[Federal Register: January 15, 2009 (Volume 74, Number 10)]
[Rules and Regulations]
[Page 2724-2731]
From the Federal Register Online via GPO Access [wais.access.gpo.gov]
[DOCID:fr15ja09-44]
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DEPARTMENT OF DEFENSE
GENERAL SERVICES ADMINISTRATION
NATIONAL AERONAUTICS AND SPACE ADMINISTRATION
48 CFR Parts 4, 15, 17, 22, and 52
[FAC 2005-30; FAR Case 2001-004; Item III; Docket 2007-0001, Sequence
6]
RIN 9000-AK82
Federal Acquisition Regulation; FAR Case 2001-004, Exemption of
Certain Service Contracts from the Service Contract Act (SCA)
AGENCIES: Department of Defense (DoD), General Services Administration
(GSA), and National Aeronautics and Space Administration (NASA).
ACTION: Final rule.
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SUMMARY: The Civilian Agency Acquisition Council and the Defense
Acquisition Regulations Council (Councils) have adopted as final, with
changes, the interim rule which amended the Federal Acquisition
Regulation (FAR) to revise the current SCA exemption and to add an SCA
exemption for contracts for certain
[[Page 2725]]
additional services that meet specific criteria.
DATES: Effective Date: February 17, 2009.
FOR FURTHER INFORMATION CONTACT: Mr. Ernest Woodson, Procurement
Analyst, at (202) 501-3775 for clarification of content. For
information pertaining to status or publication schedules, contact the
FAR Secretariat at (202) 501-4755. Please cite FAC 2005-30, FAR case
2001-004.
SUPPLEMENTARY INFORMATION:
A. Background
The Wage and Hour Division of the U.S. Department of Labor's (DoL)
Employment Standards Administration, issued a final rule, published in
the Federal Register at 66 FR 5327, January 18, 2001, amending the
regulations at 29 CFR part 4 to exempt certain contracts for services
meeting specific criteria from coverage under the SCA. The Councils
opened FAR Case 2001-004 to implement the DoL rule.
The Councils published an interim rule in the Federal Register at
72 FR 63076 on November 7, 2007. The public comment period closed on
January 7, 2008. The Councils received comments from 4 commenters (one
commenter submitted 4 separate responses).
1. Non-statutory certifications.
The respondent is concerned about additional non-statutory
certifications.
Response: These certifications are imposed by the Secretary of
Labor as a condition for the Secretary granting the exemptions. The
certifications are found in DoL regulations at 29 CFR
4.123(e)(1)(ii)(D) and (e)(2)(ii)(G). The FAR rule implements the DoL
requirements for certification by the prime contractor with respect to
compliance with the DoL conditions for exemption from the SCA. The
certification at FAR 52.222-48 was already required. In accordance with
FAR 1.107, the Administrator of the Office of Federal Procurement
Policy approved this non-statutory certification and the new non-
statutory certification at FAR 52.222-52 because these certifications
provide the basis for determining applicability of the SCA to the
acquisition. When certain conditions are met, the certifications are
necessary in order to exempt contracts for maintenance, calibration, or
repair of certain equipment (FAR 52.222-48) and contracts for certain
services (FAR 52.222-52) from the application of the SCA. The
certifications are necessary to encourage broader participation in
Government procurement by companies doing business in the commercial
sector, and reinforce the Government's commitment to reduce
Government--unique terms and conditions, without compromising the
purpose of the SCA to protect prevailing labor standards. Without the
certifications from the contractor, the DoL conditions for exemption
would not be met, and all contractors would be required to comply with
the SCA and, if the contract exceeds $2,500, the appropriate DoL wage
determination.
2. Existing conditions for exemption for contracts for maintenance,
calibration or repair of certain equipment (22.1003-4(c)(2)). Paragraph
22.1003-4(c)(2)(i) sets forth the condition that ``the items of
equipment to be serviced under the contract are used regularly for
other than Government purposes and are sold or traded by the contractor
in substantial quantities to the general public in the course of normal
business operations.''
One respondent questions if this means that the condition can be
met only if the contractor that sold or traded the equipment is also
the contractor performing the ``maintenance, calibration, or repair
services?''
Response: The respondent's interpretation is correct. This is
existing FAR text that comes from the DoL rule at 29 CFR
4.123(e)(1)(ii)(A).
3. DoL determination after award (22.1003-4(c)(4)(ii)).
One respondent suggests that the wording at FAR 22.1003-4(c)(4)(ii)
should be the same as the wording at FAR 22.1003-4(d)(4)(ii).
Response: Since the FAR at 22.1003-4(c)(4)(ii) and 22.1003-
4(d)(4)(ii) is based on the DoL rule at 29 CFR 4.123(e)(1)(iv) and 29
CFR 4.123(e)(2)(iii), and there is no discrepancy between these two
paragraphs in the DoL rule, then they should read the same in the FAR
rule. The suggested changes have been made to make the FAR paragraphs
read the same, except that the run-on sentence has been corrected in
22.1003-4(d)(4)(ii), rather than repeating it in 22.1003-4(c)(4)(ii).
4. New exemptions for contracts for certain services (22.1003-
4(d)(1)). Paragraph 22.1003-4(d)(1)(i) provides exemption for
``Automobile or other vehicle (e.g., aircraft) maintenance services
(other than contracts or subcontracts to operate a Government motor
pool or similar facility).''
One respondent wants it indicated with more certainty,
that aircraft maintenance services are covered.
One respondent requests a definition of ``maintenance
services.''
One respondent wants to know what does ``similar
facility'' mean? Is a contractor owned and operated facility, such as a
depot or hangar outfitted for commercial aircraft maintenance and
repair work a similar facility? The respondent suggests using the
phrase ``Government facility performing automobile maintenance or
repair services'' instead of ``Government motor pool or similar
facility.''
