I 
108TH CONGRESS 
1ST SESSION H. R. 2928
To amend title 49, United States Code, relating to improved consumer protec-
tion regulation of the household goods transportation industry, and for 
other purposes. 
IN THE HOUSE OF REPRESENTATIVES 
JULY 25, 2003
Mr. BOEHLERT (for himself, Ms. MILLENDER-MCDONALD, Mr. DUNCAN, Mr. 
PASCRELL, Ms. LOFGREN, Mr. COBLE, and Mr. MICHAUD) introduced 
the following bill; which was referred to the Committee on Transportation 
and Infrastructure 
A BILL 
To amend title 49, United States Code, relating to improved 
consumer protection regulation of the household goods 
transportation industry, and for other purposes.
Be it enacted by the Senate and House of Representa-
tives of the United States of America in Congress assembled, 
SECTION 1. SHORT TITLE. 
This Act may be cited as the ‘‘Consumer’s Relocation 
Protection Act of 2003’’. 
SEC. 2. FINDINGS. 
Congress finds the following:
(1) Federal regulation of interstate transpor-
tation of household goods is essential to the mainte-
nance of the interstate household goods moving in-
dustry and so is vital to the requirements of our na-
tional economy and a strong national defense. The 
capability of the industry to meet the challenges pre-
sented by a mobile society is dependent upon a sys-
tem of Federal regulation that is uniformly applied 
regardless of State origins and destinations of con-
sumers’ moves. Wholesale proliferation of Federal 
regulatory responsibilities among the States must be 
avoided to ensure a consistent regulatory environ-
ment that allows the industry to perform its essen-
tial service to the public. 
(2) In 1996, Congress abolished the Interstate 
Commerce Commission and transferred its regula-
tions governing the interstate transportation of con-
sumers’ household goods to the Department of 
Transportation. The Department of Transportation 
and the Federal Motor Carrier Safety Administra-
tion which are charged with regulation of the indus-
try have, on numerous occasions, advised Congress 
that their primary mission is truck safety regulation 
and that they have neither the resources nor the 
manpower to effectively regulate the moving indus-
try. Unfortunately, this condition has nurtured the 
growth of a cottage industry of rogue movers that 
preys upon the moving public through a variety of 
schemes employed to gain the confidence of con-
sumers, and then their belongings, and finally, in ex-
change for those belongings, impose exorbitant 
charges for what purports to be a moving service. In 
reality, those services do not resemble the services of 
legitimate movers that conscientiously transport the 
overwhelming majority of the 1,300,000 interstate 
moves that are performed each year. 
(3) While the rogue movers’ participation in the 
interstate moving market is minutely small, the toll 
they have taken on the moving public and the legiti-
mate moving industry is enormous. Numerous re-
ports on the unlawful practices of these operators 
have been aired by our national television networks 
and countless similar press accounts have seriously 
tarnished the image of the entire legitimate moving 
industry which is made up largely of small business 
operators that comply with existing Federal regula-
tions. 
(4) Just recently the Federal Bureau of Inves-
tigation concluded a 2-year investigation into the 
practices of Florida-based unlawful operators that
resulted in Federal criminal indictments of 42 rogue 
movers and 74 individuals that were involved in 
their operations. Aggressive Federal enforcement ac-
tion of this nature must continue if we are to rid the 
moving industry of the scourge created by the rogue 
mover. 
(5) Under existing Federal law, consumers have 
an adequate remedy to compensate them for the 
loss, damage, or delay of their property. However, in 
view of the operating practices of rogue movers, it 
is appropriate to enhance enforcement by granting 
to the States authority over certain unlawful prac-
tices that are contrary to Federal law. 
(6) To meet this challenge it is appropriate that 
Congress act to close certain loopholes that have al-
lowed the unscrupulous mover to thrive. This can be 
accomplished by conferring authority on the States 
to take action against movers that violate important 
Federal licensing, pricing, and arbitration require-
ments or engage in the insidious practice of holding 
consumers’ goods hostage in exchange for a king’s 
ransom. At the same time, it is necessary not to lose 
sight of the importance of avoiding measures that 
would threaten the financial stability of the legiti-
mate moving industry and its ability to serve the 
public. 
