ARMED SERVICES BOARD OF CONTRACT APPEALS 
 
OPINION BY ADMINISTRATIVE JUDGE STINSON 
ON PARTIES’ MOTIONS FOR PARTIAL SUMMARY JUDGMENT 
 
 The United States Army Corps of Engineers (USACE), Kansas City District, 
entered a contract with appellant BCI Construction USA, Inc. (BCI), to perform 
repairs to the Tuttle Creek Stilling Basin.  BCI submitted various delay, defective 
specification, and differing site conditions claims arising out of the project work.  The 
contracting officer issued two final decisions denying, in part, BCI’s claims, which 
BCI now appeals.  We have jurisdiction pursuant to the Contract Disputes Act of 1978, 
41 U.S.C. §§7101-7109.  The parties submitted motions for partial summary judgment, 
response briefs, and reply briefs for consideration in deciding these appeals.  For the 
reasons stated below, the Board grants-in-part and denies-in-part the government’s 
motion for partial summary judgment, and grants-in-part and denies-in-part appellant’s 
motion for partial summary judgment. 
Appeals of - )  
 )  
BCI Construction USA, Inc. ) ASBCA Nos. 62657, 62975, 63200 
 )  
Under Contract No. W912DQ-17-C-1070 )  
   
APPEARANCES FOR THE APPELLANT: Ron Garber, Esq.  
  Weissman Zucker Euster Morochnik 
    & Garber, P.C. 
  Atlanta, GA 
 
Timothy J. Walsh, Esq.  
Cathleen S. Aubuchon, Esq. 
  Norton Rose Fulbright US, LLP  
  St. Louis, MO 
 
APPEARANCES FOR THE GOVERNMENT: Michael P. Goodman, Esq. 
    Engineer Chief Trial Attorney 
 Virginia Murray, Esq. 
Jacob T. Simpson, Esq. 
    Engineer Trial Attorneys 
    U.S. Army Engineer District, Kansas City 

2 
 
 
STATEMENT OF FACTS (SOF) FOR PURPOSES OF THE MOTIONS 
 
 By Board Order, the parties submitted a Joint Stipulation of Facts (JSF) in 
support of their motions for partial summary judgment.1  Our statement of facts relies 
upon the parties’ JSF, as set forth below, as well as additional facts supported by 
record evidence, which we have determined are undisputed for the purpose of these 
motions. 
 
 Pre-Award Invitation for Bids 
 1.  In May 2017, the USACE, Kansas City District, issued Invitation for Bid 
(IFB) No. W912DQ-17-B-1005, “Construction Solicitation and Specifications,” which 
included specifications for construction and repair of the Tuttle Creek Stilling Basin 
Wall located in Riley County, Kansas (R4, tab 5 at COE000002, COE000004).   
 
 2.  A stilling basin, which is part of a dam’s water outlet works, is a depression 
in a channel or reservoir deep enough to reduce the velocity or turbulence of water 
flowing out of a dam (JSF ¶¶ 106-07).  The Tuttle Creek Stilling Basin sits adjacent to 
Tuttle Creek Dam, which feeds into the Big Blue River (R4, tab 5 at COE000085, 
tab 6 at COE000006); (see also JSF ¶¶ 106-07).  Tuttle Creek State Park is located just 
south of Tuttle Creek Dam and just east of the stilling basin (JSF ¶¶ 105-06; R4, tab 6 
at COE000006). 
 
 3.  The IFB set forth the following project description: 
 
The work includes excavation along the landward side of 
the training walls along monoliths 1 through 12, 
demolishing and replacing the upper training wall portion 
to the first control joint and portions on the 1V on 0.59H 
slope, demolishing and replacing portions of the existing 
site drainage, filling the existing deep drainage system with 
flowable fill and replacing the drainage system with a 
shallower system, installation [of] new concrete columns 
 
1 In addition to the parties’ JSF, each party submitted several iterations of additional 
statements of fact and competing statements of genuine issues of material fact.  
Appellant’s additional material facts, dated February 24, 2023, included 
193 paragraphs of additional facts.  The government’s opposition to appellant’s 
motion for partial summary judgment, dated February 24, 2023, included 
79 paragraphs of additional facts.  The government’s reply brief, dated 
March 24, 2023, included an additional 65 paragraphs of “reply facts.”  

3 
 
to provide a horizontal jacking surface for the installation 
of post-tensioned anchors and incidental related work. 
 
(R4, tab 5 at COE000085) 
 
 4.  An Executive Summary set forth in a May 2017 Design Documentation 
Report states, “[t]wo issues are identified and addressed with this project:  (1) repair of 
the stilling basin wall drain system and (2) retrofitting the stilling basin walls due to 
overturning stability concerns” (JSF ¶¶ 9-10; R4, tab 315 at COE000002, 
COE000012). 
 
 5.  The IFB incorporated by full text Federal Acquisition Regulation (FAR) 
52.211-12, LIQUIDATED DAMAGES – CONSTRUCTION (SEP 2000), which 
stated, in part, “(a) [i]f the Contractor fails to complete the work within the time 
specified in the contract, the Contractor shall pay liquidated damages to the 
Government in the amount of $860 for each calendar day of delay until the work is 
completed or accepted” (JSF ¶ 7; R4, tab 5 at COE0000034).  The IFB did not include 
any information regarding the method the government utilized to compute the daily 
liquidated damages rate (app. additional material facts dated Feb. 24, 2023, ¶ 192; 
gov’t reply ¶ 192). 
 
 6.  The IFB included FAR 52.243-4 CHANGES (JUN 2007) requiring the 
contractor to assert its right to an adjustment within 30 days of receipt of a written 
change order, or by submitting to the contracting officer a written statement describing 
the nature and amount of its proposal (R4, tab 5 at COE00062-63).  The IFB also 
included FAR.249-10, DEFAULT (FIXED-PRICE CONSTRUCTION) (APR 1984) 
(id. at COE000064-66). 
 
 7.  The IFB included FAR 52.216-1, TYPE OF CONTRACT (APR 1984), 
stating that “[t]he Government contemplates award of a Firm-Fixed Price contract 
resulting from this solicitation” (R4, tab 5 at COE000017; FAR 52.243-4(e)). 
 
 8.  The IFB included FAR 52.236-21, SPECIFICATIONS AND DRAWINGS 
FOR CONSTRUCTION (FEB 1997), concerning shop drawings (R4, tab 5 
at COE000061).  Section (f) provided: 
 
If shop drawings show variations from the contract 
requirements, the Contractor shall describe such variations 
in writing, separate from the drawings, at the time of 
submission.  If the Contracting Officer approves any such 
variation, the Contracting Officer shall issue an appropriate 
contract modification, except that, if the variation is minor 

4 
 
or does not involve a change in price or in time of 
performance, a modification need not be issued. 
 
(Id. at COE000062) 
 
 9.  The IFB included FAR 52.236-27 SITE VISIT (CONSTRUCTION) 
(FEB 1995) – ALTERNATE I (FEB 1995), stating that “[t]he clauses at 52.236-2, 
Differing Site Conditions, and 52.236-3, Site Investigations and Conditions Affecting 
the Work, will be included in any contract awarded as a result of this solicitation,” and 
that offerors “are urged and expected to inspect the site where the work will be 
performed”) (R4, tab 5 at COE00021). 
 
 10.  The IFB included FAR 52.236-2, DIFFERING SITE CONDITIONS 
(APR 1984) (R4, tab 5 at COE000060). 
 
 11.  The government issued a Determination of Liquidated Damages – 
Construction, dated January 18, 2017, finding that inclusion in the contract of 
FAR 52.211-12 was in the best interests of the government (R4, tab 1033).  The 
document, prepared by Nathan McCarn, the government’s Quality Assurance 
Representative (JSF ¶¶ 2, 24), included a breakdown of government construction 
oversight staff and support personnel on the project and a formula by which the 
government determined the daily liquidated damages rate of $860 based upon those 
labor costs (id.).  Mr. McCarn’s calculation sheet noted that “each Con Rep and Office 
Engineer should have two active contracts to administer,” and that “Project Engineer 
duties normally involve working new solicitations as well” (R4, tab 1035; app. reply 
ex. D (dep. of Nathan L. McCarn at 160-61).  However, Mr. McCarn was instructed to 
reduce the liquidated damages rate because the office “had several projects going on at 
the same time” (JSF ¶ 26) (R4, tab 1035; app. reply, ex. D (dep. of Nathan L. McCarn 
at 156-57, 159-60)).  By increasing the number of on-going projects (Mr. McCarn 
assumed three or four concurrent projects) as a factor in the liquidated damages 
formula, Mr. McCarn effectively reduced the daily liquidated damages rate (id.). 
 
 12.  A pre-bid site visit occurred on May 26, 2017, attended by a representative 
from BCI and other potential bidders (R4, tab 7 at COE000003).  BCI submitted its 
bid in response to the IFB on June 22, 2017 (JSF ¶ 109; R4, tab 11 at COE000002). 
 
 Contract Award 
 
 13.  By letter dated July 28, 2017, the government accepted BCI’s bid in the 
amount of $8,261,206, and awarded BCI Contract No. W912DQ-17-C-1070 with base 
year CLIN Nos. 0001-0006, and option year CLIN Nos. 0007-0009 (R4, tab 11 
at COE000002, tab 12 at COE000002).  The contract required the contractor to 

5 
 
“provide all labor, equipment, and materials to complete all work associated with the 
specification and plans” (R4, tab 5 at COE000005-09). 
 
 14.  The government’s July 28, 2017, notice of award letter, stated: 
Only a warranted Contracting Officer (either PCO or 
ACO) acting within their delegated limits has the authority 
to issue modifications or otherwise change the terms and 
conditions of this contract.  If an individual other than the 
Contracting Officer attempts to make changes to the terms 
and conditions of this contract you shall not proceed with 
the change and shall immediately notify the Contracting 
Officer. 
 
(JSF ¶ 111; R4, tab 11 at COE000002-03) 
 15.  By letter dated August 10, 2017, the government issued the Notice to 
Proceed, stating that “work shall commence within 10 calendar days of receiving this 
Notice to Proceed and the period of performance will conclude no later than 
720 calendar days after the receipt of this Notice to Proceed” (R4, tab 13 
at COE000002; see also JSF ¶ 8). 
 
 16.  According to the Contractors Quality Control Report (QCR) Daily Log of 
Construction, dated March 20, 2018, BCI arrived at the site on March 20th and began 
mobilization (R4, tab 114 at COE000002).  BCI arrived at the site over seven months 
after issuance of the Notice to Proceed (JSF ¶¶ 8, 113). 
 
 Stop Work Orders 
 
 17.  By letter dated May 29, 2019, the government issued a Stop Work Order 
directing BCI “to stop all site construction activities under this contract due to 
the impending need to make high releases from Tuttle Creek Lake,” and “to backfill 
all open excavations and evacuate material and equipment out of areas that could be 
subject to flooding during the high releases” (R4, tab 30 at COE000002).  The Stop 
Work Order noted BCI’s entitlement, pursuant to FAR 52.242-15, “to an adjustment, 
under certain conditions, for any increase in the cost of performance of the contract as 
a result of this suspension” (id.).  By letter dated July 22, 2019, the government 
extended the Stop Work Order until September 1, 2019 (R4, tab 33 at COE000002). 
 
 18.  By letter dated September 9, 2019, BCI informed the government of its 
position that the Stop Work Order was a change to the contract which resulted from a 
differing site condition (R4, tab 37 at COE000002).  By letter dated September 25, 
2019, the government responded, acknowledging that “the stop work order is a change 

6 
 
to the contract,” but “is not considered a differing site condition” (R4, tab 40 
at COE000002).  The government also stated that BCI is “entitled an equitable 
adjustment” based upon the Stop Work Order and recognized “that there may be 
inefficiencies and potential additional costs associated with working through the 
winter season,” but that “work can be accomplished and your original schedule did 
show performing work through the winter months” (id.). 
 
 19.  By letter dated October 10, 2019, the government cancelled the Stop Work 
Order and directed BCI to resume contract performance on October 28, 2019 (R4, 
tab 41 at COE000002).  The government issued two contract modifications extending 
the contract completion period 207 days based upon the suspension of work, 
specifically, Modification No. A00011, effective October 24, 2019, for 156 calendar 
days (R4, tab 44 at COE000002-03), and Modification No. R00016, effective 
December 23, 2019, for 51 calendar days (R4, tab 50 at COE000002-03; see also R4, 
tab 58 at COE000002-03).  The government issued additional modifications extending 
the contract completion date a total of 111 days prior to the onset of the COVID 19 
pandemic, specifically, Modification No. P00003, effective October 18, 2018, 
11 calendar days for work related to a concrete crack at monolith 11L (R4, tab 820 
at COE000002-03), Modification No. A00004, effective February 27, 2019, 
65 calendar days for work related to a concrete crack at monolith 11L and a spall and 
crack on monolith 1 (R4, tab 822 at COE000002-03; see also R4, tab 829 
at COE000002, tab 830 at COE000002), Modification No. A00008, effective July 11, 
2019, three calendar days for weather related delay, and Modification No. A00012, 
effective January 14, 2020, 32 calendar days for work related to concrete cracks on 
concrete on monolith 10L (R4, tab 51 at COE000002-03).  
 
 Additional Facts and Contract Specifications Pertinent to Specific Claims  
 Supply of Ready-mix Concrete – Alleged Defective Specification 
 
 20.  BCI’s first complaint seeks $25,856.59, and a 21-day time extension, based 
upon an alleged defective specification regarding Ready-mix concrete (compl. ¶ 6 dtd. 
August 13, 2021). 
 
 21.  Contract specification SECTION 01 33 00, SUBMITTAL PROCEDURES, 
included the following Submittal Descriptions (SD) for SD-02 Shop Drawings, which 
are defined as “[d]rawings, diagrams and schedules specifically prepared to illustrate 
some portion of the work,” and SD-03 Product Data, which includes “[c]atalog cuts, 
illustrations, schedules, diagrams, performance charts, instructions and brochures 
illustrating size, physical appearance and other characteristics of materials, systems or 
equipment for some portion of the work” (R4, tab 5 at COE000196-97). 
 
 22.  Contract specification SECTION 03 31 01.00 10, CAST -IN-PLACE 
STRUCTURAL CONCRETE FOR CIVIL WORKS (R4, tab 5 at COE000360), 

7 
 
specified that contractor submittals for Concrete Mix Designs were submitted as 
“SD-03 Product Data” (R4, tab 5 at COE000369; see also id. at COE000216). 
 
 23.  Contract specification SECTION 03 31 01.00 10, paragraph 1.2, 
REFERENCES, included a reference to ASTM C618, (2012a) Standard Specification 
for Coal Fly Ash and Raw or Calcined Natural Pozzolan for Use in Concrete, which 
stated that the standard specification “form[ed] a part of this specification to the extent 
referenced” (R4, tab 5 at COE000363, COE000366).
2 
 
 24.  Contract specification SECTION 03 31 01.00 10, paragraph 2.1, Concrete 
Mix Designs, provided:  “Concrete mix design is the responsibility of the Contractor.  
Trial batches and testing requirements for various qualities of concrete specified shall 
be the responsibility of the Contractor.”  (R4, tab 5 at COE000371) 
 
 25.  Contract specification SECTION 03 31 01.00 10, paragraph 2.2.1, 
Cementitious Materials, provided:  “[c]ementitious materials are portland cement, 
portland cement in combination with pozzolan or GGBF slag conforming to 
appropriate specifications listed [in the specifications] below” (JSF ¶115; R4, tab 5 
at COE000373). 
 
 26.  Contract specification SECTION 03 31 01.00 10, paragraph 2.2.1.3, Fly 
Ash, identified the applicable standard specification for fly ash (ASTM C618) and 
required that fly ash have a total equivalent alkali content of less than 1.5% if the 
contractor decided to include fly ash in the concrete mix.  Specifically, paragraph 
2.2.1.3 provided: 
 
ASTM C618, Class F, except that the maximum allowable 
loss on ignition must not exceed 3%.  Class F fly ash for 
use in mitigating Alkali-Silica Reactivity must have a 
Calcium Oxide (CaO) content of less than 8% and a total 
equivalent alkali content less than 1.5%. 
 
