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Containerisation solved most of ocean freight, but not all of it. Cargo that is too long, too tall, too heavy or shaped wrong still moves the way freight moved before the box: piece by piece, lifted by crane, stowed by a plan. Choosing between the two is a question about dimensions first and economics second.
The four options for awkward cargo
Standard container. If it fits, this is the answer. Cheapest handling, most frequent services, sealed from origin to destination.
Out of gauge in an open top or flat rack. Cargo that exceeds the internal height or width but still sits on a container footprint. It is priced with out of gauge surcharges based on how far it exceeds the profile, and it uses container services.
Breakbulk. Cargo lifted aboard as individual pieces and stowed in the hold or on deck. Used for project cargo, structures, long steel, machinery and anything a crane can lift but a box cannot hold. US customs regulations define break bulk cargo as cargo that is not containerized but is otherwise packaged or bundled.
Roll on roll off. Wheeled or tracked cargo driven aboard. Vehicles, trailers, agricultural and construction equipment.
| Option | Priced on | Frequency | Handling touches |
|---|---|---|---|
| Container | Per box | Highest | Fewest |
| Flat rack or open top | Box plus out of gauge surcharge | High | Few |
| Breakbulk | Weight or measure, plus lift charges | Lower, project driven | Many |
| Roro | Per unit or per lane metre | Set by the route | Few, but exposed |
Where the cost difference actually comes from
Container freight is cheap because handling is standardised and automated. Breakbulk reintroduces labour: riggers, cranes, dunnage, lashing, surveyors and a longer port stay. The ocean rate can look competitive while the terminal costs at both ends carry the difference.
The cost lines that separate a breakbulk quote from a container quote:
- Ocean freight charged on weight or measure, not per box.
- Lift charges for loading and discharging each piece by ship's gear or shore crane.
- Dunnage, lashing and securing material, engineered per piece.
- Surveyor fees for pre-loading and post-discharge condition surveys.
- Terminal handling and storage at both ports, charged per piece or per ton.
- Inland transport with permits when the piece exceeds road dimensions.
Our guide to terminal handling charges explains the container side of the same line items, and how to compare ocean freight quotes shows how to line up the two on a total basis.
Breakbulk also needs ports with the right equipment. A destination that handles containers routinely can lack the mobile harbour crane your piece needs, which forces a longer inland leg from a larger port and eliminates any saving.
Customs filing for breakbulk
Breakbulk follows different advance-data deadlines from containers. Under 19 CFR 4.7(b)(4), bulk cargo and authorized break bulk cargo are exempt from the rule that CBP receive the electronic cargo declaration 24 hours before loading. For that cargo the declaration is due 24 hours before the vessel arrives in the United States. A carrier of break bulk cargo has to apply in writing to CBP's National Targeting Center for the exemption and files under the 24-hour loading rule until CBP grants it.
The importer security filing follows the carrier. Under 19 CFR 149.4, bulk cargo exempt from the manifest rule is also exempt from the ISF, and importers of exempt break bulk cargo file the ISF 24 hours before arrival in the United States instead of 24 hours before loading. Containerized cargo on the same vessel, and any break bulk cargo that does not qualify, keeps the 24-hour loading deadline. A project shipment that mixes loose pieces and containers is therefore filed on two clocks. See AMS filing for ocean freight and ISF filing requirements for the two filings.
What a break bulk exemption request contains
The carrier, not the shipper, applies. The written request goes to the CBP National Targeting Center in Washington, DC and has to give CBP enough to assess security risk: the carrier's IRS number, the source and identity of the commodities and the means of packaging or bundling them, the foreign and domestic ports of call, the number of vessels used for break bulk cargo with their names and IMO numbers, and the list of importers and shippers, identifying any that are members of C-TPAT. Until CBP grants the exemption, the carrier files 24 hours before loading. Ask your forwarder whether the carrier holds the exemption before you plan the ISF around the later deadline.
Exporting from the United States
For vessel cargo leaving the United States, the exporter or its authorized agent must give the carrier the Automated Export System filing citation (the ITN) at least 24 hours before loading at the US port, under 19 CFR 192.14. The carrier cannot load the cargo without it, and for cargo CBP identifies as high-risk the carrier must deliver it for examination or, if it has already sailed, redeliver it under the terms of its international carrier bond. The same rule applies to breakbulk machinery and to containerized freight.
