[Federal Register Volume 62, Number 91 (Monday, May 12, 1997)]
[Rules and Regulations]
[Pages 25865-25868]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 97-12382]


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GENERAL SERVICES ADMINISTRATION

48 CFR Part 6103

RIN Number 3090-AG05


Board of Contract Appeals; Rules of Procedure for Transportation 
Rate Cases

AGENCY: Board of Contract Appeals, General Services Administration.

ACTION: Final rule.

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SUMMARY: This document specifies the rules of procedure of the GSA 
Board of Contract Appeals applicable to the Board's review of claims 
made by a carrier or freight forwarder pursuant to 31 U.S.C. 
3726(g)(1). The rules are intended to implement section 201(o) of the 
General Accounting Office Act of 1996 (Pub. L. 104-316), which 
transferred the authority to resolve these claims to the Administrator 
of General Services, who has redelegated that function to the Board.

EFFECTIVE DATE: This regulation is effective May 12, 1997.

FOR FURTHER INFORMATION CONTACT: Margaret S. Pfunder, Deputy Chief 
Counsel, GSA Board of Contract Appeals, telephone (202) 501-0272, 
Internet address: Margaret.P[email protected].

SUPPLEMENTARY INFORMATION:

A. Regulatory Flexibility Act

    The General Services Administration certifies that this 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.).

B. Paperwork Reduction Act

    The Paperwork Reduction Act does not apply because the rule does 
not impose recordkeeping or information collection requirements, or the 
collection of information from offerors, contractors, or members of the 
public which require the approval of OMB under 44 U.S.C. 3501 et seq.

C. Effective Dates

    These rules are applicable to all transportation rate cases filed 
on or after May 12, 1997.

D. Background

    On July 26, 1996, the Board published in the Federal Register (61 
FR 39096) an interim rule specifying the rules of procedure the Board 
would apply to its review of claims made by a carrier or freight 
forwarder pursuant to 31 U.S.C. 3726(g)(1). The Board invited written 
comments on the interim rules. The rules were intended to implement 
section 211 of the Legislative Branch Appropriations Act, 1996 (Pub. L. 
104-53), which, effective June 30, 1996, transferred certain functions 
of the Comptroller General to the Director of the Office of Management 
and Budget (OMB), and authorized the Director to delegate any of those 
functions to another agency or agencies. Effective the same date, the 
Director delegated the function contained in 31 U.S.C. 3726(g)(1)--the 
authority to review rate

[[Page 25866]]

claims of a carrier or freight forwarder-- to the Administrator of 
General Services, who redelegated that function to the GSA Board of 
Contract Appeals.
    On October 19, 1996, Congress enacted the General Accounting Office 
Act of 1996 (Pub. L. 104-316). Section 201(o) of that Act directly 
transfers the authority of the Comptroller General to resolve 
transportation rate claims under 31 U.S.C. 3726(g)(1) to the 
Administrator of General Services, who has continued to delegate this 
function to the Board. In addition, the Administrator of General 
Services has delegated to the Board the authority to adopt and issue 
rules necessary for the resolution of these claims. This final rule has 
been adopted by vote of the Board's judges.

E. Summary of Comments and Changes

    The Board received written comments on the interim rules from three 
commentators. Commentators included two motor freight carriers and an 
association of motor freight carriers. The Board carefully considered 
these comments, and adopted a number of the suggestions made by the 
commentators. One commentator made no specific comments, but simply 
expressed approval of the transfer of transportation rate claims from 
the Comptroller General to the Administrator of General Services. The 
other two commentators supported the interim rules and, in general, 
suggested that some of the rules be more detailed. Their comments and 
any revisions made, are discussed below in a section-by-section format.

