[Federal Register Volume 84, Number 55 (Thursday, March 21, 2019)]
[Proposed Rules]
[Pages 10439-10449]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2019-05239]


 ========================================================================
 Proposed Rules
                                                 Federal Register
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 This section of the FEDERAL REGISTER contains notices to the public of 
 the proposed issuance of rules and regulations. The purpose of these 
 notices is to give interested persons an opportunity to participate in 
 the rule making prior to the adoption of the final rules.
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  Federal Register / Vol. 84, No. 55 / Thursday, March 21, 2019 / 
Proposed Rules  

[[Page 10439]]



DEPARTMENT OF THE INTERIOR

Office of the Secretary

2 CFR Part 1402

[DOI-2018-0013; 190D0102DM, DS62400000, DLSP00000.000000, DX62401]
RIN 1090-AB19


Financial Assistance Interior Regulation

AGENCY: Office of the Secretary, Interior.

ACTION: Proposed rule.

-----------------------------------------------------------------------

SUMMARY: This proposed rule would establish the Financial Assistance 
Interior Regulation (FAIR). The FAIR supplements the Office of 
Management and Budget (OMB) Uniform Administrative Requirements, Cost 
Principles, and Audit Requirements for Federal Awards (Uniform 
Guidance), which was adopted by the Department of the Interior (DOI or 
Department) on December 19, 2014. This proposed rule would support the 
Department's goal of improving its financial assistance program, 
consolidate the Department's financial assistance regulations and 
policies derived from the OMB Uniform Guidance, and streamline the 
implementation of OMB's Uniform Guidance and DOI financial assistance 
policy.

DATES: Submit comments on or before April 22, 2019.

ADDRESSES: You may submit comments on the rulemaking through the 
Federal eRulemaking Portal at http://www.regulations.gov. Type in DOI-
2018-0013 in the search bar. Please use Regulation Identifier Number 
(RIN) 1090-AB19 in your message. Follow the instructions on the website 
for submitting comments.

FOR FURTHER INFORMATION CONTACT: Ms. Kaprice Tucker, Associate 
Director, Office of Acquisition and Property Management, Department of 
the Interior, 1849 C Street NW, Mail Stop 4262 MIB, Washington, DC 
20240; telephone (202) 208-3466; or email [email protected].

SUPPLEMENTARY INFORMATION: 

I. Background

    On December 26, 2013, the Office of Management and Budget (OMB) 
published its Uniform Administrative Requirements, Cost Principles, and 
Audit Requirements for Federal Awards (referred to as the ``Uniform 
Guidance,'' 78 FR 78590). The OMB Uniform Guidance, 2 CFR part 200, 
provided a government-wide framework for Federal awards management and 
streamlined administrative requirements, cost principles, and audit 
requirements for Federal awards including grants and cooperative 
agreements.
    The Uniform Guidance required Federal agencies to promulgate 
regulations implementing the policies and procedures applicable to 
Federal awards by December 26, 2014. On December 19, 2014, the 
Department published a final rule to adopt the OMB Uniform Guidance in 
full as 2 CFR part 1402, Uniform Administrative Requirements, Cost 
Principles, and Audit Requirements for Federal Awards [79 FR 75867]. 
Three days later, on December 22, 2014, DOI issued memoranda to 
supplement the following provisions of the OMB Uniform Guidance: (1) 
Indirect Cost Rates for Federal Financial Assistance Awards and 
Agreements; (2) Conflict of Interest and Mandatory Disclosures for 
Financial Assistance; (3) Financial Assistance Application and Merit 
review Processes; and (4) Financial Assistance Awards for For-Profit 
Entities, Foreign Public Entities, and Foreign Organizations. On 
February 8, 2016, the Department published a proposed rule to establish 
the FAIR and to consolidate all of the policy memoranda into a 
regulation to be codified at 2 CFR part 1402 (81 FR 6462). Two comments 
were received addressing, first, details of the conflicts of interest 
provision and, second, the application of 2 CFR part 200, subparts E 
(Cost Principles) and F (Audit Requirements), to tribal awards. These 
two comments were addressed by expanding the conflict of interest 
provision to be consistent with the Standards of Ethical Conduct for 
Employees of the Executive Branch, 5 CFR part 2635, and by clarifying 
the applicability of 2 CFR part 200, subparts E and F, to tribal awards 
in this proposed rulemaking, respectively.
    Because the RIN for the 2016 proposed rule expired and Departmental 
leadership wanted to strengthen the conflict of interest provisions and 
incorporate open science and land acquisition provisions, the 
Department is proposing the current version of its FAIR regulations as 
a revision to 2 CFR part 1402 for public comment.
    The FAIR regulations proposed today would: First, revise 2 CFR part 
1402 to more accurately reflect exceptions to this part; and second, 
add supplemental regulations for DOI's financial assistance program 
that would be codified at 2 CFR part 1402. The proposed rule represents 
an administrative simplification and is not intended to make any 
substantive changes to 2 CFR part 200 policies and procedures. Thus, 
this rulemaking is not seeking to revisit substantive issues resolved 
during the development and finalization of the OMB Uniform Guidance 
which was adopted by the Department on December 19, 2014. The purpose 
of the proposed rule is to help ensure that financial assistance 
provided by the DOI is administered in full compliance with applicable 
law, regulation, policy and best practices to ensure the American 
people get the most value from the money the DOI spends on financial 
assistance. The sections in this rule represent areas of the financial 
assistance program where questions have been raised by stakeholders, 
including auditors. As a result, DOI seeks to provide clarity in these 
specific areas.

Discussion of the Proposed Rule

    Subpart A of the proposed rule sets forth definitions for terms 
used in this part. Terms defined in this proposed rulemaking are 
``data,'' ``employment,'' ``financial assistance officer,'' ``foreign 
entity,'' ``non-Federal entity,'' and ``real property.'' Several of 
these terms help clarify proposed regulatory changes designed to avoid 
real or apparent conflicts of interest which might place a federal 
employee, non-Federal entity, its employees, and/or its subrecipients 
in a position of conflict, real or apparent. Proposed terms also define 
``real property'' and ``data,'' to address DOI's specific focus on 
interests in land and to address transparency in the use of data.
    Subpart B sets forth proposed general provisions including: the 
purpose of the

[[Page 10440]]

