JEFO (LOGCAP V PTO_APS-2) 4 Apr 25_Redacted.pdf

Controlled Unclassified Information (CUI)

Control No: 25-003 service capability to meet externally driven operational requirements for rapid contingency augmentation support. LOGCAP plans for and executes contracted support services in conjunction with the Army Field Support Brigade and contracting support brigade (CSB) for deployed forces performing missions directed or supported by the Department of Defense (DoD) during global contingency operations. It is the most robust solution for contractor provided Base Life Support (BLS) services under a single umbrella. To facilitate the ease of utilizing the LOGCAP program, a variety of individuals known as Planners, Logistic Management Specialists (contractors), and LOGCAP Professionals (military/DA civilian), are assigned to each geographical command.

The purpose of the LOGCAP program is to rapidly provide scalable sustainment capability to meet commanders’ operational requirements to enable freedom of action, extended operational reach, and to prolong endurance. The Army utilizes LOGCAP to support multidomain operations and focuses on providing services associated with the sustainment warfighting function. LOGCAP can operate in all designated operational areas: theater of war, theater of operations, joint operations area, joint special operations area, joint security area, or an amphibious operational area.

The use of the LOGCAP program was formally recognized by the Deputy Assistant Secretary of the Army (Procurement) (DASA(P)) in 2015 as the strategic sourcing preferred source for sustainment services and contingency basing, which includes BLS services in support of the Geographical Combatant Commands (GCCs) and Army Service Component Commands (ASCCs) throughout the full range of military operations.

This includes CENTCOM, EUCOM, AFRICOM, INDOPACOM, NORTHCOM and SOUTHCOM locations. The program has the flexibility through proper planning, to tailor BLS service support for exercises of varied scale and duration at existing locations, as well as the establishment of new locations. The operational need is to have one contractor support a specific ASCC to create a planning relationship to enable a rapid response capability to ASCC requirements.

LOGCAP has two primary types of TOs to include STT and PTOs. LOGCAP also includes the newly awarded APS-2, EUCOM TO. As annotated above in section 2, this request is to extend the PoPs non-competitively for the LOGCAP PTOs and APS-2 TO.

For background information, the STT TOs require the contractor to establish program management, planning, and estimating capability in support of setting the theater operations. This allows the contractor to establish corporate program management and operational support offices to execute planning and management oversight tasks inherent to providing services under the LOGCAP contract at corporate headquarters and at forward operating locations.

The PTOs under this request are for the sustainment of services that fall within the core logistics functions as defined in Joint Publication 4-0. Services include deployment and distribution, supply, maintenance, logistics services, engineering, and health services.

These PTOs include locations in CENTCOM, EUCOM, AFRICOM, INDOPACOM, NORTHCOM and SOUTHCOM. LOGCAP provides a full range of base operations support and sustainment services which offers a one stop shop with a broad scope of

