Source: https://www.federalregister.gov/documents/2000/10/06/00-25130/transportation-management
Timestamp: 2018-03-25 06:25:59
Document Index: 638932860

Matched Legal Cases: ['§101', 'art 117', 'art 102', 'art 102', '§\u2009102', 'art 9', 'art 9', 'art 9', 'art 9', 'art 47', 'art 47', '§\u2009102', '§\u2009102', 'art 102', '§\u2009102', '§\u2009102', '§\u2009102', '§\u2009102', 'art 102', '§\u2009102', 'art 19', 'art 19', 'art 47', 'arts 47', 'art 381', 'art 47', 'art 47', '§\u2009102', 'art 47', '§\u2009102', '§\u2009102', '§\u2009102', '§\u2009102', '§\u2009102', '§\u2009102', '§\u2009102', '§\u2009102', '§\u2009102']

A Rule by the General Services Administration on 10/06/2000
65 FR 60059
60059-60069 (11 pages)
FPMR Amendment G-116
00-25130
https://www.federalregister.gov/d/00-25130 https://www.federalregister.gov/d/00-25130
Start Preamble Start Printed Page 60060
Ms. Elizabeth Allison, Program Analyst, Transportation Management Policy, Office of Governmentwide Policy, General Services Administration, at 202-219-1729, or Internet e-mail at elizabeth.allison@gsa.gov
In response to President Clinton's mandate to Federal agencies to make communication with the public more understandable, General Services Administration (GSA) is revising and clarifying the transportation management policies by writing them in plain language and making other substantial changes. This rule adds a new part to the Federal Management Regulation (FMR) that will phase in the use of commercial transportation documents, such as bills of lading, and retire the corresponding Government transportation documents whenever possible.
This final rule clarifies existing transportation management requirements. We incorporate the Treasury, Postal and General Government Appropriations Act of 1994 (see Public Law 103-123; 107 Stat. 1226, 1247) that changed GSA to a nonmandatory source of transportation services. The focus shifts the transportation regulations away from how agencies should use GSA's household goods and freight shipment programs as mandatory sources of these services. Changes are included to:
(a) Provide broad policy for agencies to develop transportation programs that best suit their needs;
(b) Require that all contracts and rate tenders include the terms and conditions formerly annotated on the Government bills of lading. All transportation documents must reference the applicable contract or rate tender;
(c) Include general business rules a transportation manager will consider before buying transportation services. These rules give a broad range of guidelines to ensure compliance with other Governmental directives and compliance with all Federal, State and local laws;
(d) Eliminate the use of the Optional Forms 1103 and 1203, Government Bill of Lading, for domestic freight and household goods shipments by September 30, 2001;
(e) Expand the choices for acquiring transportation and transportation related services and incorporate the terms and conditions previously noted on the paper GBL in all contracts and agreements;
(f) Expand the use of charge cards as an alternative payment method for transportation services. Agencies must set up their own administrative rules covering accountability, exceptions and limits of the charge card;
(g) Introduce performance measures to help agencies determine how well they perform the transportation function and support the agency mission;
(h) Introduce a section on transportation service provider's performance defining what transportation managers should expect in the contractual agreement and what recourse is available for nonperformance;
(i) Add a requirement for reports. Reporting transportation costs will help agencies collect information for forecasting and planning; and
(j) Add a separate section on representation before regulatory bodies to clarify the authority granted to GSA and how an agency may request help.
A proposed rule was published on February 28, 2000, at 65 FR 8817. Comments were received from six agencies and one member of the public. All comments were considered in the formulation of the final rule and, as a result, a number of changes were made to the proposed rule.
This final rule will not have a significant economic impact on a substantial number of small entities within the meaning of the Regulatory Flexibility Act, 5 U.S.C. 601, et seq., because the rule only applies to internal agency management and will not have a significant effect on the public.
