Redacted JA - Vocera Communicaton Solution.pdf

Control Number: VA-26-00066386

JUSTIFICATION FOR AN EXCEPTION TO FAIR OPPORTUNITY

1. Contracting Activity: Department of Veterans Affairs (VA) Office of Procurement, Acquisition, and Logistics

Technology Acquisition Center 23 Christopher Way Eatontown, NJ 07724

2. Description of Action: The proposed action is for a firm-fixed price (FFP) delivery order issued under the National Aeronautics and Space Administration (NASA) Solutions for Enterprise-Wide Procurement (SEWP) V Government-Wide Acquisition Contract (GWAC) for the brand name Vocera Communication Solution, which includes Smartbadge messaging devices, associated software licenses, and maintenance support.

3. Description of the Supplies or Services: The VA, Veterans Health Administration (VHA), VA North Texas Health Care System (VANTHCS) requires the expansion and modernization of its existing Vocera hands-free wireless hospital communication system. This effort includes the procurement of brand name Vocera software licenses, maintenance support, and 2,500 Smartbadges, 1,700 Smartbadges to replace the currently deployed legacy Vocera B3000 badges and 800 Smartbadges for the expansion in Dallas, Garland and Fort Worth, ensuring continuity of operations and improved clinical communication capabilities. The expanded system will support full integration with the Baxter Hill-Rom Voalte nurse call platform, enabling delivery of critical alerts such as bed exit notifications, patient call requests, and other unit-specific workflow messages directly to the Vocera Smartbadges. The VA requires Smartbadge devices that provide hands-free voice and secure messaging functions used by clinical care teams and nursing staff to coordinate patient care activities efficiently. Additionally, the VA requires devices that shall support Wi-Fi connectivity, push-to-talk functionality, and integration with the existing Vocera platform currently deployed at the medical facilities. The Smartbadges shall be wearable and durable for continuous use in a healthcare setting, and include the necessary components for full operational capability, such as charging accessories, batteries, and compatibility with existing Vocera software and network infrastructure. The equipment shall meet all applicable VA cybersecurity, interoperability, and healthcare communication standards to ensure reliable performance within the VHA clinical environment.

The Contractor shall provide all required Vocera software on the Smartbadge messaging devices and provide training, configuration, and technical support under Vocera Premier Plus support services. Support services shall include migration of voice, messaging, and Engage components; integration support for Baxter Hill-Rom Voalte nurse call; configuration of clinical alarm and event notification workflows; end-user training and go-live support; administrator training; wireless performance analysis;

solution validation activities; real-time inventory of all Vocera devices across all services; and device tracking status (assigned, unassigned, lost, broken, pending replacement).

Vocera Communication Solution Control Number: VA-26-00066386

The delivery of all messaging devices and associated software licenses shall be within 90 days after award. The period of performance includes a 12-month base period with two (2) 12-month option periods. The total estimated value of the proposed action is

, inclusive of option periods.

4. Statutory Authority: The statutory authority permitting an exception to fair opportunity is 41 U.S.C. 4106(c)(2), as implemented by the Revolutionary Federal Acquisition Regulation (FAR) Overhaul (RFO) FAR 16.507-6(b)(2): Only one awardee is capable of providing the supplies or services required at the level of quality required because the supplies or services ordered are unique or highly specialized.

5. Rationale Supporting Use of Authority Cited Above: Based on the results of market research described in Section 8 of this justification, it has been determined that only brand name Vocera, or an authorized reseller, is capable of providing the hardware, associated software licenses, and maintenance support required to expand and sustain the VANTHCS enterprise Vocera communication platform. The Vocera Smartbadge messaging devices, associated software licenses, and maintenance support are not standalone products but are critical components of an existing, fully deployed network communication system that includes software support, network configuration and user workflows designed around Vocera technology. Only Vocera brand name Smartbadge messaging devices, associated software licenses, and maintenance support can continue to build upon VA’s existing Vocera based network communication system and seamlessly integrate without modification of the current system.

The VA currently operates an established Vocera based communication infrastructure that relies on proprietary Vocera software and system architecture. The existing network communicates through Vocera specific protocols and source code, which are not accessible or compatible with other manufacturers’ communication badge solutions. As a result, Vocera Smartbadge messaging devices, associated software licenses, and maintenance support are required to maintain compatibility with the existing system architecture, including its backend software, network configurations, and established workflows. The VA requires 2,500 Smartbadges to replace the legacy Vocera B3000 devices and to support hands-free, voice-activated clinical communication. The Smarbadge messaging devices and software updates must fully integrate with the currently deployed Vocera infrastructure, which includes proprietary servers, middleware, system databases, workflows, and alerting mechanisms. Vocera’s communication ecosystem is proprietary and cannot interoperate with third-party devices or software. All firmware, application program interfaces, system configuration tools, and diagnostic utilities required for the Smartbadge messaging devices, associated software licenses, and maintenance support are restricted to Vocera and its authorized reseller network. As a result, no other contractor can provide compatible the necessary Smartbadge messaging devices, software licenses, and maintenance support. Only Vocera can ensure continued interoperability with the existing enterprise communication architecture and maintain compliance with federal cybersecurity and privacy requirements, including the protection of Personally Identifiable Information and Protected Health Information within the VA’s network environment.

