state and local customers are "commercial" for GSA BOA?

several on line authorities seem to say that:

1 "all commercial customers" as a GSA BOA includes all customers that are not federal, unless those classes of customers are explicitly excluded - so would cover educational, not for profit, state and local

2 "all commercial customers" as a GSA BOA includes state and local customers unless state and local customers are explicitly excluded

3 "all commercial customers" as a GSA BOA includes state and local customers and state and local customers cannot be excluded (like sales to prime)

Does anyone have an opinion, experience, or actual documentation on this?

Thanks in advance