A12_REDACTEDUMCSJCBASJA_6Jan2014.pdf

Control No. HNC-12-6010

Justification nud Approval Document For Other th.mL Fullnnd Open Competition

Requlrctnent: Ut~Jity Monitoring and Cori1t'ol Systems (UMCS)~ Single Award Task Order Contract

A).lthority: FAR 6.302~1

Pr-epared By:

Name: Nicholas Huns Title: Conlract specialist

Contra"cting Officel'!

Nan'lc: Shirley A. Mmi-in

Title: Contracting 0fi1cer

Technical Represeutntlve:

Nnme: Je.~mifet• Cagle

Title: ProjeCt Managor

Requirem.cnts Representative:

Nmm:.; Laura W. Mabee

Title: P.rogram Manager

Amount: $450,000,000

Phone: 256-&95-551 0 Signattire:

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Reviews: ,I have reviewed thlsjustificalion Dnd found it adeqtmte to S11pport othet· than full and open (!Oropetltion, ~ nil'ector, lnst~ Ia '~pp ~t/ ognunMmmgement Name: Volcr' 1ip_P.

Signalur

Phone! 256-895-1323 nate: !Jtf!A-< ,#13

Phone: 256-895-ll66

Sou1ce Selection h1fon11htion ~ See- FAR 2.101 and 3.104 I

Small Busines~;

Namo: ll.ebl)~ain'11 Slgnatme

Legal Co~un.sel:

~ome: Ry I Ck S1gnatU1' , Chief, Oversight nnd Opel'atlous DivlslonJDcpuly CCC !..v~ Name: MoO SLgnntute: ~

Center CH' f C tracling;

Name: Jol os Signature.:

Control No. HNC~12-6010

Phone; 256~895~ 1385 Date;~(.§_

Phone: 256-895-1140 Date: ~r 1'5

Phono: 256-895-1226 Dale: 'f-/1/1- /3

Phone: 256-89.5~1301 Date: I il A;o" iJ

Source Selectlon Information~ Sec FAU 2,101 and 3.104-

Control No·, HNC·ll-6010

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PARC-WlNCHES~ CONCURRENCE

Typed Name: John H. Teelsov

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Date;

Control No. HNC~12~6010

1. Cantracttng Activity: United States Atmy Engineering and Support Center (CEHNC). 4820 University Square, fltmtsV11le, AL 35816-1822.

2. D~Cl·lption of Action: Under Federal Acquisition Regulation (FAR) section6.302-1, the pmpose of this document is to justify tl1e use of a sole source contract with Jobnsou C01ltrols Building Automation Systems (JCBAS). TheNAICS code fortbis conh·act action is 541512, Compl.lter Systems Design Servkes. F\Ulds will be obligated at the ~ask o1'de1' level using Operation and Maintenance Anny (OMA) and Military Construction (MILCON) funds.

3. Description of SUJ>plies/Services; This contract action is for expansion/upgrades to existing proprietary Johnson Control Melasys® B11ilding Automation systems. Sendces under this l'roposed contract wilfit1clude, but are not limited to: dwelopment of equipment installation enginee1ingplans; providing hat:dware and software; system testing and check~out; pe1fonning facilitymodificati011 and consttuotioni'equired to supporL equipment installationj interfacing with and installing new data tranSmissi011 equipment; determining compatl'bility of new equipment with existing systems; pteparing system and component doCUlnentation; ptovlding operation and maintenance mam1als; providing training; warranting systems; main-taining and servicing systems; operating and monitoring systems; 11reparing after action and other reports; and pl'o'Vlding asMh1.1ilt insta11ation drawings. Tl1e latgemajolily of the work is estimated to talw place in the United States, its territories, and possessions. The work in foreigtl coU!ltties (Germany, Japan, South Korea~ United Kingdom, and Italy) equates to 5% or less of the overall scope. The estimated dollar value of the acquisition is $450;,000,000 .. The base ordedngpf'ldod is one yearwitltfour one-year options.

4. Authority Cited: Statutory Authority is 10 United States Code (U.S.C.) 2304(c) (1). The apprap1jatc FAR citati,on is ser..1ion 6.302~1, "Only ono resp011sible source and no ot11er supplies or services will satisfy agency requirement."

5. Reason for Authm•liy Cit~d: JCBAS has copydght]Jrotected, intellect1.1a1 property wifu proprietary network pxotocols und systems in place at goverrunent installations wor1dvvi.de.

