NASA/Marshall Space Flight Center (MSFC) has a requirement to extend the period of performance (PoP) for the Space Launch System (SLS) Spacecraft / Payload Integration and Evolution (SPIE) Launch Vehicle Stage Adapter (LVSA) delivery order (DO), with Teledyne Brown Engineering, Inc. (TBE). The services to be provided include, but are not limited to: development or assessment, sustaining engineering (maintenance), field engineering changes, management, and disposal, as well as any ancillary activities associated with prior production efforts for previously procured LVSA flight hardware, including but not limited to, the operation and maintenance, verification and validation, certification, transportation to designated location, and all ground support equipment. This action will also include pre- and post-flight analysis support for the remaining two unflown LVSA units.
For this immediate action, MSFC intends to extend the PoP of existing TBE DO# NNM14AA89D, for a period of approximately two years, from September 23, 2024, to September 30, 2026, to complete production of the third LVSA unit currently on contract, as well as to ultimately conclude LVSA activities for the SLS SPIE Element. As described below, additional options beyond September 30, 2026, if exercised, could extend the PoP of this DO through December 31, 2029.
SLS NEED FOR LVSA
Consistent with the NASA Authorization Act of 2010 (Public Law 111-267) and subsequent Presidential direction, NASA established the SLS Program and initiated the development of the SLS vehicle. The SLS Program has developed a launch system architecture to meet an evolving capability strategy consistent with the reference missions and at a pace prescribed by the available budget. The SLS block upgrade strategy incrementally and practically increases the performance of the launch vehicle one block at a time, while also accommodating the development and maturation of other Exploration Systems Development (ESD) systems. The performance thresholds of launching 70 metric tons (mT), 105mT, and 130mT will be achieved respectively through the development of the Block 1 configuration followed by the upgrade of Block 1 to Block 1B to Block 2. The LVSA is part of the evolvable configuration's initial Block 1 capability (i.e., currently limited for use through the Artemis III mission).
The SPIE Element role for SLS is management, planning, and integration of the spacecraft and payloads in support of NASA missions, which includes procurement and integration of the LVSA. The LVSA provides the physical interface between the Core Stage and the Interim Cryogenic Propulsion Stage (ICPS) of SLS, while establishing a pass through for cable running between the launch vehicle and the Orion crew spacecraft, which will continue to be launched on SLS.
CONTRACT / DELIVERY ORDER BACKGROUND THROUGH IMMEDIATE ACTION
LVSA is a result of the Engineering Solutions and Prototyping (ESP) contracting solution, the purpose of which was to obtain end-item deliverables from near-site MSFC sources. LVSA itself was not the sole engineering purpose behind ESP. Instead, multiple ESP contractors were to provide various engineering solutions and products for design, development, test, evaluation, operations, and training in support of MSFC's flight projects, human and robotic exploration, science and technology development, future programs/projects, and other MSFC responsibilities that had similar needs. The ESP contracts were to provide MSFC with an avenue to obtain deliverables at various stages in their life cycles as defined in NASA Space Flight Program and Project Management Requirements (NPR 7120.5) and NASA Research and Technology Program and Project Management Requirements (NPR 7120.8).
By first competitively establishing the ESP contracts, NASA's goal was to award three to five indefinite-delivery, indefinite-quantity (IDIQ) contracts in response to the ESP solicitation, which was issued in 2012. The selected contractors were to provide all necessary management, personnel, facilities, equipment, materials and supplies (not otherwise provided by the Government) to deliver a variety of products broadly defined in each ESP contract’s Performance Work Statement (PWS). Work was to be more specifically described in each DO, which would be competed among the selected ESP contractors, with each DO defining specific end-item deliverables. The IDIQ contracts were to each have a five-year ordering period, and were to be performance-based, with either a cost-plus-fixed-fee (CPFF) or CPFF-less-deductions IDIQ arrangement.
Of the six proposals received, the ESP solicitation resulted in a total of three different ESP IDIQ contract awards in 2013, specifically NNM13AA34C with Radiance Technologies, Inc.; NNM13AA35C with TBE; and NNM13AA36C with Wyle Laboratories, Inc. (later named KBR Wyle Services, LLC). LVSA was one of multiple engineering efforts competed among the three ESP contractors, and was awarded to TBE on January 31, 2014, as DO# NNM14AA89D. The DO included production, sustaining engineering, operation and maintenance, verification and validation, certification, transportation to designated location, all ground support equipment for LVSA units supporting SLS Flights 1 through 3 (currently termed Artemis missions I through III), as well as pre- and post-flight analysis.
During the ensuing years under DO# NNM14AA89D, TBE has previously and successfully completed the LVSA design, development, test, and evaluation (DDT&E) process, to include the fabrication of a Structural Test Article (STA) to support the SPIE Integrated Structural Test. Following this, TBE completed production and supported delivery of the first LVSA flight unit to Kennedy Space Center (KSC), after which the first flight unit was launched on November 16, 2022, as part of the Artemis I mission, to include TBE completing its associated post-flight analysis in 2023. Delivery of the second LVSA flight unit was conditionally accepted by NASA on February 28, 2023. TBE is estimated to deliver the third and final LVSA flight unit procured under the existing DO in the coming months.
The initial LVSA DO PoP was February 1, 2014, through March 14, 2018. The PoP was subsequently authorized to be extended by the Deputy Assistant Administrator for Procurement on November 5, 2018, via a Justification for Other than Full and Open Competition (JOFOC), through an estimated date of December 31, 2023. Using the estimated date within the prior JOFOC authority, the LVSA DO's PoP was further extended through the current PoP end date of September 22, 2024.
