[Federal Register Volume 81, Number 214 (Friday, November 4, 2016)]
[Proposed Rules]
[Pages 78015-78019]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2016-26377]
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DEPARTMENT OF DEFENSE
Defense Acquisition Regulations System
48 CFR Parts 202, 215, 225, and 252
[Docket DARS-2015-0027]
RIN 0750-AI59
Defense Federal Acquisition Regulation Supplement: Offset Costs
(DFARS Case 2015-D028)
AGENCY: Defense Acquisition Regulations System, Department of Defense
(DoD).
ACTION: Proposed rule.
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SUMMARY: DoD is issuing a proposed rule amending the Defense Federal
Acquisition Regulation Supplement (DFARS) to implement a section of the
National Defense Authorization Act for Fiscal Year 2016 related to
costs associated with indirect offsets under foreign military sales
agreements.
DATES: Comments on the proposed rule should be submitted in writing to
the address shown below on or before January 3, 2017, to be considered
in the formation of a final rule.
ADDRESSES: Submit comments identified by DFARS Case 2015-D028, using
any of the following methods:
[cir] Federal eRulemaking Portal: http://www.regulations.gov.
Search for ``DFARS Case 2015-D028.'' Select ``Comment Now'' and follow
the instructions provided to submit a comment. Please include ``DFARS
Case 2015-D028'' on any attached documents.
[cir] Email: [email protected]. Include DFARS Case 2015-D028 in
the subject line of the message.
[cir] Fax: 571-372-6094.
[cir] Mail: Defense Acquisition Regulations System, Attn: Mr. Mark
Gomersall, OUSD(AT&L)DPAP/DARS, Room 3B941, 3060 Defense Pentagon,
Washington, DC 20301-3060.
Comments received generally will be posted without change to http://www.regulations.gov, including any personal information provided. To
confirm receipt of your comment(s), please check www.regulations.gov,
approximately two to three days after submission to verify posting
(except allow 30 days for posting of comments submitted by mail).
FOR FURTHER INFORMATION CONTACT: Mr. Mark Gomersall, telephone 571-372-
6099.
SUPPLEMENTARY INFORMATION:
I. Background
This proposed rule expands on interim rule guidance and
incorporates the requirements of section 812 of the National Defense
Authorization Act (NDAA) for Fiscal Year (FY) 2016.
DoD published an interim rule in the Federal Register (80 FR 31309)
on June 2, 2015. The comment period closed on August 3, 2015. The
interim rule revised DFARS 225.7303-2, Cost of Doing Business with a
Foreign Government or an International Organization, by providing
guidelines to contracting officers when an indirect offset is a
condition of a foreign military sales (FMS) acquisition. Specifically,
the interim rule set forth that all offset costs that involve benefits
provided by the U.S. defense contractor to the FMS
[[Page 78016]]
customer that are unrelated to the item being purchased under the
Letter of Offer and Acceptance (LOA) (indirect offset costs) are deemed
reasonable for purposes of FAR part 31 with no further analysis
necessary on the part of the contracting officer, provided that the
U.S. defense contractor submits to the contracting officer a signed
offset agreement or other documentation showing that the FMS customer
has made the provision of an indirect offset of a certain dollar value
a condition of the FMS acquisition. FMS customers are placed on notice
through the LOA that indirect offset costs are deemed reasonable
without any further analysis by the contracting officer.
II. Discussion and Analysis
DoD reviewed the public comments submitted in response to the
interim rule in the development of this proposed rule. A discussion of
the comments and the changes made to the rule as a result of those
comments is provided, as follows:
A. Summary of Significant Changes
Section 812 of the NDAA for FY 2016 amended 10 U.S.C. 2306a(b)(1)
to state that submission of certified cost or pricing data shall not be
required in the case of a contract, a subcontract, or modification of a
contract or subcontract to the extent such data--
(i) Relates to an offset agreement in connection with a contract
for the sale of a weapon system or defense-related item to a foreign
country or foreign firm; and
(ii) Does not relate to a contract or subcontract under the offset
agreement for work performed in such foreign country or by such foreign
firm that is directly related to the weapon system or defense-related
item being purchased under the contract.
