17 October 2008

Operational Contract Support

Joint Publication 4-10
PREFACE 

i 

1. Scope 

This publication establishes doctrine for planning, conducting, and assessing 

operational contract support integration and contractor management functions in support 

of joint operations. It provides standardized guidance and information related to 

integrating operational contract support and contractor management, defines and 

describes these two different, but directly related functions, and provides a basic 

discussion on contracting command and control organizational options. This joint 

publication does not pertain to contracting support of routine, recurring (i.e., noncontingency) Department of Defense operations. It also does not provide a significant 

discussion of construction-related contracting since this topic is covered in depth by Joint 

Publication 3-34, Engineering Operations. 

2. Purpose 

This publication has been prepared under the direction of the Chairman of the Joint 

Chiefs of Staff (CJCS). It sets forth joint doctrine to govern the activities and 

performance of the Armed Forces of the United States in joint operations and provides 

the doctrinal basis for interagency coordination and for US military involvement in 

multinational operations. It provides military guidance for the exercise of authority by 

combatant commanders and other joint force commanders (JFCs) and prescribes joint 

doctrine for operations, education, and training. It provides military guidance for use by 

the Armed Forces in preparing their appropriate plans. It is not the intent of this 

publication to restrict the authority of the JFC from organizing the force and executing 

the mission in a manner the JFC deems most appropriate to ensure unity of effort in the 

accomplishment of the overall objectives. 

3. Application 

a. Joint doctrine established in this publication applies to the commanders of 

combatant commands, subunified commands, joint task forces, subordinate components 

of these commands, the Services, and defense agencies in support of joint operations. 

b. The guidance in this publication is authoritative; as such, this doctrine will be 

followed except when, in the judgment of the commander, exceptional circumstances 

dictate otherwise. If conflicts arise between the contents of this publication and the 

contents of Service publications, this publication will take precedence unless the CJCS, 
Preface 

ii JP 4-10 

normally in coordination with the other members of the Joint Chiefs of Staff, has 

provided more current and specific guidance. Commanders of forces operating as part of 

a multinational (alliance or coalition) military command should follow multinational 

doctrine and procedures ratified by the United States. For doctrine and procedures not 

ratified by the United States, commanders should evaluate and follow the multinational 

command’s doctrine and procedures, where applicable and consistent with US law, 

regulations, and doctrine. 

For the Chairman of the Joint Chiefs of Staff: 

STANLEY A. MCCHRYSTAL 

Lieutenant General, USA 

Director, Joint Staff 
TABLE OF CONTENTS

iii 

PAGE 

EXECUTIVE SUMMARY .................................................................................................v 

CHAPTER I 

INTRODUCTION 

• General..............................................................................................I-1 

• Key Terminology Discussion...................................................... .............I-1 

• Operational Contract Support Principles ....................................................................I-8 

CHAPTER II 

ROLES AND RESPONSIBILITIES 

• Introduction............................................................................................................... II-1

• Office of the Secretary of Defense............................................................................ II-1 

• Chairman of the Joint Chiefs of Staff ....................................................................... II-4 

• Military Departments................................................................................................ II-7 

• Combatant Commanders and Subordinate Joint Force Commanders ...................... II-8 

• Service Component Commands.............................................................................. II-10 

• Functional Component Commands......................................................................... II-11 

• Department of Defense Agencies ........................................................................... II-11 

CHAPTER III 

CONTRACT SUPPORT INTEGRATION 

• Overview.................................................................................................................. III-1

• Contracting Authority Versus Command Authority................................................ III-3 

• The Acquisition Process and Contracting Related Boards ...................................... III-5 

• Systems Support Contracting................................................................................... III-8 

• External Support Contracting .................................................................................. III-9 

• Theater Support Contracting.................................................................................. III-11 

• Contracting Support Organizational Options......................................................... III-12 

• Contract Support Integration Planning and Execution .......................................... III-16 

• Other Key Contracting Planning and Execution Considerations........................... III-21 

CHAPTER IV 

CONTRACTOR MANAGEMENT 

• Contractor Control and Management Challenges....................................................IV-1 

• Contractor Personnel Legal Status and Discipline...................................................IV-3 

• Deployment/Redeployment Planning and Preparation............................................IV-7 

• In-Theater Contractor Management.......................................................................IV-16 

• Force Protection and Security................................................................................IV-17 

• Government Provided Support ..............................................................................IV-20 

• Coordinating Non-Department of Defense Contract Support ...............................IV-24 
Table of Contents 

iv JP 4-10 

APPENDIX 

A Services’ Systems Support Contract Overview................................................. A-1 

B Services’ External Support Contract Overview .................................................B-1 

C Services’ Theater Support Contracting Organizations and Capabilities ............C-1 

D Defense Contract Management Agency Contingency Functions 

 and Capabilities ................................................................................................. D-1 

E Contract Support Integration Planning Considerations and Checklist...............E-1 

F Contractor Management Planning Considerations and Checklist......................F-1 

G Notional Lead Service and Joint Theater Support Contracting Command 

Organizations..................................................................................................... G-1 

H Requirements Development and Acquisition Review Processes ...................... H-1 

J References ...........................................................................................................J-1 

K Administrative Instructions ............................................................................... K-1 

GLOSSARY 

Part I Abbreviations and Acronyms ...............................................................GL-1 

Part II Terms and Definitions...........................................................................GL-5 

FIGURES 

III-1 Major Functions of Contracting Related Boards........................................ III-7 

III-2 External Support Contract Capabilities...................................................... III-9 

III-3 Contract Support Integration Plan............................................................ III-17 

III-4 Multinational Contracting Agreement Requirements .............................. III-23 

IV-1 Major Risk and Challenges Related to Contracted Support.......................IV-1 

IV-2 Excerpts from Key International Agreements............................................IV-4 

IV-3 Applicable Federal Laws............................................................................IV-5 

IV-4 Joint Staff Contractor Management Planning ............................................IV-8 

G-1 Notional Lead Service Theater Support Contracting Organization ............ G-2 

G-2 Typical Joint Theater Support Contracting Command Organization.......... G-3 

H-1 Joint Acquisition Review Board Process .................................................... H-3 
v 

EXECUTIVE SUMMARY 

COMMANDER’S OVERVIEW 

• Provides an Overview of Operational Contract Support and Key 

Terminology

• Lists Operational Contract Principals 

• Lists Roles and Responsibilities for Operational Contract Support 

• Discusses Contract Support Integration Planning and Execution 

• Addresses the Details of Contractor Management 

Overview 

The US military routinely 

uses contracted support in 

contingency operations. 

The continual introduction of hi-tech equipment, coupled 

with force structure and manning reductions, and high 

operating tempo mean that military forces will often be 

significantly augmented with contracted support. To do this, 

contract support integration and contractor management 

must be integrated into military planning and operations. 

This is a complex and very challenging process. 

Key terminology. Commanders and their staffs must have a working 

knowledge of key joint contract support integration and 

contractor management related terms, since these terms are 

not widely known outside of the professional acquisition 

community. 

Contingency acquisition, the process of acquiring supplies, 

services and construction in support of the joint operations 

begins at the point when a requiring activity identifies a 

specific requirement, defines the proper funding support, 

contract award, and administration requirement to satisfy 

activity needs. 

Contract support is delivered to the joint force through a 

process comprised of five key tasks: planning; requirements 

determination;, contract development; contract execution; 

and contract closeout. The product of planning is a contract 

support integration plan that defines key contract support 

integration capabilities to include command and control (C2) 

relationships, boards and centers requirements, theater 
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business clearance policies, etc. necessary to execute 

subordinate joint force commander (JFC) contract support 

integration requirements. Identifying, synchronizing, and 

prioritizing requirements are essential precursors to 

effective contract development, and essential to ensuring the 

subordinate JFC receives commercial support at the right 

place, at the right time, for the right price. The requirements 

process ends with a determination that the requirement is 

valid and of sufficient priority and that the requirement can 

only be met by commercial means. Contract development

begins with the establishment of the proper contract venue 

as determined by the subordinate JFC and ends with 

contract award. Contract execution begins with the award 

of the contract by a warranted contracting officer and ends 

when contractor performance is complete or the contract is 

otherwise terminated by the contracting officer. Contract 

closeout is executed once the contract has been completed 

and all outstanding contract administration issues have been 

resolved and ends once the contracting officer has prepared 

a contract completion statement. 

Planning encompasses 

 all activities necessary to 

properly execute contract 

support integration 

requirements in an 

operational area. 

Successful operational contract support is the ability to 

orchestrate and synchronize the provision of integrated 

contract support and management of contractor personnel 

providing that support to the joint force in a designated 

operational area. 

Contingency contracting is the process of obtaining goods, 

services and construction from commercial sources via 

contracting means in support of contingency operations. It 

is a subset of contract support integration and does not 

include the requirements development, prioritization and 

budgeting processes. Contracts used in a contingency 

include theater support, systems support, and external 

support contracts. 

Contract administration is a subset of contracting and 

includes efforts that ensure that supplies and services are 

delivered in accordance with the conditions and standards 

expressed in the contract. Contract administration is the 

oversight function, from contract award to contract closeout, performed by contracting professionals and designated 

noncontracting personnel. 

Contractor management is closely related to, but not the 

same as, contract administration. Contractor management is 
Executive Summary 

vii 

a very expansive and complex process, which includes both 

the management of contractor performance and the 

management of the government’s responsibilities for life 

and other support when such support is required by the JFC 

and has been incorporated into the terms and conditions of 

applicable contracts. 

Types of contracted 

support. 

It is important to understand the different types of contracts 

commonly used in support of contingency operations. 

Theater support contracts are contracts that are awarded 

by contracting officers in the operational area serving under 

the direct contracting authority of the Service component, 

special operations force command, or designated joint head 

of contracting activity (HCA) for the designated 

contingency operation. Systems support contracts are 

contracts awarded by Service acquisition program 

management offices that provide technical support, 

maintenance and, in some cases, repair parts for selected 

military weapon and support systems. Systems support 

contracts are routinely put in place to provide support to 

newly fielded weapons systems, including aircraft, land 

combat vehicles, and automated C2 systems. External 

support contracts are contracts awarded from contracting 

organizations whose contracting authority does not derive 

directly from the theater support contracting HCA(s) or 

from systems support contracting authorities. External 

support contracts provide a variety of logistic and other 

noncombat related services and supply support. 

Key contracting 

 personnel related 

 terms. 

Head of contracting activity is the official who has overall 

responsibility for managing the contracting activity. Senior 

contracting official (SCO) is a lead Service or joint 

command designated contracting official who has direct 

managerial responsibility over theater support contracting. 

Contracting officer is the government official with the legal 

authority to enter into, administer, and/or terminate contracts. 

Contracting officer representative is a Service member or 

Department of Defense (DOD) civilian designated and 

authorized in writing by a contracting officer who is to 

perform specific technical or administrative functions. Field 

ordering officer is a Service member or DOD civilian, who is 

appointed in writing and trained by a contracting officer, and 

authorized to execute micropurchases. 

Contractor Personnel Related Terms. Contractors 

authorized to accompany the force (CAAF) are 
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viii JP 4-10 

contingency contractor employees and all tiers of 

subcontractor employees who are specifically authorized 

through their contract to accompany the force and have 

protected status in accordance with international conventions. 

Mission essential contractor employees are defined as 

CAAF who are deemed by the contracting officer in 

consultation with the requiring activity as mission essential 

individuals. Non-CAAF contractor employees include local 

national (and third country national (TCN) expatriates who are 

permanent residents in the operational area) prime and 

associated subcontractor employees whose area of 

performance is not in the direct vicinity of US forces. 

Other Important Related Terms. A prime contract is a 

contract or contractual action entered into by the US 

government (USG) for the purpose of obtaining supplies, 

materials, equipment, or services of any kind. A subcontract

is a contract or contractual action entered into by a prime 

contractor, or subcontractor at any tier, for the purpose of 

obtaining supplies, materials, equipment, or services of any 

kind under a prime contract. Privity of contract is the legal 

relationship that exists between two contracting parties, for 

example, between the prime contractor and the United States. 

This fact can limit the ability of the JFC and subordinate 

commanders to directly enforce operational contract support 

policies on subcontractors and their personnel. A 

performance work statement is a statement of work for 

performance-based acquisitions that describes the required 

results in clear, specific, and objective terms with measurable 

outcomes. An independent government estimate is the 

government’s estimate of the resources and projected cost of 

the resources a contractor will incur in the performance of the 

contract. A requiring activity is the military or other 

designated supported organization that identifies and receives 

contracted support during military operations. The supported 

unit is an organization that is the recipient of contractorprovided support. An unauthorized commitment is an 

agreement that is not binding on the government solely 

because the USG representative who made it lacked the 

authority to enter into that agreement on behalf of the USG. 

Contract ratification is the process of approving an 

unauthorized commitment by an official who has the authority 

to do so. A constructive change to a contract occurs when 

the contract work is actually changed but the terms and 

conditions of the contract have not been followed. Generally, 

a constructive change is an oral or written act or omission by 
Executive Summary 

ix 

an authorized government official that requires the contractor 

to perform work that is not a necessary part of the contract. 

Principles and Processes 

Operational Contract Support Principles. 

Contracted support can be a significant force 

multiplier, but it is only one of numerous sources of 

support to the joint force. 

Most joint operations will include significant 

contracted support. 

Contracting is not just a source of logistic support; it 

can be used to acquire significant non-logistic 

support as well. 

There are other non-cost related factors associated 

with contracted support that may not be readily 

apparent. 

Contracted support and its associated contractor 

management challenges must be closely integrated 

early in the operation planning process. 

Operational contract support can be a tremendous 

challenge during major operations and requires 

significant planning and management. 

Contracting Principles. Contracted support differs 

significantly from military provided support. Contracted 

support relies on contract authority based in contract law, 

and the contract policies, processes, and procedures that 

support contract law. 

Contracted support to military operations is 

administered in accordance with federal law and 

acquisition regulations. 

Contracting authority does not equal command 

authority. 

Multiple contracting authorities support (either 

directly or indirectly) any given contingency. Only 

warranted contracting officers have the authority to 
Executive Summary 

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obligate USG funds. 

Care must be taken to avoid improper command 

influence on the contracting process. 

Only a warranted contracting officer has the 

authority to make or change a contract. 

Contracting requires centralized planning and 

decentralized execution to ensure effective, efficient 

use of limited local resources. 

Contracting support can have a direct strategic 

impact on civil aspects of the operation. 

Contractor Management Principles. While related to the 

contracting principles discussed above, contractor 

management principles are mainly focused on the 

integration of contractor personnel once the commander 

makes the decision to use contracted, vice military sources 

of support. Contractor personnel are not a formal part 

of the military chain of command; (however, base and 

area commanders do have limited directive authority over 

CAAF for matters of force protection (FP), security, safety, 

and general welfare of the force) therefore, Contractor 

personnel have a different legal status than military 

members and DOD civilians. 

The contractor management process is composed of five 

key steps: planning, predeployment actions, deployment 

and reception, in-theater management, and redeployment. 

Planning for contractor personnel integration should be 

addressed in a separate contractor management plan 

appendix or in appropriate sections of operation plans 

(OPLANs) and operation orders (OPORDs). 

Predeployment actions include those actions taken by the 

government and the contract companies to ensure that 

CAAF are properly prepared to deploy in support of military 

operations. Deployment and reception involves managing 

the flow of CAAF into the designated joint operation area 

(JOA), including establishment of joint reception centers 

and procedures for contractor personnel entering the JOA. 

In-theater management involves orchestrating and 

managing the provision of day-to-day support to CAAF. 

Redeployment involves orchestrating the redeployment of 

the CAAF out of the designated JOA, once their period of 
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xi 

performance ends. 

Roles and Responsibilities 

Understanding the roles and responsibilities of DOD, joint, 

and Service commanders and staffs related to operational 

contract support is critically important to all commands and 

staffs that may be involved with planning and managing 

contracted support and contractor management. 

The Secretary of Defense (SecDef) is responsible for 

issuing directives, instructions, and executing oversight

on the force apportionment process. Under Secretary of

Defense for Personnel and Readiness is the primary staff 

assistant and advisor to SecDef for total force management 

and is responsible for policy, plans, and program 

development for the total force, which includes military, 

DOD civilian, and DOD contractor personnel. The Under 

Secretary of Defense for Acquisition, Technology, and 

Logistics serves as the Defense Acquisition Executive and 

has overall responsibility for the performance of the DOD 

Acquisition System, including establishing and publishing 

policies and procedures governing the operations of the 

DOD Acquisition System and the administrative oversight 

of defense contracts. Deputy Under Secretary of Defense 

for Logistics and Material Readiness, through the 

Assistant Deputy Under Secretary of Defense (Program 

Support), is responsible for monitoring and managing the 

implementation of contractor management policy. The

Chairman of the Joint Chiefs of Staff (CJCS), as the 

principal military advisor to the President and the SecDef, 

has specific responsibilities in the areas of strategic direction 

as well as in strategic and contingency planning. The Joint 

Staff Manpower and Personnel Directorate establishes 

the manpower management, personnel support, and 

personnel service support policies and procedures for the 

total force during joint operations and administers oversight 

of joint personnel issues affecting the force. The Joint 

Staff Intelligence Directorate establishes procedures 

through joint doctrine for combatant commands to ensure 

proper vetting, for intelligence, counterintelligence, and FP 

purposes, of locally employed persons contracted by US 

forces to support US and coalition efforts. The Joint Staff 

Operations Directorate develops and provides guidance to 

the combatant commands regarding current operations and 

plans, including ensuring contracted support and associated 
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contractor integration requirements are addressed in the 

Joint Operation Planning and Execution System policy and 

execution as well as providing the CJCS with recommended 

rules for the use of force by private security contractors and 

contractor personnel armed for personal protection, in 

support of joint operations. The Joint Staff Logistics 

Directorate (J-4) provides plans, policy, guidance, and 

oversight on joint logistics, including joint contingency 

operational contract support matters. The Joint Staff 

Strategic Plans and Policy Directorate (J-5) ensures 

operational contract support policies and procedures are 

included in overarching policy documents to facilitate 

military operations. The Joint Staff Command, Control, 

Communications, and Computers System Directorate 

(J-6) provides advice and recommendations on information 

technology and national security systems matters for 

assessment of communications requirements in combatant 

command plans that require contracted support. The

Operational Plans and Joint Force Development 

Directorate (J-7), through war plans, doctrine, education, 

training, exercises, concept development, capabilities-based 

planning, integrates contractor management related 

collective training requirements for Joint Chiefs of Staff 

exercises and joint professional military education 

programs. The Joint Staff Legal Counsel provides legal 

advice and guidance to the CJCS and other members of the 

Joint Staff and the combatant commands, as directed. 

The Secretaries of the Military Departments provide 

administration and support of the forces assigned or attached 

to combatant commands, augmenting military support 

capabilities with contracted support when appropriate

through their respective Service component commands 

assigned to the combatant commands. The Army, Marine 

Corps, Navy, and Air Force (under their respective 

Secretaries) are responsible for planning and executing 

contracting support to their own forces unless directed 

otherwise by a combatant commander. 

Supported combatant commanders and subordinate 

JFCs, in determining and synchronizing contracted support 

requirements, contracting planning, as well as execution of 

operational contract support, work closely with the 

appropriate functional combatant commands, Service 

components, and DOD combat support agencies to 

determine operational contract support requirements, 
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xiii 

policies, and procedures. 

DOD Agencies. The Defense Logistics Agency (DLA) is 

the DOD combat support agency responsible for providing 

effective and efficient worldwide logistics support to 

Military Departments and the combatant commands under 

conditions of peace and war. DLA also has its own 

contracting authority and can provide supply and service 

contracting during contingency operations. Defense 

Contract Management Agency is the combat support 

agency responsible for ensuring major DOD acquisition 

programs are delivered on time, within projected cost or 

price, and meet performance requirements. Defense 

Contract Audit Agency (DCAA) is a defense agency under 

the authority, direction, and control of the Under Secretary 

of Defense (Comptroller). DCAA is responsible for 

performing all contract audits for the DOD, and providing 

accounting and financial advisory services regarding 

contracts and subcontracts to all DOD components 

responsible for procurement and contract administration. 

Contract Support Integration Planning and Execution 

Contracting for supplies 

and services in support of 

military operations is a 

force multiplier. 

Contracting is commonly used to augment organic military 

and other sources of support such as multinational logistic 

support, host-nation support, and to provide support where 

no organic capability exists, but contracting is often not 

properly planned for or integrated into the overall joint force 

logistic support effort. 

Contracting authority is not 

the same as command 

authority. 

Only the contracting officer 

has the authority to 

obligate the US 

government. 

Contracting authority is the legal authority to enter into 

binding contracts and obligate funds for the USG, while 

command includes the authority and responsibility for 

effectively using available resources and for planning the 

employment of, organizing, directing, coordinating, and 

controlling military forces for the accomplishment of 

assigned missions. Contracting authority in the operational 

area flows from Congress to the President, then to the 

SecDef, through the Service/agency head, to the HCA, then 

to the SCO, and finally to the contracting officer. This 

contracting authority is explicitly documented via the 

contracting officer’s warrant. Command Authority

(combatant command [command authority]) includes the 

authority to perform functions involving organizing and 

employing commands and forces, assigning tasks and 

designating objectives, and giving authoritative direction 
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xiv JP 4-10 

over all aspects of an operation; it does not include 

authority to make binding contracts or obligate funds on 

behalf of the USG. Commanders at all levels must take 

care to avoid improper command influence, or its 

appearance, on the contracting process. The contracting 

officer must be able to independently exercise sound, 

unbiased business judgment and contract oversight in the 

accomplishment of the contracting mission. The joint 

acquisition review board (JARB) is not a contracting 

board. The JARB is utilized to coordinate and control the 

requirements generation and prioritization of joint commonuser logistics (CUL) supplies and services that are needed in 

support of the operational mission and is normally chaired 

by the subordinate JFC (either subunified command or joint 

task force-level) or deputy commander or J-4. The JARB's 

main role is to make specific approval and prioritization 

recommendations for all geographic combatant 

commander (GCC) directed, subordinate JFC 

controlled, high-value and/or high-visibility CUL 

requirements and to include recommendations on the 

proper source of support for these requirements. The 

joint contracting support board (JCSB) reviews contract 

support requirement forwarded by the JARB and makes 

recommendations on which specific contracting 

organizations/contract venues are best suited to fulfill the 

requirements. The goal of the JCSB is to maximize the 

contracting capabilities of the JOA while minimizing the 

competition for limited vendor capabilities. 

Much of a Service 

component’s equipment 

will be maintained 

 either partially or fully 

through contracted 

 logistic support. 

Systems support contracts are generally issued when the 

Service systems contracting activities award the original 

systems contracts. Because such support is generally 

awarded long before and unrelated to a particular 

deployment requirement and is codified into the contract 

through generic deployment support language or clauses, the 

GCC and subordinate JFC must be cognizant of the 

impact of overly restrictive CAAF theater entrance 

requirements and/or contracted support use restrictions 

on readiness of key weapon and support systems 

deployed to the theater. The JFC’s main concern with the 

use of systems support contracts in military operations has 

to do with contractor personnel management related issues.

External support contracts are often used to provide 

significant logistic support and selected non-logistic support to 

the joint force. Like systems support contracts, external 
Executive Summary 

xv 

support contracting authority does not come as a direct result 

of the contingency operation. Generally, these contracts are 

issued during peacetime for use during contingencies. It is 

important to understand that these civil augmentation program 

and other external support contracts remain under the control 

of the Service components and do not normally fall under the 

authority of the GCC operational contract support. 

Theater support contracts are those contracts that are 

issued by deployed contingency contracting officers and are 

generally awarded to local vendors to support in-theater 

customers. This type of support contracting can be used to 

acquire support from commercial sources similar to those 

external support contract services and/or can be used to 

acquire limited amounts of commercially available supply 

items from both local and global sources. Theater support 

contracts are those contracts that are most commonly 

referred to as contingency contracts. 

There is no single 

preferred contracting 

organizational option.

Contracting Support Organizational Options. There are 

three main contracting related organizational options: 

Service component support to own forces; lead Service; and 

joint theater support contracting command. The specific 

organizational option that is exercised is determined by the 

GCC in coordination with the subordinate JFC and Service 

components and is chosen entirely dependent on the mission 

requirements and operational factors. Just as there is no one 

preferred option, the needs of the contracting organization 

may change as the operation progresses. Therefore, the 

contracting organizational structure may change and/or 

progress through the basic organizational options as the 

organizational needs unfold. During smaller scale 

operations with an expected short duration, the GCC would 

normally choose the Service component support to own 

forces option, allowing the Service component commanders 

to retain control of their own theater support contracting 

authority and organizations. The lead Service 

organizational option is most appropriate for major, longterm operations where the supported GCC and subordinate 

JFC desire to ensure that there is a consolidated contracting 

effort within the operational area, but without the need to 

stand-up an entirely new joint command. In larger or more 

complex contingency operations, the supported GCC may 

require more oversight than what can typically be provided 

through the lead Service organizational option. In this case, 

the joint theater support contracting command 
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xvi JP 4-10 

organizational option would likely be the most appropriate. 

The use of contracted 

support must be addressed 

early in the planning cycle. 

Contract Support Integration Planning and Execution. 

In all operations where there will be a significant use of 

contracted support, the supported GCC and their subordinate 

commanders and staffs must ensure that this support is 

properly addressed in the appropriate OPLAN/OPORD. 

Accordingly, a contractor support integration plan (CSIP) is 

developed by the logistics staff contracting personnel, 

assisted by the lead Service (if a lead Service is designated). 

Additionally, each Service component should publish its 

own CSIP seeking integration and unity of effort within the 

supported GCC’s CSIP. 

Contracting Support by Phase of the Operation. As the 

operation progresses, contracting support will generally shift 

based on the operational phase: mobilization; initial 

deployment; joint reception, staging, onward movement, 

and integration; employment sustainment; and finally, 

redeployment. These stages of contracting support are 

generally characterized by the types of items purchased and 

the types of contracting mechanisms used to support specific 

force support requirements. 

Other Key Contracting Planning and Execution 

Considerations. There are numerous other contracting 

planning and execution considerations that must be taken 

into account by the supported GCC, subordinate JFC, and 

Service components. These considerations run the gamut 

from contracting support to multinational operations to 

support of major interagency-led reconstruction 

requirements, as well as media and political visibility of 

decisions about selection of contractors and the actions of 

contractors once in the operational area. 

Contractor Management 

The management and 

control of contractor 

personnel is significantly 

different than command 

and control of military 

members. 

Unlike military members and DOD civilians, contractor 

personnel are not part of the direct chain-of-command. They 

are managed and controlled through contractor management 

and governmental oversight staff in accordance with terms 

and conditions of their contract. Commanders do not 

generally have legal authority to direct contractor 

personnel to perform tasks outside of their contract; 

however, in emergency situations, the ranking area or base 

commander may direct contractors authorized to accompany 
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xvii 

the force to take FP or emergency response actions not 

specifically authorized in their contract as long as those 

actions do not require them to assume inherently 

governmental responsibilities. While the management and 

control aspect is unique to this category of the “total force,” 

there are numerous additional risks and challenges that must 

be dealt with when utilizing contracted vice military support. 

Contractor personnel management is accomplished 

through a myriad of different requiring activities, 

contracting officer representatives (CORs), supported 

units, contracting organizations, and contractor company 

management personnel, many of which are not under 

direct JFC C2. Key to success in this contractor personnel 

management challenge is for the GCC and subordinate JFCs 

to establish clear, enforceable, and well understood 

contractor theater entrance, accountability, FP, and general 

contractor management policies and procedures early in the 

planning stages of any military contingency. The military 

chain of command exercises management control over 

contractor personnel through the contract management team, 

consisting of the contracting officer, COR, and the “on-site” 

contract company manager. 

Contractor Personnel Legal Status and Discipline. Law of 

war treaties attempt to establish and clarify the status of 

contractors when supporting military operations. These 

treaties entitle CAAF to be treated as POWs. CAAF are 

contractor employees who are specifically authorized through 

their contract to accompany the force and have protected legal 

status IAW international conventions. IAW these 

international conventions, CAAF are non-combatants, but 

are entitled to prisoner of war (POW) status if detained. 

On the other hand, Non-CAAF employees (employees of 

commercial entities not authorized CAAF status but who are 

under contract to DOD) have no special legal status IAW 

international conventions or agreements and are legally 

considered civilians. They may not receive Geneva 

conventions identification cards, thus are not entitled to 

POW treatment if captured by forces observing applicable 

international law. Legal jurisdiction and commander’s 

authority over contractor personnel varies depending on 

contractor personnel nationality, CAAF or non-CAAF 

designations, operational specific policies, and the type and 

severity of the discipline infraction. Normally, local national 

contract employees are subject to local and/or HN laws while 
Executive Summary 

xviii JP 4-10 

US citizens and TCN CAAF may or may not be subject to 

local and/or HN laws. All CAAF however, are subject to 

US federal law. 

Deployment/Redeployment Planning and Preparation. 

Contractor management planning is related to, but not the same 

as, contracting support integration planning. While the CSIP is 

focused on how DOD will acquire and manage contracted 

support, contractor management planning is focused on the 

government obligations under the terms and conditions of the 

contract to provide support to contractor personnel. There is no 

single primary or special staff officer responsible to lead the 

contractor management planning effort. To address this 

situation, the JFC should consider establishing a contractor 

personnel integration working group to ensure the various 

contractor integration challenges are addressed and integrated 

across all primary and special staff lines. 

FP and security of contractor personnel and equipment is a 

shared responsibility between the contractor and the 

government. In a permissive environment, the supported GCC 

and subordinate JFC may have only limited special planning 

considerations and this security responsibility would normally 

fall to the contractor. In general, military provided FP is the 

preferred option for operations where there is an on-going or 

anticipated level II threat (small-scale, irregular forces 

conducting unconventional war) or level III threat 

(conventional forces capable of air, land, or sea attacks). 

The contracting officer shall include in the contract the level 

of protection to be provided to contingency contractor 

personnel. All contingency contractor personnel whose area 

of performance is in the vicinity of US forces shall be 

required to comply with applicable supported GCC and 

subordinate JFC FP policies and procedures. The JFC and 

individual base commanders are responsible for the security 

of all military facilities within the operational area. Not 

having these policies and procedures in place can severely 

reduce the effectiveness, timeliness, flexibility, and/or 

efficiency of contracted support. This can be an especially 

significant issue when changes to the operation require a 

quick surge of contracted support from one base to another. 

Government Provided Support. As most military 

operations are conducted in austere and/or hostile and 

uncertain environments, contractor personnel support will 

often be provided through military means or via another 
Executive Summary 

xix 

contract directed by the military. In these situations, the 

contracting officer will detail the government support to be 

provided in the terms and conditions of the contract, after 

determining support requirements and availability of such 

support from theater DOD support providers. 

Coordinating Non DOD Contract Support. The scope of 

non-DOD contract support integration requirements are very 

much mission dependent. In some joint operations, the JFC 

may have only limited requirements to integrate non-DOD 

contracted support into military operations while in others, 

there may be major challenges that defy any simple solution. 

In complex, long-term stability operations, there are a 

myriad of challenges related to other government agency, 

intergovernmental organization, and nongovernmental 

organization contractors. Key to addressing these 

requirements is an active civil-military coordination effort to 

include the use of civil-military operations centers or other 

mechanisms to ensure proper civil-military information 

sharing and cooperation. 

CONCLUSION 

This publication establishes doctrine for planning, 

conducting, and assessing contracting and contractor 

management functions in support of joint operations. It 

provides standardized guidance and information related to 

integrating operational contract support and contractor 

management, defines and describes these two different, but 

directly related functions, and provides a basic discussion on 

contracting C2 organizational options. 
Executive Summary 

xx JP 4-10 

Intentionally Blank 
CHAPTER I 

INTRODUCTION 

I-1 

1. General 

a. The US military routinely uses contracted support in contingency operations. The 

continual introduction of hi-tech equipment, coupled with force structure and manning 

reductions, and high operating tempo mean that military forces will often be significantly 

augmented with contracted support. Accordingly, the supported geographic combatant 

commander (GCC), subordinate joint force commanders (JFCs), and their staffs must be 

familiar with how to plan for and integrate contracted support to joint operations. 

b. Integrating the two related, but different, operational contact support constructs of 

contract support integration and contractor management functions into military planning and 

operations is a complex and very challenging process. Multiple joint and Service 

component organizations are involved in this process, including commanders and their staffs 

at the combatant command through major tactical force levels. Additionally, numerous 

contracting organizations from both inside and outside of the operational area play a vital 

role in operational contract support planning and execution. Finally, the development of the 

Joint Operation Planning and Execution System (JOPES) annex W at the combatant 

command and subordinate command levels, along with supporting Service component 

plans, crosses primary and special staff lanes, yet, these staffs are generally unfamiliar with 

the contract support integration process and associated contractor management challenges. 

2. Key Terminology Discussion 

a. General Contracting Related Terms and Related Discussion Points. It is very 

important that commanders and their staffs have a working knowledge of the key contract 

support integration and contractor management related terms discussed below. Since these 

"The Department’s Total Force – its active and reserve military components, 

its civil servants, and its contractors – constitutes its warfighting capability 

and capacity."

Department of Defense Quadrennial Defense Review, 2006 

CONTRACTING SUPPORT IN WORLD WAR II 

At the beginning of World War II, over 1,000 civilian construction 

workers were employed by the US Navy to expand the airfield on Wake 

Island. During the actual battle, many of these contractor personnel 

provided direct support to the Marines by performing tasks such as 

litter bearer, delivering ammunition, etc. Some actually picked up 

weapons and took a direct part in the fight. Of the 1,014 contractor 

personnel taken prisoner after the battle, approximately 16% (~180) 

died during their captivity, including 98 who were executed on Wake 

Island in October of 1943. 

SOURCE: The Defense of Wake, USMC Historical Monograph
Chapter I 

I-2 JP 4-10 

terms are not widely known outside of the professional acquisition community, a discussion 

is provided here. Without a basic understanding of these terms, effective planning and 

execution of this complex source of support is more difficult. 

(1) Contingency acquisition is the process of acquiring supplies, services, and 

construction in support of the operations. Acquisition includes obtaining support from 

multiple sources to include: multinational military capabilities, host-nation support (HNS), 

or contracted support. From the contracting aspect, contingency acquisition begins at the 

point when a requiring activity identifies a specific requirement and defines the requirement 

to the level necessary to satisfy activity needs, which includes proper funding support, 

contract award, and administration. This joint publication will address the overall 

acquisition process only as it applies to contracting. 

(2) Operational contract support is the process of planning for and obtaining 

supplies, services, and construction from commercial sources in support of joint operations 

along with the associated contractor management functions. Successful operational contract 

support is the ability to orchestrate and synchronize the provision of integrated contracted 

support and management of contractor personnel providing that support to the joint force in 

a designated operational area. Contract support integration is the coordination and 

synchronization of contracted support executed in a designated operational area in support 

of the joint force. Contractor management is the oversight and integration of contractor 

personnel and associated equipment providing that support to the joint force in a designated 

operational area. While directly related, contract support integration and contractor 

management are not one-and-the same and both require significant JFC oversight. 

(3) Contingency contracting is the process of obtaining supplies, services, and 

construction from commercial sources via contracting means in support of contingency 

operations. Contingency contracting is a subset of contract support integration and does not 

include the requirements development, prioritization, and budgeting processes. 

Additionally, contingency contracting does not encompass special methods for procuring 

supplies, services, and minor construction that result from special authorizations that allow 

for acquisition actions outside of generally established procurement rules. Contingency 

contracting, by definition, is conducted by contracting officers warranted under authorities 

granted to the Services and other components under Title 10, United States Code (USC) in 

accordance with (IAW) rules established in the Federal Acquisition Regulation (FAR), 

Defense Federal Acquisition Regulation Supplement (DFARS), Service FAR supplements 

IMPORTANT NOTE 

Many of the terms discussed below are found in the Federal Acquisition 

Regulation and Department of Defense Federal Acquisition Regulation 

Supplement; however, some of the actual doctrine definitions 

established in JP 4-10 have been modified from the regulatory definition 

to meet joint doctrine administrative guidelines. In no case has the 

actual meaning of the term been changed. 
Introduction 

I-3 

(Title 48, Code of Federal Regulations [CFR]), and applicable contingency contracting 

acquisition instructions. 

(4) A contingency contract is a legally binding agreement for supplies, services, 

and construction let by government contracting officers in the operational area as well as 

other contracts that have a prescribed area of performance within a designated operational 

area. Contracts used in a contingency include theater support, systems support, and external 

support contracts described below. 

(5) Contract administration is a subset of contracting and includes efforts that 

ensure that supplies, services, and construction are delivered IAW the conditions and 

standards expressed in the contract. Contract administration is the oversight function, from 

contract award to contract close-out, performed by contracting professionals and designated 

noncontracting personnel. It includes ensuring that both parties (government and contractor) 

meet the specified terms and conditions of the contract. Contract administration is 

composed of 70 functions, as described in FAR Part 42, including monitoring contract 

compliance, performing property administration, and performing quality assurance. 

Contract administration conducted during contingency operations is referred to as 

contingency contract administration services (CCAS). 

(6) Contractor management is the ability to manage and maintain visibility of 

contractor personnel and associated contractor equipment providing support to the joint 

force in a designated operational area. It is closely related to, but not the same as, contract 

administration. Contractor management is a very expansive and complex process. 

Contractor management includes both the management of contractor performance in 

complying with contractor personnel related requirements and the management of the 

government’s responsibilities for life and other support when such support is required by the 

JFC and has been incorporated into the terms and conditions of applicable contracts. 

Contractor management includes those activities necessary to deploy, receive, manage, and 

redeploy contractor personnel, especially as described in Department of Defense Instruction 

(DODI) 3020.41, Contractor Personnel Authorized to Accompany the US Armed Forces, 

and its associated references. 

 

b. Types of Contracted Support. It is important to understand the different types of 

contracts commonly used in support of contingency operations. This construct breaks 

support contracts into three categories describing the numerous contracting and contract 

administration authorities providing support within the operational area. It outlines the 

limits on the JFC’s ability to control/influence these different types of contracted support. 

(1) Theater support contracts are contracts that are awarded by contracting 

officers in the operational area serving under the direct contracting authority of the Service 

component, special operations force command, or designated joint head of contracting 

activity (HCA) for the designated contingency operation. During a contingency, these 

contracts are normally executed under expedited contracting authority and provide supplies, 

services, and construction from commercial sources generally within the operational area. 

Theater support contracts are the type of contract typically associated with the term 
Chapter I 

I-4 JP 4-10 

contingency contracting. Also of importance from the contractor management perspective 

is that local national personnel make up the bulk of the theater support contract employees. 

(2) Systems support contracts are contracts awarded by a Military Department 

acquisition program management (PM) offices that provide technical support, maintenance 

and, in some cases, repair parts for selected military weapon and support systems. Systems 

support contracts are routinely put in place to provide support to newly fielded weapons 

systems, including aircraft, land combat vehicles, and automated C2 systems. Systems 

support contracting authority, contract management, and program management authority 

resides with the Military Department systems materiel acquisition program offices. Systems 

support contractor employees, made up mostly of US citizens, provide support in garrison 

and often deploy with the force in both training and contingency operations. 

(3) External support contracts are contracts awarded by contracting 

organizations whose contracting authority does not derive directly from the theater support 

contracting HCA(s) or from systems support contracting authorities. External support 

contracts provide a variety of logistic and other noncombat related services and supply 

support. Some examples of external support contracts are the Services’ civil augmentation 

program (CAP) contracts including the Army’s Logistics Civil Augmentation Program 

(LOGCAP), the Air Force Contract Augmentation Program (AFCAP), the Navy’s Global 

Contingency Construction Contract (GCCC) and Global Contingency Service Contract 

(GCSC), Defense Logistics Agency (DLA) prime vendor contracts, and Navy fleet 

husbanding contracts. External support contracts normally include a mix of US citizens, 

third country nationals (TCNs), and local national contractor employees. 

c. Key Contracting Personnel Related Terms. Understanding key contracting 

personnel positions and their authority is very important in planning and coordinating 

contracted support for military operations. 

