JA_N69450-22-0367 JControls_WGF (Barksdale)_final_Redacted.pdf

DEPARTMENT OF THE NAVY

Naval Facilities Engineering Systems Command Southeast

Jacksonville, FL 32212-0030

J&A No. N69450-22-0367

JUSTIFICATION AND APPROVAL

FOR USING OTHER THAN FULL AND OPEN COMPETITION

1. Contracting Activity.

The agency is the Department of the Navy. The contracting activity is Naval Facilities Engineering Systems Command. The contracting office is CORE Construction, Naval Facilities Engineering Systems Command Southeast in Jacksonville, FL. The requiring activity is the Air Force Global Strike Command, Barksdale Air Force Base (AFB), LA.

2. Description of the Action Being Approved.

NAVFAC SE proposes the use of proprietary software and services of a brand name product peculiar to one manufacturer, namely, Johnson Controls Building Monitoring System/Energy Monitoring & Control System (BMS/EMCS) for the purpose of monitoring and controlling Heating Ventilation and Air Conditioning (HVAC) systems for the Weapons Generation Facility at Barksdale AFB, LA. The government will not purchase the Johnson Controls equipment directly, but will develop brand name specifications that will be used for the construction contract. The acquisition action is planned for FY23 with Air Force MILCON funds.

3. Description of Supplies/Services.

This project will award a construction contract to execute the completed design of a 28 Acre complex containing five new buildings that function as inter-related components. The hardened complex will be contained within two fence lines, secured and armed, and will house an 84,000 SF Weapons Generation Facility (WGF) as the primary facility; the other four support buildings to be constructed total an additional 16,000 SF.

The Building Monitoring System/Energy Monitoring & Control System selected for use on the Weapons Generation Facility project for the Global Strike Command at Barksdale Air Force Base, LA is the Johnson Controls BMS/EMCS. The estimated cost for the equipment is approximately ; the estimated cost of the construction contract for the Weapons Generation Facility total is making the Johnson Control System of the total value of the construction contract overall.

4. Statutory Authority Permitting Other Than Full and Open Competition.

The statutory authority for this acquisition permitting other than full and open competition is 10 U.S.C.

2304(c)(1), “Only one source or limited sources, as implemented by FAR 6.302-1. Full and open competition need not be provided for when only one responsible source is capable of satisfying agency requirements” and in accordance with FAR 6.302-1.

5. Rationale Justifying Use of Cited Authority.

Background: The Weapons Generation Facility (WGF) project at Barksdale Air Force Base (BAFB), LA is new Military Construction-Air Force (MCAF) project in support of a new mission for Air Force Global Strike Command (AFGSC). The 84,065 square-foot facility is primarily single story with a 9,658 square foot second story mechanical and electrical utilities support space.

The project includes construction of a primary facility, the Weapons Generation Facility, and supporting force protection facilities - an Entry Control Facility and an Alert Fire Team Facility. There are also two critical utility systems support buildings - a Diesel Generator Building, and a Fire Pump Building. The WGF for BAFB is a hardened, secure, multifunction bomber-specific facility, designed with a series of security and control features. The WGF will feature reinforced concrete to meet the security required for protecting nuclear-capable launch gear. The facility includes a large secure area meeting ICD/ICS 705 requirements and an unsecured portion that includes administrative offices, flight operations desk, conference rooms, and support spaces. The WGF facility supports the AFGSC mission through consolidated, secure weapons generation, nuclear-capable storage, and maintenance. It will also securely and efficiently support generation/operations functions.

The existing base-wide BMS/EMC system is Johnson Controls BMS/EMC system. This system monitors and controls HVAC systems to improve temperature control, increase energy efficiency and reduce maintenance and operating costs for the Barksdale AFB facilities. Additionally, the BMS/EMCS system allows Public Works maintenance technicians, at a centralized location, to monitor and control the internal building environment remotely of the WGF facilities to the extent allowed to meet Cybersecurity requirements.