This proposed rule amends DFARS 215.403-1(b), Exceptions to
Certified Cost or Pricing Data Requirements, and adds DFARS clause
252.215-70XX, Requirements for Certified Cost or Pricing Data for
Foreign Military Sales Indirect Offset Agreements, to incorporate the
revisions implemented in section 812.
Additionally, this proposed rule relocates the language at DFARS
Procedures, Guidance, and Information (PGI) 225.7303-2(a)(3) into DFARS
225.7303-2(a)(3) for clarity. In response to public comments, the rule
also adds: (1) Definitions of ``offset'' and ``offset costs'' at
202.101, and (2) the appropriate reference to Federal Acquisition
Regulation (FAR) part 15 and deletes the phrase ``of a certain dollar
value'' in DFARS 225.7303-2(a)(3).
B. Analysis of Public Comments
Comment: One respondent is supportive of the U.S. Government's goal
to add clarity on the evaluation of offset costs within an FMS
contract, and concurs with the U.S. Government's determination in this
rule that indirect offsets are to be deemed reasonable for the purposes
of FAR parts 15 and 31.
Response: Noted.
Comment: One respondent recommended that the determination of
reasonableness in this rule be made applicable to all offset
agreements, both ``direct'' and ``indirect.''
Response: DFARS 225.7301(b) requires that the U.S. Government
conduct FMS acquisitions under the same acquisition and contract
management procedures used for other defense acquisitions. This
requires the contracting officer to adhere to FAR regulations
concerning the negotiation of contracts and subcontracts (FAR part 15)
and contract cost principles (FAR part 31), and thus attest to the
reasonableness of FMS contract prices. Contracting officers must follow
these regulations even though no DoD-appropriated funds are being used
to pay for the effort. While DoD contracting officers have no insight
to pricing of the indirect offset, and shall not encourage, enter
directly into, or commit U.S. companies to any offset arrangement in
connection with the sale of defense goods or services to foreign
governments, it is reasonable to maintain the requirement that
contracting officers determine that prices are fair and reasonable for
direct offsets, as they directly tie to the FMS end item(s).
Comment: One respondent recommended that the rule include
definitions of direct and indirect offsets. The respondent recommended
that the DFARS define indirect offset as ``an offset transaction
unrelated to the article(s) or service(s) exported or to be exported
pursuant to the military export sales agreement.''
Response: A definition of offsets is provided at DFARS 202.101 for
clarity.
Comment: A number of respondents suggested making the rule
applicable to FAR part 15, as well as FAR part 31.
Response: The rule is clarified to state that indirect offset costs
are deemed reasonable for purposes of FAR part 15 as well as FAR part
31.
Comment: One respondent requested that the rule clarify what forms
of documentation will be acceptable to the contracting officer.
Frequently the contractor will be able to document the legal,
contractual or policy requirement for offsets (e.g., published
guidelines) and infer the dollar value. However, a signed, specific
offset agreement rarely predates the LOA. Further, a country's offset
guidelines may allow for both direct and indirect projects, but the
defense contractor and foreign government might not decide on the
specific mix of direct versus indirect projects until after the LOA is
signed. As such, this requirement could effectively negate much of the
benefit of the rule. The respondent suggested that the rule clarify
acceptable documentation as a ``signed offset agreement or other
documentation, which may include, but is not limited to, the FMS
customer's offset guidelines, requirements, regulations or law, policy,
or historical requirements.''
Response: While the costs associated with such indirect offset
agreements are deemed reasonable for purposes of FAR parts 15 and 31
with no further analysis necessary on the part of the contracting
officer, the U.S. defense contractor must still provide evidence of a
signed offset agreement or other documentation showing that the FMS
customer has made the provision of an indirect offset a condition of
the FMS acquisition to support this determination. While this rule does
not define the specific documentation required, such documentation must
support the specific FMS acquisition.
Comment: One respondent stated that often the type of offset
projects to be implemented will not yet be specified, and the dollar
value associated with an offset budget in an FMS contract is only an
estimate. The respondent recommended that the rule be revised to
clarify how contracting officers will consider offset costs when the
exact nature and value of the individual projects that will help
fulfill the overall offset obligation remains to be negotiated and
finalized between the contractor and the foreign customer at the time
of submission of the proposal.