(1) Head of contracting activity is the official who has overall responsibility for 

managing the contracting activity. HCAs do not typically exercise command authority 

within the operational area. There are multiple HCAs across multiple military 

organizations and types of contracted support utilized in joint operations. Contracting 

authority flows from the Services, United States Special Operations Command 

(USSOCOM), United States Transportation Command (USTRANSCOM), and combat 

support agencies through designated HCAs to their contracting officers. 

(2) Senior contracting official (SCO) is a lead Service or joint command 

designated contracting official who has direct managerial responsibility over theater support 

contracting. There may be multiple SCOs in the same operational area based on mission or 

regional focus. For example, at one time in Operation IRAQI FREEDOM (OIF), there were 

two SCOs (known as the principal assistant responsible for contracting or PARC), one for 

support to forces and one for reconstruction support. 

(3) Contracting officer is the government official (uniformed or civilian) with the 

legal authority to enter into, administer, and/or terminate contracts. Within all components, 
Introduction 

I-5 

the contracting officer is appointed in writing through a warrant (Standard Form [SF] 1402) 

by the HCA or the SCO. Only duly warranted contracting officers are authorized to 

obligate the US government (USG), legally binding it to make payments against 

contracts. Active and Reserve Component military officers and enlisted members, as 

well as Department of Defense (DOD) civilian personnel, may serve as contracting 

officers supporting deployed joint forces. The three main types of contracting officers are 

procuring contracting officers (PCOs), administrative contracting officers (ACOs), and 

terminating contracting officers. Unlike PCOs, ACOs duties are limited to administering 

the contract. 

(4) Contracting officer representative is a Service member or DOD civilian 

designated and authorized in writing by a contracting officer who is to perform specific 

technical or administrative functions. The COR is normally assigned to the requiring unit or 

activity and may serve in this COR position as a collateral or extra duty. COR primary 

duties may include monitoring contractor performance, providing quality assurance, 

certifying receipt of services, and acting as a liaison between the requiring activity and the 

contracting officer. While CORs require formal training and certification, they do not have 

authority to change, add to, or otherwise modify a contract. 

(5) Field ordering officer (FOO) is a Service member or DOD civilian, who is 

appointed in writing and trained by a contracting officer. FOOs are authorized by the 

contracting officer to execute micropurchases using the SF 44 up to a designated threshold 

in support of forces and/or designated civil-military operations. FOOs are not warranted 

contracting officers and their FOO duties are considered an extra or collateral duty. Not all 

Services use FOOs in support of military operations.

d. Contractor Personnel Related Terms. These contractor personnel related terms 

are based in customary international law and DOD policy. These definitions are very 

important when it comes to understanding the legal status of the contractor employees as 

well as determining government furnished support requirements. DODI 3020.41, 

Contractor Personnel Authorized to Accompany the US Armed Forces, codifies these terms 

within DOD policy. 

(1) Contractors authorized to accompany the force (CAAF) are contingency 

contractor employees and all tiers of subcontractor employees who are specifically 

authorized through their contract to accompany the force and have protected status IAW 

international conventions. Generally, all US citizens and TCN contingency contractor and 

subcontractor employees who do not normally reside within the operational area, whose 

area of performance is in the direct vicinity of US forces, and who routinely reside with US 

forces (especially in uncertain or hostile environments) are considered CAAF. CAAF also 

may include some mission essential local national contractor employees (e.g., interpreters) 

who reside with US forces and receive government furnished support such as billeting and 

access to dining facilities. All CAAF will be subject to individual personnel accountability 

standards; are required to meet specified deployment preparation requirements; and will be 

provided requisite government furnished support as identified in the contract. However, US 

citizens, as well as selected mission essential TCN and local national CAAF, may receive a 
Chapter I 

I-6 JP 4-10 

higher level of government furnished support in areas such as force protection (FP), 

personnel recovery (PR), access to postal service, etc. CAAF support is discussed in detail 

in Chapter IV, “Contractor Management.” 

(2) Mission essential contractor employees are defined as CAAF who are 

deemed by the contracting officer in consultation with the requiring activity as mission 

essential individuals. Mission essential CAAF have managerial or technical skills not 

commonly found in the general population. Examples of mission essential CAAF include, 

but are not limited to: CAP contractor managers, systems support contract field service 

representatives (FSRs), and interpreters. 

(3) Non-CAAF include local national (and TCN expatriates who are permanent 

residents in the operational area) prime and associated subcontractor employees whose area 

of performance is not in the direct vicinity of US forces. Non-CAAF also include 

nonmission essential personnel (e.g., day laborers, delivery personnel, and cleaning service 

personnel) who do not reside with US forces nor receive government furnished support such 

as billeting and subsistence. Government furnished support requirements of non-CAAF are 

typically limited to FP and emergency medical care when performing their jobs in the direct 

vicinity of US forces. 

e. Other Important Related Terms. The following terms and discussion will help 

provide a frame of reference to the JFC and subordinate commanders to better understand 

the challenges and responsibilities related to contract support integration. 

(1) A prime contract is a contract or contractual action entered into by the USG 

for the purpose of obtaining supplies, materials, equipment, or services of any kind. The 

prime contractor is the organization that has entered into a prime contract with the United 

States. The United States has privity of contract only with the prime contractor. 

(2) A subcontract is a contract or contractual action entered into by a prime 

contractor, or subcontractor at any tier, for the purpose of obtaining supplies, materials, 

equipment, or services of any kind under a prime contract. The prime contractor is 

responsible for the actions of the direct subcontractor. Likewise, subcontractors are 

responsible for managing any subcontractor at the next lower tier. Subcontractors and their 

employees should be treated the same as the prime contractor when it comes to contractor 

management planning and actions. 

(3) Privity of contract is the legal relationship that exists between two contracting 

parties, for example, between the prime contractor and the United States. This term is 

important to the JFC in that only the prime contractor has direct responsibility to the 

government. This fact can limit the ability of the JFC and subordinate commanders to 

directly enforce operational contract support policies on subcontractors and their personnel 

although flow-down provisions for such policies require contractors to enforce such policies 

on lower-tier subcontractors when compliance with such policies is included in the terms 

and conditions of the contract. 
Introduction 

I-7 

(4) A performance work statement (PWS) is a statement of work (SOW) for 

performance-based acquisitions that describes the required results in clear, specific, and 

objective terms with measurable outcomes. While contracting personnel may be able to 

provide guidance, templates, or information on previous like-purchases, PWS development 

is the responsibility of the requiring activity.

(5) An independent government estimate (IGE) is the government’s estimate of 

the resources and projected cost of the resources a contractor will incur in the performance 

of the contract. These costs include direct costs such as labor, supplies, equipment, or 

transportation and indirect costs such as labor overhead, material overhead, as well as 

general and administrative expenses, profit, or fee. The IGE is prepared by government 

personnel (i.e., not the contractor that will provide the goods/services). While contracting 

personnel may be able to provide guidance, templates, or information on previous likepurchases; IGE development is the responsibility of the requiring activity. 

(6) A requiring activity is the military or other designated supported organization 

that identifies the requirement and receives contracted support during military operations. 

The requiring activity has specific responsibilities in the contracting and contractor 

management process to include ensuring that there is proper contractor management 

oversight assistance provided through an appointed unit COR. Other requiring activity 

responsibilities include conducting initial research on available commercial sources of 

support, developing the IGE, drafting the initial PWS, and obtaining proper funding. 

See Appendix G, “Requirements Development and Acquisition Review Processes,” for more 

information on requiring activity responsibilities. 

(7) The supported unit is an organization that is the recipient of contractorprovided support. A supported unit may also be the requiring activity, if it initiates the 

request for support. In some cases, such as with CAP support, the supported unit may 

not be the requiring activity such as when a lead Military Department is directed to 

provide common-user logistics (CUL) support to the entire joint force. Even when not 

officially the requiring activity, supported units play an important role in assisting the JFC 

and Service component commanders and may be required to provide a COR to assist the 

requiring activity and a contracting officer to monitor this contracted support. In almost all 

situations, the supported unit, will at a minimum, play a role in integrating selected 

contractor personnel into local military operations. 

(8) An unauthorized commitment is an agreement that is not binding on the 

government solely because the USG representative who made it lacked the authority to enter 

into that agreement on behalf of the USG. It is important for the JFC and subordinate 

commanders and staff personnel to understand that only warranted contracting 

officers are authorized to enter into contractual agreements or to modify existing 

contracts. USG officials (both military members and civilians) can be held pecuniarily 

liable for unauthorized commitments depending on the circumstances and conduct of the 

individual. 
Chapter I 

I-8 JP 4-10 

(9) Contract ratification is the process of approving an unauthorized 

commitment by an official who has the authority to do so. Ratification is never automatic; 

and even when ratification is possible, commanders are required to take corrective 

administrative action against the individuals causing the unauthorized commitment. 

Corrective actions may include official reprimands or other disciplinary action commanders 

deem appropriate. If the transaction cannot be ratified, the individual who committed the 

transaction may be personally responsible for the debt and may be subject to litigation by 

the company to recover the price of the transaction. 

(10) A constructive change to a contract occurs when the contract work is 

actually changed outside the terms and conditions of the contract. Generally, a constructive 

change is an oral or written act or omission by an authorized government official that 

requires the contractor to perform work that is not a necessary part of the contract, usually at 

a higher cost. This is something that differs from advice, comments, suggestions, or 

opinions, which government engineering or technical personnel frequently offer to a 

contractor’s employees. 

3. Operational Contract Support Principles 

Planning for and integrating contracted support into military operations is dependent on 

various factors and represents a tremendous challenge for the supported GCC, subordinate 

JFCs, and Service component commanders. C2 of contracting organizations and contractor 

management are special challenges for the JFC. The following discussion provides 

overarching principles that are important to understanding these challenges. JOPES 

provides the planning templates and supporting information systems required for thorough 

operational contract support plan development and integration. 

a. General Principles. The following principles apply to all aspects of planning and 

managing contracted support. 

(1) Contracted support can be a significant force multiplier, but it is only one 

of numerous sources of support to the joint force. The supported GCC and JFCs must 

judiciously consider the proper mix of different sources of support to include: US military 

support, multinational military support, HNS, and contracting support. Each of these 

sources of support has advantages and disadvantages that must be carefully weighed by the 

JFC and subordinate Service component commanders. 

(2) Most joint operations will include significant contracted support. While 

some limited duration operations such as noncombatant evacuation operations, may utilize 

limited contracted support, all major operations will involve significant contracted support. 

This is especially true for major, long-term stability operations. 

(3) Contracting is not just a source of logistic support; it can be used to 

acquire significant non-logistic support as well. Contracting is often used to acquire 

support well beyond logistics. Contracted support can include significant support 

capabilities such as interpreter support, interrogation support, signal support, etc. 
Introduction 

I-9 

(4) There are other non-cost related factors associated with contracted 

support that may not be readily apparent. These factors include but are not limited to: 

inability to assign collateral/extra duties; compliance with the terms and conditions of the 

contract; inability to direct contractor on “how to do a task”; time delays for performance 

when work changes and contract modifications are required; contract oversight 

responsibilities by CORs; security escort responsibilities; and potential effects on morale 

when contractor working/living conditions differ from. These factors should be carefully 

weighed when considering contracting for support. 

(5) Contracted support and its associated contractor management challenges 

must be closely integrated early in the operation planning process. Contracted support 

is a force multiplier for the joint force. However, it is complex and comes with costs that 

often may not be apparent to the military, especially in terms of managing the associated 

contractor personnel and providing government furnished support to them. Proper planning 

will better integrate the contractor force into military operations and mitigate unplanned 

burdens on the joint force. The importance of such integrated planning cannot be 

overemphasized. 

(6) Operational contract support can be a tremendous challenge during 

major operations and requires significant planning and management. These 

management processes require proper planning and adequate personnel resources. These 

processes also require visibility of contracts and contractor personnel, both of which can be 

very difficult to obtain and maintain in large, fast-paced operations. 

b. Contract Support Integration Principles. Contracted support differs significantly 

from military provided support. Contracted support relies on contract authority based in 

contract law, and the contract policies, processes, and procedures that support contract law. 

These policies, processes, and procedures represent special support conditions and 

limitations that must be articulated in planning and followed in plan execution. Contracted 

support to a joint force results from efforts and interactions of a myriad of players including 

requiring activities, finance organizations, and contracting activities. In a large contingency, 

contracted support of the joint force can emanate from requirements brought forth by 

numerous requiring activities through contracts let under the authority of multiple Military 

Departments, defense agency, USSOCOM, and USTRANSCOM HCAs from both inside 

and outside the operational area. The complexity and special considerations associated with 

the flow of this support makes it mandatory that supported units from the combatant 

command down to the tactical-level not only understand and comply with these legally 

mandated contract authorities but also have a basic understanding of the types of contracts 

that provide support and the associated processes that deliver this contracted support to the 

joint force. A brief summary follows: 

Chapter III, “Contract Support Integration,” covers these principles in depth.

(1) Contracted support to military operations is administered IAW federal 

law and acquisition regulations. Contracting support must be administered IAW US 

public law along with the FAR, DFARS, and Military Department FAR supplements. FAR 
Chapter I 

I-10 JP 4-10 

Part 18 and DFARS Part 218 outline emergency procurement authorities that may be 

available during contingency operations. These contract law emergency authorities must be 

considered, and requested as necessary, based on GCC and/or subordinate JFC planning 

efforts.

(2) Contracting authority does not equal command authority. Command 

authority is the legal authority of the commander to organize and employ assigned and 

attached forces; however, this command authority does not include the authority to 

make binding contracts for the USG. Only warranted contracting officers have this 

authority, which flows from the Military Departments, USTRANSCOM, USSOCOM, and 

select DOD agencies and activities through designated HCAs. 

(3) Multiple contracting authorities support (either directly or indirectly) any 

given contingency. In most situations, the JFC will have limited direct control over 

external support contracts and very little influence over decisions related to the use of 

systems support contracts. However, all subordinate commanders should be aware of 

combatant commander (CCDR) or JFC guidance on contracting requirements for their 

operational area. 

Additional options for contracting organizations are discussed in Chapter III, “Contract 

Support Integration.” 

(4) Only warranted contracting officers have the authority to obligate the 

USG. This authority, derived from the US Constitution, federal law, and the FAR, is 

documented in the contracting officer’s warrant. 

(5) Care must be taken to avoid improper command influence on the 

contracting process. Commanders should take great care to avoid improper influence over 

the contracting process and subordinate contracting organizations. Such improper influence 

may result in fraud, waste, and abuse of precious contract resources and dollars. 

(6) Only a warranted contracting officer has the authority to make or change 

a contract. Commanders, government civilians, and other non-warranted military members 

need to understand that they can incur pecuniary liability for unauthorized commitments and 

are subject to disciplinary actions depending on the circumstances. 

(7) Contracting requires centralized planning and decentralized execution to 

ensure effective, efficient use of limited local resources. In many operations, multiple 

theater support and external support contracting activities may be competing for the same 

locally available commercial vendor base - thereby dramatically inflating cost to the 

detriment of the joint force operation. It is very important that the supported GCC and 

subordinate JFCs develop adequate plans and policies to ensure visibility of all contract 

requirements and associated contracts, available for execution within the operational area. 

The GCC and subordinate JFC also must be prepared to deconflict these requirements based 

on the recommendations of specific contracting related boards and requisite 

command/coordination guidance in the appropriate orders and directives. 
Introduction 

I-11 

(8) Contracted support can have a direct strategic impact on civil aspects of 

the operation. While the most important factor of contracted support is effectiveness of 

support to the military force, in certain operations the JFC may choose to utilize theater 

support and some external support contracts to also provide a positive economic and social 

impact on the local populace. Tying the contracting effort directly to the civil-military 

aspects of the JFC’s plan requires very close coordination between the lead contracting 

activity, normally a lead Service or joint theater support contracting command, and the JFC 

plans and operations staff. This effort can be especially important in counterinsurgency or 

long-term stability operations. 

(9) There are some functions considered inherently governmental that should 

not be contracted. Most combat support and sustainment functions can be partially or fully 

contracted. Some specific functions are deemed inherently governmental and may not be 

performed by contractors. These include combat operations, contract award, and 

supervision of military members and DOD civilians. 

 

IAW the FAR, “inherently governmental function” means, as a matter of policy, a 

function that is so intimately related to the public interest as to mandate performance by 

government employees. More detailed information on inherently governmental functions 

can be found in DODI 1100.22, Guidance for Determining Workforce Mix. 

c. Contract Support Integration Process. Contracted support is delivered to the joint 

force through a process comprised of five key tasks: planning; requirements determination; 

contract development; contract execution; and contract closeout. 

 (1) Planning encompasses all activities necessary to properly execute contract 

support integration requirements in an operational area. The product of this task is a 

contract support integration plan (CSIP), which defines key contract support integration 

capabilities to include command and control (C2) relationships, boards and centers 

requirements, theater business clearance policies, etc., necessary to execute subordinate JFC 

contract support integration requirements. It is crucial that supported units from the 

combatant command down to the tactical-level have a basic understanding of the key 

considerations and processes associated with integrating contractor personnel and equipment 

into the joint force. Successful contractor management results from efforts and interactions 

of a myriad of players including requiring activities, contracting activities, various staff 

officers from the GCC, subordinate JFC, and Service components. 

 (2) Requirements determination encompasses all activities necessary to define, 

vet, and prioritize joint force requirements. Effective contract support is driven primarily by 

timely and accurate requirements. Identifying, synchronizing, and prioritizing requirements 

are essential precursors to effective contract development, and essential to ensuring the 

subordinate JFC receives commercial support at the right place, at the right time, and the 

right price. Requirements determination is a command, not contracting, function. While 

guided by the CSIP, requiring activities are responsible to develop a clear description of the 

requirement, perform market research, obtain appropriate approvals, and ensure adequate 

funding is available. The requirements process ends with a determination that the 
Chapter I 

I-12 JP 4-10 

requirement is valid and of sufficient priority and that the requirement can only be met by 

commercial means. 

 (3) Contract development begins with the establishment of the proper contract 

venue as determined by the subordinate JFC. Depending on the contract type and dollar 

amount, this step may include development of a formal solicitation package, a pre-business 

clearance, legal review, and submission for formal advertising of the solicitation to the 

contractor community and negotiations. This step ends with contract award. 

 (4) Contract execution begins with the award of the contract by a warranted 

contracting officer. This step includes monitoring of contract performance and execution of 

contract modifications by the contracting officer and for all service contracts, designation of 

requiring activity nominated contracting officer representatives (CORs), and, when required, 

post-award changes to the contract (contract modifications). Contract execution ends when 

contractor performance is complete or the contract is otherwise terminated by the 

contracting officer. 

 (5) Contract closeout is executed once the contract has been completed and all 

outstanding contract administration issues have been resolved. This step includes initiating 

final payment to and/or collection from the contractor, de-obligating excess funds, and 

finalizing records disposal/disposition. Contract closeout ends once the contracting officer 

has prepared a contract completion statement and places a signed original in the contract 

file. 

d. Contractor Management Principles. While related to the contract support 

integration principles discussed above, contractor management principles are mainly 

focused on the integration of contractor personnel once the commander makes the decision 

to use contracted, vice military, sources of support. 

Chapter IV, “Contractor Management” covers these contractor principles in depth. 

(1) Contractor personnel are not a formal part of the military chain of 

command; however base and area commanders do have limited directive authority over 

CAAF for matters of FP, security, safety, and general welfare of the force. Commanders 

also have limited legal jurisdiction over CAAF as described in Chapter IV, “Contractor 

Management.” Outside of this directive authority for tactical matters and limited legal 

jurisdiction, individual contractor employees are managed by contractor personnel 

supervisors and through established government contracting management channels IAW the 

terms and conditions of their contract. 

(2) Contractor personnel have a different legal status than military members 

and DOD civilians. IAW recognized international agreements, contractor personnel 

identified as CAAF must be identified as such through the issuance of an appropriate 

identification (ID) card and letter of authorization (LOA); however, unlike other 

noncombatants, they should be afforded prisoner of war (POW) status when detained. 
Introduction 

I-13 

 (3) Discipline and Commander's Authority Challenges. Legal jurisdiction and 

commander’s authority over contractor personnel varies depending on contractor personnel 

nationality, CAAF or non-CAAF designations, operational specific policies, and the type 

and severity of the discipline infraction. Commanders and legal staffs at all levels need to 

be aware of current US law, DOD policy, and local directives related to contractor personnel 

discipline and commander’s authority related to CAAF and any non-CAAF contractor 

employee who requires temporary access to military facilities. 

(4) "Other duties as assigned" is not relevant to contractor personnel. 

Because contractor personnel are managed IAW their contract, they cannot be ordered to 

perform functions that are outside the scope of their contract. This can cause a lack of 

flexibility to the tactical-level commander when compared to utilizing military members for 

the same support function.

(5) Contractor management planning and procedures cross most primary 

and special staff functional lanes. Contractor management integration requirements run 

the gamut from establishing specific contractor personnel theater entrance standards to 

integrating contractor personnel into the local security programs. Detailed planning and 

mission specific contractor management procedural guidance is not the primary 

responsibility of the contracting officers or logistics staffs. The staff officer for each specific 

functional requirement (e.g., manpower and personnel directorate of a joint staff [J-1] for 

personnel service support, joint force surgeon for health service support requirements, 

operations directorate of a joint staff [J-3] for FP requirements) has overall responsibility for 

their specific portion of contractor management planning and execution. 

e. Contractor Management Process. The contractor management process is 

composed of five key steps: planning, predeployment actions, deployment and reception, 

in-theater management, and redeployment. 

(1) Planning for contractor personnel integration should be addressed in a 

separate contractor management plan (CMP) appendix or in appropriate sections of 

operation plans (OPLANs) and operation orders (OPORDs). The CMP should specify 

government furnished support (life support, transportation support, FP, etc.) when such 

support is required. It should also provide guidance on other key contractor management 

procedures such as incorporating in-theater contractor movements, the use of contracted 

security, and coordinating other government agency (OGA) contract support actions. 

(2) Predeployment actions include those actions taken by the government and the 

contract companies to ensure that CAAF are properly prepared to deploy in support of 

military operations. Predeployment actions include, but are not limited to, establishing 

appropriate contingency clause requirements in all appropriate contracts, establishing and 

promulgating specific theater entrance requirements and completing these theater entrance 

requirements prior to deployment. 

(3) Deployment and reception involves managing the flow of CAAF into the 

designated joint operations area (JOA), including establishment of joint reception centers 
Chapter I 

I-14 JP 4-10 

(JRCs) and procedures for contractor personnel entering the JOA. The process ends once 

the contractor personnel arrive at the contract site of performance. 

(4) In-theater management involves orchestrating and managing the provision of 

day-to-day support to CAAF, to include the enforcement of rules and regulations governing 

conduct of contractor personnel, processing of arming requests, and provision of 

government-provided support. This stage ends once CAAF redeploy out of the designated 

operational area. 

(5) Redeployment involves orchestrating the redeployment of the CAAF out of 

the designated JOA, once their period of performance ends. This stage may include 

transportation back to the point of entry, life support enroute to the point of entry, 

intelligence debriefings, medical surveillance, and retrieval of military issued ID cards and 

personal equipment. 
CHAPTER II 

ROLES AND RESPONSIBILITIES 

II-1 

1. Introduction 

This chapter outlines the roles, relationships, and responsibilities of DOD, joint, 

and Service commanders and staffs related to operational contract support. Planning 

and managing contracted support and its associated contractor personnel integration actions 

involves numerous command and staff elements. Understanding the roles and 

responsibilities of these organizations is critically important to all commands and staffs that 

may be involved with planning and managing contracted support and contractor 

management. 

2. Office of the Secretary of Defense 

a. Secretary of Defense (SecDef) operational contract support responsibilities fall into 

two general areas: those related to defense acquisition and those related to the assignment 

and attachment of the forces to the combatant organizations necessary to carry out joint 

operations. Contracted support and associated contractor management actions involve all 

levels of commands. SecDef is responsible for issuing directives, instructions, and 

executing oversight on the force apportionment process. In some cases, the Office of the 

Secretary of Defense (OSD) may be called upon to assist the supported GCC in resolving 

and/or providing guidance related to specific organization C2, legal, funding, or other 

contracting or contractor management operational issues. 

b. The Under Secretary of Defense for Acquisition, Technology, and Logistics 

(USD(AT&L)) serves as the Defense Acquisition Executive and has overall responsibility 

for the performance of the DOD Acquisition System, including establishing and publishing 

policies and procedures governing the operations of the DOD Acquisition System and the 

administrative oversight of defense contracts. While these responsibilities are more 

traditionally associated with oversight of systems acquisition, USD(AT&L) is also 

responsible to develop and oversee the implementation of DOD-level operational contract 

support policy. Assistants charged with carrying out related responsibilities include: 

(1) The Director, Defense Procurement and Acquisition Policy (DPAP)

oversees the development and administration of contracting policy and DFARS. Specific 

Director, DPAP responsibilities include: 

(a) Developing DOD contracting policy and issuing necessary directives for 

effective contingency contracting support to joint operations during contingency and crisis 

planning and during actual contingency operations. DPAP operationally focused 

"A lot of what we have done in terms of reducing the size of active and 

reserve component force structure means there's a greater reliance on 

contractors. And there's a lot of technology that requires contractor support." 

David McKiernan, Lieutenant General, 

Third Army Commander, Atlanta Constitution, 2003
Chapter II 

II-2 JP 4-10 

memoranda may include, but are not limited to, memoranda related to contracting authority, 

contract delegations, and coordinating relationships. 

(b) Leading and coordinating efforts of Military Department senior 

procurement executives, including actions related to GCC support. 

(c) Leading the Defense Emergency Procurement Committee (EPC). The 

EPC develops solutions to emergent procurement issues affecting the execution of 

contingency contracting in various contingencies. 

(d) Leading the Defense Acquisition Regulation (DAR) Council and 

associated working groups. The DAR council maintains the DFARS, including contingency 

related clauses, procedures, guidance, and information (PGI) and other language necessary 

to tie the contracting process to contingency support. The DAR Council members also 

participate in development of FAR language as part of the FAR Council and associated 

working groups. 

(e) Ensuring that DOD-level contingency contracting related issues requiring 

legislative relief are worked with Congress. 

(2) Deputy Under Secretary of Defense for Logistics and Material Readiness, 

through the Assistant Deputy Under Secretary of Defense (Program Support), is 

responsible for monitoring and managing the implementation contractor management 

policy. Specific responsibilities include: 

(a) Develop, promulgate, and administer DOD contractor management policy 

in the accordance with DODI 3020.41, Contractor Personnel Authorized to Accompany the 

US Armed Forces. This regulation provides overarching guidance and serves as a 

comprehensive source of DOD-level policies and procedures concerning the integration of 

CAAF into military operations. 

(b) In conjunction with Under Secretary of Defense for Personnel and 

Readiness (USD[P&R]), ensure that a joint web-based contract visibility and contractor 

accountability system is designated and implemented, along with procedures for its use. 

(c) Assist the supported CCDR in addressing issues and actions related to 

contractor management requirements and supporting contracting activities across DOD. 

c. USD(P&R) is the primary staff assistant and advisor to SecDef for total force 

management. USD(P&R) is responsible for policy, plans, and program development for the 

total force, which includes military, DOD civilian, and DOD contractor personnel. 

Responsibilities relevant to contractor personnel management include: 

(1) In coordination with USD(AT&L), establish the central repository for CAAF 

accountability information. 
Roles and Responsibilities 

II-3 

(2) Develop, promulgate, and administer DOD ID policy and procedures to 

include specific guidance on ID issuance to CAAF personnel. 

(3) Establish and issue guidance IAW DODI 1100.4, Guidance for Manpower 

Management, and DODD 1100.22, Guidance for Determining Workforce Mix, to be used by 

all DOD components regarding manpower management, including manpower mix criteria, 

to ensure that contracted services are not inherently governmental or inherently military or 

otherwise unsuitable or not allowed for commercial performance. 

d. The Under Secretary of Defense for Intelligence is responsible for developing and 

implementing, as required, procedures for counterintelligence (CI) and security screenings 

of contingency contractor personnel and assisting in drafting appropriate contract clauses for 

CI briefings and debriefings, in coordination with (ICW) the USD(AT&L). 

e. The Assistant Secretary of Defense for Health Affairs is responsible for 

developing and implementing, as required, policies and procedures for medical preparation, 

screening, and base-line health service support requirements of contractor personnel 

operating in support of contingency operations. 

f. The Deputy Assistant Secretary of Defense, Defense POW/Missing Personnel 

Office (DPMO) is designated as the office of primary responsibility by the Assistant 

Secretary of Defense for Global Security Affairs for PR policy and oversight. As the DOD 

lead for PR, DPMO is responsible for the coordination among the Services, the Joint Staff 

(JS), the Unified and Combatant Commands, and with all other departments and agencies of 

the USG on all matters concerning the isolation of CAAF (and any non-CAAF specifically 

designated by the GCC or subordinate JFC) from friendly control. DPMO also has the 

following specific responsibilities: 

(1) Account for those CAAF who remain missing when PR efforts have been 

deemed no longer feasible. 

 

(2) Track circumstances of loss; monitor efforts to locate support, recover CAAF 

isolated from friendly control, and oversee the reintegration of CAAF. 

(3) Oversee the implementation of the Missing Service Personnel Act (MSPA) to 

include investigation of circumstances surrounding the missing (currently and post-conflict), 

staff recommendations to the Under Secretary of Defense for Policy that missing CAAF are 

covered under the MSPA, and Service Chiefs of concern follow through with assignment of 

a binding status, and lead efforts that would ultimately result in the recovery and return of 

human remains. 

g. The Office of General Counsel provides advice to the SecDef and Deputy 

Secretary of Defense regarding all legal matters and services performed within, or involving, 

the DOD and legal advice to OSD organizations and, as appropriate, other DOD 

components. Responsibilities pertinent to operational contract support include: 
Chapter II 

II-4 JP 4-10 

(1) Provide advice on legal matters, including law of war, military justice, and 

standards of conduct for civilians authorized to accompany the force. 

(2) Provide legal review and positions related to FAR and DFARS language. 

(3) Coordinate DOD positions on legislation and executive orders. 

(4) Provide for the coordination of significant legal issues, including litigation 

involving the DOD and other matters before the Department of Justice in which DOD has 

an interest. 

(5) Determine the DOD positions on specific legal problems and resolve 

disagreements within the DOD on such matters. 

(6) Act as lead counsel for DOD in all international negotiations conducted by 

OSD organizations. 

(7) Maintain the central repository for all international agreements (e.g., 

acquisition and cross-servicing agreements [ACSAs] and status-of-forces agreements 

[SOFAs]) coordinated or negotiated by DOD personnel. 

3. Chairman of the Joint Chiefs of Staff 

a. The Chairman of the Joint Chiefs of Staff (CJCS), as the principal military 

advisor to the President and the SecDef, has specific responsibilities in the areas of strategic 

direction as well as in strategic and contingency planning. CJCS and principal staff 

responsibilities related to contracting support and contractor management is described 

below. 

b. The Joint Staff J-1 establishes the manpower management, personnel support, and 

personnel service support policies and procedures for the total force (military, DOD civilian, 

and DOD contractor) during joint operations and administers oversight of joint personnel 

issues affecting the force. This includes coordinating manpower and personnel support to 

combatant commanders to ensure success in operations. Key responsibilities are to: 

(1) Assist the USD(P&R), USD(AT&L), and Joint Staff Logistics Directorate (J4) in achieving resolution of personnel service support issues relating to CAAF in joint 

operations. 

(2) Establish policy for the accountability of CAAF on the joint personnel status 

report. 

(3) Provide total force strength data and casualty reporting of personnel in a 

GCC’s area of responsibility (AOR) to CJCS for situational awareness. 
Roles and Responsibilities 

II-5 

(4) Provide input, if deemed appropriate by JS J-1, to Joint Staff Operational 

Plans and Joint Force Development Directorate (J-7), on the integration of personnel service 

support for CAAF in the CJCS Exercise Program. 

(5) Coordinate military CAAF deployment actions in support of joint operations 

to include CAAF documented on a validated joint manning document (JMD). 

c. The Joint Staff J-2. The primary role of the JS J-2 in contracting support is to 

communicate policy originating from the Under Secretary of Defense for Intelligence to the 

combatant commands. The JS J-2 establishes procedures through joint doctrine for 

combatant commands to ensure proper vetting, for intelligence, CI, and FP purposes, of 

locally employed persons contracted by US forces to support US and coalition efforts. 

(1) In general, the JS J-2 is responsible for overseeing the activities of the 

combatant commands, to include the effectiveness of CI support, integrating that support 

into strategic and joint plans. 

(2) The JS J-2 CI provides joint CI staff planning support to the CJCS. They 

review the CI component of combatant command war plans and contingency operations for 

the JS J-2. They perform requirements management duties at the DOD level for external CI 

requirements identified by the counterintelligence support office (CISO) during combatant 

command mission analysis of contingency plans. 

For more information on CI responsibilities and activities, see Joint Publication (JP) 2-

01.2, Counterintelligence and Human Intelligence Support to Joint Operations, (classified).

d. The Joint Staff J-3 develops and provides guidance to the combatant commands 

regarding current operations and plans, including: 

(1) Ensuring contracted support and associated contractor integration requirements 

are addressed in the JOPES policy and execution. 

(2) Providing the CJCS with recommended rules for the use of force (RUF) by 

private security contractors and contractor personnel armed for personal protection, in 

support of joint operations. 

e. The Joint Staff J-4 provides plans, policy, guidance, and oversight on joint 

logistics, including joint contingency operational contract support matters. Specific 

responsibilities include: 

(1) Develop and promulgate operational contract support planning policy. 

(2) Facilitate communication of operational contract-related matters through 

routine meetings and communications with the joint community of interest. 
Chapter II 

II-6 JP 4-10 

(3) Participate in USD(AT&L), DPAP and Assistant Deputy Under Secretary of 

Defense (Program Support)-led working groups and other OSD-led actions affecting joint 

contingency contracting and contractor management. 

(4) Participate in DAR Council working groups in the development of contract 

language and clauses in the FAR and DFARS. 

(5) Participate in various joint and multinational joint contingency contracting and 

contractor management working groups and share lessons learned. 

(6) In coordination with the CCDRs, the Military Departments, and the DOD 

combat support agencies, help facilitate OSD efforts to develop and implement CAAF 

accountability policy, procedures, and materiel solutions. 

(7) Facilitate OSD efforts to implement contractor management related policy 

within the Military Departments, CCDRs, and DOD agencies. 

(8) Facilitate efforts to incorporate joint contingency contracting and contractor 

management related content into joint professional military education (JPME) and CJCS 

exercises. 

(9) Ensure operational contract support is incorporated into the CCDR OPLANs. 

f. The Joint Staff J-5

(1) Ensure operational contract support policies and procedures are included in 

overarching policy documents to facilitate military operations. 

(2) Ensure CAAF are included into the planning policies for deployment and 

redeployment (e.g., if applicable, included into the time-phased force and deployment data 

[TPFDD]). 

g. The Joint Staff J-6. Joint Community Warfighter Chief Information Officer 

provides advice and recommendations on information technology and national security 

systems matters to the CJCS including technical support to the J-3 and J-4 for assessment of 

communications requirements in combatant command plans that require contracted support. 

h. The Joint Staff J-7 mission is to enhance joint force development and 

transformation initiatives through war plans, doctrine, education, training, exercises, concept 

development, capabilities-based planning, and assessment of each through observation of 

combatant command and CJCS experimentation, joint exercises, and real-world operations. 

Pertinent responsibilities include integration of contractor management related collective 

training requirements for Joint Chiefs of Staff exercises and JPME programs. 
Roles and Responsibilities 

II-7 

i. The Joint Staff Legal Counsel provides legal advice and guidance to the CJCS and 

other members of the Joint Staff and the combatant commands, as directed. Specific 

operational contract support responsibilities include: 

(1) Reviewing and coordinating policy, plans, and other guidance. 

(2) Participating in related working groups. 

(3) Maintaining strategic awareness on evolving issues affecting joint contingency 

contracting and the integration of CAAF in joint operations. 

(4) Providing legal review of the operational contract support aspects of joint force 

operations OPORDs, fragmentary orders (FRAGORDs), and OPLANs. 

4. Military Departments

a. The Secretaries of the Military Departments are responsible for the 

administration and support of the forces assigned or attached to combatant 

commands. One way that they fulfill their responsibilities is by augmenting military 

support capabilities with contracted support through their respective Service component 

commands assigned to the combatant commands. The Military Departments exercise 

contracting authority and responsibilities codified under US laws, the FAR, DOD policy, 

CJCS policy, as well as joint and Service doctrine. 

b. The Army, Marine Corps, Navy, and Air Force (under their respective 

Secretaries) are responsible for planning and executing contracting support to their 

own forces unless directed otherwise by a CCDR as described in Chapter III, 

“Contract Support Integration.” Specific Military Department roles and responsibilities 

include: 

(1) Ensure operational contract support requirements are identified and integrated 

into OPLANs. 

(2) Ensure contractor management plans are incorporated into OPLANs. 

(3) Ensure contracting requirements are captured and translated into draft 

statements of work with well defined performance parameters. 

(4) Develop and publish contract support integration plans to synchronize 

contracted support. Analyze existing and projected theater and external support contracts to 

minimize redundant and overlapping contracts and maximize economies of effort and scale 

to improve operational unity of effort. 

(5) Ensure contracted support to other services, DOD agencies, multinational 

partners, and OGA are addressed and priorities of effort for resources are de-conflicted and 

synchronized. 
Chapter II 

II-8 JP 4-10 

(6) Ensure contracted support movement (regardless if provided by the 

government or the contractor) in support of an operation is incorporated into OPLAN 

TPFDD. 

(7) Develop contingency plans to ensure continuation of essential contractor 

services. 

(8) Enforce established theater and/or JOA CAAF admission procedures and 

requirements, including country and theater clearance, waiver authority, immunizations, 

required training or equipment, and any restrictions necessary to ensure proper deployment, 

visibility, security, accountability, and redeployment of CAAF personnel deploying to their 

AOR. 

(9) Integrate identified contract requirements into training simulations, mission 

rehearsals, and exercises. 

(10) Ensure military personnel outside the acquisition workforce who are 

expected to have acquisition responsibility, including oversight duties associated with 

contracts or contractors, during combat operations, post-conflict operations, and contingency 

operations are properly trained. 

(11) Ensure contract oversight management processes and manpower 

requirements to execute oversight are adequately incorporated into OPLANs. 

(12) Collect and distribute operational contract support lessons learned. 

(13) Determine the COR requirements and required qualifications and ensure that 

CORs are properly trained and certified. 

(14) When required, delegate HCA authority as directed by one of the established 

contracting activities within the various military services. 

5. Combatant Commanders and Subordinate Joint Force Commanders 

a. Supported CCDRs play a key role in determining and synchronizing contracted 

support requirements, contracting planning as well as execution of operational contract 

support oversight. The supported CCDR must work very closely with the appropriate 

subordinate JFCs, functional combatant commands, Service components, and DOD combat 

support agencies to determine operational contract support requirements, policies, and 

procedures. Supported CCDRs’ specific contracting support and contractor management 

roles and responsibilities include, but are not limited to: 

(1) Developing and publishing applicable regulations, instructions, and directives 

for the conduct of efficient and effective synchronization of operational contract support. 

