1

Preliminary Report 

Regarding

NASA’s Space Launch System and 

Multi-Purpose Crew Vehicle 

Pursuant to 

Section 309 of the NASA Authorization Act of 2010 (P.L. 111-267) 

January 2011
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Table of Contents

EXECUTIVE SUMMARY.........................................................................................................................................3

I. WHERE WE ARE TODAY: OUR ASSUMPTIONS....................................................................................5

II. SPACE LAUNCH SYSTEM.............................................................................................................................7

2.1 INTRO................................................................................................................................................ 7

2.2 HEAVY-LIFT BACKGROUND.............................................................................................................. 8

2.3 OVERALL DESCRIPTION OF REFERENCE VEHICLE DESIGN .............................................................. 10

2.4 SYSTEM TRADES AND ANALYSES ................................................................................................... 10

2.5 PLAN FOR UTILIZATION OF EXISTING CONTRACTS, CIVIL SERVICE AND CONTRACTOR WORKFORCE 12

2.6 PLAN FOR SUPPORTING INFRASTRUCTURE UTILIZATION AND MODIFICATIONS ................................ 12

2.7 PROCUREMENT STRATEGY TO EXPEDITE DEVELOPMENT ACTIVITIES THROUGH MODIFICATION OF 

EXISTING CONTRACT VEHICLES ................................................................................................................ 13

2.8 SCHEDULE AND DESIGN OF DEVELOPMENT MILESTONES AND RELATED SCHEDULES....................... 13

2.9 SLS SUMMARY ............................................................................................................................... 14

III. MULTI-PURPOSE CREW VEHICLE .........................................................................................................15

3.1 INTRO.............................................................................................................................................. 15

3.2 BACKGROUND................................................................................................................................. 16

3.3 OVERALL DESCRIPTION OF REFERENCE VEHICLE DESIGN .............................................................. 17

3.4 PLAN FOR UTILIZATION OF EXISTING CONTRACTS, CIVIL SERVICE AND CONTRACT WORKFORCE .... 19

3.5 PLAN FOR SUPPORTING INFRASTRUCTURE UTILIZATION AND MODIFICATIONS ................................ 20

3.6 PROCUREMENT STRATEGY TO EXPEDITE DEVELOPMENT ACTIVITIES THROUGH MODIFICATION OF 

EXISTING CONTRACT VEHICLES ................................................................................................................ 20

3.7 SCHEDULE AND DESIGN OF DEVELOPMENT MILESTONES AND RELATED SCHEDULES....................... 21

3.8 MPCV SUMMARY ........................................................................................................................... 21

IV. SUMMARY ......................................................................................................................................................22
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Executive Summary

NASA prepared this preliminary report regarding NASA’s plans for developing a Space Launch 

System (SLS) and Multi-Purpose Crew Vehicle (MPCV) in response to direction in Section 309 

of the NASA Authorization Act of 2010 (P.L. 111-267):

SEC. 309: REPORT REQUIREMENT

Within 90 days after the date of enactment of this Act, or upon completion of reference 

designs for the Space Launch System and Multi-purpose Crew Vehicle authorized by this 

Act, whichever occurs first, the Administrator shall provide a detailed report to the 

appropriate committees of Congress that provides an overall description of the reference 

vehicle design, the assumptions, description, data, and analysis of the systems trades and 

resolution process, justification of trade decisions, the design factors which implement the 

essential system and vehicle capability requirements established by this Act, the explanation 

and justification of any deviations from those requirements, the plan for utilization of 

existing contracts, civil service and contract workforce, supporting infrastructure utilization 

and modifications, and procurement strategy to expedite development activities through 

modification of existing contract vehicles, and the schedule of design and development 

milestones and related schedules leading to the accomplishment of operational goals 

established by this Act. The Administrator shall provide an update of this report as part of 

the President's annual Budget Request in subsection (a) not later than one year after the 

date of enactment of this Act.

With the President’s signing of the NASA Authorization Act of 2010 on October 11, 2010, 

NASA has a clear direction and is making plans for moving the Agency forward. NASA 

appreciates the significant effort that has gone into advancing this bipartisan legislation, 

particularly efforts by the leadership and Members of this Committee. There are still details that 

the final FY 2011 appropriations outcome and the President’s FY 2012 budget request will 

provide, but broad guidelines have now been enacted into law. This is a time of opportunity for 

NASA to shape a promising future for the Nation's space program. Today it is no longer a 

question of IF we will explore, but how.

Since the enactment of the Authorization Act, NASA has been working expeditiously to meet the 

requirements of the Act, and this preliminary report details our best information for the MPCV 

and SLS as of early January 2010. NASA commits to providing a follow-on report to Congress 

as early as the Spring 2011 timeframe to update our approach based on the plans described herein 

and, if necessary, modifications based on the outcome of FY 2011 appropriations and the 

President’s FY 2012 budget request. 

On December 6, 2010, NASA formally established planning teams at Marshall Space Flight 

Center (MSFC) and Johnson Space Center for the eventual SLS and MPCV programs, 

respectively, to carry out the work described in this report.

Guidance from the Administrator has established three principles for development of any future 

systems for exploration. These systems must be affordable, sustainable, and realistic. To date, 

trade studies performed by the Agency have yet to identify heavy-lift and capsule architectures 

that would both meet all SLS requirements and these goals. For example, a 2016 first flight of 

the SLS does not appear to be possible within projected FY 2011 and out year funding levels. 

Based on the guidance in the Authorization Act to take advantage of existing designs and 
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hardware, the Agency has selected Reference Vehicle Designs for both of these vehicles as bases 

from which to work and which we believe most closely align to the requirements and goals of the 

Authorization Act. However, to be clear, neither Reference Vehicle Design currently fits the 

projected budget profiles nor the schedule goals outlined in the Authorization Act. Additionally, 

it remains to be determined what level of appropriations NASA will receive in FY 2011 or 

beyond – a factor that will impact schedule as well. 

NASA has developed a process to make progress on the Reference Vehicle Design for the SLS 

while the Agency determines whether the design is sufficiently affordable, sustainable, and 

realistic, and also while the Agency studies other options to solicit innovative ideas and ensure 

the best value for the American taxpayers. Given that affordability for heavy-lift is a primary

objective, second to crew and public safety, NASA has initiated several industry study contracts 

regarding heavy-lift and propulsion. The study contracts will help inform decisions on the final 

detailed design concept and acquisition details for the SLS. In parallel, NASA will conduct 

studies on concepts that were competitive in our internal trade studies to validate, support, or 

challenge our current thinking in an effort to ensure an affordable design that meets Authorization 

Act requirements. 

By Spring of 2011, NASA expects to have completed several key analytical steps:

Analysis of the current Ares and Shuttle contracts for their applicability to the future 

development program;

Analysis of the cost and benefits of the Reference Vehicle Design and other vehicle 

designs 

Analysis of potential initial procurement approaches (in the case when procurements are 

required, NASA will follow applicable procurement regulations, including the March 4, 

2009, Presidential Memorandum on Government Contracting).

With regard to NASA’s MPCV requirement, NASA has performed initial assessments of the 

current Orion Project’s applicability to the new MPCV requirements in the Authorization Act, 

and has adopted the beyond-low Earth orbit (LEO) Orion design as the Reference Vehicle Design 

for MPCV. These initial assessments included factors such as the current Orion design and 

phased development approach for operational beyond-LEO capabilities, the current Project 

organization and processes, existing facilities and infrastructure, and the current prime contract. 