Response:
Specifically listing aircraft maintenance services as an
example provides complete certainty. This specifically reflects the DoL
regulations at 29 CFR 4.123(e)(2)(i).
``Maintenance services'' is a widely used commercial term
that should not require further definition. Since the FAR is
implementing the DoL rule, the Councils decided not provide a
definition that might inadvertently change the intent of the DoL rule.
The FAR is implementing the DoL rule. The suggested
rewrite would change the meaning of the DoL rule.
5. Inconsistencies between wording of new exemptions and existing
exemptions (22.1003-4(c)(1) and (d)(1)). For example, 22.1003-
4(d)(1)(i) refers only to ``Automobile or other vehicle (e.g.,
aircraft) maintenance services'' as qualifying for the exemption,
whereas 22.1003-4(d)(1)(iv) refers to ``maintenance, calibration,
repair, and/or installation ... services for all types of equipment
where the services are obtained.''
One respondent recommends making the language consistent by using
the terms ``maintenance, calibration, repair, and/or installation
services.''
Response: The Councils cannot change in the FAR the exemptions
provided by DoL in its rule (29 CFR 4.123(e)(2)(i)(A) and (D)).
6. Conditions for new exemptions (22.1003-4(d)(2)).
One respondent notes the condition in paragraph 22.1003-
4(d)(2)(i) that--
``(A) The contract will be awarded on a sole-source basis; or
(B) Except for services identified in paragraph (d)(1)(iv) of
this subsection, the contractor will be selected for award based on
other factors in addition to price or cost, with the combination of
other factors at least as important as price or cost in selecting
the contractor.''
The respondent requests transparency in this area by
announcing the relative weighting of all of the source selection
factors in the Federal Business Opportunities announcement.
Response: FAR 15.101-1 states that when using a tradeoff process,
the following apply:
(1) All evaluation factors and significant subfactors that will
affect contract award and their relative importance shall be clearly
stated in the solicitation; and
(2) The solicitation shall state whether all evaluation factors
other than cost or price,
[[Page 2726]]
when combined, are significantly more important than, approximately
equal to, or significantly less important than cost or price.
It is outside the scope of this case to revise this policy. The
information provided is sufficient to know whether the combination of
other factors at least as important as price or cost in selecting the
contractor.
One respondent notes the condition in paragraph 22.1003-
4(d)(2)(iv) that ``Each service employee who will perform the services
under the contract will spend only a small portion of his or her time
(a monthly average of less than 20 percent of the available hours on an
annualized basis, or less than 20 percent of available hours during the
contract period if the contract period is less than a month) servicing
the Government contract.'' This requirement to have the capability of
tracking the percentage of time each employee spends on Government work
is a problem for contractors that meet the other criteria.
Response: This condition is imposed by the DoL rule (29 CFR
4.123(e)(2)(ii)(D)). The Councils do not have the authority to change
the conditions imposed by the DoL.
One respondent notes the additional conditions that apply
to the new exemptions and recommends their deletion to avoid
unnecessary confusion and complexity for contractors and contracting
officers.
Response: See prior response.
One respondent considers paragraph 22.1003-4(d)(2)(vi)
confusing, since it is unclear when an ``advance'' contracting officer
determination of offeror compliance would be made and whether the
determination will be a formal determination and finding per FAR 1.701
or something less. This respondent suggests the following replacement
language:
``The Contracting Officer determines prior to award, but after
receipt of offers based on the contract requirements, that the
conditions for a certified exemption in paragraph (d)(2)(ii) through
(v) can be met by an offeror.''
Response: This condition is from the DoL rule (29 CFR
4.123(e)(2)(ii)(F)). In the DoL rule this clearly means before the
solicitation is issued, because the DoL rule continues on ``If upon
receipt of offers, the contracting officer finds that he or she did not
correctly determine ....'' This is implemented through the positive
statement at 22.1003-4(d)(3)(ii)(B) in combination with the results at
(d)(3)(iii) if the conditions are not met. The Councils have added
``before issuing the solicitation'' at (vi) to clarify the FAR rule.
Paragraph (vii) requires the following:
``(A) The apparent successful offeror certifies that the
conditions in paragraphs (d)(2)(ii) through (v) will be met; and
(B) For other than sole source awards, the contracting officer
determines that the same certification is obtained from
substantially all other offerors that are--
(1) In the competitive range, if discussions are to be conducted
(see FAR 15.306(c)); or
(2) Considered responsive, if award is to be made without
discussions (see FAR 15.306(a)).''
One respondent requests clarification of the term
``substantially all.'' One respondent is concerned about the meaning of
``substantially all'' other offerors. She runs through several
scenarios, considering if there are only 2 or 3 offerors, what would
``substantially all'' mean. She recommends that only the apparently
successful offeror should have to certify.
Response: This term was left undefined to provide maximum
flexibility to contracting officers. The Councils acknowledge the
respondent's concerns, but the FAR rule must follow the conditions set
by DoL for use of these new exemptions.
One respondent questions how far down the supply chain the
SCA compliance test and certifications must go.
Response: The flowdown requirement in the clauses at 52.222-52 and
52.222-54 each require that the contractor must flow down the clause to
any subcontract for services for which the exemption is being claimed.
The same respondent also objects to use of the term
``responsive'' at subparagraph (vii)(B)(2) (also appears at
subparagraph (d)(3)(ii)(B)(2)). The respondent states that this term is
a legacy term of art used in the Sealed Bidding process to describe an
offeror's statement of affirmative compliance with (or lack of
exception to) all the terms and conditions of a formally advertised
procurement. The respondent suggest the following:
``(2) Considered compliant with the Government's requirements
(see FAR 15.306(a)).''
