[Federal Register Volume 62, Number 93 (Wednesday, May 14, 1997)]
[Proposed Rules]
[Pages 26640-26682]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 97-12337]


      

[[Page 26639]]

_______________________________________________________________________

Part III

Department of Defense

General Services Administration

National Aeronautics and Space Administration
_______________________________________________________________________



48 CFR Part 1, et al.



Federal Acquisition Regulation; Part 15 Rewrite: Contracting by 
Negotiation; Competitive Range Determinations; Proposed Rule

  Federal Register / Vol. 62, No. 93 / Wednesday, May 14, 1997 / 
Proposed Rules  

[[Page 26640]]


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DEPARTMENT OF DEFENSE

GENERAL SERVICES ADMINISTRATION

NATIONAL AERONAUTICS AND SPACE ADMINISTRATION

48 CFR Parts 1, 2, 3, 4, 5, 6, 7, 9, 11, 12, 13, 14, 15, 16, 17, 
19, 24, 25, 27, 28, 31, 32, 33, 34, 35, 36, 42, 43, 44, 45, 49, 50, 
52, and 53

[FAR Case 95-029]
RIN 9000-AH21


Federal Acquisition Regulation; Part 15 Rewrite: Contracting by 
Negotiation; Competitive Range Determinations

AGENCIES: Department of Defense (DOD), General Services Administration 
(GSA), and National Aeronautics and Space Administration (NASA).

ACTION: Proposed rule with request for comments and withdrawal of 
proposed rules.

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SUMMARY: The Civilian Agency Acquisition Council and the Defense 
Acquisition Regulations Council are proposing to combine Phases I and 
II of the rewrite of Federal Acquisition Regulation (FAR) Part 15, 
Contracting by Negotiation, and subsume FAR Case 96-303, Competitive 
Range Determinations. Phase I addresses acquisition techniques and 
source selection. Phase II addresses issues relating to contract 
pricing and unsolicited proposals. Conforming changes have also been 
made to other FAR parts. The FAR Part 15 Phase I proposed rule, 
published in the Federal Register at 61 FR 48380, September 12, 1996, 
is revised, and the Competitive Range Determinations proposed rule, 
published in the Federal Register at 61 FR 40116, July 31, 1996, is 
withdrawn. The resolution of public comments, received in response to 
those proposed rules, has resulted in changes that are of such 
significance that publication of a new proposed rule, with opportunity 
for public comment, is deemed appropriate. Furthermore, this proposed 
rule includes Phase II of the FAR Part 15 rewrite, which was previously 
unpublished. This regulatory action was subject to Office of Management 
and Budget review under Executive Order 12866, dated September 30, 
1993. This is not a major rule under 5 U.S.C. 804.

DATES: Comments should be submitted on or before July 14, 1997 to be 
considered in the formulation of a final rule.

ADDRESSES: Interested parties should submit written comments to: 
General Services Administration, FAR Secretariat (VRS), 1800 F Streets, 
NW, Room 4035, Washington, DC 20405.
    Please cite FAR case 95-029 in all correspondence related to this 
case.
    E-Mail comments submitted over the Internet should be addressed to: 
95-029B@www.gsa.gov
    It is requested that the comments be separated into two distinct 
groupings: (1) Group A--those comments that relate to Subparts 15.00, 
15.1, 15.2, 15.3, 15.4, and 15.6 and conforming revisions to Part 1, 5, 
6, 14, 36, 52, and 53 and (2) Group B--those comments that relate to 
Subpart 15.5 and conforming revisions to Part 4, 7, 11, 16, 42, 43, and 
52.

FOR FURTHER INFORMATION CONTACT: Jerry Olson at (202) 501-3221 or 
Melissa Rider at (703) 602-0131 on substantive issues on Subpart 15.5 
and conforming revisions to Part 4, 7, 11, 16, 42, 43, and 52. Ralph 
DeStefano at (202) 501-1758 or Melissa Rider at (703) 602-0131 on 
substantive issues on Subparts 15.0, 15.1, 15.2, 15.3, 15.4, and 15.6 
and conforming revisions to Part 1, 5, 6, 14, 36, 52, and 53. For 
general information, contact the FAR Secretariat, Room 4035, (202) 501-
4755. Please cite FAR case 95-029.

SUPPLEMENTARY INFORMATION:

A. Background

    On January 29, 1996, the FAR Council tasked an ad hoc interagency 
committee to rewrite FAR Part 15, Contracting by Negotiation. The 
rewrite was to be accomplished in two phases. Phase I, consisting of 
the rewrite of FAR Subparts 15.000, 15.1, 15.2, 15.3, 15.4, 15.6, and 
15.10, covering acquisition techniques and source selection, was 
published for public comment in the Federal Register at 61 FR 48380 on 
September 12, 1996. Two public meetings were held to discuss the 
proposed rule: in Washington, DC, on November 8, 1996, and in Kansas 
City, MO, on November 18, 1996. The public comment period closed on 
November 26, 1996. The Government received 1541 comments from 100 
respondents and considered the comments in drafting revisions to the 
rule. Due to the significant changes made as a result of resolving 
public comments, the FAR Council decided to publish a revised proposed 
rule. The revised proposed rule, however, has been expanded to include 
previously unpublished, Phase II, proposed changes--covering Subparts 
15.5, 15.7, 15.8, and 15.9. It also incorporates changes made as a 
result of public comments submitted in response to FAR Case 96-303, 
Competitive Range Determinations.

Case Summary

    This proposed rule modifies concepts and processes in the current 
FAR Part 15, introduces new policies, and incorporates changes in 
pricing and unsolicited proposal policy. In addition, a more 
appropriate sequencing of information has been adopted to facilitate 
use. The proposed rule does not alter the full and open competition 
provisions of FAR Part 6. The goals of this rewrite are to infuse 
innovative techniques into the source selection process, simplify the 
process, and facilitate the acquisition of best value. The rewrite 
emphasizes the need for contracting officers to use effective and 
efficient acquisition methods, and eliminates regulations that impose 
unnecessary burdens on industry and on Government contracting officers.
    The comments considered in drafting this proposed rule include: 
comments received during public meetings held on January 25, 1996, 
November 8, 1996, and November 18, 1996; comments received in response 
to three advance notices of proposed rulemaking (60 FR 63023, December 
8, 1995; 60 FR 65360, December 19, 1995; and 60 FR 67113, December 28, 
1995); comments received in response to publication of the Phase I 
proposed rule in the Federal Register (61 FR 48380, September 12, 
1996); comments received in response to publication of the Competitive 
Range Determinations proposed rule in the Federal Register (61 FR 
40116, July 31, 1996); comments received over the Acquisition Reform 
Network (an Internet forum); comments received from members of Congress 
and Congressional staff, Government agencies, the DAR Council, the 
Civilian Agency Acquisition Council, and the Office of Federal 
Procurement Policy (OFPP); comments received in response to other 
notices of the rewrite in various print media and conferences; and 
comments received from Government fora such as the Front-line 
Professional's Forum and the Federal Procurement Executive Association.
    Several public comments requested that a definition of ``neutral'' 
past performance rating be included in the final rule. This proposed 
rule provides only general guidelines for establishing a neutral 
rating, since what constitutes ``neutral'' seems to change with the 
circumstances of each individual source selection. However, suggestions 
from the general public for a more rigorous definition are solicited 
and will be considered by the FAR Council in drafting the final rule.

[[Page 26641]]

Summary of Changes

    This proposed rule reengineers the processes used to contract by 
negotiation, with the intent of reducing the resources necessary for 
source selection and reducing cycle time to contract award. The goals 
of the FAR Part 15 Rewrite are to ensure that the Government, when 
contracting by negotiation, receives the best value, and that offerors 
are treated fairly by--
     Enhancing communications between the Government and 
industry--allowing industry to better understand the requirement and 
Government to better understand industry's proposals;
     Emphasizing that no offeror, otherwise eligible to submit 
a proposal in response to a Government solicitation, will be excluded 
from the competitive range without its proposal being initially 
reviewed and evaluated;
     Evaluating all proposals received based upon the criteria 
in the solicitation;
     Reducing the bid and proposal costs for industry by 
providing early feedback as to whether a proposal is truly competitive;
     Streamlining the post-competitive range process by 
enhancing the ability of the parties to communicate and document 
understandings reached during discussions; and
     Debriefing offerors excluded from the competitive range as 
to why their proposals were not competitive.
    Although there are changes from the September 12, 1996, proposed 
rule throughout the Phase I portion of this revised proposed rule, some 
of the more important ones are--
     Deletion of the Model Contract Format, that will be added 
to the DFARS as a test;
     Clarification of the standard for admission into the 
competitive range;
     Deletion of language on including in the solicitation an 
estimated number for limiting the competitive range for efficiency;
     More structured guidance on communications, including 
increasing the scope of discussions;
     More structured guidance on accepting late proposals; and
     Establishment of a common cut-off date and time for 
receipt of final proposal revisions.
    Phase II revisions were not included in the September 12, 1996, 
proposed rule. They address unsolicited proposals, make-or-buy 
programs, negotiating contract prices, and profit, and are included in 
this proposed rule. Subparts 15.5, 15.7, 15.8, and 15.9 were renamed 
and resequenced to articulate more clearly policies and procedures 
relative to contract pricing; and to recognize requirements associated 
with the acquisition of commercial items. Specific changes include--
Cost or Pricing Data
     The separate exception for modifications to contracts for 
commercial items has been removed and simplified text has been moved to 
the standards for the commercial item exception at 15.503-1(c)(3).
     The waiver exception at 15.503-1(b)(4) has been modified 
to specifically state that cost and pricing data are not to be obtained 
when a waiver has been granted by the head of the contracting activity.
Field Pricing
     Field pricing coverage was revised to reflect the need for 
greater flexibility and teamwork in today's acquisition environment. 
The emphasis in the proposed coverage is on only obtaining field 
pricing assistance when the contracting officer needs additional 
information to determine a fair and reasonable price. When field 
pricing assistance is needed, the requests should be limited to 
selected areas where assistance is needed, with full technical and 
audit reviews as the exception. Emphasis is placed on early and direct 
communications between the contracting officer and the field agencies 
to define the information needed.
     In those instances when a full field pricing review is 
necessary, the technical and audit reports generated as a result of the 
field pricing reviews will be forwarded to the contracting officer, but 
the separate reports need not be consolidated into a single document.
Forms and Tables
     In the interest of providing flexibility in preparing 
solicitations and offers, the forms currently used as cover sheets for 
submitting cost or pricing data (SF 1411) and information other than 
cost or pricing data (SF 1448) were eliminated. Neither provides much 
information, beyond identification of the offeror and general 
information about the accompanying proposal. One item found on both 
forms, which is still considered necessary, is the statement allowing 
the Government to examine the offeror's records. For cost or pricing 
data, this statement was added in Table 15-2 to the list of information 
to be provided on the first page of the proposal. For information other 
than cost or pricing data, the statement is required by 15.803-
5(a)(ii).
     The existing Table 15-2, Instructions for Submitting Cost 
or Pricing Data, was reorganized to make it more understandable, and 
was moved to the end of Part 15, so it would not disrupt the flow of 
the part. The existing Table 15-3 was eliminated because it did not 
provide information beyond that already found in the text of Subpart 
15.8. Instead, the revised coverage makes it clear that the format in 
Table 15-2 may be tailored by contracting officers for submission of 
information other than cost or pricing data to reflect the instant 
acquisition situation.
Unbalanced Pricing
     The unbalanced pricing coverage was simplified and 
relocated to reflect its use as a proposal analysis technique designed 
to assess risk and protect the Government's economic interest. The 
revised coverage intentionally omits the mention of any step-by-step 
analysis of ``mathematical'' or ``material'' criteria, because 
historically they have not led to clear or consistent interpretations 
of unbalancing. Instead, the focus of the revised coverage is shifted 
to the relative value and risk to the Government.
Unsolicited Proposals Coverage
     The unsolicited proposal coverage has been revised to 
focus on submission of new ideas and concepts in response to Broad 
Agency Announcements, Small Business Innovation Research Topics, Small 
Business Technology Research Topics, or Program Research and 
Development Announcements and to highlight the use of communications 
between industry and the Government.
Fee Limitations
     The requirement for a separate determination and findings 
supporting cost-plus-fixed-fee contracts has been eliminated; the fee 
limitations at 15.809-3(d) have been strictly aligned with statute; and 
the contracting officer's signature on the price negotiation memorandum 
or other documentation of the negotiated price will now serve as a 
determination that fee limits have not been exceeded.
Guidelines for Cost Realism
     New coverage on cost realism has been added at 15.806-4 to 
explicitly recognize the requirement for a cost realism analysis to 
support award of competitive cost reimbursement contracts.

B. Regulatory Flexibility Act

    An Initial Regulatory Flexibility Analysis has been prepared and 
submitted to the Chief Counsel for Advocacy for the Small Business 
Administration. A copy of the analysis may be obtained from the FAR

[[Page 26642]]

Secretariat at the General Services Administration, 1800 F Street, NW., 
Room 4035, Washington, DC 20405. The analysis is summarized as follows:

    This proposed rule modifies fundamental concepts and processes 
that are presently in FAR Part 15, and introduces new policies and 
incorporates changes in pricing and unsolicited proposal policy not 
contained in the initial proposed rule. In addition, a more 
appropriate sequencing of information has been adopted to facilitate 
use. This proposed rule does not alter the full and open competition 
provisions of FAR Part 6. The goals of this rewrite are to infuse 
innovative techniques into the source selection process, simplify 
the process, and facilitate the acquisition of best value. The 
rewrite emphasizes the need for contracting officers to use 
effective and efficient acquisition methods, and eliminates 
regulations that impose unnecessary burdens on industry and on 
Government contracting officers.
    The proposed rule will apply to all large and small entities 
(including educational and nonprofit entities), that offer supplies 
or services to the Government in negotiated acquisitions. Aspects of 
the proposed rule which may impact small entities are: making a 
shift in competitive range policy to encourage retaining only the 
most highly rated proposals rather than all those with a reasonable 
chance of award; allowing the contracting officer to limit the 
competitive range in the interest of efficiency; prohibiting cost 
analysis when contracting on a fixed-price basis without cost 
incentives, unless the contracting officer has reason to believe 
that the proposed prices are not reasonable; requiring that 
evaluation factors established for solicitations provide for 
meaningful evaluations of competing proposals; permitting early 
disclosure of adverse past performance information; allowing early 
and continuing communication between the Government and industry to 
ensure industry's understanding of Government requirements and the 
Government's understanding of offerors' proposals; allowing the 
Government to reveal the cost or price estimates that its analysis, 
market research, and other reviews have identified for an 
acquisition; and allowing plain paper formats to substitute for 
Government forms in support of electronic contracting processes. The 
rule proposes to streamline source selection procedures, thereby 
creating a more efficient process that benefits both private and 
public sectors.
    The Office of Federal Procurement Policy (OFPP) believes the 
proposed rule reduces Government regulations that establish 
requirements for the way the Government deals with those seeking to 
do business with it. Such deregulation reflects the spirit and 
intent of the Regulatory Flexibility Act. OFPP further believes that 
the changes are good for small businesses; that there are many small 
businesses that do not do business with the Government because of 
the complexity of offering, evaluation, and award, that will benefit 
from these changes.

    Comments are invited. Comments from small entities concerning the 
affected FAR subparts will be considered in accordance with Section 610 
of the Act. Such comments should be submitted separately and cite FAR 
case 95-029 in correspondence.

C. Paperwork Reduction Act

    The Paperwork Reduction Act applies because the rule revises 
existing information collection requirements, resulting in a decrease 
in the estimated burden. Accordingly, a request for amendment of 
information collection requirements under approved Office of Management 
and Budget (OMB) Control Numbers 9000-0037, 9000-0044, and 9000-0048 
will be submitted to OMB under 44 U.S.C. 3501, et seq. at the final 
rule stage. The title of each information collection requirement, the 
affected FAR Part 15-related cite, and the hours currently approved by 
OMB for each information collection requirement are: 9000-0037, 
Standard Form 1417, Presolicitation Notice and Response, FAR 15.404(b), 
7,882 hours; 9000-0044, Bid/Offer Acceptance Period, 52.215-19, 2,190 
hours; and 9000-0048, Authorized Negotiators, 52.215-11, 8,415 hours. 
As a result of this proposed rule, a decrease in the total information 
collection requirement is expected, because increased efficiencies in 
the source selection process are expected to result in a decrease in 
the number of proposal revisions from offerors.

List of Subjects in 48 CFR Parts 1, 2, 3, 4, 5, 6, 7, 9, 11, 12, 13, 
14, 15, 16, 17, 19, 24, 25, 27, 28, 31, 32, 33, 34, 35, 36, 42, 43, 44, 
45, 49, 50, 52, and 53

    Government procurement.

    Dated: May 6, 1997.
Edward C. Loeb,
Director, Federal Acquisition Policy Division.

    Therefore, proposed rule 96-503, Competitive Range Determinations, 
published at 61 FR 40116, July 31, 1996, is withdrawn, and proposed 
rule 95-029 which appeared at 61 FR 48380, September 12, 1996, is 
revised and it is proposed that 48 CFR Parts 1, 2, 3, 4, 5, 6, 7, 9, 
11, 12, 13, 14, 15, 16, 17, 19, 24, 25, 27, 28, 31, 32, 33, 34, 35, 36, 
42, 43, 44, 45, 49, 50, 52, and 53 be amended as set forth below:
    1. The authority citation for 48 CFR Parts 1, 2, 3, 4, 5, 6, 7, 9, 
11, 12, 13, 14, 16, 17, 19, 24, 25, 27, 28, 31, 32, 33, 34, 35, 36, 42, 
43, 44, 45, 49, 50, 52, and 53 continues to read as follows:

    Authority: 40 U.S.C. 486(c); 10 U.S.C. chapter 137; and 42 
U.S.C. 2473(c).

PART 1--FEDERAL ACQUISITIONS REGULATIONS SYSTEM

    2. Section 1.102-2 is amended by adding paragraph (c)(3) to read as 
follows:


1.102-2  Performance standards.

* * * * *
    (c) *  *  *
    (3) The Government shall exercise discretion, use sound business 
judgment, and comply with applicable laws and regulations in dealing 
with contractors and prospective contractors. All contractors and 
prospective contractors shall be treated fairly and impartially, but 
need not be treated the same.
* * * * *

PART 2--DEFINITIONS OF WORDS AND TERMS

    3. Section 2.101 is amended by inserting, in alphabetical order, 
the definition ``Best value'' to read as follows:


2.101  Definitions.

* * * * *
    Best value means the outcome of an acquisition that, in the 
Government's estimation, provides the greatest overall benefit in 
response to the requirement.
* * * * *

PART 4--ADMINISTRATIVE MATTERS

    4. Subpart 4.10 is added to read as follows:

Subpart 4.10--Contract Line Items


4.1001  Policy.

    Contracts may identify the items or services to be acquired as 
separately identified line items. Contract line items should provide 
unit prices or lump sum prices for separately identifiable contract 
deliverables, and associated delivery schedules or performance periods. 
Line items may be further subdivided or stratified for administrative 
convenience (e.g., to provide for traceable accounting classification 
citations).

PART 6--COMPETITION REQUIREMENTS

    5. Section 6.101 is amended by revising paragraph (b) to read as 
follows:


6.101  Policy.

* * * * *
    (b) Contracting officers shall provide for full and open 
competition through use of the competitive procedure(s) contained in 
this subpart that are best suited to the circumstances of the

[[Page 26643]]

contract action and consistent with the need to fulfill the 
Government's requirements efficiently (10 U.S.C. 2304 and 41 U.S.C. 
253).

PART 7--ACQUISITION PLANNING

    6. Section 7.105 is amended by revising (b)(5) to read as follows:


7.105  Contents of written acquisition plans.

    (b) *  *  *
    (5) Budgeting and funding. Include budget estimates, explain how 
they were derived, and discuss the schedule for obtaining adequate 
funds at the time they are required (see subpart 32.7).
* * * * *

PART 11--DESCRIBING AGENCY NEEDS

    7. Subpart 11.8 is added to read as follows:

Subpart 11.8--Testing


11.801  Preaward testing.

    Preaward testing or product demonstration, when required by the 
solicitation, need not be conducted in accordance with a formal test 
plan. The results of such tests or demonstrations may be used to rate 
the proposal, to determine technical acceptability, or otherwise to 
evaluate the proposal.

PART 14--SEALED BIDDING


14.201-6  [Amended]

    8. Section 14.201-6 is amended by removing and reserving paragraph 
(n).
    9. Section 14.404-1 is amended in paragraph (e)(1) by removing the 
reference ``15.103'' and inserting ``paragraph (f) of this subsection'' 
in its place; and by adding paragraph (f) to read as follows:


14.404-1  Cancellation of invitations after opening.

* * * * *
    (f) When the agency head has determined, in accordance with 14.404-
1(e)(1), that an invitation for bids should be canceled and that use of 
negotiation is in the Government's interest, the contracting officer 
may negotiate and make award without issuing a new solicitation 
provided--
    (1) Each responsible bidder in the sealed bid acquisition has been 
given notice that negotiations will be conducted and has been given an 
opportunity to participate in negotiations; and
    (2) The negotiated price is the lowest negotiated price offered by 
any responsible bidder.
    10. Part 15 is revised to read as follows:

PART 15--CONTRACTING BY NEGOTIATION

Subpart 15.0--Scope

Sec.
15.000  Scope of part.
15.001  Definitions.
15.002  Negotiated acquisition.

Subpart 15.1--Source Selection Processes and Techniques

15.100  Scope of subpart.
15.101  Best value continuum.
15.101-1  Tradeoff process.
15.101-2  Lowest price technically acceptable source selection 
process.
15.102  Multi-step source selection technique.
15.103  Oral presentations.

Subpart 15.2--Solicitation and Receipt of Proposals and Information

15.200  Scope of subpart.
15.201  Presolicitation exchanges with industry.
15.202  Advisory multi-step source selection.
15.203  Requests for proposals.
15.204  Contract format.
15.204-1  Uniform contract format.

Table 15-1--Uniform Contract Format

15.204-2  Part I--The Schedule.
15.204-3  Part II--Contract Clauses.
15.204-4  Part III--List of Documents, Exhibits, and Other 
Attachments.
15.204-5  Part IV--Representations and Instructions.
15.205  Issuing solicitations.
15.206  Amending the solicitation.
15.207  Handling proposals and information.
15.208  Submission, modification, revision, and withdrawal of 
proposals.
15.209  Solicitation provisions and contract clauses.
15.210  Forms.

Subpart 15.3--Unsolicited Proposals

15.300  Scope of subpart.
15.301  Definitions.
15.302  Policy.
15.303  General.
15.304  Agency liaison.
15.305  Content of unsolicited proposals.
15.306  Agency procedures.
15.306-1  Receipt and initial review.
15.306-2  Evaluation.
15.307  Criteria for acceptance and negotiation of an unsolicited 
proposal.
15.308  Prohibitions.
15.309  Limited use of data.

Subpart 15.4--Source Selection

15.400  Scope of subpart.
15.400  Scope of subpart.
15.401  Definitions.
15.402  Source selection objective.
15.403  Responsibilities.
15.404  Evaluation factors and subfactors.
15.405  Proposal evaluation.
15.406  Communications with offerors.
15.407  Proposal revisions.
15.408  Source selection.

Subpart 15.5--Contract Pricing

15.500  Scope of subpart.
15.501  Definitions.
15.502  Pricing policy.
15.503  Obtaining cost or pricing data.
15.503-1  Prohibition on obtaining cost or pricing data.
15.503-2  Other circumstances where cost or pricing data are not 
required.
15.503-3  Requiring information other than cost or pricing data.
15.503-4  Requiring cost or pricing data.
15.503-5  Instructions for submission of cost or pricing data or 
information other than cost or pricing data.
15.504  Proposal analysis.
15.504-1  Proposal analysis techniques.
15.504-2  Information to support proposal analysis.
15.504-3  Subcontract pricing considerations.
15.504-4  Profit.
15.505  Price negotiation.
15.506  Documentation.
15.506-1  Prenegotiation objectives.
15.506-2  Certificate of Current Cost or Pricing Data.
15.506-3  Documenting the negotiation.
15.507  Special cost or pricing areas.
15.507-1  Defective cost or pricing data.
15.507-2  Make-or-buy programs.
15.507-3  Forward pricing rate agreements.
15.507-4  Should cost review.
15.507-5  Estimating systems.
15.508  Solicitation provisions and contract clauses.

Table 15-2--Instructions for Submitting Cost or Pricing Data

Subpart 15.6--Preaward, Award, and Postaward Notifications, Protests, 
and Mistakes
15.601  Definition.
15.602  Applicability.
15.603  Notifications to unsuccessful offerors.
15.604  Award to successful offeror.
15.605  Preaward debriefing of offerors.
15.606  Postaward debriefing of offerors.
15.607  Protests against award.
15.608  Discovery of mistakes.
15.609  Forms.

    Authority: 40 U.S.C. 486(c); 10 U.S.C. chapter 137; and 42 
U.S.C. 2473(c).

Subpart 15.0--Scope


15.000  Scope of part.

    This part prescribes policies and procedures governing competitive 
and noncompetitive negotiated acquisitions. Negotiated procedures may 
include bargaining. A contract awarded using other than sealed bidding 
procedures is a negotiated contract (see 14.101).


15.001  Definitions.

    As used in this part--
    Communications are all interchanges after receipt of proposals 
between the Government and an offeror, including

[[Page 26644]]

discussions conducted after the competitive range is established.
    Discussions are negotiations that occur after establishment of the 
competitive range that may, at the contracting officer's discretion, 
result in the offeror being allowed to revise its proposal.
    Negotiation is a procedure that, after receipt and evaluation of 
proposals from offerors, permits bargaining. Bargaining includes 
persuasion, alteration of assumptions and positions, give-and-take, and 
may apply to price, schedule, technical requirements, type of contract, 
or other terms of a proposed contract.
    Proposal modification is a change made to a proposal before the 
solicitation's closing date and time, made in response to an amendment, 
or made to correct a mistake at any time before award.
    Proposal revision is a change to a proposal made after the 
solicitation closing date, at the request of a contracting officer, as 
the result of discussions.


15.002  Negotiated acquisition.

    (a) Sole-source acquisitions. When contracting in a sole source 
environment, the RFP should be tailored to remove unnecessary 
information and requirements e.g., evaluation criteria, and voluminous 
proposal preparation instructions.
    (b) Competitive acquisitions. When contracting in a competitive 
environment, the procedures of this part are intended to minimize the 
complexity of the solicitation, the evaluation, and the source 
selection decision, while maintaining a process designed to foster an 
impartial and comprehensive evaluation of offerors' proposals, leading 
to selection of the proposal representing the best value to the 
Government (see 2.101).

Subpart 15.1--Source Selection Processes and Techniques


15.100  Scope of subpart.

    This subpart describes some acquisition processes and techniques 
that may be used to design competitive acquisition strategies suitable 
for the specific circumstances of the acquisition, unless otherwise 
noted.


15.101  Best value continuum.

    An agency can obtain best value in negotiated procurements by using 
any one or a combination of source selection approaches. In different 
types of procurements, the relative importance of cost or price may 
vary. For example, in acquisitions where the requirement is clearly 
definable and the risk of unsuccessful contract performance is minimal, 
cost or price may play a dominant role in source selection. The less 
definitive the requirement, the more development work required, or the 
greater the performance risk, the more technical or past performance 
considerations may play a dominant role in source selection.


15.101-1  Tradeoff process.

    (a) This process is appropriate when it may be in the best interest 
of the Government to consider award to other than the lowest priced 
offeror.
    (b) When using the tradeoff process, the following applies:
    (1) All evaluation factors and significant subfactors that will 
affect contract award and their relative importance shall be clearly 
stated in the solicitation.
    (2) The solicitation shall state whether all evaluation factors 
other than cost or price when combined are significantly more important 
than, approximately equal to, or significantly less important than cost 
or price.
    (3) This process permits tradeoffs among cost or price and non-cost 
factors and allows the Government to accept other than the lowest 
priced proposal. The perceived benefits of the higher-priced proposal 
shall merit the additional cost, and the rationale for tradeoffs must 
be documented in the file in accordance with 15.408.


15.101-2  Lowest price technically acceptable source selection process.

    (a) This process is appropriate when best value is expected to 
result from selection of the technically acceptable proposal with the 
lowest evaluated price.
    (b) When using the lowest price technically acceptable process, the 
following applies:
    (1) The evaluation factors and significant subfactors that 
establish the requirements of acceptability shall be set forth in the 
solicitation. Solicitations shall specify that award will be made on 
the basis of the lowest evaluated price of proposals meeting or 
exceeding the acceptability standards for non-cost factors. Past 
performance shall be evaluated as a non-cost factor in accordance with 
15.405, unless the contracting officer has determined that the 
evaluation of past performance is not appropriate (15.404(d)(3)(iii)).
    (2) Tradeoffs are not permitted.
    (3) Proposals are evaluated for acceptability but not ranked using 
the non-cost/price factors.
    (4) Communications may occur (see 15.406).


15.102  Multi-step source selection technique.

    (a) Multi-step source selection may be appropriate when the 
submission of full proposals at the beginning of a source selection 
would be burdensome for offerors to prepare and for Government 
personnel to evaluate. Using the multi-step techniques described in 
this section, agencies may seek limited information initially, make one 
or more competitive range determinations, and request full proposals 
from those remaining in the competitive range.
    (b) The agency shall issue a solicitation that describes the 
supplies or services to be acquired, identifies the criteria that will 
be used in making the source selection decision, and identifies the 
information that must be submitted in response to the first-step 
solicitation. While the solicitation will not require the submission of 
full proposals in first step, it shall require, at minimum, the 
submission of statements of qualifications, proposed technical 
concepts, and past performance and pricing information. The 
solicitation also shall outline what submissions are expected in future 
steps. The solicitation must disclose all significant factors and 
subfactors, including cost or price, that the agency will consider in 
evaluating proposals, and their relative importance. The solicitation 
must contain sufficient information to permit potential offerors to 
make informed decisions about whether to participate in the 
acquisition, and shall advise them that failure to participate in the 
first step will preclude participation in any subsequent step.
    (c) The agency shall evaluate all responses in accordance with the 
criteria stated in the solicitation, and shall advise each offeror 
either that it has been selected to participate in the next step of the 
acquisition or that it has been excluded from the competitive range. 
Those not determined to be in the competitive range shall be informed 
in accordance with 15.603 that they will not be permitted to 
participate in any subsequent step, and shall be debriefed as required 
by 15.605 and 15.606. The agency shall seek additional information in 
any subsequent step sufficient to permit an award without further 
discussion or another competitive range determination. The process ends 
at contract award or cancellation of the acquisition.


