BNUMBER: B-261493
DATE: October 5, 1995
TITLE: Alpha Construction & Engineering, Inc.
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Matter of:Alpha Construction & Engineering, Inc.
File: B-261493
Date: October 5, 1995
Traeger Machetanz, Esq., Oles, Morrison & Rinker, for the protester.
Bruce Palmer for Palmerco Construction, Inc., an interested party.
Bryant S. Banes, Esq., Department of the Army, for the agency.
Paula A. Williams, Esq., John Van Schaik, Esq., and Michael R. Golden,
Esq., Office of the General Counsel, GAO, participated in the
preparation of the decision.
DIGEST
Agency properly allowed correction of mistake in apparent low bid
where the record clearly shows the existence of the mistake and the
intended bid.
DECISION
Alpha Construction & Engineering, Inc. protests the proposed award of
a contract to Palmerco Construction, Inc., under invitation for bids
(IFB) No. DAHC76-95-B-0010, issued by the Department of the Army, to
renovate latrines in eight barracks at Fort Richardson, Alaska. Alpha
contends that the Army improperly permitted Palmerco to correct a
mistake in its apparent low bid.
We deny the protest.
The solicitation's amended bid schedule consisted of six base line
items (1 through 6) and two option line items (7 and 8). The line
items correspond to buildings 632, 622, 624, 626, 628, 630, 620, and
640, respectively; each building has three latrines except building
640 (line item 8) which has six. The bidding schedule required
bidders to enter prices for the basic line items, 1 through 6, a
subtotal for the basic bid, and the total bid for line items 1 through
8. The solicitation stated that option prices would be included in
the total evaluated price unless it would not be in the government's
best interest.
Eleven bids were opened on May 10 at 3 p.m., the date and time set for
opening. Palmerco submitted the apparent low bid and Alpha submitted
the next-low bid. The amounts bid by the two firms, and the
government estimate, were as follows:
Base Bid: Alpha Palmerco Gov't Estimate
Line Item 1 $ 288,000 $ 289,000 $ 350,000
Line Item 2 $ 288,000 $ 289,000 $ 350,000
Line Item 3 $ 288,000 $ 289,000 $ 350,000
Line Item 4 $ 288,000 $ 289,000 $ 350,000
Line Item 5 $ 288,000 $ 289,000 $ 350,000
Line Item 6 $ 288,000 $ 289,000 $ 350,000
Total 1-6 $1,728,000 $1,734,000 $2,100,000
Options:
Line Item 7 $ 288,000 $ 268,000 $ 350,000
Line Item 8 $ 719,000 $ 302,000 $ 840,000
Total 1-8 $2,735,000 $2,299,000 $3,290,000
In a May 12, 1995, letter to the agency, Palmerco advised that it had
mistakenly omitted costs of $302,000 for a portion of the work under
line item 8, and requested that it be permitted to correct its bid
upward. In a sworn statement, the president of Palmerco explained
that the mistake resulted from Palmerco's use of a computer "recap"
spreadsheet. Specifically, he developed a formula in the spreadsheet
program which multiplied the unit cost per latrine by the number of
latrines in each building, and then added an amount for overhead and
profit to each line item in the base bid (line items 1 through 6). He
then developed a second spreadsheet formula for line item 8; in this
formula, he incorrectly used a multiplier of three times the unit cost
per latrine instead of six, the actual number of latrines in that
building; this resulted in a bid half of what was intended for that
line item.[1] Palmerco's president then manually rounded the number
on the spreadsheet for each line item and entered the rounded totals
in the firm's bid. Palmerco submitted this computer "recap"
spreadsheet, its cost estimate, workpapers, and a sworn statement from
the estimator who developed the cost per latrine to demonstrate that
Palmerco was aware that building 640 had six latrines and that its
labor and material costs for this building actually were based on a
quantity of six latrines.
