36C10B18C2745-001.pdf

Technology Based Companion for Transitioning Service Members & Veterans

Control Number: TAC-18-49207

JUSTIFICATION FOR OTHER THAN FULL AND OPEN COMPETITION

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: This proposed action is for a firm-fixed price contract to further the development of the Technology Based Companion for Transitioning Service Members and Veterans, hereinafter referred to as the "GRIT mobile application", with International Business Machines (IBM).

3. Description of Supplies or Services: VA, Veterans Health Administration, Office of Mental Health and Suicide Prevention (OMHSP) has a requirement to further develop the current use case of the GRIT mobile application to a pilot ready prototype that focuses initially on Veteran employment. The GRIT mobile application is a technology based companion. In 2016, OMHSP launched a collaborative partnership with IBM through a Memorandum of Understanding to develop a proof of concept, titled GRIT, to demonstrate how the real-time and consistent collection of personalized data could help Veterans understand and strengthen their emotional well-being and resiliency, particularly during the transition from active duty to civilian life. GRIT is an innovative technology solution that uses a chat-bot (via text messaging) to engage with the Service member or Veteran. The GRIT proof of concept has moved into the development phase and requires further development to pilot the technology solution in a limited field test. The prototype will be a personal and easy to access assistant for practical support providing the user access to resources as needed to reduce stress and anxiety associated with significant life events. It will allow Service members and Veterans to access resources to assist with financial, employment and other resources. This new innovative technology is part of a public health approach to prevent and end suicide among Service members and Veterans. OMHSP requires the further development of the GRIT mobile application use case to become a pilot-ready prototype that includes the following four components in a native mobile application:

• Personality Baseline: Establishes a "normal" baseline using a series of interactive surveys, Watson Tone Analyzer, and chatbot conversations.

• Transition Challenges Survey: Collects digital data for transition challenges and needs through a series of questions using a chatbot.

• Create a "Squad": Identify a personal "squad" - a network of close friends and allies that can provide ongoing support and could intervene in times of trouble.

• Employment Fulfillment: Provides job search and job matching functions using IBM Watson Employment Manager.

Control Number: TAC-18-49207

The period of performance is six months from date of award. The total estimated value of the proposed action is .·

4. Statutory Authority: The statutory authority permitting other than full and open competition is 41 U.S.C. 3304(a)(1) as implemented by the Federal Acquisition Regulation (FAR) Subpart 6.302-1 entitled, "Only One Responsible Source and No Other Supplies or Services Will Satisfy Agency Requirements."

5. Rationale Supporting Use of Authority Cited Above: The proposed source for this action is IBM, 1 New Orchard Road, Armonk, New York 10504-1722. Based on the market research, as described in Section 8 of this justification, it was determined that further development of the IBM owned and developed GRIT mobile application can only be accomplished by IBM directly as IBM owns the proprietary technologies and technical data required for the GRIT mobile application and its components. The GRIT proof of concept demonstrates the use of technology that aggregates personalized data to create a digital representation of the individual- a "digital self'.

The "digital companion" gets to know each Veteran individually, based on information provided safely and securely, and offers insights and support to enable a Veteran to be the best version of his or herself. There is no other mobile application aimed at reaching Service members and Veterans during the military-to-civilian transition that operates and interacts with the user as a digital companion. This is a critical VA functional requirement that only the GRIT mobile application can meet.

GRIT was designed by IBM and there is no similar use case or prototype available for comparison. Additionally, IBM GRIT is comprised of proprietary technology to include IBM Watson question-answering computer system which is a key component of the project. The GRIT mobile application is the only mobile application that combines the personal and securely shared personal data of a Service member or Veteran to create a digital self which allows the technology to learn from the user.

This is a critical VA functional requirement that only the GRIT mobile application can meet. The application provides transition support from any potentially challenging life event such as the transition out of the military and combines general wellness resources along with the user-identified squad to create a personal support community for the user to both provide and receive peer support. IBM owns the rights to the proprietary technologies including IBM's Watson Tone Analyzer and Employment Manager Intelligence and is the only source that can continue developing the GRIT use case to pilot-ready prototype. IBM developed GRIT through its proprietary technology and any other source would need access to IBM proprietary data to complete the development efforts under this proposed action.

This code is needed to ensure all services provided are properly configured and that any development completed can function within the existing proprietary protocols.

This technology-based companion gets to know each Service member and Veteran individually based on voluntarily sharing information safely and securely offers insights and support to enhance the user's resilience to live their best life.

Abandoning the currently developed application will result in substantial duplication of effort and duplicated cost amounting to approximately $1M that would not be recovered through competition. This estimate is based on previous efforts to

Control Number: TAC-18-49207 develop the application. Additionally, VA does not have access to the proprietary technology to include IBM Watson required to compete any further development.

OMHSP requires further development of the GRIT mobile application to pilot the prototype and analyze data relative to its effectiveness to prevent suicide and save lives, specifically, its effectiveness to assist Service members and Veterans strengthen their behavioral and emotional resiliency through stressful phases of life particularly during military-to-civilian transition and the 12 months following. Finally, IBM's proprietary source code for the GRIT application and its underlying components, such as IBM Watson, are not available for sale.

6. Efforts to Obtain Competition: Market research was conducted, details of which are in the market research section of this document. This effort did not yield any additional sources that can meet the Government's requirements. There is no competition anticipated for this acquisition. Additionally, the proposed action will be synopsized on the Federal Business Opportunities Page in accordance with FAR

5.201. Any proposals that are received shall be evaluated.

7. Actions to Increase Competition: The Government will continue to conduct market research to ascertain if there are changes in the market place that would enable future actions to be competed, such as new mobile tools being commercially developed that offer similar functionality. Further development of the GRIT application may be necessary based on the outcome of piloting the prototype.

Further development of the application is anticipated to be sole source based on the proprietary constraints as outlined in Section 5 of this Justification. Additionally, VA does not anticipate piloting, hosting or deploying the application into production at this time.

8. Market Research: Government technical experts conducted continuous market research as recently as April 10, 2018 through internet research and review of over 20 mobile applications including applications developed by Military.com (Transition by Miliary.com); Sandbox Family Communication, Inc.

(Connecting our Military); and Objective Zero Foundation that are specific to Veterans and mental health to determine if any company other than IBM can further develop the GRIT application. While there are other mobile applications that can assist Veterans during military-to-civilian transitions, the Government technical experts determined that only IBM has access to the proprietary data and source code necessary to continue the development of the GRIT application developed by IBM. To utilize a manufacturer solution other than IBM, VA would have to overhaul the entire existing GRIT application and replace it completely with the corresponding manufacturer's solution. Additionally, no other applications meet all of VA's requirements such as the digital companion functionality required. Finally, Government representatives contacted IBM to confirm the availability of resellers. Communications with IBM confirmed that IBM is currently the sole provider of the required development services and has no resellers. Furthermore, IBM confirmed that their application solution was built upon proprietary code that is not made available to any other manufacturer.

Control Number: TAC-18-49207

Development of the IBM owned GRIT mobile application can only be accomplished by IBM directly as IBM owns the proprietary technologies required for the GRIT mobile application. The Government contacted IBM on June 1, 2018 to inquire if the GRIT application and underlying technology are available for sale so that VA may compete the requirements for additional development.

On June 4, 2018 IBM responded that the GRIT application and the underlying technology are not for sale.

9. Other Facts: None