P03 VR for SP Training_JA FAR Part 13_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

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), Office of Suicide Prevention (OSP), Veterans Health

(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 negotiating a non-competitive, sole source, firm-fixed price contract with Customer Value Partners, LLC., hereby referred to as CVP.

The proposed sole source purchase from proposed contractor CVP of their product and services.

(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.

CVP shall design, develop, test, and validate a virtual, immersive environment that enables training related to suicide prevention for VA employees. Work will include the development of a working prototype including functionality across multiple head-mounted displays to validate virtual and immersive experience. This will be completed in collaboration with VA clinical experts who will determine utility and feasibility of this solution.

The solution focuses on two phases:

Phase 1 shall include extensive user testing to gather feedback and iteratively refine the solution. The contractor shall work with a VA Program Manager (PM) and other VA Subject Matter Experts (SMEs) to determine which pre-existing curriculum(s) shall be used to develop the solution as well as primary training focus of the prototype solution.

During this phase, the contractor shall work with VA experts to:

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1. Identify key learning objectives and essential skills to be translated into the

Virtual Reality (VR) format

2. Develop realistic scenarios that align with these objectives

3. Structure the curriculum to best support the desired learning outcomes

4. Design interactive exercises that reinforce critical information and skills

Phase 1 shall further include the development of an Artificial Intelligence (AI) grading system to grade end users in real time and provide constructive feedback on:

Active listening skills Empathetic validation of concerns Use of supportive statements Ability to restate and rephrase Provision of warm referrals Identification of need for further assistance (i.e., same-day mental health appointments, in-depth assessment, or additional screening).

Phase 2 shall include contractor travel to select VA sites to complete field testing and feedback capturing in-person. Field testing will also lead to iterative refinement of the solution after feedback received from each participating site. Phase 2 shall culminate in a product ready for operational capability within the VA and contractor shall transfer all necessary files and resources to allow VA to take ownership of the product for iterative development post-contract.

The solutions intended will be:

Customizable experiences are considerate of factors related to social determinants of health, geographic region, and appropriate suicide prevention-related considerations

Hardware and software compatibility capable of screen-casting, both eye-gaze and hand controller manipulation, embedded data collection (such as, but not limited to, perceptions of immersive experience, pre- and post- assessments, etc.)

Functionality for individual and/or group education and training sessions Leverage Immersive Technology to advance the utilization of augmented, mixed, or VR as a tool for VA employee training related to prevention of suicide.

Provide a more distributive and virtual experience, by which a VA employee and/or patient, in concert with clinical staff as appropriate, may utilize the technology, without having to be physically present at a VA facility.

Solutions shall combine VR with live, one-on-one coaching with AI.

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The solution will provide this hands-on practice in speaking with and identifying suicide risk in a safe, realistic environment.

The Project will use a human-centered design approach, including iterative processes, beginning with extensive user research, rapid prototyping, and then rigorous user testing. This cycle of prototyping, testing, and refining is repeated, incorporating immersive artwork to enhance authenticity and achieve maximum immersion.

For this suicide prevention training program, CVP will develop the front-end using the Unity Integrated Development Environment (IDE), a platform they have successfully utilized in creating other immersive applications for the VA. CVP shall also develop an alternative version ("build") of the software that will run on a computer. While the computer-based version would provide a two-dimensional (2D) experience rather than the immersive three-dimensional (3D) environment of VR, it would still deliver the core training content and interactive elements. CVP shall deploy the app on Meta Quest headsets, or a similar product approved by VA.

CVP shall use a development process that integrates agile methodologies with Human Centered Design (HCD) principles. CVP shall conduct informational interviews with VA SMEs, collaborate closely with stakeholders, and involve the PM and associated project team in frequent reviews. This approach ensures that the solution remains focused on end-user needs and aligns with VA objectives. CVP shall back end in a secure Amazon Web Services (AWS) cloud environment, leveraging AI to assess learner progress in real-time. By using a Large Language Model (LLM) for real-time evaluation against an expert-designed rubric, the solution will provide personalized feedback based on VA-recommended practices. The CVP team shall adhere to secure coding practices throughout the development lifecycle, storing code in GitHub and other assets in a dedicated AWS account. Solution will utilize an auto-update capability to ensure ease of pushing new content or iterations to devices.

