P03 36C257-25-AP-0477-FY25-926 JOFOC NCO17 Upgrade Fire Alarm System - HCA Approved_all signed v1_Redacted.pdf

Attachment 1: Request for Sole Source Justification Format >SAT

VHAPG Part 806.3 OFOC Page 1 of 9 Revision: 03 Effective Date: 04/15/24 Acquisition ID#: 36C257-25-AP-0477 __________________

DEPARTMENT OF VETERANS AFFAIRS

Justification and Approval (J&A) For

Other Than Full and Open Competition (>SAT)

Acquisition Plan Action ID: 36C257-25-AP-0477_ JOFOC Tracker Number: FY25_NCO 17 - 357__

1. Contracting Activity:

Department of Veterans Affairs, Regional Procurement Office West, Network

Contracting Office (NCO 17).

Department of Veterans Affairs, Veterans Integrated Services Network 17 (VISN 17), Central Texas Veterans Healthcare System (CTVHCS), Doris Miller VA Medical Center, 4800 Memorial Dr. Waco, TX 76711.

2. Nature and/or Description of the Action Being Processed:

The Department of Veterans Affairs is seeking approval for a construction contract for the installation/upgrade of fire alarm systems campuswide at Doris Miller Medical Center (VAMC) located at 4800 Memorial Drive, Waco, Texas 76711, to replace the existing fire alarm system in its entirety. It is essential that all buildings communicate with the Notifier panel already within Building 225. Therefore, all fire alarm equipment shall be Notifier equipment manufactured by Honeywell in order to communicate with the Notifier panel in building 225. Key components include Notifier NFS2-3030 control panels, addressable smoke detectors (such as the FSP-951 series), heat detectors, NBG-12LX pull stations, annunciators, and compatible power supplies. This contract action involves the procurement of necessary labor and materials to ensure full installation, integration, and functionality of the fire alarm systems in accordance with Veteran’s Administration (VA) safety and compliance standards.

The scope of this action includes the provision, installation, and configuration of Notifier equipment sourced from Honeywell fire alarm components throughout the specified facility areas. Notifier products can be purchased from a Notifier distributor by any Service- Disabled Veteran-Owned Small Business (SDVOSB), but the programming of the Notifier equipment must be done by a licensed Notifier distributor otherwise it will nullify the warranty and guarantee period services. Essential equipment required for this project to be Notifier are Notifier NFS2-3030 control panels, addressable smoke detectors (such as the FSP-951 series), heat detectors, NBG-12LX pull stations, annunciators, and compatible power supplies. Fire Alarm Switches do not have to be Notifier specific equipment. Because 99% of all essential equipment will be Notifier, this project will be brand name only.

SDVOSB contractors must use a Notifier distributor as Notifier equipment is only sold by a Notifier distributor. The contractor is responsible for ensuring that all elements, including control panels, smoke detectors, pull stations, and annunciators, are exclusively from the Notifier product line. This will allow for seamless compatibility and is essential to communicate with the VA’s existing fire alarm infrastructure, which is already standardized on Notifier equipment. The procurement of Notifier-specific components is essential to maintain consistency, reliability, and interoperability with the current fire alarm monitoring and notification systems already in place.

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This contract also encompasses testing and commissioning of the Notifier equipment, as well as ensuring that all systems are fully operational and compliant with relevant fire safety regulations and VA requirements. This approach is intended to enhance safety, minimize potential operational disruptions, and facilitate ongoing maintenance efficiencies by aligning with existing VA standards and expertise in Notifier systems.

3. Description of Supplies/Services Required to Meet the Agency’s Needs:

The Department of Veterans Affairs requires the exclusive use of Notifier fire alarm equipment as essential to meet its fire safety and security needs throughout the specified facility areas. This procurement includes specific Notifier models, components, and features essential for effective fire detecting, alerting, and system integration. Key equipment includes Notifier NFS2-3030 control panels, addressable smoke detectors (such as the FSP-951 series), heat detectors, NBG-12LX pull stations, annunciators, and compatible power supplies. Notifier products can be purchased from a Notifier distributor by any SDVOSB, but the programming of the Notifier equipment must be done by a licensed Notifier distributor otherwise it will nullify the warranty and guarantee period services. Essential equipment required for this project to be Notifier are Fire Alarm Panels, Devices, and Detectors. Fire Alarm Switches do not have to be Notifier specific equipment. The contractor will also provide installation, testing, and commissioning services to ensure that the system meets all operational and compliance standards. All fire alarm panels shall have printed labels that clearly identify all buttons (elevator, A/V, etc.). The notification system shall have voice commands.