The BMS/EMCS manufacturer (Johnson Controls) provides a forward and backward compatible system and possesses unique proprietary hardware and software. If Barksdale AFB considers the addition of another system along with the existing BMS/EMCS system, it would require the installation of redundant equipment, additional training of personnel and increased material and operation costs. This would also require integration of the new system into the existing system by Johnson Controls, with a loss of functionality and increased cost for integration programming. With the loss of commonality in the BMS/EMCS system’s design, Barksdale AFB could no longer maintain an integrated central base-wide system. Due to the manufacturer’s proprietary rights and patent laws, items which are not of the same manufacturer as the existing BMS/EMCS system run the risk of not being compatible. Providing components of the same manufacturer as the existing BMS/EMCS headend system provide full functionality and compatibility. Integration with the existing system is critical for a quality reliable BMS/EMCS system.

Specific to the five new, inter-related WGF facilities, the integrated BMS/EMCS enables the following capabilities:

a) Compatibility with the existing base wide BMS/EMCS control system;

b) Cybersecurity requirement integration;

c) The ability to maintain air quality by ventilation of GSA and Storage areas during asset generation;

d) The ability of Security Forces to remotely protect the facilities within the WGF complex via electronic security systems, for which the infrastructure (hardware/software) are stored within CORE computer rooms, (These require closely monitored/controlled temperatures to perform optimally.); and,

e) The nuclear capable nature of the facility requires all essential building systems to receive Nuclear Certification (NC) during design, at pre-operational occupancy and then ongoing throughout the life of the building use. Both the HVAC system and the controls (BMS/EMCS) are essential building systems. (The HVAC system is addressed in a separate J & A.) The NC requires the BMS/EMCS to be tied to the existing base-wide BMS/EMCS system, to the extent

The ability of Security Forces to remotely protect the facilities within the WGF complex via y y y p p electronic security systems, for which the infrastructure (hardware/software) are stored within y y , ( ) CORE computer rooms, (These require closely monitored/controlled temperatures to perform optimally.);

to maintain air quality by ventilation of GSA and Storage areas during asset generation;g ;

p y g Cybersecurity requirement integration;y q g ;) y

c) The abilityy y secure y q

ICD/ICS 705p g requirements area a meeting I and an p n unsecured p unsec g y portion that includes ad s a largee y y

- a Diesel Generator Building, and a Fire Pump Building.

allowable for Cybersecurity. No system other than Johnson Controls will satisfy the functionality and compatibility requirements necessary for Nuclear Certification of the BMS/EMCS in the new facility. Not achieving NC for the facility will prevent full utilization of the WGF by AFGSC which would fail the goals of the WGF project and limit the Air Force’s ability to the defend the nation.

Upon authorization of this action, the specifications will state “Notwithstanding any other provisions of this contract, no other product will be acceptable”.

6. Description of Efforts Made to Solicit Offers from as Many Offerors as Practicable.

The proposed action will be synopsized via a Government Point of Entry (GPE) as sole source procurement for proprietary equipment. A sources sought synopsis was not issued as only one manufacturer (Automated Logic) can provide the proprietary software and licensed technicians necessary to fulfill these requirements. In accordance with FAR Part 5.102 (a) (6) and FAR Part 6.305, Availability of the Justification (c), the approved justification will be posted with the solicitation.

7. Determination of Fair and Reasonable Cost.

The Department of the Navy, Naval Facilities Engineering Systems Command, (NAVFAC) Southeast Contracting Officer, will determine the price negotiated for the BMS/EMCS systems is fair and reasonable pursuant to FAR Part 15. If necessary, the Government evaluation team will request cost and pricing data; use historical costs currently available for similar work on other contracts; compare the proposed price with the Independent Government Estimate (IGE); compare the contractor’s cost with competitive published price lists; and compare proposed prices received for prices of market research for similar items.

8. Actions to Remove Barriers to Future Competition.

Apart from the complete replacement of the current Barksdale AFB BMS/EMCS system in its entirety, competition will be limited. This is a finite requirement with no anticipated future needs and therefore therefor no actions to increase future competition are warranted.

Intentionally Left Blank

CERTIFICATIONS AND APPROVAL