APPENDIX CC
Air Force Contingency Contracting Readiness Program
[Revised November 7, 2012]
This appendix establishes policies, assigns responsibilities, and prescribes implementing procedures for the organizing, training, and equipping of Air Force contingency contracting forces. It also offers guidance on accomplishing tasks normally encountered by contingency contracting officers while supporting contingency operations. The intent of this appendix is to establish and maintain responsive contracting support for military contingencies and local incident response.
Advance Echelon (ADVON): an initial deployment element of personnel and equipment within a specific unit type code (UTC). The ADVON portion of a UTC normally consists of the equipment and personnel required to establish an austere operational capability for a period of up to seven days.
Air Force Contract Augmentation Program (AFCAP): a worldwide contingency contract tool available to support the Air Force and joint force along with any U.S. Government agency in need of urgent logistic assistance in support of contingency operations. AFCAP is designed to rapidly leverage private industry capabilities as a force multiplier to meet global mission objectives across the full range of military operations, utilizing firm-fixed price, cost-plus-fixed-fee, or cost-plus-award-fee task orders as necessary to best meet the government’s needs. Air Force Civil Engineering Support Agency (AFCESA) is located at Tyndall AFB, FL, with the AFCAP Program Manager deployed forward as required.
Air and Space Expeditionary Forces (AEF): The AEF is the force generation construct used to manage the battle rhythm of the forces in order to meet global Combatant Commander (CCDR) requirements while maintaining the highest possible level of overall readiness.
Area Of Responsibility (AOR): a defined area of land and/or sea in which responsibility is specifically assigned to the commander of the area for the development and maintenance of installations, control of movement, and the conduct of tactical operations involving troops under the commander’s control along with parallel authority to exercise these functions.
Comprehensive Emergency Management Plan (CEMP) 10-2: a document that provides comprehensive guidance for emergency response to physical threats resulting from major accidents, natural disasters, conventional attacks, terrorist attack, and CBRN (chemical, biological, radiological, and nuclear) attacks. (for more information see AFI 10-2501)
Concept of Operations (CONOPS): a verbal or graphic statement, in broad outline, of a commander's assumptions or intent in regard to an operation or series of operations. The concept is designed to give an overall picture of the operation and provide clarity of purpose.
Contingency Operation: See FAR 2.101
Contingency Contracting Officer (CCO): See AFFARS 5318.001
DAS(C): See AFFARS 5302.101
Designed Operational Capability (DOC) Statement: a summary of a unit’s mission and resources for which it has been organized, designed, and equipped.
Humanitarian or Peacekeeping Operation: See FAR 2.101 and DFARS 218.270
Joint Expeditionary Tasking (JET): the Air Force’s overarching method that provides alternative force sourcing when the preferred force solution is not an option. Examples include using Air Force contracting forces when Army contracting forces are not available. For more information see AFI 10-401, paragraph 1.10.4.2.1.
Micro-purchase: See FAR 2.101
Micro-purchase Threshold: See FAR 2.101
Operation Plan (OPLAN): a plan for a single or series of connected operations to be carried out simultaneously or in succession. It is usually based upon stated assumptions and is the form of a directive employed by higher authority to permit subordinate commanders to prepare supporting plans and orders. The designation “plan” is usually used instead of “order” in preparing for operations well in advance. An operation plan may be put into effect at a prescribed time, or on signal, and then becomes the operation order.
Senior Contracting Official (SCO): See AFFARS 5302.101
Simplified Acquisition Procedures (SAP): See FAR 2.101
Simplified Acquisition Threshold (SAT): See FAR 2.101
Status of Resources and Training System (SORTS): a Joint Chief of Staff (JCS) controlled automated data system primarily created to provide the National Command Authority and JCS with authoritative identification, location, and resource information. It is used throughout the chain of command to measure the daily resource status of operating forces.
Time-Phased Force Deployment Database (TPFDD): a database that identifies types and/or actual units required supporting operational plans and indicating origin and ports of debarkation or ocean area.
