95-8750. Federal Energy Management and Planning Programs; Energy Savings Performance Contract Procedures and Methods  

  • [Federal Register Volume 60, Number 68 (Monday, April 10, 1995)]
    [Rules and Regulations]
    [Pages 18326-18337]
    From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
    [FR Doc No: 95-8750]
    
    
    
    
    [[Page 18325]]
    
    _______________________________________________________________________
    
    Part VII
    
    
    
    
    
    Department of Energy
    
    
    
    
    
    _______________________________________________________________________
    
    
    
    Office of Energy Efficiency and Renewable Energy
    
    
    
    _______________________________________________________________________
    
    
    
    10 CFR Part 436
    
    
    
    Federal Energy Management and Planning Programs, Energy Savings 
    Performance Contract Procedures and Methods; Final Rule
    
    Federal Register / Vol. 60, No. 68 / Monday, April 10, 1995 / Rules 
    and Regulations 
    [[Page 18326]] 
    
    DEPARTMENT OF ENERGY
    
    Office of Energy Efficiency and Renewable Energy
    
    10 CFR Part 436
    
    [Docket No. EE-RM-94-201]
    RIN 1904-AA62
    
    
    Federal Energy Management and Planning Programs; Energy Savings 
    Performance Contract Procedures and Methods
    
    AGENCY: Department of Energy.
    
    ACTION: Final Rule.
    
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    SUMMARY: The Department of Energy gives notice of final rules 
    establishing a five-year pilot program of energy savings performance 
    contracts designed to accelerate investment in cost effective energy 
    conservation measures in existing Federal buildings and thereby save 
    taxpayer dollars. Such contracts typically provide for installation of 
    energy conservation measures financed with private sector funds which 
    are repaid out of the resulting energy cost savings over time. This 
    notice covers the following topics as required by section 801 of the 
    National Energy Conservation Policy Act (42 U.S.C. 8287): qualified 
    contractor lists; procedures and methods to select, monitor, and 
    terminate contracts; and substitute regulations for certain provisions 
    in the Federal Acquisition Regulation which are inconsistent with 
    section 801 and which can be varied consistent with their authorizing 
    legislation.
    
    EFFECTIVE DATE: These rules become effective May 10, 1995.
    
    FOR FURTHER INFORMATION CONTACT: Joan G. Stone, EE-92, Office of 
    Federal Energy Management Programs, U.S. Department of Energy, 1000 
    Independence Avenue, SW., Washington, DC 20585, (202) 586-5772 
    (regarding the regulations) and the FEMP Help Desk (for a copy of the 
    revised model solicitations) (800) 566-2877.
    
    SUPPLEMENTARY INFORMATION:
    
    I. Introduction
    
        The Department of Energy (Department or DOE) today publishes a 
    notice of final rulemaking which will inaugurate a Congressionally 
    mandated experiment in procurement reform. This experiment involves a 
    pilot program to test for five years the concept of accelerating 
    installation of energy conservation measures in existing Federally 
    owned buildings through energy saving performance contracts. This type 
    of contracting calls for Federal agencies to contract for energy 
    conservation services with performance guarantees and pay for them in 
    the future from the resulting cost savings. If successful, this program 
    will boost the level of energy efficiency investment significantly 
    beyond what can be purchased with appropriated funds. It will also make 
    a contribution to achieving ambitious national energy efficiency goals 
    and to reducing greenhouse gas emissions.
        Today DOE is also releasing revised versions of the model 
    solicitations which were made available for public comment. These 
    solicitations provide guidance to implementing Federal agencies on 
    conducting procurement actions consistent with the rules in this 
    notice. DOE will use these model solicitations in training workshops 
    for agency procurement professionals.
        On March 10, 1994, the President issued Executive Order 12902, 
    Energy Efficiency and Water Conservation at Federal Facilities (59 FR 
    11463). Section 401 of the Executive Order requires agencies to utilize 
    energy savings performance contracts to meet the goals and requirements 
    of the Act. With the issuance of today's regulations and the model 
    solicitations, Federal agencies have the regulatory flexibility to 
    comply with the President's management directions. What is necessary 
    now is action by senior agency officials, an appropriate agency 
    priority on employing energy savings performance contracts, development 
    and maintenance of a trained cadre of dedicated procurement personnel, 
    and accountability for results.
    
    Background
    
        On April 11, 1994, (59 FR 17204) DOE published a notice of proposed 
    rulemaking under section 155 of the Energy Policy Act of 1992 (Pub. L. 
    102-486). Section 155 revised the legislatively mandated policies with 
    regard to energy saving performance contracts originally set forth in 
    sections 801-804 of National Energy Conservation Policy Act (Act). 
    Section 801 specifically authorizes Federal agencies to enter into such 
    a contract for a term not to exceed 25 years. It also provides that 
    such a contract contain provisions requiring the contractor to ``incur 
    costs of implementing energy savings measures, including at least the 
    cost (if any) incurred in making energy audits, acquiring and 
    installing equipment, and training personnel, in exchange for a share 
    of any energy savings directly resulting from implementation of such 
    measures during the term of the contract'' (42 U.S.C. 8287(a)(1)). In 
    addition, the Act specifically authorizes payment of amounts required 
    by an energy savings performance contract ``only from funds 
    appropriated or otherwise made available to the agency . . . for the 
    payment of energy expenses (and related operation and maintenance 
    expenses)'' (42 U.S.C. 8287a). Periodic reporting on progress by 
    Federal agencies in modifying contract practices and in achieving 
    energy savings under contracts is mandated by section 803 of the Act 
    (42 U.S.C. 8287b). Definitions pertinent to sections 801-803 are set 
    forth in section 804 of the Act (42 U.S.C. 8287c).
        Section 155 of the Energy Policy Act inserted in section 801 a 
    requirement for DOE to issue appropriate rules containing: (1) Methods 
    and procedures for selecting, monitoring, and terminating energy 
    savings performance contracts; and (2) ``substitute regulations'' for 
    provisions of the Federal Acquisition Regulation (FAR) which are 
    inconsistent with the intent of section 801 as amended and which may be 
    revised consistent with generally applicable procurement statutes. 
    Energy savings performance contracts are designed to reduce the cost of 
    energy in Federal buildings without capital investment by the building 
    owner. Typically, the terms of such a contract provide for contractor 
    purchase, installation, and maintenance of energy conservation measures 
    with a guarantee of annual energy cost savings in consideration for a 
    share of such savings. ``Under these contracts, the contractor is 
    expected to bear the risk of performance, make a significant initial 
    capital investment, guarantee significant energy savings to the 
    government agency, and from these savings, the agency, in effect, makes 
    payment to the contractor.'' H.R. Conf. Rep. No. 102-1018, 102d Cong., 
    2d Sess., 385, reprinted in 1992, U.S. Code Congressional and 
    Administrative News 2476.
        The Act requires that DOE obtain the concurrence of the Federal 
    Acquisition Regulatory Council established under section 25(a) of the 
    Office of Federal Procurement Policy Act (41 U.S.C. 421) in the 
    issuance of the final rule. The Federal Acquisition Regulatory Council 
    has reviewed this notice and has no objection to the issuance of the 
    final rule.
        The model solicitations, referred to earlier in this Supplementary 
    Information, provide uniform formats and standardized contract 
    provisions recommended for Federal agency use in energy savings 
    performance contracts. The model or generic solicitations include some 
    provisions that have been [[Page 18327]] determined necessary to 
    accommodate the unique nature of energy conservation services which 
    often require third-party financing.
    
    II. Discussion of Comments and Other Changes
    
        DOE held a public hearing on June 1, 1994, and the closing date for 
    receipt of written comments was June 10, 1994. Nineteen interested 
    persons filed written comments of which 13 presented oral comments at 
    the public hearing. DOE appreciated all comments and suggestions 
    submitted in response to the proposed rule. DOE was especially 
    appreciative of certain of those written comments that addressed the 
    proposed guidance in the draft model solicitations in addition to the 
    proposed regulations. DOE fully considered all of the suggestions and 
    arguments made in the comments in revising the proposed regulations and 
    the draft model solicitations. In this Supplementary Information 
    section, DOE explains significant changes from the proposed 
    regulations. Included in the explanation are responses to the major 
    policy issues distilled from comments directed at the proposed 
    regulations, as well as from comments directed at the draft model 
    solicitations that had implications for the proposed regulations.
        DOE has chosen not to respond to comments that request actions 
    beyond its legal authority to issue regulations. For example, there is 
    no need to respond to policy arguments in comments criticizing DOE's 
    legal conclusions rejecting suggested substitute provisions for the 
    Federal Acquisition Regulation. DOE hereby reaffirms its previously 
    expressed views in this regard.
        DOE has sent to each of the commenters a copy of the revised model 
    solicitations and will be scheduling a public meeting at which time 
    there can be a dialog on issues that relate solely to those 
    solicitations. Interested persons who did not comment on the proposed 
    regulations may obtain a copy of the revised model solicitations by 
    calling the FEMP Help Desk at 1-800-566-2877. Any such person may 
    attend the public meeting which will be noticed in the Federal 
    Register.
    
