Document ID: s3://data.kl3m.ai/documents/govinfo/USCOURTS/USCOURTS-ca13-15-05132/USCOURTS-ca13-15-05132-0/pdf.json

Parties Involved:
Guardian Moving and Storage Company, Inc.
Appellant
Metropolitan Van and Storage, Inc
Not party
United States
Appellee

Document Text:

NOTE: This disposition is nonprecedential.

United States Court of Appeals 

for the Federal Circuit ______________________ 

GUARDIAN MOVING AND STORAGE COMPANY, 

INC.,

Plaintiff-Appellant

v.

UNITED STATES,

Defendant-Appellee

METROPOLITAN VAN AND STORAGE, INC,

Defendant

______________________ 

2015-5132

______________________ 

Appeal from the United States Court of Federal 

Claims in No. 1:15-cv-00030-EDK, Judge Elaine Kaplan.

______________________ 

Decided: August 22, 2016

______________________ 

JOSHUA DAVID ROGACZEWSKI, McDermott, Will & Emery LLP, Washington, DC, argued for plaintiff-appellant. 

Also represented by JAMES W. KIM. 

DOMENIQUE GRACE KIRCHNER, Commercial Litigation 

Branch, Civil Division, United States Department of 

Justice, Washington, DC, argued for defendant-appellee. 

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2 GUARDIAN MOVING & STORAGE CO. v. US

Also represented by BENJAMIN C. MIZER, ROBERT E.

KIRSCHMAN, JR., DONALD E. KINNER. 

______________________ 

Before PROST, Chief Judge, WALLACH and HUGHES,

Circuit Judges.

WALLACH, Circuit Judge. 

Guardian Moving and Storage Co., Inc. (“Guardian”) 

appeals from a decision of the United States Court of 

Federal Claims (“Claims Court”) entering judgment in 

favor of the United States (“Government”) and defendant 

Metropolitan Van and Storage, Inc. (“MVS”). See Guardian Moving & Storage Co. v. United States, 122 Fed. Cl. 

117, 139 (2015). In a series of bid protests, Guardian 

challenged the decision of the United States Transportation Command (“USTC” or “agency”) to award a contract 

to MVS for non-temporary storage of household goods 

(“Goods”) and unaccompanied baggage (“Baggage”). Of 

particular relevance to this appeal are Guardian’s First 

Post-Award and Pre-Award Protests. See id. at 124–26. 

In response to Guardian’s First Post-Award Protest, 

the USTC decided to institute corrective action. Id. at 

124. However, before conclusion of the corrective action, 

Guardian filed a Pre-Award Protest, asserting that the 

USTC’s decision to institute corrective action was “arbitrary, capricious, an abuse of discretion, or otherwise not 

in accordance with law.” Id. at 125. 

In light of the corrective action, the Claims Court determined that Guardian’s First Post-Award Protest was 

moot, and accordingly, dismissed that protest. Id. at 127. 

As to Guardian’s Pre-Award Protest, the Claims Court 

denied Guardian’s motion for judgment on the administrative record and, in turn, granted the Government’s and 

MVS’s cross-motions for judgment on the administrative 

record. Id. at 127. We affirm. 

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GUARDIAN MOVING & STORAGE CO. v. US 3

BACKGROUND

I. Facts

A. The Solicitation

In July 2014, the USTC, a division of the Department 

of Defense (“DoD”), issued a competitive solicitation for a 

Goods and Baggage storage contract, in which the contractor would provide non-temporary storage of retrograde containerized Goods and Baggage belonging to 

military-service members and DoD civilian employees on 

the East and West Coasts of the United States. See J.A. 

308–13. 

The solicitation allowed offerors to “submit pricing for 

the East Coast, . . . the West Coast, and/or the East and 

West Coast Combined.” J.A. 401. The solicitation explained that the agency planned to “conduct a low price 

technically acceptable . . . source selection in which competing offers will be evaluated against . . . Price [and] 

Technical Capability.” J.A. 401. 

Offerors’ technical capabilities would be measured 

against the solicitation criteria, and offerors would be 

considered technically acceptable only if they demonstrated satisfaction of all criteria. See J.A. 526 (stating that 

“[i]f any technical subfactor is rated as [u]nacceptable, the 

overall technical rating will be [u]nacceptable”). Specifically, the solicitation required that proposals consist of 

three sections: Part I–Request for Proposal Documents; 

Part II–Technical Proposal; and Part III–Pricing Proposal. See J.A. 400. 