Section 6103.2  (Filing Claims)

    Two commentators suggested that the rule should state when a claim 
is timely filed and/or provide a certain time by which the Board must 
acknowledge receipt of a claim. They also suggested that the rule 
permit filing a claim with the Board by facsimile transmission. In 
response to these comments, the Board has added paragraph (b) to 
Section 6103.2, which provides that a claim is filed when a written 
copy is received by the Office of the Clerk of the Board during the 
Board's working hours. Filing has been and is permitted by facsimile 
transmission. All Board cases are date-stamped upon receipt and 
docketed within one to two working days of receipt. In addition, the 
notice of docketing sent to the claimant, OTA, and the agency states 
the date the claim was filed with the Board. A claimant will thus be 
able to verify the date the Board received the claim. In order to 
facilitate the filing of claims, the address and the telephone and 
facsimile machine numbers of the Clerk's office are provided, as are 
the Board's working hours.

Section 6103.3  (Responses to Claims)

    The Board made three changes to this section. First, the Board 
revised the rule to increase from 30 to 60 calendar days after 
docketing the time the agency has to respond to the claim, if the 
agency office for which the services were provided is located outside 
the United States. In the Board's experience, agency offices located 
outside the United States have generally needed this additional time to 
receive and respond to claims.
    Second, the Board has redrafted Section 6103.3 to provide that all 
responses submitted to the Board must indicate that a copy has been 
provided to the claimant. Both commentators stated that the rule should 
include some type of proof of service provision; one commentator wanted 
the rule to provide for sanctions in the event that a party failed to 
serve its submission on all participants. The Board believes that the 
rule as revised is sufficient to ensure service on the claimant, and 
that more formal proof of service requirements and specified sanctions 
are unnecessary. Should the need arise, the judge to whom a case is 
assigned may determine how to enforce the service requirements. The 
Board has also added a parallel service of copy requirement to 
paragraph (d) of Section 6103.2, which requires the claimant to send to 
OTA and the agency a copy of all material provided to the Board, and to 
indicate on all submissions to the Board that a copy has been provided 
to OTA and the agency.
    Third, in order to expedite proceedings, Section 6103.3 now 
provides that, if either OTA or the agency does not wish to file a 
response, it should so notify the Board and the claimant. If the Board 
knows that OTA and/or the agency is not filing a response, it may 
proceed with resolving the claim rather than waiting for the response 
period to expire.

Section 6103.4  (Reply to OTA and Agency Responses)

    This rule has been redrafted to require a claimant wishing to reply 
to the OTA and agency responses to file and serve the reply within 30 
calendar days after receiving the responses (or within 60 days if the 
claimant is located outside the United States). The interim rule 
required a claimant first to notify the Board within 10 days after 
receiving the responses that it wished to file a reply, and then to 
have the judge establish when the reply was due. One commentator 
suggested that 10 days was too short a time to determine whether to 
file a reply. The Board agrees, and has increased the amount of time 
for a reply to 30 days, the amount of time given OTA and the agency to 
file responses to a claim. The Board also concluded that it is 
appropriate to permit a reply in all cases, such that each judge need 
not make a case-by-case determination.
    Both commentators were concerned that the exact date a carrier 
received the responses would not be known with certainty by the Board, 
and that either the date the response was mailed to the Board or the 
date shown in a certificate of service should be determinative. The 
Board did not incorporate either of these suggestions in the final 
rule; such formality is unnecessary, given the time frames established 
in the rules. The carrier will be aware of its receipt date(s), and, 
therefore, can determine when a reply is due.

Section 6103.5  (Proceedings)

    The Board added paragraph (a) to this section to clarify that the 
claimant, OTA, or the agency may request additional time to make any of 
the filings required or permitted by the rules. However, the Board may 
not expand time limits established by statute. Both commentators 
suggested that the rules should provide for discovery, citing the 
carriers' past inability to obtain documents and other information 
possessed by the Government needed to prove entitlement to payment. The 
commentators and Board practice have not demonstrated a need for a rule 
on discovery. Under Section 6103.5(c), judges retain the flexibility to 
require participants to submit necessary additional information.

Section 6103.6  (Decisions)

    In response to the suggestions made by both commentators, this 
section makes explicit that it has been and is the Board's practice to 
furnish the participants with a copy of the Board's decision. The 
revised rule also explains that the Board's decisions are posted weekly 
on the Internet, and provides the Board's Internet address.