These legacy systems now require upgrades and based on installalion Tequirements 'they may also require expansion. Unfuttunately, these legacy contml systems are proprietaty and thus will not effectivCly intetfacc with other UMCS and! at HV AG cquipnumt and systems. JCBAS' bnUld name propl'ietru:y system is Metasys®. This system l'equixes technicians licensed and trained by JCBAS to gain administl'ati.ve tights in order to use the Metasys® System Configuration Tool (SCT). Below are the throe main areas of focus whicll highlight the JCB_f..S Metasys® system integration requirements into the UMCS and/or HV AC equipment:

a. UtiJHy Monitol'ing & Control System

Contractor sliall be licensed and irained in the configuration tool {System Configuration Tool (SCT)) associated with the current Metasys® System Extended Architeet1.1rc (MSEA) UMCS with the ability to:

o downloa<l and restate the archive datapases into the Metasys® supendsory controllem/ongines and UMCS servers, o integrate Nl, N2, DACnct®, Lon Worlcs®, a11d MODBUS TCP ~ and

Source Selection Information~ See FAR 2.101 and 3.104

Cotttrol No. I:-lli'C-12-6010 o generate and simulate the system offline.

Contractor shill have the ability to install licensed ·upgrades to the current

MSEAUMCS.

Gontractor shall integrate systems utilizing stnndard point naming conventions, graphics, etc. established for the UlVICS.

Contractor shall be able to not only integrate to the existjng UMCS, but :must also be able to configure tlte Uiv1CS and Dir~ctDigital Control (DDC) System in order to provide a fu11y functioning and opemtional system. Integration alone shall not be acce_ptable.

b. Supervisory Controllers/Engines

Contractol' sball proviOO Network Application Engines {NAEs}and Network Integration Engines (NIBs), generally termed as supervisory · controllers/engines which comply with the BACnet® Standardized Device Profile (Atmex L) BACnel® Brulding Conltollel' (B-BC) and support BACnet® Interopembility Building Blocks (BIBBs) (Annex K) as required by the Amedcan National Standards Institute!AmcricWl Society of Heating, Refrigerating, and Air~Couditioning Engineers (ANSVASHRAE) Standard 135-2004, BACnet® protocol Supervisory Controllers/Engines shaU be available with onboard Input/Output (1/0), in mu1tiple sizes and capacities, and with a Local Display Panel (LDP) whiCh provides local access to IJO cotmccted to the coutroller.

Supervisory Controllers/Engines shall be configured 11tilizing the same configuration tool as utilized for the UMCS.

Contractor shall be licensed and trained in the contiguration tool (System Configuration Tool, SCI') Ussociated with the mm-ent Metasys® System Extended Architecture (MSEA) UMCS with the ability to:

o download and restore the arcbive databases into the Metasys® supervisory conltollers/engine;s aud UMCS servers, o jntegratcNl, N2,BACnet®, Lon Works®, andMODBUS TCP) o and generate atld si:tnulate the system offline.

Supervisory Controllers/Engines with JJO shall contain continuous loop tuning p.rovide(l hy patented proportional~:tdnptive conl:t·ol (PwAdaptivc) and Pattern Recogniti.onAda1Jtive Control (PRAC) technologies fur the most efficient operations,

c. DDC System

DDC System controllers shall contain continuous loop tuning provided by patented proportional adaptive control (PwAdaytive;) and PaUorn Recognition AdajJtive Control (PRAC) technologies for the most efficient operations.

DDC System controllers shall have expansion capabilities fo1· a ZigBee™ tecbnology wireless mesh network.

DDC System co.ntrollers shall be configurable utilizing the Johnson Controls' Controller Configllration Tool (CCT).

So1.111:e Selection Infonnation w See FAR 2.101 and 3.104

Con~-ol No. BNC-12-6010

Contractor shull be licensed and trained in the CCT.

Configumlion tool shall be able to configtws, simulate, and commission DDC System controllers, expansion modules, application specific conb.:ollers, and SUIJCrvlsory controllers with on-board J/0 on a Mastcr~SlaveJToken-Pussing (lv.i:StrJ:>) bus or wireless mesh network compliant with ZigBeeThl standard.

Configuration tool shaH be available in a commissioning-mode-only version fot· use by balancing contractors and maintenance pers01mel.

