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The purpose of this part is to interpret statutes and other policies that assure that payment and payment mechanisms for agency transportation services are uniform and appropriate. This part communicates the policies clearly to agencies and transportation service providers (TSPs). (See § 102-118.15 for the definition of TSP.)
This part applies to all agencies (including the Department of Defense (DoD)) and TSPs defined in § 102-118.15, and wholly owned Government corporations as defined in 31 U.S.C. 101, et seq., and 31 U.S.C. 9101(3). Agencies are required to incorporate this part into their internal regulations.
The following definitions apply to this part:
Agency means a department, agency, or instrumentality of the United States Government (31 U.S.C. 101).
Bill of lading (BOL), sometimes referred to as a commercial bill of lading, but includes a Government bill of lading (GBL), is a transportation document that can be issued by either the agency or the TSP. It serves multiple purposes as a receipt of goods, contract of carriage, and evidence of title. It also specifies contract terms and conditions, and is mandatory for all shipments. The TSP must comply with applicable Federal regulations, specifically 41 CFR part 102-117 and this part.
Civilian Board of Contract Appeals (CBCA) means an independent court within GSA that settles transportation payment claims disputes between Federal agencies and TSPs. For additional information on the CBCA see https://www.cbca.gov/index.html.
Claim means—
(1) Any demand by an agency upon a TSP for the payment of overcharges, ordinary debts, fines, penalties, administrative fees, special charges, and interest; or
(2) Any demand by the TSP for amounts not included in the original bill that the TSP believes an agency owes them. This includes amounts deducted or offset by an agency; amounts previously refunded by the TSP, which is believed to be owed; and any subsequent bills from the TSP resulting from a transaction that was audited by the agency.
Document reference number (DRN) means the unique number on a BOL, Government Transportation Request (GTR), or transportation ticket used to track the movement of shipments and individuals.
Electronic funds transfer (EFT) means any transfer of funds, other than transactions initiated by cash, check, or similar paper instrument, that is initiated through an electronic terminal, telephone, computer, or magnetic tape, for the purpose of ordering, instructing, or authorizing a financial institution to debit or credit an account.
Government bill of lading (GBL) means the transportation document used as a receipt of goods, evidence of title, and a contract of carriage for Government international shipments (see bill of lading (BOL) definition in this section).
Government contractor issued charge card means an individually billed travel card or an agency purchase card.
Government Transportation Request (GTR) (Optional Form (OF) 1169) means a Government document used to procure passenger transportation services from a TSP. The document obligates the Government to pay for transportation services provided and is used when a Government contractor issued charge card is not accepted by the TSP.
Individually billed travel card means the charge card used by authorized individuals to pay for official travel and transportation related expenses for which the contractor bills the employee. This is different from a centrally billed account paying for official travel and transportation related expenses for which the agency is billed.
Offset means withholding money from a payment. In this part, money withheld refers to the funds owed a TSP that are not released by the agency but instead used to repay the Government for a debt incurred by the TSP.
Ordinary debt means an amount that a TSP owes an agency other than for the repayment of an overcharge. Ordinary debts include, but are not limited to, payments for transportation services ordered and not provided (including unused transportation tickets), duplicate payments, and amounts for which a TSP is liable because of loss and/or damage to property it transported.
Overcharge means those charges for transportation that exceed those applicable under the executed agreement for services such as BOL (including a GBL, contract, rate tender or a GTR).
Postpayment audit means an audit of transportation billing documents, and all related transportation documents after payment, to decide their validity, propriety, and conformity of rates with tariffs, quotations, agreements, contracts, or tenders. The audit process may also include subsequent adjustments and collection actions taken against a TSP by the Government (31 U.S.C. 3726).
Prepayment audit means an audit of transportation billing documents before payment to determine their validity, propriety, and conformity of rates with tariffs, quotations, agreements, contracts, or tenders (31 U.S.C. 3726).
Privately Owned Personal Property Government Bill of Lading means the agency transportation document used as a receipt of goods, evidence of title, and generally a contract of carriage. It is only available for the transportation of household goods. Use of this form is mandatory for the Department of Defense, but optional for other agencies.
Refund means the amount collected from outside sources for payments made in error, overpayment, or adjustments for previous amounts disbursed.
Standard Carrier Alpha Code (SCAC) is a unique code, typically two to four characters, used to identify transportation companies.
Statement of difference means a statement issued by an agency or its designated audit contractor during a prepayment audit when it has been determined that a TSP has billed the agency for more than the proper amount for the services. This statement tells the TSP the amount allowed and the basis for the proper charges. The statement also cites the applicable rate references and other data relied on for support. The agency issues a separate statement of difference for each transportation transaction. This can be an electronic process.
