[Federal Register Volume 70, Number 76 (Thursday, April 21, 2005)]
[Proposed Rules]
[Pages 20726-20729]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 05-7978]


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DEPARTMENT OF DEFENSE

48 CFR Parts 211, 212, and 252

[DFARS Case 2004-D011]


Defense Federal Acquisition Regulation Supplement; Radio 
Frequency Identification

AGENCY: Department of Defense (DoD).

ACTION: Proposed rule with request for comments.

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SUMMARY: DoD is proposing to amend the Defense Federal Acquisition 
Regulation Supplement (DFARS) to add policy pertaining to package 
marking with passive radio frequency identification (RFID) tags. The 
proposed changes require contractors to affix passive RFID tags at the 
case and palletized unit load levels when shipping packaged operational 
rations, clothing, individual equipment, tools,

[[Page 20727]]

personal demand items, or weapon system repair parts, to the Defense 
Distribution Depot in Susquehanna, PA, or the Defense Distribution 
Depot in San Joaquin, CA.

DATES: Comments on the proposed rule should be submitted in writing to 
the address shown below on or before June 20, 2005, to be considered in 
the formation of the final rule.

ADDRESSES: You may submit comments, identified by DFARS Case 2004-D011, 
using any of the following methods:
     Federal eRulemaking Portal: http://www.regulations.gov. 
Follow the instructions for submitting comments.
     Defense Acquisition Regulations Web site: http://emissary.acq.osd.mil/dar/dfars.nsf/pubcomm. Follow the instructions for 
submitting comments.
     E-mail: [email protected]. Include DFARS Case 2004-D011 in the 
subject line of the message.
     Fax: (703) 602-0350.
     Mail: Defense Acquisition Regulations Council, Attn: Ms. 
Michele Peterson, OUSD(AT&L)DPAP(DAR), IMD 3C132, 3062 Defense 
Pentagon, Washington, DC 20301-3062.
     Hand Delivery/Courier: Defense Acquisition Regulations 
Council, Crystal Square 4, Suite 200A, 241 18th Street, Arlington, VA 
22202-3402.
    All comments received will be posted to http://emissary.acq.osd.mil/dar/dfars.nsf.

FOR FURTHER INFORMATION CONTACT: Ms. Michele Peterson, (703) 602-0311.

SUPPLEMENTARY INFORMATION:

A. Background

    This proposed rule contains requirements for contractors to affix 
passive RFID tags at the case and palletized unit load levels. The 
proposed rule requires that specified commodities delivered to 
specified DoD locations be tagged with a readable passive RFID tag in 
accordance with the applicable implementation plan at http://www.dodrfid.org/supplierimplementationplan.htm. The data encoding 
schemes that contractors may write to the tags are identified in the 
proposed clause and are also located at http://www.dodrfid.org/tagdata.htm. In addition, contractors must send an advance shipment 
notice in accordance with the procedures at http://www.dodrfid.org/asn.htm, to provide the association between the unique identification 
encoded on the passive tag(s) and the product information at the 
applicable case and palletized unit load levels.
    DoD is particularly interested in receiving comments on the 
following aspects of the rule:
    1. The definitions of the terms ``case'' and ``palletized unit 
load'' and their use throughout the rule.
    2. The impact of providing electronic advance shipment notice 
information.
    3. Whether small business considerations have been fully addressed 
in the regulatory flexibility analysis.
    4. Scientific, industry, or manufacturing based evidence from 
changes or additions to packaging or package systems in order to assess 
the possible impact, if any, on the environment and materials 
recycling, including corrugated, metal, and plastic shipping containers 
and pallets.
    5. What are the options for minimizing and mitigating the impacts 
on the materials recycling process from the use of RFID tags on 
shipping containers and pallets?
    This rule was subject to Office of Management and Budget review 
under Executive Order 12866, dated September 30, 1993.

