SimLabs III Ceiling Increase Redacted JOFOC 06 11 21.pdf

NATIONAL AERONAUTICS AND SPACE ADMINISTRATION

Ames Research Center (ARC)

JUSTIFICATION FOR OTHER THAN FULL AND OPEN COMPETITION

(JOFOC)

For Technical Services for Aerospace Modeling and Simulation III (SimLabs III), Contract No. 80ARC018D008

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) Ames Research Center (ARC).

The procuring agency is the National Aeronautics and Space Administration (NASA) and the contracting activity is the Procurement Office located at ARC. This JOFOC is recorded in the ARC JOFOC Log as JA-FY21-J03.

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 contract modification to increase the total value of the Technical Services for Aerospace Modeling and Simulation III (SimLabs III) Contract No. 80ARC018D008 with Metis Flight Research Associates, LLC (MFRA) for support of additional critical research efforts. The current total potential contract value is $62.8 Million (M), which includes a forty-five (45) day Phase-in period (April 16, 2018 through May 31, 2018); a one-year base period (June 1, 2018 through May 31, 2019), and four 12-month option periods (June 1, 2019 through May 31, 2023). The requested increase of $ , will increase the SimLabs III total potential contract value to $ .

The SimLabs III contract is a hybrid contract with a Cost-Plus-Fixed Fee (CPFF) Contract Management and Technical Services Core and an Indefinite-Delivery, Indefinite-Quantity (IDIQ) component under which CPFF Contract Task Orders (CTOs) are executed. The total maximum potential contract value is $62.8M.

As the contract nears the end of its Option Period Two, the total maximum contract value exercised is $47M, which consists of $7M Core and $40M IDIQ. That leaves only $15.8M, which consists of $5.1M Core and $10.6M IDIQ until the maximum value of the contract is reached, which is not enough to cover anticipated requirements of the next two option periods (June 1, 2021 through May 31, 2023).

The requested contract value increase will allow critical research required by the Artemis Program and Unmanned Aircraft Systems (UAS) in the National Airspace (NAS) for the Advanced Air Mobility (AAM) National Campaign (NC) to continue. It will also allow the Langley Research Center (LaRC) Simulation Aircraft Services (SAS) Requirement to be added for the remainder of the contract period (Option Periods Three and Four).

FOIA EX. 5

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 ARC Simulation Facilities have experienced an unprecedented amount of unexpected requests for technical support on various programs. This has caused the two IDIQ CTOs to grow and increase in value well above the original Independent Government Cost Estimate (IGCE) for the SimLabs III IDIQ portion of the Contract. In addition to the Flight Simulation Experiments supported by SimLab facilities, the abrupt introduction of UAS in the NAS requires extensive research into and development of a national UAS infrastructure. Among other areas of study needed for this development, simulation is a key component, for which SimLab is uniquely suited. Many flight studies and experiments are required now, and as the UAS develops, to support a new way of life and travel in smaller areas than those provided by today’s airlines. ARC has become the lead Center for many of these studies, and numerous researchers are requesting use of SimLab’s simulation laboratories and Subject Matter Experts (SMEs) to learn what’s needed for the UAS integration into the NAS.

The SimLabs III contract is also a critical resource for the Artemis Program, where development of spacecraft math models, control systems, and visual scenery (for pilot cues) is required. In addition, Astronaut training will be conducted for mission docking, descent, landing and re-docking, in order to meet NASA’s “Moon in 2024” goal to put the first woman on the Lunar Surface and the first man since Apollo was discontinued in 1975.

These are requirements that were unknown at time of contract award in 2018. Hence, the number of requests for SimLab support received thus far and those estimated over the next two option periods far exceeds what was anticipated at the time of contract award.

Therefore, the current contract value will need to be increased in order to meet additional SimLab support required, which includes additional staff, SMEs, material to build new simulators and modify existing cockpits, and perform system upgrades.

Finally, during LaRC’s market research for the anticipated re-competition of its Simulation Aircraft Services (SAS) Requirement, LaRC noted that the SAS Requirement was very similar to the SimLabs III Statement of Work (SOW). Through careful analysis of both SOWs it was determined that LaRC’s SAS requirements are within scope of the SimLabs III contract, and it is in the best interest of NASA for LaRC to utilize the SimLabs III contract until a final determination is made regarding a follow-on LaRC contract. The increase in value requested in this JOFOC includes the estimated value required to support LaRC’s requirements during the last two option periods of the SimLabs III contract.

Based on the IGCE for the additional requirements, the current contract IDIQ value will need to be increased as follows:

Option Period Three (June 1, 2021 – May 31, 2022) $ Option Period Four (June 1, 2022 – May 31, 2023) $

Total Contract Value Increase $

FOIA EX. 5FOIA EX. 5FOIA EX. 5

FOIA EX. 5FOIA EX. 5

FOIA EX. 5FOIA EX. 5FOIA EX. 5FOIA EX. 5FOIA EX. 5

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). 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), Only one responsible source and no other supplies or services will satisfy agency requirements, is described below.

In accordance with FAR 6.302-1(a)(2), full and open competition need not be provided for when the supplies or services required by the agency are available from only one responsible source. For the reason set forth below, MFRA is the only responsible source that can reasonably satisfy the subject requirements.

MFRA is uniquely qualified to provide the required Aerospace Modeling and Simulation support at ARC through the contract’s remaining period of performance for work listed below that was unforeseen and unexpected yet must continue for the next two years even though the contract’s current value has been nearly depleted.

