JA Calibrate Airflow Monitoring Station_Redacted.pdf

VHAPG Part 806.3 OFOC Page 1 of 4 Revision: 03 Effective Date: 04/15/24 Acquisition ID#: 36C248-26-AP-0664

DEPARTMENT OF VETERANS AFFAIRS

Justification and Approval (J&A) For

Other Than Full and Open Competition

Acquisition Plan Action ID: 36C248-26-AP-0664

1. Contracting Activity: Department of Veterans Affairs, VISN 08, Lee County Medical

Center Purchase Request (2237) Number:

2. Nature and/or Description of the Action Being Processed: This justification supports a sole source procurement to Johnson Controls, Inc. for the Calculation and Calibration (CaC) of up to 50 Air Flow Monitoring Stations (AFMS) and up to 175 AFMS probes. These services are required to ensure accurate airflow measurement and integration with the existing METASYS Building Automation System (BAS) installed at the Bay Pines VA Medical Center. This one time contract will be firm-fixed priced.

3. Description of Supplies/Services Required to Meet the Agency’s Needs: Preform a whole building adjustment, testing and commissioning to the HVAC Air flow monitoring station (AFMS) system through providing Calculation and Calibration (CaC) on up to qty 50 (Fifty) AFMS and up to 175 AFMS probes. Calculate and calibrate the airflow in each Air Handling Units (AHU) to manufactures recommendation and optimum airflow operation. Procure and install the new air flow monitoring station and its components, including sensors, transmitter, and controller. Remove old, nonfunctioning items and install the new airflow monitoring station components, including sensors, pickup tubes, pressure transducers, temperature sensors, and the AFMS controller, following manufacturer's specifications and best practices.

Connect the new system to the existing control system (BMS) for data collection and integration. Re-torque electrical and power connections as needed. Ensure the station and its components are compatible with the excising Building Management System (BMS) or control system. Verify proper operation of the new airflow monitoring station and its components in manual, auto, and bypass modes. Conduct functional checks prior to verify system is functioning as designed and perform system commissioning. Run tests to ensure equipment is operating according to design parameters, including safety and emergency control devices. Configure alarm settings to notify of deviations from airflow setpoints or other critical parameters. Submit a written report containing all recorded test data and proper equipment operation. Estimated amount is

4. Statutory Authority Permitting Other than Full and Open Competition:

( X ) (1) Only One Responsible Source and No Other Supplies or Services Will Satisfy Agency Requirements per 41 USC §3304(a)(1) as implemented by FAR 6.302-1;

( ) (2) Unusual and Compelling Urgency per 41 USC §3304(a)(2) as implemented by FAR 6.302-2;

( ) (3) Industrial Mobilization, Engineering, Developmental or Research Capability or Expert Services per 41 USC §3304(a)(3) as implemented by FAR 6.302-3;

( ) (4) International Agreement per 41 USC §3304(a)(4) as implemented by FAR 6.302-4

VHAPG Part 806.3 OFOC Page 2 of 4

Acquisition ID#: 36C248-26-AP-0664

( ) (5) Authorized or Required by Statute per 41 USC §3304(a)(5) as implemented by FAR 6.302-5;

( ) (6) National Security per 41 USC §3304(a)(6) as implemented by FAR 6.302-6;

( ) (7) Public Interest per 41 USC §3304(a)(7) as implemented by FAR 6.302-7;

5. Demonstration that the Contractor’s Unique Qualifications or Nature of the

Acquisition Requires the Use of the Authority Cited Above (applicability of authority):

Johnson Controls is the original equipment manufacturer (OEM) of the METASYS BAS currently in use. Only Johnson Controls has access to proprietary configuration files, firmware, and calibration tools required for proper integration. The AFMS components and probes must be calibrated and configured to communicate with METASYS using Johnson Controls’ proprietary BACnet extensions. Johnson Controls provides factory-certified calibration services traceable to NIST standards, ensuring compliance with federal HVAC performance requirements. Use of any other vendor would risk system incompatibility, inaccurate airflow readings, and potential voiding of warranties.