(2) Developing a CSIP as part of every OPLAN or OPORD that includes specific 

contract support integration related organizational guidance and lead Service or joint theater 

support contracting command responsibilities as applicable. 
Roles and Responsibilities 

II-9 

(3) Establishing, manning, and executing appropriate operational contract support 

related boards, centers, and working groups. 

(4) Developing and promulgating contractor management plans to include theater 

entrance requirements for all CAAF to include specific delineation of the differences 

between US citizens and non-US citizens in government furnished support standards. 

(5) Integrating and controlling the deployment of CAAF and contractor 

equipment. 

(6) Planning and managing CAAF government furnished support requirements. 

(7) In coordination with the Joint Staff, reviewing, developing, and promulgating 

predeployment training standards for CAAF. 

b. The subordinate JFC, a subunified command, or joint task force commander

play a key role in determining specific contracted support requirements, contracting 

planning, as well as execution of operational contract support oversight within a specified 

operational area. Working very closely with the Service components and other elements of 

the joint force, the subordinate JFC’s specific contract support roles and responsibilities 

include, but are not limited to: 

(1) Determining contracted support and integration requirements across the joint 

force to include DOD agencies, multinational partners, and OGAs. 

(2) Determining and promulgating CCDR approved operational contract support 

related organizational guidance in the appropriate OPLAN, OPORD, or FRAGORD. 

(3) Developing and promulgating CSIPs as required with focus on maximizing 

effectiveness of support via unity of effort. 

(4) Establishing and enforcing priorities of contract support across the joint force, 

multinational partners, and OGAs. 

(5) Developing and promulgating specific operational CAAF related requirements 

if not already covered by GCC policy, directives, and orders. 

(6) Developing and enforcing operational specific contractor management 

requirements, directives, and procedures into a separate contractor management appendix to 

annex W and/or the appropriate section of the appropriate OPLAN, OPORD or FRAGORD. 

(7) Ensuring contractor personnel receive necessary government furnished support 

as required by operational conditions and that this support is properly coordinated between 

the component commands. 
Chapter II 

II-10 JP 4-10 

c. The functional combatant commanders and their staffs play a limited role in 

planning and managing operational contract support in support of military operations. 

(1) USSOCOM forces have their own theater support contracting authority and 

capabilities, but will still often request CUL related contracting support from the lead 

Service or joint theater support contracting organization. In all operations, USSOCOM and 

supported JFC contracting efforts must be closely coordinated. 

(2) US TRANSCOM also has its own contracting authority. USTRANSCOM 

contracted support generally involves strategic transportation contracts which have an area 

of performance outside the operational area; however, in some cases this support may be 

partially executed in the operational area. In these situations, USTRANSCOM is 

responsible to coordinate with the supported GCC as required. Additionally, 

USTRANSCOM's surface component command, the Surface Deployment and Distribution 

Command (SDDC), may be designated as the port manager and/or operator within an 

operational area. When so designated, SDDC will depend on the Army Service component 

command or lead Service component responsible for contracting support to assist them in 

procuring stevedore support via theater support contracts in support of port operations. 

(3) US Joint Forces Command is responsible for examining evolving operational 

contract support issues in the appropriate concept, experimentation, and doctrine 

development actions. They are also responsible to ensure that key joint operational contract 

support challenges are incorporated into joint training venues as deemed appropriate. 

6. Service Component Commands 

The Army, Marine Corps, Navy, and Air Force Service component commands are 

responsible for planning and executing contracting support IAW the guidance 

received from their respective Military Departments and supported JFC. Specific 

operational contract support related Service component roles and responsibilities include, 

but are not limited to: 

a. Unless otherwise directed, providing HCA over Service theater support contracting 

organizations within their operational area. 

b. Executing or supporting lead Service contracting responsibilities as directed. 

c. Analyzing existing and projected Service theater support and DOD-wide external 

support contracts in order to reduce any redundancy and maximize economy of effort. 

d. Enforcing JFC established priorities of contract support across the joint force, 

multinational partners, and OGAs. 

e. Determining operational specific contracting and contract management personnel 

force requirements and capturing these requirements in Service component CSIPs, per JFC 

guidance. 
Roles and Responsibilities 

II-11 

f. Ensuring funds are available to support contract requirements. 

g. Developing and enforcing policies and directives that are based on JFC and military 

Service guidance. 

h. Ensuring all CAAF meet specific theater entrance requirements prior to deployment 

to the operational area. 

i. Ensuring all CAAF and their associated equipment are properly incorporated into 

deployment plans regardless if this deployment is via military means or self-supported. 

j. Ensuring subordinate units are prepared to execute operational contract support 

responsibilities to include developing “acquisition ready” requirements packages consisting 

of PWSs, IGEs, and other contract related documents as necessary and by providing trained 

CORs as required. 

k. Executing operational specific collective and individual contract support integration 

and contract management training requirements. 

l. Developing contingency plans to ensure continuation of essential contractor services, 

per DOD policy. 

m. Collecting and distributing operational contract support lessons learned to the 

appropriate Service lessons learned program. 

7. Functional Component Commands 

In general, the air, land, and maritime functional component commands (if established) 

are not directly responsible for operational contract support actions. Contracting support is a 

Service Title 10 USC, responsibility that normally falls under the auspices of the Service 

component commands and this authority is not normally transferred to joint air, land, or 

maritime functional commands. 

See JP 1, Doctrine for the Armed Forces of the United States, Chapter V, “Doctrine for Joint 

Commands”, for more information on joint functional component commands. 

8. Department of Defense Agencies

a. The Defense Logistics Agency is the DOD combat support agency responsible for 

providing effective and efficient worldwide logistics support to Military Departments and 

the combatant commands under conditions of peace and war, as well as to other DOD 

components and federal agencies, and when authorized by law, state and local government 

organizations, foreign governments and intergovernmental organizations (IGOs). The DLA 

Director reports to the USD(AT&L) through the Deputy Under Secretary of Defense for 

Logistics and Materiel Readiness. DLA also has its own contracting authority and can 

provide supply and service contracting during contingency operations. 
Chapter II 

II-12 JP 4-10 

Appendix D, “Defense Logistics Agency Contingency Contracting Functions and 

Capabilities”, provides more details on the capabilities and deployed organizational 

structure of DLA. 

b. The Defense Contract Management Agency (DCMA) is the combat support 

agency responsible for ensuring major DOD acquisition programs (systems, supplies, and 

services) are delivered on time, within projected cost or price, and meet performance 

requirements. DCMA’s major role and responsibilities in contingency operations is to 

provide CCAS for delegated external support contracts and for selected weapons systems 

support contracts with place of performance in the operational area and theater support 

contracts when CCAS is delegated by the PCO. 

Appendix D, “Defense Contract Management Agency Contingency Functions and 

Capabilities” provides more details on the capabilities and deployed organizational 

structure of DCMA. 

c. The Defense Contract Audit Agency (DCAA) is a defense agency under the 

authority, direction, and control of the Under Secretary of Defense (Comptroller). DCAA is 

responsible for performing all contract audits for the DOD, and providing accounting and 

financial advisory services regarding contracts and subcontracts to all DOD components 

responsible for procurement and contract administration. These services are provided in 

connection with negotiation, administration, and settlement of contracts and subcontracts. 

DCAA also provides contract audit services to OGAs on a reimbursable basis. DCAA’s 

services are provided under contingency contracting situations, both in support of military 

operations and during a national emergency. DCAA personnel can be deployed, as 

circumstances warrant, to the operational area. DCAA on site auditors are responsible to 

identify practices needing improvement on a real-time basis and recommend cost avoidance 

opportunities to selected contingency contracts. 
CHAPTER III 

CONTRACT SUPPORT INTEGRATION

III-1 

1. Overview

This chapter provides an overview of contract support integration planning and 

execution across the range of military operations. It provides the GCC, subordinate JFC, 

Military Department components, and other members of the joint force important 

information on contracting authorities, acquisition processes, types of contracted support, 

and contracting support planning, along with significant discussion on in-theater contracting 

organizational structure. It also provides guidance on special contract support related 

challenges to include multinational, interagency, reconstruction, and homeland security 

operations. 

a. Contracting for supplies and services in support of military operations is a force 

multiplier. Contracting is commonly used to augment organic military and other sources of 

support such as multinational logistic support, HNS, and to provide support where no 

organic capability exists, but contracting is often not properly planned for or integrated into 

the overall joint force logistic support effort. Contracting support capabilities should be 

considered when needed to augment organic support capabilities and in situations where 

ACSAs or HNS agreements do not exist or when these agreements cannot provide sufficient 

supplies or services. 

b. Determining the appropriate source of CUL support and priorities of this 

support is not a contracting function. The supported GCC must ensure that there is a joint 

acquisition review board (JARB) or JARB-like process in place at the appropriate level 

(normally at the subunified command or joint task force (JTF) level) to determine the basic 

source of support and priority of CUL requirements. The joint force must be aware of the 

considerable challenges that exist to successfully execute a contract when contracted support 

is determined to be the only source of acquisition. When the decision is made to pursue 

contracted support, there are considerable challenges associated with planning and 

execution. These challenges include, but are not limited to: developing a complete 

requirements package, coordinating the overall contracting effort, executing the effort IAW 

federal law and regulation, and ensuring adequate in-theater contract oversight and 

management. 

See paragraph 3 along with Appendix G, “Requirements Development and Acquisition 

Review Processes”, for more information on the overall acquisition process. 

(1) Centralized Control and Decentralized Execution. Contracting operates 

under two premises: centralized control (or at least coordination) and decentralized 

“The role of federal contractors has been expanding in the areas of front-line 

and near front-line support for the United States military and other government 

agencies. Both the war with Iraq and the ongoing war on terrorism have 

increased the demand for the services of contractors in so-called "hot zones,..." 

Various Sources
Chapter III 

III-2 JP 4-10 

execution. Centralized control can either be accomplished by mandating local procurement 

procedures through subordinate JFC contracting boards and/or through the designation of a 

lead Service or joint theater support contracting command. The decentralized execution 

premise is accomplished through the procurement authority vested in the contracting officer 

to exercise business judgment in the execution of the contracting mission. The FAR, 

DFARS, and local procurement policies may also mandate reviews of certain contractual 

actions prior to the contracting officer signature. 

(2) Coordination. The supported GCC and subordinate JFC are responsible for 

properly synchronizing and coordinating all of the different contracting support actions 

being planned for and executed in the operational area. It is very important that contracting 

efforts are properly coordinated with all subordinate commands and DOD agencies, as well 

as applicable multinational, OGAs, IGOs, and nongovernmental organizations (NGOs). 

This coordination is necessary in order to prevent undue competition for the same limited 

commercial resources in the operational area. Coordination also provides the JFC the ability 

to enforce priorities and control common logistic support efforts and maximize the use 

and/or utility of the limited contracting force. 

(3) Federal Law and Regulation. The GCC, subordinate JFCs, and their staffs 

must be cognizant of the fact that contracted support for any military operation is planned 

for and executed IAW federal law and the FAR. Although the contracting officers have 

wide latitude to exercise business judgment to accomplish their mission, they do not 

have authority to deviate from statutory requirements. 

(4) In-theater Contract Management. The GCC, subordinate JFCs, and 

supporting commanders must understand that contracting is not a “fire and forget” 

process. Contracting support to military operations requires significant planning and 

management efforts from the contracting staff, the requiring activity, and supporting 

activities. The JFC and component commanders must ensure that the requiring activities are 

properly trained and actively participate in the requirements generation and validation 

process. Requiring activities typically provide personnel to serve as contracting officer 

appointed representatives. These personnel require formal, requisite training in order to 

serve as ordering officials, FOOs, government purchase card (GPC) holders, or CORs. 

Ordering officials will be trained and certified to make individual orders from blanket 

purchase agreements. FOOs are individuals authorized to make micro-purchases for 

construction, supplies, and services using the SF-44. The actual dollar limits for these items 

may change, but is generally limited to micro-purchase threshold amounts specified in the 

FAR. For service-type contracts, the JFC and component commanders must ensure that all 

supported units have sufficient number of certified COR personnel available to monitor 

contractor performance. Additional non-COR support, such as personnel to perform 

security checks and/or escort the contractors, may also be required. For cost plus contracts, 

there is also a periodic need to revalidate requirements and ensure that the contractor is 

operating efficiently. Without proper command involvement and contract management 

capabilities in place, the JFC is likely to experience significantly increased operational costs, 

and more importantly, possible loss of operational effectiveness and increased security risks. 
 Contract Support Integration 

III-3 

2. Contracting Authority Versus Command Authority

Contracting authority is not the same as command authority. Contracting authority is 

the legal authority to enter into binding contracts and obligate funds for the USG, while 

command includes the authority and responsibility for effectively using available resources 

and for planning the employment of, organizing, directing, coordinating, and controlling 

military forces for the accomplishment of assigned missions. Command authority does not 

include the authority to obligate funds or enter into contracts on behalf of the government. 

CONTRACTING IN OPERATION IRAQI FREEDOM 

During 2004-2005 rotation to Operation IRAQI FREEDOM, the 1st Aviation 

Brigade, 4th Infantry Division had a requirement to renovate a building on 

forward operating base (FOB) Taji. In order to get this project approved 

by the joint acquisition review board (JARB) and joint facilities utilization 

board (JFUB), they were required by established joint force commander 

policy to develop a performance work statement (PWS) and independent 

government estimate (IGE). Since they had no engineering expertise on 

staff, they requested assistance from the designated FOB engineering 

office, the Air Force Red Horse Engineering Detachment, to assist in 

developing these documents. Once this was accomplished, the unit 

submitted the IGE, an approved DA 3953 purchase request and 

commitment form, and a letter of justification to the JARB and JFUB. 

Once approved, the packet was sent to Joint Contracting CommandIraq/Afghanistan, which assigned it to the regional contracting center 

(RCC) located at FOB Taji. A contracting officer within RCC Taji was 

assigned and then prepared the solicitation, compared bids, awarded the 

contract to a local vendor, and issued a notice to proceed. Once the 

contract was awarded, the local vendor had 30 days to complete all work 

not including Friday "Holy Days" and any delays caused by the 

government. Since this was a service contract, RCC Taji required the 

unit to provide a contracting officer representative to ensure work was 

completed in accordance with the PWS. Additionally, since the vendor 

and his employees were local nationals, the unit was required to provide 

an armed escort for these employees for the entire period of 

performance. In accordance with FOB Taji security policy, this particular 

contract required one armed unit guard for every ten local national 

personnel. This particular contract had between 12 and 18 employees 

working on the building each day. The armed escort had to meet the 

vendor at the FOB gate to process them onto the base, escort them to the 

work site, guard them through the workday and then escort them off the 

FOB not later than 1700hrs each day. Once the work was complete and 

accepted by the RCC, the unit was responsible to escort the vendor to 

finance to receive his payment. The renovation took approximately 70 

days to complete from the time of identification of the requirement to 

time of completion of the work. 

SOURCE: Contracting Officer, Taji Regional Contracting Center 
Chapter III 

III-4 JP 4-10 

Hence, these two different authorities must be closely coordinated to ensure effective and 

efficient contracted support to the joint force. 

a. Contracting Authority. A unique aspect of contracting support is that only the 

contracting officer has the authority to obligate the USG. This authority to acquire supplies 

and services for the government comes from three sources: the US Constitution; statutory 

authority; and finally, regulatory authority from the FAR, DFARS, and Military Department 

supplements. Contracting authority in the operational area flows from Congress to the 

President, then to the SecDef, through the Service/agency head, to the HCA, then to the 

SCO, and finally to the contracting officer. This contracting authority is explicitly 

documented via the contracting officer’s warrant. A warrant is the document that authorizes 

a contracting officer to obligate the government to expend funds for contracted support 

requirements. Any restrictions on a contracting officer’s authority to purchase items will be 

explicitly stated on the warrant. The most common restriction is placed on the maximum 

amount a contracting officer is authorized to obligate per contract award. Another common 

restriction limits the types of contracts a contracting officer is authorized to award. 

Contingency contracting authority resides in all Military Departments, USSOCOM, and the 

DOD combat support agencies, such as DLA. For classified requirements, the contracting 

officer and CORs may be required to have a security clearance. 

b. Command Authority. Combatant command (command authority), prescribed in 

Title 10 USC, Section 164, includes the authority to perform functions involving organizing 

and employing commands and forces, assigning tasks and designating objectives, and giving 

authoritative direction over all aspects of an operation; it does not include authority to 

make binding contracts for the USG. Only the contracting officer, by virtue of their 

contracting warrant, has the contracting authority to obligate the USG on contractual 

matters. Contingency contracting authority flows to the contracting officer through the 

Service, DLA, DCMA, and USSOCOM HCAs. It is also important to note that GCCs 

do not have their own contracting authority. The GCCs direct and coordinate 

contingency contracting support through their subordinate Service components, 

USSOCOM, and deployed combat support agency organizations. 

c. Command and Control of Contracting Organizations. Due to the unique nature 

of contracting authority, established C2 relationships, as defined in JP 1, Doctrine for the 

Armed Forces of the United States, are not easily applied to contracting units. In general, 

joint or lead Service C2 over contracting forces outside normal Service C2 lines only applies 

to theater support contracting organizations. C2 of theater support contracting organizations 

is discussed in detail in Paragraph 6. 

d. Avoiding Undue Command Influence. Commanders at all levels must take care 

to avoid improper command influence, or its appearance, on the contracting process. The 

contracting officer must be able to independently exercise sound, unbiased business 

judgment and contract oversight in the accomplishment of the contracting mission. 

Contracting officers can only fulfill their responsibilities for safeguarding the interests of the 

USG in its contractual relationships through functional independence from the requiring 

activity, allowing them to properly execute their business judgment in the formation, 
 Contract Support Integration 

III-5 

negotiation, award, and administration of contracts. Subordinate JFCs and Service 

component commanders must ensure that requirements personnel only have influence on the 

requirements definition and in no way influence the contracting officer’s contract award 

decision. If there is a valid, certified operational need to direct contracts to specific 

commercial sources, such as in stability operations where the JFC needs to balance civilmilitary impacts and cost-effectiveness of specific contracts, the contingency HCA is 

responsible for developing policies to implement this aspect of the OPLAN with appropriate 

contracting procedures IAW federal law and the FAR. 

3. The Acquisition Process and Contracting Related Boards 

a. It is very important that all CUL support be properly coordinated by the supported 

GCC and subordinate JFC to include contracting; however, determining the appropriate 

source of CUL support and establishing priorities of this support is not a contracting 

function. The supported GCCs have directive authority for logistics, which includes 

the authority to issue directives to subordinate commanders, including peacetime 

measures necessary to ensure the following: effective execution of approved OPLANs; 

IMPROPER COMMAND INFLUENCE 

During 2006 Operation IRAQI FREEDOM, a regional contracting office 

(RCO) was busy processing multiple contracting requests from 

numerous units in northern Iraq. Due to the limited staffing within the 

RCO, procedures were established to ensure that unit contracting 

requests were prioritized and processed in accordance with established 

joint force commander guidance. It was not uncommon for the regional 

contracting center (RCC) staff to have discussions with supported unit 

personnel on how they handled competing requests and why they could 

not deviate from established contracting priorities and procedures. In 

this case, a mid-level commander approached one of his assigned 

contracting officers working in the RCO with a funded purchase request 

for general labor and stated that he wanted a sole source contract with 

one of the local vendors. After the contracting officer told the 

commander that there was no valid justification for a sole source 

contract, the commander threatened that this finding could negatively 

affect the contracting officer's future job performance rating. 

Immediately, the contracting officer notified the chief of RCC of the 

situation. Further discussion followed between the RCC chief and the 

commander on the legal aspects and operational reasons why 

contracting officers must be shielded from improper command influence 

on business decisions. Later, it was discovered the commander made an 

unauthorized commitment with the vendor to go sole source. Soon 

afterwards, a contract ratification was initiated against this commander 

for an amount of $6,000. 

SOURCE: Interview with RCC chief
Chapter III 

III-6 JP 4-10 

effectiveness and economy of operation; and prevention or elimination of unnecessary 

duplication of facilities and overlapping of functions among the Service component 

commands. In order to provide the subordinate JFC the ability to enforce priorities and 

control CUL support efforts, the supported GCC should strongly consider directing the 

establishment of three critically important contracting related review boards: the combatant 

commander logistic procurement support board (CLPSB), the JARB, and the joint 

contracting support board (JCSB). The establishment and membership of these boards will 

be dependent on the size and duration of the operation as well as other operational factors. 

In some instances, these boards may be combined. See Figure III-1. 

b. The CLPSB is established to ensure that contracting and other related logistics 

efforts are properly coordinated across the entire AOR. This board is normally chaired 

by a GCC J-4 representative and includes representatives from each Service component 

command, combat support agency, as well as other military and USG agencies or 

organizations concerned with contracting matters. 

c. The JARB is a joint acquisition review board, not a contracting board. The 

JARB is utilized to coordinate and control the requirements generation and prioritization of 

joint CUL supplies and services that are needed in support of the operational mission and is 

normally chaired by the subordinate JFC (either subunified command or JTF-level) or 

deputy commander or J-4. The JARB's main role is to make specific approval and 

prioritization recommendations for all GCC directed, subordinate JFC controlled, 

high-value and/or high-visibility CUL requirements and to include recommendations 

on the proper source of support for these requirements. The normal priority of CUL 

source of support include: lead Service organic military sources, multinational support, 

HNS, multinational military support, theater support contracts along with external support 

contracts such as the Military Department CAPs and DLA prime vendor contracts. The 

JARB is normally made up of representatives of the Service component logistic staffs, 

special operations forces (SOF) component staff, DLA, DCMA, joint force engineer, J-6, 

joint force comptroller, staff judge advocate (SJA), and other JFC staff members as directed. 

It also should include representatives from designated theater support and external support 

contracting organizations. The theater support and external support contracting members’ 

main role in the JARB process is to inform the other JARB members which contracting 

mechanisms are readily available for their particular acquisition to include limits of the local 

vendor base for each type of support. This would facilitate the decision to use either 

external support contracts or theater support contracting assets. 

d. The JCSB is established in order to coordinate and deconflict contracting 

actions within the JOA. The JCSB reviews contract support requirement forwarded by

the JARB and makes recommendations on which specific contracting organizations/contract 

venues are best suited to fulfill the requirements. The JCSB is normally chaired by the 

subordinate J-4 acquisition officer or SCO. It is made up of representatives from the Service 

theater and external support contracting organizations (to include facility/engineering 

contracting), DCMA along with DLA, and SOF component contracting representatives. 

This process requires adequate visibility of CUL related contracting capabilities within the 

operational area, which can be a significant challenge. It is through this JCSB that the J-4 
 Contract Support Integration 

III-7 

ensures a coordinated contracting support effort across the entire operational area. The goal 

of the JCSB is to maximize the contracting capabilities of the JOA while minimizing 

the competition for limited vendor capabilities. It also establishes specific theater and 

external support contracting procedures and reporting requirements. While the CLPSB and 

MAJOR FUNCTIONS OF CONTRACTING RELATED BOARDS

AOR area of responsibility

CLPSB combatant commander logistic 

procurement support board

DOD Department of Defense

CCDR combatant commander

CUL common user logistics

DODI Department of Defense instruction

HNS host-nation support

IAW in accordance with

JARB joint acquisition review board

JCSB joint contracting support board

JFC joint force commander

JOA joint operations area

LEGEND

CLPSB JARB JCSB

Focus on 

contracting support (CCDR 

level)

general policies and 

AOR-wide issues related to

Focus on " " are 

requirements priorities and 

source of support (subordinate 

JFC level)

what Focus on " " contracting 

will procure support within the 

JOA (subordinate JFC level)

how

z

z

z

z

z

Identify contracting and 

other related issues that 

may require Joint Staff 

Office of Primary 

Responsibility, J-4 and/or 

OSD action.

Establishing AOR-wide 

contracting and contractor 

management policies and 

procedures.

Determining theater 

support contracting 

organizational structure.

Coordinating with US 

Embassies and host 

nations on contracting 

support issues and actions 

(HNS, status-of-forces 

agreements, visa 

requirements, etc.)

Coordinate with DOD and 

Military Departments on 

potential loss of contract 

support and risk 

management of same IAW 

DODI 3020.37 

"Continuation of Essential 

DOD Contractor Services 

During Crisis.”

z

z

z

z

Determine what CUL 

support needs to be 

controlled 

Review requirements

Recommend priority of 

support requests

Recommend an 

acquisition methodology 

to be used to meet the 

requirement (e.g., organic 

military, HNS, multinational support, or 

contracted support)

z

z

z

z

z

z

z

z

Eliminate duplication of 

effort by coordinating 

theater support and 

external support 

contracting actions

 Determine appropriate 

external or theater support 

contracting mechanism

Provide an exchange of 

information among 

contracting activities 

covering such matters as 

sources of supply, prices, 

and contractor 

performance

Provide guidance on 

consolidation of 

purchases

Establish theater support 

contracting procedures

 Prescribe payment 

procedures consistent 

with currency-control 

requirements and 

international agreement

Establishing contract 

visibility procedures and 

reports

Coordinate the 

enforcement of contractor 

management policies for 

external support and 

theater support contracts.

Figure III-1. Major Functions of Contracting Related Boards
Chapter III 

III-8 JP 4-10 

JCSB perform similar functions; the CLPSB coordinates general acquisition policy and 

addresses major contracting related issues across the AOR, while the JCSB is more focused 

on coordinating day-to-day contracting support within a specific JOA. 

See Appendix G, “Requirements Development and Acquisition Review Processes,” for more 

details on the acquisition process. Also see JP 4-0, Joint Logistics Support, for more 

detailed discussion on joint logistic related boards and centers. 

4. Systems Support Contracting 

a. Much of a Service component’s equipment will be maintained either partially or 

fully through contracted logistic support. Often there is no military or other support 

alternative for the support provided by the original equipment manufacturer through FSRs, 

also sometimes referred to as tech-reps. These support contracts are generally issued when 

the Military Department systems contracting activities award the original systems contracts. 

Because such support is generally awarded long before and unrelated to a particular 

deployment requirement and is codified into the contract through generic deployment 

support language or clauses, the GCC and subordinate JFC must be cognizant of the 

impact of overly restrictive CAAF theater entrance requirements and/or contracted 

support use restrictions on readiness of key weapon and support systems deployed to 

the theater. The JFC’s main concern with the use of systems support contracts in military 

operations is contractor personnel management related issues.

b. Individual Services need to ensure their systems support contracts contain 

appropriate deployment clauses IAW the FAR, DFARS, and adhere to DOD/Service 

policies. Prior to deploying contractor personnel into the operational area, systems support 

Three RQ-1 Predator field service representatives working at Balad Air Base, Iraq.
 Contract Support Integration 

III-9 

contracting officers, ICW the supported units, must ensure that contractor personnel have 

met specific theater entrance requirements. Additionally, the supported GCC and 

subordinate JFC must ensure that the theater entrance requirements and other operational 

specific contractor management directives are published, updated, and readily available to 

ensure systems support contractor personnel, the contracting officer, and supported units are 

aware of these requirements. This logistic support requirement and accountability of 

contractor personnel in the operational area are the main focus of the supported GCC and 

subordinate JFC in regard to planning and execution of systems support contracts. 

DODI 3020.41, Contractor Personnel Authorized to Accompany the US Armed Forces, is 

the primary DOD policy document that covers contractor personnel deployment and other 

contractor personnel integration policy. Integration of systems contractor personnel into 

military operations is also discussed in detail in Chapter IV, “Contractor Management.” 

Additionally, an overview of the Service systems support contracts and management 

capabilities can be found in Appendix A, “Services’ Systems Support Contract Overview.”

5. External Support Contracting 

a. External support contracts are often used to provide significant logistic support and 

selected non-logistic support to the joint force as depicted in Figure III-2. The type and 

scope of this support varies between operations, but can be very extensive depending on a 

variety of operational factors. The three major logistic-related external support contract 

programs are the Army’s LOGCAP, the Air Force's AFCAP and the Navy's GCCC/GCSC. 

EXTERNAL SUPPORT CONTRACT CAPABILITIES

LOGISTIC SUPPORT NON-LOGISTIC SUPPORT

z

z

z

z

z

z

z

z

Base Operating Support 

(Billeting, Food Service, 

Laundry and Bath, etc.)

Transportation

Port and Terminal

Warehousing and Other Supply 

Support Operations

Facilities Construction

Facilities Management

Prime Power

Materiel Maintenance

z

z

z

z

z

Communication Services

Interpreters

Commercial Computers and 

Information Management

Interrogation*

Physical Security*

* Limited In Accordance With Department 

of Defense Policy

Figure III-2. External Support Contract Capabilities
Chapter III 

III-10 JP 4-10 

Additionally, in some operations DLA may utilize existing or award new prime vendor 

contracts to provide selected supply support, primarily subsistence and bulk fuel, during 

contingency operations. Other examples of external support contracts include fuel contracts 

awarded by Defense Energy Support Center (DESC), construction contracts awarded by US 

Army Corps of Engineers and the Air Force Center for Engineering and the Environment, 

and translator contractors awarded by Army Intelligence and Security Command. 

b. Like systems support contracts, external support contracting authority does not 

come as a direct result of the contingency operation. Generally, these contracts are 

issued during peacetime for use during contingencies. The Army’s LOGCAP 

requirements are managed by the Army Sustainment Command (ASC) and the contracts are 

awarded and managed by the Army Contracting Command (ACC). ASC and ACC are 

major subordinate commands of the US Army Materiel Command (USAMC). What this 

means to the GCC is that contracting authority, and therefore the ability to modify the 

LOGCAP task orders, resides with USAMC (or designated DCMA ACOs), not with the 

theater support contracting HCA(s). It is important to understand that these CAP and 

other external support contracts remain under the control of the Service components 

and do not normally fall under the authority of the GCC operational contract support. 

c. The JFC should be aware that CAP support contracts are generally more 

expensive than theater support contracts due to overhead, management, general, and 

administrative charges associated with external support contracts. Although logistic 

planners must make allowances for CAP contracts early in the contingency, every effort 

should be made to transition the individual CAP task orders to theater support 

contracts as soon as practicable. Of course, operation specific factors such as security 

Logistic Civil Augmentation Program Team. 
 Contract Support Integration 

III-11 

considerations, availability of local sources of support, and on-hand theater support 

contracting management capabilities will be the actual drivers of how many of, and how 

fast, these CAP task orders can be transferred to theater support contracts. 

See Appendix B, “Services’ External Support Contract Overview,” for more details on the 

Service CAP organizations and capabilities. 

6. Theater Support Contracting 

a. General Overview. Theater support contracts are those contracts that are issued by 

deployed contingency contracting officers and are generally awarded to local vendors, to 

support in-theater customers. These contracts are specifically issued under the authority of 

the Service component and/or USSOCOM HCA designation for the contingency. Theater 

support contracts are those contracts that are most commonly referred to as contingency 

contracts. Theater support contracting can be used to acquire support from commercial 

sources similar to those external support contract services listed in Figure III-2. 

Additionally, theater support contracting can be used to acquire limited amounts of 

commercially available supply items from both local and global sources. 

b. Establishing Joint or Lead Service Command and Control of Theater Support 

Contracting Organizations. The supported GCC must designate the C2 authority that the 

joint or lead Service command will have over other Service theater support contracting 

organizations in complex, long-term operations to ensure effective and efficient theater 

contracting support to the joint force and/or designated OGAs. However, because of the 

peculiar legal nature of contracting support, the lead Service or joint theater support 

contracting command must also have HCA authority over attached Service 

contingency contracting personnel. Since the supported GCC does not have the 

Contractor Open House in Afghanistan 
Chapter III 

III-12 JP 4-10 

authority to direct changes to Service HCA authorities, establishing operational 

control (OPCON) relationships over theater support contracting units may require 

special coordination with the affected Military Departments and USD(AT&L). This 

combination of OPCON and HCA authority allows the lead Service or joint theater support 

contracting commander to set and enforce priorities; position and reposition contingency 

contracting personnel rapidly to the point of need; and to enforce contracting policies and 

compliance measures. 

See Appendix C, “Services’ Theater Support Contracting Organizations and Capabilities,”

for more details on the Service theater support contracting organizations and capabilities. 

7. Contracting Support Organizational Options

a. General. There is no single preferred contracting organizational option; the specific 

organizational option is determined by the GCC ICW the subordinate JFC and Service 

components. It is also important to note that these organizational options described 

below pertain to only theater support contacting individuals and organizations. A 

designated lead Service or joint theater support contracting command would normally only 

have coordinating authority over Service component external support contracting 

organizations and DCMA's ACOs. These organizations, in general, have no authority over 

systems support contracts. 

(1) There are three main contracting related organizational options: Service 

component support to own forces; lead Service; and joint theater support contracting 

command. These organizational options normally apply to the subordinate JFC-level. If 

there is no lead Service or joint theater support contracting command established, the 

subordinate JFC may establish a small contracting office as part of the subunified command 

or JTF J-4 staff. This office would not have contracting authority; its main mission 

would be to assist the subordinate JFC in planning and coordinating operational

contract support within the JOA. 

(2) The organizational option chosen is entirely dependent on the mission 

requirements and operational factors. These factors may include, but are not limited to: 

(a) Size, primary mission, and expected duration of the joint operation. 

(b) Scope, criticality, and complexity of the theater support contracting 

requirements. 

(c) Need for enhanced JFC control of the theater support contracting mission. 

(d) Location of supported units when compared to available commercial 

vendor base. 

(e) Dominant user and most capable Service considerations (may not be the 

same Service in any given operation). 
 Contract Support Integration 

III-13 

(3) Just as there is no one preferred option, the needs of the contracting 

organization may change as the operation progresses. Therefore, the contracting 

organizational structure may change and/or progress through the basic organizational 

options as the organizational needs unfold. Although the organizational structure may 

change over time, all organizational options must account for proper coordination and 

control of the overall theater support contracting actions in order to limit duplication of 

effort and service competition for limited vendor resources. The key point to consider in the 

choice of any contracting organizational option is that the organizational structure should be 

planned for in writing and should be a conscious choice prior to the onset of a contingency 

operation. 

b. Service Component Support to Own Forces. During smaller scale operations 

with an expected short duration, the GCC would normally allow the Service component 

commanders to retain control of their own theater support contracting authority and 

organizations. This organizational option is also applicable to operations where the bulk of 

the individual Service component units will be operating in distinctly different areas of the 

JOA thus limiting potential competition for the same vendor base. 

(1) Advantages of Service Component Support to Own Forces:

(a) Simplifies contracting procedures and processes. 

(b) Does not require JMD. 

(c) Does not require implementing new C2 relationships. 

(d) Enhances trust of supported unit by retaining habitual relationships. 

(2) Disadvantages of Service Component Support to Own Forces:

(a) May increase the likelihood of competition for limited local vendor base. 

(b) May limit the JFC’s ability to set and enforce priorities and standards of 

support. 

(c) May limit the JFC’s ability to standardize the acquisition process. 

(d) May not be the most efficient use of the limited contracting staff. 

c. Lead Service Component Responsible for Theater Support Contracting. The 

GCC may designate a specific Service component (normally the lead Service responsible for 

general CUL support) as the lead Service responsible to provide consolidated theater 

contracting support for a particular geographical region (normally the JOA). In most major 

operations, the lead Service will either be the Army or Air Force component due to the 

limited theater support contracting capabilities of the other Services. 
Chapter III 

III-14 JP 4-10 

(1) The lead Service organizational option is most appropriate for major, longterm operations where the supported GCC and subordinate JFC desire to ensure that there is 

a consolidated contracting effort within the operational area, but without the need to standup an entirely new joint command. In this option, the lead Service contracting organization 

may have C2 of designated other Service component theater support contracting 

organizations at a specified level and would have their staff augmented by other Services’ 

contingency contracting personnel if approved by SecDef. Additionally a lead Service 

contracting organization could have coordination authority only as directed by the JFC (does 

not require SecDef approval). They also may have liaison officers from Service CAP 

management organizations, DLA, multinational military units, and/or IGOs, as required by 

the supported GCC. The lead Service SCO would normally chair the JCSB. 

(2) Advantages of Lead Service Option:

(a) Decreases the likelihood of competition for limited local vendor base. 

(b) Permits more efficient use of the limited contracting professional staff. 

(c) Increases the JFC’s ability to set and enforce priorities and establish a 

baseline for minimal standards for support. 

(d) Increases the JFC’s ability to standardize the acquisition process. 

(3) Disadvantages of Lead Service Option:

(a) Will require implementing new C2 relationships. 

(b) May initially decrease trust of the supported units. 

(c) May require the development of a JMD. 

(d) Requires specific command guidance to direct control over the theater 

support contracting effort. 

d. Joint Theater Support Contracting Command. In larger or more complex 

contingency operations, the supported GCC may require more oversight than what can 

typically be provided through the lead Service organizational option. 

(1) Operational conditions that may drive this option could include, but may not 

be limited to: 

 

(a) Extremely complex operation that requires direct control of theater support 

contracting by the JFC. 

(b) Mission is long-term duration. 
 Contract Support Integration 

III-15 

(c) Mission beyond the capability of a single Service. 

(d) Mission that requires significant coordination of contracting and the civilmilitary aspects of the OPLAN. 

(e) Significant numbers of different Service forces operating in same 

area/joint bases served by the same local vendor base. 

(f) The joint theater support contracting command, by design, is a joint 

functional command that has a specified level of C2 authority over designated Service 

component theater support contracting organizations and personnel within a designated 

support area. This command would perform the same functions as a lead Service 

contracting organization, but would report directly to the establishing commander. 

(g) Since GCCs do not have their own contracting authority, the joint 

theater support contracting command’s HCA authority would flow from one of the 

Service components (normally the lead agent or lead Service component responsible 

for CUL) to the operational area. In this option, the joint theater support contracting 

command headquarters (HQ) should be established by a JMD. 

(2) If the GCC decides to establish a joint theater support contracting command, 

special consideration needs to be given to the placement of the legal support staff to avoid 

undue command influence of the new contracting command.

(3) Advantages of Joint Theater Support Contracting Command Option:

(a) Decreases the likelihood of competition for limited local vendor base. 

(b) Allows for efficient use of the limited contracting professional staff. 

(c) Increases the JFC’s ability to establish a baseline for minimal standards 

for support. 

(d) Increases the JFC’s ability to standardize the acquisition process. 

(e) Allows the JFC to have better visibility of the overall contracting effort. 

(f) Increases the JFC's ability to link contracting support to the civil-military 

aspects of the OPLAN. 

(4) Disadvantages of Joint Theater Support Contracting Command Option:

(a) Will require implementing new C2 relationships. 

(b) May initially decrease the trust of the supported units. 
Chapter III 

III-16 JP 4-10 

(c) Will require the development of a JMD. 

(d) Will generally require an increase in the number of HQ staff personnel 

needed. 

(e) Services' contracting officers may not be familiar with policies and 

procedures of the joint command. 

See Appendix F, “Notional Lead Service and Joint Theater Support Contracting Command 

Organizations,” for more details on joint theater support contracting command 

organizational structure. 

8. Contract Support Integration Planning and Execution 

 a. General. The use of contracted support in military operations must be addressed early 

on in the planning cycle. Making this happen can be a challenge to many joint force J-4s due to 

a lack of acquisition officers on their staff, the myriad of contracting options, and the wide 

variety of contracting authorities. It is imperative the GCC J-4 includes both theater support 

and external support contract planners in the joint planning process and ensures the contracting 

effort is tied closely to the overall logistic plan. In some situations, the GCC may choose to 

designate a lead Service to lead the planning effort, but it is the JFC's responsibility to ensure 

that the CSIP is properly incorporated into their OPLAN/OPORD. 

 b. Developing the Contract Support Integration Plan. In all operations where there 

will be a significant use of contracted support, the supported GCC and their subordinate 

commanders and staffs must ensure that this support is properly addressed in the appropriate 

OPLAN/OPORD. Normally, the CSIP is developed by the J-4 contracting personnel, but 

this effort may be assisted by the lead Service (if a lead Service is designated). Additionally, 

each Service component should publish its own CSIP seeking integration and unity of effort 

within the supported GCC’s CSIP. Close coordination with J-3, J-5, civil affairs, 

financial management, and legal support is essential to the development of the CSIP (see 

Figure III-3 and Appendix E, “Contract Support Integration Planning Considerations and 

Checklist,”). 

