Source: https://www.federalregister.gov/documents/2011/02/15/2011-3209/prioritization-and-allocation-authority-exercised-by-the-secretary-of-transportation-under-the
Timestamp: 2018-07-15 22:14:48
Document Index: 607413763

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Federal Register :: Prioritization and Allocation Authority Exercised by the Secretary of Transportation Under the Defense Production Act
A Proposed Rule by the Transportation Department on 02/15/2011
76 FR 8675
8675-8699 (25 pages)
49 CFR 33
2105-AD83
2011-3209
DOT-OST-2010-0298
B. Executive Order 13132—Federalism
C. Executive Order 13175—Consultation and Coordination With Indian Tribal Governments
List of Subjects in 49 CFR Part 33
Appendix II to Part 33—Schedule 1 Approved Programs
https://www.federalregister.gov/d/2011-3209 https://www.federalregister.gov/d/2011-3209
The Department of Transportation's Office of the Secretary (OST) is initiating this proposed rulemaking to clarify the priorities and allocation authorities exercised by the Secretary of Transportation (Secretary) under title 1 of the Defense Production Act of 1950 (Defense Production Act), and to set forth the administrative procedures by which the Secretary will exercise this authority. This proposed rule complies with the requirement in the Defense Production Act Reauthorization of 2009 (Pub. L. 111-67) to issue final rules establishing standards and procedures by which the priorities and allocations authority is used to promote the national defense, under both emergency and nonemergency conditions, and is part of a multi-agency effort that forms the Federal Priorities and Allocations System.
Comment Closing Date: Comments must be received by March 17, 2011.
You may submit comments (identified by the agency name and DOT Docket ID Number OST-2010-0298) by any of the following methods:
Instructions: You must include the agency name (Office of the Secretary, DOT) and Docket number (OST-2010-0298) for this notice at the beginning of your comments. You should submit two copies of your comments if you submit them by mail or courier. Note that all comments received will be posted without change to http://www.regulations.gov including any personal information provided and will be available to internet users. You may review DOT's complete Privacy Act Statement in the Federal Register published on April 11, 2000 (65 FR 19477) or you may visit http://DocketsInfo.dot.gov.
Docket: For Internet access to the docket to read background documents and comments received, go to http://www.regulations.gov. Background documents and comments received may also be viewed at the U.S. Department of Transportation, 1200 New Jersey Ave., SE., Docket Operations, M-30, West Building Ground Floor, Room W12-140, Washington, DC 20590, between 9 a.m. and 5 p.m., Monday through Friday, except Federal holidays.
Donna L. O'Berry, Office of the General Counsel, Department of Transportation, 1200 New Jersey Avenue, SE., Room W96-317, Washington, DC 20590; telephone: (202) 366-6136; e-mail: donna.o'berry@dot.gov; or Lloyd E. Milburn, Office of Intelligence, Security and Emergency Response, Department of Transportation, 1200 New Jersey Avenue, SE., Washington, DC 20590; telephone: (202) 366-4397; e-mail: lloyd.milburn@dot.gov.
The Defense Production Act of 1950 (Defense Production Act) (50 U.S.C. App. 2061 et seq.) was enacted during the Korean War to ensure the availability of resources to meet national security needs. The Defense Production Act provides a number of important authorities to expedite and expand the supply of critical resources from the U.S. industrial base to support the national defense. While Defense Production Act provisions initially focused on Department of Defense (DoD) acquisition needs, several significant changes to the Defense Production Act definition of national defense have been added over time to expand the definition from military, energy, and space activities, to include emergency preparedness activities conducted pursuant to title VI of the Robert T. Stafford Disaster Relief and Emergency Assistance Act (Stafford Act) (42 U.S.C. 5121 et seq.) and the protection and restoration of critical infrastructure.
Section 101(a) of title I of the Defense Production Act (50 U.S.C. App. 2071) authorizes the President:Start Printed Page 8676
(1) To require that performance under contracts or orders (other than contracts of employment) which he deems necessary or appropriate to promote the national defense shall take priority over performance under any other contract or order, and, for the purpose of assuring such priority, to require acceptance and performance of such contracts or orders in preference to other contracts or orders by any person he finds to be capable of their performance, and (2) to allocate materials, services, and facilities in such manner, upon such conditions, and to such extent as he shall deem necessary or appropriate to promote the national defense.
Executive Order 12919, National Defense Industrial Resources Preparedness (June 3, 1994), as amended, delegates the President's authority under section 101 of the Defense Production Act to the heads of several departments and agencies. The President has delegated this authority to the Secretary of Transportation with respect to all forms of civil transportation.[1] While the Department of Transportation (DOT) is seeking comments on all aspects of the rulemaking, we are particularly interested in comments on the scope and applicability of the definition of civil transportation.
Section 202 of Executive Order 12919 provides that this delegated authority may only be used to support programs that have been determined in writing as necessary or appropriate to promote the national defense by the Secretary of Defense with respect to military production and construction, military assistance to foreign nations, stockpiling, outer space and directly related activities; the Secretary of Energy with respect to energy production and construction, distribution and use, and directly related activities; or the Secretary of Homeland Security with respect to essential civilian needs supporting national defense, including civil defense and continuity of government and directly related activities.
Executive Order 12656, Assignment of Emergency Preparedness Responsibilities, as amended, assigns Federal departments and agencies responsibilities for national security emergency preparedness. The Secretary of Transportation is assigned lead responsibility for, among other things,
(1) Developing plans to promulgate and manage overall national policies, programs, procedures, and systems to meet essential civil and military transportation needs in national security emergencies; (2) preparing to provide direction to all modes of civil transportation in national security emergencies, including air, surface, water, pipelines, and public storage and warehousing, to the extent such responsibility is vested in the Secretary for: (a) Implementation of priorities for all transportation resource requirements for service, equipment, facilities, and systems; and (b) allocation of transportation resource capacity; and (3) emergency management and control of civil transportation resources and systems, including privately owned automobiles, urban mass transit, intermodal transportation systems, the National Railroad Passenger Corporation and the St. Lawrence Seaway Development Corporation.
This proposed rule would set forth the policies and procedures by which the Secretary would carry out certain authorities and responsibilities assigned under Executive Order 12656.
The Defense Production Act Reauthorization of 2009 (Pub. L. 111-67, September 30, 2009) requires each Federal agency with delegated authority under section 101 of the Defense Production Act to issue final rules establishing standards and procedures by which the priorities and allocations authority is used to promote the national defense, under both emergency and non-emergency conditions. Congress further directed that, to the extent practicable, the Federal agencies should work together to develop a consistent and unified Federal priorities and allocations system.
In order to meet this mandate, DOT has worked in conjunction with the Departments of Agriculture, Commerce, Defense, Energy, Health and Human Services, and Homeland Security to develop common provisions that can be used by each Department in its own regulation. Common provisions among the Departments would provide consistency and uniformity for how the Federal priorities and allocations are applied. However, each Department would supplement in its own regulation, as necessary, the common provisions in order to provide additional standards and procedures unique to its resource area. The six regulations to be promulgated by each Department with delegated Defense Production Act title I authority would be commonly referred to as the Federal Priorities and Allocations System (FPAS) of rules.
DOT's proposed regulation to form part of the FPAS would be known as the Transportation Priorities and Allocations System (TPAS).[2] Although DOT has developed procedures for implementing this authority through Departmental orders and other internal documents and protocols, DOT now proposes to establish a regulatory framework through TPAS to implement these authorities through this rulemaking. While TPAS adopts the common standards established under the FPAS, it would also include requirements that are specific to civil transportation. Transportation services covered under TPAS would include the movement of persons and property by all modes of civil transportation in commerce and related public storage and warehousing, ports, services, equipment and facilities.
DOT's Maritime Administration (MARAD) currently has regulations in 46 CFR that are based on Defense Production Act section 101 authority and is currently reviewing these regulations to determine if any modifications are necessary to bring them into conformance with TPAS.
Generally speaking, the transportation sector is very robust and even in emergencies DOT expects that the normal interactions between civilian transportation providers and those using their services will be maintained or that it will be possible to address any disruptions that may occur without the need for DOT to employ its priorities and allocations authority. Although DOT is developing a system to be used in emergency and non-emergency situations, DOT anticipates that only an extreme crisis would trigger the need to use DOT's authorities under this proposed rule. DOT has conducted response activities to multiple crises over the last decade and at no time Start Printed Page 8677during the most severe situation was DOT required to use its delegated Defense Production Act priority or allocation authority to marshal adequate transportation resources to complete its mission. Instead, there was sufficient transportation capacity available through normal interactions or alternative arrangements between transportation service providers and end users to meet the demand or the disruption was addressed through other means.
Section 33.1 Purpose of this part. This section explains that the purpose of this rule would be to provide guidance and procedures for use of the Defense Production Act priorities and allocations authority with respect to civil transportation, in accordance with the delegation of authority provided in section 201 of Executive Order 12919. This section also lists other agency regulations that, along with this regulation, would form the Federal Priorities and Allocations System.
