[Federal Register Volume 81, Number 247 (Friday, December 23, 2016)]
[Rules and Regulations]
[Pages 94246-94251]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2016-30874]


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SMALL BUSINESS ADMINISTRATION

13 CFR Parts 121 and 125

RIN 3245-AG71


Credit for Lower Tier Small Business Subcontracting

AGENCY: U.S. Small Business Administration.

ACTION: Final rule.

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SUMMARY: The U.S. Small Business Administration (SBA) is amending its 
regulations to implement section 1614 of the National Defense 
Authorization Act for Fiscal Year 2014 (NDAA 2014). Section 1614 
amended the Small Business Act to provide that where a prime contractor 
has an individual subcontracting plan for a specific prime contract 
with an executive agency, the prime contractor shall receive credit 
towards its subcontracting plan goals for awards made to small business 
concerns at any tier under the contract. The changes authorized by this 
statute will allow an other than small prime contractor that has an 
individual subcontracting plan for a contract to receive credit towards 
its small business subcontracting goals for subcontract awards made to 
small business concerns at any tier, to the extent reported on the 
subcontracting plans of its lower tier subcontractors. The final rule 
also implements the statutory requirements related to the 
subcontracting plans of all subcontractors that are required to 
maintain such plans, including the requirement to monitor 
subcontractors' performance and compliance toward reaching the goals 
set out in those plans as well as their compliance with subcontracting 
reporting requirements. SBA is also clarifying that the size standard 
for a particular subcontract must appear in the solicitation for the 
subcontract.

DATES: This rule is effective on January 23, 2017.

FOR FURTHER INFORMATION CONTACT: Michael McLaughlin, Office of Policy, 
Planning and Liaison, 409 Third Street SW., Washington, DC 20416; (202) 
205-5353; [email protected].

SUPPLEMENTARY INFORMATION: 

Introduction

    The final rule implements Section 1614 of the National Defense 
Authorization Act for Fiscal Year 2014, Public Law 113-66, December 26, 
2013 (hereinafter NDAA 2014). Section 1614 amended section 8(d)(6)(D) 
of the Small Business Act, 15 U.S.C. 637(d)(6)(d), to provide that 
where a prime contractor has a subcontracting plan for a specific prime 
contract with an executive agency, as required by Section 8(d) of the 
Small Business Act, the prime contractor will receive credit towards 
its subcontracting plan goals for awards made to small business 
concerns at any tier under the contract, to the extent reported under 
the subcontracting plan of a lower tier other than small subcontractor. 
When a prime contractor awards a subcontract to a firm, it is generally 
considered a first tier subcontract. That subcontractor may award a 
subcontract, which would be considered a second tier subcontract, and 
so on. Currently, with few exceptions, a prime contractor cannot 
receive credit towards its small business subcontracting plan goals for 
awards made below the first tier.
    SBA is amending its regulations to require other than small 
business prime contractors to count lower tier small business 
subcontract awards towards their federal small business subcontracting 
goals on unrestricted federal contracts, to the extent the lower tier 
subcontractor are required to report the information. With limited 
exceptions, unrestricted federal procurements and subcontracts over 
$700,000 ($1.5 million for construction of any public facility) include 
Federal Acquisition Regulation (FAR) clause 52.219-9 (Small Business 
Subcontracting Plan), which requires other than small contractors and 
their lower tier subcontractors to make a good faith effort to meet or 
to exceed the small business subcontracting goals established in their 
respective subcontracting plans. Failure to make this effort could 
result in liquidated damages, default termination, and negative 
performance reviews. For a subcontracting plan for a specific prime 
contract, the contractor or subcontractor is required to submit an 
Individual Subcontract Report (ISR) and Summary Subcontracting Report 
(SSR). The ISR is submitted semiannually during contract performance 
and upon contract completion. The SSR is submitted annually to 
procuring agencies. Both forms are submitted through the Electronic 
Subcontracting Reporting System (eSRS). Until this final rule, a large 
prime contractor could not take credit for a subcontract award to a 
second-tier small business subcontractor. Lastly, large prime 
contractors are already required to identify the size standard that 
applies to a subcontract. 13 CFR 121.410, 121.411, 125.3(c)(1)(v). 
Subcontractor size representation is reviewed during compliance reviews 
(See 13 CFR 125.3(f)(2)(i)) and size representations at