• Artemis - which has simulations scheduled to support Human Landing System (HLS) development

• Advanced Air Mobility (AAM) Program including support for Virtual Dry Run and NC Grand Challenge, which are programs involved with development of a national infrastructure for unpiloted, vertical lift and landing drones, to carry materials and people;

• VMS Video Reliability Upgrade - required by both Artemis and UAM/AAM;

• NASA Aeronautics Research Institute (NARI) Support for Developing a UAM National Infrastructure Development Tool;

• Analog to Digital Conversion of VMS Motion Control System - critical to all programs listed herein;

• eVTOL (Electric Vertical Take-Off and Landing) for Urban Air Taxi; and

• Simulation Aircraft Services (SAS).

MFRA has unique experience supporting NASA Programs, Projects, and Processes, all of which are very deeply related and critical to achieving Artemis and UAS objectives and milestones, as well as Aeronautics Research Mission Directorate (ARMD) Projects.

Award of another contract to any other contractor would put the Artemis and UAS Programs as well as SAS Requirements at risk and would have a negative impact on simulation and milestone schedules, creating unacceptable delays, due to the unavoidable start-up and related learning curve that would be associated with a new contractor. MFRA management and staff have unparalleled experience and technical expertise that are necessary to perform the required mission critical work. A separate competition and award to a different contractor would neither be feasible nor reasonable given the current period of performance ends May 31, 2023 and costs of a new procurement could not be recovered.

Without the proposed contract value increase, there will be a gap in both SimLabs III and SAS support which will severely impact on-going research and critical project schedules causing unacceptable delays for the Programs and Projects listed above which rely on the support of the SimLabs III contract.

Therefore, a $ contract value increase, rather than a new procurement for the same period, is the only reasonable approach for NASA to take such that it may continue to obtain the important services provided by the SimLab. This makes MFRA the only responsible source that can reasonably satisfy the subject requirements without incurring a substantial duplication of cost to the Government that is not expected to be recovered through competition and unacceptable delays in fulfilling the agency’s requirements.

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 Entry (GPE) website (beta.sam.gov) was published on February 1, 2021, in accordance with FAR Subpart 5.2. This posting informed potential sources of NASA’s intent to award this sole-source modification to increase the value of Contract 80ARC018D0008 to MFRA. 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 analysis for this increase in value will include a detailed cost element analysis of the certified cost and pricing information, a comparison to the IGCE, and other appropriate cost and price evaluation techniques to ensure the final agreed-to cost and fee is fair and reasonable. Pre-negotiation objectives will be prepared prior to the initiation of negotiations and will be approved in accordance with FAR 15.406 prior to conducting negotiations. The CO will complete a Pre-negotiation Position Memorandum and document the results of the negotiation in a Price Negotiation Memorandum as required by the FAR.

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

ARC posted a synopsis to the Government Point of Entry (GFE) beta.sam.gov as stated in paragraph 6 above. A response was received from Digital Automation Associates, LLC (DAA), a Small Business. DAA’s response was evaluated, and it was determined DAA does not have the capability to meet SimLabs III Contract Requirements.

A Search was conducted in the NASA Vendor Data Base. This search yielded 227 Vendors, one of which is managing partner of the Small Business Joint Venture (SBJV) awarded the SimLabs III contract.

A search was also conducted in the SBA Dynamic data base using the NAICS Code 541330 and key words “Simulation” and “Engineers”. This search yielded the following results:

13 Small Business; 4 Woman-Owned SB; 2 8(a) Certified; 4 Veteran-Owned and 2 Service Disabled Veteran-Owned

Note: One of the VO Businesses is a partner of SBJV awarded the SimLabs III Contract.

A NASA Form (NF) 1787A was prepared to document the Market Research conducted.

The NF will be routed through the ARC Small Business Specialist for concurrence.

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 (beta.sam.gov) per FAR Subpart 5.2 (See Section 6 above). The notice was posted on February 1, 2021, with a closing date of February 18, 2021. Only Digital Automation Associates, LLC (DAA), a Small Business, submitted its capabilities statement in response to the synopsis. DAA’s capabilities statement was evaluated, and it was determined DAA does not have the capability to meet SimLabs III contract requirements.

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

TECHNICAL SERVICES FOR AEROSPACE SYSTEM MODELING AND

SIMULATION III (SIMLABS III)

CONTRACT 80ARC018D0008

JUSTIFICATION FOR OTHER THAN FULL AND OPEN COMPETITION

SIGNATURE PAGE

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

Steven E. Cowart Technical Representative

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

Veronica L. Gutierrez Contracting Officer

CONCURRENCES:

Sarah Pollock Procurement Officer

David J. Korsmeyer Competition Advocate, NASA Ames Research Center

APPROVAL:

Sarah Pollock Head of Contracting Activity, NASA Ames Research Center

STEVEN

COWART

Digitally signed by STEVEN

COWART

Date: 2021.03.24 13:28:20 -07'00'

VERONICA GUTIERREZ Digitally signed by VERONICA GUTIERREZ Date: 2021.03.24 15:05:26 -07'00'

Sarah Pollock Digitally signed by Sarah Pollock Date: 2021.04.08 14:04:23 -07'00'

DAVID

KORSMEYER

Digitally signed by DAVID

KORSMEYER

Date: 2021.04.13 11:08:01 -07'00'

Sarah Pollock Digitally signed by Sarah Pollock Date: 2021.04.13 21:01:59 -07'00'