TLT Construction Corp. v. United States

60 Fed. Cl. 187, 2004 U.S. Claims LEXIS 67, 2004 WL 691659
CourtUnited States Court of Federal Claims
DecidedMarch 31, 2004
DocketNo. 00-573C
StatusPublished

This text of 60 Fed. Cl. 187 (TLT Construction Corp. v. United States) is published on Counsel Stack Legal Research, covering United States Court of Federal Claims primary law. Counsel Stack provides free access to over 12 million legal documents including statutes, case law, regulations, and constitutions.

Bluebook
TLT Construction Corp. v. United States, 60 Fed. Cl. 187, 2004 U.S. Claims LEXIS 67, 2004 WL 691659 (uscfc 2004).

Opinion

MEMORANDUM OPINION

BRADEN, Judge.

This is a typical government contract case where the governing precedent is well established in the United States Court of Appeals for the Federal Circuit.

RELEVANT FACTS1

A. The Contract At Issue.

This case involves a dispute between TLT Construction Corporation (“TLT”) and the Department of the Army Engineer District, Savannah, Georgia (“the Army”) arising under a May 1, 1997 contract for construction, maintenance, and repair regarding the Smoke Bomb Hill Barracks Renovation Phase II at Fort Bragg, North Carolina, Contract No. DACA21-97-D-0015 (“the Contract”). See DefApp. at l.2

The Contract was for an indefinite-delivery and indefinite-quantity with one base year and two option years. See Def.App. at 2. The base year ran from May 1,1997 through April 30,1998; the first option year ran from May 1, 1998 through April 30, 1999. See Def.App. at 285. On April 17, 1998, the Army exercised the first option year by issuing Modification No. P0004. See Def-App. at 62. The first year option specifically incorporated by reference a standard Federal Acquisition Regulation (“FAR”), 48 C.F.R. § 52.217-9, provision that allowed the Army’s Contracting Officer (“CO”) to require delivery of certain numbered bid items upon written notice to TLT. See Def. App at 62.

[189]*189Thus, the scope of the Contract for both option periods allowed the CO to order any or all of the services and related materials identified within its scope, i.e., Bid Items, numbered 0001-0049. See Def.App. at 23-31. The work itemized in Bid Item No. 0001, however, could only be performed in the base year. See Def.App. at 3-11, 283. The base year had an estimated value of approximately $32,000,000, of which the Army ordered services and related materials in the amount of $22,891,000. See Def.App. at 124. The contract also incorporated by reference another standard FAR provision, 48 C.F.R. § 52.243-4,3 that permits the CO to order work changes within the general scope of the contract. See Def.App. at 68-69.

B. Landscape Requirements Concerning Grass And Sod.

On March 15, 1997, the Army prepared four contracting drawing documents entitled Landscape Plan-Fort Bragg (Plates L-l through L-4), see Def.App. at 74-77, a document entitled Typical Shrub Planting Plan, Building H-4817 (Plate L-5), see Def.App. at 78, and a document entitled Landscape Plant List Details (Plate L-6). See Def.App. at 79. These contract drawings specifically were referenced and incorporated in the April 9, 1997 Amendment of Solicitation and Modification of Contract and made part of the May 1, 1997 Contract No. DACA21-97-D-0015. Id. at 19, 35 (Invitation Number DACA2197-B-0023 List of Attachments, including Contract Drawing File No. 721-11-14, Sheets 1 through 60, 62 through 148).

The minutes of a May 8,1997 Preconstruction Conference further reflects that:

k. It was recommended that the contractor take photographs of existing conditions at the site prior to the start of construction for his protection.
l. The Contractor is not to drive on any grassed area unless absolutely necessary. Any grassed area damaged by contractor operations must immediately be restored to the original condition at the contractor’s expense.

Def.App. at 86.

On September 20, 1999, the Army informed TLT that it was not satisfied with scope work done regarding the landscape [190]*190plan’s requirements and directed TLT to provide sod at “additional areas,” other than those noted on Plate L-5. See Def.App. at 90 (handwritten note indicates this “additional area” covered approximately 6,800 yards.); id. at 91-96. These areas were located within the dashed lines around the buildings on contract drawing Plates L-3 and L-4. Id.; see also id. at 76-77. By a letter dated October 7,1999, TLT indicated it would comply with the Army’s directive, but under protest. Id. at 97. The additional sod replacement cost TLT approximately $88,914.00. Id. at 99-108. On December 6, 1999, TLT submitted a Total Cost Proposal for $88,914.00 as a Request for Equitable Adjustment as a result of the September 20, 1999 directive. See Def.App. at 103-05. On that date, TLT also filed a Request for Contracting Officers [sic] Decision regarding those costs. Id. at 100-08.

On June 5, 2000, the CO issued a decision denying TLT’s claim. Id. at 109-15. Specifically, the CO found that TLT’s interpretation of Contract Drawing Plate L-l Note 3 was “incorrect” in that Note 3 intended the contractor to provide sod on all bare areas within the dashed lines, as well as those disturbed by the contractor, “so that they presented an aesthetically acceptable landscape and a finished liveable barracks.” Id. at 113. In addition, the CO found that TLT should have made a reasonable estimate of the amount of sod required to provide grass on all areas within the dashed lines, including pre-existing bare areas and those that would be disturbed during the course of construction. Id. at 113-14. Finally, the CO found that TLT did not clearly identify any specific areas that had become bare or disturbed as a result of construction activities, and, in any event, TLT made no effort to prevent or otherwise control any such activity. Id.

C. Performance Requirements.

The April 30, 1997 Solicitation Award and Offer regarding the Smoke Bomb Hill Barrack’s Renovation Project Schedule provided:

For pricing purposes only, bidder shall assume the following construction durations from NTP [Notice to Proceed], Actual construction durations shall be issued with each deliver order based on the quantity of work in a given delivery order. For bid item 0001, the successful bidder shall provide performance and payment bonds within 72 hours of award.
Item 0001 60 calendar days 4
Item 0002 90 calendar days/ building 5
Renovate Building, Complete 240 calendar days/ 4 stack building
Renovate Building, Complete 210 calendar- days/ 3 stack building
Renovate Building, H-5748, Complete 180 calendar days/6 2 stack budding

DefApp. at 3; see also id. at 264 (emphasis added).

The Contract specifically included a standard FAR clause emphasizing the importance of the Notice to Proceed:

52.023-4801 COMMENCEMENT, PROSECUTION, AND COMPLETION OF WORK (FAR 52.211-10)
(EACH DELIVERY ORDER ISSUED PURSUANT TO THIS CONTRACT SHALL BE CONSTRUED AS BEING A NOTICE TO PROCEED.)

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Bluebook (online)
60 Fed. Cl. 187, 2004 U.S. Claims LEXIS 67, 2004 WL 691659, Counsel Stack Legal Research, https://law.counselstack.com/opinion/tlt-construction-corp-v-united-states-uscfc-2004.