P03 FAR 13.5 Justification and Approval_Anonymous Peer Groups PE redacted.pdf

DEPARTMENT OF VETERANS AFFAIRS

Office of Procurement, Acquisition and Logistics (OPAL)

Strategic Acquisition Center (SAC) 5202 Presidents Ct, Suite 103

Frederick, MD 21703

SOLE SOURCE JUSTIFICATION UNDER SIMPLIFIED PROCEDURES FOR

CERTAIN COMMERCIAL ITEMS IN ACCORDANCE WITH FEDERAL ACQUISITION

REGULATION (FAR) 13.5

(1) Identification of the agency and contracting activity, and specific identification of the document as a “Sole Source Justification Under Simplified Procedures for Certain Commercial Items in Accordance with Federal Acquisition Regulation

(FAR) 13.5.”

This Justification and Approval (J&A) for Other than Full and Open Competition is executed by the Strategic Acquisition Center (SAC), on behalf of the Department of Veterans Affairs (VA), Veterans Health Administration, Office of Healthcare Innovation and Learning.

(2) The nature and/or description of the action being approved, i.e., sole source under procedures for certain commercial items in accordance with FAR 13.5.

This activity proposes to negotiate a non-competitive, sole source, firm-fixed price contract with Even Health LLC, dba Cabana.

The proposed sole source purchase from proposed contractor Cabana of their app as well as associated evaluation of the product.

(3) A description of the supplies and/or services required, including the delivery schedule and/or the period of performance (inclusive of all option periods), and the estimated dollar value of the acquisition.

Cabana provides confidential, professionally moderated peer support groups and psychoeducational content, through self-guided micro learning and personalized learning journeys, intended to break stigma and encourage early intervention for Veterans not currently engaged with VA care. The proposed solution leverages community-based partnerships between the contractor and Staff Sergeant Parker Gordon (SSG) Fox Suicide Prevention Grant Program (SPGP) community hubs to extend support into trusted, non-VA environments.

The Solution focuses on two phases:

Phase 1 will be completed with two identified VA medical centers and two Veteran Service Organizations (VSO) in the respective states of North and South Carolina. The primary intent of Phase 1 is platform user testing and custom prototyping. Feedback from Veterans and VA clinicians shall be used to make iterative changes and programmed into the current (IOS) version of the Cabana Platform. Phase 1 will include establishing necessary operational partnerships, building technical infrastructure, and

Strategic Acquisition Center (SAC) 5202 Presidents Ct, Suite 103 capturing and sharing data for all proposed metrics with VA team. All Veteran patients who participate will be screened through the VA SSG Fox SPGP community hubs.

During Phase 1, the project team shall collaborate with partnering VA teams in Veterans Integrated Services Networks (VISN) 6 and 7 along with their Veterans Service Organization (VSO) partners, to complete beta testing of the Cabana Platform’s elements (online (IOS) mobile applications, data sharing mechanism, and adjunct subclinical mental health resource). A minimum of 50 Veterans will be enrolled in prototype and User Experience (UX) testing of the iOS version of the solution.

In Phase 2, an Android version of the Cabana platform shall be created in accordance with Google applications and be available on the Google Play Store for download. The contractor shall complete platform user testing and custom prototyping. Feedback from Veterans and VA clinicians shall be used to make iterative changes and programmed into the current Android version of the Cabana Platform. Three additional VSO’s and three additional VA Medical Centers (VAMCs) shall participate in recruitment, enrolling Veterans to use the Cabana platform, and referral to VA health services in Phase 2.

This expansion will further validate the feasibility, effectiveness, and scalability of the Cabana Platform solution. This phase should include full field testing of both the Android and iOS versions of the Cabana platform, co-design and introduction of a mode of sustainable data analytics reporting to allow community partners and VA to jointly monitor aggregate utilization and referral data, enhancement of single sign-on capabilities and user interface and include development of a long-term scaling and sustainability plan. Phase 2 will also include capturing and sharing data for all proposed metrics with VA project teams.