B. Regulatory Flexibility Act

    This proposed rule may have an impact on a substantial number of 
small entities within the meaning of the Regulatory Flexibility Act, 5 
U.S.C. 601, et seq. DoD has prepared a separate initial regulatory 
flexibility analysis, available at http://www.dodrfid.org/regflex.htm, 
which is summarized as follows:
    This proposed rule adds requirements for DoD contractors supplying 
materiel to the Department to affix passive RFID tags at the case and 
palletized unit load levels for specified commodities delivered to 
specified DoD locations. To create an automated and sophisticated end-
to-end supply chain, DoD is dependent upon initiating the technology at 
the point of origin, the DoD commercial suppliers. Without the 
assistance of the DoD supplier base to begin populating the DoD supply 
chain with passive RFID tags, a fully integrated, highly visible, 
automated end-to-end supply chain is untenable. DoD contractors are 
presently required to print and affix military shipping labels to every 
package delivered to DoD. Options to comply with the requirements of 
the proposed rule can be as simple as replacing existing military 
shipping label printers with RFID-enabled printers. This will allow DoD 
contractors to print military shipping labels with embedded RFID tags. 
The regulatory flexibility analysis also details other options and 
approximate costs to comply. The proposed rule will also require 
contractors to provide an electronic advance shipment notice in 
accordance with the procedures at http://www.dodrfid.org/asn.htm, to 
associate RFID tag data with the corresponding shipment. The objective 
of the rule is to improve visibility of DoD assets in the supply chain, 
increase accuracy of shipments and receipts, and reduce the number of 
logistic ``touch points'' in order to decrease the amount of time it 
takes to deliver material to the warfighter. The rule does not 
duplicate, overlap, or conflict with any other Federal rules.

C. Paperwork Reduction Act

    This proposed rule contains a new information collection 
requirement. DoD has submitted the following proposal to OMB under the 
provisions of the Paperwork Reduction Act (44 U.S.C. Chapter 35). 
Comments are invited on: (a) Whether the proposed collection of 
information is necessary for the proper performance of the functions of 
DoD, including whether the information will have practical utility; (b) 
the accuracy of the estimate of the burden of the proposed information 
collection; (c) ways to enhance the quality, utility, and clarity of 
the information to be collected; and (d) ways to minimize the burden of 
the information collection on respondents, including the use of 
automated collection techniques or other forms of information 
technology.
    Title: Defense Federal Acquisition Regulation Supplement (DFARS); 
Radio Frequency Identification Advance Shipment Notices.
    Type of Request: New requirement.
    Number of Respondents: 17,000.
    Responses Per Respondent: 3,981.
    Annual Responses: 67,677,000.
    Average Burden Per Response: Approximately 1.12 seconds.
    Annual Burden Hours: 21,038.
    Needs and Uses: DoD needs an advance shipment notice prior to 
shipment of materiel containing RFID tag data. DoD receiving personnel 
use the advance shipment notice to associate the unique identification 
encoded on the RFID tag with the corresponding shipment. Use of RFID 
technology permits DoD to create an automated and sophisticated end-to-
end supply chain, thereby increasing visibility of assets and 
permitting delivery of supplies to the warfighter more quickly.
    Affected Public: Businesses or other for-profit and not-for-profit 
institutions.
    Frequency: On occasion.
    Respondent's Obligation: Required to obtain or retain benefits.
    OMB Desk Officer: Mr. Lewis Oleinick.

[[Page 20728]]

    Written comments and recommendations on the proposed information 
collection should be sent to Mr. Oleinick at the Office of Management 
and Budget, Desk Officer for DoD, Room 10236, New Executive Office 
Building, Washington, DC 20503, with a copy to the Defense Acquisition 
Regulations Council, Attn: Ms. Michele Peterson, OUSD(AT&L)DPAP(DAR), 
IMD 3C132, 3062 Defense Pentagon, Washington, DC 20301-3062. Comments 
can be received from 30 to 60 days after the date of this notice, but 
comments to OMB will be most useful if received by OMB within 30 days 
after the date of this notice.
    To request more information on this proposed information collection 
or to obtain a copy of the proposal and associated collection 
instruments, please write to Defense Acquisition Regulations Council, 
Attn: Ms. Michele Peterson, OUSD(AT&L)DPAP(DAR), IMD 3C132, 3062 
Defense Pentagon, Washington, DC 20301-3062.

List of Subjects in 48 CFR Parts 211, 212, and 252

    Government procurement.

Michele P. Peterson,
Editor, Defense Acquisition Regulations System.
    Therefore, DoD proposes to amend 48 CFR parts 211, 212, and 252 as 
follows:
    1. The authority citation for 48 CFR parts 211, 212, and 252 
continues to read as follows:

    Authority: 41 U.S.C. 421 and 48 CFR Chapter 1.