Response: The term ``responsive'' is not just a legacy term from
Part 14, but is used in many other FAR parts (1, 7, 8, 9, 19, 22, 37,
and 50) to describe an offer that meets the Government requirements.
Although the term ``compliant'' is used in many places in the FAR, the
Councils did not find any example in the FAR of an offer being
described as ``compliant.''
7. Contract award or resolicitations (new exemptions) (22.1003-
4(d)(3)). Paragraph (ii)(C) states a condition for award without the
otherwise applicable SCA clauses is that ``The contracting officer has
no reason to doubt the certification.''
One respondent is concerned that there is a lack of
definition or standard for ``no reason to doubt'' and that it does not
appear to be in the best interests of the acquisition community to
allow a decision to cancel a solicitation to hinge on the concept of
doubt.
Response: The FAR rule implements the DoL rule. The DoL rule
requires that ``If the contracting officer or prime contractor has
reason to doubt the validity of the certification, SCA stipulations
shall be included in the prime contract or subcontract.'' (29 CFR
4.123(e)(2)(ii)(G))
One respondent is concerned that this resolicitation
process could, in some cases, unduly increase the workload of the
contracting officer.
Response: The FAR rule implements the DoL rule and follows the
conditions set by DoL for use of these new exemptions.
8. DoL determination (new exemptions) (22.1003-4(d)(4)). One
respondent states that this paragraph provides for a post-award
determination of some type by the DoL, not the contracting agency, at
any time during contract performance. The respondent suggests that
exemption compliance over time will be challenging, and that the
interim rule should provide a ``grace period'' in which the prime or
the subcontractor could remedy any compliance shortfalls.
Response: The DoL regulations require that when the DoL discovers
and determines, whether before or subsequent to a contract award, that
a contracting agency made an erroneous determination that the SCA did
not apply to a particular procurement and/or failed to include an
appropriate wage determination in a covered contract, the contracting
agency, within 30 days of notification by DoL, shall include in the
contract the stipulations contained in 29 CFR 4.6 and any applicable
wage determination issued by the DoL Administrator or his authorized
representative through the exercise of any and all authority that may
be needed including, where necessary, its authority to negotiate or
amend, its authority to pay any necessary additional costs, and its
authority under any contract provision authorizing changes,
cancellation, and termination. With respect to any contract subject to
section 10 of the Act, the DoL Administrator may require retroactive
application of such wage determination (29 CFR 4.5(c)(2)).
The FAR rule implements the DoL requirements. It is up to DoL
whether it
[[Page 2727]]
would allow time for correction of a compliance shortfall. The DoL
regulations do not contemplate such a process.
9. Exceptions (new exemptions) (FAR 22.1003-4(d)(5)).
Paragraph (5)(iii) provides that the new exemptions do not apply to
solicitations and contracts that are subject to section 4(c) of the
SCA.
One respondent interprets this to mean that any contract that has
now or ever contained SCA clauses can never be exempt in future
contracts from the SCA.
Response: Section 4(c) of the SCA reads as follows:
(c) Predecessor contracts; employees' wages and fringe benefits
No contractor or subcontractor under a contract, which succeeds a
contract subject to this chapter and under which substantially the
same services are furnished, shall pay any service employee under
such contract less than the wages and fringe benefits, including
accrued wages and fringe benefits, and any prospective increases in
wages and fringe benefits provided for in a collective-bargaining
agreement as a result of arm's-length negotiations, to which such
service employees would have been entitled if they were employed
under the predecessor contract: Provided, That in any of the
foregoing circumstances such obligations shall not apply if the
Secretary finds after a hearing in accordance with regulations
adopted by the Secretary that such wages and fringe benefits are
substantially at variance with those which prevail for services of a
character similar in the locality.
Section 4(c) is different from the regular wage determination and
this provision applies to a situation where collective bargaining
agreement union agreements are involved. Many SCA covered contracts
involve annual, recurring procurements of the same services. When a
collective bargaining agreement governs the wage rates and fringe
benefits of service workers employed to perform work called for by an
incumbent SCA covered contract, the wage determination to be issued for
the successor contract must reflect the wage and fringe benefit
provisions of the predecessor, contractor's collective bargaining
agreement, including any accrued or prospective increases contained
therein.
The successor contractor obligation to comply with the provisions
of the collective bargaining agreement under Section 4(c) of the SCA
extend only for the immediate successor contract period of performance.
Thus, if the predecessor contractor was signatory to a collective
bargaining agreement, the successor contractor would be required to
comply with those provisions but would not be required to enter into a
collective bargaining agreement. At the end of that first period of
performance, the successor contractor would be subject to a general
wage determination and Section 4(c) would no longer be in effect.
10. Incorrect references (22.1003-5 and 22.1003-6).
Several respondents pointed out that the references at 22.1003-5
and 22.1003-6 to ``22.1003(c)(1) and (d)(1)(iv)'' should both read
``22.1003-4(c)(1) and (d)(1)(iv).''
Response: The Councils concur. The draft final rule has been
amended.
11. Prescriptions for use of provisions and clauses (22.1006).
One respondent had several suggestions to clarify the prescriptions
for the use of provisions and clauses.
1. Certification provision 52.222-48 will not be in solicitation if
ORCA is used, so use of SCA clause in contract can not be tied to
presence of certification provision in solicitation. The same concern
applies to 52.222-52, if it is incorporated into ORCA.
The respondent suggests several solutions for drafting the
prescriptions.
Response: The Councils recognize the problem, and have adopted a
different solution. The FAR drafting conventions prohibit prescribing a
clause in more than one place, and normally there is a separate
prescription for each provision or clause.