The Paperwork Reduction Act does not apply because this final rule does not impose recordkeeping or information collection requirements, or the collection of information from contractors, or members of the public which require the approval of the Office of Management and Budget (OMB) under 44 U.S.C. 501-517.
§101-40.000
For information on transportation and traffic management previously contained in this part, see FMR part 117 (41 CFR part 102-117).
2. Part 102-117 is added to subchapter D of chapter 102 to read as follows:
Start Part Start Printed Page 60061
102-117.5
102-117.10
102-117.15
102-117.20
102-117.25
102-117.30
What choices do I have when acquiring transportation or related services?
102-117.35
What are the advantages and disadvantages to using GSA's tender of service?
102-117.40
102-117.45
102-117.50
What are the advantages and disadvantages of contracting directly with a TSP under FAR?
102-117.55
What are the advantages and disadvantages of using a rate tender?
102-117.60
102-117.65
What terms and conditions must all rate tenders or contracts include?
102-117.70
102-117.75
102-117.80
102-117.85
102-117.90
May I use U.S. Government bill of lading (GBL) (Optional Forms 1103 and 1203), to acquire freight, household goods or other related transportation services?
102-117.95
After the GBLs retire for domestic shipments, what transportation documents must I use to acquire freight, household goods or other transportation services?
102-117.100
102-117.105
What does best value mean when routing a shipment?
102-117.110
102-117.115
102-117.120
To what extent must I equally distribute orders for transportation and related services among TSPs?
102-117.125
How detailed must I describe property for shipment when communicating to a TSP?
102-117.130
102-117.135
What are the international transportation restrictions?
102-117.140
102-117.145
What are coastwise laws?
102-117.150
What do I need to know about coastwise laws?
102-117.155
Where do I go for further information about coastwise laws?
102-117.160
102-117.165
102-117.170
What reference materials are available to ship freight?
102-117.175
What factors do I consider to determine the mode of transportation?
102-117.180
What transportation documents must I use to ship freight?
102-117.185
Where must I send a copy of the transportation documents?
102-117.190
Where do I file a claim for loss or damage to property?
102-117.195
Are there time limits affecting filing of a claim?
102-117.200
102-117.205
102-117.210
102-117.215
What are household goods (HHG)?
102-117.220
102-117.225
What is the difference between a contract or rate tender and a commuted rate system?
102-117.230
Must I compare costs between a contract or rate tender and the commuted rate system before choosing which method to use?
102-117.235
102-117.240
102-117.245
What is my responsibility in providing guidance to an employee who wishes to use the commuted rate system?
102-117.250
What are my responsibilities after shipping the household goods?
102-117.255
102-117.260
102-117.265
Are there time limits that affect filing a claim with a TSP for loss or damage?
102-117.270
What are agency performance measures for transportation?
102-117.275
What performance must I expect from a TSP?
102-117.280
102-117.285
102-117.290
102-117.295
Who makes the decisions on temporary nonuse, suspension and debarment?
102-117.300
Do the decisions on temporary nonuse, suspension and debarment go beyond the agency?
102-117.305
Where do I go for information on the process for suspending or debarring a TSP?
102-117.310
102-117.315
102-117.320
What is a transportation regulatory body proceeding?
102-117.325
May my agency appear on its own behalf before a transportation regulatory body proceeding?
102-117.330
When, or under what circumstances, would GSA delegate authority to an agency to appear on its own behalf before a transportation regulatory body proceeding?
102-117.335
102-117.340
What other types of assistance may GSA provide agencies in dealing with regulatory bodies?
What is the Governmentwide Transportation Policy Council (GTPC)?
End Authority Subpart A—General
This part addresses shipping freight and household goods worldwide. Start Printed Page 60062Freight is property or goods transported as cargo. Household goods are not Government property, but are employees' personal property entrusted to the Government for shipment.
This part applies to all agencies and wholly owned Government corporations as defined in 5 U.S.C. 101 et seq. and 31 U.S.C. 9101(3), except those indicated in § 102-117.20.
