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TABLE OF CONTENTS I. INTRODUCTION AND BACKGROUND ........................................................................ 1 • Blue Origin Is Committed To Lunar Landing and Exploration ................................... 2 • NASA’s HLS Program and Option A Procurement ..................................................... 3 • HLS Base Period Award ............................................................................................. 5 • HLS Option A Procurement Evaluation ....................................................................... 8 • HLS Option A Award................................................................................................... 9 • Impact of Flawed Option A Award to Single Awardee SpaceX On Competition and Commercial Industry Development ............................................................................. 9 II. PRELIMINARY MATTERS ............................................................................................. 11 A. Interested Party Status ..................................................................................................... 11 B. Contracting Officer Notification ....................................................................................... 11 C. Protester Contact Information ........................................................................................... 12 D. Request for Protective Order ............................................................................................ 12 E. Request for a Hearing ....................................................................................................... 12 III. ARGUMENT ....................................................................................................................... 12 A. The Agency Improperly Failed to Amend the Solicitation To Allow Offerors to Revise Their Proposals When the Government’s Requirements Changed Due to a Perception of Significantly Reduced Funding .................................................... 13 • Offerors Were Deprived of a Full and Fair Opportunity To Compete With an Accurate Understanding of the Agency’s True Requirements ........................................................................ 13 B. The Agency’s Evaluation of Blue Origin is Unreasonable and Improper ........................ 15 1. The Agency’s Evaluation Erroneously Determined That Blue Origin Proposed Advance Payments ........................................................................ 15 2. The Agency’s Evaluation of Blue Origin’s Technical Proposal Was Unreasonable and Blue Origin Should Have Received A “Very Good” Rating for Factor 1 .............................................................. 20 • The Agency Unreasonably Assigned Blue Origin a Weakness For Its Description of Transfer Element (TE) Disposal and Planetary Protection Approach ............................................................... 21 • The Agency’s Evaluation of Blue Origin’s Guidance, Navigation and Control System Development Risk Is Unreasonable and Utilizes Unstated Evaluation Criteria ................................................................... 23 i • The Agency’s Analysis of Blue Origin’s Radio Frequency Communication Links Is Inaccurate and Contradicts the Agency’s Own Prior Analysis ......................................................................................... 24 • The Agency Inappropriately Applied Redundancy Requirements On the Manual Control System for Blue Origin’s Ascent Element Leading to a Flawed Evaluation ............................................................. 26 • The Agency Misunderstood Blue Origin’s Plan to Evolve from Initial Design To Sustainable Architecture and Applied Unstated Evaluation Criteria to Evaluate It .............................................................................. 27 • The Agency Unreasonably Evaluated Blue Origin’s Mission Timeline . 28 • Blue Origin’s Proposal Appropriately Addressed How It Would Utilize And Mitigate Risks of Using Heritage Hardware with the Proposed Cabin Atmosphere, Which the Agency’s Evaluation Overlooked ......... 29 • The Agency Improperly Assessed Blue Origin a Weakness Because It Mistakenly Believed Blue Origin and the Agency Had Fully Adjudicated HMTA Requirements, Methods, and Statements ............... 30 • The Risk in Blue Origin’s Propulsion System Development Schedule Has Been Successfully Mitigated and Does Not Warrant a Significant Weakness ................................................................................................ 31 • Overall Rating – When The Agency’s Evaluation Errors are Corrected, Blue Origin Should Have Received a “Very Good” Rating for Factor 1 Technical .................................................................................. 32 3. The Agency’s Evaluation of the Management Factor Was Unreasonable .... 33 • The Agency Previously Accepted Both the Form and Substance Of Data Rights Assertions It Now Claims Lack Required Specificity And Explanation ..................................................................................... 33 • The Agency Erroneously Faults Blue Origin for Not Providing GPR In Data Developed at Private Expense.................................................... 35 o Fuel Cells ......................................................................................... 36 o BE-7 ................................................................................................. 36 o ACFM Controllers and Interfaces .................................................... 37 o Cryocooler Systems, CFD Models ................................................... 37 • The Agency Unreasonably Concluded Blue Origin’s Commercial Approach was Unsubstantiated ............................................................... 37 • Overall Rating – Blue Origin Should Have Received An Outstanding for Factor 3 Management ................................................... 39 ii C. The Agency Treated Offerors’ Proposals Unequally and Disparately .............................. 39 • Disparate Treatment of Cryogenic Fluid Management Development and Verification Approach ............................................... 40 • The Agency Utilizes an Unstated Evaluation Criteria Regarding Risk from Height of Vehicle Presents Risk to EVA Operations (Area of Focus 1) .................................................................................... 41 • Blue Origin Should Be Assessed a “Significant Strength” for Its Comprehensive Abort Strategy and Effective Capability, While SpaceX Likely Should Have Been Evaluated with a Weakness .......................... 42 • Improper Evaluation and Disparate Treatment in Evaluation of SpaceX Launch Vehicle Development ................................................... 44 D. The Agency’s Erroneous Award Decision for HLS Option A Fails To Obtain Full and Open Competition and Contravenes Federal Law And Congressional Intent ................................................................................................. 45 IV. BLUE ORIGIN IS PREJUDICED BY THE DEFECTIVE SOLICITATION ......... 46 V. CONCLUSION ............................................................................................................... 46 VI. REQUEST FOR PRODUCTION OF DOCUMENTS ................................................ 46 VII. RELIEF REQUESTED .................................................................................................. 48 iii 1717 Pennsylvania Avenue, N.W., Suite 500 Washington, D.C. 20006-4623 U.S.A. (202) 289-1313 Fax (202) 289-1330 www.btlaw.com Scott E. Pickens Partner (202) 371-6349 REDACTED PUBLIC VERSION [email protected] Admitted to Practice Only In The District of Columbia April 26, 2021 GAO PROTECTIVE ORDER REQUESTED IMMEDIATE AGENCY NOTIFICATION REQUESTED Via GAO Electronic Bid Protest Filing System (EPDS) Office of the General Counsel Procurement Law Control Group United States Government Accountability Office 441 G Street, N.W. Washington, D.C. 20548 Re: Protest of Blue Origin Federation, LLC against National Aeronautics And Space Administration award of Option A contract for Human Landing System under Broad Agency Announcement NNH19ZCQ001K_APPENDIX- H-HLS. Dear Sir or Madam: Blue Origin Federation, LLC (Blue Origin),1 through undersigned counsel, files this protest challenging the award of an Option A contract for the Human Landing System (HLS) under Broad Agency Announcement (BAA) NNH19ZCQ001K_APPENDIX-H-HLS. The National Aeronautics and Space Administration (NASA or Agency) selected Space Exploration Technologies Corp. (SpaceX) for an HLS Option A contract award in the amount of $2.89 billion. See NASA Press Release. During the proposal 1 Blue Origin has offices located at 21218 76th Ave., South Kent, Washington, 98032-2242. Its telephone number is (253) 275- 1727. However, please provide all further communications concerning this protest to undersigned counsel at this email address: [email protected]. For facsimiles, please use the following dedicated and protected fax line: (202) 912-8409. Throughout this document, emphasis in quotes has been added unless noted otherwise. Office of the General Counsel April 26, 2021 Page 2 preparation and submission process, NASA had indicated an overriding intention to make two awards, but due to perceived shortfalls in currently available and anticipated future budget appropriations, it made only the award to SpaceX, eliminating HLS competition, and effectively locking down immediate and future lunar landing system development and
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