1 year of coverage of the Heating Ventilation and Air Conditioning (HVAC) system and Building Automation System (BAS)

LIMITED-SOURCES JUSTIFICATION FOR FEDERAL SUPPLY SCHEDULE PROGRAM

Upon the basis of the following justification, prepared in accordance with Federal Acquisition Regulation (FAR) 8.405-6(c), I, as Contract Officer, hereby approve the use of sources limited to fewer than those required in FAR 8.405-1, FAR 8.405-2, and FAR 8.405-3 pursuant to the authority of 41 U.S.C. 251 as implemented by 8.405-6(a)(1)(B). This acquisition is conducted under the authority of the MultipleAward Schedule Program (41 U.S.C. 251, et seq. and 40 U.S.C. 501).

1. Identification of the agency and the contracting activity.

Agency: US EPA/Office of Research and Development Groundwater Characterization and Restoration Division  

Contracting Activity: OAS/Cincinnati Acquisition Division  

Requisition No.:   PR-ORD-25-00365

Contractor:  Johnson Controls, Inc.

2. Nature and/or description of the action being approved.

This is a limited source justification in soliciting a new firm-fixed price contract requirement to provide 1 year of coverage of the Heating Ventilation and Air Conditioning (HVAC) system and Building Automation System (BAS) for the Main Building, Annex, and the Library Conference Center (LCC).  

3. A complete description of the supplies and/or services required to meet the agency’s needs.

The EPA requires one year of regular maintenance and repair on the HVAC system and BAS for the Main Building, Annex, and LCC that are owned and maintained by Johnson Controls (JCI), Inc. in accordance with the facility Energy Savings Performance Contract (ESPC). The current 25-year ESPC contract at the Ada facility expires on September 27, 2025, and EPA assumes control of these systems on September 28, 2025.  

The Johnson Controls proprietary systems consist of a 300+ ton ground source heat pump well field incorporating one-cell of the existing two-cell cooling tower. Supplementing the cooling load for the building is a 125-ton dual compressor electric chiller located in the penthouse. The ground source heat pump system incorporates five (5) cooling/heating water-to-water heat pumps, one (1) heating only water-to-water heat pump and ninety-five (95) small heat pumps (water source) primarily feeding the office areas of the facility. The five (5) large water-to-water heat pumps feed four (4) main Air Handling Units (AHU’s) in the penthouse that feed make-up air to the office heat pumps and supply air to the laboratories (two of the laboratory AHU’s run continuously with one of the AHU’s being redundant). The AHU’s use a passive heat pipe to pre-heat the incoming outside air with the exhaust stream from the laboratories.  Laboratory air is exhausted by a set of three (3) strobic exhaust fans; two running continuously with one redundant.  

The estimated value for this action, assuming the exercise of all potential options is $500,000.00.

4. An identification of the LSJ rationale, and if applicable, a demonstration of the contractor’s unique qualifications to provide the required supply or service.

FAR 8.405-6(a)(1)(B) - Only one source is capable of providing the supplies or services required at the level of quality required because the supplies or services are unique or highly specialized Johnson Controls, Inc. is the manufacturer of the Metasys Building Automation System serving our facilities.

Johnson Controls direct service branch office is the only channel authorized by Johnson Controls to perform maintenance on Metasys equipment. Metasys equipment is a part of Johnson Controls' building automation system that helps manage a building's energy, lighting, HVAC, security, and protection systems. Metasys equipment includes:  

Field Equipment Controllers (FECs)

These controllers are designed to monitor and control HVAC equipment and can be used for simple fan coil or heat pump control, or more advanced central plant management. FECs have 32-bit microprocessors, peer-to-peer communications, and an optional LCD screen user interface.  

Advanced Application Field Equipment Controllers (FACs)

These controllers can persist data, which is useful for situations that require greater data accuracy, such as utility data collection and billing. Some FAC models can integrate into third-party systems and Johnson Controls' systems.  

Variable Air Volume Modular Assembly (VMAs)

These controllers are programmable digital controllers that are designed for VAV applications.  

Input/Output Modules (IOMs)

These modules can be used in combination with Metasys FECs for a variety of building management applications.  

Critical Environment Equipment Controller (CCM09090)

This controller has PID loops that are 3.75 times faster than average, and an analog input that refreshes 10 times faster than average. Metasys equipment is designed to communicate through standard RS485 BACnet MS/TP protocol.  

5. A determination by the ordering activity Contracting Officer that the order represents the best value consistent with FAR 8.404(d) and FAR 8.405-2(d).

Johnson Controls, Inc. has performed previous projects for the EPA Robert S. Kerr Campus and other EPA facilities, providing fair and reasonable pricing for past professional services.  

The contracting officer determines that the anticipated cost to the Government will be fair and reasonable because a complete analysis of all costs using audits, commerciality, previous history, or other appropriate means will be fully utilized prior to award.

6. A description of the market research conducted among schedule holders, and the results of the research, or a statement why market research was not conducted.  A statement must be made that the supplies and services are available from the FSS.  

Preliminary market research was not conducted given the specific needs and circumstances of this requirement, as it is the Agency’s belief that no contractor other than Johnson Controls, Inc. can satisfactorily perform these services. Johnson Controls, Inc. is the sole source to perform maintenance and repair on Metasys equipment.  

A copy of the Request for Quotation and this Limited Source Justification will be posted on GSA e-Buy in accordance with the posting requirements in FAR 8.405-6(b)(3)(i)

7. Any other facts supporting the limited source justification. N/A

8. A statement of the actions, if any, the agency will take to remove or overcome any barriers that led to restricted consideration before any subsequent acquisition for supplies and services is made.

It is the best value to the Government to have Johnson Controls, Inc. continue to service the previously reference mechanical systems as they are the sole source to perform maintenance and repair on Metasys equipment.

9. The ordering activity Contracting Officer’s certification that the justification is accurate and complete to the best of the Contracting Officer’s knowledge and belief and evidence that the supporting data that  form a basis for the justification have been certified as complete and accurate by technical/program personnel.