The contracting officer concluded that there was adequate evidence of
a mistake in Palmerco's, bid, but requested that the firm submit
further evidence of the bid intended. In response, on May 17,
Palmerco submitted all its original documents, including the computer
disk from which the "recap" spreadsheet was developed, the
solicitation drawings with the estimator's original annotations, and
original supplier and subcontractor quotations. The contracting
officer confirmed that the computer files retained a pre-bid date and
time of "5/10/95 at 2:27:34PM," which was consistent with the sworn
statements, and that the written quotes from Palmerco's suppliers and
subcontractors similarly showed pre-bid opening dates and times and
were based on the correct total quantity of 27 latrines. The
contracting officer determined that Palmerco had provided clear and
convincing evidence of the mistake and intended bid and recommended
that correction be allowed. The head of the contracting activity
affirmed the contracting officer's determination to allow correction,
and the agency intends to award the contract to Palmerco at the
corrected bid price. Alpha filed an agency-level protest, which was
denied. This protest followed.
Alpha maintains that the Army improperly permitted the upward
correction, arguing that Palmerco has not demonstrated that it was
aware, prior to bid opening, that building 640 contained six latrines
and, thus, that it mistakenly based its line item 8 price on only
three latrines. While the protester concedes that Palmerco's
workpapers show that its estimator considered all latrines in
estimating the per unit cost for building 640, the protester maintains
that these workpapers are unrelated to Palmerco's alleged mistake. In
this regard, Alpha notes that the estimator's affidavit states that
his responsibility was to "prepare the cost per unit," and argues that
there is no evidence the estimator informed Palmerco's president, the
individual responsible for preparing the bid, that building 640 had
six latrines instead of three. Alpha concludes that correction
should not have been allowed, since a bidder is not permitted to
recalculate and change its bid to include factors which it did not
have in mind when its bid was submitted. See Amtech Elevator Servs.,
B-216067, Jan. 11, 1985, 85-1 CPD 31; Central Builders, Inc.,
B-229744, Feb. 25, 1988, 88-1 CPD 195.
An agency may allow upward correction of a low bid before award if
there is clear and convincing evidence establishing both the existence
of the mistake and the intended bid. Federal Acquisition Regulation
14.406.3. Since the procuring agency has the authority to correct
such mistakes, and because the weight to be given to the evidence in
support of an asserted mistake is a question of fact, we will not
disturb an agency's judgment unless there is no reasonable basis for
it. J.L. Malone & Assocs., Inc.; Helix Elec., Inc., B-261353;
B-261353.2, Sept. 18, 1995, 95-2 CPD ; M.A. Mortenson Co.,
B-254152, Nov. 19, 1993, 93-2 CPD 296. For an upward correction of
a bid, workpapers, including records of computer generated software
spreadsheets and worksheets, may constitute clear and convincing
evidence if they show the existence of a mistake and the intended bid,
are in good order, and are not contradicted by other evidence. C
Constr. Co., Inc., B-253198.2, Sept. 30, 1993, 93-2 CPD 198.
We find no basis to question the Army's decision to allow correction.
The protester argues that there is no evidence to show that Palmerco's
president was aware, prior to bid opening, that building 640 contained
six latrines, and therefore no basis to believe that Palmerco intended
to bid on the six latrines. However, we think the evidence in the
record supports the Army's conclusion about Palmerco's intended bid.
Palmerco's bid was signed by its president, who also prepared its
lump-sum bid prices; as the signer of the bid, he is presumed to know
and is responsible for knowing, the contents of the solicitation,
which called for the renovation of six latrines in building 640. In
this regard, the president states that he not only reviewed the
solicitation drawings, but also supplier and subcontractor quotes
prior to giving these documents to the estimator. Moreover, his
estimator, on whom he relied to develop the unit cost per latrine, was
well aware that the actual number of latrines for line item 8 was six.
This is evidenced by the estimator's workpapers and worksheets which
show supplier and subcontractor quotations based on six latrines in
building 640, and otherwise show the estimator's own calculations
based on these quotes. The estimator's affidavit states that he and
the president repeatedly discussed scheduling problems and the extra
costs associated with renovating the six latrines at issue. The
president of Palmerco explains, in an affidavit submitted in response
to the protester's allegations, that he, the estimator and a
subcontractor went on a pre-bid site visit and together they inspected
each of the eight buildings. He specifically recalls discussing with
his subcontractors that building 640 contained six latrines. Under
these circumstances, we find that Palmerco's president was aware of
the solicitation requirements for building 640, and we conclude that
the agency reasonably found Palmerco had submitted clear and
convincing evidence of the mistake and of its intended bid, and
properly permitted the $302,000 upward correction.
The protest is denied.
Comptroller General
of the United States
1. The protester did not add overhead or profit to line items 7 or 8.