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B-195574 1 (1980-03-19)

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                        THE COMPTROLLER GENERAL
DECISION                OF  THE   UNITED STATES
                        VV ASHING Torh    .C  210954 19



FILE: B-195574               DATE March 19, 1980


MATTER  OF: Yellow Freight System, Inc.


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DIGEST:


1.   Where carrier's rate tender specifies origin
     point of Los Angeles, California and/or
     Emeryville, California and destination point
     of Chicago, Illinois, for shipment of empty
     mailbags by United States Postal Service, and
     Mailbag Depositories. (MBDs) are actually
     located in Bell, California, and Forest Park,
     Illinois, highly unusual circumstances
     exist requiring resort to extrinsic evidence
     to ascertain whether carrier's intent was to
     include Bell, California, and Forest Park,
     Illinois, within tender's origin and destina-
     tion specifications.

2.   Intent of carrier, when analyzed in light of
     circumstances of this case, which included
     locations of MBDs in terms of tender specifi-
     cations, intent of Government shipping agent
     and carrier's agent, Government Bill of Lading,
     supplements to tender and subsequent documents
     relating to contract, was to execute valid con-
     tract with Government for shipment of empty
     mailbags from commercial zone of Los Angeles to
     commercial zone of Chicago, and GSA validly
     determined that carrier's rate tender was for
     application.

     Yellow Freight System, Inc. (Yellow requests
review of the General Services Administration's cGSA)
action on 13 of its bills for transportation services.
See 49 U.S.C. 66(b) (1976) and 4 C.F.R. 53.3 (1978).
After auditing the bills, GSA notified Yellow of
overcharges totaling $5,721.66, which in the absence
of refund were collected by deduction from moneys
otherwise due the carrier. 49 U.S.C. 66(a) (1976).






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