ODP Business Solutions (47QSCC-25-Q-5009)

B-424044 Feb 09, 2026 Jump To VIEW DECISION DOWNLOADS RELATED PAGES GAO CONTACTS Highlights ODP Business Solutions, LLC, of Boca Raton, Florida, protests the terms of request for quotations (RFQ) No. 47QSCC-25-Q-5009, issued by the General Services Administration (GSA) seeking a vendor to support GSA retail operations at several locations in support of the United States Navy. The protester alleges that the solicitation's restriction on voluntary discounts on individual items is contrary to regulation and unduly restrictive of competition. We deny the protest. View Decision DOCUMENT FOR PUBLIC RELEASE The decision issued on the date below was subject to a GAO Protective Order. This version has been approved for public release. Decision Matter of: ODP Business Solutions File: B-424044 Date: February 9, 2026 John G. Horan, Esq., Faegre, Drinker, Biddle, & Reath, LLP, for the protester. Nathan Bangsil, Esq., and Alissa J. K. Schrider, Esq., General Services Administration, for the agency. Michael Willems, Esq., and Evan D. Wesser, Esq., Office of the General Counsel, GAO, participated in the preparation of the decision. DIGEST Protest alleging that a solicitation that restricts the manner in which offerors may offer discounts is contrary to regulation and unduly restrictive of competition is denied where the solicitation's terms are not contrary to regulation and the protester did not demonstrate in what way the solicitation will actually restrict competition. DECISION ODP Business Solutions, LLC, of Boca Raton, Florida, protests the terms of request for quotations (RFQ) No. 47QSCC-25-Q-5009, issued by the General Services Administration (GSA) seeking a vendor to support GSA retail operations at several locations in support of the United States Navy. The protester alleges that the solicitation's restriction on voluntary discounts on individual items is contrary to regulation and unduly restrictive of competition. We deny the protest. BACKGROUND GSA's Retail Operations group provides what GSA has termed Fourth-Party Logistics[1] (4PL) solutions for Department of Defense and civilian agencies. COS at 1. According to GSA, the 4PL program allows users to focus on core competencies by leveraging GSA's contracting and acquisition experience and the product-fulfillment expertise of industry leaders. Id. at 2. Under 4PL, GSA acts as an integrator to manage multiple suppliers specializing in a wide variety of hardware and office products. Id. GSA issued the RFQ on September 4, 2025,[2] seeking quotations from all contractors holding any Multiple Award Schedule (MAS) contract with the 4PL Supplies and Services special item number. COS at 13. The RFQ anticipates the establishment of a single blanket purchase agreement (BPA) to support GSA retail operations, with the successful contractor providing retail services and supply items from its entire MAS contract catalog to the United States Navy at various locations. Agency Report (AR), Tab 12, RFQ at 76. Under the resulting BPA, the vendor will provide a comprehensive supply solution so that these locations will be able to provide products and related in-store services for, among other things, full-retail storefronts, in-store referral ordering, and direct delivery services. See Id. at 62. As to the product offerings that the vendor may be required to supply and fulfill, vendors will be expected to provide a broad product offering (analogous to a catalog) of thousands of commercial products and associated support services, all of which are available on the Federal Supply Schedule (FSS).  COS at 15-16. For example, the RFQ contemplates that vendors will provide a wide variety of hardware, industrial, and office supply products, including: safety glasses, air filters, network cables, welding supplies, batteries, light bulbs, sponges, pens, padlocks, first aid kits, copy paper, gloves, screws, adhesives, tape, drill bits, clamps, headlamps, scissors, knives, toilet paper, and wire brushes. See AR, Tab 10, RFQ attach. B, Market Basket. Of note, the agency's market research and prior experience with 4PL procurements suggested that the size of the catalogs offered by vendors vary but often include hundreds of thousands of items. Id. The RFQ contemplates establishing a BPA with a 1-year base period, and four 1‑year option periods.  RFQ at 86. Selection of the BPA holder will be based on a best-value tradeoff between the following four technical factors, which are listed in descending order of importance, and price: (1) technical approach; (2) corporate experience and references; (3) small business participation plan; (4) breadth of product.  RFQ at 156-157. The technical factors, when combined, are significantly more important than price.  Id.