P03 Johnson Controls Sole Source Justification.pdf

Attachment 1: Request for Sole Source Justification Format >SAT

VHAPG Part 806.3 OFOC Page 1 of 7 Revision: 04 Effective Date: 12/15/25 Acquisition ID#: 36C248-26-AP-1917

DEPARTMENT OF VETERANS AFFAIRS

Justification and Approval (J&A) For

Other Than Full and Open Competition (>SAT)

Acquisition Plan Action ID: 36C248-26-AP-1917

1. Contracting Activity: Department of Veterans Affairs, VISN 8, C.W. Bill Young

Veterans Administration Medical Center (CWBYVAMC) Safety Department requires the installation and upgrade of the Fire Protection ES Fiber Network and True Site Workstation (TSW) for the Bay Pines campus Johnson Controls Fire Alarm System.

Funds are available under 2237 516-26-2-5013-0019, in the amount of $852,215.73 for the required services.

2. Nature and/or Description of the Action Being Approved: CWBYVAMC requires the installation of an upgraded fire protection ES Net fiber network, upgrade of the True Site Workstation (TSW) operating system from Windows 7 to Windows 11, replacement of the fiber network interface communication (NIC) card in the TSW, replacement of the Voice Command Center (VCC) in the Energy Center with an ES Net VCC, replacement of the Remote Paging Panel in the Police Communication Center with an ES Net Remote Paging Panel, connection and verification of existing spare fiber between all campus buildings, migration of multiple buildings to the new ES Net network, installation of ES Net Network Interface cards, MM Fiber Media cards, and Digital Audio Controllers in six buildings, and upgrade of fire alarm devices in Buildings 13 and 71/101 from Map Net Technology to IDNET Technology

— all through a sole source acquisition to Johnson Controls, Inc. This document explains why Johnson Controls is the only suitable source to fulfill this requirement, ensuring compliance with procurement regulations and securing appropriate approvals.

3. Description of Supplies/Services Required to Meet the Agency’s Needs: The scope of required services includes the following:

Establishing the ES Net Network:

• Remove and replace the existing True Site Workstation (TSW) in Building 24 (Safety Office); upgrade operating system from Windows 7 to Windows 11;

replace the fiber NIC card in the TSW.

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Acquisition ID#: 36C248-26-AP-1917

• Replace the existing Voice Command Center (VCC) in the Energy Center (ECC) with an ES Net VCC; temporarily mount the new VCC on plywood inside the ECC adjacent to the existing VCC during transition.

• Replace the existing Remote Paging Panel in the Police Communication

Center (COMM Center) with an ES Net Remote Paging Panel.

• Verify and connect two strands of existing spare fiber between Buildings 13, Fisher House 1, 24 (FACP/TSW), 22, 23A, 23, 1, 101, 2, 37, 36, 20, and 100F.

• Move Buildings 100, 100F, 106, 110, 111, 71/101, and Building 13 (including

Buildings 12, 17, 19, and 31) to the new ES Net network.

Upgrading Fire Alarm Systems to ES Net (existing FACPs to remain in place):

• Buildings 13, 71/101, 100, 100F, 106, and 111: Install 1 ES Net Network Interface card slot, 1 ES Net MM Fiber Media card, and 1 ES Net Digital Audio Controller in each building.

Upgrading Fire Alarm Devices:

• Building 13: Convert FACP-connected devices from Map Net Technology to IDNET Technology; replace 16 smoke detectors, 6 heat detectors, 8 duct detectors, and 28 supervised IAMs; replace all notification appliances.

• Building 71/101: Convert FACP-connected devices from Map Net Technology to IDNET Technology; replace 100 smoke detectors, 14 heat detectors, 28 duct detectors, and 18 supervised IAMs; replace all notification appliances.

The current (4120) fiber network technology has been in place for approximately 28 years, is obsolete, and replacement parts are no longer commercially available. New buildings must currently operate as standalone fire alarm systems disconnected from the campus network, hindering VA Police and Safety Office emergency response. The entire campus fire alarm infrastructure was designed and installed by Johnson Controls and relies on proprietary Johnson Controls hardware, software, and network architecture.

