[Federal Register Volume 84, Number 200 (Wednesday, October 16, 2019)]
[Rules and Regulations]
[Pages 55246-55249]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2019-22324]


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GENERAL SERVICES ADMINISTRATION

41 CFR Chapter 301 and Parts 304-2, 304-3, 304-5, and 304-6

[FTR Case 2019-301-2; Docket No. 2019-0006, Sequence 1]
RIN 3090-AK06


Federal Travel Regulation (FTR); Clarification of Payment in Kind 
for Speakers at Meetings and Similar Functions

AGENCY: Office of Government-Wide Policy, U.S. General Services 
Administration (GSA).

ACTION: Final rule.

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SUMMARY: GSA is amending the FTR to change the definition of ``payment 
in kind''. The new definition provides that a waived or discounted 
registration fee provided by the non-Federal sponsor of a meeting or 
similar function is not a payment in kind to the agency for the day(s) 
an employee speaks, participates in a panel, or presents at the event. 
This rule also makes miscellaneous related corrections.

DATES: Effective November 15, 2019.

FOR FURTHER INFORMATION CONTACT: For clarification of content, contact 
Ms. Jill Denning, Program Analyst, Office of Government-wide Policy, at 
202-208-7642. Contact the Regulatory Secretariat Division (MVCB), 1800 
F Street NW, Washington, DC 20405, 202-501-4755, for information 
pertaining to status or publication schedules. Please cite FTR Case 
2019-301-2.

SUPPLEMENTARY INFORMATION:

A. Background

    GSA published a proposed rule in the Federal Register at 84 FR 
19895 on May 7, 2019. The proposed rule noted that under 31 U.S.C. 
1353, as implemented in FTR chapter 304 (41 CFR chapter 304), agencies 
may accept payment of travel expenses from a non-Federal source for 
employees to attend meetings or similar functions. Currently, the FTR 
makes no distinction between employees who participate by speaking, 
serving on a panel or delivering a presentation, and other attendees at 
a meeting or similar function.
    Because employees participate as a speaker, panelist, or presenter 
at these types of events to further the mission of their agency as a 
necessary and customary part of their work activities, GSA is 
redefining the travel purpose codes found in appendix C of chapter 301, 
which agencies use for travel reporting purposes. GSA is also amending 
chapter 304 so that a waived or discounted registration fee for the 
day(s) an employee participates as a speaker, panelist, or presenter is 
not a payment in kind. These waived and discounted registration fees 
will not need to be reported to the U.S. Office of Government Ethics 
(OGE). Other types of travel expenses paid by a non-Federal source, 
such as transportation, lodging, meals, and attendance on non-speaking 
days, or other associated event or similar function-related activities, 
must continue to be reviewed and reported in accordance with FTR 
chapter 304.
    GSA acknowledges that OGE's Standards of Conduct regulations at 5 
CFR 2635.203(b)(8) and (g) permit employees, in their personal 
capacities, to accept free attendance, including meals, at an event 
provided by the event sponsor, on the day(s) the employee is presenting 
information on behalf of the agency. However, GSA's implementation of 
31 U.S.C. 1353 must be more restrictive. In particular, 31 U.S.C. 1353 
applies to payments from non-Federal sources for ``travel, subsistence, 
and related expenses'' for employees traveling on official business 
away from their designated post of duty. This statute requires that 
meals provided in kind by a non-Federal source be considered a 
``payment in kind'' to the agency, as opposed to a gift personally 
accepted by the employee. Specifically, the language of 31 U.S.C. 1353, 
when read in conjunction with 5 U.S.C. 5701 and 5702 (prescribing an 
entitlement for payment of subsistence expenses and defining 
``subsistence'' to include meals) defines ``payment'' to include meals 
provided in kind by a non-Federal source. When an agency approves 
acceptance of meals from a non-Federal source, 31 U.S.C. 1353 also 
requires that employees be subject to a pro rata reduction to their per 
diem entitlement. Therefore, GSA's implementation of 31 U.S.C. 1353 in 
regulation must include meals in the definition of ``payment in kind.''
    Accordingly, this final rule instructs employees whose agencies 
have authorized the acceptance of meal(s)