OP9: 30 SEP

2028 – 29 SEP

OP10: 30 SEP

2029 – 29 SEP

W52P1J- 19-F-

USAREUR-

AF,

AFRICOM

Fluor OY4: 02

SEP

OY5: 03 SEP

2025 – 02 SEP

OY6: 03 SEP

2026 – 02 SEP

OY7: 03 SEP

2027 – 02 SEP

OY8: 03 SEP

2028 – 02 SEP

OY9: 03 SEP 2029

– 02 SEP 2030

22-F-

USAREUR-

AF, (Djibouti and Manda Bay), AFRICOM

Fluor OY4: 19

JAN

OY5: 20 JAN 2028

– 19 JAN 2029

OY6: 20 JAN 2029

– 19 JAN 2030

OY7: 20 JAN 2030

– 19 JAN 2031

National Training Center, NORTHCOM

KBR OP5: 11

SEP

OP6: 12 SEP

2025 – 11 SEP

OP7: 12 SEP

2026 – 11 SEP

OP8: 12 SEP

2027 – 11 SEP

Table 3 APS-2 TO Breakdown

OP9: 12 SEP

2028 – 11 SEP

OP10: 12 SEP

2029 – 11 SEP

Soto Cano Air Base, SOUTHCOM

APLS OY4: 20

MAY

OY5: 21 MAY

2026 – 20 MAY

OY6: 21 MAY

2027 – 20 MAY

OY7: 21 MAY

2028 – 20 MAY

OY8: 21 MAY

2029 – 20 MAY

Kwajalein, INDOPACOM

V2X OY4: 12

JUN

OY5: 13 JUN

2027 – 12 JUN

OY6: 13 JUN

2028 – 12 JUN

OY7: 13 JUN

2029 – 12 JUN

Total Value

TO Program Contractor Current TO End

Date

Extension PoP Under JEFO Request

W519TC-24-F-

APS-2,

EUCOM

KBR OY3: 07

JUL 2027*

OY4: 08 NOV 2027 –

07 NOV 2028

option periods; and performance task orders (PTOs), awarded for a base year with four one-year options periods. The Army intended to award additional performance task orders during the ten-year period of the base LOGCAP contracts as the need arose, for example: TO F-0445 (Djibouti/Manda Bay) and TO F-0205 (APS-2) as well as TOs for APS 3, 4 and 5. The Army also intended to compete, after five years, those performance task orders that were awarded in conjunction with the base LOGCAP V contracts.

A Report to Congress (Report), required by the FY24 NDAA and submitted in July 2024, evaluated the Army’s proposed approach for recompeting under LOGCAP V (aka LOGCAP 5.5). The Report assessed two courses of action (COAs). COA 1 (LOGCAP V.V) proposed recompeting all LOGCAP V task orders in accordance with the original acquisition strategy, with phased transitions planned for 2025–2026. COA 2 (LOGCAP VI) proposed forgoing all further competition under LOGCAP V of existing performance task orders, sole source extending those same task orders, and proceeding to award new base contracts and task orders under the umbrella of a MATO IDIQ aka LOGCAP VI. At the time of the Report, the Army recommendation was to proceed with COA 1 instead of moving directly to LOGCAP VI (COA 2).

The tables below depict the milestones when the Report was submitted on 24 July 2024.

Table 4a – Original Milestones for COA 1 when the Report was issued

EAGLE APS to LOGCAP LOGCAP V.V LOGCAP VI

RFP

Released May-23 Jul-24 Jun-26

Evaluations Completed/

SSDD

Complete

May-24 Jul-25 Nov-27

Award Jul-24 Sep-25 Jan-28 Protest

Completed Sep-24 Jan-26 Jan-29

Transition Completed Feb-25 Nov-26 Aug-29

Table 4b – Original Milestones for COA 2 when the Report was issued

EAGLE APS to LOGCAP LOGCAP VI

RFP Released May-23 Aug-24

Evaluations Completed/

SSDD

Complete

May-24 Jan-26

Award Jul-24 Mar-26 Protest Sep-24 Mar-27

Transition Feb-25 Oct-27

Concurrent to preparation and submission of the Report, the Army was evaluating four new task orders to be awarded under LOGCAP V that would support the APS 2, 3, 4 and -5 missions. The intent for additional future competition of these APS requirements will be included under the future and will align with the PoPs of the STT TOs.

Under COA 1, the end state of the second round of competing the performance task orders under LOGCAP V was to have a cascading timing that would align the end of the periods of performance with the simultaneous award of new base contracts and task orders under LOGCAP VI. As discussed below, the efficiencies of time to be gained from COA 1 have changed, and the efficiencies in time as well as the economic advantages of COA 2 now outweigh the same qualities of COA 1.