Configllration tool shall be compatible with a Wireless cotm;rrissioning tool which allows a laptop to conununicate to the field bus t11wug"4 Bluetooih® wireless communications.

DDC Sysiem controllers shall be available in multiple sizes and point capacities wl1h integr11l LDP which provide locAl access to I/0 nnd shall have available expansion modules for valiot1s :VO expansion levels.

6. Efforts to Qbtain Competition_: The UMCS program did attempt to obtain competition on tllis action. A1J detailed be1ow, the team issued u sources sought notice :in J11ne 2012, but failed to identify any viable sources other than JCBAS. As stated previollsly, theJ:e appear to be no other viable sources capable 01' interested -in 11pgrading and/or expanding the Metasys® system, Alfuougll the government will not benefit fi:om the priml' efficiencies related to robust competition, the Contracting Officer (KO) must adhere to and follow the procedures set forth in

FARIS.

7. Actions to Increase Compctitfon: While the govemment took no specific action to increase competitlotl oil existing proprietary systems, tho government bas Ween action on multiple fronts to increase competition fol' future requirements. The UMCS Mandat01y Center of Expertise.

(UMCS-MCX) leaders have been working with industry to move toward an open Local ·Operation Netwmk (LON) system at the building level controllers and head e11d systems. ln 2004, the United States Army CorlJS ofEngincers (USACE) published Unified Facilities Guide Specifications (UFGS) 25-1 0~ 1 a, LonWol1rn .Network Services System (INS) Utility Monitoring .and Control System, and UFGS 23~09~23, LonWorksDirectDigltal Controls for Heating, Ventilation, and Air Conditioning (HV A C) and other building control systems. By adopting these o:pen netwm1c ptotocols, the Anny nxluces reliance: 011 exclusive proprietary systems such as Metasys®, thereby promoting competition and inevitably lowering ovemll total cost of ownership for UMCS systems. These open protocol systems will allow any vendor to install non-proprietary devices nt the -individual building level. As a resul~ multiple contl1'1-Ctors can compete to proVide local building conb'Qls, open systems that can com1Illlnicate with proprietary "head end, systems such as Metasys®. With good technical ovemight i11 place, and the widespread adoPtion of the UFGS, many competent Direct Digital Controls (DDC) contractors will be able to provide build-ing control systems while tal-dng advantage of open systems protocols. :More importantly, these building systems will then be successfully integrated into netwodcecl base-'<Nide systems, remotely monitored, and conb·olled by proprietary '~b~;:nd Md" systems such as Metasys®.

8. Mnl'lcct Research: As required for a sole source action, the government's market research for this acq1lisition is cummi within the last 12 months. The team conducted comprehensive market research in June of2012, to identify additionnl sources capable offulfi11ing the

Source Selectionlnfmmation- See FAR2.101 ancl3.104

Control No. HNC,J2-6010 govemment's requirement to interface to Metasys®. In acooxdance with FAR 10.002(b) (2), fue government utilized the following market research methods to identifY capable vendors:

a. Contacting Knowledgenble Personnel- The CEHNC project engineers with previous experience related to ibis requinnnent, as well as those involved in previm.1s acquisitions for UMCS, reviewed product COJ.mbilities :fi:om contractors ltolding unrestricted UMCS MATOCs..

UnfortmwtCly, none of·these firm's products or sewiCes satisfied 1he subject requirement d11e to thepropl'letaty nature of the systems. TI1e followingtablc indicates those contractors on the third generatio:ti UM9S unrestricted contract (UMCS Dl):

Ill addition, the government reviewed the procluct capabilities iiom the followiogresb:icted UMCS IIIMATOC contractors. None of these products or services satisfied the mment requirements due to its pro1Jrietary nature:

The US ACE Mandatory Center of Expertise for U11CS (UMCSRMCX), located at CEHNC, maintains a staff of engineers whose daily work in dudes UMCS :projects. Euch member of the UMCSRMCX staff attends trade shows, technical :Presentations, web seminm's, and other data gathering opportunities to stay cmrent on the latest technologies of each UMCS manufactl.uer's ~>')'Stems. Each engineer is re&,rulady involved in the testing of installed systems and understands the operations and interfhcerestdctions of-the systems. New generations ofUMCS systems have como and gone; each with its own 1n·opdetary req·uirement. Currently, there is not a single UMCS tllat can interface to another UMCS without degt:adatiou of functions,

b. The UMCS systems that are acquired unclel'thls contract are a nonRcommercial proOuct in that they are unique and Sl)~cifically confignred systems tl1at are designed to meet govemment specifications and criteria. In addition1 the luf\Ulnation Assurance requirements are dictated by th6 Anny and require the implementation of the Arm:y Golden Maste1· (AGlvi) operating system, Source Selection Infom1ation- See FAR 2.101 and 3.1.04

