Commander's Guide to Money as a Weapons System Handbook
Logistics Civil Augmentation Program
Logistics Civil Augmentation Program (LOGCAP) funding provides life support services and other combat logistics support to Soldiers, Sailors, Airmen, Marines, civilians, and contractors in Operation Enduring Freedom and Operation Iraqi Freedom.
Rules and Guidance
The LOGCAP assists the Army with logistics, engineering, and construction projects during contingency operations. To increase efficiency and the combat to support force ratio, U.S. forces shifted from completely organic combat support and combat service support to a logistics plan predicated upon contracted, civilian support for life support services.
The LOGCAP contract is the largest Army contract. The contract provides basic services to bases in an area of operations. The level of services depends on the number of personnel assigned to a location. Since the number of assigned personnel varies by base, not all LOGCAP contracted services are available at every base/location.
Typical services provided by the contractor include:
- Dining facilities
- Family and Morale, Welfare and Recreation (FMWR) operations
- Water works
- Fire fighting
- Class III (fuel), retail and bulk
- Shuttle bus service
- Base camp operations and maintenance
- Vector control
- Repair services
- Direct support equipment maintenance
- Corps logistics services support
- Hazardous waste management
- Power generation/distribution
- Electrical inspection and repair
Locations with 1,800 or more personnel may receive the following LOGCAP services:
- Dining facility (4 meals per day)
- FMWR services such as a gym and Internet café
- Billeting and on-site laundry
- Major work orders and repairs
- Water works
- Latrine/Ablution units and waste management
- Vector control
- Power generation/distribution
Locations that have less than 1,800 personnel may receive the following LOGCAP services:
- Mermite/Mobile kitchen trailer
- FMWR kits containing items such as sports equipment and games
- Satellite/Direct contract laundry
- Chemical toilets
- Potable water delivered to site
- Tents/Pre-existing hard facilities
Locations with 150 or less personnel do not receive LOGCAP services. Exceptions are made on a case-by-case basis.
Operations and Maintenance, Army (OMA) predominantly funds the LOGCAP contract, but it may receive other funds as necessary. OMA funds the LOGCAP contract incrementally; therefore, funding LOGCAP requirements are always subject to availability and appropriate color of money issues.
Although the LOGCAP is a service contract that uses OMA funds, the LOGCAP contractor may purchase certain equipment and perform minor construction when the total cost falls beneath expense and investment thresholds. However, equipment acquisition or construction that exceeds these thresholds will be funded by the appropriate authority and funding source.
While the LOGCAP is an ideal funding source and can accomplish many tasks to a high standard, it is not the best choice for every requirement. Units must know when to use the LOGCAP and when to use direct contracting to satisfy a requirement. The supporting resource manager can make this determination.
Prior to starting work, the command validates the proposed LOGCAP contract as legitimate and requests funding. Because of funding constraints, not all validated needs are funded. It is the supporting resource manager's responsibility to ensure there is a process to fund the most important validated requirements first.
The LOGCAP contract is a services-only contract. Under this contract, the contractor cannot provide materials to a unit or be used to circumvent the Army supply system. The contractor can provide vehicle maintenance services but may not provide repair parts to an Army unit. However, while providing the vehicle maintenance services, the contractor can order repair parts that support these services.
The contractor furnishes supplies, services, or performs work at a certain price or rate based on the terms of the contract. In a military operation, a contractor may provide life support, construction and engineering support; weapon systems support; and other technical services.
When considered from a customer perspective, the type and quality of contractor-provided support is similar to that provided by a military support unit. However, there are some fundamental differences between contractors and military personnel:
- Contractors can only perform the tasks specified in the contract. "Other duties as assigned" does not apply in a contract environment.
- The Geneva Conventions and other international agreements clearly define contractors as civilians accompanying the force in a combat environment. Contractors accompany an armed force and are responsible for the welfare of the armed force. The ways in which they provide contracted support must not jeopardize this status in any way. For this reason, the U.S. government has an obligation to provide contractors with force protection:
- Contractors are at risk of injury or death incidental to enemy attacks on military objectives.
- Depending on their duties, contractors may be the object of intentional attack.
- If captured, contractors are entitled to prisoner-of-war status.
- The LOGCAP contractor may not provide ongoing support to a location that has exclusively foreign national soldiers.