(JSF ¶ 116; R4, tab 5 at COE000373) 
 27.  Contract specification SECTION 32 13 13.06, PORTLAND CEMENT 
CONCRETE PAVEMENT FOR ROADS AND SITE FACILITIES, identified certain 
 
2 ASTM (American Society for Testing and Materials), now known as ASTM 
International, is a “standards organization that develops and publishes voluntary 
consensus technical standards for a wide range of materials, products, systems, 
and services.”  Trade West Constr., Inc., ASBCA No. 61068, 22-1 BCA 
¶ 38,214 at 185,606 n.3 (quoting Harry Pepper and Assoc., Inc., ASBCA 
No. 62038 et al., 21-1 BCA ¶ 37,760 at 183,306 n.2). 

8 
 
publications which “form a part of this specification to the extent referenced” (R4, 
tab 5 at COE000556).  Included was a reference to ACI 211.1, (1991; R 2009), 
Standard Practice for Selecting Proportions for Normal, Heavyweight and Mass 
Concrete (id.).  ACI is an acronym for the American Concrete Institute International 
(R4, tab 5 at COE000556). 
 
 28.  On April 5, 2018, BCI submitted to the government Transmittal No. 03 31 
01.00 10-5 for concrete mix design specifying use of a “Durapoz Type F Fly Ash” 
(JSF ¶ 117; R4, tab 15 at COE0000003, COE000011).  On April 26, 2018, the 
government disapproved the use of this concrete mix, stating as follows: 
 
Material certification for all concrete:  All submitted 
material except for the fly ash are acceptable.  Class F Fly 
Ash does not meet requirements for use in mitigation of 
Alkali-Silica Reactivity.  Calcium Oxide (CaO) content 
exceed 8 percent, same with the total equivalent alkali 
content which is more than 1.5%.  Please submit Class F 
Fly Ash source that meet requirements for use in 
mitigation of ASR as requested. 
 
(JSF ¶ 118; R4, tab 15 at COE000004) 
 29.  On April 5, 2018, BCI also submitted Transmittal No. 03 31 01.00 10-8 for 
cementitious materials and admixtures, regarding “Certification for Type II Portland 
Cement, Class F Fly Ash, type K Cement, admixtures” (R4, tab 16 at COE000002, 
COE000004).  On April 26, 2018, the government disapproved use of Class F Fly Ash, 
stating it “does not meet requirements for use in mitigation of Alkali-Silica Reactivity. 
Calcium Oxide (CaO) content exceeds 8%, same with the total equivalent alkali 
content which is more than 1.5%” (id. at COE000002-03).  The government’s 
response stated also “[p]lease submit Class F Fly Ash source that meet requirements 
for use in mitigation of ASR as required by paragraph 2.2.1.3” (id.). 
 
 30.  On May 7, 2018, BCI submitted a Request for Information Report (RFI) 
No. RFI-0021, stating that its subcontractor, Midwest Concrete Materials (MCM), 
“uses Durapoz F Class F fly ash that meets the USACE specification [section 32 13 
14.13] for airfield pavements and has shown to mitigate ASR with every aggregated 
tested in the Midwest” (R4, tab 17 at COE000002).  BCI recommended “that the 
Government approves use of Midwest Concrete Materials Durapoz F Class F fly ash, 
which has been proven time and time again to be extremely suitable for ASR 
mitigation” (id.).  In its May 9, 2018, response to RFI-0021, the government noted that 
“specification 31 13 14.13 was not part of this contract” and stated that “Fly Ash used 
in your mix design shall meet the specified requirements.  If the requirements cannot 
be met, Ground Granulated Blast-Furnace (GGBF) Slag can be used.”  (Id.) 

9 
 
 
 31.  In his affidavit, Christopher Eichman, MCM Vice president, stated that 
at its Manhattan, Kansas, plant MCM utilized “a pozzolan other than fly ash and did 
not use raw or calcined natural pozzolan, silica fume, Ground Granulated Blast-
Furnace (GGBF) slag, or any other slag,” and MCM “could not substitute GGBF slag, 
another slag, silica fume, raw or calcined natural pozzolan, or another pozzolan for the 
fly ash for the concrete mix for BCI for the Tuttle Creek Project” (app. supp. R4, 
tab 45 (Feb. 14, 2023, aff. of Mr. Eichman ¶¶ 7-8)).  Mr. Eichman stated that MCM’s 
plant “was serving multiple customers and had limited silo space for storage of other 
cementitious material . . . it was not possible to switch the concrete mix for one 
customer because it would have affected the production process for MCM’s other 
customers who were using the concrete mix with fly ash” (id. at ¶ 8).  Although 
Mr. Eichman stated that he searched unsuccessfully for other fly ash, he does not state 
that MCM searched for GGBF slag or any other natural pozzolan that met the contract 
requirements (id. at ¶ 5). 
 
 32.  On June 1, 2018, BCI submitted to the government Transmittal No. 03 31 
01.00 10-5.1 requesting “a variance regarding the concrete mix design submittal” (R4, 
tab 21 at COE000002, COE000009).  The variance request stated, in part: 
 
Per discussion with Corps representatives on 30MAY18, 
USACE designers recommended available alkali limits 
serve in lieu of specified Total Alkali limits.  BCI is 
submitting this variance for the specification paragraph 
“2.2.1.3 Fly Ash ASTM C618, Class F, except that the 
maximum allowable loss on ignition must not exceed 3%.  
Class F fly ash for use in mitigating Alkali-Silica 
Reactivity must have a Calcium Oxide (CaO) content of 
less than 8% and a total equivalent alkali content less than 
1.5%.” 
 
BCI and our suppliers have provided numerous documents 
to this submittal to demonstrate that the available alkali 
content of the Durapoz Fly Ash is sufficient to prevent 
Alkali Silica Reactivity.  Past performance as well as 
current test results demonstrate strong performance in mix 
designs with the addition of this regional fly ash.  
Additionally, the Durapoz F fly ash is run through a finish 
mill to increase the fineness and improve the ASR and 
strength reactivity, a process that is specifically done to 
provide stable and strong concrete.  Available alkali is 
water soluble alkali and is tested in accordance with 
ASTM C618 and C311.  We have attached an in-depth 

10 
 
report on the Durapoz ash that demonstrates the available 
alkali at 0.80%. 
  
(Id. at COE000009) 
 33.  On June 11, 2018, the government approved BCI’s 5,000 PSI concrete mix 
design, stating that BCI must “[e]nsure that mix design use at least 25% of Fly Ash to 
suppress the fine aggregate ASR reaction in the combined mixture until proven 
otherwise” (R4, tab 21 at COE000002-03). 
 
 34.  By letter dated June 25, 2018, BCI informed the government: 
 
BCI worked within specification requirements to provide a 
concrete mix design as requested.  In the process of 
performing this effort BCI discovered that the requested 
fly ash requirements were not achievable for this area or 
region.  BCI spent several weeks after submitting the 
original mix design (Ref. Transmittal 03 31 01.00-5) to try 
and achieve the specified Total Alkali for fly ash. 
 
After discovering the requested fly ash was not available 
BCI resubmitted the original mix design as a variation 
(Ref. Transmittal 03 31 01.00-5.1) which was subsequently 
approved.  BCI feels the plans and specifications were 
defective in this section and the Total Alkali is not 
achievable with any fly ash known to BCI at [sic] its 
subcontractors. 
 
BCI has lost 21 days of schedule (7 days were time 
scheduled time off) and therefore we request a no cost 
extension to the contract end date of 14 days.  BCI reserves 
its rights for schedule impacts for this impact. 
 
(R4, tab 23 at COE000002) 
 
 35.  By letter dated June 27, 2018, the government responded to appellant’s 
June 25, 2018, letter, finding no merit to BCI’s request.  The government noted the 
unexplained seven-month period between issuance of the Notice to Proceed and BCI’s 
concrete mix design submission, and that the government’s response to RFI-0021 
brought to BCI’s “attention an option in the contract of using slag in your mix design 
in lieu of fly ash, of which you chose not to pursue” (R4, tab 24 at COE000002; JSF 
¶ 119). 
 

11 
 
 Winter Drawdown 
 
 36.  BCI’s second complaint seeks $160,097.87, and a seven -day time 
extension, based upon alleged delay caused by the 2020 winter drawdown (compl. 
¶ 101 dtd. March 28, 2022). 
 
 37.  Contract specification SECTION 01 12 00.00 23, SPECIAL PROJECT 
REQUIREMENTS INCLUDING DIVE OPERATIONS (R4, tab 5 at COE000088), 
paragraph 1.5.2, Lake Releases During Construction, stated: 
 
Releases through the outlet works are weather and inflow 
dependent.  Close coordination between the Tuttle Creek 
Operations Manager, Contracting Officer and the 
contractor is required.  A 3 day forecast for lake elevation 
and releases is updated daily and is available from the 
Tuttle Creek Operations Manager.  When there are no 
releases being made through the Tuttle Creek Outlet 
works, the tailwater elevation in the stilling basin is 
approximately elevation 1011.2 with the Rocky Ford gates 
closed and elevation 1007.5 with the Rocky Ford gates 
open and the tailwater pond drained.  The Rocky Ford 
gates will be open for no more than a total of 4 months for 
the duration of the project unless as approved by the 
contracting officer. 
 
(R4, tab 5 at COE000092) 
 38.  Contract specification SECTION 01 12 00.00 23, paragraph 1.5.2.4.1, High 
Outlet Work Releases, provides: 
 
1.5.2.4.1 High Outlet Works Releases 
 
The contractor shall not be considered impacted by outlet 
works releases occurring from the opposite stilling basin 
side as long as the tailwater plus wave elevation on the 
training wall side that work is being performed does not 
exceed 1022 during training wall demolition and 
replacement activities or any incidental work that would be 
directly impacted by high releases. 
 
Elevation 1022 shall be considered the location of the 
construction joint on the upper portion of the training wall 
that shall be removed and replaced.  Should the need arise 

12 
 
to make outlet works releases that will cause the tailwater 
plus wave elevation to exceed 1022, the government may 
direct the contractor to exit the impacted area until releases 
are reduced and the tailwater plus wave elevation will be 
below 1022 for work to resume.  Features of work not 
impacted by high water elevation may continue as 
approved by the Contracting Officer.  
 
(R4, tab 5 at COE000094-95) 
 
 39.  By letter dated November 19, 2020, the government informed BCI: 
As we have discussed, the Tuttle Creek Operations Project 
Office will be conducting releases for the winter draw 
down of Tuttle Creek Lake.  The releases are anticipated to 
take approximately 10 days with a release of 3,000 cfs and 
will commence on the afternoon of Wednesday, 
25 November 2020 or sooner if site conditions permit.  
We’ve coordinated the timing of the draw down with BCI 
to take advantage of BCI’s planned long weekend to 
provide the least disruption and lower risk of lake freeze 
over.  We acknowledge this impacts the critical path and 
do intend to issue a time modification. 
 
This is not a suspension of work order.  Work not affected 
by higher tail water in the stilling basin can and should 
continue. 
 
(R4, tab 722 at COE000002) 
 40.  By letter dated November 24, 2020, BCI responded to the government’s 
letter regarding the winter drawdown, stating: 
 
As acknowledged, this draw down will have an impact on 
critical path activities.  No available non-concurrent work 
exists while monolith 11-12 excavations remain open and 
the winter draw down activities will impact all available 
work. BCI will suspend onsite activities until winter draw 
down and subsequent basin drawdown durations are 
complete.  This approach will limit additional cost impacts 
related to this change. 
 

13 
 
Increasing water releases to 3,000 cfs will also inundate 
existing excavations for east/west monoliths 11-12 and 
in-process work.  This impact will require additional work 
related to site restoration for both deep excavations and 
restoration of in-process work such as anchor bar holes, 
soil plugs and anchor installation platforms. 
 
Serial Letter C-0083 indicates that approximately 10 days 
will be required for release activities.  Specification section 
01 12 00.00 23 (par. 1.5.2.2) also details that 4 days are 
required for dewatering of the stilling basin.  Please advise 
when the winter draw down activities and required stilling 
basin drawdown will be completed so critical activities can 
continue.  After completion of the still basin drawdown 
BCI will require several days to restore existing 
excavations and anchor installation platforms so work can 
continue. 
 
(R4, tab 725 at COE000002) 
 41.  By unilateral Modification No. A00015 dated March 11, 2021, the 
government granted a time extension totaling ten days for November 6, 2020, 
November 30, 2020, December 1 through December 5, 2020, and December 7 through 
December 9, 2020 (R4, tab 812 at COE000002-03).  The modification was issued in 
accordance with FAR 52.249-10, with contract time extended for “adverse weather in 
excess of anticipated during the period 01 August 2019 through 14th of 
December 2020” (id. at COE000003).  
 
 42.  To date, the government has granted a total time extension of 12 days for 
winter drawdown, which includes two days (November 24, 2020 and December 10, 
2020) as set forth in the February 10, 2022, final decision (R4, tab 775 
at COE000019), and ten days set forth in Modification No. A00015 (SOF ¶ 41; R4, 
tab 812 at COE000003).  The remaining three days requested by BCI for winter 
drawdown are November 7, 2020, and December 11 and 12, 2020 (app. mot. at 12-13, 
16; see also gov’t opp’n at 47). 
 
 Excessive Seepage-Electrical Seep 
 
 43.  BCI’s first complaint seeks $34,390.27, and a 10-day time extension, based 
upon seepage of water into the project site (compl. ¶ 6 dtd. August 13, 2021). 
 
 44.  The contract requir ed BCI to partially demolish and rebuild training walls 
on both sides of the Tuttle Creek Stilling Basin (JSF ¶ 120; R4, tab 5 at COE000006). 

14 
 
 
 45.  Contract specification SECTION 31 00 00, EARTHWORK (R4, tab 5 
at COE000470), paragraphs 3.1.2, Drainage, and 3.1.3, Dewatering, required the 
contractor to collect and dispose of surface and subsurface water encountered during 
construction (JSF ¶ 121; R4, tab 5 at COE000476).  Paragraph 3.1.3 included the 
requirement that “[w]hile the excavation is open, maintain the water level 
continuously, at least 4 feet below the working level” and provided that 
“[g]roundwater sources include, but are not limited to dam foundation underseepage, 
seepage through the abutments, tail water in the stilling basin, and precipitation 
infiltration” (JSF ¶¶ 121-22; R4, tab 5 at COE000476). 
 
 46.  During performance, BCI utilized pumps in its efforts to comply with the 
contract’s water level requirements (JSF ¶ 123; R4, tab 79 at COE000004-05; (gov’t 
mot. ex. G (dep. of Gerald R. Miller 106:1-107:9))). 
 
47.  The “excessive seepage” experienced by BCI occurred only on the west 
side of the stilling basin (JSF ¶ 124; gov’t mot. ex. G (dep. of Gerald R. Miller 
at 104:14-18)), coming from a hillside outside the project’s construction limits (id. 
at 103:24-104:13). 
 
48.  The excessive seepage was caused by a buried electric line installed by 
another contractor in 2016 for the electric utility company that owns the line (JSF 
¶ 125; gov’t ex. H (dep. of Brian McNulty at 44:3-17, 48:4-7)).   
 
 49.  The parties agree that the “electrical seep” existed at the time of the pre-bid 
site visit, as the ground at that location was moist (app. additional material facts dated 
Feb. 24, 2023, at 20 (¶ 96); gov’t reply at 22-23 (¶ 96)).
  At the time of the pre-bid site 
visit, a pile of wet rock was located on the west side of the stilling basin (JSF ¶ 126; 
R4, tab 4 at COE000009-10, COE000018 (ex. B (“Image B.1: Pre-Bid Site 
Investigation, wet piled rock to cover the spot where seepage had started”)).   
 
