IPS package content can only be installed into file systems that are part of a BE. For example, on a default Oracle Solaris 11 installation, only datasets under rpool/ROOT/BEname/ are supported for package operations. Using IPS to directly deliver content that is outside any BE can result in a system that is no longer able to boot or clone older BEs.
Some content is shared across BEs, as described in Existing Shared Content in Oracle Solaris.
To deliver packaged content to a shared area, use a link as described in Delivering Content to a Shared Area.