- Contractor employees are subject to military law under the Uniform Code of Military Justice when accompanying U.S. forces or federal law under the Military Extraterritorial Jurisdiction Act.
- In some cases, the LOGCAP contractor may perform low-dollar, temporary construction. The LOGCAP contractor may not perform large-scale construction projects.
- The LOGCAP contractor can only perform tasks specifically described in the contract or statement of work, or as directed by the administrative contracting officer (ACO).
- The LOGCAP contractor may provide emergency assistance to almost anyone or any organization in situations where life or serious bodily injury is at risk.
Major subordinate command responsibilities
The major subordinate command (MSC) manages the local LOGCAP. MSCs manage provided funding targets subject to validation thresholds. Funding targets represent funds necessary to operate LOGCAP-supported bases supported by projected requirements and historical costs. Units route all new requests through their respective MSCs for the determination and establishment of funding priorities. The Multi-National Corps-Iraq (MNC-I) resource manager (C8) will provide monthly execution data to MSCs to review and assess execution rates.
LOGCAP funding is finite. Each approved administrative change letter represents new work not part of the original contract. In order to fund new work and remain within funding levels, units should reduce current costs.
Frequently asked LOGCAP questions and answers
Q: Who pays for the equipment and material the contractor purchases to perform the service?
A: The contractor purchases the material and equipment needed to provide the service, and the government reimburses the contractor. The cost for the equipment and material is included in the contractor's cost estimate. The unit requesting the service pays; it is included in the overall cost.
Q: If the unit/government provides services, transportation, or goods to the LOGCAP contractor, may the contractor "double bill?" In other words, will the LOGCAP contractor charge the government for government-furnished equipment (GFE)?
A: No. The LOGCAP contract is cost plus. If the unit/government directly provides the LOGCAP contractor with goods or services, the unit/government is actually saving money since it does not have to pay overhead and direct costs. The value of the GFE is not included when determining the contractor's profit or award fee.
Q: What happens to the material and equipment the contractor bought with government funds?
A: That property becomes GFE for the life of the contract or until the contractor declares the GFE as excess. If the service continues, then the contractor retains the GFE and continues to use it. Additionally, the contractor must cross-level or transfer unused and/or excess material and GFE for use on another work order to reduce costs.
Q: Can the unit/government retain the equipment and material?
A: Not unless the contractor has declared the GFE as excess, and the property administrator has determined it is no longer required for use in theater operations.
Q: Who gives the contractor instructions or tasks to accomplish?
A: The task order performance work statement (PWS) tells the contractor what is required; the contractor knows how to provide the service. Internal management supervises and directs contractor employees. Military personnel cannot supervise or direct contractor employees, with one exception: by law, only the ACO has the authority to direct the contractor. The combatant commander has limited authority for security/safety issues in a hostile environment.
Q: Can the LOGCAP provide support to a foreign military?
A: Generally, no; however, within the Iraqi theater, the LOGCAP may support the coalition as long as there is a U.S. presence on the site. The LOGCAP may support Iraqi security forces, if the Joint Forces Acquisition Review Board approves and if reimbursement is from the proper funding source. The LOGCAP contract is a U.S. Army contract, and the LOGCAP contractor may not provide recurring services specifically for foreign military personnel.
For new work requirements, the only way the ACO can direct the LOGCAP contractor to provide support to foreign governments is after the foreign government has executed an Acquisition Cross Servicing Agreement or a North Atlantic Treaty Organization Standardization Agreement (STANAG) and submitted the STANAG through the multinational cell to the ACO via the LOGCAP budget officer. Most of the coalition has executed one of these agreements to use LOGCAP services.
Q: Can units use the LOGCAP to purchase anything needed to support the mission?
A: No, the contractor purchases what is required to provide the service. Units may not use the LOGCAP to subvert the Army supply system or regulations.
The PWS may have the contractor provide supply support services (laundry; food; Class III [fuel], retail and bulk; transportation; fire fighting; shuttle bus; base camp operations and maintenance; direct support equipment maintenance; corps logistics; and hazardous waste management). The contractor must provide these services in accordance with Army regulations.
See Appendix F, MNC-I CJ8, Money as a Weapons System Standing Operating Procedure.
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