Section 33.2 Priorities and allocations authority. This section would summarize the delegations of priorities and allocations authority in section 201 of Executive Order 12919. This section would also explain that these delegated authorities may only be used to support programs that have been determined in writing as necessary or appropriate to promote the national defense by the Secretaries of Defense, Energy, or Homeland Security in their respective areas of jurisdiction, as specified in section 202 of Executive Order 12919.
Section 33.3 Program eligibility. This proposed section lists the categories of programs eligible for priorities and allocations support, in accordance with the definition of “national defense” in section 702 of the Defense Production Act (50 U.S.C. App. § 2152).
Section 33.20 Definitions. This section would contain definitions used in this part. Some definitions are drawn from other sources, as follows:
Section 702 of the Defense Production Act (50 U.S.C. App. § 2152)—“critical infrastructure,” “facilities,” “homeland security,” “materials,” “national defense,” “person,” and “services.”
Section 901 of Executive Order 12919—“civil transportation,” “energy,” “farm equipment,” “fertilizer,” “food resources,” “food resource facilities,” “health resources,” and “water resources.”
The current Defense Priorities and Allocations System (DPAS) regulation—“allotment” (with technical modifications), “approved program” (with technical modifications), “construction,” “delegate agency,” “directive,” “item,” “maintenance and repair and operating supplies” or “MRO,” “official action” (with technical modifications), “rated order,” and “set-aside” (with technical modifications).
Section 18.3 of 49 Code of Federal Regulations—“local government” and “state.”
The definitions of “allocation,” “allocation authority,” and “allocation order” are based on language in section 101 of the Defense Production Act that describes the allocation authority of the President.
“Defense Production Act” means the Defense Production Act of 1950, as amended (50 U.S.C. App. 2061 et seq.).
“Planning order” defines an administrative tool used by DOT's Maritime Administration.
“Resource agency” refers to one of the six Federal departments that has been delegated Defense Production Act priorities and allocations authority under section 201 of Executive Order 12919.
“Secretary” refers to the Secretary of Transportation.
“Stafford Act” refers to title VI (Emergency Preparedness) of the Robert T. Stafford Disaster Relief and Emergency Assistance Act (42 U.S.C. 5195-5197g).
Section 33.30 Delegation of authority. This section proposes to describe the delegation of priorities and allocations authority from the President to the Secretary of Transportation for all forms of civil transportation.
DOT anticipates receiving a delegation of authority from the Department of Commerce to enable DOT to place priority ratings for items and materials necessary for civil transportation resources that fall under the Department of Commerce's jurisdiction. For example, such “flow down” items might include brakes, tires, and engine parts necessary for motor coaches to operate under a priority order for the provision of civil transportation. In instances where DOT is placing such a “flow down” priority rating under authority delegated from the Department of Commerce, the time period for acceptance and rejection of the rated order set forth in TPAS applies, consistent with relevant sections of the Department of Commerce's regulations. Transportation service providers should work with their parts and component providers to ensure they are aware that they may be asked to provide necessary parts or components on an expedited basis.
Section 33.31 Priority ratings. This section would explain the following: “DO” and “DX” rating symbols; program identification symbols; order of precedence for directives and ratings; and priority ratings that consist of a rating symbol and a program identification symbol.
Generally speaking, most contracts or orders for transportation services would be unrated. However, DOT may authorize priority rating authority if necessary to support a program that has been determined as necessary or appropriate to promote the national defense. A “DO” rating authorization may be authorized if the service or item is in critical or urgent need. For example, in 1990, DOT's Federal Aviation Administration was granted “DO” rating authority by DoD for specified procurements to support Civil Reserve Air Fleet use in Operation Desert Shield. In 2002, the Transportation Security Administration, which was then part of DOT, was granted “DO” rating authorization for contracts to support the acquisition of Explosive Detection Systems machines. Finally, in 2005, DOT sponsored a priority rating request by a railroad operator to support the emergency delivery of generators and transfer switches to replace those destroyed by Hurricane Katrina. The Department of Commerce granted the company “DO” rating authority. A “DO” rated contract or order takes precedence over unrated contracts or orders.
A “DX” rating would be reserved for those services or items that are determined to support programs that are of the highest national defense urgency based on the requesting entity's mission objectives. A “DX” rating would take precedence over a “DO” rating. The Secretary of Transportation must approve all requests for a “DX” rating pertaining to civil transportation resources.
Program Identification Symbols (PIS) would be used to identify approved programs, meaning a program that has been determined by the Secretaries of DoD, DHS, or DOE, as appropriate, as necessary to promote the national defense. DOT currently has no approved programs, but anticipates working with Commerce, DHS, DoD or DOE, as appropriate, in the near future to Start Printed Page 8678develop approved programs. The proposed PIS for DOT-approved programs would contain the letter “T” followed by a letter and a number; for example, T-L1. All approved programs would have equal status. The PIS would be combined with the appropriate priority rating authority, either DX or DO, to form the priority rating, for example DO-T-L1 or DX-T-L1. DOT is particularly interested in comments on its proposed PIS letter and number combination.
Section 33.32 Elements of a rated order. This section proposes to describe the four elements that must be included in a contract or order to make it a “rated order,” in accordance with the standards and procedures provided in this part. The four elements are: (1) A priority rating; (2) specific delivery date(s) for materials or services covered in the rated order; (3) the signature of an individual authorized to place the rated order; and (4) a statement describing what is required of the rated order recipient, in accordance with procedures provided in this part.
This section also would include a provision for an additional statement to be included in a rated order involving emergency preparedness, which would require quicker action by the recipient to accept or reject the order. The justification for the expedited timeframes is explained below in the § 33.33 discussion.
Section 33.33 Acceptance and rejection of rated orders. This section would describe mandatory and optional conditions for acceptance or rejection of rated orders, as well as customer notification timeframes pertaining to acceptance or rejection. In general, a person would be required to accept a rated order if the person normally supplies the materials or services covered by the rated order and must do so regardless of any other orders on hand. Persons would be prohibited from charging higher prices, imposing different terms, or any other discriminatory practices for the rated order that are different from a comparable unrated order.
A person would be required to reject a rated order if unable to fill the order by the specified delivery date(s) or if the order would interfere with delivery under another rated order with a comparable or higher priority rating. In addition, a person would be required to reject a rated order if the person is prohibited by law from meeting the terms of the order; for example, the provider of the services contemplated in the order does not have current operating authority to perform the service. A person would have the option of rejecting a rated order if any one of a number of other conditions set forth in the regulation exists.
Under non-emergency conditions, the recipient of a rated order would be required to accept or reject the rated order within fifteen calendar days for a “DO”-rated order or ten working days for a “DX”-rated order. (See § 33.33(d)) DOT is proposing calendar days instead of working days in order to provide greater specificity for deadlines. However, DOT is interested in comments on whether the use of calendar days could lead to any unintended consequences for recipients of a rated order.
While the deadlines discussed above would be appropriate for non-emergency circumstances, they are too long for emergency conditions when quick procurement actions may be needed to help save lives, protect property, or restore services. Transportation services are unique in that they are often the first services needed to move people out of harm's way and to move rescue and response personnel and supplies into a disaster area; thus, transportation services often must be marshaled on very short notice. DOT proposes in this rule that orders placed for the purpose of emergency preparedness must be accepted or rejected within 6 hours from receipt of the order if the order is issued in response to a hazard that has occurred and within 12 hours from receipt of the order if the order is issued to prepare for an imminent hazard.
Prior to 2008, DOT was the lead Federal agency responsible for providing and managing emergency transportation services, including those necessary for mass evacuations.[3] Our experiences while carrying out this mission, which included managing the massive transportation needs for the evacuation of persons and the movement of supplies, equipment and teams in response to Hurricanes Katrina and Rita, confirm that transportation providers can respond within these expedited timeframes. Specifically, the contract that DOT had in place for transportation services required the contractor to acknowledge an order for service within one hour of receiving the order and to make transportation equipment available at the shipment place of origin to begin moving cargo and passengers within four hours from receipt of the order for service.[4]
In this proposed provision, DOT would only require acceptance or rejection of a rated order within an expedited timeframe and not actual fulfillment of the order within that timeframe. The expedited response periods proposed in this regulation are necessary in order for DOT to rapidly identify and obtain sufficient transportation resources to meet emergency response needs.
DOT is mindful, however, that some circumstances may necessitate closer coordination between DOT and the potential recipient of a rated order. For example, if a rated order is placed in preparation for an imminent hazard, such as a hurricane that is projected to make landfall in 13 hours, DOT obviously would not wish to learn at the end of the 12-hour window that the proposed supplier is unable to accept the rated order. In these situations, DOT would work closely with industry to identify and resolve any potential issues in order to meet the transportation requirements.
Not all regulations promulgated under FPAS contain such expedited notification requirements because those resources normally are not required immediately for emergency response as are transportation resources. However, for any orders issued under TPAS that “flow down” from the prime contractor to a subcontracted supplier of a necessary service, component, or part, the requirements of TPAS would apply to all subcontractors in the procurement or distribution chain. Therefore, transportation service providers should work with their suppliers to ensure they are aware that they may be asked to provide necessary services, parts, or components on an expedited basis.
