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A firm requested review of a General Services Administration (GSA) setoff to recover government bill of lading overcharges, contending that: (1) it was unaware of the alternation practice on which GSA relied; and (2) GSA actions conflicted with the clear language and structure of the solicitation. GAO held that although alternation was a recognized practice for carrier movements: (1) the instant solicitation did not provide for it; and (2) GSA had no legal basis for reading it into the agreement. Accordingly, the GSA setoff action was overruled.

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