(7) Civil and criminal penalties are necessary to 
combat the unlawful practice of holding household 
goods hostage. 
(8) Too many brokers of household goods trans-
portation services, many of whom operate exclusively 
on the Internet, have run roughshod over consumers 
when arranging for the transportation of their 
household goods. Regulation of this segment of the 
moving industry is virtually nonexistent. Federal 
consumer protection regulations must be prescribed 
and the States should be authorized to pursue bro-
kers that fail to arrange legitimate moving services 
for consumers. 
(9) The Department of Transportation should 
establish a consumer complaint data information 
base and require the filing by movers of meaningful 
statistics on loss and damage claims. 
(10) To promote the public’s access to an inex-
pensive means of resolving claims for loss or dam-
age, the present mandatory threshold for binding ar-
bitration should be available for all claims of 
$10,000 or less instead of the present $5,000 or less 
amount. In addition, neutral arbitration should be
available to consumers to resolve certain transpor-
tation charge payment disputes in an inexpensive 
and expeditious manner. 
(11) The Department of Transportation must 
impose meaningful registration requirements on all 
applicants for Federal authority to engage in the 
interstate transportation of household goods to en-
sure they are qualified to serve the public and to 
thwart the proliferation of unscrupulous operators. 
(12) Consumers must receive written estimates 
of moving services and charges and inventories of 
goods to be transported to curb abusive rogue mover 
practices that misrepresent their services. 
SEC. 3. FEDERAL-STATE RELATIONS RELATING TO THE 
TRANSPORTATION OF HOUSEHOLD GOODS. 
(a) NONPREEMPTION
OF INTRASTATE TRANSPOR-
TATION
OF
HOUSEHOLD
GOODS.—Section 
14501(c)(2)(B) of title 49, United States Code, is amend-
ed by inserting ‘‘intrastate’’ before ‘‘transportation’’. 
(b) ENFORCEMENT
OF
CONSUMER
PROTECTION 
WITH RESPECT
TO INTERSTATE HOUSEHOLD GOODS 
CARRIERS.—
(1) STATE ENFORCEMENT REGARDING TRANS-
PORTATION OF HOUSEHOLD GOODS.—Chapter 145
of such title is amended by adding at the end the 
following: 
‘‘§ 14506. State enforcement regarding transportation 
of household goods 
‘‘(a) AUTHORITY OF STATES.—
‘‘(1) INJUNCTIVE
RELIEF.—Notwithstanding 
any other provision of this title, if an attorney gen-
eral of a State or other authorized officer of that 
State has reason to believe that the interests of the 
residents of that State have been or are being 
threatened or adversely affected because any person 
has engaged or is engaging in the performance or 
procuring of household goods transportation or serv-
ice (including accessorial or terminal service) subject 
to jurisdiction under chapter 135 or 139 in violation 
of one or more of sections 13702(a)(2), 13901, 
13902, 13903, 13904, 13906, and 14708, the State 
may bring a civil action for injunctive relief on be-
half of its residents in an appropriate district court 
of the United States to enjoin such transportation or 
service and to compel the person to pay to the State 
any civil penalty assessed under chapter 149 with re-
spect to such violation. 
‘‘(2) VIOLATION.—A motor carrier providing 
transportation subject to jurisdiction under chapter
135, that knowingly and willfully refuses to relin-
quish possession of a shipment of household goods 
described in section 13102(10)(A) upon payment of 
not more than 100 percent of a binding estimate (or, 
in the case of a nonbinding estimate, not more than 
110 percent of the estimated charges for such ship-
ment) plus the charges for additional services that 
were performed at origin, en route, or at destination 
as authorized by the shipper and as required by sec-
tion 13702, shall be liable for a civil penalty under 
chapter 149. A State may bring a civil action under 
this subsection in an appropriate United States dis-
trict court to compel a motor carrier to relinquish 
possession of a shipment, to pay the civil penalty as-
sessed under chapter 149 to the State, or to obtain 
injunctive relief. 
‘‘(b) AUTHORITY OF SECRETARY.—
‘‘(1) NOTICE.—The State shall serve prior writ-
ten notice of a civil action under subsection (a) upon 
the Secretary and provide the Secretary with a copy 
of its complaint; except that, if it is not feasible for 
the State to provide such prior notice, the State 
shall serve such notice immediately upon instituting 
such action.