(b) Subpart D of this part, covering household goods, does not apply to the uniformed service members, under Title 37 of the United States Code, “Pay and Allowances of the Uniformed Services,” including the uniformed service members serving in civilian agencies such as the U.S. Coast Guard, National Oceanic and Atmospheric Administration and the Public Health Service.
Accessorial charges are charges for services other than line-haul charges. Examples of accessorial charges are:
(1) Inside delivery, redelivery, reconsignment, and demurrage or detention for freight; and
(2) Packing, unpacking, appliance servicing, blocking and bracing, and special handling for household goods.
Agency is any executive agency, but does not include:
(6) The Panama Canal Commission; and
Bill of lading, sometimes referred to as a commercial bill of lading (but includes GBLs), is the document used as a receipt of goods and documentary evidence of title.
Cargo preference is the legal requirement for all, or a portion of all, ocean-borne cargo to be transported on U.S. flag vessels.
Commuted rate system is the system under which an agency may allow its employees to make their own household goods shipping arrangements, and apply for reimbursement.
Consignor is the person or firm that ships freight or household goods to a consignee.
Debarment is an action to exclude a TSP, for a period of time, from providing services under a rate tender or any contract under the Federal Acquisition Regulation (48 CFR part 9, subpart 9.406).
Demurrage is the penalty charge to an agency for delaying the agreed time to load or unload shipments by rail or ocean TSPs.
Detention is the penalty charge to an agency for delaying the agreed time to load or unload shipments by truck TSPs.
Electronic commerce is an electronic technique for carrying out business transactions (ordering and paying for goods and services), including electronic mail or messaging, Internet technology, electronic bulletin boards, charge cards, electronic funds transfers, and electronic data interchange.
Government bill of lading (GBL) is the Optional Form 1103 or 1203, the transportation document used as a receipt of goods, evidence of title, and a contract of carriage.
Governmentwide Transportation Policy Council (GTPC) is an interagency forum to help GSA formulate policy. It provides agencies managing transportation programs a forum to exchange information and ideas to solve common problems. For further information on this council, see web site: http://www.policyworks.gov/​transportation.
Hazardous material is a substance or material the Secretary of Transportation determines to be an unreasonable risk to health, safety, and property when transported in commerce, and labels as hazardous under section 5103 of the Federal Hazardous Materials Transportation Law (49 U.S.C. 5103 et seq.). When transported internationally hazardous material may be classified as “Dangerous Goods.” All such freight must be marked in accordance with applicable regulations and the carrier must be notified in advance.
Line-Haul is the movement of freight between cities excluding pickup and delivery service.
Rate schedule is a list of freight rates, taxes, and charges assessed against non-household goods cargo.
Rate tender is an offer a TSP sends to an agency, containing service rates and charges.
Receipt is a written or electronic acknowledgment by the consignee or TSP as to when and where a shipment was received.
Release/declared value is stated in dollars and is considered the assigned value of the cargo for reimbursement purposes, not necessarily the actual value of the cargo. Released value may be more or less than the actual value of the cargo. The released value is the maximum amount that could be recovered by the agency in the event of loss or damage for the shipments of freight and household goods. The statement of released value must be shown on any applicable tariff, tender, or other document covering the shipment.
Reparation is a payment to or from an agency to correct an improper transportation billing involving a TSP. Improper routing, overcharges or duplicate payments may cause such improper billing. This is different from a payment to settle a claim for loss and damage.
Suspension is an action taken by an agency to disqualify a TSP from receiving orders for certain services under a contract or rate tender (48 CFR part 9, subpart 9.407).
Transportation service provider (TSP) is any party, person, agent or carrier that provides freight or passenger transportation and related services to an agency. For a freight shipment this would include packers, truckers and storers. For passenger transportation this would include airlines, travel agents and travel management centers.
U.S. flag air carrier is an air carrier holding a certificate issued by the United States under 49 U.S.C. 41102 (49 Start Printed Page 60063U.S.C. 40118, 48 CFR part 47, subpart 47.4).