15.103  Oral presentations.

    Oral presentations by offerors to the Government may be used to 
substitute for, or augment, written information. Use of oral 
presentations as a substitute for portions of a proposal can be

[[Page 26645]]

effective in streamlining the source selection process. Oral 
presentations may occur at any time in the acquisition process, and are 
subject to the same restrictions as written information, regarding 
timing (see 15.208) and content (see 15.406). Oral presentations 
provide an opportunity for dialogue among the parties in competitive 
and sole source acquisitions. Pre-recorded videotaped presentations 
that lack real-time interactive dialogue are not considered oral 
presentations for the purposes of this section, although they may be 
included in offeror submissions, when appropriate.
    (a) The solicitation may require each offeror to submit part of its 
proposal through oral presentations. However, certifications, 
representations, and a signed offer sheet (including any exceptions to 
the Government's terms and conditions) shall be submitted in writing.
    (b) Information pertaining to areas such as an offeror's 
capability, past performance, work plans or approaches, staffing 
resources, transition plans, or sample tasks (or other types of tests) 
may be suitable for oral presentations. In deciding what information to 
obtain through an oral presentation, consider the following:
    (1) The Government's ability to adequately evaluate the 
information;
    (2) The need to incorporate any information into the resultant 
contract;
    (3) The impact on the efficiency of the acquisition; and
    (4) The impact on small businesses.
    (c) When oral presentations are required, the solicitation shall 
provide offerors with sufficient information to prepare them. 
Accordingly, the solicitation may describe--
    (1) The types of information to be presented orally and the 
associated evaluation factors that will be used;
    (2) The qualifications for personnel that will be required to 
provide the oral presentation(s);
    (3) The requirements for, and any limitations and/or prohibitions 
on, the use of written material or other media to supplement the oral 
presentations;
    (4) The location, date, and time for the oral presentations;
    (5) The restrictions governing the time permitted for each oral 
presentation; and
    (6) The scope and content of communications that may occur between 
the Government's participants and the offeror's representatives as part 
of the oral presentations, e.g., state whether or not discussions will 
be permitted during oral presentations (see 15.406(d)).
    (d) The contract file shall contain a record of oral presentations 
to document what the Government relied upon in making the source 
selection decision. The method and level of detail of the record (e.g., 
videotaping, written minutes, Government notes, copies of offeror 
briefing slides or presentation notes) shall be at the discretion of 
the source selection authority.
    (e) When an oral presentation includes information that the parties 
intend to include in the contract as material terms or conditions, the 
information shall be put in writing. Incorporation by reference of oral 
statements is not permitted.
    (f) If, during an oral presentation, the Government conducts 
discussions as defined in 15.001, the Government must comply with 
15.406 and 15.407.

Subpart 15.2--Solicitation and Receipt of Proposals and Information


15.200  Scope of subpart.

    This subpart prescribes policies and procedures for--
    (a) Exchanging information with industry prior to releasing a 
solicitation;
    (b) Preparing and issuing requests for proposals (RFPs) and 
requests for information (RFIs); and
    (c) Receiving proposals and information.


15.201  Presolicitation exchanges with industry.

    (a) Exchanges of information among all interested parties, from the 
earliest identification of a requirement through release of the 
solicitation, is encouraged. Interested parties include potential 
offerors, end users, Government acquisition and supporting personnel, 
and others involved in the conduct or outcome of the acquisition.
    (b) The purpose of exchanging information is to improve the 
understanding of Government requirements and industry capabilities, 
thereby enhancing the Government's ability to obtain quality products 
and services at reasonable prices, and increase efficiency in proposal 
preparation, proposal evaluation, negotiation, and contract award.
    (c) Agencies are encouraged to promote early exchanges of 
information about future acquisitions. An early exchange of information 
can identify and resolve concerns regarding the acquisition strategy, 
including proposed contract type, terms and conditions and acquisition 
planning schedules; the feasibility of the requirement, including 
performance requirements, statements of work, and data requirements; 
the suitability of the proposal instructions and evaluation criteria, 
including the approach for assessing past performance information; the 
availability of reference documents and information exchange 
approaches; and any other industry concerns or questions (see 3.104 
regarding procurement integrity requirements). Some techniques to 
promote early exchanges of information are--
    (1) Industry or small business conferences;
    (2) Public hearings;
    (3) Market research, as described in part 10;
    (4) One-on-one meetings with potential offerors (see paragraph (f) 
of this section regarding restrictions on disclosure of information);
    (5) Presolicitation notices;
    (6) Draft RFPs;
    (7) RFIs;
    (8) Presolicitation or preproposal conferences; and
    (9) Site visits.
    (d) The special notices of procurement matters at 5.205(c), or 
electronic notices, may be used to publicize the Government's 
requirement or solicit information from industry.
    (e) RFIs may be used when the Government does not presently intend 
to award a contract, but needs to obtain price, delivery, other market 
information, or capabilities for planning purposes. Responses to these 
notices are not offers and cannot be accepted by the Government to form 
a binding contract. There is no required format for RFIs.
    (f) General information about agency mission needs and future 
requirements may be disclosed at any time. When specific information 
about a proposed acquisition that would be necessary for the 
preparation of proposals is disclosed to one or more potential 
offerors, that information shall be made available to the public as 
soon as possible, in order to avoid creating an unfair competitive 
advantage. When a presolicitation or preproposal conference is 
conducted, materials distributed at the conference should be made 
available to all potential offerors, upon request.


15.202  Advisory multi-step source selection.

    (a) The agency may publish a presolicitation notice (see 5.204) 
that provides a general description of the scope or purpose of the 
acquisition and invites potential offerors to submit information that 
allows the Government to advise the offerors about their potential to 
be viable competitors. The presolicitation notice should identify the 
information that must be submitted and the criteria that will be used 
in making the initial evaluation, and

[[Page 26646]]

should invite responses. Information sought may be limited to a 
statement of qualifications and other appropriate information (e.g., 
proposed technical concept, past performance, and limited pricing 
information). At a minimum, the notice shall contain sufficient 
information to permit a potential offeror to make an informed decision 
about whether to participate in the acquisition.
    (b) The agency shall evaluate all responses in accordance with the 
criteria stated in the notice, and shall advise each respondent either 
that it will be invited to participate in the resultant acquisition or, 
based on the information submitted, that it is unlikely to be a viable 
competitor. The agency shall advise respondents considered not to be 
viable competitors of the general basis for that opinion. The agency 
shall inform all respondents that, notwithstanding the advice provided 
by the Government in response to their submissions, they may 
participate in the resultant acquisition.


15.203  Requests for proposals.

    (a) Requests for proposals (RFPs) are used in negotiated 
acquisitions to communicate Government requirements to prospective 
contractors and to solicit proposals. RFPs for competitive acquisitions 
shall, at a minimum, describe the--
    (1) Government's requirement;
    (2) Anticipated terms and conditions that will apply to the 
contract--
    (i) The solicitation may authorize offerors to propose alternative 
terms and conditions, including the contract line item number (CLIN) 
structure; and
    (ii) When alternative CLIN structures are permitted, the evaluation 
approach should consider the potential impact on other terms and 
conditions or the requirement (e.g., place of performance or payment 
and funding requirements);
    (3) Information required to be in the offeror's proposal; and
    (4) Factors and significant subfactors that will be used to 
evaluate the proposal.
    (b) An RFP may be issued for OMB Circular A-76 studies. See subpart 
7.3 for additional information regarding cost comparisons between 
Government and contractor performance.
    (c) Electronic commerce may be used to issue RFPs, and to receive 
proposals, modifications, and revisions. In this case, the RFP shall 
specify the electronic commerce method(s) that offerors may use (see 
subpart 4.5).
    (d) Contracting officers may issue RFPs and/or authorize receipt of 
proposals modifications or revisions by facsimile.
    (1) In deciding whether or not to use facsimiles, the contracting 
officer should consider factors such as--
    (i) Anticipated proposal size and volume;
    (ii) Urgency of the requirement;
    (iii) Availability and suitability of electronic commerce methods; 
and
    (iv) Adequacy of administrative procedures and controls for 
receiving, identifying, recording, and safeguarding facsimile 
proposals, and ensuring their timely delivery to the designated 
proposal delivery location.
    (2) If facsimile proposals are authorized, contracting officers may 
request offeror(s) to provide the complete, original signed proposal at 
a later date.
    (e) Letter RFPs may be used in sole source follow-on acquisitions 
and other appropriate circumstances. Letter RFPs should be as complete 
as possible and, as a minimum, should contain the following:
    (1) RFP number and date;
    (2) Name, address, and telephone number of contracting officer;
    (3) Type of contract contemplated;
    (4) Quantity, description, and required delivery dates for the 
item;
    (5) Applicable certifications and representations;
    (6) Contract terms and conditions;
    (7) Instructions to offerors and evaluation criteria for other than 
sole-source actions;
    (8) Proposal due date and time; and
    (9) Other relevant information; e.g., incentives, variations in 
delivery schedule, any peculiar or different requirements, cost 
proposal support, and data requirements.
    (f) Oral RFPs are authorized when processing a written solicitation 
would delay the acquisition of supplies or services to the detriment of 
the Government and a notice is not required under 5.202 (e.g., 
perishable items and support of contingency operations or other 
emergency situations).
    (1) The contract files supporting oral solicitations should 
include--
    (i) A description of the requirement;
    (ii) Rationale for use of an oral solicitation;
    (iii) Sources solicited, including the date, time, name of 
individuals contacted, and prices offered; and
    (iv) The solicitation number provided to the prospective offerors.
    (2) The information furnished to potential offerors under oral 
solicitations should include appropriate items from paragraph (e) of 
this section.


15.204  Contract format.

    The use of a standard contract format facilitates preparation of 
the solicitation and contract as well as reference to, and use of, 
those documents by offerors, contractors, and contract administrators. 
The standard format need not be used in the following:
    (a) Construction and architect-engineer contracts (see part 36).
    (b) Subsistence contracts.
    (c) Supplies or services requiring special contract formats 
prescribed elsewhere in this chapter that are inconsistent with the 
standard format.
    (d) Letter requests for proposals (see 15.203(e)).
    (e) Contracts exempted by the agency head or designee.


15.204-1  Uniform contract format.

    (a) Contracting officers shall prepare solicitations and resulting 
contracts using the uniform contract format outlined in Table 15-1 of 
this section.
    (b) Solicitations using the uniform contract format shall include 
Parts I, II, III, and IV (see 15.204-2 through 15.204-5). Upon award, 
contracting officers shall not physically include Part IV in the 
resulting contract, but shall retain in the contract file a completed 
Section K, Representations, certifications, and other statements of 
offerors. Section K shall be incorporated by reference in the contract.

                                                          Table 15--1.--Uniform Contract Format                                                         
                                                                                                                                                        
                 Section                                                                       Title                                                    
                                                                                                                                                        
                                                                                        Part I--The Schedule                                            
A........................................  Solicitation/contract form.                                                                                  
B........................................  Supplies or services and prices/costs.                                                                       
C........................................  Description/specifications/work statement.                                                                   
D........................................  Packaging and marking.                                                                                       
E........................................  Inspection and acceptance.                                                                                   
F........................................  Deliveries or performance.                                                                                   

[[Page 26647]]

                                                                                                                                                        
G........................................  Contract administration data.                                                                                
H........................................  Special contract requirements.                                                                               
                                                                                     Part II--Contract Clauses                                          
I........................................  Contract clauses.                                                                                            
                                                                    Part III--List of Documents, Exhibits, and Other Attachments                        
J........................................  List of attachments                                                                                          
                                                                             Part IV--Representations and Instructions                                  
K........................................  Representations, certifications, and other statements of offerors or quoters.                                
L........................................  Instructions, conditions, and notices to offerors or respondents.                                            
M........................................  Evaluation factors for award.                                                                                
                                                                                                                                                        

15.204-2  Part I--The Schedule.

    The contracting officer shall prepare the contract Schedule as 
follows:
    (a) Section A, Solicitation/contract form. (1) Prepare RFPs on 
Optional Form (OF) 308, Solicitation and Offer--Negotiated Acquisition, 
unless otherwise permitted by this chapter (see use of modified 
standard forms, part 53).
    (2) If the Standard Form (SF) 18, Request for Quotations (53.301-
18) is used for an RFI, the form may be modified to incorporate Section 
A of the uniform contract format.
    (3) When other than OF 308 or SF 18 is used, include the following 
information on the first page of the solicitation.
    (i) Name, address, and location of issuing activity, including room 
and building where proposals or information must be submitted.
    (ii) Solicitation number.
    (iii) Date of issuance.
    (iv) Closing date and time.
    (v) Number of pages.
    (vi) Requisition or other purchase authority.
    (vii) Brief description of item or service.
    (viii) Requirement for the offeror or respondent to an RFI to 
provide its name and complete address, including street, city, county, 
state, and zip code.
    (b) Section B, Supplies or services and prices/costs. Include a 
brief description of the supplies or services; e.g., item number, 
national stock number/part number if applicable, nouns, nomenclature, 
and quantities. (This includes incidental deliverables such as manuals 
and reports.)
    (c) Section C, Description/specifications/work statement. Include 
any description or specifications needed in addition to Section B (see 
part 11).
    (d) Section D, Packaging and marking. Provide packaging, packing, 
preservation, and marking requirements, if any.
    (e) Section E, Inspection and acceptance. Include inspection, 
acceptance, quality assurance, and reliability requirements (see part 
46, Quality Assurance).
    (f) Section F, Deliveries or performance. Specify the requirements 
for time, place, and method of delivery or performance (see subpart 
11.4, Delivery or Performance Schedules, and 47.301-1).
    (g) Section G, Contract administration data. Include any required 
accounting and appropriation data and any required contract 
administration information or instructions other than those on the 
solicitation form. Include a statement that the offeror should include 
the payment address in the proposal, if it is different from that shown 
for the offeror.
    (h) Section H, Special contract requirements. Include a clear 
statement of any special contract requirements that are not included in 
Section I, Contract clauses, or in other sections of the uniform 
contract format.


15.204-3  Part II--Contract Clauses.

    Section I, Contract clauses. The contracting officer shall include 
in this section the clauses required by law or by this chapter and any 
additional clauses expected to be included in any resulting contract, 
if these clauses are not required in any other section of the uniform 
contract format. An index may be inserted if this section's format is 
particularly complex.


15.204-4  Part III--List of Documents, Exhibits, and Other Attachments.

    Section J, List of attachments. The contracting officer shall list 
the title, date, and number of pages for each attached document, 
exhibit, and other attachment. Cross-references to material in other 
sections may be inserted, as appropriate.


15.204-5  Part IV--Representations and Instructions.

    The contracting officer shall prepare the representations and 
instructions as follows:
    (a) Section K, Representations, certifications, and other 
statements of offerors. Include in this section those solicitation 
provisions that require representations, certifications, or the 
submission of other information by offerors.
    (b) Section L, Instructions, conditions, and notices to offerors or 
respondents. Insert in this section solicitation provisions and other 
information and instructions not required elsewhere to guide offerors 
or respondents in preparing proposals or responses to requests for 
information. Prospective offerors or respondents may be instructed to 
submit proposals or information in a specific format or severable parts 
to facilitate evaluation. The instructions may specify further 
organization of proposal or response parts, such as--
    (1) Administrative;
    (2) Management;
    (3) Technical;
    (4) Past performance; and
    (5) Cost or pricing data (see Table 15-2 of 15.508).
    (c) Section M, Evaluation factors for award. Identify all 
significant factors and any significant subfactors that will be 
considered in awarding the contract and their relative importance (see 
15.404(e)). The contracting officer shall insert one of the phrases in 
15.404(f).


15.205  Issuing solicitations.

    (a) The contracting officer shall issue solicitations to potential 
sources in accordance with the policies and procedures in parts 5 and 
6. When using other than electronic contracting methods, the 
contracting officer shall furnish copies of unclassified solicitations 
to small businesses upon request and shall prepare a reasonable number 
of copies for distribution to other eligible parties. The agency may 
charge for solicitation sets, if permitted by agency regulations.
    (b) A master solicitation (see 14.203-3) may be used for negotiated 
acquisitions.

[[Page 26648]]

15.206  Amending the solicitation.

    (a) When, either before or after receipt of proposals, the 
Government changes, relaxes, increases, or otherwise modifies its 
requirements or terms and conditions, the contracting officer shall 
amend the solicitation.
    (b) Oral notices may be used when time is of the essence. The 
contracting officer shall document the contract file and formalize the 
notice with an amendment.
    (c) At a minimum, the following information should be included in 
each amendment:
    (1) Name and address of issuing activity;
    (2) Solicitation number and date;
    (3) Amendment number and date;
    (4) Number of pages;
    (5) Description of the change being made;
    (6) Government point of contact and phone number; and
    (7) Revision to solicitation closing date, if applicable.
    (d) Amendments issued before the established time and date for 
receipt of proposals shall be issued to all parties receiving the 
solicitation.
    (e) Amendments issued after the established time and date for 
receipt of proposals shall be issued to all offerors that have not been 
eliminated from the competition.
    (f) If, based on market research or otherwise, in the judgment of 
the contracting officer, an amendment issued after offers are received 
is so substantial that it is beyond what prospective offerors could 
have reasonably anticipated and that additional sources likely would 
have submitted offers, the contracting officer shall cancel the 
original solicitation and issue a new one, regardless of the stage of 
the acquisition.
    (g) If the proposal considered to be most advantageous to the 
Government (determined according to the established evaluation 
criteria) involves a departure from the stated requirements, the 
contracting officer shall amend the solicitation, provided, that this 
can be done without revealing to the other offerors the alternate 
solution proposed or any other information that is entitled to 
protection (see 15.208(b) and 15.407(d)).


15.207  Handling proposals and information.

    (a) Upon receipt at the location specified in the solicitation, 
proposals and information received in response to a request for 
information (RFI) shall be marked with the date and time of receipt and 
shall be transmitted to the designated officials.
    (b) Proposals shall be safeguarded from unauthorized disclosure 
throughout the source selection process. See 3.104 regarding the 
disclosure of source selection information (41 U.S.C. 423). Information 
received in response to an RFI shall be safeguarded adequately from 
unauthorized disclosure.
    (c) If a proposal received by the contracting officer 
electronically or by facsimile is unreadable to the degree that 
conformance to the essential requirements of the solicitation cannot be 
ascertained from the document, the contracting officer immediately 
shall notify the offeror and permit the offeror to resubmit the 
proposal. The method and time for resubmission shall be prescribed by 
the contracting officer after consultation with the offeror, and 
documented in the file. The resubmission shall be considered as if it 
were received at the date and time of the original unreadable 
submission for the purpose of determining timeliness under 15.208(a), 
provided the offeror complies with the time and format requirements for 
resubmission prescribed by the contracting officer.


15.208  Submission, modification, revision, and withdrawal of 
proposals.

    (a) Offerors are responsible for timely submission of proposals, 
and any requested revisions or modifications to them, to the Government 
office designated in the solicitation. Unless the solicitation states a 
specific time, the time for receipt is 4:30 p.m., local time, at the 
designated office on the date that proposals, requested revisions, or 
modifications are due.
    (b) Proposals, modifications, and final revisions received in the 
designated Government office after the exact time specified are late.
    (c) Late proposals, modifications, and final revisions may be 
accepted by the contracting officer provided--
    (1) The contracting officer extends the due date for all offerors; 
or
    (2) The contracting officer determines in writing, on the basis of 
a review of the circumstances, that the lateness was caused by actions, 
or inactions, of the Government; or
    (3) In the judgment of the contracting officer, the offeror 
demonstrates by submission of factual information that the 
circumstances causing the late submission were beyond the immediate 
control of the offeror.
    (d) The contracting officer shall promptly notify any offeror if 
its proposal, modification, or revision was received late and whether 
or not it will be considered, unless contract award is imminent and the 
notice prescribed in 15.603(b) would suffice.
    (e) Proposals may be withdrawn at any time before award. Written 
proposals are withdrawn upon receipt by the contracting officer of a 
written notice of withdrawal. Oral proposals in response to oral 
solicitations may be withdrawn orally. The contracting officer shall 
document the contract file when such oral withdrawals are made. One 
copy of withdrawn proposals should be retained in the contract file 
(see 4.803(a)(10)). Extra copies of the withdrawn proposals may be 
destroyed or returned to the offeror at the offeror's request. 
Extremely bulky proposals shall only be returned at the offeror's 
request and expense.


15.209  Solicitation provisions and contract clauses.

    When contracting by negotiation--
    (a) The contracting officer shall insert the provision at 52.215-1, 
Instructions to Offerors--Competitive Acquisition, in all competitive 
solicitations where the Government intends to award a contract without 
discussions. If the Government intends to make award after discussions 
with offerors within the competitive range, the contracting officer 
shall use the basic provision with its Alternate I.
    (b) The contracting officer shall insert the clause at 52.215-2, 
Audit and Records-Negotiation, in solicitations and contracts except--
    (1) Acquisitions not exceeding the simplified acquisition 
threshold;
    (2) Acquisitions for utility services at rates not exceeding those 
established to apply uniformly to the general public, plus any 
applicable reasonable connection charge (10 U.S.C. 2313, 41 U.S.C. 
254d, and OMB Circular No. A-133);
    (3) Facilities acquisitions, where the contracting officer shall 
use the clause with its Alternate I;
    (4) Cost-reimbursement contracts with educational institutions and 
other nonprofit organizations, where the contracting officer shall use 
the clause with its Alternate II; or
    (5) When the examination of records by the Comptroller General is 
waived in accordance with 25.901; in this case the contracting officer 
shall use the clause with its Alternate III.
    (c) When issuing a solicitation for information or planning 
purposes, the contracting officer shall insert the provision at 52.215-
3, Request for Information or Solicitation for Planning Purposes, and 
clearly mark on the face of the solicitation that it is for information 
or planning purposes.
    (d) The contracting officer shall insert the provision at 52.215-4, 
Type of

[[Page 26649]]

Business Organization, in all solicitations.
    (e) The contracting officer shall insert the provision at 52.215-5, 
Facsimile Proposals, in solicitations if facsimile proposals are 
authorized (see 15.203(d)).
    (f) The contracting officer shall insert the provision at 52.215-6, 
Place of Performance, in solicitations unless the place of performance 
is specified by the Government.
    (g) The contracting officer shall insert the provision at 52.215-7, 
Annual Representations and Certifications--Negotiation, in 
solicitations if annual representations and certifications are used 
(see 14.213).
    (h) The contracting officer shall insert the clause at 52.215-8, 
Order of Precedence--Uniform Contract Format, in solicitations and 
contracts using the format at 15.204.


15.210  Forms.

    Prescribed forms are not required to prepare solicitations 
described in this part. The following forms may be used at the 
discretion of the contracting officer:
    (a) Optional Form 308, Solicitation and Offer--Negotiated 
Acquisition, may be used to issue RFPs and RFIs.
    (b) Optional Form 309, Amendment of Solicitation, may be used to 
amend solicitations of negotiated contracts.
    (c) Standard Form 30, Amendment of Solicitation/Modification of 
Contract, may be used to amend solicitations of negotiated contracts. 
Standard Form 33, Solicitation, Offer, and Award, may be used to issue 
RFPs and RFIs.
    (d) To promote identification and proper handling of proposals, 
Optional Form 17, Offer Label, may be furnished with each request for 
proposals.

Subpart 15.3--Unsolicited Proposals


15.300  Scope of subpart.

    This subpart sets forth policies and procedures concerning the 
submission, receipt, evaluation, and acceptance or rejection of 
unsolicited proposals.


15.301  Definitions.

    Advertising material, as used in this subpart, means material 
designed to acquaint the Government with a prospective contractor's 
present products, services, or potential capabilities, or designed to 
stimulate the Government's interest in buying such products or 
services.
    Commercial item offer, as used in this subpart means an offer of a 
commercial item that the vendor wishes to see introduced in the 
Government's supply system as an alternate or a replacement for an 
existing supply item. This term does not include innovative or unique 
configurations or uses of commercial items that are being offered for 
further development and may be submitted as an unsolicited proposal.
    Contribution, as used in this subpart, means a concept, suggestion, 
or idea presented to the Government for its use with no indication that 
the source intends to devote any further effort to it on the 
Government's behalf.
    Unsolicited proposal, as used in this subpart, means a written 
proposal for a new or innovative idea that is submitted to an agency on 
the initiative of the offeror for the purpose of obtaining a contract 
with the Government, and that is not in response to a request for 
proposals, Broad Agency Announcement, Small Business Innovation 
Research topic, Small Business Technology Transfer Research topic, 
Program Research and Development Announcement, or any other Government-
initiated solicitation or program.


15.302  Policy.

    It is the policy of the Government to encourage the submission of 
new and innovative ideas in response to Broad Agency Announcements, 
Small Business Innovation Research topics, Small Business Technology 
Transfer Research topics, Program Research and Development 
Announcements, or any other Government-initiated solicitation or 
program. When the new and innovative ideas do not fall under topic 
areas publicized under those programs or techniques, the ideas may be 
submitted as unsolicited proposals.


15.303  General.

    (a) Unsolicited proposals allow unique and innovative ideas or 
approaches that have been developed outside the Government to be made 
available to Government agencies for use in accomplishment of their 
missions. Unsolicited proposals are offered with the intent that the 
Government will enter into a contract with the offeror for research and 
development or other efforts supporting the Government mission, and 
often represent a substantial investment of time and effort by the 
offeror.
    (b) Advertising material, commercial item offers, or contributions, 
as defined in 15.301, or routine correspondence on technical issues are 
not unsolicited proposals.
    (c) A valid unsolicited proposal must--
    (1) Be innovative and unique;
    (2) Be independently originated and developed by the offeror;
    (3) Be prepared without Government supervision;
    (4) Include sufficient detail to permit a determination that 
Government support could be worthwhile and the proposed work could 
benefit the agency's research and development or other mission 
responsibilities; and
    (5) Not be an advance proposal for a known agency requirement that 
can be acquired by competitive methods.
    (d) Unsolicited proposals in response to a publicized general 
statement of agency needs are considered to be independently 
originated.


15.304  Agency liaison.

    (a) Preliminary contact with agency technical or other appropriate 
personnel before preparing a detailed unsolicited proposal or 
submitting proprietary information to the Government may save 
considerable time and effort for both parties (see 15.201). Agencies 
shall make available to potential offerors of unsolicited proposals at 
least the following information:
    (1) Definition (see 15.301) and content (see 15.305) of an 
unsolicited proposal acceptable for formal evaluation.
    (2) Requirements concerning responsible prospective contractors 
(see subpart 9.1), and organizational conflicts of interest (see 
subpart 9.5).
    (3) Guidance on preferred methods for submitting ideas/concepts to 
the Government, such as any agency: upcoming solicitations; Broad 
Agency Announcements; Small Business Innovation Research programs; 
Small Business Technology Transfer Research programs; Program Research 
and Development Announcements; or grant programs.
    (4) Agency contact points for information regarding advertising, 
contributions, and other types of transactions frequently mistaken for 
unsolicited proposals.
    (5) Information sources on agency objectives and areas of potential 
interest.
    (6) Procedures for submission and evaluation of unsolicited 
proposals.
    (7) Instructions for identifying and marking proprietary 
information so that it is protected and restrictive legends conform to 
15.309.
    (b) Only the cognizant contracting officer has the authority to 
bind the Government regarding unsolicited proposals.


15.305  Content of unsolicited proposals.

    Unsolicited proposals should contain the following information to 
permit consideration in an objective and timely manner:
    (a) Basic information including--

[[Page 26650]]

    (1) Offeror's name and address and type of organization; e.g., 
profit, nonprofit, educational, small business;
    (2) Names and telephone numbers of technical and business personnel 
to be contacted for evaluation or negotiation purposes;
    (3) Identification of proprietary data to be used only for 
evaluation purposes;
    (4) Names of other Federal, State, or local agencies or parties 
receiving the proposal or funding the proposed effort;
    (5) Date of submission; and
    (6) Signature of a person authorized to represent and contractually 
obligate the offeror.
    (b) Technical information including--
    (1) Concise title and abstract (approximately 200 words) of the 
proposed effort;
    (2) A reasonably complete discussion stating the objectives of the 
effort or activity, the method of approach and extent of effort to be 
employed, the nature and extent of the anticipated results, and the 
manner in which the work will help to support accomplishment of the 
agency's mission;
    (3) Names and biographical information on the offeror's key 
personnel who would be involved, including alternates; and
    (4) Type of support needed from the agency; e.g., facilities, 
equipment, materials, or personnel resources.
    (c) Supporting information including--
    (1) Proposed price or total estimated cost for the effort in 
sufficient detail for meaningful evaluation;
    (2) Period of time for which the proposal is valid (a 6-month 
minimum is suggested);
    (3) Type of contract preferred;
    (4) Proposed duration of effort;
    (5) Brief description of the organization, previous experience, 
relevant past performance, and facilities to be used;
    (6) Other statements, if applicable, about organizational conflicts 
of interest, security clearances, and environmental impacts; and
    (7) The names of agency technical or other agency personnel already 
contacted regarding the proposal.