50.  Mr. McCarn stated in his deposition that at the time of the pre-bid site visit 
the “area was moist on the ground.  There was a pile of rock there to try and help to 
spread out for the area that kept getting saturated and vegetation was bright green in 
the corner of the post than the rest of the vegetation in that area.”  (JSF ¶ 126; app. 
opp’n ex. (dep. of Nathan L. McCarn at 108: 18-25)).   
 
 51.  BCI’s Pre-Construction Site Survey, conducted in January 2018, included 
the following statement under the title Damaged structures: 
 
There is also standing water in the northwest corner of the 
project area.  It appears water is seeping or draining from 
above or within the rock layers that slope into the basin 

15 
 
area. It is BCI’s understanding that the USACE is 
monitoring this water pool and may maintain the area and 
clear it of vegetation to see that the water seepage does not 
drastically increase.  This water should not impact the 
project unless quantity increases or if USACE deems 
additional measures need to be taken once west side 
excavation occurs and exposes water seepage.  
 
(JSF ¶ 127; R4, tab 1150 at COE000003) 
 52.  The parties stipulate that BCI performed work on the project for a year 
before experiencing any issue with water from the electrical seep, which appellant 
states began on April 25, or April 27, 2019 (gov’t mot. at 8 (citing ex. E (dep. of 
Torrey Crossman at 165:14 - 166:9 and 179:22 - 180:4)); JSF ¶ 128; app. additional 
material facts dated Feb. 24, 2023, at 14 (¶ 62); gov’t reply at 16 (¶ 62)).  Calculated 
from the date of contract mobilization (March 20, 2018), over 13 months passed 
before BCI began experiencing problems caused by the electrical seep (SOF ¶ 16).  
From the date of contract award (July 28, 2017) and issuance of the Notice to Proceed 
two weeks later (August 10, 2017), approximately 21 months passed before BCI began 
experiencing problems caused by the electrical seep (SOF ¶¶ 13, 15).   
 
53.  BCI’s April 27, 2019, QCR contains the first written documentation of 
water “flowing” from the electric line and impacting project work.  As set forth in the 
QCR, in the project’s northwest corner a container had to be moved when water 
seeped “quite heavily into that area.”  The seep was intermittent in that it “would stop 
for several minutes, then would begin leaking again . . . on and off.”  (JSF ¶ 129; R4, 
tab 128 at COE000178) 
 
 54.  Mr. McCarn noted in a Quality Assurance Report dated May 6, 2019, that:  
“BCI is claiming a differing site condition and delay due to water coming in from a 
seep that has been there since before the project started.  This is not correct.  They are 
also claiming a DSC for hitting a 4" drain line that is shown on CD101 and CG201.”  
(JSF ¶ 130; see also R4, tab 128 at COE000178)  
 
 COVID-19 Delays 
 
 55.  BCI’s second complaint seeks $154,538.84, and an 89-day time extension, 
based upon alleged delay caused in 2020 by the COVID-19 pandemic (compl. ¶ 75 
dtd. March 28, 2022). 
 
 56.  On January 23, 2018, BCI subcontracted with Nicholson Construction 
Company (Nicholson) to provide labor, materials, work, tools, equipment, supervision, 
and services to fully perform and complete all post-tensioned concrete anchor work on 

16 
 
the project (JSF ¶ 131; compl. ¶¶ 68-69 dtd. March 28, 2022; see R4, tab 5 
at COE000409 (describing work post-tensioned concrete anchor work)).   
 
 57.  BCI continued to work on the project after issuance of the President’s 
Proclamation 9994 of March 13, 2020, Declaring a National Emergency Concerning 
the Novel Coronavirus Disease (COVID-19) Outbreak (JSF ¶ 136; gov’t mot. ex. G 
(dep. of Gerald R. Miller at 202:8-16)). 
 
 58.  On March 16, 2020, Nicholson issued a memo to its employees setting 
forth “Travel Options due to COVID-19,” wherein Nicholson provided “a 
compensation package to personnel that would rather not travel by plane or not travel 
home at all and remain on site” (R4, tab 1191 at COE000002). 
 
 59.  By email dated March 18, 2020, Jarell Han, Nicholson’s Project Manager, 
provided Dave Saxton, BCI’s Project Manager, with Nicholson’s “work schedule for 
drawdown,” indicating that Nicholson planned to remobilize at the site beginning 
March 30, 2020, and that setup and work would resume on April 1, 2020 (JSF ¶ 132; 
R4, tab 1134; gov’t opp’n. ex. K (dep. Dave Saxton at 6:21-7:6 (indicating Mr. Saxton 
was BCI’s Project Manager))).  Regarding concerns about COVID-19, Mr. Han 
requested that Nicholson be informed in the event the government “is anticipating a 
shutdown that would impact our work at Tuttle before we remobilize on Mar 30” (R4, 
tab 1134).   
 
 60.  By letter dated March 20, 2020, the government requested “BCl's response 
to COVID-19 with relation to this contract and in compliance with Center for Disease 
Control (CDC) recommendations,” noting that BCI was “not being directed to take 
any action in response to this pandemic,” and that “a discussion of your intended plan 
is requested” (R4, tab 694 at COE000002).  The government requested BCI provide its 
“policy to protect employees regarding work, travel, etc. during COVID-19,” and state 
how its policy would be implemented regarding its contract and subcontract work, as 
well as measures BCI “anticipate[s] for continuation of work, site maintenance, etc.” 
in the event onsite BCI team members or subcontractor team members are quarantined 
(id.).   
 
 61.  By letter dated March 23, 2020, BCI responded to the government’s 
March 20, 2023, inquiry stating BCI is “following the KDHE [Kansas Department of 
Health and Environment] travel recommendations and quarantine mandate released 
March 18th, 2020,” and that in the event a workplace member receives “notification 
for a positive test or notification of close contact of a confirmed case[,] a 14-day 
quarantine will be observed as recommended” (R4, tab 695 at CPE000002).  BCI’s 
letter also stated “[i]n the event the entire onsite crew is unable to work BCI would 
bring additional personnel to site in order to maintain existing excavations as required” 
(id.).  Included with BCI’s response was a letter from Nicholson, stating “[w]e are 

17 
 
providing notice to BCI Construction and USACE to let them know that the 
COVID-19 pandemic could soon impact their construction schedule,” and that “[a] 
suspension of work may soon be in order, as well as an extension of time to complete 
the project” (id. at COE000006).  
 
 62.  By letter dated March 26, 2020, the government informed BCI that the 
contract is considered mission essential and that BCI was “to continue contract 
performance to the maximum extent practicable, while also heeding warnings and 
taking appropriate steps to protect the health of your and your subcontractors’ 
employees” (R4, tab 696 at COE000002).  The government requested that BCI keep it 
informed of its actions to perform the contract, efforts to comply with state 
declarations and directives, and “potential impacts this dual compliance may have on 
your operations” (id.).  The government also requested that BCI “pass along any 
relevant information received from your subcontractors,” including “[p]erformance 
delays, material shortages, or any other impacts that may arise due to subcontractors’ 
efforts to comply with state declarations and directives” (id.). 
 
 63.  As of April 1, 2020, Nicholson was back onsite and performing work (JSF 
¶ 133; gov’t mot. ex. A (dep. of Jarell Han at 145:21-146:4)). 
 
 64.  The government issued no directives on this project in response to the 
COVID-19 pandemic about methods of travel (airplanes, driving) or rotating crews 
(JSF ¶ 134; gov’t mot. ex. A (dep. of Jarell Han at 146:5-147:21)). 
 
 65.  The government did not direct Nicholson to draft or develop the “travel 
options” the company issued to its employees (JSF ¶ 135; R4, tab 1191; SOF ¶ 58).  
 
 66.  The project did not experience an outbreak of COVID-19 during contract 
performance (JSF ¶ 137; gov’t mot. ex. G (dep. of Gerald R. Miller 202:25 - 204:4)). 
 
 67.  By letter dated February 11, 2021, BCI alleged it experienced 59 days of 
delay in delivery of materials from Oldcastle Infrastructure due to COVID-19 
production issues that impacted critical path activities (R4, tab 747; app. opp’n at 67).  
The parties offer divergent interpretations of BCI employee Brian Butler’s deposition 
testimony regarding supply issues BCI experienced in obtaining manhole covers 
supplied by Oldcastle Infrastructure and the supply issue’s alleged impact upon the 
project (app. additional material facts dated Feb. 24, 2023, at 40 (¶ 168) (citing app. 
reply ex. K (dep. of Brian Butler at 188, 190-91); gov’t reply at 48 (¶ 168)).  BCI 
argues that Mr. Butler testified he placed the order for manhole covers in July 2020 
and that BCI experienced a delay in receiving those manholes from Oldcastle (app. 
additional material facts dated Feb. 24, 2023, at 40-41 (¶¶ 169-70) (citing app. reply 
ex. K (dep. of Brian Butler at 193-96))).  In contrast, the government states that 
Mr. Butler also testified that it was possible to order the manholes in 2018 after the 

18 
 
government approved the relevant transmittal for these materials and that some delay 
in 2020 was caused because some of the materials were damaged in transit (gov’t reply 
at 48 (¶ 169)). 
 
 68.  Although BCI’s February 11, 2021, letter, does not request any additional 
costs based upon the alleged 59-day delay in receiving the manhole covers (R4, 
tab 747), BCI’s December 12, 2021, certified claim seeks additional labor and 
equipment costs for “BCI Onsite Rentals Per Day Rate” and “BCI Operated 
equipment,” totaling $55,999.94, plus an additional $1,530.09 for “Bond” (R4, tab 773 
at COE000445 (ex. 66)). 
 
 69.  BCI requested a 30-day time extension and $97,008.81 for increased labor 
and material costs based upon pass through claims brought on behalf of its 
subcontractor Nicholson (compl. ¶¶ 63-85 dtd. March 28, 2022; R4, tab 747 
at COE000002, tab 773 at COE000044).  Although BCI alleged that Nicholson 
experienced a 30-day delay because of COVID-19, documents produced by Nicholson, 
and testimony of Nicholson employees, indicate that Nicholson sought only a 14-day 
time extension (R4, tab 773 at COE000341-42; gov’t mot. ex. A (dep. of Jarell Han 
at 144:15–22, 147:4–21); gov’t mot. ex B (dep. of Joseph McCune at 63:3–65:22)). 
 
 Riprap  
 
 70.  BCI’s second complaint seeks $30,489.49, based upon alleged extra work 
involving placement of riprap (compl. ¶ 111 dtd. March 28, 2022). 
 
 71.  The contract specifications included paragraph 3.5, PLACEMENT OF 
RIPRAP, and paragraph 3.6, PLACEMENT OF GROUTED RIPRAP, which detailed 
the location and method the contractor was to utilize to place riprap and grouted riprap 
at the project site (R4, tab 5 at COE000646-48). 
 
 72.  IFB Amendment No. 0003 included the following question and response 
regarding riprap:   
 
Question 2.  We are attempting to determine the extent of 
riprap protection required in this project:  Page CD101, D9 
indicates 4.5' riprap over 1' of bedding.  It is not clear 
whether the existing grouted riprap is to be removed and 
new riprap in its place or new bedding and riprap added to 
the existing structure.  The length and depth of the new 
riprap is also unclear. 
 
Response:  The existing grouted riprap (exposed on the 
river banks) is not to be removed.  The riprap that is 

19 
 
removed and replaced as indicated on CD101 detail D9 is 
what is buried on the landward side of the stilling basin 
training walls.  The bottom elevation, top elevation with 
horizontal and vertical slopes are provided to calculate the 
amount of material required. 
 
(JSF ¶¶ 138-139; R4, tab 10 at COE000003) 
 73.  Amendment No. 0003, dated June 19, 2017, was issued after the pre-bid 
site visit on May 26, 2017, and before BCI’s submission of its bid on June 22, 2017 
(SOF ¶¶ 12, 72; JSF ¶ 140; R4, tab 10 at COE000002, tab 12 at COE000003 (setting 
forth “Offer date”)).  BCI acknowledged receipt of Amendment No. 0003, as reflected 
in the contract (block 19) (JSF ¶ 141; R4, tab 12 at COE000003). 
 
 74.  Contract specification SECTION 01 11 00, SUMMARY OF WORK (R4, 
tab 5 at COE000084), included paragraph 1.3, EXISTING WORK, which required the 
contractor to “[r]emove or alter existing work in such a manner as to prevent injury or 
damage to any portions of the existing work which remain,” and to “[r]epair or replace 
portions of existing work which have been altered during construction operations to 
match existing or adjoining work, as approved by the Contracting Officer” (id. 
at COE000086). 
 
 75.  Contract drawing CD101, DEMOLITION PLAN, included Detail No. D9, 
MONOTLITHS 11/12 REMOVAL & BACKFILL SECTION, depicting 
“DISTURBED STRATA” and “UNDISTURBED STATA,” both of which included 
“PERVIOUS BACKFILL, IMPERVIOUS FILL, BEDDING, AND RIPRAP” (R4, 
tab 6 at COE000013).  Drawing CD101 included a NOTE for DISTURBED STRATA 
stating, “REPLACE DISTURBED STRATA WITH SPECIFIED MATERIAL AND 
AT SAME LOCATION AS EXISTING” (id.).  
 
 76.  The contract incorporated by reference FAR 52.236-3 Site Investigation 
and Conditions Affecting the Work (APR 1984) and FAR 52.236-9 Protection of 
Existing Vegetation, Structures, Equipment, Utilities, and Improvements (APR 1984) 
(R4, tab 12 at COE000012).  FAR 52.236-3(a) states that “[t]he Contractor 
acknowledges that it has taken steps reasonably necessary to ascertain the nature and 
location of the work, and that it has investigated and satisfied itself as to the general 
and local conditions which can affect the work or its cost,” and that “[a]ny failure of 
the Contractor to take the actions described and acknowledged in this paragraph will 
not relieve the Contractor from responsibility for estimating properly the difficulty and 
cost of successfully performing the work, or for proceeding to successfully perform 
the work without additional expense to the Government.”  48 C.F.R. § 52.236-3.  
FAR 52.236-9(b) states that “[t]he Contractor shall protect from damage all existing 
improvements and utilities (1) at or near the work site and (2) on adjacent property of a 

20 
 
third party, the locations of which are made known to or should be known by the 
Contractor,” and that “[t]he Contractor shall repair any damage to those facilities, 
including those that are the property of a third party, resulting from failure to comply 
with the requirements of this contract or failure to exercise reasonable care in 
performing the work.”  48 C.F.R. § 52.236-9.   
 
 77.  BCI asserts that prior to beginning construction on the upper training wall, 
it determined that the existing riprap at Monolith 12L and 12R exceeded the Monolith 
joint where concrete removal and placement was to occur (app. additional material 
facts dated Feb. 24, 2023, at 26 (¶ 120) (citing app. opp. ex. (Feb. 24, 2023, aff. of 
Mr. Miller ¶ 28))).  The government does not contest the proposition that existing 
riprap exceeded the Monolith joint where concrete removal and placement was to 
occur (app. additional material facts dated Feb. 24, 2023, at 26 (¶ 120); gov’t reply 
at 29 (¶ 120)).  BCI also asserts that it “could not complete its contract work without 
removing some of the grouted rip rap” (app. additional material facts dated Feb. 24, 
2023, at 26 (¶ 120)).  The government denies that contract work could not be 
completed without removing some of the grouted riprap (id.); gov’t reply at 29 
(¶ 120)).  BCI states that the administrative contracting officer “thought that the 
concrete wall could be demolished without removing the rip rap by using shoring” 
(app. additional material facts dated Feb. 24, 2023, at 27 (¶ 124)) (citing app. opp’n ex. 
(dep. of Allen E. Ewell at 125-26)). 
 
