January 12, 2011 p. 1 

American Recovery and Reinvestment Act (ARRA) 

Supplemental Buy American Guidance 

for NIST Construction Grants

Table of Contents 

I. Background......................................................................................................................... 3

II. Applicability ......................................................................................................................... 4

III. Policy ................................................................................................................................. 4

IV. Definitions ........................................................................................................................... 4

A. “Steel”: ................................................................................................................................ 4

B. “Iron or Steel Produced in The United States”: ................................................................... 4

C. “Manufactured Good”: Is defined as a good brought to the construction site for 

incorporation into the building or work that has been: ........................................................ 5

D. “Overall Project Cost”: ........................................................................................................ 5

E. “Public Building and Public Work”:...................................................................................... 5

V. Manufactured Goods & “Substantial Transformation” ........................................................ 6

A. Manufactured Goods and Substantial Transformation ....................................................... 6

B. Applying Substantial Transformation Analysis – Roles and Responsibilities ..................... 7

C. Substantial Transformation Examples ................................................................................ 9

VI. Overview: Exceptions and Exemptions to the ARRA Buy American Requirements ........ 10

A. Exceptions (Waivers): ....................................................................................................... 10

1) Non-Availability: ............................................................................................................ 10

2) Unreasonable Cost: ...................................................................................................... 10

3) Public Interest: .............................................................................................................. 10

B. Exemption for Certain Acquisitions Covered Under International Agreements: ............... 10

VII. Requesting a Waiver from the ARRA Buy American Requirements ................................ 12

A. Non-availability waiver: ..................................................................................................... 12
                                                                                                     

January 12, 2011 p. 2 

B. Unreasonable cost waiver: ............................................................................................... 13

1) Justification Memo. ....................................................................................................... 13

2) Cost Comparison (See Appendix E for submission format). ........................................ 13

3) Bids from a minimum of three U.S. and/or three foreign suppliers to support the 

comparison (See Appendix E for submission format). ................................................. 13

C. Public interest waiver: ....................................................................................................... 13

a) A justification memo that explains the reason(s) for the request; and .......................... 13

b) Any additional, independent supporting documents that may strengthen the claim that 

the use of domestic iron, steel, and/or manufactured goods is inconsistent with the 

public interest. .............................................................................................................. 14

D. Waiver Authority and Waiver Determinations ................................................................... 14

VIII. Compliance ....................................................................................................................... 15

IX. Noncompliance ................................................................................................................. 16

Appendix A: Cross-Reference to Applicable ARRA Buy American Regulatory Provision .......... 18

Appendix B: Exemption Coverage Table for Construction Grants. ............................................. 19

Appendix C: NIST-1104 .............................................................................................................. 22

Appendix D: Pre-Approved Non-Available Items ........................................................................ 23

Appendix E: Foreign and Domestic Items Cost Comparison ...................................................... 25

Appendix F: Determining Substantial Transformation ................................................................ 26

Appendix G: Required Buy American Language for Recipients’ Contracts and Purchase 

Documents........................................................................................................................ 28
                                                                                                     

January 12, 2011 p. 3 

I. Background 

1. The American Recovery and Reinvestment Act of 2009, Pub. L. No. 111–5, 123 

Stat. 115 (2009) (Recovery Act or ARRA), was enacted to generate domestic 

economic activity. In keeping with this goal, Congress included strict domestic 

source requirements for iron, steel, and manufactured goods used in public 

works projects receiving Recovery Act funds. 

This Supplemental Guidance is intended to provide a general understanding of 

the Buy American requirements as they apply to NIST Recovery Act construction 

grants. This document references the ARRA Buy American requirements, which 

are incorporated into the terms and conditions of NIST Recovery Act 

construction grants. This Supplemental Guidance is not a substitute for the 

ARRA statutory and regulatory requirements or for the terms and conditions of a 

specific NIST grant. Should this document and such ARRA authorities or award 

terms differ, the ARRA statutory and regulatory requirements, and the terms and 

conditions of the NIST construction award, shall govern. 

2. Governmental entities receiving NIST Recovery Act construction grants for 

projects that involve construction, alteration, maintenance or repair of a public 

building or public work must comply with the “Buy American” requirements of the 

Recovery Act. However, if the facility being constructed, altered or repaired 

under the NIST construction grant is or will be privately-owned, it is not 

considered to be a public building or a public work and the Buy American 

requirements do not apply.

1

 

3. For recipients of NIST Recovery Act construction grants, the Buy American 

requirements, if applicable, apply to the entire NIST project. Therefore, eligible 

project costs allocable to both the federal and non-federal cost shares under a 

NIST construction grant, including recipient and third-party in-kind contributions, 

must comply with the ARRA Buy American requirements.

4. Recipients of NIST Recovery Act construction grants should keep in mind that 

the terms and conditions of the award flow down and are applicable to subrecipients and to contractors/subcontractors. 

                                                            

1

 See Frequently Asked Questions – American Recovery and Reinvestment Act of 2009, “General 

Recovery Act FAQ #7,” accessible at: http://www.whitehouse.gov/omb/recovery_faqs/#g7. 
                                                                                                     

January 12, 2011 p. 4 

II. Applicability 

The Buy American Requirements discussed herein apply only to NIST Recovery Act 

construction grants. For NIST Recovery Act construction grants, the ARRA Buy 

American implementing regulations are set forth in 2 C.F.R. part 176, Subpart B. See

Appendix A for a table providing cross-references between the ARRA Buy American 

requirements and the applicable provisions of the implementing regulations. 

