JA-Redacted.pdf

Attachment 1: Request for Sole Source Justification Format >SAT

VHAPG Part 806.3 OFOC Page 1 of 7 Revision: 04 Effective Date: 12/15/25 Acquisition ID#: 36C2412-26-AP-2134

DEPARTMENT OF VETERANS AFFAIRS

Justification and Approval (J&A) For

Other Than Full and Open Competition (>SAT)

Acquisition Plan Action ID: 36C242-26-AP-2134

1. Contracting Activity: Department of Veterans Affairs, VISN 2, VA New York Harbor

Healthcare System, 423 East 23rd Street, New York, N.Y. 10010 seeks to procure a soles source, firm fixed price award for Project# 561A4-26-507 Replace Fire Alarm Controls Annunciator at the VA Healthcare System, Lyons Campus, 151 Knollcroft Road, Lyons N.J. 07939. The project encompasses the replacement of all fire alarm system components associated with 18 control panels and 23 remote annunciators.

Scope includes reworking and reconnecting fiber optic cables across 18 fiber cabinets, performing all necessary programming, testing, and commissioning of new devices, and ensuring system functionality with code print-out capabilities. The upgraded system must fully comply with NFPA 72, 2025 VA edition, and eliminate all existing ground faults.

2. Nature and/or Description of the Action Being Approved: This action, as detailed under this justification, is to award a sole-source, firm-fixed contract to Encore Fire Protection. The scope of this contract encompasses the provision of all necessary labor, materials, equipment, and supervision required to replace all identified fire alarm control panels and annunciators. Furthermore, Encore Fire Protection will ensure full operability of the system and confirm that it meets the compliance standards set forth by the National Fire Protection Association (NFPA) 72, including the 2025 VA additions.

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

The contractor shall provide complete EST3 to EST4 platform upgrade services for the Lyons VA Medical Center fire alarm system. The project encompasses replacement of all fire alarm system components associated with 18 control panels and 23 remote annunciators, including reworking and reconnecting fiber optic cables across 18 fiber cabinets, performing all necessary programming, testing, and commissioning of new devices.

Equipment to be Replaced:

• 21 EST-4 Fire Alarm Control Panel Doors

• 21 EST-4 CPUs

• 22 Remote Annunciators

• 34 Power Supplies

VHAPG Part 806.3 OFOC Page 2 of 7 Revision: 04 Effective Date: 12/15/25 Acquisition ID#: 36C2412-26-AP-2134

• 18 Common Relay Modules

• 42 Fiber Net Com Modules

• 21 Network Adapter Modules

• 21 Mounting Brackets

• 24 Switch Banks

• 5 Microphones

• 5 Audio & Telephone Interface Modules

• 22 LCD Annunciators/Touch Screens

• 84 Network Controllers (for Annunciators)

National Authority: This upgrade is required to maintain life safety system compliance per NFPA 72 (2025 VA edition) and 29 CFR 1910.38 (Emergency Action Plans). The existing EST3 platform has been discontinued by the manufacturer, creating critical maintenance and compliance risks.

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

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;

( ) (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 Edwards EST platform is proprietary in nature, with system programming, configuration databases, and network architecture accessible only to authorized and certified Edwards Systems Technology (EST) Strategic Partners.

Upgrading from EST3 to EST4 is not a simple equipment replacement; it requires:

• Database conversion and migration from legacy EST3 platform

• Network reconfiguration and fiber optic infrastructure rework

• Panel migration and device compatibility verification

• Proprietary system programming and commissioning procedures

• Factory-level access to proprietary Edwards software and programming tools

• Only authorized and certified Edwards partners possess:

• Direct access to proprietary Edwards software, programming tools, and firmware

VHAPG Part 806.3 OFOC Page 3 of 7 Revision: 04 Effective Date: 12/15/25 Acquisition ID#: 36C2412-26-AP-2134

• Technical support resources directly from Edwards Systems Technology

• Genuine factory-authorized components meeting manufacturer specifications

• Certified, factory-trained personnel qualified to service EST3 and EST4 systems

Encore Fire Protection is an Edwards Systems Technology Strategic Partner with the following unique qualifications:

• Incumbent Service Provider Status (15-Year Relationship).

• Encore Fire Protection (following its absorption of Alarm & Communication

Technologies on January 1, 2025) has been the incumbent service provider maintaining, inspecting, programming, and repairing the existing EST3 fire alarm system at Lyons VA Medical Center for approximately fifteen (15) years.

As the incumbent, Encore possesses unique, non-transferable institutional and technical knowledge:

• Complete knowledge of the existing EST3 system database structure and configuration

• Comprehensive understanding of network topology and node dependencies

• Detailed records of device addressing schemes and mapping logic

• Historical documentation of programming modifications and field-level adaptations

• Knowledge of legacy system expansions and undocumented field conditions

• Site-specific coordination expertise within patient care environments

• Established relationships with facility operations and security protocols

Specialized System Knowledge:

The accumulated configuration history and operational familiarity possessed by Encore is essential to performing a safe and accurate database migration. This system-specific knowledge is non-transferable and cannot be replicated by another contractor without substantial duplication of effort and cost. Award to any other source including another authorized EST partner would require complete reverse engineering and rediscovery of the existing system architecture. This would result in:

• Substantial Duplication of Cost, extensive system mapping and database recreation efforts (estimated 200-400+ hours).

