As stated in Section III.F. Questions Regarding Eligibility (page 32) of the Funding Opportunity Announcement (FOA), “DOE will not make eligibility determinations for potential Applicants prior to the date on which applications to this FOA must be submitted. The decision of whether to submit an application in response to this FOA lies solely with the Applicant.”
In addition, the scenario you have described is complex, and DOE has been provided only limited information regarding the various parties’ roles and responsibilities. Without additional details, a final determination is not something DOE can make at this time (which is why DOE does not make eligibility determinations prior to an applicant’s submission of its application). With that caveat, however, we provide the following general information for your purposes in making a decision:
1) Only under very limited circumstances would a PPA meet the requirements of this FOA and be allowable. A PPA may, however, be a component of a properly established organizational structure created for the purpose of the proposed project.
Based on the information provided in your question, we assume you are asking with respect to Topic Area 2, "Community-scale Energy Generating System(s)”. In that regard, page 18 of the FOA states, “[a]ll proposed projects (or buildings on which systems are proposed) must be on Tribal Lands, must be “owned or controlled” by the eligible entity, and must benefit the eligible entity (Indian tribe or Tribal Energy Development Organization) and the tribal community; however, the substantial number of buildings within a tribal community (no less than three (3) buildings), where the energy or heat is to be used, do not necessarily need to be “owned or controlled” by the eligible entity”, “owned or controlled” is defined on page 85 of the FOA and as included in your question. [Emphasis added]
That said, investments by outside investors groups may be eligible as cost share, provided the arrangements among the entities (such as between an Indian tribe and the outside investor group) remain within the organizational structure (see the definition of Tribal Energy Development Organization below and on page 26 of the FOA) created for the proposed project, the equipment purchased under the grant agreement, if one is awarded, is not encumbered by any entities outside that organizational structure, and that contractual provisions be made such that the eligible tribal entity can acquired the equipment and/or property purchase under the grant agreement at set future date.
You should also be aware that, if an outside investor group contributes funds for cost share, that entity is considered a Subrecipient and is subject to the same terms and conditions as the Recipient is under the financial assistant grant agreement including the provisions under Appendix II to Part 200, Contract Provisions for Non-Federal Entity Contracts Under Federal Awards. Further, per the Code of Federal Regulations (2 CFR 200.400) “[t]he non-Federal entity may not earn or keep any profit resulting from Federal financial assistance, unless explicitly authorized by the terms and conditions of the Federal award. See also §200.307 Program income.”
Per Section III.A. of the FOA, a ““Tribal Energy Development Organization,” for purposes of this FOA, means:
a) any enterprise, partnership, consortium, corporation, or other type of business organization that is engaged in the development of energy resources and is wholly owned by an Indian tribe (including an organization incorporated pursuant to section 17 of the Act of June 18, 1934 (25 U.S.C. 5124) (commonly known as the ‘‘Indian Reorganization Act’’) or section 3 of the Act of June 26, 1936 (49 Stat. 1967, chapter 831) (commonly known as the ‘Oklahoma Indian Welfare Act’)); and
b) any “organization” of two or more entities, at least one of which is an Indian tribe, that has the written consent of the governing bodies of all Indian tribes participating in the organization to apply for a grant, loan, or other assistance under 2602 of EPAct (25 U.S.C. 3502) or to enter into a lease or business agreement with, or acquire a right-of-way from, an Indian tribe pursuant to subsection (a)(2)(A)(ii) or (b)(2)(B) of 2604 of EPAct (25 U.S.C. 3504), where “organization” means a partnership, joint venture, Limited Liability Company (LLC) or other unincorporated association or entity that is established to develop Indian energy resources.” [Emphasis added]
Furthermore, per page 52 of the FOA, “[f]oregone fee or profit by the Applicant shall not be considered cost sharing under any resulting award.” Also, see Section III.B.3. (page 29) for additional sources that cannot be used as cost share.
In making your decision, you may wish to review Section III.A on eligible applicants and, depending on the Topic Area, those specific sections under Section I.B, Topic Areas. Please also review Section I.C for applications specifically not of interest. Specifically, review eligible Applicants (e.g., Indian tribe and Tribal Energy Development Organization) and the definition of Tribal Lands, as land leased to a non-eligible entity (e.g., outside investor group) would not be considered Tribal Lands for purposes of this FOA.
Furthermore, this FOA requires all cost share to be received during the period of performance of the DOE grant; as such, cost share received either after the DOE grant period end date, or expenditures prior to an applicant’s selection for an award are not allowable. Per Section III.B.3. (page 29), “[t]he Recipient may not use the following sources to meet its cost share obligations including, but not limited to”, and as stated under the first bullet, “[r]evenues or royalties from the prospective operation of an activity beyond the project period”; meaning revenues to be received after grant agreement end date cannot be used as cost share. Additionally, as stated on page 3 of the FOA and under III.B.3 Cost Share Types and Allowability (page 29), “cost share must be verifiable upon submission of the application.” [Emphasis added]
2) Due to the limited information provided, we are not able to provide further clarification on “owned or controlled” beyond that which is provided in the FOA document.