III. Policy 

Pursuant to Section 1605 of the Recovery Act, Recovery Act funds may not be used to 

fund the construction, alteration, maintenance, or repair of a public building or public 

work unless all of the iron, steel, and manufactured goods used in the project are 

produced in the United States.

2

 There are three exceptions to the Buy American 

requirements of the Recovery Act, which require written determinations (waivers) from 

the Secretary of Commerce or from a delegated Department of Commerce Official. In 

addition, certain acquisitions covered under international agreements are exempt from 

the Buy American requirements. The three exceptions and one exemption to the Buy 

American requirements are summarized below in Section V. of this Supplemental 

Guidance. 

IV. Definitions 3

A. “Steel”: 

means an alloy that includes at least 50 percent iron, between .02 and 2 percent 

carbon, and may include other elements. 

B. “Iron or Steel Produced in The United States”: 

requires that all manufacturing processes must take place in the United States, 

except metallurgical processes involving refinement of steel additives. These 

requirements do not apply to iron or steel used as minor components or 

subcomponents of manufactured goods used in the project. 

                                                            

2 See 2 C.F.R. §§ 176.60 and 176.70 (2010).

3 See 2 C.F.R. §§ 176.70, 176.140, 176.160 (2010).
                                                                                                     

January 12, 2011 p. 5 

 

C. “Manufactured Good”: Is defined as a good brought to the 

construction site for incorporation into the building or work that has 

been: 

1) Processed into a specific form and shape; or 

2) Combined with other raw material to create a material that has 

different properties than the properties of the individual raw 

materials. 

There is no requirement with regard to the origin of components or 

subcomponents in manufactured goods used in the project, as long as 

the manufacturing occurs in the United States. Please note that this 

definition of domestic origin is different from the origin requirement for 

iron and steel. 

D. “Overall Project Cost”: 

The total amount of the project, including Architect’s and/or Engineer’s fees and 

land acquisition costs. 

E. “Public Building and Public Work”: 

means a public building of, and a public work of, a governmental entity (the 

United States; the District of Columbia; commonwealths, territories, and minor 

outlying islands of the United States, State and local governments; and multiState, regional, or interstate entities that have governmental functions). These 

buildings and works may include, without limitation, bridges, dams, plants, 

highways, parkways, streets, subways, tunnels, sewers, mains, power lines, 

pumping stations, heavy generators, railways, airports, terminals, docks, piers, 

wharves, ways, lighthouses, buoys, jetties, breakwaters, levees, and canals, and 

the construction, alteration, maintenance or repair of such buildings and works. 
                                                                                                     

January 12, 2011 p. 6 

V. Manufactured Goods & “Substantial Transformation” 4

ARRA Section 1605 sets forth the clear expectation that all of the iron, steel, and 

manufactured goods used in project receiving Recovery Act funds will be produced in 

the United States. 

ARRA places on grant recipients the obligation to establish whether a manufactured 

good was produced in the U.S. For this purpose, manufactured goods that consist, in 

whole or in part, of materials from another country may be considered as U.S.-

manufactured where the good has been substantially transformed in the United States 

to a new and different manufactured good distinct from the materials from it which was 

transformed. 

A. Manufactured Goods and Substantial Transformation 

For purposes of the ARRA Buy American requirements, a “manufactured good” is 

defined as a “...good brought to the construction site for incorporation into the building 

or work that has been (i) processed into a specific form and shape; or (ii) combined with 

other raw materials to create a material that has different properties than the properties 

of the individual raw materials.”5

 Additional guidance pertaining to the definition of 

“manufactured good” is found in 2 C.F.R. § 176.160,6 which defines a domestic 

manufactured good as "a manufactured good that consists in whole or in part of 

materials from another country, has been substantially transformed in the United States 

into a new and different manufactured good distinct from the materials from which it was 

transformed. There is no requirement with regard to the origin of components or 

subcomponents in manufactured goods or products, as long as the manufacture of the 

goods occurs in the United States." 

This definition incorporates the "substantial transformation test," which has been long 

applied in judicial and administrative customs cases on labeling, national origin, and 

                                                            

4 The below “substantial transformation” discussion and the tool provided in Appendix G are modeled from ARRA 

Buy American guidance issued by the U.S. Environmental Protection Agency (EPA), which is accessible at: 

http://water.epa.gov/aboutow/eparecovery/index.cfm. 

5 2 C.F.R. § 176.140(a) (1) (2010).

6 Although 2 C.F.R. § 176.160 addresses acquisitions covered under international agreements and is not expected to 

apply to recipients of NIST construction grants, it nonetheless provides useful guidance on the definition of a 

domestic manufactured good. 
                                                                                                     

January 12, 2011 p. 7 

other Federal statutory requirements as an appropriate and effective test to identify 

where a good was "manufactured." A variety of statutory and judicial criteria have been 

formulated to determine, always on a case-by-case basis, whether or not "substantial 

transformation" has occurred. 

In applying the "substantial transformation" test to the ARRA Buy American 

requirements, the objective is to determine whether or not a product is U.S. - produced 

when the product is created by processes in more than one country and/or incorporates 

materials, parts, or components from more than one country. More particularly, the test 

is intended to identify whether manufacturing or processing operations that took place in 

the U.S. amounted to "substantial transformation," which would enable the product to be 

properly considered as a U.S.-manufactured good. 

In all cases, it is a question of degree; the transformation or change to foreign materials 

brought about by manufacturing or other processing in the United States must be 

"substantial." 