There is a widespread problem, extending beyond this single case,
that there is no indication in FAR 52.204-8 as to which representations
or certifications are applicable to the particular solicitation. This
is unlike FAR 52.212-3, which either gives the criteria for
applicability, or requires that the contracting officer indicate the
applicability of some of the representations and certifications (e.g.,
FAR 52.212-3(k)). Because it is essential that the contracting officer
have the ability to indicate the applicability of FAR 52.222-48 or
52.222-52 to a solicitation, the Councils have agreed to an overall fix
to the FAR clause at 52.204-8, indicating for each representation or
certification either its general applicability, if that is sufficient,
or in more complex cases, requiring the contracting officer to
specifically indicate if the representation or certification is
applicable.
Once this is accomplished, the inclusion of the clauses at FAR
52.222-51 and 52.222-53 can be tied to either the inclusion of 52.222-
48 or 52.222-52 in the solicitation, or the indication of the
applicability of the comparable certification in 52.204-8(c)(2) or
52.212-3(k).
2. Paragraph 22.1006(a)(2) does not directly contradict FAR
22.1003-4(c)(3) or (d)(3), but it is not totally consonant. One states
that the contracting officer includes the SCA clause if the contracting
officer determines it is appropriate to do so. The other states that
the SCA clause is excluded, if the contracting officer determines that
is it appropriate to do so.
Response: The Councils have revised FAR 22.1006(a)(2) to put it in
terms of excluding the SCA clause when the contracting officer
determines that the SCA does not apply, consistent with DoL regulations
and other parts of the rule.
3. Reference at FAR 22.1003-4(d)(3)(iii) should be 22.1006(e)(3)
not (e)(4).
Response: The Councils have made the correction.
4. Language at FAR 22.1006(e)(1) prescribing the use of 52.222-48
is unclear and at (e)(3), prescribing the use of 52.222-52 is unclear.
One respondent interprets it as potentially applying to all contracts
that contain the SCA clause, not just the targeted services.
Response: The phrase ``but the contract may be exempt from the
Service Contract Act in accordance with 22.1003-4(c) `or (d)''' was
intended to target the specific services. If this is not sufficiently
clear, the Councils have made the following revision. The use of
``and'' instead of ``but'' makes it clear that both conditions must be
met.''
``(e)(1) The contracting officer shall insert the provision at
52.222-48, Exemption from Application of the Service Contract Act to
Contracts for Maintenance, Calibration, or Repair of Certain
Equipment--Certification, in solicitations that include the clause
at 52.222-41, Service Contract Act of 1965 and the contract may be
exempt from the Service Contract Act in accordance with 22.1003-
4(c).''
* * * * *
(3) The contracting officer shall insert the provision at
52.222-52, Exemption from Application of the Service Contract Act to
Contracts for Certain Services--Certification, in solicitations that
include the clause at 52.222-41, Service Contract Act of 1965 and
the contract may be exempt from the Service Contract Act in
accordance with 22.1003-4(d).''
12. Provisions and clauses:
a. FAR 52.212-3, 52.222-48, 52.222-51, and 52.222-53. ``Or
subcontractor in the case of an exempt subcontract.''
One respondent requests that the language that is included
parenthetically in paragraph (a)(1) of the provisions at FAR 52.222-52,
also be included in the provisions at 52.212-3(k)(1)(i) and 52.222-
48(a)(1) as well as the clauses at 52.222-51(a) and 52.222-53(a).
Response: The Councils concur with inclusion of the phrase in the
[[Page 2728]]
provisions, because it is possible that a subcontractor may be exempt,
and the term ``offeror'' does not include ``subcontractor.''
However, the Councils do not agree with inclusion of the
parenthetical phrase in the clauses, because FAR 22.1001 defines
``contractor'' to include a subcontractor at any tier whose subcontract
is subject to the provisions of the Act.
b. FAR 52.212-5, correction of paragraph reference.
One respondent points out the oversight to revise the paragraph
reference in paragraph (e)(1) of the FAR clause 52.212-5.
Response: The Councils have made the correction.
c. FAR 52.222-53, order of paragraphs.
One respondent recommends reversal of paragraphs FAR 52.222-
53(e)(1) and (e)(2) in order to put the more likely situation first--
i.e., award on the basis of other factors in addition to cost or price
and that cost or price is of equal or lesser importance than the other
factors. Further, the same respondent states that there is one
particular type of service that allows award only on a sole source
basis (FAR 22.1003-4(d)(1)(iv)- Maintenance, calibration, repair, and/
or installation (where the installation is not subject to the Davis-
Bacon Act, as provided in 29 CFR 4.116(c)(2)) services for all types of
equipment where the services are obtained from the manufacturer or
supplier of the equipment under a contract awarded on a sole source
basis. Therefore, the respondent recommends that FAR paragraph 52.222-
53(e)(2) address only this type of services.
Response: The Councils concur with the reversal of the paragraphs.
However, the Councils do not agree that the new paragraph (e)(2) should
address only the service at FAR 22.1003-4(d)(1)(iv). The DoL criteria
allow any of the subcontract services to be purchased on a sole source
basis (29 CFR 4.123((e)(2)(ii)(B)), not just the maintenance, etc.
services that must be purchased sole source. Therefore the Councils
have revised the subject paragraphs as follows:
``(e)(1) Except for services identified in FAR 22.1003-
4(d)(1)(iv), the subcontractor for exempt services shall be selected
for award based on other factors in addition to price or cost with
the combination of other factors at least as important as price or
cost; or
(2) A subcontract for exempt services shall be awarded on a sole
source basis.''
13. FAR Matrix.
One respondent identified that the FAR matrix incorrectly referred
to FAR 52.222-48 as a clause and states that it will go in section I.
Although the matrix correctly identifies 52.222-52 as a provision, it
incorrectly states that it will go in Section I. The same commenter
also objects that these provisions should not be incorporated by
reference because it requires a fill-in.