Section 33.34 Preferential scheduling. This section would describe: (1) When a recipient of a rated order must modify production or delivery schedules to satisfy the delivery requirements of a rated order; (2) the order of precedence for rated, unrated, and conflicting orders; and (3) Start Printed Page 8679the use of inventoried production items when needed to fill a rated order.
Section 33.35 Extension of priority ratings. This section would require that the recipient of a rated order must, in turn, use rated orders with suppliers to obtain items or services needed to fill a rated order. The requirement would apply to all contractors and subcontractors throughout the procurement chain necessary to fill the rated order.
Section 33.36 Changes or cancellations of priority ratings and rated orders. This section would describe the procedures for changing or cancelling a priority rating or the provisions of a rated order. In addition, this section would list types of modifications that do not constitute a new rated order.
Section 33.37 Use of rated orders. This section would describe the process and procedures for when the recipient of a rated order: (1) Must use rated orders to obtain items and services needed to fulfill the rated order; (2) may use a rated order to replace inventoried items that were used to fulfill the order; (3) may combine orders with different priority ratings or with unrated orders; and (4) may forgo use of rated orders for orders below certain thresholds.
Section 33.38 Limitations on placing rated orders. This section would describe specific circumstances when the use of rated orders would be prohibited. This section also would prohibit the use of TPAS to obtain rated orders for a resource under the resource jurisdiction of other agencies with delegated Defense Production Act priorities and allocations authority, unless specifically authorized by the resource agency.
Section 33.40 General provisions. This section would explain the circumstances and procedures under which DOT would provide assistance in resolving problems related to priority rated contracts and orders. This section also would list the DOT points of contact and the form to be used to request assistance.
Section 33.41 Requests for priority rating authority. This section would establish the procedures to request rating authority under special circumstances. DOT may grant priority ratings for items and services not normally rated under the regulation in order to prevent a delay of a rated order. This section also would specify that rating authority for production or construction equipment must come from the Department of Commerce. Finally, this section would explain when DOT may authorize the use of a priority rating on an order to a supplier in advance of the issuance of a rated prime contract, and the factors DOT would consider in deciding whether to grant such a request.
Section 33.42 Examples of assistance. This section would list examples of when special priority assistance may be provided.
Section 33.43 Criteria for assistance. This section would require that a request for special priorities assistance be timely, that there be an urgent procurement need for the item, and that the applicant has made a reasonable effort to resolve the problem for which assistance is needed.
§ 33.44 Instances where assistance may not be provided. This section would list examples of when special priority assistance may not be provided.
Section 33.45 Assistance programs with other nations. Reserved.
Section 33.50 Policy. This section would explain the policy of the Federal Government regarding use of the allocations authority, which is based on the statutory language in section 101 of the Defense Production Act and the legislative history of section 101.[5] Specifically, allocation authority would only be used when priority authority is unable to provide a sufficient supply of a material, service, or facility to meet the national defense, or when the use of priority authority would cause a severe and prolonged disruption in the supply of materials, services, or facilities available to support normal U.S. economic activities.
Allocation authority would not be used to ration materials or services at the retail level. In other words, allocation authority would not be used to control how much of a product or service a person may have for personal use. For example, DOT could use allocation authority to require the nation's bus companies to dedicate 40% of their bus fleet to a designated emergency, but DOT could not use allocation authority to tell a bus company how to distribute its buses to serve its commercial customers or to tell a bus company how many tickets it could sell to persons in a given month.
Allocation orders would be distributed equitably among similarly situated suppliers of the resources being allocated and would not require any person to relinquish a disproportionate share of the civilian market. Allocation authority would not apply to resources owned by the Federal Government, as those resources may be used by the controlling Federal entity in accordance with other governing laws. Nor, generally speaking, would allocation authority apply to resources owned by States, local governments or Native American tribes, as that could potentially undermine other Federal laws. For example, the Stafford Act is designed “to provide an orderly and continuing means of assistance by the Federal Government to States and local governments in carrying out their responsibilities to alleviate the suffering and damage which results from * * * disasters. * * *” Thus, it would be counterproductive for the Federal Government to consider allocating for its own use the very resources the State, local or tribal government could be counting on as part of its response efforts.
The Civil Reserve Air Fleet (CRAF) and the Voluntary Intermodal Sealift Agreement (VISA) are two examples of DOT's use of its allocation authority.[6] Concerning CRAF, under the terms of a Memorandum of Understanding, DOT develops plans and allocates aircraft to the CRAF program based on DoD requirements. DOT advises DoD if it intends to allocate fewer aircraft than requested by DoD, notifies DoD if a particular level of CRAF activation will have a serious adverse impact on the civil air carrier's ability to provide essential service, and works with DoD to identify alternatives or determine ways to minimize the impact. DOT publishes a periodic allocation of aircraft, by registration or “N” number, of each airline participating in the CRAF program.
The VISA program is a preparedness program designed to make intermodal shipping services and systems available to DoD as required to support the emergency deployment and sustainment of U.S. military forces. This is done through cooperation among the Start Printed Page 8680maritime industry, DOT and DoD pursuant to a voluntary agreement entered into in accordance with Section 708 of the Defense Product Act (50 U.S.C. App. § 2158). During a Stage III activation, the Secretary of DoD will request the Secretary of DOT to allocate sealift capacity based on DoD requirements.
Section 33.51 General procedures. The proposed procedures set out in this section and in proposed section 33.52 are intended to provide a reasonable assurance that allocation authority would only be used in situations where such authority is justified. Section 33.51 would set out the specific requirements and findings that DOT must meet before it could use its allocation authority.
One requirement would be for DOT to obtain a written determination from either DoD, DHS or DOE, as appropriate, that the program DOT intends to support through its allocation authority is necessary or appropriate to support the national defense. As previously mentioned, section 202 of Executive Order 12919 requires such a finding before DOT can take an allocation action. Additionally, DOT would be required to provide a detailed description of the situation creating the need for allocation and the specific objectives to be obtained through the allocation action; a list of the materials, services, or facilities to be allocated, and of the sources that will be subject to the allocation action; a detailed description of the requirements to be contained in the allocation action, to include the percentage or quantity of capacity to be allocated and the duration of the allocation action; and an evaluation of the potential impact on the civilian market and proposed actions to mitigate any disruption of the civilian market.
Section 33.52 Controlling the general distribution of a material in the civilian market. This section would provide procedures for making the findings required by section 101(b) of the Defense Production Act and section 201(d) of Executive Order 12919. Defense Production Act section 101(b) states that the priorities and allocations authority shall not be used to control the general distribution of any material in the civilian market unless the President finds (1) that such material is a scarce and critical material essential to the national defense, and (2) that the requirements of the national defense for such material cannot otherwise be met without creating a significant dislocation of the normal distribution of such material in the civilian market to such a degree as to create appreciable hardship. Section 201(d) of Executive Order 12919 directs each agency with delegated authority under section 101 of the Defense Production Act to make the finding required by section 101(b) and submit the finding for the President's approval through the Assistant to the President for National Security Affairs. By definition under the Defense Production Act, services, including transportation services, are not considered a “material” as contemplated in section 101(b) of the Defense Production Act or section 201(d) of Executive Order 12919.
Section 33.53 Types of allocation orders. This section proposes to describe the three types of allocations orders DOT might issue: a set-aside; an allocation directive; or an allotment. A set-aside is an official action that would require a person to reserve a resource capacity in anticipation of receipt of rated orders. An allocation directive is an official action that would require a person to take or refrain from taking certain actions in accordance with its provisions. For example, an allocation directive could require a person to stop or reduce production of an item or service; prohibit the use of selected materials, services or facilities; divert supply of one type of material, service or facility to another; or to supply a specific quantity, size, shape, and type of an item or service within a specific time period. An allotment is an official action that would specify the maximum quantity of a material, service, or facility authorized for use in a specific program or application.
Section 33.54 Elements of an allocation order. This section would describe the minimum elements of an allocation order. These elements would be: (1) A detailed description of the required allocation action(s); (2) specific start and end calendar dates for each required allocation action; (3) the written signature on a manually placed order, or the digital signature or name on an electronically placed order, of the Secretary of DOT, which would certify that the order is authorized under this regulation and that the requirements of this part are being followed; (4) a statement that the order is certified for national defense use and that recipients are required to comply with the order; and (5) a copy of the Transportation Priorities and Allocations System regulation.
Section 33.55 Mandatory acceptance of an allocation order. This section would require a person to accept and comply with allocation orders if the person is capable of complying. If a person is unable to comply fully with the required actions specified in an allocation order, the person would be required to notify DOT immediately, explain the extent to which compliance is possible, and give reasons why full compliance is not possible. Furthermore, notifying DOT of possible non-compliance does not release the person from complying with the allocation order to the extent possible.
This section also would state that a person may not discriminate against an allocation order in any manner, such as by charging higher prices or imposing terms and conditions on allocation orders that are different from what the person imposed on contracts or orders for the same resource prior to receiving the allocation order.