For the near term, NASA will continue work on the Orion until the MPCV Program is formally 

authorized to proceed, and once authorized to proceed, NASA plans to initiate the Program with 

design robustness and affordability while making use of current Orion investments and workforce 

as practicable. 

NASA recognizes it has a responsibility to be clear with the Congress and the American 

taxpayers about our true estimated costs and schedules for developing the SLS and MPCV, and 

we intend to do so, to the best of our ability in this preliminary report, as well as in the follow-on 

report. To this end, NASA commits to obtaining independent (outside of the Agency) 

assessments of cost and schedule for SLS and MPCV design options as part of its decision 

process this Spring or Summer, and further to make these assessments public.

Currently, our SLS studies have shown that while cost is not a major discriminator among the 

design options studied, none of the design options studied thus far appeared to be affordable in 

our present fiscal conditions, based upon existing cost models, historical data, and traditional 

acquisition approaches. Operational costs will have to be scrutinized and reductions from current 
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projections will be needed in order to ensure affordable operations and so that funds are available 

for other necessary Exploration developments such as long-duration habitats and landers. A 

feature of the Shuttle/Ares-derived reference vehicle is that it enables leveraging of current 

systems, current knowledge base, existing hardware and potentially current contracts, thereby 

providing schedule and early-year cost advantages. However, a 2016 first flight does not appear 

to be possible within projected FY 2011 and out year funding levels, although NASA is 

continuing to explore more innovative procurement and development approaches to determine 

whether it can come closer to this goal. In this context, we are still reviewing overall 

affordability for the longer-term, and alternative design analysis continues to be part of our 

strategy. Other technical options will be considered based on industry input, innovative 

methodologies for affordability will be explored, and partnership opportunities will be pursued 

with other government agencies with the goal of identifying a significant affordability benefit. 

It is clear that successful development of SLS and MPCV will be dependent on sufficiently stable 

funding over the long term, coupled with a successful effort on the part of NASA and the 

eventual industry team to reduce costs and to establish stable, tightly-managed requirements. 

All development options require NASA’s greatest asset, our skilled workforce, consisting of both 

civil servants and contractors who embody 50 years of learning and expertise. Although NASA 

must find greater efficiencies in its next-generation human spaceflight efforts, NASA will strive 

to utilize our workforce in a manner that will ensure that the Nation maintains this unique asset 

during the development of the SLS and the MPCV, focusing on safely executing the NASA 

mission and achieving our affordability and sustainability goals.

In summary, we are committed to developing an affordable, sustainable, and realistic nextgeneration human spaceflight system that is in the best interests of the Nation, and we therefore 

look forward to working with Congress as we finalize our strategy for achieving human 

spaceflight to many destinations in our solar system.

I. Where We Are Today: Our Assumptions

NASA recognizes the constrained budgetary environment, and therefore is grateful for the strong 

ongoing support of Congress for NASA and our human spaceflight programs. We pledge to be 

wise stewards of taxpayer dollars in our journey to develop the next-generation vehicles that will 

allow us to explore near-Earth asteroids, the Moon, Lagrange points, and, ultimately, Mars. With 

the enactment of the NASA Authorization Act of 2010 and guidance provided by the new 

National Space Policy, it is no longer a question of IF we will explore, but how.

In developing this preliminary report, NASA has begun with a series of assumptions that were 

based on policy direction, requirements, and goals in the Authorization Act, as signed by the 

President on October 11, 2010. Additionally, guidance from the NASA Administrator has 

established three principles for development of any future systems for exploration – namely that 

these systems must be affordable, sustainable, and realistic. By definition, affordability implies 

we will remain under the mandated funding curve at all points in the life cycle (out years) of 

resultant systems and it is essential that any design selected be affordable over the long-term. 

This means that not only should the operation of the vehicles fit within a realistic budget profile, 

but also that enough room must be left in the profile to develop other key elements of the 

exploration architecture and ultimately conduct meaningful missions. Along with safety, this 

over-arching consideration of affordability must be a central part of any planning that takes place 

on these transportation systems going forward. Further, the cost and operational capability of the 
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systems must be sustainable over multiple Administrations and multiple Congresses. Any 

designs selected also must meet the test of being realistic – not relying on assumptions of 

increased funding or other “miracles” for attainment. 

NASA is currently in the process of running budget exercises to determine the implications of 

various potential budget scenarios, and thus creating development schedules to fit those 

associated budget profiles. In doing so, we have utilized traditional cost models and expunged 

any systems that did not fit within the funding and schedule goals provided by the Authorization 

Act. However, until NASA has final FY 2011 appropriations and the FY 2012 President’s budget 

request to work from, we cannot at this time finalize our assessments for the SLS, the MPCV and 

their associated support elements, and thus this report can only provide details that we know as of 

early January 2011. Therefore, it is clear that final funding levels will drive many other key 

decisions NASA still needs to make, including schedule projections and acquisition plans. 

In parallel to these budget exercises, NASA continues to perform technical assessments to 

determine the best path forward for both the SLS and the MPCV. As of late December, NASA 

had selected Reference Vehicle Designs for both of these vehicles as bases from which to work 

and which we believe most closely align to the requirements and goals of the Authorization Act. 

However, to be clear, neither Reference Vehicle Design currently fits the projected budget 

profiles nor the schedule goals outlined in the Authorization Act. Additionally, it remains to be 

determined whether NASA will receive appropriations consistent with the full authorized level in 

FY 2011 or beyond – all factors that will impact schedule as well. 

For the SLS, the Agency has decided to use a Reference Vehicle Design that is derived from Ares 

and Shuttle hardware, given the Congressional direction and that our initial studies have shown 

that development cost is not a major discriminator in the near-term when it comes to varying 

heavy-lift configurations. The current concept vehicles would utilize a liquid oxygen/liquid 

hydrogen (LOX/LH2) core with five RS-25 Space Shuttle Main Engine (SSME)-derived engines, 

five-segment solid rocket boosters, and a J-2X based Upper Stage for the SLS. This would allow 

for use of existing Shuttle and Ares hardware assets in the near term, with the opportunity for 

upgrades and/or competition downstream for eventual upgrades in designs needed for affordable 

production.

For the MPCV, the Agency has decided to utilize the Orion as the Reference Vehicle Design. 

The Orion development effort already has benefited from significant investments and progress to 

date, and the Orion requirements closely match MPCV requirements as defined in the 

Authorization Act. Like with the SLS, NASA’s acquisition strategy for the MPCV and plans for 

utilizing current Agency infrastructure and facilities for both vehicles must still be formalized in 

the coming months as final FY 2011 appropriations are received, the President’s FY 2012 budget 

request is released, and as both programs are formally initiated. 

As stated earlier, another unknown for the Agency is schedule. While the Authorization Act sets 

a goal of 2016, a first flight this early does not realistically appear to be possible based on our 

current cost estimates for the Reference Vehicles and given the levels proposed in the 

Authorization Act. NASA is in the process of developing an integrated schedule for the SLS and 

MPCV Vehicles. This schedule requires additional time for development due to the on-going 

SLS trade studies, understanding of the appropriated budget profile, integration of the respective 

budget profiles, and development of the acquisition strategies. The integrated schedule will also 

address the relative development maturity of the SLS and MPCV reference vehicles. The SLS 

and MPCV planning teams are working to align the respective budgets and schedules. A draft 

version of the integrated schedule will be included in the update to this report.
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Additionally, the acquisition strategy for both vehicles will not be solidified until all pertinent 

information is obtained to finalize a strategy, assure an affordable solution, and then gain final 

Agency approval. NASA will follow its Agency acquisition process to make decisions in a 

timely way and ensure that programs remain consistent with NASA’s Strategic Plan and Agency 

commitments. 