[[Page 94247]]

the subcontract level may be protested (See 13 CFR 121.411). In 
addition, Section 868 of the National Defense Authorization Act of 
2016, Public Law 114-92 (November 25, 2015), requires SBA, as part of 
the its scorecard on agency small business prime contracting and 
subcontracting performance, to compare ``The number of small business 
concerns, small business concerns owned and controlled by service-
disabled veterans, qualified HUBZone small business concerns, small 
business concerns owned and controlled by socially and economically 
disadvantaged individuals, and small business concerns owned and 
controlled by women awarded subcontracts in each North American 
Industry Classification System code during the fiscal year and a 
comparison to the number of awarded subcontracts during the prior 
fiscal year, if available.''
    SBA published a proposed rule regarding these changes in the 
Federal Register on October 6, 2015. 80 FR 60300 (October 6, 2015). SBA 
received a total of 13 comments. Two of these comments were generally 
positive without offering any comments on specific provisions. SBA 
received three comments that were generally opposed to the rule without 
offering comment on specific provisions. These three commenters 
generally felt that the statute and the regulations were likely to hurt 
small business subcontractors rather than help them, and would likely 
result in large prime contractors attempting to exert more control over 
their subcontractors. SBA received one comment that was not relevant; 
this comment made no mention of the proposed regulation.
    Two commenters did not think that SBA's regulatory impact analysis 
took into consideration the extra burden that large businesses would 
have under these changes. The commenters claimed that the costs and 
challenges of collecting the data are more than minimal, and that large 
businesses will incur more than minimal costs. Neither commenter 
provided data or analysis on what those costs would be, just a general 
statement that they would be more than minimal. SBA addressed this 
issue in its proposed rule. Any costs associated with the regulatory 
implementation of these provisions of the NDAA 2014 will be included in 
the proposed Federal Acquisition Regulation (FAR) changes. Thus, any 
Paperwork Reduction Act (PRA) costs associated with proposed rulemaking 
and implementation will occur during the FAR rulemaking process.
    SBA received one comment seeking clarification that this rule and 
credit for lower tier subcontracting does not affect Agencies' prime 
contract goaling numbers. This rule only applies to subcontracting 
plans, not to agency prime contract goaling requirements. Generally, 
agencies do not count subcontracting dollars awarded to small business 
concerns towards their prime contract goaling requirements, except for 
the Department of Energy. This rule does not change reporting under the 
SSR, which is how agencies receive credit for subcontracting. Firms 
will continue to report only their first-tier subcontracts on the SSR.
    SBA received one comment regarding enforcement of these regulations 
prior to FAR regulatory implementation and updates to eSRS. As noted in 
the proposed rule, it is SBA's position that this regulation will 
require changes to FAR prior to full implementation in eSRS.

Summary of Proposed Rule, Comments, and SBA's Responses

Part 121

    SBA proposed amending Sec.  121.411(b) allowing prime contractors 
to accept a subcontractor's size certification electronically. The list 
of enumerated methods is illustrative only, and is not exhaustive. SBA 
received several comments on this issue, and all believed the proposed 
change was positive, but that more clarity was needed about who may 
accept the certifications, and whether this applied to socioeconomic 
certifications. Thus, SBA is adopting the language as proposed, with 
minor additions for clarity. The final rule now makes clear that prime 
and subcontractors may rely on any form of electronic certification 
that they deem appropriate provided it is given in connection with an 
offer for specific subcontract and it includes the language in SBA's 
regulation which provides that in order to accept an electronic 
representation, the representation must be in connection with an offer 
for a subcontract and the solicitation and subcontract provides that 
the subcontractor verifies by submission of the offer that the size and 
socioeconomic representations and certifications are current accurate 
and complete as of the date of offer for the subcontract. See 13 CFR 
121.411(b), 125.3(c)(1)(v).