 78.  BCI submitted to the government a Request for Proposal (RFP) dated 
November 17, 2018, for shoreline “Rip Rap associated costs” (R4, tab 690 
at COE000002; see also id. at COE000004).  The RFP was submitted over a year after 
the July 28, 2017, contract award date (SOF ¶ 52).  Regarding the “Information 
Requested,” BCI stated: 
 
BCI is requesting the government formally provide the 
extent of rip rap in the vicinity of station 8+60 to 8+80, 
adjacent to Monoliths 12L and 12R.  Please include the 
amount to be removed, installed, and grouted in place on 
the riverside shoreline.  We would also like clarification on 
the depth of placement for both the rip rap and bedding 
material. 
 
(R4, tab 690 at COE000004)  The RFP contains no assertion that the required work 
was impossible to perform without removing the shoreline riprap (id. at COE000002-
04).   
 
 79.  A letter accompanying BCI’s RFP suggests that BCI was the bidder who 
submitted the question set forth in Amendment No. 0003, stating “[i]n the bidding 
phase of the contract (19JUN17), BCI specifically requested the extent of rip rap 

21 
 
protection to ensure proper estimating of the contract as well as for planning 
purposes,” and that “[t]he government responded that no rip rap on the shoreline was 
to be removed, and that the only rip rap to be removed and replaced was behind the 
landward side of the training walls” (R4, tab 690 at COE000002).    
 
 80.  The government responded to BCI’s RFP on November 20, 2018, declining 
BCI’s request and stating that BCI had “removed rip rap that was to remain in place” 
(JSF ¶ 142; R4, tab 691 at COE000002).  The government’s response referenced the 
requirements set forth in FAR 52.236-3 and FAR 52.236-9 (see SOF ¶ 76), as well as 
contract specification SECTION 01 11 00, paragraph 1.3 (id. at COE000002-03; see 
also SOF ¶ 74).  The government’s response also acknowledged “that, as stated in 
your letter, during bidding you asked for the extent of rip rap protection required in the 
project” (R4, tab 691 at COE000002). 
 
 81.  On June 6, 2019, BCI submitted to the government a Request for Equitable 
Adjustment (REA) H-0040 seeking compensation for reinstalling grouted riverbank 
riprap that it had removed (R4, tab 692; JSF ¶ 143). 
 
 Sidewalk Placement 
 
 82.  BCI’s second complaint seeks $28,133.54, and a seven-day time extension, 
for additional sidewalk placement work (compl. ¶ 62 dtd. March 28, 2022). 
 
 83.  The original contract drawings detailed work regarding the construction of 
sidewalks at the project site (R4, tab 6 at COE00021, COE00023).  Pursuant to 
Modification No. A00013/R00020 (with an effective date of November 18, 2020), the 
government issued revised drawings requiring installation of a thickened slab for 
certain sidewalks (R4, tab 622 at COE00002, tab 721 at COE00002-03).   
 
 84.  By RFI-0055, dated September 30, 2020, BCI requested that the 
government confirm its sidewalk design, which BCI stated did not provide any relief 
for concrete contraction (R4, tab 715 at COE00002, tab 733 at COE00002).  BCI 
included a layout detailing recommended contraction joint and expansion joint 
locations, including detail for those joints (id.).  By letter dated December 3, 2020, the 
government informed BCI that it did not agree that joints for the concrete sidewalk 
were not within the scope of work (R4, tab 731 at COE000002).    
 
 85.  The parties now agree that neither the original nor revised contract 
drawings required installation of sidewalk expansion joints (JSF ¶ 52).  
 

22 
 
 Liquidated Damages 
 
 86.  By letter dated July 23, 2020, the government informed BCI that 
“[p]ursuant to clause 52.211-12, ‘Liquidated Damages-Construction’, an amount of 
$860.00 for each calendar day of delay will be held for liquidated damages to the 
[g]overnment . . . beginning on July 12th, 2020” (R4, tab 1223 at COE000002).  The 
government’s letter noted that the contractual project completion date was July 11, 
2020, and that BCI’s latest schedule indicated it would not complete the project until 
December 2020 (id.). 
 
 87.  By letter dated September 9, 2020, BCI responded to the government’s 
July 23, 2020, letter, challenging the government’s assessment of liquidated damages as 
“unwarranted, unnecessary and without justifiable cause” (R4, tab 150 at COE000002).   
 
 88.  Pursuant to Pay Estimate No. 45, as of April 24, 2021, the project was 95.3 
percent complete (R4, tab 755 at COE000002; app. additional material facts dated 
Feb. 24, 2023, at 45 (¶ 184); gov’t reply at 54 (¶ 184)).  
 
 89.  By letter dated June 16, 2021, the government issued Serial Letter C-0102, 
listing 104 items that had yet to be completed on the project (R4, tab 814; gov’t opp’n. 
at 19 (¶ 16); app. reply to gov’t additional facts, dated March 24, 2023, at 56 (¶ 16)).  
Work identified by the government included “completing repairs on the top of the 
stilling basin’s walls, electric work, and reinstallation of the grouted riprap along the 
riverbanks” (gov’t opp’n at 19 (¶ 17); app. reply to gov’t additional facts, dated 
March 24, 2023, at 56 (¶ 17); see generally R4, tab 814). 
 
 Project Acceptance/Assessment of Liquidated Damages 
 
 90.  By letter dated July 15, 2021, the government accepted  a portion of the 
project work (R4, tab 815; gov’t opp’n at 19 (¶ 20); app. reply to gov’t additional 
facts, dated March 24, 2023, at 57-58 (¶ 20)).  Work identified by the government that 
remained included grouted riprap and conduit support for PVC conduit used in 
connection with a manometer well (R4, tab 815; gov’t opp’n at 19-20 (¶ 21); app. 
reply to gov’t additional facts, dated March 24, 2023, at 58 (¶ 21)). 
 
 91.  By letter dated July 19, 2021, the government confirmed that “the project 
was accepted for and on behalf of the Contracting Officer, Matthew Wilson as of 
July 15, 2021[,] with the following deficiencies” (JSF ¶ 114; R4, tab 815 
at COE000002).  The letter listed 26 deficiencies in the following areas of the project 
site:  West Entrance, West Side Roadway, West Side Stilling Basin, Headwall, East 
Side Stilling Basin, East Side Roadway, East Entrance, East Parking Lot Lay Down 
Areas and Stockpile Area, and General (R4, tab 815 at COE000002-03).   
 

23 
 
 92.  By letter dated September 16, 2021, BCI requested “release of all 
liquidated damages for days beyond April 23, 2021.  Regarding additional liquidated 
damages being withheld, BCI stated:  “[w]hile BCI disagrees with the Government’s 
withholding of all liquidated damages, which currently totals $228,760 for the period 
from Pay Request 25, (work starting on June 25, 2020) through Pay Request 48 (work 
ending on July 23, 2021), BCI will address the total amount being withheld by the 
Government in a separate letter” (R4, tab 1222 at COE000002).   
 
 93.  By letter dated September 28, 2021, the government addressed BCI’s 
request for release of liquidated damages, noting that a substantial function of the 
Stilling Basin Area is for public recreation and access to the rest of the park,” and that 
“[a]s of April 23, 2021, there were several incomplete activities that would not have 
allowed for transfer of the project for this function” (R4, tab 1037 at COE000002-03).  
The government stated that incomplete activities included “approval of the anchor 
testing results, asphalt pavement, concrete sidewalk placement, installation of 
handrails and the anti-scaling fence, as well as site restoration and completion of 
deficiencies” (id.). 
 
 94.  The parties’ JSF  states that the government currently is withholding 
$228,760, in liquidated damages at the rate of $860 per day for 266 days for the period 
of October 22, 2020, to July 15, 2021 (JSF ¶ 4 (citing R4, tab 775 at COE000023)). 
 
 95.  The liquidated damages rate of $860 is 0.01 percent (1/100 of one percent) 
of the total contract price of $8,261,206 (SOF ¶ 13). 
 
 BCI Equipment Standby Costs and Contracting Officer Final Decision 
 
 96.  By letter dated March 12, 2020, BCI submitted a proposal in the amount of 
$75,711.23, for equipment standby costs for the period of November 1, 2019, through 
January 20, 2020 (R4, tab 52 at COE000002).  By letter dated April 20, 2020, the 
government informed BCI that it found no “merit in the proposed costs,” as they were 
“attributable only to contractor action or inaction” (R4, tab 53 at COE000002). 
 
 97.  By letter dated May 22, 2020, BCI again addressed its request for 
equipment standby costs for the period of November 1, 2019, to January 20, 2020 (R4, 
tab 54 at COE000002).   
 
 98.  By letter dated June 22, 2020, the contracting officer issued a letter in 
response to BCI’s March 12, 2020, and May 22, 2020, letters regarding the issue of 
equipment standby costs as well as other issues (R4, tab 57 at COE000002).  The 
contracting officer’s letter concluded, stating: 
 

24 
 
The above mentioned items are my final decision. If BCI 
Construction USA, Inc. desires to pursue any further 
requests for relief, cost adjustment, contract modification, 
etc. please proceed in accordance with the Disputes Clause 
incorporated into the contract, FAR 52.233-1. We look 
forward to continuing the current progress and completing 
this project. 
 
(R4, tab 57 at COE000003) 
 August 26, 2020, Notice of Appeal  
 99.  On August 26, 2020, BCI filed with the Board a notice of appeal of the 
contracting officer’s June 22, 2020, letter.  BCI stated that although its May 22, 2020, 
letter did not request a final decision, the contracting officer’s letter in response 
referenced it as a “final decision” of the contracting officer.  That appeal was docketed 
as ASBCA No. 62657.
3   
 
 BCI’s January 25, 2021, Claim, and Contracting Officer Final Decision 
 
 100.  By letter dated January 25, 2021, BCI submitted a claim seeking 101 
additional days for alleged delays and reimbursement totaling $193,159.93, relating to 
(1) supply of Ready-mix concrete based upon alleged defective specification (21 days) 
in the amount of $25,856.59, (2) REA H-0042, for alleged excessive seep (10 days) in 
the amount of $34,390.27, (3) REA H-0054, for alleged equipment standby (80 days) 
in the amount  $78,386.42, and (4) REA H-0063 – rebar inspection and cleaning of 
holes (14 days) in the amount of $54,526.65 (R4, tab 3).  BCI’s January 26, 2021, 
claim included the equipment standby costs referenced BCI’s March 12, 2020, 
submission (id.) (see SOF ¶ 96).   
 
 101.  By letter dated June 10, 2021, the contracting officer issued a final 
decision denying the majority of BCI’s claim (R4, tab 4).  The final decision found 
“partial merit of the ‘Equipment Standby Costs for November 1, 2019 to January 20, 
2020’ item,” and extended the contract completion date by 56 calendar days but did 
not award additional costs (id. at COE000002, COE000010-11).   
 
 102.  Regarding appellant’s excessive seepage claim, the contracting officer 
stated: 
 
 
3 At the request of the parties, the Board stayed proceedings in ASBCA No. 62657 
from September 24, 2020, to July 29, 2021, during which time BCI submitted, 
and the government considered, what became BCI’s January 25, 2021, claim.   

25 
 
The volume of water on the west side was exasperated by 
the actions of BCI documented in Exhibit D.  Once the 
excavation was opened, BCI started digging to install a 
temporary pump and then cut through a 4” seep drain that 
would have handled the seepage from the west corner.  
BCI also placed their grout cleanout area over the drain 
line which then blocked the flow into the severed seep 
drain. 
 
(R4, tab 4 at COE000010)
4 
 July 7, 2021, Notice of Appeal 
 103.  On July 7, 2021, BCI filed with the Board a notice of appeal of the 
contracting officer’s June 10, 2021, final decision.  By notice dated July 15, 2021, the 
Board docketed that appeal as ASBCA No. 62975, and consolidated it with ASBCA 
No. 62657. 
 
 BCI’s December 12, 2021, Certified Claim 
 104.  By letter dated December 12, 2021, BCI submitted a certified claim based 
upon:  material cost increases; a differing site condition for backfill materials; 
sidewalk joint placement; COVID-19 delays; winter drawdown delays; reinstallation 
of riverbank riprap; and payment of the contract balance, including remission of 
liquidated damages (R4, tab 773).   
 
 BCI’s January 28, 2022, Amended Certified Claim and Contracting Officer’s  
 Final Decision 
 
 105.  By letter dated January 28, 2022, BCI submitted an amended certified 
claim, seeking an increase in the contract price of $517,449.60 and a time extension of 
103 days for the six items identified in SOF ¶ 104, plus $228,760 for the unpaid 
contract balance and remission of liquidated damages, totaling $746,209.60 (R4, 
tab 774 at COE000002-03; see also R4, tab 775 at COE000004, with a summary of 
BCI’s claim).  BCI’s claim also challenged the reasonableness of the government’s 
liquidated damages calculation (R4, tab 774 at COE000035). 
 
 106.  By letter dated February 10, 2022, the contracting officer issued a final 
decision on BCI’s January 28, 2022, certified claim (R4, tab 775 at COE000002).  The 
 
4 Exhibit D is an exhibit attached to the final decision which consists of “Photographic 
documentation of cut 4" line and grout cleanout rerouting seepage” (R4, tab 4 
at COE000008, COE000020).  

26 
 
final decision included the following summary of appellant’s January 28, 2022 claim:  
(1) increased material costs ($120,356.70); (2) increased backfill material costs 
($54,322.65); (3) sidewalk placement ($28,133.54) (seven day time extension); 
(4) COVID-19 delays ($154,538.84) (89 day time extension); (5) winter drawdown 
($160,097.87) seven day time extension; (6) riprap ($30,489.49), and (7) payment of 
contract balance (return of liquidated damages) ($228,760) (id. at COE000004).  
 
 107.  The final decision found partial merit to the winter drawdown delay 
claim, awarding a no-cost, two calendar-day time extension (R4, tab 775 
at COE000018).  The final decision stated, in part: 
 
The cause of the winter drawdown is weather, as 
drawdowns vary dependent on weather, inflows and 
temperatures. FAR 52.249-10, Default (Fixed-Price 
Construction), includes but is not limited to weather. 
Delays experienced under this clause are considered 
excusable but noncompensable.  This clause does not 
authorize monetary damages as the delay source was not 
the Government. Winter drawdown events are outside of 
the control of both the contractor and the Government, and 
therefore the request for a $160,097.87 price increase 
because of winter drawdown delays is denied.  
 
(Id. at COE000020)  The final decision granted BCI an increase in material costs of 
$37,872, an increase for backfill materials of $3,201, and a two-day extension of the 
contract completion date which resulted in remittance of assessed liquidated damages 
in the amount of $1,720 (plus interest) (id. at COE000002). 
 
 February 17, 2022, Notice of Appeal 
 
 108.  On February 17, 2022, BCI filed with the Board a notice of appeal of the 
contracting officer’s February 10, 2022, final decision.  By notice dated July 15, 2021, 
the Board docketed that appeal as ASBCA No. 63200, and consolidated it with 
ASBCA Nos. 62657 and 62975. 
 
 Recent Contract Modification Awarding BCI Additional Compensation and  
 Contract Performance Days 
 
 109.  In response to BCI’s motion for partial summary judgment, the 
government states that it “agrees to entitlement as to the sidewalk isolation joints and 
sealant claim,” but disputes quantum, and that it “will issue a unilateral modification 
for the sidewalk isolation joints and sealant claim” (gov’t opp’n at 1).  On March 16, 
2023, the government issued unilateral Modification No. R00026, awarding BCI 

27 
 
additional costs for the installation of isolation joints and sealing on the sidewalk 
($24,559.11), rebar inspection and cleaning of anchor holes (SOF ¶ 100) ($30,000), 
and equipment standby costs incurred from November 1, 2019, to December 23, 2019 
(SOF ¶ 96) ($51,082.55), for a total amount of $105,641.66 (gov’t reply ex. PP at 1-2).  
The government also added a total of 14 days to the contract completion date based 
upon the sidewalk placement claim (seven days) and the rebar inspection and cleaning 
of holes claim (seven days) (id. at 2).   
 