The intended solutions will be:

• Reduce Social Isolation

• Foster early engagement with at-risk Veterans

• Help prevent crises and reduce likelihood of suicide

• Remove geographical and logistical barriers to increase access to mental health support

• Augments VA suicide prevention and outreach efforts

• Potential for operational scalability due to group-based model and ability to integrate within existing community organizations

• Potential for cost efficiency to be impacted by reduced need for individual clinical appointments and virtual group model operating at a lower cost per Veteran.

The Reach, Effectiveness, Adoption, Implementation, and Maintenance (REAIM) framework will be used to evaluate impact in both phases. Reasons for non-adoption shall be identified, and a resolution/mitigation process will be created and adopted.

Phase 1 (first 12-months) to focus on building infrastructure, testing user experience of iOS version, and optimizing platform for field testing deployment. Phase 2 (second 12-months) to focus on development of Android version and testing feasibility, scalability, Strategic Acquisition Center (SAC) 5202 Presidents Ct, Suite 103 and effectiveness. Initiation of Phase 2 is dependent on satisfactory performance in Phase 1. Total estimated dollar value, including one option period, is $5,023,851.65.

(4) The statutory authority permitting sole source.

This action is under the procedures of Federal Acquisition Regulation (FAR) 13.5 under the authority of:

X 41 U.S.C. 1901, Simplified Acquisition Procedures ☐ 41 U.S.C. 1903, Special Emergency Procurement Authority

This acquisition is conducted under the procedures of FAR subpart 13.5, used in accordance with the authority of 41 U.S.C § 1901. FAR 13.5 authorizes the use of Part 13 simplified procedures for certain commercial items. Acquisitions conducted under simplified acquisition procedures are exempt from the competition requirements listed in FAR Part 6 in accordance with (IAW) FAR 13.501(a)(1). Instead, Contracting Officers are required to promote competition to the maximum extent practicable IAW FAR

13.104. FAR Part 13 requires the agency to justify in writing sole source acquisitions IAW FAR 13.501(a)(1)(i). The agency may solicit from only one source if the circumstances of the contract action deem only one source reasonably available IAW FAR 13.106- 1(b)(1)(i).

(5) A statement demonstrating the unique qualifications of the proposed contractor or the nature of the action requiring use of the authority.

This contractor, Cabana, submitted a proposal to VHA Innovation Ecosystem’s Broad Agency Announcement (BAA). This BAA for Suicide Prevention is structured to allow for a competition cycle, which consists of submission of a concept paper followed by an invitation-only full proposal, to select projects to be funded for an initial prototyping and testing phase and option period phase for subsequent field test/piloting. VA invites all potential offerors (including private sector companies, non-profits, and institutions of higher learning) to contribute ideas for innovations in suicide prevention, care coordination, and treatment that significantly increase Veteran access to services, reduce or control costs of delivering those services, enhance the performance of VA operations, and improve the quality of service that Veterans, caregivers, and their families receive. VA is seeking solutions that can be developed, piloted, and evaluated within a 12-24 month period. This total period must include all time required for prototyping and testing and evaluation of field test/pilot results. The proposal submission process of the BAA was conducted in two stages, with the multidisciplinary review team evaluating at each stage and including Subject Matter Expert (SME) review as relevant to the proposal. Government-selected topics for consideration were included in the public-facing BAA solicitation, and the Review Team considered each submission in line with the above criteria.

Strategic Acquisition Center (SAC) 5202 Presidents Ct, Suite 103

For the first stage, offerors are required to submit a concept paper of their proposed solution for one of the VA topic areas of interest. Based upon the evaluation criteria for review of concept papers specified in the BAA, an offeror may be invited to submit a full proposal on an invitation-only basis. This approach minimizes proposal investment costs for prospective offerors. Concept papers will be evaluated on an on-going basis as they are submitted beginning July 15, 2024, until August 15, 2025, as long as project funding is available. The submission of concept papers allows VA to determine the acceptability of the proposed concept, provide feedback and communicate with selected offerors prior to full proposal submission. All concept papers are evaluated in accordance with the evaluation criteria set forth in the BAA and selected offerors are invited to submit full proposals. The Government reserves the right to select all, some portion, or none of the concept papers received in response to the announcement for full proposal submission. The Government also reserves the right to conduct discussions if determined to be necessary when offering an invitation to submit a full proposal for award consideration. Awards may continue to be made if funding is available. Any acquisition decision regarding a particular concept paper or proposal will be rendered based on its technical approach, importance to agency programs, and availability of funds.