part, application, exceptions, policies and procedures that apply to 
non-Federal entities, conflict of interest policies, and mandatory 
disclosure requirements. DOI is proposing to revise Sec.  1402.100 to 
more-accurately explain the purpose of the part, which includes 
establishment of financial assistance regulations designed to ensure 
that financial assistance is administered in full compliance with 
applicable law, regulation, policy and best practices and help ensure 
the American people get the most value from the money the DOI spends on 
financial assistance. The proposed part also extends certain regulatory 
provisions to foreign public entities and foreign organizations. The 
revised Sec.  1402.101 provides that the proposed regulations would 
apply to all DOI grant-making activities and to any non-Federal entity 
that applies for, receives, operates, or expends funds from a DOI 
financial assistance award after the effective date of the final rule, 
unless otherwise authorized by Federal statute. The part also applies 
to foreign entity applicants and recipients, except where the DOI 
office or bureau determines that the application of the proposed 
regulations would be inconsistent with international obligations of the 
United States or statutes or regulations of a foreign government.
    Section 1402.102 is revised to further clarify that awards made in 
accordance with the Indian Self-Determination and Education Assistance 
Act (Pub. L. 93-638, 88 Stat. 2204), as amended, are governed by 25 CFR 
parts 900 and 1000, and by 2 CFR part 200, subparts E and F. This 
proposed regulation also provides a process for requesting exceptions 
to requirements of this part by foreign entities.
    The proposed revision to Sec.  1402.103 explains that non-Federal 
entities must follow bureau or office policies and procedures as 
communicated in notices of funding opportunity (NOFOs) and award terms 
and conditions. If such policies or procedures conflict with existing 
regulations at 2 CFR part 200 or this part, then the regulations at 2 
CFR part 200 or this part, when finalized, will supersede, unless 
otherwise authorized by Federal statute.
    Proposed Sec.  1402.112 sets forth requirements related to 
conflicts of interest that apply to recipients of financial assistance 
awards. The proposed rule would require the full text of language 
proposed in paragraphs (a) through (f) in all NOFOs and financial 
assistance awards. This section is proposed in order to make clear to 
non-Federal entities that they must appropriately address prohibited 
conflicts of interest preventing them from providing impartial, 
technically sound, and objective performance under or with respect to a 
Federal financial assistance agreement. Paragraphs (a) through (f) set 
forth direction on applicability, a discussion of conflicts, 
appropriate action that must be taken to avoid a conflict of interest, 
and enforcement.
    Section 1402.113 provides that, in addition to disclosures required 
under 2 CFR 200.112 and 200.113, non-Federal entities and applicants 
must disclose in writing any potential or actual conflict of interest 
and must also disclose any outstanding unresolved matters with the 
Government Accountability Office or the Office of Inspector General of 
any Federal agency when submitting a proposal and through the life of 
the award.
    Under subpart C, the proposed rule addresses: Merit review 
requirements for competitive awards, requirements for domestic for-
profit entities, specific financial assistance award terms and 
conditions that apply to domestic for-profit entities, and lobbying 
disclosure and certification requirements.
    Proposed Sec.  1402.204 sets forth merit review requirements for 
competitive grants and cooperative agreements unless otherwise 
prohibited by Federal statute. This proposed section also provides that 
it is important for DOI bureaus and offices to create review systems 
for discretionary programs that are noncompetitive that consider 
statutory or regulatory provisions and include a business evaluation, 
risk assessment, and other applicable government-wide pre-award 
considerations.
    This proposed section also requires pre-award considerations for 
both discretionary competitive and noncompetitive awards to take into 
account the alignment of the award's purpose, goals, and measurement 
with the current DOI Government Performance and Results Act Strategic 
Plan.
    Section 1402.204 also sets forth an expectation of maximum 
competition in awarding discretionary funds, unless otherwise directed 
by Congress. The proposed rule also provides that when grants and 
cooperative agreements are awarded competitively, the process will be 
fair and impartial, that all applicants will be evaluated only on the 
criteria stated in the announcement, and that no applicant receives an 
unfair competitive advantage. The proposed rule also sets forth 
direction on developing an evaluation and selection plan which should 
be finalized prior to the release of a notice of funding opportunity 
(NOFO). This section of the proposed rule also sets forth direction on: 
The composition of an evaluation and selection plan, completeness of 
applications and proposals, timeliness, threshold screening, merit 
review evaluation screening, and risk assessments.
    Proposed Sec. Sec.  1402.206 and 1402.207 are designed to be read 
together. Section 1402.206 provides that Sec.  1402.207(a) contains 
standard award terms and conditions that always apply to for-profit 
entities and that terms in Sec.  1402.207(b) contain terms that are 
required for all subawards and contracts over the simplified 
acquisition thresholds. The section further lists additional 
administrative guidelines in existing regulations and in proposed Sec.  
1402.414 that may be applied to domestic for-profit entities. Provision 
is made for particular program offices and bureaus to develop specific 
administrative guidelines for domestic for-profits. Finally, proposed 
Sec.  1402.206 provides that bureau and office award terms and 
conditions must be managed in accordance with requirements in existing 
2 CFR 200.210.
    Proposed Sec.  1402.207 lists specific conditions that always apply 
to domestic for-profit entities and subawards. In addition to all other 
applicable terms and conditions, specific financial assistance award 
terms and conditions proposed in Sec.  1402.207(d) apply to foreign 
entities.
    Proposed Sec.  1402.208 provides that non-Federal entities are 
strictly prohibited from using Federal funds under a grant or 
cooperative agreement for lobbying activities pursuant to 43 CFR part 
18 and 31 U.S.C. 1352.
    Subpart D includes proposed regulations that set forth post Federal 
award requirements. Section 1402.300 provides direction on relevant 
statutory and national policy requirements. This section provides that 
DOI bureaus and offices will communicate to the non-Federal entity all 
relevant public policy requirements, including those in general 
appropriations provisions, and incorporate them either directly or by 
reference in the terms and conditions of the Federal award. The 
proposed section makes clear that the non-Federal entity is responsible 
for complying with all requirements of the award, including listed 
statutes and, in the case of recipients conducting work outside the 
United States, those entities are responsible for coordinating with 
appropriate United States and foreign government authorities as 
necessary to make sure all required licenses, permits, or approvals are 
obtained before undertaking project activities. In

[[Page 10441]]

addition, direction in this section is provided to DOI bureaus and 
offices regarding compliance with the ``World Heritage Convention,'' if 
an undertaking outside of the United States may directly and adversely 
affect a property that is on the World Heritage List or the applicable 
country's equivalent of the National Register of Historic Places. 
Finally, the proposed section provides that foreign entities are 
responsible for complying with all requirements of the Federal award 
and provides a non-exhaustive list of requirements.
    Proposed Sec.  1402.315 sets forth requirements for availability of 
data that implement Secretary's Order 3369, ``Promoting Open Science,'' 
dated October 18, 2018. The proposed requirements in this section rely 
on existing regulatory provisions found at 2 CFR 200.315(d) to achieve 
the goals set forth in section 4b(3) of the Secretary's Order to 
provide the American people with enough information to thoughtfully and 
substantively evaluate the data, methodology, and analysis used by the 
Department. To accomplish these goals, the section provides that DOI 
bureaus and offices shall specifically require under the terms of any 
award, the ability to publicly release associated data, defined as 
including scientific data, methodology, factual inputs, models, 
analyses, technical information, or other scientific assessments in any 
medium or form, including textual, numerical, graphic, cartographic, 
narrative, or audiovisual, subject to applicable laws. This provision 
would apply to all grants, cooperative agreements, or other similar 
agreement between any Bureau, Office, or other organization of the 
Department and any third party and would not be limited to rulemaking.
    Section 1402.329 proposes requirements for land acquired under an 
award. The proposed regulation provides that prior to land purchases 
bureaus and offices must ensure compliance with the prior written 
approval requirements for land acquisition in existing 2 CFR 200.439. 
Whenever a recipient is seeking DOI approval to use award funds to 
purchase an interest in real property, OMB-approved government-wide 
data elements must be submitted to the responsible bureau or office. 
For this provision, the Financial Assistance Officer is responsible for 
ensuring compliance. Furthermore, all aspects of the purchase must be 
in compliance with applicable laws and regulations relating to 
purchases of land or interests in land. The proposed section also 
requires that unless a waiver valuation applies in accordance with 49 
CFR 24.102(c), land or interests in land that will be acquired under 
the award must be appraised in accordance with the Uniform Appraisal 
Standards for Federal Land Acquisitions (UASFLA or the ``Yellow 
Book''), which is incorporated by reference, by a real property 
appraiser licensed or certified by the state or states in which the 
property is located and that the appraisal report shall be reviewed by 
a qualified review appraiser that meets qualifications established by 
the DOI Appraisal and Valuation Services Office (AVSO). Requirements 
are also set forth in this section for foreign land acquisition.
    Proposed Sec.  1402.329 also sets forth direction that for all 
financial assistance actions where real property, as defined in this 
proposed rule, is acquired under the Federal award, the recipient must 
submit reports on the status of the real property as required by 2 CFR 
200.329. If the interest in real property will be held for less than 15 
years, reports must be submitted annually; otherwise the recipient must 
submit the first report within one year of the period of performance 
end date of the award and then, at a minimum every five years 
thereafter. The proposed rule also sets forth who should receive the 
reports, the required format, contents, and timing for such reports.
    Proposed Sec.  1402.414 would establish DOI policy, procedures, and 
general decision-making criteria for deviations from negotiated 
indirect cost rates applicable to all Federal financial assistance 
programs awarded and administered within DOI. The proposed regulatory 
text sets forth procedures and criteria for using an indirect cost rate 
other than the non-Federal entity's negotiated rate. The goal of this 
section is to provide consistent direction within the Department on 
negotiated indirect cost rate deviations to ensure compliance with the 
Uniform Guidance.
    Existing provisions of 2 CFR 200.414(c) require Federal agencies to 
accept federally negotiated indirect cost rates. Federal agencies may 
use a rate different from the negotiated rate for a class of awards or 
a single Federal award only when required by Federal statute or 
regulation, or when approved by a Federal awarding agency head or 
delegatee based upon documented justification described within 2 CFR 
200.414(c)(3).
    For all deviations to the Federal negotiated indirect cost rate, 
including statutory, regulatory, programmatic, and voluntary, the 
proposed rule provides that the basis of direct costs against which the 
indirect cost rate is applied must be: The same base identified in the 
recipient's negotiated indirect cost rate agreement, if the recipient 
has a federally negotiated indirect cost rate agreement; or, the 
modified total direct cost (MTDC) base, in cases where the recipient 
does not have a federally negotiated indirect cost rate agreement or, 
with prior approval of the awarding bureau or office, when the 
recipient's federally negotiated indirect cost rate agreement base is 
only a subset of the MTDC (such as salaries and wages) and the use of 
the MTDC still results in an overall reduction in the total indirect 
cost recovered.
    Proposed Sec.  1402.414(d) provides that in cases where the 
recipient does not have a federally negotiated indirect cost rate 
agreement, the Department will not use a modified rate based upon total 
direct cost or other base not identified in the federally negotiated 
indirect cost rate agreement or defined within 2 CFR 200.68.
    Section 1402.414(d) goes on to provide direction on indirect cost 
rate deviation required by statute or regulation, indirect cost rate 
reductions used as cost-share, programmatic indirect cost rate 
deviation approval process, voluntary indirect cost rate reduction, and 
unrecovered indirect costs.
    Incorporation by Reference: The purpose of the Uniform Appraisal 
Standards for Federal Land Acquisitions (Yellow Book) is to promote 
fairness, uniformity, and efficiency in the appraisal of real property 
in federal acquisitions. The same goals of uniformity, efficiency, and 
fair treatment of those affected by public projects underlie the 
Uniform Relocation Assistance and Real Property Acquisition Policies 
Act of 1970 which applies to federal acquisitions as well as many state 
and local government acquisitions involving federal funds. The Yellow 
Book is available in hard copy or interactive electronic format from 
The Appraisal Foundation at http://www.appraisalfoundation.org/imis/TAF/Yellow_Book.aspx or from the U.S. Department of Justice at https://www.justice.gov/file/408306/download.
    Invitation to Comment: The Department of the Interior is inviting 
comments concerning the proposed sections.

