EP 500-1-7

5 DEC 94

US Army Corps

of Engineers ®

Logistics Civil Augmentation Program

A USACE GUIDE FOR COMMANDERS
Table of Contents

Introduction

Program Background

Program Concepts

Authority

Program Management & Execution

The LOGCAP Contract

Capabilities

MACOM Responsibilities

Operational Strengths

Closing

Appendices

 Page 1

 Page 2

 Page 3

 Page 3

 Page 4

 Page 5

 Page 6

 Page 7

 Page 8

 Page 9

A .

B .

c.

LOGCAP Points of Contact Page A-l

Acronyms/Terms & Definitions Page B-1

SOW Information Page C-1

i
Introduction

LOGCAP: A force multiplier for contingency deployments.

The U.S. military has traditionally employed civilian contractors in noncombatant roles to augment military resources. The Logistics Civil Augmentation

Program (LOGCAP) leverages civilian corporate resources as facility and logistics

services support multipliers in support of U.S. forces. LOGCAP provides a rapid and

responsive contract capability which augments U.S. forces by meeting combat support

and combat service support (CS/CSS) requirements.

The U.S. Army Corps of Engineers (USACE) has developed and awarded a

LOGCAP contract which is designed to support U.S. Army forces in contingency

operations worldwide. It provides for augmentation to CS/CSS troop units in war and in

operations other than war (OOTW). This Engineer Pamphlet describes the USACE

LOGCAP contract and provides basic information on acquiring LOGCAP planning and

execution support.

1
Program Background

Contracting by the U.S. military for supplies and services during conflict has a long

history which dates back to the American Revolutionary War. The military’s use of

civilian contractors in theaters of war has steadily expanded during all subsequent U.S.

conflicts. During the Vietnam War, civilian contractors played a major role in providing

facilities and logistics services support which highlighted their significant capabilities to

augment combat support (CS) and combat service support (CSS) forces.

The concept of preplanning for civilian contractor support in a wartime theater began

to take shape in the decade after Vietnam. In 1985, the Logistics Civil Augmentation

Program (LOGCAP) was formalized by the Army with an initial concept of each Army

component of regional unified commands individually identifying and contracting for

their supply and service requirements.

In 1988, the Third U.S. Army (TUSA) requested the U.S. Army Corps of Engineers

(USACE), Middle East/Africa Projects Office (now Transatlantic Division) to contract

with a civilian contractor to prepare an initial LOGCAP management plan to construct

and maintain two petroleum pipelines (Inland Petroleum Distribution System - IPDS) in

support of contingency operations. The plan was completed in 1989, and although not

specifically implemented during Operation DESERT SHIELD/STORM, did provide

meaningful data for military planners in evaluating civilian support capabilities.

In 1992, USACE developed a LOGCAP initiative for a single, worldwide, services

contract to preplan for theater facilities and logistics support services in time of war or

crisis.

LOGCAP links supported commands to worldwide, industrial resources, thereby

augmenting U.S. forces with a flexible, commercial capability to support operations.

While primarily focused on services support to U.S. Army forces, LOGCAP maybe

able to provide support to other U.S. military services.

2
Program Concepts The LOGCAP concept is to pre-plan for the use of

global corporate resources to support contingency

operations and to augment CS/CSS force structure

when there are shortfalls.

Fundamental concepts guiding the development

and maturation of the LOGCAP program are:

■ Plan during peacetime for the effective use of

contractor support in contingency or crisis.

■ Leverage existing, global/regional corporate

resources as facility and logistics services support

multipliers.

■ Provide an alternative capability to meet facility

and logistic services shortfalls.

■ Provide quick reaction to contingency or crisis

requirements.

Authority The Logistics Civil Augmentation Program (LOGCAP)

is promulgated by Army Regulation 700-137. The

Department of the Army, Deputy Chief of Staff for

Logistics (DA DCSLOG) is the proponent for the

regulation.

The U.S. Army Corps of Engineers (USACE) is the

contracting activity and program manager for

LOGCAP planning and execution.