PART 211--DESCRIBING AGENCY NEEDS

    2. Sections 211.275 through 211.275-3 are added to read as follows:


211.275  Radio frequency identification.


211.275-1  Definitions.

    Bulk commodities, case, palletized unit load, passive RFID tag, and 
radio frequency identification are defined in the clause at 252.211-
7XXX, Radio Frequency Identification.


211.275-2  Policy.

    Radio frequency identification (RFID), in the form of a passive 
RFID tag, is required for individual cases and palletized unit loads 
that--
    (a) Contain items in any of the following classes of supply, as 
defined in DoD 4140.1-R, DoD Supply Chain Materiel Management 
Regulation, AP1.1.11, except that bulk commodities are excluded from 
this requirement:
    (1) Subclass of Class I--Packaged operational rations.
    (2) Class II--Clothing, individual equipment, tentage, 
organizational tool kits, hand tools, and administrative and 
housekeeping supplies and equipment.
    (3) Class VI--Personal demand items (non-military sales items).
    (4) Class IX--Repair parts and components including kits, 
assemblies and subassemblies, reparable and consumable items required 
for maintenance support of all equipment, excluding medical-peculiar 
repair parts; and
    (b) Will be delivered to one of the following locations:
    (1) Defense Distribution Depot, Susquehanna, PA.
    (2) Defense Distribution Depot, San Joaquin, CA.


211.275-3  Contract clause.

    Use the clause at 252.211-7XXX, Radio Frequency Identification, in 
solicitations for contracts that will require delivery of items meeting 
the criteria at 211.275-2.

PART 212--ACQUISITION OF COMMERCIAL ITEMS

    3. Section 212.301 is amended by adding paragraph (f)(vii) to read 
as follows:


212.301  Solicitation provisions and contract clauses for the 
acquisition of commercial items.

    (f) * * *
    (vii) Use the clause at 252.211-7XXX, Radio Frequency 
Identification, as prescribed in 211.275-3.

PART 252--SOLICITATION PROVISIONS AND CONTRACT CLAUSES

    4. Section 252.211-7XXX is added to read as follows:


252.211-7XXX  Radio Frequency Identification.

    As prescribed in 211.275-3, use the following clause:

Radio Frequency Identification (XXX 2005)

    (a) Definitions. As used in this clause--
    Advance shipment notice means an electronic notification used to 
list the contents of a shipment of goods as well as additional 
information relating to the shipment, such as order information, 
product description, physical characteristics, type of packaging, 
marking, carrier information, and configuration of goods within the 
transportation equipment.
    Bulk commodities means the following commodities, when shipped 
in rail tank cars, tanker trucks, trailers, other bulk wheeled 
conveyances, or pipelines:
    (1) Sand.
    (2) Gravel.
    (3) Bulk liquids (water, chemicals, or petroleum products).
    (4) Ready-mix concrete or similar construction materials.
    (5) Coal or combustibles such as firewood.
    (6) Agricultural products such as seeds, grains, or animal feed.
    Case means either an exterior container within a palletized unit 
load or an individual shipping container.
    Electronic Product Code TM (EPC) means an 
identification scheme for universally identifying physical objects 
via RFID tags and other means. The standardized EPC data consists of 
an EPC (or EPC identifier) that uniquely identifies an individual 
object, as well as an optional filter value when judged to be 
necessary to enable effective and efficient reading of the EPC tags. 
In addition to this standardized data, certain classes of EPC tags 
will allow user-defined data. The EPC tag data standards will define 
the length and position of this data, without defining its content.
    EPCglobal TM means a joint venture between EAN 
International and the Uniform Code Council to establish and support 
the EPC network as the global standard for immediate, automatic, and 
accurate identification of any item in the supply chain of any 
company, in any industry, anywhere in the world.
    Exterior container means a MIL-STD-129 defined container, 
bundle, or assembly that is sufficient by reason of material, 
design, and construction to protect unit packs and intermediate 
containers and their contents during shipment and storage. It can be 
a unit pack or a container with a combination of unit packs or 
intermediate containers. An exterior container may not be used as a 
shipping container.
    Palletized unit load means a MIL-STD-129 defined quantity of 
items, packed or unpacked, arranged on a pallet in a specified 
manner and secured, strapped, or fastened on the pallet so that the 
whole palletized load is handled as a single unit. A palletized load 
is not considered to be a shipping container.
    Passive RFID tag means a tag that reflects energy from the 
reader/interrogator or that receives and temporarily stores a small 
amount of energy from the reader/interrogator signal in order to 
generate the tag response. Acceptable tags are--
    (1) EPC Class 0 passive RFID tags that meet the EPCglobal Class 
0 specification;
    (2) EPC Class 1 passive RFID tags that meet the EPCglobal Class 
1 specification; and
    (3) EPC UHF Generation 2 passive RFID tags that meet the 
EPCglobal UHF Generation 2 specification.
    Radio Frequency Identification (RFID) means an automatic 
identification and data capture technology comprising one or more 
reader/interrogators and one or more radio frequency transponders in 
which data transfer is achieved by means of suitably modulated 
inductive or radiating electromagnetic carriers.
    Shipping container means a MIL-STD-129 defined exterior 
container that meets carrier regulations and is of sufficient 
strength, by reason of material, design, and construction, to be 
shipped safely without further packing (e.g., wooden boxes or 
crates, fiber and metal drums, and corrugated and solid fiberboard 
boxes).