Attempting to integrate third-party calibrated AFMS components into the METASYS BAS would require custom programming, additional interface devices, and extensive testing— introducing significant cost, schedule, and technical risk.

6. Description of Efforts Made to ensure that offers are solicited from as many potential sources as deemed practicable: Market research was conducted to identify other vendors capable of performing CaC services on Johnson Controls AFMS equipment. No other vendors were found to have the proprietary access or technical capability to perform these services without third-party integration tools, which would increase cost and risk.

7. Determination by the CO that the Anticipated Cost to the Government will be Fair and

Reasonable: The Contracting Officer will determine the price to be fair and reasonable based on: Historical pricing for similar services, GSA schedule pricing (if applicable), or Independent Government Cost Estimate (IGCE).

8. Description of the Market Research Conducted and the Results, or a Statement of the Reasons Market Research Was Not Conducted: Market research included: Review of GSA Advantage and SAM.gov, Consultation with HVAC engineering staff, and review of past performance and vendor capabilities. Findings confirmed that only Johnson Controls can provide the required CaC services for METASYS-compatible AFMS systems. Therefore, there is no reason to believe there are any other vendors that would be able to meet this requirement when considering the unique capabilities and proprietary technology. The Contracting Officer has determined there is “Only One Responsible Source and No Other Supplies or Services Will Satisfy Agency Requirement” 41 USC § 3304(a)(1) and FAR 6.302-1.

9. Any Other Facts Supporting the Use of Other than Full and Open Competition:

The existing Building Automation System (BAS) at the Bay Pines VA Medical Center is METASYS, a proprietary system developed and maintained by Johnson Controls, Inc. Only Johnson Controls has authorized access to the system’s proprietary configuration tools, VHAPG Part 806.3 OFOC Page 3 of 4

Acquisition ID#: 36C248-26-AP-0664 firmware, and diagnostic software required to perform accurate airflow calibration and integration.

Engaging a third-party vendor to perform CaC services on Johnson Controls AFMS components could compromise the integrity of the BAS and void existing warranties on both hardware and software. Johnson Controls is the only vendor authorized to perform these services without impacting system support agreements.

The AFMS units are critical to maintaining proper airflow, pressurization, and temperature control in patient care areas, including isolation rooms and surgical suites. Any delay or error in calibration could result in non-compliance with Joint Commission standards and ASHRAE 170 ventilation requirements, potentially impacting patient safety.

10. Listing of Sources that Expressed, in Writing, an Interest in the Acquisition: N/A

11. A Statement of the Actions, if any, the Agency May Take to Remove or Overcome any

Barriers to Competition before Making subsequent acquisitions for the supplies or services required: The agency recognizes the importance of promoting competition and reducing reliance on proprietary systems where feasible. To overcome barriers to competition in future acquisitions of Air Flow Monitoring Stations (AFMS) and related Calculation and Calibration (CaC) services, the following actions may be considered:

Conduct a Technical Assessment of Open-Protocol BAS Platforms Future facility upgrades or new construction projects may include an evaluation of Building Automation Systems that support open communication protocols (e.g., BACnet/IP, Modbus) and allow for vendor-neutral integration of AFMS components.

Standardize on Non-Proprietary Equipment Where Possible When replacing or expanding HVAC monitoring systems, the agency will assess the feasibility of specifying non-proprietary AFMS hardware and calibration tools that can be serviced by multiple qualified vendors.

Develop Performance-Based Specifications Future solicitations may be written with performance-based requirements rather than brand-specific features, allowing for broader vendor participation while still meeting technical and regulatory standards.

Market Research and Industry Engagement The agency will continue to conduct regular market research and engage with industry through Requests for Information (RFIs), vendor days, and technical demonstrations to identify emerging technologies and qualified sources.

Evaluate Long-Term BAS Strategy The agency may initiate a long-term strategy review of its BAS infrastructure to determine whether continued investment in proprietary systems like METASYS aligns with its goals for cost-effectiveness, interoperability, and competition.