Response: Partially Concur. FAR 52.222-48 and 52.222-52 are
provisions and belong in Section K. The FAR Matrix will be revised. The
Councils disagree that a provision requiring a fill-in should not be
incorporated by reference. See FAR 52.104(d).
This is not a significant regulatory action and, therefore, was not
subject to review under Section 6(b) of Executive Order 12866,
Regulatory Planning and Review, dated September 30, 1993. This rule is
not a major rule under 5 U.S.C. 804.
B. Regulatory Flexibility Act
The Regulatory Flexibility Act, 5 U.S.C. 601, et seq., applies to
this final rule. The Councils prepared a Final Regulatory Flexibility
Analysis (FRFA) that is summarized as follows:
This rule finalizes an interim rule with changes, to amend the
Federal Acquisition Regulation to implement Department of Labor
(DoL) regulation 29 CFR 4.123, Administrative limitations, variance,
tolerances, and exemptions. Paragraph (e) of that regulations
provides exemption for contracts for certain services that meet
specific criteria.
The objective of the DoL final rule was to be more commercial-
like, encourage broader participation in Government procurement by
companies doing business in the commercial sector, and reinforce our
commitment to reduce Government-unique terms and conditions, without
compromising the purpose of the SCA to protect prevailing labor
standards.
This final rule will have a positive economic impact on the
small contractors and subcontractors that meet the exemption
criteria to be exempt from the SCA for certain services, because it
may provide additional opportunities for work on Federal projects;
enable these contractors to compete in a more commercial-like
environment, and alleviate the burden of complying with Government-
unique terms and conditions for these types of contracts.
Pursuant to Section (4)(b) of the SCA, the Secretary of Labor
may grant reasonable exemptions to the provisions of the SCA, but
only in special circumstances where the exemption is necessary and
proper in the public interest, and is in accord with the remedial
purposes of the Act to protect prevailing labor standards.
There were no comments in response to the initial regulatory
flexibility analysis.
This final rule will apply to all large and small entities that
seek award of Federal service contracts in the service categories
identified. The Councils relied on the DoL regulatory flexibility
analysis (66 FR 5339), which determined that a majority of contracts
affected by the proposed exemption would likely be performed by
small businesses. FPDS does not provide an accurate estimate of the
contracts potentially covered by the exemption, but DoL estimates
that the total value of the exempt contracts could be relatively
small, and that the SCA would no longer apply to only a relatively
small number of contracts that currently contain SCA wage
determination provisions.
The rule imposes no reporting, recordkeeping, or other
information collection requirements that require the approval of the
Office of Management and Budget under 44 U.S.C. 3501, et seq. This
rule implements the Department of Labor Rule (66 FR 5327), which
stated in the preamble that the DoL rule contained no reporting or
recordkeeping requirements subject to the Paperwork Reduction Act of
1980 (Pub. L. 96-511). The DoL preamble stated further, that
although offerors are required to certify that the criteria for
exemption are met, the certifications can be submitted as part of
the bid process and offerors are not required to maintain records to
support the certification.
There are no practical alternatives that will accomplish the
objectives of this rule. However, the exemption is expected to have
a positive impact on small entities, because it does not contain any
new reporting or recordkeeping or other compliance requirements
applicable to small business. Rather, the exemption would relieve
small businesses and other contractors from the requirements of the
SCA on certain contracts.
Interested parties may obtain a copy of the FRFA from the FAR
Secretariat. The FAR Secretariat has submitted a copy of the FRFA to
the Chief Counsel for Advocacy of the Small Business Administration.
C. Paperwork Reduction Act
The Paperwork Reduction Act (Pub. L. 104-13) does not apply because
the final rule does not impose or remove information collection
requirements that require the approval of the Office of Management and
Budget under 44 U.S.C. 3501, et seq. This final rule implements the DoL
rule published in the Federal Register at 66 FR 5327, January 18, 2001,
which stated in the preamble that the DoL rule contained no reporting
or recordkeeping requirements subject to the Paperwork Reduction Act of
1980 (Pub. L. 96-511). The DoL preamble stated further, that although
offerors are required to certify that the criteria for exemption are
met, the certifications can be submitted as part of the bid process and
offerors are not required to maintain records to support the
certification.
List of Subjects in 48 CFR Parts 4, 15, 17, 22, and 52
Government procurement.
[[Page 2729]]
Dated: December 24, 2008.
Edward Loeb,
Acting Director, Office of Acquisition Policy.
Interim Rule Adopted as Final With Changes
0
Accordingly, the interim rule amending 48 CFR parts 4, 15, 17, 22, and
52 which was published in the Federal Register at 72 FR 63076 on
November 7, 2007, is adopted as a final rule with the following
changes:
0
1. The authority citation for 48 CFR parts 4, 15, 22, and 52 continues
to read as follows:
Authority: 40 U.S.C. 121(c); 10 U.S.C. chapter 137; and 42
U.S.C. 2473(c).
PART 4--ADMINISTRATIVE MATTERS
4.1201 [Amended]
0
2. Amend section 4.1201 in paragraph (c) by removing ``52.204-8(c)''
and adding ``52.204-8(d)'' in its place.
0
3. Amend section 4.1202 by--
0
a. Revising the introductory text;
0
b. Redesignating paragraphs (r) through (bb) as (s) through (cc)
respectively; and
0
c. Adding new paragraph (r).
The revised and added text reads as follows:
4.1202 Solicitation provision and contract clause.
Except for commercial item solicitations issued under FAR Part 12,
insert in solicitations the provision at 52.204-8, Annual
Representations and Certifications. The contracting officer shall check
the applicable provisions at 52.204-8(c)(2). When the clause at 52.204-
7, Central Contractor Registration, is included in the solicitation, do
not include the following representations and certifications:
* * * * *
(r) 52.222-52, Exemption from Application of the Service Contract
Act to Contracts for Certain Services--Certification.