FUTURE ORGANIZATIONAL OPTION 

To comply with Congressional mandates in National Defense 

Authorization Act (NDAA) 2007 and NDAA 2008, the Secretary of Defense 

has called for the establishment of an organization under the auspices of 

Assistant Deputy Under Secretary of Defense (Program Support) which 

will provide program management for joint contingency acquisition 

across the combatant commands and US interagency, during combat 

operations, post-conflict operations, and contingency operations. The 

organization will be called the Joint Contingency Acquisition Support 

Office, headed by a flag officer or Senior Executive Service civilian. An 

initial operational capability will be established by Fiscal Year 2009 and 

further expanded in doctrine. 
 Contract Support Integration 

III-17 

(1) Coordinating Theater Support and External Support Contracting Effort. 

It is very important the supported GCC J-4 and subordinate JFC J-4 ensure the annex W 

synchronizes the integration of all Services’, combatant commands’, and DOD agencies’ 

contracting efforts to ensure there is not undue competition for the same locally available 

services, supplies, equipment, and subcontractor employees. Without proper coordination, 

this competition between CAP and theater support contracts will inevitably drive up the 

prices of local goods and services and could create shortages. 

(2) Determining Organizational Option. A key focus of any JFC-level CSIP 

should be the theater support contracting and CAP organizational structure for the JOA. The 

CONTRACT SUPPORT INTEGRATION PLAN

Contract Support Integration Plan (CSIP) Required Elements:

Other CSIP Elements:

z

z

z

z

z

z

z

z

z

z

Theater support contracting organization responsibilities

Boards and/or center information

Operational specific contracting policies and procedures 

to include Service civil augmentation program, 

multinational, and host-nation support coordination 

guidance

Contract administration services delegations

Identification of major requiring activities 

Information on commercial support capabilities to satisfy 

requirements

Guidance on the transition from peace-time contracting 

support arrangements to contingen cy contracting support 

Identification of interagency support requirements 

including relationships of Department of Defense (DOD) 

and non-DOD contracting activities 

Identify logistics required to support the contracting effort 

to include financial management support, program 

management support, legal support, translator support, 

etc.

Identification of specific force protection, security 

guidance to include restriction on contracted support by 

time, phase, location, and/or function.

Figure III-3. Contract Support Integration Plan 
Chapter III 

III-18 JP 4-10 

CSIP should describe which theater support organizational structure will be used (i.e., Service 

support to own troops, lead Service, joint theater support contracting command - or a 

progression from one to another), the specific C2 relationship of contracting activities in the 

JOA, and the flow of contracting authority in the JOA. It should clearly describe how the 

logistic related contracting support fits into the overarching CUL support plan to include 

synchronization with the JARB or JARB-like processes. The CSIP should also include the 

requiring activities’ roles and responsibilities as they relate to requesting contracted support 

approved through the JARB process. In all operations, the JFC must consider existing Service 

component contracting assets and organizations in the operational area and how they might 

need to evolve in terms of staffing, relationships, organization, and authorities to best meet the 

changing needs of the joint force. Some of the subordinate JFC contracting goals include: 

(a) Meeting the JFC’s validated support requirements in the most expeditious 

and effective manner possible. 

(b) Achieving civil-military related objectives. 

(c) Filling in gaps in organic military support capabilities. 

(d) Maximizing the use of limited local vendor base and existing external 

support contract arrangements within the operational area. 

(e) Eliminating competition for resources among Service components. 

(f) Maintaining visibility over all contracts, contracting capabilities, and 

requirements. 

(g) Combining to the maximum extent possible all component requirements 

in order to achieve the most effective and efficient purchases for the joint force. 

(h) Shifting from reliance on cost-plus external support contracts to firm 

fixed-price theater support contracts as the operational environment permits. 

(i) Cultivating local sources to facilitate the shift to local contracts designed to 

reduce cost and to contribute to the JFC’s civil-military objectives. 

(j) Ensuring that contracted support is properly synchronized with HNS and 

multinational support arrangements when available. 

(k) Ensuring that the theater support and external support contracting efforts, 

especially Service CAP actions, are properly synchronized and deconflicted. 

(l) Identifying associated CAAF related government support requirements, to 

include FP and PR, which will need to be captured in the CMP or associated portions of the 

OPLAN. 
 Contract Support Integration 

III-19 

(m) Address FP and force health protection aspects of contracted support as it 

relates to quality control, receipt of and inspection of goods, service contractor personnel 

restrictions, etc., to reduce force health risks along with risk of sabotage, poisoning, and 

other terrorist-style actions. 

(3) Understanding the Vendor Base. Since most theater support contracts are 

awarded to local vendors, as detailed an understanding of the local populace and economy 

as possible is instrumental in planning for theater support contracting operations. Planning 

and execution of theater support contracting must consider issues including, but not limited 

to: what services and supplies are available locally; what type of transportation network is 

available to move goods; what will be the security environment within theater; are there 

warehouses available for storage/centralization of distribution; is the banking system mature 

enough to pay vendors; is the currency stable enough to pay in local funds; and are there 

cultural issues with race, religion, or gender? 

c. Contracting Support by Phase of the Operation. As the operation progresses, 

contracting support will generally shift based on the operational phase: mobilization; initial 

deployment; joint reception, staging, onward movement, and integration (RSOI); 

employment sustainment; and finally, redeployment. These stages of contracting support 

are generally characterized by the types of items purchased and the types of contracting 

mechanisms used to support specific force support requirements. These phases include: the 

deployment, employment, sustainment, and redeployment processes described in JP 3-35, 

Deployment and Redeployment Operations. 

(1) Support During Mobilization and/or Initial Deployment. This is normally 

the first 30-45 days of a deployment and is characterized by an extremely high operating 

tempo, confusion, and controlled chaos. The contingency contracting officer’s (CCO’s) first 

priority will be to respond to basic life support requirements including billeting, food service - 

especially potable water, transportation and equipment rental, ground fuel, laundry and bath 

services, and refuse and sanitation services. During this phase, CCOs may find themselves in 

the undesirable position of being the requestor, approving official, certifying officer, and 

transportation office for deliveries. Detailed planning can preclude some of these additional 

duties; however, physical limitations on the number of support personnel deployed in the early 

stages of a contingency will require a high degree of flexibility on the part of the CCO. 

Contracted support will generally be used to provide basic life support and other selected 

functions. The actual mix of contracting or other support mechanisms such as HNS will be 

based on risk, reliability, and availability of these various sources of support. Maximum use of 

existing “peacetime” contracting arrangements should be considered. It is imperative that prior 

to the main body deployment, the supported GCC and subordinate JFC should ensure that 

theater support contracting and CAP management organizations are deployed as part of the 

advanced echelon so that the contracting officer may set up some required life-support 

functions. Contracting at this time of the operation is generally focused on expediting contract 

award. Many of the contracting awards during this phase are accomplished by a paying agent. 

(2) Support to Joint RSOI and Employment of Forces. During this phase, 

contracting personnel (military and civilian) and contractor personnel will continue to arrive, 
Chapter III 

III-20 JP 4-10 

though not necessarily at a rate commensurate with the number of troops to be supported. In 

major operations, a mix of theater support and external support contracts, including LOGCAP, 

GCSC, AFCAP, and DLA prime vendor contracts may be extensively utilized. At this time, 

the J-4, comptroller and other staff, will normally have implemented a formal JARB process, or 

at least a JARB-like process, that will review and make recommendations for CUL support 

requirements to include determining the specific source of support and provide prioritization of 

these requirements to the appropriate organization required to provide this support. During this 

period, a requirements requisitioning controls process will be established. Theater support 

contracting efforts will still be heavily involved with the acquisition of basic troop support 

requirements that are not covered by CAP task orders or other means of support. Contracting 

should move from the SF 44 to more long-term contracting arrangements such as SF 1449, 

Solicitation/Contract/Order for Commercial Items, or blanket purchase agreements. 

(3) Sustainment. The sustainment stage of the contracting support covers the 

period from RSOI until redeployment begins. This stage is characterized by a focus on file 

documentation, cost reduction, and establishing business efficiencies. At this stage, the 

contracting officer’s role may change from a strict focus on requirements fulfillment to a 

role of a JFC business advisor. During this stage the JFC should proceed with a deliberate 

plan of action to attempt to move away from cost-plus award-fee CAP task orders and 

emergency procurement towards long-term contracts, such as indefinite delivery/indefinite 

quantity or requirements contracts. Requirements will become more defined and 

consolidated and the use of performance based contracting methods will be maximized 

when possible. The transition of CAP task orders to long-term theater support 

contacts is dependent on specific mission factors such as threat-level and the 

availability of reliable, local commercial vendor base. It is also important to note that 

this transition away from CAP task orders is very manpower intensive and may 

quickly overtask the JFC’s limited theater support contracting capabilities. At this 

point in the operation, both theater support and CAP contracting officers and managers 

should have formal processes and controls in place to ensure accountability for all contractor 

acquired government owned (CAGO) equipment and government-furnished equipment 

(GFE); begin settling contractor claims, make arrangements to ensure final payments are 

made, and develop contract termination procedures. They also should initiate the request for 

disposition instructions for all CAGO equipment and GFE. 

(4) Redeployment support and contract termination. At this point in the 

contingency, long-term business arrangements with contractors should become evident in a 

transition to either final contract closeout or what would be considered normal peacetime 

business practices. This phase is characterized by significant pressure and urgency to send 

the troops home. Typical new requirements include packing, crating and freight services; 

construction and operation of wash racks for vehicles; and commercial air passenger 

services if USTRANSCOM is not providing this service. The CCO will be required to 

terminate and close out existing contracts and orders. Ratifications and claims must be 

processed to completion. Contracting for life support services and base operations must 

continue until the last troop leaves. During this stage, both theater support and CAP 

contracting officers and managers should ensure accountability and begin disposition of 

CAGO equipment and GFE. When a follow-on force is required, the CCO must prepare 
 Contract Support Integration 

III-21 

contracts and files for delegation or assignment to the incoming contracting agency. Often, 

the CCO can expect to be one of the last persons to leave the area. To the extent any 

contracts remain open at the end of an operation, arrangements should be made to transition 

them to successor organizations such as permanent organizational elements. 

A contracting support planning checklist can be found in Appendix E, “Contract Support 

Integration Planning Considerations and Checklist.” 

9. Other Key Contracting Planning and Execution Considerations 

a. General. There are numerous other contracting planning and execution 

considerations that must be taken into account by the supported GCC, subordinate JFC, and 

Service components. These considerations run the gamut from contracting support to 

multinational operations to support of major interagency-led reconstruction requirements, as 

well as media and political visibility of decisions about selection of contractors and the 

actions of contractors once in the operational area. The following text is intended to provide 

a general discussion on the challenges related to these considerations. 

b. Multinational Support. Contracting officials must be cognizant of contracting 

activities other than their own to include joint and multinational organizations. Every effort 

must be made to share vendor information and, if possible, to establish joint/multinational 

ordering agreements. By not competing with each other, contracting officers can help ensure 

fair and reasonable pricing to all joint and coalition partners. Planning for and executing 

common contracted support in an alliance or a coalition is complicated by the lack of a 

commonly accepted contracting policy or doctrine. Additionally, even in alliance operations, 

contracting support is not something for which the contracting forces routinely plan or train. 

MULTINATIONAL SUPPORT IN OPERATION ENDURING FREEDOM 

In July 2006, Kandahar Air Field base operating contracting support 

transitioned from a US Army Logistics Civil Augmentation Program 

task order to North Atlantic Treaty Organization (NATO) Maintenance 

and Supply Agency (NAMSA) contracting support. This action 

transitioned the Kandahar Air Field base operating support mission 

from a lead nation (United States) to a multinational support 

arrangement. This effort included the first use of NAMSA as an 

operational command responsible for common contracting capability. 

Called the provision of Real Life Support Arrangement, this support 

arrangement was codified in a detailed Memorandum of Agreement 

(MOA) signed by NAMSA along with the four "stakeholder" nations 

(Canada, United Kingdom, Netherlands and the US) and the NATO's 

Joint Force Headquarters, Brunssum. This detailed MOA laid out 

specific organizational procedures to include funding, method of 

payments, reports, auditing, etc. for this new support arrangement. 

SOURCE: NATO Real Life Support Arrangement No. 011
Chapter III 

III-22 JP 4-10 

 (1) Lead Nation or Role Specialist Nation Contracting Support. In most 

multinational operations, the multinational commander will normally designate a lead nation 

and/or role specialist nation to provide CUL support to the multinational force. Often, the US 

will be the lead nation responsible for CUL support to the multinational force and this support 

may be sourced through a combination of theater support or CAP contracts. Challenges to set 

up a lead nation or role specialist nation contracting support include, but are not limited to: 

lack of standard terms and procedures; determining funding arrangements and method of 

payment (e.g., ACSAs/MLSAs); defining requirements to include developing a restricted item 

list; and developing common standards of support. 

(2) Transition to Multinational Contracting Organization. Transition from a 

lead nation or role specialist nation contracting support methodology may be warranted in 

some long-term alliance operations. In these situations, planning for such a transition should 

begin as early as practicable and involve all major troop contributing nations. Key to 

success is the identification of a competent contracting organization and developing specific 

contracting agreement as described in Figure III-4. 

c. Interagency Support. Similar to multinational support, US forces may be required 

to provide CUL support to both governmental and nongovernmental organizations. In many 

operations, interagency support may be limited in scope and may not pose a significant 

challenge to the supported GCC and subordinate JFC; however, in all defense support of 

civil authorities (DSCA) and some stability operations, this support can be much more 

significant. This support will be managed IAW contracting organization options discussed 

in paragraph 6 above. In most cases, a lead Service will provide this support through theater 

support contracts or CAP task orders or combination of both. Key to success of interagency 

support is to ensure that CCDR planners, to include the J-4, are aware of and are involved in 

OGA and NGO planning efforts. Planners must address specific DOD contracting support 

responsibilities to OGA and NGO operations to include specific OGA and NGO 

requirements. Coordination channels to the supported OGAs and NGOs must be included 

early in the planning cycle and included as part of coordination mechanisms, including 

funding procedures (e.g., Economy Act reimbursement or cite to specific Foreign Assistance 

Act authority) to manage this support in the operational area. 

INTERAGENCY SUPPORT IN OPERATION IRAQI FREEDOM 

In Operation IRAQI FREEDOM, the lead Service responsible for 

common user logistic and contracting support, the Army, was 

responsible to plan, coordinate, and provide life support for 

Department of State locations to include both the embassy within the 

"Green Zone" as well as their provincial reconstruction teams located 

in various locations in Iraq. Army Central Command utilized its Army 

Field Support Brigade's Logistics Civil Augmentation Program 

capabilities. 

SOURCE: Army Sustainment Command Briefing 
 Contract Support Integration 

III-23 

MULTINATIONAL CONTRACTING 

AGREEMENT REQUIREMENTS

z

z

z

z

z

z

z

z

z

z

z

z

z

z

z

Lead nation, role specialist nation or shared responsibility 

arrangements.

Manning considerations (tour length, contracting 

certifications, etc.).

Types of support desired (by country and multinational 

headquarters). 

Requirements generation and validation procedures.

Standards of support.

Administrative cost sharing procedures.

Operational funding to include billing procedures along 

with period and method of payments.

Reporting and oversight procedures.

Audit authority and procedures.

Fraud investigations policy and procedures.

Process for resolving disputes.

Process to amend the agreement.

Process to add and terminate countries from the 

agreement.

Policies and procedures for providing support to 

contractor personnel.

Policy, make-up and procedures for working groups and/or 

management forums.

Figure III-4. Multinational Contracting Agreement Requirements 

See JP 3-08, Interagency, Intergovernmental Organization, and Nongovernmental 

Organization Coordination During Joint Operations, and JP 3-28, Civil Support, for more 

information on contracting during interagency and DSCA operations.

d. Stability Operations. Stability operations support USG plans for stability, security, 

transition, and reconstruction operations and likely will be conducted ICW and in support of 

host nation (HN) authorities, OGAs, IGOs, and/or NGOs. Contracting support to stability 
Chapter III 

III-24 JP 4-10 

operations can be a tremendous challenge to the supported GCC and subordinate JFC, 

especially when the mission requires significant contracting support to the Department of 

State (DOS) to assist in major reconstruction actions and restoration of essential government 

services. Normally, this reconstruction related contracting effort will be done in support of 

the chief of mission (COM). 

(1) Civil-Military Impact of Contracting. Theater support contracting and some 

external support contracting actions can have a positive, and sometimes negative, effect on 

the civil-military aspects of the overall OPLAN. Since the majority of theater support 

contracts are awarded to local vendors; these actions have a tangential benefit by increasing 

the local vendor base, promoting goodwill with the local populace, and improving the local 

economic base. In many stability and reconstruction operations, there may be a high degree 

of local unemployment, which can lead to local unrest and cause local nationals to support 

an insurgency simply for monetary compensation. Depending on the scale of the contracted 

support, it can be one of many mechanisms used by the JFC in support of the overall 

objectives; however, planning and executing these civil-military contracting actions can be 

very manpower intensive. If not properly staffed, a lead Service or joint theater support 

contracting command can be quickly overwhelmed in their dual mission to coordinate 

both forces support and support to civil-authorities.

(2) Program Management Vice Contracting. A substantial challenge to 

contracting support to major reconstruction operations is a need for detailed understanding 

of these requirements that are far different from those normally required for forces support 

and the ability to translate those requirements into executable work statements, followed 

A soldier and an Iraqi contractor discuss a new water purification plant on the Tigris River. 
 Contract Support Integration 

III-25 

closely by the ability to efficiently manage their execution. These requirements can easily 

exceed DOD capabilities in the area of skill sets and in shear magnitude of the requirement. 

In general, deployable DOD contracting officers are trained to provide forces support so 

they have limited training and experience in major reconstruction actions. Major 

reconstruction requires the complete gamut of acquisition professionals, especially 

those trained in contracting, program management, and requirements definition. 

These actions are more analogous to major weapon-system acquisition and major 

military construction (MILCON) actions versus traditional forces support contracting 

arrangements. These types of skill sets are very limited within DOD and many of the 

individuals who possess these skills are not part of the operational force. So, if major 

reconstruction support requirements are anticipated (normally in support of DOS), the 

supported GCC and subordinate JFC must make appropriate plans to ensure acquisition 

personnel with the specialized skill sets necessary to accomplish reconstruction operations 

are deployed, in addition to the theater-support contracting personnel. 

See JP 3-34, Joint Engineer Operations, for more information on construction related 

contracting. 

(3) Assessing and Balancing Risk to Forces Support. Another major challenge 

in planning for and executing contracting support in stability operations is balancing the risk 

to forces support and the potential positive impact on the civil-military aspects of the 

supported GCC's objectives. What may be good for forces support may not meet the needs 

of the civil-military aspects of the overall campaign plan. Transitioning to local vendor 

support can be accomplished by moving the requirements of a CAP task order to a 

theater support contract or by setting subcontracting goals within a CAP task order to 

move from a TCN and/or expatriate work force to a local national work force. In 

either case, both the increased security risks and contract management requirements must be 

closely analyzed prior to making any formal decisions. When contemplating transferring 

contract work to local sources, the lead Service or joint theater support contracting 

command must work closely with the supported GCC, the subordinate JFC, and the 

Services to assess these risks and make determinations on which contracting support 

actions can be effectively and safely transferred to local sources and which ones 

cannot. It may be wise to begin the transition to local vendor support by starting with low 

risk, non-mission essential services first, especially if these services could be performed offbase or away from US forces. 

(4) Balancing Contracting Best Business Practices with Operational Needs. 

The JFC planners must work closely with the lead Service or joint theater support 

contracting command personnel to balance acceptable contracting business practices and 

operational needs. In some cases, a tradeoff process may be appropriate when it may be in 

the best interests of the USG to award to other than the lowest priced offeror or other than 

the highest technically rated offeror in order to achieve best value for the government 

considering other factors such as overall civil-military strategic objectives, schedule, and 

performance. Examples of such contracting actions follow: 
Chapter III 

III-26 JP 4-10 

(a) Awarding to a vendor based on civil-military considerations (i.e., the 

company is owned by or substantially employs local nationals) versus lowest cost. 

(b) Developing a PWS or SOW that may require the use of manual labor, in 

lieu of mechanized equipment, in order to employ more local nationals; even though this 

may drive the cost up and increase the delivery schedule. 

(c) Awarding a contract to a local national vendor versus a lower costing 

foreign vendor in order to maintain a viable local vendor base. 

(5) Fiscal Authorities. Contracting support in stability operations requires a 

careful consideration of the DOD and OGA fiscal authorities and often requires 

coordination with the COM personnel, as well as a plan to transition from DOD funding to 

other sources of funding. For example, infrastructure support may transition from DOD 

funding to an effort financed by the US Agency for International Development. 

e. Homeland Defense and Civil Support Operations. Planning and executing

contracting support to homeland defense and civil support operations has similarities as well 

as significant differences from planning and executing contracting support in foreign 

contingencies. For example, utilizing systems support contracts in both homeland defense 

and civil support operations is similar to utilizing systems support contracts in foreign 

contingencies except for the fact that the contractor personnel integration challenges may be 

significantly less due to a lower threat level and less stringent deployment requirements. 

Theater support of and external support contracting, however, may be very different 

depending on the type of civil support operations. 

(1) DOD Contracting Support in Civil Support Operations. Normally, as 

delegated by the Department of Homeland Security, the Federal Emergency Management 

Agency (FEMA) is the lead federal agency during national incident responses. When 

required, US Northern Command (USNORTHCOM) will provide DSCA in the 48 

HURRICANE KATRINA SUPPORT 

On Sept. 9, 2005, Kellogg Brown & Root Services Inc., Arlington, VA., 

was awarded a $15,000,000 task order under a cost reimbursement, 

indefinite-delivery/indefinite-quantity construction capabilities contract 

for recovery efforts in support of the US Army Corps of Engineers 

response to the immediate aftermath of Hurricane Katrina. The work 

performed provided for immediate disaster recovery response to repair 

pumps, restore utilities, and efficiently and rapidly accomplish 

dewatering activities in the Plaquemines, East and West basins in New 

Orleans. This task order was issued under the US Navy's Global 

Contingency Contracting (at the time called the Construction 

Capabilities Program) managed by the Naval Facilities Engineering 

Command Atlantic, Norfolk, VA. 

SOURCE: Department of Defense Public Affairs Press Release
 Contract Support Integration 

III-27 

contiguous United States, Alaska, and the Virgin Islands and Puerto Rico as directed by the 

President and/or SecDef. US Southern Command (USSOUTHCOM) and US Pacific 

Command (USPACOM) have similar responsibilities to support homeland defense and 

support to civil authority actions in US territories within their respective AORs. Generally, 

this defense support comes in the form of organic military forces with limited contracted 

support. The key value of military support in domestic operations is that it deploys as 

basically self-supporting for logistics, communications, and life support. Key principles 

related to contracting support in civil support operations follow: 

(a) FEMA, not DOD, is the lead federal agency responsible to coordinate 

contracting support to disaster relief operations. The General Services Administration is the 

primary federal agency providing additional contracting support to FEMA contracting 

operations. 

(b) DOD does not augment other federal agencies with contracting staff, but 

can perform specific contracting related tasks as directed by the President or SecDef. 

(c) Military forces operating in civil support operations should closely 

coordinate operations with other federal, state, local, and tribal contracting operations in 

order to avoid competing with tribal, local, state, and federal agencies for limited local 

commercial resources. 

(2) Operations Under Title 32 USC. There are many civil support operations 

that are conducted at the state level by Army and Air National Guard (NG) units providing 

military support under state active duty or Title 32 USC authority. When NG units deploy 

within their states, territories, and possessions, they normally receive contracting support 

from their home station. In these situations, they will usually have several GPC holders 

with the unit and, when required, warranted contracting officers from the United States 

Property and Fiscal Office, Purchasing and Contracting Division. These are generally short 

term deployments such as disaster response. When the NG has contracting personnel 

shortages in a particular state, the National Guard Bureau (NGB) will coordinate with other 

states' NGB contracting offices to provide short-term contracting personnel support 

augmentation to the state requesting assistance. In some cases, the NGB may also form and 

dispatch a “contracting tiger team” of experienced contracting personnel that is capable of 

soliciting, awarding and administering large service and MILCON contracts. At all times, 

NGB contracting offices have authority to obligate federal funds in support of Active 

Component forces. Active Component forces may establish support agreements with NGB 

contracting offices to provide contracting support during homeland defense or DSCA 

operations. 
Chapter III 

III-28 JP 4-10 

NATIONAL GUARD CONTRACTING SUPPORT 

In the aftermath of hurricane Katrina, the US Property and Fiscal Office, 

Purchasing and Contracting (USPFO P&C) offices and Air National 

Guard (ANG) base contracting offices from all over the US provided 

contracting officers to support Louisiana, Mississippi and other state 

National Guard units deployed to assist the recovery operations. The 

ANG Crisis Action Team at Andrews Air Force base, MD fielded 

requests for additional contracting personnel and deployed ANG 

contracting personnel where needed. Army National Guard units 

which road marched to the operational area took with them 

government purchase card holders and received direct contracting 

support from their home state USPFO P&C office during their road 

march and while deployed. 

SOURCE: National Guard Bureau, Contracting Office
CHAPTER IV 

CONTRACTOR MANAGEMENT 

IV-1 

1. Contractor Control and Management Challenges 

a. Key Differences Between Contracted and Military/DOD Civilian Support. The 

management and control of contractor personnel is significantly different than C2 of military 

members and DOD civilians. Unlike military members and DOD civilians, contractor 

personnel are not part of the direct chain-of-command. They are managed and 

controlled through contractor management and governmental oversight staff IAW the 

terms and conditions of their contract. Commanders do not generally have legal 

authority to direct contractor personnel to perform tasks outside of their contract; however, 

in emergency situations (e.g., enemy or terrorist actions or natural disaster), the ranking area 

or base commander may direct CAAF to take FP or emergency response actions not 

specifically authorized in their contract as long as those actions do not require them to 

assume inherently governmental responsibilities. While the management and control aspect 

is unique to this category of the “total force,” there are numerous additional risks and 

challenges that must be dealt with when utilizing contracted vice military support (See 

Figure IV-I). 

"If you try to combine a Soldier and a Merchant in one person, you will labor 

in vain." 

Admiral Cornelious Metelieff, 1608

MAJOR RISK AND CHALLENGES RELATED 

TO CONTRACTED SUPPORT

RISKS CHALLENGES

z

z

z

Risk to mission accomplishment from 

contractor nonperformance due to 

security and/or funding issues.

Increased force protection 

requirements to protect and/or 

recover contractor personnel.

Increased security risk to the force 

when utilizing third country national 

and local national contractors.

z

z

z

z

z

z

z

General lack of knowledge on how to 

plan and integrate contracted support.

Limited legal authority over contractor 

personnel.

Limited numbers of deployable 

contracting officers.

Additional administrative burden to 

request and assist in managing 

contracted support.

Establishing and maintaining 

accountability of contractor personnel.

The myriad of different contracting 

organizations responsible for 

contracting in support of the joint force. 

Use of multiple tiers of subcontractors.

Figure IV-1. Major Risk and Challenges Related to Contracted Support
Chapter IV 

IV-2 JP 4-10 

b. Providing Proper Military Oversight. Well planned and deliberate military 

oversight of contractor personnel in support of military operations is imperative to ensure 

that contracted support is properly integrated into the operational support structure. Due to 

the very nature of contracted support, contractor management is accomplished through a 

myriad of different requiring activities, CORs, supported units, contracting 

organizations, and contractor company management personnel, many of which are not 

under direct JFC C2. Additionally, contractor management nuances and issues are not 

well understood by most commanders and staff officers. While specific contractor 

management policy has been developed, the implementation of such policy is still a 

significant challenge in most military operations, especially operations in uncertain, hostile, 

and/or austere environments. 

 (1) Key to success in this contractor management challenge is for the GCC and 

subordinate JFCs to establish clear, enforceable, and well understood theater entrance, 

accountability, FP, and general contractor management policies and procedures early in the 

planning stages of any military contingency. The supported GCC and subordinate JFCs 

must work closely with the Service components and combat support agencies to ensure that 

proper contract and contractor management oversight is in place, preferably well before 

joint operations commence. 

 (2) It is important to understand that the terms and conditions of the contract 

establish the relationship between the military (USG) and the contractor; this relationship 

does not extend through the contractor supervisor to his employees. Only the contractor 

management can directly supervise contractor employees. The military chain of 

command exercises management control through the contract management team. This team 

normally consists of the contracting officer, COR, and the “on-site” contract company 

manager. In some situations, such as with LOGCAP support, this management team may 

also include DCMA ACOs and special contract management organizations such as the 

Army's LOGCAP support unit (LSU). One of the key challenges for the supported GCC 

and subordinate JFC is that for many contracts the contracting officer may not even 

be located within the operational area. A similar situation is also true for some contractor 

supervisors and managers. Many small contract companies may not have actual “on-site” 

supervisors and instead may only have a limited number of managers deployed to the 

operational area. This operational reality is why the CORs are such an important part 

of the contracting management team and the reason commanders must ensure 

appropriate command administration and oversight personnel are in place when using 

contracted resources.

 (3) IAW DOD policy, contractor management policies and procedures apply equally 

to prime and subcontractor personnel at all tiers, however, due to privity of contract, prime 

contractor has the responsibility to ensure provisions implementing these policies and 

procedures are disseminated to and followed by subcontractors and their personnel. Of course, 

this adds additional challenges to the contracting management team because no direct military 

contract authority exists over the potential multiple tiers of subcontractors performing 

services in the operational area.
Contractor Management 

IV-3 

 (4) In contingency operations, commanders are responsible for ensuring (through 

their contract management team) that contractors comply with orders, directives, and 

instructions issued by the GCC and subordinate JFCs, including those relating to FP, 

security, health, safety, and relations and interaction with local nationals. In circumstances 

where DOD contractor personnel are authorized to be armed, commanders are responsible 

for ensuring they comply with specific GCC and subordinate JFC guidance for the 

operational area, including rules of engagement (ROE) and RUF, use of weapons in selfdefense, and local license requirements. Commanders should ensure promulgation of 

appropriate procedures for arming contract security personnel and investigating use of force 

incidents. Contractors in contingency operations who commit violations of these may be 

subject to both the Uniform Code of Military Justice (UCMJ) and the Military 

Extraterritorial Jurisdiction Act.

DODI 3020.41, Contractor Personnel Authorized to Accompany the US Armed Forces, 

provides comprehensive DOD policy on the subject of contractor personnel management in 

contingency operations. Additionally, CJCS Manual (CJCSM) 3122.03B Joint Operation 

Planning and Execution System, Volume II, Planning Formats, provides additional detail on 

contractor management planning and execution requirements. 

2. Contractor Personnel Legal Status and Discipline 

a. The Hague and Geneva Conventions. Law of war treaties, such as the Hague and 

Geneva conventions, attempt to establish and clarify the status of contractor personnel when 

supporting military operations (See Figure IV-2). These treaties entitle CAAF to be treated 

as POWs. The 1949 Geneva Convention Relative to the Treatment of Prisoners of War 

(Article 4) provides that POW status upon capture is extended to, among others, contractor 

employees, provided that they are authorized to accompany the force and are issued a 

Geneva Conventions ID Card. During armed conflict with nations that are not signatories to 

these treaties, the status of contractors may be less clear. Commanders should consult their 

SJA for legal advice in these situations. 

b. Types of Contractor Employees and Their Legal Status. As described in Chapter 

I, DOD contingency contractor employees fall into two primary categories: 

 (1) Non-CAAF employees are employees of commercial entities not authorized 

CAAF status but who are under contract to DOD to provide a supply or service in the 

operational area. Non-CAAF include day laborers, delivery personnel, and supply contract 

workers. Non-CAAF have no special legal status IAW international conventions or 

agreements and are legally considered civilians. They may not receive a Geneva 

Conventions ID card, thus not entitled to POW treatment if captured by forces 

observing applicable international law. 

 (2) CAAF are contractor employees who are specifically authorized through 

their contract to accompany the force and have protected legal status IAW 

international conventions. IAW these international conventions, CAAF are noncombatants, but are entitled to POW status if detained. 
Chapter IV 

IV-4 JP 4-10 

 c. Discipline and Commander’s Authority. Legal jurisdiction and commander’s 

authority over contractor personnel varies depending on contractor personnel nationality, 

CAAF or non-CAAF designations, operational specific policies, and the type and severity of 

the discipline infraction. Normally, local national contract employees are subject to local 

and/or HN laws while US citizens and TCN CAAF may or may not be subject to local 

and/or HN laws depending on provisions, if any, documented in existing SOFAs or other 

international agreements. All CAAF however, are subject to US federal law to include 

the newly expanded UCMJ jurisdiction as discussed later in this section. Commanders 

at all levels must understand that while they do not have full command authority over 

contractor personnel as they do military members, they do have the authority to direct 

CAAF in matters of FP and security and play a direct role in maintaining good order and 

discipline within the military force. So while minor CAAF discipline infractions are 

normally handled through the contract company management, serious CAAF discipline 

infractions can and should be, addressed by military and/or Department of Justice channels. 

To the extent that commanders determine that disciplinary actions may be necessary for 

CAAF, they should first coordinate their actions with their SJA and government contract 

management team. This coordination is necessary because of potential jurisdiction issues 

along with possible impact on contract performance, cost, and government liability as well 

as determining the appropriate manner to address the situation. 

EXCERPTS FROM KEY INTERNATIONAL AGREEMENTS

Hague Convention in 1907 

(Article 13)

1949 Geneva Convention 

Relative to the Treatment of 

Prisoners of War (Article 4) 

“Individuals who follow an army 

without directly belonging to it, 

such as...contractors, who fall 

into the enemy's hands and whom 

the latter thinks fit to detain, are 

entitled to be treated as prisoners 

of war, provided they are in 

possession of a certificate from 

the military authorities of the army 

which they were accompanying.”

“Persons who accompany the 

armed forces without actually 

being members thereof, such as 

...contractors, who fall into the 

hands of the enemy, and whom 

the latter think fit to detain, shall 

be entitled to be treated as 

prisoners of war, provided they 

have received authorization from 

the armed forces which they 

accompany, who shall provide 

them for that purpose with an 

identity card.”

Figure IV-2. Excerpts from Key International Agreements 
Contractor Management 

IV-5 

(1) Host Nation Law. All non-CAAF are subject to HN law. CAAF are also 

subject to local laws unless specifically exempted by SOFAs, other international 

agreements, and in cases where there is no functioning or recognized HN. HN law, to 

include transit country law, can directly affect contracting as well as contractor 

management actions. The supported GCC, subordinate JFC, and Service components 

must ascertain how these laws may affect contracted support, to the extent feasible, and 

consider any limiting factors in both contingency and crisis action operational contract 

support planning. Service components are responsible to ensure contracting officers take 

these laws into account as they develop and oversee the execution of contracts. Limiting 

factors may include workforce and hour restrictions; medical, life, and disability insurance 

coverage; taxes; customs and duties; cost of living allowances; hardship differentials; and 

danger pay.

(2) Status-of-Forces Agreements. SOFAs are international agreements between 

two or more governments that address various privileges, immunities, and responsibilities 

and enumerate the rights and responsibilities of individual members of a deployed force. 

They can be, although rarely are, used to define CAAF legal status (e.g., the circumstances 

of HN criminal and civil jurisdiction) as well as contracting related legal obligations (e.g., 

taxes, customs). When applicable, SOFAs may establish legal obligations independent of 

contract provisions. 

(3) US Federal Law. Barring a SOFA or other international agreement, a HN 

will generally have exclusive jurisdiction over offenses committed within its territory. In 

the absence of any HN jurisdiction or the exercise of it, US federal law may apply to CAAF 

misconduct. See Figure IV-3. 

APPLICABLE FEDERAL LAWS

z

z

z

z

z

War Crimes Act of 1996 (Title 18 USC, Section 2441) 

Military Extraterritorial Jurisdiction Act of 2000 (Title 18 

USC, Section 3261)

The Uniting and Strengthening America by Providing 

Appropriate Tools Required to Intercept and Obstruct 

Terrorism Act of 2001 (Public Law 107-56) (commonly 

referred to as the USA Patriot Act) 

Federal Criminal Prohibition Against Torture (Title 18 

USC, Section 2340)

Uniform Code of Military Justice as expanded by the 

National Defense Authorization Act of 2007

Figure IV-3. Applicable Federal Laws
Chapter IV 

IV-6 JP 4-10 

 (a) War Crimes Act of 1996. Depending on the offense committed, US 

national CAAF may be prosecuted for war crimes under the War Crimes Act of 1996. This

act defines a war crime as any grave breach of the 1949 Geneva Conventions (such as 

willful killing or torture) or any violation of common Article 3 of the Geneva Conventions. 

Penalties include fines, imprisonment, or the death penalty if death results to the victim. 

Prosecutions under the War Crimes Act are the responsibility of federal civilian authorities. 

 (b) Military Extraterritorial Jurisdiction Act of 2000. In November 2000, 

the Military Extraterritorial Jurisdiction Act of 2000 was passed by Congress and signed 

into law. This law permits the prosecution in federal court of civilians who, while employed 

by or accompanying the Armed Forces overseas, commit certain crimes. Generally, the 

crimes covered are any federal-level criminal offense punishable by imprisonment for more 

than one year. The law applies to any DOD contractor or subcontractor (at any tier) or their 

employees provided they are not a national of or a legal resident of the HN. It does not 

apply to non-DOD contractor employees unless their employment relates to supporting the 

mission of DOD. This law authorizes DOD law enforcement personnel to arrest suspected 

offenders IAW applicable international agreements and specifies procedures for the removal 

of accused individuals to the US. It also authorizes pretrial detention and the appointment of 

counsel for accused individuals. Like the War Crimes Act, actual prosecutions under the 

Military Extraterritorial Jurisdiction Act are the responsibility of federal civilian authorities. 

DODI 5525.11, Criminal Jurisdiction Over Civilians Employed By or Accompanying the 

Armed Forces Outside the United States, Certain Service Members, and Former Service 

Members, provides more information on the implementation of this law. 

 (c) USA Patriot Act. In October 2001, the Uniting and Strengthening 

America by Providing Appropriate Tools Required to Intercept and Obstruct Terrorism 

(USA Patriot Act) Act of 2001 was passed by Congress and signed into law. The USA 

Patriot Act was enacted by Congress in response to the September 11, 2001 terrorist attacks. 

One of its provisions allows the US to apprehend and prosecute US citizens and foreign 

nationals who commit crimes on overseas US bases and facilities. Similar to the War 

Crimes and Military Extraterritorial Jurisdiction Acts, prosecutions under the USA Patriot 

Act are the responsibility of federal civilian authorities. 

CONTRACTOR PERSONNEL PROSECUTION 

The USA Patriot Act has been successfully used to prosecute a nonDOD US government contractor employee for crimes committed on an 

overseas US military forward operating base in Afghanistan. The 

individual in question was convicted of three misdemeanor counts of 

simple assault and one felony count of assault resulting in bodily 

injury. 