Unit Type Code (UTC): a five-character, alphanumeric code used in automated planning systems that uniquely identifies a specific unit capability. The UTC is linked with specific personnel and/or logistical detail for the purpose of deployment manning, transportation planning, personnel accounting, and replacement planning. The Mission Capability Statement (MISCAP) linked with each UTC specifies the capabilities the UTC represents, as well as the limitations of usage of the UTC.
CC-103 Responsibilities
Effectively supporting contingency operations requires thorough planning and support by organizations at all levels of authority. The following list delineates the key responsibilities and duties at each level to ensure well planned and executed contracting support. This list is not all-inclusive; each level is expected to identify and implement additional responsibilities as they are identified.
(a) SAF/AQC must:
(1) Designate a Functional Area Manager (FAM) as the focal point to coordinate all contracting contingency planning and develop appropriate policy within the Air Force;
(2) Provide overall policy, procedures, and direction for developing and managing Air Force contingency contracting forces;
(3) Coordinate on OPLANs originating at the Air Staff;
(4) Ensure the focal point attends the Deliberate and Crisis Action Planning and Execution Segments (DCAPES) course and Contingency Wartime Planning Course (CWPC) (optional) ,as soon as possible, after assuming duties; and
(5) Develop and publish posturing guidance for Air Force contingency contracting forces in accordance with (IAW) AFI 10-401.
(b) Each MAJCOM SCO must:
(1) Designate a command FAM as the SCO’s focal point to coordinate all contingency planning within the MAJCOM and to facilitate implementation of contracting support of exercises and contingency operations;
(2) Ensure the FAM attends the Deliberate and Crisis Action Planning and Execution Segments (DCAPES) course and Contingency Wartime Planning Course (CWPC) (optional), as soon as possible, after assuming duties;
(3) IAW MAJCOM guidance, develops, reviews, and manages the contracting portion of the MAJCOM’s Emergency Response plan(s);
(4) Implement posturing guidance provided by SAF/AQC;
(5) Develop contracting support elements and UTC packages to meet the requirements of current policy directives and implementation instructions, ensuring subordinate organizations meet force mobility requirements stated in Air Force 10- series directives and instructions;
(6) Be familiar with the following:
(i) Joint Publication 4-10, Operational Contract Support
(ii) DoDI 3020.41, Contractor Personnel Authorized to Accompany the U. S. Armed Forces.
(iii) DoDI 3020.37, Continuation of Essential DoD Contractor Services During Crises
(7) Establish, as required, agreements detailing contracting support relationships between MAJCOMs during contingency operations;
(8) Ensure all individuals assigned responsibilities as CCOs are properly trained IAW Appendix CC, Part CC-4, and other mandatory training requirements;
(9) Review all MAJCOM OPLANs using IGCC-301(b)(1).
(10) Establish management plans, policies, and procedures for Non-appropriated Fund (NAF) contracting support during contingencies, in coordination with the MAJCOM/A1;
(11) Ensure an adequate number of personnel are identified to augment the MAJCOM’s associated Air Force Component Commands’ deployed forward headquarters contracting function and assist in initial bed down of deployed units in accordance with War Mobilization Planning (WMP), Volume 1, Annex E;
(12) Establish Designated Operational Capability Statement and Status of Resources and Training procedures and policies for each unit tasked in support of an OPLAN IAW MAJCOM policy; and
(13) The following are SCO responsibilities normally accomplished by the contracting staffs within an associated Numbered Air Force (NAF) or Air Force Component Command:
(i) Establish contracting operations management plans, policies, and procedures for use during contingencies within respective AOR;
(ii) Ensure any additional manpower requirements to support contingency operations are identified. Notify SAF/AQCX, safaqcx.workflow@pentagon.af.mil and submit requests to supporting commands using the Global Force Management (GFM);
(iii) Develop and maintain current site surveys along with vendor/source and requirements data unique to the AOR;
(iv) Ensure supporting commands are provided any contracting unique information or materials distributed through unified command channels;
(v) Before coordinating on an inter-service support agreement involving contracting support to another service, DoD, or U.S. Government agency, MAJCOMs will notify SAF/AQCX, safaqcx.workflow@pentagon.af.mil. The notification must include, as a minimum:
(A) Extent of support requested (e.g., All contracts for unit; government-wide purchase card (GPC) program management only; quality assurance representative training only; et al.)