15.306  Agency procedures.

    (a) Agencies shall establish procedures for controlling the 
receipt, evaluation, and timely disposition of unsolicited proposals 
consistent with the requirements of this subpart. The procedures shall 
include controls on the reproduction and disposition of proposal 
material, particularly data identified by the offeror as subject to 
duplication, use, or disclosure restrictions.
    (b) Agencies shall establish contact points (see 15.304) to 
coordinate the receipt and handling of unsolicited proposals.


15.306-1  Receipt and initial review.

    (a) Before initiating a comprehensive evaluation, the agency 
contact point shall determine if the proposal--
    (1) Is a valid unsolicited proposal, meeting the requirements of 
15.303(c);
    (2) Should have been submitted in response to an existing agency 
requirement (see 15.302);
    (3) Is related to the agency mission;
    (4) Contains sufficient technical and cost information;
    (5) Has been approved by a responsible official or other 
representative authorized to obligate the offeror contractually; and
    (6) Complies with the marking requirements of 15.309.
    (b) If the proposal meets these requirements, the contact point 
shall promptly acknowledge receipt and process the proposal.
    (c) If a proposal is rejected because the proposal does not meet 
the requirements of paragraph (a) of this subsection, the agency 
contact point shall promptly inform the offeror of the reasons for 
rejection and of the proposed disposition of the unsolicited proposal.


15.306-2  Evaluation.

    (a) Comprehensive evaluations shall be coordinated by the agency 
contact point, who shall attach or imprint on each unsolicited 
proposal, circulated for evaluation, the legend required by 15.309(d). 
When performing a comprehensive evaluation of an unsolicited proposal, 
evaluators shall consider the following factors, in addition to any 
others appropriate for the particular proposal:
    (1) Unique, innovative and meritorious methods, approaches or 
concepts demonstrated by the proposal;
    (2) Overall scientific, technical, or socioeconomic merits of the 
proposal;
    (3) Potential contribution of the effort to the agency's specific 
mission;
    (4) The offeror's capabilities, related experience, facilities, 
techniques, or unique combinations of these that are integral factors 
for achieving the proposal objectives;
    (5) The qualifications, capabilities, and experience of the 
proposed principal investigator, team leader, or key personnel who is 
critical in achieving the proposal objectives; and
    (6) The realism of the proposed cost.
    (b) The evaluators shall notify the coordinating office of their 
recommendations when the evaluation is completed, and the cognizant 
contracting officer shall be included in the evaluation and disposition 
process.


15.307  Criteria for acceptance and negotiation of an unsolicited 
proposal.

    (a) A favorable comprehensive evaluation of an unsolicited proposal 
does not, in itself, justify awarding a contract without providing for 
full and open competition. Agency contact points shall return an 
unsolicited proposal to the offeror, citing reasons, when its 
substance--
    (1) Is available to the Government without restriction from another 
source;
    (2) Closely resembles a pending competitive acquisition 
requirement;
    (3) Does not relate to the activity's mission; or
    (4) Does not demonstrate an innovative and unique method, approach, 
or concept, or is otherwise not deemed a meritorious proposal.
    (b) The contracting officer may commence negotiations on a sole-
source basis only when--
    (1) An unsolicited proposal has received a favorable comprehensive 
evaluation;
    (2) A justification and approval has been obtained (see 6.302-
1(a)(2)(i) for research proposals or other appropriate provisions of 
subpart 6.3, and 6.303-2(b));
    (3) The agency technical office sponsoring the contract furnishes 
the necessary funds; and
    (4) The contracting officer has complied with the synopsis 
requirements of subpart 5.2.


15.308  Prohibitions.

    (a) Government personnel shall not use any data, concept, idea, or 
other part of an unsolicited proposal as the basis, or part of the 
basis, for a solicitation or in negotiations with any other firm unless 
the offeror is notified of and agrees to the intended use. However, 
this prohibition does not preclude using any data, concept, or idea in 
the proposal that also is available from another source without 
restriction.
    (b) Government personnel shall not disclose restrictively marked 
information (see 3.104 and 15.309) included in an unsolicited proposal. 
The disclosure of such information concerning trade secrets, processes, 
operations, style of work, apparatus, and other matters, except as 
authorized by law, may result in criminal penalties under 18 U.S.C. 
1905.


15.309  Limited use of data.

    (a) An unsolicited proposal may include data that the offeror does 
not want disclosed to the public for any

[[Page 26651]]

purpose or used by the Government except for evaluation purposes. If 
the offeror wishes to restrict the data, the title page must be marked 
with the following legend:

Use and Disclosure of Data

    This proposal includes data that shall not be disclosed outside 
the Government and shall not be duplicated, used, or disclosed--in 
whole or in part--for any purpose other than to evaluate this 
proposal. However, if a contract is awarded to this offeror as a 
result of--or in connection with--the submission of these data, the 
Government shall have the right to duplicate, use, or disclose the 
data to the extent provided in the resulting contract. This 
restriction does not limit the Government's right to use information 
contained in these data if they are obtained from another source 
without restriction. The data subject to this restriction are 
contained in Sheets [insert numbers or other identification of 
sheets].

    (b) The offeror shall also mark each sheet of data it wishes to 
restrict with the following legend: Use or disclosure of data contained 
on this sheet is subject to the restriction on the title page of this 
proposal.
    (c) The coordinating office shall return to the offeror any 
unsolicited proposal marked with a legend different from that provided 
in paragraph (a) of this section. The return letter will state that the 
proposal cannot be considered because it is impracticable for the 
Government to comply with the legend and that the agency will consider 
the proposal if it is resubmitted with the proper legend.
    (d) The coordinating office shall place a cover sheet on the 
proposal or clearly mark it as follows, unless the offeror clearly 
states in writing that no restrictions are imposed on the disclosure or 
use of the data contained in the proposal:

Unsolicited Proposal Use of Data Limited

    All Government personnel must exercise extreme care to ensure 
that the information in this proposal is not disclosed to an 
individual who has not been authorized access to such data in 
accordance with 3.104, and is not duplicated, used, or disclosed in 
whole or in part for any purpose other than evaluation of the 
proposal, without the written permission of the offeror. If a 
contract is awarded on the basis of this proposal, the terms of the 
contract shall control disclosure and use. This notice does not 
limit the Government's right to use information contained in the 
proposal if it is obtainable from another source without 
restriction. This is a Government notice, and shall not by itself be 
construed to impose any liability upon the Government or Government 
personnel for disclosure or use of data contained in this proposal.

    (e) The notice in paragraph (d) of this section is used solely as a 
manner of handling unsolicited proposals that will be compatible with 
this subpart. However, the use of this notice shall not be used to 
justify the withholding of a record nor to improperly deny the public 
access to a record where an obligation is imposed on an agency by the 
Freedom of Information Act, 5 U.S.C. 552, as amended. A prospective 
offeror should identify trade secrets, commercial or financial 
information, and privileged or confidential information to the 
Government (see paragraph (a) of this section).
    (f) When an agency receives an unsolicited proposal without any 
restrictive legend from an educational or nonprofit organization or 
institution, and an evaluation outside the Government is necessary, the 
coordinating office shall--
    (1) Attach a cover sheet clearly marked with the legend in 
paragraph (d) of this section;
    (2) Change the beginning of this legend to read ``All Government 
and non-Government personnel * * *.'';
    (3) Delete the words ``shall not be disclosed outside the 
Government and''; and
    (4) Require any non-Government evaluator to agree in writing that 
data in the proposal will not be disclosed to others outside the 
Government.
    (g) If the proposal is received with the restrictive legend 
(paragraph (a) of this section), the modified cover sheet shall also be 
used and permission shall be obtained from the offeror before release 
of the proposal for outside evaluation.
    (h) When an agency receives an unsolicited proposal with or without 
a restrictive legend from other than an educational or nonprofit 
organization or institution, and evaluation by Government personnel 
outside the agency or by experts outside of the Government is 
necessary, written permission must be obtained from the offeror before 
release of the proposal for evaluation. The coordinating office shall--
    (1) Clearly mark the cover sheet with the legend in paragraph (d) 
or as modified in paragraph (f) of this section;
    (2) Obtain a written agreement from any non-Government evaluator 
stating that data in the proposal will not be disclosed to persons 
outside the Government; and
    (3) Obtain the certifications required by 3.104-9 and a listing of 
all persons authorized access to proprietary information by the 
activity performing the evaluation.

Subpart 15.4--Source Selection


15.400  Scope of subpart.

    This subpart prescribes policies and procedures for selection of a 
source or sources in competitive negotiated acquisitions.


15.401  Definitions.

    Deficiency, as used in this subpart is a material failure of a 
proposal to meet a Government requirement or a combination of 
significant weaknesses in a proposal that increases the risk of 
unsuccessful contract performance to an unacceptable level.
    Weakness, as used in this subpart, is a flaw that increases the 
risk of unsuccessful contract performance. A ``significant weakness'' 
is a flaw that appreciably increases the risk of unsuccessful contract 
performance.


15.402  Source selection objective.

    The objective of source selection is to select the proposal that 
represents the best value.


15.403  Responsibilities.

    (a) Agency heads are responsible for source selection. The 
contracting officer is designated as the source selection authority, 
unless the agency head appoints another individual for a particular 
acquisition or group of acquisitions.
    (b) The source selection authority shall--
    (1) Establish an evaluation team, tailored for the particular 
acquisition, that includes an appropriate mix of contracting, legal, 
logistics, technical, and other expertise to assure a comprehensive 
evaluation of offers;
    (2) Approve the source selection strategy before solicitation 
release;
    (3) Ensure consistency among the solicitation requirements, notices 
to offerors, proposal preparation instructions, evaluation factors and 
subfactors, solicitation provisions or contract clauses, and data 
requirements;
    (4) Ensure that proposals are evaluated based solely on the factors 
and subfactors contained in the solicitation (10 U.S.C. 2305(b)(1) and 
41 U.S.C. 253b(d)(2));
    (5) Consider the recommendations of advisory boards or panels (if 
any); and
    (6) Select the source or sources whose proposal is the best value 
to the Government (10 U.S.C. 2305(b)(4)(B) and 41 U.S.C. 253b(d)(2));
    (c) The contracting officer shall--
    (1) After release of a solicitation, serve as the focal point for 
inquiries from actual or prospective offerors;
    (2) After receipt of proposals, control communications with 
offerors in accordance with 15.406; and

[[Page 26652]]

    (3) Award the contract(s).


15.404  Evaluation factors and subfactors.

    (a) The criteria upon which the award decision is based shall 
consist of evaluation factors and subfactors and shall be tailored to 
the acquisition.
    (b) Evaluation factors and subfactors must--
    (1) Represent the key areas of importance and emphasis to be 
considered in the source selection decision; and
    (2) Support meaningful comparison and discrimination between and 
among competing proposals.
    (c) If a multi-step solicitation technique will be used, the 
factors and subfactors (if any) that apply shall be set forth in the 
notice or solicitation.
    (d) The evaluation factors and significant subfactors that apply to 
an acquisition and their relative importance, are within the broad 
discretion of agency acquisition officials, subject to the following 
requirements:
    (1) Price or cost to the Government shall be evaluated in every 
source selection (10 U.S.C. 2305(a)(3)(A)(ii) and 41 U.S.C. 
253a(c)(1)(B));
    (2) The quality of the product or service shall be addressed in 
every source selection through consideration of one or more non-cost 
evaluation factors such as past performance, compliance with 
solicitation requirements, technical excellence, management capability, 
personnel qualifications, and prior experience (10 U.S.C. 
2305(a)(3)(A)(i) and 41 U.S.C. 253a(c)(1)(B)); and
    (3)(i) Except as set forth in paragraph (d)(3)(iii) of this 
section, past performance shall be evaluated in all source selections 
for negotiated competitive acquisitions expected to exceed $1,000,000.
    (ii) Except as set forth in paragraph (d)(3)(iii) of this section, 
past performance shall be evaluated in all source selections for 
negotiated competitive acquisitions issued on or after January 1, 1999, 
for acquisitions expected to exceed $100,000. Agencies should develop 
phase-in schedules for past performance that meet or exceed this 
schedule.
    (iii) Past performance need not be evaluated if the contracting 
officer documents the reason past performance is not an appropriate 
evaluation factor for the acquisition (OFPP Policy Letter 92-5).
    (e) All factors and significant subfactors that will affect 
contract award and their relative importance shall be stated clearly in 
the solicitation (10 U.S.C. 2305(a)(2) (A)(i) and 41 U.S.C. 
253a(b)(1)(A)) (see 15.204-5(c)). The rating method need not be 
disclosed in the solicitation. The general approach for evaluating past 
performance information shall be described.
    (f) The solicitation shall also state, at a minimum, whether all 
evaluation factors other than cost or price, when combined, are--
    (1) Significantly more important than cost or price;
    (2) Approximately equal to cost or price; or
    (3) Significantly less important than cost or price (10 U.S.C. 
2305(a)(3)(A)(iii) and 41 U.S.C. 253a(c)(1)(C)).


15.405  Proposal evaluation.

    (a) Proposal evaluation is an assessment of the proposal and the 
offeror's ability to perform the prospective contract successfully. An 
agency shall evaluate competitive proposals and then assess their 
relative qualities solely on the factors and subfactors specified in 
the solicitation. Evaluations may be conducted using any rating method 
or combination of methods, including color or adjectival ratings, 
numerical weights, and ordinal rankings. The relative strengths, 
weaknesses, and risks shall be documented in the contract file.
    (1) Cost or price evaluation. Normally, competition establishes 
price reasonableness. Therefore, when contracting on a firm-fixed-price 
or fixed-price with economic price adjustment basis, comparison of the 
proposed prices will usually satisfy the requirement to perform a price 
analysis (but see 15.504-1(d)(3)), and a cost analysis need not be 
performed. In limited situations, a cost analysis (see 15.503-
1(c)(1)(i)(B)) may be appropriate to establish reasonableness of the 
otherwise successful offeror's price. When contracting on a cost-
reimbursement basis, evaluations shall include a cost realism analysis 
to determine what the Government should realistically expect to pay for 
the proposed effort, the offeror's understanding of the work, and the 
offeror's ability to perform the contract. Cost realism analyses may 
also be used on fixed-price incentive contracts or, in exceptional 
cases, on other competitive fixed-price-type contracts (see 15.504-
1(d)(3)). The contracting officer shall document the cost or price 
evaluation.
    (2) Past performance evaluation. (i) Past performance information 
is one indicator of an offeror's ability to perform the contract 
successfully. The currency and relevance of the information, source of 
the information, context of the data, and general trends in 
contractor's performance shall be considered (41 U.S.C. 401). This 
comparative assessment of past performance information is separate from 
the responsibility determination required under subpart 9.1.
    (ii) The solicitation shall describe the approach for evaluating 
past performance, including evaluating offerors with no relevant 
performance history, and provide offerors an opportunity to identify 
past contracts (including Federal, State, and local government and 
private) for efforts similar to the Government requirement. The 
solicitation shall also authorize offerors to provide information on 
problems encountered on the identified contracts and the offeror's 
corrective actions. The Government shall consider this information, as 
well as information obtained from any other sources, when evaluating 
the offeror's past performance. The contracting officer shall determine 
the relevancy of similar past performance information.
    (iii) The evaluation may take into account past performance 
information regarding predecessor companies, key personnel who have 
relevant experience, or subcontractors that will perform major or 
critical aspects of the requirement. Such information may be relevant 
to the instant acquisition.
    (iv) Firms lacking any relevant past performance history shall 
receive a neutral evaluation for past performance. The evaluation 
approach shall reflect the circumstances of each acquisition. A neutral 
evaluation is one that neither rewards nor penalizes offerors without 
relevant performance history (41 U.S.C. 405). While a neutral 
evaluation will not affect an offeror's rating, it may affect the 
offeror's ranking if a significant number of the other offerors 
participating in the acquisition have past performance ratings either 
above or below satisfactory.
    (3) Technical evaluation. When tradeoffs are performed, the source 
selection records shall include--
    (i) An assessment of each offeror's ability to accomplish the 
technical requirements; and
    (ii) A summary, matrix, or quantitative ranking, along with 
appropriate supporting narrative, of each technical proposal against 
the evaluation criteria.
    (4) Cost information may be provided to members of the technical 
evaluation team.
    (b) The source selection authority may reject all proposals 
received in response to a solicitation, if doing so is in the best 
interest of the Government.

[[Page 26653]]

15.406  Communications with offerors.

    (a) Communications and award without discussions. (1) If award will 
be made without conducting discussions, communications with offerors 
may be used to resolve minor or clerical errors or to clarify certain 
aspects of proposals (e.g., the relevancy of an offeror's past 
performance information and adverse past performance information on 
which the offeror has not previously had an opportunity to comment).
    (2) Award may be made without discussions if the solicitation 
states that the Government intends to evaluate proposals and make award 
without discussions. If the solicitation contains such a notice and the 
Government determines it is necessary to conduct discussions, the 
rationale for doing so shall be documented in the contract file (see 
the provision at 52.215-1) (10 U.S.C. 2305(b)(4)(A)(ii) and 41 U.S.C. 
253b(d)(1)(B)).
    (b) Communications with offerors before establishment of the 
competitive range. If a competitive range is to be established, these 
communications--
    (1) May only be held with those offerors whose exclusion from, or 
inclusion in, the competitive range is uncertain;
    (2) May be conducted to enhance Government understanding of 
proposals; allow reasonable interpretation of the proposal; or 
facilitate the Government's evaluation process. Such communications 
shall not be used to cure proposal deficiencies or material omissions, 
materially alter the technical or cost elements of the proposal, and/or 
otherwise revise the proposal. Such communications may be considered in 
rating proposals;
    (3) Are for the purpose of addressing issues that must be explored 
to determine whether a proposal should be placed in the competitive 
range. Such communications shall not provide an opportunity for the 
offeror to revise its proposal, but may address--
    (i) Ambiguities in the proposal or other concerns (e.g., perceived 
deficiencies, weaknesses, errors, omissions, or mistakes (see 14.407)); 
and
    (ii) Information relating to relevant past performance; and
    (4) Shall address adverse past performance information on which the 
offeror has not previously had an opportunity to comment.
    (c) Competitive range. (1) Agencies shall evaluate all proposals in 
accordance with 15.405(a), and, if discussions are to be conducted, 
establish the competitive range. Based on the ratings of each proposal 
against all evaluation criteria, the contracting officer shall 
establish a competitive range comprised of those proposals most highly 
rated, unless the range is further reduced for purposes of efficiency 
pursuant to paragraph (c)(2) of this section.
    (2) After evaluating all proposals in accordance with 15.405(a) and 
15.406(c)(1), the contracting officer may determine that the number of 
most highly rated proposals that might otherwise be included in the 
competitive range exceeds the number at which an efficient competition 
can be conducted. Provided the solicitation notifies offerors that the 
competitive range can be limited for purposes of efficiency (see the 
provision at 52.215-1(f)), the contracting officer may limit the number 
of proposals in the competitive range to the greatest number that will 
permit an efficient competition among the most highly rated proposals 
(10 U.S.C. 2305(b)(4) and 41 U.S.C. 253b(d)).
    (3) If the contracting officer, after complying with paragraph 
(d)(3) of this section, decides that an offeror's proposal should no 
longer be included in the competitive range, the proposal shall be 
eliminated from consideration for award. Written notice of this 
decision shall be provided to unsuccessful offerors in accordance with 
15.603.
    (4) Offerors excluded or otherwise eliminated from the competitive 
range may request a debriefing (see 15.605 and 15.606).
    (d) Communications with offerors after establishment of the 
competitive range. (1) Such communications are discussions, tailored to 
each offeror's proposal, and shall be conducted by the contracting 
officer with each offeror within the competitive range.
    (2) The primary objective of discussions is to maximize the 
Government's ability to obtain best value, based on the requirement and 
the evaluation factors set forth in the solicitation.
    (3) The contracting officer shall, subject to paragraph (e) of this 
section and 15.407(a), indicate to, or discuss with, each offeror still 
being considered for award, significant weaknesses, deficiencies, and 
other aspects of its proposal (such as, cost, price, performance, and 
terms and conditions) that could, in the opinion of the contracting 
officer, be altered to enhance materially the proposal's potential for 
award. The scope and extent of discussion are a matter of contracting 
officer judgment. In discussing other aspects of the proposal, the 
Government may, in situations where the solicitation stated that 
evaluation credit would be given for technical solutions exceeding any 
mandatory minimums, negotiate with offerors for increased performance 
beyond any mandatory minimums, and the Government may suggest to 
offerors that have exceeded any mandatory minimums, that their 
proposals would be more competitive if the excesses were removed and 
the offered price decreased.
    (e) Limits on communications. Government personnel involved in the 
acquisition shall not engage in conduct that--
    (1) Favors one offeror over another;
    (2) Reveals an offeror's technical solution, including unique 
technology, innovative and unique uses of commercial items, or any 
information that would compromise an offeror's intellectual property to 
another offeror;
    (3) Reveals an offeror's price without that offeror's permission. 
However, the contracting officer may inform an offeror that its price 
is considered by the Government to be too high, or too low, and reveal 
the results of the analysis supporting that conclusion. It is also 
permissible, at the Government's discretion, to indicate to all 
offerors the cost or price that the Government's price analysis, market 
research, and other reviews have identified as reasonable (41 U.S.C. 
423(h)(1)(2));
    (4) Reveals the names of individuals providing reference 
information about an offeror's past performance; or
    (5) Knowingly furnishes source selection information in violation 
of 3.104 and 41 U.S.C. 423(h)(1)(2).


15.407  Proposal revisions.

    (a) If, after discussions have begun, an offeror in the competitive 
range is no longer considered to be among the most highly rated 
offerors being considered for award, that offeror may be eliminated 
from the competitive range whether or not all material aspects of the 
proposal have been discussed, or the offeror has been afforded an 
opportunity to submit a proposal revision (see 15.406(d)). If an 
offeror's proposal is eliminated or otherwise removed from the 
competitive range, no further revisions to that offeror's proposal 
shall be accepted or considered.
    (b) The contracting officer may request proposal revisions that 
clarify and document understandings reached during negotiations. At the 
conclusion of discussions, each offeror still in the competitive range 
shall be given an opportunity to submit a final proposal revision. The 
contracting officer is required to establish a common cut-off date only 
for receipt of final proposal revisions. Requests for final proposal

[[Page 26654]]

revisions shall advise offerors that the final proposal revisions shall 
be in writing and that the Government intends to make award without 
obtaining further revisions.


15.408  Source selection.

    The source selection authority's (SSA) decision shall be based on a 
comparative assessment of proposals against all source selection 
criteria in the solicitation. While the SSA may use reports and 
analyses prepared by others, the source selection decision shall 
represent the SSA's independent judgment. The source selection decision 
shall be documented, and the documentation shall include the rationale 
for any business judgments and tradeoffs, including benefits associated 
with additional costs. Although the rationale for the selection 
decision must be documented, that documentation need not provide 
quantification of the tradeoffs that led to the decision.

Subpart 15.5--Contract Pricing


15.500  Scope of subpart.

    This subpart prescribes the cost and price negotiation policies and 
procedures for pricing negotiated prime contracts (including 
subcontracts) and contract modifications, including modifications to 
contracts awarded by sealed bidding.


15.501  Definitions.

    Cost or pricing data (10 U.S.C. 2306a(h)(1) and 41 U.S.C. 254(d)) 
means all facts that, as of the date of price agreement or, if 
applicable, an earlier date agreed upon between the parties that is as 
close as practicable to the date of agreement on price, prudent buyers 
and sellers would reasonably expect to affect price negotiations 
significantly. Cost or pricing data are data requiring certification in 
accordance with 15.506-2. Cost or pricing data are factual, not 
judgmental; and are verifiable. While they do not indicate the accuracy 
of the prospective contractor's judgment about estimated future costs 
or projections, they do include the data forming the basis for that 
judgment. Cost or pricing data are more than historical accounting 
data; they are all the facts that can be reasonably expected to 
contribute to the soundness of estimates of future costs and to the 
validity of determinations of costs already incurred. They also include 
such factors as: vendor quotations; nonrecurring costs; information on 
changes in production methods and in production or purchasing volume; 
data supporting projections of business prospects and objectives and 
related operations costs; unit-cost trends such as those associated 
with labor efficiency; make-or-buy decisions; estimated resources to 
attain business goals; and information on management decisions that 
could have a significant bearing on costs. Cost or pricing data may 
include parametric estimates of elements of cost or price, from 
appropriate validated calibrated parametric models.
    Cost realism means an assessment of whether or not the costs in an 
offeror's proposal are realistic for the work to be performed; reflect 
a clear understanding of the requirements; and are consistent with the 
various elements of the offeror's technical proposal.
    Forward pricing rate agreement means a written agreement negotiated 
between a contractor and the Government to make certain rates available 
during a specified period for use in pricing contracts or 
modifications. Such rates represent reasonable projections of specific 
costs that are not easily estimated for, identified with, or generated 
by a specific contract, contract end item, or task. These projections 
may include rates for such things as labor, indirect costs, material 
obsolescence and usage, spare parts provisioning, and material 
handling.
    Forward pricing rate recommendation means a rate set unilaterally 
by the administrative contracting officer for use by the Government in 
negotiations or other contract actions when forward pricing rate 
agreement negotiations have not been completed or when the contractor 
will not agree to a forward pricing rate agreement.
    Information other than cost or pricing data means any type of 
information that is not required to be certified in accordance with 
15.506-2 and is necessary to determine price reasonableness or cost 
realism. For example, such information may include pricing, sales, or 
cost information, and includes cost or pricing data for which 
certification is determined inapplicable after submission.
    Price, as used in this subpart, means cost plus any fee or profit 
applicable to the contract type.
    Subcontract, as used in this subpart, also includes a transfer of 
commercial items between divisions, subsidiaries, or affiliates of a 
contractor or a subcontractor.


15.502  Pricing policy.

    Contracting officers shall--
    (a) Purchase supplies and services from responsible sources at fair 
and reasonable prices. In establishing the reasonableness of the 
offered prices, the contracting officer shall not obtain more 
information than is necessary. To the extent that cost or pricing data 
are not required by 15.503-4, the contracting officer shall generally 
use the following order of preference in determining the type of 
information required:
    (1) No additional information from the offeror, if the price is 
based on adequate price competition, except as provided by 15.503-3(b).
    (2) Information other than cost or pricing data:
    (i) Information related to prices (e.g., established catalog or 
market prices), relying first on information available within the 
Government; second, on information obtained from sources other than the 
offeror; and, if necessary, on information obtained from the offeror. 
When obtaining information from the offeror is necessary, unless an 
exception under 15.503-1(b) (1) or (2) applies, such information 
submitted by the offeror shall include, at a minimum, appropriate 
information on the prices at which the same or similar items have been 
sold previously, adequate for evaluating the reasonableness of the 
price.
    (ii) Cost information, that does not meet the definition of cost or 
pricing data at 15.501.
    (3) Cost or pricing data. The contracting officer should use every 
means available to ascertain whether a fair and reasonable price can be 
determined before requesting cost or pricing data. Contracting officers 
shall not require unnecessarily the submission of cost or pricing data, 
because it leads to increased proposal preparation costs, generally 
extends acquisition lead-time, and consumes additional contractor and 
Government resources.
    (b) Price each contract separately and independently and not--
    (1) Use proposed price reductions under other contracts as an 
evaluation factor; or
    (2) Consider losses or profits realized or anticipated under other 
contracts.
    (c) Not include in a contract price any amount for a specified 
contingency to the extent that the contract provides for a price 
adjustment based upon the occurrence of that contingency.


15.503  Obtaining cost or pricing data.


15.503-1  Prohibition on obtaining cost or pricing data (10 U.S.C. 
2306a and 41 U.S.C. 254b).

    (a) Cost or pricing data shall not be obtained for acquisitions at 
or below the simplified acquisition threshold.
    (b) Exceptions to cost or pricing data requirements. The 
contracting officer

[[Page 26655]]

shall not require submission of cost or pricing data to support any 
action (contracts, subcontracts, or modifications) (but may require 
information other than cost or pricing data to support a determination 
of price reasonableness or cost realism)--
    (1) When the contracting officer determines that prices agreed upon 
are based on adequate price competition (see standards at paragraph 
(c)(1) of this subsection);
    (2) When the contracting officer determines that prices agreed upon 
are based on prices set by law or regulation (see standards at 
paragraph (c)(2) of this subsection);
    (3) When a commercial item is being acquired (see standards at 
paragraph (c)(3) of this subsection);
    (4) When a waiver has been granted (see standards at paragraph 
(c)(4) of this subsection); or
    (5) When modifying a contract or subcontract for commercial items 
(see standards at paragraph (c)(3) of this subsection).
    (c) Standards for exceptions from cost or pricing data 
requirements--(1) Adequate price competition. A price is based on 
adequate price competition if--
    (i) Two or more responsible offerors, competing independently, 
submit priced offers in response to the Government's expressed 
requirement and if--
    (A) Award will be made to the offeror whose proposal represents the 
best value where price is a substantial factor in source selection; and
    (B) There is no finding that the price of the otherwise successful 
offeror is unreasonable. Any finding that the price is unreasonable 
must be supported by a statement of the facts and approved at a level 
above the contracting officer;
    (ii) There was a reasonable expectation, based on market research 
or other assessment, that two or more responsible offerors, competing 
independently, would submit priced offers in response to the 
solicitation's expressed requirement, even though only one offer is 
received from a responsible offeror and if--
    (A) Based on the offer received, the contracting officer can 
reasonably conclude that the offer was submitted with the expectation 
of competition, e.g., circumstances indicate that--
    (1) The offeror believed that at least one other offeror was 
capable of submitting a meaningful offer; and
    (2) The offeror had no reason to believe that other potential 
offerors did not intend to submit an offer; and
    (B) The determination that the proposed price is based on adequate 
price competition and is reasonable and is approved at a level above 
the contracting officer; or
    (iii) Price analysis clearly demonstrates that the proposed price 
is reasonable in comparison with current or recent prices for the same 
or similar items, adjusted to reflect changes in market conditions, 
economic conditions, quantities, or terms and conditions under 
contracts that resulted from adequate price competition.
    (2) Prices set by law or regulation. Pronouncements in the form of 
periodic rulings, reviews, or similar actions of a governmental body, 
or embodied in the laws are sufficient to set a price.
    (3) Commercial items. Any acquisition for an item that meets the 
commercial item definition in 2.101, or any modification, as defined in 
paragraph (c) (1) or (2) of that definition, that does not change the 
item from a commercial item to a noncommercial item, is exempt from the 
requirement for cost or pricing data.
    (4) Waivers. The head of the contracting activity (HCA) may, 
without power of delegation, waive the requirement for submission of 
cost or pricing data in exceptional cases. The authorization for the 
waiver and the supporting rationale shall be in writing. The HCA may 
consider waiving the requirement if the price can be determined to be 
fair and reasonable without submission of cost or pricing data. For 
example, if cost or pricing data were furnished on previous production 
buys and the contracting officer determines such data are sufficient, 
when combined with updated information, a waiver may be granted. If the 
HCA has waived the requirement for submission of cost or pricing data, 
the contractor or higher-tier subcontractor to whom the waiver relates 
shall be considered as having been required to provide cost or pricing 
data. Consequently, award of any lower-tier subcontract expected to 
exceed the cost or pricing data threshold requires the submission of 
cost or pricing data unless an exception otherwise applies to the 
subcontract or the waiver specifically includes that subcontract.