[[Page 20729]]

    (b)(1) Except as provided in paragraph (b)(2) of this clause, 
the Contractor shall affix passive RFID tags, at the case and 
palletized unit load packaging levels, for shipments of items that--
    (i) Are in any of the following classes of supply, as defined in 
DoD 4140.1-R, DoD Supply Chain Materiel Management Regulation, 
AP1.1.11:
    (A) Subclass of Class I--Packaged operational rations.
    (B) Class II--Clothing, individual equipment, tentage, 
organizational tool kits, hand tools, and administrative and 
housekeeping supplies and equipment.
    (C) Class VI--Personal demand items (non-military sales items).
    (D) Class IX--Repair parts and components including kits, 
assemblies and subassemblies, reparable and consumable items 
required for maintenance support of all equipment, excluding 
medical-peculiar repair parts; and
    (ii) Are being shipped to--
    (A) Defense Distribution Depot, Susquehanna, PA; or
    (B) Defense Distribution Depot, San Joaquin, CA.
    (2) Bulk commodities are excluded from the requirements of 
paragraph (b)(1) of this clause.
    (c) The Contractor shall ensure that--
    (1) The data encoded on each passive RFID tag are unique (i.e., 
the binary number is never repeated on any contract) and conforms to 
the requirements in paragraph (d) of this clause;
    (2) Each passive tag is readable at the time of shipment in 
accordance with MIL-STD-129P (Section 4.9.1.1) readability 
performance requirements; and
    (3) The passive tag is affixed at the appropriate location on 
the specific level of packaging, in accordance with MIL-STD-129P 
(Section 4.9.2) tag placement specifications.
    (d) Data syntax and standards. The Contractor shall use one or 
more of the following data constructs, depending upon the type of 
passive RFID tag being used in accordance with the tag construct 
details located at http://www.dodrfid.org/tagdata.htm (version in 
effect as of the date of the solicitation):
    (1) Class 0, 64 Bit Tag--EPCglobal Serialized Global Trade Item 
Number (SGTIN), Global Returnable Asset Identifier (GRAI), Global 
Individual Asset Identifier (GIAI), or Serialized Shipment Container 
Code (SSCC).
    (2) Class 0, 64 Bit Tag--DoD Tag Construct.
    (3) Class 1, 64 Bit Tag--EPCglobal SGTIN, GRAI, GIAI, or SSCC.
    (4) Class 1, 64 Bit Tag--DoD Tag Construct.
    (5) Class 0, 96 Bit Tag--EPCglobal SGTIN, GRAI, GIAI, or SSCC.
    (6) Class 0, 96 Bit Tag--DoD Tag Construct.
    (7) Class 1, 96 Bit Tag--EPCglobal SGTIN, GRAI, GIAI, or SSCC.
    (8) Class 1, 96 Bit Tag--DoD Tag Construct.
    (9) UHF Generation 2 Tag--EPCglobal SGTIN, GRAI, GIAI, SSCC.
    (10) UHF Generation 2 Tag--DoD Tag Construct.
    (e) Receiving report. The Contractor shall electronically submit 
advance shipment notice(s) with the RFID tag identification 
(specified in paragraph (d) of this clause) in advance of the 
shipment in accordance with the procedures at http://www.dodrfid.org/asn.htm.

(End of clause)

[FR Doc. 05-7978 Filed 4-20-05; 8:45 am]
BILLING CODE 5001-08-P