* * * * *
PART 15--CONTRACTING BY NEGOTIATION
15.102 [Amended]
0
4. Amend section 15.102 in paragraph (b) by removing ``52.204-8(c)''
and adding ``52.204-8(d)'' in its place.
PART 22--APPLICATION OF LABOR LAWS TO GOVERNMENT ACQUISITION
0
5. Amend section 22.1003-4 by--
0
a. Removing from paragraph (c)(3)(iii) ``22.1006(a)(2)'' and adding
``22.1006(a)'' in its place;
0
b. Revising paragraph (c)(4)(ii);
0
c. Revising paragraph (d)(2)(i) and revising the first sentence in
paragraph (d)(2)(vi);
0
d. Removing from paragraph (d)(3)(i) ``22.1006(a)(2)'' and adding
``22.1006'' in its place, and revising paragraph (d)(3)(iii); and
0
e. Revising paragraph (d)(4)(ii).
0
The revised text reads as follows:
22.1003-4 Administrative limitations, variations, tolerances, and
exemptions.
* * * * *
(c) * * *
(4) * * *
(ii) If the Department of Labor determines that any conditions in
paragraph (c)(2) of this subsection have not been met with respect to a
subcontract, the exemption shall be deemed inapplicable. The contractor
may be responsible for ensuring that the subcontractor complies with
the Act, effective as of the date of the subcontract award.
(d) * * *
(2) * * *
(i) (A) Except for services identified in paragraph (d)(1)(iv) of
this subsection, the contractor will be selected for award based on
other factors in addition to price or cost, with the combination of
other factors at least as important as price or cost; or
(B) The contract will be awarded on a sole source basis.
* * * * *
(vi) The contracting officer (or contractor with respect to a
subcontract) determines in advance before issuing the solicitation,
based on the nature of the contract requirements and knowledge of the
practices of likely offerors, that all or nearly all offerors will meet
the conditions in paragraph (d)(2)(ii) through (v) of this subsection.
* * *
* * * * *
(3) * * *
(iii) If the conditions in paragraph (d)(3)(ii) of this subsection
are not met, then the contracting officer shall resolicit, amending the
solicitation by removing the exemption provision from the solicitation
as prescribed at 22.1006(e)(3). The contract will include the
applicable Service Contract Act clause(s) as prescribed at 22.1006 and,
if the contract will exceed $2,500, the appropriate Department of Labor
wage determination (see 22.1007).
* * * * *
(4) * * *
(ii) If the Department of Labor determines that any conditions in
paragraph (d)(2) of this subsection have not been met with respect to a
subcontract, the exemption shall be deemed inapplicable. The contractor
may be responsible for ensuring that the subcontractor complies with
the Act, effective as of the date of the subcontract award.
* * * * *
22.1003-5 [Amended]
0
6. Amend section 22.1003-5 in paragraph (k) by removing
``22.1003(c)(1)'' and adding ``22.1003-4(c)(1)'' in its place.
22.1003-6 [Amended]
0
7. Amend section 22.1003-6 in paragraph (b)(2) by removing
``22.1003(c)(1)'' and adding ``22.1003-4(c)(1)'' in its place.
0
8. Amend section 22.1006 by revising paragraphs (a) and (e) to read as
follows:
22.1006 Solicitation provisions and contract clauses.
(a)(1) The contracting officer shall insert the clause at 52.222-
41, Service Contract Act of 1965, in solicitations and contracts
(except as provided in paragraph (a)(2) of this section) if the
contract is subject to the Act and is--
(i) Over $2,500; or
(ii) For an indefinite dollar amount and the contracting officer
does not know in advance that the contract amount will be $2,500 or
less.
(2) The contracting officer shall not insert the clause at 52.222-
41 (or any of the associated Service Contract Act clauses as prescribed
in this section for possible use when 52.222-41 applies) in the
resultant contract if--
(i) The solicitation includes the provision at--
(A) 52.222-48, Exemption from Application of the Service Contract
Act to Contracts for Maintenance, Calibration, or Repair of Certain
Equipment--Certification;
(B) 52.222-52, Exemption from Application of the Service Contract
Act to Contracts for Certain Services--Certification; or
(C) Either of the comparable certifications is checked as
applicable in the provision at 52.204-8(c)(2)(v) or (vi) or 52.212-
3(k); and
(ii) The contracting officer has made the determination, in
accordance with paragraphs (c)(3) or (d)(3) of subsection 22.1003-4,
that the Service Contract Act does not apply to the contract. (In such
case, insert the clause at 52.222-51, Exemption from Application of the
Service Contract Act to Contracts for Maintenance, Calibration, or
Repair of Certain Equipment--Requirements, or 52.222-53, Exemption from
Application of the Service Contract Act to Contracts for Certain
Services--Requirements, in
[[Page 2730]]
the contract, in accordance with the prescription at paragraph
(e)(2)(ii) or (e)(4)(ii) of this subsection).
* * * * *
(e)(1) The contracting officer shall insert the provision at
52.222-48, Exemption from Application of the Service Contract Act to
Contracts for Maintenance, Calibration, or Repair of Certain
Equipment--Certification, in solicitations that--
(i) Include the clause at 52.222-41, Service Contract Act of 1965;
and
(ii) The contract may be exempt from the Service Contract Act in
accordance with 22.1003-4(c).
(2) The contracting officer shall insert the clause at 52.222-51,
Exemption from Application of the Service Contract Act to Contracts for
Maintenance, Calibration, or Repair of Certain Equipment--
Requirements--
(i) In solicitations that include the provision at 52.222-48, or
the comparable provision is checked as applicable in the clause at
52.204-8(c)(2)(v) or 52.212-3(k)(1); and
(ii) In resulting contracts in which the contracting officer has
determined, in accordance with 22.1003-4(c)(3), that the Service
Contract Act does not apply.