15.503-2  Other circumstances where cost or pricing data are not 
required.

    (a) The exercise of an option at the price established at contract 
award or initial negotiation does not require submission of cost or 
pricing data.
    (b) Cost or pricing data are not required for proposals used solely 
for overrun funding or interim billing price adjustments.


15.503-3  Requiring information other than cost or pricing data.

    (a) General. (1) The contracting officer is responsible for 
obtaining information that is adequate for evaluating the 
reasonableness of the price or determining cost realism. However, the 
contracting officer should not obtain more information than is 
necessary for determining the reasonableness of the price or evaluating 
cost realism. To the extent necessary to determine the reasonableness 
of the price the contracting officer shall require submission of 
information from the offeror. Unless an exception under 15.503-1(b) (1) 
or (2) applies, such information submitted by the offeror shall 
include, at a minimum, appropriate information on the prices at which 
the same item or similar items have previously been sold, adequate for 
determining the reasonableness of the price (10 U.S.C. 2306a(d)(1) and 
41 U.S.C. 254b(c)(2)).
    (2) The contractor's format for submitting such information should 
be used (see 15.503-5(b)(2)).
    (3) The contracting officer shall ensure that information used to 
support price negotiations is sufficiently current to permit 
negotiation of a fair and reasonable price. Requests for updated 
offeror information should be limited to information that affects the 
adequacy of the proposal for negotiations, such as changes in price 
lists. Such data shall not be certified in accordance with 15.506-2.
    (b) Adequate price competition. When adequate price competition 
exists (see 15.503-1(c)(1)), generally no additional information is 
necessary to determine the reasonableness of price. However, if there 
are unusual circumstances where it is concluded that additional 
information is necessary to determine the reasonableness of price, the 
contracting officer shall, to the maximum extent practicable, obtain 
the additional information from sources other than the offeror. In 
addition, the contracting officer may request information to determine 
the cost realism of competing offers or to evaluate competing 
approaches.
    (c) Limitations relating to commercial items (10 U.S.C. 2306a(d)(2) 
and 41 U.S.C. 254b(d)). (1) Requests for sales data relating to 
commercial items shall be limited to data for the same or similar items 
during a relevant time period.
    (2) The contracting officer shall, to the maximum extent 
practicable, limit the scope of the request for information relating to 
commercial items to include only information that is in the form 
regularly maintained by the offeror as part of its commercial 
operations.

[[Page 26656]]

    (3) Information obtained relating to commercial items that is 
exempt from disclosure under the Freedom of Information Act (5 U.S.C. 
552(b)) shall not be disclosed outside the Government.


15.503-4  Requiring cost or pricing data (10 U.S.C. 2306a and 41 U.S.C. 
254b).

    (a)(1) Cost or pricing data shall be obtained only if the 
contracting officer concludes that none of the exceptions in 15.503-
1(b) applies. However, if the contracting officer has sufficient 
information available to determine price reasonableness, then a waiver 
under the exception at 15.503-1(b)(4) should be considered. The 
threshold for obtaining cost or pricing data is $500,000. Unless an 
exception applies, cost or pricing data are required before 
accomplishing any of the following actions expected to exceed the 
current threshold or, in the case of existing contracts, the threshold 
specified in the contract:
    (i) The award of any negotiated contract (except for undefinitized 
actions such as letter contracts).
    (ii) The award of a subcontract at any tier, if the contractor and 
each higher-tier subcontractor have been required to furnish cost or 
pricing data (but see waivers at 15.503-1(b)(4)).
    (iii) The modification of any sealed bid or negotiated contract 
(whether or not cost or pricing data were initially required) or any 
subcontract covered by paragraph (a)(1)(ii) of this subsection. Price 
adjustment amounts shall consider both increases and decreases (e.g., a 
$150,000 modification resulting from a reduction of $350,000 and an 
increase of $200,000 is a pricing adjustment exceeding $500,000). This 
requirement does not apply when unrelated and separately priced changes 
for which cost or pricing data would not otherwise be required are 
included for administrative convenience in the same modification. 
Negotiated final pricing actions (such as termination settlements and 
total final price agreements for fixed-price incentive and 
redeterminable contracts) are contract modifications requiring cost or 
pricing data if the total final price agreement for such settlements or 
agreements exceeds the pertinent threshold set forth at paragraph 
(a)(1) of this subsection, or the partial termination settlement plus 
the estimate to complete the continued portion of the contract exceeds 
the pertinent threshold set forth at paragraph (a)(1) of this 
subsection (see 49.105(c)(15)).
    (2) Unless prohibited because an exception at 15.503-1(b) applies, 
the head of the contracting activity, without power of delegation, may 
authorize the contracting officer to obtain cost or pricing data for 
pricing actions below the pertinent threshold in paragraph (a)(1) of 
this subsection, provided the action exceeds the simplified acquisition 
threshold. The head of the contracting activity shall justify the 
requirement for cost or pricing data. The documentation shall include a 
written finding that cost or pricing data are necessary to determine 
whether the price is fair and reasonable and the facts supporting that 
finding.
    (b) When cost or pricing data are required, the contracting officer 
shall require the contractor or prospective contractor to submit to the 
contracting officer (and to have any subcontractor or prospective 
subcontractor submit to the prime contractor or appropriate 
subcontractor tier) the following in support of any proposal:
    (1) The cost or pricing data.
    (2) A certificate of current cost or pricing data, in the format 
specified in 15.506-2, certifying that to the best of its knowledge and 
belief, the cost or pricing data were accurate, complete, and current 
as of the date of agreement on price or, if applicable, an earlier date 
agreed upon between the parties that is as close as practicable to the 
date of agreement on price.
    (c) If cost or pricing data are requested and submitted by an 
offeror, but an exception is later found to apply, the data shall not 
be considered cost or pricing data as defined in 15.501 and shall not 
be certified in accordance with 15.506-2.
    (d) The requirements of this section also apply to contracts 
entered into by an agency on behalf of a foreign government.


15.503-5  Instructions for submission of cost or pricing data or 
information other than cost or pricing data.

    (a) Taking into consideration the policy at 15.502, the contracting 
officer shall specify in the solicitation (see 15.508 (l) and (m))--
    (1) Whether cost or pricing data are required;
    (2) That, in lieu of submitting cost or pricing data, the offeror 
may submit a request for exception from the requirement to submit cost 
or pricing data;
    (3) Any information other than cost or pricing data that is 
required; and
    (4) Necessary preaward or postaward access to offeror's records.
    (b)(1) Unless required to be submitted on one of the termination 
forms specified in subpart 49.6, the contracting officer may require 
submission of cost or pricing data in the format indicated at Table 15-
2 of 15.508, specify an alternative format, or permit submission in the 
contractor's format.
    (2) Information other than cost or pricing data may be submitted in 
the offeror's own format unless the contracting officer decides that 
use of a specific format is essential and the format has been described 
in the solicitation.


15.504  Proposal analysis.


15.504-1  Proposal analysis techniques.

    (a) General. The objective of proposal analysis is to ensure that 
the final agreed-to price is fair and reasonable.
    (1) The contracting officer is responsible for evaluating the 
reasonableness of the offered prices. The analytical techniques and 
procedures described in this section may be used, singly or in 
combination with others, to ensure that the final price is fair and 
reasonable. The complexity and circumstances of each acquisition should 
determine the level of detail of the analysis required.
    (2) Price analysis shall be used when cost or pricing data are not 
required (see paragraph (b) of this subsection and 15.504-3).
    (3) Cost analysis shall be used to evaluate the reasonableness of 
individual cost elements when cost or pricing data are required. When 
appropriate, price analysis shall be used to verify that the overall 
price offered is fair and reasonable.
    (4) Cost analysis may also be used to evaluate information other 
than cost or pricing data to determine cost reasonableness or cost 
realism.
    (5) The contracting officer may request the advice and assistance 
of other experts to assure an appropriate analysis is performed.
    (6) Recommendations or conclusions regarding the Government's 
review or analysis of an offeror's or contractor's proposal shall not 
be disclosed to the offeror or contractor without the concurrence of 
the contracting officer. Any discrepancy or mistake of fact (such as 
duplications, omissions, and errors in computation) contained in the 
cost or pricing data or information other than cost or pricing data 
submitted in support of a proposal shall be brought to the contracting 
officer's attention for appropriate action.
    (7) The Air Force Institute of Technology (AFIT) and the Federal 
Acquisition Institute (FAI) jointly prepared a series of five desk 
references to guide pricing and negotiation personnel. The five desk 
references are: Price Analysis, Cost Analysis, Quantitative Techniques 
for Contract Pricing, Advanced Issues in Contract

[[Page 26657]]

Pricing, and Federal Contract Negotiation Techniques. The references 
provide detailed discussion and examples applying pricing policies to 
pricing problems. They are to be used for instruction and professional 
guidance. However, they are not directive and should be considered 
informational only. Copies of the desk references are available on CD-
ROM which also contains the FAR, the FTR and various other regulations 
and training materials. The CD-ROM may be purchased by annual 
subscription (updated quarterly), or individually (reference ``List ID 
GSAFF,'' Stock No. 722-009-0000-2). The individual CD-ROMs or 
subscription to the CD-ROM may be purchased from the Superintendent of 
Documents, U.S. Government Printing Office, by telephone (202) 512-1800 
or facsimile (202) 512-2550, or by mail order from the Superintendent 
of Documents, P.O. Box 371954, Pittsburgh, PA 15250-7954. Free copies 
of the desk references are available on the World Wide Web, Internet 
address: http://www.gsa.gov/staff/v/guides/instructions.htm.
    (b) Price analysis. (1) Price analysis is the process of examining 
and evaluating a proposed price without evaluating its separate cost 
elements and proposed profit.
    (2) The Government may use various price analysis techniques and 
procedures to ensure a fair and reasonable price, given the 
circumstances surrounding the acquisition. Examples of such techniques 
include, but are not limited to the following:
    (i) Comparison of proposed prices received in response to the 
solicitation.
    (ii) Comparison of previously proposed prices and contract prices 
with current proposed prices for the same or similar end items, if both 
the validity of the comparison and the reasonableness of the previous 
price(s) can be established.
    (iii) Application of rough yardsticks (such as dollars per pound or 
per horsepower, or other units) to highlight significant 
inconsistencies that warrant additional pricing inquiry.
    (iv) Comparison with competitive published price lists, published 
market prices of commodities, similar indexes, and discount or rebate 
arrangements.
    (v) Comparison of proposed prices with independent Government cost 
estimates.
    (vi) Comparison of proposed prices with prices obtained through 
market research for the same or similar items.
    (c) Cost analysis. (1) Cost analysis is the review and evaluation 
of the separate cost elements and profit in an offeror's or 
contractor's proposal (including cost or pricing data or information 
other than cost or pricing data), and the application of judgment to 
determine how well the proposed costs represent what the cost of the 
contract should be, assuming reasonable economy and efficiency.
    (2) The Government may use various cost analysis techniques and 
procedures to ensure a fair and reasonable price, given the 
circumstances of the acquisition. Such techniques and procedures 
include the following:
    (i) Verification of cost or pricing data and evaluation of cost 
elements, including--
    (A) The necessity for, and reasonableness of, proposed costs, 
including allowances for contingencies;
    (B) Projection of the offeror's cost trends, on the basis of 
current and historical cost or pricing data;
    (C) Reasonableness of estimates generated by appropriately 
validated/calibrated parametric models or cost-estimating 
relationships; and
    (D) The application of audited or negotiated indirect cost rates, 
labor rates, and cost of money or other factors.
    (ii) Evaluating the effect of the offeror's current practices on 
future costs. In conducting this evaluation, the contracting officer 
shall ensure that the effects of inefficient or uneconomical past 
practices are not projected into the future. In pricing production of 
recently developed complex equipment, the contracting officer should 
perform a trend analysis of basic labor and materials, even in periods 
of relative price stability.
    (iii) Comparison of costs proposed by the offeror for individual 
cost elements with--
    (A) Actual costs previously incurred by the same offeror;
    (B) Previous cost estimates from the offeror or from other offerors 
for the same or similar items;
    (C) Other cost estimates received in response to the Government's 
request;
    (D) Independent Government cost estimates by technical personnel; 
and
    (E) Forecasts of planned expenditures.
    (iv) Verification that the offeror's cost submissions are in 
accordance with the contract cost principles and procedures in part 31 
and, when applicable, the requirements and procedures in 48 CFR Chapter 
99 (Appendix of the FAR looseleaf edition), Cost Accounting Standards.
    (v) Review to determine whether any cost or pricing data necessary 
to make the contractor's proposal accurate, complete, and current have 
not been either submitted or identified in writing by the contractor. 
If there are such data, the contracting officer shall attempt to obtain 
them and negotiate, using them or making satisfactory allowance for the 
incomplete data.
    (vi) Analysis of the results of any make-or-buy program reviews, in 
evaluating subcontract costs (see 15.507-2).
    (d) Cost realism analysis. (1) Cost realism analysis is the process 
of independently reviewing and evaluating specific elements of each 
offeror's proposed cost estimate to determine whether the estimated 
proposed cost elements are realistic for the work to be performed; 
reflect a clear understanding of the requirements; and are consistent 
with the unique methods of performance and materials described in the 
offeror's technical proposal.
    (2) Cost realism analyses shall be performed on competitive cost-
reimbursement contracts to determine the probable cost of performance 
for each offeror.
    (i) The probable cost may differ from the proposed cost and should 
reflect the Government's best estimate of the cost of any contract that 
is most likely to result from the offeror's proposal. The probable cost 
shall be used for purposes of evaluation to determine the best value.
    (ii) The probable cost is determined by adjusting each offeror's 
proposed cost, and fee when appropriate, to reflect any additions or 
reductions in cost elements to realistic levels based on the results of 
the cost realism analysis.
    (3) Cost realism analyses may also be used on competitive fixed-
price incentive contracts or, in exceptional cases, on other 
competitive fixed-price-type contracts when new requirements may not be 
fully understood by competing offerors, there are quality concerns, or 
past experience indicates that contractors' proposed costs have 
resulted in quality or service shortfalls. Results of the analysis may 
be used in performance risk assessments and responsibility 
determinations. However, proposals shall be evaluated using the 
criteria in the solicitation, and the offered prices shall not be 
adjusted as a result of the analysis.
    (e) Technical analysis. (1) The contracting officer may request 
that personnel having specialized knowledge, skills, experience, or 
capability in engineering, science, or management perform a technical 
analysis of the proposed types and quantities of materials, labor, 
processes, special tooling, facilities, the reasonableness of scrap and 
spoilage, and other associated factors set forth in the proposal(s) in 
order to determine the need for and reasonableness of the

[[Page 26658]]

proposed resources, assuming reasonable economy and efficiency.
    (2) At a minimum, the technical analysis should examine the types 
and quantities of material proposed and the need for the types and 
quantities of labor hours and the labor mix. Any other data that may be 
pertinent to an assessment of the offeror's ability to accomplish the 
technical requirements or to the cost or price analysis of the service 
or product being proposed should also be included in the analysis.
    (f) Unit prices. (1) Unit prices shall reflect the intrinsic value 
of an item or service and shall be in proportion to an item's base cost 
(e.g., manufacturing or acquisition costs). Any method of distributing 
costs to line items that distorts the unit prices shall not be used. 
For example, distributing costs equally among line items is not 
acceptable except when there is little or no variation in base cost.
    (2) Except for the acquisition of commercial items, contracting 
officers shall require that offerors identify in their proposals those 
items of supply that they will not manufacture or to which they will 
not contribute significant value, unless adequate price competition is 
expected (10 U.S.C. 2304 and 41 U.S.C. 254(d)(5)(A)(i)). Such 
information shall be used to determine whether the intrinsic value of 
an item has been distorted through application of overhead and whether 
such items should be considered for breakout. The contracting officer 
may require such information in all other negotiated contracts when 
appropriate.
    (g) Unbalanced pricing. (1) Unbalanced pricing may increase 
performance risk and could result in payment of unreasonably high 
prices. Unbalanced pricing exists when, despite an acceptable total 
evaluated price, the price of one or more contract line items is 
significantly over or understated as indicated by the application of 
cost or price analysis techniques. The greatest risks associated with 
unbalanced pricing occur when--
    (i) Startup work, mobilization, first articles, or first article 
testing are separate line items;
    (ii) Base quantities and option quantities are separate line items; 
or
    (iii) The evaluated price is the aggregate of estimated quantities 
to be ordered under separate line items of an indefinite-delivery 
contract.
    (2) All offers with separately priced line items or subline items 
shall be analyzed to determine if the prices are unbalanced. If cost or 
price analysis techniques indicate that an offer is unbalanced, the 
contracting officer shall--
    (i) Consider the risks to the Government associated with the 
unbalanced pricing in determining the competitive range and in making 
the source selection decision; and
    (ii) Consider whether award of the contract will result in paying 
unreasonably high prices for contract performance.
    (3) An offer may be rejected if the contracting officer determines 
the lack of balance poses an unacceptable risk to the Government.


15.504-2  Information to support proposal analysis.

    (a) Field pricing assistance. (1) The contracting officer should 
request field pricing assistance when the information available at the 
buying activity is inadequate to determine a fair and reasonable price. 
Such requests shall be tailored to reflect the minimum essential 
supplementary information needed to conduct a technical or cost or 
pricing analysis.
    (2) Field pricing assistance generally is directed at obtaining 
technical, audit, and special reports associated with the cost elements 
of a proposal, including subcontracts. Field pricing assistance may 
also include information relative to the business, technical, 
production or other capabilities and practices of an offeror. The type 
of information and level of detail requested will vary in accordance 
with the specialized resources available at the buying activity and the 
magnitude and complexity of the required analysis.
    (3) When field pricing assistance is requested, contracting 
officers are encouraged to team with appropriate field experts 
throughout the acquisition process, including negotiations. Early 
communication with these experts will assist in determining the extent 
of assistance required, the specific areas for which assistance is 
needed, a realistic review schedule, and the information necessary to 
perform the review.
    (4) When requesting field pricing assistance on a contractor's 
request for equitable adjustment, the contracting officer shall provide 
the information listed in 43.204(b)(5).
    (5) Field pricing information and other reports may include 
proprietary or source selection information (see 3.104-4 (j) and (k)). 
Such information shall be appropriately identified and protected 
accordingly.
    (b) Reporting field pricing information. (1) Depending upon the 
extent and complexity of the field pricing review, results, including 
supporting rationale, may be reported directly to the contracting 
officer orally, in writing, or by any other method acceptable to the 
contracting officer.
    (i) Whenever circumstances permit, the contracting officer and 
field pricing experts are encouraged to use telephonic and/or 
electronic means to request and transmit pricing information.
    (ii) When it is necessary to have written technical and audit 
reports, the contracting officer shall request that the audit agency 
concurrently forward the audit report to the requesting contracting 
officer and the administrative contracting officer (ACO). The completed 
field pricing assistance results may reference audit information, but 
need not reconcile the audit recommendations and technical 
recommendations. A copy of the information submitted to the contracting 
officer by field pricing personnel shall be provided to the audit 
agency.
    (2) Audit and field pricing information, whether written or 
reported telephonically or electronically, shall be made a part of the 
official contract file (see 4.807(f)).
    (c) Audit assistance for prime or subcontracts. (1) The contracting 
officer may contact the cognizant audit office directly, particularly 
when an audit is the only field pricing support required. The audit 
office shall send the audit report, or otherwise transmit the audit 
recommendations, directly to the contracting officer.
    (i) The auditor shall not reveal the audit conclusions or 
recommendations to the offeror/contractor without obtaining the 
concurrence of the contracting officer. However, the auditor may 
discuss statements of facts with the contractor.
    (ii) The contracting officer should be notified immediately of any 
information disclosed to the auditor after submission of a report that 
may significantly affect the audit findings and, if necessary, a 
supplemental audit report shall be issued.
    (2) The contracting officer shall not request a separate preaward 
audit of indirect costs unless the information already available from 
an existing audit, completed within the preceding 12 months, is 
considered inadequate for determining the reasonableness of the 
proposed indirect costs (41 U.S.C. 254d and 10 U.S.C. 2313).
    (3) The auditor is responsible for the scope and depth of the 
audit. Copies of updated information that will significantly affect the 
audit should be provided to the auditor by the contracting officer.
    (4) General access to the offeror's books and financial records is 
limited to the auditor. This limitation does not

[[Page 26659]]

preclude the contracting officer or the ACO, or their representatives 
from requesting that the offeror provide or make available any data or 
records necessary to analyze the offeror's proposal.
    (d) Deficient proposals. The ACO or the auditor, as appropriate, 
shall notify the contracting officer immediately if the data provided 
for review is so deficient as to preclude review or audit, or if the 
contractor or offeror has denied access to any cost or pricing data 
considered essential to conduct a satisfactory review or audit. Oral 
notifications shall be confirmed promptly in writing, including a 
description of deficient or denied data or records. The contracting 
officer immediately shall take appropriate action to obtain the 
required data. Should the offeror/contractor again refuse to provide 
adequate data, or provide access to necessary data, the contracting 
officer shall withhold the award or price adjustment and refer the 
contract action to a higher authority, providing details of the 
attempts made to resolve the matter and a statement of the 
practicability of obtaining the supplies or services from another 
source.


15.504-3  Subcontract pricing considerations.

    (a) The contracting officer is responsible for the determination of 
price reasonableness for the prime contract, including subcontracting 
costs. The contracting officer should consider whether a contractor or 
subcontractor has an approved purchasing system, has performed cost or 
price analysis of proposed subcontractor prices, or has negotiated the 
subcontract prices before negotiation of the prime contract, in 
determining the reasonableness of the prime contract price. This does 
not relieve the contracting officer from the responsibility to analyze 
the contractor's submission, including subcontractor's cost or pricing 
data.
    (b) The prime contractor or subcontractor shall--
    (1) Conduct appropriate cost or price analyses to establish the 
reasonableness of proposed subcontract prices;
    (2) Include the results of these analyses in the price proposal; 
and
    (3) When required by paragraph (c) of this subsection, submit 
subcontractor cost or pricing data to the Government as part of its 
price proposal.
    (c) Any contractor or subcontractor that is required to submit cost 
or pricing data also shall obtain and analyze cost or pricing data 
before awarding any subcontract, purchase order, or modification 
expected to exceed the cost or pricing data threshold, unless an 
exemption in 15.503-1(b) applies to that action.
    (1) The contractor shall submit, or cause to be submitted by the 
subcontractor(s), cost or pricing data to the Government for 
subcontracts that are the lower of either--
    (i) $10,000,000 or more; or
    (ii) Both more than the pertinent cost or pricing data threshold 
and more than 10 percent of the prime contractor's proposed price, 
unless the contracting officer believes such submission is unnecessary.
    (2) The contracting officer may require the contractor or 
subcontractor to submit to the Government (or cause submission of) 
subcontractor cost or pricing data below the thresholds in paragraph 
(c)(1) of this subsection that the contracting officer considers 
necessary for adequately pricing the prime contract.
    (3) Subcontractor cost or pricing data shall be submitted in the 
format provided in Table 15-2 of 15.508.
    (4) Subcontractor cost or pricing data shall be current, accurate, 
and complete as of the date of price agreement, or, if applicable, an 
earlier date agreed upon by the parties and specified on the 
contractor's Certificate of Current Cost or Pricing Data. The 
contractor shall update subcontractor's data, as appropriate, during 
source selection and negotiations.
    (5) If there is more than one prospective subcontractor for any 
given work, the contractor need only submit cost or pricing data for 
the prospective subcontractor most likely to receive award to the 
Government.


15.504-4  Profit.

    (a) General. This section prescribes policies for establishing the 
profit or fee portion of the Government prenegotiation objective in 
price negotiations based on cost analysis.
    (1) Profit or fee prenegotiation objectives do not necessarily 
represent net income to contractors. Rather, they represent that 
element of the potential total remuneration that contractors may 
receive for contract performance over and above allowable costs. This 
potential remuneration element and the Government's estimate of 
allowable costs to be incurred in contract performance together equal 
the Government's total prenegotiation objective. Just as actual costs 
may vary from estimated costs, the contractor's actual realized profit 
or fee may vary from negotiated profit or fee, because of such factors 
as efficiency of performance, incurrence of costs the Government does 
not recognize as allowable, and the contract type.
    (2) It is in the Government's interest to offer contractors 
opportunities for financial rewards sufficient to stimulate efficient 
contract performance, attract the best capabilities of qualified large 
and small business concerns to Government contracts, and maintain a 
viable industrial base.
    (3) Both the Government and contractors should be concerned with 
profit as a motivator of efficient and effective contract performance. 
Negotiations aimed merely at reducing prices by reducing profit, 
without proper recognition of the function of profit, are not in the 
Government's interest. Negotiation of extremely low profits, use of 
historical averages, or automatic application of predetermined 
percentages to total estimated costs do not provide proper motivation 
for optimum contract performance.
    (b) Policy. (1) Structured approaches (see paragraph (d) of this 
subsection) for determining profit or fee prenegotiation objectives 
provide a discipline for ensuring that all relevant factors are 
considered. Subject to the authorities in 1.301(c), agencies making 
noncompetitive contract awards over $100,000 totaling $50 million or 
more a year--
    (i) Shall use a structured approach for determining the profit or 
fee objective in those acquisitions that require cost analysis; and
    (ii) May prescribe specific exemptions for situations in which 
mandatory use of a structured approach would be clearly inappropriate.
    (2) Agencies may use another agency's structured approach.
    (c) Contracting officer responsibilities. (1) When the price 
negotiation is not based on cost analysis, contracting officers are not 
required to analyze profit.
    (2) When the price negotiation is based on cost analysis, 
contracting officers in agencies that have a structured approach shall 
use it to analyze profit. When not using a structured approach, 
contracting officers shall comply with paragraph (d)(1) of this 
subsection in developing profit or fee prenegotiation objectives.
    (3) Contracting officers shall use the Government prenegotiation 
cost objective amounts as the basis for calculating the profit or fee 
prenegotiation objective. Before the allowability of facilities capital 
cost of money, this cost was included in profits or fees. Therefore, 
before applying profit or fee factors, the contracting officer shall 
exclude any facilities capital cost of money included in the cost 
objective

[[Page 26660]]

amounts. If the prospective contractor fails to identify or propose 
facilities capital cost of money in a proposal for a contract that will 
be subject to the cost principles for contracts with commercial 
organizations (see subpart 31.2), facilities capital cost of money will 
not be an allowable cost in any resulting contract (see 15.508(i)).
    (4)(i) The contracting officer shall not negotiate a price or fee 
that exceeds the following statutory limitations, imposed by 10 U.S.C. 
2306(e) and 41 U.S.C. 254(b):
    (A) For experimental, developmental, or research work performed 
under a cost-plus-fixed-fee contract, the fee shall not exceed 15 
percent of the contract's estimated cost, excluding fee.
    (B) For architect-engineering services for public works or 
utilities, the contract price or the estimated cost and fee for 
production and delivery of designs, plans, drawings, and specifications 
shall not exceed 6 percent of the estimated cost of construction of the 
public work or utility, excluding fees.
    (C) For other cost-plus-fixed-fee contracts, the fee shall not 
exceed 10 percent of the contract's estimated cost, excluding fee.
    (ii) The contracting officer's signature on the price negotiation 
memorandum or other documentation supporting determination of fair and 
reasonable price documents the contracting officer's determination that 
the statutory price or fee limitations have not been exceeded.
    (5) The contracting officer shall not require any prospective 
contractor to submit breakouts or supporting rationale for its profit 
or fee objective.
    (6) If a change or modification calls for essentially the same type 
and mix of work as the basic contract and is of relatively small dollar 
value compared to the total contract value, the contracting officer may 
use the basic contract's profit or fee rate as the prenegotiation 
objective for that change or modification.
    (d) Profit-analysis factors--(1) Common factors. Unless it is 
clearly inappropriate or not applicable, each factor outlined in 
paragraphs (d)(1) (i) through (vi) of this subsection shall be 
considered by agencies in developing their structured approaches and by 
contracting officers in analyzing profit, whether or not using a 
structured approach.
    (i) Contractor effort. This factor measures the complexity of the 
work and the resources required of the prospective contractor for 
contract performance. Greater profit opportunity should be provided 
under contracts requiring a high degree of professional and managerial 
skill and to prospective contractors whose skills, facilities, and 
technical assets can be expected to lead to efficient and economical 
contract performance. The subfactors in paragraphs (d)(1)(i) (A) 
through (D) of this subsection shall be considered in determining 
contractor effort, but they may be modified in specific situations to 
accommodate differences in the categories used by prospective 
contractors for listing costs--
    (A) Material acquisition. This subfactor measures the managerial 
and technical effort needed to obtain the required purchased parts and 
material, subcontracted items, and special tooling. Considerations 
include the complexity of the items required, the number of purchase 
orders and subcontracts to be awarded and administered, whether 
established sources are available or new or second sources must be 
developed, and whether material will be obtained through routine 
purchase orders or through complex subcontracts requiring detailed 
specifications. Profit consideration should correspond to the 
managerial and technical effort involved.
    (B) Conversion direct labor. This subfactor measures the 
contribution of direct engineering, manufacturing, and other labor to 
converting the raw materials, data, and subcontracted items into the 
contract items. Considerations include the diversity of engineering, 
scientific, and manufacturing labor skills required and the amount and 
quality of supervision and coordination needed to perform the contract 
task.
    (C) Conversion-related indirect costs. This subfactor measures how 
much the indirect costs contribute to contract performance. The labor 
elements in the allocable indirect costs should be given the profit 
consideration they would receive if treated as direct labor. The other 
elements of indirect costs should be evaluated to determine whether 
they merit only limited profit consideration because of their routine 
nature, or are elements that contribute significantly to the proposed 
contract.
    (D) General management. This subfactor measures the prospective 
contractor's other indirect costs and general and administrative (G&A) 
expense, their composition, and how much they contribute to contract 
performance. Considerations include how labor in the overhead pools 
would be treated if it were direct labor, whether elements within the 
pools are routine expenses or instead are elements that contribute 
significantly to the proposed contract, and whether the elements 
require routine as opposed to unusual managerial effort and attention.
    (ii) Contract cost risk. (A) This factor measures the degree of 
cost responsibility and associated risk that the prospective contractor 
will assume as a result of the contract type contemplated and 
considering the reliability of the cost estimate in relation to the 
complexity and duration of the contract task. Determination of contract 
type should be closely related to the risks involved in timely, cost-
effective, and efficient performance. This factor should compensate 
contractors proportionately for assuming greater cost risks.
    (B) The contractor assumes the greatest cost risk in a closely 
priced firm-fixed-price contract under which it agrees to perform a 
complex undertaking on time and at a predetermined price. Some firm-
fixed-price contracts may entail substantially less cost risk than 
others because, for example, the contract task is less complex or many 
of the contractor's costs are known at the time of price agreement, in 
which case the risk factor should be reduced accordingly. The 
contractor assumes the least cost risk in a cost-plus-fixed-fee level-
of-effort contract, under which it is reimbursed those costs determined 
to be allocable and allowable, plus the fixed fee.
    (C) In evaluating assumption of cost risk, contracting officers 
shall, except in unusual circumstances, treat time-and-materials, 
labor-hour, and firm-fixed-price, level-of-effort term contracts as 
cost-plus-fixed-fee contracts.
    (iii) Federal socioeconomic programs. This factor measures the 
degree of support given by the prospective contractor to Federal 
socioeconomic programs, such as those involving small business 
concerns, small business concerns owned and controlled by socially and 
economically disadvantaged individuals, women-owned small businesses, 
handicapped sheltered workshops, and energy conservation. Greater 
profit opportunity should be provided contractors that have displayed 
unusual initiative in these programs.
    (iv) Capital investments. This factor takes into account the 
contribution of contractor investments to efficient and economical 
contract performance.
    (v) Cost-control and other past accomplishments. This factor allows 
additional profit opportunities to a prospective contractor that has 
previously demonstrated its ability to perform similar tasks 
effectively and economically. In addition, consideration should be 
given to measures taken by the prospective contractor that result in

[[Page 26661]]

productivity improvements, and other cost-reduction accomplishments 
that will benefit the Government in follow-on contracts.
    (vi) Independent development. Under this factor, the contractor may 
be provided additional profit opportunities in recognition of 
independent development efforts relevant to the contract end item 
without Government assistance. The contracting officer should consider 
whether the development cost was recovered directly or indirectly from 
Government sources.
    (2) Additional factors. In order to foster achievement of program 
objectives, each agency may include additional factors in its 
structured approach or take them into account in the profit analysis of 
individual contract actions.