Roro and used vehicles
Vehicles are the main roro cargo, and they carry their own rules on both sides of the sale.
- Export reporting. A used self-propelled vehicle exported by vessel must be presented to CBP with its documentation at least 72 hours before export (19 CFR 192.2). The documentation includes the Vehicle Identification Number and the original title or a certified copy plus two complete copies.
- Liens and leases. If the vehicle is leased or carries a recorded lien, a signed letter from the third party on its letterhead must state that the vehicle may be exported.
- Stowage safety. Under 49 CFR 176.905, each vehicle is inspected for leaks and electrical faults before loading, and a vehicle that shows either cannot be transported. A flammable-liquid vehicle's tank can be no more than one quarter full and the liquid cannot exceed 250 L (66 gal). Batteries must be protected against short circuit and accidental activation.
- Hold equipment. The compartment needs two 4.5 kg (10 lb) dry chemical extinguishers, no-smoking signs, ventilation and a fire detection system that alerts the bridge.
A vehicle is exempt from these stowage requirements only if it meets an exception in 176.905(i), such as a fuel tank that is empty for low flashpoint fuels, or a battery-only vehicle with the battery protected from short circuit. Vehicle moves out of Miami are covered in our guide to shipping from Miami to Latin America.
Risk and insurance
Every additional lift is an opportunity for damage, and breakbulk cargo is exposed on deck in a way containerised cargo is not. Surveys before and after loading are standard on project moves, and the insurance conversation is different: values are higher, packing is bespoke, and the cargo insurance wording needs to reflect the stow.
Securing is engineered, not improvised. Lashing calculations, dunnage plans and weight distribution are part of the booking, not an afterthought at the quayside.
How to decide
- Measure the cargo accurately in length, width, height and weight, including any skid or cradle.
- Test it against internal container dimensions, not external ones.
- If it exceeds height or width only slightly, price the flat rack option before assuming breakbulk.
- If it is wheeled and self-propelled, price roro.
- Compare total port to port including all terminal handling, not the ocean rate alone.
- Confirm the destination port has the crane capacity and berth to handle the piece.
- Check whether the piece qualifies for the break bulk filing exemption, because it changes the ISF and manifest deadlines.
Our project cargo and specialised freight services cover the out of gauge and breakbulk end, and standard moves run through ocean freight.
FAQ
What is breakbulk cargo?
Cargo loaded as individual pieces rather than in containers, because of its size, weight or shape. US customs regulations define it as cargo that is not containerized but is otherwise packaged or bundled.
Is breakbulk cheaper than containers?
No, for cargo that fits a container: breakbulk adds lift charges, dunnage, surveys and longer terminal time. It exists for cargo that cannot fit a box, and it is charged on weight or measure instead of per box.
What is out of gauge cargo?
Cargo that exceeds the dimensions of a standard container but still travels on a flat rack or in an open top. The carrier adds an out of gauge surcharge based on how far the cargo exceeds the container profile.
Which is cheaper for vehicles, roro or container?
Roro is simpler for running vehicles because they are driven aboard and priced per unit or per lane metre. A container adds the box cost per vehicle and encloses the vehicle for the whole voyage.
Do all ports handle breakbulk?
No. A port needs the right crane capacity and a suitable berth for each piece. The destination's equipment decides the routing, and a port without it forces an inland leg from a larger port.
Does breakbulk need an AMS and ISF filing?
Yes. Break bulk cargo that CBP has exempted is filed 24 hours before arrival in the United States under 19 CFR 4.7(b)(4) and 149.4. Cargo that is not exempt follows the 24-hour loading deadline.
What documents does a used vehicle need to export by roro?
The Vehicle Identification Number plus the original certificate of title or a certified copy and two complete copies, presented to CBP at least 72 hours before export. A foreign-titled vehicle needs the original proof of ownership, with an English translation if the document is in another language, plus two copies. Untitled vehicles need an original Manufacturer's Statement of Origin or other proof of ownership such as a dealer's invoice.
Do breakbulk exports need an AES filing?
Yes. The exporter or its authorized agent files the Electronic Export Information in the Automated Export System and gives the carrier the ITN at least 24 hours before loading at the US port. For used self-propelled vehicles the deadline is 72 hours before export, and the carrier cannot load without the ITN or an exemption legend.
Have a piece that will not fit a box? Send dimensions and weights and we will price the realistic options.
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