Attachment E - Brand Name Justification for Public Address System - FINAL Redacted.pdf

VHAPG Part 806.3 OFOC Page 1 of 7 Revision: 04 Effective Date: 12/15/25 Acquisition ID#: VA-26-00007314

DEPARTMENT OF VETERANS AFFAIRS

Justification and Approval (J&A) For Other Than Full and Open Competition

Acquisition Plan Action ID: 36C246-26-AP-1171, Project No 590-24-115

1. Contracting Activity: Department of Veterans Affairs, VISN 6, 590 - Hampton Medical Center.

2. Nature and/or Description of the Action Being Approved: This Brand Name justification requests approval to procure VALCOM system equipment as the construction materials for the installation of a new Public Address (PA) system at the Hampton Medical Center. This action is necessary to upgrade and maintain the facility’s communication infrastructure, ensuring interoperability, security compliance, and reliable functionality for public announcements and emergency alerts.

3. Description of Supplies/Services Required to Meet the Agency’s Needs: The procurement includes various components of the VALCOM communication system such as:

a. Public Address Controllers: Central controllers that manage and distribute audio signals throughout the facility.

b. Speakers: High-quality speakers designed for clear and reliable sound distribution in various environments within the medical center.

c. Microphones: Professional-grade microphones providing reliable input for public announcements.

d. Control Software: Proprietary software to manage and control the public address system.

e. Installation Services: Professional installation services to ensure the system is installed correctly and integrates seamlessly with existing infrastructure.

This comprehensive solution is critical to maintain effective communication during daily operations and emergency situations.

4. Statutory Authority Permitting Other than Full and Open Competition: This procurement is being processed under the authority of FAR 6.302-1, which permits other than full and open competition when only one responsible source and no other supplies or services will satisfy agency requirements.

(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;

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

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Acquisition ID#: VA-26-00007314

( ) (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 VALCOM system is uniquely qualified for several reasons:

a. Internet Protocol and Security Concerns: The VALCOM PA System is the only PA system that approved for use in VA facilities. Like all modern PA systems, the VALCOM system is an Internet Protocol (IP) based system that uses the Local Area Network (LAN) to communicate messages and signals. As such, a new PA system would need be connected to the VA network and would introduce security vulnerabilities that could be taken advantage of by malicious actors. Therefore, any new system must be thoroughly reviewed and approved by VA OIT before it can be connected to the VA network. At the time of this writing, only the VALCOM system has been thoroughly reviewed and approved by VA OIT to be used with VA networks.

b. Administrative Delays: As the VA OIT approval process typically takes around a year, introducing a new system without VA OIT approval would significantly delay the project. Such delays would impede the project timeline and prolong the period during which the current, inadequate public address system remains in use. Additionally, the new system is intended to cover additional buildings that currently lack public address capabilities, making timely implementation vital.

c. VA OIT Approval Process: The VALCOM system is the only known system that has been through the lengthy and difficult process to be approved for use in VA facilities, and any non-VALCOM systems would create undue administrative burdens on the VA to obtain approval. The approval process begins with a request to OIT for new hardware or software, and then follows up with a detailed description of components, a list of all Port Forwarding protocols, a network topology diagram, a special purpose questionnaire, and approximately 50 detailed questions regarding network security. Getting answers to the network security requires scheduling multiple rounds of interviews with the manufacturer. Moreover, all documents and interviews must be completed within a tight timeframe, otherwise the request for new hardware/software is automatically rejected and the applicant must start again from the beginning.

d. Historical Context and Timeliness: In FY19, contract number 36C24619C0136 was awarded to Apogee Engineers to design a new Public Address System. In 2020 the design was 100% complete and delivered to the government. In 2022, the completed design was subsequently solicited for construction. However, only one response was received on 09/19/2022 with a proposed cost of $1,441,400. The evaluation board deemed this proposal

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Acquisition ID#: VA-26-00007314 unsatisfactory. The construction bid was a 106% increase over the construction budget of $700,000. Moreover, by the time this proposal was received, two years had passed since the design's completion, during which at least two new buildings had been constructed and other buildings demolished on the station.

While the previous project did NOT specify the system brand, it did NOT include the Enterprise Risk Analysis (ERA) process either to get a system approved by VA OIT. Consequently, the project had to be terminated due to the lack of construction bids matching the budget, the system in the design becoming outdated and unprocurable, and any new proposals received would require VA OIT approval.

e. Lessons Learned: In response to the previous failed Public Address System project, contract 36C24624C0025 was awarded to Watson Engineering. During the design phase, all new buildings were included in the design and VA OIT was included during all phases to ensure interoperability and equipment approval.

Moreover, Watson Engineering specifically designed the new PA System around the VALCOM system to ensure new components are compatible with existing components and to ensure compliance with Buy American Act (BAA) regulations.

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): Efforts to identify potential sources included extensive market research and outreach as follows:

a. Sources Sought Announcement: A sources sought announcement was submitted to gather information from various companies about their systems' capabilities and potential interest in meeting the VA's requirements. The Sources Sought notice asked for the following:

I. “A brochure OR capability statement that clearly shows similar capabilities to the system described above.

II. Has an Enterprise Risk Analysis Report (ERAR) signed by VA INFOSEC approving the alternate equipment OR has demonstrated history of successfully installing the equipment in other VA installations.

III. The equipment is manufactured in the United States and meets all Buy- American Act (BAA) requirements. If an exception to BAA exist[s], the vendor must provide approved waiver documentation.”

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Acquisition ID#: VA-26-00007314

7. Determination by the CO that the Anticipated Cost to the Government will be Fair and Reasonable: The Contracting Officer has reviewed the pricing structure for the VALCOM system and has determined that the costs are fair and reasonable. This determination is based on:

a. Market research suggests that there will be healthy competition between two or more contractors that can install VALCOM brand equipment.

b. Historical pricing for previous procurement of systems of comparable scope and complexity. Current construction budget considerations stand at .

c. Validation that the proposed pricing aligns with industry standards for similar systems and services.

8. Description of the Market Research Conducted and the Results:

Market research included:

a. Reviewing potential vendors and products that meet communication system requirements.

b. Submitting a Sources Sought announcement to gather information on other available systems.

c. Consulting with technical experts within the VA.

d. Evaluating responses to the sources sought announcement to assess whether other systems had VA OIT TRM approval.

The results of this research concluded that VALCOM is the only manufacturer that has successfully met the VA’s TRM approval, confirming its unique position as the sole qualified source for equipment/construction materials.

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

Further supporting the sole source procurement:

a. Continuity and Standardization: Using the VALCOM system ensures continuity across VA facilities that utilize similar systems, thus simplifying training, maintenance, and support.

b. Risk Mitigation: Using an unapproved system poses significant risks regarding security vulnerabilities and potential operational failures, which could have serious consequences in a medical center environment.

c. Project Timeline Impact: Engaging in the TRM approval process for an unapproved system would result in a minimum one-year delay, significantly impacting the project timeline and delaying the replacement of the current, inadequate public address system. This delay would not only affect the existing system’s replacement but also hamper expansion efforts to additional buildings currently lacking such capabilities.

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

Despite outreach efforts and responses to the sources sought announcement, no other sources have TRM approval or have been able to meet the VA’s specific TRM-approved requirements for this project.

11.A Statement of the Actions, if any, the Agency May Take to Remove or Overcome any Barriers to Competition before Making subsequent acquisitions