In Part I, offerors were instructed to provide, among 

other things, (1) a “[f]lood plain report from the Federal 

Emergency Management Agency, the United States Army 

Corps of Engineers[,] or [a] disinterested third party 

professional engineer/surveyor” (“flood plain report requirement”); and (2) “[d]ocumentation signed by the Local 

Fire Marshal[] (or authorized representative) affirming 

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that the facility meets all local codes and ordinances 

dated within [thirty] days of [the] proposal submission 

date” (“fire marshal documentation requirement”). J.A. 

400. 

In Part II, offerors were required to describe their respective plans for achieving the objectives provided in the 

Performance Work Statement (“PWS”). See J.A. 400–01, 

404. For example, subparagraph 1.3.3.1.2 of the PWS 

included the following requirements: (1) “[a]ll storage 

facilities shall provide firewall separation for every 

three . . . million gross pounds of stored personal property 

lots,” and (2) “[f]ire aisles shall meet local fire regulations 

as evidenced in the approved Fire Marshal Certification 

for all storage facilities” (“firewall/fire aisle requirement”). 

J.A. 407. 

In accordance with Federal Acquisition Regulation 

(“FAR”) 52.212-2(a), the agency evaluated the proposals 

via the following methodology: First, the agency would 

rank East and West Coast offers by price and evaluate the 

offers for technical compliance, commencing with the 

lowest-price offer and ending when it determined the 

lowest-price, technically acceptable offer for each coast; 

second, the agency would add the prices of the lowestprice, technically acceptable offer for the East and West 

Coast to determine the baseline against which offerors for 

a combined contract (i.e., offerors submitting both East 

and West Coast bids) would be evaluated; third, the 

agency would rank combined-coast offers by price. See

J.A. 402. If the lowest-price, technically acceptable combined contract offer was less than or equal to the baseline, 

“the evaluation process stops at this point,” and the Goods 

and Baggage contract would be awarded to that offeror 

“without further consideration of any other offers.” J.A. 

402. Conversely, if no combined offer was sufficiently low 

and technically acceptable, the agency would award the 

East Coast Goods and Baggage storage contract and the 

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GUARDIAN MOVING & STORAGE CO. v. US 5

West Coast Goods and Baggage storage contract to the 

offerors identified in the first step. See J.A. 402. 

B. Initial Proposals

Guardian, the East Coast incumbent, submitted proposals for each coast and a combined proposal. See J.A. 

509–14. Although the USTC found Guardian’s East Coast 

Proposal to be within the competitive range, the agency 

determined that the proposal’s “[t]echnical [c]apability 

was unacceptable.” J.A. 850. After discussions, the 

agency requested, and Guardian submitted, a final proposal revision for the East Coast (“First East Coast Final 

Proposal Revision”). J.A. 856. Upon submission of the 

revision, Guardian’s “technical volume was [re-]evaluated 

and received a rating of [a]cceptable.” J.A. 938. 

MVS, the West Coast incumbent, submitted a West 

Coast proposal and a combined proposal. See J.A. 515–16 

(West Coast proposal), 666–67 (combined proposal). After 

reviewing MVS’s proposals, the USTC requested clarification regarding certain aspects of the proposal. See J.A. 

911. MVS submitted a response addressing the agency’s 

inquiries. See J.A. 908–10. 

C. Award to MVS

Upon conclusion of its evaluation, the USTC determined that Guardian submitted the lowest-price, technically acceptable East Coast proposal and that MVS 

submitted the lowest-price, technically acceptable West 

Coast proposal. See J.A. 931–32. However, the agency 

concluded that the total proposed price of MVS’s combined 

proposal was lower than the aggregated price of Guardian’s East Coast proposal and MVS’s West Coast proposal. 

See J.A. 937–38. Accordingly, pursuant to the methodology established in the solicitation, the agency awarded the 

contract for the East and West Coasts combined to MVS. 

See J.A. 937–39.