• Comprehensive validation testing and extended commissioning procedures

• Potential need to re-contract with Encore as the incumbent to access historical system data

• Duplicate contractor costs that cannot be recovered through competition

• Subcontracting costs to authorized EST partners as remedial measures

• Extended project timeline due to system discovery and reverse-engineering requirements

VHAPG Part 806.3 OFOC Page 4 of 7 Revision: 04 Effective Date: 12/15/25 Acquisition ID#: 36C2412-26-AP-2134

• Prolonged fire alarm system downtime during testing and validation phases

• Potential necessity for temporary life safety measures during the upgrade period

• Compliance risk and operational disruption to a continuously operating VA healthcare facility

The Lyons VA Medical Center is a continuously operating healthcare facility where system reliability, phased implementation, infection control coordination, and minimized downtime are critical operational requirements. Extended project duration would constitute unacceptable delay under FAR 6. and pose unacceptable risks to patient safety and healthcare delivery.

5.4 Life Safety and Operational Risks of Alternative Sources

Engaging a non-authorized contractor would bring significant risks:

• Inability to access proprietary programming software and manufacturing documentation

• Loss of Edwards manufacturer warranty protections

• Potential system incompatibility or communication failures between EST3 and

EST4 platforms

• Non-compliance with VA fire protection standards, NFPA 72, and manufacturer specifications

• Increased life safety risk to an active healthcare facility with vulnerable populations

• Inability to verify system integration and functional compatibility

• Loss of factory-level technical support during and after system migration

Accordingly, Encore Fire Protection is the only firm capable of providing the supplies and services described in Section III above without the Veterans Health Administration experiencing substantial duplication of cost that could not be expected to be recovered through competition and unacceptable delays in fulfilling its requirements. The combination of Edwards Strategic Partner certification, incumbent service provider status, system-specific knowledge, and manufacturer authorization makes Encore Fire Protection the sole responsible source capable of safely and efficiently executing this critical life safety system upgrade.

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): conducted market research consistent with FAR Part 10 and VAAR 810.001-70. Research efforts included:

• Review of Edwards Systems Technology's official list of certified Strategic

Partners

• Verification of contractor certifications and factory-training credentials

• Assessment of FAC-P/AACS and other relevant small business certifications

VHAPG Part 806.3 OFOC Page 5 of 7 Revision: 04 Effective Date: 12/15/25 Acquisition ID#: 36C2412-26-AP-2134

• Examination of the Small Business Administration's Veteran Small Business Certification Program (VetCert) portal to identify service-disabled veteran-owned businesses (SDVOSBs) and veteran-owned small businesses (VOSBs)

• regarding incumbent service provider performance and system continuity requirements

• Investigation of alternative fire alarm platforms and manufacturers to assess whether non-proprietary alternatives could satisfy the requirement

• The EST3 platform is no longer supported by Edwards Systems Technology, with no migration path to competing platforms

• EST4 platform migration requires Edwards Strategic Partner certification and proprietary software access

• The 15-year incumbent service provider relationship with Encore Fire Protection provides critical system-specific knowledge that cannot be replicated

• No other sources possess the combination of Edwards certification, incumbent status, and system knowledge required for this acquisition

7. Determination by the CO that the Anticipated Cost to the Government will be Fair and Reasonable The Contracting Officer will make a price fair and reasonableness determination of the contractor’s proposed price through a comparison with the independent Government estimate developed by the VA Project Engineer/Contracting Officer Representative in accordance with FAR 15.404- 1(b)(2)(v).

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

Based on a comprehensive search using both the VetCert and DSBS search engines with NAICS code 238210 in New York, New Jersey, and Pennsylvania, six potential SDVOSB certified companies were identified. An intent to sole source was posted on contract opportunities from March 24, 2026, to March 31, 2026, resulting in one response.

It is crucial to consider that the Edwards EST platform is proprietary, with system programming, configuration databases, and network architecture accessible only to authorized and certified Edwards Systems Technology (EST) Strategic Partners. The upgrade from EST3 to EST4 is not a straightforward equipment replacement; it involves stringent requirements. Consequently, an authorized partner such as Encore Fire Protection is necessary to perform the work.

Currently, Encore Fire Protection is the only business capable of working on the system, having successfully completed all Edwards factory certifications for the complete line of fire alarm panels and initiating devices (including smoke detectors, heat detectors, pull stations, and duct detectors). Additionally, they are authorized by Edwards to engineer, program, test, and maintain these products.

Based on prospective market research, it has been determined that the best course of action is to sole source to a Large Business, Encore Fire Protection.