DECISION 
 I.  Standard of Review 
 “Summary judgment is appropriate if there is no genuine issue as to any 
material fact and the moving party is entitled to judgment as a matter of law.”  First 
Commerce Corp. v. United States, 335 F.3d 1373, 1379 (Fed. Cir. 2003); F
ED. R. CIV. 
P. 56(a).  The moving party bears the burden of establishing the absence of any 
genuine issue of material fact and all significant doubt over factual issues must be 
resolved in favor of the party opposing summary judgment.”  Bubble Room, Inc. v. 
United States, 159 F.3d 553, 561 (Fed. Cir. 1998).  A party challenging a motion for 
summary judgment “must set forth specific facts showing that there is a genuine issue 
for trial.”  Anderson v. Liberty Lobby, Inc., 477 U.S. 242, 248 (1986) (quoting First 
Nat'l Bank or Ariz. v. Cities Serv. Co., 391 U.S. 253, 288 (1968)).  It does not matter 
that the parties have cross-moved for summary judgment, both claiming that there 
exists no material issue of fact.  “Each cross-motion is evaluated separately on its 
merits, and all reasonable inferences are drawn in favor of the defending party.”  
Osborne Constr. Co., ASBCA No. 55030, 09-1 BCA ¶ 34,083 at 168,513.  The Board 
is not bound to “grant judgment as a matter of law for one side or the other.”  Mingus 
Constructors, Inc. v. United States, 812 F.2d 1387, 1391 (Fed. Cir. 1987).   
 
 II.  Contentions of the Parties
5 
 
 The government’s motion seeks summary judgment on the following claims:  
(1) BCI’s challenge to the liquidated damages daily rate as unreasonable as set forth in 
BCI’s second complaint (compl. dtd. March 28, 2022) (gov’t mot. at 36); (2) BCI’s 
 
5 Neither party seeks summary judgment on the following BCI claims:  (1) H-0054 - 
REA Equipment Standby (80 days) $78,386.42, (2) H-0063 - Rebar Inspection 
& Cleaning of Holes (14 days) $54,526.65 (both set forth in appellant’s first 
complaint (compl. ¶ 6 dtd. August 13, 2021)), and (3) backfill material (no 
time) $54,322.65) (set forth in appellant’s second complaint (compl. ¶ 39 dtd. 
March 28, 2022)).  We note, however, that Modification No. R00026 awarded 
BCI additional equipment standby costs, as well as additional time and costs for 
rebar inspection and cleaning of anchor holes (SOF ¶ 100). 

28 
 
Ready-mix concrete, defective specification claim set forth in BCI’s first complaint 
(compl. dtd. August 13, 2021) (gov’t mot. at 15); (3) BCI’s excessive seepage claim 
set forth in BCI’s first complaint (compl. dtd. August 13, 2021) (gov’t mot. at 20), (4) 
BCI’s COVID-19 delay claim set forth in BCI’s second complaint (compl. dtd. 
March 28, 2022) (gov’t mot. at 26), and (5) BCI’s riprap claim set forth in BCI’s 
second complaint (compl. dtd. March 28, 2022) (gov’t mot. at 33). 
 
 BCI’s partial motion seeks summary judgment on the following claims:  (1) 
BCI’s request for remittance of liquidated damages set forth in its second complaint 
(compl. dtd. March 28, 2022) (app. mot. at 2), (2) BCI’s sidewalk placement claim set 
forth in its second complaint (compl. dtd. March 28, 2022) (app. mot. at 16), and 
(3) BCI’s winter drawdown claim set forth in its second complaint (compl. dtd. 
March 28, 2022) (app. mot. at 12).  BCI also challenges the government’s affirmative 
defense of accord and satisfaction on BCI’s material cost claim (Modification 
Nos. R00014, R00016, and R00018), BCI’s sidewalk placement claim (Modification 
No. R000020), and BCI’s winter drawdown (Modification No. R00021) (second 
complaint (compl. dtd. March 28, 2022)) (app. mot. at 20) (ans. dtd. September 10, 
2021 at 20, ans. dtd. July 29, 2022 at 27).   
 
Both parties seek summary judgment on various issues regarding the 
government’s assessment of liquidated damages.  Accordingly, we address first BCI’s 
challenge to the government’s assessment of liquidated damages.  We then address 
issues raised by the government’s motion for partial summary judgment, followed by 
issues raised by appellant’s motion for partial summary judgment. 
 
 III.  Remittance of Liquidated Damages 
 
 BCI seeks remission of liquidated damages, which is a government claim.  
Sauer, Inc., ASBCA No. 62395, 21-1 BCA ¶ 37,845 at 183,753, recon. denied, 22-1 
BCA ¶ 38,079.  Accordingly, “the Government bears the initial burden of proving that 
the contractor failed to meet the contract completion date and that the period of time 
for which it assessed liquidated damages is correct.’”  KEMRON Envtl. Servs. Corp., 
ASBCA No. 51536, 00-1 BCA ¶ 30,664 at 151,399).  To determine the enforceability 
of a liquidated damages clause, the Board examines whether the liquidated damages 
amount “is not so extravagant, or disproportionate to the amount of property loss, as to 
show that compensation was not the object aimed at or as to imply fraud, mistake, 
circumvention or oppression.”  DJ Mfg. Corp. v. United States, 86 F.3d 1130, 1133 
(Fed. Cir. 1996) (quoting Wise v. United States, 249 U.S. 361, 365 (1919)).   
 
 A.  BCI did not Waive its Right to Challenge the Liquidated Damages Rate 
 
 The government argues that by failing to raise the issue prior to contract award 
BCI waived its right to challenge the actual liquidated damages rate set forth in the 

29 
 
contract (gov’t mot. at 37-38).  As support for its proposition, the government cites 
Blue & Gold Fleet, L.P. v. United States, 492 F.3d 1308, 1315 (Fed. Cir. 2007).  In 
that case, the Federal Circuit held that an incumbent contractor who failed to lodge a 
bid protest pre-award regarding terms of the solicitation (the applicability of the 
Service Contract Act, 41 U.S.C. §§ 351–358) waived its right after award to challenge 
those terms.  It seems readily apparent that the waiver doctrine espoused by the 
Federal Circuit in Blue & Gold has no real application here.  In that decision, the 
appeals court held that “a party who has the opportunity to object to the terms of a 
government solicitation containing a patent error and fails to do so prior to the close of 
the bidding process waives its ability to raise the same objection subsequently in a bid 
protest action in the Court of Federal Claims.”  492 F.3d at 1313.  In so holding, the 
court expressed concern about the “inefficient and costly” process of having to rebid 
an invitation for bids or submit additional offers on a solicitation “after offerors and 
the agency had expended considerable time and effort submitting or evaluating 
proposals in response to a defective solicitation.”  Id. at 1314 (quoting Argencord 
Mach. & Equip., Inc. v. United States, 68 Fed. Cl. 167, 175 n.14 (2005). 
 
 The concern expressed by the Federal Circuit in Blue & Gold simply does not 
exist in this appeal, nor can it be said that the IFB here contained a patent ambiguity 
regarding the liquidated damages rate.  Here BCI did not waive its right to challenge 
the actual liquidated damages rate by not challenging the rate prior to submitting its 
bid, as there was no “patent error” of which BCI was aware at the time it submitted its 
bid.  Indeed, there is no allegation that BCI had any knowledge of what it believed 
might be in error regarding the liquidated damages amount set forth in the IFB.   
 
 The government cites our decision in Assist Consultants, Inc., ASBCA 
No. 61525, 21-1 BCA ¶ 37,850 at 183,807, for the proposition that “[t]he waiver rule 
‘applies to all situations in which the protesting party had the opportunity to challenge 
a solicitation before the award and failed to do so” (gov’t mot. at 37) (emphasis 
supplied by government).  However, that appeal, unlike the situation here, involved an 
issue of which the contractor was aware pre-award.  Specifically, the solicitation (and 
a previous contract awarded to the contractor) contained a FAR provision that set 
certain limitations on the type of surety permitted to submit performance and payment 
bonds under the contract; yet the contractor took the position, post award, that a FAR 
provision not incorporated into the contract allegedly allowed the contractor to utilize 
a surety not otherwise permitted.  Id.  We held that “ACI waived this argument by not 
raising it prior to award of the contract,” and that this was “especially true here, where 
ACI was aware based on the -0010 contract that the contracting officer intended to 
enforce the provision of FAR 52-228-15 [the FAR provision that was incorporated into 
the contract] that the bonds be issued by a Treasury Department Circular 570 surety.”  
Id.  For the reasons set forth above, we find that BCI did not waive its right to 
challenge the liquidated damages rate amount by not raising the issue prior to award of 
the contract. 

30 
 
 B.  Reasonableness of Penalty Amount 
 
 As noted by this Board in Metro Machine DBA General Dynamics NASSCO-
Norfolk, ASBCA No. 62221, 22-1 BCA ¶ 38,096 at 185,014, “liquidated damages 
clauses are perfectly allowable so long as they do not appear to have been designed as 
a punishment for late performance but, instead, reflect an attempt to place a value on 
late performance in circumstances where ascertaining that value would be otherwise 
difficult, if not impossible.”  In signing the contract here, BCI agreed to the liquidated 
damages clause set forth in the contract, and as the party challenging the government’s 
assessment liquidated damages, BCI has the burden of proving the clause is 
unenforceable.  BCI’s “burden is an exacting one, because when damages are 
uncertain or hard to measure, it naturally follows that it is difficult to conclude that a 
particular liquidated damages amount or rate is an unreasonable projection of what 
those damages might be.”  DJ Mfg. Corp., 86 F.3d at 1134 (citations omitted).   
 
 BCI argues that the liquidated damages rate was not reasonably related to the 
government’s anticipated damages for late completion of the project (app. mot. at 8).  
According to BCI, the “rate was improperly calculated, which resulted in an inflated 
liquidated damages rate” (app. mot. at 8).  As support, BCI relies upon deposition 
testimony of Mr. McCarn, the USACE quality assurance representative, to the effect 
that the government should have assumed, for the positions of “construction 
representative and the officer engineer,” that there would be three or four ongoing, 
concurrent projects, yet the government calculated the liquidated damages rate 
assuming only two active jobs, thus inflating rates of those individuals (id.).  BCI 
states: 
 
Because overhead and other costs in the calculation of the 
rate are dependent on the costs of the construction 
representative and the officer engineer, the inflated rates 
for those two positions results in an inflated per day rate of 
at least $176 per day ($860 per day based on two 
concurrent jobs versus $684 per day based on three 
ongoing jobs.) and as high as $ $263.68 per day ($860 per 
day based on two jobs vs. $596 per day based on four 
ongoing jobs. (SMF, ¶ 50-54.) Since Nathan McCarn was 
to assume 3 to 4 concurrent active jobs, the liquidated 
damages rate in the Contract was 26% greater than what it 
would have been if he had used three ongoing jobs and 
44% greater than what it would have been had he used four 
ongoing jobs. (SMF, ¶ 52, 54.) 
 
(App. mot. at 8-9)   

31 
 
 As noted above, the total contract price was $8,261,206, and the liquidated 
damages rate of was $860 per day, which equates to 0.01 percent (1/100 of one 
percent) of the contract price (SOF ¶ 95).  In Kato Corp., ASBCA No. 51462, 06-1 
BCA ¶ 33,293 at 165,091, we observed that “[t]here is nothing inherently 
unreasonable about a per day reduction of about 2/100 of one percent of the contract 
price ($9,103,501.00), i.e., a daily liquidated damages rate of $2,150.00” (citing, D.J. 
Mfg. Corp., 86 F.3d at 1138 (reduction of 1/15 of one percent of contract price for 
military supply contract not unreasonable); Gassman Corp., ASBCA Nos. 44975, 
44976, 00-1 BCA ¶ 30,720 at 151,743-44 (reduction of about 1/5 of one percent of 
contract price not inherently unreasonable)).  The same logic applies here.  There is 
nothing inherently unreasonable about a per day reduction that equates to 1/100 of one 
percent of the contract price.    
 
 Moreover, even assuming the accuracy of BCI’s re-computation of the rate, 
appellant is not entitled to summary judgment on this issue as “the method used to 
arrive at the liquidated damages figure is not determinative.”  Weis Builders, Inc., 
ASBCA No. 56306, 10-1 BCA ¶ 34,369 at 169,721-722 (citing DJ Mfg. Corp., 86 
F.3d at 1137 (trial court correctly held it was unnecessary to inquire into how the 
liquidated damages figure was derived).  Indeed, regardless of how the liquidated 
damages figure is derived, the clause will be enforced if the amount is reasonable for 
the particular agreement at the time it was made.  Young Assoc., Inc. v. United States, 
200 Ct. Cl. 438, 445, 471 F.2d 618, 622 (1973).  This especially is true because, as 
noted by the Court of Claims, “[t]he Government's damages stemming from delayed 
receipt of the supplies or construction it ordered are normally hard to measure.”  
Young Associates, Inc. v. United States, 200 Ct. Cl. 438, 444, 471 F.2d 618, 621 
(1973).  BCI has failed to present sufficient evidence upon which a reasonable 
factfinder could find that the liquidated damages rate set forth in the contract, as 
agreed to by the parties, was an unreasonable projection of what damages for late 
completion of the project might be or was inherently unreasonable.  The government is 
entitled to summary judgment on this issue. 
 
 C.  Partial/Substantial Completion 
 
 It is well established that “after the date of substantial completion or 
performance, it is improper to assess liquidated damages.”  Gassman Corp., ASBCA 
Nos. 44975, 44976, 00-1 BCA ¶ 30,720 at 151,742 (citations omitted).  BCI argues 
that it is entitled to remittance of liquidated damages that were assessed from April 23, 
2021, the date that BCI alleges the project was substantially complete, until July 15, 
2021, when the government accepted the project (app. mot. at 2).  The government 
argues that disputed material facts prelude entry of summary judgment on the issue of 
substantial completion (gov’t opp’n at 38).   
 

32 
 
 BCI argues that the project was substantially complete as of April 23, 2021, 
because, at that time, the facility was capable of adequately serving its intended 
purpose (app. mot. at 4).  It is undisputed that, as of April 24, 2021, the project was 
95.3 percent complete (SOF ¶ 88).  The government argues, however, that, as set forth 
in its June 16, 2021, letter, 104 items had yet to be completed on the project including 
“completing repairs on the top of the stilling basin’s walls, electric work, and 
reinstallation of the grouted riprap along the riverbanks” (SOF ¶ 89).  According to the 
government, “[o]n this Project there were items to be completed at the stilling basin as 
of 23 April 2021, and even as late as USACE’s acceptance of the work on 15 July 
2021, that were not mere ‘punch list’ type items” (gov’t opp’n at 39).  BCI responds 
that, as to those 104 items, the government’s June 16, 2021, letter does not specify 
how much work regarding each item had yet to be completed (app. reply at 20).  
Ultimately, by letter dated July 19, 2021, the government confirmed that the 
contracting officer accepted the project as of July 15, 2021, with additional work 
identified by the government that remained to be completed including grouted riprap 
and conduit support for PVC conduit used in connection with a manometer well (SOF 
¶¶ 90-91).   
 
 BCI also challenges the government’s suggestion that the “function of the 
Stilling Basin was for public recreation and access to the rest of the park and that, as of 
April 23, 2021, there were several incomplete activities that did not allow for public 
access to the space” (app. mot. at 6).  According to BCI, the project description set 
forth in the IFB contains no “language that the work was for public recreation or 
access to the park” (id.).  BCI relies upon the government’s Design Documentation 
Report as support for its argument that by April 24, 2021, the project was capable of 
adequately serving its intended purpose (SOF ¶ 4; app. mot. at 5).  The Design 
Documentation Report identified and addressed two issues regarding the project, “(1) 
repair of the stilling basin wall drain system and (2) retrofitting the stilling basin walls 
due to overturning stability concerns” (id.).  According to appellant, work regarding 
both these issues was completed as of April 23, 2021 (app. mot. at 5).   
 