SOURCE: Jurist: Legal Reviews and Research, 

University of Pittsburgh, School of Law, August 2006 
Contractor Management 

IV-7 

 (d) Federal Anti-Torture Statute. Contractor personnel, such as those 

serving as military interrogators, could also be prosecuted under the federal anti-torture 

statute. A person found guilty under the act can be incarcerated for up to 20 years or receive 

the death penalty if the torture results in the victim’s death. Similar to the other federal 

laws, actual prosecutions under this statute are the responsibility of federal civilian 

authorities. 

 (e) UCMJ. As expanded by the National Defense Authorization Act of 2007, 

UCMJ has jurisdiction over persons serving with or accompanying the Armed Forces of the 

United States in the field, both in times of declared war and during all contingency 

operations. In accordance with DOD guidance, the unique nature of this extended UCMJ 

jurisdiction over civilians requires sound management over when, where, and by whom 

such jurisdiction is exercised. The UCMJ authority over CAAF must be judiciously applied 

and carefully coordinated with Department of Justice personnel to ensure that the CAAF 

discipline infractions are handled in a prompt, thorough manner and within the proper legal 

framework. 

 d. Disciplinary Options. The supported GCC, subordinate JFC, and Service 

component commanders can address contractor personnel disciplinary issues or misconduct 

through revocation or suspension of clearances, restriction from installations or facilities, or 

revocation of privileges. DFARS rules allow the contracting officer to direct the contractor, 

at its own expense, to remove and replace any contractor employee personnel who 

jeopardize or interfere with mission accomplishment or who fail to comply with or violate 

applicable requirements of this clause. The process of removing contractor employees is 

dependent upon the established GCC policies and the extent to which those policies are 

incorporated in the terms and conditions of the contract. When confronted with disciplinary 

problems involving contractors and contractor employees, commanders should seek the 

assistance of their legal staff, the contracting officer responsible for the contract, and the 

contractor management personnel. This allows for a thorough review of the situation and a 

recommendation for a course of action based on the terms and conditions of the contract, 

applicable international agreements, and HN or US law. 

3. Deployment/Redeployment Planning and Preparation 

 a. General. The global nature of the systems and external support contractor base 

dictates that contractors may deploy CAAF employees and their equipment from anywhere 

in the world. Even US-based contractors may have personnel originating from foreign 

locations and/or TCN employees. Proper deployment of contractor CAAF personnel and 

equipment requires early planning, establishment of clear and concise theater-entrance 

requirements, and the incorporation of standard deployment related clauses in appropriate 

contracts. 

b. Contractor Management Planning Overview. Contractor management planning 

is related to, but not the same as, contracting support integration planning. While the CSIP 

is focused on how we will acquire and manage contracted support, contractor management 

planning is focused on the government obligations under the terms and conditions of the 
Chapter IV 

IV-8 JP 4-10 

contract to provide support (e.g., accountability, FP, GFE) to contractor personnel. This 

includes developing policies and procedures required to ensure proper integration of 

contractor personnel into the military operations. While the JFC-level CSIP is coordinated 

and written by the J-4 or designated lead Service contracting staff, there is no single 

primary or special staff officer responsible to lead the contractor management 

planning effort. By its very nature, contractor management integration-related planning 

responsibilities cross all primary and special staff functional lanes. To address this situation,

the JFC should consider establishing a contractor management integration working 

group to ensure the various contractor management challenges are addressed and 

synchronized across all primary and special staff lines. The JFC’s lead Service 

contracting staff, responsible for contracting and/or joint theater support contracting 

command personnel, acts as advisors to the subordinate JFC and/or working group on how 

the contracting process affects in-theater contractor personnel management. The lead 

service contracting staff should not be designated as the lead for contractor management 

planning or execution oversight since their role is to assist the appropriate GCC and 

subordinate JFC staff section as necessary to ensure that the overall contract support effort is 

properly integrated with the contractor management planning effort. See figure IV-4.

(1) Contractor Management Plan. IAW DOD policy, the supported GCC and 

subordinate JFC must identify operational specific contractor management policies and 

requirements in the appropriate portion of the OPLAN/OPORD. These requirements 

include, but are not limited to: restrictions imposed by applicable international and HNS 

agreements; contractor-related deployment, theater reception, accountability, and strength 

reporting; operations security plans and restrictions; FP; PR; contractor personnel services 

JOINT STAFF CONTRACTOR MANAGEMENT PLANNING

JOINT STAFF 

MEMBER MAJOR RESPONSIBILITIES

Manpower & Personnel 

Directorate

Intelligence Directorate

Operations Directorate

Logistics Directorate

Contracting Officer

Plans Directorate

Communications System 

Directorate

Surgeon

Staff Judge Advocate

Personnel Service Support Policy

Threat Assessment, Screening Policies

Deployment, Force Protection Planning

Military Support Requirements

Contracting Planning, Contract Process Advisor

Overall Integration of Planning Effort

Information Technology, National Security Systems

Medical Policy

Legal Advice 

Figure IV-4. Joint Staff Contractor Management Planning 
Contractor Management 

IV-9 

support; medical support; and redeployment requirements. For each operation, the GCC 

should publish a CMP. The CMP specifies operational specific contractor personnel and 

equipment requirements in order for the JFC, Service components, joint theater support 

contracting command (if established), SOF, and DLA to incorporate into applicable 

contracts as required. The JFC and Service components should prepare supporting CMPs 

that support the GCC’s CMP but provide more specific details. 

CJCSM 3122.02C, Joint Operation Planning and Execution System (JOPES) Volume III 

(Crisis Action Time-Phased Force and Deployment Data Development and Deployment 

Execution), DFARS Sub-Part 225.74, Defense Contractors Outside the United States, and 

DFARS PGI 225.7401, Contracts Requiring Performance or Delivery in a Foreign Country, 

provide additional information on the contractor integration planning and procedures. 

(2) Planning for the Continuation of Essential Contractor Services. The JFC 

and all subordinate commanders responsible for coordinating contracted support are 

required by DOD and CJCS policy to plan for the continuation of essential contractor 

services during contingency operations. This planning requirement includes, but is not 

limited to, the following key considerations: 

(a) Formally establishing risks associated with the use of contracted support, 

and when deemed appropriate, taking steps to mitigate these risks. 

(b) Identifying mission essential contracted support requirements. 

(c) Ensuring all contracts clearly obligate contractors to continue essential 

contractor services during a contingency operation even in the event of hostile acts. 

(d) Having clearly established government and contractor responsibilities to 

ensure effective FP and security of deployed contractor personnel as dictated by the local 

threat environment. 

(e) Developing specific plans to replace contingency contractor personnel 

who are performing essential contractor services in contingency operations or to otherwise 

mitigate their loss of services to include alternative sources (military, DOD civilian, local, 

national, or other contractor(s)) or other actions that will mitigate the loss of such support. 

Refer to DODI 3020.37, Continuation of Essential DOD Contractor Services During Crises, 

for more information on this subject. 

(3) Avoiding Unscrupulous Labor Practices. The supported GCC, subordinate 

JFC, and Service component commands must take great care to avoid contractor 

management related actions that may be construed as trafficking in persons. Specific 

concerns in this area include, but are not limited to: illegal confiscation of passports, 

providing substandard housing, and uncontrolled use of labor brokers (normally 

through subcontractors) to avoid deployment preparation requirements. These 
Chapter IV 

IV-10 JP 4-10 

practices are clearly against international law, US law, Presidential directives, DOD policies, 

and military alliance policies and must not be tolerated. 

Refer to Victims of Trafficking and Violence Protection Act of 2000, Department of 

Defense Directive (DODD) 5500.7-R, Joint Ethics Regulation, National Security 

Presidential Directive (NSPD)-22, Trafficking in Persons, and DFARS Clause 252.222-

7006, Combating Trafficking in Persons, for more information this subject. 

c. Linking Contractor Management Requirements to the Contracting Process. 

The PCO is responsible to incorporate contractor management policy and procedural 

requirements into the contract. The ACO and/or the supported unit CORs are the links 

to the PCO for the oversight of contract performance and contractor management 

policy and procedure compliance. For prearranged contracted support, the PCO will use 

standard DFARS deployment clauses to ensure that the contractors understand and are 

prepared to execute their contract in a contingency environment. While generic in nature, 

these clauses ensure that contractors understand and comply with basic deployment 

preparation and in-theater management requirements. For contracts let for specific 

operations, the PCO should address theater and other operational specific contract 

requirements specified by the COR and subordinate JFC in the PWS, operational specific 

contract clauses, and other terms and conditions of the contract. The process for 

establishing contractor employee status and for ensuring that operational specific 

requirements are met by all CAAF is discussed in detail later on in this chapter. 

d. Determining Contractor Status. PCOs, utilizing DOD policy and ICW guidance 

from the requiring activity, determine contingency contractor employee status up front in the 

contracting process. For many employees, determining their status is relatively simple; for 

others, it is not. The key to success is for the contracting officer to be familiar with and 

follow DOD contractor management policy including applicable DFARS guidance and 

specific theater requirements. This determination should be made in close coordination with 

the supporting legal office. 

(1) The key factors that determine the specific status of a contractor employee are 

area of performance (normal proximity to US forces), citizenship, place of hire, normal 

place of residence, and place of residence in the operational area. For example, all US 

citizens employed under a systems support contract or subcontract that requires the service 

to be performed in support of deployed equipment, will, IAW DOD policy, be automatically 

afforded CAAF status. Likewise, all TCN contractor and subcontractor employees who do 

not normally reside in the operational area should be afforded CAAF status. In some cases, 

mission essential local national contractor personnel who work in the vicinity of US forces 

and are required to reside with US forces may be afforded CAAF status. A good example of 

a local national CAAF would be an interpreter who has a habitual relationship with a 

supported unit. It is imperative that the PCO and requiring activities be aware of the 

appropriate DOD policy and GCC contractor management guidance when determining the 

contingency contractor personnel status of TCN and local national personnel. 
Contractor Management 

IV-11 

(2) CAAF status will be formally codified by the issuance of a Geneva 

Convention Card (either a hard copy DD Form 489 or common access card [CAC]) and an 

LOA that reflects the appropriate level of government provided support (mess; billeting; 

post/base exchange access; morale, welfare, and recreation (MWR) access; medical care; 

etc.) when deployed. The GCC must be prepared to address issues that arise related to 

contractor employee status and/or in-theater support. In major operations that have 

significant contracted support, it may be necessary to establish a joint contractor personnel 

integration working group responsible for researching and providing recommended 

solutions to the myriad of contractor personnel issues that may arise when planning and 

executing joint operations. This working group would act as the adjudication authority for 

contractor personnel support related issues and would be made up of joint force primary and 

specific staff members as required. 

e. Establishing Theater Entrance Requirements. The supported GCC, ICW the 

appropriate subordinate JFC and Service components, determines and publicizes operational 

specific theater entrance requirements for all CAAF hired outside the JOA. Local national 

CAAF will receive appropriate training, equipment, etc., as required by GCC policy when 

hired. Theater entrance requirements include, but are not limited to, operational or JOA 

specific administrative preparation, medical preparation, as well as general training, and 

equipping guidance. 

Overarching DOD policy on theater entrance requirements can be found in DODI 3020.41,

Contractor Personnel Authorized to Accompany the US Armed Forces. This policy 

document also provides a comprehensive list of other related DOD, CJCS, and Service 

policy documents. Additionally, operational specific contractor management requirements 

are found in DFARS Sub-Part 225.74, Defense Contractors Outside the United States. 

f. General Overview of Specific Theater Entrance Requirements. The following is 

a synopsis of the key theater administrative and entrance requirements that can and will 

impact the joint force and Service components. The supported GCC and subordinate JFC 

staffs should work closely with the Service component staffs, special operations units, and 

other organizations as required to ensure that they understand, promulgate, and enforce these 

theater entrance requirements. 

(1) Identification Cards. All CAAF are required by international law to be 

issued a Geneva Conventions ID Card. The military departments are responsible to ensure 

that CAAF receive a DD Form 489 Geneva Conventions ID Card and/or a CAC prior to 

beginning deployment to the operational area. Expiration dates on the DD 489 and CAC 

should correspond to the end date of the contract period of performance. Normally, only 

replacement cards will be issued in the operational area. 

For additional guidance, see JP 1-0, Personnel Support to Joint Operations. See DODI 

1000.13, Identification (ID) Cards for Members of the Uniformed Services, Their 

Dependents, and Other Eligible Individuals, DODD 8190.3, Smart Card Technology, and 

the appropriate Service regulation for more information on issuance of personal 

identification cards to contractor personnel. 
Chapter IV 

IV-12 JP 4-10 

(2) Letters of Authorization. An LOA is required for CAAF to process through 

a deployment center; to travel to, from, and within the operational area. LOAs contain 

specific dates to cover the deployment and are issued to the contactor personnel prior to 

arrival in the operational area. Additionally, the LOAs identify any additional 

authorizations and government-furnished support CAAF (to include local nationals 

designated as CAAF) are entitled to under the contract. The PCO, or designee, shall 

validate requirements for and availability of, government support at the deployment center, 

joint reception center (JRC), and within the operational area with the requiring activity prior 

to preparing the final solicitation package and prior to preparing the LOA. Any change in 

the contract dates or entitlements will result in an updated LOA being issued to the 

contractor. CAAF are required by policy to maintain a copy of their LOA and have it in 

their possession at all times. 

 

DOD policy on LOA requirements can be found in DODI 3020.41, Contractor Personnel 

Authorized to Accompany the US Armed Forces. 

(3) Security Screening/Biometrics Identification Card/Base Access. Currently, 

there is no standard methodology for screening and issuing base access security badges for 

contractor personnel. The JFC must ensure that local screening and security badge issuance 

policy and procedures are in place for all contractor employees requiring access. This 

requirement is especially pertinent to contractors who have not been issued a CAC. Related 

PWSs and subsequent contracts should include the requirement that non-CAAF requiring 

base access participate in the local command’s screening and vetting program as a condition 

of employment. 

See DODI 2000.16, DOD Antiterrorism (AT) Standards, for policy on screening contractor 

employees. 

 (4) Medical Preparation. The medical preparation of CAAF includes 

deployment health briefings, medical surveillance screening, medical and dental 

evaluations, deoxyribonucleic acid specimen collection, determining prescription and 

eyeware needs, and immunizations. Specific medical related theater entrance requirements, 

such as human immunodeficiency virus screening requirements, are established by the 

supported GCC staff surgeon in consultation with the subordinate joint force surgeons. This 

medical related theater guidance normally covers specific immunization requirements, 

restrictions applicable to certain TCN or local national personnel, for specific mission 

functions (e.g., food service workers). Dental conditions that may preclude medical 

clearance include lack of a dental exam within the last 12 months or required dental 

treatment or re-evaluation for oral conditions, which are likely to result in dental 

emergencies. Service components and their associated contract management organizations 

are responsible to ensure CAAF meet predeployment medical processing and screening 

requirements. 

Additional medical screening and evaluation guidance can be found in DODI 3020.41,

Contractor Personnel Authorized to Accompany the US Armed Forces; DODD 6490.02E,

Comprehensive Health Surveillance; DODI 6490.03, Deployment Health; DODI 6205.4,
Contractor Management 

IV-13 

Immunization of Other Than US Forces (OTUSF) for Biological Warfare Defense; and JP 

4-02, Health Service Support. 

(5) Protective Clothing and Uniforms. Normally, contractors are responsible to 

ensure their employees are outfitted with appropriate occupational specific protective 

clothing and equipment necessary to safely carry out their contract requirements. Service 

components are responsible to ensure CAAF have adequate military protective clothing and 

equipment specified in the contract, to include any individual GFE items, IAW the 

supported GCC directives and Service policies. Normally, contractor personnel will not be 

issued or wear regulation US Service uniforms and/or other uniform items; however, the 

GCC or designated subordinate can authorize certain contractor employees to wear standard 

US Service uniforms on an operational need basis. In these cases, the uniform should be 

readily distinguishable through the use of distinctive patches, arm bands, nametags, and/or 

headgear. Contractor personnel authorized to wear distinctive military uniforms are 

required by policy to carry written authorization for the wearing of said uniforms on them at 

all times.

(6) Special Training Requirements for Contractor Personnel. The Services, 

DOD agencies, USTRANSCOM, and USSOCOM are responsible to ensure that current 

DOD required standard training and any operational-specific JFC and Service mandated 

training is accomplished prior to deployment of contractor personnel into the operational 

area. Key contractor personnel training requirements include, but are not limited to: 

(a) Legal status familiarization to ensure all contractor personnel understand 

their legal status IAW international law to include prevention of human trafficking 

information (required for all CAAF). 

(b) Familiarization training on US laws, HN laws, and SOFAs that contractor 

personnel may be subject to (required for all CAAF). 

(c) Government-furnished support familiarization that informs contractor 

personnel of what authorized government-furnished support (postal, MWR, medical, etc.) is 

available to them while accompanying US forces. 

(d) Law of war training commensurate with their duties and responsibilities. 

Specific training should include, but is not limited to, Geneva Conventions enemy prisoner 

of war (EPW) training for all contractor personnel who may come in contact with EPWs or 

other detainees and RUF training for all contractor personnel performing armed security 

services. 

(e) Personnel recovery training to inform contractors of the processes and 

actions required should they become isolated (required for CAAF). This training includes 

individual survival, evasion, resistance, and escape training as determined by the requiring 

activity and supported GCC, the subordinate JFC, and the Service component. 
Chapter IV 

IV-14 JP 4-10 

(f) Medical awareness training related to local health risks, medical related 

policies and procedures (required for all CAAF). 

(g) Theater specific requirements to include specific FP and security, hazard 

awareness to include local commander's authority, wear and use of military protective gear 

(if issued), compliance with theater deployment and redeployment accountability standards 

and requirements, and related information, such as customs and religious awareness 

training, as determined by the supported GCC, subordinate JFC, or Service component 

commander (required for all CAAF as directed by subordinate JFCs and Service component 

commanders; may include in-theater briefings to non-CAAF whose area of performance is 

on a US base or in the immediate vicinity of US forces). 

Along with DODI 3020.41, Contractor Personnel Authorized to Accompany the US Armed 

Forces, other key reference documents for contractor training include: FAR Part 22.17, 

Combating Trafficking in Persons; DODD 2310.2, Personnel Recovery; DODD 2311.01E, 

DOD Law of War Program; DODI 1300.23, Isolated Personnel Training for DOD Civilian 

and Contractors; DODI 6490.03, Deployment Health; JP 1-0, Personnel Support in Joint 

Operations; and JP 4-02, Health Service Support.

g. Contractor Personnel Certification and Deployment. Service and SOF 

component commanders and heads of DOD combat support agencies, field activities, and 

other organizations are responsible to ensure that their CAAF being deployed into an 

operational area are properly certified and fully integrated into the supported GCC and 

subordinate JFC deployment planning process. There are several different CAAF 

certification and deployment methodologies. 

(1) Process and Deploy With the Supported Unit. This is the preferred method 

of deployment for CAAF who have a habitual relationship with a specific supported unit. 

This group deployment process involves certification and deployment of CAAF in a 

coordinated fashion between the supported unit, contracting officer, the contractor and, if 

applicable, any contractor management oversight entity such as the Army’s LSU. Once 

certified, these CAAF normally deploy as part of the supported unit, which provides timephased force and deployment data. 

(2) Process and Deploy Non-Unit Related Personnel. Non-unit related 

personnel (NURP) include CAAF who deploy as individuals or as part of a small group and 

not with any habitually supported unit. CAAF NURP are required to deploy through a 

replacement center or equivalent Service certified or operated individual deployment 

preparation process. In this process, CAAF NURP are certified for deployment via their 

processing through a designated replacement center or the equivalent process. Once 

certified, CAAF NURP are generally immediately deployed via transportation means 

directed by military authorities or as identified in their contracts. In-processing through the 

JRC in theater is required. 

(3) Self-Certification and/or Deployment. Self-certification and/or deployment 

applies to CAAF who have authorization for self-certification and/or deployment. This 
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IV-15 

authorization is usually restricted to major contractors such as Service CAP 

contractors and is granted by the appropriate Service. CAAF self-certification must 

meet or exceed replacement center processing and preparation standards. In some cases, 

selected contractors may also be authorized to arrange their own overseas deployment as 

long as it is properly integrated into the Defense Transportation System. Self-certifying and 

self-deploying contractors are still required to meet CAAF accountability standards as set by 

DOD and/or CCDR policies. 

See DODD 4515.13-R, Air Transportation Eligibility, for more information.

 

h. Time-Phased Force and Deployment Data. CAAF being deployed into the 

operational area must be properly integrated into the deployment process. This is especially 

important in uncertain or hostile environments where there is limited or no commercial 

access to the operational area. In these types of operations, time phased force and 

deployment data should include contractor NURP cargo and employee requirements. 

i. General Redeployment Considerations. Service components, DOD agencies, 

USTRANSCOM, and USSOCOM are responsible to ensure that redeploying CAAF are 

properly managed and controlled. Key redeployment actions include, but are not limited to: 

updating the appropriate contractor employee accountability database; recovery of 

government issued badges and ID cards; recovery of all GFE or CAGO equipment; required 

debriefings; and, withdrawal of security clearances (as applicable). Out-processing through 

the JRC in theater is required. Paragraph 6 provides more discussion on GFE and CAGO. 

j. Medical Redeployment Requirements. CAAF are required by DOD policy to 

complete a post-deployment health assessment and obtain a post-deployment health 

debriefing. Contract terms and conditions should clearly identify these responsibilities, 

including allocating all associated cost. 

PREPARATION AND DEPLOYMENT OF CONTRACTOR PESONNEL 

In Operation IRAQI FREEDOM, Kellogg Brown & Root, Inc. (KBR), the 

prime Army Logistics Civil Augmentation Program (LOGCAP) 

contractor, was authorized by the Department of the Army to selfcertify its personnel for deployment. To meet this requirement, KBR 

set up and operated its own replacement center for its direct hire 

employees. KBR's replacement center was inspected and certified by 

Army officials to ensure that it met Service individual deployment 

processing requirements. Additionally, KBR was given authorization 

by the supported commander to arrange deployment of its employees 

through commercial means. In this and in other earlier operations, 

KBR utilized commercial air carriers to fly in both prime and 

subcontractor personnel directly to major airbases, thus freeing up 

military transport aircraft to perform other more high priority missions. 

SOURCE: Department of the Army G-4 LOGCAP Program Manager
Chapter IV 

IV-16 JP 4-10 

4. In-Theater Contractor Management 

In-theater contractor management challenges discussed in this section include 

accountability, reception, on-ward movement, and restrictions on contractor support (by 

area, phase of operation, or other measures as appropriate). Other key in-theater 

contractor personnel management considerations such as discipline, FP, and security, are 

discussed in other sections of this chapter. 

a. Personnel Accountability. Proper accountability of CAAF is extremely important 

to the GCC. Without such information, it is impossible to properly plan for and to integrate 

contingency contractor personnel into the overall operation. It is critically important in 

determining and resourcing government support requirements such as facilities, life support, 

FP, PR, MWR, and force health protection in uncertain, hostile, and/or austere operational 

environments. All contracting agencies are required by DOD policy to ensure that CAAF 

data is entered and maintained in the DOD designated contractor personnel management 

system of record. This system will provide the supported GCC and subordinate JFC byname accountability of CAAF when deployed into an operational area to include personnel 

predeployment certification and location data. 

b. Reception. All CAAF will be processed in and out of the operational area through a 

JRC or other personnel centers designated by the supported GCC. The JFC can establish 

additional in-and-out processing requirements for their operational area. The JRC will 

verify that the CAAF are included in the contractor personnel management system database 

and that the CAAF have met all theater entrance requirements. CAAF who do not meet 

established theater entrance requirements will either be sent back to their point of origin or 

placed in a holding area until these requirements are met. The supported GCC will establish 

specific policies for handling CAAF who do not meet all established theater entrance 

requirements which their subordinate JFCs will implement. 

c. Onward Movement. Once the JRC or comparable organization fully verifies that 

the CAAF are included in the contractor personnel management system database and that all 

theater entrance requirements are met, CAAF are eligible to be issued any required 

operational specific identification documents. If required by the contract, the JRC 

operations/movement cell or the respective contractor management team will arrange for 

transportation of the contractor and their equipment to the point of performance. 

Arrangement of intratheater transportation of CAAF will include the appropriate FP/security 

measures commensurate with FP/security measures taken for DOD civilians. 

d. Location and Movement Considerations. Contractors can be expected to perform 

virtually anywhere in the operational area, subject to the terms of the contract, and the JFC's 

risk assessment of the local threat level. Based on this risk assessment, the supported 

GCC and/or subordinate JFCs may place specific restrictions on locations and timing 

of contract support; however, care must be taken to coordinate any restrictions with 

component commanders, applicable DOD agencies, and contracting officers to avoid 

disruption of planned operations and potential unauthorized commitment of US funds 

through contract constructive changes. Additionally, contractor personnel location 
Contractor Management 

IV-17 

reporting and equipment movement must be incorporated into the supported GCC and 

subordinate JFC movement control, personnel accountability, and FP plans. See below for 

more information on FP related requirements. 

5. Force Protection and Security 

FP and security of contractor personnel and equipment is a shared responsibility 

between the contractor and the government. In a permissive environment, the supported 

GCC and subordinate JFC may have only limited special planning considerations and this 

security responsibility would normally fall to the contractor. In hostile environments, 

contractor related FP and security requirements can be a major challenge to the JFC and 

subordinate commands. Additionally, FP of CAAF is a significant consideration for the 

supported GCC. 

a. Determining Specific FP and Security Measures. The GCC and subordinate 

commands at all appropriate levels must plan for the protection of CAAF in the overall FP 

and security plan in operations where the contractor cannot obtain effective security 

services, such services are unavailable at a reasonable cost, or threat conditions necessitate 

security through military means. In general, military provided FP is the preferred option 

for operations where there is an on-going or anticipated level II (small-scale, irregular 

forces conducting unconventional war) or III (conventional forces capable of air, land, 

or sea attacks) threat level. In these situations, it is in the best interest of the Government 

to provide military security to CAAF or at a minimum, closely coordinate the use of 

commercial security firms to protect CAAF. 

See DODI 3040.21, Contractor Personnel Authorized to Accompany the US Armed Forces, 

JP 3-10, Joint Security Operations in Theater, and JP 3-07.2, Antiterrorism, for more 

information on determining specific FP and security measures. 

b. Establishing Force Protection/Security Requirements in the Contract. The 

contracting officer shall include in the contract the level of protection to be provided to 

CAAF. In appropriate cases, the JFC may be required to provide this security through 

military means, specific security measures shall be mission and situation dependent as 

determined by the subordinate JFC. All contingency contractor personnel, not just 

CAAF, whose area of performance is in the vicinity of US forces shall be required to 

comply with applicable supported GCC and subordinate JFC FP policies and 

procedures. In hostile environments CAAF, living with and routinely working within a US 

military facility or in direct vicinity of US forces, will receive security measures 

commensurate with the level of security provided to DOD civilians. Non-CAAF employees 

whose area of performance may be on a military facility or in close contact with US forces 

will receive security support incidental to their work location. 

c. Base Access. The JFC and individual base commanders are responsible for the 

security of all military facilities within the operational area. The lack of a fully fielded 

DOD-wide standard security and badging system requires the JFC and subordinate 

commanders to develop local policies and procedures to vet and badge CAAF as well as 
Chapter IV 

IV-18 JP 4-10 

those non-CAAF who need routine access to military facilities. Not having these policies 

and procedures in place can severely reduce the effectiveness, timeliness, flexibility, and/or 

efficiency of contracted support. This can be an especially significant issue when changes 

to the operation require a quick surge of contracted support from one base to another. Often 

local badging policies preclude this from happening in a timely manner. 

d. Individual Movement Protection. Another key concern for the JFC is protection 

of contractor personnel during individual or small group movements within the operational 

area. In general, all CAAF should be provided protection during transit within the 

operational area commensurate to protection provided to DOD civilians. It is important 

that the JFC and subordinate commanders balance FP requirements with the need for 

contractor personnel to have ready access to their place of performance. Overly restrictive 

movement requirements can hinder the responsiveness of contracted support, especially for 

systems support contractors who are providing support on an area or general support basis. 

Too lenient movement restrictions may have a negative effect on contracted support if 

contractor personnel become casualties due to the lack of/or improper enforcement of 

movement related FP and security measures. In operations where more than a level I 

(Negligible) threat exists, routine military movements should include contractor personnel. 

Otherwise, commanders responsible for local FP and requiring activities well need to make 

special arrangements. In all cases, contractor movement protection/security arrangements 

must be coordinated with the designated movement control organization. 

Contracted “jingle trucks” were used extensively to deliver non-mission critical supplies to 

military forces in Afghanistan.
Contractor Management 

IV-19 

e. Convoy Protection. The subordinate JFC or lead Service component responsible 

for land movement control must establish, publish, and implement operational specific 

contractor related convoy FP standards and procedures. Depending on the operational 

situation, contractor vehicles and personnel may be required to join military convoys 

(commonly referred to as a mixed “green” and “white” convoy) or they may be authorized 

to transit the operational area in convoys made up exclusively of contractor personnel and 

vehicles (commonly referred to as an all “white” convoy). In either case, the JFC or 

designated subordinate commanders are responsible to ensure that adequate FP measures are 

in place to protect contractor convoy operations that are in support of the deployed military 

forces. 

See the Air, Land, Sea Application Center's Multi-Service Publication Army Field Manual 

4-01.45/ Marine Corps Reference Publication 4-11.3H/ US Navy Tactics, Techniques, and 

Procedures 4-01.3/US Air Force Tactics, Techniques and Procedures (I) 3-2.58, MultiService Tactics, Techniques and Procedures for Tactical Convoy Operations, for more 

information on integrating contractor personnel into convoy operations. 

f. Issuance of Personal Defense Weapons. In general, individual contractor 

personnel should only be armed in exceptional circumstances. However, consistent with 

applicable US, HN, international laws, relevant SOFAs or other international agreements, 

and DOD policy, the supported GCC may authorize contractor personnel to carry a 

government issued or approved individual weapon for personal protection. Variables such 

as the nature of the operation, the type of conflict, any applicable status agreement related to 

the presence of US forces, and the nature of the activity being protected require case-by-case 

determinations. IAW DOD policy, the supported GCC can delegate this authority down to a 

designated general officer, normally the subordinate joint force joint security officer. 

DODI 3020.41, Contractor Personnel Authorized to Accompany the US Armed Forces, 

provides detailed policy guidance on issuance of personal defense weapons to contractor 

personnel. 

g. Use of Contingency Contractor Personnel to Provide Security Services. If 

consistent with applicable US, HN, international laws, and relevant SOFAs, a defense 

contractor may be authorized to provide security services for other than uniquely military 

functions. The supported GCC and subordinate JFC should, however, use caution 

when contemplating the use of contracted security to protect US forces, facilities, and 

supplies in any operation where there is a current or expected level II or III threat. In 

general, threat levels above level I (Negligible) require significant FP measures (e.g., crew 

served weapons, combined arms response, indirect fire) that may be considered to be an 

inherently governmental function.

(1) Whether a particular use of contract security to protect military assets is 

permissible is dependent on the facts and requires detailed legal analysis and coordination by 

the subordinate JFC and SJA. Variables such as the nature of the threat, the type of conflict, 

applicable HN laws, and the nature of the activity being protected require case-by-case 

determinations. The use of force by contingency contractor personnel is often strictly limited 
Chapter IV 

IV-20 JP 4-10 

by domestic (HN and US) laws and not protected by SOFA provisions. Contingency 

contractor personnel, providing security services who exceed the limits imposed by applicable 

law, may be subject to prosecution. Additionally, there can be significant civil-military related 

risks when utilizing private security forces in military operations. For example, the local 

populace may not distinguish between a private security guard and a US military member when 

it comes to use of force, improper actions, etc. Incidents involving private security forces can 

have potentially negative impact on the operation, especially since the supported GCC and their 

subordinate JFC have significantly less direct control on these private security contractors when 

compared to US military members. 

(2) The supported GCC, subordinate JFC, and/or designated subordinate Service 

or functional component commanders must ensure that operational specific procedures to 

coordinate contractor provided security and military security/FP support actions (to include 

incident reporting and investigation) are developed, promulgated, and enforced within the 

operational area. Additionally, the supported GCC and subordinate JFC must work closely 

with the contracting officers, the contractors, the HN (if applicable), and DOS in 

establishing appropriate RUF for contract security companies operating in the operational 

area. 

Supported GCCs, their subordinate JFCs, and their legal staffs should closely review 

provisions found in DODI 3020.41, Contractor Personnel Authorized to Accompany the US 

Armed Forces, and DODI 1100.22, Guidance for Determining Workforce Mix, when 

contemplating the possibility of utilizing commercial security services to protect US forces, 

facilities, and supplies. 

h. Reporting Law of War Violations. All DOD personnel are required to report 

possible, suspected, or alleged law of war violations. Additionally, CAAF are also required 

to report such incidents to their requiring activity or to the CCDR. The supported GCC, 

subordinate JFC, and Service component commanders, especially when utilizing armed 

contract security, should ensure that adequate coordination mechanisms are in place to 

ensure timely and accurate law of war incident reporting. 

DODD 2311.01E, DOD Law of War Program, provides detailed policy guidance on law of 

war incident reporting.

6. Government Provided Support 

As most military operations are conducted in austere and/or hostile and uncertain 

environments, contractor personnel support will often be provided through military means 

or via another contract directed by the military. In these situations, the contracting officer 

will detail the government support to be provided in the terms and conditions of the 

contract, after determining support requirements and availability of such support 

from theater DOD support providers. Planning and oversight of government furnished 

support actions is primarily a Service component responsibility; however, in major 

operations, this support planning and execution may require direct involvement of the 

supported GCC and subordinate JFC. Without understanding the overall support 
Contractor Management 

IV-21 

requirements, to include specific government furnished support requirements for CAAF, the 

supported GCC and subordinate JFC will not be able to accurately plan for and direct CUL 

support responsibilities in the operational area. Key areas of concern are discussed below in 

more detail along with major references for areas of support. 

a. Base Operating Support (BOS) and/or Facilities. In permissive and non-austere 

operations, contractors should arrange for their own lodging, subsistence, and facilities; 

however, in austere and/or hostile and uncertain environments this may not be practical or 

desirable. The circumstances under which the military provides this support would be those in 

which the contractor has no commercial infrastructure from which to draw from or when the 

cost for a contractor to furnish the support is not economical. In situations when contractorarranged BOS would impede the government’s efforts to provide FP, generate competition 

with the military, or adversely influence prices, the military must consider providing the 

support or at least directly coordinating this support to be within US bases. The supported 

GCC and subordinate JFC have the authority to direct where CAAF reside, within the terms 

and conditions of the contract. CAAF must generally be provided the same standard support 

that is applied to DOD civilian personnel of similar grade and responsibility level. 

(1) In some operations or phases of operations, selected CAAF may be required to 

temporarily live under field conditions. Field conditions are quite different from normal 

civilian life and are characterized by austere and communal living and a collective 

responsibility for the living area. Contracting officers should ensure that there is 

appropriate language in the contract for CAAF who are expected to perform their 

duties in field conditions.

(2) Subsistence may be provided to contractors, either in conjunction with 

government-provided lodging, or separately, when contractor employees during their daily 

work shift are unable to obtain subsistence for operational reasons. For those CAAF living 

in field conditions, the food provided might be prepackaged rations with very little 

opportunity for choice; consequently, special diets may not be accommodated. In some 

sustained operations, it may be desirable to have separate contract run CAAF dining 

facilities that provide ethnic based subsistence that may be both less expensive and more 

appealing to TCN and/or local national CAAF. 

(3) Although it is natural to expect reimbursement from contractors for the cost of 

lodging and subsistence, the cost for such support would normally be included in the overall 

cost of the contract. Therefore, when possible, subsistence support should be done on a nonreimbursable basis, eliminating the unnecessary administrative burden of reimbursement. 

However, joint force and Service component planners must include the cost of supporting 

contractors in the overall cost of the operation so that adequate funding is provided. 

(4) Like BOS, facility support to contractor personnel is very situationally 

dependent. Facilities support must be planned for as early on as possible, especially in 

austere and/or hostile and uncertain environments where contract companies cannot 

coordinate their own facility support. In these situations, external and systems support 

contractor managers must provide their requirements during contract negotiations. The 
Chapter IV 

IV-22 JP 4-10 

contracting officer or designated ACO must then coordinate these requirements with the 

appropriate joint force or Service component staff engineer. In some situations, theater 

support contracts which utilize TCN CAAF vice local national non-CAAF employees may 

also require government furnished base operating and facilities support. 

b. Personnel Recovery. PR is the sum of military, diplomatic, and civil efforts to 

prepare for and execute the recovery and reintegration of isolated personnel. The GCC and 

subordinate commands must plan for the possible isolation, capture or detention of CAAF 

by adversarial organizations or governments. Recovery of isolated personnel may occur 

through military action, action by NGOs, other USG-approved action, and diplomatic 

initiatives, or through any combination of these options. IAW DOD policy, all US citizen 

CAAF must be included in the PR program as demonstrated in JOPES and subordinate 

OPLANs and OPORDs, as well as CMPs. The supported GCC and subordinate JFC may 

designate that certain other CAAF are included in the PR program as well. The contract and 

CMP should address how contractors are included in the theater PR plan and receive PR 

training and support products. 

DODI 3020.41, Contractor Personnel Authorized to Accompany the US Armed Forces; 

DODD 2310.2, Personnel Recovery; and JP 3-50, Personnel Recovery, provide additional 

details on the PR program. 

c. Individual Protective Equipment. The contract shall specify the level of 

government-furnished support and what support is reimbursable to the government. 

Generally, contractors shall be required to provide all life, mission, and administrative 

support to its employees necessary to perform the contract according to DODI 4161.2, 

Management, Control, and Disposal of Government Property in the Possession of 

Contractors. However, when determined necessary by the Service component commander 

IAW the supported GCC and subordinate JFC guidance, CAAF may be issued military 

individual protective equipment (e.g., chemical defensive gear, body armor, personal 

protective equipment) at no cost to the contractor.

d. Medical. During contingency operations in austere and/or hostile and uncertain 

environments, CAAF will most likely be unable to access medical support from local 

sources. The DOD policy requires the supported GCC and subordinate JFC to provide 

emergency medical care to contractor employees, including CAAF and non-CAAF who are 

injured in the immediate vicinity of US forces or on a US base. This medical support 

includes emergency and resuscitative care, stabilization, hospitalization at medical treatment 

facilities, and assistance with patient movement in emergencies where loss of life, limb or 

eyesight could occur. When DOD policy allows and contract terms and conditions require 

it, the joint force needs to be prepared to provide primary medical care to all CAAF as 

coordinated by the joint force surgeon, contracting officer, and SJA as mission dictates. All 

costs associated with the treatment and transportation of contractor personnel to the selected 

civilian facility are reimbursable to the USG and shall be the responsibility of the 

contingency contractor personnel, their employer, or their health insurance provider. 
Contractor Management 

IV-23 

Much more detailed guidance on medical support to deployed contractor personnel can be 

found in DODI 3020.41, Contractor Personnel Authorized to Accompany the US Armed 

Forces, DODI 6490.03, Deployment Health and JP 4-02, Health Service Support. 

e. Major Equipment Items. Major equipment items include Class VII GFE and 

CAGO equipment. GFE includes Class VII items that are either deployed into the 

operational area with the contractor or theater provided equipment that is issued to the 

contractor in the operational area. GFE issuance, maintenance, and return are the 

responsibility of the appropriate Service component, SOF organization, or DLA contracting 

organization. However, in some operational situations, OSD may require the 

subordinated JFC to coordinate operations/theater specific disposition of GFE and/or 

CAGO equipment. For example, in some stability operations, OSD may direct that certain 

GFE and/or CAGO equipment be transferred to HN or designated multinational force. If 

transfer of GFE and/or CAGO equipment is anticipated, the subordinate JFC J-4 should 

work closely with the appropriate DOS, DOD, and affected component organization to 

ensure that clearly understood and properly coordinated disposition instructions are provided 

in a timely manner. 

f. Postal. The nationality of the contractor employee usually determines postal 

support. US CAAF who deploy in support of US Armed Forces, may be authorized use of 

the Military Postal Service (MPS) if there is no US postal service available and if MPS use 

is not precluded by the terms of any international or HN agreement. CAAF TCN employees 

normally are provided with postal support through the existing HN system or through 

arrangements made by the employing contractor. In some operations, TCN personnel may 

be authorized limited access to MPS for the purpose of mailing paychecks to their home 

country. In most circumstances, TCN and local national employees will not be provided 

access to the MPS. 

