The United States of America for the Use and Benefit of TSI Tri-State Painting, LLC v. Federal Insurance Company

District Court, S.D. Georgia·Decided May 10, 2022·No. 2:16-cv-00113·Unknown

Opinion

In the United States District Court for the Southern District of Georgia Brunswick Division

THE UNITED STATES OF AMERICA for the Use and Benefit of TSI TRI-STATE PAINTING, LLC,

Plaintiff/Counterdefendant, CV 216-113 v.

FEDERAL INSURANCE COMPANY,

Defendant/Counterclaimant.

ORDER Plaintiff TSI Tri-State Painting, LLC (“TSI”), dkt. no. 130, and Defendant Federal Insurance Company (“Federal”), dkt. no. 132, bring cross motions for summary judgment. For the reasons set forth below, both motions are DENIED. BACKGROUND This case revolves around a project at the Naval Submarine Base in Kings Bay, Georgia (“the Base”). Dkt. No. 1. Specifically, this case is a contract dispute between TSI and Sauer, Inc., the general contractor, after a building TSI agreed to repaint at the Base was discovered to be coated in lead paint. This lead paint, as well as issues with containment, led to extensive delays and increased costs for TSI in this project. In September 2011, Sauer, Inc.1 entered into a contract (the “Prime Contract”) with the federal government through NAVFAC2 to provide corrosion control repairs at Explosives Handling Wharf 2 building at the Base (the “Project”). Dkt. Nos. 130-1 at 1; 150- 2 at 1-2; see also Dkt. No. 130-2 (the Prime Contract). The

Project included removing existing protective coatings on certain surfaces, rehabilitating and refinishing those surfaces, and replacing the metal roof and wall panels, guardrails, and other components of the building. Dkt. Nos. 150-2 at 2; 130-2 at 5. Soon after contracting, Sauer secured a payment bond from Federal as part of its obligations under the Miller Act. Dkt. No. 85 ¶ 10; 40 U.S.C. § 3133 (2006). Federal is an insurance company which provides surety bonds to companies entering into construction

contracts with the federal government. Dkt. No. 85 ¶¶ 2, 10. In May 2012, Sauer requested that TSI submit a proposal to perform the blasting and industrial coatings work on the Project. Dkt. No. 150-2 at 2. The next month, the two parties executed a

1 Federal is representing Sauer’s interests in this litigation. For convenience, the Court refers to Federal and Sauer interchangeably in this Order.

2 NAVFAC is the United States Naval Facilities Engineering Command, for which Sauer and TSI performed work at the Kings Bay Naval Submarine Base. NAVFAC was ultimately responsible for overseeing the Project. contract for TSI to take on this work (the “Subcontract”). Id.; Dkt. No. 130-5. In a letter attached to its proposal, TSI agreed to perform this work for a base pay of roughly $6,500,000 founded, in relevant part, on three assumptions: 1) the coating to be removed would be “lead and hazardous free per the proposal request,” 2) the work would last from June 2012 to July 2013; and 3) TSI would require use of rental equipment for only eleven

months. Dkt. No. 130-5 at 36-38. As it turns out, those assumptions were not correct. A. Lead in the Paint In October 2011, soon after Sauer executed the Prime Contract with NAVFAC, Sauer approached a subcontractor to perform the coating work for the Project. See Dkt. No. 72-7 at 2. This subcontractor performed paint chip laboratory tests, which revealed the presence of lead in detectable concentrations well above the levels requiring lead protocols. Dkt. No. 72-6 at 16- 18 (indicating the presence of lead in concentrations between 21 and 28 parts per million (ppm)); see also Dkt. No. 142-6 (stating

the smallest concentration of lead that turned into a “lead job” was 4 ppm).3 The subcontractor shared these results with Sauer,

3 Federal contests this fact, arguing that this subcontractor did not perform proof of performance (“POP”) tests on the paint chips, which “is necessary for a party to definitively know whether a project contains lead.” Dkt. No. 149 at 9 (citing Dkt. No. 142-6 at 125:21-126:2; 176:3- 177:4). The Court will address this argument in Section I.B infra. dkt. no. 72-4 at 51:18-56:17, 61:9-23, and subsequently refused to perform the blasting and painting work for the Project, dkt. no. 72-5 at 19:8-23. Sauer then approached TSI in May and June of 2012 to perform the painting and blasting work, dkt. no. 72-4 at 80:6-10, but it did not share the results of the prior paint chip laboratory tests with TSI. Sauer provided TSI with existing Project documents which

showed the presence of lead in limited areas of the jobsite— specifically, handrails which were to be removed prior to the beginning of the Project. Id. at 15:23-16:18. But Sauer’s management told its team—which was working with TSI to craft the Subcontract between the two—not to “say anything about . . . doing any lead swabs, lead tests, anything like that” when referring to the cream-colored paint which covered the building and which TSI would be working on. Id. at 82:21-24. TSI also asked if Sauer or

the prior subcontractor had performed any lead tests on the paint, and Sauer did not acknowledge the lead tests it had in its possession. Dkt. No. 142-7 at 13:1-25, 62:7-17. As such, TSI priced its bid on the assumption that only very limited areas of the jobsite contained lead. As required by industry practice, though, TSI would perform its own test of the paint to determine the existence of lead. Dkt. No. 130-5 at 36. “Should the sample test results show the coating to contain lead,” TSI explained, “a price adjustment will be necessary from the owner.” Id. Upon executing the subcontract, TSI performed a POP test to determine whether the paint contained any lead or hazardous material. Dkt. No. 150-2 at 6. After the second and third POP tests confirmed the presence of lead in the paint to be blasted, NAVFAC issued a Stop Work Order in October 2012. Id. at 7. B. The Change Order Negotiations Upon discovery of the lead, TSI and Sauer engaged in negotiations which produced a number of “Change Orders” in an

effort to acknowledge the added costs of handling lead paint. Dkt. No. 142-4 ¶¶ 2-4. The first of these, issued in June 2013, was Change Order 7, in which Sauer agreed to pay TSI 49.22% of the lead-related funds it received from the government once the government issued its own unilateral modification to the Prime Contract. Id. at 7-8. The government did in fact issue this unilateral modification, id. ¶ 5, disbursing $5,770,790.14 to Sauer for lead-related issues with the Project, id. at 17. Upon

issuing this modification, the government directed Sauer to resume performance, and in July 2013, TSI began work on the Project again after lead paint protocols were agreed upon. See Dkt. No. 85 ¶¶ 49, 52, 57-59. In October 2013, Sauer and TSI began negotiations on Change Order 10, which purported to clarify the exact amount of funds TSI was due from Sauer as a result of the government’s unilateral modification. Dkt. Nos. 134 at 5; 134-1 at 7-10. Federal and TSI disagree as to the import of Change Order 10, with Federal claiming it “increased TSI’s contract price by $2,840,383.00,” dkt. no. 134 at 5, while TSI argues Change Order 10 “did not offer any

additional compensation or other consideration to TSI, but only sought to create additional terms concerning how the 49.22% recovery . . . would be paid and to remove protections accorded TSI in Change Order 7.” Dkt. No. 142 at 13. It is further disputed whether Change Order 10 was ever agreed to at all. Early in October 2013, a version of Change Order 10 was signed by TSI’s President, Irene Pescinski. Dkt. No. 142-3 ¶ 9. TSI claims this signature was done by mistake due to an

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