II. Required Determinations

1. Regulatory Planning and Review (Executive Orders 12866 and 13563)

    Executive Order (E.O.) 12866 provides that the OMB's Office of 
Information and Regulatory Affairs will review all significant rules. 
The Office of Information and Regulatory Affairs has

[[Page 10442]]

determined that this rule is not significant.
    Executive Order 13563 reaffirms the principles of E.O. 12866, 
calling for improvements in the nation's regulatory system to promote 
predictability, to reduce uncertainty, and to use the best, most 
innovative, and least burdensome tools for achieving regulatory 
objectives. E.O. 13563 directs agencies to consider regulatory 
approaches that reduce burdens and maintain flexibility and freedom of 
choice for the public, where these approaches are relevant, feasible, 
and consistent with regulatory objectives.

2. Regulatory Flexibility Act

    This proposed rule will not have a significant economic effect on a 
substantial number of small entities under the Regulatory Flexibility 
Act (5 U.S.C. 601 et seq.). The Department of the Interior generally 
does not award grants to small businesses. The vast majority of 
Interior grants are awarded to States, local governments, and not-for-
profit organizations.

3. Small Business Regulatory Enforcement Fairness Act

    This proposed rule is not a major rule under the Small Business 
Regulatory Enforcement Fairness Act (5 U.S.C. 804(2)). This rule:
    (a) Does not have an annual effect on the economy of $100 million 
or more. The Department of the Interior generally does not award grants 
to small businesses.
    (b) Will not cause a major increase in costs or prices for 
consumers, individual industries, Federal, State, or local government 
agencies, or geographic regions.
    (c) Does not have significant adverse effects on competition, 
employment, investment, productivity, innovation, or the ability of 
U.S.-based enterprises to compete with foreign-based enterprises. This 
rule establishes regulations for DOI financial assistance. DOI 
financial assistance is typically offered to States, local governments 
and not-for-profit institutions. It would not affect business 
relationships, employment, investment, productivity, innovations, or 
the ability of U.S.-based enterprises to compete internationally.

4. Unfunded Mandates Reform Act

    This rule:
    (a) Does not impose an unfunded mandate on state, local, or tribal 
governments or the private sector of more than $100 million per year.
    (b) Does not have a significant or unique effect on State, local, 
or tribal governments, or the private sector.
    (c) This proposed regulation would clarify the applicability of two 
existing regulations--the regulatory requirement for reporting under 2 
CFR 200.329--Reporting on Real Property, and the regulatory language 
establishing use of the Uniform Appraisal Standards for Federal Land 
Acquisitions (UASFLA or ``Yellow Book'') standard under 49 CFR 24.103--
to financial assistance actions at the Department of the Interior. This 
proposed regulation establishes a permitted standard for appraisals 
under 49 CFR 24.103 and specifies the required timing increments of 
reports under 2 CFR 200.329.
    A statement containing the information required by the Unfunded 
Mandates Reform Act (2 U.S.C. 1531 et seq.) is not required.

5. Takings (E.O. 12630)

    Under the criteria in section 2 of E.O. 12630, this rule does not 
have significant takings implications. It does not impose any 
obligations on the public that would result in a taking. A takings 
implication assessment is not required.

6. Federalism (E.O. 13132)

    Under the criteria in section 1 of E.O. 13132, this rule does not 
have sufficient Federalism implications to warrant the preparation of a 
Federalism summary impact statement. This is because it would not 
substantially and directly affect the relationship between the Federal 
and state governments. Accordingly, a Federalism summary impact 
statement is not required.

7. Civil Justice Reform (E.O. 12988)

    This rule complies with the requirements of E.O. 12988. 
Specifically, this rule:
    (a) Meets the criteria of section 3(a) of this E.O. requiring that 
all regulations be reviewed to eliminate errors and ambiguity and be 
written to minimize litigation; and
    (b) Meets the criteria of section 3(b)(2) of this E.O. requiring 
that all regulations be written in clear language and contain clear 
legal standards.

8. Consultation With Indian Tribes (E.O. 13175)

    The Department of the Interior strives to strengthen its 
government-to-government relationship with Indian tribes through a 
commitment to consultation and recognition of their right to self-
governance and tribal sovereignty. We have evaluated this rule under 
the Department's consultation policy and under the criteria in E.O. 
13175 and have determined that it has no substantial direct effect on 
federally recognized Indian tribes and that consultation under the 
Department's tribal consultation policy is not required.

9. Paperwork Reduction Act, 44 U.S.C. 3501, et seq.

    This regulation will require the use of the SF 429 to fulfill the 
requirement in 2 CFR 200.329. Each Bureau will submit a request for 
common form usage to the Office of Management and Budget for use of SF 
429--Real Property Status Report--Cover Page, SF 429A--Real Property 
Status Report--Attachment A--General Reporting, and SF 429B--Real 
Property Status Report--Attachment B--Request to Acquire, Improve, or 
Furnish.

10. National Environmental Policy Act

    This proposed rule would not constitute a major Federal action 
significantly affecting the quality of the human environment. A 
detailed statement under the National Environmental Policy Act of 1969 
(NEPA) is not required. Pursuant to Department Manual 516 DM 2.3A(2), 
section 1.10 of 516 DM 2, Appendix 1 excludes from documentation in an 
environmental assessment or impact statement ``policies, directives, 
regulations and guidelines of an administrative, financial, legal, 
technical or procedural nature; or the environmental effects of which 
are too broad, speculative or conjectural to lend themselves to 
meaningful analysis and will be subject to the NEPA process, either 
collectively or case-by-case.''