Section 33.56 Changes or cancellations of an allocation order. This section would state that DOT may modify or cancel an allocation order.
Section 33.60 General provisions. This section would set out the specific official actions that DOT may take to implement the provisions of this regulation. These official actions include Rating Authorizations, Directives, Planning Orders, and Memoranda of Understanding.
Section 33.61 Rating authorizations. This section would define a rating authorization as an official action granting priority rating authority.
Section 33.62 Directives. This section would define a directive as an official action that requires a person to take or refrain from taking certain actions in accordance with its provisions. A priority directive would take precedence over rated orders, and allocation directives take precedence over a priority directive.
Section 33.63 Memoranda of Understanding. This section would explain that a Memorandum of Understanding is an official action that may be issued to reflect an agreement resolving a request for special priorities assistance. A Memorandum of Understanding may not be used to alter scheduling between rated orders, authorize the use of priority ratings, impose restrictions under this regulation, or take other official actions.
Section 33.70 General provisions. This section would clarify that DOT has the authority to enforce or administer the Defense Production Act, this regulation, or an official action. Additionally, this section would state that willful violations of title I or section 705 of the Defense Production Act, this regulation, or an official DOT action, are criminal acts, punishable as provided in the Defense Production Act, and as set forth in § 33.74 below.Start Printed Page 8681
Section 33.71 Audits and investigations. This section would provide the procedures for conducting audits and investigations to ensure that the provisions of the Defense Production Act and other applicable statutes, this regulation, and official actions have been properly followed. This provision is limited to activities conducted under DPA authorities and would not limit the authority of DOT elements to initiate and conduct audits, investigations, or other inquiries under their specific statutes or authorities, nor would it affect the process for such audits, investigations or inquiries.
Section 33.72 Compulsory process. This section would explain the procedures DOT may use to seek a compulsory process if a person refuses to permit a duly authorized DOT representative to have access to any premises or any necessary information. For purposes of this regulation, compulsory process would mean the institution of appropriate legal action, including ex parte application for an inspection warrant or its equivalent in any forum of appropriate jurisdiction. Furthermore, compulsory process under this regulation may be sought in advance of an audit or investigation if DOT believes a person will refuse to comply with the audit or investigation.
Section 33.73 Notification of failure to comply. This section would provide procedures for notification of failure to comply with the Defense Production Act, other applicable statutes, this regulation, or an official DOT action.
Section 33.74 Violations, penalties, and remedies. This section would set out the penalties and related actions the Government may take for violations of the provisions of title I or sections 705 or 707 of the Defense Production Act, the priorities provisions of the Selective Service Act, when applicable, this regulation, or an official DOT action.
Section 33.75 Compliance conflicts. This section would require persons to immediately notify DOT if compliance with any provision of the Defense Production Act, other applicable statutes, this part, or an official action would prevent a person from filling a rated order or from complying with another provision of the Defense Production Act, other applicable statutes, this regulation, or an official action.
Section 33.80 Adjustments or exceptions. This section would describe the procedures necessary to request an adjustment or exception to a provision of this regulation or an official action on the grounds that it would create an undue or exceptional hardship or compliance is contrary to the intent of the Defense Production Act or this regulation. Such requests must be submitted in writing and the submission of a request for adjustment or exception does not relieve the requester from compliance while the request is being considered by DOT.
Section 33.81 Appeals. This section would provide procedures and timeframes for appealing a decision denying relief from a request for an adjustment or exception under this regulation. This section would provide for an expedited procedure for appeals involving a rated order placed for the purpose of emergency preparedness.
Section 33.90 Protection against claims. This section would provide that a person shall not be held liable for damages or penalties for any act or failure to act resulting directly or indirectly from compliance with any provision of this regulation or an official action. This “hold harmless” provision applies even if any provision of this regulation or action is subsequently declared to be invalid by judicial or other competent authority.
Section 33.91 Records and reports. This section would require persons to create and preserve for at least three years accurate and complete records of any transaction covered by this regulation or an official action. This section also would detail the various requirements pertaining to the required records and reports. In addition, this section would describe the confidentiality provision of the Defense Production Act pertaining to information submitted under the Defense Production Act or this regulation.
Section 33.92 Applicability of this part and official actions. This section would establish the jurisdictional applicability of this regulation.
Section 33.93 Communications. This section would provide DOT contact information for communications concerning this regulation.
This proposed rule is a “significant regulatory action” under section 3(f) of Executive Order 12866, Regulatory Planning and Review. While the requirements under title I of the Defense Production Act have been in existence for years, these proposed regulations are new to the transportation industry and could be considered to raise novel legal or policy issues under section 3(f)(4) of Executive Order 12866. The proposed rule is not economically significant, however, as it would not have an annual economic impact of over $100 million.
This proposed rule has been analyzed in accordance with the principles and criteria contained in Executive Order 13132, Federalism. This proposed rule would not have a substantial direct effect on, or sufficient federalism implications for, the States, nor would it limit the policymaking discretion of the States. Therefore, the consultation requirements of Executive Order 13132 do not apply.
This proposed rule has been analyzed in accordance with the principles and criteria contained in Executive Order 13175 Consultation and Coordination with Indian Tribal Governments. Because this proposed rule would not significantly or uniquely affect the communities of the Indian tribal governments and would not impose substantial direct compliance costs, the funding and consultation requirements of Executive Order 13175 would not apply.
The Regulatory Flexibility Act (5 U.S.C. 601 et seq.) requires an agency to review regulations to assess their impact on small entities unless the agency determines that a rule is not expected to have significant impact on a substantial number of small entities.
Small entities include small businesses, small organizations and small governmental jurisdictions. For purposes of assessing the impacts of this proposed rule on small entities, a small business, as described in the Small Business Administration's Table of Small Business Size Standards Matched to North American Industry Classification System Codes (August 2008 Edition), has a maximum annual revenue of $33.5 million and a maximum of 1,500 employees (for some business categories, these numbers are lower). A small governmental jurisdiction is a government of a city, town, school district or special district with a population of less than 50,000. A small organization is any not-for-profit enterprise that is independently owned and operated and is not dominant in its field.Start Printed Page 8682
This proposed regulation would set criteria under which DOT would authorize prioritization of certain orders or contracts, as well as criteria under which DOT would issue orders allocating materials, services, or facilities. Because the proposed rule would mainly be used for larger commercial transportation operations, DOT believes that small organizations and small governmental jurisdictions are unlikely to be affected by this proposed rule. To date, DOT has not exercised its existing priorities authority and has only exercised its existing allocations authority for one aviation program and one sealift program, both of which rely on voluntary engagement by industry. Therefore, DOT has no basis on which to estimate the number of small businesses that might be affected by promulgation of this proposed rule.
Although DOT cannot determine precisely the number of small entities that would be affected by this proposed rule, DOT believes that the overall impact on such entities would not be significant. In most instances, rated contracts would be fulfilled in addition to other (unrated) contracts and could actually increase the total amount of business for a firm that receives a rated contract. DOT expects that allocations would be ordered only in extraordinary circumstances, other than in the two well-established, voluntary programs discussed above. Furthermore, DOT believes that the provisions of section 701(e) of the Defense Production Act, which requires that small businesses be considered in allocations, indicate that any impact on small business would not be significant.
Therefore, for the reasons set forth above, I certify that this proposed rule, if implemented, would not have a significant economic impact on a substantial number of small entities.
This proposed rule contains an information collection requirement. As required by the Paperwork Reduction Act of 1995 (44 U.S.C. 3501-3520), DOT has submitted the information requirement to the Office of Management and Budget (OMB) for review. DOT estimates that the public reporting burden for submission of Form OST F 1254 is an average of 30 minutes per response, including the time for reviewing instructions, searching existing data sources, gathering and maintaining the data needed, and completing and reviewing the collection of information.
DOT is seeking public comment on any aspect of the information collection, including: (1) Whether the proposed collection is necessary for DOT's performance; (2) the accuracy of the estimate burdens; (3) ways for DOT to enhance the quality, usefulness, and clarity of the collected information; and (4) ways that the burden could be minimized without reducing the quality of the collected information. Organizations and individuals desiring to submit comments on the collection of information should direct them to the Office of Management and Budget, Attention: Desk Officer for the Office of the Secretary of Transportation, Office of Information and Regulatory Affairs, Washington, DC 20505. Comments should also be sent to the Department of Transportation, Attn: Defense Production Act Activities Coordinator, Office of Intelligence, Security, and Emergency Response, 1200 New Jersey Avenue, SE., Washington DC 20590.
We will respond to any OMB or public comments on the information collection requirement contained in this proposed rule. DOT may not impose a penalty on persons for violating information collection requirements that do not display a current OMB control number, if required. DOT intends to obtain a current OMB control number for the information collection requirements that would result from this proposed rulemaking action. The OMB control number, when assigned, will be announced by separate notice in the Federal Register.
Raymond LaHood,
In consideration of the foregoing, the Department proposes to add Part 33 of Title 49, Code of Federal Regulations, to read as follows:
Appendix I to Part 33—Sample Form OST F 1254
Authority: Defense Production Act of 1950, as amended, 50 U.S.C. App. 2061-2171; Executive Order 12919, as amended, (59 FR 29525, June 7, 1994).