 “Whether a contract has been substantially completed is a question of fact and a 
project is considered substantially completed when it is capable of being used for its 
intended purpose.”  Maruf Sharif Constr. Co., ASBCA No. 61802, 19-1 BCA ¶ 37,239 
at 181,276.  The parties’ respective arguments regarding work that remained to be 
completed after April 24, 2021, up through July 15, 2021, including the project work 
listed in the government’s June 16, 2021, letter, and whether the project was available 
for safe use by the public, suggest the existence of material issues of fact regarding 
whether the project was substantially complete.  Summary judgment is appropriate 
when there is no genuine dispute as to any material fact.  F
ED. R. CIV. P. 56(a).  
Accordingly, appellant’s motion for partial summary judgment on this issue is denied. 
 

33 
 
 IV. The Government’s Motion for Partial Summary Judgment 
 
A. BCI’s Ready-mix Concrete Claim 
 
 The government requests summary judgment on BCI’s claim that the Ready-
mix contract specifications were defective.  The government argues that BCI cannot 
recover under the Changes clause because the contract requirements never changed 
(gov’t mot. at 15).  The government also argues that BCI failed to provide the requisite 
notice (id.). 
 
 “To establish that the government-provided specifications are defective, a 
contactor must prove that it “substantially complied with the government's plans and 
specifications, and reached an unsatisfactory result.”  Pyrotechnic Specialties, Inc., 
ASBCA No. 57890, 17-1 BCA ¶ 36,696 at 178,694 (quoting Hanley Industries, Inc., 
ASBCA Nos. 54315, 56383, 08-2 BCA ¶ 33,932 at 167,917 (additional citations 
omitted).  BCI has not demonstrated that the concrete specification was defective.  
Instead, BCI has demonstrated only that its supplier did not manufacture the type of 
concrete specified, was unwilling to make changes to its batch plant to provide the 
concrete required by the contract, and ultimately was unwilling to provide the type of 
concrete required by the contract specifications (SOF ¶¶ 28-31).  
 
 The record establishes that (1) BCI’s concrete supplier did not utilize or supply 
the type of concrete called for in the contract and, instead, utilized a different type of 
concrete which BCI requested be accepted instead of the concrete required by the 
contract (SOF ¶ 28-30), (2) the government initially denied BCI’s request to utilize a 
different type of concrete (SOF ¶ 31), (3) BCI submitted a variance request (SOF 
¶ 32), and (4) the government ultimately agreed to the variance (SOF ¶ 33).  As noted 
by the government, the variance request did “not indicate a cost or time impact” (gov’t 
mot. at 17). 
   
 Although appellant cites as support Mr. Eichman’s affidavit for the proposition 
that he searched unsuccessfully for other available fly ash (app. additional material 
facts dated Feb. 24, 2023, at 7 (¶ 30), citing (Feb. 14, 2023, aff. of Mr. Eichman ¶ 5)), 
as noted by the government, Mr. Eichman does not state that MCM searched for, but 
was unable to find, any other GGBF slag or natural pozzolan that met contract 
requirements (gov’t reply at 65; see also SOF ¶ 31).  Rather, the record establishes 
that, although the government’s May 9, 2018, response to RFI-0021 noted that the 
contract allowed for use of GGBF slag instead of Fly Ash (SOF ¶ 30), BCI’s supplier 
was unwilling to provide BCI with GGBF slag, “or any other slag” because of storage 
and production limitations at MCM’s plant (SOF ¶ 30).  Simply put, BCI and its 
supplier simply refused to consider an alternative concrete mix provided for in the 
contract.  Regarding the alleged 21 days of delays encountered by BCI while the 
concrete mix design was being approved, the record establishes that BCI waited seven 

34 
 
months after issuance of the Notice to Proceed to submit its concrete mix design (SOF 
¶ 35).   
 
 Appellant argues that, upon approving the variance request, the contracting 
officer was obligated pursuant to FAR 52.236-21 (discussing specifications and 
drawings for construction) to issue a modification to the contract (app. opp’n at 7).  
The government disagrees, stating that FAR 52.236-21 applies to submission of shop 
drawings and that the variance request submitted by appellant was classified by 
appellant as SD-03, Product Data, not SD-02, Shop Drawing (gov’t reply at 70).  The 
government is correct (see SOF ¶¶ 21-22).  FAR 52.236-21 concerns submission of 
shop drawings, not product data.  FAR 52.236-21(f).  Moreover, the IFB specifically 
requires the contractor to submit concrete mix designs as SD-03, Product Data (SOF 
¶ 22).   
 
 BCI has failed to present sufficient evidence upon which a reasonable factfinder 
could find that there are material facts in dispute as to whether the Ready-mix concrete 
specification was defective.  The government is entitled to summary judgment on this 
issue.  
 
 B.  BCI’s Excessive Seepage Claim  
 
 The government requests summary judgment on BCI’s differing site condition 
claim for additional costs based upon excessive water seepage at the project site (gov’t 
mot. at 20).  BCI seeks entitlement based upon both a Type I and Type II differing site 
condition (app. opp’n at 22-28, 33), as well as the doctrine of superior knowledge (id. 
at 34-37).  According to BCI, a large volume of water on the northwest side of the 
stilling basin entered the excavation area through a seep in the earthen dam outside the 
construction site (id. at 22).  The parties agree that the seepage was caused by a buried 
electric line installed by another contractor in 2016 for the electric utility company that 
owns the line (SOF ¶ 48).  The parties also agree that there was some amount of 
seepage at the time of the pre-bid site visit, in that the ground at that location was 
moist (SOF ¶ 49).   
 
 Type I Differing Site Condition 
 
 “A Type I condition consists of ‘subsurface or latent physical conditions at the 
site which differ materially from those indicated in [the] contract.’”  Tidewater, Inc., 
ASBCA No. 61076, 18-1 BCA ¶ 37,195 at 181,076 (citing FAR 52.236-2(a)(1)).  To 
establish a Type I condition, BCI must demonstrate the following:  
 
(1) the contract documents positively indicated the site 
conditions that form the basis of the claim; (2) the 
contractor reasonably relied upon its interpretation of the 

35 
 
contract documents; (3) the conditions actually 
encountered differed materially from those indicated in the 
contract; (4) the conditions encountered were 
unforeseeable based on all the information available at the 
time of bidding; and (5) the contractor was damaged as a 
result of the material variation between the expected and 
the encountered conditions.  
 
Sherman R. Smoot Corp., ASBCA Nos. 52173, 53049, 01-1 BCA ¶ 31,252 at 154,344 
(citing Stuyvesant Dredging Co. v. United States, 834 F.2d 1576, 1581 (Fed. Cir. 
1987)).  
 
To be eligible for an equitable adjustment for a Type I differing site condition, 
factors (1) and (3) above require that the contract actually indicate what the conditions 
encountered would be.  See Comtrol, Inc. v. United States, 294 F.3d 1357, 1363 (Fed. 
Cir. 2002) (citing P.J. Maffei Bldg. Wrecking Corp. v. United States, 732 F.2d 913, 
916 (Fed. Cir. 1984)); see also United Contractors v. United States, 177 Ct. Cl. 151, 
161-62, 368 F.2d 585, 595 (1966) (interpreting the Changed Condition clause)
6 and 
stating that where a contract is silent about an alleged unforeseen conditions there “can 
be nothing ‘shown on the drawings or indicated in the specifications’ from which the 
actual ... conditions can ‘materially’ differ”) (quoting Ragonese v. United States, 128 
Ct. Cl. 156, 159, 120 F. Supp. 768, 769 (1954)).  Here, BCI does not identify any 
contractual language indicating what the conditions would be at the location of the 
“electrical seep,” let alone any misleading information pertaining to the electrical seep.  
Rather BCI admits that the solicitation set forth no information about conditions in the 
area of the electrical seep (app. opp’n at 25-26) (noting the government’s “lack of 
disclosure of the electrical seep in the Solicitation” and that the government “did not 
show the electrical seep on the Drawings”).  Indeed, BCI notes that the area of the 
electrical seep sat outside the project’s construction site (app. opp’n at 28) (stating 
“electrical seep on the earthen dam [was] outside of the construction limits”).  BCI has 
failed to present sufficient evidence upon which a reasonable factfinder could find that 
the contract indicated what conditions would be at the site of the electrical seep would 
be or the existence of a Type I differing site condition.  The government is entitled to 
summary judgment on this issue.   
 
 Type II Differing Site Condition 
 
 A Type II condition involves “unknown conditions at the site, of an unusual 
nature, which differ materially from those ordinarily encountered.”  FAR 52.236-2(a).   
 
6 The Changed Condition clause was a predecessor to the Differing Site Condition 
clause.  Olympus, 98 F.3d at 1316. 

36 
 
To be eligible for an equitable adjustment for a Type II differing site condition, the 
contractor must establish “the recognized and usual conditions at the site, the actual 
physical conditions encountered and that they differed from the known and usual, and 
that the different conditions caused an increase in the cost of contract performance.”   
Nova Grp., Inc., ASBCA No. 55408, 10-2 BCA ¶ 34,533 at 170,329.  As recognized 
by the Board, this “is a ‘relatively heavy burden of proof.’”  Zafer Constr. Co., 
ASBCA No. 56769, 17-1 BCA ¶ 36,776 at 179,235 (quoting Charles T. Parker 
Constr. Co. v. United States, 193 Ct. Cl. 320, 333, 433 F.2d 771, 778 (1970)).  
 
 Although the parties agree that ground at the site of electrical seep was moist at 
the time of the pre-bid site visit (SOF ¶ 49), the record establishes that BCI first 
experienced problems caused by the electrical seep over a year after commencement 
of the project work and approximately 21 months after contract award (SOF ¶ 52).  
According to the government water from the electrical seep “began during a time of 
unprecedented heavy rain and flooding in the Spring 2019” (gov’t mot. at 22).   
 
The question presented here is whether the electrical seep can be considered a 
Type II differing site condition where the condition complained about by BCI (water 
entering the work site) was not the condition as it existed at the time of contract award.  
The government cites Olympus v. United States, 98 F.3d 1314, 1316-1318 (Fed. Cir. 
1996), for the proposition that the differing site condition clause “applies only to 
conditions that exist when a contract is executed and is inapplicable when the 
condition the contractor complains of arose after the contract is executed” (gov’t reply 
at 76). 
 
 As noted above, summary judgment is appropriate if the movant demonstrates  
there is no genuine dispute as to any material fact and the movant is entitled to 
judgment as a matter of law.  Regarding appellant’s excessive seepage claim, and the 
government’s motion for partial summary judgment, our review identifies at least one 
disputed issue for trial:  whether the water that was present at the site of the electrical 
seep was the same condition at the time of contract award that ultimately caused 
additional water to enter the jobsite some 21 months later (and thereby delay 
appellant’s ability to perform contract work).  It is undisputed that water was located at 
the electrical seep site at time of contract award, and that government was aware of 
this fact.  A factual issue remains regarding what caused the increase in water flow at 
the site, i.e., whether water at the site of the electrical seep at the time of contract 
award is the same condition that ultimately caused water to enter the jobsite some 
21 months later.  Whether conditions at the site of the electrical seep were simply 
made worse by heavy rains likewise presents a material issue of fact.  The government 
argues that BCI cannot recover for a differing site condition if the cause of the 
increased seepage was an unusually heavy amount of precipitation because unusually 
adverse weather is not proper basis for such a recovery (gov’t mot. at 23).     
 

37 
 
 We note that neither party addresses whether the seepage encountered at the site 
“differed from the known and usual” conditions to be expected at a site such as this.  
Although the solicitation did not mention the existence of the “electrical seep,” the 
specification included notice about the existence of groundwater sources that included 
“but are not limited to dam foundation underseepage, seepage through the abutments, 
tail water in the stilling basin, and precipitation infiltration” (SOF ¶ 45).  We do not 
decide here whether the seepage BCI encountered at the project site differs from 
known and usual conditions at a dam site such as this; however, as noted above, BCI 
has a relatively heavy burden of establishing entitlement pursuant to a Type II 
differing site condition. 
 
 BCI suggests also that the government intentionally placed rocks at the site of 
the electrical seep “to cover up the seep with a rock during the pre-bid site visit” (app. 
opp’n at 36).  According to BCI, Mr. McCarn stated in his deposition that “a pile of 
rocks had been piled there to ‘cover up’ the saturated rock on the shoulder” (id. at 25).  
BCI then concludes that it could not know of the existence of the pooled water 
pre-award, thereby excusing having not noticed the condition during the pre-bid site 
visit.  Regarding the existence of rocks placed at the site of the electrical seep, 
Mr. McCarn stated in his deposition that the “area was moist on the ground.  There 
was a pile of rock there to try and help to spread out for the area that kept getting 
saturated” (SOF ¶ 50).  In response to a question by appellant’s counsel regarding why 
a rock was placed at that location “if all the water was going underground,” 
Mr. McCarn replied “[y]ou’ll have to ask the operations manager.  They are in charge 
of maintenance.”  (R4, tab 1035; app. opp’n ex. (dep. of Nathan L. McCarn at 110)  
When asked to speculate, Mr. McCarn replied “[t]hat it’s there to cover up the 
saturated rock on the shoulder” (id.).  To the extent BCI suggests that Mr. McCarn’s 
testimony establishes a deliberate attempt by the government to cover up or hide the 
existence of moisture at the site of the electrical seep during the pre-award site 
inspection, we feel constrained to note that a reasonable fact-finder could not make a 
determination - based upon Mr. McCarn’s testimony proffered by BCI - that the 
government’s actions reflect an intention to hide or conceal water pooling at the 
location of the electrical seep in an area outside of the construction project site.  
Whether BCI should have noticed the seepage during the site visit is a question of fact 
that also cannot be decided on motion for summary judgment.     
 
 Notification of Differing Site Condition  
 
 The government argues that BCI failed to comply FAR 52.236-2, which 
requires the contractor to promptly give written notice to the contracting officer 
“before the conditions are disturbed,” and cautions that “[n]o request by the Contractor 
for an equitable adjustment to the contract under this clause shall be allowed, unless 
the Contractor has given the written notice required.”  FAR 52.236-2(a), (c) (See also 
gov’t mot. at 20).  As this Board noted in Goodloe Marine, Inc., ASBCA No. 61960, 

38 
 
23-1 BCA ¶ 38,387 at 186,521, “it has long been held that [the differing site condition 
clause] does not preclude contractor claims advanced without the required notice so 
long as the government was not prejudiced by the lack of such notice.”  
 
 On the issue of whether BCI provided the requisite notice, BCI alleges that, as 
reflected in Mr. McCarn’s QAR, it informed Mr. McCarn about water seeping into the 
construction site (SOF ¶ 54).  However, Mr. McCarn was not the contracting officer.   
On the issue of prejudice, the government notes that the contracting officer in the final 
decision set forth “a timeline of events related to excessive seepage,” including when 
appellant first noticed water at the site, when it began excavation, and when it cut a 
four inch drain pipe, all prior to when BCI notified the contracting officer of the 
differing site condition (gov’t reply at 77-78; see SOF ¶¶ 52-53).  The government 
states that BCI’s “actions in venturing outside the worksite boundaries and digging, 
instead of stopping work and notifying the Contracting Officer of what was occurring, 
prevented the parties’ ability to investigate potential solutions.  As said by the 
Contracting Officer, Appellant instead made the situation worse.”  (Gov’t reply at 78)   
 
 Whether BCI provided notice to the contracting officer, either constructive or 
actual, and whether the government was prejudiced by BCI’s actions, presents issues 
of material fact.  Accordingly, we are unable to decide these issues on the 
government’s motion for partial summary judgment.    
 
 BCI argues that (1) the contracting officer failed to raise in the final decision 
lack of notice or untimely notice to appellant’s differing site condition claim, (2) the 
government failed to plead lack of notice as an affirmative defense, and (3) the 
government had actual or constructive notice of the differing site condition (app. opp’n 
at 28-32).  In support of its first argument - that the government is deemed to have 
waived the notice requirement where the contracting officer fails to address the 
differing site condition claim in the final decision - BCI cites citing, Precision 
Standard, Inc., ASBCA No. 54027, 03-2 BCA ¶ 32,265 at 159,600 (see app. opp’n 
at 7).  However, Precision Standard concerned the Changes clause, not the Differing 
Site Condition clause, and, as such, has no application here.  Id.   
 