(3)(i) Except as provided in paragraph (e)(3)(ii) of this section,
the contracting officer shall insert the provision at 52.222-52,
Exemption from Application of the Service Contract Act to Contracts for
Certain Services--Certification, in solicitations that--
(A) Include the clause at 52.222-41, Service Contract Act of 1965;
and
(B) The contract may be exempt from the Service Contract Act in
accordance with 22.1003-4(d).
(ii) When resoliciting in accordance with 22.1003-4(d)(3)(iii),
amend the solicitation by removing the provision at 52.222-52 from the
solicitation.
(4) The contracting officer shall insert the clause at 52.222-53,
Exemption from Application of the Service Contract Act to Contracts for
Certain Services--Requirements--
(i) In solicitations that include the provision at 52.222-52, or
the comparable provision is checked as applicable in 52.204-8(c)(2)(vi)
or 52.212-3(k)(2); and
(ii) In resulting contracts in which the contracting officer has
determined, in accordance with 22.1003-4(d)(3), that the Service
Contract Act does not apply.
* * * * *
PART 52--SOLICITATION PROVISIONS AND CONTRACT CLAUSES
0
9. Amend section 52.204-8 by--
0
a. Revising the date of the provision;
0
b. Removing from paragraphs (b)(1) and (b)(2) ``paragraph (c)''
wherever it occurs, and adding ``paragraph (d)'' (four times) in its
place; and
0
c. Redesignating paragraph (c) as paragraph (d), adding new paragraph
(c), and revising the second sentence in newly designated paragraph
(d).
0
The revised and added text reads as follows:
52.204-8 Annual Representations and Certifications.
* * * * *
ANNUAL REPRESENTATIONS AND CERTIFICATIONS (FEB 2009)
* * * * *
(c)(1) The following representations or certifications in ORCA
are applicable to this solicitation as indicated:
(i) 52.203-2, Certificate of Independent Price Determination.
This provision applies to solicitations when a firm-fixed-price
contract or fixed-price contract with economic price adjustment is
contemplated, unless--
(A) The acquisition is to be made under the simplified
acquisition procedures in Part 13;
(B) The solicitation is a request for technical proposals under
two-step sealed bidding procedures; or
(C) The solicitation is for utility services for which rates are
set by law or regulation.
(ii) 52.203-11, Certification and Disclosure Regarding Payments
to Influence Certain Federal Transactions. This provision applies to
solicitations expected to exceed $100,000.
(iii) 52.204-3, Taxpayer Identification. This provision applies
to solicitations that do not include the clause at 52.204-7, Central
Contractor Registration.
(iv) 52.204-5, Women-Owned Business (Other Than Small Business).
This provision applies to solicitations that--
(A) Are not set aside for small business concerns;
(B) Exceed the simplified acquisition threshold; and
(C) Are for contracts that will be performed in the United
States or its outlying areas.
(v) 52.209-5, Certification Regarding Responsibility Matters.
This provision applies to solicitations where the contract value is
expected to exceed the simplified acquisition threshold.
(vi) 52.214-14, Place of Performance--Sealed Bidding. This
provision applies to invitations for bids except those in which the
place of performance is specified by the Government.
(vii) 52.215-6, Place of Performance. This provision applies to
solicitations unless the place of performance is specified by the
Government.
(viii) 52.219-1, Small Business Program Representations (Basic &
Alternate I). This provision applies to solicitations when the
contract will be performed in the United States or its outlying
areas.
(A) The basic provision applies when the solicitations are
issued by other than DoD, NASA, and the Coast Guard.
(B) The provision with its Alternate I applies to solicitations
issued by DoD, NASA, or the Coast Guard.
(ix) 52.219-2, Equal Low Bids. This provision applies to
solicitations when contracting by sealed bidding and the contract
will be performed in the United States or its outlying areas.
(x) 52.222-22, Previous Contracts and Compliance Reports. This
provision applies to solicitations that include the clause at
52.222-26, Equal Opportunity.
(xi) 52.222-25, Affirmative Action Compliance. This provision
applies to solicitations, other than those for construction, when
the solicitation includes the clause at 52.222-26, Equal
Opportunity.
(xii) 52.222-38, Compliance with Veterans' Employment Reporting
Requirements. This provision applies to solicitations when it is
anticipated the contract award will exceed the simplified
acquisition threshold and the contract is not for acquisition of
commercial items.
(xiii) 52.223-1, Biobased Product Certification. This provision
applies to solicitations that require the delivery or specify the
use of USDA-designated items; or include the clause at 52.223-2,
Affirmative Procurement of Biobased Products Under Service and
Construction Contracts.
(xiv) 52.223-4, Recovered Material Certification. This provision
applies to solicitations that are for, or specify the use of, EPA-
designated items.
(xv) 52.225-2, Buy American Act Certificate. This provision
applies to solicitations containing the clause at 52.225-1.
(xvi) 52.225-4, Buy American Act--Free Trade Agreements--Israeli
Trade Act Certificate. (Basic, Alternate I, and Alternate II) This
provision applies to solicitations containing the clause at 52.225-
3.
(A) If the acquisition value is less than $25,000, the basic
provision applies.
(B) If the acquisition value is $25,000 or more but is less than
$50,000, the provision with its Alternate I applies.
(C) If the acquisition value is $50,000 or more but is less than
$67,826, the provision with its Alternate II applies.
(xvii) 52.225-6, Trade Agreements Certificate. This provision
applies to solicitations containing the clause at 52.225-5.
(xviii) 52.225-20, Prohibition on Conducting Restricted Business
Operations in Sudan--Certification.