As part of that process, NASA will hold an Acquisition Planning Meeting that will review the 

early acquisition plans of the SLS and MPCV programs, followed by an Acquisition Strategy 

Meeting that will provide formal Agency approval of their plans for formulation and 

implementation plans for both programs. And finally, prior to the release of any procurement 

solicitation, NASA will hold a Procurement Strategy Meeting to approve the specific details for 

each individual procurement action. NASA hopes to finalize its acquisition decisions as early as 

Spring of 2011– details that will be included in a follow-on report to Congress. 

II. Space Launch System

2.1 Intro 

The NASA Authorization Act of 2010 directs NASA to develop an SLS as a follow-on to the 

Space Shuttle that can access cis-lunar space and the regions of space beyond LEO in order to 

enable the United States to participate in global efforts to access and develop this increasingly 

strategic region. The Act also provides a series of minimum capabilities that the SLS vehicle 

must achieve: 

The vehicle must be able to initially lift 70-100 tons to LEO, and must be evolvable to 

130 tons or more;

The vehicle must be able to lift a MPCV; and

The vehicle must be capable of serving as a backup system for supplying and supporting 

cargo and crew delivery requirements for the International Space Station (ISS) in the 

event such requirements are not met by available commercial or partner-supplied 

vehicles.

The Act also directs NASA to begin development of the SLS vehicle “as soon as practicable after 

the date of the enactment of” the NASA Authorization Act of 2010 and with the goal of achieving 

operational capability for the core elements not later than December 31, 2016. 

The Act authorizes a total of $6.9 billion for SLS development over a three-year period, with $1.6 

billion authorized in FY 2011. However, the final SLS funding guidelines are pending the 

enactment of FY 2011 appropriations.1 The amount appropriated for SLS development efforts in 

FY 2011 – and the phasing of the funding in the five-year plan reflected in President’s FY 2012

budget request – are important factors that will allow NASA to finalize plans for the SLS.

 

1 The FY 2011 Senate Appropriations Report would fund the SLS at $1.9B in FY 2011, and with a 

proposed cost cap of $11.5B through FY 2017. Within 60 days of enactment of the appropriations bill, 

NASA is directed to submit a report that includes, among other things, an evaluation of this proposed cost 

cap.
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In compliance with the Act, NASA plans to make use of current investments and workforce as 

appropriate. The Nation’s new SLS will leverage these critical capabilities and experience and 

will be designed with innovation, robustness and affordability. It also will employ modern 

manufacturing and processing techniques, improved insight and oversight practices, and 

streamlined infrastructure requirements, while also reducing other fixed costs to help drive down 

development and operational costs, as also required by Congress. We therefore request that the 

Agency continue to be given the flexibility it needs to develop the optimal solutions for SLS and 

the associated schedule that best benefits the Agency’s mission and is affordable in the long-term.

2.2 Heavy-Lift Background

Over the course of the last decade, NASA has analyzed more than 2,000 separate launch vehicle 

concepts and architectures, with varying figures of merit, and in concert with industry and 

multiple potential partners such as the Department of Defense (DOD). These studies have 

established a broad collection of reference launch vehicle configurations that the Agency 

continues to refine consistent with the evolving figures of merit noted earlier – where 

affordability has been established by the Administrator as dominant.

In 2009, NASA initiated a comprehensive internal study to examine the trade space for heavy-lift 

vehicles for the next-generation of human spaceflight systems. This study, jointly commissioned 

by NASA’s ESMD and the Space Operations Mission Directorate (SOMD), quantitatively 

addressed launch vehicle configurations, both new concepts and those previously studied by 

NASA, with the specific goal of comparing concepts using common ground-rules, assumptions, 

and figures of merit (such as cost, number of launches for various deep space missions, etc.) to 

evaluate each launch vehicle option consistently. Numerous launch vehicle concepts were 

studied including variations of liquid oxygen/liquid hydrogen (LOX/LH2) heavy lift vehicle 

architectures with solid rocket boosters (side-mount and inline Shuttle derived options), and 

LOX/Hydrocarbon heavy lift launch vehicle architectures. The LOX/Hydrocarbon vehicle 

concepts were less mature than the LOX/LH2 concepts at the time of the study.2 Initial findings 

of this study showed that neither development schedules nor life cycle costs for the various 

launch vehicle concepts were discriminators and that annual recurring costs for any concept 

would need to be reduced through aggressive cost reduction measures.

In May 2010, NASA initiated a joint NASA-DOD study to determine the feasibility of a common 

large hydrocarbon engine that could be used by multiple stakeholders including NASA, DOD, 

and industry. The team defined engine requirements, studied the impact of fuel depots on the 

launch vehicle architecture, and assessed the impacts on the National industrial base if large 

hydrocarbon or rocket propellant (RP) engines were selected over large segmented solids. Five 

families of RP vehicles of varying configurations were studied to meet the NASA missions; the 

Air Force used its current Atlas V fleet as their reference vehicle for the study. The Air Force

was looking at a modest upgrade with minimal change to the existing structure of Atlas V. After 

six weeks of thorough analysis, the team concluded that there is significant synergy should 

NASA pursue a kerosene (RP-1) / liquid oxygen launch system. The team has identified three 

common engines for use on NASA’s heavy lift launch vehicle and DOD’s launch vehicle needs. 

The three common engines identified were:

 

2 Additional studies were later performed to mature these concepts to the same level as the LOX/LH2 

heavy-lift concepts.
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A RP Oxygen-Rich Staged Combustion core stage engine with a thrust level of 1.0 to 

1.25 million pounds (Mlbf), with an Air Force need date of 2018;\.

A J-2X class LH2 engine with a thrust level of approximately 294 pounds (Klbf), with an 

Air Force need date of 2025; and

A RL-10 Replacement Engine; expander cycle with a thrust level of approximately 30 

Klbf), with an Air Force need date of 2020.

The decision for choosing the next SLS is not clear-cut. With the numerous trade studies that 

have already been performed, the Agency has determined that there is not a “one size fits all” 

vehicle selection. 

Another key NASA study was performed by MSFC in September 2010. This Figures of Merit 

(FOM) analysis looked at various launch vehicle architectures that have been studied over the 

years. In doing so, five heavy lift launch vehicle families were reviewed: 

A 27.5-foot diameter core LOX/LH2 vehicle with five RS-25D/E core stage engines and 

two five-segment polybutadiene acrylonitrile (PBAN) solid rocket boosters;

A 33-foot core LOX/LH2 vehicle with six RS-68 core stage engines, an Upper Stage with 

two J-2X engines and two five-segment PBAN solid rocket boosters;

A 33-foot diameter core LOX/RP vehicle with five 2.0 Mlbf thrust RP core stage engines 

(Gas Generator or GG) and an Upper Stage with one J-2X Upper Stage engine;

A 33-foot diameter core LOX/RP vehicle with five 1.25Mlbf thrust RP core stage engines 

(Oxygen Rich Stage Combustion or ORSC) and an Upper Stage with one J-2X engine; 

and

A hybrid Heavy Lift Launch Vehicle – a clean-sheet combination of a LH2 core stage 

with RP strap-on boosters.