Notifier fire alarm systems are selected for their advanced early fire detection capabilities, which are critical and essential for occupant safety in VA facilities. The equipment provides fast and accurate detection of fire events, reducing response times and enhancing overall safety. Furthermore, the Notifier system offers robust integration with the VA’s existing Notifier infrastructure, including building management and emergency response systems, allowing for centralized control, and monitoring of fire alarms and ensuring coordinated responses to potential threats.

The procurement includes provisions for ongoing maintenance services, as the continuity and reliability of the Notifier system are essential for compliance with the National Fire Protection Association (NFPA) standards and VA fire safety policies. The VA’s exclusive use of Notifier fire alarm equipment supports consistent and essential operational procedures, simplifies maintenance processes, and ensures compatibility with current infrastructure, delivering long-term efficiencies and minimizing potential risks associated with mixed-system environments.

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 FAR 6.302-1;

() (2) Unusual and Compelling Urgency per 41 USC §3304(a)(2) as implemented by FAR 6.302-2;

() (3) Industrial Mobilization, Engineering, Developmental or Research Capability or Expert Services per 41 USC §3304(a)(3) as implemented by FAR 6.302-3;

() (4) International Agreement per 41 USC §3304(a)(4) as implemented by FAR 6.302-4;

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() (5) Authorized or Required by Statute per 41 USC §3304(a)(5) as implemented by FAR 6.302-5;

() (6) National Security per 41 USC §3304(a)(6) as implemented by FAR 6.302-6;

() (7) Public Interest per 41 USC §3304(a)(7) as implemented by FAR 6.302-7;

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

Only One Responsible Source (FAR 6.302-1):

This J&A is for the request of brand name only equipment. This requirement falls under FAR 6.302-1 Only One Responsible Source and No Other Supplies or Services Will Satisfy Agency Requirements per 41 USC §3304(a)(1) as implemented by FAR 6.302-1. The Department of Veterans Affairs (VA) Waco campus has determined that Notifier fire alarm equipment manufactured by Honeywell is the only capable product and essential in meeting the campus’s unique requirements for fire safety and system interoperability as the main Honeywell/Notifier panel within building 225 can only operate with Notifier equipment. The campus already utilizes Notifier fire alarm equipment throughout its facilities, and the selection of Notifier as a brand name provider is essential to maintain compatibility, ensure operational efficiency, and avoid substantial additional costs and delays associated with integrating an alternative system. Essential reasons of need for Notifier include:

Compatibility with Existing Infrastructure The Waco campus has standardized on Notifier fire alarm systems across its buildings, making Notifier uniquely suited and essential to provide the necessary components and support required for any expansions, upgrades, or maintenance of the fire alarm infrastructure. Notifier systems are designed with proprietary hardware and software protocols that integrate seamlessly within the established network of fire alarm devices on campus, allowing for centralized monitoring and control of fire safety functions. This compatibility is essential for ensuring continuous and consistent fire safety coverage across all facilities. Notifier fire alarm systems also use proprietary protocols, such as FlashScan and ONYXWorks, that are exclusive to their devices and control panels. These protocols govern how the devices communicate and respond to signals. Third-party equipment typically does not support these protocols, leading to:

o Incompatible Data Transmission: Non-Notifier devices cannot send or receive data in the format expected by Notifier systems.

o System Malfunctions: Introducing incompatible devices can cause communication errors, missed signals, or false alarms.

o Notifier systems rely on unique device addressing for their intelligent fire alarm systems. Each device (smoke detectors, pull stations, etc.) has a specific address that the control panel uses to identify the location of an alarm or fault.

Non-Notifier devices often:

Do Not Support Addressing: Many third-party devices cannot be assigned an address compatible with Notifier systems.

Disrupt Address Sequences: Mixing devices may lead to duplicate or unrecognized addresses, causing system errors.

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Notifier systems often operate on proprietary networks like NOTI-FIRE-NET, which connects multiple panels and devices for seamless communication and centralized control. Non-Notifier equipment cannot integrate into this network because:

o Network Protocol Mismatch: Third-party devices do not use the same network communication standards.

o Interruption of Data Flow: Non-compatible devices may create bottlenecks or disrupt critical data transfer between Notifier panels and devices.

Integrating a different brand would compromise this interoperability, requiring extensive modifications to ensure system compatibility with the existing Notifier components.

These modifications could include new wiring configurations, custom software adaptations, and interface redesigns, which would increase the risk of errors, introduce potential safety gaps, and create ongoing maintenance challenges due to the differences in technology between Notifier and other systems. Therefore, Notifier systems and components are the essential products to use at the Doris Miller Medical Center

(VAMC).