[[Page 55247]]

under 31 U.S.C. 1353 to deduct meal(s) from their meals and incidental 
expenses per diem on their travel voucher using the deduction amounts 
listed for the locality at https://www.gsa.gov/mie unless they are 
unable to consume the meal(s) due to an exception provided in FTR Sec.  
301-11.18. This practice should prove efficient to agencies compared to 
current practice in which agency officials request from the non-Federal 
source a breakout of the costs of each meal provided in kind.
    As noted above, the final rule states that if agencies accept a 
registration fee waiver or discount on the day(s) when employees are 
serving as a speaker, panelist, or presenter, such waiver or discount 
is not a payment in kind (emphasis added). However, if an employee 
attends a multi-day event on days they are not speaking, serving on a 
panel, or presenting, a registration fee waiver or discount for the 
days the employee merely attends the event is a payment in kind. This 
rule is implemented for better consistency with 5 CFR 2635.203(b)(8).
    Finally, the amendment updates website links in the definitions 
portion of chapter 304, updates a CFR reference at the note 
accompanying Sec.  304-3.19(d), and adds a sentence to an explanatory 
note to the aforementioned subsection noting the difference between 
employee acceptance of gifts in their personal capacity per OGE 
Standards of Ethical Conduct regulations versus employees on official 
travel obtaining agency authorization to accept payments on behalf of 
the agency per 31 U.S.C. 1353.

B. Analysis of Public Comments

    Two comments were received during the public comment period:
    Comment 1: The commenter agreed with the general sentiment of the 
rule.
    Response 1: GSA concurs.
    Comment 2: The commenter suggested that GSA add to Sec.  304-3.19 
that agencies have the ability to waive multi-day registrations under 
their agency's gift acceptance authority.
    Response 2: GSA believes the gift authority concept is sufficiently 
noted in both Sec.  304-3.19 and other relevant sections in chapter 
304. GSA recognizes that permitting agencies to waive the registration 
fee for the duration of a multi-day meeting or similar function might 
have provided additional efficiency for agency authorizing officials; 
however, adopting such a proposal could create confusion because it is 
inconsistent with 5 CFR 2635.203(b)(8) of the OGE Standards of Ethical 
Conduct regulations.

C. Changes in This Final Rule

    GSA is not making any substantive changes from the proposed rule 
regulatory changes published May 7, 2019.

D. Executive Orders 12866 and 13563

    Executive Orders (E.O.s) 12866 and 13563 direct agencies to assess 
all costs and benefits of available regulatory alternatives, and if 
regulation is necessary, to select regulatory approaches that maximize 
net benefits (including potential economic, environmental, public 
health and safety effects, distributive impacts, and equity). E.O. 
13563 emphasizes the importance of quantifying both costs and benefits, 
of reducing costs, of harmonizing rules, and of promoting flexibility. 
This final rule is not a significant regulatory action, and therefore, 
was not subject to review under Section 6(b) of E.O. 12866, Regulatory 
Planning and Review, dated September 30, 1993.

E. Executive Order 13771

    This final rule is not subject to the requirements of E.O. 13771 
(82 FR 9339, February 3, 2017) because this final rule is not 
significant under E.O. 12866.

F. Regulatory Flexibility Act

    This final rule will not have a significant economic impact on a 
substantial number of small entities within the meaning of the 
Regulatory Flexibility Act, 5 U.S.C. 601, et seq. This final rule is 
also exempt from the Administrative Procedure Act per 5 U.S.C. 553 
(a)(2), because it applies to agency management or personnel.

G. Paperwork Reduction Act

    The Paperwork Reduction Act does not apply because the changes to 
the Federal Travel Regulation do not impose recordkeeping or 
information collection requirements, or the collection of information 
from offerors, contractors, or members of the public that require the 
approval of the Office of Management and Budget under 44 U.S.C. 3501, 
et seq.

H. Small Business Regulatory Enforcement Fairness Act

    This final rule is also exempt from Congressional review prescribed 
under 5 U.S.C. 801 since it relates solely to agency management and 
personnel.

List of Subjects in 41 CFR Appendix C to Chapter 301 and Parts 304-
2, 304-3, 304-5, and 304-6

    Government employees, Travel and transportation expenses.

    Dated: October 7, 2019.
Emily W. Murphy,
Administrator, General Services Administration.

