III. Claim No. 2. Where plaintiff produced and placed concrete in constructing reinforced beams and made claim therefor at the unit price specified in the contract, and where it is shown that the cost of these payments was not included in the lump sum bid price for the buildings; it is held that plaintiff is entitled to recover.
IV. Claim No. 3. Where it is shown that the cost of furnishing wash racks and booster pumps was included in plaintiff's bid price but that the cost of excavation and concrete in connection with the installation of the wash racks and booster pumps was not included by the contract documents in the cost of such wash racks; and where plaintiff sublet part of the work for the wash racks and booster pumps to its plumbing subcontractor; and where the cost of installation is shown; it is held that the plaintiff is entitled to recover, at the unit price for such excavation and concrete. Id.
V. Claim No. 4. Where plaintiff bid a "unit price" for one pump complete with housing, wiring, connec- tions, etc., on the basis of the work it would do and on the bid of its subcontractor, who was to furnish the pumps and plumbing; and where plaintiff in- advertently and unintentionally entered the amount of its bid price for one pump in the total column, instead of entering therein the total for the two pumps complete in place; and where plaintiff's error was caused by defendant's failure to indicate the number of pumps; it is held that plaintiff is entitled to recover. Id.
VI. Claim No. 5. Where plaintiff claims it was entitled to be paid twice for 1,163 cubic yards of material, first, as excavation for foundations and, second, as material used for the purpose of grading under buildings; and where it is shown that the contract documents required that any surplus excavated material once paid for should, if suitable, be used, among other purposes, for space grading without additional payment; it is held that plaintiff is not entitled to recover. Id.
VII. Claim No. 6. Where plaintiff made claim for pay- ment at $2 a cubic yard for 750 cubic yards of "space grading" adjacent to certain buildings prior to the date when defendant took over this work; and where claim was denied on the ground that no work was performed in this area for which plaintiff
was entitled to payment under the contract; it is held that the proof is not sufficient to show that the findings and decisions of the area engineer and the contracting officer, which were approved on appeal, were erroneous and plaintiff is not entitled to recover. Id.
VIII. Claim No. 7.. Where, about the time plaintiff com- menced performance of the work, defendant decided to make a change in the drawings for certain buildings; and where it was not necessary under this change to prepare new floor plan drawings, but the change made it necessary for plaintiff to per- form this portion of the work in reverse of the manner shown on the drawings; it is held that on the facts presented there is no proper basis for a finding that increased costs were thereby incurred and plaintiff is not entitled to recover. Id. IX. Article 15 of the Standard Construction Contract limits the finality of the contracting officer's deci- sions to questions of fact or factual issues "except as otherwise specifically provided in this contract." Article 15 of the Standard Construction Contract limits the finality of the contracting officer's deci- sion to questions of fact or factual issues "except as otherwise provided in this contract." The pro- vision in paragraph 1-07 of the specifications that the contractor should furnish all plant, material, and labor and perform the work in accordance with the true intent and meaning of the drawings and speci- fications, of which intent and meaning the contract- ing officer should be the interpreter, was not a provision "in this contract" which "otherwise speci- fically provided" within the meaning of Article 15. A provision in a specification cannot override an article in the formal contract even though the speci- fications are made a part of the contract by Article 1. Loftis v. United States, 110 C. Cls. 551. The specifications and drawings were made a part of the contract for the purpose of detailing the work to be performed and the materials to be furnished. See Harwood-Nebel Construction Co., Inc. v. United States, 105 C. Cls. 116. Id.
X. The court takes notice, from the many contract cases brought in the Court of Claims, that the Standard Form of Construction Contract (Form 23) was first adopted and approved by the President in 1926, and that form contained Article 15, as it is written
in the contract in suit; Article 15 states a rule of policy. It is only under Article 22 of the contract in suit that the Government, acting through the contracting agency or the head of the department may, as a matter of policy, add additional articles as "Alterations". Without any other aid than the contract form itself, it is manifest to the court that the Government intended that the provisions of the standard form, and the policies stated therein, would be paramount to the specifications and would govern in case of inconsistency or conflict. Loftis v. United States, 110 C. Cls. 551. Id.
XI. Without relying upon the general rule of implied in- tention, it is evident from the express provisions of the standard printed "Directions for Preparation of Contract," that the "Interpretation of Contract" contained in the specifications (paragraph 1-07) related only, and was intended to relate only, as its provisions show, to the furnishing by the contractor of materials, plant, supplies, equipment, labor, etc., necessary to complete the work in conformity with the drawings and specifications, and according to the directions of the contracting officer. The ulti- mate settlement and decision of disputes arising under the contract is another matter, to be governed by Article 15. Id.
