Notice of Intent - Sole Source Procurement for Wells Control System Upgrade at Fort Drum

1.0 Introduction & Background

This document provides the justification for using other than full and open competition for the procurement of control system hardware, software, and integration services for the wells control system upgrade project at Fort Drum. The project requires the expansion and modernization of the existing Supervisory Control and Data Acquisition (SCADA) system controlling the facility's water wells.

The existing wells are operated by a proprietary control system. To maintain operational integrity, system stability, and cybersecurity posture, the new controls must seamlessly integrate with the incumbent manufacturer's platform. 

2.0 Justification for Other Than Full and Open Competition

2.1 Authority Cited

The proposed procurement is justified under the authority of FAR 6.302-1, "Only One Responsible Source and No Other Supplies or Services Will Satisfy Agency Requirements." This authority is applicable because the required supplies and services must be procured from a specific manufacturer to ensure compatibility with the existing installed infrastructure, thereby avoiding substantial duplication of cost and unacceptable delays.

2.2 Description of Supplies/Services

The required supplies and services include proprietary programmable logic controllers (PLCs), input/output (I/O) modules, SCADA software licenses, and the associated engineering services for programming, configuration, and integration. These components must be fully compatible with the existing Fort Drum wells control system, which is based on the Trane platform. Only this manufacturer and its authorized representatives can provide the hardware, firmware, and software required to expand the system without compromising its integrity while maintaining the full functionality required by the Fort Drum licensed water operator.

2.3 Demonstration of Sole Source Necessity

The existing SCADA system for the wells at Fort Drum is a highly integrated and proprietary platform. Key components, including the central servers, communication protocols, and programming environment, are specific to the incumbent manufacturer. Awarding a contract to another source would prevent the new well controls from integrating into the existing system for the following reasons:

• Proprietary Architecture: The system's communication bus and software are not open-protocol, preventing third-party controllers from being recognized or functioning within the established network.
• Data Analysis: The system’s proprietary data analysis would be unable to fully integrate with non-Trane equipment.
• Data & Alarm Consistency: An alternative system would be unable to integrate into the existing alarm, trending, and historical data logging schemas, creating operational inefficiencies and information gaps.
• Cybersecurity: Introducing a different platform would require a completely new cybersecurity evaluation and Authority to Operate (ATO), creating a separate, less secure control network or a risky and unproven integration gateway.

2.4 Rationale for Substantial Duplication of Cost

Utilizing a different controls manufacturer would result in substantial duplication of costs that would not be recovered through competition. These sunk costs would include:

• System Replacement: A wholesale replacement of the existing central SCADA servers, operator workstations, and network hardware would be required.
• Reprogramming: All existing sequences of operation for the current wells would need to be reprogrammed and recommissioned on the new platform.
• Operator Training: Facility operators would need to be retrained on an entirely new system, leading to lost productivity and the potential for operational errors.

These duplicated costs are estimated to far exceed any potential savings from a competitive procurement for the new expansion scope alone.

2.5 Rationale for Unacceptable Delays

Introducing an alternate controls brand would cause unacceptable delays to a mission-critical utility infrastructure project. Specific delays would include:

• Extended Redesign: The control system architecture would require a complete redesign to accommodate a new platform.
• Complex Integration & Testing: Significant time would be spent developing and testing a new integration method, with no guarantee of success.
• Commissioning Delays: Commissioning and functional performance testing would be significantly extended to validate the performance of a non-standard, multi-vendor system.

These delays would jeopardize the project schedule and impact the operational readiness of the facility's water supply.

2.6 Market Research

Market research confirmed that while multiple vendors manufacture control systems, no other vendor can provide components that are fully and seamlessly compatible with the proprietary architecture of the installed system at Fort Drum. Research confirmed that any attempt to use an alternative would require the costly and time-consuming replacement of the existing system, validating the conclusion that only the incumbent manufacturer can meet the agency's requirements without causing unacceptable delays and cost duplication.

3.0 Conclusion

Based on the technical constraints of the existing proprietary system, the only viable path to meet the government's needs is to procure controls from the incumbent manufacturer. Therefore, a sole-source justification pursuant to FAR 6.302-1 is appropriate and necessary to ensure the successful, timely, and cost-effective completion of the Fort Drum wells control system upgrade.