The specific evaluation criteria are set forth below:

• The potential impact, benefits, and contributions of the solution to the stated areas of interest

• The quality of the proposed solution design

• The quality of the proposed implementation plan

• The scalability of the proposed solution

• The Offeror's capabilities, related experience, facilities, techniques, or unique combinations of these which are integral factors for achievement of proposed objectives

• The cost-effectiveness of the solution in proportion to its potential impact/benefits

The Government may consider options if proposed or negotiate with a contractor to establish options for additional effort. VA mandated security clauses will be included in any resultant contracts. Contractors will be required to comply with the technical standards at 40 U.S.C.11312 and Office of Management and Budget (0MB) Circular A- 130 in performing their respective contracts. All concept papers received through August 15, 2025, will be evaluated based on the criteria identified in above and as funds remain available. The contractor will be required to comply with Section 508 of the Rehabilitation Act (29 U.S.C. § 794d), as amended by the Workforce Investment Act of 1998 (P.L. 105-220), August 7, 1998. All acquisitions of information technology services, regardless of dollar value are subject to the Clinger-Cohen Act.

This proposed contractor, Cabana, and their proposal for providing a solution to aid

Strategic Acquisition Center (SAC) 5202 Presidents Ct, Suite 103 suicide prevention went through all of the above processes and was selected as a solution to further develop and test. As such, considering no others like it have submitted a proposal and been accepted based on the above criteria, they are the only Contractor and only solution to fit the VA’s need.

Furthermore, Cabana is uniquely qualified based on the following:

a. Cabana is the only company offering their proprietary Cabana Platform which offers confidential source code information that only they contain as well as, professionally moderated peer support groups and psychoeducational content, through self-guided micro learning and personalized learning journeys.

b. Cabana has unique relationships with SSG Fox SPGP Community Hubs to enhance recruitment and enrollment of non-VHA connected Veterans through their interactions within these VSO’s which will improve VA’s ability to evaluate the feasibility and impact of this solution.

(6) A description of efforts made to ensure offers/quotes are solicited from as many potential sources as is practicable, including whether a notice was or will be publicized as required by FAR 5.2 and, if not, which exception under 5.202 applies

BAAs provide for full and open competition in accordance with FAR subpart 6.1.

Therefore, any contractor interested in conducting research in the areas of interest, to include small businesses, are eligible to submit concept papers and proposals. If an Offeror is a large business, the value of its proposal exceeds $750,000 and subcontracting opportunities exist, a subcontracting plan shall be required in accordance with FAR subpart 19.7. The subcontracting plan shall be evaluated to insure it contains the required elements of FAR 19.704 and challenging and realistic goals for maximum practicable opportunity for small business category participation.

An acceptable plan will be negotiated and made part of the resulting contract. In addition, in accordance with FAR 9.104-3(b), prior compliance with subcontracting plans required by FAR subpart 19.7 shall be considered in determining the responsibility of an Offeror proposing on a contract requiring a subcontracting plan.

Selection of proposals for award under a BAA is a competitive procedure in accordance with Federal Acquisition Regulation (FAR) 6.102(d) (2). The BAA will be advertised on the SAM.gov at this link:

https://sam.gov/opp/b88f9fa1da2c4308a09104365d540e6c/view https://www.acquisition.gov/far/part-5#FAR_Subpart_5_2 https://www.acquisition.gov/far/part-5#FAR_5_202 https://sam.gov/opp/b88f9fa1da2c4308a09104365d540e6c/view

Strategic Acquisition Center (SAC) 5202 Presidents Ct, Suite 103

(7) The anticipated dollar value of the proposed acquisition, including options if applicable, and a determination by the contracting officer that the anticipated cost to the government will be fair and reasonable.

No award shall be made until the Contracting Officer determines the cost to the Government to be fair and reasonable. This determination will be based on a comparison of current contract pricing, an Independent Government Cost Estimate, past proposal submissions (if available), and other information as made available.

Anticipated dollar amount value of the proposed acquisition, including all options is $5,023,851.65.