B. Applying Substantial Transformation Analysis – Roles and 

Responsibilities 

Grant Recipient’s Role: 

Grant recipients bear the direct responsibility to comply with the Buy American 

requirements of §1605. The statutory expectation is that recipients will comply by using 

U.S.-produced iron, steel, and manufactured goods. 

NIST grant recipients, assisted by the engineering community and others, should use 

their best professional judgment in making determinations as to substantial 

transformation, which must be supported by appropriately detailed information from 

manufacturers describing the specific operations in their manufacturing process that 

warrant a determination that substantial transformation has occurred in the U.S. 

Upon applying a substantial transformation analysis, NIST grant recipients may 

determine that a manufactured good to be used in their project was produced in the 

United States or substantial transformation of the good occurred in the United States. 

Recipients and contractors relying on the “substantial transformation test” should 

properly document their files with the following information: 

1) Appropriately detailed answers from the manufacturer to the substantial 

transformation questions, as set forth in Appendix F; 
                                                                                                     

January 12, 2011 p. 8 

• These questions represent a distillation of the functional analyses common to 

different versions of the "substantial transformation test” and are intended to 

serve as a guide for recipients of NIST construction grants to help determine 

whether a manufactured good to be incorporated into a project being built 

with ARRA funds was manufactured in the United States. 

2) Any additional material the recipient may have from the manufacturer that 

provides detail supporting the answers; 

3) Upon procurement of the good, documentation from the manufacturer verifying 

that the product originated in a U.S. plant where substantial transformation 

occurred as demonstrated by the answers above; and 

4) Any other information and documentation that provides a level of specificity and 

detail supporting the grant recipient’s or contractor’s position that substantial 

transformation of a particular manufactured good occurred in the United States. 

This information and documentation will be the basis for demonstrating compliance with 

the Buy American requirements of ARRA Section 1605(a). 

After reviewing information to answer the substantial transformation questions as to an 

intended manufacturer's product, a grant recipient or contractor may have continuing, 

reasonable doubt as to the adequacy of the answers to establish the U.S. origins of that 

product. For recipients considering use of goods claimed to be U.S.-produced, if a 

competing manufacturer, bidder or supplier protests such claim, you can ask such 

competitors to frame any concerns in the form of specific responses to these questions, 

both as to their product and that of another competing company. 

By requesting and analyzing substantial transformation information, a recipient or 

contractor will also be better equipped to understand other potential options. This 

analysis may provide a basis to see whether a competing manufacturer’s U.S.-made 

product does meet, or can be timely adapted to meet the recipient’s justified 

specifications. If the U.S.-made product does not meet those specifications, and other 

U.S.-made goods that do meet them are not available, then the recipient may have 

sufficient information to apply for a waiver from NIST. 

NIST Role: 

NIST will not make determinations as to substantial transformation or of the U.S. or 

foreign origin of manufactured goods. NIST's role under Section 1605 of the Recovery 
                                                                                                     

January 12, 2011 p. 9 

Act is to review waiver requests when a grant recipient believes it cannot comply by 

buying U.S.-made goods, and to undertake compliance oversight. 

NIST does recognize that these issues may be as novel, complex and demanding for 

grant recipients as they are for NIST. Thus, at the discretion of NIST and upon the 

direct request of a NIST grant recipient, NIST may undertake an informal "anticipatory" 

oversight review. 

In this respect, where an grant recipient has made at least a tentative determination that 

substantial transformation of a specific good has occurred in the United States, NIST 

may review detailed information about substantial transformation that the grant recipient 

believes is or may be sufficient to support its determination, and may in such cases, as 

a matter of "anticipatory" oversight, advise the recipient as to whether in NIST’s 

judgment the supporting information is sufficient. NIST will only review information 

provided by the NIST grant recipient, or on its behalf by another party (e.g., a 

manufacturer or consulting engineer) with the grant recipient’s express consent. This 

will ensure that any NIST review of a substantial transformation determination and 

supporting information is undertaken because the NIST grant recipient considers it to be 

genuinely in its own interest, and is not primarily for the benefit or convenience of any 

other party. 

C. Substantial Transformation Examples 

• Cosmetic or surface changes, such as painting, cleaning, or lacquering, which do 

not significantly affect the physical dimensions or qualities or chemical composition 

of the product, are usually not considered sufficient to constitute a substantial 

transformation. 

• Simply cutting a material to length or width is generally not considered a sufficient 

change in use. A material that is simply cut to length or width remains suitable for 

multiple uses. 

• A kit is not considered a U.S.-made good if it is assembled in the U.S. 

o If all the pieces are shipped by one company with the intent of providing all 

components necessary to be assembled into a functional good (e.g., 

pump station), then this would not be considered substantial 

transformation and therefore not a U.S.-made good. 
                                                                                                     

January 12, 2011 p. 10 

• Concrete is not considered a manufactured good because all of the raw materials 

are brought to the construction site, where they are then mixed to create 

concrete. Therefore, concrete mixing is considered construction. The result is the 

same if the raw materials are continually mixed en route to and/or at the site. 

VI. Overview: Exceptions and Exemptions to the ARRA Buy American 

Requirements 

There are three exceptions and one exemption to the ARRA Buy American 

requirements, each of which is summarized below: 

A. Exceptions (Waivers): 7

Each of the below exceptions require a written determination from the Secretary 

of Commerce, or from a delegated Department of Commerce official, in order to 

waive the ARRA Buy American requirement. 

1) Non-Availability: 

If iron, steel, or relevant manufactured goods are not produced in the United 

States in sufficient and reasonably available quantities and of a satisfactory 

quality. 