Part 125

    In proposed Sec.  125.3(a)(1), SBA included the new statutory 
definition for a subcontract that was enacted by NDAA 2014. SBA 
received one comment that requested more specificity with regard to 
what will be considered a subcontract. Specifically, this commenter 
wanted lists of what would and would not be considered a subcontract, 
based in part on FAR definitions. The proposed definition is taken from 
the statute, which was added by NDAA 2014, and SBA is adopting the 
statutory definition in the final rule. See 15 U.S.C. 632(dd)(1).
    In proposed Sec.  125.3(a)(1)(i)(C), SBA provided guidance on when 
a prime contractor may receive credit for lower tier subcontracting. 
Specifically, the proposed rule stated that only individual 
subcontracting plans were entitled to receive the credit. SBA has 
revised this section based on the comments. Specifically, the final 
rule clearly states how commercial and individual plans differ, and 
what the prime contractor's and subcontractor's responsibilities and 
requirements are for individual subcontracting plans as required by the 
Small Business Act. SBA received several comments asking for 
clarification, and several comments asking SBA to also apply the new 
guidelines to commercial subcontracting plans. SBA addressed this issue 
in its proposed rule, ``Section 1614 applies only when determining 
whether or not a prime contractor has met its individual subcontracting 
plan goals. Thus, Section 1614 does not apply where the prime 
contractor has a commercial plan or comprehensive subcontracting 
plan.'' 80 FR 60300, 60301 (October 6, 2015). The Small Business Act 
specifically states that the prime contractor shall receive lower tier 
credit ``if the subcontracting goals pertain to a single contract with 
the executive agency.'' 15 U.S.C. 637(d)(16)(A)(i). A commercial plan, 
like a comprehensive subcontracting plan, applies to more than one 
government contract, and thus the lower tier credit provisions do not 
apply to those types of plans.
    SBA received two comments on the issue of double counting and the 
incorporation of subcontracting plans from lower tier, other than small 
subcontractors. One commenter suggested that SBA amend the language of 
the regulation and add examples to provide clarity. One commenter 
requested that SBA remove the requirement that other than small 
subcontractors are required to have their own subcontracting plan, if 
their plan is incorporated into the prime contractor's plan. The 
requirement that subcontractors have their own plan is an independent 
statutory requirement that must be met. SBA has crafted the final rule 
to make it clear that incorporation

[[Page 94248]]

