SIDAAC - JOFOC.pdf

Rev.:01/2021

NATIONAL AERONAUTICS AND SPACE ADMINISTRATION

Goddard Space Flight Center (GSFC)

JUSTIFICATION FOR OTHER THAN FULL AND OPEN COMPETITION (JOFOC)

For 80GSFC23R0028 /University of Colorado at Boulder (UC, Boulder) - Snow and Ice (SI)

Distributed Active Archive Center (DAAC)

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

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

(GSFC).

The procuring agency is the National Aeronautics and Space Administration (NASA) and the contracting activity is GSFC.

2. FAR 6.303-2(b)(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 a sole-source, cost reimbursement contract with the University of

Colorado at Boulder for the continued development and operation of the Snow and Ice

(SI) Distributed Active Archive Center (DAAC), performing user services, product generation, data and information management, data archival and distribution, and related science support activities. The period of performance for this follow-on contract is for 5 years (1 year base period plus 4 one-year options). The anticipated award date for this contract is May 31, 2023.

NASA’s GSFC proposes to award a Cost-No-Fee Contract to the University of Colorado at Boulder (UC, Boulder) for the continued development and operation of the SI DAAC for NASA’s Earth Observing System Data and Information System (EOSDIS).

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):

NASA has established under its Earth Science program the Earth Observing System Data and Information System (EOSDIS), which is a comprehensive data system managing the data from Earth science research satellites and field measurement programs. The SI

DAAC is one element of EOSDIS. NASA's Earth science programs shape an interdisciplinary view of Earth, exploring the interaction among the atmosphere, oceans, ice sheets, land surface interior, and life itself, which enables scientists to measure global climate changes and to inform decisions by Government, organizations, and people in the

United States and around the world.

The SI DAAC focuses on the receiving, archiving, transforming, validating, and distributing digital and analog snow and ice data products generated from numerous

Earth Observation satellite instruments, airborne instruments, as well as in situ data sets.

The SI DAAC also maintains information about snow cover, avalanches, glaciers, ice sheets, freshwater ice, sea ice, ground ice, permafrost, atmospheric ice, paleo glaciology, and ice cores.

The work performed under the SI DAAC includes science data planning and product generation, system development, operations and maintenance, and user support. This work also includes identifying and making available sources of snow and ice data, supporting development and generation of new information products and services oriented to researchers who utilize this data, and providing these information products and services to a spectrum of users including fundamental and applied researchers, operational users, and the general public.

In addition, this follow-on contract will include the following specific requirements:

• Implement improved geophysical algorithms in conjunction with the user community for cryospheric and polar processes including ice concentration and types, ice surface temperature, surface albedo, snow extent, and snow water equivalent;

• Develop and improve methods for acquiring and assimilating data streams and producing research quality data products to meet science objectives for the cryosphere and polar regions;

• Improve the ability to forecast and assess risks by providing snow cover (and water equivalent) and snowmelt forecasting;

• Work with NASA to develop systems that take advantage of commercial cloud-based system to ingest, archive, and distribute snow and ice data including specialized science data services;

• Transition current on-premise systems, operations, processes, procedures and policies to the EOSDIS cumulus cloud framework;

• Develop greater support by scientists for broad science communication and education efforts;

• Coordinate activities as necessary with EOSDIS, other organizations, agencies, DAACs, NASA Centers, institutions and user working groups to accomplish the goals and objectives of this contract. This includes development and maintaining interfaces with other EOSDIS organizational elements, other national and international agencies with which EOSDIS must cooperate;

• Make information accessible to the broad continuum of E-SMD information customers, including the general public, media, publishers, and industry; and

• Provide support for all required preservation content activities necessary to ensure long-term stewardship of NASA data assets.

The estimated cost of this contract is approximately $63,743,579 based on a Government in-house cost estimate. The award date for the new contract is expected to be May 31, 2023.

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.

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 only one responsible source and no other supplies or services will satisfy agency requirements as described below.

