In parallel, my pet theory is that NASA has probably already made up its mind (astronauts are not going to return on Starliner), and have been dragging this out mostly to make it look like they aren't just going to throw their contractors under the bus (even if they deserve it). Boeing has declared cold feet over fixed cost contracts (in general, not just with NASA), and I think NASA wants to keep the rest of the contractor pool at least at ease that, okay maybe NASA might start being stingier with the money and contracts, but they aren't going just throw you under the bus when issues appear.