    A. Section 436.30 Purpose and Scope
    
        As proposed, 10 CFR Sec. 436.30(c) would encourage competition in 
    utility incentive programs under section 546(c) of the Act. 42 U.S.C. 
    8256(c). A commenter recommended that language be added to proposed 
    Sec. 436.30(b) which would prohibit agencies from participating in 
    utility incentive programs when the services could be provided by 
    energy service contractors through energy savings performance 
    contracts. Another commenter seeking to maximize competition suggested 
    that the language in Sec. 436.30(c) be revised to ``require'' instead 
    of encourage utilities to select their contractors in a competitive 
    manner. DOE did not accept either of these suggestions because it does 
    not have the authority to regulate agency activities or contractual 
    agreements with regard to utility incentive programs as authorized 
    under section 546 of the Act.
        DOE has added a paragraph (d) containing language to ensure that 
    the rules published today are broadly construed when the regulatory 
    language is not restrictive. Permissive language in the regulations 
    (``may'' rather than ``shall'') ordinarily should not be read to limit 
    agency discretion. For example, the express authority to accept 
    unsolicited proposals if certain conditions are satisfied does not 
    preclude agencies from rejecting such a proposal because it prefers 
    competitive solicitations or concludes that the proposal is too 
    narrowly focused on one or two energy conservation measures.
    
    B. Section 436.31 Definitions
    
    Energy Audit
        Regarding the definition of ``energy audit,'' commenters generally 
    agreed with the Department's position that specific energy audit 
    requirements should not be prescribed in mandatory regulations. Apart 
    from regulatory provisions requiring there to be energy audits at 
    certain times, the specifics with regard to energy audits appear in the 
    revised model solicitations.
        Numerous comments on the model solicitations were received relating 
    to the applicability, rigor, and timing of energy audits which may be 
    conducted by a Federal agency or an energy service company, before or 
    during a contract. Detailed responses to these comments appear later in 
    this Supplementary Information section in the discussion of comments 
    with regard to Sec. 436.33. However, at this point, DOE notes that, in 
    order to promote clarity, the definition of ``energy audit'' has been 
    limited to ``annual energy audits'' that take place during the course 
    of a contract to verify savings and to determine whether to adjust the 
    energy baseline for changes in conditions beyond the contractor's 
    control. This limitation is consistent with the statutory text which 
    uses the term ``energy audit'' only in connection with post award, 
    annual energy audits. DOE has also added definitions for two new terms: 
    ``preliminary energy survey'' and ``detailed energy survey.'' These two 
    terms refer to audit-type procedures which may precede contractor 
    selection and contract award, respectively.
    Energy Conservation Measures
        One commenter recommended that the definition of ``energy 
    conservation measures'' include language which addresses ``other 
    environmental improvements'' to encompass technological breakthroughs. 
    DOE did not incorporate this comment into the rule because DOE has no 
    authority under 42 U.S.C. 8287c to include the additional language.
    Energy Cost Savings and Energy Savings
        One commenter suggested that the statutory definition of ``energy 
    savings'' in section 804 of the Act be included in the rule instead of 
    the proposed ``Energy Cost Savings'' definition. Further, the commenter 
    suggested that the proposed definition of the term ``Energy Savings'' 
    be changed to ``Energy Unit Savings.''
        DOE has accepted the latter suggestion because it implies in plain 
    English that the measure of savings is in physical units. However, DOE 
    has decided to retain ``energy cost savings'' as the defined term for 
    savings measured in dollars. In general, DOE prefers to use defined 
    terms which have definitions close to normal usage.
        Some of the comments indicated uncertainty about the extent to 
    which energy-related operation and maintenance cost savings are 
    included in the definition of ``energy cost savings.'' DOE recognizes 
    that the law allows a contractor to be paid from savings in related 
    operation and maintenance costs, if the contractor assumes 
    responsibility for operations or maintenance of equipment it has 
    retrofitted or replaced and which is currently covered in an operation 
    and maintenance service contract.
        One commenter recommended that DOE consider how ``soft savings'' 
    should be defined and considered. Examples of soft savings are 
    increased worker productivity and extended equipment life. DOE has 
    decided not to address soft savings in the final rule because it is too 
    subjective and difficult to measure accurately.
    Energy Savings Performance Contracts
        A commenter asked DOE to clarify whether the procedures in the rule 
    for energy savings performance contracts apply to water conservation 
    projects. DOE did not include water conservation in the definition for 
    ``energy savings performance contracts'' in the rule because water 
    conservation was not [[Page 18328]] included in the definition in 42 
    U.S.C. 8287c.
    
    C. Section 436.32 Qualified Contractor List
    
        Paragraph (a) of 436.32 provides for annual notices in the Commerce 
    Business Daily inviting submission of new statements of qualification 
    and requiring submission by listed firms of updates to their statements 
    as appropriate. This provision differs from the proposed rule only to 
    the extent that the wording has been altered to make clear that 
    submission of updated information is required.
        One of the commenters on proposed Sec. 436.32(a) argued that an 
    annual update of the qualified list may unnecessarily restrict 
    competition. Furthermore, the commenter argued that the usefulness of 
    any such list may be limited by the age of the information provided by 
    contractors. This commenter recommended that the list should be open 
    continuously to add qualified contractors. Although an annual notice 
    will be published, DOE will allow potential contractors that are not on 
    a qualified list to submit a statement of qualifications at any time. 
    DOE agrees that this will assist in increasing competition among firms.
        The proposed rule provided for updating statements of 
    qualifications, but did not make explicit that a firm could be delisted 
    for failure to respond or because new information warranted 
    disqualification. Paragraph (c) of Sec. 436.32 remedies that omission.
        The preamble to the proposed rule set forth two questionnaires 
    which would be used to establish the qualified list of firms as 
    provided under paragraph (a) of Sec. 436.32. In response to DOE's 
    request for public comments on the adequacy of the questionnaires, a 
    number of firms submitted comments. The most significant of these are 
    addressed below. These questionnaires have been revised based on public 
    comments as discussed below. A copy of them is set forth after a 
    discussion of public comments.
        DOE agrees with commenters that it would be difficult for firms to 
    identify all associates and subcontractors without the knowledge of 
    specific projects and its location. The questionnaire was revised by 
    deleting the requirement for the identification of subcontractors.
        A commenter recommended that the table under ``EXPERIENCE,'' 
    seeking a five year summary of contract values for energy-related 
    services, be clarified. It was noted that the total project cost had 
    little bearing on technical ability or project management expertise. 
    Based on this comment, the table was deleted, and a question was added 
    to ``Financial Status'' requesting the largest capital investment for 
    an energy savings performance contract for which the firm acquired 
    financing.
        Some of the commenters criticized the request for all legal or 
    administrative proceedings pending or concluded adversely against firms 
    within the last five years relating to procurement or performance of 
    construction contracts. The commenter argued that: (1) Responding to 
    the request would be too burdensome; (2) adverse judgments may not have 
    an impact on a firm's financial status; and (3) the information would 
    be sought and reviewed by a contracting officer in any event prior to 
    award. DOE has accepted these comments and has deleted the request.
        A commenter was concerned about the disclosure of proprietary 
    information provided on their statements of qualifications. In the 
    Department's view, information in a firm's statement of qualifications 
    will be subject to the same restrictions on disclosure of proprietary 
    and business sensitive information as other proposals and documents 
    submitted to the Federal government by private firms. The Department 
    does not believe any additional restrictions are necessary or 
    advisable.
        One of the comments suggested that the questionnaire should include 
    questions about potential performance guarantors, and argued that the 
    best interests of the government would be served if the qualified list 
    did not include a firm that would rely on a legally separate guarantor 
    in which the firm has an indirect financial interest. Contrary to this 
    comment, DOE has concluded that the questionnaire should not include 
    questions about potential performance guarantors because a firm's 
    decision to seek insurance, regardless of source, is not relevant to 
    determining whether a firm has the minimum qualifications to provide 
    energy savings performance services.
        Comments received on the experience criteria were divided. Some 
    comments argued that new firms may have difficulty meeting the two year 
    experience requirements, even if they have experienced personnel, and 
    that reputable firms would have difficulty qualifying if they have no 
    performance contracting experience. Another commenter stated that two 
    successful contracts with two clients should be sufficient for 
    qualification. To broaden the list of qualified firms and increase 
    competition, paragraph (b)(1) of Sec. 436.32 has been revised to allow 
    contractors to qualify if they provide two contracts for installation 
    of energy conservation measures, regardless of whether they are energy 
    savings performance contracts, and if they otherwise have appropriate 
    project experience showing success in using energy conservation 
    technologies.
        In response to comments that the draft experience criteria should 
    remain unchanged because firms without a proven track record may not 
    generate energy savings, DOE observes that the qualified list is an 
    initial screening, and agencies will independently review a firm's 
    qualifications through their source selection process and determine 
    whether or not a firm has the ability to generate savings.
        A question was asked by one commenter as to the effect a decision 
    by DOE with respect to inclusion on the qualified contractors list 
    would have on a contracting officer's obligation to refer 
    nonresponsibility determinations to the Small Business Administration 
    under FAR 19.602. Section 801(b)(2) of the Act authorizes the 
    Department to establish a list of qualified contractors and requires 
    agencies to use this list, or one developed in the same manner by the 
    agency itself. Furthermore, agencies are authorized by the Act to 
    select firms from the list to conduct discussions concerning a 
    particular project. While this rule establishes certain criteria for 
    inclusion of a firm on the list, the contracting officer is still 
    required to make a responsibility determination on a procurement-
    specific basis. A decision that a particular small business is not 
    ``qualified'' and, therefore, not eligible to be included on the 
    qualified contractors list is not a determination of non-responsibility 
    and has no effect on a contracting officer's obligation to make 
    responsibility determinations.
        Under paragraph (b)(2) of proposed Sec. 436.32, a firm would have 
    to be rated fair or better by its project clients to meet the minimum 
    criteria. Commenters argued that the minimum criteria be raised to a 
    rating above ``fair.'' DOE decided not to accept this comment. Instead 
    the client questionnaire was revised to add ``recommend contractor'' to 
    the rating of ``fair'' to make it clear that even though there was room 
    for improved quality and performance, the client would still give the 
    firm a positive recommendation because the firm met the project 
    objective. With this modification of the questionnaire, DOE believes 
    that a client rating of fair or better is sufficient to consider a firm 
    for the qualified list. During the actual source selection process, 
    agencies will independently make the determination whether a firm meets 
    the minimum requirements to accomplish a specific project. 
    [[Page 18329]] 
        Commenters recommended that paragraph (b)(4) of proposed 
    Sec. 436.32 be changed by adding a statement related to the financial 
    strength of the firm to provide adequate bonding. This was not included 
    in the qualification process because agencies will address a firm's 
    bonding capabilities prior to the award of a specific contract.
        A commenter recommended that paragraph (c) of proposed Sec. 436.32 
    should be revised to allow any Federal agency to enter into sole source 
    contracts with firms competitively selected by local utilities. This 
    recommendation was not incorporated in the final rule because DOE has 
    no authority under 42 U.S.C. Sec. 8287 to implement it.
        One commenter recommended that firms not selected for inclusion on 
    the qualified contractors list be given an opportunity to comment on 
    adverse information short of filing an appeal to the General Services 
    Administration Board of Contract Appeals. Section 436.32(d) of the rule 
    provides firms found not to be qualified the opportunity for a 
    debriefing from a DOE official. In the Department's view, this should 
    provide an efficient informal method for advising a disappointed firm 
    of the basis for the Department's decision. Furthermore, since the list 
    will be updated on a continual basis rather than annually, firms will 
    be able to provide corrected or supplemented statements of 
    qualifications for consideration by the Department at any time.
        Following are questionnaires the Department plans to use for 
    establishing the qualified list:
    1. General Information
    (a) Name and address of firm:
    (b) Telephone No.:
        Fax No.:
    (c) Indicate type of firm:
        ______ Partnership
        ______ Corporation
        ______ Sole proprietor
        ______ Branch Office of
        ____________
        ______ Joint Venture (List venture partners)
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        ______Other (Explain) ____________
    (d) This submittal applies to:
        [  ] Parent Company
        [  ] Subsidiary
        [  ] Division
        [  ] Branch Office
        [  ] Other
    
