ECMS Limited Sources J and A.pdf

Limited Sources Justification and Approval (J&A)

FOR OFFICIAL USE ONLY

March 2018 FOR OFFICIAL USE ONLY Page 1 of 4

Contracting Activity: 11th Contracting Squadron, Joint Base Andrews

Purchase Request / Local ID Number:

Program / Project (and PE, if applicable): Energy Management Control System (EMCS) at Joint Base Andrews

Program Type (PEO or Other Contracting): Other Contracting

Authority: Multiple Award Schedule Program (FAR 8.405-6)

Estimated Contract Cost (including options): $2,724,247.00

Is this a Bridge Action as defined in the AF Bridge Action Reduction Plan? Yes No

Description of Limitation:

FAR 8.405-6(a)(1)(i)(B) - Only one source is capable of providing the supplies or services required at the level of quality required because the supplies or services are unique or highly specialized.

COORDINATION (AFFARS 5306.304(a) )

Date

03 Jan 2020

Project Lead / Program Mgr / Requiring Activity

Jacques Parker

CEOE / 301-981-7391

Signature

Date

03 Jan 2020

Contracting Officer

Arlene Davis

CONS/PKC

Signature

Date

03 Jan 2020

Local Legal Reviewer

Michael Lund 11 WG/JA (240) 612-5432 or (801) 814-0105

Signature

Date

06 Jan 2020

Chief of the Contracting Office (COCO)

Brandon Sandoval

11 CONS/CC / 612-5621

Signature

APPROVAL (AFFARS 5306.304(a) )

Date

13 Jan 2020

Competition Advocate

MaryKathryn S. Robinson, NH-IV, DAF AFDW/PK Deputy Director of Contracting

(240) 612-6112

Signature

PARKER.JACQUES.E.1016

940646

Digitally signed by

PARKER.JACQUES.E.1016940646

Date: 2020.01.03 08:53:53 -05'00'

DAVIS.ARLENE.Y.1094073

Digitally signed by

DAVIS.ARLENE.Y.1094073509

Date: 2020.01.03 10:10:33 -05'00'

LUND.MICHAEL.R.115868

Digitally signed by

LUND.MICHAEL.R.1158685341

Date: 2020.01.03 11:59:15 -05'00'

SANDOVAL.BRANDON.AL

FONSE.1249308923

Digitally signed by

SANDOVAL.BRANDON.ALFONSE.1249308923

Date: 2020.01.06 13:03:02 -05'00'

ROBINSON.MARYKATHR

YN.SQUIRE.1272148119

Digitally signed by

ROBINSON.MARYKATHRYN.SQUIRE.1272148119

Date: 2020.01.14 11:33:53 -05'00'

March 2018 FOR OFFICIAL USE ONLY Page 2 of 4

I. Contracting Activity.

11th Contracting Squadron Joint Base Andrews, MD 20762

II. Nature and/or description of the action being processed.

This action will be awarded as a new fixed price delivery order under FAR Part 8 against an existing Federal Supply Schedule (FSS) for an Energy Management Control System (EMCS) at Joint Base Andrews. The General Services Administration (GSA) schedule that will be utilized is GS-07F-217CA.

The Period of Performance is 1 February 2020 through 31 January 2025, awarded as a base plus four option years.

III. Description of supplies/services required to meet agency needs.

The requirement is to provide all management, technical personnel, tools, supplies, equipment, labor, and on and off site technical assistance necessary to perform preventative and corrective maintenance, technical support, additional system design, and installation of systems designed to interface with the existing Energy Management Control System (EMCS) currently in use on Joint Base Andrews (JBA), MD. This is a limited source action for performance based maintenance services. The source required for this contract action is Siemens Industry, Inc.

The contract action has an estimated value of $2,724,247 which encompasses a 12 month base year plus four (4) 12 month option years.

The Period of Performance for this service is 1 February 2020 through 31 January 2025.

In accordance with Air Force Regulation 91-24 Real Property Operation and Maintenance, the contractor is responsible for the provision of installation and maintenance services for the EMCS to operate the Direct Digital Control (DDC), which seeks to control the Heating Ventilation and Air Conditioning at JBA. The EMCS covers 184 Air Force facilitiesand 85% of the hospital. The system includes, but is not limited to, stand-alone digital controllers, modular building controllers, March 2018 FOR OFFICIAL USE ONLY Page 3 of 4 terminal equipment controllers, a communications network and a separate workstation computer with workstation software.

The Air Force goal for EMCS expansion is to have a single EMCS at each base, to monitor and control facility energy consumption and utility metering. The EMCS system utilized at JBA is a Siemens Building Technologies, Inc. Landis Division System 600/Apogee Direct Digital Control (DDC) system.

IV. Identification of the justification/rationale for limiting sources and demonstration of the contractor's unique qualifications to provide the required supply/service.