Supplemental bill means the bill for services that the TSP submits to the agency for additional payment of the services provided.
Taxpayer identification number (TIN) means the number required by the Internal Revenue Service to be used by the TSP in reporting income tax or other returns. For a TSP, the TIN is an employer identification number.
Transportation means service involved in the physical movement (from one location to another) of people, household goods, and freight by a TSP or a Third Party Logistics (3PL) entity for an agency, as well as activities directly relating to or supporting that movement. These activities are defined in 49 U.S.C. 13102.
Transportation audit is a thorough review and validation of transportation related documents and bills. The audit must examine the validity, propriety, and conformity of the charges or rates with tariffs, quotations, contracts, agreements, or tenders, as appropriate.
Transportation document (TD) means any executed document for transportation services, such as a BOL, a tariff, a tender, a contract, a GTR, invoices, paid invoices, any transportation bills, or other equivalent documents, including electronic documents.
Transportation payment is a payment made by an agency to a TSP for the movement of goods, people or transportation related services.
Transportation service provider (TSP) means any party, person, agent, or carrier that provides freight, household goods, or passenger transportation or related services to an agency.
Ordering methods are prescribed in 41 CFR part 102-117 for freight, household goods, and small parcels. Ordering transportation for travel is prescribed in the Federal Travel Regulation in 41 CFR subtitle F.
The TSP shall bill the agency in accordance with the procedures prescribed in the ordering documents or agreement.
Agencies must pay for transportation services via EFT, unless issued an exception by the Secretary of the Treasury (31 U.S.C. 3332, et seq. ).
Agencies must correctly pay individual transportation invoices (see 31 U.S.C. 3351(4), Improper Payment definition).
Agencies must establish administrative procedures that ensure the following conditions are met:
(a) Services rendered are paid in accordance with the terms and conditions and the agency must not overpay or underpay a transportation bill.
(b) A document of agreement signifying acceptance of the arrangements with terms and conditions is filed with the participating agency by the TSP.
(c) The terms and conditions are included in all transportation agreements and referenced on all transportation documents (TDs).
(d) Bills are only paid to the TSP listed on the BOL, and cannot be waived.
(e) All fees to be paid are detailed in the aggregate delivery costs.
(f) All payments are subject to applicable statutory limitations.
(g) Procedures (such as a unique numbering system) are established to prevent and detect duplicate payments, properly account for expenditures and discrepancy notices.
(h) All transactions are verified with any indebtedness list. On charge card transactions, agencies must consult any indebtedness list if the charge card contract provisions allow for it.
(i) Procedures are established to process any unused tickets.
(a) Bills should be received electronically and must be paid via EFT (31 U.S.C. 3332).
(b) Agencies may use a Government contractor issued charge card to acquire and pay for transportation.
A Government contractor issued charge card:
(a) May be used to acquire freight and small parcel transportation.
(b) Must be used (except when a GTR is allowed) for passenger transportation.
Forms and Documents
Agencies must use commercial payment practices and forms to the maximum extent possible; however, when viewed necessary by an agency, the agency may use the following Government forms to pay transportation bills—
(a) Standard Form (SF) 1113, Public Voucher for Transportation Charges, and SF 1113-A, Memorandum Copy;
(b) SF 1103, Government Bill of Lading (used for movement of things, both privately owned and Government property for official uses);
(c) OF 1169, Government Transportation Request (used to pay for tickets to move people); and
(d) Privately Owned Personal Property Government Bill of Lading (used by the Department of Defense to move private property for official transfers).
When an agency requires an SF 1113 to be submitted the TSP must include its TIN and SCAC.
Agencies are not required to issue a GBL or GTR and must use commercial payment practices to the maximum extent possible.
If an agency uses any other TDs for shipping under its account, required safeguards must be in place.
BOLs are not required to ship small parcels.
The mandatory terms and conditions governing the use of bills of lading are:
(a) Unless otherwise permitted by statute and approved by the agency, the TSP may not demand prepayment or collect charges from the consignee. The TSP, providing service under the BOL, must present a legible copy of the BOL or an original, properly certified GBL attached to SF 1113 to the paying office for payment. An agency may choose not to require that an SF 1113 be attached to the BOL and invoice if the TSP submits invoices using the agency's approved third-party payment system (TPPS).
(b) The shipment must be made at the restricted or limited valuation specified in the tariff or classification or limited contract, arrangement or exemption at or under which the lowest rate is available, unless indicated on the BOL. (This is commonly referred to as an alternation of rates.)
(c) Receipt for the shipment is subject to the consignee's annotation of loss, damage, or shrinkage on the delivering TSP's documents and the consignee's copy of the same documents. If loss or damage is discovered after delivery or receipt of the shipment, the consignee must promptly notify the TSP and extend the privilege of examining the shipment.