Table 5a – Updated COA 1 Milestones after EAGLE APS to LOGCAP Protests

EAGLE APS to LOGCAP LOGCAP V.V LOGCAP VI

RFP Release May-23 Apr-25 Nov-27 Evaluations

Completed/SSDD Complete

Sep-25 Aug-27 Sep-30

Award Nov-25 Oct-27 Oct-30 Protest Mar-26 Oct-28 Oct-31

Transition Aug-26 Apr-29 Apr-32

Table 5b – Updated COA 2 Milestones after EAGLE APS to LOGCAP Protests

EAGLE APS to LOGCAP LOGCAP VI

RFP Release May-23 Dec-25 extensions of task orders for two to five years and should allow performance to commence on LOGCAP VI by 2030 and potentially no sole source extension to the base

. The reduction of sole source contracting by two years due to awarding under competitive circumstances will lead to a cost savings of approximately as described in the Report.

Economy is further enhanced by competing LOGCAP VI versus a recompete of LOGCAP V.V. Although there will be competition within both COA1 and COA2, by moving directly to the LOGCAP VI competition, the Government expects a full and open recompete . This includes the potential of additional offerors using innovative techniques and updated technology in their proposals. Under COA 1, in recompeting under LOGCAP V.V only the underlying performance task orders would receive proposals and only the four current contractors would be eligible to compete.

Moving directly to LOGCAP VI under COA 2 will lower overall costs by bringing in additional offerors and incorporating technological advancements and innovative approaches.

The Army would also benefit from reduced costs of resource utilization as indicated below, through the efficiencies of not having to duplicate costs and efforts in the acquisition process. Performing one competition versus two will have a substantial economic cost savings

5.3 Efficiency

As explained throughout this JEFO, several events have transpired that now make COA 2 and the extension of the task orders described in Table 1 the most efficient way to fulfill current and future LOGCAP requirements. These efficiencies come from three primary sources: (1) elimination of time and effort spent by Army Contracting Command and LOGCAP Program Office personnel on redundant LOGCAP V.V PTO recompetes when a full LOGCAP VI competition will likely provide better results with similar efforts; (2) elimination of an additional round of contractor transitions on performance task orders, and (3) the ability to realize potential innovation sooner from a broader LOGCAP VI competition.

Forgoing the LOGCAP V.V PTO recompetes will eliminate a time- and resource-consuming acquisition effort that is has been rendered largely redundant by recent events. The competition for the APS task orders was initially delayed due to multiple rounds of discussions and amendments. APS task orders were eventually awarded under LOGCAP V in June 2024 but were then further delayed due to GAO protests. The requirements and contracting team that was designated to start working the LOGCAP V.V task order competitions was then consumed with responding to the protests and ongoing corrective actions. The same team that was working the protests was also required to submit the Report described above. With the additional questions received on the Report and the request from Congress not to move forward with LOGCAP V.V competitions until further notice from the committees, the timelines for the COA 1 actions continued to be delayed.

In October 2024, GAO sustained protests of the APS 3, 4 and 5 awards, requiring extensive corrective actions on those three competitions which is estimated to add over a year to the APS to LOGCAP forthcoming award decisions. This has significantly delayed the overall LOGCAP V.V competition milestones, as shown in tables 5a and 5b above. With these delays, the current LOGCAP V PTOs require contract extensions regardless of which COA is selected. COA 1 would require sole source extensions on the PTOs that differ in length for each PTO. With predicted PTO transitions starting in 2029, these range anywhere from two and half to four years (see table 6). COA 1 would also require sole source extensions of the base IDIQ contracts of two years to reach transition to LOGCAP VI, set to start in 2032. COA 2 requires sole source extensions of the PTOs between two to five years (see table 6), however, no extensions of the base IDIQ contracts as transition to LOGCAP VI is set to start in 2030. Accordingly, the total combined time of sole source extensions under COA 2 is shorter and therefore more efficient than the total combined time of sole source extensions under COA 1.

The corrective action on the protested APS task order awards continues to delay the acquisition process; however, the authority to non-competitively award and proceed directly to LOGCAP VI will save more than two years of acquisition time and corresponding effort. There is also a high probability for even more time savings by going directly to LOGCAP VI as there are always risks of delay with any competition. Any delays to the LOGCAP V.V awards would then push back all milestones for LOGCAP VI.

