SAMDA Extension JOFOC_FINAL 8-23 Sanitized.pdf

Rev.:4/2023

NATIONAL AERONAUTICS AND SPACE ADMINISTRATION

GODDARD SPACE FLIGHT CENTER (GSFC)

JUSTIFICATION FOR OTHER THAN FULL AND OPEN COMPETITION

(JOFOC)

FOR SUPPORT FOR ATMOSPHERIC SCIENCES, MODELING AND DATA

ASSIMILATION (SAMDA) CONTRACT NUMBER NNG17HP01C

1. Federal Acquisition Regulation (FAR) 6.303-2(b)(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 the

National Aeronautics and Space Administration (NASA) Goddard Space Flight Center

(GSFC).

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

2. FAR 6.303-2(b)(2) – The nature and/or description of the action being approved:

The Earth Sciences Division (Code 610) at NASA's Goddard Space Flight Center (GSFC) plans, organizes, evaluates, and implements a broad program of research on our planet's natural systems and processes. Major focus areas include climate change, severe weather, the atmosphere, the ocean, sea ice and glaciers, and the land surface. Code 610’s procurement portfolio consists of the Goddard Institute for Space Studies (GISS) contract (scientific contract support services for the GISS facility in New York), the Space and Earth Science

Data Analysis (SESDA) contract (contract support for Earth and Space science research and development), the Hydrosphere, Biosphere, and Geophysics (HBG) contract (contract support that conducts science research that conceives, develops, and applies space, field-deployed (i.e. airborne and in situ) and laboratory), and the Support for Atmospheric Science

Modeling, and Data Assimilation (SAMDA) Contract (providing contract support for the atmospheric science and data assimilation research and the full range of activities for the

ESD’s Global Modeling and Assimilation Office).

This justification provides the rationale for using other than full and open competition to continue the services provided under the SAMDA contract number NNG17HP01C, with

Science Systems and Applications, Inc. (SSAI) for a period of nine (9) months which is beyond the current contract expiration date of August 31, 2024. Below identifies the history of the contract’s period of performance:

Period of Performance (POP)

Basic Contract Award March 1, 2017-Feburary 28, 2022

Modification 91 – Extended the contract by six (6) months

This action was in accordance with (IAW)

Clause 52.217-8 Option to Extend Services.

The POP was extended to August 31, 2022.

This extension was initiated to accommodate the SAMDA II procurement.

Modification 101 – Extended the contract by six (6) months

This action was in accordance with an approved JOFOC which extended the POP to February 28, 2023. This extension was initiated to accommodate the award of the

SAMDA II procurement.

Modification 110 – Extended the contract by 12 mos. with 6 1-month options

This action was in accordance with an approved JOFOC which extended the POP ultimately to August 31, 2024. This extension was initiated to accommodate the cancellation of the SAMDA II procurement and determine the most appropriate procurement strategy for moving forward.

This current JOFOC is being processed to accommodate additional time needed for the issuance of the requests for proposals and evaluation periods for the follow-on procurements.

Significant time and effort was taken to develop a revised Procurement Strategy for the follow-on to SAMDA. Specifically, it was determined that the SAMDA requirements will be procured as two separate contract vehicles identified as Atmosphere Support (ATMOS) and

Global Modeling & Assimilation Support (GLOMAS). The decision to resolicit the

SAMDA contract as two separate contract vehicles was primarily based on the inability to award the SAMDA II contract. The limited amount of competition received during the

SAMDA II procurement coupled with responsiveness to solicitation requirements within the proposal identified that a change needed to be considered with the procurement strategy. It has been determined, through consultation with the GSFC Industry Assistance Office, along with representation within the earth sciences industry (both small and large businesses) and

Senior Center and Procurement Management, that the approach of two separate procurements will increase opportunities and promote competition amongst small businesses. According to the new schedule, it is anticipated that both follow-on procurements will be awarded by April

2025. The POP for both contracts is anticipated to have a Five (5) Year Ordering Period, with a 45-day phase-in period required to ensure continuity of service, adequate staffing and training of personnel, and risk mitigation.