Additional information on postal operations can be found in DOD 4525.6-M, Department of 

Defense Postal Manual. 

g. Mortuary Affairs. The joint mortuary affairs program is a broadly based military 

program that provides for the necessary care and disposition of deceased personnel, 

including personal effects across the full range of military operations. The supported GCC, 

normally through the Army component acting as the lead Service for mortuary affairs, 

executes this program in the AOR. This program includes the search, recovery, tentative 

identification, care, and evacuation or temporary interment, disinterment, and reinterment of 

deceased personnel, to include all CAAF, within the operational area. Mortuary affairs 

support to contractor personnel is normally accomplished through USD(P&R) coordination 

with DOS to include cost reimbursement, where appropriate. The specific nature and extent 

of the support is determined during the planning process and communicated to military 

forces and contractors through governing OPLANs/OPORDs and contractual documents. 

Additional information on mortuary affairs can be found in DODD 1300.22, Mortuary 

Affairs Policy and JP 4-06, Mortuary Affairs in Joint Operations.
Chapter IV 

IV-24 JP 4-10 

h. Post/Base Exchange Privileges. When deployed, CAAF CAC holders are generally 

eligible to use military exchange facilities for health and comfort items in operations where 

CAAF do not have access to similar commercial sources. This privilege depends on the overall 

operational situation, SOFAs, and individual contract terms and conditions.

Additional information on exchange privileges for deployed contractors can be found in 

DODI 1330.21, Armed Services Exchange Regulations. 

i. Morale, Welfare, and Recreation. In general, contractors have a responsibility to 

provide MWR and other quality-of-life support to their own employees as much as practical. 

The availability of MWR programs in the operational area vary with the deployment 

location. Available MWR activities may include self-directed recreation (e.g., issue of 

sports equipment), entertainment ICW the United Services Organization and the Armed 

Forces Professional Entertainment Office, military clubs, unit lounges, and some types of 

rest centers. The subordinate JFC should authorize CAAF CAC holders to utilize MWR 

support on a space-available basis when contractor and/or other sources are not available. 

7. Coordinating Non-Department of Defense Contract Support

a. Scope of Challenge. The scope of non-DOD contract support integration 

requirements are very much mission dependent. In some joint operations, the JFC may have 

only limited requirements to integrate non-DOD contracted support into military operations 

while in others, there may be major challenges that defy any simple solutions. For example, 

in OIF, contractors in support of OGAs, IGOs, and NGOs could be found throughout the 

JOA to include significant use of contracted security forces. 

b. Specific Challenges. In complex, long-term stability operations, there are a myriad 

of challenges related to OGA, IGO, and NGO contractors. Key to addressing these 

requirements is an active civil-military coordination effort to include the use of civil-military 

operations centers or other mechanisms to ensure proper civil-military information sharing 

and cooperation. Two of the biggest challenges for the JFC are coordinating non-DOD 

contractor movements and non-DOD contracted security elements. 

(1) Movement Coordination/Deconfliction of Non-DOD Contractor 

Personnel and Equipment. The subordinate JFC may be required to assist in integrating 

non-DOD contractor personnel and equipment into both air and surface movements, 

especially during on-going major reconstruction and transition to civil authority related 

actions. While presenting a planning challenge, it is in the best interest of the subordinate 

JFC to assist DOS and other non-DOD organizations in contract-related actions within the 

JOA. The major challenges associated with this support include obtaining advance 

knowledge of the requirement, determining military responsibility for FP and security 

requirements, and establishing communications with the contractor. 

(2) Coordination and Support to Non-DOD Private Security Company 

Operations. Of all of the non-DOD contracting related coordination tasks, none is more 

important and challenging than coordinating with non-DOD agencies who hire private 
Contractor Management 

IV-25 

security firms. These private security firms, sometimes including contracted uniformed 

foreign military members, are routinely used to provide protection of non-DOD personnel in 

transit and at work sites in high threat areas. Without proper coordination the risk of an 

incident involving friendly military forces on contractor employees can be significant. The 

subordinate JFC and its subordinate commanders must take great care in establishing 

adequate visibility (location, mission, RUF) of these non-DOD private security related 

contracts. Some key considerations follow: 

(a) Does the subordinate JFC have back-up security support requirements to 

DOS or other non-DOD organizations? If so, are these organizations using private security 

firms for protection? 

(b) What is the subordinate JFC's authority, if any, in planning and utilization 

of non-DOD contracted security firms? 

(c) Where are these security firms operating? 

(d) What are the RUF? Did the subordinate JFC have input to the RUF? 

(e) Has the JFC, COM, and other interested parties developed workable and 

reliable information sharing mechanisms? How will the military forces communicate with 

these private security firms? Are their systems compatible with the on-hand military 

systems? Has the communication plan been exercised? 

(f) Are subordinate commanders properly informed of their local 

requirements? Have they conducted proper coordination with these security firms and/or 

rehearsed back-up security actions? 

COORDINATING INTERAGENCY SECURITY CONTRACTORS 

In Operation IRAQI FREEDOM, Multinational Force-Iraq coordinated 

directly with the Department of State (DOS) Chief of Mission to ensure 

that major DOS sponsored reconstruction efforts, to include DOS funded 

contracted security forces, were properly integrated into military security 

plans. In this particular operation, the problem was so challenging that 

combined DOS-Department of Defense coordination center was stood up 

to provide the necessary planning capabilities, information sharing, and 

coordination measures. This effort included regional reconstruction 

coordination centers that were directly linked into area commander's 

operations centers. These regional coordination centers provided the 

area commanders key information on DOS missions being performed 

within their area of operations. This information was critically important 

when area commander was called on to provide back-up security support 

to DOS missions, facilities and personnel. 

SOURCE: Private Warriors, Public Broadcasting Frontline 
Chapter IV 

IV-26 JP 4-10 

Intentionally Blank 
APPENDIX A 

SERVICES’ SYSTEMS SUPPORT CONTRACT OVERVIEW 

A-1 

1. General 

a. Systems support contracts are prearranged contracts awarded by Service acquisition 

PM offices that provide technical support, maintenance support, and in some cases, Class IX 

support for selected military weapon and support systems. Systems support contracts 

routinely provide support to newly fielded aircraft, land combat vehicles, automated C2, as 

well as other support systems. Systems support contracting, contract management, and PM 

authority resides with the Service systems acquisition program offices. Systems support 

contractor personnel, made up mostly of US citizens, provide support in garrison and often 

deploy with the force in both training exercises and during contingency operations. Since 

the supported GCC and subordinate JFC do not maintain resident systems support 

contracting authority and acquisition oversight, they generally have less control over the 

execution of systems support contracts in the JOA than other types of contracts. 

b. Systems support contract FSRs provide key technical support for Service equipment 

in various locations within the operational area. These FSRs are mission essential CAAF 

that provide either temporary support during the initial fielding of a system, sometimes 

called interim contracted support, or long term support for selected materiel systems, often 

referred to as contractor logistic support. These mission essential personnel are managed by 

Service acquisition offices and must be properly integrated in to military operations as 

discussed in Chapter IV, “Contractor Management.” The following paragraphs provide an 

overview of how each Service manages their systems support contracts and associated 

CAAF. 

2. US Army Support 

a. The Army uses systems support contracts to support numerous deployable Army 

systems. Supported systems include, but are not limited to, newly or partially fielded 

vehicles, weapon systems, aircraft, C2 systems, standard Army management information 

systems, and numerous communications systems. These prearranged contracts are awarded 

by the combined Assistant Secretary of the Army for Acquisition, Logistics and Technology 

(ASA[ALT]), and/or USAMC life cycle management commands (LCMCs) and other 

independent ASA(ALT) PM offices. In many cases, these CAAF systems support contract 

personnel have a habitual relationship with the supported unit and provide support both in 

garrison and upon deployment. These LCMC teams can range from a single LCMC 

systems contract FSR, such as a combined arms battalion with tanks, to the significant 

LCMC team presence currently found in the Stryker brigade. When utilized in contingency 

operations, these contracts and their associated personnel are managed under teaming 

arrangements between the supported units and the Army’s primary acquisition, logistics, and 

technology (ALT) oversight unit, the Army field support brigade (AFSB). 

 

b. All AFSBs are assigned to ASC, but operate under the OPCON of the regionally 

aligned Army theater sustainment commands during contingency operations. As the 

primary ALT support integrator for deployed Army forces (ARFOR), the AFSBs provide 

systems contract and associated CAAF oversight through their subordinate logistic support 

elements and brigade logistic support teams. The AFSBs assist the supported units in FSR 
Appendix A 

A-2 JP 4-10 

deployment and function as a conduit between the supported unit and the supporting LCMC 

and independent Army PM offices. 

c. The three LCMCs are USAMC major subordinate commands that include imbedded 

ASA(ALT) PM offices. These commands are responsible to provide “cradle-to-grave” 

equipment support from procurement and fielding through sustainment and disposition. 

LCMCs are a key source for AFSB reach-back and call-forward systems support contract 

capabilities. 

More detailed discussion on Army systems contract support can be found in Field Manual 

(FM) Interim 4-93.41, Army Field Support Brigade, and FM 3-100.21, Contractors on the 

Battlefield. 

3. US Navy - Marine Corps Support 

a. The Assistant Secretary of the Navy for Research, Development, and Acquisition 

(ASN[RD&A]) is the Department of the Navy Acquisition Executive (NAE). The NAE has 

full responsibility for all acquisition programs through program executive officers (PEOs) 

and/or project managers or systems command (SYSCOM) commanders. The Navy 

SYSCOM commanders act for and exercise the authority of the NAE to directly supervise 

management of assigned programs and report directly to the ASN(RD&A) for all matters 

pertaining to acquisition. Common responsibilities for these commanders include serving as 

HCA for both assigned programs and project manager programs and overseeing in-service 

support of weapon and informational/technical systems. Navy systems support contracts 

can therefore be awarded by any of the SYSCOMs for their specific types of systems under 

their responsibility. 

b. The Marine Corps Systems Command (MARCORSYSCOM) is one of the 

Department of the Navy SYSCOMs and develops and supports Marine air-ground task force 

(MAGTF) specific systems requirements to include Marine Corps unique chemical, 

biological, radiological, and nuclear defense materials and equipment; training systems and 

equipment associated with Marine Corps unique requirements; amphibious raid; and ground 

reconnaissance systems and equipment. The MARCORSYSCOM is responsible to develop 

and support Marine Corps unique ammunition and weapons, to include procurement, 

surveillance, and maintenance of associated ordnance items. 

c. The Naval Supply Systems Command (NAVSUPSYSCOM) commander acts 

for and exercises the authority of the NAE to directly supervise, manage, and serve as the 

logistics support authority in support of other Navy SYSCOMs, PEOs/project managers, 

and their assigned acquisition programs throughout their life-cycle. The commander of 

NAVSUPSYSCOM reports to ASN(RD&A) for overall execution of responsibilities, but 

also reports to Chief of Naval Operations and the Commandant of the Marine Corps 

respectively for the execution of in-service logistics support authority responsibilities. 
Services’ Systems Support Contract Overview 

A-3 

4. US Air Force Support 

a. All Air Force systems support contracting is organized under Air Force Materiel 

Command (AFMC), headquartered at Wright-Patterson Air Force Base (AFB), OH. AFMC 

is further organized into the Air Force Research Laboratory (AFRL), six product centers, 

three test centers, and three logistics centers. The AFRL, located at Wright-Patterson AFB, 

leverages technical information to lead the discovery, development, and integration of 

affordable warfighting technologies for our air and space forces. 

b. The product centers are tasked to develop, design, and acquire the best, most 

technically advanced weapon systems in the world. The test centers subject each weapon 

system and its components to exacting operational standards. The logistics centers provide 

“cradle-to-grave” management, specialized logistics support, maintenance, and distribution 

for weapons systems worldwide. 
Appendix A 

A-4 JP 4-10 

Intentionally Blank 
APPENDIX B 

SERVICES’ EXTERNAL SUPPORT CONTRACT OVERVIEW 

B-1 

1. General 

External support contracts are prearranged contracts, or contracts awarded during the 

contingency, from contracting organizations whose contracting authority does not derive 

directly from the theater support contracting HCAs or from systems support contracting 

activities. External support contracts provide a variety of logistic and other non-combat 

related services. This appendix provides high level details regarding key Service and DLA 

external support contract capabilities. The Service CAPs are the most commonly and 

extensively used external support contracts. CAPs provide the supported GCC and 

subordinate JFC an alternative source for meeting logistic services and general engineering 

shortfalls when military, HNS, multinational, and theater support contract sources are not 

available or not adequate to meet the joint force needs. All three military departments have 

their own CAPs, each with some similarities as well as some unique differences. 

a. Service CAP similarities: 

(1) All serve as an augmentation capability to organic military capabilities. 

(2) All are long-term (four to nine years depending on the program) competitively 

awarded contracts. 

(3) All use, or can opt to use, cost-plus award-fee indefinite delivery/indefinite 

quantity (ID/IQ) task orders. 

(4) All potentially compete for the same general commercial support base. 

b. Service CAP differences: 

(1) Authorized expenditure limit. 

(2) Support focus: 

(a) LOGCAP focuses on general logistic support and minor construction 

support. The program utilizes separate support (planning and program support) and 

performance (task order execution) contracts. 

(b) AFCAP focuses on both construction and general logistic services and can 

be also used for supply support. 

(c) GCCC focuses exclusively on facility construction support. 

(d) GSCS focuses on facilities support. 

(3) Planning and management capabilities. 
Appendix B 

B-2 JP 4-10 

2. Air Force Contract Augmentation Program 

a. General. The AFCAP is a worldwide contingency contract tool available to support 

the Air Force and joint force along with any USG agency in need of urgent logistic 

assistance in support of contingency operations. AFCAP, like all CAP programs, is 

designed to rapidly leverage private industry capabilities as a force multiplier in supplying 

highly responsive solutions to meet global mission objectives across the full range of 

military operations. The AFCAP contractors have a worldwide capability, coupled with an 

existing breadth and depth of commercial business interests aligned to be able to meet the 

contingency operations requirements. Unlike the other Service CAPs, AFCAP can be 

utilized to procure and expeditiously ship just-in-time commodities. Depending on urgency, 

degree of requirements definition, or task stability, AFCAP can be tailored into firm-fixedprice, cost-plus-fixed-fee, or cost-plus-award-fee task orders as necessary to best match the 

government’s needs. 

b. Capabilities. AFCAP is able to provide, as a minimum, 72 core general engineer 

and other logistic services along with commodity procurement and shipment capabilities. 

The scope of the AFCAP contract requires that the contractors provide the personnel, 

equipment, materials, services, travel, and all other means necessary to provide a quick 

response, worldwide planning, and deployment capability. The contract provides additional 

capabilities to allow military missions to continue when there are facility or service support 

constraints. The AFCAP contractors can provide manpower to complete or augment tasks, 

full range of just-in-time logistics (acquisitions, deliveries, procurement of commercial offthe-shelf items, heavy equipment, leases, bulk materials, war reserve materiel augmentation, 

etc.), and expedient design/build construction. Whenever possible, the AFCAP contractor 

draws upon significant in-place location expertise and worldwide commercial vendors with 

readily available assets. A major contributing effort for AFCAP is in the area of 

sustainment and maintenance of the deployed forces and initial force projection effort. 

AFCAP can also be utilized to provide initial joint force beddown of non-Air Force 

personnel (the Air Force has organic military capability for its own life support). AFCAP 

may be utilized to help transition and upgrade bare bases from initial austere support 

standard to temporary-standard facilities and utilities. This allows for the recovery and 

reconstitution of critical war reserve materiel resources for use at other locations or to 

support additional expansion for a specific mission. Finally, AFCAP can also provide 

general equipment support, but is not intended to be used for in-depth equipment 

maintenance or depot-level overhaul, at contingency locations, since the Air Force already 

has other provisions for these requirements. 

c. Planning. AFCAP contractors can be asked to provide rough orders of magnitude 

(ROMs), however, most ROMs are accomplished by HQ Air Force Civil Engineering 

Support Agency (AFCESA) staff. AFCAP planning task orders can be awarded to assist 

customers with their requirement.

d. Management. HQ AFCESA provides PM functions, and Air Education and 

Training Command (AETC) provides contracting support for AFCAP requiring activities. 

HQ AFCESA is located at Tyndall AFB, FL, with PM deployed forward as required. The 

AFCAP PCO normally delegates all appropriate contract administration and audit services 
Services’ External Support Contract Overview 

B-3 

functions to DCMA IAW the specific needs of that task order. DCMA will provide ACO 

support, to include monitoring/reviewing/approving the contractor’s accounting, purchasing 

and estimating systems. They also provide property administration and quality assurance 

support as required. DCMA ACOs also have the authority to execute no-cost change orders 

to task orders. Should DCMA experience a short-fall for field support during the execution 

of AFCAP, AFCESA will provide field assessment surveillance teams (FASTs). The 

AFCESA FASTs are based on a tailorable, multifunctional deployable team concept as 

needed by task order/location and region – providing oversight, ensuring cost, schedule, and 

quality task order performance by the AFCAP contractors. AETC will retain all contracting 

functions not delegated to DCMA, to include all PCO functions (issuance of all task orders), 

execution of modifications resulting in price changes to task orders, and execution of 

modifications to the basic contract (exercise of options, etc.). 

3. US Navy Global Contingency Contracts 

The Navy has two CAP contracts: the GCCC and the GCSC. The GCCC is focused on 

construction while the GCSC is focused on facilities support. They are both described in 

more detail below.

a. GCCC. The GCCC is a competitively solicited multiple award, cost reimbursable 

contract with award fee. This acquisition vehicle will provide three pre-qualified sources to 

provide up to a maximum of $1 billion of construction over five years. The contract 

provides construction, design/build construction, and related engineering services in 

response to natural disasters, humanitarian assistance, conflict, or projects with similar 

characteristics. This includes occasional projects to ensure readiness to perform during 

emergency situations and military exercises. GCCC is also an acquisition tool that Naval 

Facilities Engineering Command (NAVFAC) utilizes to support roles for contingency 

construction outlined in DODD 4270.5, Lead Design and Construction Agent. 

(1) Capabilities. The GCCC, through the Navy, will provide on behalf of DOD, 

or other Federal agencies when authorized, an immediate response for civilian construction 

capability. The scope includes the capability to provide general mobilization services for 

personnel, equipment, and material in support of naval construction forces (NCFs) 

mobilization and similar mobilization efforts, and to set up and operate material liaison 

offices at a deployed site in support of NCF operations. Work is predominately 

construction, however, services incidental to the construction may also be included. 

Construction critical response during an emergency will primarily support aid for natural 

disasters, military conflict, or humanitarian aid. 

(2) Planning. By contract, each contractor is required to maintain an in-place 

contingency response plan available to facilitate response to emerging requirements. The 

plan identifies pre-positioned resources, suppliers, and procedures for rapidly developing, 

detailed execution plans tailored to the specific requirements of the emergency situation. 
Appendix B 

B-4 JP 4-10 

(3) Management. The GCCC is managed by the Naval Facilities Engineering 

Command, Atlantic in Norfolk, VA. Other NAVFAC components may also be given 

ordering office authority under this contract. 

b. GCSC. The Navy’s GCSC is an ID/IQ cost-plus award fee contract designed to 

quickly provide short term facilities support services with incidental construction at various 

locations (including remote locations) throughout the world. 

(1) Capabilities. This performance based contract is designed to respond to 

natural disasters, humanitarian efforts, or contingencies or other requirements such as 

nonperformance by an incumbent contractor or instances where there is an unanticipated 

lapse in service. The contract has a capacity of $450 million over five years. 

(2) Planning. By contract, the contractor is required to maintain an in-place 

contingency response plan available to facilitate response to emerging requirements. Plan 

identifies pre-positioned resources, suppliers, and procedures for rapidly developing, 

detailed execution plans tailored to the specific requirements of the emergency situation. 

(3) Management. The GCSC is managed by the Naval Facilities Engineering 

Pacific. Other NAVFAC components may also be given ordering office authority under this 

contract. 

4. Logistics Civil Augmentation Program 

a. General. LOGCAP is designed to provide general logistics and minor construction 

support to deployed Army, joint, and multinational forces. The LOGCAP has been 

routinely used with significant success in supporting full spectrum operations for over a 

decade. The Army is currently on its fourth contract iteration of LOGCAP. LOGCAP IV 

differs from LOGCAP I-III in that instead of just one contractor, it now has separate support 

and performance contractors. More specifically, the Army has selected one support contract 

and multiple separate performance contractors. Under the LOGCAP IV program, the 

support contractor conducts the planning and program support. Once the Army has 

identified a LOGCAP requirement, the support contractor will provide the plan to the 

performance contractors, receive the proposals from the performance contractors for the task 

order, evaluate the proposals, and recommend a contractor to execute the plan. 

b. Capabilities. In general, LOGCAP can be utilized to provide logistic services and 

minor construction support for any scale operation. Assuming that the support contractor 

has received sufficient time in advance to coordinate ROM, the technical evaluation plan, 

and appropriate transportation into the JOA, LOGCAP task orders can be utilized to provide 

basic life support for up to 77K personnel within 30 days of the announced C-date. 

LOGCAP is designed for initial force deployment and employment support, it is not 

intended to be utilized for long-term sustainment support. It is Headquarters, Department of 

the Army (HQDA) policy that all of the LOGCAP task orders be designed to be readily 

converted to competitive theater support contracts.
Services’ External Support Contract Overview 

B-5 

c. Planning. The LOGCAP IV planning requirement calls for the LOGCAP support 

contractor, ICW the supporting contracting support brigade (CSB), to prepare a variety of 

Army component and joint force-level support plans. The support contractor will prepare 

and maintain two types of plans; worldwide and focused. Worldwide plans are the 

contingency plans that generate generic and regional LOGCAP plans for supported 

commander, normally the Army component-level. These generic plans provide the baseline 

for contractor support and differentiate between support in a developed country and that 

required to support a deployment in a nondeveloped area. Focused planning begins with the 

identification of a specific mission in the crisis action planning process. These specific 

plans provide a detailed description of equipment, material, personnel and supporting 

services, facilities, and potential suppliers required to support the customer identified 

augmentation requirements. The planning contractor also maintains database support for 

five broad categories: facilities, supplies, services, maintenance, and transportation. Support 

for actual operations is tailored based on the concept of support developed for the operation. 

d. Management. The Army LOGCAP is a HQDA program. The HQDA G-4 is the 

LOGCAP policy and program manager while the USAMC, through its subordinate 

commands, is responsible for program planning and execution. When required, the Army 

will deploy a team LOGCAP-forward consisting of a LOGCAP deputy program manager, 

planning team, and an LSU section, to assist the JFC and ARFOR commander by providing 

a single focal point for centrally managing LOGCAP execution. Within the operational 

area, team LOGCAP-forward, ICW the supporting CSB, is responsible for incorporating 

LOGCAP requirements into OPLANs and/or FRAGORDs and to provide assistance to 

requiring activities with validating LOGCAP requirements. Once delegated by the ACC 

PCO, the DCMA will provide ACOs to administer the task orders IAW the base contract 

and guidance from the LOGCAP deputy program manager. DCMA will also provide 

quality assurance representatives and property administrators as needed. Units will be 

required to provide COR support where LOGCAP support is utilized. 

5. US Navy Fleet Husbanding Contracts 

a. General. The Navy maintains a worldwide network of contracts to support US 

Navy ship visits in foreign ports. The contracts, some of which are regional (multi-nation), 

country-wide, or port specific, are maintained by the Navy’s fleet and industrial supply 

centers (FISCs), which are aligned to major fleet and GCCs’ AORs. Many of the contracts 

contain provisions to provide basic service and materiel support for small-scale military 

operations or humanitarian assistance/disaster relief missions. US Navy contracting officers 

are authorized to order supplies and services from priced schedules. Other services and joint 

organizations must contact the applicable FISC prior to placing orders for permission to 

utilize these contract vehicles. 

b. Capabilities. These fixed priced contracts contain pricing schedules for ship 

support services and many contain specific clauses and pricing schedules for contingency 

support items to include providing basic sustainment and materiel support. In addition, 

husbanding support contractors will likely speak the local language, have in-depth 

knowledge of the local business environment and may be able to suggest initial sources of 
Appendix B 

B-6 JP 4-10 

supply. In some cases, the husbanding contractor may be able to provide pre-staged 

material such as vehicles, cell phones, lodging arrangements/tents, etc in advance of 

advance echelon teams. 

c. Planning. Primary purpose of fleet husbanding support contracts is to provide 

support services for ship visits. Consequently, advance notice to contractors and the 

applicable FISC is required. Husbanding service contracts are an ideal means of obtaining 

initial support for a small scale, short duration operation; however, transition to more 

suitable contracting vehicles is necessary should the scope or duration of an operation 

change. 

d. Management. Fleet husbanding support contracts are managed by AOR, with 

alignment of FISCs corresponding to the following AORs: FISC Norfolk maintains 

contracts for support of USNORTHCOM and USSOUTHCOM operations; FISC Sigonella 

maintains contracts for support of US European Command, US African Command, and US 

Central Command operation; while FISC Yokosuka maintains contracts for support of 

USPACOM operations. Planners should contact the appropriate FISC to determine whether 

Navy fleet husbanding support contracts may be available to support operations in a 

particular location. Initial orders on the contract must be placed through the applicable FISC 

contracting office. 

6. Defense Logistics Agency Contingency Contracting Functions and Capabilities 

a. General. 

(1) DLA is DOD’s combat support agency providing virtually every consumable 

item the US military requires, at home and abroad. DLA provides effective and efficient 

worldwide logistics support to the military departments and the combatant commands under 

conditions of peace and war, as well as to other DOD components and federal agencies, and 

when authorized by law, state and local government organizations, foreign governments, 

and IGOs. DLA’s mission includes managing over five million consumable items, 

processing more than 30 million annual distribution actions, and administering over $900 

billion of DOD and other agency contracts. DLA functions as an integral element of the 

military logistics system. 

(2) DLA has been formally designated by the Deputy Secretary of Defense as the 

DOD Executive Agent for the following commodities: subsistence (Class I); bulk fuel 

(Class III); construction and barrier materiel (Class IV); and medical materiel (Class VIII). 

To execute these logistics responsibilities, DLA developed a network of supplier and supply 

chain relationships, constantly refining contracted support requirements and contract surge 

clauses that can be accessed to support increased demands. Using a myriad of acquisition 

strategies such as prime vendor, long-term contracting, and direct vendor delivery to obtain 

products and services, DLA manages suppliers and entire supply chains, constantly 

adjusting processes and services and extending capabilities as far forward as needed to 

sustain the CCDRs and Services. These efforts directly support DOD’s increased emphasis 

on “jointness.” 
Services’ External Support Contract Overview 

B-7 

b. Functions and Capabilities.

(1) To successfully perform this mission, DLA has developed significant 

contracting capabilities. Using a variety of contracting mechanisms, partnering 

arrangements, and forward deployed resources, DLA has the ability to award contracts 

quickly and effectively. DLA also uses long-term contracts to create efficiencies, working 

closely with industry to communicate requirements. DLA employs surge clauses to increase 

flexibility to meet planned or unplanned demands for items or services. DLA manages 

relationships with thousands of contractors employing global capabilities in supply chains 

extending around the globe. DLA’s use of contracted support to contingency operations has 

allowed military services to apply resources elsewhere, contributing to increased combat 

power. 

(2) DLA meets the needs of the military departments and other authorized 

customers by conducting, directing, supervising, or controlling all procurement activities 

regarding property, supplies, and services assigned to DLA for procurement IAW applicable 

laws, DOD regulations, the FAR, the DFARS, and the Defense Logistics Acquisition 

Directive. To the extent that any law or executive order specifically limits the exercise of 

such authority to persons at the secretarial level, such authority is exercised by the 

USD(AT&L). 

(3) DLA works through the CJCS, with the CCDRs, and directly with the Services 

to consolidate joint and Service requirements for surge and sustainment supplies and 

services and to execute sourcing and distribution plans, agreements, and contracts to support 

theater forces. DLA support requirements come from the Joint Staff and the Services. DLA 

participates in CCDR sponsored contingency planning conferences, developing DLA 

support plans in support of CCDRs’ OPLANs, and OPORDs. During these planning 

conferences, DLA inserts DLA logistics capabilities into the planning process, providing 

input to the annex D (Logistics) and annex W (Contract Support Integration Plan). For 

OPLANs and OPORDs with TPFDD, DLA develops the DLA support plan, providing 

detailed information on how DLA capabilities will be executed in support of CCDRs’ 

contingencies and crisis operations. 
Appendix B 

B-8 JP 4-10 

Intentionally Blank 
APPENDIX C 

SERVICES’ THEATER SUPPORT CONTRACTING ORGANIZATIONS 

AND CAPABILITIES 

C-1 

1. General 

Theater support contracting support capabilities differ between military Services. 

Based on individual mission and organization, each Service has its own approach to 

developing, training, and deploying contracting personnel. Although differing in 

organization, training, and experience, each Service’s contracting personnel must meet the 

Defense Acquisition Workforce Improvement Act certification requirements – including 

appropriate education, training, and experience. However, knowing the individual Services’ 

organizational approaches, capabilities, strengths, and weaknesses can help the JFC 

maximize the capabilities provided by each Service. 

2. US Army 

a. The Army has recently moved to a more integrated approach in its theater support 

contracting structure. The Army’s core of military commissioned officers and 

noncommissioned officers (NCO) trained as contingency contracting officers are now part 

of separate, O-6 level CSBs. These CSBs are assigned to the ACC, but are regionally 

aligned to the existing Army Service component command HQ. 

b. The Army's CSBs are made up of contingency contracting battalions, senior 

contingency contracting teams, and contingency contracting teams. CSB commanders are 

responsible for training and readiness of their subordinate units. They are also responsible 

to support, ICW the AFSBs and team LOGCAP-forward, contracting planning efforts at the 

Army Service component and senior Army logistic command levels. 

c. In addition to its uniformed contingency contracting officers and NCOs, the Army 

has two other methods to supplement the Army’s formal contingency contracting force 

structure: by deploying volunteer military and civilian contracting officers; and, through its 

emergency essential Department of the Army civilian (EEDAC) program. Military or 

civilian individuals volunteer to deploy via the Army’s G3 Worldwide Individual 

Augmentation System. EEDAC contracting officers deploy as required based on the level 

of support required, phase of operation, and local security conditions. 

3. US Marine Corps 

The Marine Corps has a limited number of uniformed contingency contracting 

personnel who deploy as part of a MAGTF. The MAGTF contracting section develops a 

contract support integration plan as part of the overall logistic support plan that includes the 

number of personnel to be deployed. Generally, the Marine Corps does not deploy civilian 

contracting professionals in support of contingency operations. Additionally, Marine Corps 

contracting officers do not contract for construction nor do they possess the necessary skill 

set to support major reconstruction efforts. 
Appendix C 

C-2 JP 4-10 

4. US Navy 

a. The Navy contingency contracting capability is based on two principles: 

(1) The Navy does not maintain a dedicated contingency contracting force. 

Instead, naval officers and civilians, assigned to field contracting and systems acquisitions 

commands performing contracting functions, are deployed as contingency contracting 

officers as operations dictate. 

(2) The Navy leverages the network that provides global logistics support to 

maritime and expeditionary forces operating worldwide to create a scalable and multi-level 

response to a real world situation. 

b. When a CCDR identifies a long-term requirement and obtains the necessary 

contingency contracting manning via the JMD process, contracting officer billets sourced by 

the Navy would result in a uniformed contracting officer being assigned as an individual 

augmentee (IA). IA personnel assignments are currently managed at the Navy-wide level 

by the Navy Personnel Command. Civilian contracting officers are not utilized in the IA 

program. 

5. US Air Force 

a. The Air Force has a very large and well trained theater support contracting 

capability. The Air Force meets its theater support contracting needs by: 

(1) Developing military contracting professionals, enlisted and officer, who 

typically spend the majority of their career in this field; 

(2) Augmenting home-base contracting experience with contingency training and 

exercises; 

(3) Organizing all of its military for potential deployment using flexible, modular 

skills packages, called unit type codes (UTCs); and 

(4) Employing members in a predictable, structured, and managed air 

expeditionary force deployment process. 

b. IAW Air Force policy, military contracting officers spend the majority of their 

careers gaining expertise through a progression of contracting assignments. Through these 

assignments military contracting officers hone their skills and become proficient at a wide 

range of missions in support of their organization. These missions include acquisition and 

administration of operational support services, construction, and commodities. 

Additionally, many contracting officers gain experience in logistics and weapon system 

acquisition. These skills potentially apply to the contracting requirements faced during 

contingencies. 
Services’ Theater Support Contracting Organizations and Capabilities 

C-3 

c. Each Air Force installation supplements base support experience by providing 

contingency specific training and formal exercises emphasizing the requirements of Air 

Force FAR Supplement Appendix CC. Operational readiness exercises conducted by wing 

inspector generals and operational readiness inspectors conducted by major command HQ 

gauge the unit’s ability to perform contingency operations. 

d. The Air Force organizes and deploys contingency contracting officers via 

skill/capability mixes called UTCs. Each UTC specifies a package of capabilities based on 

the supported population, completion of requisite acquisition professional development 

program levels, needed equipment number of contracting personnel required and grade 

restrictions if any. UTCs allow combatant commanders to mobilize a highly modular, 

flexible contracting force. 

e. Each Air Force contracting unit organizes its deployable assets into UTC packages. 

When a contracting UTC is within the deployment vulnerability window, the Air Force can 

task UTCs from various units to fill CCDR’s specific skill requirements. Although some 

UTCs have rank requirements (e.g., a requirement for a deployed commander position), the 

Air Force contracting UTCs are generally skill based, not rank dependent. Due to the 

Air Force’s rigid training requirements, the Air Force maintains a large and experienced 

group of both officer and enlisted contracting officers. 
Appendix C 

C-4 JP 4-10 

Intentionally Blank 
APPENDIX D 

DEFENSE CONTRACT MANAGEMENT AGENCY CONTINGENCY 

FUNCTIONS AND CAPABILITIES 

D-1 

1. Mission 

The Defense Contract Management Agency is the combat support agency 

responsible for ensuring major DOD acquisition programs (systems, supplies, and services) 

are delivered on time, within projected cost or price, and meet performance requirements. 

DCMA’s major role and responsibilities in contingency operations is to provide CCAS to 

LOGCAP and AFCAP external support contracts, for selected weapons systems support 

contracts with place of performance in the operational area, and theater support contracts 

when CCAS is delegated by the PCO. 

2. Requesting Support 

Service CAP program managers request and coordinate DCMA CCAS support directly 

with DCMA. All requests for theater support contract delegations will be accepted or 

declined in writing. Further, any declinations or modifications to delegations will be 

documented in writing. DCMA may decline a request for CCAS on a case-by-case basis if 

agency resources are inadequate to accomplish the tasks. For all declinations the Service 

component or agency awarding activity will assume the declined delegation. 

3. Operational Support and Resourcing

a. DCMA provides direct support (DS) to the CCDR through CCAS support teams. 

CCAS teams may consist of an ACO, quality assurance representative, and property 

administrator. These teams normally have a DS relationship with LOGCAP and/or AFCAP 

deployed deputy program managers. In the case of LOGCAP support, the DCMA 

deployable support team would establish a formal relationship with the Army components’ 

team LOGCAP-forward’s deputy program management officer. The DCMA team and its 

ACOs would collocate as required with the team LOGCAP-forward HQ and subordinate 

elements as required by the individual operational situation. 

b. DCMA uses a risk based resourcing model to provide Title 10, USC contract 

oversight requirements. During high-risk operations (rapid expansion and consolidation 

periods) DCMA will provide on-site CCAS support teams providing direct contract 

oversight. During moderate to low risk continuing operations (post camp build out to start 

of camp consolidation) DCMA will provide regional CCAS teams providing indirect 

contract oversight. DCMA will continuously review DOD’s resource requirements and 

make adjustments based on risk assessments using DCMA’s contingency operations 

resourcing model. 

4. Entry Criteria 

DCMA will provide contract administration oversight capability within 72 hours of 

receipt of: contract delegation for contingency operation from cognizant PCO and, 

authorization to enter theater on approved JMD or time-phased force and deployment list. 
Appendix D 

D-2 JP 4-10 

5. Exit Criteria 

In coordination with the JFC and the Services, DCMA will exit a contingency operation 

when: 

 

a. The mission area is no longer declared a contingency operation area or there is an 

executive order or law downgrading the operation; 

b. The supported customer establishes an installation permanent party with an internal 

contracting organization; or 

c. DCMA will transition from CCAS resourcing to an established DCMA Contract 

Management Office oversight based on reduced risk to the government or reduced operating 

tempo.
APPENDIX E 

CONTRACT SUPPORT INTEGRATION PLANNING CONSIDERATIONS AND 

CHECKLIST 

E-1 

1. General 

Effective contract support planning must be based on a thorough mission analysis that 

considers not only the demands of the operation, but also the environment under which it 

will be conducted. This appendix provides an overview of those considerations planners 

may use to conduct mission analysis when preparing CSIPs at the combatant command 

level, JFC level, or subordinate command level.

2. Purpose 

The following checklist is intended to provide the supported GCC, subordinate JFC, 

and Service component commanders and staff a broad overview of the type of issues that 

should be addressed in a CSIP under annex W. This checklist is not intended to be 

exhaustive. It is intended to serve as a basic guide as to what to think about when preparing, 

staffing, and publishing a CSIP. Depending on the scale of the contingency operations, 

some items may not apply. 

3. Mission Analysis 

Mission analysis, through either the adaptive or crisis action planning process, provides 

planners with a comprehensive framework of requirements to support an operation. Mission 

analysis from a contracting support perspective, whether this be the annex W or the CSIP, 

should as a minimum include the following below considerations. 

a. Identifying Contracting Requirements: 

(1) Planners often develop a mindset that contracting is inherently a combat 

service support function. However, contract support for military operations not only 

includes logistics, but also may include combat support functions such as engineering, 

intelligence, and signal/communications. In some instances, contractors may also perform 

security functions. 

(2) Review of OPLAN/concept plan (CONPLAN) and consider commander’s 

intent, mission, level of forces deploying, location, and duration of the operation. 

b. Determining the Force Mix: 

(1) Determine functions that are inherently governmental (e.g., combat, detainee 

operations, etc.) 

(2) Determine the contracting environment: 

(a) Specific statutory/regulatory constraints or exemptions that apply to the 

supported operation. 
Appendix E 

E-2 JP 4-10 

(b) HN agreements, customs, laws, culture, language, religion, and/or 

business practices which may impact contracting operations. 

(c) Availability of banks/other financial institutions, and financial practices in 

the HN. 

(d) ACSAs/MLSAs which may impact contracting operations. 

(e) Availability/suitability of HN infrastructure and commercial vendors to 

support contract operations. 