U.S. flag vessel is a commercial vessel, registered and operated under the laws of the U.S., owned and operated by U.S. citizens, and used in commercial trade of the United States.
(b) Use another agency's contract or rate tender with a TSP only if allowed by the terms of that agreement or if the Administrator of General Services delegates authority to another agency to enter an agreement available to other Executive agencies;
What are the advantages and disadvantages of using GSA's tender of service?
(a) It is an advantage to use GSA's tender of service when you want to:
(1) Use GSA's authority to negotiate on behalf of the Federal Government and take advantage of the lower rates and optimum service that result from a larger volume of business;
(2) Use a uniform tender of service; and
(3) Obtain assistance with loss and damage claims.
(b) It is a disadvantage to use GSA's tender of service when:
(3) You do not want to pay for the GSA administrative service charge as a participant in the GSA rate tender programs.
It is advantageous to use another agency's contract or rate tender for transportation services when the contract or rate tender offers better or equal value than otherwise available to you.
(b) Pay any other charges imposed by the other agency for external use of their contract or rate tender; and
(c) Ensure the terms of the other agency's contract or rate tender allow you to use it.
What are the advantages and disadvantages of contracting directly with a TSP under the FAR?
(a) The FAR is an advantage to use when:
(1) You ship consistent volumes in consistent traffic lanes;
(1) Cannot prepare and execute a FAR contract within your time frame; or
(2) Have recurring shipments between designated places, but do not expect sufficient volume to obtain favorable rates.
(1) Have a shipment that must be made within too short a time frame to identify or solicit for a suitable contract; or
(2) Have shipments recurring between designated places, but do not expect sufficient volume to obtain favorable rates.
What is the importance of terms and conditions in a rate tender or other transportation document?
Terms and conditions are important to protect the Government's interest and establish the performance and standards expected of the TSP. It is important to remember that terms and conditions are:
Note to § 102-117.60:
You must reference the negotiated contract or rate tender on all transportation documents. For further information see § 102-117.65.
(c) Interest shall accrue from the voucher payment date on overcharges made and shall be paid at the same rate in effect on that date as published by the Secretary of the Treasury according to the Debt Collection Act of 1982, 31 U.S.C. 3717.
http://www.fss.gsa.gov/​transtrav
You may find more information about terms and conditions in part 102-118 of this chapter, or the “U.S. Government Start Printed Page 60064Freight Transportation Handbook” (see § 102-117.65(f)).
To ensure proper reference of a rate tender on all shipments, you must show the applicable rate tender number and carrier identification on all transportation documents, such as, section 13712 quotation, “ABC Transportation Company, Tender Number * * *”.
(a) The TSP must file a written rate tender with your agency.
(a) A Government bill of lading (GBL), Optional Forms 1103 and 1203, is a controlled document that conveys specific terms and conditions to protect the Government interest and serves as the contract of carriage.
(b) A bill of lading, sometimes referred to as a commercial bill of lading, is the document used as a receipt of goods and documentary evidence of title.
(c) Use a bill of lading for Government shipments if the specific terms and conditions of a GBL are included in any contract or rate tender (see § 102-117.65) and the bill of lading makes reference to that contract or rate tender (see § 102-117.75 and the “U.S. Government Freight Transportation Handbook”).
You may use the GBL, Optional Forms 1103 or 1203, to acquire transportation services offered under a contract or rate tender until September 30, 2001. The GBL will completely phase out for domestic shipments on September 30, 2001, and be replaced by commercial bills of lading. After September 30, 2001, you may use the GBL only for international shipments (including domestic offshore shipments).
Bills of lading and purchase orders are the transportation documents you use to acquire freight, household goods and other transportation services after the GBLs retire for domestic shipments. Terms and conditions in § 102-117.65 and the “U.S. Government Freight Transportation Handbook” will still be required. For further information on payment methods, see part 102-118 of this chapter.