(d) The rules and conditions governing commercial shipments for the time period within which notice must be given to the TSP, or a claim must be filed, or suit must be instituted, shall not apply if the shipment is lost, damaged or undergoes shrinkage in transit. Only with the written concurrence of the Government official responsible for making the shipment is the deletion of this item considered to be valid.
(e) Interest shall accrue from the voucher payment date on the overcharges made and shall be paid at the same rate in effect on that date as published by the Secretary of the Treasury pursuant to the Debt Collection Act of 1982 (31 U.S.C. 3717).
The mandatory terms and conditions governing the use of passenger transportation documents are:
(a) U.S. Government travel must be via the lowest cost available that meets travel requirements ( e.g., Government contract, fare, through, excursion, or reduced one way or round trip fare).
(b) The U.S. Government is not responsible for charges exceeding those applicable to the type, class, or character authorized in transportation documents.
(c) The U.S. Government contractor issued charge card must be used to the maximum extent possible to procure passenger transportation tickets. GTRs must be used minimally.
(d) Government passenger transportation documents must be in accordance with Federal Travel Regulation in 41 CFR subtitle F.
(e) Interest shall accrue from the voucher payment date on overcharges made hereunder and shall be paid at the same rate in effect on that date as published by the Secretary of the Treasury pursuant to the Debt Collection Act of 1982.
(f) The TSP must insert on the TD any known dates on which travel commenced.
(g) The issuing official or traveler, by signature, certifies that the requested transportation is for official business.
(h) The TSP must not honor any request containing erasures or alterations unless the TD contains the authentic, valid initials of the issuing official.
Agencies must process, review, and verify supplemental billings using the same procedures as on an original billing. Disputes are managed in accordance with agency policy.
Agencies must advise the TSP using a statement of difference of any adjustments made, either electronically or in writing, within 7 days of receipt of the bill, as required by the Prompt Payment Act (31 U.S.C. 3901, et seq. ).
When buying passenger transportation, agencies must reference the applicable contract on a GTR or passenger transportation document ( e.g., ticket).
For shipments bought on a TD, the TSP must submit an original properly certified BOL and, when appropriate, an SF 1113. The TSP must submit all documents to the agency paying office.
An agency may only pay the TSP listed on the BOL and with whom it has a contract.
A TSP cannot bill the agency to prepare a BOL or travel documents and cannot bill at a higher rate than the agreement permits.
Final receipt occurs when the shipment is delivered and endorsed by the consignee or authorized designee.
Agency Responsibilities—GBLs and GTRs
Agencies—
(a) Are responsible for the physical control, use, and accountability of GBLs and GTRs and must have procedures in place to track, manage, and account for these documents when necessary.
(b) Must assign each form a unique sequential tracking number.
(c) Must hold employees accountable for the issuance and use of the forms.
(a) Pursuant to 31 U.S.C. 3726, agencies are required to establish a program to audit all transportation bills.
(b) Agencies may perform either a prepayment or a post payment audit of transportation invoices.
Agencies may perform a prepayment audit, post payment audit, or both.
(a) Pre-payment audits focus on preventing overpayments by identifying invoice errors before payment. They help prevent overspending, ensure payments align with contracts, reduce administrative burdens, and strengthen carrier relationships by promoting transparency and accuracy.
(b) Post-payment audits, on the other hand, serve as a second line of defense after payments are made. They recover overcharges, uncover systemic issues and trends, and provide valuable data for negotiating better carrier contracts and optimizing freight processes through continuous improvement.
(c) Jointly, these audits form a complementary strategy: pre-payment audits minimize upfront errors and spending, while post-payment audits recover missed costs and drive long-term optimization. Combining both approaches enhances overall freight cost control and operational efficiency.
Agencies must:
(a) Consider the methods used to order and pay for passenger, household goods, small parcel, and freight transportation to include Government contractor-issued charge cards. Each method of ordering transportation and transportation services for passenger, household goods, and freight transportation may require a different kind of prepayment audit process.
(b) Ensure that each TSP bill or employee travel voucher contains enough information for the auditor to determine which contract or rate tender is used and the type and quantity of any additional services.
(c) Guarantee that the audit is not conducted by the same firm providing the transportation services for the agency. Furthermore, the auditor cannot be affiliated with or have a financial interest in the transportation company providing the services.
(d) Establish an appeals process for a TSP to appeal any reduction in the amount billed. It is recommended the agency establish an electronic appeal process that will direct TSP-filed appeals to an agency official for determination of the claim.
(e) Establish a separate appeals process for a TSP to appeal a post payment audit, if the agency performs a post payment audit.