(3) Availability of US forces, HN and PN forces which may impact upon contract 

requirements (e.g., addition of HN and PN forces may reduce or expand contract support 

requirements), or, may expand. 

(4) Extent of NGOs, PVOs, IGOs, and OGAs involvement in AOR which may 

impact upon contract support requirements. Synchronization with these organizations is 

critical to avoid competition for local resources. 

(5) Likelihood of hostile actions to impact upon the continuity of contract support. 

(6) Cost considerations. Determining CAP costs versus theater support contracts. 

(7) Desired military presence by US and HN chain of command. Military 

footprint may be reduced by leveraging contract support. 

c. Identifying Military Capability Shortfalls that Require Contract Solutions. 

(1) Determine mission essential services to be provided by contractors. 

 

(2) Determine alternative means of support for mission essential services in the 

event a primary contractor is unable to perform. 

d. Identification and Prioritization of Contracting Means and Organizational Structure. 

(1) Conduct an initial “speed” vs. “quality” vs. “cost” assessment for essential 

services. 

(2) Assess availability and suitability of standing CAP contracts. Conduct “speed, 

quality, cost” assessment for CAP vs. the availability of theater support contracts. 

(3) Assess the availability of non-DOD contracts for required support (e.g., DOS, 

PN, and HNS contracts). 
Contract Support Integration Planning Considerations and Checklist 

E-3 

(4) Determining which of three contracting related organizational options will be 

most suitable for operation (e.g., Operational Contract Support Theater Support Contracting 

Command, Lead Service, or Service Component support to own forces). 

4. CSIP Planning Considerations 

Information from the completed mission analysis assists planners in preparing their 

CSIP. The below considerations are not comprehensive but may also serve as a guide in 

planning efforts. Planners can use the JOPES sample format for annex W of an 

OPLAN/CONPLAN as a template in structuring their respective portions of a plan. 

5. General Questions 

a. What is the main mission, level of forces deploying, location, duration, and type of 

contingency contracting required? 

b. Are CAAF support requirements incorporated in the logistic requirements estimate? 

c. Is there/will there be a lead Service designated for CUL? 

d. Will single Service, lead Service, or joint organization execute the theater support 

contracting effort? 

e. Are there trigger points to move from single Service to lead Service to a joint 

command (or from joint command to a lead Service organization)? 

f. Are HCAs and associated SCOs properly identified to include primary duties, 

location, and flow of contracting authority? 

g. What triggers would require movement of HCA within or out of operational area? 

h. How will the organization be structured (by buying activity, geographical area, 

customer, etc.), to include flows of authority? 

i. How many forces will the contracting organization support; how many contracting 

officers/administrators are needed? 

j. Will there be stability operations related transition and reconstruction requirements? 

If so, are facilities reconstruction related requirements addressed? See JP 3-34, Joint 

Engineer Operations, for details on DOD construction agents. 

k. Will contracting organization support other federal government or nongovernmental agencies? 

l. Did/will DOD designate an executive agent responsible for contracting? 
Appendix E 

E-4 JP 4-10 

m. Which Service will provide the majority of the contingency contracting officers? 

n. What contracting support agencies will be needed, and what contracting relationship 

will they have with the deployed contracting unit? 

o. How will the contracting organization and supply system interact to ensure no 

duplication of effort? 

p. How will the contracting organization interface with financial management, legal, 

and supply? 

q. Will external support logistical related contracts be utilized (i.e., LOGCAP, AFCAP, 

DLA prime vendor)? If so, how will these external support contracts be managed to ensure 

there is no undue competition for the limited commercial vendor base? In addition, is there 

a plan to reduce the reliance on expatriate US citizen employees in order to reduce the 

overall cost of external support service contracts? 

r. Are specific contract administration delegations in place? Are ACO requirements, to 

include location and reporting chain, identified? 

s. Are there reach-back arrangements made to non-deployed contracting and/or legal 

counsel organizations? 

t. How will contract visibility be maintained? 

u. What existing ACSAs and HNS agreements are in place? How will they impact 

contracting support? 

v. What agency will perform the contract administration for external support/systems 

support/theater support contracting? 

w. Are there plans, policies, and procedures along with sufficient theater support 

contracting capabilities in place to allow for CAP task orders to be routinely transferred over 

to theater support contracts? 

x. What type of banking/financial institutions will be available? 

y. What information concerning potential sources for contracted support is currently 

available (see US embassy, consulate attaches, DLA, etc.)? 

z. Will the contracting organization use foreign funds? 

aa. Who will establish procurement priorities? 

ab. Will there be a JARB and/or JCSB established? If so, are the required contracting 

organization members of these boards identified to include the chairperson of the JCSB? 
Contract Support Integration Planning Considerations and Checklist 

E-5 

ac. Are the major requiring activities identified and advised of approximate 

administrative and procurement lead times for contracted support? 

ad. Will there be extensive use of GPC or FOOs? What procedures are needed to 

manage and control these programs? 

ae. Are there adequate CORs identified and trained to assist in managing contractor 

performance? 

af. Is a civil-military operations center (CMOC) established or are civil affairs 

personnel available to provide market research information? 

ag. Main operating and forward operating base CSIPs. Do they exist? Should they 

exist? If they exist, are they properly integrated into the GCC or subordinate JFC CSIP? 

ah. Are there FAR relief procedures and guidance in-place (simplified acquisition 

threshold raised) and what relief will be considered necessary? Can this relief be prearranged? 

ai. What is the funding source(s), and will financial management personnel deploy? 

aj. Are there mechanisms for tax relief? 

ak. Are operational specific policies and procedures, published in orders, and/or other 

policy documents available? 

al. To what extent will contracting have to be utilized to provide support due to the 

absence of organic capability and/or to offset the impact of any force caps on the size of the 

military force? 

am. What OGAs will be in the operational area, what will they be doing, and what will 

they be contracting for? 

6. Local Vendor Base and Other Local Considerations 

a. What supplies and services can be procured from the local populace? 

b. Are there local customs, laws, taxes, or language barriers that will make contracting 

with the local vendors difficult? 

c. What HNS, SOFAs, ACSAs, and other diplomatic/international/multinational 

agreements will be in effect? 

d. What is the local currency, and how fluid/stable is the currency? 

e. What payment mechanism will be required by vendors? 
Appendix E 

E-6 JP 4-10 

f. Will local vendors be capable of providing emergency response? 

g. Will local vendors accept GPCs? 

h. What cultural issues exist with business operations? 

i. Are sources available for pre-identified requirements (are maps available showing 

location of vendors)? 

j. How/where will vendors deliver commodities to the base? 

k. How robust is the vendor base in the AOR? 

l. Are there requirements that can’t be procured locally; what are the workarounds? 

m. What assistance will the US Embassy provide? 

n. Who are my US Embassy Point of Contacts? 

7. Logistical and Communications Questions 

a. How reliable is the infrastructure (roads, sewer, electric, water)? 

b. What security measures are required for intratheater travel? Are security personnel 

available for augmentation? 

c. Are interpreter services required? 

d. What computer/automation network capability will be available? 

e. What communication capabilities will be available (internet, cell phones, Defense 

Switched Network, etc.)? 

f. How will requiring activities and contracting organizations communicate with 

contracting units, requiring activities in the field, and with local vendors? 

g. Will communication capabilities provide contracting personnel the necessary 

equipment for reach-back purchases? 

h. Are deployable contingency contracting kits required? 

i. What facilities, equipment, and other support will be needed; are appropriate items 

identified in the time-phased force and deployment data? 

j. Will contracting personnel be required (allowed) to go off base? Will civilian 

clothing be required (authorized)? 
Contract Support Integration Planning Considerations and Checklist 

E-7 

k. What military airlift is available for the movement of supplies or personnel? 

l. Are military convoy channels established? If not, will escorts be provided? 
Appendix E 

E-8 JP 4-10 

Intentionally Blank 
APPENDIX F 

CONTRACTOR MANAGEMENT PLANNING CONSIDERATIONS AND 

CHECKLIST 

F-1 

1. General 

The following checklist is intended to be used as a guide for the GCC, subordinate JFC 

and Service component commanders and staffs to ensure that key contractor management 

requirements are addressed in all OPLANs/OPORDs. This checklist is intended to highlight 

key contractor management challenges, issues and areas of concern that routinely confront 

the JFC and subordinate Service component commands in military operations. Since 

contractor management responsibilities cross all primary and special staff lines of 

responsibility, this checklist is designed to assist the commander in establishing individual 

primary and special staff responsibilities for the different areas of contractor management 

planning. Since the CMP must be synchronized with the relevant content of the CSIP, it is 

imperative that contracting planners are involved when crafting the CMP. 

2. Contractor Management Considerations 

The questions below are intended to highlight key contractor management challenges, 

issues and areas of concern that routinely confront the JFC and subordinate Service 

component commands in military operations. Since contractor management responsibilities 

cross all primary and special staff lines of responsibility, these questions are designed to 

assist the commander in establishing individual primary and special staff responsibilities. 

a. General Contractor Management Planning Questions. 

(1) Are the GCC, subordinate JFC and Service component commanders and staffs 

aware of the general scope and scale of contracted support to be utilized for the operation? 

(J-4 contracting staff lead; all other staff elements assist) 

(2) Have the GCC, subordinate JFC and Service component commanders assessed 

the overall contractor management requirement and provided specific guidance on how they 

will organize and execute contractor management planning? (J-5 lead; all other staff 

elements assist) 

(3) Has a joint contractor management planning group been established? If so, 

which staff elements are required to participate? What is their battle rhythm? Which staff 

element has the lead for this effort? (J-5 lead; all other staff elements assist) 

(4) Will a stand-alone CMP be developed within annex W or will the specific 

contractor management requirements be addressed in related sections of the 

OPLAN/OPORD? If a stand-alone CMP is to be developed, which staff office is 

responsible to lead this effort? (J-5 lead; all other staff elements assist) 

(5) Are the GCC, subordinate JFC, and Service component staff members aware 

of basic contractor management policies, doctrine as found in the DODI 3020.41, 

Contractor Personnel Authorized to Accompany the US Armed Forces, CJCSM 3122.03B, 

Joint Operation Planning and Execution System (JOPES) Volume II, Planning Formats, this 
Appendix F 

F-2 JP 4-10 

publication and other associated policy and doctrine publications? (J-5 lead; all other staff 

elements assist) 

(6) Are there existing GCC or Service contractor management policies? If so, are 

key staff members aware of these policies and how they affect contractor management 

planning in their functional areas? (No specific lead; all staff elements assist) 

(7) Are the subordinate Service component commanders prepared to execute 

proper contractor management to include ensuring that there are adequate CORs identified 

and certified? (No specific lead; all staff elements assist) 

(8) Are special contract oversight management units such as DCMA and the Army 

component’s LOGCAP – forward- part of the deployment package? (J-3 lead; J-4 assist) 

b. Contractor Personnel Legal Status and Discipline. 

(1) Are the GCC, subordinate JFC, and Service component commanders and 

members of their legal staffs aware of contractor personnel legal status (including latest 

information on UCMJ applicability) and discipline authority over the different types of 

contractor employees per DOD policy and approved doctrine? (SJA lead) 

(2) Are there AOR-wide and/or specific operational focused contractor personnel 

discipline policies in place? Do these policies include specific contractor personnel 

discipline procedures? (SJA lead) 

(3) Have subordinate commanders been made aware of these specific contractor 

personnel discipline related policies and procedures? (SJA lead) 

(4) Are there any current SOFA provisions and/or HN laws that restrict the 

employment of nonlocal national contractor personnel? (SJA lead) 

c. Deployment/Redeployment Planning and Preparation 

(1) Have specific theater entrance requirements been established for CAAF? 

(Supported GCC J-3 lead) 

(2) Have CAAF and their associated equipment been added to the TPFDD? (J-5 

lead; J-4 and J-3 assist) 

(3) Have these requirements been published IAW CJCSM 3122.02C, Joint 

Operation Planning and Execution System (JOPES) Volume III, Crisis Action Time-Phased 

Force and Deployment Data Development and Deployment Execution, DFARS Sub-Part 

225.74, Defense Contracts Outside the United States, and DFARS PGI 225.7401, Contracts 

Requiring Performance or Delivery in a Foreign Country? (J-3 lead; J-2 [intelligence 

directorate of a joint staff], J-4 contracting staff, SJA, surgeon assist) 
Contractor Management Planning Considerations and Checklist 

F-3 

(4) Have the service components completed their planning for the continuation of 

essential services IAW DODI 3020.37, Continuation of Essential DOD Contractor Services 

During Crisis? (J-5 lead; J-4 assist) 

(5) Have steps been taken to mitigate the risks associated with the use of 

contracted support? (J-5 lead; J-4 assist) 

(6) Have mission essential contracted support requirements been identified? (J-5 

lead; J-4 assist) 

(7) Does the contract clearly obligate contractors to continue essential contractor 

services during a contingency operation even in the event of hostile acts? (J-4 contracting 

staff) 

(8) Are responsibilities assigned to ensure effective FP (to include PR) and 

security of CAAF as dictated by the local threat environment? (J-5 lead; J-2, J-3, J-4 

contracting staff assist) 

(9) Have plans been developed to replace CAAF who are performing essential 

contractor services in contingency operations or to otherwise mitigate the loss of services? 

This includes assessing alternative sources (military, DOD civilian, local, national, or other 

contractor(s)) or taking other actions that will mitigate the loss of such support. (J-5 lead; J1 and J-4 contracting staff assist) 

(10) Have steps been taken to ensure contractor personnel are treated fairly and 

not subject to trafficking in persons schemes? (contracting officers lead; J-4 contracting 

staff, DCMA. and unit CORs assist) 

(11) Are contractor management policies and procedural requirements 

incorporated in the contract? (contracting officers) 

(12) For prearranged contracted support are standard DFARS deployment clauses 

in the contract to ensure that contractor employees understand and are prepared to execute 

their contract in a contingency environment? (contracting officers) 

(13) For contracts let for specific operations, are operational specific contract 

clauses included in the PWS and other terms and conditions of the contract? (contracting 

officers, DCMA ACOs) 

(14) Is contingency contractor employee status identified up front in the 

contracting process? Contractor status will drive the authorizations and privileges the 

contractor employee may receive. (contracting officers, DCMA ACOs) 

(15) Does the contracting officer have published theater entrance requirements 

from the supported GCC for contractor personnel hired outside of the operational area? 

(contracting officers) 
Appendix F 

F-4 JP 4-10 

(16) Have all CAAF received a DD Form 489 Geneva Conventions ID Card? 

(Service component personnel staff, contracting officers, CORs) 

(17) Have all CAAF received a CAC prior to deployment to the operational area? 

(Service component personnel staff, contracting officers, CORs) 

(18) Do expiration dates on the DD Form 489 and CAC correspond to the end date 

of the contract period of performance? (Service component personnel staff and Service 

contracting officers, CORs) 

(19) Has the PCO, or designee, validated requirements for and availability of 

government support at the deployment center, JRC, and within the operational area? 

(Requiring activity staff, contracting officers, CORs, requiring activities) 

(20) Do all CAAF have an LOA issued by the PCO or designee? (contracting 

officers, CORs) 

(21) Has medical surveillance screening (as prescribed in DODD 6490.02E, 

Comprehensive Health Surveillance) for CAAF been completed? (Service component 

personnel staff, contracting officers, CORs) 

(22) Has general medical evaluation and immunizations for all CAAF been 

completed IAW published specific medical related theater entrance requirements? (Service 

component personnel staff; contracting officers, CORs) 

(23) Have operational specific security screening and badge issuance policies and 

procedures for CAAF and non-CAAF who require routine access to military facilities been 

published? (J-1 lead; J-3 assist) 

(24) Does the contract contain DFARS clause 252.225-7040 paragraph (g) 

specifying use of the DOD designated contractor personnel management system of record as 

the database to establish and track accountability for deployed contractors? (contracting 

officer) 

(25) Are CAAF properly entered into DOD designated contractor personnel 

management system of record prior to deployment? (Prime contractor; contracting 

officer/ACO) 

(26) Do all CAAF have adequate protective clothing and equipment as specified in 

the contract? This includes any individual GFE items, IAW JFC directives and Service 

policies. (contracting officers, CORs) 

(27) Do contractor personnel authorized to wear distinctive military uniforms have 

and carry written authorization? (contracting officers, CORs). If applicable, are the 

uniforms and protective equipment in compliance with supported GCC and subordinate JFC 

guidance? (contracting officers, CORs) 
Contractor Management Planning Considerations and Checklist 

F-5 

(28) Have CAAF completed all current DOD required standard training and any 

operational-specific supported GCC, subordinate JFC, and Service mandated training? 

(contracting officers, CORs) 

(29) Have CAAF completed legal status familiarization to ensure they understand 

their legal status IAW international law to include prevention of human trafficking 

information? (contracting officers, CORs) 

(30) Have CAAF completed familiarization training on US laws, HNS laws and 

SOFAs that contractor personnel may be subject to? (contracting officers, CORs) 

(31) Have all CAAF completed basic law of war training and have selected CAAF 

completed advanced training commensurate with their duties and responsibilities, as 

necessary (e.g., security personnel and contract interrogators)? (contracting officers, CORs) 

(32) Have CAAF completed law of war training related to the handling of EPWs 

and detainees (required for all CAAF who may come into to contact with detainees or 

EPWs)? (contracting officers, CORs) 

(33) Have CAAF completed PR training and isolated personnel reports as 

determined by the requiring activity and supported JFC/Service component? (contracting 

officers, CORs) 

(34) Have CAAF completed medical awareness training related to local health 

risks, medical related policies and procedures? (contracting officers, CORs) 

(35) Have contractor personnel completed theater specific requirements 

(FP/security, hazard awareness, wear and use of protective gear, etc.) (required for all 

CAAF as directed by the supported GCC, subordinate JFC, and Service components; may 

include in-theater briefings to non-CAAF employees whose area performance is on a US 

base or in the immediate vicinity of US forces)? (contracting officers, CORs) 

(36) Are CAAF being deployed into an operational area properly certified and 

fully integrated into the supported GCC and subordinate JFC’s deployment plan IAW one of 

the contractor personnel certification and deployment methodologies? (Service component 

personnel and operations officer lead; Service contracting officers, CORs assist) 

(a) Process and deploy with the supported unit. (supported unit personnel and 

operations officers; Service contracting officer) 

(b) Process and deploy as a non-unit related personnel. (Service component 

personnel, operations officers and contracting officers) 

(c) Self-certification and/or deployment. (Service component personnel, 

operations officers and contracting officers) 
Appendix F 

F-6 JP 4-10 

(37) Do CAAF meet the supported GCC and subordinate JFC prescribed training 

and preparation standards prior to entering the operational area? (Service component 

operations personnel and contracting officers) 

(38) Are contract personnel being deployed into the operational area properly 

integrated into the time phased force and development process? (Service component 

operations officers and contracting officers) 

(39) Are redeploying contractor personnel properly managed and controlled? 

(a) Has the appropriate contractor personnel accountability database been 

updated? (contracting officer) 

(b) Have government issued badges and ID cards been recovered? (prime 

contractor; contracting officer/ACO) 

(c) Has all GFE or CAGO equipment been recovered? (contracting officer 

and COR) 

(d) Has redeployment medical screening been completed (CAAF only)? 

(contracting officer and COR) 

(e) Have all required debriefings been completed? (various Service 

component staff) 

(f) Have security clearances been withdrawn as applicable? (contracting 

officer) 

d. In-Theater Contractor Personnel Management 

 

(1) Are all CAAF directed to be processed in and out of the operational area 

through a JRC or other personnel centers/processes designated by the JFC? (contracting 

officer) 

(2) Has transportation been arranged for the contractor and their equipment to the 

point of performance? (J-3 lead; J-4 assist) 

e. Force Protection

(1) Has the JFC and/or designated subordinate Service or designee developed 

operational specific procedures to provide security? (J-3) 

(2) Are contractor personnel requiring access to military facilities incorporated in 

the overall FP and security plans? (J-3 lead; J-2, J-4 assist) 
Contractor Management Planning Considerations and Checklist 

F-7 

(3) Has the contracting officer included operational specific FP, security, and PR 

related information into the contract? (contracting officer) 

(4) Does the contract specify all contingency contractor personnel whose area of 

performance is in the vicinity of US forces shall be required to comply with applicable 

supported GCC, subordinate JFC, and subordinate commanders’ FP policies and 

procedures? (contracting officer) 

(5) Have JFC and subordinate commanders developed local policies and 

procedures to vet and badge all contractor employees who need routine access to military 

facilities? (J-3 lead; J-2 and J-4 contracting staff assist) 

(6) Are all CAAF provided protection during transit within the operational area 

commensurate to protection provided to DOD civilians? (J-3) 

(7) Has the JFC, lead Service, or multinational organization responsible for land 

movement control authority established, published, and implemented operational specific 

contractor related convoy FP standards and procedures? (J-3 lead; J-4 assist) 

(8) Are individual contractor personnel arming policies in place and enforced? (J3) 

(9) Do contractor personnel authorized to carry weapons for personal protection 

meet applicable US, HN, and international law; relevant SOFAs or other international 

agreements; DOD policy; JFC established guidance? (SJA lead; J-3, J-4 contracting staff, 

contracting officer, COR assist) 

(10) Are DOD security services provided by contractors IAW applicable US, HN, 

international law, and relevant SOFAs? (SJA lead; J-3, J-4 contracting staff, contracting 

officer, COR assist) 

(11) Have all contractor personnel authorized to be armed been fully briefed on 

the US and HN laws, SOFAs, and JFC policies regarding the circumstances in which they 

may use force? (contracting officer) 

(12) Does the contract contain provisions informing the contractor of any known 

or potentially hazardous situations to include general stipulations limiting this support to 

non-offensive operations and government responsibilities to provide back-up security 

support? (contracting officer) 

f. Government Support to Contractor Personnel 

(1) Is logistics support provided to contractors IAW subordinate JFC policy and 

coordinated with the requiring activity or affected commander prior to the contractor’s 

arrival at the point of performance? (J-4) 
Appendix F 

F-8 JP 4-10 

(2) Have government provided contractor support requirements been identified, 

forwarded and coordinated with the unit or location providing the support? (contracting 

officer, J-4) 

(a) Have contractor requirements for living space been identified and made 

available? (contracting officer, J-4) 

(b) Have overall contractor personnel BOS requirements been planned for 

and are they supportable? (J-4) 

(c) Have contractor requirements for work space and power requirements 

been identified by the contracting officer or designated ACO and coordinated with the 

appropriate JFC or Service component staff engineer? (J-4 and/or engineer lead; contracting 

officer assist) 

(3) Are CAAF generally provided the same standards of support and living 

arrangements as DOD civilian personnel of similar grade and responsibility level? (J-4 lead; 

contracting officer, COR assist) 

(4) Are CAAF afforded reasonable accommodations IAW DOD and GCC 

established standards? (J-4 lead; contracting officer, COR assist) 

(5) Are appropriate clauses included in the contract for all CAAF who are 

expected to perform their duties in field conditions? (contracting officer) 

(6) Do contracts specify that, when possible, subsistence support provided to 

contractors is provided on a non-reimbursable basis? (contracting officer) 

(7) Have joint force and Service component planners accounted for Government 

provided support cost to contractors and contractor personnel? (J-4) 

(8) Is the JFC prepared to provide emergency medical care to all contract 

employees, including CAAF employees who are injured in the immediate vicinity of US 

forces or on a US base? (joint force surgeon) 

(9) Are the JFC and its Service components prepared to provide primary/routine 

medical care to CAAF as outlined by contractual requirements and as the mission dictates? 

(joint force surgeon lead; Service component and contracting staff and assist) 

(10) Is the JFC prepared to record all costs associated with the treatment and 

transportation of contractor personnel to the selected civilian facility? (joint staff surgeon 

lead; Service component surgeon assist) 

(11) If transfer of GFE and/or CAGO equipment is anticipated, has the JFC’s J-4 

properly coordinated disposition instructions with the appropriate DOS, DOD, and affected 
Contractor Management Planning Considerations and Checklist 

F-9 

component organization to ensure that the instructions are clearly understood and provided 

in a timely manner? (J-4; Service component contracting staff assist) 

(12) If authorized, are contractor postal support requirements provided? (J-1) 

(13) Is the specific nature and extent of mortuary affairs support determined and 

communicated to military forces and contractors through governing OPLANs/OPORDs and 

contractual documents? (J-4) 

(14) Are authorizations for CAAF use of military exchange facilities for health 

and comfort items coordinated and identified in the individual terms and conditions in the 

contract? (J-4 lead; contracting officers assist) 

(15) Are CAAF allowed access to deployed MWR facilities or programs? Is this 

access coordinated and identified in the individual terms and conditions in the contract? 

(Contracting Officer and CORs lead; J-1 assist) 

g. Coordinating Non-DOD Contract Support 

(1) Is the JFC prepared to assist to integrate non-DOD contractor personnel and 

equipment into both air and surface movements as required? (J-3 lead; J-4 assist) 

(2) Does the subordinate JFC have a requirement to provide back-up security 

support to DOS or other non-DOD organizations? If so, are these organizations using 

private security firms for protection? (J-3) 

(a) What is the subordinate JFC's authority, if any, in planning and utilizing 

non-DOD contracted security firms? (J-3) 

(b) Where are these security firms operating? (J-3) 

(c) What is their RUF? Did the JFC have input to the RUF? (J-3) 

(d) Has the JFC, COM and other interested parties developed workable and 

reliable information sharing, communication mechanisms? (J-3 lead; J-6 assist) 

(e) Are subordinate commanders properly informed of and prepared to 

execute back-up security requirements? (J-3 lead; Service component operations staff 

assist) 

(f) Have the subordinate commanders conducted proper coordination with 

security firms and/or rehearsed back-up security actions? (J-3 lead; Service component 

operations staff assist). 
Appendix F 

F-10 JP 4-10 

Intentionally Blank 
APPENDIX G 

NOTIONAL LEAD SERVICE AND JOINT THEATER SUPPORT 

CONTRACTING COMMAND ORGANIZATIONS 

G-1 

1. General 

There is no formally approved, established model for the lead Service theater 

support or joint theater support contracting command organizational option. In general, the 

lead Service option should be considered for major, long-term operations where two or more 

Service components having significant forces operating within the same operational area. 

The joint theater support contracting command organizational option is normally only 

applicable for major, long-term, complex stability operations where the subordinate JFC 

needs direct control over all aspects of theater support contracting. Normally, the lead 

Service theater support contracting organization will be derived from either an Air Force 

expeditionary contracting squadron or an Army CSB. Likewise, these same two 

organizations would normally form the core of a joint theater support contracting command. 

Figure G-1 depicts a notional lead Service theater support contracting organization and 

Figure G-2 depicts a typical joint theater support contracting command organization. This 

appendix describes only one manner to organize these contracting commands. The actual 

organization structure of the lead Service contracting command or joint theater support 

contracting command will be based on operational factors such as the base organization 

structure, mission requirements, major customer orientation, commercial support base, etc. 

For example, the joint theater support contracting command may be organized along support 

function lines (e.g., transportation, medical, infrastructure) rather than the forces support, 

HN forces/transition, and reconstruction support model depicted in Figure G-2.

2. Lead Service Staff and Subordinate Organization Overview 

 

a. Commander. The commander of a lead Service theater support contracting 

organization would normally be an O-6 with significant contingency contracting experience. 

This commander typically reports through Service channels to the Service component 

commander, but has overall responsibility to ensure that the theater support contracting 

mission within the JFC designated operational area is conducted in an effective, efficient, 

and well coordinated fashion. 

b. Deputy. Like all chiefs of staff, the joint theater contracting command chief of staff 

is responsible to integrate all special and primary staff functions within the command. 

Normally, this position would be an O-6 with contingency contracting experience. 

c. Administrative Staff. The commander’s administrative staff is normally sourced 

from the lead Service. This support requires no specific rank or any contracting related 

experience. 
Appendix G 

G-2 JP 4-10 

NOTIONAL LEAD SERVICE THEATER SUPPORT 

CONTRACTING ORGANIZATION

Admin administrative

CDR commander

COS chief of staff

DIV division

A/S1 manpower and personnel

A/S3 operations

OPS operations

RCC regional contracting center

RCO regional contracting office

SCO senior contracting official

LEGEND

Command 

and Staff

CDR/SCO Senior Enlisted 

Advisor

RCC RCC Specialty 

Contracts 

Division

RCO RCO

Deputy

Policy Div Compliance 

Div

A/S1 A/S3

Contracting 

Organization

Legal Support 

Staff

Figure G-1. Notional Lead Service Theater Support Contracting Organization
Notional Lead Service and Joint Theater Support Contracting Command Organizations 

G-3 

TYPICAL JOINT THEATER SUPPORT CONTRACTING 

COMMAND ORGANIZATION

Admin administrative

COS chief of staff

DIV division

HN host nation

J-1 manpower and personnel directorate

J-2 intelligence directorate

J-3 operations directorate

J-4 logistics directorate

J-5 plans directorate

J-6 communications system directorate

OPS operations

RCC regional contracting center

RCO regional contracting office

SCO senior contracting official

LEGEND

Command 

and Staff

Commander Senior Enlisted 

Advisor

SCO HN Forces/

Transition

SCO for Forces 

Suport

SCO 

Reconstruction

Transition

Teams RCC RCC Specialty 

Contracts 

Division

RCO RCO

Services Div

Electrical

Water/

Sanitation

Admin

COS

Policy Div

OPS OPS OPS

Compliance 

Div

J-1 J-4 J-6 J-2/-3/-5

Contracting 

Organization

Commodities 

Div

Transportation/ 

Infrastructure

Legal Support

Staff

Figure G-2. Typical Joint Theater Support Contracting Command Organization
Appendix G 

G-4 JP 4-10 

d. Primary Staff. As with the commander’s administrative staff, the lead Service 

theater support contracting organization will normally retain the organic staff arrangements 

of the Service contracting organization responsible to execute this mission. In most cases, 

some augmentation may be required in two specific primary staff functions. These 

functions are; plans and operations, and policy and compliance. 

e. Legal Support. The lead Service component for common contract support is 

responsible to ensure that their theater support contracting command has sufficient fiscal and 

contract law support to meet mission requirements. Specific operational contract support 

legal staff responsibilities include: 

(1) Advising on the development of theater support contracting policy. 

(2) Arranging reach-back legal assistance from parent Service. 

(3) Solicitation and contract review. 

(4) Developing and providing general contracting related ethics counseling/training. 

(5) Providing advice and legal reviews related to potential procurement fraud. 

(6) Providing litigation management. 

(7) Providing acquisition and source selection plan reviews. 

(8) Providing advice on Freedom of Information Act (FOIA) and Privacy Act 

requests. 

(9) Assisting the JFC to develop responses to Congressional inquiries. 

(10) Advising on and reviewing command-directed investigations. 

(11) Providing advice/reviews on protests and unauthorized commitments/ratification 

actions. 

f. Senior Contracting Official(s). Lead Service theater support contracting 

organizations would normally have the commander "dual hatted" as the SCO. The SCO’s 

general responsibilities include: 

(1) Overseeing day-to-day contract operations within their area of contracting 

responsibility. 

(2) Overseeing and assessing the effectiveness of their contracting programs. 

(3) Issuing warrants; determining delegated warrant authorities for assigned and 

attached contracting officers. 
Notional Lead Service and Joint Theater Support Contracting Command Organizations 

G-5 

(4) Directing subordinates to participate in the JARB (normally advisory capacity 

only). 

(5) Chairing the JCSB as directed. 

(6) Directing procurement management reviews or contract management reviews. 

(7) Developing and providing management control oversight. 

(8) Conducting special reviews as required. 

(9) Managing contract audit programs. 

(10) Managing suspension debarment programs. 

g. Regional Contracting Center(s) (RCC). RCCs are normally led by a warranted O5 and may be augmented with other Service contracting personnel. RCCs’ specific make-up 

depends on the specific mission support requirement, but could consist of between 10-25 

warranted contracting officers, enlisted members, and/or DOD civilians. Aligning RCCs to 

major land force (i.e., division, corps, Marine expeditionary force) HQ or Air Force wings 

or groups is also common practice. Key to the proper manning of these RCCs and their 

subordinate regional contracting offices (RCOs) is not the rank of the contracting 

officers on staff, but the warrant and experience level of the staff.

h. Regional Contracting Office(s). RCOs are contracting organizations under the C2 

of the head of an RCC. An RCO could be jointly staffed or staffed entirely with lead 

Service personnel. RCOs are normally led by an O-4 contracting officer and are made up of 

anywhere from 2-8 warranted contracting officers, enlisted members, and/or DOD civilians. 

The actual size and make-up of an RCO is based on actual mission support requirements. 

RCOs normally provide area support to specific forward operating bases and/or designated 

areas within the JOA. 

i. Specialty Contracts Division. In some operations, there may be a need to develop a 

specialty contracts division that can provide contracting support for common, JOA-wide 

services or supplies. Additionally, these contracting organizations may also be utilized to 

perform complex contracting actions that exceed the RCC and RCO capabilities. The 

specialty contracts division will be made up of specially selected, highly trained contracting 

officers, NCOs, and/or DOD civilians who have the requisite experience and warrant to 

handle large, complex contract actions. 
Appendix G 

G-6 JP 4-10 

3. Joint Theater Support Contracting Command Staff and Subordinate 

Organization Overview 

a. Commander. The commander of a joint theater support contracting command 

would normally be an O-7 or O-8 with significant contingency contracting experience. Due 

to the manner the Services develop their contingency contracting officers this will normally 

be an Air Force, Navy, or Army general/flag officer. The joint theater support contracting 

command commander reports to the subordinate JFC and has overall responsibility to ensure 

that the theater support contracting mission is conducted in an effective, efficient, and well 

coordinated fashion. This commander would also serve as the subordinate JFC’s principal 

operational contract support advisor. 

b. Administrative Staff. The commander’s administrative staff support is determined 

by the joint theater support contracting command commander. This support requires no 

specific rank or any contracting related experience. 

c. Chief of Staff. Like all chiefs of staff, the joint theater support contracting 

command chief of staff is responsible to integrate all special and primary staff functions 

within the command. Normally, this position would be an O-6 with contingency contracting 

experience. 

d. J-1. The joint theater support contracting command J-1 performs normal joint 

personnel support to include working personnel assignments, JMD related actions, awards 

and ratings, etc. The J-1 normally would be a personnel officer with no specific rank or 

contracting related experience. 

e. J-2/3/5. A joint theater support contracting command would not normally need a 

separate J-2 or J-5 office. The J-2/3/5 officer, normally an O-5 with contracting experience, 

has overall responsibility to assist the commander and SCO(s) to synchronize support to ongoing and planned future operations. The J-2/3/5 focus is on supporting the subordinate 

JFC’s intent with effective and efficient contracting actions. If needed, the J-2/3/5 could 

also contain separate policy and contract compliance divisions. Specific J-2/3/5 

responsibilities would normally include: 

(1) Monitoring subordinate JFC and subordinate organization operations. 

(2) Assisting the commander in managing subordinate organization operations. 

(3) Providing liaison to subordinate JFC’s J-4 staff. 

(4) Providing feedback on subordinate JFC operations, change to missions and 

priorities, etc. 

(5) Reviewing daily JARB submission for contracting documents and PWS 

validation. 
Notional Lead Service and Joint Theater Support Contracting Command Organizations 

G-7 

(6) Recommending changes to priorities of contracting effort to include movement 

of contracting officer resources between subordinate organizations. 

(7) Recommending changes to JMD and staffing reflecting most effective 

operation of subordinate organizations. 

(8) Developing, receiving and consolidating operational reports. 

(9) Leading all policy related actions ICW the appropriate subordinate JFC staff 

and joint theater support contracting command subordinate organizations. 

(10) Leading short-term and long-range planning actions. 

(11) Developing and implementing command training programs. 

(12) Establishing, collecting, and analyzing measures of effectiveness on civil 

impacts of contracting actions. 

(13) Ensuring the command is in compliance with the FAR and DFARS. 

(14) Establishing and implementing contracting policy for all subordinate 

contracting activities. 

(15) Responding to FOIA and other inquiries. 

(16) Processing unauthorized commitment, unsolicited proposals, and protest 

override actions. 

(17) Coordinating and resolving contracting officer qualification and warrant 

issues. 

(18) Coordinating joint theater support contracting command participation 

in/leadership of the CLPSB, JARB and JCSB as directed by the subordinate JFC. 

f. J-4. The joint theater support contracting command J-4 would perform normal joint 

logistic actions to include general office supply actions, coordinating facility support, etc. 

The J-4 normally would be a logistics officer with no specific rank or contracting related 

experience requirements. 

g. J-6. The joint theater support contracting command J-6 would perform normal joint 

communications support related actions to include coordinating communications support, 

website management, etc. The J-6 normally would be a communications/signal officer with 

no specific rank or contracting related experience. 

h. Legal Support. The JFC legal staff is responsible to support the JFC and joint 

theater support contracting command in fiscal and contract law support matters. The JFC 
Appendix G 

G-8 JP 4-10 

legal staff also establishes and implements JFC’s acquisition legal policy. Other operational 

contract support related legal staff support include: 

(1) Providing solicitation and contract review. 

(2) Developing and providing general contract related ethics counseling/training. 

(3) Providing advice and legal reviews related to potential procurement fraud. 

(4) Providing litigation management. 

(5) Providing acquisition and source selection plan reviews. 

(6) Providing advice on FOIA and Privacy Act requests. 

(7) Assisting the J2/3/5 to develop responses to Congressional inquiries. 

i. Senior Contracting Officer(s). Joint theater contracting commands would normally 

have one to three SCOs, normally at the O-6 (or DOD civilian equivalent) level with 

significant contract related experience and certifications. The SCO’s general responsibilities 

include: 

(1) Overseeing day-to-day contract operations within their area of contracting 

responsibility. 

(2) Overseeing and assessing the effectiveness of their contracting programs. 

(3) Issuing warrants; determining delegated warrant authorities. 

(4) Participating in the JARB (primarily the SCO Forces Support). 

(5) Chairing the JCSB as directed. 

(6) Managing and execute Procurement Management Reviews. 

(7) Developing and providing oversight their Management Control Programs. 

(8) Conducting special reviews as required. 

(9) Managing Contract Audit Follow-up Program. 

(10) Managing suspension and/or debarment actions. 

j. Senior Contracting Official Operations Staff. Each SCO will normally have an 

operations staff with primary duties that mirror the joint theater support contracting 
Notional Lead Service and Joint Theater Support Contracting Command Organizations 

G-9 

command J-staff functions listed above. These staffs can vary in size and should be made 

up of officers and NCOs with at least some contracting/acquisition experience. 

k. Senior Contracting Official for Forces Support. The SCO forces support is 

overall responsible to plan, coordinate, and manage theater support contracting for deployed 

US forces and multinational forces support. This support may also include support to 

interagency personnel and facilities, but does not normally include support to OGA-led civil 

reconstruction projects. SCO forces support will normally have three or more RCCs each 

with multiple RCOs. SCO forces support may have a specialty contracting division to 

handle common, JOA-wide, and/or complex contracts that exceed RCC and RCO 

capabilities. 

(1) Regional Contracting Centers. RCCs are joint staffed contracting 

organizations that are normally led by a warranted O-5. RCCs’ specific makeup is depends 

on the specific mission support requirement but could consist of between 10-25 warranted 

contracting officers, NCOs, and/or DOD civilians. Aligning RCCs to major land force HQ 

(i.e., division, corps, Marine expeditionary force) or Air Force wings or groups is also 

common practice. Key to the proper manning of these RCCs and their subordinate 

RCOs is not the rank of the contracting officers on staff, but the warrant and 

experience level of the staff.