2) Unreasonable Cost: 

If the use of domestically produced iron, steel, or manufactured goods would 

increase the overall project cost by more than 25%. 

3) Public Interest: 

If the application of the domestic preference provision of the Recovery Act 

would be inconsistent with the public interest. 

B. Exemption for Certain Acquisitions Covered Under International 

Agreements: 8

The United States is a signatory to several international agreements that obligate the 

government to treat goods and services from certain other foreign countries the same 

as domestic goods and services in some situations. In keeping with these obligations, 

                                                            

7 See 2 C.F.R. § 176.80 (2010).

8 See 2 C.F.R. § 176.90 (2010).
                                                                                                     

January 12, 2011 p. 11 

recipients of NIST Recovery Act construction grants need not apply the Buy American 

provision for iron, steel, or manufactured goods from designated countries provided that 

all of the following conditions are met: 

1. The estimated project value is $7,804,000 or more; 9 

2. The recipient is bound by an international agreement. Appendix B contains a 

useful guide for public entity recipients of NIST Recovery Act construction grants 

to determine whether they are subject to U.S. obligations under international 

agreements; 

3. The project activity or product to be used in the project is not specifically 

excluded from the international agreement. Appendix B also contains a list of 

exclusions as they apply to the portfolio of public entities receiving NIST 

Recovery Act construction grants; and 

4. The recipient provides NIST with written documentation justifying its exemption to 

the ARRA Buy American requirements with respect to some or all of the iron, 

steel or manufactured goods to be used in the project and NIST provides the 

recipient with written confirmation of the exemption. In such case, NIST will 

amend the terms and conditions of the grant award consistent with the 

exemption. 

Based on a review of the portfolio of NIST Recovery Act construction grant awards, it 

does not appear as if any public entity recipient will meet the criteria for an exemption 

to Buy American requirements based on an international agreement. Recipients 

should, however, consult Appendix B to this Supplemental Guidance to confirm 

whether it may be exempt from the ARRA Buy American requirements based on its 

coverage under an international agreement. 

                                                            

9 Prior to January 1, 2010, the Buy American threshold for international agreements was $7,443,000. Effective as of 

January 1, 2010, this threshold was increased to $7,804,000 based on a determination by the United States Trade 

Representative. See 75 Fed. Reg. 14323 (March 25, 2010). 
                                                                                                     

January 12, 2011 p. 12 

VII. Requesting a Waiver from the ARRA Buy American Requirements 

Waiver Timing 

Whenever possible, waiver requests must be submitted to NIST before the grant 

recipient or contractor obligates award funds for the construction or alteration of a public 

work or public building. Waiver requests submitted after award funds are obligated 

must include a justification as to why the grant recipient or contractor could not request 

the waiver before making the obligation or why the need for the waiver was not 

reasonably foreseeable.10 

Waiver Process11

A. Non-availability waiver: 

In order to request a waiver because of non-availability, the recipient must submit a 

NIST Form 1104 to the NIST Construction Grants Federal Program Officer. This form 

provides the information that is necessary to justify the reason(s) for the requested 

waiver and for NIST to evaluate the request. This Form is provided as Appendix C or 

may be downloaded at http://www.nist.gov/recovery/construction_program.cfm. 

 

If the item(s) in question appears on the list of government approved non-available 

items (see Appendix D – Approved Non-Available Items) it should be noted on the form. 

In such case, the recipient does not need to provide additional supporting 

documentation. 

 If the item does not appear on the list in Appendix D, the recipient must submit proof of 

non-availability via the details requested in the NIST-1104 form (Appendix C). 

 

NIST has no objection to considering legitimate requests for non-availability waivers. 

• Note that cost in not a factor in the request for a non-availability waiver. 

• Requests that are not complete or do not adequately show due diligence will be 

returned without consideration. 

                                                            

10 See 2 C.F.R. §§ 176.100 and 176.120 (2010). 

11 See generally 2 C.F.R. §§ 176.100, 176.110, and 176.140(c) and (d) (2010).
                                                                                                     

January 12, 2011 p. 13 

NIST construction grant projects have necessary design considerations and resultant 

specifications. If a U.S.-made product does not meet those specifications, and other 

U.S.-made goods that do meet them are not available, then there may exist sufficient 

justification to apply to NIST for a non-availability waiver. 

Without an approved non-availability waiver from NIST, all material submittals shall only 

contain iron, steel and manufactured goods produced in the United States. 

B. Unreasonable cost waiver: 

In order to request a waiver because of unreasonable cost, the recipient must submit 

the following to their NIST Construction Grants Federal Program Officer: 

1) Justification Memo. 

 

This must explain the reason(s) for the request. To receive a waiver, the recipient must 

establish that the use of domestic iron, steel, or manufactured goods will increase the 

overall project cost by more than 25%. The justification memo should include a 

statement describing the percentage increase in costs that would be caused by the use 

of domestic products. 

 

2) Cost Comparison (See Appendix E for submission format). 

This must include the material, quantity needed, and unit price from three foreign and 

three domestic sources for each item. NIST strongly encourages recipients to use the 

Foreign and Domestic Items Cost Comparison template provided in Appendix E. 

3) Bids from a minimum of three U.S. and/or three foreign suppliers to support 

the comparison (See Appendix E for submission format). 

C. Public interest waiver: 

1) In order to request a public interest waiver, the recipient must submit the 

following to their NIST Construction Grants Federal Program Officer: 

a) A justification memo that explains the reason(s) for the request; and 

 
                                                                                                     

January 12, 2011 p. 14 

b) Any additional, independent supporting documents that may strengthen 

the claim that the use of domestic iron, steel, and/or manufactured goods is 

inconsistent with the public interest. 

