In re Freel

73 N.Y. St. Rep. 331
Procedural entryThis page is a short order in In re Freel. Read the opinion of the Court — 38 N.Y.S. 143
New York Supreme Court·Decided February 15, 1896·Published

Opinion

GAYNOR, J.

This is an application for a writ of mandamus to compel the comptroller of the city of Brooklyn to issue and sign a warrant upon the treasurer of the city in payment of a claim of the petitioner against the city for work done under a contract with the city. The contract was for the laying of water pipes and the constructing of a reservoir. It was made in the name of the city, by the mayor and the commissioner of city works, they being the officials authorized to make it. The work itself was, by the city charter, done under the authority and con[332]*332trol of the said commissioner. Laws 1888, c. 583, tit 16, § n„ The contract required that the chief engineer of the de^.it,merit should, once every month during the progress of the work, make an estimate in writing of the work done and material delivered, and the value thereof according to the prices by units of measure established by the contract; and that the city should thereupon pay the contractor 80 per cent, of such estimate; and that “whenever, in the opinion of the engineer, the party of the second part [contractor]' shall have completely performed this contract on his part, the said engineer shall so certify in writing to the commissioner of city works, and, in his certificate, shall state, from actual measurements, the whole amount of work done by the said party of the second part, and also the value of such work, under and according to the terms of the contract ” ; and that, upon the expiration of thirty days after the acceptance by the commissioner “of the work herein agreed to be done," the city should pay the contractor the amount then due and unpaid for work and material, to be arrived at by deducting all previous payments upon the monthly estimates, and also 8 per cent, of the total contract price, which, by the terms of the contract, was to be retained to remedy any defects which might develop in the work during six months thereafter, unless the contractor remedied them upon notice. It will'be observed that monthly payments were tobe made upon the estimates of the engineer, "while the final payment was to be arrived at by actual measurements. The engineer made thirty of such monthly estimates as the work went on, wdiich were paid. Each went the regular course prescribed by the city charter, namely: It was certified by the engineer to the commissioner of city works, who also certified it; it was then audited by the auditor, whereupon the comptroller drew a warrant for the amount upon the treasurer, and signed it, which was then signed by the mayor and city clerk, and sent to the treasurer, who paid it. The thirty-first monthly estimate was so made, certified, and audited, but the cdmptroller refused to draw and sign the warrant for the amount thereof. Each monthly estimate was styled such upon its face, in these very words. Finally, the engineer made out and certified what is styled on its face the “Final Monthly Estimate.” It is not an estimate, but an adjustment of the whole account upon actual measurements, the work having been completed. It shows the total amount of work and material, and the total price therefor according to the prices by units of measure fixed by the contract. It deducts all previous payments, and also 8‘ per cent, of such total price, as the contract requires shall be done by the final certificate, as has alseady been seen. It does not say in so many words that the contract has been completely performed, but it gives the total, and makes the deductions, and shows the final balance, all as the contract requires of the final certificate; the 8 per cent, being deducted and kept, as aforesaid, against the development of any defects in the work during the next six months, whereas 20 per cent, had theretofore been retained out of the monthly estimates. This certificate must be deemed the final one required by the contract, as certifying the completion of the con[333]*333tract,—that is to say, of all items of work to be done under the contract,—after which ,was to come the six-months test of the work as a whole. It is styled an “ estimate,” but it was not an estimate, nor is it claimed that it was, the claim being that it does not amount to an acceptance of the work as a whole, which eis correct; for the work, as a whole, by the tentis of the contract, was not to be finally accepted until six months thereafter, the 8 per cent." being held meanwhile. By the words of the contract, the commissioner’s acceptance was only of “ the work herein agreed to be done.” This final certificate was approved by the commissioner on November 1, 1893, and audited by the auditor, like all its predecessors, but the comptroller has not made and signed a warrant therefor. He refused to do so in the case of this and the preceding one, though they were duly certified by the engineer and the commissioner (who are made by the contract the judges of the work and of the execution of the contract), and audited by the auditor. The refusal seems to have been based on nothing except an informality which the legislature has since cured. Chapter 595, Laws 1894.

A few days after this case was argued the court of appeals of this state rendered a decision that, in such a case as this, ministerial officer’s of a city, whose duty it is to pay, or to raise money to pay, claims thus arising under contract, and certified and allowed by the officials intrusted by .law with that duty, may not refuse to do so upon the allegation or claim by them that the work was not done, or even that the certificate of it was false, or given under a mistake of facts; that it is for the city itself to make such an issue ; and that such ministerial officers cannot make it for the city. People ex rel. Ready v. City of Syracuse, 144 N. Y. 63; 63 St, Rep. 38. It is for me to yield implicit obedience to this far-reaching decision, and I do so; but it does nob control this case, unless the duties of the comptroller of the city of Brooklyn in respect of claims presented against the city are only clerical or ministerial, and this I do not concede. .The charter of the city prescribes a succession of safeguards to the city treasury. In the first place, no bill or claim can be audited unless it be made out in items, and certified by the officer or head of department by or under whom it is incurred. Laws 1888, c. 583, tit. 5, § 13. In that form it goes to the auditor, an official whose duties are judicial in their nature, and of the highest importance. He has to examine and pass upon the claim in all its aspects, both of fact and of law. It cannot be paid until he certifies that the work has been done and the materials furnished, and that the charges are just, or according to contract, if there be one, and lawfully incurred. Section 1. To satisfy himself of this, he has the right, and it is his duty when necessary or prudent, to take evidence and inspect the books and papers. If he fail in this, it is either because he does not understand the nature of the duties of his office, deeming them merely perfunctory, and, it may be,.to be turned over to a deputy or clerk, or else lie refuses tó fulfill his trust. The charter allows him to appoint a deputy to act “ during his absence,” which means an occasional [334]*334temporary absence from his office,.from sickness or the like. Title 52, § 26. It does not mean that the auditor may, in general, turn his office and judicial duties over to a deputy. Throop, Pub. Off, § 586; People v. Hopkins, 55 N. Y. 74.

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In re Freel, 73 N.Y. St. Rep. 331 (N.Y. Super. Ct. 1896).

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