Procurement of non-compatible or alternative Smartbadge messaging devices, associated software licenses, and maintenance support would result in the disruption of the existing Vocera communication infrastructure, established clinical workflows, and communication protocols. Alternative Smartbadge messaging devices, associated software licenses, and maintenance support would increase the risk of delayed or failed communications between care teams and negatively affect patient care coordination and response times. Furthermore, transitioning to a different communication solution would require complete replacement of the existing infrastructure, including hardware, software, system integration, and staff retraining. This would result in significant additional costs to the Government, extended system downtime, operational disruption, and increased risk to continuity of patient care during transition. Replacement of the existing Vocera system including messaging devices, software requirements, maintenance support, server infrastructure, and integration could take up to eighteen

(18) months and exceed due to infrastructure, licensing, and professional services. These estimates are based on previous acquisition history and recovery of these estimated costs would not be achieved through competition. Any attempt to introduce alternative, non-compatible communication solutions would result in system incompatibility, disruption to clinical workflows, and increased risk to patient safety. The use of Vocera brand name Smartbadge messaging devices, associated software licenses, and maintenance support will ensure continuity, compatibility, and reliability within the VA’s current infrastructure.

6. Efforts to Obtain Competition: Market research was conducted, details of which are in Section 8 of this justification. This effort did not yield any additional sources that could meet the Government's requirements. However, the undersigned VA technical representative determined that limited competition is available among authorized resellers for brand name Vocera messaging devices, associated software licenses, and maintenance support. In accordance with FAR RFO 16.507-7(c)(ii), this justification will be provided with the solicitation to all appropriate NASA SEWP V GWAC holders.

7. Actions to Increase Competition: The Government will continue to conduct market research to ascertain if there are changes in the marketplace that would enable future actions to be completed.

8. Market Research: The VANTHCS Patient Care Informatics Team conducted market research in April 2025 – May 2026 by reviewing vendor technical documentation, analyzing interoperability requirements, and examining the performance of currently available communication systems. Brands such as TigerConnect, Spok, and Telmediq primarily are mobile apps and pager-based systems that require manual interaction and do not provide hands free, badge app, and voice activated workflows. TigerConnect depends on message acknowledgment rather than instant voice connection. Additionally, Spok and Telmediq are designed around paging and alert routing, not continuous voice communication. As a result of the market research, technical experts confirmed that no other brand name messaging device can meet the Government’s minimum requirement for integrated, voice activated, hands-free, real-time communication. Furthermore, due to proprietary data, none of the other vendor brands would be able to provide the required Vocera Smartbadge devices, associated software licenses, and maintenance support.

Additionally, in May 2026, the Contract Specialist conducted a search using the NASA SEWP V Provider Lookup Tool, which indicated there were seven (7) contract holders, including two (2) Service-Disabled Veteran-Owned Small Businesses (SDVOSB), identified as resellers of brand name Vocera Smartbadge messaging devices, associated software licenses, and maintenance support; therefore, given that there is a reasonable expectation of competition between at least two capable SDVOSBs, it has been determined by the Contracting Officer that the subject Request for Quote will be released as a SDVOSB set-aside under the existing NASA SEWP V contract vehicle. NASA SEWP V has a dynamic catalog where line items can be added based on customer requests; therefore, as long as the required item or service is within scope of the NASA SEWP V contracts, items and services can be added to the catalog on a daily basis. If other vendors wish to resell this product based on this published acquisition, they can establish a relationship with the product company as a reseller on SEWP.

9. Other Facts: None.

Technical/Requirements Certification

I certify that the supporting data under my cognizance, which are included in this justification, are accurate and complete to the best of my knowledge and belief.

Fair and Reasonable Cost Determination

I hereby determine that the anticipated price to the Government for this contract action will be fair and reasonable. Contracts awarded on NASA SEWP V GWAC have already been determined to be fair and reasonable. As there are multiple resellers on the NASA SEWP V GWAC capable of providing Vocera Smartbadge messaging devices, associated software licenses, and maintenance support, price competition is anticipated. Finally, if only one quote is received, price analysis shall be conducted by comparing the successful quote to the Independent Government Cost Estimate.

Contracting Officer Certification/Approval

I certify that this justification is accurate and complete to the best of my knowledge and belief.

Advocate for Competition Approval

In my role as procuring activity Advocate for Competition, based on the foregoing justification, I hereby approve the acquisition of brand name Vocera Smartbadge messaging devices, associated software licenses, and maintenance support on an other than fair opportunity basis pursuant to the authority cited in Section 4 above, subject to availability of funds, and provided that the hardware and services herein described have otherwise been authorized for acquisition.