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 RFO 6.103-1;

( ) (2) Unusual and Compelling Urgency per 41 USC §3304(a)(2) as implemented by RFO 6.103-2;

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Acquisition ID#: 36C248-26-AP-1917

( ) (3) Industrial Mobilization, Engineering, Developmental or Research Capability or Expert Services per 41 USC §3304(a)(3) as implemented by RFO 6.103-3;

( ) (4) International Agreement per 41 USC §3304(a)(4) as implemented by RFO 6.103-4

( ) (5) Authorized or Required by Statute per 41 USC §3304(a)(5) as implemented by RFO 6.103-5;

( ) (6) National Security per 41 USC §3304(a)(6) as implemented by RFO 6.103-6;

( ) (7) Public Interest per 41 USC §3304(a)(7) as implemented by RFO 6.103-7;

5. Demonstration that the Contractor’s Unique Qualifications or Nature of the Acquisition Requires the Use of the Authority Cited Above (applicability of authority):

The fire protection system at the CWBYVAMC campus is a proprietary Johnson Controls system. Johnson Controls, Inc. is the only manufacturer capable of designing, supplying, configuring, and installing the required ES Net network components and performing the True Site Workstation operating system upgrade within the existing Johnson Controls fire alarm environment. The unique qualifications are as follows:

Compatibility: The ES Net fiber network, True Site Workstation, ES Net NIC cards, MM Fiber Media cards, Digital Audio Controllers, ES Net VCC, Remote Paging Panel, and IDNET device technology are all proprietary Johnson Controls products and platforms. No other manufacturer has the capability to supply or configure components that will function correctly within the existing Johnson Controls campus fire alarm infrastructure. Third-party hardware and software are not compatible with the Johnson Controls ES Net architecture.

Technical Expertise: Johnson Controls possesses specialized and exclusive knowledge of their proprietary ES Net platform, True Site Workstation software environment, Map Net-to-IDNET conversion procedures, and campus fiber network architecture. Only Johnson Controls-certified technicians are qualified and authorized to perform ES Net network commissioning, TSW operating system upgrades within the Johnson Controls software environment, and IDNET device programming on the existing installed base.

Warranty and Support: Utilization of third-party components, software, or installation services would void existing warranties and Johnson Controls support agreements for the campus fire alarm system. This would expose the Government to increased costs, potential system malfunctions, and gaps in life-safety system coverage that are not acceptable for a facility providing direct patient care to Veterans.

Life-Safety Continuity: The campus fire alarm system is a critical life-safety system. Any integration failure or system incompatibility resulting from use of non-

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Acquisition ID#: 36C248-26-AP-1917

OEM components or unauthorized installation personnel would directly compromise the safety of Veterans, staff, and VA Police emergency response operations.

6. Description of Efforts Made to ensure that offers are solicited from as many potential sources as possible (including whether a notice was or will be publicized as required by RFO Part 5 and, if not, which exception under RFO Part 5 applies): Market research was conducted via the SBA VetCert database and Dynamic Small Business Search (DSBS) under NAICS code 561621 to identify certified SDVOSB and VOSB firms capable of performing the required ES Net network installation and TSW upgrade services. No certified SDVOSB, VOSB, or other small business firm was identified as a Johnson Controls-authorized ES Net installer or TSW upgrade provider. Direct contact was made with a Johnson Controls manufacturer's representative, who confirmed that Johnson Controls does not authorize third-party contractors to perform ES Net network configuration, True Site Workstation upgrades, or proprietary component installation on existing Johnson Controls campus fire alarm systems. A sole source letter from Johnson Controls is on file.

A synopsis will be posted on SAM.gov as required, or the applicable exception to synopsis under FAR 5.202 will be documented by the Contracting Officer. The CO will continue to monitor the market to ensure that any changes in Johnson Controls' authorization or certification policies that would open this procurement to competition are identified and acted upon. Until Johnson Controls authorizes third-party entities to perform ES Net installation and certification, subsequent procurements for this proprietary system will continue to be sole-sourced to Johnson Controls.

7. Determination by the CO that the Anticipated Cost to the Government will be Fair and Reasonable: Price reasonableness will be determined by the Contracting Officer based on prior contract history for comparable Johnson Controls fire alarm network upgrade and device replacement projects at VA and other Federal facilities, review of the Johnson Controls proposal against current published/catalog pricing for ES Net components and installation labor rates, and comparison with available market data for similar life-safety system upgrades. Sufficient past performance and prior contract data exist for this type of procurement to support a fair and reasonable price determination.

