All transactions in the TransactionList message MUST be sorted by LC value (lowest first). All transactions without a pal header MUST be added with their payload. Transactions with a pal header are discussed in §7.
Leaves up to interpretation what to do with transactions with private payloads.
https://nuts-foundation.gitbook.io/drafts/rfc/rfc017-distributed-network-grpc-v2#5.2.3-transaction-list states:
Leaves up to interpretation what to do with transactions with private payloads.