Section 6103.7  (Reconsideration of Board Decision)

    Both commentators suggested that 15 calendar days after the date a 
decision is issued was too short a time in which to prepare a request 
for reconsideration. The Board agrees, and has lengthened the time to 
30 days after the date the decision was issued, or to 60 days if the 
claimant or agency office making the request is located outside the 
United States. One commentator suggested that all of the Board's rules 
relating to

[[Page 25867]]

reconsideration of contract appeals be incorporated into the rules for 
transportation rate cases. Neither the statute nor the Board envisions 
these cases as formal, judicial proceedings. Specifically structured 
reconsideration procedures are unnecessary. However, as made clear in 
the revised rule, a request for reconsideration should not be a routine 
practice in these cases. A request for reconsideration must be premised 
on more than reargument or disagreement.

Section 6103.8  (Payment of Successful Claims)

    Both commentators suggested that Section 6103.8 should provide that 
an agency must pay any amount found due by the Board within 30 days of 
the date of the Board's decision. Such a requirement comports with the 
requirement of the Prompt Payment Act, 31 U.S.C. 3903, that payment is 
due 30 days after the date the invoice is received by the agency. The 
Board concludes that this matter is not appropriately resolved by a 
rule of procedure, and that an agency receiving the Board's final 
administrative decision on a claim will in fact promptly pay any amount 
found owing the claimant, in accordance with applicable statutes.

List of Subjects in 48 CFR Part 6103

    Administrative practice and procedure, Freight forwarders, 
Government procurement.

    For the reasons set out in the preamble, 48 CFR Part 6103 is 
revised to read as follows:

PART 6103--RULES OF PROCEDURE FOR TRANSPORTATION RATE CASES

Sec.
6103.1  Scope [Rule 301].
6103.2  Filing claims [Rule 302].
6103.3  Responses to claims [Rule 303].
6103.4  Reply to OTA and agency responses [Rule 304].
6103.5  Proceedings [Rule 305].
6103.6  Decisions [Rule 306].
6103.7  Reconsideration of Board decision [Rule 307].
6103.8  Payment of successful claims [Rule 308].

    Authority: 31 U.S.C. 3726(g)(1); 41 U.S.C. 601-613. Section 
201(o), Pub. L. 104-316, 110 Stat. 3826.


Sec. 6103.1   Scope [Rule 301].

    (a) Authority. Section 201(o) of the General Accounting Office Act 
of 1996, Public Law 104-316, transfers certain functions of the 
Comptroller General contained in 31 U.S.C. 3726(g)(1) to the 
Administrator of General Services, who has redelegated those functions 
to the General Services Administration Board of Contract Appeals.
    (b) Type of claim; review of claim. These procedures are applicable 
to the review of claims made by a carrier or freight forwarder pursuant 
to 31 U.S.C. 3726(g)(1). The Board will issue the final agency decision 
on a claim based on the information submitted by the claimant, the 
General Services Administration Office of Transportation Audits (OTA), 
and the department or agency (the agency) for which the services were 
provided. The burden is on the claimant to establish the timeliness of 
its claim, the liability of the agency, and the claimant's right to 
payment.


Sec. 6103.2   Filing claims [Rule 302].

    (a) Form. A claim shall be in writing and must be signed by the 
claimant or by the claimant's attorney or authorized representative. No 
particular form is required. The request should describe the basis for 
the claim and state the amount sought. The request should also include:
    (1) The name, address, telephone number, and facsimile machine 
number, if available, of the claimant;
    (2) The Government bill of lading or Government transportation 
request number;
    (3) The claimant's bill number;
    (4) The Government voucher number and date of payment;
    (5) The OTA claim number;
    (6) The agency for which the services were provided; and
    (7) Any other identifying information.
    (b) When and where claims are filed. A claim is filed when it is 
received by the Office of the Clerk of the Board during the Board's 
working hours. Claims should be sent to the Board at the following 
address: Office of the Clerk of the Board, Room 7022, General Services 
Administration Building, 1800 F Street, NW, Washington, DC 20405. The 
Clerk's telephone number is: (202) 501-0116. The Clerk's facsimile 
machine number is: (202) 501-0664. The Board's working hours are 8:00 
a.m. to 4:30 p.m., Eastern Time, on each day other than a Saturday, 
Sunday, or federal holiday.
    (c) Notice of docketing. A claim will be docketed by the Office of 
the Clerk of the Board, and a written notice of docketing will be sent 
promptly to the claimant, the Director of OTA, and the agency for which 
the services were provided. The notice of docketing will identify the 
judge to whom the claim has been assigned.
    (d) Service of copy. The claimant shall send to OTA and the agency 
identified in paragraph (a)(6) of this section copies of all material 
provided to the Board. All submissions to the Board by a claimant shall 
indicate that a copy has been provided to OTA and the agency.