 

2) Waivers on the grounds of inconsistency with the public interest will only be 

made in extraordinary circumstances. 

D. Waiver Authority and Waiver Determinations 12

The authority to grant waivers to the Buy American requirement of the Recovery 

Act rests with the Secretary of Commerce or his delegate. 

• Absent written approval of the waiver from the Department of Commerce, 

through NIST, any use of foreign iron, steel, or manufactured goods will be 

considered non-compliant and is at the recipient’s own risk. 

The Office of Management and Budget requires NIST to publish a notice in the 

Federal Register of all Buy American waivers issued to its grant recipients, 

unless the waiver is for a material that has already been determined to be 

domestically non-available (see Appendix D).13

 

The notice shall be published within two weeks of the waiver’s approval and shall 

include: 

1. The title “Buy American Exception under the American Recovery and 

Reinvestment Act of 2009”; 

2. The dollar value and a brief description of the project; and 

3. A detailed written justification for the waiver. 

 

                                                            

12 See generally 2 C.F.R. §§ 176.80 and 176.100 (2010).

13 See 2 C.F.R. § 176.80(b) (2010).
                                                                                                     

January 12, 2011 p. 15 

VIII. Compliance 

Recipients of NIST Recovery Act construction grants are required to comply with the 

Buy American requirements set forth in Section 1605 of the Recovery Act. The 

Recovery Act includes strict domestic source requirements for iron, steel and 

manufactured goods used in projects receiving Recovery Act funds. NIST will actively 

monitor recipients’ compliance with the Buy American provision of the Recovery Act. 

Recipients are required to flow down to its contractors the Buy American requirements 

in all bid documents for construction grant projects funded with Recovery Act funds, 

including those for consultants, designers, constructors, subcontractors, and material 

purchases. All bid specifications, contracts, purchase orders, and other procurement 

documents must include a Buy American Contract Clause, and require suppliers to 

provide information related to the origin of iron, steel, and manufactured goods to NIST 

upon request. 

NIST approved language can be found in Appendix G of this document. 

If the recipient has already completed procurement, they are still responsible for 

promptly amending their contract or purchase language ensuring that all contractors 

performing work on the project understand and will comply with Buy American 

requirements. It is the responsibility of the NIST grant recipient to retain (or to require 

its contractors to retain) adequate documentation in their project files to demonstrate 

compliance with the ARRA Buy American requirements. 

Product data submittals will be monitored by NIST for compliance with the Buy 

American requirements. The grant recipient or NIST prime contractor is required to 

maintain records documenting compliance, which will be provided to NIST in a timely 

manner upon request. 

In addition, construction materials will be randomly monitored by NIST as they arrive or 

are at the jobsite. NIST will perform random spot checks of materials on site, including 

but not limited to documentation checks and physical inspections. Items known to 

represent a high dollar value used repeatedly in large amounts, or that have unique or 

salient characteristics may receive enhanced monitoring. However any construction 

material may be randomly audited for compliance by NIST at any time. 
                                                                                                     

January 12, 2011 p. 16 

Please contact the NIST Construction Grants Federal Program Officer with any 

questions regarding compliance with the ARRA Buy American requirement. 

IX. Noncompliance14

The use of iron, steel, or manufactured goods produced outside of the United States is 

considered a violation of the award terms if the recipient: (i) has not been verified by 

NIST as exempt from the Buy American requirements because of coverage under an 

international agreement, or (ii) has not received a waiver from NIST of the Buy 

American requirements and subsequent amendment to the award terms. Any use of 

foreign iron, steel, or manufactured goods without an NIST waiver, or without 

verification by NIST of an exemption based on an international agreement, is at the 

recipient’s own risk.

 

In addition, NIST will investigate complaints of non-compliance brought against 

recipients of Recovery Act construction grants from third-parties, as well as suspected 

cases of non-compliance raised by NIST staff. If NIST finds evidence of noncompliance, it may take one or more of the following actions: 

1. Allow the recipient to submit a request for a waiver as described in Section VII. 

Waivers are granted at the discretion of the Secretary of Commerce or his 

delegate and submitting a request will not guarantee that a waiver will be 

approved. 

2. Require the removal of the unauthorized foreign iron, steel, and/or manufactured 

goods and replacement with domestically produced items. NIST will only 

reimburse the recipient for costs related to the purchase and installation of 

domestically produced iron, steel, and/or manufactured goods. Costs related to 

the purchase, installation, or removal of foreign iron, steel, and/or manufactured 

goods will be disallowed. 

3. Make a determination that removing the foreign iron, steel, and/or manufactured 

goods would be detrimental to the interests of the Federal Government. This 

decision does not constitute a waiver to the Buy American requirements under 

Section 1605 of the Recovery Act, and NIST will disallow all costs associated 

                                                            

14 See 2 C.F.R. § 176.130 (2010).
                                                                                                     

January 12, 2011 p. 17 

with the purchase and installation of the foreign iron, steel, or manufactured 

goods. 