This part provides guidance and procedures for use of the Defense Production Act priorities and allocations authority with respect to all forms of civil transportation. The Start Printed Page 8683guidance and procedures in this part are generally consistent with the guidance and procedures provided in other regulations that, as a whole, form the Federal Priorities and Allocations System. Guidance and procedures for use of the Defense Production Act priorities and allocations authority with respect to other types of resources are provided for: food resources, food resource facilities, and the domestic distribution of farm equipment and commercial fertilizer in the Agricultural Priorities and Allocation Systems at 7 CFR part 700; all forms of energy in the Energy Priorities and Allocations System regulation at 10 CFR part 217; health resources in the Health Resources Priorities and Allocations System at [CFR citation to be inserted in the final rule]; water resources in the Water Resources Priorities and Allocations System at [CFR citation to be inserted in the final rule]; and all other materials, services, and facilities, including construction materials in the Defense Priorities and Allocations System (DPAS) regulation at 15 CFR part 700.
§ 33.2
(a) Section 201 of Executive Order 12919 (59 FR 29525) delegates the President's authority under section 101 of the Defense Production Act to require acceptance and priority performance of contracts and orders (other than contracts of employment) to promote the national defense over performance of any other contracts or orders, and to allocate materials, services, and facilities as deemed necessary or appropriate to promote the national defense to:
(b) Section 202 of Executive Order 12919 states that the priorities and allocations authority delegated in section 201 of the order may be used only to support programs that have been determined in writing as necessary or appropriate to promote the national defense:
(1) By the Secretary of Defense with respect to military production and construction, military assistance to foreign nations, stockpiling, outer space, and directly related activities;
(3) By the Secretary of Homeland Security with respect to essential civilian needs supporting national defense, including civil defense and continuity of government and directly related activities.
Certain programs to promote the national defense are eligible for priorities and allocations support. These include programs for military and energy production or construction, military or critical infrastructure assistance to any foreign nation, homeland security, stockpiling, space, and any directly related activity. Other eligible programs include emergency preparedness activities conducted pursuant to title VI of the Robert T. Stafford Disaster Relief and Emergency Assistance Act (42 U.S.C. 5195 et seq.) and critical infrastructure protection and restoration.
§ 33.20
“Allocation” means the control of the distribution of materials, services, or facilities for a purpose deemed necessary or appropriate to promote the national defense.
“Allocation authority” means the authority of the Department of Transportation, pursuant to section 101 of the Defense Production Act, to allocate materials, services, and facilities for use in approved programs.
“Allocation order” means an official action to control the distribution of materials, services, or facilities for a purpose deemed necessary or appropriate to promote the national defense.
“Allotment ” means an official action that specifies the maximum quantity of a material, service, or facility authorized for a specific use to promote the national defense.
“Approved program” means a program determined by the Secretary of Defense, the Secretary of Energy, or the Secretary of Homeland Security to be necessary or appropriate to promote the national defense, in accordance with section 202 of Executive Order 12919.
“Civil transportation” includes movement of persons and property by all modes of transportation in interstate, intrastate, or foreign commerce within the United States, its territories and possessions, and the District of Columbia, and, without limitation, related public storage and warehousing, ports, services, equipment and facilities, such as transportation carrier shop and repair facilities. However, “civil transportation” shall not include transportation owned or controlled by the Department of Defense, use of petroleum and gas pipelines, and coal slurry pipelines used only to supply energy production facilities directly. As applied herein, “civil transportation” shall include direction, control, and coordination of civil transportation capacity regardless of ownership.
“Construction” means the erection, addition, extension, or alteration of any building, structure, or project, using materials or products which are to be an integral and permanent part of the building, structure, or project. Construction does not include maintenance and repair.
“Critical infrastructure” means any systems and assets, whether physical or cyber-based, so vital to the United States that the degradation or destruction of such systems and assets would have a debilitating impact on national security, including, but not limited to, national economic security and national public health or safety.
“Delegate Agency” means a government agency authorized by delegation from the Department of Transportation to place priority ratings on contracts or orders needed to support approved programs.
“Directive” means an official action that requires a person to take or refrain from taking certain actions in accordance with its provisions.
“Emergency preparedness” means all those activities and measures designed or undertaken to prepare for or minimize the effects of a hazard upon the civilian population, to deal with the immediate emergency conditions which would be created by the hazard, and to effectuate emergency repairs to, or the emergency restoration of, vital utilities and facilities destroyed or damaged by the hazard. Such term includes the following:
(1) Measures to be undertaken in preparation for anticipated hazards (including the establishment of appropriate organizations, operational plans, and supporting agreements, the recruitment and training of personnel, the conduct of research, the procurement and stockpiling of Start Printed Page 8684necessary materials and supplies, the provision of suitable warning systems, the construction or preparation of shelters, shelter areas, and control centers, and, when appropriate, the nonmilitary evacuation of the civilian population).
“Energy” means all forms of energy including petroleum, gas (both natural and manufactured), electricity, solid fuels (including all forms of coal, coke, coal chemicals, coal liquification, and coal gasification), and atomic energy, and the production, conservation, use, control, and distribution (including pipelines) of all of these forms of energy.
“Facilities” includes all types of buildings, structures, or other improvements to real property (but excluding farms, churches or other places of worship, and private dwelling houses), and services relating to the use of any such building, structure, or other improvement.
“Fertilizer” means any product or combination of products that contain one or more of the elements—nitrogen, phosphorus, and potassium—for use as a plant nutrient.
“Food resources” means all commodities and products, simple, mixed, or compound, or complements to such commodities or products, that are capable of being ingested by either human beings or animals, irrespective of other uses to which such commodities or products may be put, at all stages of processing from the raw commodity to the products thereof in vendible form for human or animal consumption. “Food resources” also means all starches, sugars, vegetable and animal or marine fats and oils, cotton, tobacco, wool, mohair, hemp, flax fiber, and naval stores, but does not mean any such material after it loses its identity as an agricultural commodity or agricultural product.
“Food resource facilities” means plants, machinery, vehicles (including on-farm), and other facilities required for the production, processing, distribution, and storage (including cold storage) of food resources, livestock and poultry feed and seed, and for the domestic distribution of farm equipment and fertilizer (excluding transportation thereof).
“Hazard” means an emergency or disaster resulting from—
“Health resources” means materials, facilities, health supplies, and equipment (including pharmaceutical, blood collecting and dispensing supplies, biological, surgical textiles, and emergency surgical instruments and supplies) required to prevent the impairment of, improve, or restore the physical and mental health conditions of the population.
“Homeland security” includes efforts—
“Item” means any raw, in process, or manufactured material, article, commodity, supply, equipment, component, accessory, part, assembly, or product of any kind, technical information, process, or service.
“Local government” means a county, municipality, city, town, township, local public authority (including any public and Indian housing agency under the United States Housing Act of 1937) school district, special district, intrastate district, council of governments (whether or not incorporated as a nonprofit corporation under state law), any other regional or interstate government entity, or any agency or instrumentality of a local government.
“Maintenance and repair and operating supplies” or “MRO”—
“Materials” includes—
“National defense” means programs for military and energy production or construction, military or critical infrastructure assistance to any foreign nation, homeland security, stockpiling, space, and any directly related activity. Such term includes emergency preparedness activities conducted pursuant to title VI of the Robert T. Stafford Disaster Relief and Emergency Assistance Act and critical infrastructure protection and restoration.
“Official action” means an action taken by the Department of Transportation or another resource agency under the authority of the Defense Production Act, Executive Order 12919, and this part or another regulation under the Federal Priorities and Allocations System. Such actions include, but are not limited to, the issuance of Rating Authorizations, Directives, Set Asides, Allotments, Planning Orders, Memoranda of Understanding, Demands for Information, Inspection Authorizations, and Administrative Subpoenas.
“Person” includes an individual, corporation, partnership, association, or any other organized group of persons, or legal successor or representative thereof, or any State or local government or agency thereof.
“Planning order” means notification of tentative arrangements to meet national Start Printed Page 8685defense requirements issued in priority order or allocation order format, for planning purposes only.
“Rated order” means a prime contract, a subcontract, or a purchase order in support of an approved program issued in accordance with the provisions of this part.
“Resource agency” means any agency delegated priorities and allocations authority as specified in § 33.2.
“Services” includes any effort that is needed for or incidental to—
“Set-aside” means an official action that requires a person to reserve materials, services, or facilities capacity in anticipation of the receipt of rated orders.
“Stafford Act” means title VI (Emergency Preparedness) of the Robert T. Stafford Disaster Relief and Emergency Assistance Act, as amended (42 U.S.C. 5195-5197g).
“State” means any of the several States of the United States, the District of Columbia, the Commonwealth of Puerto Rico, any territory or possession of the United States, or any agency or instrumentality of a State exclusive of local governments. The term does not include any public and Indian housing agency under United States Housing Act of 1937.
“Water resources” means all usable water, from all sources, within the jurisdiction of the United States, which can be managed, controlled, and allocated to meet emergency requirements.