‘‘(2) AUTHORITY.—Upon receiving notice of a 
civil action under this subsection, the Secretary shall 
have the right to—
‘‘(A) intervene in such action; 
‘‘(B) be heard on all matters arising there-
in; and 
‘‘(C) to participate in or initiate an appeal 
of such action. 
‘‘(c) STATUTORY CONSTRUCTION.—For purposes of 
bringing a civil action under subsection (a), nothing in this 
section shall be construed to prevent an attorney general 
of a State from exercising the powers conferred on the 
attorney general by the laws of such State to conduct in-
vestigations or to administer oaths or affirmations or to 
compel the attendance of witnesses or the production of 
documentary and other evidence. 
‘‘(d) ACTIONS
BY
THE SECRETARY.—Whenever a 
civil action has been instituted by or on behalf of the Sec-
retary for violation of any provision specified in subsection 
(a), no State may institute, during the pendency of such 
action, a civil action under subsection (a) against any de-
fendant named in the complaint in such action for a viola-
tion alleged in such complaint. 
‘‘(e) VENUE; SERVICE OF PROCESS.—A civil action 
under subsection (a) may be brought in the district in
which the defendant is found, resides, or transacts busi-
ness or wherever venue is proper under section 1391 of 
title 28. Process in such an action may be served in any 
district in which the defendant resides or in which the de-
fendant may be found. 
‘‘(f) ACTIONS BY OTHER STATE OFFICIALS.—In ad-
dition to actions brought by an attorney general of a State 
under subsection (a), such an action may be brought by 
officers of the State who are authorized by the State to 
bring actions in such State on behalf of its residents.’’. 
(2) HOUSEHOLD
GOODS
BROKERS.—Section 
13904 of such title is amended—
(A) by redesignating subsection (d) as sub-
section (e); and 
(B) by inserting after subsection (c) the 
following: 
‘‘(d) HOUSEHOLD GOODS BROKERS.—
‘‘(1) REGULATIONS.—Not later than 180 days 
after the effective date of the Consumer’s Relocation 
Protection Act of 2003, the Secretary shall adopt 
regulations prescribing practices and procedures that 
ensure the fair and equitable treatment of individual 
shippers that utilize brokers of household goods de-
scribed in section 13102(10)(A).
‘‘(2) STANDARD FOR SELECTING CARRIERS.—
Each broker of household goods that is registered by 
the Secretary under this chapter shall use due dili-
gence and reasonable care in selling or arranging the 
services of only those motor carriers of household 
goods that are in compliance with the requirements 
of this part and all applicable regulations maintained 
by the Secretary and the Board. 
‘‘(3) ENFORCEMENT BY THE SECRETARY AND 
THE STATES.—
‘‘(A) COMPLAINT.—Whenever the Sec-
retary or an attorney general of any State or 
other authorized officer of a State, in coordina-
tion with the Secretary, has reason to believe 
that a broker of household goods subject to this 
section has arranged for transportation by a 
motor carrier that has violated this part, or is 
consistently not fit, willing, and able to provide 
adequate household goods transportation serv-
ices, the Secretary may issue to such broker a 
complaint stating the charges and containing 
notice of the time and place of a hearing which 
shall be held no later than 60 days after service 
of the complaint to such broker; except that, be-
fore issuing any complaint under this sub-
section, the State shall first request that the 
Secretary initiate an investigation and issue 
such complaint. If the Secretary declines to ini-
tiate an investigation, the State may initiate 
such an investigation and convene a hearing. 
‘‘(B) RIGHT
TO
DEFEND.—The broker 
shall have the right to appear at any hearing 
convened pursuant to subsection (A) and rebut 
the charges contained in a complaint. 
‘‘(C) ORDER.—If the broker does not ap-
pear at the hearing or if the Secretary or the 
State finds that the broker has violated this 
section, the Secretary may take appropriate ac-
tion to compel compliance with this part and 
regulations 
issued 
thereunder, 
including 
issuance of an order to limit, condition, or pro-
hibit such broker from any involvement in the 
procurement of service for the transportation of 
household goods. 