Bypassing the LOGCAP V.V recompetes will reduce the number of challenging and costly transitions required in contingency environments. The LOGCAP contract is first and foremost a vehicle for providing base life support in a contingency environment.

Transitioning requirements from one contractor to another is often challenging in any environment and that challenge is exacerbated in the type of contingency environments that LOGCAP often serves. Therefore, it is advantageous to minimize transitions between LOGCAP contractors unless necessary. The effort required to recompete all the PTOs is similar to competing an entirely new IDIQ contract and underlying task orders.

Accordingly, whether the Government moves forward with LOGCAP V.V or moves straight to LOGCAP VI, the timing of both actions will be similar.

Thus, moving forward with the LOGCAP V.V competitions instead of moving straight to LOGCAP VI will create the potential of multiple, inefficient transitions in a short period of time. Eliminating the additional competition of LOGCAP V.V will reduce the schedule delay for the award of LOGCAP VI.

Finally, forgoing the LOGCAP V.V recompetes provides a quicker path to innovation in LOGCAP. In the Report, the Army identified potential innovations and efficiencies derived from a LOGCAP VI competition (aka COA2). Moving out now on the LOGCAP VI full and open competition will allow the Government to more quickly analyze and receive the potential benefits from full competition on the cited proposed improvements in the LOGCAP VI requirement, including a web-based rapid requirements development and cost estimating tool, additional cost control measures, and dual sourcing concepts.

Moving out as quickly as possible on the LOGCAP VI competition will allow the Army to bring full and open competition to the updated PWS substantially earlier than what would happen if the existing LOGCAP PTOs were recompeted now.

For the foregoing reasons, proceeding with COA 2 is the most efficient use of valuable Government resources.

5.4 Logical Follow-On--FAR 16.505(b)(2)(ii)(4).

The extended task orders are logical follow-ons to the current task orders. All the task orders to be extended under this JEFO are identified in Table 1 and have been previously competed. The work to be performed under each of the extended task orders is the same work that is being performed under the current task orders. Each individual period of performance of the sole source extensions will be for 12 months, and the PoPs under the current task orders are for 12 months. Of note, the final PoP of each extended task order will be for less than twelve months, and this shortened PoP will enable the transition of the extended task orders to align with the actual award dates of the LOGCAP VI competitively awarded task orders, either as originally competed or as modified via the change order process. Accordingly, all the task orders to be extended under this JEFO are logical follow-ons to previous task orders that were competed.

Based on the discussion above, the follow-on extensions to the LOGCAP V task orders and immediate initiation of the LOGCAP VI procurement are, in the interest of economy and efficiency, in the best interest of the Government.

6. Market Research: Throughout the planning process for the five-year PTO recompete from June 2024 to present, LOGCAP PMO and ACC-RI performed market research IAW FAR 10.002(b)(2)(i) through various techniques such as routinely conferring with knowledgeable Government personnel to include ASC PMO personnel and engagement with industry partners on the market’s capabilities to meet the requirements of all CCMDs. Overall, market research revealed all LOGCAP V prime contractors are providing the quality of work expected and meeting performance requirements. Market research also revealed that because all LOGCAP V awardees possess an inherent global capability - each LOGCAP V contractor can provide the required services.

However, the Government’s engagements with industry partners, specifically the IDIQ holders of the LOGCAP V awards on 12 September 2024, revealed concerns among industry and customers that having multiple contractors in one Area of Responsibility can be problematic when taking into consideration planning tasks and business execution strategies, which in most cases are proprietary and company sensitive.

The Government also reviewed the outcomes of various emergent requirements in multiple theaters during performance under LOGCAP V that were awarded non-competitively. A sampling included TOs awarded for the COVID Response, Operation Allies Welcome in NORTHCOM and EUCOM, the Russia/Ukraine Mission in EUCOM, and the mission in Haiti. These needs were urgent, and the requirements had to be stood up expeditiously, through various approved JEFOs with resulting awards to the incumbent PTO contractor. The incumbent had the extensive knowledge and capabilities in the CCMD required to provide services in the most expedient manner required.