4. Depending on the severity of the noncompliance, NIST may take other 

enforcement action up to and including termination of the grant award or contract 

(as the case may be). NIST may also initiate a debarment proceeding in 

accordance with 2 C.F.R. part 180 and will report apparent fraudulent actions to 

the Department of Commerce Office of the Inspector General for criminal 

investigation. 
                                                                                                     

January 12, 2011 p. 18 

Appendix A: Cross-Reference to Applicable ARRA Buy American 

Regulatory Provision 

Topic Cross-Reference to Applicable ARRA Buy American 

Regulatory Provision(s)15

Requirements/Policy 

2 C.F.R. § 176.60 

2 C.F.R. § 176.70 

Definitions 

• Public Building or Public Work 2 C.F.R. § 176.140(a)(2) 

• Steel 2 C.F.R. § 176.140(a)(3) 

• Manufactured Good 2 C.F.R. §176.140(a)(1) 

• Manufactured Construction Material 

See definition of “Manufactured Good” 

• Unmanufactured Construction Material Not defined in 2 C.F.R. part 176

Exceptions (Waivers) 

• Timing of Waiver Requests 2 C.F.R. §§ 176.100 and 176.120 

• Nonavailability 2 C.F.R. § 176.80(a)(1) 

2 C.F.R. § 176.140(c) 

See also 48 C.F.R. §§ 25.103(b)(1) and 25.104(a) 

• Unreasonable Cost 2 C.F.R. § 176.80(a)(2) 

2 C.F.R. § 176.110 

2 C.F.R. § 176.140(c), (d) 

• Public Interest 2 C.F.R. § 176.80(a)(3) 

2 C.F.R. § 176.140(c) 

Exemption for Acquisitions Covered Under 

International Agreements 

• Covered International Agreements 2 C.F.R. § 176.90(a), (b) 

• Exemptions Based on Obligations 

under Covered International 

Agreements 

2 C.F.R. part 176, Appendix to Subpart B 

Noncompliance 

2 C.F.R. § 176.130 

                                                            

15 2 C.F.R. part 176, Subpart B at: http://ecfr.gpoaccess.gov/cgi/t/text/textidx?c=ecfr&sid=5ac7bd0ddba2d0911fd70f6dbd4e29ea&rgn=div5&view=text&node=2:1.1.1.7.11&idno=2#

2:1.1.1.7.11.2. 
                                                                                                     

January 12, 2011 p. 19 

Appendix B: Exemption Coverage Table for Construction Grants 16. 

Subset of States with Public Entity NIST ARRA Construction Grants. 

For full listing, refer to the footnote. 

State Entities Covered Exclusions Relevant 

Agreement 

KY Division of Purchases, Finance 

and Administration Cabinet 

Construction projects • WTO GPA 

• US-Chile FTA 

• US Singapore FTA 

• DR-CAFTA 

• US-Australia FTA 

• US-Morocco FTA 

ME • Department of Administrative 

and Financial Services 

• Bureau of General services 

(covering State government 

agencies and school 

construction) 

• Department of Transportation 

Construction-grade 

steel (including 

requirements on 

subcontracts); motor 

vehicles; coal 

• WTO GPA 

• US-Chile FTA 

• US Singapore FTA 

• US-Australia FTA 

MD • Office of the Treasury 

• Department of the 

Environment 

• Department of General 

Services 

• Department of Housing and 

Community Development 

• Department of Human 

Resources 

• Department of Licensing and 

Regulation 

• Department of Natural 

Resources 

Construction-grade 

steel (including 

requirements on 

subcontracts); motor 

vehicles; coal 

• WTO GPA 

• US-Chile FTA 

• US Singapore FTA 

• DR-CAFTA 

• US-Australia FTA 

• US-Morocco FTA 

                                                            

16 See Appendix to Subpart B of 2 C.F.R. part 176 – U.S. States, Other Sub-Federal Entities, and Other 

Entities Subject to U.S. Obligations Under International Agreements (as of February 16, 2010).  
                                                                                                     

January 12, 2011 p. 20 

• Department of Public Safety 

and Correctional Services 

• Department Personnel 

• Department of Transportation 

NC State Not Listed – Buy American Required. This Table is NOT applicable.

NE Central Procurement Agency None • WTO GPA 

• US-Chile FTA 

• US Singapore FTA 

• DR-CAFTA 

• US-Australia FTA 

• US-Morocco FTA 

PA Executive branch agencies (for 

complete list see Appendix to 

Subpart B of 2 C.F.R. part 176) 

Construction-grade 

steel (including 

requirements on 

subcontracts); motor 

vehicles; coal 

• WTO GPA 

• US-Chile FTA 

• US Singapore FTA 

• US-Australia FTA 

Explanatory Example:

For example, assume NIST makes a $3.25 million Recovery Act grant to a Delaware 

State university to build a business incubator with an estimated project value of $10 

million. The estimated project value is over $7,804,000, so the Delaware State 

University must check the Coverage Table in Appendix to subpart B of 2 C.F.R. part 

176. 

 

Section of Coverage TableState Entities Covered Exclusions Relevant Agreement 

DE • Administrative Services 

(Central Procurement Agency)

• State Universities 

• State Colleges 

Construction-grade 

steel (including 

requirements on 

subcontracts); motor 

vehicles; coal 

• WTO GPA 

• US-Chile FTA 

• US Singapore FTA 

• DR-CAFTA (except 

Honduras) 

• US-Australia FTA 

• US-Morocco FTA 
                                                                                                     

January 12, 2011 p. 21 

• By reviewing the table, the recipient will find that the State of Delaware, including 

State universities, is bound by several international agreements, which means that 

subsection (d) of the Buy American provision must be read consistently with the 

international obligations undertaken by the State of Delaware. Next the recipient 

must determine if the project or material is excluded from the relevant international 

agreements. Since construction-grade steel is excluded from the international 

agreements by which the Delaware State University is bound, the recipient must 

acquire steel for the project from domestic sources. 

• However, iron and most manufactured goods are not excluded, so the recipient may 

obtain iron or manufactured goods, such as a furnace, from countries that have 

signed on to the relative agreements. 