‘‘(D) RELIEF.—Following an investigation 
and hearing under this subsection, the Sec-
retary or the State may bring a civil action in 
a United States district court or a State court 
for injunctive relief and to compel a person to 
pay any civil penalty assessed under chapter
149 to the United States or the State, as the 
case may be.’’. 
(3) CONFORMING AMENDMENT.—The analysis 
for chapter 145 of such title is amended by adding 
at the end the following:
‘‘14506. State enforcement regarding transportation of household goods.’’.
SEC. 4. WORKING GROUP FOR DEVELOPMENT OF PRAC-
TICES AND PROCEDURES TO ENHANCE FED-
ERAL-STATE RELATIONS. 
(a) IN GENERAL.—Not later than 90 days after the 
date of enactment of this Act, the Secretary of Transpor-
tation shall establish a working group of State attorneys 
general, State consumer protection administrators, and 
Federal and local law enforcement officials for the purpose 
of developing practices and procedures to enhance the 
Federal-State partnership in enforcement efforts, ex-
change of information, and coordination of enforcement 
efforts, with respect to interstate transportation of house-
hold goods and of making legislative and regulatory rec-
ommendations to the Secretary concerning such enforce-
ment efforts. 
(b) CONSULTATION WITH INDUSTRIES.—In carrying 
out subsection (a), the working group shall include rep-
resentatives of industries involved in the transportation of 
household goods.
SEC. 5. CIVIL AND CRIMINAL PENALTY FOR HOLDING 
HOUSEHOLD GOODS HOSTAGE. 
(a) IN GENERAL.—Chapter 149 of title 49, United 
States Code, is amended by adding at the end the fol-
lowing: 
‘‘§ 14915. Holding household goods hostage 
‘‘(a) HOLDING HOUSEHOLD GOODS HOSTAGE DE-
FINED.—For purposes of this section, the term ‘holding 
household goods hostage’ means the knowing and willful 
refusal to relinquish possession of a shipment of household 
goods described in section 13102(A)(10) upon payment of 
not more than 100 percent of a binding estimate (or, in 
the case of a nonbinding estimate, not more than 110 per-
cent of the estimated charges for such shipment) plus the 
charges for additional services that were performed at ori-
gin, en route, or at destination as authorized by the ship-
per and as required by section 13702. 
‘‘(b) CIVIL PENALTY.—A motor carrier that is found 
holding a household goods shipment hostage is liable to 
the United States for a civil penalty of not less than 
$10,000 for each violation. If such carrier is subject to 
jurisdiction under chapter 135, the Secretary may suspend 
for a period of not less than 6 months the registration 
of such carrier under chapter 139. 
‘‘(c) CRIMINAL PENALTY.—A motor carrier that has 
been convicted of knowingly and willfully holding house-
hold goods hostage by falsifying documents or demanding 
the payment of charges for services that were not per-
formed or were not necessary in the safe and adequate 
movement of a shipment of household goods shall be fined 
under title 18, or imprisoned not more than 2 years, or 
both.’’. 
(b) CONFORMING AMENDMENT.—The analysis for 
such chapter is amended by adding at the end the fol-
lowing:
‘‘14915. Holding household goods hostage.’’.
SEC. 6. CONSUMER HANDBOOK ON DOT WEB SITE. 
Not later than 1 year after the date of enactment 
of this Act, the Secretary of Transportation shall take 
such action as may be necessary to ensure that publication 
OCE–100 of the Department of Transportation, entitled 
‘‘Your Rights and Responsibilities When You Move’’ is 
prominently displayed, and available in language that is 
readily understandable by the general public, on the Web 
site of the Department of Transportation. 
SEC. 7. DISPLAY OF INFORMATION ON HOUSEHOLD GOODS 
TRANSPORTATION RELATED WEB SITES. 
Not later than 1 year after the date of enactment 
of this Act, the Secretary of Transportation shall modify 
the regulations contained in part 375 of title 49, Code of 
Federal Regulations, to require a motor carrier or broker 
that is subject to such regulations and that establishes and
maintains a Web site to prominently display on the Web 
site—
(1) the Department of Transportation number 
of the motor carrier or broker; 
(2) the OCE–100 publication referred to in sec-
tion 6; and 
(3) in the case of a broker, a list of all motor 
carriers providing transportation of household goods 
used by the broker and a statement that the broker 
is not a motor carrier providing transportation of 
household goods. 