(f) Develop policies and procedures outlining how the agency will adjudicate transportation payment claims.
(g) Create a unique agency numbering system to manage commercial paper, to assure that a transportation bill is not paid more than once, and to manage and track accountable GBLs and GTRs.
(h) Provide notification(s) to TSPs that include a detailed description of the reasons for any full or partial rejection of the stated charges on the invoice.
(i) Include a statement in a cost reimbursable contract that the contractor will submit any transportation invoice, with a cost exceeding $100, to the agency to undergo a transportation payment audit in accordance with the agency's policy. Bills under $100.00 shall be retained on-site by the contractor and made available for on-site Government audits.
Agencies must choose a method auditing transportation invoices:
(a) Agencies are encouraged to consider using a third-party electronic payment processor for transportation invoice processing, payment, and prepayment audit.
(b) Create an internal prepayment audit program.
(c) Contract directly with a prepayment audit service provider.
(d) Use the services of a prepayment audit contractor under GSA's multiple award schedule covering audit services, including transportation prepayment audit services (541211 Auditing Services).
(e) Use a third-party payment system (TPPS) or charge card company that includes prepayment audit functions.
All transportation bills must undergo an audit unless the agency chooses to perform statistical sampling as established by the Comptroller General (31 U.S.C. 3521(b)).
Agencies must properly maintain and store transportation records, including paid transportation bills, in accordance with the General Records Schedule 1.1 et seq. (36 CFR part 1220).
Agencies must notify the TSP of any adjustment to the TSP bill either electronically or in writing within seven calendar days of the agency receipt of the bill.
Agencies must establish an appeals process for a TSP to appeal any reduction in the amount billed. An agency must complete the review of the appeal and inform the TSP of the agency determination within 30 calendar days of the receipt of the appeal, either electronically or in writing.
If a TSP disagrees with the agency action it can file a claim with the CBCA or Federal Claims court. Claims must be filed within 3 years of the payment.
Agency certifying and disbursing officers are liable for any overpayments as prescribed in 31 U.S.C. 3528 and 31 U.S.C. 3322 respectively.
A TSP may file a transportation claim against an agency under 31 U.S.C. 3726 for—
(a) Amounts owed but not included in the original billing;
(b) Amounts deducted or set off by an agency that are disputed by the TSP; or
(c) Requests by a TSP for amounts previously refunded in error by that TSP.
The time limits differ by mode as shown in the following table:
Statutory time limits vary depending on the mode and the service applied:
Interest penalties under the Prompt Payment Act (31 U.S.C. 3901, et seq. ) are not required when payment is delayed because of a dispute between an agency and a TSP.
A claim must be received by the agency where the claim arose within 3 years beginning the day after the latest of the following dates (except in time of war)—
(a) Accrual of the cause of action;
(b) Payment of charges for the transportation involved;
(c) Subsequent refund for overpayment of those charges; or
(d) Deductions made to a TSP claim by the Government under 31 U.S.C. 3726.
Agencies must have procedures to resolve disputes with a TSP. Agency procedures must allow a TSP to appeal payment decisions.
A TSP may file a claim with the CBCA if the agency fails to issue a decision on a claim within 30 days.
An agency may not appeal a CBCA decision.
Principles governing agency collection procedures for reporting debts to the Government Accountability Office (GAO) or the Department of Justice are found in 31 CFR chapter IX and in the GAO Policy and Procedures Manual for Guidance of Federal Agencies ( https://www.gao.gov/products/149099 ).
TSP Filing Information and Requirements
A TSP may file a supplemental claim. Each supplemental claim must cover charges relating to one paid transportation document.
A TSP may appeal an agency's denial of its challenge to the statement of difference. However, the appeal must be handled at a higher level within the agency.
If the TSP disagrees with an agency's decision the TSP may file a claim with the CBCA or Federal Court of Claims.
A ruling by the CBCA is the final administrative remedy available and the TSP has no statutory right of appeal. This subpart governs administrative actions only and does not affect any of the TSP's rights. A TSP may still pursue a legal remedy through the courts.
An agency may not appeal a prepayment audit decision. Agencies must follow the ruling of the CBCA.
The Government can charge interest on an amount due from a TSP. This procedure is provided for within the Debt Collection Act (31 U.S.C. 3717), the Federal Claims Collection Standards (31 CFR chapter IX), and 41 CFR part 105-55.
TRANSPORTATION PAYMENT AND AUDIT (U.S.C.). Retrieved via LawPlayer, https://lawplayer.com/us/act/cfr-title-41-part-102-118
United States government works (U.S. Code, Code of Federal Regulations) are in the public domain under 17 U.S.C. § 105.
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