This immediate action will incorporate an increase in both the estimated value and the estimated PoP necessary to conclude efforts under this DO. While the technical scope of this DO is not being changed in relation to the delivery, launch, or post-flight scope aspects for three previously procured LVSA flight units from TBE, additional time is necessary to support remaining LVSA sustaining engineering activities that are now to be phased over a longer period of time, as necessary to align with ongoing changes to SLS Program-Controlled Milestones (i.e., launch manifest schedule). Accordingly, this action intends to extend NNM14AA89D's PoP from September 23, 2024, through September 30, 2026 to align with the current SLS launch manifest.
Furthermore, an initial nine-month option period (i.e., Option 1) will be included in the event an extension is necessary to conclude Artemis III launch and post-flight analysis in support of the NASA public announcement on January 9, 2024, in relation to the current SLS launch manifest. Option 1, if exercised, would further extend the DO from October 1, 2026, through June 30, 2027. If additional revisions to the SLS launch manifest are necessary, the anticipated immediate action to extend DO# NNM14AA89D's PoP will also include an additional five option periods of six months each. If all those options were to be exercised, the subject DO's PoP could be extended through December 31, 2029.
SOLE SOURCE AUTHORITY
NASA/MSFC intends to issue a sole source DO extension to TBE to satisfy this requirement. The statutory authority permitting other than full and open competition is 10 U.S.C. 3204(a)(1), as implemented by FAR 6.302-1, Only One Responsible Source and No Other Supplies or Services Will Satisfy Agency Requirements.
NASA/MSFC intends to continue procuring remaining LVSA production and subsequent sustaining engineering support on a sole source basis from TBE. This decision is made pursuant to FAR 6.302-1(a)(2)(iii), which is the authority supporting the PoP extension with the original source (TBE) for the continued provision of highly specialized services (i.e., the continued production and sustainment of LVSA). Award to any other source (other than TBE) would result in substantial duplication of cost to the Government that is not expected to be recovered through competition, and would result in unacceptable delays in fulfilling the agency's requirements.
The use of 10 U.S.C. 3204(a)(1), as implemented by FAR 6.302-1(a)(2)(iii), to authorize the continued provision of highly specialized services for LVSA from TBE is appropriate. If performance with TBE is not able to continue under the subject DO, the Government will incur a substantial duplication of costs as well as experience unacceptable delays in fulfilling the agency's requirements. TBE has proprietary data and processes, specialized labor skills, and exclusive knowledge unique to LVSA production.
Introducing another LVSA contractor at this time would result in recreating established key vendor arrangements and working relationships with other SPIE Prime Contractors. Combined with the continued TBE engineering and management support required for the Artemis II and III missions, this would result in unacceptable technical delays and a substantial duplication of costs, which would not be recovered through competition of a new contract.
The value of utilizing a company (TBE) with an existing contract with NASA, as well as using a firm that has already built all of the LVSA flight units, cannot be overstated. The synergy of past production, as well as the irreplaceable knowledge of having supporting launch and post-flight activities for Artemis I, allow for the most efficient use of time necessary for planning and execution of both the sustaining and engineering efforts associated with LVSA flight units two and three, as well as meeting remaining Artemis II and III launch milestones.
The incumbent contractor team (TBE) uniquely understands the required sustaining engineering of this highly specialized and complex LVSA flight hardware, stemming from its experience gained during the production process and prior flight operations/maintenance associated with LVSA flight articles. This knowledge uniquely positions TBE to continue to substantially improve cost, technical, and schedule performance for remaining LVSA activities, which are necessary for successfully and affordably flying the Artemis II and III missions. TBE's LVSA knowledge and technical skills are not easily transferable. Thus, introduction of a new contractor at this time would require additional time and expense in order to mature an alternative source to the level of technical capability required for sustained LVSA flight hardware engineering. Furthermore, award to another source would cause unacceptable delays in meeting the Agency's requirements. The SLS Program manifest and schedule requirements associated with LVSA utilization would be negatively impacted in such a way that NASA would be unable to meet the Artemis II or III preparatory schedule events and launch dates.
The resulting LVSA flight hardware under DO# NNM14AA89D that has been designed, developed, tested, and evaluated remains exclusive to a unique engineering solution proposed by TBE, as necessary to satisfy NASA's SLS LVSA requirements, with only NASA having ever procured LVSA hardware and its corresponding sustaining engineering needed to maintain this DDT&E hardware as produced and maintained by TBE.
DISCLOSURES
The Government does not intend to acquire a commercial item using FAR Part 12.
Information received from this notice shall be used by NASA/MSFC for market research. This notice is not to be construed as a commitment by the Government, nor will the Government pay for information submitted. Responses to this notice are not considered offers and cannot be accepted by the Government to form a binding contract. Any responses to this notice that are subject to export controlled items should be properly marked as such.
Interested organizations may submit their capabilities and qualifications to perform the effort electronically, via email, to the primary point of contact listed below, not later than 4:30 p.m. Central Time, on August 29, 2024. Such capabilities/qualifications will be evaluated solely for the purpose of determining whether or not to conduct this acquisition on a competitive basis. A determination by the Government not to compete this acquisition on a full and open competition basis, based upon responses to this notice, is solely within the discretion of the Government.
NASA Clause 1852.215-84, Ombudsman, is applicable. The Center Ombudsman for this acquisition can be found at: ttps://www.hq.nasa.gov/office/procurement/regs/Procurement-Ombuds-Comp-Advocate-Listing.pdf