SEC. 8. CONSUMER COMPLAINT DATABASE. 
(a) ESTABLISHMENT OF SYSTEM.—Not later than 1 
year after the date of enactment of this Act, the Secretary 
of Transportation shall establish a complaint handling sys-
tem to log individual shipper (as defined in section 13102 
of title 49, United States Code) informal complaints re-
lated to motor carrier interstate transportation of house-
hold goods, an annual database of such complaints, and 
a procedure for public access to such data. All complaints 
recorded in the database must be identified by motor car-
rier bill of lading number and forwarded to the involved 
carrier. For each motor carrier included in the database, 
the percentage of complaints which were disputed must 
also be recorded.
(b) REGULATIONS.—Not later than 1 year after the 
date of enactment of this Act, the Secretary of Transpor-
tation shall issue regulations requiring each motor carrier 
and freight forwarder providing transportation of house-
hold goods to submit an annual report on or before each 
March 31 covering the 12-month period ending on the 
prior March 31 (in this section referred to as the ‘‘report-
ing period’’) that summarizes—
(1) the number of shipments that originate and 
are delivered for individual shippers during the re-
porting period; 
(2) the percent of those shipments identified in 
subparagraph (A) which resulted in the filing of a 
claim for loss or damage in excess of $500; 
(3) the percent of claims identified in subpara-
graph (B) which were settled in the reporting period; 
(4) the percent of claims identified in subpara-
graph (B) which were declined in the reporting pe-
riod; and 
(5) the percent of claims identified in subpara-
graph (B) which were pending on the last day of the 
reporting period. 
(c) USE OF INFORMATION.—In determining which 
motor carriers providing transportation of household 
goods should be subject to an investigation, the Secretary
shall consider the failure to make a report in violation of 
section 14901 of title 49, United States Code, and infor-
mation in the database established under subsection (a). 
SEC. 9. ARBITRATION REQUIREMENTS. 
(a) OFFERING SHIPPERS ARBITRATION.—Section 
14708(a) of title 49, United States Code, is amended by 
inserting before the period at the end the following: ‘‘and 
to determine whether carrier rates, in addition to those 
collected at delivery that are unpaid, must be paid by the 
shipper as required by the regulations of the Secretary 
governing the payment for transportation and service’’. 
(b) THRESHOLD FOR BINDING ARBITRATION.—Sec-
tion 14708(b)(6) of such title is amended by striking 
‘‘$5,000’’ each place it appears and inserting ‘‘$10,000’’. 
(c) DEADLINE FOR DECISION.—Section 14708(b)(8) 
of such title is amended—
(1) by striking ‘‘and’’; and 
(2) by inserting after ‘‘for damages’’ the fol-
lowing: ‘‘, and an order requiring the payment of ad-
ditional carrier charges’’. 
(d) ATTORNEY’S
FEES
TO
SHIPPERS.—Section 
14708(d)(3) of such title is amended—
(1) by redesignating subparagraphs (A) and 
(B) as subparagraphs (B) and (C); and
(2) by inserting before subparagraph (B) (as so 
redesignated) the following: 
‘‘(A) the shipper was not advised by the carrier 
during the claim settlement process that a dispute 
settlement program was available to resolve the dis-
pute;’’. 
(e) ATTORNEY’S
FEES
TO
CARRIERS.—Section 
14708(e) of such title is amended to read as follows: 
‘‘(e) ATTORNEY’S FEES TO CARRIERS.—In any court 
action to resolve a dispute between a shipper of household 
goods and a carrier providing transportation or service 
subject to jurisdiction under subchapter I or III of chapter 
135 concerning the transportation of household goods by 
such carrier, the carrier shall be awarded reasonable attor-
ney’s fees by the court only if—
‘‘(1) the court proceeding is to enforce a deci-
sion rendered through arbitration awarding addi-
tional charges to the carrier under subsection (a) 
and is instituted after the period for performance 
under such decision has elapsed; or 
‘‘(2) the shipper brought the court action in 
bad faith—
‘‘(A) after resolution of such dispute 
through arbitration under this section; or
‘‘(B) after institution of an arbitration 
proceeding by the shipper to resolve such dis-
pute under this section but before—
‘‘(i) the period provided under sub-
section (b)(8) for resolution of such dis-
pute (including, if applicable, an extension 
of such period under such subsection) 
ends; and 
‘‘(ii) a decision resolving such dispute 
is rendered.’’. 