§ 33.30
The priorities and allocations authorities of the President under title I of the Defense Production Act with respect to all forms of civil transportation have been delegated to the Secretary of Transportation under section 201(a)(4) of Executive Order 12919 of June 3, 1994 (59 FR 29525).
§ 33.31
(1) There are two levels of priority established by set of regulations that comprise the Federal Priorities and Allocations System regulations, identified by the rating symbols “DO” and “DX”.
(2) All DO-rated orders have equal priority with each other and take precedence over unrated orders. All DX-rated orders have equal priority with each other and take precedence over DO-rated orders and unrated orders. (For resolution of conflicts among rated orders of equal priority, see § 33.34(c).)
(3) In addition, a Directive regarding priority treatment for a given item issued by the resource agency with priorities jurisdiction for that item takes precedence over any DX-rated order, DO-rated order, or unrated order, as stipulated in the Directive. (For a full discussion of Directives, see § 33.62.)
(b) Program identification symbols. Program identification symbols indicate which approved program is being supported by a rated order. DOT will use the letter “T” followed by a letter and a number for all transportation-related approved programs. Programs may be approved under the procedures of Executive Order 12919 at any time. Program identification symbols, in themselves, do not connote any priority.
(c) Priority ratings. A priority rating consists of the rating symbol—DO and DX—and the program identification symbol, such as DO-T-L1 or DX-T-L1 for a priority rating under TPAS.
§ 33.32
(a) The appropriate priority rating (e.g. DO-T or DX-T);
(b) A required delivery date or dates. The words “immediately” or “as soon as possible” do not constitute a delivery date. A “requirements contract,” “basic ordering agreement,” “prime vendor contract,” or similar procurement document bearing a priority rating may contain no specific delivery date or dates and may provide for the furnishing of items or service from time-to-time or within a stated period against specific purchase orders, such as “calls,” “requisitions,” and “delivery orders”. These purchase orders must specify a required delivery date or dates and are to be considered as rated as of the date of their receipt by the supplier and not as of the date of the original procurement document;
This is a rated order certified for national defense use, and you are required to follow all the provisions of the Transportation Priorities and Allocations System regulation at 49 CFR part 33.
This rated order is placed for the purpose of emergency preparedness. It must be accepted or rejected within [INSERT NUMBER OF HOURS REQUIRED IN § 33.33] hours from receipt of the order, in accordance with § 33.33(e) of the Transportation Priorities and Allocations System regulation at 49 CFR Part 33.
§ 33.33
(a) Mandatory acceptance.
(1) Except as otherwise specified in this section, a person shall accept every rated order received and must fill such orders regardless of any other rated or unrated orders that have been accepted.
(b) Mandatory rejection. Unless otherwise directed by the Department of Transportation for a rated order involving all forms of civil transportation:
(3) A person shall not accept a DX-rated order for delivery on a date which would interfere with delivery of any previously accepted DX-rated orders, but must offer to accept the order based on the earliest delivery date otherwise possible.Start Printed Page 8686
(5) A person shall not accept a rated order if the person is prohibited by Federal law from meeting the terms of the order.
(c) Optional rejection. Unless otherwise directed by the Department of Transportation for a rated order involving all forms of civil transportation, rated orders may be rejected in any of the following cases as long as a supplier does not discriminate among customers:
(5) If acceptance of a rated order or performance against a rated order would violate any other regulation, official action, or order of the Department of Transportation, issued under the authority of the Defense Production Act or another relevant statute.
(d) Customer notification requirements.
(1) Except as provided in paragraph (e) of this section, a person must accept or reject a rated order in writing or electronically within fifteen (15) calendar days after receipt of a DO rated order and within ten (10) calendar days after receipt of a DX rated order. If the order is rejected, the person must give reasons in writing or electronically for the rejection.
(2) If a person has accepted a rated order and subsequently finds that shipment or performance will be delayed, the person must notify the customer immediately, give the reasons for the delay, and advise of a new shipment or performance date. If notification is given verbally, written or electronic confirmation must be provided within five (5) calendar days.
(e) Exception for emergency preparedness conditions. If a rated order is placed for the purpose of emergency preparedness and includes the additional statement set forth in § 33.32(d)(2), a person must accept or reject the rated order and transmit the acceptance or rejection in writing or in an electronic format:
(1) Within six (6) hours after receipt of the order if the order is issued in response to a hazard that has occurred; or
(2) Within the greater of twelve (12) hours from receipt of the order or the time specified in the order, if the order is issued to prepare for an imminent hazard.
§ 33.34
(2) If a person is unable to resolve rated order delivery or performance conflicts under this section, the person should promptly seek special priorities assistance as provided in §§ 33.40 through 33.44. If the person's customer objects to the rescheduling of delivery or performance of a rated order, the customer should promptly seek special priorities assistance as provided in §§ 33.40 through 33.44. For any rated order against which delivery or performance will be delayed, the person must notify the customer as provided in § 33.33.
(d) If a person is unable to purchase needed production items in time to fill a rated order by its required delivery date, the person must fill the rated order by using inventoried production items. A person who uses inventoried items to fill a rated order may replace those items with the use of a rated order as provided in § 33.37(b).
§ 33.35
(a) A person must use rated orders with suppliers to obtain items or services needed to fill a rated order. The person must use the priority rating indicated on the customer's rated order, except as otherwise provided in this part or as directed by the Department of Transportation. For example, if a person is in receipt of a DO-T-L1 rated order for a bus and needs to purchase brakes for its use, that person must use a DO-T-L1 rated order to obtain the needed brakes.
§ 33.36
(1) An official action of the Department of Transportation; or
(c) An amendment to a rated order that significantly alters a supplier's Start Printed Page 8687original production or delivery schedule shall constitute a new rated order as of the date of its receipt. The supplier must accept or reject the amended order according to the provisions of § 33.33.
§ 33.37
(3) If the priority ratings on rated orders from one customer or several customers contain different program identification symbols, the rated orders may be combined. In this case, the program identification symbol “E1” must be used (i.e., DO-T-E1).
(c) A person may combine DX- and DO-rated orders from one customer or several customers if the items or services covered by each level of priority are identified separately and clearly. If different program identification symbols are indicated on those rated orders of equal priority, the person must use the program identification symbol “E1” (i.e., DO-T-E1 or DX-T-E1).
(d) Combining rated and unrated orders.
(ii) The four elements of a rated order, as required by § 33.32, are included on the order with the statement required in § 33.32(d) modified to read in substance:
This purchase order contains rated order quantities certified for national defense use, and you are required to follow all the provisions of the Transportation Priorities and Allocations System regulations at 49 CFR part 33 only as it pertains to the rated quantities.
(2) A supplier must accept or reject the rated portion of the purchase order as provided in § 33.33 and give preferential treatment only to the rated quantities as required by this part. This part may not be used to require preferential treatment for the unrated portion of the order.
(3) Any supplier who believes that rated and unrated orders are being combined in a manner contrary to the intent of this part or in a fashion that causes undue or exceptional hardship may submit a request for adjustment or exception under section 33.80.
(f) A person is not required to place a priority rating on an order for less than $50,000, or one-half of the Simplified Acquisition Threshold (as established in the Federal Acquisition Regulations (FAR) (see FAR section 2.101) or in other authorized acquisition regulatory or management systems), whichever amount is greater, provided that delivery can be obtained in a timely fashion without the use of the priority rating.
§ 33.38
(i) Delivery or performance on a date earlier than needed;
(iii) Items or services in advance of the receipt of a rated order, except as specifically authorized by the Department of Transportation (see § 33.41(c) for information on obtaining authorization for a priority rating in advance of a rated order);
(iv) Items that are not needed to fill a rated order, except as specifically authorized by the Department of Transportation, or as otherwise permitted by this part;
(v) Any of the following items unless specific priority rating authority has been obtained from the Department of Transportation, a Delegate Agency, or the Department of Commerce, as appropriate:
(B) Production or construction equipment or items to be used for the manufacture of production equipment (For information on requesting priority rating authority, see § 33.41); or
(2) All forms of energy, including radioisotopes, stable isotopes, source material, and special nuclear material produced in Government-owned plants or facilities operated by or for the Department of Energy (Resource agency with jurisdiction—Department of Energy);
(3) Health resources (Resource agency with jurisdiction—Department of Health and Human Services);
(5) Communications services (Resource agency with jurisdiction—National Communications System under Executive Order 12472 of April 3, 1984).
§ 33.40
(a) TPAS is designed to be largely self-executing. However, from time-to-time production or delivery problems will arise. In this event, a person should immediately contact DOT's Defense Production Act Activities Coordinator, Office of Intelligence, Security, and Emergency Response, 1200 New Jersey Avenue, SE., Washington, DC 20590, for guidance or assistance. If the problem(s) cannot otherwise be resolved, special priorities assistance should be sought from the Department of Transportation through the Director, Office of Intelligence, Security, and Emergency Response, 1200 New Jersey Avenue, SE., Washington, DC 20590. If the Department of Transportation is unable to resolve the problem or to authorize the use of a priority rating and believes additional assistance is warranted, the Department of Transportation may forward the request to another resource agency, as appropriate, for action. Special priorities assistance is a service provided to alleviate problems that do arise.