Mitigate Substantial Duplication of Cost

Switching to a different fire alarm system would result in substantial duplication of costs, which could not be recovered through competition. Specifically:

o System Overhaul Costs: Installing a non-Notifier system would necessitate the replacement of key components throughout the campus, imposing significant costs for both hardware and labor. This would include the cost of installing new wiring, control panels, and detectors to ensure compatibility with the new system, which would result in substantial additional expenses.

o Retraining and Maintenance Costs: The Waco campus’s fire safety and maintenance staff are trained on the Notifier system, with procedures and protocols developed specifically for Notifier’s technology. Introducing a different brand would require retraining personnel, which would incur further costs and disrupt daily operations. Additionally, maintenance requirements for an alternative system may necessitate separate contracts or additional vendor support, further increasing operational costs and complexity.

o Engineering and Testing Costs: The customization required to ensure that a new system could operate alongside or replace existing Notifier components would result in additional engineering, testing, and verifying expenses. This level of customization would add substantial costs without recovering value, as the modifications are necessary solely due to brand incompatibility.

Unacceptable Delays in Meeting Safety Requirements

Switching to a different fire alarm system would introduce unacceptable delays, impacting the Waco campus’s ability to provide safe and uninterrupted services. The integration and testing phases required to implement a new system that can work with existing Notifier infrastructure would require extensive planning, additional engineering support, and longer commissioning timelines. Such delays are unacceptable given the critical need to maintain continuous fire safety readiness and compliance with regulatory requirements on campus.

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Moreover, transitioning to a different brand would likely require temporarily disabling parts of the fire alarm network to complete installation and testing, potentially disrupting critical safety systems, and introducing safety risks. The potential delay in achieving a fully operational fire alarm system could compromise the safety of patients, staff, and visitors on the Waco campus.

Diagnostics and Programming Tools

Notifier systems rely on proprietary software tools like VeriFire Tools for configuration, diagnostics, and maintenance. Third-party devices:

o Cannot Be Configured or Diagnosed: These devices lack the necessary compatibility to interface with VeriFire Tools.

o Complicate Maintenance: Introducing non-Notifier devices into the system requires separate diagnostic tools and expertise, increasing costs and downtime.

Compliance and Certification Issues

Fire alarm systems must meet strict regulatory standards (e.g., UL 864, NFPA 72) to ensure safety and reliability. These certifications are based on testing the system as an integrated whole. Mixing brands introduces:

o Certainty of Non-Compliance: A hybrid system cannot be UL-listed as a cohesive unit.

o Risk of Rejection by AHJ: Authorities Having Jurisdiction (AHJs) are unlikely to approve systems with untested component combinations.

Limited Exceptions

While some third-party systems or devices claim to support open protocols like BACnet or Modbus, which Notifier systems may use for integration with building management systems (BMS), these exceptions are:

o Restricted to Specific Applications: Such as monitoring summary alarm statuses in a BMS, not critical fire alarm functions.

o Not Full Integration: They do not allow for seamless communication, control, or diagnostics of devices within the Notifier system.

Justification for Brand-Specific Requirement The requirement for Notifier brand fire alarm equipment is justified based on the Waco campus’s existing infrastructure and operational reliance on Notifier brand technology. Non-Notifier fire alarm equipment cannot communicate with an existing Notifier system due to proprietary protocols, addressable device limitations, and diagnostic incompatibility. Attempting to integrate third-party equipment introduces significant risks, including system malfunctions, non-compliance with fire safety standards, and maintenance challenges. For these reasons, Notifier only equipment is critical and essential to ensuring a functional, compliant, and reliable fire alarm system. The exclusive use of Notifier brand equipment ensures seamless functionality, centralized control, and uninterrupted fire safety services across the campus. Specifying Notifier as the sole brand is not intended to limit competition but is necessary and essential to meet the campus’s unique requirements for interoperability, cost-effectiveness, and timely implementation of fire alarm systems. The VA’s use of Notifier fire alarm

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Accordingly, Notifier is the only product that will satisfy this requirement without the Waco campus experiencing substantial duplication of cost that could not be expected to be recovered through competition, as well as unacceptable delays in meeting its fire safety requirements. This brand name procurement of Notifier equipment ensures that the Waco campus can maintain a cohesive and reliable fire alarm system, aligned with the VA’s long-term operational standards and safety objectives.