Response: This is precisely why this rule is necessary. DoD
contracting officers are not provided the information necessary to
negotiate cost or price of the indirect offsets, particularly with
respect to price reasonableness determinations. Therefore, indirect
offset costs are deemed reasonable for purposes of FAR parts 15 and 31
with no further analysis necessary on the part of the contracting
officer.
Comment: One respondent suggested that a sentence stating that ``if
the FMS customer requires additional information on offsets, they
should discuss directly with the seller'' be
[[Page 78017]]
inserted to emphasize that all offset obligations/projects are
negotiated between the contractor and the foreign customer.
Response: Since a determination of fair and reasonable pricing is
established for indirect offset costs, the statement that FMS customers
are placed on notice through the LOA that indirect offset costs are
deemed reasonable without any further analysis by the contracting
officer is included in DFARS 225.7303-2(a)(3).
Comment: One respondent stated that by deeming indirect offset
costs to be reasonable, the rule appears to conflict with FAR 31.201-
3(a), which states, ``No presumption of reasonableness shall be
attached to the incurrence of costs by a contractor.'' The apparent
conflicting language may create confusion in the field as contracting
officers attempt to execute the FAR and DFARS rules and guidance
regarding reasonableness. The respondent recommended amending FAR
31.201-3(a) to acknowledge the existence of a DFARS exception to the
rule of no presumption of reasonableness with respect to indirect
offset costs.
Response: It is unnecessary and inappropriate to amend the FAR to
acknowledge the existence of DFARS supplementary language. The FAR
System consists of the FAR, which is the primary document, and agency
acquisition regulations that implement or supplement the FAR. The DFARS
implements or supplements the FAR to incorporate DoD policies,
procedures, contract clauses, solicitation provisions, and forms that
govern the contracting process or otherwise control the relationship
between DoD and contractors or prospective contractors. To include a
FAR reference for each occurrence of an agency supplement to the FAR
would be unwieldy. Further, since this is a DFARS rule, making such a
reference in the FAR would be out of scope for this rule.
Comment: One respondent questioned whether the contractor's costs
associated with administering offset agreements are also deemed
reasonable for the purposes of FAR part 31 with no further analysis by
the contracting officer.
Response: Unlike the specific indirect offset costs, contracting
officers do have insight into the administration costs associated with
direct and indirect offset agreements. Therefore, costs associated with
administering indirect offset agreements are not deemed reasonable
without further analysis under this rule.
Comment: One respondent stated that offset agreements often include
values associated with ``offset credits'' that may or may not be
representative of the costs of the supplies or services being acquired
or performed. The respondent suggested clarifying the meaning of the
term ``certain dollar value'' and questioned whether that term refers
to the ``offset credit'' value that is included in the offset
agreement, or whether the offset agreement needs to set out the
anticipated cost of the actual supplies or services being contracted
for under the FMS contract.
Response: The phrase ``of a certain dollar value'' has been removed
as a clarifier to the documentation requirements to indicate the
existence of an indirect offset agreement as a condition of an FMS
acquisition.
III. Applicability to Contracts at or Below the Simplified Acquisition
Threshold and for Commercial Items, Including Commercially Available
Off-the-Shelf Items
This rule proposes to create a new clause: DFARS 252.215-70XX,
Requirements for Certified Cost or Pricing Data for Foreign Military
Sales Indirect Offset Agreements. DoD plans not to apply this clause to
contracts at or below the simplified acquisition threshold or to
commercial items, including commercially available off-the-shelf items.
IV. Executive Orders 12866 and 13563
Executive Orders (E.O.s) 12866 and 13563 direct agencies to assess
all costs and benefits of available regulatory alternatives and, if
regulation is necessary, to select regulatory approaches that maximize
net benefits (including potential economic, environmental, public
health and safety effects, distributive impacts, and equity). E.O.
13563 emphasizes the importance of quantifying both costs and benefits,
of reducing costs, of harmonizing rules, and of promoting flexibility.
This is not a significant regulatory action and, therefore, was not
subject to review under section 6(b) of E.O. 12866, Regulatory Planning
and Review, dated September 30, 1993. This rule is not a major rule
under 5 U.S.C. 804.