of lower tier goals does not change the requirements of the lower tier 
subcontractors to have its own subcontracting plans, meet their goals, 
and report on its first tier performance. Further, the prime contractor 
will continue to report on performance at the first tier level. The 
prime contractor's performance towards its lower tier small business 
subcontracting goals will be based on the reports of its other than 
small lower tier subcontractors with subcontracting plans to the extent 
that the lower tier subcontractor are required to report. The prime 
contractor remains responsible for ensuring accurate reporting to the 
government.
    SBA received two comments on proposed Sec.  125.3(c)(1)(i), which 
proposed to require that in order for a prime contractor to receive 
credit for awards made at lower tiers, the prime contractor would be 
required to have a complete subcontracting plan, including 
incorporation of its subcontractor's goals, prior to award. The Small 
Business Act requires that subcontracting plans be submitted, 
negotiated, and approved before contract award. 15 U.S.C. 637(d)(4)(B) 
and (C). The commenters contend that having all of the necessary steps 
done and completed prior to award, including the incorporation of lower 
tier subcontractor's plans, is not practicable on all contracts. The 
commenters state that often the prime will not be aware of which 
companies their subcontractors may be utilizing. The Small Business Act 
provides that prime contractors ``shall'' receive credit for 
subcontractors at any tier pursuant to a subcontracting plan required 
by section 15 U.S.C. 637(d)(6)(D), which is the statutory requirement 
to require other than small subcontractors to have subcontracting plans 
if the subcontract exceeds certain threshold amounts. 15 U.S.C. 
637(d)(16)(A)(i). Thus, the prime contractor with an individual 
subcontracting plan will be obligated to consider and establish goals 
based on the subcontracting plans of its other than small 
subcontractors prior to award of the contract.
    SBA proposed to amend Sec.  125.3(c)(1)(v) to clarify which NAICS 
should apply to a subcontract and how primes should inform potential 
subcontractors which NAICS and corresponding size standard will be 
applied. SBA's regulations currently require that the prime contractor 
(or subcontractor that is subcontracting to another concern) must 
assign a NAICS code to the subcontract that best describes the work 
being performed or the product being purchased by that subcontract. The 
contractor may not simply pass down the NAICS assigned to the prime 
contract to all subcontracts. SBA received five negative comments on 
this requirement, and one comment that believed it would be in conflict 
with the FAR. However, this is not a new requirement. SBA's current 
regulations require that each subcontract have a NAICS assigned that 
describes the work being performed under the subcontract, with the 
corresponding size standard. While not a new requirement, SBA believes 
it is important to reiterate why this requirement is necessary to 
accurately reflect small business participation in subcontracting. 
Utilizing the prime contract's NAICS for subcontracts may not always 
accurately describe the work being done under that subcontract. SBA 
does not have a one-size-fits-all definition of what a small business 
is, because whether a firm is small depends largely on what type of 
work it performs, or what type of product it supplies. Utilizing one 
NAICS code for all subcontracts would distort the calculation of small 
business subcontracting performance.
    Several comments requested clarification on whether, based on the 
wording of this rule, all subcontracts would require a solicitation. 
That was not the intention of the regulation, and SBA has added a 
sentence to the regulation to make this clear. However, it should also 
be clear that the prime contractor (or lower tier subcontractor that is 
subcontracting) assigning the NAICS to the subcontract is responsible 
for providing notice of the size standard to prospective subcontractors 
prior to acceptance and formation of a subcontract. This is necessary 
to ensure that small businesses can accurately certify to their size 
status. SBA also added parentheticals to make clear that this applies 
to prime contractors and subcontractors.
    SBA proposed to add Sec.  125.3(c)(1)(x) to implement 15 U.S.C. 
637(d)(6)(D) of the Small Business Act, requiring prime contractors and 
subcontractors with subcontracting plans to do various tasks in 
connection with their subcontractors with subcontracting plans. SBA 
received one negative comment stating the requirements were too 
burdensome and one comment requesting clarification concerning whether 
these requirements pertain to commercial subcontracting plans. SBA also 
received a comment requesting that the requirements of this paragraph 
and paragraph (xi) be required only if the prime contractor 
incorporates its subcontractors' subcontracting plans. The requirements 
articulated in the proposed rule are required by statute for all 
subcontracting plans, and thus we are adopting the language as proposed 
in the final rule. Subcontractors of primes with commercial plans do 
not have to have subcontracting plans if the subcontract is for a 
commercial item. Consequently, the requirements of Sec.  125.3(c)(1)(x) 
apply to a prime with a commercial plan to the extent its 
subcontractors have their own individual subcontracting plans, not 
commercial plans
    SBA received one comment stating that the dollar value thresholds 
in SBA's rule are different than the recently updated FAR thresholds. 
The revised inflation adjusted subcontracting plan thresholds became 
effective after SBA issued the proposed rule, and SBA has updated the 
thresholds in this final rule.
    SBA proposed to add Sec.  125.3(c)(1)(xi) in order to incorporate 
new requirements from the statute concerning the records the prime 
contractor must maintain to demonstrate subcontractors at all tiers 
comply with the subcontracting plan requirements. Two commenters noted 
confusion as to what was meant by the phrase ``recite the types of 
records the prime will maintain.'' SBA is changing language to make 
clear that a written statement is required.
    Finally, with respect to liquidated damages, the Small Business Act 
provides that each contract subject to the requirements for a 
subcontracting plan shall contain a clause for the payment of 
liquidated damages upon a finding that a prime contractor has failed to 
make a good faith effort to comply with the requirements imposed on 
such subcontractor by section 8(d)(4)(F) of the Small Business Act, 15 
U.S.C. 637(d)(4)(F). Thus, a prime contractor could be subject to 
liquidated damages if it fails to make a good faith effort to review 
and approve subcontracting plans submitted by its subcontractors; 
monitor subcontractor compliance with its approved subcontracting 
plans; ensure that subcontracting reports are submitted by its 
subcontractors when required; acknowledge receipt of its 
subcontractors' reports; compare the performance of its subcontractors 
to subcontracting plans and goals; and discuss performance with 
subcontractors when necessary to ensure its subcontractors make a good 
faith effort to comply with their subcontracting plans.

[[Page 94249]]

Compliance With Executive Orders 12866, 13563, 12988, and 13132, the 
Paperwork Reduction Act (44 U.S.C. Ch. 35), and the Regulatory 
Flexibility Act (5 U.S.C. 601-612)

Executive Order 12866

    The Office of Management and Budget (OMB) has determined that this 
final rule is a significant regulatory action for the purposes of 
Executive Order 12866. Accordingly, the next section contains SBA's 
Regulatory Impact Analysis. This is not a major rule, however, under 
the Congressional Review Act.