XII. Where the plaintiff, in 1942, entered into an Army con- tract for the delivery of canned blackberries; and where on account of crop failures, due to unfavor- able weather in the States in which the plaintiff could reasonably secure its supply of berries for canning, plaintiff was unable to complete the per- formance of the contract; it is held that the findings of the contracting officer, to the effect that the fail- ure to complete performance of the contract was due to an unforeseeable cause without fault or negli- gence of the contractor, were correct and binding and that under the terms of the contract the con- tractor was thereby relieved of any liability for excess costs incurred by the defendant because of contractor's inability to complete the contract, and plaintiff is entitled to recover. Mitchell Canneries, Inc., 228.
XIII. Under the decisions of the Court of Claims and the Supreme Court, the findings of fact of a contracting officer are binding upon both the Government and the contractor if there is no showing of fraud, gross
error or arbitrary action by the contracting officer amounting to bad faith. Id.
XIV. Where the contracting officer acted fairly and im- partially and there is substantial evidence to sup- port his findings, they should not be reversed by the court. In the instant case, upon the evidence adduced, the court finds no evidence of fraud, gross error or arbitrariness on the part of the contracting officer but, on the contrary, it is found that he acted fairly and impartially and that the evidence upon which he based his findings was substantial. Id. XV. Under the provisions of the contract in suit it was the responsibility of the contracting officer to find as a fact whether unforeseeable and unusually severe weather resulted in the contractor's inability to deliver on the date specified in the contract. Whether there existed unforeseeable and unusually severe weather was a question of fact, not of law. Id. XVI. Under the provisions of the liquidated damages clause of the contract in suit, it is held that "delay" as used in this provision was intended to cover both the concepts of delay and failure to perform. Id. XVII. It has been specifically held by the courts (Seaboard Air Line Railway v. United States, 256 U. S. 655) that transfers of a claim by operation of law or in conjunction with changes of corporation structure are not assignments prohibited by the statute (31 U. S. 203), which is therefore not applicable in the instant case; and the Government in making set- offs against the instant claim under other contracts by the same parties in interest has itself acknowl- edged the identity of the parties. Id.
XVIII. In a Government construction contract where the
specifications (Section 10) provided that no com- plaint by the contractor as to extra work or as to an order of the contracting officer would be con- sidered unless a protect was submitted to the con- tracting officer within 10 days; it is held that the plaintiff is not entitled to recover on its claim for expense of a survey of foundations made at the Government's request, since the claim was not made within the time limit specified. Anthony P. Miller, Incorporated, 252.
XIX. Where there was an unreasonable delay on the part of the Government in the consideration of proposed changes in plans which had been incorporated in the
contract already negotiated; and where this delay prevented the orderly procedure laid out by the contractor for the economical use of its working force on the project; it is held that this delay, in the circumstances, was a breach of the contract, and plaintiff is entitled to recover. Id.
XX. Where the contracting officer's decision with reference to the delay in the consideration of proposed changes in plans denied the contractor's claim and where this decision was affirmed on appeal to the head of the Department; it is held that the provi- sions of the contract in suit (Articles 9 and 15) did not give to the contracting officer the power to decide the contractor's claim for delay in such a case. The power of the contracting officer, under the provisions of the contract (Article 9), was to determine whether liquidated damages should be assessed against the contractor for late completion of his work and not whether unliquidated damages shall be assessed against the Government for its breach of an express or implied obligation under the contract. See B-W Construction Co. v. United States, 101 C. Cls. 748. See also Langevin v. United States, 100 C. Cls. 15. Id.
XXI. Plaintiff's claim as to increased costs of screen doors is denied, since the indefiniteness of the specifica- tions as to the screen doors was as obvious to the plaintiff as to the Government at the time the con- tract was negotiated, and plaintiff was dilatory in making a written request concerning the matter. Id. XXII. It was a breach of the contract for the Government to write the specifications relating to electrical work not in conformity with applicable regulations under the National Electric Code and Utility Company requirements, and plaintiff is entitled to recover for the ensuing delay. Id.
XXIII. No recovery is allowed for alleged delay caused by relocation of radiators, necessitated by the Govern- ment's mistaken planning, since the completion of the contract work as a whole was not delayed and the plaintiff was not damaged thereby. Id.
XXIV. No recovery is allowed for alleged delay caused by failure to furnish color schedules promptly, since the contract work as a whole was not delayed and plaintiff was not damaged.
XXV. Where the plaintiff's contract included the construc- tion of the central heating plant; and where the
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