMINISTRATION

NASA IT Procurement Office (ITPO)

JUSTIFICATION FOR OTHER THAN FULL AND OPEN COMPETITION

(JOFOC)

Keysight Radio Frequency Channel Emulation Hardware and Software

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) IT Procurement Office (ITPO).

The procuring agency is the NASA and the contracting activity is ITPO.

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 for Keysight brand of Radio Frequency (RF) Channel Emulation Equipment and Vector Signal Analyzer (VSA) Test Set License requirement for use on the Surface Exploration Avionics Laboratory (SEAL) project under the Moon Base program at Johnson Space Center (JSC). The period of performance is seventeen weeks,

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):

Keysight’s RF channel emulation systems provide a high-fidelity way to recreate real-world wireless conditions in a controlled laboratory environment. They can accurately simulate challenging signal effects such as reflections, motion-induced distortion, interference, and weak or obstructed signals, using industry-standard channel models that match real operating environments. Keysight is the only brand capable of delivering the RF Channel Emulation and VSA test licenses that meet the technical performance, integration, and schedule requirements of the SEAL Project. The lab is an environment for testing, integrating, and validating lunar surface avionics systems and uses emulators, ground test systems, and integrated testbeds to reproduce realistic mission conditions, enabling early detection of design issues while reducing risk, cost, and schedule impacts during later mission phases. It also directly supports requirements analysis, system integration, performance monitoring, and maintenance for Artemis surface avionics, making it an essential capability for mission readiness and certification. This acquisition is required for the continuation of ongoing work, uninterrupted testing, validation, system development activities and emulating RF channel impairments in a controlled environment.

Rev.: 4/2026

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 for acquisitions using the procedures in FAR.102 is 41 U.S.C. 1901.

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)(5) is this is a brand name requirement for the Keysight brand.

Keysight’s RF emulation platform provides a uniquely comprehensive and scalable environment for validating modern wireless systems. The Keysight PROPSIM radio channel emulator provides highly accurate, real-time emulation of complex RF propagation environments, enabling controlled replication of real-world effects. It allows engineers to test radio, devices, and full communication systems under realistic, repeatable conditions in the lab. The solution can provide the minimum of 32 channels necessary to accurately emulate multipath interference and fading across complex, large-scale wireless network topologies, which is essential for realistic lunar environment testing and system validation. Other unique capabilities include the industry-leading massive Multiple-Input Multiple Output (MIMO), an advanced wireless technology that uses a large number of antennas that enables a greater capacity of data, coverage and signal reliability and wide frequency and bandwidth coverage.

The Keysight solution has a minimum of eight simultaneous 100–400 MHz Vector Signal Analysis (VSA) channels that are required to support real-time and recorded evaluation of IEEE 802.11ac/ax/be signals (Wi-Fi 5, Wi-Fi 6, and Wi-Fi 7) and 3GPP-based waveforms for 4G Long Term Evolution (LTE) and 5G New Radio (NR). This capability is essential for validating multi-band, high-throughput communication links within the agency’s communications architecture. The system’s capability for portable spectrum and network analysis, including in-situ I/Q signal capture and calibrated hardware characterization, is vital for recording and playback within a controlled channel emulation environment.

Keysight’s platform delivers a scalable, realistic, and future-proof environment for validating advanced wireless systems. It supports high-density multi-antenna configurations, wide bandwidth coverage and mission-critical advanced software and simulation integration.

Overall Keysight’s solution will fully meet the high-complexity, high-fidelity RF test needs for current and future mission communications systems, while also offering the scalability and flexibility required for long-term program growth as well as integration into the existing Keysight infrastructure.

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 5.1 and, if not, which exception under 5.101 applies:

A notice to the Government Point of Entry (GPE) website (Sam.gov) was published on 06/01/2026, in accordance with FAR Subpart 5.1.

The CO determination is to solicit this action as Brand Name Full and Open on the Open Market.

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 Contracting Officer has determined that the anticipated cost to the government will be fair and reasonable. The Contractor shall be required to submit a proposal to be evaluated and negotiated by the Government. Prior to execution of the contractual instrument, a proposal analysis will be performed. The proposal analysis will ensure that the final agreed-to price for the contract action is fair and reasonable. In accordance with FAR 15.4, the Contracting Officer expects to use historical prices for the price analysis.

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):

Market research indicates that Keysight is the only brand capable of meeting the technical, interoperability, cybersecurity, and deployment schedule requirements of the agency. This solution is essential to enable hardware-in-the-loop testing of communication systems for NASA and provide space vehicles operating on the lunar surface. The integration between the laboratory at JSC and the existing Keysight infrastructure at GRC is essential to support advanced testing, validation and mission assurance requirements. Market research was conducted to identify commercially available RF platforms capable of meeting the needs of the agency’s technical and operational requirements, including system compatibility, performance specifications, and advanced testing capabilities. This research included a review of commercially available products, industry sources, and vendor capabilities. The capabilities of Rohde & Schwarz, Anritsu, Teledyne and L3 Narda were all reviewed and analyzed as alternative solutions. While each alternative provides their own unique capabilities they lack the broader more integrated RF test and emulation capabilities that Keysight offers. Keysight provides stronger scalability for multi-antenna and wideband applications, deeper automation support, and superior integration across cellular, satellite, wireless networking, and mission-critical domains.

Keysight is the only commercially available solution that delivers a comprehensive, flexible, and future-proof solution that reduces the need for multiple specialized systems and allows for hardware and software integration within the existing NASA infrastructure. Keysight’s equipment also offers unique technical capabilities, including high-fidelity channel modeling, real-time signal processing, and advanced measurement accuracy, which are not offered by other vendors in a single integrated solution. Based on the results of this market research, Keysight is the only approach that meets NASA’s current enterprise requirements without risking major disruption to mission and program operations.

Transitioning to any alternative platform would introduce substantial technical and programmatic risks, including incompatibility, impact testing timelines, degraded performance, and schedule delays to the Moon Base program. NASA’s Moon Base program is a multi-phase effort to establish a sustained human presence at the lunar South Pole. The program focuses on critical capabilities such as power generation, mobility, communications, in-situ resource utilization, and logistics, all supported through strong commercial and international partnerships. Its surface-first strategy, science objectives, and role as a stepping-stone to Mars create clear long-term value and strategic benefit, justifying sustained investment. The RF channel emulator’s ability to support microwave frequencies is fundamental to this program by advancing the technologies that enable autonomous operations on the Moon, Mars, and beyond.

Keysight is the only solution specifically designed and validated to operate seamlessly within the existing Keysight environment and is fully supported under Keysight’s global service and support infrastructure ensuring continued compatibility, firmware/software alignment and lifecycle support.

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 (See Section 6 above).

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 Agency will continue to examine the market in the future for alternative solutions or new sources before executing any subsequent acquisitions for the same requirements.