Justification and Approval for Other Than Full and Open Competition - Tridium Niagara N4 - Redacted.pdf

CUI

Control Number: NWS-2025-297

JUSTIFICATION REVIEW DOCUMENT

FAR Part 6 Justification and Approval for Other than Full and Open Competition

Program/Equipment: Repair Ghost DFAC (Building 3757) (Pkg CE0879) on Joint Base Lewis-McChord (JBLM), Washington

Authority: Title 10 United States Code (U.S.C.) §3204(a) as implemented in FAR 6.302-1(a)(2).

Amount: total Project cost. of which is for the Name Brand Equipment / Software (Niagara Framework (Tridium Niagara N4) Direct Digital Control (DDC) Equipment

Controlled by: Army Controlled by: USACE-Seattle CUI Category(ies): General Procurement & Acquisition Distribution/Dissemination Control: FED ONLY

POC:

Reviews: I have reviewed this justification and find it adequate to support other than full and open competition.

Program Manager/Program Executive Officer:

JBLM FSRM Program Manager Chief, Lewis and Clark Project Office

Legal Counsel:

Assistant District Counsel

FAR Part 6 Justification and Approval for Other than Full and Open Competition

1. Requiring Activity: Engineering Services Division, Public Works Joint Base Lewis McChord (JBLM), WA.

2. Contracting Activity: U.S. Army Corps of Engineers, Seattle District, Contracting Division, Special Projects Branch, North 4th Street, Building 2015, Joint Base Lewis McChord, WA 98433-5000.

3. Description of Action: Request approval to award a new Firm-Fixed Price (FFP) contract action with a Name Brand requirement for the Repair of Ghost DFAC (Building 3757) on JBLM, WA.

Type of Funds: Facility Sustainment, Restoration, and Modernization (FSRM) Funds.

Purpose: The purpose of this Justification and Approval (J&A) is to authorize obtaining Niagara branded Direct Digital Controls with a feature peculiar to one manufacturer to support contract performance under the project titled “Repair Ghost DFAC (Building

3757), JBLM, WA.”

As part of the work under this anticipated contract, the contractor will be required to replace the existing failing HVAC system with new HVAC equipment, ducting, and direct digital controls (DDC) to included new controllers, software, licensing agreements for building J01214. As allowed for in UFC 3-410-02, Direct Digital Controls for HVAC and Other Building Control Systems, change 2, dated 12 April 2021, the JBLM Campus operates on the Niagara Framework (Tridium Niagara N4). This contract requires the installation of digital controllers which are programed and must be compatible with the Niagara Framework (Tridium Niagara N4). The controllers are not required to be sole sourced as there are multiple manufactures who provide controllers designed to operate with Niagara Framework (Tridium Niagara N4); nonetheless, each manufacturer must tailor their controls to be compatible with Niagara. The Niagara Framework (Tridium Niagara N4) allows Public Works to remotely control and monitor all connected HVAC equipment from the Tridium Niagara N4 Supervisor in BLDG 2012. The new controls must be compatible with Tridium Niagara N4 to ensure complete integration into the supervising monitoring system. Any other software and equipment would not allow communication to existing Tridium Niagara N4 Supervisor.

Description of Supplies/Services: The required Niagara branded DDC equipment, software, and licensing agreements that will be provided under the project identified in paragraph 2, above, is specific to Tridium, Inc. The total estimated amount of the name brand equipment to be procured and installed under this contract is estimated at

. This includes the software loaded on HVAC controllers and the Java Application Control Engine (JACE) Network Area Controller (NAC). The JACE is connected to the existing base-wide IT wide area network (WAN) operated by NEC.

The JACE NACs have been approved by NEC for connection to the WAN/LAN. NEC does not allow routers on their WAN/LAN system. The Tridium Niagara N4 Supervisor, located in building 2012, has already been procured and installed on government computers.

As stated in paragraph 2, the Niagara Framework (Tridium Niagara N4) allows the JBLM Controls System Administrators to have full remote access to monitor, program, and control and troubleshoot the HVAC system. It further allows for maintenance crews to maintain the HVAC system without the need for additional training, parts/supplies, and equipment that is different than that used by the entire installation. This system provides a building DDC system compatible with and remotely programmable and configurable through the Supervisor.

This J&A will authorize installation of Niagara branded DDC equipment compatible with the Niagara Framework (Tridium Niagara N4) into the RFP and subsequent contract award to ensure proper monitoring by the JBLM Controls System Administrators.