(B) Estimated duration for support
(C) Size of unit requesting support
(D) Estimate of projected obligations for next three fiscal years
(E) Number of anticipated acquisitions exceeding the SAT
(F) Numbers and grades of additional Air Force contract specialists required
(vi) Establish the manner in which contracts that exceed the simplified acquisition threshold are to be accomplished in support of a military contingency operation within the AOR. Those procedures must be distributed to each supporting command contracting division;
(vii) When necessary, establish support agreements between MAJCOMs on use of contracting offices in the vicinity of the deployment, but outside the supported CINC’s AOR, and other agreements as necessary to support mission requirements
(viii) Ensure the individual serving as the focal point attends the Deliberate and Crisis Action Planning and Execution Segments (DCAPES) course and Contingency Wartime Planning Course (CWPC) (optional) ,as soon as possible, after assuming duties.
(c) The commander or chief of each operational contracting organization must:
(1) Review all tasked OPLANs, using IGCC-301(b)(1), and relevant Host Tenant Support Agreements, Inter-Command Agreements, Joint Support Plans, and Host Nation Support Agreements to determine deployment support requirements;
(2) Be familiar with the following:
(i) Joint Publication 4-10, Operational Contract Support
(ii) DoDI 3020.41, Contractor Personnel Authorized to Accompany the U. S. Armed Forces.
(iii) DoDI 3020.37, Continuation of Essential DoD Contractor Services During Crises
(3) Develop and maintain local checklists and procedures to support the installation Comprehensive Emergency Management Plan (CEMP) using MPCC-301(c) and AFI 10-2501, Air Force Emergency Management (EM) Program Planning and Operations;
(4) Accomplish and document CCO training as required by MPCC- 401(a)(i).
(5) Ensure equipment and materials required for support of assigned UTCs are purchased and maintained for immediate deployment.
(6) Review contingency taskings and designate a sufficient number of qualified individuals to perform those contingency contracting taskings. If the contracting office requires more manpower to support OPLANs than can be reasonably provided without degrading home station functions, then the chief of the contracting office must notify the cognizant MAJCOM SCO of the shortfall.
PART CC-2 —CONTRACTING ORGANIZATIONAL RELATIONSHIPS
CC-202 RESERVED
CC-203 RESERVED
CC-204 RESERVED
CC-205 Contracting Organizational Relationships
(a) When deployed, CCOs may fall under one of three organizational structures as described in Joint Publication 4-10, Operational Contracting Support. CCOs should be familiar with each.
(1) Joint Theater Support Contracting Command – normally applicable for major, long-term, complex stability operations where the subordinate Joint Forces Commander (JFC) needs direct control over all aspects of theater support contracting. The CENTCOM – Joint Theater Support Contracting Command (C-JTSCC) is an example of a joint theater support contracting command.
(2) Lead Service Theater Contracting Organization – is derived from either an Air Force expeditionary contracting squadron or an Army Contracting Support Brigade. The lead service will mandate the structure. Members augmenting this organization will normally follow the lead service’s DFARS supplement when acquiring materiel and services for multiple services.
(3) Service Component Support to Own Forces – allows the service component commanders to retain control of their own theater support of contracting authority and organization. An example of this structure would be an Air Force Expeditionary Contracting Squadron reporting to an Air Force Expeditionary Mission Support Group and then to an Air Force Expeditionary Wing Commander.