3. FAR 6.303-2(b)(3) – A description of the supplies or services required, to meet the

Agency’s needs (including the estimated value):

The SAMDA contract supports the full range of research and development activities of the

Earth Sciences Division – Atmospheres (Code 610AT) and the Global Modeling and

Assimilation Office (GMAO, Code 610.1), and the operational activities of the GMAO. The areas where support for the Atmospheres portion of the SAMDA contract include: (1)

Instrumentation, (2) Data Processing and Analysis, (3) Earth System Modeling and Analysis,

(4) Documentation and Presentation, (5) Education and Public Outreach, and (6) Mission

Science. Specific elements within the mentioned areas include: design, develop, test, maintain, calibrate, and operation of sub-orbital instruments for atmospheric and solar observations; processing and analysis of data collected by instruments observing the Earth atmosphere or solar radiation from spacecraft, sub-orbital platforms, or the ground;

development, testing, operation, improvement, and documentation of computer models that describe Earth system processes; support project scientists in the formulation, implementation, and operation of satellite missions; support the preparation of research proposals, refereed journal publications, manuscripts for symposia, and provide communications of research objectives and results both within NASA and to the general public in a formal and informal way.

This contract also provides support to the GMAO including development and use of models and assimilation systems with the goals of advancing the utility of satellite data in weather and climate prediction and using satellite data to advance the environmental modeling capabilities of the United States. The Contractor provides support services in all aspects of:

(1) development, testing, operation, improvement, software optimization, and documentation of all Earth System Model (ESM) components; (2) development, testing, improvement of data assimilation techniques that incorporate new and existing NASA space-based satellite and in situ observations into stand alone and coupled systems; (3) production, execution, and public dissemination of various ESM reanalyses and real-time forecasts; (4) preparation of research proposals, presentations, refereed journal publications and manuscripts for symposia proceedings, and generation and dissemination of outreach materials; and (5) support for research projects that contribute to improving all aspects of the NASA Earth System

Modeling and data assimilation efforts.

NASA GSFC is proposing to increase the contract maximum ordering value by an amount of

$38 million and extend the current contract effective ordering period by an additional 9 month period for continued performance and continuation of mission critical services under the SAMDA contract.

4. FAR 6.303-2(b)(4) – An identification of the statutory authority permitting other than full and open competition:

The statutory authority permitting other than full and open competition is 10 U.S.C. 2304(c)

(1), as implemented by FAR 6.302-1 Only one responsible source and no other supplies or services will satisfy agency requirements (10 U.S.C. 2304(c)(1)).

5. FAR 6.303-2(b)(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. 2304(c) (1) is that a sole-source extension to

Science Systems and Applications, Inc (SSAI) is necessary due to the critical nature of the work to be performed, the essential need for continuity of research and development activities, and because NASA currently has competitive follow-on procurements underway.

As the incumbent contractor, SSAI is uniquely qualified to provide services required during this contract extension since they have been performing these services for over seven (7) years. It is essential for contractor support to continue for the period of time necessary for the award of the ATMOS and GLOMAS 5-year contracts. SSAI is able to continue providing support without requiring a transition period and/or the normal learning curve typically encountered by new incoming contractors. Successful contract performance requires highly specialized personnel with niche expertise, and any other contractor would need to recruit, replace, and onboard specialized staff who elect not to leave the incumbent contractor.

Integrating new team members requires a long runway before full work productivity and effectiveness is achieved. An interruption and restart of these highly specialized services with a new contractor that is unfamiliar with the NASA GSFC environment and the specific requirements of the SAMDA contract would greatly jeopardize the successful implementation of critical and highly visible Agency programs. Should these services be interrupted, NASA will be unable to produce critical data products required by other NASA projects. SSAI is considered the only contractor that can meet GSFC’s needs given the ongoing nature, complexity and uniqueness of the activities that will be performed under the extension period of the contract.

This proposed extension, and increase to the maximum ordering value, will extend the existing contract for only the minimum length of time necessary to conduct new follow-on procurements and to phase-in these new contracts, while ensuring that NASA’s requirements are met in a manner that is compliant with procurement regulations. The previous SAMDA II procurement was delayed by numerous protests, including a NAICS code protest, a Business

Size protest and an Agency-level protest. Subsequently, the requiring organization determined that the requirements have evolved since the previous solicitation was issued. It was therefore necessary to update the SOW requirements to remove areas that are no longer required, and to add, modify or clarify other SOW areas based on current requirements.