        List the names of any of the above marked entities which are to be 
    considered in the prequalification process, and describe their 
    functions, responsibilities, and interrelationships.
    
    (e) Names and titles of two people authorized to represent the firm
    (f) Federal Employer Identification Number
    (g) Year firm was established
    (h) Name and address of parent company (if applicable)
    (i) Indicate previous names of firm: ____________
    (j) Has your firm been competitively selected by a Utility Company 
    under a Demand-Side Management Bidding program to provide conservation 
    services for commercial and industrial customers? Yes ______ No ______ 
    If yes, please designate the utility and provide pertinent information.
    (k) Indicate the largest dollar value of investment your firm would 
    consider for a Federal Government energy savings performance contract 
    (ESPC)
    (l) Indicate the regions of the country your firm would consider 
    providing Federal ESPC services
        [  ] Region 1 (CT, ME, NH, VT, MA, RI)
        [  ] Region 2 (NY, NJ)
        [  ] Region 3 (MD, DE, VA, WV, DC, PA)
        [  ] Region 4 (FL, GA, KY, MS, NC, SC, TN, AL)
        [  ] Region 5 (IL, IN, MI, MN, OH, WI)
        [  ] Region 6 (AR, LA, NM, OK, TX)
        [  ] Region 7 (IA, KS, MO, NE)
        [  ] Region 8 (CO, MT, ND, SD, UT, WY)
        [  ] Region 9 (CA, AZ, NV, HI)
        [  ] Region 10 (WA, OR, AK, ID)
        [  ] All Regions
        [  ] Territories
        [  ] Overseas Facilities
        [  ] Exceptions (specify) ____________
    2. Experience
        (a) List and briefly describe two projects completed by your firm 
    that have been operating and saving energy or reducing utility costs 
    and that best illustrate your range of experience relative to energy 
    savings performance contracting or energy management expertise (e.g., 
    type of technologies implemented). If your firm does not possess ESPC 
    experience with the technologies for which you want to be qualified, 
    provide the experience of your firm in implementing other technologies. 
    One project should represent the largest project completed, and the 
    other should represent a recently completed project. For each project, 
    provide information on the following items:
        1) Project title and location.
        2) Client to contact regarding the project, his or her position, 
    address, and telephone number.
        3) Whether the project was for public or private sector.
        4) Briefly describe the facility including function, number of 
    buildings, and size in square feet.
        5) Total contract amount.
        6) Type of financing arranged by your firm.
        7) Type and term of contract.
        8) Starting and ending dates.
        9) Whether the project was completed on schedule. If not, explain.
        10) Projected annual energy savings and/or demand reduction.
        11) Performance guarantees, if performance-based energy service 
    contract.
        12) Actual annual energy savings and/or demand reduction achieved 
    for each project.
        13) Notes, explanations, or any other information relating to the 
    project. (Optional)
        (b) Indicate the number of years in business as an Energy 
    Management Contractor: ________ years. Indicate all other names for 
    your firm and the length of time your firm had that name.
    3. Technical Capability
        List the technologies (e.g., lighting; HVAC systems) which your 
    firm may propose to apply to a building or facility to implement energy 
    conservation measures under an energy savings performance contract.
    4. Available Staff
        (a) Indicate the experience in energy management and energy 
    conservation services of the personnel in your firm that you are 
    intending to utilize on projects.
        (b) List all professional and skilled trades which your firm 
    customarily performs with your own employees.
    5. Financial Status
        (a) For each year in the last five years, identify the largest 
    capital investment for an ESPC in which your firm acquired financing.
        (b) State whether your firm (or predecessors, if any) or any 
    principal of the firm has been insolvent or declared to be in 
    bankruptcy within the past 5 years.
        (c) Indicate whether your firm or any principal of the firm has 
    been debarred by the Federal Government and provide explanation.
        The following is the revised questionnaire that the firm will send 
    to two of its clients:
        1. Was the project completed on schedule? [[Page 18330]] 
        2. Did contract involve energy savings performance guarantees? If 
    so, describe performance guarantees (e.g., annual energy or cost 
    savings).
        3. Did the installed project achieve energy savings and/or demand 
    reduction projected or guaranteed by contractor?
        4. Was the method(s) used by the contractor to determine annual 
    energy savings and/or demand reduction acceptable for the type of 
    energy conservation measures installed?
        5. Did the contractor provide satisfactory operations, maintenance, 
    and repair services, if any?
        6. Were rebates from the utility in your area available to you? If 
    yes, did the contractor arrange satisfactory utility supplier rebates 
    or other financial incentives?
        7. Did the contractor provide or arrange satisfactory project 
    financing?
        8. What was your total compensation under the contract?
    
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        9. Provide a rating, using the categories identified below, of your 
    overall satisfaction with the services provided by the contractor. 
    Please briefly explain your reasons for giving a rating of ``Fair'' or 
    ``Poor,'' as applicable.
        [  ] Excellent--Exceeded expectations, highly recommend contractor.
        [  ] Good--Met all requirements, recommend contractor.
        [  ] Fair--Achieved project objective, room for improved quality 
    and performance, recommend contractor.
        [  ] Poor--Significant shortfall in meeting contractual 
    requirements, would not recommend.
        If an accreditation process by a professional association 
    effectively covers some or all of the information requested through 
    this survey, evidence of accreditation could be submitted in lieu of 
    the relevant portion(s) of this questionnaire.
    