(a) Use the mode or individual transportation service provider (TSP) that provides the overall best value to the agency. For more information, see §§ 102-117.105 through 102-117.130;
(c) Ensure that small businesses receive equal opportunity to compete for all business they can perform to the maximum extent possible, consistent with the agency's interest (see 48 CFR part 19);
(d) Encourage minority-owned businesses and women-owned businesses, to compete for all business they can perform to the maximum extent possible, consistent with the agency's interest (see 48 CFR part 19);
Best value to your agency when routing a shipment means using the mode or individual TSP providing the best combination of satisfactory service factors.
(f) Record of past performance of the TSP including accuracy of billing;
(g) Capability of warehouse equipment and storage space; and
(h) Experience of company, management, and personnel to perform the requirements.
You calculate total delivery costs for a shipment by considering all costs related to the shipping or receiving process, such as packing, blocking, bracing, drayage, loading and unloading, and transporting.
Start Printed Page 60065
Several statutes mandate the use of U.S. flag carriers for international shipments (see 48 CFR part 47, subparts 47.4 and 47.5). For example:
(a) Arrangements for international air transportation services must follow the Fly America Act (International Air Transportation Fair Competitive Practices Act of 1974) (49 U.S.C. 40118); and
(b) International movement of property by water is subject to the cargo preference laws (see 46 CFR part 381 and 48 CFR part 47, subpart 47.5), which require the use of a U.S. flag carrier when service is available. The Maritime Administration (MARAD) monitors agency compliance of these laws. All Government shippers must send a rated copy of the ocean carrier's bill of lading to MARAD within 30 days of loading aboard a vessel to:
400 7th Street, SW.
http://www.marad.dot.gov/​
Tel. 1-800-9US-FLAG
E-mail: cargo@marad.dot.gov
Note to § 102-117.135(b):
Non-vessel Operations Common Carrier (NVOCC) or freight forwarder bills of lading are not acceptable (see 48 CFR part 47).
e-mail: cargo@marad.dot.go
(a) Goods transported entirely or partly by water between U.S. points, either directly or via a foreign port, must travel in U.S. Maritime Administration (MARAD) authorized U.S. Flag vessels;
(b) There are exceptions and limits for the U.S. Island territories and possessions in the Atlantic and Pacific Oceans (see § 102-117.155); and
You may refer to 46 App. U.S.C. 883, 19 CFR 4.80, DOT MARAD, the U.S. Coast Guard or U.S. Customs Service for further information on exceptions to the coastwise laws.
(1) General Services Administration, Federal Supply Service, Audit Division (FBA), 1800 F Street, NW., Washington, DC 20405, http://www.fss.gsa.gov/​transtrav;​ or
(2) General Services Administration, Federal Supply Service, 1500 Bannister Road, Kansas City, MO 64131, http://www.kc.gsa.gov/​fsstt.
(b) By land (international shipments), use the GBL;
(c) By ocean, use an ocean bill of lading, when suitable, along with the GBL; and
(b) For all property shipments subject to the cargo preference laws (see § 102-117.140), a copy of the ocean carrier's bill of lading, showing all freight charges, must be sent to MARAD within 30 days of vessel loading.
Start Printed Page 60066
(2) GSA's Centralized Household Goods Traffic Management Program (CHAMP);
(3) Contracting directly with a TSP, (including a relocation company that offers transportation services) using the acquisition procedures under the Federal Acquisition Regulation (FAR) (see § 102-117.35);
(4) Using another agency's contract with a TSP (see § § 102-117.40 and 102-117.45);
(5) Using a rate tender under the Federal transportation procurement statutes (49 U.S.C. 10721 or 13712) (see § 102-117.35).
Note to § -117.220:
Agencies must use the commuted rate system for civilian employees who transfer between points inside the continental United States unless it is evident from the cost comparison that the Government will incur a savings ($100 or more) using another choice listed. The use of household goods rate tenders is not authorized when household goods are shipped under the commuted rate system.