(2) Regional Contracting Offices. RCOs are joint staffed contracting 

organizations under the C2 of the lead of an RCC. RCOs are normally led by an O-4 

contracting officer and are made up of anywhere from 2-8 warranted contracting officers, 

enlisted members, and/or DOD civilians. The actual size and make-up of an RCO is based 

on actual mission support requirements. RCOs normally provide area support to specific 

forward operating bases and/or designated areas within the JOA. 

(3) Specialty Contracts Division. In some operations, there may be a need to 

develop a specialty contracts division that can provide contracting support for common, 

JOA-wide services or supplies. Additionally, this division may also be utilized to perform 

complex contracting actions that exceed the RCC and RCO capabilities. The specialty 

contracts division will be made up of specially selected, highly trained contracting officers, 

NCOs, and/or DOD civilians who have the requisite experience and warrant to handle large, 

complex contract actions. 

l. Senior Contracting Official for Host Nation Forces and Transition Support. 

This SCO for HN and transition support is overall responsible to plan, coordinate, and 

manage theater support contracting actions in support of the subordinate JFC mission t in 

regards to HN security forces. The SCO for HN and transition support is also responsible to 

provide training and transition assistance to HN security forces (and other governmental 

agencies as directed) in developing and sustaining their own contracting support capabilities. 

SCO HN and transition support will normally include multiple transition teams and support 

divisions. 
Appendix G 

G-10 JP 4-10 

(1) Service and Commodity Divisions. The SCO for HN forces and transition 

support would normally have some type of subordinate contracting organization (or 

organizations) responsible to manage HN security forces theater support contracting actions 

that cannot be readily accommodated by the existing SCO forces support, RCCs, and/or 

RCOs. One way to organize to meet this requirement is stand-up separate services and 

commodities divisions. Another approach is to establish divisions based upon customer 

support. For example, a mission support division consisting of notionally J-4 and J-7 and an 

infrastructure support division made up of notionally J-6, engineering, and medical 

customers. These organizations would vary in size and would be staffed with warranted 

contracting officers, enlisted members, and/or DOD civilians. No specialized contracting 

experience would be required for these personnel. 

(2) Transition Teams. If established, the SCO for HN and transition support will 

normally have multiple transition teams. These transition teams are responsible to plan and 

execute support to the development of HN security force and, if directed, HN governmental 

contracting support organizations and capabilities. These teams will vary in size, but must 

be manned with military or DOD civilian personnel with the requisite contracting 

experience required by their assigned mission. For example, a HN governmental transition 

support team would need to be staffed with military members and/or DOD civilian with 

significant and high-level contracting experience. 

m. Senior Contracting Official for Reconstruction Support. The SCO 

reconstruction has overall responsibility to plan, coordinate, and manage theater support 

contracting actions in support of civil reconstruction. Normally, the SCO reconstruction 

would be in direct support of the US COM and/or the United States Agency for 

International Development. The SCO reconstruction would normally have multiple sector 

support contracting organizations. These subordinate organizations could include, but are 

not limited to, the following reconstruction sector areas: water, sanitation, electricity, 

transportation, oil production, etc. As much as resources permit, these staffs will be made 

up of specially selected, highly trained contracting officers, NCOs, and/or DOD civilians 

who have the requisite experience and warrant to handle large, complex reconstruction 

related contract actions. 
APPENDIX H 

REQUIREMENTS DEVELOPMENT AND ACQUISITION REVIEW 

PROCESSES 

H-1 

1. General 

Prior to submitting any requirement to the contracting office, the requiring activity is 

responsible for creating a clear description of the requirement, performing market research, 

ensuring appropriate approvals are received, ensuring adequate funding is available, and 

ensuring procedures and points of contract for receipt of goods and services are established. 

Contracting offices typically do not perform contracting support without requiring activities 

first completing the aforementioned steps. The contracting office can not purchase any 

service, commodity, or construction prior to the completion of these requirements. 

2. Clear Requirements Definition

a. General. One of the most important duties of the requiring activity is the proper 

description of the requirement. All future acquisition steps will flow from and are 

dependent on the proper description of the required item/service. The customer must be 

able to describe the minimum acceptable standard for the government. Defining the 

minimal acceptable standard is crucial to ensure proper utilization of limited government 

funds. Often, the GCC and/or subordinate JFC staff will need to be directly involved 

in establishing and enforcing these standards. 

b. Be as specific as possible. A detailed description of the requirement is instrumental 

in allowing the contracting office to create a solicitation and the vendor to provide the right 

item/service. Without specificity in the requirements generation phase, the vendor may very 

well deliver a product or service that complies with the terms of the contract but doesn’t 

meet the needs of the customer. For instance, stating you want “two dozen vehicle-mounted 

convoy warning signs written in the local language” inadequately conveys the desired 

attributes of the requirement. The customer must fully define the requirement. In this 

example, the requiring activity should identify the sign’s required size, color, composition, 

the lettering script, size and color, weather durability, mounting capability, requested 

delivery dates, etc. The requiring activity should spell-out these attributes in its 

requirements documentation. Also, the requiring activity, not the contracting officer, 

must ensure these requirements follow established JFC standards of support and other 

established guidance such as FP requirements.

c. Seek assistance early on. Although the requiring activity must clearly define 

requirement, the contracting office and/or other special staff such as the subordinate JFC or 

Service component engineer staff, can provide useful advice early in the requirements 

definition process. Since the contracting office and other technical staff offices have 

probably seen similar requirements and solicitations, they probably have a good idea of 

some of the questions vendors may ask and/or can provide examples of PWS and/or IGE 

documents. 
Appendix H 

H-2 JP 4-10 

3. Market Research 

a. General. Properly performed market research will greatly help the requiring activity 

define the requirement. While sometimes very challenging due to the local operational 

environment, the requiring activity must complete basic research to ensure required support 

is not already available through organic military support, multinational, and/or HNS sources. 

The requiring activity must also verify commercial availability of the required support. This 

commercial research includes determination of any commercial standards for the item of 

support along with potential local sources of support. 

b. Research Methodology. While not available to all requiring activities in all 

operations, the internet is probably the single most valuable tool for performing market 

research. The requiring activity can use the internet to locate vendors, download item 

specifications, check warranty information, and determine delivery times. The requiring 

activity can also use the internet to download examples of the required items. It should be 

noted however, that submitting a brand-name in lieu of a detailed item description is 

generally not an approved acquisition strategy. The requirement should be couched in terms 

of defining characteristics that fulfill the need, not simply listing a specific 

brand/manufacturer. 

c. Do not obligate the Government. Another commonly used approach to garner 

market research data is to call or visit vendors directly. Although this is an appropriate 

technique, care must be taken to ensure the vendor knows that the requiring activity is not 

placing an order or making a promise for future business. 

4. Gaining Appropriate Approvals 

a. General. An essential and often missed step in the requirements development 

process is ensuring the appropriate functional staffs coordinate on the requirements 

package before it goes to contracting. Depending on the requirement and local guidance, 

legal personnel may need to review it prior to submission to the commander for approval. 

Supply personnel may need to review requirements to verify the items are not available in 

the supply system. Communications personnel will need to ensure all communications and 

general automation requirements meet the standards and acquisition strategy set by the 

combatant command J-6 or equivalent. Medical personnel will review all requirements that 

may be associated with hazardous material. Also, construction projects will need to go 

through several review thresholds within the general engineering staff prior to submission to 

contracting. The local contracting unit can give requirements personnel additional guidance 

with regard to which offices/personnel need to review specific requirements. 

b. Each requirement will also require prioritization from the commanders in the 

field. Depending on the requirement and the source of funding, each request for purchase 

will need to be approved and prioritized by the appropriate commander. Should the 

requirement be a joint controlled support item/service, the originating Service component 

organization will hold a service-unique requirements board (Acquisition Review Board) to 

validate and prioritize the Service’s requests. Once approved by the Service process, the 

requirement will be sent to the JARB as depicted in Figure H-1. 
Requirements Development and Acquisition Review Processes 

H-3 

5. Receiving Funding 

Although the requiring activity should have gone through some formal requirements 

definition process prior to the receipt of funding, the certified funding document is generally 

the start of the procurement process with the contracting office. The contracting office can 

not obligate the government with a contractual document prior to the receipt of funds. The 

acquisition timeline for the contracting office starts with a complete package which has a 

minimum consists of a valid requirements document(s) and a certified funding document 

JOINT ACQUISITION REVIEW BOARD PROCESS

CAP civil augmentation program

HN host nation

HNS host-nation support

JARB joint acquisition review board

JFC joint force commander

HQ headquarters

LEGEND

REQUIRING 

ACTIVITY

JOINT FORCE COMMANDER CONSIDERATIONS

z

z

Identifies 

Requirement

Develops JARB 

Packet

z

z

z

z

Designates Chairperson

Designates Membership

Determines Controlled Items

Establishes Procedures

z

z

z

z

z

z

Risk

Availability of Support

Effectiveness of Support

Civil Considerations

Duration of Support

Cost

Is

This

a JARB Directed 

Common 

Support?

Lead Service

Senior Logistics 

HQ

Multinational

Senior Logistics 

HQ

JFC HNS 

Coordination 

Office

Service 

Component or 

Joint Contracting 

Office

Service 

Component CAP 

Coordination 

Organization

Can

 Multinational

Sources Provide 

Support?

Can HN

Provide the 

Support?

Is the

Service

Available via 

Local

Commercial 

Sources

?

Is the

Service

Available via an 

CAP Task

Order

?

NO NO NO NO

YES YES YES YES YES

Lead Service

Support Unit

Multinational

Support Unit HNS Provider Theater Support 

Contract

CAP Task Order

Service 

Provided

JARB Decision Process

Figure H-1. Joint Acquisition Review Board Process 
Appendix H 

H-4 JP 4-10 

(the extent of documents required by the contracting officer may vary depending on factors 

such as scope of effort, total dollar amount and complexity of the acquisition). 

6. Receipt of Goods and Services 

Along with developing the requirement documents and obtaining funding, the requiring 

activity must also provide individuals to receive the goods and provide some quality 

assurance that the goods or service provided complies with the contract’s requirements. For 

commodities the requiring activity personnel will accept the items delivered by signing the 

DD Form 250, Material Inspection and Receiving Report. This form, coupled with the 

vendors invoice and the contract, must be submitted for the vendor to be paid by a financial 

management unit disbursing officer, or Defense Finance and Accounting Service. For 

service contracts, the requiring activity will normally be required to provide COR personnel 

to monitor contractor performance. 
APPENDIX J 

REFERENCES

J-1 

The development of the JP 4-10 is based upon the following primary references: 

1. International Law 

a. Geneva Convention Relative to the Treatment of Prisoners of War. 

b. Hague Convention of 1907.

2. US Government Publications 

a. The Goldwater-Nichols Department of Defense Reorganization Act of 1986 (Title 

10 USC Section Public Law 99-423). 

b. The National Security Strategy of the United States of America. 

c. National Defense Strategy of the United States of America. 

d. National Military Strategy. 

e. Title 10, United States Code. 

f. Title 18, United States Code. 

g. Title 38, United States Code. 

h. Federal Acquisition Regulation (Title 48, CFR). 

i. Deputy Secretary of Defense Memorandum, 25 September 2007, Management of 

Contractor Personnel Accompanying US Armed Forces in Contingency Operations Outside 

the United States. 

j. Secretary of Defense Memorandum, 10 March 2008, UCMJ Jurisdiction Over DOD 

Civilian Employees, DOD Contractor Personnel and Other Persons Serving with or 

Accompanying the Armed Forces Overseas During Declared War and in Contingency 

Operations. 

k. Deputy Secretary of Defense Memorandum, 24 Sep 07, Policy Guidance for 

Provision of Medical Care to Department of Defense Civilian Employees Injured or 

Wounded While Forward Deployed in Support of Hostilities. 

3. DOD Publications 

a. 2006 Quadrennial Defense Review. 
Appendix J 

J-2 JP 4-10 

b. Defense Federal Acquisition Regulation Supplement (DFARS), (Title 48, CFR, 

sections 201-299). 

c. DOD 4515.13-R, Air Transportation Eligibility. 

d. DOD 4525.6-M, Department of Defense Postal Manual. 

e. DODD 1000.20, Active Duty Service Determinations for Civilian or Contractual Groups. 

f. DODD 1100.4, Guidance for Manpower Management. 

g. DODD 1300.22, Mortuary Affairs Policy. 

h. DODD 2000.12, DOD Antiterrorism (AT) Program. 

i. DODD 2310.2, Personnel Recovery. 

j. DODD 2310.7, Personnel Accounting – Losses Due to Hostile Acts.

k. DODD 2311.01E DOD Law of War Program. 

l. DODD 3000.05, Military Support for Stability, Security, Transition, and Reconstruction 

Operations.

m. DODD 5000.1, The Defense Acquisition System. 

n. DODD 6200.3, Emergency Health Powers on Military Installations. 

o. DODD 6490.02E, Comprehensive Health Surveillance. 

p. DODI 6490.03, Deployment Health. 

q. DODI 1000.1, Identity Cards Required by the Geneva Convention. 

r. DODI 1000.13, Identification (ID) Cards for Members of the Uniformed Services, 

Their Dependents, and Other Eligible Individuals. 

s. DODI 1100.19, Wartime Manpower Mobilization Planning Policies and Procedures. 

t. DODI 1100.22, Guidance for Determining Workforce Mix. 

u. DODI 1300.23, Isolated Personnel Training for DOD Civilian and Contractors. 

v. DODI 1330.21, Armed Services Exchange Regulations (ASER). 

w. DODI 2000.16, DOD Antiterrorism (AT) Standards. 
References 

J-3 

x. DODI 3020.37, Continuation of Essential DOD Contractor Services During Crises. 

y. DODI 3020.41, Contractor Personnel Authorized to Accompany the US Armed Forces. 

z. DODI 4161.2, Management, Control, and Disposal of Government Property in the 

Possession of Contractors. 

aa. DODI 5525.11, Criminal Jurisdiction Over Civilians Employed By or 

Accompanying the Armed Forces Outside the United States, Certain Service Members, and 

Former Service Members. 

ab. DODI 6205.4, Immunization of Other Than US Forces (OTUSF) for Biological 

Warfare Defense. 

ac. DODI 6490.03, Deployment Health. 

ad. DOD O-2000.12H DOD Antiterrorism (AT) Handbook.

4. CJCS Publications 

a. JP 1, Doctrine for the Armed Forces of the United States.

b. JP 1-0, Personnel Support to Joint Operations. 

c. JP 1-02, DOD Dictionary of Military and Associated Terms. 

d. JP 3-0, Joint Operations. 

e. JP 3-07, Antiterrorism.

f. JP 3-10, Joint Security Operations in the Theater.

g. JP 3-33, Joint Task Force Headquarters. 

h. JP 3-35, Deployment and Redeployment Operations.

i. JP 3-50, Personnel Recovery.

j. JP 4-0, Joint Logistics.

k. JP 4-06, Mortuary Affairs in Joint Operations. 

l. CJCS Instruction 3141.01C, Responsibilities for the Management and Review of 

Contingency Plans. 

m. CJCS Instruction 3270.01A, Personnel Recovery within the Department of Defense (U).
Appendix J 

J-4 JP 4-10 

n. CJCSM 3122.02C, Joint Operation Planning and Execution System (JOPES), 

Volume III, (Crisis Action Time-Phased Force, and Deployment Data Development, and 

Deployment Execution).

o. CJCSM 3150.13B, Joint Reporting Structure – Personnel Manual. 

5. Multi-Service Publications 

a. Air Force Instruction 36-3026(I); Army Regulation 600-8-14; US Navy BUPERS 

Instruction 1750.10B; Marine Corps Order P5512.11C; Commandant Instruction M5512.1; 

Commissioned Corps Personnel Manual 29.2, Instructions 1 and 2; NOAA Corps 

Regulations, Chapter 1, Part 4, Identification Cards for Members of the Uniformed Services, 

Their Eligible Family Members, and Other Eligible Personnel. 

b. Multi-Service Publication FM 4-01.45/ Marine Corps Reference Publication 4-

11.3H/ US Navy Tactics, Techniques and Procedures 4-01.3/US Air Force Tactics, 

Techniques and Procedures (I) 3-2.58, Multi-Service Tactics, Techniques and Procedures 

for Tactical Convoy Operations. 

6. Air Force Publications 

a. Air Force FAR Supplement Appendix CC (Title 48, CFR, sections 5100-5199). 

b. Air Force Materiel Command Fact Book. 

7. Army Publications 

a. Army FAR Supplement, (Title 48, CFR, Sections 5100-5199). 

b. Army FAR Manual Number 2 (Contingency Contracting). 

c. Army Corps of Engineers FAR Supplement. 

d. FM 3-100.21, Contractors on the Battlefield. 

e. FM 100-10-2, Contracting Support on the Battlefield. 

f. FM-Interim 4-93.41, Army Field Support Brigade Tactics, Techniques and Procedures. 

g. AR 715-9, Army Contractors Accompanying the Force. 

h. AR 700–137, Logistics Civil Augmentation Program (LOGCAP). 

i. US Army Training Support Packet (TSP) 151-M-001, Contractors Accompanying 

the Force.
References 

J-5 

8. Navy Publications 

a. Navy Supply Systems Command Instruction 4230.37A. 

b. Navy Supply Systems Command Instruction 713. 

c. Secretary of the Navy Instruction 5400.15B, Department of the Navy Research, 

Development and Acquisition, and Associated Life-Cycle Management Responsibilities. 

9. Marine Corps Publication 

Marine Corps Order P4200.15, Appendix B. 

10. Special Operations Command Publication 

USSOCOM FAR Supplement (Title 48, CFR, sections 5100-5199). 

11. DCMA Publication 

DCMA Guidebook (CCAS Chapter).
Appendix J 

J-6 JP 4-10 

Intentionally Blank 
APPENDIX K 

ADMINISTRATIVE INSTRUCTIONS 

K-1 

1. User Comments 

Users in the field are highly encouraged to submit comments on this publication to: 

Commander, United States Joint Forces Command, Joint Warfighting Center, ATTN: 

Doctrine Group, 116 Lake View Parkway, Suffolk, VA 23435-2697. These comments 

should address content (accuracy, usefulness, consistency, and organization), writing, and 

appearance. 

2. Authorship 

 

The lead agent for this publication is the United States Army. The Joint Staff 

doctrine sponsor for this publication is the Director for Logistics (J-4). 

3. Change Recommendations 

a. Recommendations for urgent changes to this publication should be submitted: 

 

TO: ALT-FO FORT LEE VA//ATCL-ALT-FO 

 INFO: JOINT STAFF WASHINGTON DC//J4/J7-JEDD// 

CDRUSJFCOM SUFFOLK VA//DOC GP// 

Routine changes should be submitted electronically to Commander, Joint 

Warfighting Center, Doctrine and Education Group and info the Lead Agent and the 

Director for Operational Plans and Joint Force Development J-7/JEDD via the CJCS JEL 

at http://www.dtic.mil/doctrine.

b. When a Joint Staff directorate submits a proposal to the Chairman of the Joint 

Chiefs of Staff that would change source document information reflected in this 

publication, that directorate will include a proposed change to this publication as an 

enclosure to its proposal. The Military Services and other organizations are requested to 

notify the Joint Staff/J-7 when changes to source documents reflected in this publication 

are initiated. 

c. Record of Changes: 

 CHANGE COPY DATE OF DATE POSTED 

 NUMBER NUMBER CHANGE ENTERED BY REMARKS 

________________________________________________________________________

________________________________________________________________________ 

________________________________________________________________________

________________________________________________________________________ 
Appendix K 

K-2 JP 4-10 

4. Distribution Publications 

Local reproduction is authorized and access to unclassified publications is 

unrestricted. However, access to and reproduction authorization for classified joint 

publications must be IAW DOD Regulation 5200.1-R, Information Security Program. 

5. Distribution of Electronic Publications 

a. Joint Staff J-7 will not print copies of JPs for distribution. Electronic versions are 

available on JDEIS at https://jdeis.js.mil (NIPRNET), and https://jdeis.js.smil.mil 

(SIPRNET) and on the JEL at http://www.dtic.mil/doctrine (NIPRNET). 

b. Only approved joint publications and joint test publications are releasable outside 

the combatant commands, Services, and Joint Staff. Release of any classified joint 

publication to foreign governments or foreign nationals must be requested through the 

local embassy (Defense Attaché Office) to DIA Foreign Liaison Office, PO-FL, Room 

1E811, 7400 Pentagon, Washington, DC 20301-7400. 

c. CD-ROM. Upon request of a JDDC member, the Joint Staff J-7 will produce and 

deliver one CD-ROM with current joint publications.
GLOSSARY 

PART I – ABBREVIATIONS AND ACRONYMS 

GL-1 

ACC Army Contracting Command 

ACO administrative contracting officer 

ACSA acquisition and cross-servicing agreement 

AETC Air Education and Training Command 

AFB Air Force base 

AFCAP Air Force Contract Augmentation Program 

AFCESA Air Force Civil Engineering Support Agency 

AFMC Air Force Materiel Command 

AFRL Air Force Research Laboratory 

AFSB Army field support brigade 

ALT acquisition, logistics, and technology 

AOR area of responsibility 

ARFOR Army forces 

ASA(ALT) Assistant Secretary of the Army for Acquisition, Logistics, and 

Technology 

ASC Army Sustainment Command 

ASN(RD&A) Assistant Secretary of the Navy for Research, Development and 

Acquisition 

BOS base operating support 

C2 command and control 

CAAF contractors authorized to accompany the force 

CAC common access card 

CAGO contractor acquired government owned 

CAP civil augmentation program 

CCAS contingency contract administration services 

CCDR combatant commander 

CCO contingency contracting officer 

CI counterintelligence 

CJCS Chairman of the Joint Chiefs of Staff 

CJCSM Chairman of the Joint Chiefs of Staff manual 

CLPSB combatant commander logistic procurement support board 

CMP contractor management plan 

COM chief of mission 

COR contracting officer representative 

CSB contracting support brigade 

CSIP contract support integration plan 

CUL common-user logistics 

DAR Defense Acquisition Regulation 

DCAA Defense Contract Audit Agency 

DCMA Defense Contract Management Agency 

DFARS Department of Defense Federal Acquisition Regulation Supplement 

DLA Defense Logistics Agency 
Glossary 

GL-2 JP 4-10 

DOD Department of Defense 

DODD Department of Defense directive 

DODI Department of Defense instruction 

DOS Department of State 

DPAP Defense Procurement and Acquisition Policy 

DPMO Defense Prisoner of War/Missing Personnel Office 

DS direct support 

DSCA defense support of civil authorities 

EEDAC emergency essential Department of the Army civilian 

EPA evasion plan of action 

EPC Emergency Procurement Committee 

EPW enemy prisoner of war 

FAR Federal Acquisition Regulation 

FAST field assessment surveillance team 

FEMA Federal Emergency Management Agency 

FISC fleet and industrial supply center 

FM field manual (Army) 

FOIA Freedom of Information Act 

FOO field ordering officer 

FP force protection 

FRAGORD fragmentary order 

FSR field service representative 

GCC geographic combatant commander 

GCCC Global Contingency Construction Contract 

GCSC Global Contingency Service Contract 

GFE government-furnished equipment 

GPC government purchase card 

HCA head of contracting activity 

HN host nation 

HNS host-nation support 

HQ headquarters 

HQDA Headquarters, Department of the Army 

IA individual augmentee 

IAW in accordance with 

ICW in coordination with 

ID identification 

ID/IQ indefinite delivery/indefinite quantity 

IGE independent government estimate 

IGO intergovernmental organization 

J-1 manpower and personnel directorate of a joint staff 
Glossary 

GL-3 

J-2 intelligence directorate of a joint staff 

J-3 operations directorate of a joint staff 

J-4 logistics directorate of a joint staff 

J-5 plans directorate of a joint staff 

J-6 communications system directorate of a joint staff 

J-7 Joint Staff Operational Plans and Joint Force Development 

 Directorate 

JARB joint acquisition review board 

JCSB joint contracting support board 

JFC joint force commander 

JMD joint manning document 

JOA joint operations area 

JOPES Joint Operation Planning and Execution System 

JP joint publication 

JPME joint professional military education 

JRC joint reception center 

LCMC life cycle management command 

LOA letter of authorization 

LOGCAP logistics civil augmentation program 

LSU logistics civil augmentation program support unit 

MAGTF Marine air-ground task force 

MARCORSYSCOM Marine Corps Systems Command 

MILCON military construction 

MLSA mutual logistics support agreement 

MPS Military Postal Service 

MWR morale, welfare, and recreation 

NAE Navy acquisition executive 

NAVFAC Naval Facilities Engineering Command 

NAVSUPSYSCOM Naval Supply System Command 

NCF naval construction force 

NCO noncommissioned officer 

NG National Guard 

NGB National Guard Bureau 

NGO nongovernmental organization 

NURP non-unit-related personnel 

OGA other government agency 

OIF Operation IRAQI FREEDOM 

OPCON operational control 

OPLAN operation plan 

OPORD operation order 

OSD Office of the Secretary of Defense 
Glossary 

GL-4 JP 4-10 

PCO procuring contracting officer 

PEO program executive officer 

PGI procedures, guidance, and information 

PM program management 

PN partner nation 

POW prisoner of war 

PR personnel recovery 

PWS performance work statement 

RCC regional contracting center 

RCO regional contracting office 

ROM rough order of magnitude 

RSOI reception, staging, onward movement, and integration 

RUF rules for the use of force 

SCO senior contracting official 

SDDC Surface Deployment and Distribution Command 

SecDef Secretary of Defense 

SF standard form 

SJA staff judge advocate 

SOF special operations forces 

SOFA status-of-forces agreement 

SOW statement of work 

SSTR stability, security, transition, and reconstruction 

SYSCOM systems command 

TCN third country national 

TPFDD time-phased force and deployment data 

UCMJ Uniform Code of Military Justice 

USAMC United States Army Materiel Command 

USC United States Code 

USD(AT&L) Under Secretary of Defense for Acquisition, Technology, and 

 Logistics 

USD(P&R) Under Secretary of Defense for Personnel and Readiness 

USG United States Government 

USJFCOM United States Joint Forces Command 

USNORTHCOM United States Northern Command 

USPACOM United States Pacific Command 

USPFO(P&C) United States Property and Fiscal Office (Purchasing and 

 Contracting) 

USSOCOM United States Special Operations Command 

USSOUTHCOM United States Southern Command 

USTRANSCOM United States Transportation Command 

UTC unit type code 
PART II – TERMS AND DEFINITIONS 

 GL-5 

Unless otherwise annotated, this publication is the proponent for all terms and definitions 

found in the glossary. Upon approval, JP 1-02, Department of Defense Dictionary of 

Military and Associated Terms, will reflect this publication as the source document for these 

terms and definitions. 

administrative contracting officer. Contracting officer whose primary duties involve 

contract administration. Also called ACO. See also contracting officer; procuring 

contracting officer. (Approved for inclusion in JP 1-02.)

administrative lead time. None. (Approved for removal from JP 1-02.) 

civil augmentation program. Standing, long-term external support contacts designed to 

augment Service logistic capabilities with contracted support in both preplanned and 

short notice contingencies. Examples include US Army Logistics Civil Augmentation 

Program, Air Force Contract Augmentation Program, and US Navy Global 

Contingency Capabilities Contracts. Also called CAP. See also contingency contract; 

external support contract. (This term and its definition modify the existing term and its 

definition and are approved inclusion in JP 1-02.) 

classified contract. None. (Approved for removal from JP 1-02.) 

combatant commander logistic procurement support board. A combatant commanderlevel joint board established to ensure that contracting support and other sources of 

support are properly synchronized across the entire area of responsibility. Also called 

CLPSB. See also joint acquisition review board; joint contracting support board. 

(Approved for inclusion in JP 1-02.) 

contingency contract. A legally binding agreement for supplies, services, and construction 

let by government contracting officers in the operational area as well as other contracts 

that have a prescribed area of performance within a designated operational area. See 

also external support contract; systems support contract; theater support contract. 

(Approved for inclusion in JP 1-02.) 

contingency contracting. The process of obtaining goods, services, and construction via 

contracting means in support of contingency operations. See also contingency contract. 

(This term and its definition modify the existing term and its definition and are 

approved inclusion in JP 1-02.) 

contingency contractor personnel. None. (Approved for removal from JP 1-02.) 

contract administration. A subset of contracting that includes efforts to ensure that 

supplies, services, and construction are delivered in accordance with the terms and 

conditions of the contract. (Approved for inclusion in JP 1-02.) 
Glossary 

GL-6 JP 4-10 

contracting officer. The Service member or Department of Defense civilian with the legal 

authority to enter into, administer, modify, and/or terminate contracts. (This term and 

its definition modify the existing term and its definition and are approved inclusion in 

JP 1-02.) 

contracting officer representative. A Service member or Department of Defense civilian 

appointed in writing and trained by a contracting officer, responsible for monitoring 

contract performance and performing other duties specified by their appointment letter. 

Also COR. (Approved for inclusion in JP 1-02.) 

contract maintenance. None. (Approved for removal from JP 1-02.)

contractor management. The oversight and integration of contractor personnel and 

associated equipment providing support to the joint force in a designated operational 

area. (Approved for inclusion in JP 1-02.) 

contractors authorized to accompany the force. Contingency contractor employees and 

all tiers of subcontractor employees who are specifically authorized through their 

contract to accompany the force and have protected status in accordance with 

international conventions. Also called CAAF. (Approved for inclusion in JP 1-02.)

contractors deploying with the force. None. (Approved for removal from JP 1-02.) 

contractors not authorized to accompany the force. Contingency contractor employees 

and all tiers of subcontractor employees who are not authorized through their contract 

to accompany the force and do not have protected status in accordance with 

international conventions. Also called non-CAAF. (Approved for inclusion in JP 1-

02.)

contract support integration. The coordination and synchronization of contracted support 

executed in a designated operational area in support of the joint force. (Approved for 

inclusion in JP 1-02.) 

contract termination. Defense procurement: the cessation or cancellation, in whole or in 

part, of work under a prime contract or a subcontract thereunder for the convenience of, 

or at the option of, the government, or due to failure of the contractor to perform in 

accordance with the terms of the contract (default). (JP 4-10) 

cost-plus award fee contract. A type of contract that provides for a payment consisting of 

a base amount fixed at inception of the contract along with an award amount that is 

based upon a judgmental evaluation by the United States Government. (This term and 

its definition modify the existing term “cost-plus a fixed-fee contract” and its definition 

and are approved for inclusion in JP 1-02.) 

cost sharing contract. None. (Approved for removal from JP 1-02.) 
Glossary 

GL-7 

cost-type contract. A contract that provides for payment to the contractor of allowable 

cost, to the extent prescribed in the contract, incurred in performance of the contract. 

(This term and its definition modify the existing term “cost contract” and its definition 

and are approved inclusion in JP 1-02.) 

delivery forecasts. None. (Approved for removal from JP 1-02.) 

delivery requirements. None. (Approved for removal from JP 1-02.) 

direct vendor delivery. A materiel acquisition and distribution method that requires vendor 

delivery directly to the customer. Also called DVD. (JP 4-09)

external support contract. Contract awarded by contracting organizations whose 

contracting authority does not derive directly from the theater support contracting 

head(s) of contracting activity or from systems support contracting authorities. See also 

systems support contract; theater support contract. (Approved for inclusion in JP 1-02.) 

external support contractors. None. (Approved for removal from JP 1-02.) 

field ordering officer. A Service member or Department of Defense civilian, who is 

appointed in writing and trained by a contracting officer and authorized to execute 

micropurchases in support of forces and/or designated civil-military operations. Also 

called FOO. (Approved for inclusion in JP 1-02.) 

fixed price incentive contract. None. (Approved for removal from JP 1-02.) 

fixed price type contract. A type of contract that generally provides for a firm price or, 

under appropriate circumstances, may provide for an adjustable price for the supplies or 

services being procured. Fixed price contracts are of several types so designed as to 

facilitate proper pricing under varying circumstances. (JP 4-10) 

head of contracting activity. The official who has overall responsibility for managing the 

contracting activity. Also called HCA. (Approved for inclusion in JP 1-02.) 

incentive type contract. None. (Approved for removal from JP 1-02.)

indefinite delivery type contract. None. (Approved for removal from JP 1-02.) 

independent government estimate. The government’s estimate of the resources and 

projected cost of the resources a contractor will incur in the performance of the 

contract. Also known as IGE. (Approved for inclusion in JP 1-02.) 

industrial property. None. (Approved for removal from JP 1-02.) 

initiation of procurement action. None. (Approved for removal from JP 1-02.) 
Glossary 

GL-8 JP 4-10 

interim financing. None. (Approved for removal from JP 1-02.) 

isolated personnel. US military, Department of Defense civilians and contractor personnel 

(and others designated by the President or Secretary of Defense) who are separated 

from their unit (as an individual or a group) while participating in a US sponsored 

military activity or mission and are, or may be, in a situation where they must survive, 

evade, resist, or escape. (JP 3-50)

joint acquisition review board. A joint task force or subunified commander established 

board used to review and make recommendations for controlling critical common-user 

logistic supplies and services within the joint operational area and to recommend the 

proper sources of support for approved support requirements. Also called JARB. See 

also combatant commander logistic procurement support board; joint contracting 

support board. (Approved for inclusion in JP 1-02.) 

joint contracting support board. A joint task force or subunified commander established 

board to coordinate all contracting support and to determine specific contracting 

mechanisms to obtain commercially procured common logistic supplies and services 

within the joint operational area. Also called JCSB. See also combatant commander 

logistic procurement support board; joint acquisition review board. (Approved for 

inclusion in JP 1-02.)

letter of authorization. A document issued by the procuring contracting officer or 

designee that authorizes contractor personnel authorized to accompany the force to 

travel to, from, and within the operational area; and, outlines government furnished 

support authorizations within the operational area. Also called LOA. (Approved for 

inclusion in JP 1-02.) 

operational contract support. The process of planning for and obtaining supplies, 

services, and construction from commercial sources in support of joint operations along 

with the associated contractor management functions. (Approved for inclusion in JP 1-

02.) 

pecuniary liability. None. (Approved for removal from JP 1-02.) 

performance work statement. A statement of work for performance based acquisitions 

that describe the results in clear, specific, and objective terms with measurable 

outcomes. Also called PWS. (Approved for inclusion in JP 1-02.) 

prime contract. A contract or contractual action entered into by the United States 

Government for the purpose of obtaining supplies, materials, equipment, or services of 

any kind. (Approved for inclusion in JP 1-02.) 

prime vendor. A contracting process that provides commercial products to regionally 

grouped military and federal customers from commercial distributors using electronic 

commerce. Customers typically receive materiel delivery through the vendor’s 
Glossary 

GL-9 

commercial distribution system. Also called PV. See also direct vendor delivery. (JP 

4-09) 

privity of contract. The legal relationship that exists between two contracting parties, for 

example, between the government and the prime contractor. (Approved for inclusion in 

JP 1-02.) 

procurement lead time. The interval in time between the initiation of procurement action 

and receipt into the supply system of the production model (excludes prototypes) 

purchased as the result of such actions. It is composed of two elements, production lead 

time and administrative lead time. (This term and its definition modify the existing 

term and its definition and are approved inclusion in JP 1-02.) 

procuring contracting officer. A contracting officer who initiates and signs the contract. 

Also called PCO. See also administrative contracting officer; contracting officer. 

(Approved for inclusion in JP 1-02.) 

production lead time. The time interval between the placement of a contract and receipt 

into the supply system of materiel purchased. Two entries are provided: a. initial — 

The time interval if the item is not under production as of the date of contract 

placement; and b. reorder — The time interval if the item is under production as of the 

date of contract placement. See also procurement lead time. (JP 4-10) 

progress payment. None. (Approved for removal from JP 1-02.) 

 

ratification. 1. The declaration by which a nation formally accepts, with our without 

reservation, the content of a standardization agreement. 2. The process of approving an 

unauthorized commitment by an official who has the authority to do so. See also

unauthorized commitment. (This term and its definition modify the existing term and 

its definition and are approved inclusion in JP 1-02.) 

receipt into the supply system. That point in time when the first item or first quantity of 

the item of the contract has been received at or is en route to point of first delivery after 

inspection and acceptance. See also procurement lead time. (JP 4-10) 

requiring activity. A military or other designated supported organization that identifies and 

receives contracted support during military operations. See also supported unit. 

(Approved for inclusion in JP 1-02.) 

senior contracting official. The lead Service or joint command designated contracting 

official who has direct managerial responsibility over theater support contracting. Also 

called SCO. (Approved for inclusion in JP 1-02.) 

supported unit. As related to contracted support, a supported unit is the organization that is 

the recipient, but not necessarily the requester of, contractor-provided support. See also 

requiring activity. (Approved for inclusion in JP 1-02.) 
Glossary 

GL-10 JP 4-10 

systems support contract. A prearranged contract awarded by a Service acquisition 

program management office that provides technical support, maintenance and, in some 

cases, repair parts for selected military weapon and support systems. See also external 

support contract; theater support contract. (Approved for inclusion in JP 1-02.) 

systems support contractors. None. (Approved for removal from JP 1-02.) 

task order. Order for services placed against an established contract. See also civil 

augmentation program; cost-plus award fee contract. (Approved for inclusion in JP 1-

02.)

theater support contract. A type of contingency contract that is awarded by contracting 

officers in the operational area serving under the direct contracting authority of the 

Service component, special operations force command, or designated joint head of 

contracting activity for the designated contingency operation. See also external support 

contract; systems support contract. (Approved for inclusion in JP 1-02.) 

theater support contractors. None. (Approved for removal from JP 1-02.) 

unauthorized commitment. An agreement that is not binding solely because the United 

States Government representative who made it lacked the authority to enter into that 

agreement on behalf of the Unites States Government. See also ratification. (Approved 

for inclusion in JP 1-02.) 
JOINT DOCTRINE PUBLICATIONS HIERARCHY JOINT DOCTRINE PUBLICATIONS HIERARCHY

JP 1-0 JP 2-0 JP 3-0

PERSONNEL

JP 5-0 JP 6-0

INTELLIGENCE LOGISTICS COMMUNICATIONPLANS SYSTEMS

JP 1

JOINT

DOCTRINE

Maintenance

Approval Development

Initiation

JOINT

DOCTRINE

PUBLICATION

ENHANCED

JOINT

WARFIGHTING

CAPABILITY

STEP #4 - Maintenance









JP published and continuously

assessed by users

Formal assessment begins 24-

27 months following

publication

Revision begins 3.5 years after

publication

Each JP revision is completed

no later than 5 years after

signature

STEP #3 - Approval STEP #2 - Development

STEP #1 - Initiation







JSDS delivers adjudicated matrix to JS J-7

JS J-7 prepares publication for signature

JSDS prepares JS staffing package

JSDS staffs the publication via JSAP for

signature













Joint Doctrine Development

Community (JDDC) submission to

fill extant operational void

US Joint Forces Command

(USJFCOM) conducts front-end

analysis

Joint Doctrine Planning Conference

validation

Program Directive (PD) development

and staffing/joint working group

PD includes scope, references,

outline, milestones, and draft

authorship

Joint Staff (JS) J-7 approves and

releases PD to lead agent (LA)

(Service, combatant command, JS

directorate)

All joint publications are organized into a comprehensive hierarchy as shown in the chart above.

is in the series of joint doctrine publications. The diagram below illustrates an overview of the

development process:

Joint Publication

(JP) 4-10 Logistics













LA selects Primary Review Authority (PRA) to develop the

first draft (FD)

PRA/USJFCOM develops FD for staffing with JDDC

FD comment matrix adjudication

JS J-7 produces the final coordination (FC) draft, staffs to

JDDC and JS via Joint Staff Action Processing

Joint Staff doctrine sponsor (JSDS) adjudicates FC

comment matrix

FC Joint working group

JP 3-0

OPERATIONS

JP 4-0