15.505  Price negotiation.

    (a) The purpose of performing cost or price analysis is to develop 
a negotiation position that permits the contracting officer and the 
offeror an opportunity to reach agreement on a fair and reasonable 
price. A fair and reasonable price does not require that agreement be 
reached on every element of cost, nor is it mandatory that the agreed 
price be within the contracting officer's initial negotiation position. 
Taking into consideration the advisory recommendations, reports of 
contributing specialists, and the current status of the contractor's 
purchasing system, the contracting officer is responsible for 
exercising the requisite judgment needed to reach a negotiated 
settlement with the offeror and is solely responsible for the final 
price agreement. However, when significant audit or other specialist 
recommendations are not adopted, the contracting officer should provide 
rationale that supports the negotiation result in the price negotiation 
documentation.
    (b) The contracting officer's primary concern is the overall price 
the Government will actually pay. The contracting officer's objective 
is to negotiate a contract of a type and with a price providing the 
contractor the greatest incentive for efficient and economical 
performance. The negotiation of a contract type and a price are related 
and should be considered together with the issues of risk and 
uncertainty to the contractor and the Government. Therefore, the 
contracting officer should not become preoccupied with any single 
element and should balance the contract type, cost, and profit or fee 
negotiated to achieve a total result--a price that is fair and 
reasonable to both the Government and the contractor.
    (c) The Government's cost objective and proposed pricing 
arrangement directly affect the profit or fee objective. Because profit 
or fee is only one of several interrelated variables, the contracting 
officer shall not agree on profit or fee without concurrent agreement 
on cost and type of contract.
    (d) If, however, the contractor insists on a price or demands a 
profit or fee that the contracting officer considers unreasonable, and 
the contracting officer has taken all authorized actions (including 
determining the feasibility of developing an alternative source) 
without success, the contracting officer shall refer the contract 
action to a level above the contracting officer. Disposition of the 
action should be documented.


15.506  Documentation.


15.506-1  Prenegotiation objectives.

    (a) The prenegotiation objectives establish the Government's 
initial negotiation position. They assist in the contracting officer's 
determination of fair and reasonable price. They should be based on the 
results of the contracting officer's analysis of the offeror's 
proposal, taking into consideration all pertinent information including 
field pricing assistance, audit reports and technical analysis, fact-
finding results, independent Government cost estimates and price 
histories.
    (b) The contracting officer shall establish prenegotiation 
objectives before the negotiation of any pricing action. The scope and 
depth of the analysis supporting the objectives should be directly 
related to the dollar value, importance, and complexity of the pricing 
action. When cost analysis is required, the contracting officer shall 
document the pertinent issues to be negotiated, the cost objectives, 
and a profit or fee objective.


15.506-2  Certificate of Current Cost or Pricing Data.

    (a) When cost or pricing data are required, the contracting officer 
shall require the contractor to execute a Certificate of Current Cost 
or Pricing Data, using the format in this paragraph, and shall include 
the executed certificate in the contract file.

Certificate of Current Cost or Pricing Data

    This is to certify that, to the best of my knowledge and belief, 
the cost or pricing data (as defined in section 15.501 of the 
Federal Acquisition Regulation (FAR) and required under FAR 
subsection 15.503-4) submitted, either actually or by specific 
identification in writing, to the Contracting Officer or to the 
Contracting Officer's representative in support of __________* are 
accurate, complete, and current as of __________**. This 
certification includes the cost or pricing data supporting any 
advance agreements and forward pricing rate agreements between the 
offeror and the Government that are part of the proposal.

Firm-------------------------------------------------------------------

Signature--------------------------------------------------------------

Name-------------------------------------------------------------------

Title------------------------------------------------------------------

Date of execution***---------------------------------------------------

    * Identify the proposal, quotation, request for price 
adjustment, or other submission involved, giving the appropriate 
identifying number (e.g., RFP No.).
    ** Insert the day, month, and year when price negotiations were 
concluded and price agreement was reached or, if applicable, an 
earlier date agreed upon between the parties that is as close as 
practicable to the date of agreement on price.
    *** Insert the day, month, and year of signing, which should be 
as close as practicable to the date when the price negotiations were 
concluded and the contract price was agreed to.

(End of certificate)

    (b) The certificate does not constitute a representation as to the 
accuracy of the contractor's judgment on the estimate of future costs 
or projections. It applies to the data upon which the judgment or 
estimate was based. This distinction between fact and judgment should 
be clearly understood. If the contractor had information reasonably 
available at the time of agreement showing that the negotiated price 
was not based on accurate, complete, and current data, the contractor's 
responsibility is not limited by any lack of personal knowledge of the 
information on the part of its negotiators.
    (c) The contracting officer and contractor are encouraged to reach 
a prior agreement on criteria for establishing closing or cutoff dates 
when appropriate in order to minimize delays associated with proposal 
updates. Closing or cutoff dates should be included as part of the data 
submitted with the proposal and, before agreement on price, data should 
be updated by the contractor to the latest closing or cutoff dates for 
which the data are available. Use of cutoff dates coinciding with 
reports is acceptable, as certain data may not be reasonably available 
before normal periodic closing dates (e.g., actual indirect costs). 
Data within the contractor's or a subcontractor's organization on 
matters significant to contractor management and to the Government will 
be treated as reasonably available. What is

[[Page 26662]]

significant depends upon the circumstances of each acquisition.
    (d) Possession of a Certificate of Current Cost or Pricing Data is 
not a substitute for examining and analyzing the contractor's proposal.
    (e) If cost or pricing data are requested by the Government and 
submitted by an offeror, but an exception is later found to apply, the 
data shall not be considered cost or pricing data and shall not be 
certified in accordance with this subsection.


15.506-3  Documenting the negotiation.

    (a) The contract file shall document the principal elements of the 
negotiated agreement. The documentation (e.g., price negotiation 
memorandum (PNM)) shall include the following:
    (1) The purpose of the negotiation.
    (2) A description of the acquisition, including appropriate 
identifying numbers (e.g., RFP No.).
    (3) The name, position, and organization of each person 
representing the contractor and the Government in the negotiation.
    (4) The current status of any contractor systems (e.g., purchasing, 
estimating, accounting, and compensation) to the extent they affected 
and were considered in the negotiation.
    (5) If cost or pricing data were not required in the case of any 
price negotiation exceeding the cost or pricing data threshold, the 
exception used and the basis for it.
    (6) If cost or pricing data were required, the extent to which the 
contracting officer--
    (i) Relied on the cost or pricing data submitted and used them in 
negotiating the price; or
    (ii) Recognized as inaccurate, incomplete, or noncurrent any cost 
or pricing data submitted; the action taken by the contracting officer 
and the contractor as a result; and the effect of the defective data on 
the price negotiated.
    (7) A summary of the contractor's proposal, any field pricing 
assistance recommendations, including the reasons for any pertinent 
variances from them, the Government's negotiation objective, and the 
negotiated position. Where the determination of price reasonableness is 
based on cost analysis, the summary shall address each major cost 
element. When determination of price reasonableness is based on price 
analysis, the summary shall include the source and type of data used to 
support the determination.
    (8) The most significant facts or considerations controlling the 
establishment of the prenegotiation objectives and the negotiated 
agreement including an explanation of any significant differences 
between the two positions.
    (9) To the extent such direction has a significant effect on the 
action, a discussion and quantification of the impact of direction 
given by Congress, other agencies, and higher-level officials (i.e., 
officials who would not normally exercise authority during the award 
and review process for the instant contract action).
    (10) The basis for the profit or fee prenegotiation objective and 
the profit or fee negotiated.
    (b) Whenever field pricing assistance has been obtained, the 
contracting officer shall forward a copy of the analysis to the 
office(s) providing assistance. When appropriate, information on how 
advisory field support can be made more effective should be provided 
separately.


15.507  Special cost or pricing areas.


15.507-1  Defective cost or pricing data.

    (a) If, before agreement on price, the contracting officer learns 
that any cost or pricing data submitted are inaccurate, incomplete, or 
noncurrent, the contracting officer shall immediately bring the matter 
to the attention of the prospective contractor, whether the defective 
data increase or decrease the contract price. The contracting officer 
shall consider any new data submitted to correct the deficiency, or 
consider the inaccuracy, incompleteness, or noncurrency of the data 
when negotiating the contract price. The price negotiation memorandum 
shall reflect the adjustments made to the data or the corrected data 
used to negotiate the contract price.
    (b)(1) If, after award, cost or pricing data are found to be 
inaccurate, incomplete, or noncurrent as of the date of final agreement 
on price or an earlier date agreed upon by the parties given on the 
contractor's or subcontractor's Certificate of Current Cost or Pricing 
Data, the Government is entitled to a price adjustment, including 
profit or fee, of any significant amount by which the price was 
increased because of the defective data. This entitlement is ensured by 
including in the contract one of the clauses prescribed in 15.508 (b) 
and (c) and set forth in the provision at 52.215-22, Price Reduction 
for Defective Cost or Pricing Data, and 52.215-23, Price Reduction for 
Defective Cost or Pricing Data--Modifications. The clauses give the 
Government the right to a price adjustment for defects in cost or 
pricing data submitted by the contractor, a prospective subcontractor, 
or an actual subcontractor.
    (2) In arriving at a price adjustment, the contracting officer 
shall consider the time by which the cost or pricing data became 
reasonably available to the contractor, and the extent to which the 
Government relied upon the defective data.
    (3) The clauses referred to in paragraph (b)(1) of this subsection 
recognize that the Government's right to a price adjustment is not 
affected by any of the following circumstances:
    (i) The contractor or subcontractor was a sole source supplier or 
otherwise was in a superior bargaining position;
    (ii) The contracting officer should have known that the cost or 
pricing data in issue were defective even though the contractor or 
subcontractor took no affirmative action to bring the character of the 
data to the attention of the contracting officer;
    (iii) The contract was based on an agreement about the total cost 
of the contract and there was no agreement about the cost of each item 
procured under such contract; or
    (iv) Cost or pricing data were required, however, the prime 
contractor or subcontractor did not submit a Certificate of Current 
Cost or Pricing Data relating to the contract.
    (4) Subject to paragraphs (b) (5) and (6) of this subsection, the 
contracting officer shall allow an offset for any understated cost or 
pricing data submitted in support of price negotiations, up to the 
amount of the Government's claim for overstated pricing data arising 
out of the same pricing action (e.g., the initial pricing of the same 
contract or the pricing of the same change order).
    (5) An offset shall be allowed only in an amount supported by the 
facts and if the contractor--
    (i) Certifies to the contracting officer that, to the best of the 
contractor's knowledge and belief, the contractor is entitled to the 
offset in the amount requested; and
    (ii) Proves that the cost or pricing data were available before the 
date of agreement on price but were not submitted. Such offsets need 
not be in the same cost groupings (e.g., material, direct labor, or 
indirect costs).
    (6) An offset shall not be allowed if--
    (i) The understated data was known by the contractor to be 
understated when the Certificate of Current Cost or Pricing Data was 
signed; or
    (ii) The Government proves that the facts demonstrate that the 
price would not have increased in the amount to be offset even if the 
available data had been

[[Page 26663]]

submitted before the date of agreement on price.
    (7)(i) In addition to the price adjustment amount, the Government 
is entitled to interest on any overpayments. The Government is also 
entitled to penalty amounts on certain of these overpayments. 
Overpayment occurs only when payment is made for supplies or services 
accepted by the Government. Overpayments do not result from amounts 
paid for contract financing, as defined in 32.902.
    (ii) In calculating the interest amount due, the contracting 
officer shall--
    (A) Determine the defective pricing amounts that have been overpaid 
to the contractor;
    (B) Consider the date of each overpayment (the date of overpayment 
for this interest calculation shall be the date payment was made for 
the related completed and accepted contract items; or for subcontract 
defective pricing, the date payment was made to the prime contractor, 
based on prime contract progress billings or deliveries, which included 
payments for a completed and accepted subcontract item); and
    (C) Apply the underpayment interest rate(s) in effect for each 
quarter from the time of overpayment to the time of repayment, 
utilizing rate(s) prescribed by the Secretary of the Treasury under 26 
U.S.C. 6621(a)(2).
    (iii) In arriving at the amount due for penalties on contracts 
where the submission of defective cost or pricing data was a knowing 
submission, the contracting officer shall obtain an amount equal to the 
amount of overpayment made. Before taking any contractual actions 
concerning penalties, the contracting officer shall obtain the advice 
of counsel.
    (iv) In the price reduction modification or demand, the contracting 
officer shall separately include--
    (A) The repayment amount;
    (B) The penalty amount (if any);
    (C) The interest amount through a specified date; and
    (D) A statement that interest will continue to accrue until 
repayment is made.
    (c) If, after award, the contracting officer learns or suspects 
that the data furnished were not accurate, complete, and current, or 
were not adequately verified by the contractor as of the time of 
negotiation, the contracting officer shall request an audit to evaluate 
the accuracy, completeness, and currency of the data. The Government 
may evaluate the profit-cost relationships only if the audit reveals 
that the data certified by the contractor were defective. The 
contracting officer shall not reprice the contract solely because the 
profit was greater than forecast or because a contingency specified in 
the submission failed to materialize.
    (d) For each advisory audit received based on a postaward review 
that indicates defective pricing, the contracting officer shall make a 
determination as to whether or not the data submitted were defective 
and relied upon. Before making such a determination, the contracting 
officer should give the contractor an opportunity to support the 
accuracy, completeness, and currency of the data in question. The 
contracting officer shall prepare a memorandum documenting both the 
determination and any corrective action taken as a result. The 
contracting officer shall send one copy of this memorandum to the 
auditor and, if the contract has been assigned for administration, one 
copy to the administrative contracting officer (ACO). A copy of the 
memorandum or other notice of the contracting officer's determination 
shall be provided to the contractor.
    (e) If both the contractor and subcontractor submitted, and the 
contractor certified, or should have certified, cost or pricing data, 
the Government has the right, under the clauses at 52.215-22, Price 
Reduction for Defective Cost or Pricing Data, and 52.215-23, Price 
Reduction for Defective Cost or Pricing Data--Modifications, to reduce 
the prime contract price if it was significantly increased because a 
subcontractor submitted defective data. This right applies whether 
these data supported subcontract cost estimates or supported firm 
agreements between subcontractor and contractor.
    (f) If Government audit discloses defective subcontractor cost or 
pricing data, the information necessary to support a reduction in prime 
contract and subcontract prices may be available only from the 
Government. To the extent necessary to secure a prime contract price 
reduction, the contracting officer should make this information 
available to the prime contractor or appropriate subcontractors, upon 
request. If release of the information would compromise Government 
security or disclose trade secrets or confidential business 
information, the contracting officer shall release it only under 
conditions that will protect it from improper disclosure. Information 
made available under this paragraph shall be limited to that used as 
the basis for the prime contract price reduction. In order to afford an 
opportunity for corrective action, the contracting officer should give 
the prime contractor reasonable advance notice before determining to 
reduce the prime contract price.
    (1) When a prime contractor includes defective subcontract data in 
arriving at the price but later awards the subcontract to a lower 
priced subcontractor (or does not subcontract for the work), any 
adjustment in the prime contract price due to defective subcontract 
data is limited to the difference (plus applicable indirect cost and 
profit markups) between the subcontract price used for pricing the 
prime contract, and either the actual subcontract price or the actual 
cost to the contractor, if not subcontracted, provided the data on 
which the actual subcontract price is based are not themselves 
defective.
    (2) Under cost-reimbursement contracts and under all fixed-price 
contracts except firm-fixed-price contracts, and fixed-price contracts 
with economic price adjustment, payments to subcontractors that are 
higher than they would be had there been no defective subcontractor 
cost or pricing data shall be the basis for disallowance or 
nonrecognition of costs under the clauses prescribed in 15.508 (b) and 
(c). The Government has a continuing and direct financial interest in 
such payments that is unaffected by the initial agreement on prime 
contract price.


15.507-2  Make-or-buy programs.

    (a) General. The prime contractor is responsible for managing 
contract performance, including planning, placing, and administering 
subcontracts as necessary to ensure the lowest overall cost and 
technical risk to the Government. When make-or-buy programs are 
required, the Government may reserve the right to review and agree on 
the contractor's make-or-buy program when necessary to ensure 
negotiation of reasonable contract prices, satisfactory performance, or 
implementation of socioeconomic policies. Consent to subcontracts and 
review of contractors' purchasing systems are separate actions covered 
in part 44.
    (b) Definitions.
    Buy item means an item or work effort to be produced or performed 
by a subcontractor.
    Make item means an item or work effort to be produced or performed 
by the prime contractor or its affiliates, subsidiaries, or divisions.
    Make-or-buy program means that part of a contractor's written plan 
for a contract identifying those major items to be produced or work 
efforts to be performed in the prime contractor's facilities and those 
to be subcontracted.

[[Page 26664]]

    (c) Acquisitions requiring make-or-buy programs. (1) Contracting 
officers may require prospective contractors to submit make-or-buy 
program plans for negotiated acquisitions requiring cost or pricing 
data whose estimated value is $10 million or more, except when the 
proposed contract is for research or development and, if prototypes or 
hardware are involved, no significant follow-on production is 
anticipated.
    (2) Contracting officers may require prospective contractors to 
submit make-or-buy programs for negotiated acquisitions whose estimated 
value is under $10 million only if the contracting officer--
    (i) Determines that the information is necessary; and
    (ii) Documents the reasons in the contract file.
    (d) Solicitation requirements. When prospective contractors are 
required to submit proposed make-or-buy programs, the solicitation 
shall include--
    (1) A statement that the program and required supporting 
information must accompany the offer; and
    (2) A description of factors to be used in evaluating the proposed 
program, such as capability, capacity, availability of small, small 
disadvantaged, and women-owned small business concerns for 
subcontracting, establishment of new facilities in or near labor 
surplus areas, delivery or performance schedules, control of technical 
and schedule interfaces, proprietary processes, technical superiority 
or exclusiveness, and technical risks involved.
    (e) Program requirements. To support a make-or-buy program, the 
following information shall be supplied by the contractor in its 
proposal:
    (1) Items and work included. The information required from a 
contractor in a make-or-buy program shall be confined to those major 
items or work efforts that normally would require company management 
review of the make-or-buy decision because they are complex, costly, 
needed in large quantities, or require additional facilities to 
produce. Raw materials, commercial items (see 2.101), and off-the-shelf 
items (see 46.101) shall not be included, unless their potential impact 
on contract cost or schedule is critical. As a rule, make-or-buy 
programs should not include items or work efforts estimated to cost 
less than 1 percent of the total estimated contract price or any 
minimum dollar amount set by the agency.
    (2) The offeror's program should include or be supported by the 
following information:
    (i) A description of each major item or work effort.
    (ii) Categorization of each major item or work effort as ``must 
make,'' ``must buy'' or ``can either make or buy.''
    (iii) For each item or work effort categorized as ``can either make 
or buy,'' a proposal either to ``make'' or to ``buy.''
    (iv) Reasons for categorizing items and work efforts as ``must 
make'' or ``must buy,'' and proposing to ``make'' or to ``buy'' those 
categorized as ``can either make or buy.'' The reasons must include the 
consideration given to the evaluation factors described in the 
solicitation and be in sufficient detail to permit the contracting 
officer to evaluate the categorization or proposal.
    (v) Designation of the plant or division proposed to make each item 
or perform each work effort, and a statement as to whether the existing 
or proposed new facility is in or near a labor surplus area.
    (vi) Identification of proposed subcontractors, if known, and their 
location and size status (see also subpart 19.7 for subcontracting plan 
requirements).
    (vii) Any recommendations to defer make-or-buy decisions when 
categorization of some items or work efforts is impracticable at the 
time of submission.
    (viii) Any other information the contracting officer requires in 
order to evaluate the program.
    (f) Evaluation, negotiation, and agreement. Contracting officers 
shall evaluate and negotiate proposed make-or-buy programs as soon as 
practicable after their receipt and before contract award.
    (1) When the program is to be incorporated in the contract and the 
design status of the product being acquired does not permit accurate 
precontract identification of major items or work efforts, the 
contracting officer shall notify the prospective contractor in writing 
that these items or efforts, when identifiable, shall be added under 
the clause at 52.215-21, Changes or Additions to Make-or-Buy Program.
    (2) Contracting officers normally shall not agree to proposed 
``make items'' when the products or services are not regularly 
manufactured or provided by the contractor and are available--quality, 
quantity, delivery, and other essential factors considered--from 
another firm at equal or lower prices or when they are regularly 
manufactured or provided by the contractor, but available--quality, 
quantity, delivery, and other essential factors considered--from 
another firm at lower prices. However, the contracting officer may 
agree to these as ``make items'' if an overall lower Governmentwide 
cost would result or it is otherwise in the best interest of the 
Government. If this situation occurs in any fixed-price incentive or 
cost-plus-incentive-fee contract, the contracting officer shall specify 
these items in the contract and state that they are subject to 
paragraph (d) of the clause at 52.215-21, Changes or Additions to Make-
or-Buy Program (see 15.508(a)). If the contractor proposes to reverse 
the categorization of such items during contract performance, the 
contract price shall be subject to equitable reduction.
    (g) Incorporating make-or-buy programs in contracts. The 
contracting officer may incorporate the make-or-buy program in 
negotiated contracts for--
    (1) Major systems (see part 34) or their subsystems or components, 
regardless of contract type; or
    (2) Other supplies and services if--
    (i) The contract is a cost-reimbursable contract, or a cost-sharing 
contract in which the contractor's share of the cost is less than 25 
percent; and
    (ii) The contracting officer determines that technical or cost 
risks justify Government review and approval of changes or additions to 
the make-or-buy program.


15.507-3  Forward pricing rate agreements.

    (a) When certified cost or pricing data are required, offerors are 
required to describe any forward pricing rate agreements (FPRA's) in 
each specific pricing proposal to which the rates apply and to identify 
the latest cost or pricing data already submitted in accordance with 
the agreement. All data submitted in connection with the agreement, 
updated as necessary, form a part of the total data that the offeror 
certifies to be accurate, complete, and current at the time of 
agreement on price for an initial contract or for a contract 
modification.
    (b) Contracting officers will use FPRA rates as bases for pricing 
all contracts, modifications, and other contractual actions to be 
performed during the period covered by the agreement. Conditions that 
may affect the agreement's validity shall be reported promptly to the 
ACO. If the ACO determines that a changed condition invalidates the 
agreement, the ACO shall notify all interested parties of the extent of 
its effect and status of efforts to establish a revised FPRA.
    (c) Contracting officers shall not require certification at the 
time of agreement for data supplied in support of FPRA's or other 
advance agreements. When a forward pricing rate agreement or other 
advance agreement is used to price a contract action that requires a 
certificate, the certificate supporting that contract action shall 
cover the data

[[Page 26665]]

supplied to support the FPRA or other advance agreement, and all other 
data supporting the action.
    (d) When an FPRA is invalid, the contractor should submit and 
negotiate a new proposal to reflect the changed conditions. If an FPRA 
has not been established or has been invalidated, the ACO will issue a 
forward pricing rate recommendation (FPRR) to buying activities with 
documentation to assist negotiators. In the absence of a FPRA or FPRR, 
field pricing information will include support for rates utilized.
    (e) The ACO may negotiate continuous updates to the FPRA. The FPRA 
will provide specific terms and conditions covering notification, 
application, and data requirements for systematic monitoring to assure 
the validity of the rates.


15.507-4  Should-cost review.

    (a) General. (1) Should-cost reviews are a specialized form of cost 
analysis. Should-cost reviews differ from traditional evaluation 
methods because they do not assume that a contractor's historical costs 
reflect efficient and economical operation. Instead, these reviews 
evaluate the economy and efficiency of the contractor's existing work 
force, methods, materials, facilities, operating systems, and 
management. These reviews are accomplished by a multi-functional team 
of Government contracting, contract administration, pricing, audit, and 
engineering representatives. The objective of should-cost reviews is to 
promote both short and long-range improvements in the contractor's 
economy and efficiency in order to reduce the cost of performance of 
Government contracts. In addition, by providing rationale for any 
recommendations and quantifying their impact on cost, the Government 
will be better able to develop realistic objectives for negotiation.
    (2) There are two types of should-cost reviews--program should-cost 
review (see paragraph (b) of this subsection) and overhead should-cost 
review (see paragraph (c) of this subsection). These should-cost 
reviews may be performed together or independently. The scope of a 
should-cost review can range from a large-scale review examining the 
contractor's entire operation (including plant-wide overhead and 
selected major subcontractors) to a small-scale tailored review 
examining specific portions of a contractor's operation.
    (b) Program should-cost review. (1) Program should-cost review is 
used to evaluate significant elements of direct costs, such as material 
and labor, and associated indirect costs, usually associated with the 
production of major systems. When a program should-cost review is 
conducted relative to a contractor proposal, a separate audit report on 
the proposal is required.
    (2) A program should-cost review should be considered, particularly 
in the case of a major system acquisition (see part 34), when--
    (i) Some initial production has already taken place;
    (ii) The contract will be awarded on a sole-source basis;
    (iii) There are future-year production requirements for substantial 
quantities of like items;
    (iv) The items being acquired have a history of increasing costs;
    (v) The work is sufficiently defined to permit an effective 
analysis and major changes are unlikely;
    (vi) Sufficient time is available to plan and adequately conduct 
the should-cost review; and
    (vii) Personnel with the required skills are available or can be 
assigned for the duration of the should-cost review.
    (3) The contracting officer should decide which elements of the 
contractor's operation have the greatest potential for cost savings and 
assign the available personnel resources accordingly. The expertise of 
on-site Government personnel should be used, when appropriate. While 
the particular elements to be analyzed are a function of the contract 
work task, elements such as manufacturing, pricing and accounting, 
management and organization, and subcontract and vendor management are 
normally reviewed in a should-cost review.
    (4) In acquisitions for which a program should-cost review is 
conducted, a separate program should-cost review team report, prepared 
in accordance with agency procedures, is required. The contracting 
officer shall consider the findings and recommendations contained in 
the program should-cost review team report when negotiating the 
contract price. After completing the negotiation, the contracting 
officer shall provide the ACO a report of any identified uneconomical 
or inefficient practices, together with a report of correction or 
disposition agreements reached with the contractor. The contracting 
officer shall establish a follow-up plan to monitor the correction of 
the uneconomical or inefficient practices.
    (5) When a program should-cost review is planned, the contracting 
officer should state this fact in the acquisition plan or acquisition 
plan updates (see subpart 7.1) and in the solicitation.
    (c) Overhead should-cost review. (1) An overhead should-cost review 
is used to evaluate indirect costs, such as fringe benefits, shipping 
and receiving, facilities and equipment, depreciation, plant 
maintenance and security, taxes, and general and administrative 
activities. It is normally used to evaluate and negotiate an FPRA with 
the contractor. When an overhead should-cost review is conducted, a 
separate audit report is required.
    (2) The following factors should be considered when selecting 
contractor sites for overhead should-cost reviews:
    (i) Dollar amount of Government business.
    (ii) Level of Government participation.
    (iii) Level of noncompetitive Government contracts.
    (iv) Volume of proposal activity.
    (v) Major system or program.
    (vi) Corporate reorganizations, mergers, acquisitions, or 
takeovers.
    (vii) Other conditions (e.g., changes in accounting systems, 
management, or business activity).
    (3) The objective of the overhead should-cost review is to evaluate 
significant indirect cost elements in-depth, and identify and recommend 
corrective actions regarding inefficient and uneconomical practices. If 
it is conducted in conjunction with a program should-cost review, a 
separate overhead should-cost review report is not required. However, 
the findings and recommendations of the overhead should-cost team, or 
any separate overhead should-cost review report, shall be provided to 
the ACO. The ACO should use this information to form the basis for the 
Government position in negotiating an FPRA with the contractor. The ACO 
shall establish a follow-up plan to monitor the correction of the 
uneconomical or inefficient practices.