3
Program Management & Execution

■ The U.S. Army Corps of Engineers (USACE) is responsible for program

management, coordination of major Army command (MACOM) requirements, and

execution of the LOGCAP contract.

■ HQ, USACE provides overall program management and develops the policies

and procedures to guide the execution of LOGCAP contract activities.

■ Transatlantic Division (CETAD) is the USACE major subordinate command

(MSC) assigned as the lead agent responsible for development and execution of

contracts required under LOGCAP. The Contracting Officer (KO) for the LOGCAP

contract is located at CETAD in Winchester, VA. In carrying out its lead role in contract

development and execution, CETAD closely coordinates with the other two USACE

MSCs supporting MACOMs outside the continental United States (OCONUS). These

other USACE MSCs are the South Atlantic Division (CESAD) in Atlanta, GA and the

Pacific Ocean Division (CEPOD) in Honolulu, Hl.

■ Working primarily through the war/contingency planners of Army component

commands, these three USACE MSCs (CETAD, CESAD, CEPOD) and their

subordinate district commands assist in the coordination and development of LOGCAP

plans in support of the following OCONUS MACOMS:

Transatlantic Division (CETAD). . . .CENTCOM (ARCENT)

Europe District............ .EUCOM (USAREUR)

South Atlantic Division (CESAD)

Mobile District. . . . . . . . . . . . .SOUTHCOM (USARSO)

Pacific Ocean Division (CEPOD) . . .PACOM (USARPAC)

Far East District. . . . . . . . . . . . . USFK/EUSA

LOGCAP support to other CINCs (such as USACOM) and to other MACOMs (such as

FORSCOM) is coordinated through Headquarters, USACE.

During an actual wartime or contingency operation (a LOGCAP “EVENT”), these

USACE MSCs help their respective supported MACOMs inordinate the execution of

LOGCAP plans. On-site, LOGCAP project management (under a USACE forward

commander) and contract administration are provided by representatives from USACE.

Representatives from the Defense Contract Management Command, International

(DCMC-1) maybe assigned ACO responsibilities.

■ The LOGCAP contractor develops support plans for worldwide and regional

scenarios and implements the plans when an EVENT requires the mobilization of

forces. LOGCAP plans are easily adapted to meet actual contingency requirements.

4
The LOGCAP Contract

■ The cost-reimbursement pricing structure of the LOGCAP contract is

necessary to provide the flexibility and responsiveness required to support military

contingency operations. Under a cost-reimbursement type contract, there are no preestablished prices and services. Instead, there are “estimated” and “target” costs, but

the Government is obligated to pay the contractor for all incurred costs which are

reasonable, allowable, and allocable to the contract. Under all cost-reimbursement

type contracts, including the LOGCAP contract, the Government assumes the majority

of the risk related to the cost of performance. Because of this, intensive monitoring and

oversight of the contractor’s costs are required when a cost-reimbursement type

contract is used.

■ For LOGCAP services during an EVENT, the Government (i.e., appropriate

military commander or MACOM) identifies its requirements and submits them to the

contractor through the Government contracting officer. The contractor then quickly

develops a rough order of magnitude (ROM) estimate of the costs and provides this

cost estimate, along with an estimated performance time schedule, back to the

Government. After the rough estimates of costs and performance times are reviewed,

adjusted if necessary, and accepted, the necessary funding must be provided by the

organization requiring the support.

■ These funds, along with the statement of requirements, are provided to the

Government contracting officer who then reviews the funds and services to ensure that

they conform to contracting and financial policies. After this check is completed, the

Government contracting officer may issue an order to the contractor to perform the

work. The prices for the services are still not firm, since the contractor remains entitled

to reimbursement of his incurred costs. A partnership among the contracting officer,

the contractor, and the organization receiving the support is formed to constantly

monitor and control costs while ensuring responsive, effective services.

■ Contractor profit is expressed in terms of a base fee and an award fee which

is payable for performance. An award fee pool is available to the contractor for above

average performance under the LOGCAP contract. An award fee plan has been

developed to focus contractor effort towards the areas of performance, coordination,

flexibility, responsiveness, and cost control. The contractors performance is monitored

by an appointed LOGCAP Award Fee Board. The Fee Determining Official (FDO) is

the Commander, CETAD. The Award fee Board meets on a periodic basis to evaluate

the contractors performance and recommends an award fee to the FDO. MACOM

personnel may input to the Board during both planning and contingency execution

phases. Input on contractor performance is encouraged from supported commanders

and from the Government contracting officer staff in the area of operations.

5
Capabilities

LOGCAP provides a generic capabilities plan for receiving, housing and

sustaining 20,000 troops in five base camps for 180 days. Fifteen days after

notification, the contractor is required to receive and to support 1,300 troops per day.

Thirty days after notification, the contractor is required to support 20,000 troops in one

rear and four forward base camps for up to 180 days with options to increase the size

of the supported force to 50,000 troops and to extend support to 360 days. Each base

camp provides billeting, mess halls, food preparation, potable water, sanitation,

showers, laundry, transportation, utilities and other logistical support.

In addition to facilities services and logistics support services, the generic

management plan also provides contingency equipment and labor pools to perform

labor intensive, non-combat missions for the commander such as:

■

■

■

■

■

■

■

Support to arriving forces at aerial ports of debarkation

(APODs) and sea ports of debarkation (SPODs).

Force sustainment.

Retrograding equipment and supplies.

Construction support.

General logistics services.

Augmentation to engineer units.

Facility engineer support.

The aforementioned scenario is generic. The supported MACOM commander

must provide a concept of operations and a scope of work to enable the LOGCAP

contractor to tailor capabilties to meet the commander's requirements.

6
MACOM Responsibilities

Supported MACOMs must execute the following responsibilities to maximize

LOGCAP’s potential as a facilities and logistics multiplier (USACE MSCs will assist as

requested by the MACOM):

■ Develop and provide a detailed statement of work (SOW). The SOW is used

to define requirements to the LOGCAP contractor. It should contain as much

information about the requirements (including any constraints) that are known at the

time. MACOMs should define what they want done, establish performance periods,

quantify the requirement, and furnish any special considerations.

■ Include LOGCAP early in the MACOM’s planning process and participate in

the LOGCAP plan development. The advantages of developing a comprehensive

LOGCAP suppport plan in the early stages of contingency planning are numerous. It

provides accurate cost estimates, avoids costs associated with contractor mobilization

for unnecessary work and allows the contractor more time to bring reliable

subcontractors onboard. Most importantly, it develops a working relationship and trust

between the participants.

■ Include LOGCAP participation in Command Post Exercises (CPXs). This is

important in that the contractor's support and performance improves with participation

in exercises. Skills and knowledge are exchanged.

■ Participate in the LOGCAP award fee review board process. The LOGCAP

contractor’s performance and progress are monitored by members of the Award Fee

Board on a periodic basis. MACOM participation in the process and assessment of

contractor performance is key in determining an award fee recommendation.

■ Fund LOGCAP execution during actual contingency. The supported MACOM

funds LOGCAP execution during an actual contingency. Funds must be furnished “up

front” prior to mobilizing the contractor. It is highly recommended that MACOMs

include their comptroller in the planning cycle when considering the use of LOGCAP

support. Funds used to finance work ordered and accomplished under the LOGCAP

contract must comply with all normal fiscal rules and restrictions associated with the

appropriation(s). There are no special fiscal rules when using LOGCAP. It is important

that the correct “color” of money be provided to finance work.

■ Provide security for LOGCAP contractor personnel during actual

contingency. The LOGCAP contract requires that US forces provide for contractor

theater security throughout the contingency operation. Consequently, the operational

commander must plan for the contractor’s security throughout a contingency.

7
Operational Strengths

■ Quick and responsive support. Nominally,

within 15 days after notification, the LOGCAP

contractor can start to provide specified support to

troops arriving in the theater of operations through air

and sea ports of debarkation.

■ Support is flexible and easily tailored. The

LOGCAP contract can provide a full range of combat

support and combat service support functions.

■ Well suited for early entry, sustainment, and

redeployment requirements. LOGCAP capitalizes

on the use of local, commercial/industrial assets.

■ Does not have to compete for strategic lift.

Once activated, the contractor can provide for his

own inter-theater lift, often through foreign flag

carriers. This lift is costed in the ROM and is

financed by the requesting MACOM.

■ Provides rapid response capability. The

contract is in-place, and preparatory planning can

be underway prior to the actual initiation of

operations.

■ Capitalizes on existing global/regional

corporate resources. The contractor can use his

own managerial assets and can rapidly subcontract

with local and regional contractors.

8
Closing

■ Although LOGCAP is capable, it may not be the right

“tool” for every contingency. The necessity for up front

funding and contract constraints on the scope of work may

limit LOGCAP’s ability to support every type of contingency

or every type of contingency generated requirement.

Commander’s should consider all options including troop

capabilities, host nation support, and other contracting

instruments and select the most cost effective tool to meet

requirements within the given time constraints.

■ When used in contingencies, LOGCAP has

demonstrated a capability for expedient, flexible, and

reliable support. LOGCAP has supported the following:

RESTORE HOPE & CONTINUE HOPE (Somalia)

SUPPORT HOPE (Rwanda)

VIGILANT WARRIOR (Saudi Arabia/Kuwait)

UPHOLD/MAINTAIN DEMOCRACY (Haiti)

■ LOGCAP provides the military with a unique contract

capability for on-call, facility and logistics support services.

LOGCAP: A force multiplier for contingency deployment.

9
APPENDIX A:

LOGCAP Points of Contact

HQDA DCSLOG

DALO-PLO

(703) 695-5987; Fax (703) 693-7069

DSN: 225-5987

HQ, US Army Corps of Engineers

Readiness Branch (CECW-OE-P)

(202) 272-0453; Fax (202) 504-4405

DSN: 285-0453

Transatlantic Division (CETAD)

Project Manger, LOGCAP

(703) 665-4012; Fax: (703) 665-4053

DSN: 265-4012/4018

Transatlantic Division

Contracting Officer, (CETAD-CT-S)

(703) 665-3672; Fax: (703) 665-4053

DSN: 265-3672; STU Ill: (703) 6654075

Europe District (CETAE)

Readiness and Operations Branch

DSN-E 320-6529

Pacific Ocean Division (CEPOH-EM)

Emergency Management

(808) 438-1673; Fax (808) 845-8575

Far East District (CEPOF-EM)

Emergency Management

DSN 721-7469; COM 82-20-270-7469

Japan Engineer District (CEPOJ-EM)

Emergency Management

DSN 263-5044

South Atlantic Division (CESAD)

Emergency Operations Branch

(404) 331-5251; Fax: (404) 331-2814

DSN: 572-5251

Mobile District (CESAM)

Emergency Management

(205) 690-2495; Fax: (205) 690-2488

DSN: 547-2495

HQ, USARPAC

DCSLOG: (808) 438-9878

HQ, USAREUR

DCSENG: DSN (314) 370-8116/8011

DCSLOG: DSN (314) 370-7224

HQ, USARSO

DCSENG: 507-87-3813

HQ, Eighth US Army

J4: DSN(315) 723-4725/381 8/6272

ENG: DSN (315) 723-6385/4361

HQ, FORSCOM

Fax: (404) 669-5685

DCSENG: (404) 669-6233

DSN: 367-6716/367-6233

Third Army (TUSA)

G4: (404) 752-4919/2705

ENG: (404) 752-3493/4053

DSN: 572-4919/572-3493

LOGCAP SUPPORT OFFICES:

For USARPAC: Pacific Ocean Division

(CEPOD) at Fort Shafter, Hl.

For USARJ: Japan Engineer District (CEPOJ),

at Camp Zama, Japan.

For Eighth US Army: Far East District

(CEPOF) at Seoul Korea.

For USARSO: Mobile District (CESAM) at

Mobile, AL.

For Third US Army Transatlantic Division

(CETAD) at Winchester, VA.

For USAREUR: Europe District (CETAE) at

Frankfurt, Germany.

For FORSCOM: HQ USACE, at Washington,

DC.

A-1
APPENDIX B

ACRONYMS/TERMS & DEFINITIONS

Acronym/Term

ACO

APOD

ARCENT

CENTCOM

CINC

COR

CPX

CS/CSS

DCMC-I

DCSENG

DCSLOG

EP

EUCOM

EUSA

EVENT

FAR

FDO

FORSCOM

HNS

KO

LOGCAP

MACOM

MSC

OCONUS

OOTW

PACOM

ROM

SOW

SOUTHCOM

SPOD

TUSA

USACE

USACOM

USAREUR

USARPAC

USARSO

USFK

Definition

Administrative Contracting Officer

Aerial Port of Debarkation

Army, Central Command

Central Command

Commander-in-Chief

Contracting Officer’s Representative

Command Post Exercise

Combat Support/Combat Service Support

Defense Contract Management Command, International

Deputy Chief of Staff, Engineer

Deputy Chief of Staff, Logistics

Engineer Pamphlet

European Command

Eighth U.S. Army

A contingency resulting in the deployment of US forces

Federal Acquisition Regulation

Fee Determining Official

Forces Command

Host Nation Support

Contracting Officer

Logistics Civil Augmentation Program

Major Army Command

Major Subordinate Command

Outside the Continental United States

Operations Other Than War

Pacific Command

Rough Order of Magnitude

Statement of Work

Southern Command

Sea Port of Debarkation

Third U.S. Army

U.S. Army Corps of Engineers

U.S. Atlantic Command

U.S. Army, Europe

U.S. Army, Pacific

U.S. Army, South

U.S. Forces, Korea

B-1
APPENDIX C

SOW INFORMATION

Statement of Work (SOW)

A “Statement of Work” is necessary to define requirements to the contractor (contractors do not

develop requirements). LOGCAP is designed to accomplish mission-type requirements, not

individual task orders. SOWs should reflect the mission focus of LOGCAP. SOWs enable the

contractor to develop a cost estimate for approval and to plan and accomplish work in the most

economical and efficient manner. A general requirement is that the contractor meet Army theater

of operations standards for all services and support. SOWs are normally prepared by either the

supported MACOM’s engineer or logistics staffs and should contain as much information about the

requirement (including any constraints) as is known at the time. SOWs should not be so detailed

that they take on the form of a contract specification. The scope of work should be concise and

should include a duration of performance, quantification of the requirement, and identification of

any special considerations. For example, to have LOGCAP provide and operate showers in a

field location during an exercise, the statement of work might read as follows:

GENERAL. Request the LOGCAP contractor provide and operate lighted and

screened temporary showers/shaving facilities in support of a 500 man battalion

task force at Camp Shelby for Field Training Exercise Night Raider to be

conducted over a three month period beginning 14 January 1994. Showers

should be capable of being moved by the contractor and set up at two different

sites during the exercise. Exact locations can be provided by CPT Vem Smith at

555-1234. Contractor is to provide water storage and a pressurized system to the

showers and shaving facilities. Showers and basins at 10 soldiers per shower

head and basin. Coordinate placement with CW3 Bill Sullivan, PMO for site

selection.

The advantages of developing a comprehensive statement of work in the earty stages of

contingency planning are numerous. Early involvement by the LOGCAP contractor in the

planning process is recommended. Early involvement allows the contractor to develop more

accurate cost estimates, avoids costs associated with contractor mobilization for unnecessary

work and gives the contractor more time to bring only the most reliable subcontractors onboard.

Without a comprehensive, up-front statement of work, additional costs are likely to be incurred

because of the unknowns involved. Better, more proactive planning and performance will be

realized with a good initial statement of work.

C-1