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 (initial 12 months) CVP shall focus on initial prototype development, including conducting informational interviews with VA SMEs, collaborating closely with stakeholders, and involving the PM and associated project team in frequent reviews as prototype development progresses following an agile development process. Phase 2, additional 12-months, Contractor shall focus on field testing of updated solution based on Phase 1 product iteration following user testing and feedback. Initiation of Phase 2 is dependent on satisfactory performance in Phase 1. Total estimated dollar value, including options, is

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(4) The statutory authority permitting sole source.

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

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. 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, CVP, submitted a proposal to Agency Announcement (BAA). This BAA for Suicide Prevention is structured to allow for a competition cycle, which consists of submission of 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 the 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 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.

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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 the 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 IT services, regardless of dollar value, are subject to the Clinger-Cohen Act.

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This proposed Contractor, CVP, and their proposal for providing a solution to aid 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

Furthermore, CVP is uniquely qualified based on the following:

a. CVP has already developed VR-based training content for the VA for a different project and shall be using the base virtual environment and functionalities, already built to VA requirements and that the VA has already paid for to help decrease the cost and time needed for developing this additional suicide prevention-focused training.

b. CVP already has experience working with VA employees to design and test VR-based solutions, including contacts at VA medical centers to aid in site recruitment for participation.

(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, Veteran-Owned Small Businesses, Service-Disabled Veteran-Owned Small Businesses, Historically Underutilized Business Zone small businesses, small, disadvantaged businesses, women-owned small businesses, and educational institutions (to include historically black colleges or universities, and minority institutions) are eligible to submit concept papers and proposals. If an Offeror is a large business, the value of its proposal exceeds $650,000 and subcontracting opportunities exist, a subcontracting plan shall be required in accordance with FAR subpart 19.7. The subcontracting plan shall be evaluated to ensure 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.

Strategic Acquisition Center (SAC)

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

(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.

The anticipated dollar amount value of the proposed acquisition, including option period, is

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

A search on SAM search was conducted on July 31, 2025. SAM search for keywords, , and NAICS code 541511 yielded 78 results. One of which is the proposed sole source provider, CVP.

A Dynamic Small Business Search (DSBS) was conducted on July 31, 2025. The contractors. One of which is the proposed sole source provider, CVP.

A GSA e-library conducted on search was conducted on January 10, 2025. GSA e-library search of 8(a) Stars III identified 612 potential Service-Disabled Veteran Owned Small-Business contractors. The list was further narrowed down to 25 contractors located up to 51 miles from VA Central Office (810 Vermont Ave., NW, Washington, DC.) by using MapQuest. The Government reviewed capabilities

A search of the Small Business Administration (SBA) VetCert website on January 10, 2025, using NAICS 541511 yielded 4,143 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

Strategic Acquisition Center (SAC) multidisciplinary review team evaluating at each stage and including Subject Matter Expert review as relevant to the proposal. Government-selected topics for consideration was included in the public-facing BAA solicitation, and the review ream considered each submission in accordance with the criteria described in the public facing BAA solicitation.

Based on the review criteria as evaluated by the review team and SMEs, and in concurrence with the OSP, and VHAIE, CVP 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 the process of being reviewed, on a rolling, monthly basis. All submissions are given equal, due consideration.

The Government will continue to conduct 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 VHAIE 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 CVP as described in this sole source justification.

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(12) Evidence that any supporting data that is the responsibility of technical or requirements personnel (e.g.

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:

(13) Contracting officer certification that the justification is accurate and complete to the best of the contracting officer

I certify that this justification is accurate and complete to the best of my knowledge and belief. As this action does not exceed $750,000, the certification below required by FAR 13.501(a)(2)(i) serves as approval.

Signature: