After contracting in the DoD space for about 6 years I'd say it's, for sure, all 3 plus a mixture of contractors who only make money if they fill all the seats

After contracting in the DoD space for about 6 years I'd say it's, for sure, all 3 plus a mixture of contractors who only make money if they fill all the seats on a contract (so even if you're useless, slowing down the process as long as you're a butt in the seat you're making them money).