(c) A request for special priorities assistance or priority rating authority must be submitted on Form OST F 1254 (OMB control number to be inserted in the final rule) to the Defense Production Act Activities Coordinator, Office of Intelligence, Security, and Emergency Response, 1200 New Jersey Avenue, SE., Washington, DC 20590. Form OST F 1254 may be obtained from the Department of Transportation or a Delegate Agency. A sample Form OST F 1254 is attached at Appendix I.
§ 33.41
(b) Rating authority for production or construction equipment.
(1) A request for priority rating authority for production or construction equipment must be submitted to the U.S. Department of Commerce on FORM BIS-999.
(c) Rating authority in advance of a rated prime contract.
(1) In certain cases and upon specific request, the Department of Transportation, in order to promote the national defense, may authorize a person to place a priority rating on an order to a supplier in advance of the issuance of a rated prime contract. In these instances, the person requesting advance rating authority must obtain sponsorship of the request from the Department of Transportation or the appropriate Delegate Agency. The person shall also assume any business risk associated with the placing of rated orders if these orders have to be cancelled in the event the rated prime contract is not issued.
It is understood that the authorization of a priority rating in advance of our receiving a rated prime contract from the Department of Transportation and our use of that priority rating with our suppliers in no way commits the Department of Transportation or any other government agency to enter into a contract or order or to expend funds. Further, we understand that the Federal Government shall not be liable for any cancellation charges, termination costs, or other damages that may accrue if a rated prime contract is not eventually placed and, as a result, we must subsequently cancel orders placed with the use of the priority rating authorized as a result of this request.
(3) In reviewing requests for rating authority in advance of a rated prime contract, the Department of Transportation will consider, among other things, the following criteria:
(4) The Department of Transportation may require periodic reports on the use of the rating authority granted under paragraph (c) of this section.
§ 33.42
§ 33.43
§ 33.44
Special priorities assistance is provided at the discretion of the Department of Transportation or the Delegate Agencies, when it is determined that such assistance is warranted to meet the objectives of this part. Examples where assistance may not be provided include situations when a person is attempting to:
(d) Disrupt an industry apportionment program in a manner designed to provide a person with an unwarranted share of scarce items; orStart Printed Page 8689
§ 33.45
§ 33.50
§ 33.51
When the Department of Transportation plans to execute its allocations authority to address a supply problem within its resource jurisdiction, the Department shall develop a plan that includes the following information:
(a) A copy of the written determination made in accordance with section 202 of Executive Order 12919, that the program or programs that would be supported by the allocation action are necessary or appropriate to promote the national defense;
(f) A detailed description of the provisions that will be included in the allocation orders, including the type(s) of allocation orders, the percentages or quantity of capacity or output to be allocated for each purpose, and the duration of the allocation action (e.g., anticipated start and end dates);
§ 33.52
No allocation action by the Department of Transportation may be used to control the general distribution of a material in the civilian market, unless the Secretary of the Department of Transportation has:
(a) Made a written finding that:
(1) Such material is a scarce and critical material essential to the national defense, and
(2) The requirements of the national defense for such material cannot otherwise be met without creating a significant dislocation of the normal distribution of such material in the civilian market to such a degree as to create appreciable hardship;
(b) Submitted the finding for the President's approval through the Assistant to the President for National Security Affairs; and
(c) The President has approved the finding.
§ 33.53
(a) Set-aside: An official action that requires a person to reserve materials, services, or facilities capacity in anticipation of the receipt of rated orders;
(b) Directive: An official action that requires a person to take or refrain from taking certain actions in accordance with its provisions. For example, a directive can require a person to: Stop or reduce production of an item; prohibit the use of selected materials, services, or facilities; or divert the use of materials, services, or facilities from one purpose to another; and
(c) Allotment: An official action that specifies the maximum quantity of a material, service, or facility authorized for a specific use.
§ 33.54
§ 33.55
(c) If a person is unable to comply fully with the required action(s) specified in an allocation order, the person must notify the Department of Transportation immediately, explain the extent to which compliance is possible, and give the reasons why full compliance is not possible. If notification is given verbally, written or electronic confirmation must be provided within five (5) calendar days. Such notification does not release the person from complying with the order to the fullest extent possible, until the person is notified by the Department of Transportation that the order has been changed or cancelled.
§ 33.56
An allocation order may be changed or canceled by an official action of the Department of Transportation.
§ 33.60
(a) The Department of Transportation may take specific official actions to implement the provisions of this part.
(b) These official actions include, but are not limited to, Rating Authorizations, Directives, Planning Orders, and Memoranda of Understanding.
§ 33.61
(b) To request priority rating authority, see § 33.41.
§ 33.62
§ 33.63
(a) A Memorandum of Understanding is an official action that may be issued in resolving special priorities assistance cases to reflect an agreement reached by all parties (the Department of Transportation, the Department of Commerce (if applicable), a Delegate Agency (if applicable), the supplier, and the customer).
(b) A Memorandum of Understanding is not used to alter scheduling between rated orders, authorize the use of priority ratings, impose restrictions under this part, or take other official actions. Rather, Memoranda of Understanding are used to confirm production or shipping schedules that do not require modifications to other rated orders.
§ 33.70
(a) The Department of Transportation may take specific official actions for any reason necessary or appropriate to the enforcement or the administration of the Defense Production Act and other applicable statutes or this part. Such actions include Administrative Subpoenas, Demands for Information, and Inspection Authorizations.
(c) Willful violation of the provisions of title I or Section 705 of the Defense Production Act and other applicable statutes, this part, or an official action of the Department of Transportation, is a criminal act, punishable as provided in the Defense Production Act and other applicable statutes, and as set forth in § 33.74 of this part.
(a) Audits and investigations are official actions involving the examination of books, records, documents, other writings and information to ensure that the provisions of the Defense Production Act and other applicable statutes, this part, and official actions have been properly followed. An audit or investigation may also include interviews and a systems evaluation to detect problems or failures in the implementation of this part.
(b) When undertaking an audit, investigation, or other inquiry, the Department of Transportation shall:
(c) In administering this part, the Department of Transportation may issue the following documents that constitute official actions:
(1) Administrative Subpoenas. An Administrative Subpoena requires a person to appear as a witness before an official designated by the Department of Transportation to testify under oath on matters of which that person has knowledge relating to the enforcement or the administration of the Defense Production Act and other applicable statutes, this part, or official actions. An Administrative Subpoena may also require the production of books, papers, records, documents and physical objects or property.
(2) Demands for Information. A Demand for Information requires a person to furnish to a duly authorized representative of the Department of Transportation any information necessary or appropriate to the enforcement or the administration of the Defense Production Act and other applicable statutes, this part, or official actions.
(3) Inspection Authorizations. An Inspection Authorization requires a person to permit a duly authorized representative of the Department of Transportation to interview the person's employees or agents, to inspect books, records, documents, other writings, and information, including electronically-stored information, in the person's possession or control at the place where that person usually keeps them or otherwise, and to inspect a person's property when such interviews and inspections are necessary or appropriate to the enforcement or the administration of the Defense Production Act and related statutes, this part, or official actions.
(d) The production of books, records, documents, other writings, and information will not be required at any place other than where they are usually kept if, prior to the return date specified in the Administrative Subpoena or Demand for Information, a duly authorized official of the Department of Transportation is furnished with copies of such material that are certified under oath to be true copies. As an alternative, a person may enter into a stipulation with a duly authorized official of the Department of Transportation as to the content of the material.
(e) An Administrative Subpoena, Demand for Information, or Inspection Authorization, shall include the name, title, or official position of the person issuing the document and of the person to be served, the evidence sought to be adduced, and its general relevance to the scope and purpose of the audit, investigation, or other inquiry. If employees or agents are to be interviewed; if books, records, documents, other writings, or information are to be produced; or if property is to be inspected; the Administrative Subpoena, Demand for Information, or Inspection Authorization will describe them with particularity.
(2) Service upon other than an individual may be made by serving a partner, corporate officer, or a managing or general agent authorized by appointment or by law to accept service of process. If an agent is served, a copy of the document shall be mailed to the person named in the document.Start Printed Page 8691
(g) This section is neither intended to limit the authority of the Inspector General of the Department of Transportation to initiate and conduct audits and investigations nor confer additional authority beyond that provided by the Inspector General Act.
§ 33.72
(a) If a person refuses to permit a duly authorized representative of the Department of Transportation to have access to any premises or source of information necessary to the administration or the enforcement of the Defense Production Act and other applicable statutes, or this part, the Department of Transportation representative may seek compulsory process. Compulsory process means the institution of appropriate legal action, including ex parte application for an inspection warrant or its equivalent, in any forum of appropriate jurisdiction.
(b) Compulsory process may be sought in advance of an audit, investigation, or other inquiry, if, in the judgment of DOT there is reason to believe that a person will refuse to permit an audit, investigation, or other inquiry, or that other circumstances exist which make such process desirable or necessary.