11. Effects on the Energy Supply (E.O. 13211)

    This rule is not a significant energy action under the definition 
in E.O. 13211; therefore, a Statement of Energy Effects is not 
required.

12. Plain Language

    We are required by section 1(b)(12) of E.O. 12866 and Section 
3(b)(1)(B) of E.O. 12988 and by the Presidential Memorandum of June 1, 
1998, to write all rules in plain language. This means that each rule 
we publish must:
    (a) Be logically organized;
    (b) Use the active voice to address readers directly;
    (c) Use common, everyday words and clear language rather than 
jargon;
    (d) Be divided into short sections and sentences; and
    (e) Use lists and tables wherever possible.
    If you feel that we have not met these requirements, please contact 
the person listed in the FOR FURTHER INFORMATION CONTACT section of 
this preamble.

[[Page 10443]]

List of Subjects in 2 CFR Part 1402

    Accounting, Administrative practice and procedure, Adult education, 
Aged, Agriculture, American Samoa, Bilingual education, Blind, Business 
and industry, Civil rights, Colleges and universities, Communications, 
Community development, Community facilities, Copyright, Credit, 
Cultural exchange programs, Educational facilities, Educational 
research, Education, Education of disadvantaged, Education of 
individuals with disabilities, Educational study programs, Electric 
power, Electric power rates, Electric utilities, Elementary and 
secondary education, Energy conservation, Equal educational 
opportunity, Federally affected areas, Government contracts, Grant 
programs, Grant programs--agriculture, Grant programs--business, Grant 
programs--communications, Grant programs--education, Grant programs--
energy, Grant programs--health, Grant programs--housing and community 
development, Grant programs--social programs, Grants administration, 
Guam, Home improvement, Homeless, Hospitals, Housing, Human research 
subjects, Indians, Indians--education, Infants and children, Insurance, 
Intergovernmental relations, International organizations, Inventions 
and patents, Loan programs, Loan programs social programs, Loan 
programs--agriculture, Loan programs--business and industry, Loan 
programs--communications, Loan programs--energy, Loan programs--health, 
Loan programs--housing and community development, Manpower training 
programs, Migrant labor, Mortgage insurance, Nonprofit organizations, 
Northern Mariana Islands, Pacific Islands Trust Territories, Privacy, 
Renewable energy, Reporting and recordkeeping requirements, Rural 
areas, Scholarships and fellowships, School construction, Schools, 
Science and technology, Securities, Small businesses, State and local 
governments, Student aid, Teachers, Telecommunications, Telephone, 
Urban areas, Veterans, Virgin Islands, Vocational education, Vocational 
rehabilitation, Waste treatment and disposal, Water pollution control, 
Water resources, Water supply, Watersheds, Women.


0
For the reasons set forth in the preamble, the Department of the 
Interior proposes to revise 2 CFR part 1402 to read as follows:

PART 1402--FINANCIAL ASSISTANCE INTERIOR REGULATION, SUPPLEMENTING 
THE UNIFORM ADMINISTRATIVE REQUIREMENTS, COST PRINCIPLES, AND AUDIT 
REQUIREMENTS FOR FEDERAL AWARDS

Subpart A--Definitions
Sec.
1402.1 Definitions.
1402.2 Data.
1402.3 Employment.
1402.4 Financial Assistance Officer.
1402.5 Foreign entity.
1402.6 Non-Federal entity.
1402.7 Real property.
Subpart B--General Provisions
1402.100 Purpose.
1402.101 To whom does this part apply?
1402.102 Are there any exceptions to this part?
1402.103 What other policies or procedures must non-Federal entities 
follow?
1402.104-1402.111 [Reserved]
1402.112 What are the conflict of interest policies?
1402.113 What are the mandatory disclosure requirements?
1402.114-1402.203 [Reserved]
Subpart C--Pre-Federal Award Requirements and Contents of Federal 
Awards
1402.204 What are the merit review requirements for competitive 
awards?
1402.205 [Reserved]
1402.206 What are the FAIR requirements for domestic for-profit 
entities?
1402.207 What specific conditions apply?
1402.208 What are the lobbying disclosure and certification 
requirements?
1402.209-1402.299 [Reserved]
Subpart D--Post Federal Award Requirements
1402.300 What are the statutory and national policy requirements?
1402.301-1402.314 [Reserved]
1402.315 What are the requirements for the availability of data?
1402.316-1402.328 [Reserved]
1402.329 What are the requirements for land acquired under an award?
1402.330-1402.413 [Reserved]
1402.414 What are the negotiated indirect cost rate deviation 
policies?
1402.415-1402.999 [Reserved]

    Authority: 5 U.S.C. 301 and 2 CFR part 200.

Subpart A--Definitions


Sec.  1402.1  Definitions.

    The definitions in this subpart are for terms used in this part. 
For terms used in this part that are not defined, the definitions in 2 
CFR part 200 apply. Different definitions may be found in Federal 
statutes or regulations that apply more specifically to particular 
programs or activities.


Sec.  1402.2  Data.

    Data includes scientific data, methodology, factual inputs, models, 
analyses, technical information, or other scientific assessments in any 
medium or form, including textual, numerical, graphic, cartographic, 
narrative, or audiovisual.


Sec.  1402.3  Employment.

    Employment includes any form of non-Federal employment or business 
relationship involving the provision of personal services by the 
employee, whether to be undertaken at the same time as, or subsequent 
to Federal employment. It includes but is not limited to personal 
services as an officer, director, employee, agent, attorney, 
consultant, contractor, general partner, or trustee of the other 
organization.


Sec.  1402.4  Financial Assistance Officer.

    Financial Assistance Officer means a person with the authority to 
enter into, administer, and/or terminate financial assistance awards 
(including grants and cooperative agreements); and make related 
determinations and findings.


Sec.  1402.5  Foreign entity.

    Foreign entity means both ``foreign public entity'' and ``foreign 
organization,'' as defined in 2 CFR 200.46 and 200.47.


Sec.  1402.6  Non-Federal entity.

    Non-Federal entity means a state, local government, Indian tribe, 
institution of higher education (IHE), for-profit entity, or nonprofit 
organization that carries out a Federal award as a recipient or 
subrecipient.


Sec.  1402.7  Real property.

    Real property has the same meaning as set forth in 2 CFR 200.85, 
except that the definition in this section also applies to interests in 
land such as easements.

Subpart B--General Provisions


Sec.  1402.100  Purpose.

    (a) The Uniform Administrative Requirements, Cost Principles, and 
Audit Requirements for Federal Awards set forth in 2 CFR part 200 apply 
to the Department of the Interior. This part adopts, as the Department 
of the Interior (DOI) policies and procedures, the Office of Management 
and Budget's (OMB) Uniform Administrative Requirements, Cost 
Principles, and Audit Requirements set forth in 2 CFR part 200. The 
Uniform Guidance applies in full except as stated in this part.
    (b) This part establishes DOI financial assistance regulations that 
implement or

[[Page 10444]]

supplement the OMB's Uniform Guidance. It is designed to ensure that 
financial assistance is administered in full compliance with applicable 
law, regulation, policy, and best practices to ensure the American 
people get the most value from the money DOI spends on financial 
assistance. For supplemental guidance, DOI has adopted section 
numbering that corresponds to related OMB guidance in 2 CFR part 200.
    (c) This part extends 2 CFR part 200, subpart A through E, policies 
and procedures to foreign public entities and foreign organizations as 
allowed by 2 CFR 200.101, except as indicated throughout this part.


Sec.  1402.101  To whom does this part apply?