SEC. 10. CIVIL PENALTIES RELATING TO HOUSEHOLD 
GOODS BROKERS. 
Section 14901(d) of title 49, United States Code, is 
amended—
(1) by striking ‘‘If a carrier’’ and inserting the 
following: 
‘‘(1) IN GENERAL.—If a carrier’’; and 
(2) by adding at the end the following: 
‘‘(2) ESTIMATE OF BROKER WITHOUT CARRIER 
AGREEMENT.—If a broker for transportation of 
household goods subject to jurisdiction under sub-
chapter I of chapter 135 makes an estimate of the 
cost of transporting any such goods before entering 
into an agreement with a carrier to provide such 
transportation of household goods subject to such ju-
risdiction, the broker is liable to the United States 
for a civil penalty of not less than $10,000 for each 
violation. 
‘‘(3) UNAUTHORIZED TRANSPORTATION.—If a 
person provides transportation of household goods 
subject to jurisdiction under subchapter I of chapter 
135 or provides broker services for such transpor-
tation without being registered under chapter 139 to 
provide such transportation or services as a motor 
carrier or broker, as the case may be, such person 
is liable to the United States for a civil penalty of 
not less than $25,000 for each violation.’’. 
SEC. 11. INDIVIDUAL SHIPPER DEFINED. 
Section 13102 of title 49, United States Code, is 
amended by adding at the end the following: 
‘‘(25) INDIVIDUAL SHIPPER.—The term ‘indi-
vidual shipper’ means any person who is the con-
signor or consignee of a household goods shipment, 
is identified as such in the bill of lading or other 
similar contract, owns the goods being or to be 
transported, and pays for their transportation.’’. 
SEC. 12. ADDITIONAL REGISTRATION REQUIREMENTS FOR 
MOTOR CARRIERS OF HOUSEHOLD GOODS. 
Section 13902 of title 49, United States Code, is 
amended—
(1) by redesignating paragraph (4) as para-
graph (5); 
(2) by striking paragraphs (2) and (3) and in-
serting the following: 
‘‘(2) HOUSEHOLD
GOODS; ADDITIONAL
RE-
QUIREMENTS.—In addition to the requirements in 
subsection (a)(1), the Secretary shall register a per-
son to provide transportation of household goods de-
scribed in section 13102(10)(A) only after such per-
son—
‘‘(A) identifies the arbitration program in 
which it participates and provides a copy of its 
notice of such program as required by section 
14708(b)(2); 
‘‘(B) identifies its tariff and provides a 
copy of its notice of the availability of such tar-
iff for inspection as required by section 
13702(c); 
‘‘(C) certifies that it has access to, has 
read, is familiar with, and will observe all appli-
cable regulations of the Secretary and the 
Board governing consumer protection, esti-
mating, consumer rights and responsibilities, 
and options for limitations of liability for loss 
and damage; and
‘‘(D) discloses any relationship involving 
common stock, common ownership, common 
management, or common familial relationships 
between such persons and any other motor car-
rier, freight forwarder, or broker of household 
goods within the past 3 years. 
‘‘(3) CONSIDERATION
OF
EVIDENCE; 
FIND-
INGS.—The Secretary shall consider and, to the ex-
tent applicable, make findings on any evidence dem-
onstrating that the registrant is unable to comply 
with the requirements of one or more of subpara-
graphs (A), (B), and (C) of paragraph (1) and sub-
paragraphs (A), (B), (C), and (D) of paragraph (2). 
‘‘(4) WITHHOLDING.—If the Secretary deter-
mines that any registrant under this section does 
not or is not able to meet the requirements of para-
graph (1) or (2), the Secretary shall withhold reg-
istration for a period of not less than 1 year.’’; and 
(3) by adding at the end of paragraph (5) (as 
so redesignated) the following: ‘‘In the case of a reg-
istration for the transportation of household goods 
described in section 13102(10)(A), the Secretary 
may also hear a complaint on the ground that the 
registrant fails or will fail to comply with the re-
quirements of paragraph (2).’’.