15.507-5  Estimating systems.

    (a) Using an acceptable estimating system for proposal preparation 
benefits both the Government and the contractor by increasing the 
accuracy and reliability of individual proposals. Cognizant audit 
activities, when it is appropriate to do so, shall establish and manage 
regular programs for reviewing selected contractors' estimating systems 
or methods, in order to reduce the scope of reviews to be performed on 
individual proposals, expedite the negotiation process, and increase 
the reliability of proposals. The results of estimating system reviews 
shall be documented in survey reports.
    (b) The auditor shall send a copy of the estimating system survey 
report and

[[Page 26666]]

a copy of the official notice of corrective action required to each 
contracting office and contract administration office having 
substantial business with that contractor. Significant deficiencies not 
corrected by the contractor shall be a consideration in subsequent 
proposal analyses and negotiations.


15.508  Solicitation provisions and contract clauses.

    (a) The contracting officer shall insert the clause at 52.215-21, 
Changes or Additions to Make-or-Buy Program, in solicitations and 
contracts when it is contemplated that a make-or-buy program will be 
incorporated in the contract. If a less economical ``make'' or ``buy'' 
categorization is selected for one or more items of significant value, 
the contracting officer shall use the clause with--
    (1) Its Alternate I, if a fixed-price incentive contract is 
contemplated; or
    (2) Its Alternate II, if a cost-plus-incentive-fee contract is 
contemplated.
    (b) The contracting officer shall, when contracting by negotiation, 
insert the clause at 52.215-22, Price Reduction for Defective Cost or 
Pricing Data, in solicitations and contracts when it is contemplated 
that cost or pricing data will be required from the contractor or any 
subcontractor (see 15.503-4).
    (c) The contracting officer shall, when contracting by negotiation, 
insert the clause at 52.215-23, Price Reduction for Defective Cost or 
Pricing Data--Modifications, in solicitations and contracts when it is 
contemplated that cost or pricing data will be required from the 
contractor or any subcontractor (see 15.503-4) for the pricing of 
contract modifications, and the clause prescribed in paragraph (b) of 
this section has not been included.
    (d) The contracting officer shall insert the clause at 52.215-24, 
Subcontractor Cost or Pricing Data, in solicitations and contracts when 
the clause prescribed in paragraph (b) of this section is included.
    (e) The contracting officer shall insert the clause at 52.215-25, 
Subcontractor Cost or Pricing Data--Modifications, in solicitations and 
contracts when the clause prescribed in paragraph (c) of this section 
is included.
    (f) The contracting officer shall insert the clause at 52.215-26, 
Integrity of Unit Prices, in solicitations and contracts for other 
than--
    (1) Acquisitions at or below the simplified acquisition threshold;
    (2) Construction or architect-engineer services under part 36;
    (3) Utility services under part 41;
    (4) Service contracts where supplies are not required;
    (5) Acquisitions of commercial items; and
    (6) Contracts for petroleum products. The contracting officer shall 
insert the clause with its Alternate I when contracting without full 
and open competition or when prescribed by agency regulations.
    (g) The contracting officer shall insert the clause at 52.215-27, 
Termination of Defined Benefit Pension Plans, in solicitations and 
contracts for which it is anticipated that cost or pricing data will be 
required or for which any preaward or postaward cost determinations 
will be subject to part 31.
    (h) The contracting officer shall insert the provision at 52.215-
30, Facilities Capital Cost of Money, in solicitations expected to 
result in contracts that are subject to the cost principles for 
contracts with commercial organizations (see subpart 31.2).
    (i) If the prospective contractor does not propose facilities 
capital cost of money in its offer, the contracting officer shall 
insert the clause at 52.215-31, Waiver of Facilities Capital Cost of 
Money, in the resulting contract.
    (j) The contracting officer shall insert the clause at 52.215-39, 
Reversion or Adjustment of Plans for Postretirement Benefits (PRB) 
Other Than Pensions, in solicitations and contracts for which it is 
anticipated that cost or pricing data will be required or for which any 
preaward or postaward cost determinations will be subject to part 31.
    (k) The contracting officer shall insert the clause at 52.215-40, 
Notification of Ownership Changes, in solicitations and contracts for 
which it is contemplated that cost or pricing data will be required or 
for which any preaward or postaward cost determination will be subject 
to subpart 31.2.
    (l) Considering the hierarchy at 15.502, the contracting officer 
may insert the provision at 52.215-41, Requirements for Cost or Pricing 
Data or Information Other Than Cost or Pricing Data, in solicitations 
if it is reasonably certain that cost or pricing data or information 
other than cost or pricing data will be required. This provision also 
provides instructions to offerors on how to request an exception. The 
contracting officer shall--
    (1) Use the provision with its Alternate I to specify a format for 
cost or pricing data other than the format required by Table 15-2 of 
this section;
    (2) Use the provision with its Alternate II if copies of the 
proposal are to be sent to the ACO and contract auditor;
    (3) Use the provision with its Alternate III if submission via 
electronic media is required; and
    (4) Replace the basic provision with its Alternate IV if cost or 
pricing data are not expected to be required because an exception may 
apply, but information other than cost or pricing data is required as 
described in 15.503-3.
    (m) Considering the hierarchy at 15.502, the contracting officer 
may insert the clause at 52.215-42, Requirements for Cost or Pricing 
Data or Information Other Than Cost or Pricing Data--Modifications, in 
solicitations and contracts if it is reasonably certain that cost or 
pricing data or information other than cost or pricing data will be 
required for modifications. This clause also provides instructions to 
contractors on how to request an exception. The contracting officer 
shall--
    (1) Use the clause with its Alternate I to specify a format for 
cost or pricing data other than the format required by Table 15-2 of 
this section;
    (2) Use the clause with its Alternate II if copies of the proposal 
are to be sent to the ACO and contract auditor;
    (3) Use the clause with its Alternate III if submission via 
electronic media is required; and
    (4) Replace the basic clause with its Alternate IV if cost or 
pricing data are not expected to be required because an exception may 
apply, but information other than cost or pricing data is required as 
described in 15.503-3.

Table 15-2.--Instructions for Submitting Cost or Pricing Data

    This document provides instructions for preparing a contract 
pricing proposal when cost or pricing data are required.

Notices

    1. There is a clear distinction between submitting cost or 
pricing data and merely making available books, records, and other 
documents without identification. The requirement for submission of 
cost or pricing data is met when all accurate cost or pricing data 
reasonably available to the offeror have been submitted, either 
actually or by specific identification, to the Contracting Officer 
or an authorized representative. As later information comes into 
your possession, it should be promptly submitted to the Contracting 
Officer demonstrating how the information relates to your price 
proposal. The requirement for submission of cost or pricing data 
continues up to the time of agreement on price, or an earlier date 
agreed upon between the parties if applicable.
    2. By submitting your proposal, you grant the Contracting 
Officer or an authorized representative the right to examine records 
that formed the basis for the pricing proposal. That examination can 
take place at any time before award. It may include those books, 
records, documents, and other types of factual information 
(regardless of form or whether the information is specifically

[[Page 26667]]

referenced or included in the proposal as the basis for pricing) 
that will permit an adequate evaluation of the proposed price.

General Instructions

    1. You must provide the following information on the first page 
of your pricing proposal:
    (a) Solicitation, contract and/or modification number;
    (b) Name and address of offeror;
    (c) Name and telephone number of point of contact;
    (d) Name of contract administration office (if available);
    (e) Type of contract action (that is, new contract, change 
order, price revision/redetermination, letter contract, unpriced 
order, or other);
    (f) Proposed cost, profit or fee, and total;
    (g) Whether you will require the use of Government property in 
the performance of the contract, and, if so, what property;
    (h) Whether your organization is subject to cost accounting 
standards, whether the proposal is consistent with your established 
estimating and accounting principles and procedures and FAR part 31, 
Cost Principles, and, if not, an explanation;
    (i) The following statement:
    This proposal reflects our estimates and/or actual costs as of 
this date and conforms with the instructions in FAR 15.503-5(b)(1) 
and Table 15-2. By submitting this proposal, we grant the 
Contracting Officer and authorized representative(s) the right to 
examine, at any time before award, those records, which include 
books, documents, accounting procedures and practices, and other 
data, regardless of type and form or whether such supporting 
information is specifically referenced or included in the proposal 
as the basis for pricing, that will permit an adequate evaluation of 
the proposed price.
    (j) Date of submission; and
    (k) Name, title and signature of authorized representative.
    2. In submitting your proposal, you must include an index, 
appropriately referenced, of all the cost or pricing data and 
information accompanying or identified in the proposal. In addition, 
you must annotate any future additions and/or revisions, up to the 
date of agreement on price, or an earlier date agreed upon by the 
parties, on a supplemental index.
    3. As part of the specific information required, you must 
submit, with your proposal, cost or pricing data (that is, data that 
are verifiable and factual and otherwise as defined at FAR 15.501). 
You must clearly identify this data as ``Cost or Pricing Data.'' In 
addition, you must submit with your proposal any information 
reasonably required to explain your estimating process, including--
    a. The judgmental factors applied and the mathematical or other 
methods used in the estimate, including those used in projecting 
from known data; and
    b. The nature and amount of any contingencies included in the 
proposed price.
    4. You must show the relationship between contract line item 
prices and the total contract price. You must attach cost-element 
breakdowns for each proposed line item, using the appropriate format 
prescribed in the ``Formats for Submission of Line Item Summaries'' 
section of this table. You must furnish supporting breakdowns for 
each cost element, consistent with your cost accounting system.
    5. When more than one contract line item is proposed, you must 
also provide summary total amounts covering all line items for each 
element of cost.
    6. Whenever you have incurred costs for work performed before 
submission of a proposal, you must identify those costs in your 
cost/price proposal.
    7. If you have reached an agreement with Government 
representatives on use of forward pricing rates/factors, identify 
the agreement, include a copy, and describe its nature.
    8. As soon as practicable after final agreement on price or an 
earlier date agreed to by the parties, but before the award 
resulting from the proposal, you must, under the conditions stated 
in FAR 15.506-2, submit a Certificate of Current Cost or Pricing 
Data.

Cost Elements

    Depending on your system, you must provide breakdowns for the 
following basic cost elements, as applicable:
    A. Materials and services. Provide a consolidated priced summary 
of individual material quantities included in the various tasks, 
orders, or contract line items being proposed and the basis for 
pricing (vendor quotes, invoice prices, etc.). Include raw 
materials, parts, components, assemblies, and services to be 
produced or performed by others. For all items proposed, identify 
the item and show the source, quantity, and price. Conduct price 
analyses of all subcontractor proposals. Conduct cost analyses for 
all subcontracts when cost or pricing data are submitted by the 
subcontractor. Include these analyses as part of your own cost or 
pricing data submissions for subcontracts expected to exceed the 
appropriate threshold in 15.503-4. Submit the subcontractor cost or 
pricing data as part of your own cost or pricing data as required in 
subparagraph A(2) of this table. These requirements also apply to 
all subcontractors if required to submit cost or pricing data.
    (1) Adequate Price Competition. Provide data showing the degree 
of competition and the basis for establishing the source and 
reasonableness of price for those acquisitions (such as 
subcontracts, purchase orders, material order, etc.) exceeding, or 
expected to exceed, the appropriate threshold set forth at 15.503-4 
priced on the basis of adequate price competition. For 
interorganizational transfers priced at other than the cost of 
comparable competitive commercial work of the division, subsidiary, 
or affiliate of the contractor, explain the pricing method (see 
31.205-26(e)).
    (2) All Other. Obtain cost or pricing data from prospective 
sources for those acquisitions (such as subcontracts, purchase 
orders, material order, etc.) exceeding the threshold set forth in 
15.503-4 and not otherwise exempt, in accordance with 15.503-1(b) 
(i.e., adequate price competition, commercial items, prices set by 
law or regulation or waiver). Also provide data showing the basis 
for establishing source and reasonableness of price. In addition, 
provide a summary of your cost analysis and a copy of cost or 
pricing data submitted by the prospective source in support of each 
subcontract, or purchase order that is the lower of either 
$10,000,000 or more, or both more than the pertinent cost or pricing 
data threshold and more than 10 percent of the prime contractor's 
proposed price. The Contracting Officer may require you to submit 
cost or pricing data in support of proposals in lower amounts. 
Subcontractor cost or pricing data must be accurate, complete and 
current as of the date of final price agreement, or an earlier date 
agreed upon by the parties, given on the prime contractor's 
Certificate of Current Cost or Pricing Data. The prime contractor is 
responsible for updating a prospective subcontractor's data. For 
standard commercial items fabricated by the offeror that are 
generally stocked in inventory, provide a separate cost breakdown, 
if priced based on cost. For interorganizational transfers priced at 
cost, provide a separate breakdown of cost elements. Analyze the 
cost or pricing data and submit the results of your analysis of the 
prospective source's proposal. When submission of a prospective 
source's cost or pricing data is required, it must be included along 
with your own cost or pricing data submission, as part of your 
initial pricing proposal. You must also submit any other cost or 
pricing data obtained from a subcontractor, either actually or by 
specific identification, along with the results of any analysis 
performed on that data.
    B. Direct Labor. Provide a time-phased (e.g., monthly) breakdown 
of labor hours, rates, and cost by appropriate category, and furnish 
bases for estimates.
    C. Indirect Costs. Indicate how you have computed and applied 
your indirect costs, including cost breakdowns. Show trends and 
budgetary data to provide a basis for evaluating the reasonableness 
of proposed rates. Indicate the rates used and provide an 
appropriate explanation.
    D. Other Costs. List all other costs not otherwise included in 
the categories described above (e.g., special tooling, travel, 
computer and consultant services, preservation, packaging and 
packing, spoilage and rework, and Federal excise tax on finished 
articles) and provide bases for pricing.
    E. Royalties. If royalties exceed $1,500, you must provide the 
following information on a separate page for each separate royalty 
or license fee:
    (1) Name and address of licensor.
    (2) Date of license agreement.
    (3) Patent numbers.
    (4) Patent application serial numbers, or other basis on which 
the royalty is payable.
    (5) Brief description (including any part or model numbers of 
each contract item or component on which the royalty is payable).
    (6) Percentage or dollar rate of royalty per unit.
    (7) Unit price of contract item.
    (8) Number of units.

[[Page 26668]]

    (9) Total dollar amount of royalties.
    (10) If specifically requested by the Contracting Officer, a 
copy of the current license agreement and identification of 
applicable claims of specific patents (see FAR 27.204 and 31.205-
37).
    F. Facilities Capital Cost of Money. When you elect to claim 
facilities capital cost of money as an allowable cost, you must 
submit Form CASB-CMF and show the calculation of the proposed amount 
(see 31.205-10).

Formats for Submission of Line Item Summaries

              A. New Contracts (Including Letter Contracts)             
                                                                        
                   Proposed contract  Proposed contract                 
  Cost elements     estimate--total     estimate--unit      Reference   
                         cost                cost                       
(1).............             (2)                 (3)               (4)  
------------------------------------------------------------------------

Column and Instruction

    (1) Enter appropriate cost elements.
    (2) Enter those necessary and reasonable costs that, in your 
judgment, will properly be incurred in efficient contract 
performance. When any of the costs in this column have already been 
incurred (e.g., under a letter contract), describe them on an 
attached supporting page. When preproduction or startup costs are 
significant, or when specifically requested to do so by the 
Contracting Officer, provide a full identification and explanation 
of them.
    (3) Optional, unless required by the Contracting Officer.
    (4) Identify the attachment in which the information supporting 
the specific cost element may be found. Attach separate pages as 
necessary.

               B. Change Orders, Modifications, and Claims              
                                                                        
                         Cost of                                        
            Estimated    deleted   Net cost  Cost of    Net             
   Cost      cost of      work       to be     work   cost of  Reference
 elements   all work     already    deleted   added    change           
             deleted    performed                                       
(1)......       (2)         (3)        (4)      (5)      (6)       (7)  
------------------------------------------------------------------------

Column and Instruction

    (1) Enter appropriate cost elements.
    (2) Include the current estimates of what the cost would have 
been to complete the deleted work not yet performed (not the 
original proposal estimates), and the cost of deleted work already 
performed.
    (3) Include the incurred cost of deleted work already performed, 
using actuals incurred if possible, or, if actuals are not 
available, estimates from your accounting records. Attach a detailed 
inventory of work, materials, parts, components, and hardware 
already purchased, manufactured, or performed and deleted by the 
change, indicating the cost and proposed disposition of each line 
item. Also, if you desire to retain these items or any portion of 
them, indicate the amount offered for them.
    (4) Enter the net cost to be deleted, which is the estimated 
cost of all deleted work less the cost of deleted work already 
performed. Column (2)-Column (3) = Column (4).
    (5) Enter your estimate for cost of work added by the change. 
When nonrecurring costs are significant, or when specifically 
requested to do so by the Contracting Officer, provide a full 
identification and explanation of them. When any of the costs in 
this column have already been incurred, describe them on an attached 
supporting schedule.
    (6) Enter the net cost of change, which is the cost of work 
added, less the net cost to be deleted. Column (5)-Column (4) = 
Column (6). When this result is negative, place the amount in 
parentheses.
    (7) Identify the attachment in which the information supporting 
the specific cost element may be found. Attach separate pages as 
necessary.

                                                                                C. Price Revision/Redetermination                                                                               
                                                                                                                                                                                                
            Number of    Number of                                                                                   Incurred cost--    Incurred     Total     Estimated                        
  Cutoff      units     units to be   Contract    Redetermination    Difference      Cost        Incurred cost--     completed units   cost--work   incurred    cost to    Estimated   Reference
   date     completed    completed     amount     proposal amount                  elements       preproduction                        in process     cost     complete   total cost            
(1)......       (2)          (3)          (4)            (5)              (6)          (7)              (8)                 (9)           (10)        (11)        (12)        (13)        (14)  
------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------

(Use as applicable)

Column and Instruction

    (1) Enter the cutoff date required by the contract, if 
applicable.
    (2) Enter the number of units completed during the period for 
which experienced costs of production are being submitted.
    (3) Enter the number of units remaining to be completed under 
the contract.
    (4) Enter the cumulative contract amount.
    (5) Enter your redetermination proposal amount.
    (6) Enter the difference between the contract amount and the 
redetermination proposal amount. When this result is negative, place 
the amount in parentheses. Column (4) - Column (5) = Column (6).
    (7) Enter appropriate cost elements. When residual inventory 
exists, the final costs established under fixed-price-incentive and 
fixed-price-redeterminable arrangements should be net of the fair 
market value of such inventory. In support of subcontract costs, 
submit a listing of all subcontracts subject to repricing action, 
annotated as to their status.
    (8) Enter all costs incurred under the contract before starting 
production and other nonrecurring costs (usually referred to as 
startup costs) from your books and records as of the cutoff date. 
These include such costs as preproduction engineering, special plant 
rearrangement, training program, and any identifiable nonrecurring 
costs such as initial rework, spoilage, pilot runs, etc. In the 
event the amounts are not segregated in or otherwise available from 
your records, enter in this column your best estimates. Explain the 
basis for each estimate and how the costs are charged on your 
accounting records (e.g., included in production costs as direct 
engineering labor, charged to manufacturing overhead). Also show how 
the costs would be allocated to the units at their various stages of 
contract completion.
    (9) Enter in Column (9) the production costs from your books and 
records (exclusive of preproduction costs reported in Column (8)) of 
the units completed as of the cutoff date.
    (10) Enter in Column (10) the costs of work in process as 
determined from your records

[[Page 26669]]

or inventories at the cutoff date. When the amounts for work in 
process are not available in your records but reliable estimates for 
them can be made, enter the estimated amounts in Column (10) and 
enter in Column (9) the differences between the total incurred costs 
(exclusive of preproduction costs) as of the cutoff date and these 
estimates. Explain the basis for the estimates, including 
identification of any provision for experienced or anticipated 
allowances, such as shrinkage, rework, design changes, etc. Furnish 
experienced unit or lot costs (or labor hours) from inception of 
contract to the cutoff date, improvement curves, and any other 
available production cost history pertaining to the item(s) to which 
your proposal relates.
    (11) Enter total incurred costs (Total of Columns (8), (9), and 
(10)).
    (12) Enter those necessary and reasonable costs that in your 
judgment will properly be incurred in completing the remaining work 
to be performed under the contract with respect to the item(s) to 
which your proposal relates.
    (13) Enter total estimated cost (Total of Columns (11) and 
(12)).
    (14) Identify the attachment in which the information supporting 
the specific cost element may be found. Attach separate pages as 
necessary.

Subpart 15.6--Preaward, Award, and Postaward Notifications, 
Protests, and Mistakes


15.601  Definition.

    Day, as used in this subpart, has the meaning set forth at 33.101.


15.602  Applicability.

    This subpart applies to competitive proposals, as described in 
6.102(b), and a combination of competitive procedures, as described in 
6.102(c). The procedures in 15.606, 15.607, 15.608, and 15.609, with 
reasonable modification, should be followed for sole source 
acquisitions and acquisitions described in 6.102(d) (1) and (2).


15.603  Notifications to unsuccessful offerors.

    (a) Preaward notices--(1) Preaward notices of exclusion from 
competitive range. The contracting officer shall notify offerors 
promptly in writing when their proposals are excluded from the 
competitive range or otherwise eliminated from the competition. The 
notice shall state the basis for the determination and that a proposal 
revision will not be considered.
    (2) Preaward notices for small business set-asides. In addition to 
the notice in paragraph (a)(1) of this section, when using a small 
business set-aside (see subpart 19.5), upon completion of negotiations 
and determinations of responsibility, but prior to award, the 
contracting officer shall notify each offeror in writing of the name 
and location of the apparent successful offeror. The notice shall also 
state that
    (i) The Government will not consider subsequent revisions of the 
offeror's proposal; and
    (ii) No response is required unless a basis exists to challenge the 
small business size status of the apparent successful offeror. The 
notice is not required when the contracting officer determines in 
writing that the urgency of the requirement necessitates award without 
delay or when the contract is entered into under the 8(a) program (see 
subpart 19.805-2).
    (b) Postaward notices. (1) Within 3 days after the date of contract 
award, the contracting officer shall provide written notification to 
each offeror whose proposal was in the competitive range but was not 
selected for award (10 U.S.C. 2305(b)(5) and 41 U.S.C. 253b(c)) or had 
not been previously notified under paragraph (a) of this section. The 
notice shall include--
    (i) The number of offerors solicited;
    (ii) The number of proposals received;
    (iii) The name and address of each offeror receiving an award;
    (iv) The items, quantities, and any stated unit prices of each 
award (if the number of items or other factors makes listing any stated 
unit prices impracticable at that time, only the total contract price 
need be furnished in the notice). However, the items, quantities, and 
any stated unit prices of each award shall be made publicly available, 
upon request; and
    (v) In general terms, the reason(s) the offeror's proposal was not 
accepted, unless the price information in paragraph (b)(1)(iv) of this 
section readily reveals the reason. In no event shall an offeror's cost 
breakdown, profit, overhead rates, trade secrets, manufacturing 
processes and techniques, or other confidential business information be 
disclosed to any other offeror.
    (2) Upon request, the contracting officer shall furnish the 
information described in paragraph (b)(1) of this section to 
unsuccessful offerors in solicitations using simplified acquisition 
procedures in part 13.
    (3) Upon request, the contracting officer shall provide the 
information in paragraph (b)(1) of this section to unsuccessful 
offerors that received a preaward notice of exclusion from the 
competitive range.


15.604  Award to successful offeror.

    The contracting officer shall award a contract to the successful 
offeror by furnishing the executed contract or other notice of the 
award to that offeror.
    (a) If the award document includes information that is different 
than the latest signed proposal, as amended by the offeror's written 
correspondence, both the offeror and the contracting officer shall sign 
the contract award.
    (b) When an award is made to an offeror for less than all of the 
items that may be awarded and additional items are being withheld for 
subsequent award, each notice shall state that the Government may make 
subsequent awards on those additional items within the proposal 
acceptance period.
    (c) If the Optional Form 307 (OF 307), Contract Award, is not used 
to award the contract, the first page of the award document shall 
contain the Government's acceptance statement from Block 15 of that 
form, exclusive of the Item 3 reference language, and the contracting 
officer's signature. In addition, if the award document includes 
information that is different than the signed proposal, as amended by 
the offeror's written correspondence, the first page shall include the 
contractor's agreement statement from Block 14 of the OF 307 and the 
signature of the contractor's authorized representative.


15.605  Preaward debriefing of offerors.

    Offerors excluded from the competitive range or otherwise excluded 
from the competition before award may request a debriefing before award 
(10 U.S.C. 2305(b)(6)(A) and 41 U.S.C. 253b (f)-(h)).
    (a)(1) The offeror may request a preaward debriefing by submitting 
a written request for debriefing to the contracting officer within 3 
days after receipt of the notice of exclusion from the competition.
    (2) At the offeror's request, this debriefing may be delayed until 
after award. If delayed until after award, the debriefing shall include 
all information normally provided in a postaward debriefing (see 
15.606(d)). However, if an offeror requests a delayed debriefing under 
this section, the date the offeror knew or should have known the basis 
of a protest for the purposes of 4 CFR 21.2(a)(2) shall be the date the 
offeror received notice of its exclusion from the competition.
    (3) If the offeror does not submit a timely request, the offeror 
need not be given either a preaward or a postaward debriefing. Offerors 
are entitled to no more than one debriefing for each proposal.
    (b) The contracting officer shall make every effort to debrief the 
unsuccessful offeror as soon as practicable, but may refuse the request 
for a debriefing if, for compelling reasons, it is not in the best

[[Page 26670]]

interests of the Government to conduct a debriefing at that time. The 
rationale for delaying the debriefing shall be documented in the 
contract file. If the contracting officer delays the debriefing, it 
shall be provided no later than the time postaward debriefings are 
provided under 15.606. In that event, the contracting officer shall 
include the information at 15.606(d) in the debriefing.
    (c) Debriefings may be done orally, in writing, or by any other 
method acceptable to the contracting officer.
    (d) The contracting officer should normally chair any debriefing 
session held. Individuals who conducted the evaluations shall provide 
support.
    (e) At a minimum, preaward debriefings shall include--
    (1) The agency's evaluation of significant elements in the 
offeror's proposal;
    (2) A summary of the rationale for eliminating the offeror from the 
competition; and
    (3) Reasonable responses to relevant questions about whether source 
selection procedures contained in the solicitation, applicable 
regulations, and other applicable authorities were followed in the 
process of eliminating the offeror from the competition.
    (f) Preaward debriefings shall not disclose--
    (1) The number of offerors;
    (2) The identity of other offerors;
    (3) The content of other offerors' proposals;
    (4) The ranking of other offerors;
    (5) The evaluation of other offerors; or
    (6) Any of the information prohibited in 15.606(e).
    (g) An official summary of the debriefing shall be included in the 
contract file.