    D. Section 436.33 Procedures and Methods for Contractor Selection
    
        The proposed contractor selection methods and procedures in the 
    proposed rule and in the model solicitations attracted substantial 
    comment. Several commenters provided detailed critiques of the method 
    for competitive selection of contractors. In their view, the 
    Department's proposed method of contract award would be more expensive 
    for prospective contractors and expose them to more risk than the usual 
    method under which such contracts are awarded in the private sector. 
    Under the draft model solicitations, all potential contractors would 
    conduct ``investment-grade'' audits before submitting a proposal. This 
    is an expensive undertaking which, the commenters argued, would 
    discourage firms from competing and from offering a comprehensive 
    package of energy conservation measures.
        The foregoing comments led the Department to rethink the method for 
    competitive selection of contractors. Both the proposed regulations and 
    the draft model solicitations have been revised to provide Federal 
    agencies the option to use a two stage proposal process instead of the 
    more conventional selection process. In the first stage, the Federal 
    agency would solicit initial proposals. In the solicitation, the 
    Federal agency could release whatever data it had about a building, 
    indicate what energy conservation measures should be included in a 
    proposal, and allow potential proposers the opportunity to conduct a 
    ``preliminary energy survey.'' Upon receipt of proposals, the Federal 
    agency would preliminarily select a proposer and announce an intent to 
    make an award. However, prior to award, the Federal agency would have 
    the option to require a selectee to conduct a ``detailed energy 
    survey'' to confirm or modify its proposal, subject to the condition 
    that the confirmed or modified proposal would include a performance 
    guarantee that does not reduce the energy cost savings estimated in the 
    initial proposal more than a fixed percentage set forth in the 
    solicitation. If this condition is not met, the Federal agency may 
    select another firm from among those submitting initial proposals. On 
    the other hand, as the model solicitation provides, if the detailed 
    energy survey revealed previously unsuspected potential savings, the 
    contract award could include the additional energy conservation 
    measures.
        DOE decided to describe pre-award energy auditing procedures as 
    energy surveys because section 801 of the Act only refers to ``annual 
    energy audits.'' The difference between a ``preliminary energy survey'' 
    and a ``detailed energy survey'' is the degree of rigor in the survey. 
    The former would be in the nature of what some of the comments 
    described as a ``scoping audit,'' and the latter could resemble what 
    some of the comments described as ``investment grade audits.'' There 
    would be no obligation on a Federal agency to require a ``preliminary 
    energy survey,'' and if existing data were sufficient, then there would 
    be no functional purpose to such survey. The degree of rigor in a 
    ``detailed energy survey'' would be a function of how much information 
    a proposer who has been selected for award needs to confirm or modify a 
    proposed performance guarantee. The Department is of the view that 
    selection for award should be enough of an inducement for a proposer to 
    undertake the risk of conducting a ``detailed energy survey'' that 
    might not lead to an award. The Department believes that this change in 
    the method of selecting a contractor will reduce cost and risk for 
    potential contractors and, thereby, increase competition in energy 
    savings performance contracting for the Federal Government.
        One commenter objected to the provision in proposed 
    Sec. 436.33(a)(1) that agencies ``request the submission of `intent to 
    propose' statements from all firms on the list who may be interested in 
    proposing'' and that selection of the contractor be from those firms 
    submitting ``intent to propose'' statements. The commenter considered 
    this provision inconsistent with the statutorily-based requirement in 
    48 CFR subpart 5.2 that proposed contract actions be synopsized in the 
    Commerce Business Daily. The Department agrees with this comment and 
    has revised Sec. 436.33(a) of the rule to provide for issuance of a CBD 
    notice to inform interested firms of a planned energy savings 
    performance contract. DOE has decided that the proposed rule 
    requirement for submission of an ``intent to propose'' statement for 
    firms on the qualified list is unnecessary in light of the decision to 
    use a CBD notice to inform firms of a performance contract action.
        Section 436.33(a)(4) of the proposed rule stated that a contractor 
    may be competitively selected based on proposals for a representative 
    sample of buildings at a large facility. The agency may then request 
    further proposals from the contractor for all or some of the remaining 
    buildings at the site. One commenter suggested the addition of language 
    to this section clarifying that the agency is not obligated to award a 
    contract or contracts to the selected contractor based on such further 
    proposals. The agency is free to conduct additional competitions 
    covering the other buildings. The Department agrees that agencies 
    should be free to conduct such a competition, but does not agree that 
    this clarification is necessary because the regulatory provision is 
    worded permissively. It states what an agency ``may'' do and not what 
    it must do.
        Some commenters expressed concern about the protection of 
    proprietary and confidential information that may be contained in 
    unsolicited proposals. [[Page 18331]] 
    Section 801(b)(2)(C)(iii) of the Act requires Federal agencies to 
    publish a notice in the Commerce Business Daily regarding the receipt 
    of an unsolicited proposal and inviting other qualified firms to submit 
    competing proposals. In the Department's view, the content of such 
    notices, as well as unsolicited proposals themselves, will be subject 
    to the same restrictions on disclosure of proprietary and business 
    sensitive information as other proposals and documents submitted to the 
    Federal government by private firms. The Department does not believe 
    any additional restrictions are necessary or advisable.
        One commenter recommended that the proposed rule be revised to 
    permit the submission of unsolicited proposals from any firm, not just 
    those on the qualified contractors list. The commenter contended that 
    this provision in the proposed rule is an unnecessary limitation which 
    is inconsistent with section 801 of the Act. The Department does not 
    agree with this comment. Section 801(b) of the Act permits receipt of 
    unsolicited proposals from those companies that are ``qualified.'' The 
    word ``qualified'' is used in connection to the statutory provisions 
    governing the qualified contractor's list. As used in context, 
    ``qualified'' appears to apply only to companies on the qualified 
    contractors list. Firms will be able, under the final rule, to submit 
    statements of qualifications at any time and may be added to the list 
    if found to be qualified. Thus the limitation in section 801 of the Act 
    on unsolicited proposals should not act as an impediment to firms 
    wishing to submit such a proposal.
        One commenter suggested the deletion from Sec. 436.33(b) of the 
    reference to the statutory provisions (10 U.S.C. 2304(c)(5) and 41 
    U.S.C. 253(c)(5)) which permit other than full and open competition 
    when ``authorized or required by law.'' The commenter argued that the 
    procedures and methods established pursuant to section 801(b)(2) of the 
    Act constitute ``competitive'' procedures for the selection of energy 
    savings performance contractors. In considering this comment, the 
    Department examined the applicability of the Competition in Contracting 
    Act provisions to the ``procedures and methods'' which the Energy 
    Policy Act requires the Secretary of Energy to establish for the 
    selection, monitoring and termination of contracts with energy savings 
    performance contractors. The Department has concluded that, under 41 
    U.S.C. 253(a)(1), the procedures and methods required by the Act are 
    ``procurement procedures otherwise expressly authorized by statute,'' 
    and, as a consequence, are exempt from the Competition in Contracting 
    Act's requirement for full and open competition. Accordingly, the 
    reference to 10 U.S.C. 2304(c)(5) and 41 U.S.C. 253(c)(5) has been 
    deleted in the final rule.
        The Department has added language to Sec. 436.33(b) to clarify 
    that, with respect to the receipt of unsolicited proposals for energy 
    savings performance contracts, the provisions contained in Sec. 436.33 
    apply instead of the following Federal Acquisition Regulation 
    provisions which relate to the treatment of unsolicited proposals: 48 
    CFR 15.503(a) and (c); 48 CFR 15.506-2(a)(1); 48 CFR 15.507(a), (b)(2), 
    (b)(3), (b)(4) and (b)(5). These provisions have been made inapplicable 
    because they relate to the requirement in the Federal Acquisition 
    Regulation that unsolicited proposals must be unique and innovative. 
    This requirement does not apply to the selection and award of energy 
    savings performance contracts.
        One commenter objected to the prohibition in proposed 
    Sec. 436.33(b)(2) against an award of an energy savings performance 
    contract based on an unsolicited proposal ``if there are other energy 
    conservation measures which reasonably could be implemented in the 
    existing Federally owned building or facility.'' This proposed 
    prohibition, in the commenter's view, is overly broad and vague and 
    could make the award of energy savings performance contracts on the 
    basis of unsolicited proposals difficult if not impossible. The 
    Department agrees that the proposed limitation is unnecessarily 
    restrictive and is not required by the Act. Thus the Department has 
    deleted it.
        The proposed rule did not purport to restrict agency awards based 
    on unsolicited proposals where no response is received to a Commerce 
    Business Daily notice. However, there was concern expressed in the 
    comments about acceptance of such an unsolicited proposal if it focused 
    exclusively on a small number of energy conservation measures and 
    ignored other significant opportunities to increase energy efficiency. 
    Although refusal to accept an unsolicited proposal could be predicated 
    on an excessively narrow focus, DOE is not prepared to require that 
    agencies reject all unsolicited proposals with only one or two energy 
    conservation measures. The facts and circumstances may warrant agency 
    acceptance of such a proposal. Accordingly, DOE has restructured 
    paragraph (b) of Sec. 436.33 into three paragraphs to make the policies 
    on unsolicited proposals easier to read, and paragraph (b)(2) makes 
    explicit that an agency may reject an unsolicited proposal because it 
    is too narrow in scope.
        One of the commenters expressed an interest in clarification of 
    paragraph (c) of proposed Sec. 436.33 which purported to recognize the 
    authority of the Department of Defense under other law, 10 U.S.C. 2865, 
    to negotiate ``energy savings performance contracts'' with contractors 
    selected competitively by utilities. Another commenter argued for 
    deletion of paragraph (c) because it could be a source of potential 
    confusion. DOE has opted to delete the paragraph because construction 
    and application of 10 U.S.C. 2865 is the responsibility of the 
    Department of Defense.
        Almost all commenters agreed with the Department's preliminary 
    determination that the requirement for submission of certified cost or 
    pricing data should be waived. These commenters provided additional 
    support for the conclusion that this requirement is inconsistent with 
    the intent of section 801 of the Act. They pointed out that, under 
    energy savings performance contracts: (1) The government makes no up-
    front payments to the contractor; (2) the risk of performance is 
    entirely with the contractor; and (3) the government only pays the 
    contractor out of verified savings that result from the services 
    performed by the contractor. They emphasized the expense and 
    administrative burden that submission of certified cost or pricing data 
    and compliance with cost accounting standards represent to energy 
    service companies. A number of commenters noted that, for smaller 
    companies, compliance with these requirements might pose a significant 
    impediment to competing for government contracts.
        Two commenters questioned DOE's authority to waive the requirement 
    for submission of certified cost or pricing data for other Federal 
    agencies. They also pointed out that the Truth in Negotiations Act, 
    which requires the certification, was designed to assist the government 
    in negotiating fair and reasonable prices and that energy savings 
    performance contracts must be awarded at fair and reasonable prices.
        The Department agrees that in most cases the waiver authority 
    provided by law appropriately resides with the head of the procuring 
    activity awarding the contract (Sec. 304A(b)(1)(B) of the Federal 
    Property and Administrative Services Act of 1949). In the case of 
    energy savings performance contracts, however, the Energy Policy Act 
    expressly directs the Secretary of Energy to establish 
    [[Page 18332]] methods and procedures for selecting, monitoring and 
    terminating such contracts. Other agencies are required to follow these 
    procedures if they wish to enter into an energy savings performance 
    contract. Consequently, the Department has concluded that it has the 
    necessary authority to find that energy savings performance contracts 
    as a class are ``an exceptional case'' and to direct the heads of 
    procuring activities to waive the requirement for the submission of 
    certified cost or pricing data for such contracts.
        It should be noted, however, that waiver of the requirement for 
    certified cost or pricing data is not intended to preclude contracting 
    officers from requesting information considered necessary to determine 
    whether a contractor's prices are fair and reasonable. Language has 
    been added to Sec. 436.33(c) to provide that the waiver does not 
    preclude agencies from requesting the submission of pricing and related 
    financial information as part of contract proposals.
        One commenter suggested that the rule itself, rather than merely 
    the preamble, contain a provision stating that energy savings 
    performance contracts are firm fixed-price contracts. The Department 
    agrees with this comment and has added appropriate language which 
    appears in Sec. 436.33(c) of the final rule.
    
