Denro, Inc. v. United States

36 Cont. Cas. Fed. 75,782, 19 Cl. Ct. 270, 1990 U.S. Claims LEXIS 4, 1990 WL 3050
CourtUnited States Court of Claims
DecidedJanuary 17, 1990
DocketNo. 140-88C
StatusPublished
Cited by2 cases

This text of 36 Cont. Cas. Fed. 75,782 (Denro, Inc. v. United States) is published on Counsel Stack Legal Research, covering United States Court of Claims primary law. Counsel Stack provides free access to over 12 million legal documents including statutes, case law, regulations, and constitutions.

Bluebook
Denro, Inc. v. United States, 36 Cont. Cas. Fed. 75,782, 19 Cl. Ct. 270, 1990 U.S. Claims LEXIS 4, 1990 WL 3050 (cc 1990).

Opinion

OPINION

FUTEY, Judge.

This case is before the court on plaintiffs motion for summary judgment and defendant’s cross-motion for summary judgment. Plaintiff is seeking recovery in the amount of $153,915.00 plus interest, for modification costs incurred in producing a first article Air Traffic Control Communications System for defendant under a firm fixed price contract. Defendant denies owing any sums to plaintiff and contends that the modification costs are research and development expenses that should have been expensed immediately and included in the firm fixed bid.

Factual Background

On October 16, 1980, the United States Army Communication Material Readiness Command at Fort Monmouth, New Jersey, issued a Letter Request for Technical Proposals, Solicitation No. DAA B07-80-R0635 (solicitation) for the acquisition of approximately 42 Air Traffic Control Communications Switching Systems (systems), plus one first article.1 The solicitation sought a firm fixed price for the “commercial off the shelf equipment” system pursuant to a competitively bid two-step procurement. To ensure that a contractor met defendant’s requirements, the solicitation required a contractor to “engineer, furnish and install” an acceptable first article before it could proceed with full production. The solicitation also provided that defendant may, at its option, order spare parts at a negotiated price.

[271]*271Plaintiff responded to the solicitation and in its Step 1 technical proposal it set forth a detailed explanation of an appropriate system tailored from plaintiff’s Model 400, which was an existing “off the shelf” product. The following is a discussion of some of the technical modifications and design enhancements which were made by plaintiff on the Model 400 to accommodate defendant's specifications for the first article system:2

Specific console design. Plaintiff was required to design and manufacture three different types of air traffic control consoles: (1) radar control consoles; (2) local control/ground control consoles; and (3) operations consolettes.
24-Hour Clock and Barometric Altimeter Display. Defendant specified a twenty-four hour digital clock and a digital altimeter display which included a pressure sensor, a “computer” to translate changes in atmospheric pressure, and a display in the consoles. Plaintiff put masterclock circuitry in the digital clock area to keep clock displays in sync. In addition, modifications were made to the logic in the boot processors to accept input from the clock and altimeter boards.
Navigational Aid Display. Defendant desired a set of visual alarms to indicate a failure of the navigation aid. These alarms were incorporated with the Model 400’s standard voice switch as part of the crash alarm consoles.
Primary/Standby Selection Input Data/Radio Device Interface Card. The Model 400 had separate interface boards at the central equipment for the main and standby radio paths. Plaintiff designed a special module to do the switching from main to standby radio. This module includes a circuit back to the boot processor that indicates which radio has been selected.
Light Coordination Procedure and Data Input Unit. This unit operates as a visual back-up process for the standard audio communication between air traffic controllers to alert them when an aircraft travels from one controller’s airspace to another.
Power Changes. The Model 400 system operates on standard 60 cycle 115 volt power. Defendant specified that the system had to work on 50 cycle 220V power as well so that it could be used in Europe.
Crash Alarm Console. Plaintiff developed a self-contained crash alarm panel to enable the air traffic controller to contact up to six different sites at once. Remote Control Radio Access Control. Army tower operations at some posts close at night. At this time the post’s operations center takes control of the radios from the tower. A button on the crash alarm console was installed to permit transfer of 5 tower radio frequencies to the operations center.
Remote Positions. Plaintiff enhanced the Model 400 system’s ability to transmit audio and data communications because defendant contemplated using remote stations hooked into the tower.
Primary/Standby Selection Input Data. Plaintiff modified its Model 400 system to enable an air traffic controller to manually switch radios from one channel to another by using a jack panel. The Model 400 was designed to program radio channel usage electrically. Plaintiff designed a system to allow normal switching while also preventing accidental switching between primary and standby radio during transmission.

Plaintiff did not submit any prices with its Step 1 technical proposal in accordance with the solicitation. Defendant determined that plaintiff’s technical proposal was acceptable and asked plaintiff to submit a Step 2 sealed bid.

On October 27, 1981, the sealed bids were opened. Of the five bids received, plaintiff was the low bidder with $2,614,-561.00. In particular, plaintiff bid $213,-466.00 as the cost to create a first article based on the modifications.

By letter dated October 29, 1981, the Contracting Officer (CO), requested that [272]*272plaintiff verify its entire bid. This request directed plaintiff to “thoroughly evaluate and consider the elements of cost” in the proposal and to verify inter alia that plaintiff had a “complete understanding of the technical requirements of the solicitation and an ability to meet all the technical requirements in production and test of first article and production items.” The letter further specified that “[a]ll other areas of cost you may incur should also be revised and evaluated.” The CO stated on behalf of defendant that “we have reason to believe that a mistake may have been made in the preparation of your bid. The CO cautioned that “[i]n the event that a review of your bid disclosed that errors or omissions occurred in preparation of your bid price,” specific information concerning the alleged mistake should be submitted to defendant. The CO concluded by referring plaintiff to Defense Acquisition Regulation (DAR) § 2-406 (32 C.F.R. § 2-406 (1981), entitled “Mistake in Bid”) for information and guidance.

On November 6, 1981, plaintiff notified defendant of its bid review as follows:

Further we verify:
Our review disclosed no errors or omissions in the preparation of the bid. Our intended bid is the bid as submitted ...we have a complete understanding of the technical requirements of the solicitation and the ability to meet all the technical requirements in production and test of the first article and production items ... adequate costs for first article test procedures for Phases I and II were included in our bid prices. Over the past two years, we have independently developed the Model 400 as a part of our ongoing Research and Development. Those development costs were not discretely allocated to this bid. We are therefore bidding modified off the shelf commercial equipment. Due to the advanced stage of development of the 400,

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36 Cont. Cas. Fed. 75,782, 19 Cl. Ct. 270, 1990 U.S. Claims LEXIS 4, 1990 WL 3050, Counsel Stack Legal Research, https://law.counselstack.com/opinion/denro-inc-v-united-states-cc-1990.