15.606  Postaward debriefing of offerors.

    (a)(1) An offeror, upon its written request received by the agency 
within 3 days after the date on which that offeror has received notice 
of contract award, shall be debriefed and furnished the basis for the 
selection decision and contract award.
    (2) To the maximum extent practicable, the debriefing should occur 
within 5 days after receipt of the written request.
    (3) An offeror that was notified of exclusion from the competition 
(15.605(a)), but failed to submit a timely request, is not entitled to 
a debriefing. Offerors that requested a postaward debriefing in lieu of 
a preaward debriefing, or whose debriefing was delayed for compelling 
reasons beyond contract award, shall be debriefed within this time 
period.
    (4)(i) Untimely debriefing requests may be accommodated.
    (ii) When accommodating a request for delayed debriefing pursuant 
to 15.605(a)(ii), the date the offeror knew or should have known the 
basis of its protest for purposes of 4 CFR 21.2(a)(2) shall be the date 
on which the offeror received notice of its exclusion from competition.
    (iii) When accommodating any untimely debriefing request, the date 
the offeror knew or should have known the basis for its protest for the 
purposes of 4 CFR 21.2(a)(2) shall be the earlier of the date on which 
the offeror received notice of its exclusion from further competition 
or the date the offeror received notice of award.
    (b) Debriefings of successful and unsuccessful offerors may be done 
orally, in writing, or by any other method acceptable to the 
contracting officer.
    (c) The contracting officer should normally chair any debriefing 
session held. Individuals who conducted the evaluations shall provide 
support.
    (d) At a minimum, the debriefing information shall include--
    (1) The Government's evaluation of the significant weaknesses or 
deficiencies in the offeror's proposal, if applicable;
    (2) The overall evaluated cost or price and technical rating, if 
applicable, of the successful offeror and the debriefed offeror 
(including unit prices);
    (3) The overall ranking of all offerors, when any ranking was 
developed by the agency during the source selection;
    (4) A summary of the rationale for award;
    (5) For acquisitions of commercial end items, the make and model of 
the item to be delivered by the successful offeror; and
    (6) Reasonable responses to relevant questions about whether source 
selection procedures contained in the solicitation, applicable 
regulations, and other applicable authorities were followed.
    (e) The debriefing shall not include point-by-point comparisons of 
the debriefed offeror's proposal with those of other offerors. 
Moreover, the debriefing shall not reveal any information exempt from 
release under the Freedom of Information Act (5 U.S.C. 552) including--
    (1) Trade secrets;
    (2) Privileged or confidential manufacturing processes and 
techniques;
    (3) Commercial and financial information that is privileged or 
confidential, including cost breakdowns, profit, indirect cost rates, 
and similar information; and
    (4) The names of individuals providing reference information about 
an offeror's past performance.
    (f) An official summary of the debriefing shall be included in the 
contract file.


15.607  Protests against award.

    (a) Protests against award in negotiated acquisitions shall be 
handled in accordance with part 33. Use of agency protest procedures 
that incorporate the alternative dispute resolution provisions of 
Executive Order 12979 is encouraged for both preaward and postaward 
protests.
    (b) If a protest causes the agency, within 1 year of contract 
award, to--
    (1) Issue a new solicitation on the protested contract award, the 
contracting officer shall provide the information in paragraph (c) of 
this section to all prospective offerors for the new solicitation; or
    (2) Issue a new request for revised proposals on the protested 
contract award, the contracting office shall provide the information in 
paragraph (c) of this section to offerors that were in the competitive 
range and are requested to submit revised proposals.
    (c) The following information will be provided to appropriate 
parties:
    (1) Information provided to unsuccessful offerors in any 
debriefings conducted on the original award about the successful 
offeror's proposal; and
    (2) Other nonproprietary information that would have been provided 
to the original offerors.


15.608  Discovery of mistakes.

    Mistakes in a contractor's proposal that are disclosed after award 
shall be processed substantially in accordance with the procedures for 
mistakes in bids at 14.407-4.


15.609  Forms.

    (a) Optional Form 307, Contract Award, may be used to award 
negotiated contracts. If the form or the Standard Form 26 is not used, 
the award document shall incorporate the agreement and award language 
from the form.
    (b) Standard Form 26, Award/Contract, also may be used to award 
negotiated contracts in which the signature of both parties on a single 
document is appropriate.

PART 16--TYPES OF CONTRACTS

    11. Section 16.306 is amended by revising paragraph (c) as follows:


16.306  Cost-plus-fixed-fee contracts.

* * * * *

[[Page 26671]]

    (c) Limitations. No cost-plus-fixed-fee contract shall be awarded 
unless all limitations in 16.301-3 are complied with.
* * * * *

PART 36--CONSTRUCTION AND ARCHITECT-ENGINEER CONTRACTS

    12. Section 36.520 is added to read as follows:


36.520  Contracting by negotiation.

    The contracting officer shall insert in solicitations for 
construction the provision at 52.236-28, Preparation of Offers--
Construction, when contracting by negotiation.

PART 42--CONTRACT ADMINISTRATION

    13. Section 42.1502 is amended by revising the first sentence of 
paragraph (a) to read as follows:


42.1502  Policy.

    (a) Except as provided in paragraph (b) of this section, agencies 
shall prepare an evaluation of contractor performance for each contract 
in excess of $1,000,000 (regardless of the date of contract award) and 
for each contract in excess of $100,000 beginning not later than 
January 1, 1998 (regardless of the date of contract award), at the time 
the work under the contract is completed. * * *
    14. Subpart 42.17 is added to read as follows:

Subpart 42.17--Forward Pricing Rate Agreements


42.1701  Procedures.

    (a) Negotiation of forward pricing rate agreements (FPRAs) may be 
requested by the contracting officer or the contractor or initiated by 
the administrative contracting officer (ACO). In determining whether or 
not to establish such an agreement, the ACO should consider whether the 
benefits to be derived from the agreement are commensurate with the 
effort of establishing and monitoring it. Normally, FPRAs should be 
negotiated only with contractors having a significant volume of 
Government contract proposals. The cognizant contract administration 
agency shall determine whether an FPRA will be established.
    (b) The ACO shall obtain the contractor's proposal and require that 
it include cost or pricing data that are accurate, complete, and 
current as of the date of submission. The ACO shall invite the 
cognizant contract auditor and contracting offices having a significant 
interest to participate in developing a Government objective and in the 
negotiations. Upon completing negotiations, the ACO shall prepare a 
price negotiation memorandum (PNM) (see 15.506-3) and forward copies of 
the PNM and FPRA to the cognizant auditor and to all contracting 
offices that are known to be affected by the FPRA. A Certificate of 
Current Cost or Pricing Data shall not be required at this time (see 
15.507-3(c)).
    (c) The FPRA shall provide specific terms and conditions covering 
expiration, application, and data requirements for systematic 
monitoring to assure the validity of the rates. The agreement shall 
provide for cancellation at the option of either party and shall 
require the contractor to submit to the ACO and to the cognizant 
contract auditor any significant change in cost or pricing data.

PART 43--CONTRACT MODIFICATIONS


43.301  [Amended]

    15. Section 43.301 is amended in paragraph (a)(1) by removing 
``shall'' and inserting ``may''.

PART 52--SOLICITATION PROVISIONS AND CONTRACT CLAUSES

    16. Section 52.212-1 is amended by revising the provision date and 
paragraph (f) to read as follows:


52.212-1  Instructions to Offerors--Commercial Items.

* * * * *

Instructions to Offerors--Commercial Items (Date)

* * * * *
    (f) Late offers. Offers or modifications of offers received at 
the address specified for the receipt of offers after the exact time 
specified for receipt of offers are ``late.'' Late proposals, 
modifications, and final revisions may be accepted by the 
Contracting Officer provided--
    (1) The Contracting Officer extends the due date for all 
offerors; or
    (2) The Contracting Officer determines in writing on the basis 
of a review of the circumstances that the lateness was caused by 
actions, or inactions, of the Government; or
    (3) In the judgment of the Contracting Officer, the offeror 
demonstrates by submission of factual information that the 
circumstances causing the late submission were beyond the immediate 
control of the offeror.
* * * * *
    17. Section 52.215-1 is added to read as follows:


52.215-1  Instructions to Offerors--Competitive Acquisition.

    As prescribed in 15.209(a), insert the following provision:

Instructions to Offerors--Competitive Acquisition (Date)

    (a) Definitions. (1) Time, if stated as a number of days, is 
calculated using calendar days, unless otherwise specified, and will 
include Saturdays, Sundays, and legal holidays. However, if the last 
day falls on a Saturday, Sunday, or legal holiday, then the period 
shall include the next working day.
    (2) In writing or written is any worded or numbered expression 
which can be read, reproduced, and later communicated, and includes 
electronically transmitted and stored information.
    (3) Proposal revision is a change to a proposal made after the 
solicitation closing date at the request of the Contracting Officer 
as the result of discussions.
    (4) Discussions are negotiations that occur after establishment 
of the competitive range that may, at the Contracting Officer's 
discretion, result in the offeror being allowed to revise its 
proposal.
    (5) Proposal modification is a change made to a proposal before 
the solicitation's closing date and time, made in response to an 
amendment, or made to correct a mistake at any time before award.
    (b) Amendments to solicitations. If this solicitation is 
amended, all terms and conditions that are not amended remain 
unchanged. Offerors shall acknowledge receipt of any amendment to 
this solicitation by the date and time specified in the 
amendment(s).
    (c) Submission, modification, revision, and withdrawal of 
proposals. (1) Unless other methods (e.g., electronic commerce or 
facsimile) are permitted in the solicitation, proposals and 
modifications to proposals shall be submitted in paper media in 
sealed envelopes or packages (i) addressed to the office specified 
in the solicitation, and (ii) showing the time and date specified 
for receipt, the solicitation number, and the name and address of 
the offeror. Offerors using commercial carriers should ensure that 
the proposal is marked on the outermost wrapper with the information 
in paragraphs (c)(1)(i) and (c)(1)(ii) of this provision.
    (2) The first page of the proposal must show--
    (i) The solicitation number;
    (ii) The name, address, and telephone and facsimile numbers of 
the offeror (and electronic address if available);
    (iii) A statement specifying the extent of agreement with all 
terms, conditions, and provisions included in the solicitation and 
agreement to furnish any or all items upon which prices are offered 
at the price set opposite each item;
    (iv) Names, titles, and telephone and facsimile numbers (and 
electronic addresses if available) of persons authorized to 
negotiate on the offeror's behalf with the Government in connection 
with this solicitation; and
    (v) Name, title, and signature of person authorized to sign the 
proposal. Proposals signed by an agent shall be accompanied by 
evidence of that agent's authority, unless that evidence has been 
previously furnished to the issuing office.
    (3) Offerors are responsible for submitting proposals, and any 
modifications or final

[[Page 26672]]

revisions, to the Government office designated in the solicitation 
on time. Unless the solicitation states a specific time, the time 
for receipt is 4:30 p.m., local time, at the designated Government 
office on the date that proposals or revisions are due. Proposals, 
modifications, or final revisions, that are received in the 
designated Government office after the time for receipt are 
``late.'' Late proposals, modifications, and final revisions may be 
accepted by the Contracting Officer provided--
    (i) The Contracting Officer extends the due date for all 
offerors; or
    (ii) The Contracting Officer determines in writing on the basis 
of a review of the circumstances that the lateness was caused by 
actions, or inactions, of the Government; or
    (iii) In the judgment of the Contracting Officer, the offeror 
demonstrates by submission of factual information that the 
circumstances causing the late submission were beyond the immediate 
control of the offeror.
    (4) Unless otherwise specified in the solicitation, the offeror 
may propose to provide any item or combination of items.
    (5) Proposals submitted in response to this solicitation shall 
be in English and in U.S. dollars, unless otherwise permitted by the 
solicitation.
    (6) Offerors may submit modifications to their proposals at any 
time before the solicitation closing date and time, and may submit 
modifications in response to an amendment, or to correct a mistake 
at any time before award.
    (7) Offerors may submit revised proposals only if requested by 
the Contracting Officer.
    (8) Proposals may be withdrawn at any time before award. 
Withdrawals are effective upon receipt of notice by the Contracting 
Officer.
    (d) Period for acceptance of proposals. Proposals in response to 
this solicitation will be valid for the number of days specified on 
the solicitation cover sheet (unless a different period is proposed 
by the offeror).
    (e) Restriction on disclosure and use of data. Offerors that 
include in their proposals data that they do not want disclosed to 
the public for any purpose, or used by the Government except for 
evaluation purposes, shall--
    (1) Mark the title page with the following legend:
    This proposal includes data that shall not be disclosed outside 
the Government and shall not be duplicated, used, or disclosed--in 
whole or in part-- for any purpose other than to evaluate this 
proposal. If, however, a contract is awarded to this offeror as a 
result of--or in connection with-- the submission of this data, the 
Government shall have the right to duplicate, use, or disclose the 
data to the extent provided in the resulting contract. This 
restriction does not limit the Government's right to use information 
contained in this data if it is obtained from another source without 
restriction. The data subject to this restriction are contained in 
sheets [insert numbers or other identification of sheets]; and
    (2) Mark each sheet of data it wishes to restrict with the 
following legend:
    Use or disclosure of data contained on this sheet is subject to 
the restriction on the title page of this proposal.
    (f) Contract award. (1) The Government intends to award a 
contract or contracts resulting from this solicitation to the 
responsible offeror(s) whose proposal(s) represents the best value 
after evaluation in accordance with the factors and subfactors in 
the solicitation.
    (2) The Government may reject any or all proposals if such 
action is in the Government's interest.
    (3) The Government may waive informalities and minor 
irregularities in proposals received.
    (4) The Government intends to evaluate proposals and award a 
contract without discussions with offerors (except communications as 
described in FAR 15.406(a)). Therefore, the offeror's initial 
proposal should contain the offeror's best terms from a cost or 
price and technical standpoint. The Government reserves the right to 
conduct discussions if the Contracting Officer later determines them 
to be necessary. If the Contracting Officer determines that the 
number of proposals that would otherwise be in the competitive range 
exceeds the number at which an efficient competition can be 
conducted, the Contracting Officer may limit the number of proposals 
in the competitive range to the greatest number that will permit an 
efficient competition among the most highly rated proposals.
    (5) The Government reserves the right to make an award on any 
item for a quantity less than the quantity offered, at the unit cost 
or prices offered, unless the offeror specifies otherwise in the 
proposal.
    (6) The Government reserves the right to make multiple awards 
if, after considering the additional administrative costs, it is in 
the Government's best interest to do so.
    (7) Communications with offerors after receipt of a proposal do 
not necessarily constitute a rejection or counteroffer by the 
Government.
    (8) The Government may determine that a proposal is unacceptable 
if the prices proposed are materially unbalanced between line items 
or subline items. Unbalanced pricing exists when, despite an 
acceptable total evaluated price, the price of one or more contract 
line items is significantly overstated or understated as indicated 
by the application of cost or price analysis techniques. A proposal 
may be rejected if the Contracting Officer determines that the lack 
of balance poses an unacceptable risk to the Government.
    (9) A written award or acceptance of proposal mailed or 
otherwise furnished to the successful offeror within the time 
specified in the proposal shall result in a binding contract without 
further action by either party.
    (10) The Government may disclose the following information in 
postaward debriefings to other offerors:
    (i) The overall evaluated cost or price and technical rating of 
the successful offeror;
    (ii) The overall ranking of all offerors, when any ranking was 
developed by the agency during source selection;
    (iii) A summary of the rationale for award; and
    (iv) For acquisitions of commercial end items, the make and 
model of the item to be delivered by the successful offeror.

(End of provision)

    Alternate I (DATE). As prescribed in 15.209(a), substitute the 
following paragraph (f)(4) for paragraph (f)(4) of the basic 
provision:
    (f)(4) The Government intends to evaluate proposals and award a 
contract after conducting discussions with offerors whose proposals 
have been determined to be within the competitive range. If the 
Contracting Officer determines that the number of proposals that 
would otherwise be in the competitive range exceeds the number at 
which an efficient competition can be conducted, the Contracting 
Officer may limit the number of proposals in the competitive range 
to the greatest number that will permit an efficient competition 
among the most highly rated proposals. Therefore, the offeror's 
initial proposal should contain the offeror's best terms from a 
price and technical standpoint.


52.215-2  [Amended]

    18. Section 52.215-2 is amended in the introductory text by 
removing the reference ``15.106(b)'' and inserting ``15.209(b)''.
    19. Sections 52.215-3 through 52.215-8 are revised to read as 
follows:


52.215-3  Request for Information or Solicitation for Planning 
Purposes.

    As prescribed in 15.209(c), insert the following provision:

Request for Information or Solicitation for Planning Purposes (Date)

    (a) The Government does not intend to award a contract on the 
basis of this solicitation or to otherwise pay for the information 
solicited except as provided in subsection 31.205-18, Bid and 
proposal costs, of the Federal Acquisition Regulation.
    (b) Although ``proposal'' and ``offeror'' are used in this 
Request for Information, your response will be treated as 
information only. It shall not be used as a proposal.
    (c) This solicitation is issued for the purpose of: [state 
purpose].

(End of provision)


52.215-4  Type of Business Organization.

    As prescribed in 15.209(d), insert the following provision:

Type of Business Organization (Date)

    The offeror or respondent, by checking the applicable box, 
represents that--
    (a) It operates as {time}  an individual, {time}  a partnership, 
{time}  a nonprofit organization, {time}  a joint venture, or a 
{time}  corporation incorporated under the laws of the State of 
________________,
    (b) If the offeror or respondent is a foreign entity, it 
operates as {time}  an individual, {time}  a partnership, {time}  a 
nonprofit organization, {time}  a joint venture, or {time}  a 
corporation, registered for business in ________________ (country).

(End of provision)

[[Page 26673]]

52.215-5  Facsimile Proposals.

    As prescribed in 15.209(e), insert the following provision:

Facsimile Proposals (Date)

    (a) Definition. Facsimile proposal, as used in this provision, 
means a proposal, revision or modification of a proposal, or 
withdrawal of a proposal that is transmitted to and received by the 
Government via facsimile machine.
    (b) Offerors may submit facsimile proposals as responses to this 
solicitation. Facsimile proposals are subject to the same rules as 
paper proposals.
    (c) The telephone number of receiving facsimile equipment is: 
[insert telephone number].
    (d) If a facsimile proposal received by the Contracting Officer 
is unreadable to the degree that conformance to the essential 
requirements of the solicitation cannot be ascertained from the 
document--
    (1) The Contracting Officer immediately shall notify the offeror 
and permit the offeror to resubmit the proposal;
    (2) The method and time for resubmission shall be prescribed by 
the Contracting Officer after consultation with the offeror; and
    (3) The resubmission shall be considered as if it were received 
at the date and time of the original unreadable submission for the 
purpose of determining timeliness, provided the offeror complies 
with the time and format requirements for resubmission prescribed by 
the Contracting Officer.
    (e) The Government reserves the right to make award solely on 
the facsimile proposal. However, if requested to do so by the 
Contracting Officer, the apparently successful offeror promptly 
shall submit the complete original signed proposal.

(End of provision)


52.215-6  Place of Performance.

    As prescribed in 15.209(f), insert the following provision:

Place of Performance (Date)

    (a) The offeror or respondent, in the performance of any 
contract resulting from this solicitation, {time}  intends, {time}  
does not intend [check applicable block] to use one or more plants 
or facilities located at a different address from the address of the 
offeror or respondent as indicated in this proposal or quotation.
    (b) If the offeror or respondent checks ``intends'' in paragraph 
(a) of this provision, it shall insert in the following spaces the 
required information:

Place of Performance (Street Address, City, State, Zip Code)

----------------------------------------------------------------------

----------------------------------------------------------------------
Name and Address of Owner and Operator of the Plant County, or 
Facility if Other than Offeror

----------------------------------------------------------------------

----------------------------------------------------------------------

(End of provision)


52.215-7  Annual Representations and Certifications--Negotiation.

    As prescribed in 15.209(g), insert the following provision:

Annual Representations and Certifications--Negotiation (Date)

    The offeror certifies that annual representations and 
certifications [check the appropriate block]:
    {time}  (a) Dated __________ [insert date of signature on 
submission] that are incorporated herein by reference, have been 
submitted to the contracting office issuing this solicitation and 
that the submittal is current, accurate, and complete as of the date 
of this proposal, except as follows [insert changes that affect only 
this proposal; if ``none,'' so state]:
    {time}  (b) Are enclosed.

(End of provision)


52.215-8  Order of Precedence--Uniform Contract Format.

    As prescribed in 15.209(h), insert the following clause:

Order of Precedence--Uniform Contract Format (Date)

    Any inconsistency in this solicitation or contract shall be 
resolved by giving precedence in the following order:
    (a) The Schedule (excluding the specifications).
    (b) Performance requirements (including the specifications and 
special terms and conditions negotiated for the contract).
    (c) Other documents, exhibits, and attachments.
    (d) Contract clauses.
    (e) Representations and other instructions.

(End of clause)


52.215-9 through 52.215-20  [Removed and Reserved]

    20. Sections 52.215-9 through 52.215-20 are removed and reserved.
    21. Sections 52.215-21 through 52.215-27 are revised to read as 
follows:


52.215-21  Changes or Additions to Make-or-Buy Program.

    As prescribed in 15.508(a), insert the following clause:

Changes or Additions to Make-or-Buy Program (Date)

    (a) The Contractor shall perform in accordance with the make-or-
buy program incorporated in this contract. If the Contractor 
proposes to change the program, the Contractor shall, reasonably in 
advance of the proposed change, (1) notify the Contracting Officer 
in writing, and (2) submit justification in sufficient detail to 
permit evaluation. Changes in the place of performance of any 
``make'' items in the program are subject to this requirement.
    (b) For items deferred at the time of negotiation of this 
contract for later addition to the program, the Contractor shall, at 
the earliest possible time--
    (1) Notify the Contracting Officer of each proposed addition; 
and
    (2) Provide justification in sufficient detail to permit 
evaluation.
    (c) Modification of the make-or-buy program to incorporate 
proposed changes or additions shall be effective upon the 
Contractor's receipt of the Contracting Officer's written approval.

(End of clause)

    Alternate I (Date). As prescribed in 15.508(a)(1) add the 
following paragraph (d) to the basic clause:
    (d) If the Contractor desires to reverse the categorization of 
``make'' or ``buy'' for any item or items designated in the contract 
as subject to this paragraph, it shall--
    (1) Support its proposal with cost or pricing data when 
permitted and necessary to support evaluation, and
    (2) After approval is granted, promptly negotiate with the 
Contracting Officer an equitable reduction in the contract price in 
accordance with paragraph (k) of the Incentive Price Revision--Firm 
Target clause or paragraph (m) of the Incentive Price Revision--
Successive Targets clause of this contract.
    Alternate II (Date). As prescribed in 15.508(a)(2), add the 
following paragraph (d) to the basic clause:
    (d) If the Contractor desires to reverse the categorization of 
``make'' or ``buy'' for any item or items designated in the contract 
as subject to this paragraph, it shall--
    (1) Support its proposal with cost or pricing data to permit 
evaluation; and
    (2) After approval is granted, promptly negotiate with the 
Contracting Officer an equitable reduction in the contract's total 
estimated cost and fee in accordance with paragraph (e) of the 
Incentive Fee clause of this contract.


52.215-22  Price Reduction for Defective Cost or Pricing Data.

    As prescribed in 15.508(b), insert the following clause:

Price Reduction for Defective Cost or Pricing Data (Date)

    (a) If any price, including profit or fee, negotiated in 
connection with this contract, or any cost reimbursable under this 
contract, was increased by any significant amount because--
    (1) the Contractor or a subcontractor furnished cost or pricing 
data that were not complete, accurate, and current as certified in 
its Certificate of Current Cost or Pricing Data;
    (2) a subcontractor or prospective subcontractor furnished the 
Contractor cost or pricing data that were not complete, accurate, 
and current as certified in the Contractor's Certificate of Current 
Cost or Pricing Data; or
    (3) any of these parties furnished data of any description that 
were not accurate, the price or cost shall be reduced accordingly 
and the contract shall be modified to reflect the reduction.
    (b) Any reduction in the contract price under paragraph (a) of 
this clause due to defective data from a prospective subcontractor 
that was not subsequently awarded the subcontract shall be limited 
to the amount, plus applicable overhead and profit markup, by 
which--
    (1) The actual subcontract; or

[[Page 26674]]

    (2) The actual cost to the Contractor, if there was no 
subcontract, was less than the prospective subcontract cost estimate 
submitted by the Contractor; provided, that the actual subcontract 
price was not itself affected by defective cost or pricing data.
    (c)(1) If the Contracting Officer determines under paragraph (a) 
of this clause that a price or cost reduction should be made, the 
Contractor agrees not to raise the following matters as a defense:
    (i) The Contractor or subcontractor was a sole source supplier 
or otherwise was in a superior bargaining position and thus the 
price of the contract would not have been modified even if accurate, 
complete, and current cost or pricing data had been submitted.
    (ii) The Contracting Officer should have known that the cost or 
pricing data in issue were defective even though the Contractor or 
subcontractor took no affirmative action to bring the character of 
the data to the attention of the Contracting Officer.
    (iii) The contract was based on an agreement about the total 
cost of the contract and there was no agreement about the cost of 
each item procured under the contract.
    (iv) The Contractor or subcontractor did not submit a 
Certificate of Current Cost or Pricing Data.
    (2)(i) Except as prohibited by subdivision (c)(2)(ii) of this 
clause, an offset in an amount determined appropriate by the 
Contracting Officer based upon the facts shall be allowed against 
the amount of a contract price reduction if--
    (A) The Contractor certifies to the Contracting Officer that, to 
the best of the Contractor's knowledge and belief, the Contractor is 
entitled to the offset in the amount requested; and
    (B) The Contractor proves that the cost or pricing data were 
available before the date of agreement on the price of the contract 
(or price of the modification), or an earlier date agreed upon by 
the parties, and that the data were not submitted before such date.
    (ii) An offset shall not be allowed if--
    (A) The understated data were known by the Contractor to be 
understated when the Certificate of Current Cost or Pricing Data was 
signed; or
    (B) The Government proves that the facts demonstrate that the 
contract price would not have increased in the amount to be offset 
even if the available data had been submitted before the date of 
agreement on price or an earlier date agreed upon by the parties.
    (d) If any reduction in the contract price under this clause 
reduces the price of items for which payment was made prior to the 
date of the modification reflecting the price reduction, the 
Contractor shall be liable to and shall pay the United States at the 
time such overpayment is repaid--
    (1) Simple interest on the amount of such overpayment to be 
computed from the date(s) of overpayment to the Contractor to the 
date the Government is repaid by the Contractor at the applicable 
underpayment rate effective for each quarter prescribed by the 
Secretary of the Treasury under 26 U.S.C. 6621(a)(2); and
    (2) A penalty equal to the amount of the overpayment, if the 
Contractor or subcontractor knowingly submitted cost or pricing data 
that were incomplete, inaccurate, or noncurrent.

(End of clause)


52.215-23  Price Reduction for Defective Cost or Pricing Data--
Modifications.

    As prescribed in 15.508(c), insert the following clause:

Price Reduction for Defective Cost or Pricing Data--Modifications 
(Date)

    (a) This clause shall become operative only for any modification 
to this contract involving a pricing adjustment expected to exceed 
the threshold for submission of cost or pricing data at FAR 15.503-
4, except that this clause does not apply to any modification if an 
exception under FAR 15.503-1 applies.
    (b) If any price, including profit or fee, negotiated in 
connection with any modification under this clause, or any cost 
reimbursable under this contract, was increased by any significant 
amount because (1) the Contractor or a subcontractor furnished cost 
or pricing data that were not complete, accurate, and current as 
certified in its Certificate of Current Cost or Pricing Data, (2) a 
subcontractor or prospective subcontractor furnished the Contractor 
cost or pricing data that were not complete, accurate, and current 
as certified in the Contractor's Certificate of Current Cost or 
Pricing Data, or (3) any of these parties furnished data of any 
description that were not accurate, the price or cost shall be 
reduced accordingly and the contract shall be modified to reflect 
the reduction. This right to a price reduction is limited to that 
resulting from defects in data relating to modifications for which 
this clause becomes operative under paragraph (a) of this clause.
    (c) Any reduction in the contract price under paragraph (b) of 
this clause due to defective data from a prospective subcontractor 
that was not subsequently awarded the subcontract shall be limited 
to the amount, plus applicable overhead and profit markup, by 
which--
    (1) The actual subcontract; or
    (2) The actual cost to the Contractor, if there was no 
subcontract, was less than the prospective subcontract cost estimate 
submitted by the Contractor; provided, that the actual subcontract 
price was not itself affected by defective cost or pricing data.
    (d)(1) If the Contracting Officer determines under paragraph (b) 
of this clause that a price or cost reduction should be made, the 
Contractor agrees not to raise the following matters as a defense:
    (i) The Contractor or subcontractor was a sole source supplier 
or otherwise was in a superior bargaining position and thus the 
price of the contract would not have been modified even if accurate, 
complete, and current cost or pricing data had been submitted.
    (ii) The Contracting Officer should have known that the cost or 
pricing data in issue were defective even though the Contractor or 
subcontractor took no affirmative action to bring the character of 
the data to the attention of the Contracting Officer.
    (iii) The contract was based on an agreement about the total 
cost of the contract and there was no agreement about the cost of 
each item procured under the contract.
    (iv) The Contractor or subcontractor did not submit a 
Certificate of Current Cost or Pricing Data.
    (2)(i) Except as prohibited by subdivision (d)(2)(ii) of this 
clause, an offset in an amount determined appropriate by the 
Contracting Officer based upon the facts shall be allowed against 
the amount of a contract price reduction if--
    (A) The Contractor certifies to the Contracting Officer that, to 
the best of the Contractor's knowledge and belief, the Contractor is 
entitled to the offset in the amount requested; and
    (B) The Contractor proves that the cost or pricing data were 
available before the date of agreement on the price of the contract 
(or price of the modification), or an earlier date agreed upon by 
the parties, and that the data were not submitted before such date.
    (ii) An offset shall not be allowed if--
    (A) The understated data were known by the Contractor to be 
understated when the Certificate of Current Cost or Pricing Data was 
signed; or
    (B) The Government proves that the facts demonstrate that the 
contract price would not have increased in the amount to be offset 
even if the available data had been submitted before the date of 
agreement on price, or an earlier date agreed upon by the parties.
    (e) If any reduction in the contract price under this clause 
reduces the price of items for which payment was made prior to the 
date of the modification reflecting the price reduction, the 
Contractor shall be liable to and shall pay the United States at the 
time such overpayment is repaid--
    (1) Simple interest on the amount of such overpayment to be 
computed from the date(s) of overpayment to the Contractor to the 
date the Government is repaid by the Contractor at the applicable 
underpayment rate effective for each quarter prescribed by the 
Secretary of the Treasury under 26 U.S.C. 6621(a)(2); and
    (2) A penalty equal to the amount of the overpayment, if the 
Contractor or subcontractor knowingly submitted cost or pricing data 
that were incomplete, inaccurate, or noncurrent.