Regulatory Impact Analysis

1. Is there a need for the regulatory action?
    The final regulations implement section 1614 of the National 
Defense Authorization Act for Fiscal Year 2014. Section 1614(c)(3) 
requires the Administrator to promulgate regulations necessary to 
implement the Act.
2. What are the potential benefits and costs of this regulatory action?
    The benefits of the final regulations are minimal and the final 
costs cannot be determined until the FAR rules are proposed. Other than 
small business prime contractors and subcontractors already establish 
individual subcontracting plan goals and report on their achievements 
if the subcontracting plan thresholds are met. Under section 1614 of 
the NDAA 2014, a prime contractor with an individual subcontracting 
plan will receive credit towards its goals for small business 
performance at lower tiers. Thus, there will be some costs to the prime 
contractor to propose subcontracting plan goals that incorporate small 
business performance at lower tiers and to ensure that their 
subcontractors have plans and submit required reports, and there will 
also be costs to the Government to evaluate whether the prime 
contractor's goals adequately address maximum practicable small 
business subcontracting opportunity at all tiers. SBA estimates that 
there were approximately 34,000 individual subcontracting plans in 
fiscal year 2015, and that approximately 24,000 were at the prime 
contract level. Other than small firms may have multiple individual 
subcontracting plans at the prime and sub level, so the number of other 
than small firms affected by this rule will be less than the number of 
individual subcontracting plans, but we cannot say with any precision 
how many will be impacted. There may also be costs to the Government as 
eSRS may have to be modified to allow other than small prime 
contractors to receive small business credit at any tier towards their 
subcontracting plan goals. However, SBA is not able to estimate these 
costs because the system will be modified when this rule is implemented 
into the FAR and the process for capturing the lower tier reports is 
further defined. There should not be any costs imposed on small 
business concerns as this rule does not change any reporting or 
recordkeeping requirements for small business concerns.
3. What are the alternatives to this final rule?
    Many of the final regulations are required to implement specific 
statutory provisions which require promulgation of implementing 
regulations. There are no other alternatives that would meet the 
statutory requirements.

Executive Order 13563

    As part of its ongoing efforts to engage stakeholders in the 
development of its regulations, SBA has solicited comments and 
suggestions from the public and the procuring agencies on how to best 
implement section 1614 of NDAA 2014. For example, SBA received comments 
from the American Bar Association Section of Public Contract Law, the 
Associated General Contractors of America, the Council of Defense and 
Space Industry Associations, the U.S. Women's Chamber of Commerce, and 
Women Impacting Public Policy (WIPP).
    SBA has incorporated those comments and suggestions to the extent 
feasible. SBA has considered the comments received in response to the 
proposed rule and incorporated public input into the final rule to the 
extent feasible.

Executive Order 12988

    For purposes of Executive Order 12988, SBA has drafted this final 
rule, to the extent practicable, in accordance with the standards set 
forth in section 3(a) and 3(b)(2) of Executive Order 12988, to minimize 
litigation, eliminate ambiguity, and reduce burden. This rule has no 
preemptive or retroactive effect.

Executive Order 13132

    For the purpose of Executive Order 13132, SBA has determined that 
this final rule will not have substantial direct effects on the States, 
on the relationship between the national government and the States, or 
on the distribution of power and responsibilities among the various 
layers of government. Therefore, SBA has determined that this final 
rule has no federalism implications warranting preparation of a 
federalism assessment.

Paperwork Reduction Act, 44 U.S.C. Ch. 35

    For purposes of the Paperwork Reduction Act (PRA), SBA has 
determined that this final rule, if adopted in final form, would not 
impose new government-wide reporting and recordkeeping requirements on 
other than small prime contractors and subcontractors. If any 
information collection procedures change or are amended during the 
subsequent FAR rulemaking of this SBA rule, they will be addressed in 
the FAR rulemaking process.