SEC. 13. ESTIMATING AND INVENTORY REQUIREMENTS. 
Section 14104 of title 49, United States Code, is 
amended—
(1) in subsection (b) by striking paragraph (1) 
and inserting the following: 
‘‘(1) REQUIRED TO BE IN WRITING.—
‘‘(A) IN GENERAL.—Except as otherwise 
provided [in this subsection], every motor car-
rier providing transportation of household goods 
described in section 13102(10)(A) subject to ju-
risdiction under subchapter I of chapter 135 
shall conduct a physical survey of the household 
goods to be transported on behalf of a prospec-
tive individual shipper and shall provide the 
shipper with a written estimate of charges for 
the transportation and all related services. 
‘‘(B) WAIVER.—A shipper may elect to 
waive a physical survey under this paragraph by 
written agreement signed by the shipper before 
[the] shipment is loaded. A copy of the waiver 
agreement must be retained as an addendum to 
the bill of lading and shall be subject to the 
same record inspection and preservation re-
quirements of the Secretary as are applicable to 
bills of lading. 
‘‘(C) ESTIMATE.—
‘‘(i) IN GENERAL.—Notwithstanding a 
waiver under subparagraph (B), a carrier’s 
statement of charges for transportation 
must be submitted to the shipper in writ-
ing and must indicate whether it is binding 
or nonbinding. 
‘‘(ii) BINDING.—A binding estimate 
under this paragraph must indicate that 
the carrier and shipper are bound by such 
charges. The carrier may impose a charge 
for providing a written binding estimate. 
‘‘(iii) NONBINDING.—A nonbinding 
estimate under this paragraph must indi-
cate that the actual charges will be based 
upon the actual weight of the shipment 
and the carrier’s lawful tariff charges.’’; 
and 
(2) by adding at the end the following: 
‘‘(d) INVENTORIES.—
‘‘(1) IN GENERAL.—Every motor carrier pro-
viding transportation of household goods described 
in section 13012(10)(A) subject to jurisdiction under 
subchapter I of chapter 135 shall prepare, at the 
time of loading a shipment of such household goods, 
a written inventory of all articles tendered by an in-
dividual shipper and accepted by the carrier for 
transportation. 
‘‘(2) CONTENTS.—Every inventory under this 
subsection shall list or otherwise reasonably identify 
each item tendered for transportation, be signed by 
the shipper and the carrier or their respective agents 
at both the origin and destination, and shall be at-
tached to and considered part of the bill of lading. 
‘‘(3) RECORD INSPECTION AND PRESERVATION 
REQUIREMENTS.—An inventory under this sub-
section shall be subject to the same record inspection 
and preservation requirements of the Secretary as 
are applicable to bills of lading.’’. 
SEC. 14. EXTEND CIVIL PENALTIES TO BROKERS OF 
HOUSEHOLD GOODS. 
Section 14901(d) of title 49, United States Code, is 
further amended by adding at the end the following: 
‘‘(4) BROKERS.—If a broker of household goods 
described in section 13102(10)(A) providing service 
to individual shippers and subject to jurisdiction 
under subchapter I of chapter 135 fails or refuses 
to comply with any regulation issued by the Sec-
retary relating to the protection of individual ship-
pers, such broker shall be liable to the United States 
for a civil penalty of not less than $1,000 for each
violation and for each additional day during which 
the violation continues.’’. 
SEC. 15. PROGRESS REPORT. 
(a) IN GENERAL.—Not later than 1 year after the 
date of enactment of this Act, the Secretary of Transpor-
tation shall transmit to Congress a report on progress in 
implementation of this Act, including the amendments 
made by this Act. 
(b) OVERSIGHT
HEARINGS.—The Committee on 
Transportation and Infrastructure of the House of Rep-
resentatives and the Committee on Commerce, Science, 
and Transportation of the Senate shall conduct periodic 
oversight hearings on the effects of this Act, including the 
amendments made by this Act, no less than annually for 
the first 5 years following the date of enactment of this 
Act to ensure that this Act, including the amendments 
made by this Act, is being implemented according to con-
gressional intent.
Æ