    E. Section 436.34 Multi-year Contracts
    
        In editing the proposed rules, DOE decided to reorganize some of 
    the provisions by redesignating proposed Sec. 436.35(e) as Sec. 436.34. 
    Paragraph (a)(2) has been reworded to make it clearer that the funding 
    condition prerequisite for a multiyear contract only requires that 
    appropriations for the costs of the first fiscal year (not the total 
    contract term) must be available and adequate. DOE has also added a new 
    paragraph (b) to Sec. 436.34 designed to prevent misunderstanding of 
    paragraph (a)(2). The new paragraph reinforces the plain meaning of 
    paragraph (a)(2) because some agency officials, on the basis of an 
    inappropriate excess of caution, may be inclined to construe paragraph 
    (a)(2) or other provisions of the Act or the regulations to require 
    that agencies have adequate and available appropriated funds to pay for 
    contract costs of the entire multiyear term of the contract. Such a 
    requirement would amount to a crippling interpretation of the Act and 
    these regulations, and would be inconsistent with the literal meaning 
    of relevant statutory and regulatory provisions and with the underlying 
    Congressional intent.
        DOE has redesignated proposed paragraph (b) as paragraph (a)(4) and 
    has added language to clarify that the establishment of a cancellation 
    ceiling is required in the case of a multiyear energy savings 
    performance contract under this part.
    
    F. Section 436.35 Standard Terms and Conditions
    
        Proposed Sec. 436.34 has been redesignated as Sec. 436.35(a). It is 
    not an exclusive list of contractual terms and conditions. The items 
    covered involve subjects not specifically addressed by the Act (e.g., 
    financing agreements and disposition of title) or statutory 
    requirements that need some interpretation (e.g., provision for conduct 
    of the annual energy audits). A phrase has been added to paragraph 
    (a)(1) to make clear that a clause pertinent to the risk of default on 
    financing would be unnecessary if there is no third party financing. 
    Language has also been added to paragraph (a)(1) to require contracting 
    officers to consider any expected change in the performance of 
    equipment which the contractor is proposing to modify or replace.
        Paragraph (c) of proposed Sec. 436.34, which has been redesignated 
    as paragraph (a)(3) of Sec. 436.35, indicated that a contract should 
    contain a clause on ``final'' disposition of title to systems and 
    equipment. DOE deleted the word ``final'' to avoid any ambiguity with 
    regard to whether an agency may negotiate a clause delaying the 
    disposition decision until some future point in time during the 
    contract term.
        Comments were received concerning the need for a lender to acquire 
    a security interest in installed energy conservation measures. DOE 
    added language in a new paragraph (b) to clarify that energy savings 
    performance contracts may permit a financing source to acquire a 
    security interest in the installed systems and equipment. DOE also 
    shifted proposed Sec. 436.34(a) to Sec. 436.35(b) so that the 
    regulatory policy on third party financing is located in a single 
    paragraph and stated permissively.
    
    G. Section 436.36 Conditions of Payment
    
        Section 436.36 was proposed as Sec. 435.35. The section title has 
    been changed from ``Funding'' to ``Conditions of Payment'' in order to 
    make it easier to identify the subject matter covered by the text.
    
    H. Section 436.37 Annual Energy Audits
    
        Section 436.37 was proposed as Sec. 436.36. In order to identify 
    the subject matter more clearly, the section title was changed from 
    ``Procedures and methods to monitor contracts'' to ``Annual energy 
    audits.''
        As discussed above, the term ``energy audit'' used in the proposed 
    rule in Sec. 436.36 will be changed in the final rule to ``annual 
    energy audit'' to clarify that the procedures for monitoring contracts 
    refer only to annual energy audits used to verify post-installation 
    energy savings performance annually as required by section 801 of the 
    Act. The ``annual energy audit'' refers to an energy savings 
    measurement and verification procedure or method agreed to in the 
    contract and occurs after energy conservation measures are installed 
    and operational and annually thereafter throughout the contract term. 
    The Department recognizes that it is common industry practice to 
    monitor the energy savings performance of contractor installed measures 
    on a monthly basis. However, the final rule incorporates an annual 
    energy audit requirement, which at the Federal agency's discretion, may 
    be an annual review and confirmation of cumulative monthly energy 
    savings reports submitted by the contractor over a year.
        A few commenters suggested that the hiring of an independent 
    consultant by the contractor to conduct annual verification of savings 
    guarantees created the appearance of a conflict of interest. Commenters 
    recommended that the Federal agency verify the annual energy savings 
    performance itself, or if it lacked the in-house expertise, pay for an 
    independent consultant to perform the annual energy audits. One 
    commenter suggested that if the agency could not perform annual savings 
    verification and paying for consultant services for the same was not 
    practicable, it could consider utilizing a consultant hired by the 
    contractor and approved by the government. The Department recognizes 
    that the Federal agency has an obligation to verify energy savings 
    performance which is the basis of payment and to confirm that the 
    government has received contracted annual energy savings. The 
    Department therefore agrees with the suggestion that the federal agency 
    is ultimately responsible for verifying annual energy savings. This may 
    involve an in-house review of monthly energy savings reports generated 
    by measurement and verification protocols incorporated in the contract, 
    or may involve use of a consultant as needed. The Department has 
    modified the proposed regulatory provisions applicable to annual energy 
    audits, and Sec. 436.37 reflects these modifications.
    [[Page 18333]]
    
        Extensive public comment was received on the issue of annual energy 
    audits, energy baselines, and energy savings measurement and 
    verification protocols generally. Many comments supported DOE's 
    proposal to avoid the use of a prescriptive method for developing 
    energy baselines or conducting post installation or annual energy 
    audits. Other commenters suggested, however, the adoption of 
    standardized measurement and verification protocols such as those used 
    in utility Demand Side Management programs in New Jersey and California 
    which were developed collaboratively by members of the energy services 
    and utility industries. The Department recognizes the value that 
    standardizing methods or protocols would have on streamlining or 
    improving government evaluations of performance contract proposals, 
    particularly for proposals with various energy conservation measures. 
    However, the Department will not regulate the methods or procedures for 
    establishing energy savings performance, as there are currently no 
    recognized national standards or protocols available for energy savings 
    measurement and verification. The Department, however, plans to use the 
    existing measurement and verification protocols recommended by several 
    commenters in Federal agency energy savings performance contracting 
    training materials to expose federal personnel to various techniques, 
    methods and procedures used in the energy services and utility 
    industries to validate energy savings performance. The Department is 
    actively participating in a collaborative process with the private 
    sector to develop a national consensus protocol for monitoring and 
    verification of energy service performance contracts. That protocol is 
    expected to be available in early 1996. In the near term, the 
    Department plans to provide direct technical assistance to agencies 
    relating to negotiation of contracts which include mechanisms to verify 
    energy savings performance.
        One commenter suggested that two factors should be added to the 
    list of factors contributing to energy baseline adjustments in 
    Sec. 436.36(b). The recommended additional factors were ``Utility 
    rates'' and ``Major change of use.'' The Department agrees with the 
    suggestion of adding ``(7) Utility rates,'' but ``Major change of use'' 
    is considered too ambiguous to be included the final rule.
    