8. Description of the Market Research Conducted and the Results, or a

Statement of the Reasons Market Research Was Not Conducted: Market research was conducted to identify potential alternative sources capable of providing a compatible and fully integrated ES Net network upgrade, True Site Workstation operating system upgrade, and IDNET fire alarm device replacement for the existing Johnson Controls campus fire alarm system at CWBYVAMC. Research methods included queries of the SBA VetCert and DSBS databases under NAICS 561621, review of Johnson Controls ES Net and IDNET product documentation, direct manufacturer contact, and review of SAM.gov and GSA eBuy for applicable contract vehicles and vendors.

https://www.acquisition.gov/far-overhaul/far-part-deviation-guide/far-overhaul-part-5 https://www.acquisition.gov/far-overhaul/far-part-deviation-guide/far-overhaul-part-5 https://www.acquisition.gov/far-overhaul/far-part-deviation-guide/far-overhaul-part-5

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Acquisition ID#: 36C248-26-AP-1917

The research confirms that no other manufacturer or vendor can provide a compatible and fully integrated ES Net network solution, proprietary TSW upgrade, or authorized IDNET device conversion for the existing Johnson Controls fire alarm system. The reliance on Johnson Controls' proprietary technology — including the ES Net platform, True Site Workstation software, Map Net-to-IDNET conversion protocol, and authorized fiber network commissioning — creates an absolute technical impediment for any other vendor to supply the required services or equipment.

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

Failing to procure the fire protection ES Net network installation and TSW upgrade from Johnson Controls would have the following adverse effects:

• System Incompatibility: The risk of incompatibility with the existing Johnson Controls campus fire alarm system increases significantly if any component or installation service is sourced from a non-authorized provider, potentially leading to operational failures, system malfunctions, or loss of campus-wide fire alarm network connectivity — directly compromising life-safety operations and VA Police emergency response.

• Increased Costs: Inclusion of third-party components or unauthorized installation contractors would result in high integration costs, additional testing and remediation requirements, and potential reconfiguration or replacement of existing OEM-installed systems, far exceeding the cost of the sole source award.

• Safety Risks: The fire alarm system is a critical life-safety system serving

Veterans receiving direct patient care. Any compromise in the reliability, integration, or certification of this system would place Veterans, staff, and VA Police at unacceptable safety risk. Reliance on non-proprietary components or unauthorized installation would undermine the reliability and regulatory compliance of the fire alarm system and could result in adverse findings during TJC inspections.

• Network Isolation of New Buildings: Failure to complete the ES Net network upgrade will require all new campus buildings to remain as standalone, disconnected fire alarm systems, perpetuating the current operational deficiency and preventing centralized monitoring by the Safety Office and VA Police.

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

None

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Acquisition ID#: 36C248-26-AP-1917

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: Until Johnson Controls authorizes and opens certification to third-party entities for ES Net network installation, True Site Workstation configuration, and IDNET device programming, there are no actions the Agency can take to overcome the technical barriers to competition inherent in this proprietary system. The CO will continue to monitor the market and Johnson Controls' certification and authorization policies. Should any qualified, Johnson Controls-authorized alternative sources emerge, the CO will seek to open subsequent procurements to competition at that time.

12. Requirements Certification: I certify that the requirement outlined in this justification is a Bona Fide Need of the Department of Veterans Affairs and that the supporting data under my cognizance, which are included in the justification, are accurate and complete to the best of my knowledge and belief.

Therefore, it is recommended that award be made to Johnson Controls, Inc.

___Dale McDowell_____________ 1/26/2026 Name: Dale McDowell Date Title: Fire Protection Engineer, M.S., F.E.

Safety Section, FMS Facility: C.W. Bill Young VAMC

Contracting Officer Certification (required): Based on the unique qualifications of Johnson Controls and the comprehensive market research conducted, it is evident that Johnson Controls, Inc. is the sole source provider capable of delivering a compatible, fully integrated ES Net fire protection network installation and True Site Workstation upgrade for the CWBYVAMC campus fire alarm system. Procuring these services from Johnson Controls is essential to maintain system integrity, ensure life-safety continuity, and uphold current warranty and support agreements.

This Justification and Approval document has been reviewed and approved by the appropriate procurement and legal authorities to ensure compliance with procurement regulations. I certify that the foregoing justification is accurate and complete to the best of my knowledge and belief.

Name: David Wesley Hess Date Title: Contracting Officer

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a. One Level Above the Contracting Officer (Required over SAT but not exceeding $900K): I certify the justification meets requirements for other than full and open competition.

Name: Moneque L. Rodriguez Date NCO-8 Duty Title: One Level Above Contracting Officer