(b) When CCOs deploy supporting contingency operations following the Service Component Support to Own Forces construct, CC-205 (a)(3), they are under the operational, administrative, and tactical control of the supported Air Force Component Commander. Oversight of contracting operations is normally accomplished by the Air Force Component Commander’s A7K staff and associated Air Force MAJCOM Senior Contracting Official (SCO).
PART CC-3 — PLANNING FOR CONTINGENCY CONTRACTING SUPPORT
(a) Each operational contracting office monitors current plans and coordinates on all plans tasking the contracting organization for support according to AFI 10-401, Air Force Operations Planning and Execution. All plans should address appropriate actions to be taken by each tasked functional unit to ensure continued performance of essential contractor services pursuant to DODI 3020.37, Continuation of Essential DOD Contractor Services During Crisis. In addition to DODI 3020.37, plans for military contingency operations should cover requirements found in DODI 3020.41, Contractor Personnel Authorized to Accompany the U. S. Armed Forces and Joint Publication 4-10, Operational Contract Support. Plans should also exploit the capabilities CCOs can deliver as part of an advance echelon (ADVON) teams. ADVONs should be manned with an experienced CCO who can locate sources and become familiar with local conditions before arrival of the main body of forces. Plans should provide for adequate security arrangements and disbursing officer support during advanced deployments.
(b) Review of OPLANs. The contracting squadron commander or chief of the contracting office is responsible for reviewing all OPLANs tasking contracting support. When a MAJCOM SCO tasks a contracting office with specific deployment support responsibilities, the MAJCOM will ensure the office includes such tasking in its local plans.
(1) The contracting squadron commander or chief of the contracting office should consider the areas listed in IGCC-301(b)(1) when reviewing OPLANs.
(2) As part of planning, contracting units must review site surveys of anticipated deployment locations. If a current site survey does not exist, contracting units must inform their SCO staff. The tasked-unit’s SCO staff must coordinate with the supported SCO staff associated with the geographical combatant command to acquire or recommend the initiation of a site survey.
A. MAJCOM SCOs, normally using the contracting staffs of associated NAFs or Air Force Component Command, are responsible for conducting and maintaining site surveys as resources allow. IGCC-301(b)(2)A, Contracting Site Surveys, provides teams with an outline of areas to cover during a survey.
(c) Review of the Installation Comprehensive Emergency Management Plan (CEMP).
In accordance with AFI 10-2501, Air Force Emergency Management (EM) Program Planning and Operations, the CEMP provides comprehensive guidance for emergency response to physical threats resulting from major accidents, natural disasters, conventional attacks, terrorist attack, and CBRN (chemical, biological, radiological, and nuclear) attacks. In developing and maintaining the contracting supplements, checklists, or portions of a CEMP, the chief of the contracting activity will ensure the areas listed in MPCC-301(c) are addressed.
(1) Contracting Incident Response Kits (CIRKs). To ensure contingency contracting support during execution of Local Incident Response Plans, each contracting squadron will maintain at least two CIRKs as described in MPCC-301(c)(1). Squadron Commanders/Chief of Contracting should consider positioning at least one of the CIRKs outside the squadron’s main facility or at an off-base site.
(d) Other Pre-Deployment Requirements for Contingency Contracting Officers
(1) Due to the unique nature of CCO duties, official passports are required for each CCO designated to support deployments requiring a passport for entry. Each unit must determine if a CCO needs to obtain an official passport when initially designated as a CCO. If units have difficulty securing official passports, contact SAF/AQCX, safaqcx.workflow@pentagon.af.mil for assistance in validating mission and coordination with the Pentagon Passport Office. When CCOs are deployed they must have their passports in their possession at all times unless directed otherwise for security reasons.
(2) The duty weapon for all CCOs, regardless of rank, is the M-9 pistol.
CC-302 Deployment/Mobility Kits
As tasked within their Designated Operational Capability (DOC) Statements, contracting activities will develop local support plans and kits with contracting supplies, forms, instructions, and office equipment to respond to contingency situations. Refer to MPCC-302(a) for specific contents for contingency contracting kits.