In conducting its analysis and while maintaining a threshold safety requirement, the MSFC team 

performed an analytical hierarchy process and used weighted FOMs as follows: 

Affordability3: 55 percent

Schedule: 25 percent

Performance: 10 percent

Programmatic: 10 percent

The findings of the MSFC study showed that the 27.5-foot LOX/LH2/SSME HLV and 2Mlbf GG 

RP vehicles were highest rated across all of the FOMs. The 2.0 Mlbf RP engine vehicle scored 

better than the 1.25 Mlbf RP common engine because of its higher reliability (more engines 

would be required for 1.25 Mlbf). However, the LOX/LH2 RS-68 vehicle and the combined 

vehicles (LH core and RP strap-on boosters) did not fare well due to high potential costs and 

underrated performance.

In these studies, NASA used traditional cost modeling techniques, which reflect current 

development and operational practices. With these traditional cost models, development of these 

systems did not fit within the funding and schedule specified in the Authorization Act of 2010. In 

light of the studies performed to-date, NASA recognizes that in order for the exploration missions 

to have a sustainable manifest or cadence, future launch systems and infrastructures (and their 

corresponding missions) must be affordable to develop and to operate. The costs for design, 

 

3

It should be noted that NASA reviewed affordability of development and operation.
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development, test and evaluation (DDT&E) for new propulsion systems must be driven to be 

within the projected NASA budgets through improved practices and streamlined supporting 

infrastructure as well as exploring partnerships with other Government agencies and commercial 

partners. Similarly, the recurring costs of producing and operating these systems in future space 

exploration missions must be dramatically reduced to enable future NASA missions. NASA is 

committed to finding the necessary efficiencies to drive costs down and develop this system as 

soon as possible.

2.3 Overall description of Reference Vehicle Design 

Informed by the analyses described above, and consistent with the requirements of the 

Authorization Act, the current NASA Reference Vehicle Design assumes a 27.5-foot diameter 

LOX/LH2 core stage with five SSME-derived engines, also known as RS-25D/E engines, a J-2Xbased Upper Stage, and two Ares-derived five-segment PBAN solid rocket boosters to provide an 

ultimate lift capability of approximately 130 metric tons to LEO. This design would allow NASA 

to use existing Shuttle main engine and booster component assets in the near term, with the 

opportunity for upgrades and/or competition downstream for eventual upgrades in designs needed 

for production of engines after flying out the current inventory of main engines and booster 

components. It also would allow flexibility in phasing costs for these design upgrades. This 

reference configuration would take advantage of the skills of the current workforce and allow for 

competition as design upgrades or configuration changes occur. Knowledge gained in the 

development effort could provide an informed basis for the follow-on production and operations 

of the launch system leading to informed, affordable production contracts.

The overarching goal of the SLS is to enable human exploration at the highest possible safety 

standards and the lowest life-cycle costs for beyond-LEO missions. Based on current information 

and analysis, the Reference Vehicle Design represents the lowest near-term costs, soonest 

available, and the least overall risk path to the development of the next, domestic heavy lift 

launch vehicle. Selecting this SLS architecture would mean that a new liquid engine in the near 

term would not need to be developed, thus shortening the time to first flight as well as likely 

minimizing the overall DDT&E cost of the SLS. However, the Reference Vehicle Design may 

not be affordable within expected budget levels. These issues are being considered in NASA’s 

ongoing trades and analyses, as outlined below.

2.4 System Trades and Analyses

NASA is devising affordability strategies in this context to enable meeting the given budget 

constraints while also meeting the requirements of the Authorization Act. In FY 2011, the SLS 

formulation phase will pursue multiple parallel activities to help drive down the development and 

operations costs for the SLS. NASA plans to transition relevant work from the Space Shuttle 

Program and Ares Project to the new SLS Program, while also continuing to define the 

requirements for the new SLS system. 

NASA is performing its analyses using a government Requirements Analysis Cycle (RAC), in 

which ESMD, with support from the SLS Center Planning Team at MSFC, will develop a set of 

SLS requirements by early Spring 2011. These requirements will be informed by NASA analysis 
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of the direction in the Authorization Act, needed SLS safety, performance, existing national 

capabilities, and Administration priorities. NASA has assembled four multi-Center formulation 

teams: 1) a team focused on the LOX/LH2 Reference Vehicle Design; 2) a team focused on a 

LOX/RP-derived architecture; 3) a team focused on a modular, common-core launch vehicle 

architecture; and 4) a team focused on affordability. The LOX/LH2 team will evaluate the 

Reference Vehicle Design (point of departure) while the other two vehicle assessment teams are 

analyzing alternative architectures as required to support NASA’s acquisition process and to 

determine if one of the alternatives would provide costs that are dramatically reduced compared 

with the Reference Vehicle Design. 

All four NASA study teams will be challenged to reach completion of a preliminary analysis of 

high-level system requirements by March 2011, which will include initial development planning, 

design concept, and preliminary Level II requirements. In the end, the RAC will accomplish 

multiple objectives: 

Infuse affordability of both development and operations without compromising safety as 

the predominate figure of merit into the DDT&E process;

Allow NASA to exercise an enhanced and leaner SE&I approach;

Allow NASA to become a smart buyer for the eventual procurement; and

Make forward progress toward launch vehicle development.

In parallel with the RAC teams, on November 8, 2010, NASA announced the results of the heavy 

lift and propulsion study contracts that were awarded as part of a Broad Agency Announcement 

(BAA) issued in May 2010. As part of this competitive solicitation, utilizing approximately $7.5

million in FY 2010 dollars, NASA selected 13 companies to conduct six-month studies 

examining the trade space of potential heavy-lift launch and space transfer vehicle concepts. The 

BAA is focused on achieving affordability, operability, reliability and commonality at the system 

and subsystem levels with multiple users, including other Government, commercial, science and 

international partners. These trade studies will provide a “fresh look” at innovative launch 

vehicle concepts, propulsion technologies and processes that can be infused into the development 

of the new human exploration missions – information that will be used to help inform the overall 

selection and development of the final SLS vehicle detailed design. 

The Kennedy Space Center (KSC) Ground Processing Team will be an active participant on the 

SLS design teams due to the substantial impacts to their system design and operations as well as 

MPCV and Mission Operations. NASA plans to institute a “Red Team” to review the results of 

the requirements review in a board format. The “Red Team” evaluations will be based on key 

drivers including affordability, partnerships, innovation, and lean systems engineering and 

integration approach, and leverage of prior investments. The RAC study team results will be 

used to develop and refine the vehicle design concepts and to determine whether the NASA 

Reference Vehicle Design meets the SLS mission requirements as well as the Administrator’s 

goals that the design be affordable, sustainable, and realistic. To this end, NASA commits to 

obtaining independent (outside of the Agency) assessments of cost and schedule for SLS and 

MPCV design options as part of its decision process this Spring or Summer, and further to make 

these assessments public.
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2.5 Plan for utilization of existing contracts, civil service and contractor workforce 

In keeping with in the NASA Authorization Act of 2010, which states that the Administrator shall 

“...to the extent practicable extend or modify existing vehicle development and associated 

contracts necessary to develop the SLS,” NASA has chosen a Reference Vehicle Design that 

makes maximum use of heritage hardware designs and existing assets.4In addition, the Ares I 

(First Stage, Upper Stage, J-2X) contracts and workforce (both civil servant and industry 

partners) will continue along their current development plan within the existing FY 2011 

Continuing Resolution funding constraints so that technologies and processes developed for that 

Project can be readily transferred to the SLS Program.