Sec. 6103.3   Responses to claims [Rule 303].

    (a) Content of responses. Within 30 calendar days after docketing 
by the Board (or within 60 calendar days after docketing if the agency 
office for which the services were provided is located outside the 50 
states and the District of Columbia), OTA and the agency for which the 
services were provided shall each submit to the Board:
    (1) A simple, concise, and direct statement of its response to the 
claim;
    (2) Citations to applicable statutes, regulations, and cases; and
    (3) Any additional information deemed necessary to the Board's 
review of the claim.
    (b) Service of copy. All responses submitted to the Board shall 
indicate that a copy has been sent to the claimant and to OTA or the 
agency, as appropriate. To expedite proceedings, if either OTA or the 
agency will not file a response (e.g., it believes its reasons for 
denying the claim were sufficiently explained in the material filed by 
the claimant), it should notify the Board, the claimant, and OTA or the 
agency, as appropriate, that it does not intend to file a response.


Sec. 6103.4   Reply to OTA and agency responses [Rule 304].

    A claimant may file with the Board and serve on OTA and the agency 
a reply to the OTA and agency responses within 30 calendar days after 
receiving the responses (or within 60 calendar days after receiving the 
responses, if the claimant is located outside the 50 states and the 
District of Columbia). To expedite proceedings, if the claimant does 
not wish to respond, the claimant should so notify the Board, OTA, and 
the agency.


Sec. 6103.5   Proceedings [Rule 305].

    (a) Requests for additional time. The claimant, OTA, or the agency 
may request additional time to make any filing.
    (b) Conferences. The judge will not engage in ex parte 
communications involving the underlying facts or merits of the claim. 
The judge may hold a conference with the claimant, OTA, and the agency 
at any time, for any purpose. The judge may provide the participants a 
memorandum reflecting the results of a conference.
    (c) Submissions. The judge may require the submission of additional 
information at any time. The claimant, OTA, or the agency may request 
an opportunity to make additional submissions; however, no such

[[Page 25868]]

submission may be made unless authorized by the judge.


Sec. 6103.6 Decisions  [Rule 306].

    The judge will issue a written decision based upon the record, 
which includes submissions by the claimant, OTA, and the agency, and 
information provided during conferences. The claimant, OTA, and the 
agency will each be furnished a copy of the decision by the Office of 
the Clerk of the Board. In addition, all Board decisions are posted 
weekly on the Internet. The Board's Internet address is: 
www.gsbca.gsa.gov.


Sec. 6103.7  Reconsideration of Board decision  [Rule 307].

    A request for reconsideration may be made by the claimant, OTA, or 
the agency. Such requests must be received by the Board within 30 
calendar days after the date the decision was issued (or within 60 
calendar days after the date the decision was issued, if the claimant 
or agency office making the request is located outside the 50 states 
and the District of Columbia). The request for reconsideration should 
state the reasons why the Board should consider the request. Mere 
disagreement with a decision or re-argument of points already made is 
not a sufficient ground for seeking reconsideration.


Sec. 6103.8  Payment of successful claims  [Rule 308].

    The agency for which the services were provided shall pay amounts 
the Board determines are due the claimant.

    Dated: May 7, 1997.
Stephen M. Daniels,
Chairman, GSA Board of Contract Appeals.
[FR Doc. 97-12382 Filed 5-9-97; 8:45 am]
BILLING CODE 6820-34-P