    I. Section 436.38 Terminating Contracts
    
        Section 436.38 was proposed as Sec. 436.37. The section title has 
    been shortened from ``Procedures and methods to terminate contracts.''
        Comments were provided with respect to the appropriate provisions 
    and methods for terminating an energy savings performance contract in 
    the event of a termination for the convenience of the government or a 
    termination for default. One commenter provided a very detailed 
    discussion of this subject, asserting that, even when the Federal 
    agency is receiving the guaranteed energy cost savings, a termination 
    for convenience could result in the contractor incurring a loss on the 
    contract. The commenter argues further that, because the termination 
    for convenience provisions of the Federal Acquisition Regulation focus 
    on costs incurred by the contractor in performing the work, many of the 
    standard provisions are inappropriate for contracts based solely on the 
    energy cost savings realized by the Federal agency.
        Although DOE agrees that contractor compensation under an energy 
    savings performance contract is not tied to costs incurred, the 
    Department is not persuaded that the use of the standard termination 
    for convenience clause would result in a financial loss for the 
    contractor. In the Department's view, if an energy savings performance 
    contract is terminated for the convenience of the government, the 
    contractor could expect to recover its capital investment, any incurred 
    maintenance and repair costs (services), financing costs (including any 
    prepayment penalty) and a reasonable profit. As provided in 
    Sec. 436.35(a)(6) of the rule, ``financial charges'' are appropriate 
    costs which are to be reflected in payment schedules under energy 
    savings performance contracts.
        In the example provided by the commenter in which the realized 
    energy savings fall considerably short of the guaranteed savings 
    amount, the commenter argued for special termination provisions on the 
    theory that there is little incentive for the agency to terminate the 
    contract, since the contractor is required to continue paying the 
    agency the guaranteed amount whether or not that amount of savings is 
    realized. DOE is not persuaded by this argument because it is based on 
    the faulty premise that a contractor would have no right to a baseline 
    adjustment. Section 436.37 provides for such an adjustment in 
    appropriate circumstances and anticipates that the details will be 
    negotiated as part of the contract.
        The Department recognizes that, unlike contract termination under 
    the Federal Acquisition Regulation, termination of an energy savings 
    performance contract in the private sector is usually governed by a 
    schedule of termination amounts for each year of the contract, which is 
    negotiated and agreed to between the parties at the time of entering 
    into the contract. While the Department is not persuaded that this 
    termination method should be ``substituted'' for the standard 
    termination provisions in the Federal Acquisition Regulation, agencies 
    may consider such an approach on a contract-specific basis.
        The provisions of the proposed rule on termination were consistent 
    with the Federal Acquisition Regulation. To clarify this, a new 
    paragraph (a) has been added to reference the applicable part of the 
    Federal Acquisition Regulation, 48 CFR part 49. Proposed paragraph (a) 
    has been retained as paragraph (b) to reinforce the requirement that 
    the termination liability of the Federal agency may not exceed the 
    cancellation ceiling set forth in the contract. Proposed paragraph (b) 
    has been deleted as unnecessary.
    
    III. Procedural Requirements
    
    A. Review Under Executive Order 12866
    
        Today's regulatory action has been determined to be a ``significant 
    regulatory action'' under Executive Order 12866, ``Regulatory Planning 
    and Review,'' 58 FR 51735 (October 4, 1993). Accordingly, it was 
    subject to review by the Office of Information and Regulatory Affairs 
    (OIRA). OIRA completed its review without requesting any substantive 
    changes.
    
    B. Review Under the Regulatory Flexibility Act
    
        The rules were reviewed under the Regulatory Flexibility Act of 
    1980, Pub. L. 96-354, which requires preparation of a regulatory 
    analysis for any rule which is likely to have significant economic 
    impact on a substantial number of small entities. DOE certifies that 
    these rules will not have a significant economic impact on a 
    substantial number of small entities and, therefore, no regulatory 
    flexibility analysis has been prepared.
    
    C. Review Under the Paperwork Reduction Act
    
        New information collection requirements subject to the Paperwork 
    Reduction Act, 44 U.S.C. 3501, et seq., or recordkeeping requirements 
    are proposed by this rulemaking. Accordingly, this notice has been 
    submitted to the Office of Management and Budget for review and 
    approval of the paperwork requirements. Earlier in this notice, DOE 
    described two [[Page 18334]] questionnaires for use under the rule. The 
    first involved a contractor's qualifications for inclusion on the 
    qualified contractors list. The second would be directed at clients of 
    a contractor applicant for inclusion on the list in order to obtain 
    project specific information with regard to the client's experience 
    with the contractor.
        The information DOE proposes to collect on the above-described 
    questionnaires is necessary to determine whether a contractor is 
    adequately experienced and reliable to be placed on the qualified 
    contractors list. DOE believes that in the typical case the frequency 
    of response will be once every 12 months. After the initial application 
    is filed, a successful contractor would only have to update information 
    which might have changed during the interim. The public reporting 
    burden is estimated to average less than two hours per response, 
    including the time for reviewing instructions, searching existing data 
    sources, gathering and maintaining the data needed, and completing the 
    questionnaire.
        On August 8, 1994, OMB approved the collection of information 
    through August 1997 and assigned approval number 1910-0067.
    
    D. Review Under the National Environmental Policy Act
    
        Pursuant to the Council on Environmental Quality Regulations (40 
    CFR 1500-1508), the Department of Energy has established guidelines for 
    its compliance with the provisions of the National Environmental Policy 
    Act (NEPA) of 1969 (42 U.S.C. 4321, et seq.). Pursuant to Appendix A of 
    Subpart D of 10 CFR Part 1021, National Environmental Policy Act 
    Implementing Procedures (57 FR 15122, 15152, April 24, 1992) 
    (Categorical Exclusion A6), the Department of Energy has determined 
    that these rules are categorically excluded from the need to prepare an 
    environmental impact statement or environmental assessment.
    
    E. Review Under Executive Order 12612
    
        Executive Order 12612, 52 FR 41685 (October 30, 1987), requires 
    that regulations, rules, legislation, and any other policy actions be 
    reviewed for any substantial direct effects on States, on the 
    relationship between the National Government and the States, or in the 
    distribution of power and responsibilities among various levels of 
    Government. If there are sufficient substantial direct effects, then 
    the Executive Order requires preparation of a federalism assessment to 
    be used in all decisions involved in promulgating and implementing a 
    policy action. These rules will revise certain policy and procedural 
    requirements applicable only to Federal contracts. Therefore, the 
    Department of Energy has determined that these rules will not have a 
    substantial direct effect on the institutional interests or traditional 
    functions of States.
    
    F. Review Under Executive Order 12778
    
        Section 2 of Executive Order 12778 instructs each agency to adhere 
    to certain requirements in promulgating new regulations and reviewing 
    existing regulations. These requirements, set forth in section 2(a) and 
    (b)(2), include eliminating drafting errors and needless ambiguity, 
    drafting the regulations to minimize litigation, providing clear and 
    certain legal standards for affected legal conduct, and promoting 
    simplification and burden reduction. Agencies are also instructed to 
    make every reasonable effort to ensure that the regulation: specifies 
    clearly any preemptive effect, effect on existing Federal law or 
    regulation, and retroactive effect; describes any administrative 
    proceeding to be available prior to judicial review and any provisions 
    for the exhaustion of such administrative proceedings; and defines key 
    terms. DOE certifies that these rules meet the requirements of section 
    2(a) and (b) of Executive Order 12778.
    
    List of Subjects in 10 CFR Part 436
    
        Energy conservation; Federal buildings and facilities; Reporting 
    and recordkeeping requirements; Solar energy.
    
        Issued in Washington, D.C. on this 31st day of March 1995.
    Peter S. Fox-Penner,
    Prinicpal Deputy Assistant Secretary, Energy Efficiency and Renewable 
    Energy.
    
        For the reasons set forth in the preamble, Part 436 of Title 10, 
    Subchapter D of the Code of Federal Regulations is amended as set forth 
    below:
    
    PART 436--FEDERAL ENERGY MANAGEMENT AND PLANNING PROGRAMS
    
        1. The authority citation for Part 436 is revised to read as 
    follows:
    
        42 U.S.C. Sec. 6361; 42 U.S.C. 8251-8263; 42 U.S.C. 8287-8287c.
    
        2. Section 436.2 is amended by removing the word ``and'' after the 
    semicolon at the end of paragraph (b), redesignating paragraph (c) as 
    paragraph (d), and adding a new paragraph (c) as follows:
    
    
    Sec. 436.2  General objectives.
    