It is clear that NASA possesses valuable assets from the Shuttle Program and Ares Project that 

could be directly applied to the development of the SLS. To the extent practicable, NASA 

intends to leverage and build off of previous investments from all human spaceflight programs. 

For example, from the Shuttle Program, critical assets that could contribute to the success of the 

SLS development are ground handling hardware and materials from the External Tank as well as 

15 remaining SSMEs (RS-25D). The Ares Project’s five-segment boosters, J-2X Upper Stage 

engine, and the Ares I Upper Stage manufacturing concepts and instrument unit assembly also 

could be applicable for the SLS. Using existing hardware assets, such as the Shuttle main engines 

and solid rocket components, can help in phasing development of improvements for affordability 

as these assets are flown out in early tests.

Assuming current trade and analysis activities go as planned, and FY 2011 appropriations are in 

place, NASA plans to make final acquisition decisions for the SLS as early as Spring 2011. Such 

a decision will take into account Agency analysis on whether the existing Ares and Shuttle 

contracts could be used for SLS work. Data from the RAC and the BAA study contracts also will 

be used to help make an informed decision about SLS technical alternatives that will inform 

procurement and workforce matters. 

As noted earlier, NASA’s workforce is our most valuable asset. Therefore, our consideration of 

future workforce implications will include how NASA must address the potential loss of the skillbase and knowledge base of both the NASA workforce and the industry partners. It must also 

take into account the advantages of a leaner team in achieving an affordable system.

2.6 Plan for supporting infrastructure utilization and modifications 

ESMD will work closely with SOMD to assure that the ground infrastructure plan and associated 

modifications are developed in support of the SLS requirements. Overall supporting 

infrastructure must be minimized in these future programs to be affordable. NASA intends to use 

only what is needed of existing capabilities, facilities and infrastructure with minimum 

modification to conserve limited resources. New ground infrastructure and other supporting 

elements will be minimized unless they prove to be more affordable.

 

4

Consistent with the provisions of the FY 2010 Consolidated Appropriations Act (P.L, 111-117), and other 

law, NASA is continuing to implement the programs and projects for the architecture of the Constellation 

Program while we await our final FY 2011 appropriations direction.
13

NASA has many unique facilities and infrastructure that can contribute to the successful 

development of the SLS. Such facilities include the Michoud Assembly Facility, propulsion test 

stands at the Stennis Space Center, as well as the vehicle processing, integration and launch 

complexes at KSC. The use of these facilities will be considered in the analysis for life cycle 

costs and right-sized infrastructure. During the RAC studies, NASA will investigate potential 

facilities and evaluate the required modifications to existing infrastructure that could be used to 

support the SLS. This evaluation will be closely linked to all efforts within the 21 Century 

Launch Complex activity managed by SOMD. RAC analysis will include a plan of the specific 

facilities and infrastructure to be utilized during the development of the SLS. This plan will be 

described in the updated SLS/MPCV report.

2.7 Procurement strategy to expedite development activities through modification of existing 

contract vehicles 

NASA is still in the process of developing the full acquisition strategy for the SLS. Given that 

the current Reference Vehicle Design utilizes heritage systems from Shuttle and Ares, NASA is 

evaluating existing Ares and Shuttle contracts -- and potential money saving improvements and 

modifications to them -- to determine whether those contracts could be used for development 

work on the SLS and whether doing so would be the most affordable and efficient option for 

developing the SLS. 

In the meantime, in order to maintain existing capabilities during this planning effort, as 

discussed in Section 2.4, NASA continues work on the elements of the Ares I Project that are 

most likely to feed forward into the SLS. 

Reducing recurring and operations costs will be one of the greatest challenges for the SLS team. 

For all SLS acquisitions and development activities, NASA will employ innovative acquisition 

approaches such as Design-to-Cost and Life Cycle Costs that utilize industry best practices; 

consider incentives for contractor reductions in fixed costs; and address cultural changes within 

the Agency to focus more on affordability rather than just performance factors. More 

specifically, NASA plans to focus on a number of affordability initiatives such as: 1) identifying 

affordability as the over-riding driver while not reducing safety priorities, 2) exploring innovative 

acquisition approaches and incentivizing industry partners to focus on building a system that is 

economical to operate, 3) coordinating with the 21st Century Launch Complex planning effort to 

achieve an efficient operational concept that reduces excessive infrastructure fixed costs, and 4) 

exploring opportunities and approaches for implementing an efficient, right-sized Government 

insight workforce and industrial base. NASA is looking to the recently awarded study contracts 

to engage industry in identifying potential cost-saving approaches.

2.8 Schedule and design of development milestones and related schedules 

As noted earlier, the NASA Authorization Act of 2010 directs NASA to begin development of the 

SLS vehicle “as soon as practicable after the date of the enactment” and with the goal of 

achieving operational capability for the core elements not later than December 31, 2016. While 

NASA will work as expeditiously as possible to meet the 2016 goal, NASA does not believe this 

goal is achievable based on a combination of the current funding profile estimate, traditional 
14

approaches to acquisition, and currently considered vehicle architectures. However, we are 

exploring more innovative procurement and development strategies to determine whether we can

come closer to the December 31, 2016 goal. It is clear that innovative, lower cost ways of doing 

business and expedited processes at all levels must be implemented for SLS to achieve the first 

flight milestone anywhere near this goal. NASA will be pursuing such innovations as we 

formulate plans for SLS development. 

NASA is hopeful that the RAC teams and the BAA study contracts teams will develop ideas to 

accelerate that development timeline such that it comes as close to the goal identified in the 

Authorization Act as possible, given budget realities and the need for the program to be 

affordable over the long-term. We will not commit to a date that has a low probability of being 

achieved. Additionally, NASA believes that utilizing heritage systems could help expedite the 

development process, even though launch vehicle integration challenges would still exist as a 

schedule threat. It is important to note, however, that it is very likely this first flight would not be 

“operational” under traditional NASA definitions. 

2.9 SLS summary 

In summary, the current SLS Reference Vehicle Design would utilize to the maximum extent 

practicable assets from the Space Shuttle Program and Ares Project. The Reference Vehicle 

Design is an in-line, large-diameter liquid oxygen/liquid hydrogen (LOX/LH2) core stage with 

multiple liquid propulsion core stage SSME-derived engines, and two five segment solid rocket 

boosters. The Upper Stage consists of a J-2X cryogenic Upper Stage with approximately 

294 klbf thrust capability. The vehicle will be able to meet the following requirements specified 

in the NASA Authorization Act of 2010: 1) initially lift approximately 100 tons to LEO, and be 

evolvable to 130 tons or more; 2) be able to lift an MPCV; and 3) be capable of serving as a 

backup system for supplying and supporting cargo and crew delivery requirements for the ISS –

if such requirements are not met by available commercial or partner-supplied vehicles. 