Additionally, the Government reviewed all competitive actions under the LOGCAP V contract, including Jordan (TO W519TC-24-F-0271 to Vectrus), Manda Bay (W52P1J19D0046/W52P1J22F0445 to Fluor), and APS-2 (to KBR), which were all competed under LOGCAP V IAW the current established Acquisition Strategy. All these competitive awards were ultimately issued to the cognizant LOGCAP PTO contractor in their respective theater and without a sustained protest. Existing resources were utilized to compete these requirements, which ultimately resulted in awards being made to the same contractor already holding the PTO.

With respect to APS requirements, the APS TOs (APS-2, 3, 4, 4 Watercraft and 5) were competed under the LOGCAP RFTOP, W519TC23R0014. As protests were sustained as annotated in paragraph 5, it is the Army’s intent to re-open discussions as part of an approved course of action and request final proposal revisions to be evaluated in the near future, at which time APS-3-5 will be awarded and the PoPs will align with APS-2 and the JEFO extensions requested herein. The LOGCAP V contract vehicle remains the best solution.

Market research revealed that various JEFOs were approved to the incumbent contractor and various competitions were ultimately awarded to the incumbent PTO contractor after expending exorbitant time and resources. As a result of the market research, and for the reasons annotated in paragraph 5, it is in the best interest of the Government to non-competitively extend the PTOs and APS-2 TO.

7. Actions to Increase Competition: This JEFO and related changes to the LOGCAP Acquisition Strategy, informed by real world events and forecasting probable delays in making awards as identified in the original LOGCAP Acquisition Strategy, will avoid the probable necessity of further sole-sourced requirements in the LOGCAP program.

LOGCAP V’s base IDIQs expire in March 2030. As the LOGCAP VI acquisition strategy is developed, the Army’s intent is to incorporate maximum opportunity for competition to include the subsequent PTOs and APS TOs.

8. Other Facts:

a. Sole Source Breakout

Table 6 – Difference in Sole Source Extension Requirements of PTOs from COA 1 to COA 2

TO Program Current TO PoP

End Date

Transition End Date

COA 1

Number of Sole

Source Years Under

COA 1

Transition End Date

COA 2

Number of Sole

Source Years Under

COA 2

W52P1J- 19-F-0400

Arabian Peninsula, CENTCOM

OY4: 30

JUN 2026 April 2029

3.5 February

2030 4*

W52P1J- 19-F-0402

Operations Inherent

OY4: 21

JUN 2026 April 2029 3.5 February

2030 4*

Resolve

(OIR),

CENTCOM

W52P1J- 19-F-0394

USAREUR-

AF, EUCOM

OP5: 29

SEP 2025 April 2029 4 February

2030 4.5*

W52P1J- 19-F-0403

USAREUR-

AF,

AFRICOM

OY4: 02

SEP 2025 April 2029 4 February

2030 4.5*

W52P1J- 22-F-0445

USAREUR-

AF, (Djibouti and Manda

Bay), AFRICOM

OY4: 19

JAN 2028 April 2029 2 February

2030 2.5*

W52P1J- 19-F-0396

National Training Center, NORTHCOM

OP5: 11

SEP 2025

April 2029 4 February

2030 4.5*

W52P1J- 19-F-0404

Soto Cano Air Base, SOUTHCOM

OY4: 20

MAY 2026 April 2029 3.5 February

2030 4*

W52P1J- 19-F-0398

Kwajalein, INDOPACOM

OY4: 12

JUN 2027 April 2029 2.5 February

2030 3*

Table 7 - Difference in Sole Source Extension Requirements of

APS-2 from COA 1 to COA 2

TO Program Current TO PoP

End Date

Transition End Date

COA 1

Number of Sole

Source Years Under

COA 1

Transition End Date

Under

COA 2

Number of Sole

Source Years Under

COA 2

W519TC-

24-F-0205

APS-2,

EUCOM

OY3: 07

JUL 2027* April 2029 2.5 February

2030 3*

*NOTE: These years represent the sole source years required to extend the PTOs to meet the end of the Base IDIQ, which is March 2030. The transition end date listed for COA 2 accounts for delays associated with protest.

b. Procurement History

Table 8 LOGCAP V Procurement History

Contract Vehicle/Con tract Type

Contract Number

Award Date

Competitively Awarded, Authority if restricted/JEFO Control No.