(xix) 52.226-2, Historically Black College or University and
Minority Institution Representation. This provision applies to--
(A) Solicitations for research, studies, supplies, or services
of the type normally acquired from higher educational institutions;
and
(B) For DoD, NASA, and Coast Guard acquisitions, solicitations
that contain the clause at 52.219-23, Notice of Price Evaluation
Adjustment for Small Disadvantaged Business Concerns.
(2) The following certifications are applicable as indicated by
the Contracting Officer:
[Contracting Officer check as appropriate.]
----(i) 52.219-19, Small Business Concern Representation for the
Small Business Competitiveness Demonstration Program.
------(ii) 52.219-21, Small Business Size Representation for
Targeted Industry Categories Under the Small Business
Competitiveness Demonstration Program.
[[Page 2731]]
------(iii) 52.219-22, Small Disadvantaged Business Status.
------(A) Basic.
------(B) Alternate I.
------(iv) 52.222-18, Certification Regarding Knowledge of Child
Labor for Listed End Products.
------(v) 52.222-48, Exemption from Application of the Service
Contract Act to Contracts for Maintenance, Calibration, or Repair of
Certain Equipment Certification.
------(vi) 52.222-52 Exemption from Application of the Service
Contract Act to Contracts for Certain Services--Certification.
------(vii) 52.223-9, with its Alternate I, Estimate of
Percentage of Recovered Material Content for EPA-Designated Products
(Alternate I only).
------(viii) 52.223-13, Certification of Toxic Chemical Release
Reporting.
------(ix) 52.227-6, Royalty Information.
------ (A) Basic.
------ (B) Alternate I.
------(x) 52.227-15, Representation of Limited Rights Data and
Restricted Computer Software.
(d) * * * After reviewing the ORCA database information, the
offeror verifies by submission of the offer that the representations
and certifications currently posted electronically that apply to
this solicitation as indicated in paragraph (c) of this provision
have been entered or updated within the last 12 months, are current,
accurate, complete, and applicable to this solicitation (including
the business size standard applicable to the NAICS code referenced
for this solicitation), as of the date of this offer and are
incorporated in this offer by reference (see FAR 4.1201); except for
the changes identified below [offeror to insert changes, identifying
change by clause number, title, date]. * * *
* * * * *
[End of provision]
0
10. Amend section 52.212-3 by revising the date of the provision and
paragraph (k)(1)(i) to read as follows:
52.212-3 Offeror Representations and Certifications--Commercial Items.
* * * * *
OFFEROR REPRESENTATIONS AND CERTIFICATIONS--COMMERCIAL ITEMS (FEB
2009)
* * * * *
(k) * * *
[ ](1) * * *
(i) The items of equipment to be serviced under this contract
are used regularly for other than Governmental purposes and are sold
or traded by the offeror (or subcontractor in the case of an exempt
subcontract) in substantial quantities to the general public in the
course of normal business operations;
* * * * *
[End of provision]
0
11. Amend section 52.212-5 by--
0
a. Revising the date of the clause;
0
b. Revising paragraph (c)(6);
0
c. Removing from paragraph (e)(1) ``in paragraphs (e)(1)(i) through
(xi) of this paragraph'' and adding ``in this paragraph (e)(1)'' in its
place; and
0
d. Revising paragraph (e)(1)(x).
0
The revised text reads as follows:
52.212-5 Contract Terms and Conditions Required to Implement Statutes
or Executive Orders--Commercial Items.
* * * * *
CONTRACT TERMS AND CONDITIONS REQUIRED TO IMPLEMENT STATUTES OR
EXECUTIVE ORDERS--COMMERCIAL ITEMS (FEB 2009)
* * * * *
(C) * * *
(6) 52.222-53, Exemption from Application of the Service
Contract Act to Contracts for Certain Services--Requirements (FEB
2009) (41 U.S.C. 351, et seq.).
* * * * *
(e)(1) * * *
(x) 52.222-53, Exemption from Application of the Service
Contract Act to Contracts for Certain Services-Requirements (FEB
2009)(41 U.S.C. 351, et seq.).
* * * * *
[End of clause]
0
12. Amend section 52.222-48 by revising the date of the provision and
paragraph (a)(1) to read as follows:
52.222-48 Exemption from Application of the Service Contract Act to
Contracts for Maintenance, Calibration, or Repair of Certain Equipment
Certification.
* * * * *
EXEMPTION FROM APPLICATION OF THE SERVICE CONTRACT ACT TO CONTRACTS
FOR MAINTENANCE, CALIBRATION, OR REPAIR OF CERTAIN EQUIPMENT
CERTIFICATION (FEB 2009)
* * * * *
(a) * * *
(1) The items of equipment to be serviced under this contract
are used regularly for other than Government purposes, and are sold
or traded by the offeror (or subcontractor in the case of an exempt
subcontractor) in substantial quantities to the general public in
the course of normal business operations;
* * * * *
[End of provision]
0
13. Amend section 52.222-53 by revising the date of the clause and
paragraph (e) to read as follows:
52.222-53 Exemption from Application of the Service Contract Act to
Contracts for Certain Services--Requirements.
* * * * *
EXEMPTION FROM APPLICATION OF THE SERVICE CONTRACT ACT TO CONTRACTS
FOR CERTAIN SERVICES-- REQUIREMENTS (FEB 2009)
* * * * *
(e)(1) Except for services identified in FAR 22.1003-
4(d)(1)(iv), the subcontractor for exempt services shall be selected
for award based on other factors in addition to price or cost with
the combination of other factors at least as important as price or
cost; or
(2) A subcontract for exempt services shall be awarded on a sole
source basis.
* * * * *
[End of clause]
[FR Doc. E9-532 Filed 1-14-09; 8:45 am]
BILLING CODE 6820-EP-S