It is T&M. Essentially, the contracts team will not let the company bid the target rate because the pricing data does not support the lower rate. so they want to submit the higher rate and then let the prime BAFO them down and then they'll come down to the lower target rate. If this strategy does not offend the letter of the law, then the law would appear to me to be as useless as t's on a bull. The price information does not support the lower rate at an initial lower submission, and so it wouldn't support it at the BAFO submission either. So why the kabuki dance? Why not just submit the lower rate from the get-go if that's what the sub wants to do?
EDIT: too early, forgot the contract type, updated.