(End of clause)


52.215-24  Subcontractor Cost or Pricing Data.

    As prescribed in 15.508(d), insert the following clause:

Subcontractor Cost or Pricing Data (Date)

    (a) Before awarding any subcontract expected to exceed the 
threshold for submission of cost or pricing data at FAR 15.503-4, on 
the date of agreement on price or the date of award, whichever is 
later; or before pricing any subcontract modification involving a 
pricing adjustment expected to exceed the threshold for submission 
of cost or pricing data at FAR 15.503-4, the Contractor shall 
require the subcontractor to submit cost or pricing data (actually 
or by specific identification in writing), unless an exception under 
FAR 15.503-1 applies.
    (b) The Contractor shall require the subcontractor to certify in 
substantially the

[[Page 26675]]

form prescribed in FAR 15.506-2 that, to the best of its knowledge 
and belief, the data submitted under paragraph (a) of this clause 
were accurate, complete, and current as of the date of agreement on 
the negotiated price of the subcontract or subcontract modification.
    (c) In each subcontract that exceeds the threshold for 
submission of cost or pricing data at FAR 15.503-4, when entered 
into, the Contractor shall insert either--
    (1) The substance of this clause, including this paragraph (c), 
if paragraph (a) of this clause requires submission of cost or 
pricing data for the subcontract; or
    (2) The substance of the clause at FAR 52.215-25, Subcontractor 
Cost or Pricing Data--Modifications.

(End of clause)


52.215-25  Subcontractor Cost or Pricing Data--Modifications.

    As prescribed in 15.508(e), insert the following clause:

Subcontractor Cost or Pricing Data--Modifications (Date)

    (a) The requirements of paragraphs (b) and (c) of this clause 
shall--
    (1) Become operative only for any modification to this contract 
involving a pricing adjustment expected to exceed the threshold for 
submission of cost or pricing data at FAR 15.503-4; and
    (2) Be limited to such modifications.
    (b) Before awarding any subcontract expected to exceed the 
threshold for submission of cost or pricing data at FAR 15.503-4, on 
the date of agreement on price or the date of award, whichever is 
later; or before pricing any subcontract modification involving a 
pricing adjustment expected to exceed the threshold for submission 
of cost or pricing data at FAR 15.503-4, the Contractor shall 
require the subcontractor to submit cost or pricing data (actually 
or by specific identification in writing), unless an exception under 
FAR 15.503-1 applies.
    (c) The Contractor shall require the subcontractor to certify in 
substantially the form prescribed in FAR 15.506-2 that, to the best 
of its knowledge and belief, the data submitted under paragraph (b) 
of this clause were accurate, complete, and current as of the date 
of agreement on the negotiated price of the subcontract or 
subcontract modification.
    (d) The Contractor shall insert the substance of this clause, 
including this paragraph (d), in each subcontract that exceeds the 
threshold for submission of cost or pricing data at FAR 15.503-4 on 
the date of agreement on price or the date of award, whichever is 
later.

(End of clause)


52.215-26  Integrity of Unit Prices.

    As prescribed in 15.508(f), insert the following clause:

Integrity of Unit Prices (Date)

    (a) Any proposal submitted for the negotiation of prices for 
items of supplies shall distribute costs within contracts on a basis 
that ensures that unit prices are in proportion to the items' base 
cost (e.g., manufacturing or acquisition costs). Any method of 
distributing costs to line items that distorts unit prices shall not 
be used. For example, distributing costs equally among line items is 
not acceptable except when there is little or no variation in base 
cost. Nothing in this paragraph requires submission of cost or 
pricing data not otherwise required by law or regulation.
    (b) When requested by the Contracting Officer, the Offeror/
Contractor shall also identify those supplies that it will not 
manufacture or to which it will not contribute significant value.
    (c) The Contractor shall insert the substance of this clause, 
less paragraph (b), in all subcontracts for other than: acquisitions 
at or below the simplified acquisition threshold; construction or 
architect-engineer services under FAR Part 36; utility services 
under FAR Part 41; services where supplies are not required; 
commercial items; and petroleum products.

(End of clause)

    Alternate I (Date). As prescribed in 15.508(f), substitute the 
following paragraph (b) for paragraph (b) of the basic clause:
    (b) The Offeror/Contractor shall also identify those supplies 
that it will not manufacture or to which it will not contribute 
significant value.


52.215-27  Termination of Defined Benefit Pension Plans.

    As prescribed in 15.508(g), insert the following clause:

Termination of Defined Benefit Pension Plans (Date)

    The Contractor shall promptly notify the Contracting Officer in 
writing when it determines that it will terminate a defined benefit 
pension plan or otherwise recapture such pension fund assets. If 
pension fund assets revert to the Contractor or are constructively 
received by it under a termination or otherwise, the Contractor 
shall make a refund or give a credit to the Government for its 
equitable share as required by FAR 31.205-6(j)(4). The Contractor 
shall include the substance of this clause in all subcontracts under 
this contract that meet the applicability requirement of FAR 
15.508(c).

(End of clause)


52.215-30  [Amended]

    22. Section 52.215-30 is amended in the introductory text by 
removing the reference ``15.904(a)'' and inserting ``15.508(h)''.


52.215-31  [Amended]

    23. Section 52.215-31 is amended in the introductory text by 
removing the reference ``15.904(b)'' and inserting ``15.508(i)''.
    24. Sections 52.215-39 through 52.215-42 are revised to read as 
follows:


52.215-39  Reversion or Adjustment of Plans for Postretirement Benefits 
(PRB) Other Than Pensions.

    As prescribed in 15.508(j), insert the following clause:

Reversion or Adjustment of Plans for Postretirement Benefits (PRB) 
Other Than Pensions (Date)

    The Contractor shall promptly notify the Contracting Officer in 
writing when it determines that it will terminate or reduce a PRB 
plan. If PRB fund assets revert, or inure, to the Contractor or are 
constructively received by it under a plan termination or otherwise, 
the Contractor shall make a refund or give a credit to the 
Government for its equitable share as required by FAR 31.205-
6(o)(6). The Contractor shall include the substance of this clause 
in all subcontracts under this contract that meet the applicability 
requirements of FAR 15.508(c). The resulting adjustment to prior 
years' PRB costs will be determined and applied in accordance with 
FAR 31.205-6(o).

(End of clause)


52.215-40  Notification of Ownership Changes.

    As prescribed in 15.508(k), insert the following clause:

Notification of Ownership Changes (Date)

    (a) The Contractor shall make the following notifications in 
writing:
    (1) When the Contractor becomes aware that a change in its 
ownership has occurred, or is certain to occur, that could result in 
changes in the valuation of its capitalized assets in the accounting 
records, the Contractor shall notify the Administrative Contracting 
Officer (ACO) within 30 days.
    (2) The Contractor shall also notify the ACO within 30 days 
whenever changes to asset valuations or any other cost changes have 
occurred or are certain to occur as a result of a change in 
ownership.
    (b) The Contractor shall--
    (1) Maintain current, accurate, and complete inventory records 
of assets and their costs;
    (2) Provide the ACO or designated representative ready access to 
the records upon request;
    (3) Ensure that all individual and grouped assets, their 
capitalized values, accumulated depreciation or amortization, and 
remaining useful lives are identified accurately before and after 
each of the Contractor's ownership changes; and
    (4) Retain and continue to maintain depreciation and 
amortization schedules based on the asset records maintained before 
each Contractor ownership change.
    (c) The Contractor shall include the substance of this clause in 
all subcontracts under this contract that meet the applicability 
requirement of FAR 15.508(k).

(End of clause)


52.215-41  Requirements for Cost or Pricing Data or Information Other 
Than Cost or Pricing Data.

    As prescribed in 15.508(l), insert the following provision:

Requirements for Cost or Pricing Data or Information Other Than Cost or 
Pricing Data (Date)

    (a) Exceptions from cost or pricing data. (1) In lieu of 
submitting cost or pricing data, offerors may submit a written 
request for

[[Page 26676]]

exception by submitting the information described in the following 
subparagraphs. The Contracting Officer may require additional 
supporting information, but only to the extent necessary to 
determine whether an exception should be granted, and whether the 
price is fair and reasonable.
    (i) Identification of the law or regulation establishing the 
price offered. If the price is controlled under law by periodic 
rulings, reviews, or similar actions of a governmental body, attach 
a copy of the controlling document, unless it was previously 
submitted to the contracting office.
    (ii) For a commercial item exception, the offeror shall submit, 
at a minimum, information on prices at which the same item or 
similar items have previously been sold in the commercial market 
that is adequate for evaluating the reasonableness of the price for 
this acquisition. Such information may include--
    (A) For catalog items, a copy of or identification of the 
catalog and its date, or the appropriate pages for the offered 
items, or a statement that the catalog is on file in the buying 
office to which the proposal is being submitted. Provide a copy or 
describe current discount policies and price lists (published or 
unpublished), e.g., wholesale, original equipment manufacturer, or 
reseller. Also explain the basis of each offered price and its 
relationship to the established catalog price, including how the 
proposed price relates to the price of recent sales in quantities 
similar to the proposed quantities;
    (B) For market-priced items, the source and date or period of 
the market quotation or other basis for market price, the base 
amount, and applicable discounts. In addition, describe the nature 
of the market;
    (C) For items included on an active Federal Supply Service or 
Information Technology Service Multiple Award Schedule contract, 
proof that an exception has been granted for the schedule item.
    (2) The offeror grants the Contracting Officer or an authorized 
representative the right to examine, at any time before award, 
books, records, documents, or other directly pertinent records to 
verify any request for an exception under this provision, and the 
reasonableness of price. Access does not extend to cost or profit 
information or other data relevant solely to the offeror's 
determination of the prices to be offered in the catalog or 
marketplace.
    (b) Requirements for cost or pricing data. If the offeror is not 
granted an exception from the requirement to submit cost or pricing 
data, the following applies:
    (1) The offeror shall prepare and submit cost or pricing data 
and supporting attachments in accordance with FAR Table 15-2.
    (2) As soon as practicable after agreement on price, but before 
contract award (except for unpriced actions such as letter 
contracts), the offeror shall submit a Certificate of Current Cost 
or Pricing Data, as prescribed by FAR 15.506-2.

(End of clause)

    Alternate I (DATE). As prescribed in 15.508(l), substitute the 
following paragraph (b)(1) for paragraph (b)(1) of the basic 
provision:
    (b)(1) The offeror shall submit cost or pricing data and 
supporting attachments in the following format:
    Alternate II (DATE). As prescribed in 15.508(l), add the 
following paragraph (c) to the basic provision:
    (c) When the proposal is submitted, also submit one copy each 
to: (1) The Administrative Contracting Officer, and (2) the Contract 
Auditor.
    Alternate III (DATE). As prescribed in 15.508(l), add the 
following paragraph (c) to the basic provision (if Alternate II is 
also used, redesignate as paragraph (d)).
    (c) Submit the cost portion of the proposal via the following 
electronic media: [Insert media format, e.g., electronic spreadsheet 
format, electronic mail, etc.]
    Alternate IV (DATE). As prescribed in 15.508(l), replace the 
text of the basic provision with the following:
    (a) Submission of cost or pricing data is not required.
    (b) Provide information described below: [Insert description of 
the information and the format that are required, including access 
to records necessary to permit an adequate evaluation of the 
proposed price in accordance with 15.503-3.]


52.215-42  Requirements for Cost or Pricing Data or Information Other 
Than Cost or Pricing Data--Modifications.

    As prescribed in 15.508(m), insert the following clause:

Requirements for Cost or Pricing Data or Information Other Than Cost or 
Pricing Data--Modifications (Date)

    (a) Exceptions from cost or pricing data. (1) In lieu of 
submitting cost or pricing data for modifications under this 
contract, for price adjustments expected to exceed the threshold set 
forth at FAR 15.503-4 on the date of the agreement on price or the 
date of the award, whichever is later, the Contractor may submit a 
written request for exception by submitting the information 
described in the following subparagraphs. The Contracting Officer 
may require additional supporting information, but only to the 
extent necessary to determine whether an exception should be 
granted, and whether the price is fair and reasonable--
    (i) Identification of the law or regulation establishing the 
price offered. If the price is controlled under law by periodic 
rulings, reviews, or similar actions of a governmental body, attach 
a copy of the controlling document, unless it was previously 
submitted to the contracting office.
    (ii) Information on modifications of contracts or subcontracts 
for commercial items. (A) If--
    (1) The original contract or subcontract was granted an 
exception from cost or pricing data requirements because the price 
agreed upon was based on adequate price competition or prices set by 
law or regulation, or was a contract or subcontract for the 
acquisition of a commercial item; and
    (2) The modification (to the contract or subcontract) is not 
exempted based on one of these exceptions, then the Contractor may 
provide information to establish that the modification would not 
change the contract or subcontract from a contract or subcontract 
for the acquisition of a commercial item to a contract or 
subcontract for the acquisition of an item other than a commercial 
item.
    (B) For a commercial item exception, the Contractor shall 
provide, at a minimum, information on prices at which the same item 
or similar items have previously been sold that is adequate for 
evaluating the reasonableness of the price of the modification. Such 
information may include--
    (1) For catalog items, a copy of or identification of the 
catalog and its date, or the appropriate pages for the offered 
items, or a statement that the catalog is on file in the buying 
office to which the proposal is being submitted. Provide a copy or 
describe current discount policies and price lists (published or 
unpublished), e.g., wholesale, original equipment manufacturer, or 
reseller. Also explain the basis of each offered price and its 
relationship to the established catalog price, including how the 
proposed price relates to the price of recent sales in quantities 
similar to the proposed quantities.
    (2) For market-priced items, the source and date or period of 
the market quotation or other basis for market price, the base 
amount, and applicable discounts. In addition, describe the nature 
of the market.
    (3) For items included on an active Federal Supply Service or 
Information Technology Service Multiple Award Schedule contract, 
proof that an exception has been granted for the schedule item.
    (2) The Contractor grants the Contracting Officer or an 
authorized representative the right to examine, at any time before 
award, books, records, documents, or other directly pertinent 
records to verify any request for an exception under this clause, 
and the reasonableness of price. Access does not extend to cost or 
profit information or other data relevant solely to the Contractor's 
determination of the prices to be offered in the catalog or 
marketplace.
    (b) Requirements for cost or pricing data. If the Contractor is 
not granted an exception from the requirement to submit cost or 
pricing data, the following applies:
    (1) The Contractor shall submit cost or pricing data and 
supporting attachments in accordance with FAR Table 15-2.
    (2) As soon as practicable after agreement on price, but before 
award (except for unpriced actions), the Contractor shall submit a 
Certificate of Current Cost or Pricing Data, as prescribed by FAR 
15.506-2.

(End of clause)

    Alternate I (DATE). As prescribed in 15.508(m), substitute the 
following paragraph (b)(1) for paragraph (b)(1) of the basic clause.
    (b)(1) The Contractor shall submit cost or pricing data and 
supporting attachments prepared in the following format:
    Alternate II (DATE). As prescribed in 15.508(m), add the 
following paragraph (c) to the basic clause:
    (c) When the proposal is submitted, also submit one copy each 
to: (1) the Administrative Contracting Officer, and (2) the Contract 
Auditor.
    Alternate III (DATE). As prescribed in 15.508(m), add the 
following paragraph (c) to the basic clause (if Alternate II is also 
used, redesignate as paragraph (d)):

[[Page 26677]]

    (c) Submit the cost portion of the proposal via the following 
electronic media: [Insert media format]
    Alternate IV (DATE). As prescribed in 15.508(m), replace the 
text of the basic clause with the following:
    (a) Submission of cost or pricing data is not required.
    (b) Provide information described below: [Insert description of 
the information and the format that are required, including access 
to records necessary to permit an adequate evaluation of the 
proposed price in accordance with 15.503-3.]
    25. Section 52.236-28 is added to read as follows:


52.236-28  Preparation of Proposals--Construction.

    As prescribed in 36.520, insert the following provision:

Preparation of Proposals--Construction (Date)

    (a) Proposals must be (1) submitted on the forms furnished by 
the Government or on copies of those forms, and (2) manually signed. 
The person signing a proposal must initial each erasure or change 
appearing on any proposal form.
    (b) The proposal form may require offerors to submit proposed 
prices for one or more items on various bases, including--
    (1) Lump sum price;
    (2) Alternate prices;
    (3) Units of construction; or
    (4) Any combination of paragraphs (b)(1) through (b)(3) of this 
provision.
    (c) If the solicitation requires submission of a proposal on all 
items, failure to do so may result in the proposal being rejected 
without further consideration. If a proposal on all items is not 
required, offerors should insert the words ``no proposal'' in the 
space provided for any item on which no price is submitted.
    (d) Alternate proposals will not be considered unless this 
solicitation authorizes their submission.

(End of provision)

PART 53--FORMS

    26. Section 53.213 is amended by revising paragraph (a) to read as 
follows:


53.213  Simplified acquisition procedures (SFs 18, 30, 44, 1165, and 
1449, and OFs 336, 347 and 348).

* * * * *
    (a) SF 18 (REV. 6/95), Request for Quotations, or SF 1449 (10/95 
Ed.), Solicitation/Contract/Order for Commercial Items. SF 18 is 
prescribed for use in obtaining price, cost, delivery, and related 
information from suppliers as specified in 13.107. SF 1449, as 
prescribed in 53.212, or other agency forms/automated formats, may also 
be used to obtain price, cost, delivery, and related information from 
suppliers as specified in 13.107.
* * * * *
    27. Section 53.214 is amended by revising the first sentence of 
paragraph (a) and the first sentence of paragraph (d) to read as 
follows:


53.214 Sealed bidding.

* * * * *
    (a) SF 26, Award/Contract. SF 26 is prescribed for use in awarding 
sealed bid contracts for supplies or services in which bids were 
obtained on SF 33, Solicitation, Offer, and Award, as specified in 
14.408-1(d)(1). * * *
* * * * *
    (d) SF 1447 (5/88), Solicitation/Contract. SF 1447 is prescribed 
for use in soliciting supplies or services and for awarding contracts 
that result from the bids. * * *
    28. Section 53.215-1 is revised to read as follows:


53.215-1  Solicitation and receipt of proposals and quotations.

    The following forms are prescribed, as stated in the following 
paragraphs, for use in contracting by negotiation (except for 
construction, architect-engineer services, or acquisitions made using 
simplified acquisition procedures):
    (a) SF 26 (REV. 4/85), Award/Contract. SF 26, prescribed in 
53.214(a), may be used in entering into negotiated contracts in which 
the signature of both parties on a single document is appropriate, as 
specified in 15.609(b).
    (b) SF 30 (REV. 10/83), Amendment of Solicitation/Modification of 
Contract. SF 30, prescribed in 53.243, may be used for amending 
requests for proposals and for amending requests for information, as 
specified in 15.210(c).
    (c) SF 33 (REV. 4/85), Solicitation, Offer, and Award. SF 33, 
prescribed in 53.214(c), may be used in connection with the 
solicitation and award of negotiated contracts. Award of such contracts 
may be made by either OF 307, SF 33, or SF 26, as specified in 
53.214(c) and 15.609 (a) and (b).
    (d) OF 17 (REV. 12/93), Offer Label. OF 17 may be furnished with 
each request for proposals to facilitate identification and handling of 
proposals, as specified in 15.210(d).
    (e) OF 307 (XX/97), Contract Award. OF 307 may be used to award 
negotiated contracts as specified in 15.609(a).
    (f) OF 308 (XX/97), Solicitation and Offer-Negotiated Acquisition. 
OF 308 may be used to support solicitation of negotiated contracts as 
specified in 15.210(a). Award of such contracts may be made by OF 307, 
as specified in 15.609(a).
    (g) OF 309 (XX/97), Amendment of Solicitation. OF 309 may be used 
to amend solicitations of negotiated contracts, as specified in 
15.210(b).
    29. Section 53.243 is amended by revising the introductory 
paragraph to read as follows:


53.243  Contract modifications (SF 30).

    SF 30 (REV 10/83), Amendment of Solicitation/Modification of 
Contract. SF 30 is prescribed for use in--
    (a) Amending invitation for bids, as specified in 14.208;
    (b) Modifying purchase and delivery orders, as specified in 
13.503(b); and
    (c) Modifying contracts, as specified in 42.1203(f), 43.301, 
49.602-5, and elsewhere in this chapter. The form may also be used to 
amend solicitations for negotiated contracts, as specified in 
15.210(c). Pending the publication of a new edition of the form, 
Instruction (b), Item 3 (effective date), is revised in paragraphs (3) 
and (5) as follows:
* * * * *
    30. Sections 53.302-307 through 53.302-309 are added to read as 
follows:
BILLING CODE 6820-EP-U

[[Page 26678]]

53.302-307  Optional Form 307, Contract Award.
[GRAPHIC] [TIFF OMITTED] TP14MY97.000


BILLING CODE 6820-EP-C

[[Page 26679]]

53.302-308  Optional Form 308, Solicitation and Offer--Negotiated 
Acquisition.
[GRAPHIC] [TIFF OMITTED] TP14MY97.001


BILLING CODE 6820-EP-C

[[Page 26680]]

53.302-309  Optional Form 309, Amendment of Solicitation.
[GRAPHIC] [TIFF OMITTED] TP14MY97.002


BILLING CODE 6820-EP-C

[[Page 26681]]

Chapter 1--[Amended]

    31. In the following table, revise the references as follows:

------------------------------------------------------------------------
          Location                   Remove                Insert       
------------------------------------------------------------------------
1.106.......................  15.106..............  15.209.             
1.106.......................  15.404..............  15.2.               
1.106.......................  52.215-6............  52.215-4.           
1.106.......................  52.215-11...........  52.215-1(c)(2)(iv). 
1.106.......................  52.215-19...........  52.215-1(d).        
1.106.......................  52.215-20...........  52.215-6.           
2.1 (definition of            15.5................  15.3.               
 ``offer'').                                                            
15.104-3....................  52.215-12...........  52.215-1.           
3.104-5(b)(1)...............  15.411..............  15.207.             
3.104-5(b)(1)...............  52.215-12...........  52.215-1.           
3.501-2(c)..................  15.804-6(f).........  Table 15-2 of       
                                                     15.508, (c)(8).    
3.501-2(c)..................  15.803(d)...........  15.503-1(c)(i)(B).  
5.204.......................  15.404..............  15.201.             
5.303(b)(2).................  15.1002(e)..........  15.603(b).          
6.302-1(d)(2)...............  ``(See 15.402(g))''   ....................
7.105(a)(3)(iii)............  15.810..............  15.507-4.           
7.105(b)(3).................  15.6................  15.4.               
7.105(b)(11)................  15.7................  15.507-2.           
7.306(b)....................  15.6................  15.4.               
9.306(j)....................  15.814..............  15.504-1(g).        
12.206......................  15.6................  15.4.               
12.209......................  15.8................  15.5.               
12.301(c)(2)................  15.6................  15.4.               
12.503(c)(2)................  15.804..............  15.503.             
12.504(a)(9)................  ``(See subpart        ....................
                               15.1)''                                  
12.504(c)(2)................  15.8................  15.5.               
12.602(b)...................  15.6................  15.4.               
13.106-2(c)(3)..............  15.1003(b)(2).......  15.805.             
13.108(a)...................  15.402(e)...........  Delete ``(see       
                                                     15.402(e))''.      
14.103-1(d).................  15.804-1............  15.503-4(a)(1)(iii).
14.105......................  15.405..............  15.201(e).          
14.201-7(a).................  15.804-2(a)(1)......  15.503-4(a)(1).     
14.201-7(b)(1)..............  15.804-2(a)(1)......  15.503-4(a)(1).     
14.201-7(c)(1)..............  15.804-2(a)(1)......  15.503-4(a)(1).     
14.207......................  15.409..............  15.201.             
14.404-2(g).................  15.814..............  15.504-1(g).        
14.408(a)...................  15.805-2............  15.504-1(b).        
14.408(b)...................  15.814..............  15.504-1(g).        
14.503-1(c)(2)..............  15.413..............  52.215-1(e).        
14.503-1(g).................  15.1005 and 15.1006.  15.605 and 15.606.  
14.503-1(h).................  15.412..............  15.208 (b) and (c). 
16.104(b)...................  15.805-2............  15.504-1(b).        
16.301(a)(3)................  15.903(d)...........  15.504-4(c)(4)(i).  
16.306(c)(2)................  15.903(d)...........  15.504-4(c)(4)(i).  
16.505(b)(3)................  15.804-1(b)(1)......  15.503-1(c)(i).     
16.603-2(c).................  15.8................  15.5.               
17.106-1(c).................  15.804-6............  Table 15-2 of       
                                                     15.508, (c)(8).    
19.202-6(a).................  15.805-2............  15.502.             
19.302(d)(1)................  15.1002(b)(2).......  15.603(b)(2).       
19.501(h)(1)................  15.1003(a)(2).......  15.803(a)(2).       
19.501(h)(2)................  15.1003(a)(2).......  15.803(a)(2).       
19.806(a)...................  15.8................  15.5.               
24.202(b)...................  15.804-5(b).........  15.503-3(c)(3).     
25.405......................  15.1003.............  15.803.             
25.901(b)...................  15.106-1(b).........  15.209(b).          
27.204-1(b).................  15.804..............  15.503.             
27.204-2....................  15.804..............  15.503.             
27.407(a)...................  15.4 or 15.5........  15.2 or 15.3.       
27.407(b)...................  15.4 or 15.5........  15.2 or 15.3.       
28.101-4(b).................  15.610(a)...........  15.406(a)(2).       
31.000......................  15.805-3............  15.504-1(c).        
31.103(a)...................  15.805-3............  15.504-1(c).        
31.105(b)...................  15.805-3............  15.504-1(c).        
31.106-1....................  15.805-3............  15.504-1(c).        
31.109(g)...................  15.808..............  15.506-3.           
31.204(b)...................  15.805-3............  15.504-1(c).        
31.205(j)(4)................  15.804..............  15.503-4.           
31.205-18 (c)(1)(i)(A)......  15.804..............  15.503-4.           
31.205-18 (c)(1)(i)(B)......  15.804..............  15.503-4.           
31.205-26(e)................  15.804-1............  15.503-1(b).        

[[Page 26682]]

                                                                        
31.205-42(c)................  15.804-6(f)           ....................
32.204......................  15.606..............  15.206.             
33.103(f)(3)................  15.1004.............  ``15.605 or         
                                                     15.606''.          
33.104(c)(1)................  15.1004.............  ``15.605 or         
                                                     15.606''.          
33.207(d)...................  15.804-2(a)(1)(iii).  15.503-4(a)(1)(iii).
34.005-2(a)(2)..............  15.404..............  15.201.             
35.007(d)...................  ``(see 15.406-        ....................
                               5(b))''                                  
35.007(e)...................  15.605(e)...........  15.404.             
35.007(g)...................  15.409..............  15.201.             
35.007(i)...................  15.5................  15.3.               
35.008(d)...................  15.10...............  15.6.               
35.008......................  15.805..............  15.504-1(c).        
36.212(b)(1)................  15.804-1 and 15.804-  15.503-2.           
                               2.                                       
36.215......................  15.903(d)(1)(iii)...  15.504-4(c)(4)(i).  
36.303-2....................  15.605..............  15.404.             
36.402(b)(1)................  15.804-1 and 15.804-  15.503-2.           
                               2.                                       
36.403(c)...................  15.903(d)(1)(iii)...  15.504-4(c)(4)(i).  
36.606......................  15.903(d)(1)(iii)...  15.504-4(c)(4)(i).  
36.607(b)...................  15.1004, 15.006(b)    15.604, 15,606(b)   
                               through (f),          through (f) 15.607,
                               15.1007, and          and 15.606         
                               15.1006.                                 
42.302(a)(4)................  15.8................  15.5.               
42.302(a)(5)................  15.809..............  15.507-3.           
42.705-1(b)(2)..............  15.805-5(e).                              
42.705-2(b)(2)(iii).........  15.805-5(e).                              
43.204(b)(4)................  15.805..............  15.504-1(c).        
44.202-2(a)(1)..............  15.7................  15.507-2.           
44.305-3(a)(1)..............  15.804..............  15.503.             
45.103(b)(1)................  15.804-1............  15.503-2.           
45.106(b)(2)(i).............  15.804-1............  15.503-2.           
45.302-2(e).................  15.9................  15.504-4.           
49.105(c)(15)...............  15.804-(h) and        15.503-4(a)(1) and  
                               15.804.               15.503-4.          
49.110(a)...................  15.808(a) and         15.506-3 for both.  
                               15.808(b).                               
50.203(c)...................  15.103..............  14.104-1(f).        
52.212-2(a)(iii)............  15.605..............  15.404.             
52.214-26(e)................  15.804-2(a)(1)......  15.503-4(a)(1)(iii).
52.214-27(a)................  15.804-2(a)(1) and    15.503-4(a)(1)(iii) 
                               15.804-1.             and 15.503-1(b).   
52.214-28(a)................  15.804-2 (a) (1) and  15.503-4(a)(1)(iii).
                               (2).                                     
52.214-28(b)................  15.804-2(a)(1) and    15.503-4(a)(1)(iii) 
                               15.804-1.             and 15.503-1(b).   
52.214-28(c)................  15.804-4............  15.506-2.           
52.214-28(d)................  15.804-2(a)(1)......  15.503-4(a)(1)(iii).
52.214-34...................  ``15.407(l)''         ....................
52.214-35...................  ``15.407(m)''         ....................
52.244-1(g).................  15.903(d)...........  15.504-4(c)(4)(i).  
52.244-2....................  15.903(d)...........  15.504-4(c)(4)(i).  
52.244-3(b).................  15.903(d)...........  15.504-4(c)(4)(i).  
------------------------------------------------------------------------

[FR Doc. 97-12337 Filed 5-9-97; 3:27 am]
BILLING CODE 6820-EP-U