(8) A description of the market research conducted and the results or the reason market research was not conducted.

Based on information obtained from a search conducted on Federal Procurement Data System (FPDS), utilizing NAICS 513210 - Software Publishing on March 31, 2025, yielded 12,209 results. These results were narrowed down further using Product Service Code (PSC) DA01 categorized as Business Application/Application Development Support Services, yielded 0 results.

A search of SAM conducted on March 31, 2025, using keyword “Digital Mental Health” and Federal Organization 3600-Department of Veteran Affairs yielded no results.

A Dynamic Small Business Search (DSBS) was conducted on March 31, 2025, using key word “Digital Mental Health” and NAICS 513210 yielded one result. This result is the proposed sole source provider, Cabana.

A search of GSA e-library conducted on February 13, 2025, using NAICS 513210 yielded 60 contractors. One of which is the proposed sole source provider, Cabana.

A search of the Small Business Administration (SBA) VetCert website on February 13, 2025, using NAICS 513210 yielded 285 potential SDVOSBs.

The BAA was released on July 15, 2024, and remains open until August 15, 2025.

Over 140 submissions were received as of March 31, 2025. The proposal submission process of the BAA was conducted in two stages, with the multidisciplinary review team evaluating at each stage and including Subject Matter Expert review as relevant to the proposal. Government-selected topics for consideration were included in the public-facing BAA solicitation, and the Review Team considered each submission in accordance with the criteria described in the public facing BAA solicitation.

Strategic Acquisition Center (SAC) 5202 Presidents Ct, Suite 103

Based on the review criteria as evaluated by the review team and subject matter experts, and in concurrence with the Office of Suicide Prevention, Office of Mental Health and the Office of Healthcare Innovation and Learning, Cabana/Even Health was selected as a Small Business meeting the requirements of the VA to advance suicide prevention innovation.

(9) Any other facts supporting the use of sole source.

None.

(10) A listing of the sources, if any, that expressed, in writing, an interest in the acquisition.

BAA concept paper submission is open to all. To date, over 140 concept papers have been submitted to the agency in response to the BAA. All have been reviewed, or are in process of being reviewed, on a rolling, monthly basis. All submissions are given equal, due consideration.

The Government will continue to perform market research, including attending trade shows and conferences, reaching out to known manufacturers in the field, and continue searching for patents and press releases to ensure that if other materials come to market meeting OHIL needs, future contacts will be open to competition.

(11) A statement of the actions, if any, the agency may take to remove or overcome any barriers to competition before any subsequent acquisition for the supplies or services required.

For any subsequent acquisition, the VA will conduct market research and provide due consideration to any other solutions that additionally and sufficiently meet the need addressed by Cabana as described in this sole source justification.

Strategic Acquisition Center (SAC) 5202 Presidents Ct, Suite 103

Digitally signed by AMANDA

LIENAU

-04'00'

MICHAEL

STEVENS

Digitally signed by MICHAEL

STEVENS

-04'00'

(12) Evidence that any supporting data that is the responsibility of technical or requirements personnel (e.g., verifying the Government’s minimum needs or requirements or other rationale for an exception to fair opportunity) and which form a basis for the justification have been certified as complete and accurate by the technical or requirements personnel.

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.

Signature: Date:

Amanda Lienau Director, Open Innovation Office of Healthcare Innovation and Learning

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.

Signature: Date:

Michael Stevens Contracting Officer Strategic Acquisition Center

Approval

In my role as Contracting Activity Competition Advocate, based on the foregoing justification, I hereby approve this acquisition on an “other than full and open competition” basis pursuant to the statutory authority cited in paragraph four above, subject to availability of funds, and provided that the property and services herein described have otherwise been authorized for acquisition. As this action does not exceed $15M, the certification below required by FAR 13.501(a)(2)(ii) serves as approval.

Digitally signed by EFRAIN FERNANDEZ Date: 2025.04.24 10:39:35 -04'00'

Signature: Date:

Efrain J. Fernandez Director of Contracts, Acquisition Services 1-3 Procuring Activity Advocate for Competition (SAC-Frederick) Strategic Acquisition Center

EFRAIN FERNANDEZ