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Our work is inspired by the following open question: \"Are $Q^\\star$-realizability and Bellman completeness sufficient for sample-efficient offline RL under partial coverage?\"\n  We answer in the negative via an information-theoretic lower bound. To identify additional structure that enables sample-efficient offline RL under partial coverage, we introduce a general decision-estimation framework, inspired by model-free decision-estimation coefficients (DEC) for online RL (Foster et al., 2023b; Liu et al., 2025b). Our framework decomposes offline RL complexity into decision complexity and value estimation error. This allows modular study of both sub-problems. 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To identify additional structure that enables sample-efficient offline RL under partial coverage, we introduce a general decision-estimation framework, inspired by model-free decision-estimation coefficients (DEC) for online RL (Foster et al., 2023b; Liu et al., 2025b). Our framework decomposes offline RL complexity into decision complexity and value estimation error. This allows modular study of both sub-problems. 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