(a) Each contracting activity must develop and maintain deployment kits for use during contingencies. Unit kits will be pre-assembled and positioned for rapid retrieval and transport. Kits will be inventoried on an annual basis. Kits must also be inspected prior to and upon return from all deployments. Kit inspection results must be documented and maintained for a minimum of one year. Contents will be updated periodically to replace outdated material. Mission Capability (MISCAP) Statements for contracting UTCs are published in the War and Mobilization Plan, Volume 3, Part 3 and contain contracting cargo elements (LOGDET). Unit deployment kits may be tailored to the expected deployment location or expected emergency tasking, but they must not exceed the size and weight limitations established in the LOGDET for the appropriate UTC. A complete assembled cargo package (UTC XFFK4) is an integral part of UTC XFFK1. Hand carried contracting kits (UTC XFFKT) are part of all other UTCs where specific taskings do not require complete cargo package. If required, the UTC XFFK4 must be specifically tasked to accompany all UTCs other than UTC XFFK1.
PART CC-4 — TRAINING IN CONTINGENCY CONTRACTING
CC-401 Air Force CCO Training Policy
(a) Contracting Training provides initial and recurring proficiency skills needed by contracting professionals to perform duties in their primary Air Force Specialty Code or civilian job series. Training in contingency contracting skills not normally integrated into peacetime operations is particularly critical to contingency contracting officers and requires special leadership attention. Commanders and supervisors must give priority support to training.
MPCC-401 (a)(i) details a list of mandatory topics to be covered by unit-level training. This training will be used in conjunction with “Contingency Contracting: A Joint Handbook for the 21st Century,” published by the Air Force Logistics Management Agency. In addition to contingency-specific training, MPCC-401(a)(i) requires units to cover some general contracting topics. The general contracting topics may be incorporated into the squadron’s routine training program or accomplished as stand-alone courses.
CC-402 Training Provided to Non-Contracting Personnel
The contracting activity will train non-contracting personnel designated to support contingency plans on the proper use of ordering instruments, SF 44, Government Purchase Cards, and other decentralized procedures authorized for use and tailored to the contingency requirement. (NOTE: Recommend using the AFLMA’s Contingency Contracting Customer guide during this training.)
PART CC-5 — CONTRACTING SUPPORT FOR CONTINGENCY OPERATIONS
CC-502 Contracting Functions Under Deployed Conditions
(a) In providing contingency contracting support, CCOs will perform tasks required by established OPLANs, contingency support plans, and this appendix. Generally, contracting support of deployment operations takes place in four phases. Each of the phases is described below. The activities normally associated with a particular phase can be found in the accompanying Informational Guidance section:
(1) 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 CCO’s first priority will be to respond to basic life support requirements. 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. Contracting at this time of the operation is generally focused on expediting contract award. For specific activities associated with the Initial Deployment Phase, go to IGCC-502 (a)(1);
(2) Build-up/Employment of Forces. Also known as reception, staging, onward movement, and integration (RSOI). During this phase, contracting personnel (military and civilian) and contractor personnel will continue to arrive, 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 AFCAP, and DLA prime vendor contracts may be extensively utilized. At this time, the comptroller may implement a formal acquisition review board process to review and make recommendations for common use logistics 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 more rigid purchase request system should 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 SF44 to more long-term contracting arrangements such as SF1449, Solicitation/Contract/Order for Commercial Items, or blanket purchase agreements. For specific activities associated with the Build-up/RSOI Phase, go to IGCC-502 (a)(2);
(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 business advisor. During this stage customers 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 over task the deployed contracting unit’s capabilities. For specific activities associated with the Sustainment Phase, go to IGCC-502 (a)(3);
(4) Termination/Redeployment. 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. The CCO will be required to terminate and close out existing contracts/orders. Ratifications and claims must be processed to completion. Contracting for life support services and base operations must continue until the last troop leaves. 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. For specific activities associated with the Termination/Redeployment Phase, go to IGCC-502 (a)(4).