The National Snow and Ice Data Center (NSIDC) at the UC, Boulder has unique qualifications in scientific expertise and specific cryosphere product development and maintenance needed to support remote sensing data in support of NASA’s cryosphere community. In 1976, the National Snow and Ice Data Center (NSIDC) at the UC, Boulder began as an archive of analog data and information on the world’s frozen realms:

the snow, ice, glaciers, frozen ground, and climate interactions that form the Earth’s cryosphere. The scientists assigned to the NSIDC at the UC, Boulder specialize in remote sensing of snow and ice, Arctic climate, frozen ground, sea ice, ice sheets, and glaciers among many other science pursuits. The combination of the science focus and the data science support makes for a unique support environment for NASA’s cryosphere data.

For the years that UC, Boulder NSIDC has supported NASA as a DAAC, they have been building on and improving techniques for mastering data ingest, archive, and distribution.

EOSDIS is experiencing and will experience enormous growth in the future. Today the

NASA Earth Science data collection is approximately 60 petabytes in size. By 2024 the archive is expected to grow by more than 50 petabytes per year. To meet these challenges, the ESDIS project is rearchitecting the EOSDIS infrastructure to manage both

NASA and user needs.

UC, Boulder brings several specific unique data processing, archive management, and distribution techniques to meet the future challenges of large-scale data systems. UC, Boulder has worked closely with the ESDIS infrastructure and data system components since their inception. They have been the key leaders of early adoption, installation and maintenance of snow and ice data within the ESDIS infrastructure components known as the EOSDIS Core System (ECS). Because of their skills in data systems and remote sensing snow and ice products, UC, Boulder has unique capabilities to provide for

NASA’s scientific and research needs. Building on the ESDIS infrastructure of ECS, UC, Boulder has developed and maintained sophisticated data distribution tools to meet user needs, such as the IceBridge Portal, the Satellite Observations of Arctic Change, and

Atlas of the Cryosphere.

In addition, UC, Boulder continues engineering work in the development, utilization, and calibration of essential algorithms to make the cryospheric research data sets usable by researchers. The application of these algorithms requires an expertise in cryospheric data and is accomplished by doctoral-level scientists and engineers at the SI DAAC.

Specifically, SI DAAC scientists and engineers have developed and continue to enhance the Equal-Area Scalable Earth Grid (EASE-Grid) data projection. Since 1993 when it was developed, EASE-Grid has gained significant popularity particularly among the polar data community. EASE-Grid’s popularity is based on its usage as a projection (as opposed to other projections like Universal Transverse Mercator) by Earth science communities.

UC, Boulder has developed EASE-Grid software and tools for geolocating and displaying

EASE-Grid datasets for the cryosphere community. These tools, composed of a multitude of algorithms, have improved the analysis and comparison of remotely sensed data from different sources. By use of the tool, data may be expressed in any of three projections - Northern and Southern hemisphere and global - and can be further defined in subsets of these projections with varying resolutions. The software implements an array of mathematical equations which are used to transform or reorient data into the various projections, using such variables as the radius of the earth, and meridian and parallel scales, and longitude and latitude expressed in radians. The SI DAAC has developed a “family” of grid transformations, such as the SSM/I Grids, Polar Pathfinder

Grids, and the Arctic and Antarctic Research Institute (AARI) Sea Ice Grid. The DAAC may also develop new grids depending on the needs of the particular science investigation. UC, Boulder NSIDC has published a number of the EASE-Grid transformations, which include “AARI 10-day Arctic Ocean EASE-Grid Sea Ice

Observations,” and “Near Real-Time SSM/I EASE-Grid Daily Global Ice.” This tool is composed of a multitude of algorithms used for the validation of data and calibration of algorithms provided by other scientists. The SI DAAC’s application of these algorithms to snow and ice data is indispensable, enabling outside entities to be assured that the data is valid and useful. Examples of products that use the EASE-Grid format include:

● Soil Moisture Active/Passive Mission L2 and L3 products

● Advanced Microwave Scanning Radiometer Snow, Soil Moisture and Sea Ice

Products

● Sea Ice products from NASA missions

● SSM/I-SSMIS derived polar products (such as NISE)

The development, utilization, and calibration of sea-ice algorithms require the application of complex scientific and technical theories. These theories are expressed in formulae that are used to make snow and ice data usable for further scientific research. These algorithms and their associated theoretical underpinnings are further explained below.