The Reference Vehicle Design does not appear to be affordable within expected budget levels

(based upon traditional cost models and acquisition approaches), thus NASA will also investigate 

alternative concepts, cost estimating and acquisition approaches over the coming months. The 

SLS acquisition strategy will not be solidified until all pertinent information is obtained to 

finalize a strategy and gain Agency approval. NASA will follow its Agency acquisition process 

by requiring the earliest possible informed decisions to ensure that programs remain consistent 

with NASA’s Strategic Plan and Agency commitments and are affordable and sustainable in the 

long-term. 

This preliminary report has highlighted the approach and content for the SLS, known as of early 

January 2011. In order to fully comply with direction in Section 309 of the NASA Authorization 

Act 2010, NASA will submit a more defined, detailed and comprehensive report to Congress as 

early as the Spring 2011 timeframe that will include a more mature assessment of our design, 

acquisition approach, and an operational readiness goal.
15

III. Multi-Purpose Crew Vehicle

3.1 Intro 

The NASA Authorization Act of 2010 directs NASA to develop an MPCV that continues the 

advanced development of the human safety features, designs, and systems in the Orion Project. 

The Act also provides a series of minimum capability requirements that the MPCV must achieve:

The vehicle must be able to serve as the primary crew vehicle for missions beyond LEO;

The vehicle must be able to conduct regular in-space operations, such as rendezvous, 

docking and extra-vehicular activities, in conjunction with payloads delivered by the SLS 

or other vehicles in preparation for missions beyond LEO;

The vehicle must provide an alternative means of crew and cargo transportation to and 

from the ISS, in the event other vehicles, whether commercial or partner-supplied, are 

unable to perform that function; and 

The vehicle must have the capability for efficient and timely evolution.

The Act also sets a goal of full operational capability not later than December 31, 2016. 

In terms of funding, the Act authorizes a total of $3.92 billion for MPCV development over a 

three-year period, beginning with $1.12B authorized in FY 2011. However, the final MPCV 

funding guidelines are pending the enactment of FY 2011 appropriations.5 In the meantime, 

NASA is proceeding based on the FY 2011 Continuing Resolution funding and budgetary 

projections derived from the Authorization Act guidance. The final amount appropriated for 

MPCV development efforts in FY 2011 – and the phasing of funding reflected in the five-year 

plan in the President’s FY 2012 budget request – are important factors that will drive NASA’s 

final planning efforts for the MPCV.

It is important to note that the MPCV Project will be operating in a cost-constrained environment. 

The three-year authorized funding level represents a significant reduction6relative to previously 

planned Orion budgets. Therefore, controlling and reducing costs will require implementing

numerous affordability measures such as streamlining NASA’s insight/oversight of contractor 

activities, implementing a streamlined test and verification strategy consistent with other 

aerospace practices, phasing work to meet spending rate targets, adopting incremental 

development methods to achieve capabilities consistent with the Agency strategy, realizing 

efficiencies in the implementation of internal NASA governance and program management 

processes and practices, and optimizing agency facilities and infrastructure costs among others. 

However, NASA is confident that the MPCV can be designed with robustness and affordability, 

given the flexibility to develop optimal technical solutions for the MPCV and an associated 

schedule that best benefits the Agency’s long-term exploration needs. 

 

5

The FY 2011 Senate Appropriations Report would fund an Orion Crew Exploration Vehicle at $1.1B in 

FY 2011, with language stipulating ISS access by FY 2014 and with a proposed cost cap of $5.5B through 

FY 2017 of $5.5B, which is less than existing estimates of Orion costs-to-go to achieve crewed flights. 

Within 60 days of enactment of the appropriations bill, NASA is directed to submit a report that includes, 

among other things, an evaluation of this proposed cost cap.

6

NASA recently estimated that Orion would need a total of $11.5-$12.0 billion through 2015 in order to 

achieve the first crewed flight in 2015, minus the $4.9 billion already expended through November 2010. 
16

NASA’s initial assessments show high applicability of the Orion spacecraft development to the 

MPCV requirements specified in the NASA Authorization Act of 2010, and this report describes 

how NASA has chosen the Orion as its Reference Vehicle Design. Plans for acquisition strategy 

and use of infrastructure and facilities must be formalized through NASA’s required processes in 

the coming months as final appropriations – and the phasing of funding reflected in the five-year

plan in the President’s FY 2012 budget request – are received, and the MPVC Program is 

formally initiated. Therefore, NASA will provide an updated report to Congress as early as 

Spring 2011. 

3.2 Background

NASA’s plans for a crewed exploration vehicle and associated supporting functions such as space 

suits and mission operations have been evolving over a seven year period. Earliest plans involved 

a phased acquisition strategy with multiple competing vendors, with such a vehicle later 

becoming an integral part of the Constellation Program in the form of Orion, with mission 

requirements for both ISS crew and cargo transportation and lunar exploration. 

During the congressional consideration regarding NASA’s future direction that has taken place 

over the last year, progress on Orion and support functions has continued, albeit at a slightly 

slower pace than originally planned, with many of the lessons learned and other accomplishments 

from this time period being directly applicable to future MPCV work. For example:

In August 2009, Orion successfully completed the technical portion of its Project-level 

preliminary design review (PDR). This validated the designs as meeting requirements for 

both ISS crew and cargo transportation and beyond LEO exploration. This was followed 

by completion of the Phase I safety review, which validated that the PDR-level designs 

will meet NASA’s human rating requirements. (Cost and schedule elements of the PDR 

were not completed in this review.) Orion’s PDR level of design maturity will contribute 

to the success of the MPCV program.

On May 6, 2010, the Pad-Abort I test for Orion’s launch abort system (LAS) took place 

at the White Sands Missile Range in New Mexico. This test flight demonstrated a 

development version of the LAS by simulating an abort during an emergency occurring 

before the launch vehicle has left the pad. It also demonstrated an early version of the 

parachute and forward bay cover deployment design. All flight test objectives were fully 

met. Data gathered from the flight proved that the overall design concept and LAS 

architecture are feasible and will also improve computer design and analysis models and 

tools and reduce risks and uncertainty. The test also wrung out critical procedures, 

facilities and processes that will be directly applicable to the MPCV mission. All of this 

effort will directly contribute to final design of the launch abort system for the MPCV, 

which will ensure crews can be transported to safety during an SLS contingency 

requiring an abort. The test also marked a significant advancement in the state of the 

solid rocket technology base by demonstrating in flight the coordinated operation of three 

new solid rocket motors, two of which represented major technological advancements.

Fabrication of the Ground Test Article was completed in December 2010, at the Michoud 

Assembly Facility in Louisiana. This unique test article will be used for early systems 

integration tests, assembly evaluations, and development structural testing including 
17

water drop tests at the new Langley water basin facility. Data resulting from these 

evaluations and tests will directly contribute to the final designs of the structure, layout, 

and fabrication and assembly techniques for the MPCV. In fabricating the Ground Test 

Article, the Orion team has developed, tested, and refined self-reacting friction stir 

welding techniques that are ground-breaking in their size and quality. 

Given budget challenges in FY 2010, NASA is now developing plans for a phased development 

approach for the Orion that could carry over into the MPCV Program. This approach would defer 

work on some systems such as life support and extra-vehicular activity suits, while focusing on 

core components and systems that will be applicable to the MPCV such as vehicular structure, 

thermal protection systems and parachutes. This will enable incremental test flights and 

subsequent upgrades to full operational capability as quickly as the budget profile allows. 