• In this case, the relevant agreements in the Coverage Table are: the WTO 

Government Procurement Agreement, the US-Chile Free Trade Agreement (FTA), 

the US-Singapore FTA, DR-CAFTA (excluding Honduras), the US-Australia FTA, 

and the US-Morocco FTA. 

• Therefore, the University of Delaware may, but is not required to, buy iron and 

manufactured goods for the incubator from any of the following countries: Aruba, 

Australia, Austria, Belgium, Bulgaria, Chile, Costa Rica, Cyprus, Czech Republic, 

Denmark, Dominican Republic, El Salvador, Estonia, Finland, France, Germany, 

Greece, Guatemala, Hong Kong, Hungary, Iceland, Ireland, Israel, Italy, Japan, 

Korea (Republic of), Latvia, Liechtenstein, Lithuania, Luxembourg, Malta, Morocco, 

Netherlands, Nicaragua, Norway, Poland, Portugal, Romania, Singapore, Slovak 

Republic, Slovenia, Spain, Sweden, Switzerland, Taiwan, and the United Kingdom.
                                                                                                     

January 12, 2011 p. 22 

Appendix C: NIST-1104 

Request Form for Waiver of the Recovery Act Buy American Provision Using the 

Nonavailability Exception for: 

- ARRA NIST Construction Grants 

(See document following Appendix G) 
                                                                                                     

January 12, 2011 p. 23 

Appendix D: Pre-Approved17 Non-Available Items 

The following items have been determined to be unavailable by the Federal 

Government: 

• Acetylene, black 

• Antimony, as metal or oxide 

• Asbestos, amosite, chrysotile, and crocidolite 

• Bauxite 

• Bismuth 

• Cadmium, ores and flue dust 

• Calcium cyanamide 

• Chalk, English 

• Chrome ore or chromite 

• Cobalt, in cathodes, rondelles, or other primary ore and metal forms. 

• Cork, wood or bark and waste. 

• Cover glass, microscope slide. 

• Crane rail (85-pound per foot). 

• Cryolite, natural. 

• Dammar gum. 

• Diamonds, industrial, stones and abrasives 

• Graphite, natural, crystalline, crucible grade 

• Hand file sets (Swiss pattern) 

• Iodine, crude. 

• Kaurigum 

• Mica 

• Microprocessor chips (brought onto a Government construction site as separate units for 

incorporation into building systems during construction or repair and alteration of real property) 

• Nickel, primary, in ingots, pigs, shots, cathodes, or similar forms; nickel oxide and nickel salts 

• Nitroguanidine (also known as picrite) 

• Oiticica oil 

• Petroleum, crude oil, unfinished oils, and finished products 

• Platinum and related group metals, refined, as sponge, powder, ingots, or cast bars. 

• Quartz crystals 

• Quebracho 

                                                            

17 This is a partial list of items which are most relevant for NIST Recovery Act construction grant projects. 

For the sake of clarity, NIST has omitted items that are unlikely to be used for construction, such as food 

and medical products. The complete list, as set forth in 48 C.F.R. § 25.104(a), is available at: 

http://ecfr.gpoaccess.gov/cgi/t/text/textidx?c=ecfr&sid=a70a35cea699b5cf86b5c0303c745b78&rgn=div5&view=text&node=48:1.0.1.4.24&idno=

48#48:1.0.1.4.24.1.1.5 
                                                                                                     

January 12, 2011 p. 24 

• Radium salts, source and special nuclear materials. 

• Rosettes 

• Rubber, crude and latex 

• Rutile 

• Secretin 

• Shellac 

• Spare and replacement parts for equipment of foreign manufacture, and for which domestic parts are 

not available 

• Talc, block, steatite. 

• Tantalum 

• Tin in bars, blocks, and pigs 

• Tungsten 

• Wire glass 

• Woods, logs, veneer, and lumber of the following species: Alaskan yellow cedar, angelique, balsa, 

ekki, greenheart, lignum vitae, mahogany, and teak 

 
                                                                                                     

January 12, 2011 p. 25 

Appendix E: Foreign and Domestic Items Cost Comparison 

Please attach bids to this form. Bids must include the firm’s name, address, telephone 

number, email address, and the name of a point of contact. Include any other relevant 

supporting information.

The recipient must receive bids from a minimum of three domestic and three foreign 

suppliers for each item for a complete cost comparison. 

Description Unit of Measure* Quantity Price (Dollars)** 

Item __________: 

Foreign bids 

 Supplier A: __________ _________ _______________ 

 Supplier B: __________ _________ _______________ 

 Supplier C: __________ _________ _______________ 

Domestic bids 

 Supplier A: __________ _________ _______________ 

 Supplier B: __________ _________ _______________ 

 Supplier C: __________ _________ _______________ 

 

*The Unit of Measure must be such that domestic and foreign bids can be easily 

compared. If domestic bids are given in pounds, while foreign bids are given in 

kilograms, the recipient must convert the foreign bids into the same unit of 

measurement as the domestic bids and note the conversion formula used to do so. 

**Include all delivery costs to the construction site in the total price. Include the 

exchange rate used to convert the bid into dollars, if the original submission was in 

another currency. 

 
                                                                                                     

January 12, 2011 p. 26 

Appendix F: Determining Substantial Transformation 

Questions for Determining Whether Substantial Transformation Has Occurred In the 

U.S.: 

Question Yes No

1. Were all of the components of the manufactured good manufactured in 

the United States, and were all of the components assembled into the 

final product in the U.S.? (If the answer is yes, then this is clearly 

manufactured in the U.S., and the inquiry is complete) 

2. Was there a change in character or use of the good or the components in 

America? 