Making use of lessons learned from the previous SAMDA II will optimize the procurement process and achieve a more successful outcome.

A sole source modification is necessary for uninterrupted continuation of mission critical support, to avoid duplication of cost if competed, and avoid unacceptable schedule delays to the numerous NASA/GSFC programs listed in this document. This work includes ongoing and upcoming multi-agency airborne field campaigns, algorithm maintenance and processing of operational satellite data, development of algorithms and instrumentation support for

Flight projects, support for NASA Research and Analysis (R&A) funded technology development, and maintenance of the GMAO real-time global modeling and data assimilation systems. Interrupting these activities would prevent the Earth Sciences Division from meeting schedules and deliverables set by NASA Headquarters and by Federal customers.

In summary, SSAI has been determined to be the only contractor that can meet

NASA/GSFC’s continuing needs during this contract extension period. Extending the existing contract while conducting the follow-on procurements is necessary to ensure that critical services are uninterrupted without unacceptable delay, that there is a smooth transition of the work, while maintaining compliance, mitigating risks, and optimizing the value of the follow-on contracts for the requiring organization.

6. FAR 6.303-2(b)(6) – A description of the efforts made to ensure that offers are solicited from as many potential sources as practicable, including whether a notice was or will be publicized as required by Subpart 5.2 and, if not, which exception under 5.202 applies:

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

August 9, 2024, in accordance with FAR Subpart 5.2. This posting informed potential sources of NASA’s intent to award this sole-source extension to Science Systems and

Applications, Inc. The results of this synopsis are summarized in Section 10 below.

7. FAR 6.303-2(b)(7) – A determination by the contracting officer that the anticipated cost to the Government will be fair and reasonable:

The SAMDA contract was a competitively awarded IDIQ contract with work authorized by individual task orders, which are priced using the labor categories and fully burdened direct labor rates established in the contract under Attachment B. These established rates are on an annual basis and cover the remaining ordering period. During the previous SAMDA contract extension, the Contracting Officer requested and reviewed labor rates for Contract Years

Seven (7), Eight (8), and Nine (9). With the execution of Modification 110, the Contracting

Officer has already determined these rates and fair and reasonable.

In addition, the Contracting Officer’s Representative and the Contracting Officer will review the contractor’s task plans and estimates to determine that the direct labor rates, direct labor hours, skill mix, other direct costs, indirect costs, and fee(s) are fair and reasonable prior to each task being issued, as is the practice with the current contract.

8. FAR 6.303-2(b)(8) – Description of the market research conducted, and the results, or a statement of the reasons market research was not conducted:

Attention was given to the market research given the circumstances surrounding the

ATMOS/GLOMAS procurements. Through the circumstances associated with the cancelled

SAMDA II procurement, industry was consulted on various options to proceed with the follow-on procurement. Many responses were received from all business sizes for the two

Request for Information (RFI) documents that were released by the Government for SAMDA

II and GLOMAS/ATMOS. This market research demonstrated that splitting the existing contract into two contracts would likely result in increased industry interest and competition.

Based on the evaluation responses, it was determined that the best acquisition approach for the follow-on requirements is to compete two separate procurements identified as ATMOS and GLOMAS. This approach has been concurred upon through GSFC Center Management and Headquarters Office of Procurement.

NASA GSFC has determined there are no alternate sources that can take on full contract responsibility for this bridge period without the risk of an unacceptable delay to the Earth

Science work performed under the SAMDA contract, given the complexity of the services involving a substantial number of task orders (approximately 85). The Government would unnecessarily incur significant additional cost if another contractor were to perform this effort that is not expected to be recovered in a competition for this bridge period.

A competitive contract is expected to be awarded by the end of this proposed contract extension. An assessment of other existing current contracts was made with the conclusion that no viable contract vehicles existed that could reasonably support the requirement.