In summary, the Orion work performed to date and the associated accomplishments establish an 

effective foundation for the development of NASA’s next human exploration vehicle as the 

MPCV. In light of this experience and lessons-learned, NASA recognizes that affordability is 

key to achieving a sustainable MPCV Program. The costs for MPCV DDT&E must be within the 

projected NASA budgets and affordable and sustainable once in operations. The recurring costs 

of producing and operating the MPCV must be significantly less than those of previous human 

spaceflight programs. To this end, NASA commits to obtaining independent (outside of the 

Agency) assessments of cost and schedule for SLS and MPCV design options as part of its 

decision process this Spring or Summer, and further to make these assessments public.

3.3 Overall description of Reference Vehicle Design 

NASA has performed initial assessments of the current Orion Project’s applicability to the new 

MPCV requirements in the Authorization Act, and has adopted the beyond-LEO Orion design as 

the Reference Vehicle Design for MPCV. This assessment has included the current Orion 

designs and phased development approach leading to operational beyond-LEO capabilities, the 

current Project organization and processes, existing facilities and infrastructure, and the current 

prime contract. 

The current Orion design supported by the FY 2010 appropriated budget consists of a Crew 

Module (CM), Service Module (SM), and the LAS. The CM would provide safe habitat for the 

astronauts from launch through landing and recovery, including launch/ascent/entry suits, and 

would be the only part of the spacecraft that would return to Earth following a mission. The SM 

would provide consumables, propulsion, and power generation for the spacecraft. Mounted at the 

top of the Orion and launch vehicle stack, the LAS would use a solid rocket motor to 

automatically separate the CM from the launch vehicle and position it for a safe landing should 

there be an emergency on the launch pad or during the climb to Earth orbit. Preliminary designs 

exist for both an ISS transportation version of the Orion and a lunar exploration mission version. 

The ISS mission design is capable of crew and cargo transport to LEO, whereas the lunar mission 

design is optimized to provide the capability for longer missions beyond LEO and a higher 

velocity re-entry. The NASA Reference Vehicle Design for MPCV is the beyond-LEO version 

of Orion, but the ISS designs demonstrate the capability of Orion to act as a backup to ISS as 

directed in the Act.
18

NASA’s current designs for the beyond-LEO (formerly lunar) version of the Orion include the 

following basic capabilities and specifications – all of which are traceable to MPCV requirements 

in the Authorization Act:

Crew size: 2 to 4

Crewed mission duration: 21.1 days

Velocity change capability: 5233 ft/s

Main engine thrust: 7,500 pounds

Pressurized volume: 690.6 cubic feet

Net habitable volume: 316 cubic feet

Skipped Entry Capability: Can traverse up to 4,800 nautical miles (nmi) from 

atmospheric entry interface to landing point from lunar return trajectories;

Landing: Water landing off California coast with a 5.4 nmi landing accuracy

EVA Capability: Via depressurization of the crew compartment

Based on the aforementioned minimum capability requirements listed in Section 3.1 of this 

report, NASA has concluded that the beyond-LEO version of the current Orion spacecraft meets 

the minimum capabilities required by the Authorization Act, in that it will:

Provide crew launch, return, and operation in deep space;

Be fully capable of performing missions in cis-lunar space; and 

Be evolvable to serve as the primary crew vehicle for missions beyond cis-lunar space. 

The Authorization Act also calls for the MPCV to be capable of providing, as a back-up to 

commercial crew and international partner services, crew and cargo transportation to and from the 

ISS. The beyond-LEO Orion also meets this requirement of contingency transportation to and 

from the ISS. Although the beyond-LEO Orion design does not include volume in the SM for 

large unpressurized cargo items for ISS, this is enabled in the Orion PDR design through mission 

kitting that would remove consumables tanks not needed for back-up ISS transportation missions 

and replace the volume with cargo capability. Other mission-specific design variations can be 

designed for the beyond-LEO Orion to enable support for the variety of other missions described 

in the Act, such as performing EVA, rendezvous and docking, and operating in conjunction with 

payloads delivered by the SLS or other vehicles in preparation for missions beyond LEO. 

Given the applicability of the current Orion work, NASA’s Reference Vehicle Design for MPCV 

is the beyond-LEO version of the current Orion. It must be emphasized for clarity that the MPCV 

design will be optimized for beyond-LEO exploration capability. Any contingency utilization as 

a backup-LEO crew vehicle will represent a highly inefficient vehicle usage. 

It is not yet clear whether the Reference Vehicle Design fully meets the NASA Administrator’s 

three principles for development of any future systems for exploration --– namely that these 

systems must be affordable, sustainable, and realistic. Further work is required in assessing

potential contract changes, oversight simplifications and other cost-saving measures to 

understand the degree to which this development meets these principles. NASA recognizes that 

new affordability strategies must be implemented in the design and Project management process 

to meet a constrained budget environment. Given these affordability challenges, NASA must 

validate this approach through our required acquisition process outlined in Section 1 of this 

report. If the current Reference Vehicle Design is found not to be affordable, sustainable, and 

realistic, then NASA will explore other options, including changes to the Reference Vehicle

Design.
19

There are some uncertainties for the Reference Vehicle Design with respect to integration with a

launch vehicle. The degree to which the final design for the SLS might affect the current Orion’s 

designs for ascent environments, abort conditions, staging scenarios, and physical connections is 

unknown. However, preliminary assessments indicate that environments and conditions driven 

by the Ares I vehicle, which drove the current Orion designs, will envelope any likely designdriving parameters of the SLS. This will, of course, be studied, verified, and tested as the designs 

for SLS mature. But at this point, NASA is confident that the robust design of the current Orion 

is such that integration with the SLS will not be a significant challenge.

In conclusion, NASA has evaluated the degree to which the existing Orion Project, including 

designs, facilities, infrastructure, organization, contract, and processes could be transitioned and 

continued under the MPCV Program. The current designs are a good match with the 

requirements specified in the NASA Authorization Act of 2010, although affordability and 

sustainability have not yet been proven and will weigh heavily in the final MPCV Program 

formulation. NASA hopes to provide final decisions in an updated report to Congress as soon as

Spring 2011.

3.4 Plan for utilization of existing contracts, civil service and contract workforce 

In keeping with the 2010 Authorization Act, which states that the Administrator shall “to the 

extent practicable extend or modify existing vehicle development and associated contracts 

necessary” to develop the MPCV, as well as the requirements of the FY 2011 Continuing 

Resolution, existing Constellation contracts pertaining to the Orion Project and supporting 

functions, including the Constellation Space Suit Systems (CSSS) contract, will continue to be 

executed, and other Government efforts will be on-going, while the final MPCV implementation 

plan is being developed7. This approach provides the fewest near-term job impacts while 

providing maximum leverage to the Agency to achieve the earliest MPCV approach that is 

affordable.

Plans for utilization of existing contracts, civil service, and contract workforce will be updated as 

necessary when final FY 2011 appropriations are provided– and the phasing of funding reflected 

in the five-year plan in the President’s FY 2012 budget request is known – and presented in the 

updated report to Congress. Initial planning is focusing on using the existing Orion Project 

contract, organization and workforce to the maximum extent possible. NASA plans to make final 

decisions pertaining to utilization of the existing contract for the MPCV by as early as Spring

2011.

