A large part are the “post certification” flights (2-6) mentioned, I think (particularly with Boeing on Atlas). Now, packing that together with the rest of the cost is not very diplomatic with respect to Congress; however, it is consistent with a time when Boeing was insisting (reportedly) on guaranteed flights as well as development cost. So maybe putting those flights in one package with the rest was something B. would accept.
Another likely contributor to Boeing’s higher price, which I haven’t heard anyone else mention yet, is the fact that they’ve put virtually >none< of their own money into CCP to date. Something to remember.
So, since NASA _needed_ to include Boeing to damp some criticism on the HIll if they went with SpaceX, they were willing to pay a much higher price. (?)
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