I .

proper certifications nnd apptovals :fl:om NETCOM, and informr~tion assurance controls that reshict ports, protocols and services. Products that meet the government standards C!Ulllot be purchased on the commercial market.

c. Public.izing Contract Actions: CEI-INC posted a Sources Saught Notice on FedBizOpps on 19 June 2012 to detetmine whether a Sole Source Pxocurement is viable. ·The notice closed on 29 June 2012 with two responses- one from Johnson Controls and the other from

. Johnson Controls sul1mitted a 3-page docmnenl answering the questions posted.

sent iln email stating they had fhe capability to meet Ol.U' requircmm1ts; hoWever, failed to respond to the questions. As a result, the PDT detmn1ined that no other finn existed besides Johnson Controls.

9. Interested Sources: The govenunent is only aware of one viable interested source fat' tlie.

subject acquisition: JCBAS. To date, no other sources have wdtten to express interest, per the auihorjty cited in 6.302-1. However, to ensure fbll compliance with FARParilO, the team then cond11cted a rou11d of current 1-esenrch over the pedml ofNovcmbe1: 2011 -December 2011, Bt~sed on prior :findings, the Contracting Officer (KO} determined there was no need to jssue another sources sought notice for the subject acquisition, CEHNC also posted a Sources Sought Notice on FedBizOps on 19 June 2012 to determine whether a Sole Source Procurement is viable. The notice closed on29 June 2012 with two resp(!nses- one fi·om Johnson Controls and the other frmu

10. Other Facts:

a. Procurement history. In 2008 nnd 2009, the UMCS prognun submitted approximately

Exceptions to Fah· OpporUmity (EFO) to award sole source work to JCBAS.

These EFOs provided approval to award sole source orders against the Pl'Db'Tam's previous MATOCs (UMCS TI and Ill). In order to addr,::ss these Metasys® requirements, the govenunent awarded a $77.5M SATOC to JCBAS in Nov o£2009.

(I) Contract numbers and dates ofthe last sewral awards: W912DY-10-D~0007 November 23, 2009 (SATOC).

(2) Competitive status of these notions: Sole source

(3) Authority previously used fot·less than full crud open competition: Statutory Authority is 10 U.S,C, 2304(c) (1). FAR Citation is FAR 6.302-1, "OnJy one 1:esponsible sout'ce and no other supplies or scrvjces wlll satisfy agency requirement."

(4) If aj1.1Sti:ficatim1 was prepared to sowort the procm;emenhnade before this one, a sullllUmy of the contents ofpatagrapJt 7 of the justification for that procurement and 1111 explanation of the results: Same justification as Para 7 above was used,

(5) If any prior awurd was accomplished by full and open conwetition, a detailed explanation of the changed circumstances: N/A, prior requirements were awarded sole source.

Scrnrce Selection Information- See FAR 2.101 and 3.104

Contro!No. HNC-12-6010

(6) An explanation of any unusual patterns which may be revealed by the hist01y, e.g., several consecutive, urgent buys. Prior to award of-the previous SATOC (W912DY-10- D-0007), these sole-source activities were executed via Exception to Fair Opportunity (BFO) !A W FAR 16.505(b) (2). Once the SATOC was awarded on23 Nov 2009, the need fbr EFO•s (against t11e UMCS contracts) fo-r Motusys propri_etary requirements was essentially eliminated. However, the h\.un1·atc of tho SATOC greatly excee4ed expectations, and capacity was depleted on the two yeru.·con,tract in August 2011, which was three-months ahead oftlie scheduled expiration. Meanwhile, the need for this capability continues to steadily grow as more and more Metasys UMCS are installed tl1roughoompetitive actions under the UMCS contract. BetweenA11gust2011 ~md AuguSt 2012> the CEHNC UMCS PDT hns processed a1)proximately EFO's for Metnsys propricturyrequirements against the UMCS and ESS MATOC's. Additionally, there at-e approximately more projected through end of fiscal year 2012.