V. Regulatory Flexibility Act
DoD does not expect this rule to have a significant economic impact
on a substantial number of small entities within the meaning of the
Regulatory Flexibility Act, 5 U.S.C. 601, et seq. However, an initial
regulatory flexibility analysis has been performed, and is summarized
as follows:
This rule amends the DFARS to clarify requirements related to
indirect offset costs associated with Foreign Military Sales offset
agreements.
The objective of this rule is to expand on the DFARS interim rule
published in the Federal Register (80 FR 31309) on June 2, 2015, and
implement the requirements of section 812 of the National Defense
Authorization Act for Fiscal Year 2016.
DoD does not expect this rule to have a significant economic impact
on a substantial number of small entities within the meaning of the
Regulatory Flexibility Act, 5 U.S.C. 601, et seq. because indirect
offset agreements are not incorporated into FMS contracts with small
entities and the DFARS amendments merely clarify that contracting
officers are not responsible for making a determination of price
reasonableness for indirect offset agreements for which they have no
purview.
This rule does not add any reporting or recordkeeping requirements.
The rule does not duplicate, overlap, or conflict with any other
Federal rules. There are no known significant alternatives to this
rule.
DoD invites comments from small business concerns and other
interested parties on the expected impact of this rule on small
entities.
DoD will also consider comments from small entities concerning the
existing regulations in subparts affected by this rule in accordance
with 5 U.S.C. 610. Interested parties must submit such comments
separately and should cite 5 U.S.C 610 (DFARS Case 2015-D028), in
correspondence.
VI. Paperwork Reduction Act
The rule does not contain any information collection requirements
that require the approval of the Office of Management and Budget under
the Paperwork Reduction Act (44 U.S.C. chapter 35).
List of Subjects in 48 CFR Parts 202, 215, 225, and 252
Government procurement.
Jennifer L. Hawes,
Editor, Defense Acquisition Regulations System.
Therefore, 48 CFR parts 202, 215, 225, and 252 are proposed to be
amended as follows:
0
1. The authority citation for parts 202, 215, 225, and 252 continues to
read as follows:
Authority: 41 U.S.C. 1303 and 48 CFR chapter 1.
[[Page 78018]]
PART 202--DEFINITIONS OF WORDS AND TERMS
0
2. In section 202.101, add in alphabetical order definitions of
``offset'' and ``offset costs'' to read as follows:
202.101 Definitions.
* * * * *
Offset means a benefit or obligation agreed to by a contractor and
a foreign government or international organization as an inducement or
condition to purchase supplies or services pursuant to a foreign
military sale (FMS). There are two types of offsets: Direct offsets and
indirect offsets.
(1) A direct offset involves benefits or obligations, including
supplies or services, that are related to the item being purchased. For
example, as a condition of a foreign military sale, the contractor may
require or agree to permit the customer to produce in its country
certain components or subsystems of the item being sold. Generally,
direct offsets must be performed within a specified period, because
they are integral to the deliverable of the FMS contract.
(2) An indirect offset involves benefits, including supplies or
services, that are unrelated to the item being purchased. For example,
as a condition of a foreign military sale, the contractor may agree to
purchase certain manufactured products, agricultural commodities, raw
materials, or services required by the FMS customer, or may agree to
build a school or road. Indirect offsets may be accomplished without a
clearly defined period of performance.
Offset costs means the costs to the contractor of providing any
direct or indirect offsets required (explicitly or implicitly) as a
condition of a foreign military sale.
* * * * *
PART 215--CONTRACTING BY NEGOTIATION
0
3. In section 215.403-1, revise paragraph (b) to read as follows:
215.403-1 Prohibition on obtaining certified cost or pricing data (10
U.S.C. 2306a and 41 U.S.C. chapter 35).
(b) Exceptions to certified cost or pricing data requirements. (i)
Follow the procedures at PGI 215.403-1(b).
(ii) Submission of certified cost or pricing data shall not be
required in the case of a contract, subcontract, or modification of a
contract or subcontract to the extent such data relates to an indirect
offset.
* * * * *
0
4. In section 215.408, add paragraph (6) to read as follows:
215.408 Solicitation provisions and contract clauses.
* * * * *
(6) Requirements for certified cost or pricing data for foreign
military sales offset agreements. Use the clause at 252.215-70XX,
Requirements for Certified Cost or Pricing Data for Foreign Military
Sales Indirect Offset Agreements, in solicitations and contracts that
contain the provision at FAR 52.215-20, Requirements for Certified Cost
or Pricing Data and Data Other Than Certified Cost or Pricing Data,
when it is reasonably certain that--
(i) The contract is expected to include costs associated with an
indirect offset; and
(ii) The submission of certified cost or pricing data or data other
than certified cost or pricing data will be required.