 Regarding appellant’s allegation that the government failed to assert waiver as 
an affirmative defense, the government admits as much and, instead, moves to amend 
its answer to include the affirmative defense of lack of notice regarding appellant’s 
differing site condition claim (gov’t reply at 80).  “As an initial point, we do not 
consider arguments raised for the first time in a reply brief.”  Chugach Federal 
Solutions, Inc., ASBCA No. 61320, 19-1 BCA ¶ 37,314 at 181,494 (citing Raytheon 
Co., Space & Airborne Sys., ASBCA No. 57801 et al., 15-1 BCA ¶ 36,024 at 175,960 
n.3).  Accordingly, if the government seeks leave to amend its answer, it should do so 
in a separate motion, thus allowing BCI the opportunity to respond to the 
government’s request.  As of the filing of the parties’ motions for summary judgment, 

39 
 
BCI certainly is now on notice of the government’s arguments that would make up its 
affirmative defense, and this mitigates against not allowing the defense to proceed 
here.  However, discovery is now closed.  One issue the parties should consider – to 
the extent the government decides to file a motion to amend its answer – is whether 
BCI requires additional discovery regarding the government’s waiver argument. 
 
 Superior Knowledge 
 
 The government argues that BCI is not entitled to recover under the doctrine of 
superior knowledge because appellant has proffered no evidence that the government 
was aware of water runoff from the site of the electrical seep into the project area at 
the time of contract award because that condition did not exist until well into contract 
performance (gov’t mot. at 24-26).  To recover for undisclosed superior knowledge, 
appellant must establish the following:   
 
(1) it undertook to perform without vital knowledge of a 
fact which affected performance costs or duration, (2) the 
government was aware that the contractor had no 
knowledge of and had no reason to obtain such 
information, (3) any contract specification supplied by the 
government misled the contractor or did not put it on 
notice to inquire, and (4) the government failed to provide 
the relevant information.  
 
Steelhead Constructors, Inc., ASBCA No. 55283, 06-2 BCA ¶ 33,388 at 165,530 
(citing Hercules, Inc. v. United States, 24 F.3d 188, 196 (Fed. Cir.1994), aff'd on other 
grounds, 516 U.S. 417 (1996)). 
 
 As noted above, if calculated from the date of contract mobilization, over 
13 months passed before BCI began experiencing problems caused by the electrical 
seep, and if calculated from the date of contract award approximately 21 months 
passed before problems regarding seepage arose (SOF ¶ 52).  Whether the 
government’s knowledge of the wet conditions at the time of contract award constitute 
superior knowledge depends upon whether the wet conditions (which admittedly 
worsened during contract performance) constitutes vital knowledge of a fact which 
affected performance costs or duration.  As with the issue of a Type II differing site 
condition, although the parties agree that the seepage was caused by the electrical line 
(SOF ¶ 48), we must determine factually whether water at the site of the electrical seep 
at the time of contract award is the same condition that ultimately caused water to 
enter the jobsite some 21 months later.   
 
Moreover, the fact that the parties agree the ground at the site of electrical seep 
was moist at the time of the pre-bid site visit (SOF ¶ 49), is not a proper basis upon 

40 
 
which to find that the government knew that water from that area eventually would 
enter the project site at some point after contract award.  Assuming for the sake of 
argument the Board ultimately determines that electrical seep was a Type II differing 
site condition, this finding could be of import to the issue of superior knowledge.  
Because this presents an issue of material fact, we are unable to resolve on the 
government’s motion for partial summary judgment application of the superior 
knowledge doctrine to this appeal.     
 
 C.  BCI’s COVID-19 Delay Claim  
 
 BCI seeks $154,538.84, and an 89-day time extension, based upon alleged 
delay caused by the COVID-19 pandemic (SOF ¶ 55).  Specifically, BCI seeks 
“additional compensation because of previous actions of the Government in its 
contractual capacity that pushed the schedule for the work into the period of the impact 
of COVID-19, which impact began in March 2020,” including a “Stop Work Order 
and the extensions thereto that were issued by the Contracting Officer, which the 
Government has acknowledged were changes to the Contract” (app. opp’n at 56).  Of 
the 89 days of alleged delay for COVID-19, BCI alleges 59 days of delay for late 
delivery of materials from Oldcastle Infrastructure due to COVID-19, which thereby 
impacted critical path activities (app. opp’n at 67).  BCI also alleges 30 days of delay 
and seeks $97,008.81 for increased labor and material costs on behalf of Nicholson as 
a pass through claim (SOF ¶ 69).   
 
 The government requests summary judgment on BCI’s COVID-19 claim on the 
basis that BCI cannot establish any excusable delay that was beyond its control or that 
of its subcontractor, and that BCI cannot demonstrate that COVID-19 impacted the 
contract work (gov’t mot. at 26).  The government also challenges BCI’s assertion of 
entitlement based upon the contract’s default clause (id. at 27) (citing FAR 52.249-10); 
(see also SOF ¶ 6), and the Changes clause (gov’t mot. at 31); (SOF ¶ 6); see also 
FAR 52.243-4.  Regarding the default clause, the government argues that BCI is 
entitled to no monetary relief because the default clause limits a contractor to recovery 
of additional time for excusable delay (gov’t mot. at 27).
7  The government argues that 
BCI cannot recover under the Changes clause because the contract requirements never 
changed and BCI failed to provide the requisite notice (id. at 31).   
 
 “A contractor is entitled to an equitable adjustment under the Changes clause 
for disruption to its sequence of work caused by an unforeseeable occurrence for 
which the Government is responsible.”  Commercial Contractors Equipment, Inc., 
ASBCA No. 52930 et al., 03-2 BCA ¶ 32,381 at 160,258 (citing Sauer Inc. v. Danzig, 
224 F.3d 1340, 1348-49 (Fed. Cir. 2000)); see also Lea County Constr. Co., ASBCA 
 
7 We note that BCI likewise agrees that the default clause limits a contractor to time 
extensions only and does not provide for monetary recovery (app. opp’n at 48).   

41 
 
No. 10093, 67-1 BCA ¶ 6,243 at 28,929 (additional costs encountered by contractor 
held allowable where “they are a direct and foreseeable result of the pre-existing 
Government delays which forced this work into the wintry weather”).  This appeal, 
however, presents the issue of whether the government is responsible for 
unforeseeable delays that occurred after a government-caused delay.  BCI alleges that 
the government should be held responsible for its alleged increased costs (related to 
COVID-19) incurred subsequent to the Stop Work Order, while the government 
maintains that it is not liable for these increased costs because the COVID-19 
pandemic was not a foreseeable event at the time the government issued the Stop 
Work Order (gov’t mot. at 30-31; app. opp’n at 59).  According to BCI, the 
government “has not cited a single case where impact costs were disallowed from a 
change to the contract or from a differing site condition because the Government did 
not cause the underlying reason why the change was issued,” and that the government 
“has not cited a single case where the only impact costs allowed are those that are 
foreseeable at the time a change order is issued are allowed” (app. opp’n at 59-60). 
 
 In Nassar Grp. Int’l, we held that: 
 
[a] contractor is entitled to an additional equitable 
adjustment when a government delay pushes a contractor’s 
performance into a period of seasonal adverse weather - 
such as a rainy season - but a contractor is not entitled to 
such an adjustment when the government's delay pushes 
the contractor's performance into a period of unusual 
adverse weather because the additional weather delay is 
not reasonably foreseeable in that case.   
 
Nassar Grp. Int’l, ASBCA No. 58451 et al., 19-1 BCA ¶ 37,405 at 181,833-34. 
 
 The same principle applies to these appeals.  Even assuming for the sake of 
argument that the government was at fault for the conditions that led to issuance of the 
Stop Work Order, the government would not be liable for additional costs experienced 
by BCI based upon the COVID-19 pandemic, as COVID-19 was not a reasonably 
foreseeable event at the time the government issued the Stop Work Order.  Indeed, 
such a finding is in conformance with the contract’s Default clause whereby BCI may 
be entitled to additional days to perform the contract based upon unforeseeable 
occurrences such as epidemics or quarantine restrictions; BCI would not be entitled, 
however, to additional compensation.  FAR 52.249-10(b)(1)(vi)-(vii).  This is 
especially true where the contract here was a fixed-price contract (SOF ¶ 7), under 
which the contractor bears the risk of increased costs.  JE Sinn Consulting, LLC, 
ASBCA Nos. 63553, 63383, 23-1 BCA ¶ 38,348 at 186,220 (rejecting contractor’s 
request for equitable adjustment for increased steel costs due to the pandemic because 

42 
 
a “firm fixed-price contract is not subject to any adjustment based [on] the contractor’s 
cost experience in performing the contract”) (citing FAR 16.202-1).   
 
 BCI cites George Sollitt Const. Co. v. United States, 64 Fed. Cl. 229, 239-40 
(2005) and E. Coast Repair & Fabrication, LLC v. United States, 199 F. Supp. 3d 
1006, 1089 (E.D. Va. 2016), as support for its proposition that the government must 
reimburse BCI for “impact costs” incurred because government-caused delays 
“push[ed] work into a later point in time” (app. opp’n at 58).  BCI’s reliance upon 
these decisions is misplaced.  As noted by the government, both Sollitt and E. Coast 
Repair concerned weather related delay and impacts experienced by the contractor, 
and, as such were not delays caused by the government (gov’t mot. at 30; gov’t reply 
at 87).  Moreover, in neither case did the court award the type of relief BCI requests 
here.  Sollitt, 64 Fed. Cl. at 239 (stating in dicta that increased costs of winter 
construction may be compensable); E. Coast Repair, 199 F. Supp. 3d at 1089 (stating 
in dicta that weather related expenses may be recoverable but that the contractor had 
failed to meet its burden of proof regarding delay damages).8   
 
 We note also that, even if somehow on point, neither of these cases are binding 
precedent for this Board, as decisions of the Court of Federal Claims, are not “binding 
upon this tribunal, nor are they even binding in other matters pending before the Court 
of Federal Claims.”  Northrop Grumman Corp., ASBCA No. 62165, 21-1 BCA ¶ 
37,922 at 184,180 n.8 (citing C.R. Pittman Constr. Co., Inc., ASBCA No. 57387 et al., 
15-1 BCA ¶ 35,881 at 175,427 n.6 (Court of Federal Claims decisions are not binding 
precedent for the ASBCA); Zaccari v. United States, 142 Fed. Cl. 456, 462 n.6 (2019) 
(“Decisions of the United States Court of Federal Claims do not bind the court in this 
matter but may provide persuasive authority”).  The same is true regarding decisions 
of United States district courts.  Swr, Inc., ASBCA No. 56708, 15-1 BCA ¶ 35,832 at 
175,221 (“this Board does not consider a district court decision to be precedent 
‘binding’ on it if the decision was issued in an appeal other than the one currently 
before the Board”).   
 
 BCI cites our decision in Emerald Maint., Inc., ASBCA No. 43929, 98-2 BCA 
¶ 29,903 at 148,054, for the proposition that a contractor may recover impact costs for 
extended job performance and increased periods of contract performance resulting 
from multiple government-caused changes and delays such as differing site conditions 
and design defects (app. opp’n at 51).  In Emerald, the government admittedly caused 
 
8 BCI cites two additional decisions of the Court of Federal Claims decisions for the 
unremarkable proposition that a contractor may recover additional costs for 
government-caused delays (app. opp. 50-51) (citing Doninger Metal Prod., 
Corp. v. United States, 50 Fed. Cl. 110, 125 (2001); G.M. Shupe, Inc. v. United 
States, 5 Cl. Ct. 662, 699 (1984); Meridian Eng'g Co. v. United States, 144 Fed. 
Cl. 667, 674 (2019)).   

43 
 
some of the problems which delayed contract performance and thereby pushed 
contract work into monsoon season, for which the Board awarded certain delay costs.  
Emerald Maint., 98-2 BCA ¶ 29,903 at 148,054.  Although the Board, in dicta, 
suggested that the contractor could “recover some ‘impact’ costs,” the Board did not 
award such costs as the contractor failed to substantiate its “resultant injury by direct 
and specific proof.”  (Id.) (internal citations omitted).  Here, however, BCI would not 
be entitled to such impact costs because the monsoon season of which the contractor 
complained, was a foreseeable event, unlike the COVID-19 pandemic, upon which 
BCI’s claim here is based.  As noted by the government, unlike the facts in Emerald, 
the government here “did not cause problems extending the time for performing the 
contract work into 2020 and beyond,” and issued modifications adding time to the 
contract completion date and paying BCI “for its standby costs due to the suspension 
of work caused by weather-necessitated water releases” (gov’t reply at 89).  
 
 BCI’s COVID-19 claim does not specify any additional material costs allegedly 
incurred because of COVID-19.  Rather, BCI seeks what it terms “BCI Onsite Rentals 
Per Day Rate” and “BCI Operated equipment,” as set forth in BCI’s December 12, 
2021, certified claim (SOF ¶ 68).
9  BCI also asserts increased labor costs of its 
subcontractor (SOF ¶ 69).  In Heart & Core LLC, ASBCA No. 63403, 23-1 BCA 
¶ 38,265 at 185,803, we held that a contractor under firm-fixed price contract is not 
entitled to reimbursement for increased labor costs allegedly caused by the COVID-19 
pandemic because the contractor “bore the risk of cost increases and the government is 
not obligated to adjust the prices to account for them.”  Likewise, we hold that, even 
assuming BCI or Nicholson was delayed by COVID-19, BCI and Nicholson are not 
entitled to additional labor or material costs allegedly caused by the pandemic.  This 
includes the $97,008.81 for increased labor and material costs sought on behalf of 
Nicholson.  
 
 Regarding BCI’s request for additional days to complete the contract, of the 
89 days of alleged delay for COVID-19, BCI alleges 59 days of delay caused by late 
delivery of materials from Oldcastle Infrastructure which impacted critical path 
activities (app. opp’n at 67).  The additional 30 days of alleged delay sought by BCI is 
brought on behalf of Nicholson (SOF ¶ 69).  Regarding delivery issues involving 
Oldcastle Infrastructure, the parties offer divergent interpretations of deposition 
testimony of BCI employee Brian Butler regarding supply issues BCI experienced 
regarding manhole covers supplied by Oldcastle Infrastructure and their alleged impact 
upon the project (SOF ¶ 67).  Regarding Nicholson’s 30 days of alleged delay, the 
government responds that Nicholson’s own documentation and the testimony of 
 
9 In their respective briefs, neither party addresses in any meaningful way BCI’s 
alleged additional costs set forth in its COVID-19 claim, or what type of costs 
are covered by “BCI Onsite Rentals Per Day Rate” and “BCI Operated 
equipment” (SOF ¶ 68). 

44 
 
Nicholson’s employees establishes that Nicholson sought only a 14-day time extension 
related to COVID-19 as opposed to 30 days (SOF ¶ 69).  Indeed, undisputed facts 
establish that Nicholson planned to remobilize beginning March 30, 2020, with setup 
and work resuming on April 1, 2020 (SOF ¶ 59), that Nicholson was back onsite and 
performing work as of April 1, 2020 (SOF ¶ 63), and that the government did not 
direct Nicholson to draft or develop the “travel options” the company issued to its 
employees (SOF ¶ 65). 
 
 At bottom, the government’s motion for partial summary judgment, appellant’s 
opposition in response, and the government’s reply brief all set forth factual 
disagreements regarding alleged time delays experienced by BCI and Nicholson 
because of COVID-19 (SOF ¶¶ 67-69), including the alleged impact of those time 
delays on the critical path (SOF ¶ 67).  We note it is undisputed that (1) COVID-19 did 
not impact the actual jobsite in that the government issued no directives on this project 
in response to the COVID-19 pandemic about methods of travel (SOF ¶ 64), (2) BCI 
continued to work on the project after issuance of the President’s March 13, 2020, 
Proclamation concerning the COVID-19 outbreak and national emergency (SOF ¶¶ 
58-59, 63), and (3) the project did not experience an outbreak of COVID-19 during 
contract performance (SOF ¶ 66). 
 