§ 33.73
(a) At the conclusion of an audit, investigation, or other inquiry, or at any other time, the Department of Transportation may inform the person in writing where compliance with the requirements of the Defense Production Act and other applicable statutes, this part, or an official action were not met.
(b) In cases where the Department of Transportation determines that failure to comply with the provisions of the Defense Production Act and other applicable statutes, this part, or an official action was inadvertent, the person may be informed in writing of the particulars involved and the corrective action to be taken. Failure to take corrective action may then be construed as a willful violation of the Defense Production Act and other applicable statutes, this part, or an official action.
(a) Willful violation of the provisions of title 1 or section 705 or 707 of the Defense Production Act, the priorities provisions of the Selective Service Act, this part, or an official action, is a crime and upon conviction, a person may be punished by fine or imprisonment, or both. The maximum penalty currently provided by the Defense Production Act is a $10,000 fine, or one year in prison, or both. The maximum penalty currently provided by the Selective Service Act is a $50,000 fine, or three years in prison, or both.
(1) No person may solicit, influence or permit another person to perform any act prohibited by, or to omit any act required by, the Defense Production Act and other applicable statutes, this part, or an official action.
(3) No person shall deliver any item or perform any service if the person knows or has reason to believe that the item will be accepted, redelivered, held, or used in violation of the Defense Production Act and other applicable statutes, this part, or an official action. In such instances, the person must immediately notify the Department of Transportation that, in accordance with this provision, delivery of the item or performance of the service has not been made.
If compliance with any provision of the Defense Production Act and other applicable statutes, this part, or an official action would prevent a person from filling a rated order or from complying with another provision of the Defense Production Act and other applicable statutes, this part, or an official action, the person must immediately notify the Department of Transportation for resolution of the conflict.
§ 33.80
(a) A person may submit a request to the Defense Production Act Activities Coordinator, Office of Intelligence Security, and Emergency Response, 1200 New Jersey Avenue, SE., Washington, DC 20590, for an adjustment or exception on the ground that:
(2) The consequences of following a provision of this part or an official action are contrary to the intent of the Defense Production Act and other applicable statutes, or this part.
(b) Each request for adjustment or exception must be in writing and contain a complete statement of all the facts and circumstances related to the provision of this part or official action from which adjustment or exception is sought and a full and precise statement of the reasons why relief should be provided.
(c) The submission of a request for adjustment or exception shall not relieve any person from the obligation of complying with the provision of this part or official action in question while the request is being considered unless such interim relief is granted in writing by the Office of Intelligence, Security, and Emergency Response.
(d) A decision of the Defense Production Act Activities Coordinator under this section may be appealed to the Assistant Secretary for Administration. (For information on the appeal procedure, see § 33.81.)
§ 33.81
(a) Any person who has had a request for adjustment or exception denied by the Defense Production Act Activities Coordinator under § 33.80, may appeal to the Department of Transportation's Assistant Secretary for Administration, who shall review and reconsider the denial.
(b)(1) Except as provided in paragraph (b)(2) if this section, an appeal must be received by the Assistant Secretary for Administration no later than 45 days after receipt of a written notice of denial from the Defense Production Act Activities Coordinator. After this 45-day period, an appeal may be accepted at the discretion of the Assistant Secretary for Administration for good cause shown.Start Printed Page 8692
(2) For requests for adjustment or exception involving rated orders placed for the purpose of emergency preparedness, an appeal must be received by the Assistant Secretary for Administration, no later than five (5) days after receipt of a written notice of denial from the Defense Production Act Activities Coordinator. Contract performance under the order shall not be stayed pending resolution of the appeal.
(c) Each appeal must be in writing and contain a complete statement of all the facts and circumstances related to the action appealed from, all necessary documents, and a full and precise statement of the reasons the decision should be modified or reversed.
(d) In addition to the written materials submitted in support of an appeal, an appellant may request, in writing, an opportunity for an informal hearing. This request may be granted or denied at the discretion of the Assistant Secretary for Administration.
(e) When a hearing is granted, the Assistant Secretary for Administration may designate an employee of the Office of the Senior Procurement Executive to conduct the hearing and to prepare a report. The hearing officer shall determine all procedural questions and impose such time or other limitations deemed reasonable. In the event that the hearing officer decides that a printed transcript is necessary, all expenses shall be borne by the appellant.
(f) When determining an appeal, the Assistant Secretary for Administration may consider all information submitted during the appeal as well as any recommendations, reports, or other relevant information and documents available to the Department of Transportation, or consult with any other persons or groups.
(g) The submission of an appeal under this section shall not relieve any person from the obligation of complying with the provision of this part or official action in question while the appeal is being considered unless such relief is granted in writing by the Assistant Secretary for Administration.
(h) The decision of the Assistant Secretary for Administration shall be made within five (5) working days after receipt of the appeal, or within one (1) working day for appeals pertaining to emergency preparedness and shall be the final administrative action. It shall be issued to the appellant in writing with a statement of the reasons for the decision.
§ 33.90
(c) Records required to be maintained by this part must be made available for examination on demand by duly authorized representatives of the Department of Transportation as provided in § 33.71.
(d) In addition, persons must develop, maintain, and submit any other records and reports to the Department of Transportation that may be required for the administration of the Defense Production Act and other applicable statutes, and this part.
(e) Section 705(d) of the Defense Production Act, as implemented by Executive Order 12919, provides that information obtained under this section which the Secretary deems confidential, or with reference to which a request for confidential treatment is made by the person furnishing such information, shall not be published or disclosed unless the Secretary determines that the withholding of this information is contrary to the interest of the national defense. Information required to be submitted to the Department of Transportation in connection with the enforcement or administration of the Defense Production Act, this part, or an official action, is deemed to be confidential under section 705(d) of the Defense Production Act and shall be handled in accordance with applicable Federal law.
§ 33.92
(c) This part and its schedules shall not be construed to affect any administrative actions taken by the Department of Transportation, or any outstanding contracts or orders placed pursuant to any of the parts, orders, schedules or delegations of authority previously issued by the Department of Transportation pursuant to authority granted by the President to the Department under in the Defense Production Act. Such actions, contracts, or orders shall continue in full force and effect under this part unless modified or terminated by proper authority.
§ 33.93
All communications concerning this part, including requests for copies of the part and explanatory information, requests for guidance or clarification, and requests for adjustment or exception shall be addressed to the Defense Production Act Activities Coordinator, Office of Intelligence, Security and Emergency Response, 1200 New Jersey Avenue, SE., Washington, DC 20590.
Start Printed Page 8696
The programs listed in this schedule have been approved for priorities and allocations support under this part by the Administrator of FEMA. They have equal preferential status.
1. Section 201 of Executive Order 12919 also delegates Defense Production Act section 101 authority to:
(4) The Secretary of Defense with respect to water resources; and
(5) The Secretary of Commerce for all other materials, services, and facilities, including construction materials.
2. The other parts that make up FPAS are:
(1) Agricultural Priorities and Allocations System promulgated by the Department of Agriculture;
(2) Defense Priorities and Allocations System promulgated by the Department of Commerce;
(3) Energy Priorities and Allocations System promulgated by the Department of Energy;
(4) Health Resources Priorities and Allocations System promulgated by the Department of Health and Human Service; and
(5) Water Resources Priorities and Allocations System promulgated by the Department of Defense.
3. In 2007 DOT and DHS entered into a Memorandum of Understanding transferring the responsibility for evacuations and commodity and equipment movements to the Federal Emergency Management Agency (FEMA). New authority given to FEMA in the Post-Katrina Emergency Management Reform Act of 2006 necessitated redefining DOT's role for providing emergency transportation services and for designating the Federal lead for planning, coordinating and conducting evacuations of the general population.
4. DOT's contract with Landstar Express America, Inc. contained the following requirements for Rapid Response Capability:
Within one (1) hour of receiving the initial Order for Service (OFS) from the Contracting Officer, the Contractor (Landstar) shall acknowledge receipt of the OFS by electronic commerce or fax.
Within four (4) hours of receipt of an OFS, the Contractor shall make transportation equipment available at the shipment place of origin to commence movement of cargo and passengers, using air and surface modes of transportation. The Contractor shall meet all pickup and transit deadlines.
5. Legislative history indicates that Congress was concerned that national defense requirements, during times of emergency, could consume much of the output of key industrial sectors and selected producers within some sectors. Allocations authority was viewed as a means to ensure an equitable distribution of national defense demand among potential suppliers to avoid disproportionate impacts on each supplier's share of the civilian market.
6. CRAF was formed through a joint agreement between DoD and the Department of Commerce. Executive Order 10999 placed responsibility for administration of the CRAF program in the Department of Commerce as a function of the Office of Emergency Transportation. In 1967, the Office of Emergency Transportation transferred in its entirety with its mission, functions and staff into the new Department of Transportation. Responsibility for carrying out the Secretary's role with respect to the CRAF program now resides with the Office of Intelligence, Security and Emergency Response.
[FR Doc. 2011-3209 Filed 2-14-11; 8:45 am]