9. FAR 6.303-2(b)(9) – Any other facts supporting the use of other than full and open competition:

The period of performance under the current contract does not permit sufficient time to conduct the follow-on procurements. When offerors are aware that multiple procurement opportunities are forthcoming, they may be more inclined to offer competitive pricing, better terms, or additional value-added approaches to secure the business. The Agency’s decision to split the current procurement into two separate procurements required careful consideration and involved extensive internal consultation. It was crucial to allocate the necessary amount of time needed during developing the strategy to ensure that the objectives and terms of the new contracts align with the stakeholders within the requiring organization, resulting in the current procurement strategy.

Extending the existing contract provides the Agency with the necessary time to complete the competitive follow-on procedures diligently, without compromising the quality or fairness of the procurement process. Since the Government anticipates more offerors among the two procurements, extending the existing contract for 9 months will allow the necessary time to properly conduct these procurement activities.

10. FAR 6.303-2(b)(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). The synopsis notified all interested sources that this requirement will be issued on a sole-source basis and provided them an opportunity to submit their interest and capabilities to the Contracting Officer within

15 days of the synopsis publication. The synopsis closed August 23, 2024, and the

Government received responses from two interested parties: Hanson Autonomous

Fabrication, LLC and Bay Area Environmental Research Institute (BAERI). Upon the review of the capability statement from Hanson Autonomous Fabrication, LLC, it was identified that the company’s focus is in automated fabrication, with expertise in 3D printing, design, and feasibility studies. Therefore, it was determined that this vendor did not demonstrate the ability, experience, or resources to provide the support as required by the

SOW.

Following review of BAERI’s capability statement, the technical team identified that

BAERI’s proposed team lacks key capabilities that are required to take over execution of the entirety of the SAMDA contract requirements, and that it would need to enlist additional teammates/subcontractors with those capabilities. Any transition of these requirements to

BAERI during a time period shorter than that proposed in this contract extension presents a high risk of unacceptable delays and disruptions in meeting NASA’s requirements as new team members are on-boarded to fill this gap in capabilities.

Given the minimum time that would be necessary for NASA to compete the bridge contract, as well as the phase-in period needed to accomplish transition of the existing work, a sole-source contract extension to SSAI would still be necessary to ensure uninterrupted, critical services which would approximate the length of the bridge contract extension proposed herein. Since the non-competitive continuation of the existing services would be required in either scenario, competing the bridge effort does not effectively promote competition for these requirements over the longer term, and risks unnecessary and unacceptable delays and disruptions during the multiple transitioning of the work across three (3) contract vehicles

– the SAMDA contractor, the bridge contract successful offeror, and the prospective

ATMOS and GLOMAS successful offerors. The possibility of having multiple contractor transitions within a short two (2)-year period would be highly and unnecessarily disruptive to accomplishment of the Government’s requirements, as well as the large incumbent workforce. This major disruption represents a significant risk to the Government’s ability to recruit and retain the very niche, scientific talent essential to accomplishment of the work.

As noted and in Section 5, the time necessary to compete and establish a bridge contract is consistent with the period of time associated with this proposed SAMDA contract extension.

In addition, competing the bridge contract effort is estimated to result in duplicative costs, due to the additional phase-in costs, as well as additional evaluation support costs. These costs are not expected to be recovered as a result of a bridge contract competition. The

Government anticipated more limited industry interest and competition for a bridge contract given its short duration, and the level of resources necessary to propose on these complex requirements.

In order to avoid unacceptable delays in the performance of mission critical requirements, maintain continuity of services, and to avoid substantial duplication of cost, a short-term extension of 9 months with SSAI is necessary.

11. FAR 6.303-2(b)(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 has taken careful consideration regarding the overcoming of barriers to the

SAMDA follow-on procurement, respectfully identified as ATMOS as GLOMAS. The

Agency has discussed this strategy with all stakeholders, including the NASA Headquarters

Office of Procurement, GSFC Center Director, and GSFC Sciences and Exploration

Directorate (Code 600), and the requirement’s customer Earth Science Office (Code 610). In addition, Industry has been surveyed and most companies provided positive feedback to the change in the SAMDA follow-on procurement strategy, which is expected to increase competition. The Government is in the process of conducting the ATMOS and GLOMAS procurements. Therefore, it is determined necessary to extend the exiting SAMDA contract for a period of 9 months to avoid unacceptable delay and interruption in services, and to avoid duplication of costs in a re-competition that is not be expected to be recovered.