Awardee/ Contractor

Current Award Expires

CPFF

LOGCAP V

CENTCOM

W52P1J-19-D-

12 APR

Fair Opportunity

V2X 30 JUN

Arabian Peninsula

PTO

W52P1J19F04 under LOGCAP V

CPFF

LOGCAP V

CENTCOM

OIR PTO

W52P1J-19-D- W52P1J19F04

12 APR

Fair Opportunity under LOGCAP V

V2X 21 JUN

EUCOM

PTO

W52P1J-19-D- W52P1J19F03

12 APR

Fair Opportunity under LOGCAP V

KBR 29 SEP

AFRICOM

PTO

W52P1J-19-D- W52P1J19F04

12 APR

Fair Opportunity under LOGCAP V

Fluor 02 SEP

AFRICOM

PTO

W52P1J-19-D- W52P1J22F04

23 SEP

Fair Opportunity under LOGCAP V

Fluor 19 JAN

NORTHCO

M PTO

W52P1J-19-D- W52P1J19F03

12 APR

Fair Opportunity under LOGCAP V

KBR 12 SEP

SOUTHCO

M Soto Cano PTO

W52P1J-19-D- W52P1J19F04

12 APR

Fair Opportunity under LOGCAP V

APLS 02

MAR

INDOPACO

M Kwajalein

PTO

W52P1J-19-D- W52P1J19F03

12 APR

Fair Opportunity under LOGCAP V

V2X 12 JUN

Table 7 APS-2 Procurement History

Contract Vehicle/Con tract Type

Contract Number

Award Date

Competitively Awarded, Authority if restricted/ J&A Control No.

Awardee/ Contractor

Current Award Expires

Dollar Value

CPFF

EAGLE

BOA TO

(APS-2)

W52P1J-12-G- 0028/0002 Mod

DW

NOV

Not Competed, FAR 6.302-1;

JA 23-054

Amentum 20 NOV

EAGLE

BOA TO

(APS-2)

W52P1J-12-G- 0028/0002 Mod

CM

APR

Not Competed, FAR 6.302-1;

JA 22-073

Amentum 20 NOV

BOA TO

(APS-2)

W52P1J-12-G- 0028/0002 Mod

BS

MAY

Not Competed, FAR 6.302-1;

JA 22-038

Amentum 20 APR

W52P1J-12-G- 0028/0002

23 JUN

Full and Open under EAGLE

URS

Federal Support

16 JUL

BOA TO

(APS-2)

Services, Inc.

(Novation Change to Amentum)

c. Class JEFO: This class JEFO will cover all future actions, each of which will include a statement of applicability memorandum for record stating the action is within the scope of the class JEFO in each contract file.

d. ACC-RI projects modification awards for these actions to be staggered based on current PoP expirations within each theater. The modifications will be executed beginning in quarter one of fiscal year (FY) 2026 and will obligate FY 2026 Operations and Maintenance funds. The Principal Assistant Responsible for Contracting approved the Acquisition Plan for the LOGCAP program in accordance with (IAW) Defense Federal Acquisition Regulation Supplement 207.103(e) on 18 December 2017. The Acquisition Plan required a recompete of the PTOs after 5 years. This requirement was removed via an amendment that was approved by the Senior Contracting Official on 12 December 2024.

Additionally, an addendum 0002 to the Acquisition Strategy has been approved by the Senior Services Manager, with updates adding language that the Government must non-competitively award additional option periods at the five-year mark with an approved Class JEFO but may still recompete for the CCMD specific TOs if in the best interest of the Government.