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II. Procedural Posture

A. Guardian’s First Post-Award Protest and the USTC’s 

Corrective Action

After the USTC awarded the contract to MVS, on 

January 12, 2015, Guardian filed a complaint in the 

Claims Court protesting this decision. Guardian, 122 

Fed. Cl. at 124. Guardian subsequently filed a Motion for 

Judgment on the Administrative Record (“First MJAR”), 

contending that MVS’s “proposal was unacceptable and 

ineligible for award.” Id. (restating Guardian’s arguments, including that MVS’s proposal did not satisfy the 

solicitation’s fire marshal documentation requirement). 

In response to Guardian’s protest, on February 10, 

2015, the USTC took corrective action and “open[ed] 

technical discussions for [the] subject solicitation.” J.A. 

946. Upon the agency’s re-evaluation of the proposals, the 

USTC determined that: (1) Guardian’s First East Coast 

Final Proposal Revision was unacceptable because it 

failed to satisfy the solicitation’s flood plain documentation requirement, see J.A. 944; (2) MVS’s West Coast 

proposal did not satisfy the solicitation’s firewall/fire aisle 

and flood plain requirements, see J.A. 947–48; and 

(3) MVS’s combined proposal also did not satisfy the 

firewall/fire aisle requirement, and did not conform to the 

fire marshal documentation and flood plain report requirements, see J.A. 950–51. 

Following the USTC’s decision to institute corrective 

action, Guardian revised its initial West Coast proposal 

and its First East Coast Final Proposal Revision (“Second 

East Coast Final Proposal Revision”), which included 

flood plain reports from [a] “disinterested third party 

professional surveyor[].” J.A. 962. Similarly, MVS revised its West Coast proposal and its combined proposal

(“MVS’s Final Combined Proposal Revision”). J.A. 1043–

71. 

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B. Guardian’s Pre-Award Protest

Before the agency completed the corrective action, 

“Guardian filed a motion for leave to file an amended 

complaint to include a [P]re-[A]ward [P]rotest of the 

agency’s corrective action.” Guardian, 122 Fed. Cl. at 

125. Guardian’s Amended Complaint disputed the agency’s determination that its First East Coast Final Proposal Revision was unacceptable because it did not satisfy 

the solicitation’s flood plain documentation requirement. 

See id. (asserting that the agency “previously found [its 

flood plain] documentation . . . acceptable in two separate 

procurements” (internal quotation marks and citation 

omitted)). Accordingly, Guardian argued that the agency’s decision to institute the corrective action was “arbitrary, capricious, an abuse of discretion, or otherwise not 

in accordance with the law.” Id. 

In addition to its Amended Complaint, Guardian filed 

a Second Motion for Judgment on the Administrative 

Record (“Second MJAR”), raising, in part, the same arguments it proffered in contesting the agency’s decision to 

institute corrective action, and embroidering on the 

claims presented in its Pre-Award Protest. Id. at 125–26. 

In response, the Government filed a motion to dismiss 

Guardian’s Amended Complaint, asserting, among other 

arguments, that its decision to institute corrective action 

“rendered Guardian’s [First Post-Award Protest] moot.” 

Id. at 126. As to Guardian’s Second MJAR, the Government argued that it “was entitled to judgment upon the 

administrative record because Guardian . . . failed to 

demonstrate that the agency acted unlawfully or unreasonably in awarding the original contract to MVS.” Id.

C. Result of Corrective Action and Claims Court’s Decision

On April 30, 2015, the USTC notified the Claims 

Court that it had completed the corrective action. Id. The 

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USTC determined that MVS’s Final Combined Proposal 

Revision was the lowest-price, technically-acceptable 

proposal, and once again awarded the contract for the 

combined coasts to MVS.1 See J.A. 1194–95. 

In June 2015, the Claims Court granted the Government’s motion to dismiss Guardian’s First Post-Award 

Protest, finding that the agency’s decision to institute 

corrective action moots that protest. Guardian, 122 Fed. 

Cl. at 127–30. As to Guardian’s Pre-Award Protest, the 

Claims Court denied Guardian’s Second MJAR and 

granted the Government’s and MVS’s cross-motions for 

judgment on the administrative record. Id. at 127. 

Guardian appeals. This court has jurisdiction to review the Claims Court’s final judgment pursuant to 28 

U.S.C. § 1295(a)(3) (2012). 