    * * * * *
        (c) To promote the use of energy savings performance contracts by 
    Federal agencies for implementation of privately financed investment in 
    building and facility energy conservation measures for existing 
    Federally owned buildings; and
    * * * * *
        3. New Subpart B, consisting of sections 436.30 through 436.38, is 
    added to read as follows:
    Subpart B--Methods and Procedures for Energy Savings Performance 
    Contracting
    Sec.
    436.30  Purpose and scope.
    436.31  Definitions.
    436.32  Qualified contractors lists.
    436.33  Procedures and methods for contractor selection.
    436.34  Multiyear contracts.
    436.35  Standard terms and conditions.
    436.36  Conditions of payment.
    436.37  Annual energy audits.
    436.38  Terminating contracts.
    
    Subpart B--Methods and Procedures for Energy Savings Performance 
    Contracting
    
    
    Sec. 436.30  Purpose and scope.
    
        (a) General. This subpart provides procedures and methods which 
    apply to Federal agencies with regard to the award and administration 
    of energy savings performance contracts awarded within five years of 
    May 10, 1995. This subpart applies in addition to the Federal 
    Acquisition Regulation at Title 48 of the CFR and related Federal 
    agency regulations. The provisions of this subpart are controlling with 
    regard to energy savings performance contracts notwithstanding any 
    conflicting provisions of the Federal Acquisition Regulation and 
    related Federal agency regulations.
        (b) Utility incentive programs. Nothing in this subpart shall 
    preclude a Federal agency from--
        (1) Participating in programs to increase energy efficiency, 
    conserve water, or manage electricity demand conducted by gas, water, 
    or electric utilities and generally available to customers of such 
    utilities;
        (2) Accepting financial incentives, goods, or services generally 
    available from any such utility to increase energy efficiency or to 
    conserve water or manage electricity demand; or
        (3) Entering into negotiations with electric, water, and gas 
    utilities to design cost-effective demand management and conservation 
    incentive programs to address the unique needs of each Federal agency.
        (c) Promoting competition. To the extent allowed by law, Federal 
    agencies [[Page 18335]] should encourage utilities to select 
    contractors for the conduct of utility incentive programs in a 
    competitive manner to the maximum extent practicable.
        (d) Interpretations. The permissive provisions of this subpart 
    shall be liberally construed to effectuate the objectives of Title VIII 
    of the National Energy Conservation Policy Act, 42 U.S.C. 8287-8287c.
    
    
    Sec. 436.31  Definitions.
    
        As used in this subpart--
        Act means Title VIII of the National Energy Conservation Policy 
    Act.
        Annual energy audit means a procedure including, but not limited 
    to, verification of the achievement of energy cost savings and energy 
    unit savings guaranteed resulting from implementation of energy 
    conservation measures and determination of whether an adjustment to the 
    energy baseline is justified by conditions beyond the contractor's 
    control.
        Building means any closed structure primarily intended for human 
    occupancy in which energy is consumed, produced, or distributed.
        Detailed energy survey means a procedure which may include, but is 
    not limited to, a detailed analysis of energy cost savings and energy 
    unit savings potential, building conditions, energy consuming 
    equipment, and hours of use or occupancy for the purpose of confirming 
    or revising technical and price proposals based on the preliminary 
    energy survey.
        DOE means Department of Energy.
        Energy baseline means the amount of energy that would be consumed 
    annually without implementation of energy conservation measures based 
    on historical metered data, engineering calculations, submetering of 
    buildings or energy consuming systems, building load simulation models, 
    statistical regression analysis, or some combination of these methods.
        Energy conservation measures means measures that are applied to an 
    existing Federally owned building or facility that improves energy 
    efficiency, are life-cycle cost-effective under subpart A of this part, 
    and involve energy conservation, cogeneration facilities, renewable 
    energy sources, improvements in operation and maintenance efficiencies, 
    or retrofit activities.
        Energy cost savings means a reduction in the cost of energy and 
    related operation and maintenance expenses, from a base cost 
    established through a methodology set forth in an energy savings 
    performance contract, utilized in an existing federally owned building 
    or buildings or other federally owned facilities as a result of--
        (1) The lease or purchase of operating equipment, improvements, 
    altered operation and maintenance, or technical services; or
        (2) The increased efficient use of existing energy sources by 
    cogeneration or heat recovery, excluding any cogeneration process for 
    other than a federally owned building or buildings or other federally 
    owned facilities.
        Energy savings performance contract means a contract which provides 
    for the performance of services for the design, acquisition, 
    installation, testing, operation, and, where appropriate, maintenance 
    and repair of an identified energy conservation measure or series of 
    measures at one or more locations.
        Energy unit savings means the determination, in electrical or 
    thermal units (e.g., kilowatt hour (kwh), kilowatt (kw), or British 
    thermal units (Btu)), of the reduction in energy use or demand by 
    comparing consumption or demand, after completion of contractor-
    installed energy conservation measures, to an energy baseline 
    established in the contract.
        Facility means any structure not primarily intended for human 
    occupancy, or any contiguous group of structures and related systems, 
    either of which produces, distributes, or consumes energy.
        Federal agency has the meaning given such term in section 551(1) of 
    Title 5, United States Code.
        Preliminary energy survey means a procedure which may include, but 
    is not limited to, an evaluation of energy cost savings and energy unit 
    savings potential, building conditions, energy consuming equipment, and 
    hours of use or occupancy, for the purpose of developing technical and 
    price proposals prior to selection.
        Secretary means the Secretary of Energy.
    
    
    Sec. 436.32  Qualified contractors lists.
    
        (a) DOE shall prepare a list, to be updated annually, or more often 
    as necessary, of firms qualified to provide energy cost savings 
    performance services and grouped by technology. The list shall be 
    prepared from statements of qualifications by or about firms engaged in 
    providing energy savings performance contract services on 
    questionnaires obtained from DOE. Such statements shall, at a minimum, 
    include prior experience and capabilities of firms to perform the 
    proposed energy cost savings services by technology and financial and 
    performance information. DOE shall issue a notice annually, for 
    publication in the Commerce Business Daily, inviting submission of new 
    statements of qualifications and requiring listed firms to update their 
    statements of qualifications for changes in the information previously 
    provided.
        (b) On the basis of statements of qualifications received under 
    paragraph (a) of this section and any other relevant information, DOE 
    shall select a firm for inclusion on the qualified list if--
        (1) It has provided energy savings performance contract services or 
    services that save energy or reduce utility costs for not less than two 
    clients, and the firm possesses the appropriate project experience to 
    successfully implement the technologies which it proposes to provide;
        (2) Previous project clients provide ratings which are ``fair'' or 
    better;
        (3) The firm or any principal of the firm has neither been 
    insolvent nor declared bankruptcy within the last five years;
        (4) The firm or any principal of the firm is not on the list of 
    parties excluded from procurement programs under 48 CFR part 9, subpart 
    9.4; and
        (5) There is no other adverse information which warrants the 
    conclusion that the firm is not qualified to perform energy savings 
    performance contracts.
        (c) DOE may remove a firm from DOE's list of qualified contractors 
    after notice and an opportunity for comment if--
        (1) There is a failure to update its statement of qualifications;
        (2) There is credible information warranting disqualification; or
        (3) There is other good cause.
        (d) A Federal agency shall use DOE's list unless it elects to 
    develop its own list of qualified firms consistent with the procedures 
    in paragraphs (a) and (b) of this section.
        (e) A firm not designated by DOE or a Federal agency pursuant to 
    the procedures in paragraphs (a) and (b) of this section as qualified 
    to provide energy cost savings performance services shall receive a 
    written decision and may request a debriefing.
        (f) Any firm receiving an adverse final decision under this section 
    shall apply to the Board of Contract Appeals of the General Services 
    Administration in order to exhaust administrative remedies.
    
    
    Sec. 436.33  Procedures and methods for contractor selection.
    