Furthermore, the Near Real-Time SSM/I EASE-Grid Daily Global Ice Concentration and

Snow Extent (NISE) data set provides daily, global maps of sea ice concentrations and snow extent information. They provide a best estimate of current ice and snow conditions based on information and algorithms available at the time the data are acquired, often in less than 6 hours of observation. This product is used by almost all EOSDIS processing systems for over 100 separate products and is considered part of the critical suite of ancillary products required for creation of general remote sensing data products. The SI

DAAC conducts validations of snow and ice data products through the application of various algorithms. Validation is the process of assessing the validity of a data product by comparing it to independent sources such as the data from satellite instruments and ground-based systems. The comparisons are accomplished through the use of statistical programs, which utilize, among others, coefficient analysis, least squares, and regression analysis.

The SI DAAC conducts calibrations of algorithms pertaining to sea-ice studies. During a particular study, the algorithms presented by a lead scientist must be calibrated in order to conduct a validation of the data. Calibration of the algorithm pertains to a refinement of particular constant or variable parameters in a mathematical equation. Examples of such parameters are precipitation, evapotranspiration, soil moisture, soil freeze/thaw, soil water storage, and runoff. Refinements are accomplished through the development of error rates, based on calibrated data, which is introduced into the equation. Due to the SI

DAAC scientists’ advanced understanding and expertise in the particular characteristics of sea-ice data, they are acknowledged experts at refining many of the parameters. By refining the parameters and thereby calibrating the algorithms, the SI DAAC improves the validation of the data sought by scientists studying in this area.

The skill sets required to perform the algorithm development, utilization, and calibration function include physicists and software engineers, who are involved in cryospheric study. SI DAAC physicists have advanced doctoral-level degrees and are specialized in the fields of geology, atmospheric physics, hydrology, and remote sensing. These skills are required in order to develop critical, ancillary products used in processing almost all data in the EOSDIS system. As can be gleaned from the description of the effort, an expertise in software engineering is required since the algorithms are written in software.

The various physicist disciplines are required since these efforts require a thorough understanding of the origin, characteristics, and potential uses of the data. Through the expertise of these scientists, the data can be transformed, manipulated, and validated, and then used for scientific purposes.

UC, Boulder scientists and data managers are internationally recognized as a source of information about the Arctic Sea Ice extent. This has been possible through the combination of active science and the availability of NASA (and NOAA/DOD) satellite assets. UC, Boulder has developed a stable and robust methodology for recording sea ice extent for public distribution. The dataset is critical to the creation of other data products across the US, including data from NASA’s most famous missions Terra, Aqua and Aura.

Without the NISE product, NASA would be unable to process other critical data products. The UC, Boulder special focus on the expansion/contraction of arctic sea ice is critical to helping NASA scientists and researchers do their job.

Without these skills, NASA’s GSFC would be unable to meet the needs of EOSDIS in the area of cryospheric research. NASA would be unable to continue to develop and disseminate, for example, software tools which enhance the display of snow and sea ice data, as well as masking tools which limit the influence of certain variables, such as weather, on sea ice concentrations. NASA would no longer be able to provide EASE-

Grid data products to researchers. It is clear that NASA must maintain this essential capability for snow and ice expertise and the practical application of such data for use in scientific theories and technological development.

Award of this contract to UC, Boulder is needed to fulfill NASA’s essential requirement to maintain a snow and ice distributed active archive center (DAAC). UC, Boulder has over 20 years of experience developing unique capabilities and expertise in the acquisition, archiving, transformation, validation, and distribution of snow and ice data.