What is the difference between a contract or a rate tender and a commuted rate system?
(b) Under the commuted rate system an employee arranges for shipping HHG and is reimbursed by the agency for the resulting costs. Use this method only within the continental United States (not Hawaii or Alaska). The agency reimburses the employee according to the Commuted Rate Schedule published by the GSA. The Commuted Rate Schedule (without rate table) is available on the Internet at http://www.policyworks.gov.
(c) For rate table information or a subscription for the Commercial Relocation Tariff contact:
Tel. 703-683-7410
(d) For further information or assistance, you may contact:
http://www.kc.gsa.gov/​fsstt
Must I compare costs between a contract or a rate tender and the commuted rate system before choosing which method to use?
Note to § 102-117.235(c):
GSA may charge an administrative fee for agencies not participating in the CHAMP program.
(a) Your agency is responsible for reimbursing the employee what it would cost the Government to ship the employee's HHG by the most cost-effective means available or the employee's actual moving expenses, whichever is less.
Note to § 102-117.240:
For more information on how to ship household goods, refer to 41 CFR 302-8.3.
(b) Under the CHAMP program, you must counsel employees to fill out their portion of the GSA Form 3080, Start Printed Page 60067Household Goods Carrier Evaluation Report. This form reports the quality of the TSP's performance. After completing the appropriate sections of this form, the employee must send it to the bill of lading issuing officer who in turn will complete the form and forward it to:
http://www.kc.gsa.gov.fss/​fsstt
If the TSP's performance is not satisfactory, you may place a TSP in temporary nonuse, suspended status, or debarred status. For more information on doing this, see subpart I of this part and the FAR (48 CFR 9.406-3 and 9.407-3).
Regarding the TSP's liability for loss or damage claims, you must:
(a) Advise employees on the limits of the TSP's liability for loss of and damage to their HHG so the employee may evaluate the need for added insurance;
(i) TSP's driving record (accidents, traffic tickets and driving complaints) as a percentage of shipments; and
(4) Any other offense indicating a lack of business integrity or business honesty that seriously and directly affects the present responsibility of the TSP as a transporter of the Government's property or the HHG of its employees relocated for the Government.
(a) The transportation officer may place a TSP in temporary nonuse for a period not to exceed 90 days. Start Printed Page 60068
(b) The serious nature of suspension and debarment requires that these sanctions be imposed only in the public interest for the Government's protection and not for purposes of punishment. Only the agency head or his/her designee may suspend or debar a TSP.
(a) You must set up a program consistent with your agency's internal record retention procedures to document the placement of TSPs in a nonuse, suspended or debarred status.
(2) Notify GSA (see § 102-117.315).
Agencies must report monthly any suspension or debarment actions to:
http://www.epls.arnet.gov;​
GSA will delegate authority when it does not have the expertise, or when it is outside of GSA's purview, to make a determination on an issue such as a protest of rates, routings or excessive charges.
Office of Transportation and Personal Property (MT)
(b) GSA has a list of TSPs, which meet certain criteria regarding insurance and safety, approved by DOT. You must furnish GSA with an affidavit to determine if the TSP meets the basic qualification to protect the Government's interest. As an oversight mandate, GSA coordinates this function. For further information contact:
Office of Transportation and Property Management
Travel and Transportation Management Division (FBL)
Crystal Mall Bldg. #4, Room 814
(a) Currently, there is no requirement for reporting to GSA on your transportation activities. However, GSA will work with your agency and other agencies to develop reporting requirements and procedures. In particular, GSA will develop a Governmentwide transportation reporting system by October 1, 2002.
(3) A better understanding of how your activity relates to other agencies and your influence on the Governmentwide picture of transportation services. Start Printed Page 60069
(b) Provides assistance in developing the Governmentwide transportation reporting system (see § 102-117.345).
http://www.policyworks.gov/​transportation
[FR Doc. 00-25130 Filed 10-5-00; 8:45 am]