6. Description of Efforts Made to ensure that offers are solicited from as many potential sources as deemed practicable:

The requirement for Notifier brand equipment is specific and essential to the Waco campus’s need for compatibility with its existing Notifier fire alarm infrastructure. A brand-name justification was determined necessary due to the proprietary nature of Notifier’s technology, which does not permit interchangeability with other brands. Notifier products can be purchased from a Notifier distributor by any SDVOSB, but the programming of the Notifier equipment must be done by a licensed Notifier distributor.

7. Determination by the CO that the Anticipated Cost to the Government will be Fair and Reasonable:

The solicitation for this requirement will follow FAR 14 Sealed Bidding. Based on market research, there are multiple SDVOSBs that can fulfil this requirement. The determination of price fair and reasonableness will be based on receipt of adequate competition and comparison to the independent government cost estimate. I will not be requesting cost/pricing data from the contractor in accordance with FAR 15.403-1(b)(1) Exceptions to certified cost or pricing data requirements as I expect adequate competition. Award will be made in accordance with FAR 14.403-2(d), to the responsible bidder and only price and price related factors will be considered.

8. Description of the Market Research Conducted and the Results, or a Statement of the Reasons Market Research Was Not Conducted:

Market research conducted in accordance with FAR Part 10, VA Acquisition Regulation (VAAR) 810.001-70 Market Research Policy, and PPM 2016-05 (Revised August 2019), confirms that Notifier brand fire alarm equipment is uniquely capable of meeting the VA’s specific requirements for fire detection, alarm integration, and system compatibility at the Waco campus.

The market research included reviewing potential fire alarm system suppliers, evaluating compatibility requirements, and assessing the costs and feasibility of integrating alternative brands with the VA’s existing infrastructure. Research indicated that Notifier is the only brand able and is essential to provide a fully compatible solution without requiring extensive reconfiguration of the existing fire alarm system.

Notifier products can be purchased from a Notifier distributor by any SDVOSB, but the programming of the Notifier equipment must be done by a licensed Notifier distributor.

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Findings from the Market Research Include:

System Compatibility: Notifier fire alarm equipment is already installed across the Waco campus, providing a standardized system that ensures and is essential in providing cohesive operation and monitoring. Other fire alarm systems would not be fully compatible with the current setup, necessitating costly modifications and custom engineering to achieve basic interoperability. Non-Notifier fire alarm equipment cannot communicate with an existing Notifier system due to proprietary protocols, addressable device limitations, and diagnostic incompatibility. Attempting to integrate third-party equipment introduces significant risks, including system malfunctions, non-compliance with fire safety standards, and maintenance challenges. For these reasons, the use of Notifier only equipment is critical to ensuring a functional, compliant, and reliable fire alarm system.

Cost Implications: Market analysis showed that replacing or supplementing Notifier components with a different brand would lead to substantial duplication of costs. These costs would arise from necessary hardware replacement, system integration, retraining staff, and establishing additional maintenance protocols for a mixed-brand environment.

Operational Requirements: Further research into market alternatives indicated that only Notifier can reliably meet the operational and safety standards required by the VA without delays. Switching brands would introduce significant delays due to additional testing, compliance verification, and potential interruptions in fire safety services during installation.

Vendor Availability and Support: Notifier products can be purchased from a Notifier distributor by any SDVOSB, but the programming of the Notifier equipment must be done by a licensed Notifier distributor. This level of support is critical to ensure continuous fire protection without introducing the operational complexities that may arise with a multi-brand system.

The market research findings demonstrate that Notifier is the only brand capable of fulfilling the VA’s fire alarm system requirements at the Waco campus without incurring substantial additional costs, compatibility issues, or safety risks. This research supports the determination that brand name only procurement of Notifier fire alarm equipment is necessary to meet the VA’s requirements efficiently and cost-effectively, consistent with the policies set forth in FAR Part 10, VAAR 810.001-70, and PPM 2016-05

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

Additional compatibility concerns confirm that using any fire alarm system other than Notifier would compromise the operational integrity of the Doris Miller VHA campus’s fire safety system. The Waco campus has trained its personnel on Notifier protocols, and existing equipment is fully compatible with Notifier’s proprietary technology. Switching to another brand would require retraining personnel, redesigning system interfaces, and ensuring that fire safety functions meet the VA’s compliance requirements—all of which would result in substantial duplication of cost and unacceptable delays.

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

N/A

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c. Director of Contracting: I certify the justification meets requirements for other than full and open competition.

Date

c. VHA RPO HCA Review and Approval: I have reviewed the foregoing justification and find it to be complete and accurate to the best of my knowledge and belief and recommend approval (if over $75 million) or approve ($750K to $75 million) for other than full and open competition.

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