    (a) This part applies to all DOI grant-making activities and to any 
non-Federal entity that applies for, receives, operates, or expends 
funds from a DOI Federal award after [EFFECTIVE DATE OF THE FINAL 
RULE], unless otherwise authorized by Federal statute.
    (b) This part applies to foreign entity applicants and recipients, 
except where the DOI office or bureau determines that the application 
of this part would be inconsistent with the international obligations 
of the United States or the statutes or regulations of a foreign 
government (see 2 CFR 1402.102). For the purposes of this part, the 
term ``foreign entities'' means both ``foreign public entities'' and 
``foreign organizations,'' as those terms are defined in 2 CFR part 
200.
    (1) Foreign entities are subject to the definitions and 
requirements in 2 CFR part 200, subparts A through E, and as 
supplemented by this part. In addition to the general requirements in 2 
CFR part 200, foreign entities must follow the special considerations 
and requirements for different classes of recipients in subparts A 
through E as follows, unless otherwise instructed in this part:
    (i) Foreign public entities are to follow those for states, with 
the exception of the state payment procedures in 2 CFR 200.305(a). 
Foreign public entities must follow the payment procedures for non-
Federal entities other than states;
    (ii) Foreign nonprofit organizations are to follow those for 
nonprofits; and
    (iii) Foreign higher education institutions are to follow those for 
Institutions of Higher Education (IHEs).


Sec.  1402.102  Are there any exceptions to this part?

    (a) Awards made in accordance with the Indian Self-Determination 
and Education Assistance Act (Pub. L. 93-638, 88 Stat. 2204), as 
amended, are governed by 25 CFR parts 900 and 1000, and by 2 CFR part 
200, subparts E and F.
    (b) Exceptions for individual foreign entities to the requirements 
in this part may be authorized by the Director, Office of Grants 
Management. Such exceptions must be made in accordance with written 
bureau or office policy and procedures.
    (1) Foreign entities must request any exception to a requirement 
established in this part in writing. Such requests must be submitted to 
the funding bureau or office by an authorized official of the foreign 
entity, and must provide sufficient pertinent background information, 
including:
    (i) Identification of the requirement under this part that is 
inconsistent with an in-country statute or regulation to which the 
foreign entity is subject;
    (ii) A complete description of the in-country statute or 
regulation, including a description of how it prohibits or otherwise 
limits the foreign entity's ability to comply with the identified 
requirement under this part; and
    (iii) Identification of the entity's name, DOI award(s) affected, 
and point of contact for the request.
    (2) The Director, Office of Grants Management may approve 
exceptions for individual foreign entities to the requirements of this 
part only when it has been determined that the requirement to be waived 
is inconsistent with either the international obligations of the United 
States or the statutes or regulations of a foreign government. Bureaus 
and offices will communicate exception request decisions to the 
requesting entity in writing.
    (3) Submissions by public international organization submissions of 
any assurances, certifications or representations required for and 
related to a Federal award do not constitute a waiver of immunities 
provided under the International Organizations Immunities Act (22 
U.S.C. 288-288f).
    (4) Foreign entities are not subject to the following requirements 
in 2 CFR part 200:
    (i) Generally accepted accounting principles (GAAP). Foreign 
entities may be subject to other applicable international or in-country 
alternatives to GAAP, such as the International Financial Reporting 
Standards (IFRS). See 2 CFR 200.403, Factors affecting allowability of 
costs;
    (ii) 2 CFR 200.321, Contracting with small and minority businesses, 
women's business enterprises, and labor surplus area firms; and
    (iii) Section 6002 of the Solid Waste Disposal Act. See 2 CFR 
200.322, Procurement of recovered materials.


Sec.  1402.103  What other policies or procedures must non-Federal 
entities follow?

    Non-Federal entities must follow bureau or office policies and 
procedures as communicated in notices of funding opportunity (NOFOs) 
and award terms and conditions. In the event such policies or 
procedures conflict with 2 CFR part 200 or this part, 2 CFR part 200 or 
this part will supersede, unless otherwise authorized by Federal 
statute.


Sec. Sec.  1402.104-1402.111  [Reserved]


Sec.  1402.112  What are the conflict of interest policies?

    This section shall apply to all non-Federal entities. NOFOs and 
financial assistance awards must include the full text of the conflict 
of interest provisions in paragraphs (a) through (f) of this section.
    (a) Applicability. (1) This section intends to ensure that non-
Federal entities and their employees take appropriate steps to avoid 
conflicts of interest in their responsibilities under or with respect 
to Federal financial assistance agreements.
    (2) In the procurement of supplies, equipment, construction, and 
services by recipients and by subrecipients, the conflict of interest 
provisions in 2 CFR 200.318 apply.
    (b) Requirements. (1) Non-Federal entities must avoid prohibited 
conflicts of interest, including any significant financial interests 
that could cause a reasonable person to question the recipient's 
ability to provide impartial, technically sound, and objective 
performance under or with respect to a Federal financial assistance 
agreement.
    (2) In addition to any other prohibitions that may apply with 
respect to conflicts of interest, no key official of an actual or 
proposed recipient or subrecipient, who is substantially involved in 
the proposal or project, may have been a former Federal employee who, 
within the last one (1) year, participated personally and substantially 
in the evaluation, award, or administration of an award with respect to 
that recipient or subrecipient or in development of the requirement 
leading to the funding announcement.
    (3) No actual or prospective recipient or subrecipient may solicit, 
obtain, or use non-public information regarding the evaluation, award, 
or administration of an award to that recipient or subrecipient or the 
development of a Federal financial assistance opportunity

[[Page 10445]]

that may be of competitive interest to that recipient or subrecipient.
    (c) Notification. (1) Non-Federal entities, including applicants 
for financial assistance awards, must disclose in writing any conflict 
of interest to the DOI awarding agency or pass-through entity in 
accordance with 2 CFR 200.112.
    (2) Recipients must establish internal controls that include, at a 
minimum, procedures to identify, disclose, and mitigate or eliminate 
identified conflicts of interest. The recipient is responsible for 
notifying the Financial Assistance Officer in writing of any conflicts 
of interest that may arise during the life of the award, including 
those that have been reported by subrecipients.
    (d) Restrictions on lobbying. Non-Federal entities are strictly 
prohibited from using funds under a grant or cooperative agreement for 
lobbying activities and must provide the required certifications and 
disclosures pursuant to 43 CFR part 18 and 31 U.S.C. 1352.
    (e) Review procedures. The Financial Assistance Officer will 
examine each conflict of interest disclosure on the basis of its 
particular facts and the nature of the proposed grant or cooperative 
agreement, and will determine whether a significant potential conflict 
exists and, if it does, develop an appropriate means for resolving it.
    (f) Enforcement. Failure to resolve conflicts of interest in a 
manner that satisfies the government may be cause for termination of 
the award. Failure to make required disclosures may result in any of 
the remedies described in 2 CFR 200.338, Remedies for noncompliance, 
including suspension or debarment (see also 2 CFR part 180).


Sec.  1402.113  What are the mandatory disclosure requirements?

    In addition to the disclosures required under 2 CFR 200.112 and 
200.113, non-Federal entities, including applicants for all Federal 
awards, must disclose in writing any potential or actual conflict of 
interest to the DOI awarding agency or pass-through entity. Non-Federal 
entities and applicants must also disclose any outstanding unresolved 
matters with the Government Accountability Office or an Office of 
Inspector General when submitting a proposal and through the life of 
the award as needed.


Sec. Sec.  1402.114-1402.203  [Reserved]

Subpart C--Pre-Federal Award Requirements and Contents of Federal 
Awards


Sec.  1402.204  What are the merit review requirements for competitive 
awards?