(7) If a justification was prepared to support the procurement made before this o11e, briefly describe the circmnstance.<: justifYing the buy and whether there- have been any significant obanges: Y cs, the j1!siliication fm· the previous SATOC was based on the fact that many installations already had the proprietary Metasys® UMCS :installed;

therefore, with consideration to the significant investment on tl1e part of the government for 1hose Metasys control :inthlslluctm:cs it was determined to be in the gove.rntnenl-'8 best iutel'est to address the expansion and maintenance of those existing proplietary Metasys systems rather than the design aud installation of new open protocol syatems.· There have been no significant changes either within industry o! the UMCS prograttl.

since award of the pt-eviollS SATOC that :reduces tho need or a follow-on contract.

b. Acquisition data availability: Tcclmical data packages, specifications, engineering descri}Jtions, statements of work ox purchase des01iptions suitable for full and open competition are not available due to the fact t1mt tbis is a proprietary system of Johnson Controls. '

c. Unusual and compellingurgency,·N/A

d. Sllhcontracting competition: JCBAS is limited 1u subcontracting opportunities to share with the Small Business Community. However, JCBAS m11St submit an acceptable · subcontracting plan Elt the basic coull·act level, which will be incorporated into the contract and sets forth an agreement that Sma11 Business (SB), Small Disadvantaged Business (SDB), Women Owned Small Business (WOSB), HUBZone Small Business, Veteran Owned Smull Business (VOSB), and Service Disabled Veteran Owned Small Business (SDVOSB) concems will have the maximum practicable opportunity to participate in the performance of th~:J contrflct, The subcontractlng plan submitted will be required to include (Ill required elements identified inF AR 19.704, Subcontracting Plan Requirements, Source Selection Infounation- See FAR2.101 and3.104

CmtirolNo, HNC-12-6(}10

11. 'Tecl~lical Cet•tificatioll: <~J cci'lify thnt the suppo.tti1lg dati\im er my cogni i11ciuded in the j11Stification are accmatc and complete to tllc best of m knowl ge

Name: Mit-ch Duke Title: Teelmical Manager c wltichare belief.''

12. Requirements C01·tii1cation: ''I certify that the supp or!ing data undct' rny cognizance which are included in the other than full and open comPetition are accurate ·and complete to the besl of my knowledge and beltcf," ·

Name: Laura Mabee Title: Program MatUJget'

13. Fait• nncl Rcnsmtable Cost Dctertklinntion: ''Tho govemment will use a corupl'ehensive pcrfol'mance wor1( slatemeut (PWS) to detail the requiromcttt. Tilis is being used as a lmsis for an independeilf govetnment estimate (lGE). Upon receipt of the contractor's proposnl, the goveftlmcnt will usc the PWS und IGTI to pe1·form a price and cost aualysis to ensure.the price is fair and reasonable and in the best interests of the government. Cel'tified cost and pricing data will be required us the total estimated vnh1e of the acquisition falls above the" threshold detailed in FAR 15.403-4(a)(1). 1 hereby determine that the m;ticiputed cost to the govemme.nt for this contract action will be fail· and :reasonable based on iechnica.I/cost analysis and certified cost or prici1lg data."

Name: Shirley Martin Title: Contmciing Officer

14. Contracting Officer Certification: "I certify ~hat this justification Is accurate and -complete to the best {If my knowledge nnd belief." · ·

Nome: Shidey Mattill Title: Contmctiug Ofiic~r

Sign Date: ~

Sout"ce Selec\ion Inform&llon- See FAR 2.101 and 3.104

APPROVAL

Based on the foregoing justification, I hereby approve the procurement of a Single Award Task Order Contract in the amount of $450 million dollars to Johnson Controls Building Automation Systems (JCBAS) for expansion/upgrade of existing JCBAS Metasys® proprietary Utility Monitoring and Control Systems on an Other Than Full and Open Competition basis pursuant to the authority of Title 10 United States Code (U.S.C.) Section 2304(c) (1) or Title 41 U.S.C. Section 253(c) (1) and Federal Acquisition Regulation 6.302-1, subject to the availability of funds, and provided the services and property herein described have otherwise been authorized for acquisition. _

Heidi Shyu Senior Procurement Executive