 

7

 Consistent with the provisions of the FY 2010 Consolidated Appropriations Act (P.L, 111-117), and 

other law, NASA is continuing to implement the programs and projects for the architecture of the 

Constellation Program while we await our final FY 2011 appropriations direction.
20

3.5 Plan for supporting infrastructure utilization and modifications 

Many Orion support facilities are complete or nearing completion, and appear to be applicable to 

the MPCV Program. Despite the recent budget challenges, the Orion Project has continued 

progress on the highest priority facilities that would have applicability to MPCV. These include:

The Operations and Checkout Facility at KSC. Intended for Orion vehicle assembly and 

integration, it would be able to serve the same function for MPCV. 

The current Canister Rotation Facility at KSC. Intended for Orion LAS assembly, 

integration and checkout operations.

Systems Environmental Test facility at Plumb Brook Station. The completed facility will 

provide state-of-the art capability to simulate the space and launch environment, 

including vibration, aero-acoustic loads, and thermal/vacuum. This facility would likely 

meet qualification testing requirements for the MPCV.

Launch Abort Test complex at the U.S. Army’s White Sands Missile Range. This 

facility will support the processing and launch of sub-orbital test flights to validate a 

LAS’s performance during ascent. This will likely be required for MPCV.

Water drop test facility at Langley Research Center. To be used for simulating Orion’s 

water landings to test structure design and computer models. Will also be applicable to 

MPCV, assuming its landing strategy is Orion-derived.

However, it is important to note that no final decisions have been made yet with regard to 

infrastructure needs for the MPCV, and as such plans for completed and new infrastructure will 

be presented in the updated report to Congress. NASA hopes to make final decisions on MPCV 

supporting infrastructure utilization and phasing together with other programmatic decisions as 

soon as Spring 2011.

3.6 Procurement strategy to expedite development activities through modification of existing 

contract vehicles 

Given that the current Reference Vehicle Design builds on the Orion CEV, NASA will carefully 

examine whether it can utilize the current Orion contract awarded to Lockheed Martin in 

September 2006 to develop the MPCV. In doing so, NASA will have to determine whether the 

Lockheed Martin contract could be used for development work on the MPCV through mapping of 

requirements, between Orion and the MPCV, and whether doing so would be the most affordable 

and efficient option for developing the MPCV, including whether modifications to the contract 

would enhance affordability. Final decisions will be informed based upon technical analysis, 

budget projections based on the latest information for FY2011 and the out years, and acquisition

options. Additionally, NASA is evaluating the applicability of other support contracts such as the 

Constellation Space Suit Contract and the optimum long-term acquisition strategy for these 

functions. 

Reducing recurring and operations costs will be one of the greatest challenges for the MPCV

team. For all MPCV acquisitions and development activities, NASA will employ innovative 

acquisition approaches such as Design-to-Cost and Life Cycle Costs that utilize industry best 

practices; consider incentives for contractor reductions in fixed costs; and address cultural 

changes within the Agency to focus more on affordability rather than just performance factors. 

More specifically, NASA plans to focus on a number of affordability initiatives such as: 1) 
21

identifying affordability as the over-riding driver while not reducing safety priorities, 2) exploring 

innovative acquisition approaches and incentivizes industry partners to focus on building a 

system that is economical to operate, 3) coordinating with the 21st Century Launch Complex 

planning effort to achieve an efficient operational concept that reduces excessive infrastructure 

fixed costs, and 4) exploring opportunities and approaches for implementing an efficient, rightsized Government insight workforce and industrial base. 

3.7 Schedule and design of development milestones and related schedules 

As noted earlier, the NASA Authorization Act of 2010 directs NASA to begin development of the 

MPCV with the goal of achieving full operational capability not later than December 31, 2016. 

While NASA will work expeditiously to meet the 2016 goal, NASA notes that, as with the SLS, a 

2016 crewed first flight does not appear to be possible within projected FY 2011 and out year 

funding levels. It is clear that successful development of the MPCV will be dependent on 

sufficiently stable funding over the long term and a successful effort on the part of NASA and the 

eventual industry team to reduce costs and to establish stable, tightly-managed requirements. We 

will investigate the best phasing for the development of the SLS and MPCV. This phasing will 

be driven by the annual budget estimates and will be phased such that both vehicles (SLS and 

MPCV) will be ready at the earliest practical date. An updated plan based on the study teams’

results will be provided in the update of this report. NASA is also investigating whether to 

perform an MPCV test flight prior to the program critical design review. A test flight could

potentially retire significant technical uncertainties and help to insure that the later combined SLS 

and MPCV test flight is fully successful. The advantages and disadvantages along with cost 

considerations will be carefully reviewed, and the update will reflect the outcome of these trades.

Later in FY 2011, NASA plans to finalize its acquisition strategy for the MPCV and based on the 

Agency’s decision, NASA will transition relevant work from the Orion Project to the new MPCV 

Program, while also continuing to define the requirements for the MPCV system. Available 

funding will drive work that can be accomplished in terms of technical content and schedule 

milestones.8 Planned FY 2011 work will focus on continuing design of core vehicle systems and 

performing planned testing of the Ground Test Article, which are tasks applicable to MPCV.

An MPCV master program schedule, including all major milestones from inception to achieving 

operational capability, will be developed in coming months and will be provided in the updated 

report to Congress. NASA will endeavor to achieve the earliest possible operational readiness 

date within the available budget and in a way that leads to affordable operations over the long 

term. 

3.8 MPCV summary 

In summary, NASA is continuing to work on the Orion, and is planning to initiate the MPCV 

Program with design robustness and affordability while making use of current investments and 

workforce as appropriate. It is clear that innovative, lower cost ways of doing business must be 

implemented if MPCV is to be affordable and sustainable and be available in a timely manner.

 

8

It is important to note that the MPCV budget must also cover costs for supporting elements such as 

mission operations and EVA suit development, and integration with the SLS, in addition to the MPCV

development itself.
22

As such, MPCV management will seek to develop and implement innovative, improved practices, 

creative development approaches, right-sized infrastructure, and reductions in other fixed costs to 

reduce development and operational costs in order to enable earliest possible flight dates in an 

affordable manner. Current NASA estimates do not meet the goals laid out in the Authorization 

Act.

In the meantime, NASA will continue to execute existing Constellation contracts as required in 

the Continuing Resolution while we finalize the MPCV acquisition strategy. Such an approach 

will provide the fewest near-term job impacts while also providing maximum leverage to the 

Agency to achieve an MPCV approach that is as early as possible and affordable.

This preliminary report has highlighted the approach and content for the MPCV, known as of mid 

December 2010. In order to fully comply with direction in Section 309 of the NASA 

Authorization Act 2010 (P.L. 111-267), NASA will submit a more defined, detailed and 

comprehensive report to Congress as early as Spring 2011 that will include a more mature 

assessment of our design, acquisition approach, and operational readiness goal.

IV. Summary

NASA takes seriously its responsibility to keep the Congress informed of our SLS and MPCV 

development planning efforts, and we believe this preliminary report provides substantial detail 

about the facts known to date, while also foreshadowing the process of how decisions will be 

made by Agency management early next year. We are committed to providing the Congress 

updated information as part of the President’s FY 2012 budget request and plan to provide 

Congress with an updated version of this report as early as Spring 2011.

In conclusion, NASA would like to emphasize that we are committed to meeting the goals and 

requirements of the NASA Authorization Act of 2010 to the best of our ability and in a way that 

is affordable and offers the best value to the Nation, and we look forward to continuing to work 

with the Congress on this new path of space exploration.