    The requirements in this section apply to competitive grants and 
cooperative agreements unless otherwise authorized by Federal statute. 
Merit review procedures must be described or incorporated by reference 
in NOFOs (see 2 CFR part 200, appendix I, and 2 CFR 200.203). It is 
also important for DOI bureaus and offices to create review systems for 
noncompetitively awarded discretionary programs that consider statutory 
or regulatory provisions, risk assessment, and other applicable 
government-wide pre-award considerations. Pre-award considerations for 
both discretionary competitive and noncompetitive awards shall take 
into account the alignment of the award's purpose, goals, and 
measurement with the current DOI Government Performance and Results Act 
Strategic Plan including, the mission statement, vision, values, goals, 
objectives, strategies and performance metrics therein.
    (a) Competition in grant and cooperative agreement awards. Maximum 
competition is expected in awarding discretionary funds, unless 
otherwise directed by Congress. When grants and cooperative agreements 
are awarded competitively, DOI requires that the competitive process be 
fair and impartial, that all applicants be evaluated only on the 
criteria stated in the announcement, and that no applicant receive an 
unfair competitive advantage. All competitive funding announcements, 
and all modifications/amendments to those announcements, must be posted 
on Grants.gov (www.grants.gov).
    (b) Independent objective evaluation of financial assistance 
applications and proposals. Bureaus and offices must conduct reviews of 
applications submitted in response to the announcement and for 
selecting applicants for award following established merit review 
procedures. Bureaus and offices must conduct comprehensive, impartial, 
and objective review of applications based on the criteria contained in 
the announcement by individuals who have no conflicts of interest with 
respect to the competing proposal/applications or applicants. Bureaus 
and offices must ensure reviewers are qualified, applications are 
scored on the basis of announced criteria, consideration is given to 
the level of applicant risk and past performance, applications are 
ranked, and funding determinations are made.
    (c) Evaluation and Selection Plan for notice of funding 
opportunities. Bureaus and offices must develop an Evaluation and 
Selection Plan in concert with the notice of funding opportunity (NOFO) 
to ensure consistency, and to outline and document the selection 
process. The Evaluation and Selection Plan should be finalized prior to 
the release of the NOFO. An Evaluation and Selection Plan is comprised 
of five basic elements:
    (1) Merit review factors and sub-factors;
    (2) A rating system (e.g., adjectival, color coding, numerical, or 
ordinal);
    (3) Evaluation standards or descriptions that explain the basis for 
assignment of the various rating system grades/scores;
    (4) Program policy factors; and
    (5) The basis for selection.
    (d) Basic review standards. Bureaus and offices must initially 
screen applications/proposals to ensure that they meet the standards in 
paragraphs (e) through (g) of this section before they are subjected to 
a detailed evaluation utilizing a merit review process specified in 
paragraph (h) of this section. The review system should include three 
phases: Initial Screening, Threshold Screening, and a Merit Review 
Evaluation Screening. Bureaus and offices may remove an application 
from funding consideration if it does not pass the basic eligibility 
screening per paragraphs (e) through (g) of this section.
    (e) Completeness. Bureaus and offices may return applications/
proposals that are incomplete or otherwise fail to meet the 
requirements of the Grants.gov announcement to the applicant to be 
corrected, modified, or supplemented, or may reject the application/
proposal outright. Until the application/proposal meets the substantive 
requirements of the announcement and this part, it shall not be given 
detailed evaluation. Bureaus and offices may use discretion to 
determine the length of time for applicants to resolve application 
deficiencies.
    (f) Timeliness. Bureaus and offices must consider the timeliness of 
the application submission. Applications that are submitted beyond the 
announced deadline date must be removed from the review process.
    (g) Threshold Screening. Bureaus and offices are responsible for 
screening applications and proposals for the adequacy of the budget and 
compliance with statutory and other requirements. The SF-424 and budget 
information

[[Page 10446]]

(SF-424A, SF-424C, or OMB-approved alternate budget data collection) 
must be reviewed according to Department of the Interior policy.
    (h) Merit Review Evaluation Screening. This is the final review 
stage where the technical merit of the application/proposal is 
reviewed. In the absence of a program rule or statutory requirement, 
program officials shall develop criteria that include all aspects of 
technical merit. Bureaus and offices shall develop criteria that are 
conceptually independent of each other, but all-encompassing when taken 
together. While criteria will vary, the basic criteria shall focus 
reviewers' attention on the project's underlying merit (i.e., 
significance, approach, and feasibility). The criteria shall focus not 
only on the technical details of the proposed project but also on the 
broader importance or potential impact of the project. The criteria 
shall be easily understood.
    (i) Risk assessments. Bureaus and offices must also consider risk 
thresholds during application/proposal review process. Elements to be 
considered may include organization; single audit submissions, past 
performance; availability of necessary resources, equipment, or 
facilities; financial strength and management capabilities; and 
procurement procedures; or procedures for selecting and monitoring 
subrecipients or sub-vendors, if applicable. For all non-Federal 
entities that receive an award, the Financial Assistance Officer must 
document the risk analysis.
    (j) Requirements for proposal evaluators. Upon receipt of a 
Memorandum of Appointment, each proposal evaluator and advisor must 
sign and return a Conflict of Interest Certificate to the Financial 
Assistance Officer. If an actual or potential conflict of interest 
exists, the appointee may not evaluate or provide advice on a potential 
applicant's proposal until the conflict has been resolved or mitigated. 
Further, each proposal evaluator or advisor must agree to comply with 
any notice or limitation placed on the application. Upon completion of 
the review, the proposal evaluator or advisor shall return or destroy 
all copies of the application and accompanying proposals (or abstracts) 
to DOI; and unless authorized by the Financial Assistance Officer or 
agency designee, the reviewer shall not contact the non-Federal entity 
concerning any aspect of the application.


Sec.  1402.205  [Reserved]


Sec.  1402.206  What are the FAIR requirements for domestic for-profit 
entities?

    (a) Requirements for domestic for-profit entities. (1) Section 
1402.207(a) contains standard award terms and conditions that always 
apply to for-profit entities and Sec.  1402.207(b) contains terms that 
apply to sub-awards or contracts with for-profit entities over the 
simplified acquisition threshold. Bureaus and offices must incorporate 
into awards to domestic for-profit organizations the award terms and 
conditions that always apply, either directly or by reference.
    (2) Bureaus and offices may apply the administrative guidelines in 
subparts A through D of 2 CFR part 200, the cost principles at 48 CFR 
part 31, subpart 31.2, and the procedures for negotiating indirect 
costs (detailed in Sec.  1402.414) to domestic for-profit entities.
    (3) Depending on the nature of a particular program, offices and 
bureaus may additionally develop program-specific administrative 
guidelines for domestic for-profits based on the requirements in 2 CFR 
part 200, subparts A through D, but may not apply more restrictive 
requirements than the requirements in 2 CFR part 200, subparts A 
through D, unless approved by OMB through a request to the Director, 
Office of Grants Management.
    (b) Requirements for award terms and conditions. Bureau and office 
award terms and conditions must be managed in accordance with the 
requirements in 2 CFR 200.210, Information contained in a Federal 
award.


Sec.  1402.207  What specific conditions apply?

    (a) The following financial assistance award terms and conditions 
always apply to domestic for-profit entities:
    (1) 2 CFR part 25, Universal Identifier and System for Award 
Management.
    (2) 2 CFR part 170, Reporting Subawards and Executive Compensation 
Information.
    (3) 2 CFR part 175, Award Term for Trafficking in Persons.
    (4) 2 CFR part 1400, government-wide debarment and suspension (non-
procurement).
    (5) 2 CFR part 1401, Requirements for Drug-Free Workplace 
(Financial Assistance).
    (6) 43 CFR part 18, New Restrictions on Lobbying. Submission of an 
application also represents the applicant's certification of the 
statements in 43 CFR part 18, appendix A, Certification Regarding 
Lobbying.
    (7) 41 U.S.C. 4712, Whistleblower Protection for Contractor and 
Grantee Employees. The requirement in this paragraph (a)(7) applies to 
all awards issued after July 1, 2013.
    (8) 41 U.S.C. 6306, Prohibition on Members of Congress Making 
Contracts with the Federal Government. No member of or delegate to the 
United States Congress or Resident Commissioner shall be admitted to 
any share or part of this award, or to any benefit that may arise 
therefrom; this paragraph (a)(8) shall not be construed to extend to an 
award made to a corporation for the public's general benefit.
    (9) Executive Order 13513, Federal Leadership on Reducing Text 
Messaging while Driving. Recipients are encouraged to adopt and enforce 
policies that ban text messaging while driving, including conducting 
initiatives of the type described in section 3(a) of the Executive 
Order.
    (b) The recipient shall insert the following clause in all 
subawards and contracts related to the prime award that are over the 
simplified acquisition threshold, as defined in the Federal Acquisition 
Regulation:

    All awards and related subawards and contracts over the 
Simplified Acquisition Threshold, and all employees working on 
applicable awards and related subawards and contracts, are subject 
to the whistleblower rights and remedies in accordance with the 
pilot program on award recipient employee whistleblower protections 
established at 41 U.S.C. 4712 by section 828 of the National Defense 
Authorization Act for Fiscal Year 2013 (Pub. L. 112-239).
    Recipients, their subrecipients and contractors that are awarded 
contracts over the Simplified Acquisition Threshold related to an 
applicable award, shall inform their employees, in writing, in the 
predominant language of the workforce, of the employee whistleblower 
rights and protections under 41 U.S.C. 4712.