PART 225--FOREIGN ACQUISITION
225.7301 [Amended]
0
5. Amend section 225.7301 in paragraph (a) by removing ``defense
articles'' and adding ``supplies'' in its place.
0
6. In section 225.7303-2, revise paragraph (a)(3) to read as follows:
225.7303-2 Cost of doing business with a foreign government or an
international organization.
(a) * * *
(3) Offsets. For additional information see 225.7306.
(i) An offset agreement is the contractual arrangement between the
FMS customer and the U.S. defense contractor that identifies the offset
obligation imposed by the FMS customer that has been accepted by the
U.S. defense contractor as a condition of the FMS customer's purchase.
These agreements are distinct and independent of the LOA and the FMS
contract. Further information about offsets and LOAs may be found in
the Defense Security Cooperation Agency (DSCA) Security Assistance
Management Manual (DSCA 5105.38-M), chapter 6, paragraph 6.3.9. (http://samm.dsca.mil/chapter/chapter-6).
(ii) A U.S. defense contractor may recover all costs incurred for
offset agreements with a foreign government or international
organization if the LOA is financed wholly with foreign government or
international organization customer cash or repayable foreign military
finance credits.
(iii) The U.S. Government assumes no obligation to satisfy or
administer the offset agreement or to bear any of the associated costs.
(iv) Indirect offset costs are deemed reasonable for purposes of
FAR parts 15 and 31 with no further analysis necessary on the part of
the contracting officer, provided that the U.S. defense contractor
submits to the contracting officer a signed offset agreement or other
documentation showing that the FMS customer has made the provision of
an indirect offset a condition of the FMS acquisition. FMS customers
are placed on notice through the LOA that indirect offset costs are
deemed reasonable without any further analysis by the contracting
officer.
* * * * *
PART 252--SOLICITATION PROVISIONS AND CONTRACT CLAUSES
0
7. Add section 252.215-70XX to read as follows:
252.215-70XX Requirements for Certified Cost or Pricing Data for
Foreign Military Sales Indirect Offset Agreements.
As prescribed in 215.408(6)(i), use the following clause:
Requirements for Certified Cost or Pricing Data for Foreign Military
Sales Indirect Offset Agreements (Date)
(a) Definition. As used in this clause--
Offset means a benefit or obligation agreed to by a contractor
and a foreign government or international organization as an
inducement or condition to purchase supplies or services pursuant to
a foreign military sale (FMS). There are two types of offsets:
Direct offsets and indirect offsets.
(1) A direct offset involves benefits or obligations, including
supplies or services, that are related to the item being purchased.
For example, as a condition of a foreign military sale, the
contractor may require or agree to permit the customer to produce in
its country certain components or subsystems of the item being sold.
Generally, direct offsets must be performed within a specified
period because they are integral to the deliverable of the FMS
contract.
(2) An indirect offset involves benefits, including supplies or
services, that are unrelated to the item being purchased. For
example, as a condition of a foreign military sale the contractor
may agree to purchase certain manufactured products, agricultural
commodities, raw materials, or services required by the FMS
customer, or may agree to build a school or road. Indirect offsets
may be accomplished without a clearly defined period of performance.
(b) Exceptions from certified cost or pricing data requirements.
Notwithstanding the requirements of Federal Acquisition Regulation
(FAR) 52.215-20, Requirements for Certified Cost or Pricing Data and
Data Other Than Certified Cost or Pricing Data, in the case of this
contract or a subcontract, and FAR 52.215-21, Requirements for
Certified Cost or Pricing Data and Data Other Than
[[Page 78019]]
Certified Cost or Pricing Data--Modifications, in the case of
modification of this contract or a subcontract, submission of
certified cost or pricing data will not be required to the extent
such data relates to an indirect offset (10 U.S.C. 2306a(b)(1)).
(End of clause)
[FR Doc. 2016-26377 Filed 11-3-16; 8:45 am]
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