 The government’s motion for summary judgment challenging BCI’s claim for 
alleged additional costs incurred because of COVID-19 is granted.  Whether BCI is 
entitled to additional time because of alleged delays encountered because of COVID-
19 presents material issues of fact that we are unable to resolve on motion for partial 
summary judgment. 
 
 Sovereign Acts Defense 
 
 The government’s motion for partial summary judgment asserts that BCI’s 
COVID-19 claim is barred by the sovereign acts defense (gov’t mot. at 29-30).  
Specifically, the government argues “that the federal government, when acting as a 
contracting party, cannot be held liable for an obstruction to the performance of a 
contract resulting from its public and general acts as a sovereign,” and that “[i]n its 
capacity as the sovereign, the government can impact a contractor’s performance of a 
contract, and, in such instances, the government is released from liability for damages 
resulting from its sovereign acts, so long as those acts are ‘public and general’ and not 
directed at a particular contract” (id. at 29).  The government cites two ASBCA 
decisions in which we found that actions taken by the government to address the 
COVID-19 pandemic – JE Dunn Constr. Co., ASBCA No. 62936, 22-1 BCA ¶ 38,123 
at 185,192 (instituting a quarantine of 14 days upon arrival to the project site), and 
APTIM Federal Services, LLC, ASBCA No. 62982, 22-1 BCA ¶ 38,127 at 185,219 
(closing of an Air Force base to all non-operationally urgent personnel) – constituted 

45 
 
sovereign acts for which the government cannot be held liable (gov’t mot. at 29).  
Neither decision is controlling here.    
 
 In a recent decision, StructSure Projects, Inc., ASBCA No. 62927, 23-1 BCA 
¶ 38,416 at 186,680, this Board held that application of the sovereign acts defense 
requires that “the government acting as a contractor must have breached the contract.”  
The government points to no such breach of contract here and, indeed, asserts that it 
did nothing to obstruct performance of the contract based upon the COVID-19 
pandemic (gov’t mot. at 10, ¶¶ 54-55) (“USACE did not issue directives about 
methods of travel (airplanes vs. driving) or rotating crews in response to COVID” and 
“USACE did not direct Nicholson to put together or develop the ‘travel options’ that 
were issued by Nicholson to its employees).  BCI correctly notes that the government 
“does not mention any act of the Government on which it relies for the Sovereign Acts 
Defense,” and that the government “defeats its own affirmative defense by stating in 
its Brief that:  ‘As explained above, it is undisputed that USACE did not issue 
COVID-related directives or orders to Appellant or any of its subcontractors’” (app. 
opp’n at 54 (quoting gov’t mot. at 29-30)).  In its reply brief, the government fails to 
respond to BCI’s arguments regarding the inapplicability of the sovereign acts defense 
in these consolidated appeals.  We hold that the government cannot rely upon the 
sovereign act defense as a basis to deny BCI’s COVID-19 claim.  Its request for 
summary judgment on this issue is denied. 
 
 D.  BCI’s Riprap Claim 
 
 BCI seeks $30,489.49, based upon alleged extra work involving placement of 
riprap (SOF ¶ 70).  The government argues it is entitled to summary judgment on 
BCI’s riprap claim because there was no change to the contract whereby BCI was 
required to reinstall and regrout riprap because the contract specified that the riprap in 
question was not to be removed (gov’t mot. at 33).  The government also argues that 
BCI failed to provide the requisite notice set forth in the Changes clause, and that this 
lack of notice prejudiced the government (id.).  BCI asserts impossibility of 
performance in support of its riprap claim, suggesting that requirement set forth in IFB 
Amendment No. P0004, “that the rip rap was not to be removed, create[ed] an 
impossible situation to perform the specified work” (app. opp’n at 42).  The 
government responds, noting that BCI’s RFP pertaining to riprap contained no 
allegation that the “required work was impossible to perform without removing the rip 
rap” (gov’t mot. at 34). 
 
 Regarding BCI’s claim of impossibility, “the general rule of law is that when a 
contractor accepts a contract, the contractor is responsible for the means, knowledge, 
and processes required to perform the contract.”  AIW – Alton, Inc., ASBCA 
No. 47917, 95-2 BCA ¶ 27,875 at 139,066 (citing Lieco, Inc., ASBCA No. 11905 
et al., 68-2 BCA ¶ 7092 at 32,848).  Whether the contractual requirements here were 

46 
 
impossible to perform raises a question of fact that cannot be decided on summary 
judgment.  B.S.A. Painting Co., Inc., ASBCA No. 32060, 87-1 BCA ¶ 19,367 
at 97,945, recon. denied, 87-2 BCA ¶ 19,871.  Accordingly, we are unable to resolve 
this issue as presented by the government.  We note, however, that “[h]aving alleged 
impossibility, if appellant is to prevail it is not sufficient to prove difficulty, it must 
prove impossibility,”  Lieco, Inc., 68-2 BCA ¶ 7092 at 32,848 (citing ITT Kellogg, A 
Division of IT&T Corp., ASBCA No. 9580, 65–2 BCA ¶ 5077), and that “[a] difficult 
requirement does not render the requirement impossible.”  AIW – Alton, Inc., 95-2 
BCA ¶ 27,875 at 139,066 (citing Lieco, Inc., 68-2 BCA ¶ 7092 at 32,848). 
 
 In response to the government’s motion BCI also argues, as it did regarding the 
issue of differing site condition and electrical seep, that (1) the contracting officer’s 
final decision failed to raise lack of notice or untimely notice in response to appellant’s 
changed condition claim, (2) the government failed to plead lack of notice as an 
affirmative defense, and (3) the government had actual or constructive notice of 
appellant’s riprap claim (app. opp’n at 42-43).  Regarding the first two arguments, the 
government admits that the final decision does not address the issue of notice (app. 
additional material facts dated Feb. 24, 2023, at 29 (¶ 134); gov’t reply at 33 (¶ 134)) 
and that the government did not assert lack of notice as an affirmative defense (gov’t 
reply at 83).  The government again requests leave to amend its answer (id.).  For the 
reasons already stated, we deny the government’s request submitted for the first time 
in its reply brief.  If the government wishes to seek leave to amend its answer, it 
should do so in a separate motion, thus allowing BCI the opportunity to respond to the 
government’s request.    
 
 Regarding the issues of prejudice and constructive notice, it appears there is an 
issue of fact regarding when BCI began work removing the riprap at the project site.  
According to appellant, “[o]n November 12, 2018, before removing the rip rap, BCI 
sought by RFI-0039 the extent of the amount of the rip rap to be removed” (app. 
additional material facts dated Feb. 24, 2023, at 27 (¶ 126) (citing “Dep. Exh. 96, p. 4” 
which we assume is a reference to RFI-0039, and is reproduced at R4, tab 690 
at COE000004)).  The government, however, suggests it is “undisputed” that BCI “had 
already removed the riverbank riprap when it asked the ACO to request a proposal 
from it for doing the work,” and that “[t]he request to the ACO was post-hoc, after-
the-fact, because the rip rap had already been removed from the riverbank” (gov’t 
reply at 82 (citing R4, tab 691, and stating that BCI already “had ‘removed rip rap that 
was to remain in place’” (gov’t reply at 82 n.191))).  This dispute likewise suggests the 
existence of a material issue of fact regarding when BCI commenced removal of the 
grouted riprap, thus precluding resolution of this issue on the government’s motion for 
partial summary judgment. 
 

47 
 
 V.  BCI’s Motion for Partial Summary Judgment 
 
 As noted above, and as discussed further below, the government’s response to 
appellant’s motion for partial summary judgment concedes entitlement on some of 
BCI’s claims, as well as on BCI’s challenges to certain government affirmative 
defenses.    
 
 A.  Sidewalk Placement  
 
 Regarding appellant’s sidewalk placement claim, the government in its 
responsive brief “agrees to entitlement as to the sidewalk isolation joints and sealant 
claim, but quantum (the amount of costs claimed by Appellant) is disputed” (gov’t 
opp’n at 1).  The government states also that it “will issue a unilateral modification for 
the sidewalk isolation joints and sealant claim” (id.).  As noted above, the government 
issued unilateral Modification No. R00026, dated March 16, 2023, awarding BCI 
additional costs of $24,559.11, for the installation of isolation joints and sealing on the 
sidewalk, and added seven days to the contract completion date based upon the 
sidewalk placement claim (SOF ¶ 109).  To the extent BCI seeks additional 
compensation for sidewalk placement beyond the amount granted it in Modification 
No. R00026 (BCI’s original claim sought $28,133.54 (SOF ¶ 82)), that issue remains 
to be resolved by the parties.       
 
 B.  Winter Drawdown  
 
 The parties agree that BCI is entitled to 12 additional days of performance 
based upon the government’s winter drawdown of the lake (SOF ¶ 42).  As to the 
remaining three days of alleged delay (November 7, 2020, and December 11-12, 
2020), the parties disagree as to whether the government’s authority to initiate a winter 
drawdown is properly based upon the contract’s Default clause, Differing Site 
Conditions clause, or Changes clause (app. mot. at 12-13; gov’t opp’n at 47, 50).  The 
parties also disagree upon a litany of facts surrounding activities at the site during 
those three days, including the type of work being performed, and whether and how 
much of the work was attributable to the winter drawdown (app. reply at 40-41; gov’t 
opp’n at 52-53).  The parties have presented genuine issues of material issues of fact 
which preclude us from deciding this issue on motion for summary judgment.   
 
 Although we do not decide this issue here, we note that BCI’s argument is 
based, in part, upon the fact that the term “winter drawdown” does not appear in the 
contract, and that when the government initiated the winter drawdown here “it 
changed the Contract from no mention of winter drawdown to an actual winter 

48 
 
drawdown” (app. reply at 38).10  While BCI is correct as to the absence of the words 
“winter drawdown” in the contract, the contract clearly put BCI on notice of the 
government’s right to release water from the Tuttle Creek Dam into the Big Blue 
River.  Specifically, paragraph 1.5.2, Lake Releases During Construction, informed 
BCI that “[r]eleases through the outlet works are weather and inflow dependent.  Close 
coordination between the Tuttle Creek Operations Manager, Contracting Officer and 
the contractor is required” (SOF ¶ 37).   
 
 Appellant argues also that “[t]he act of doing the Winter Drawdown was done 
by the Corps itself,” and that “the Winter Drawdown was an act of the USACE 
because the parties have stipulated that the Corps made the decision on how much 
water to release and when to release the water for the Winter Drawdown and made the 
decision on when to do the Winter Drawdown that occurred in November and 
December 2020” (app. reply at 39).  However, as noted above, the contract 
specifications inform BCI that such releases are weather-dependent, i.e., the 
government’s decision regarding winter drawdown is dependent upon factors such as 
weather conditions and water levels in the lake (SOF ¶¶ 37, 107).  Ultimately, whether 
the government’s winter drawdown is properly characterized as a weather event 
presents a question of fact, one which we are unable to resolve on motion for summary 
judgment.  Accordingly, BCI’s motion for partial summary judgment on this issue is 
denied. 
 
 C.  Accord and Satisfaction  
 
 Appellant’s motion for partial summary judgment challenges the government’s 
affirmative defense of accord and satisfaction on material cost increases (Modification 
Nos. R00014, R00016, and R00018), sidewalk placement (Modification 
No. R000020), and winter drawdown (Modification No. R00021) (app. mot. at 20).  
The government’s brief in response to appellant’s motion admits that accord and 
satisfaction does not bar the 2020 winter drawdown claim, the sidewalk joint 
installation claim, or the 80-day standby material costs increase claim that began on 
November 1, 2019 (gov’t opp’n at 1, 44-45).  Accordingly, we conclude, regarding 
Modification Nos. 00014, 00016, and 00018, that appellant’s claims for 2020 winter 
 
10 In its motion for partial summary judgment, BCI appears to suggest that the 
government could have initiated the winter drawdown pursuant to the Changes 
clause, stating it “would have meant that BCI would be entitled to 
compensation, not just time extensions” (app. mot. at 14).  In its reply brief, 
BCI takes the opposite position, stating that it “disagrees that the Winter 
Drawdown should have been issued pursuant to the changes clause because the 
ACO’s serial letter regarding the 2020 winter drawdown was not a change order 
nor was it a direction and instruction interpretation or determination that the 
change [sic] original scope of work” (app. reply at 38). 

49 
 
drawdown claim, the sidewalk joint installation claim, and the 80-day standby material 
costs increase claim that begins on November 1, 2019, are not barred by accord and 
satisfaction or release and grant appellant partial summary judgment on this issue. 
 
CONCLUSION 
 
 For the reasons set forth above, appellant’s motion for partial summary 
judgment is granted on (1) appellant’s entitlement to additional costs incurred for 
sidewalk placement (with the issue of quantum remaining to be decided) (ASBCA 
No. 63200), and (2) appellant’s challenge to the government’s assertion of accord and 
satisfaction in that the affirmative defense does not bar appellant’s sidewalk isolation 
joints and sealant claim, appellant’s 2020 winter drawdown claim, or appellant’s 
material cost increases claim for alleged standby costs that began accruing on 
November 1, 2019 (ASBCA Nos. 62657, 62975).  The government’s motion for 
partial summary judgment is granted (1) on the issue of defective specification 
regarding the Ready-mix concrete (ASBCA No. 62975), (2) on appellant’s Type I 
differing site condition electrical seep claim (ASBCA No. 62975), and (3) on BCI’s 
claimed additional COVID-19 costs (ASBCA No. 63200).  The government’s motion 
for partial summary judgment is denied regarding (1) appellant’s Type II differing site 
condition and superior knowledge electrical seep claim (ASBCA No. 62975), 
(2) appellant’s claim of impossibility regarding removal of grouted riprap (ASBCA 
No. 63200), and (3) appellant’s request for additional days based upon COVID-19 
delays, as material issues of fact preclude the Board from granting summary judgment 
on these issues at this juncture in the proceedings (ASBCA No. 63200).  The 
government’s motion for partial summary judgment based upon its assertion of the 
sovereign act defense is denied (ASBCA No. 63200).   
 
 Regarding the parties’ motions on the issue of liquidated damages (ASBCA 
No. 63200), the government’s motion on the issue of waiver is denied, as appellant did 
not waive its right to challenge the liquidated damages daily rate set forth in the 
contract by not raising the issue pre-award.  The government’s motion for partial 
summary judgment regarding the reasonableness of the actual liquidated damages rate 
is granted, as BCI has failed to present sufficient evidence upon which a reasonable 
factfinder could find that the liquidated damages rate set forth in the contract, and 
agreed to by the parties, was an unreasonable projection of damages.  Material issues 
of fact preclude the Board from granting the remaining issues raised in the parties’ 
motions regarding the government’s assessment of liquidated damages in the amount  
  

50 
 
of $228,760, including appellant’s alleged entitlement to $79,120 for amounts held 
after alleged substantial completion of the project. 
 
 Dated:  February 5, 2024 
 
 
 
 
 
 
 
 
 
 
 
 
DAVID B. STINSON 
Administrative Judge 
Armed Services Board 
of Contract Appeals 
I concur 
 
 
 
OWEN C. WILSON 
Administrative Judge 
Acting Chairman 
Armed Services Board 
of Contract Appeals 
 I concur 
 
 
 
 MICHAEL N. O’CONNELL 
Administrative Judge 
Acting Vice Chairman 
Armed Services Board 
of Contract Appeals 
 
 
 I certify that the foregoing is a true copy of the Opinion and Decision of the 
Armed Services Board of Contract Appeals in ASBCA Nos. 62657, 62975, 63200, 
Appeals of BCI Construction USA, Inc., rendered in conformance with the Board’s 
Charter. 
 
 Dated:  February 6, 2024 
 
 
 
 
 
 
 
PAULLA K. GATES-LEWIS 
Recorder, Armed Services 
Board of Contract Appeals