    (c) The following award terms and conditions apply to for-profit 
recipients as specified in 2 CFR 200.101:
    (1) Administrative requirements: 2 CFR part 200, subparts A through 
D.
    (2) Cost principles: 48 CFR part 31, subpart 31.2, Contracts with 
Commercial Organizations.
    (3) Indirect cost rate negotiations. For information on indirect 
cost rate negotiations, contact the Interior Business Center (IBC) 
Indirect Cost Services Division by telephone at (916) 566-7111 or by 
email at [email protected]. Visit the IBC Indirect Cost Services Division 
website at http://www.doi.gov/ibc/services/Indirect_Cost_Services/index.cfm for more information.

[[Page 10447]]

Sec.  1402.208  What are the lobbying disclosure and certification 
requirements?

    Non-Federal entities are strictly prohibited from using funds under 
a grant or cooperative agreement for lobbying activities, and must 
provide the required certifications and disclosures pursuant to 43 CFR 
part 18 and 31 U.S.C. 1352.


Sec. Sec.  1402.210-1402.399  [Reserved]

Subpart D--Post Federal Award Requirements


Sec.  1402.300  What are the statutory and national policy 
requirements?

    (a) DOI bureaus and offices will communicate to the non-Federal 
entity all relevant public policy requirements, including those in 
general appropriations provisions, and incorporate them either directly 
or by reference in the terms and conditions of the Federal award.
    (b) The non-Federal entity is responsible for complying with all 
requirements of the Federal award. For all Federal awards, this 
includes the provisions of Federal Funding Accountability and 
Transparency Act (FFATA), which includes requirements on executive 
compensation, and also requirements implementing the FFATA for the non-
Federal entity at 2 CFR part 25, financial assistance use of universal 
identifier and system for award management, and 2 CFR part 170, 
Reporting Subaward and Executive Compensation Information. See also 
statutory requirements for whistleblower protections at 10 U.S.C. 2409, 
41 U.S.C. 4712, and 10 U.S.C. 2324, 41 U.S.C. 4304 and 4310.
    (c) Recipients conducting work outside the United States are 
responsible for coordinating with appropriate United States and foreign 
government authorities as necessary to make sure all required licenses, 
permits, or approvals are obtained before undertaking project 
activities. DOI does not assume responsibility for recipient compliance 
with the laws, regulations, policies, or procedures of the foreign 
country in which the work is conducted.
    (d) As required in 54 U.S.C. 307101, World Heritage Convention, 
prior to the approval of any undertaking outside the United States that 
may directly and adversely affect a property that is on the World 
Heritage List or on the applicable country's equivalent of the National 
Register of Historic Places, the DOI bureau or office having direct or 
indirect jurisdiction over the undertaking shall take into account the 
effect of the undertaking on the property for purposes of avoiding or 
mitigating any adverse effect.
    (e) Foreign entities are responsible for complying with all 
requirements of the Federal award. For awards to foreign entities, this 
includes:
    (1) 2 CFR part 25, Universal Identifier and System for Award 
Management, unless the entity meets one or more qualifying conditions 
and is exempted by the awarding bureau or office as provided for in 2 
CFR part 25;
    (2) 2 CFR part 170, Reporting Subaward and Executive Compensation 
Information;
    (3) 2 CFR part 175, Award Term for Trafficking in Persons. This 
term is required in awards to foreign private entities. The term is 
also required in awards to foreign public entities, if funding could be 
provided under the award to a foreign private entity as a subrecipient;
    (4) 2 CFR part 1400, Nonprocurement Debarment and Suspension. 
Awards to foreign organizations are covered transactions under the DOI 
nonprocurement debarment and suspension program. Awards to foreign 
public entities are not covered transactions;
    (5) 43 CFR part 18, New Restrictions on Lobbying. Foreign entities 
shall file the 43 CFR part 18, appendix A, certification, and a 
disclosure form, if required, with each application for Federal 
assistance. See also 31 U.S.C. 1352, Limitation on use of appropriated 
funds to influence certain Federal contracting and financial 
transactions; and
    (6) Public Law 113-235 (128 Stat. 2391, Dec. 16, 2014). Federal 
award recipients are prohibited from requiring employees or contractors 
seeking to report fraud, waste, or abuse to sign internal 
confidentiality agreements or statements prohibiting or otherwise 
restricting such employees or contractors from lawfully reporting such 
waste, fraud, or abuse to a designated investigative or law enforcement 
representative of a Federal department or agency authorized to receive 
such information.


Sec.  Sec.  1402.301-1402.314  [Reserved]


Sec.  1402.315  What are the requirements for availability of data?

    (a) All data resulting from a financial assistance agreement is 
available for use by the Department of the Interior, including being 
available in a manner that is sufficient for independent verification.
    (b) Data includes scientific data, methodology, factual inputs, 
models, analyses, technical information, or other scientific 
assessments in any medium or form, including textual, numerical, 
graphic, cartographic, narrative, or audiovisual.
    (c) The Federal Government has the right to:
    (1) Obtain, reproduce, publish, or otherwise use the data produced 
under a Federal award; and
    (2) Authorize others to receive, reproduce, publish, or otherwise 
use such data for Federal purposes, including to allow for meaningful 
third-party evaluation and reproduction.
    (d) Bureaus and offices of the Department of the Interior must 
include the language in paragraphs (a), (b), and (c) of this section in 
full text in all NOFOs and financial assistance agreements.


Sec.  Sec.  1402.316-1042.328  [Reserved]


Sec.  1402.329  What are the requirements for land acquired under an 
award?

    (a) Approval prior to land purchases. Bureaus and offices must 
ensure compliance with the prior written approval requirements for land 
acquisition in 2 CFR 200.439. Whenever a recipient is seeking DOI's 
approval to use award funds to purchase an interest in real property, 
the OMB-approved governmentwide data elements for collection of real 
property reporting information, as of [EFFECTIVE DATE OF THE FINAL 
RULE], SF-429-B, Request to Acquire, Improve, or Furnish, or approved 
alternate standardized data collection, must be submitted to the bureau 
or office. The Financial Assistance Officer is responsible for ensuring 
that this requirement is met. All aspects of the purchase must be in 
compliance with applicable laws and regulations relating to purchases 
of land or interests in land.
    (b) Appraisal requirements for land purchases. Unless a waiver 
valuation applies in accordance with 49 CFR 24.102(c), land or 
interests in land that will be acquired under the award must be 
appraised in accordance with the Uniform Appraisal Standards for 
Federal Land Acquisitions, 6th Edition, dated December 6, 2016 (UASFLA 
or the ``Yellow Book'') by a real property appraiser licensed or 
certified by the state or states in which the property is located. The 
appraisal report shall be reviewed by a qualified review appraiser that 
meets qualifications established by the DOI Appraisal and Valuation 
Services Office (AVSO), which is responsible for appraisal and 
valuation services and policy across the Department. Bureaus and 
offices shall ensure that funds are not disbursed for purchases of land 
or interests in land