(These questions are asked about the finished good as a whole, not about each 

individual component) 

a. Was there a change in the physical and/or chemical properties or 

characteristics designed to alter the functionality of the good? 

b. Did the manufacturing or processing operation result in a change 

of a product(s) with one use into a product with a different use? 

c. Did the manufacturing or processing operation result in the 

narrowing of the range of possible uses of a multi-use product? 

3. Was (/were) the process(es) performed in the U.S. (including but not limited to 

assembly) complex and meaningful? 

a. Did the process(es) take a substantial amount of time? 

b. Was (/were) the process(es) costly? 

c. Did the process(es) require particular high level skills? 

d. Did the process(es) require a number of different operations? 

e. Was substantial value added in the process(es)? 

• If the answer to Question 1 is yes, then the item is clearly manufactured in the 

U.S., and the inquiry is complete. 

• If the answer is yes for any of 2a, 2b, or 2c, then answer to Question 2 is yes. 

• If the answer is yes for at least two of 3a, 3b, 3c, 3d, or 3e, then the answer to 

Question 3 is yes. 

If the answer is “yes” to any of Questions 1, 2 or 3, then “substantial transformation” 

occurred in the United States. 
                                                                                                     

January 12, 2011 p. 27 

In applying these questions to individual cases, “yes” answers must in all cases be 

documented by meaningful, informative, and specific technical descriptions of the 

activities in the actual process asked about in each question. These descriptions need 

not be of great length, but must be sufficiently detailed and clearly written to inform 

assistance recipients and agency reviewers about the activities that have occurred in 

the process(es), enough to understand their nature and purpose. They should not 

simply assert a conclusion, describe an end state, or essentially repeat the words of the 

question as a statement. 

If a contractor cannot answer any of the following in the affirmative, the recipient should 

either find an alternative U.S. - made good if possible, or seek a waiver from the Buy 

American provisions, if applicable. 
                                                                                                     

January 12, 2011 p. 28 

Appendix G: Required Buy American Language for Recipients’ Contracts 

and Purchase Documents 

The Contractor is required to comply with the “Buy American Provision” found in Section 

1605 of the American Recovery and Reinvestment Act of 2009, Pub. L. No. 111–5, 123 

Stat. 115 (2009) (Recovery Act). This provision of the Recovery Act includes strict 

domestic source requirements for iron, steel and manufactured goods used in 

construction, alteration, maintenance or repair of public building or public work projects 

receiving Recovery Act funds. The Recovery Act’s Buy American requirements shall 

flow down and apply to all Subcontractors. 

Definitions. As used in this specification: 

1. Manufactured good means a good brought to the construction site for 

incorporation into the building or work that has been— 

a. Processed into a specific form and shape; or 

b. Combined with other raw material to create a material that has different 

properties than the properties of the individual raw materials. 

2. Steel means an alloy that includes at least 50 percent iron, between .02 and 2 

percent carbon, and may include other elements.

3. Public Building and Public Work means a public building of, and a public work of, 

a governmental entity (the United States; the District of Columbia; 

commonwealths, territories, and minor outlying islands of the United States, 

State and local governments; and multi-State, regional, or interstate entities that 

have governmental functions). These buildings and works may include, without 

limitation, bridges, dams, plants, highways, parkways, streets, subways, tunnels, 

sewers, mains, power lines, pumping stations, heavy generators, railways, 

airports, terminals, docks, piers, wharves, ways, lighthouses, buoys, jetties, 

breakwaters, levees, and canals, and the construction, alteration, maintenance or 

repair of such buildings and works. 

In accordance with Section 1605 of the Recovery Act, all of the iron, steel, and 

manufactured goods used in the Project must be produced in the United States and the 

Contractor shall include this requirement in all bid specifications, contracts, purchase 

orders, and other procurement documents for goods and materials used in the Project. 
                                                                                                     

January 12, 2011 p. 29 

The Department of Commerce may grant waivers of this requirement if it finds that at 

least one of the following conditions applies: 

• Applying this subsection would be inconsistent with the public interest. 

• Iron, steel, and the relevant manufactured goods are not produced in the United 

States in sufficient and reasonably available quantities and of a satisfactory 

quality. 

• Inclusion of iron, steel, and manufactured goods produced in the United States 

will increase the overall project cost by more than 25 %. 

Specific procedures and documentation are required for each category of waiver. If the 

Department of Commerce determines that it is necessary to waive this provision, NIST 

shall publish in the Federal Register a detailed written justification as to why the 

provision is being waived. 

In addition, the Buy American requirement in Section 1605 of the Recovery Act shall be 

applied in a manner consistent with United States obligations under international 

agreements. 

The Contractor shall include the following Buy American Contract Clause in all bid 

specifications, contracts, purchase orders, and other procurement documents for goods 

and materials used for the Project to require (i) all iron, steel and manufactured goods 

being purchased for the Project be produced in the United States, and (ii) all suppliers 

providing iron, steel, or manufactured goods for the Project provide information related 

to the origin of these items to NIST upon request: 

In accordance with Section 1605 of the American Recovery and Reinvestment Act, all of 

the iron, steel, and manufactured goods used in the Project must be produced in the 

United States. [Insert name of supplier or service provider] certifies that any of the 

iron, steel, and manufactured goods provided for use on the Project is produced in the 

United States. [Insert name of supplier or service provider] will provide information 

related to the origin of any such material to NIST upon request.