4. Authority Cited: Title 10 U.S.C. §3204(a) as implemented in FAR 6.302-1(a)(2).

5. Reason for Authority Cited: JBLM Public Works Department, specifically the JBLM HVAC System Manager and Controls System Administrators, is responsible for monitoring all HVAC systems. Over the years, both new construction and renovations of existing facilities have led to an infrastructure that has created three different proprietary DDC software systems. The type of DDC software/hardware required is dependent upon the location of the buildings where the HVAC systems are installed and was a direct result of three separate Public Works Departments being responsible for these systems and separate WANs. Prior to the joint basing of Fort Lewis and McChord Air Force Base (to become JBLM), McChord AFB Civil Engineering Squadron was only capable of monitoring and maintaining DDC Systems that utilized Wonderware DDC software, and thus all new construction and construction renovations required Wonderware to be installed on McChord facilities, to ensure proper integration to McChord’s system. Conversely, the Fort Lewis Public Works department was only capable of monitoring and maintaining DDC Systems that utilized Tridium Niagara AX DDC software, and thus all new construction and construction renovations required Tridium Niagara AX to be installed on JBLM facilities, to ensure proper integration to Fort Lewis’ system. As technology evolved, the Tridium Niagara AX was replaced by the Tridium Niagara N4 and is the prevailing system used on JLBM, both McChord Airfield and Fort Lewis.

In the past, each of these systems function independently and can integrate into their own proprietary systems, they cannot “talk” to each other’s systems. Therefore, if a facility is replacing, repairing, or installing DDC software, it must use the proprietary software being utilized for that location, to ensure it fully integrates into the appropriate DDC system.

Over time, JBLM has standardized its control systems to the Niagara Framework (Tridium Niagara N4), consolidating previously separate systems used by Fort Lewis and McChord AFB. The Niagara N4 system is now the prevailing standard for HVAC control across JBLM. To ensure full integration and avoid compatibility issues, only equipment branded and licensed under Niagara may be used for projects tied into this system, including Building 3757.

Impact: The use of a non-branded Niagara product would not be compatible with and would not communicate with the existing Tridium Niagara N4 Supervisor which is used base wide on the JBLM Campus. Since the Tridium Niagara N4 Supervisor serves as the centralized building automation backbone at JBLM, introducing a non-branded or incompatible product could seriously disrupt the functionality of the system. Lack of seamless communication would mean administrators lose visibility and control—a major operational and security concern, especially for the mission-critical HVAC infrastructure.

Moreover, when the HVAC system in a building can't be remotely monitored, programmed, or controlled due to incompatibility with the existing Tridium Niagara N4 Supervisor, it doesn't just pose technical problems—it directly affects the people who work there in meaningful ways which includes reduced comfort and air quality; slower responses to maintenance issues; energy inefficiency and costs; health and safety risks, and disruption of critical operations.

6. Efforts to Obtain Competition: In accordance with FAR 19.805, this requirement is a 100% small business set-aside under the SBA 8(a) program and will be competed exclusively among eligible 8(a) firms.

a. Effective competition: Full and open competition was initially performed when Niagara was selected as the installation’s reporting system. Now that the Niagara Framework (Tridium Niagara N4) along with the associated Tridium Niagara N4 Supervisor is in use as the installation’s master reporting system, all new devices must be compatible with the existing system.

b. Subcontracting competition: This requirement is 100% set-aside for a small business concern under the 8(a) program; therefore, the resulting contract will be awarded to an eligible small business. The contracting officer will manage subcontracting competition in accordance with FAR 19.505(b)(3)(iii), which states that for a contract assigned a NAICS code for general construction, a concern may not subcontract more than 85% of the contract value (excluding the cost of materials) to firms that are not similarly situated entities. Subcontracts awarded to similarly situated entities will count toward the 85% subcontracting limitation.

7. Actions to Increase Competition: Ongoing market research will be performed to determine if alternate sources become available. Any quotes, statements of interest and capability received shall be considered by the Government. However, the Niagara Framework (Tridium Niagara N4) is the approved, prevailing system used on JBLM.

Moreover, there are multiple manufactures who provides controllers designed to operate with Niagara Framework (Tridium Niagara N4).

8. Market Research: Market research was conducted within the past 12 months by contacting knowledgeable people in the Government for information about this requirement, queried Government databases, and reviewed recent market research on similar requirements and other Government contracts. Research has shown that there are no sources other than the Niagara Framework that can meet the Requiring Activity’s needs. Based on this information, it has been determined that there are multiple manufactures who provides controllers designed to operate with Niagara Framework (Tridium Niagara N4); nevertheless, each manufacturer must tailor their controls to be compatible with Niagara.

As stated in paragraph 7, ongoing market research will be performed to determine if alternate sources become available.

9. Interested Sources: No other sources have been contacted regarding this action.

10. Other Facts:

Due to the critical nature of the installation’s Niagara Framework (Tridium Niagara N4) and the associated Tridium Niagara N4 Supervisor and the requirements for newly procured equipment to be compatible with the present infrastructure, the facts substantiate that it is in the Government's best interest to specify Niagara branded DDC equipment, software, and licensing agreements in the RFP and subsequent contract.

Procurement history: Historically, the equipment/materials which are the subject of this J&A have been procured and installed as brand name equipment under other contract vehicles.

11. Technical Certification: I certify 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.

Project Engineer

12. Requirements Certification: I certify 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.

13. Fair and Reasonable Cost Determination: I hereby determine that the anticipated cost to the Government for inclusion of branded Niagara DDC equipment, software, and licensing agreements in this contract action as authorized by this J&A will be fair and reasonable.

Contracting Officer

14. Contracting Officer Certification: I certify that this justification is accurate and complete to the best of my knowledge and belief.

Contracting Officer

Project Engineer