[[Page 10448]]

without an appraisal accompanied by a written appraisal review report 
that complies with standards approved by AVSO. Where appraisals are 
required to support federally assisted land acquisitions, AVSO has 
oversight responsibilities for these appraisals, including those 
purchased through financial assistance actions in the various grant 
programs within the Department. AVSO will coordinate with grant 
programs to conduct periodic internal control review of appraisal and 
appraisal review reports prepared in conjunction with grant 
applications for land acquisition. The Director of the Federal Register 
approves the incorporation by reference of the Yellow Book in 
accordance with 5 U.S.C. 552(a) and 1 CFR part 51. You may obtain a 
print copy or interactive electronic version from The Appraisal 
Foundation at https://www.appraisalfoundation.org/iMIS/itemDetail?iProductCode=351&Category=PUB or a read-only version from 
the U.S. Department of Justice at https://www.justice.gov/file/408306/download. You may inspect a copy at the Appraisal and Valuation 
Services Office within the Department of the Interior located at 1840 C 
St. NW, Washington, DC 20240 or at the National Archives and Records 
Administration (NARA). For information on the availability of this 
material at NARA, call 202-741-6030, or go to www.archives.gov/federal-register/cfr/ibr-locations.html.
    (c) Foreign land acquisition. Land to be acquired under an award 
that is located outside the United States must be appraised by an 
independent real property appraiser licensed or certified in the 
country in which the property is located in accordance with any in-
country appraisal standards, if they exist, or with International 
Valuation Standards, when such appraisals are available and financially 
feasible. Otherwise, the non-Federal entity must use the most widely 
accepted business practice for property valuation in the country where 
the property is located and provide to the awarding DOI bureau or 
office a detailed explanation of the methodology used to determine 
value.
    (d) Requirements for recipient reporting on real property 
purchases. (1) For all financial assistance actions where real property 
is acquired under the Federal award, the recipient must submit reports 
on the status of the real property. Bureaus and offices must ensure 
recipients receive written notification of those reporting 
requirements, including reporting frequency/schedule, report content 
requirements, and submission instructions, at the time of award.
    (2) If the interest in the land will be held for less than 15 
years, reports must be submitted annually. If the interest in the land 
will be held for 15 years or more, then the recipient must submit the 
first report within one year of the period of performance end date of 
the award and then, at a minimum, every five years thereafter.
    (3) The reports must be submitted to the Financial Assistance 
Officer within the period of performance of the award. After the end of 
the period of performance, reports must be submitted to a designated 
individual. Each bureau must have a process in place to designate 
specific individuals to receive, and review and accept the report.
    (4) Recipients must use the OMB-approved governmentwide data 
elements for collection of real property reporting information, as of 
[EFFECTIVE DATE OF THE FINAL RULE], the Real Property Status Report 
Standard Form (SF) 429-A, General Reporting, to report status of land 
or interests in land under Federal financial assistance awards. Bureaus 
or offices may request to use an equivalent reporting format. The 
Director, Office of Grants Management must approve alternate equivalent 
formats.
    (5) Reports must include, at a minimum, sufficient information to 
demonstrate that all conditions imposed on the land use are being met, 
and a signed certification to that fact by the recipient of the 
financial assistance award.
    (6) The Financial Assistance Officer must indicate the reporting 
schedule, including due dates, in the award document. The schedule must 
conform with the frequency required in paragraph (d)(2) of this 
section. For awards issued prior to [EFFECTIVE DATE OF THE FINAL RULE], 
the recipient must contact the program to establish due dates for 
reports going forward. If there is already a reporting schedule in 
place, then the recipient and the program shall ensure that the 
schedule is updated to conform with this part prior to the due date of 
the next scheduled report.


Sec. Sec.  1402.330-1402.413  [Reserved]


Sec.  1402.414  What are the negotiated indirect cost rate deviation 
policies?

    (a) This section establishes DOI policies, procedures, and decision 
making criteria for using an indirect cost rate that differs from the 
non-Federal entity's negotiated rate or approved rate for DOI awards. 
These are established in accordance with 2 CFR 200.414(c)(3) or 
200.414(f).
    (b) DOI accepts indirect cost rates that have been reduced or 
removed voluntarily by the proposed recipient of the award, on an 
award-specific basis.
    (c) For all deviations to the Federal negotiated indirect cost 
rate, including statutory, regulatory, programmatic, and voluntary, the 
basis of direct costs against which the indirect cost rate is applied 
must be:
    (1) The same base identified in the recipient's negotiated indirect 
cost rate agreement, if the recipient has a federally negotiated 
indirect cost rate agreement; or
    (2) The Modified Total Direct Cost (MTDC) base, in cases where the 
recipient does not have a federally negotiated indirect cost rate 
agreement or, with prior approval of the awarding bureau or office, 
when the recipient's federally negotiated indirect cost rate agreement 
base is only a subset of the MTDC (such as salaries and wages) and the 
use of the MTDC still results in an overall reduction in the total 
indirect cost recovered. MTDC is the base defined by 2 CFR 200.68, 
Modified Total Direct Cost (MTDC).
    (d) In cases where the recipient does not have a federally 
negotiated indirect cost rate agreement, DOI will not use a modified 
rate based upon total direct cost or other base not identified in the 
federally negotiated indirect cost rate agreement or defined within 2 
CFR 200.68.
    (1) Indirect cost rate deviation required by statute or regulation. 
In accordance with 2 CFR 200.414(c)(1), a Federal agency must use a 
rate other than the Federal negotiated rate where required by Federal 
statute or regulation. For such instances within DOI, the official 
award file must document the specific statute or regulation that 
required the deviation.
    (2) Indirect cost rate reductions used as cost-share. Instances 
where the recipient elects to use a rate lower than the federally 
negotiated indirect cost rate, and uses the balance of the unrecovered 
indirect costs to meet a cost-share or matching requirement required by 
the program and/or statute, are not considered a deviation from 2 CFR 
200.414(c), as the federally negotiated indirect cost rate is being 
applied under the agreement in order to meet the terms and conditions 
of the award.
    (3) Programmatic indirect cost rate deviation approval process. 
Bureaus and offices with DOI approved deviations in place prior to 
[EFFECTIVE DATE OF THE FINAL RULE] are not required to resubmit those 
for reconsideration following the procedures in this paragraph (d)(3). 
The

[[Page 10449]]

following requirements apply for review, approval, and posting of 
programmatic indirect cost rate waivers:
    (i) Program qualifications. Programs that have instituted a 
program-wide requirement and governance process for deviations from 
federally negotiated indirect cost rates may qualify for a programmatic 
deviation approval.
    (ii) Deviation requests. Deviation requests must be submitted by 
the responsible senior program manager to the DOI Office of Grants 
Management. The request for deviation approval must include a 
description of the program, and the governance process for negotiating 
and/or communicating to recipients the indirect cost rate requirements 
under the program. The program must make its governance documentation, 
rate deviations, and other program information publicly available.
    (iii) Approvals. Programmatic deviations must be approved, in 
writing, by the Director, Office of Grants Management. Approved 
deviations will be made publicly available.
    (4) Voluntary indirect cost rate reduction. On any single award, an 
applicant and/or proposed recipient may elect to reduce or eliminate 
the indirect cost rate applied to costs under that award. The election 
must be voluntary and cannot be required by the awarding official, 
NOFO, program, or other non-statutory or non-regulatory requirements. 
For these award-specific and voluntary reductions, DOI can accept the 
lower rate provided the notice of award clearly documents the 
recipient's voluntary election. Once DOI has accepted the lower rate, 
that rate will apply for the duration of the award.
    (5) Unrecovered indirect costs. In accordance with 2 CFR 200.405, 
indirect costs not recovered due to deviations to the federally 
negotiated rate are not allowable for recovery via any other means.


Sec.  Sec.  1402.415-1402.499  [Reserved]

Susan Combs,
Senior Advisor to the Secretary, exercising the authority of the 
Assistant Secretary for Policy Management and Budget.
[FR Doc. 2019-05239 Filed 3-20-19; 8:45 am]
BILLING CODE 4334-63-P