    For the reasons set forth in the preamble, under 5 U.S.C. 5701-
5709, and 31 U.S.C. 1353, GSA is amending 41 CFR appendix C to chapter 
301 and parts 304-2, 304-3, 304-5, and 304-6 as set forth below:

Appendix C to Chapter 301 [Amended]

0
1. Add an authority citation for 41 CFR appendix C to chapter 301 to 
read as follows:

    Authority: 5 U.S.C. 5707.


0
2. In appendix C to chapter 301, amend the first table by--
0
a. Revising the entry for Travel Purpose Identifier, ``Mission 
(Operational)''; and
0
b. Revising the entry for Travel Purpose Identifier, ``Conference-Other 
Than Training''.
    The revisions read as follows:

                      Appendix C to Chapter 301--Standard Data Elements for Federal Travel
                                            [traveler identification]
----------------------------------------------------------------------------------------------------------------
          Group name                   Data elements                             Description
----------------------------------------------------------------------------------------------------------------
 
                                                  * * * * * * *
                                Mission (Operational)......  Travel to a particular site in order to perform
                                                              operational or managerial activities. Travel to a
                                                              conference to serve as a speaker, panelist, or
                                                              provide information in one's official capacity.
                                                              Travel to attend a meeting to discuss general
                                                              agency operations, review status reports, or
                                                              discuss topics of general interest.
                                                             Examples: Employee's day-to-day operational or
                                                              managerial activities, as defined by the agency,
                                                              to include, but not be limited to: hearings, site
                                                              visit, information meeting, inspections, audits,
                                                              investigations, and examinations.

[[Page 55248]]

 
 
                                                  * * * * * * *
                                Conference--Other Than       Travel performed in connection with a prearranged
                                 Training.                    meeting, retreat, convention, seminar, or
                                                              symposium for consultation or exchange of
                                                              information or discussion. Agencies have to
                                                              distinguish between conference and training
                                                              attendance and use the appropriate identifier (see
                                                              Training below).
                                                             Examples: To engage in a planned program as a host,
                                                              planner, or others designated to oversee the
                                                              conference or attendance with no formal role, or
                                                              as an exhibitor.
 
                                                  * * * * * * *
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* * * * *

PART 304-2--DEFINITIONS

0
3. The authority citation for 41 CFR part 304-2 continues to read as 
follows:

    Authority: 5 U.S.C. 5707; 31 U.S.C. 1353.


0
4. Amend Sec.  304-2.1 by--
0
a. Removing from the definition of ``Meeting(s) or similar functions 
(meeting)'', the phrase ``(i.e., a function that is essential to an 
agency's mission)''.
0
b. Revising final sentence of the definition ``Payment in kind''; and
0
c. Revising the last two sentences of the definition ``Travel, 
subsistence, and related expenses (travel expenses)''.
    The revisions read as follows:


Sec.  304-2.1  What definitions apply to this chapter?

* * * * *
    Payment in kind * * * Payment in kind also includes waiver or 
discount of any fees that a non-Federal source collects from meeting 
attendees (e.g., registration fees), but does not include waivers or 
discounts of an employee's fees on the day(s) they are participating in 
the meeting or similar function as a speaker, panelist, or presenter.
    Travel, subsistence, and related expenses (travel expenses) * * * 
The Foreign Affairs Manual is available for download from the internet 
at FAM.state.gov. The Joint Travel Regulations are available for 
download at http://www.defensetravel.dod.mil/site/travelreg.cfm.

PART 304-3--EMPLOYEE RESPONSIBILITY

0
5. The authority citation for 41 CFR part 304-3 continues to read as 
follows:

    Authority: 5 U.S.C. 5707; 31 U.S.C. 1353.


0
6. Add Sec.  304-3.10 to read as follows:


Sec.  304-3.10  Is my agency's acceptance of a waived or discounted 
registration fee from a non-Federal sponsor of a meeting or similar 
function considered a payment in kind for the day(s) I am participating 
as a speaker, panelist, or presenter at the event?