There are currently no other entities that have the capability of fulfilling the requirements of a snow and ice distributed active archive center (DAAC).

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:

In accordance with FAR Subpart 5.2, a notice to the Government Point of Entry (GPE) website (Sam.gov) was published on March 3, 2022 and closed on March 18, 2022. This posting informed potential sources of NASA’s intent to award this sole-source contract to the University of Colorado at Boulder. 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 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.

The University of Colorado Boulder (UC, Boulder) will be required to submit a proposal to be evaluated and negotiated by the Government. Negotiations of cost will be determined fair and reasonable based on historical cost information and the Independent

Government Cost Estimate (IGCE). The GSFC Contracting Officer and the Contracting

Officer’s Representative (COR) will monitor the performance of UC Boulder. UC, Boulder will be required to submit technical progress reports and financial management reports to be reviewed and analyzed by the Government, and the Office of Naval

Research will review all costs incurred for allowability.

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:

Market research was conducted to determine the availability of potential sources for the requirements. A RFI was issued on August 31, 2021 to sam.gov. It included a draft

Statement of Work (SOW) and requested capability statements from vendors.

The evaluation of the responses to the RFI revealed that the required services are not at this time commercially available. There was one response to the RFI from the University of Colorado at Boulder.

Based on the market research and the COR’s knowledge of the market NASA does not believe any alternate sources can be found to provide full control and responsibility without risk of unacceptable and unsuccessful performance.

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

None.

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 Sources Sought Notice (SSN) for the Snow and Ice (SI) Distributed Active Archive

Center (DAAC) was published on March 3, 2022 and closed on March 18, 2022. There were no responses to the sources sought notice.

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:

Over the past several years, NASA Headquarters has released several AOs for developing data systems, analysis software, and related activities. These opportunities have funded many complementary activities that will support future data center functions. In addition, NASA has taken additional efforts to engage the community in data center and data systems issues. These include:

• Holding conferences to discuss the roles and responsibilities of science operations functions and data systems;

• Establish a library of documentation produced using Government funds to make the knowledge (reports, drawings, etc.) available to all potential competitors;

• Require the current data centers to openly discuss what they are doing, what they have learned, and what they have that is available to others in open forums like the American Geophysical Union and Earth Science Information

Partnership meetings; and

• Providing comprehensive information about EOSDIS, EOSDIS components and services (including all EOSDIS DAACs, missions, data sets, standards, tools, open source policies and community/user organizations), the ESDIS project and organization via the Earthdata website at https://earthdata.nasa.gov and its accompanying public facing wiki.

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.

https://earthdata.nasa.gov/ https://earthdata.nasa.gov/

MALIKA

GRAHAM

Digitally signed by MALIKA

GRAHAM

Date: 2022.04.07 20:14:00 -04'00'

Snow and Ice (SI) Distributed Active Archive Center (DAAC) for 80GSFC23R0028

JUSTIFICATION FOR OTHER THAN FULL AND OPEN COMPETITION

SIGNATURE PAGE

Technical Representative: I certify that the facts presented in this justification are accurate and complete.

Digitally signed by JEANNE BEHNKE Date: 2022.04.07 20:04:57 -04'00'

Jeanne Behnke Technical Representative

Contracting Officer: I hereby certify that the above justification is complete and accurate to the best of my knowledge and belief.

Malika Graham Contracting Officer

CONCURRENCES:

Mary V. Stevens Procurement Officer (Acting)

Raymond J. Rubilotta Competition Advocate

APPROVAL:

Mary V. Stevens Head of Contracting Activity (Acting)

JEANNE BEHNKE

MARY

STEVENS

Digitally signed by MARY

STEVENS

Date: 2022.04.12 17:36:30 -04'00'

Raymond Rubilotta Digitally signed by Raymond Rubilotta Date: 2022.04.21 17:51:43 -04'00'

MARY

STEVENS

Digitally signed by MARY

STEVENS

Date: 2022.04.21 18:11:12 -04'00'