        (a) Competitive selection. Competitive selections based on 
    solicitation of firms are subject to the following procedures--
        (1) With respect to a particular proposed energy cost savings 
    [[Page 18336]] performance project, Federal agencies shall publish a 
    Commerce Business Daily notice which synopsizes the proposed contract 
    action.
        (2) Each competitive solicitation--
        (i) Shall request technical and price proposals and the text of any 
    third-party financing agreement from interested firms;
        (ii) Shall consider DOE model solicitations and should use them to 
    the maximum extent practicable;
        (iii) May provide for a two-step selection process which allows 
    Federal agencies to make an initial selection based, in part, on 
    proposals containing estimated energy cost savings and energy unit 
    savings, with contract award conditioned on confirmation through a 
    detailed energy survey that the guaranteed energy cost savings are 
    within a certain percentage (specified in the solicitation) of the 
    estimated amount; and
        (iv) May state that if the Federal agency requires a detailed 
    energy survey which identifies life cycle cost effective energy 
    conservation measures not in the initial proposal, the contract may 
    include such measures.
        (3) Based on its evaluation of the technical and price proposals 
    submitted, any applicable financing agreement (including lease-
    acquisitions, if any), statements of qualifications submitted under 
    Sec. 436.32 of this subpart, and any other information determines to be 
    relevant, the Federal agency may select a firm on a qualified list to 
    conduct the project.
        (4) If a proposed energy cost savings project involves a large 
    facility with too many contiguously related buildings and other 
    structures at one site for proposing firms to assume the costs of a 
    preliminary energy survey of all such structures, the Federal agency--
        (i) May request technical and price proposals for a representative 
    sample of buildings and other structures and may select a firm to 
    conduct the proposed project; and
        (ii) After selection of a firm, but prior to award of an energy 
    savings performance contract, may request the selected firm to submit 
    technical and price proposals for all or some of the remaining 
    buildings and other structures at the site and may include in the award 
    for all or some of the remaining buildings and other structures.
        (5) After selection under paragraph (a)(3) or (a)(4) of this 
    section, but prior to award, a Federal agency may require the selectee 
    to conduct a detailed energy survey to confirm that guaranteed energy 
    cost savings are within a certain percentage (specified in the 
    solicitation) of estimated energy cost savings in the selectee's 
    proposal. If the detailed energy survey does not confirm that 
    guaranteed energy savings are within the fixed percentage of estimated 
    savings, the Federal agency may select another firm from those within 
    the competitive range.
        (b) Unsolicited proposals. Federal agencies may--
        (1) Consider unsolicited energy savings performance contract 
    proposals from firms on a qualified contractor list under this subpart 
    which include technical and price proposals and the text of any 
    financing agreement (including a lease-acquisition) without regard to 
    the requirements of 48 CFR 15.503 (a) and (c); 48 CFR 15.506-2(a)(1); 
    and 48 CFR 15.507(a), (b)(2), (b)(3), (b)(4) and (b)(5).
        (2) Reject an unsolicited proposal that is too narrow because it 
    does not address the potential for significant energy conservation 
    measures from other than those measures in the proposal.
        (3) After requiring a detailed energy survey, if appropriate, and 
    determining that technical and price proposals are adequate, award a 
    contract to a firm on a qualified contractor list under this subpart on 
    the basis of an unsolicited proposal, provided that the Federal agency 
    complies with the following procedures--
        (i) An award may not be made to the firm submitting the unsolicited 
    proposal unless the Federal agency first publishes a notice in the 
    Commerce Business Daily acknowledging receipt of the proposal and 
    inviting other firms on the qualified list to submit competing 
    proposals.
        (ii) Except for unsolicited proposals submitted in response to a 
    published general statement of agency needs, no award based on such an 
    unsolicited proposal may be made in instances in which the Federal 
    agency is planning the acquisition of an energy conservation measure 
    through an energy savings performance contract.
        (c) Certified cost or pricing data.
        (1) Energy savings performance contracts under this part are firm 
    fixed-price contracts.
        (2) Pursuant to the authority provided under section 304A(b)(1)(B) 
    of the Federal Property and Administrative Services Act of 1049, the 
    heads of procuring activities shall waive the requirement for 
    submission of certified cost or pricing data. However, this does not 
    exempt offerors from submitting information (including pricing 
    information) required by the Federal agency to ensure the impartial and 
    comprehensive evaluation of proposals.
    
    
    Sec. 436.34  Multiyear contracts.
    
        (a) Subject to paragraph (b) of this section, Federal agencies may 
    enter into a multiyear energy savings performance contract for a period 
    not to exceed 25 years, as authorized by 42 U.S.C. 8287, without 
    funding of cancellation charges, if:
        (1) The multiyear energy savings performance contract was awarded 
    in a competitive manner using the procedures and methods established by 
    this subpart;
        (2) Funds are available and adequate for payment of the scheduled 
    energy cost for the first fiscal year of the multiyear energy savings 
    performance contract;
        (3) Thirty days before the award of any multiyear energy savings 
    performance contract that contains a clause setting forth a 
    cancellation ceiling in excess of $750,000, the head of the awarding 
    Federal agency gives written notification of the proposed contract and 
    the proposed cancellation ceiling for the contract to the appropriate 
    authorizing and appropriating committees of the Congress; and
        (4) Except as otherwise provided in this section, the multiyear 
    energy savings performance contract is subject to 48 CFR part 17, 
    subpart 17.1, including the requirement that the contracting officer 
    establish a cancellation ceiling.
        (b) Neither this subpart nor any provision of the Act requires, 
    prior to contract award or as a condition of a contract award, that a 
    Federal agency have appropriated funds available and adequate to pay 
    for the total costs of an energy savings performance contract for the 
    term of such contract.
    
    
    Sec. 436.35  Standard terms and conditions.
    
        (a) Mandatory requirements. In addition to contractual provisions 
    otherwise required by the Act or this subpart, any energy savings 
    performance contract shall contain clauses--
        (1) Authorizing modification, replacement, or changes of equipment, 
    at no cost to the Federal agency, with the prior approval of the 
    contracting officer who shall consider the expected level of 
    performance after such modification, replacement or change;
        (2) Providing for the disposition of title to systems and 
    equipment;
        (3) Requiring prior approval by the contracting officer of any 
    financing agreements (including lease-acquisitions) and amendments to 
    such an agreement entered into after contract award for the purpose of 
    financing the [[Page 18337]] acquisition of energy conservation 
    measures;
        (4) Providing for an annual energy audit and identifying who shall 
    conduct such an audit, consistent with Sec. 436.37 of this subpart; and
        (5) Providing for a guarantee of energy cost savings to the Federal 
    agency, and establishing payment schedules reflecting such guarantee.
        (b) Third party financing. If there is third party financing, then 
    an energy savings performance contract may contain a clause:
        (1) Permitting the financing source to perfect a security interest 
    in the installed energy conservation measures, subject to and 
    subordinate to the rights of the Federal agency; and
        (2) Protecting the interests of a Federal agency and a financing 
    source, by authorizing a contracting officer in appropriate 
    circumstances to require a contractor who defaults on an energy savings 
    performance contract or who does not cure the failure to make timely 
    payments, to assign to the financing source, if willing and able, the 
    contractor's rights and responsibilities under an energy savings 
    performance contract;
    
    
    Sec. 436.36  Conditions of payment.
    
        (a) Any amount paid by a Federal agency pursuant to any energy 
    savings performance contract entered into under this subpart may be 
    paid only from funds appropriated or otherwise made available to the 
    agency for the payment of energy expenses and related operation and 
    maintenance expenses which would have been incurred without an energy 
    savings performance contract. The amount the agency would have paid is 
    equal to:
        (1) The energy baseline under the energy savings performance 
    contract (adjusted if appropriate under Sec. 436.37), multiplied by the 
    unit energy cost; and
        (2) Any related operations and maintenance cost prior to 
    implementation of energy conservation measures, adjusted for increases 
    in labor and material price indices.
        (b) Federal agencies may incur obligations pursuant to energy 
    savings performance contracts to finance energy conservation measures 
    provided guaranteed energy cost savings exceed the contractor's debt 
    service requirements.
    
    
    Sec. 436.37  Annual energy audits.
    
        (a) After contractor implementation of energy conservation measures 
    and annually thereafter during the contract term, an annual energy 
    audit shall be conducted by the Federal agency or the contractor as 
    determined by the contract. The annual energy audit shall verify the 
    achievement of annual energy cost savings performance guarantees 
    provided by the contractor.
        (b) The energy baseline is subject to adjustment due to changes 
    beyond the contractor's control, such as--
        (1) Physical changes to building;
        (2) Hours of use or occupancy;
        (3) Area of conditioned space;
        (4) Addition or removal of energy consuming equipment or systems;
        (5) Energy consuming equipment operating conditions;
        (6) Weather (i.e., cooling and heating degree days); and
        (7) Utility rates.
        (c) In the solicitation or in the contract, Federal agencies shall 
    specify requirements for annual energy audits, the energy baseline, and 
    baseline adjustment procedures.
    
    
    Sec. 436.38  Terminating contracts.
    
        (a) Except as otherwise provided by this subpart, termination of 
    energy savings performance contracts shall be subject to the 
    termination procedures of the Federal Acquisition Regulation in 48 CFR 
    part 49.
        (b) In the event an energy savings performance contract is 
    terminated for the convenience of a Federal agency, the termination 
    liability of the Federal agency shall not exceed the cancellation 
    ceiling set forth in the contract, for the year in which the contract 
    is terminated.
    
    [FR Doc. 95-8750 Filed 4-7-95; 8:45 am]
    BILLING CODE 6450-01-P
    
    

Document Information

Effective Date:
5/10/1995
Published:
04/10/1995
Department:
Energy Efficiency and Renewable Energy Office
Entry Type:
Rule
Action:
Final Rule.
Document Number:
95-8750
Dates:
These rules become effective May 10, 1995.
Pages:
18326-18337 (12 pages)
Docket Numbers:
Docket No. EE-RM-94-201
RINs:
1904-AA62
PDF File:
95-8750.pdf
CFR: (15)
10 CFR 436.35(a)(6)
10 CFR 436.33(a)(1)
10 CFR 436.33(b)(2)
10 CFR 436.36(b)
10 CFR 436.30(b)
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