    (a) No. Your agency's acceptance of a waived or discounted 
registration fee from the non-Federal sponsor of the event is not a 
payment in kind for the day(s) you are participating as a speaker, 
panelist, or presenter. However, your agency's acceptance of a waived 
or discounted registration fee is a payment in kind for the days you 
only attend the event (i.e., on the day(s) you are not participating as 
a speaker, panelist, or presenter).
    (b) Lodging, transportation, meals, event tickets, or other similar 
items of value provided by a non-Federal source are a payment in kind. 
If these types of expenses are included in a registration fee that is 
waived or discounted on the day(s) you are participating as a speaker, 
panelist, or presenter, you may accept them only with your agency's 
approval in accordance with this chapter. Specifically, if the 
registration fee includes meal(s), the meal(s) are a payment in kind. 
You may accept the meal(s) only if authorized to do so by your agency. 
If your agency authorizes acceptance of meal(s), you must also deduct 
the meal(s) from your M&IE per diem on your travel voucher using the 
deduction amounts listed for the locality at https://www.gsa.gov/mie 
unless you are unable to consume the meal(s) due to an exception 
provided in Sec.  301-11.18 of this chapter.

0
7. Amend Sec.  304-3.19(d) by revising the third sentence to read as 
follows:


Sec.  304-3.19  Are there other situations when I may accept payment 
from a non-Federal source for my travel expenses?

* * * * *
    (d) * * * (Note: You may also be able to accept attendance at, but 
not other travel expenses to, a widely attended gathering under 5 CFR 
2635.204(g) when the gathering is not a meeting, as defined in this 
part, and you are not attending in your official capacity. Unless 
authorized to do so by your agency, you may not accept travel, 
subsistence, or related expenses, including meals, offered by a non-
Federal source for participation as a speaker, panelist, or presenter 
at a meeting or similar function that takes place away from your 
permanent duty station. Such expenses are considered payments in kind 
and must be accepted, if at all, in accordance with this part.)

PART 304-5--AGENCY RESPONSIBILITIES

0
8. The authority citation for 41 CFR part 304-5 continues to read as 
follows:

    Authority: 5 U.S.C. 5707; 31 U.S.C. 1353.


0
9. Add Sec.  304-5.7 to read as follows:


Sec.  304-5.7  How do we review offers of payments in kind from the 
non-Federal sponsor or organizer of a meeting or similar function for 
items such as meals, transportation, and lodging when they are included 
in a waived or discounted registration fee?

    (a) If the non-Federal sponsor or organizer of a meeting or similar 
function offers to waive or discount the registration fee of an 
employee who is only attending the event, you are not required to 
separately authorize acceptance of any items included in the 
registration fee. If applicable, acceptance of the registration fee 
must be reported to U.S. Office of Government Ethics (OGE) in 
accordance with part 304-6 of this chapter.
    (b) When a waived or discounted registration fee is not a payment 
in kind pursuant to Sec.  304-3.10 of this chapter, the employee may 
only accept items that you authorize separately. If applicable, the 
value of any payments in kind so accepted should be reported to OGE in 
accordance with part 304-6 of this chapter. In particular, if a 
registration fee is waived or discounted on the day(s) an employee is 
participating as a speaker, panelist, or presenter, and the 
registration fee includes meal(s), the employee may

[[Page 55249]]

accept meal(s) as a payment in kind only if you review the offer and 
authorize acceptance. Review the reporting guidelines at Sec.  304-6.4 
of this chapter to see if the aggregated meal amounts (if more than one 
meal, or meals of both an employee and spouse) will need to be reported 
to OGE.

PART 304-6--PAYMENT GUIDELINES

0
10. The authority citation for 41 CFR part 304-6 continues to read as 
follows:

    Authority: 5 U.S.C. 5707; 31 U.S.C. 1353.


0
11. Amend Sec.  304-6.6 by revising paragraphs (a) and (c) to read as 
follows:


Sec.  304-6.6  How do we determine the value of payments in kind that 
are to be reported on Standard Form (SF) 326?

* * * * *
    (a) For conference, training, or similar fees waived, discounted, 
or paid for by a non-Federal source on behalf of a meeting attendee, 
you must report the amount charged to other attendees. However, a 
waiver or discount of the registration fee by the non-Federal sponsor 
of the event for the day(s) the employee participated in the meeting or 
similar function as a speaker, panelist, or presenter is not a payment 
in kind and does not need to be reported.
* * * * *
    (c) For meals, you must use the M&IE deduction chart for CONUS and 
OCONUS located at www.gsa.gov/mie and report the appropriate amount for 
each meal based on the temporary duty locality.
* * * * *
[FR Doc. 2019-22324 Filed 10-15-19; 8:45 am]
BILLING CODE 6820-14-P