Regulatory Flexibility Act, 5 U.S.C. 601-612

    According to the Regulatory Flexibility Act (RFA), 5 U.S.C. 601, 
when an agency issues a rulemaking, it must prepare a regulatory 
flexibility analysis to address the impact of the rule on small 
entities. However, section 605 of the RFA allows an agency to certify a 
rule, in lieu of preparing an analysis, if the rulemaking is not 
expected to have a significant economic impact on a substantial number 
of small entities. The RFA defines ``small entity'' to include ``small 
businesses,'' ``small organizations,'' and ``small governmental 
jurisdictions.'' This final rule concerns various aspects of SBA's 
contracting programs. As such, the rule relates to small business 
concerns, but would not affect ``small organizations'' or ``small 
governmental jurisdictions'' because those programs generally apply 
only to ``business concerns'' as defined by SBA regulations, in other 
words, to small businesses organized for profit. ``Small 
organizations'' or ``small governmental jurisdictions'' are non-profits 
or governmental entities and do not generally qualify as ``business 
concerns'' within the meaning of SBA's regulations.
    This rule will impact other than small business concerns, as small 
business concerns are not required to have subcontracting plans. Other 
portions of the rule simply clarify existing regulations, and do not 
impose new requirements on small business concerns. As discussed 
previously, SBA's rules currently require firms to certify their size 
and socioeconomic status in connection with subcontracts. This rule 
simply clarifies that the requirement to certify applies to the 
solicitation for the subcontract. In sum, the final rule will not have 
a disparate impact on small businesses or impose any additional costs 
on small business concerns. For the reasons discussed, SBA certifies 
that this final rule will not have a significant economic impact on

[[Page 94250]]

a substantial number of small business concerns.

List of Subjects

13 CFR Part 121

    Government contracts, Government procurement, Small businesses, 
Size standards.

13 CFR Part 125

    Government contracts, Government procurement, Reporting and 
recordkeeping requirements, Small businesses, Small business 
subcontracting.

    For the reasons stated in the preamble, SBA amends 13 CFR parts 121 
and 125 as follows:

PART 121--SMALL BUSINESS SIZE REGULATIONS

0
1. The authority citation for part 121 continues to read as follows:

    Authority:  15 U.S.C. 632, 634(b)(6), 662, and 694a(9).


0
2. Amend Sec.  121.411 by removing the second sentence in paragraph (b) 
and adding two sentences in its place to read as follows:


Sec.  121.411   What are the size procedures for SBA's Section 8(d) 
Subcontracting Program?

* * * * *
    (b) * * * Prime contractors (or subcontractors) may accept paper 
self-certifications as to size and socioeconomic status or a 
subcontractor's electronic self-certification as to size or 
socioeconomic status, if the solicitation for the subcontract contains 
a clause which provides that the subcontractor verifies by submission 
of the offer that the size or socioeconomic representations and 
certifications are accurate and complete. Electronic submission may 
include any method acceptable to the prime contractor (or 
subcontractor) including, but not limited to, size representations and 
certifications made in SAM (or any successor system) and electronic 
conveyance of subcontractor certifications in prime contractor systems 
in connection with an offer for a subcontract. * * *
* * * * *

PART 125--GOVERNMENT CONTRACTING PROGRAMS

0
3. The authority citation for part 125 continues to read as follows:

    Authority: 15 U.S.C. 632(p), (q); 634(b)(6), 637, 644, 657f, and 
657q.

0
4. Amend Sec.  125.3 as follows:
0
a. Revise paragraph (a)(1) introductory text;
0
b. Add paragraph (a)(1)(i)(C);
0
c. Add paragraph (a)(1)(i)(D);
0
d. Revise the heading for paragraph (c);
0
e. Amend paragraph (c)(1) by removing ``$650,000'' and adding in its 
place ``$700,000'';
0
f. Revise the first sentence of paragraph (c)(1)(i);
0
g. Revise paragraph (c)(1)(v);
0
h. Remove the word ``and'' at the end of paragraph (c)(1)(viii);
0
i. Remove the period at the end of paragraph (c)(1)(ix) and add in its 
place a semi-colon and the word ``and''; and
0
j. Add new paragraphs (c)5(1)(x) and (xi).
    The additions and revisions read as follows:


Sec.  125.3   What types of subcontracting assistance are available to 
small businesses?