FAR 8.405-6 requires an ordering activity to justify its actions when restricting consideration of schedule contractors to fewer than required in FAR 8.405-2. With over 85% of the hospital covered by the EMCS, timeliness of response to a life and safety threat is critical. Therefore, any failure in the Intensive Care Unit section could prove to be fatal. The ECMS is a proprietary system - maintenance and repair can only be accomplished by the manufacturer, Siemens Building Technologies, Inc. Optimum communication by the Energy Management Control System is essential. The communications protocol, used by the DDC system constantly monitors space conditions and equipment status and provides alarms when unusual conditions or equipment failures occur.

Other sources that provide building automation control systems include Johnson Controls, Honeywell Inc., Andover Info Scan, Automation Logic, and Washington Gas Energy Systems. DDC systems are a type of EMCS. The current system utilized at JBA is a Siemens Building Technologies, Inc. Landis Division System 600/Apogee Direct Digital Control (DDC) system. It includes programmable components which are manufactured by Siemens Industries. This system is proprietary to Siemens Building Technologies. Thus, no other vendor is authorized to supply parts or provide services on this system. Also, DDC systems associated with the other vendors are not compatible with the current Siemens EMCS system. The costs, manpower, training and time associated with changing the Siemens system to another sources EMCS would be excessive. DDC systems which do not fully communicate with the host workstation will (1) require an additional host workstation and (2) require maintenance personnel to learn a new program language which increases manpower and training requirements and reduces reliability and responsiveness. The use of multiple DDC systems would increase costs for spare parts because separate systems would also have to be maintained. In order to remove all 184 Siemens panels and the equipment that accompanies them would cost the Government an estimated $20M. Furthermore a limited source award to Siemens Industry, Inc. is necessary in order to avoid unnecessary costs in the duplication of efforts, labor, training, and material costs.

Siemens confirmed via letter to 11 CONS on 1 November, 2019, that the system in use on JBA is proprietary in nature and that no other entity had authorization to perform any service on the system.

The 11 CES validated an confirmed that Siemens is the only vendor authorized and capable of maintaining the current ECMS system at Joint Base Andrews.

V. Determination by the ordering activity Contracting Officer that the order represents the best value consistent with

FAR 8.404(d).

The Contracting Officer will make a determination that the negotiated prices are fair and reasonable using

March 2018 FOR OFFICIAL USE ONLY Page 4 of 4 proposal analysis techniques at FAR 15.404-1.

VI. Description of the market research conducted and the results, or explain why market research was not conducted.

On2 December 201, market research was conducted by reviewing of Multiple Award Schedules (MAS) on GSA Advantage and GSA E-Library to ascertain if any other companies were found to be capable of providing the required service. No schedule holders were found to be authorized to perform maintenance service on the existing Siemens ECMS system. The schedule holders under MAS 84, Total Solutions for Law Enforcement, Security, Facilities Management, Fire, Rescue, Clothing Marine Craft and Emergency/Disaster Response, Category 246 01, Smart Buildings System Integrator, and Category 246 1000, Security, Alarm & Signal Systems were reviewed to identify companies that could perform work on the existing system or provide a system that is compatible with the existing system. No schedule holders under either of these categories in MAS 84, other than Siemens, were found to be licensed and able to perform work on the system currently in use on Joint Base Andrews, nor were any schedule holders found to provide a system that was compatible with the current system.

VII. Other facts supporting the justification.

Siemens has been providing the ECMS service at Joint Base Andrews since 2002. Not until the last couple of years, has the controls industries made tangible efforts to develop a standardized communication protocol (referred to as BacNet, or Lonworks). However, the Siemens Building Technologies, Inc. Landis Division System 600/Apogee Direct Digital Control (DDC) system was developed before BacNet/Lonworks was introduced. Successful communication requires that systems at both ends of a link be compatible. Replacing the system at Joint Base Andrews with BacNet or Lonworks would cost the Government an estimated $20M.

VIII. Actions the agency may take to remove or overcome any barriers that led to the restricted consideration before any subsequent acquisition for the supplies or services.

The 11 CES will continue to conduct periodic market surveys in order to stay informed on protocol development by the leading DDC systems manufacturers. However, a system that is 100% compatible with the current DDC system does not currently exist. Until a protocol is developed and introduced to the industry allowing l00% compatibility, all Joint Base Andrews building automation systems future need for proprietary equipment remains until the base requires a base-wide upgrade and install.

IX. Certification by the Contracting Officer.

As evidenced by my signature above, I have determined this document to be both accurate and complete to the best of my knowledge and belief.

X. Certification by the technical/requirements personnel.

As evidenced by my signature above, I certify that any supporting data contained herein, which is my responsibility, is both accurate and complete.