Copper - You are getting to my point. These actions are not ratified as UA Commitments per FAR Part 1, rather the task orders are just modified adding the items with a performance start date in the past. Maybe you've hit the nail on the head, UA's aren't being taken seriously and if the items provided while not under contract can be added via mod and invoiced for via this path of least resistance, all to the good. Why rock the boat and have to be disciplined about the ordering process and contracting requirements. The reason I look for viable alternatives is because this seems to violate the basic concept of a contract.