    (a) * * *
    (1) Subcontract under this section means a legally binding 
agreement between a contractor that is already under contract to 
another party to perform work and a third party (other than one 
involving an employer-employee relationship), hereinafter referred to 
as the subcontractor, for the subcontractor to perform a part or all of 
the work that the contractor has undertaken.
    (i) * * *
    (C) Where the prime contractor has an individual subcontracting 
plan, the prime contractor shall establish two sets of small business 
subcontracting goals, one goal for the first tier and one goal for 
lower tier subcontracts awarded by other than small subcontractors with 
individual subcontracting plans. Under individual subcontracting plans 
the prime contractor shall receive credit for small business concerns 
performing as first tier subcontractors (first tier goal) and 
subcontractors at any tier pursuant to the subcontracting plans 
required under paragraph (c) of this section in an amount equal to the 
dollar value of work awarded to such small business concerns (lower 
tier goal). Other-than-small, lower tier subcontractors must have their 
own individual subcontracting plans if the subcontract is at or above 
the subcontracting plan threshold, and are required to make a good 
faith effort to meet their subcontracting plan goals. The prime 
contractor and any subcontractor with a subcontracting plan are 
responsible for reporting on subcontracting performance under their 
contracts or subcontracts at their first tier. The prime contractor's 
performance under its individual subcontracting plan will be calculated 
using its own reporting at the first tier for its first tier goal and 
its subcontractors' first tier reports under their plans for the lower 
tier subcontracting goals. The prime contractor's performance under the 
individual subcontracting plan must be evaluated based on its combined 
performance under the first tier and lower tier goal.
    (D) Other-than-small prime contractors and subcontractors with 
subcontracting plans shall report on their subcontracting performance 
on the Summary Subcontracting report (SSR) at their first tier only.
* * * * *
    (c) Additional responsibilities of other than small contractors. * 
* *
    (1) * * *
    (i) Submitting and negotiating before award an acceptable 
subcontracting plan that reflects maximum practicable opportunities for 
small businesses in the performance of the contract as subcontractors 
or suppliers at all tiers of performance. * * *
* * * * *
    (v) The contractor must assign to each subcontract, and to each 
solicitation, if a solicitation is utilized, the NAICS code and 
corresponding size standard that best describes the principal purpose 
of the subcontract (see Sec.  121.410 of this chapter). A formal 
solicitation is not required for each subcontract, but the contractor 
must provide some form of written notice of the NAICS code and size 
standard assigned to potential offerors prior to acceptance and award 
of the subcontract. The prime contractor (or subcontractor) may rely on 
a subcontractor's electronic representations and certifications, if the 
solicitation for the subcontract contains a clause which provides that 
the subcontractor verifies by submission of the offer that the size or 
socioeconomic representations and certifications are current, accurate 
and complete as of the date of the offer for the subcontract. 
Electronic submission may include any method acceptable to the prime 
contractor (or subcontractor) including, but not limited to, size or 
socioeconomic representations and certifications made in SAM (or any 
successor system). A prime contractor (or subcontractor) may not 
require the use of SAM (or any successor system) for purposes of 
representing size or socioeconomic status in connection with a 
subcontract;
* * * * *
    (x) Except when subcontracting for commercial items, the prime 
contractor must require all subcontractors (except small business 
concerns) who receive subcontracts in excess of $1,500,000 in

[[Page 94251]]

the case of a subcontract for the construction of any public facility, 
or in excess of $700,000 in the case of all other subcontracts, and 
which offer further subcontracting possibilities, to adopt a 
subcontracting plan of their own consistent with this section, and must 
ensure at a minimum that all subcontractors required to maintain 
subcontracting plans pursuant to this paragraph will review and approve 
subcontracting plans submitted by their subcontractors; monitor their 
subcontractors' compliance with their approved subcontracting plans; 
ensure that subcontracting reports are submitted by their 
subcontractors when required; acknowledge receipt of their 
subcontractors' reports; compare the performance of their 
subcontractors to their subcontracting plans and goals; and discuss 
performance with their subcontractors when necessary to ensure their 
subcontractors make a good-faith effort to comply with their 
subcontracting plans; and
    (xi) The prime contractor must provide a written statement of the 
types of records it will maintain to demonstrate procedures which have 
been adopted to ensure subcontractors at all tiers comply with the 
requirements and goals set forth in the subcontracting plan established 
in accordance with paragraph (c)(1)(x) of this section, including the 
establishment of source lists of small business concerns, small 
business concerns owned and controlled by veterans, small business 
concerns owned and controlled by service-disabled veterans, qualified 
HUBZone small business concerns, small business concerns owned and 
controlled by socially and economically disadvantaged individuals, and 
small business concerns owned and controlled by women; the efforts to 
identify and award subcontracts to such small business concerns; and 
size or socioeconomic certifications or representations received in 
connection with each subcontract.
* * * * *

    Dated: December 14, 2016.
Maria Contreras-Sweet,
Administrator.
[FR Doc. 2016-30874 Filed 12-22-16; 8:45 am]
 BILLING CODE 8025-01-P