DISCUSSION

On appeal, Guardian contests the Claims Court’s decision dismissing as moot its First Post-Award Protest. 

See Guardian Br. 24 (asserting that the USTC’s “corrective action was unnecessary, prejudiced Guardian, and 

did not render Guardian’s protest moot” (capitalization 

modified)). For Guardian to challenge that decision, 

Guardian must show that its initial proposal, specifically, 

its First East Coast Final Proposal Revision, satisfied all 

of the requirements of the solicitation and, as a result, 

that it, as opposed to MVS, should have been awarded the 

Goods and Baggage storage contract. 

 

1 Guardian also filed a Second Post-Award Protest 

challenging the agency’s decision to again award MVS the 

solicitation upon conclusion of the corrective action. Id. at 

126–27. However, the Claims Court’s decision as to 

Guardian’s Second Post-Award Protest is not at issue 

because Guardian does not appeal that decision. 

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GUARDIAN MOVING & STORAGE CO. v. US 9

Accordingly, before we address whether the USTC’s 

decision to institute corrective action moots Guardian’s 

First Post-Award Protest, we must first address the 

Claims Court’s Pre-Award Protest decision, which denied 

Guardian’s motion for judgment on the administrative 

record (Guardian’s Second MJAR), and found that its 

“claim that the [USTC] lacked a rational basis for finding 

its proposal unacceptable upon re[-]evaluaiton [was] 

without merit.” Guardian, 122 Fed. Cl. at 132. 

I. Pre-Award Protest

A. Standard of Review

This court reviews the Claims Court’s findings of fact 

for clear error, Bannum, Inc. v. United States, 404 F.3d 

1346, 1351 (Fed. Cir. 2005), and we review “[t]he [Claims 

Court’s] determination on the legal issue of the 

[G]overnment’s conduct, in a grant of judgment upon the 

administrative record, without deference,” id. at 1354. 

“This means that we apply the arbitrary and capricious 

standard [set forth in] § 706 [of the Administrative Procedure Act (‘APA’)] anew, conducting the same analysis as 

the [Claims Court].” Centech Grp., Inc. v. United States, 

554 F.3d 1029, 1037 (Fed. Cir. 2009) (internal quotation 

marks and citation omitted). Under this standard, we 

determine whether the agency’s actions were “arbitrary, 

capricious, an abuse of discretion, or otherwise not in 

accordance with the law.” 5 U.S.C. § 706(2)(A) (2012). 

B. Guardian’s Initial Flood Plain Report Did Not Satisfy 

the Solicitation’s Flood Plain Requirement

The gravamen of Guardian’s Pre-Award Protest is 

that, upon finding that certain aspects of MVS’s proposals 

were technically deficient, the Claims Court should have 

proscribed the USTC from instituting corrective action 

and ordered the USTC to award the contract to Guardian. 

See Guardian Br. 27 (“[T]he corrective-action process 

instituted by [the agency] was neither necessary nor 

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10 GUARDIAN MOVING & STORAGE CO. v. US

required. It . . . deprive[d] Guardian of the contract that 

its initial proposal earned. The [Claims Court] had ample 

power to correct that error.”). 

Guardian’s contention relies on two incorrect assumptions. First, Guardian’s argument assumes the solicitation cabins the agency’s authority to re[-]evaluate 

proposals and to correct prior evaluation errors. It cannot 

however, point to any language in the solicitation that 

does so. Contrary to Guardian’s contention, agencies are

“allowed the discretion to review their own conclusions if 

they conclude a mistake has been made, or if further 

inquiry appears appropriate, provided the re-evaluation 

conforms with the solicitation, including any modifications to the solicitation and the evaluation process is 

conducted in a manner fair to all offerors.” Glenn Def. 

Marine (Asia), PTE Ltd. v. United States, 105 Fed. Cl. 

541, 569 (2012); see also ManTech Telecomm. & Info. Sys. 

Corp. v .United States, 49 Fed. Cl. 57, 71 (2002) (“[I]n a 

negotiated procurement, [if] an offeror’s proposal does not 

comply with the solicitation’s requirements, an agency is 

not required to eliminate the awardee from the competition, but may permit it to correct its proposal” (internal 

quotation marks and citation omitted)). 

Second, Guardian’s argument relies on the assumption that its First East Coast Final Proposal Revision was 

technically acceptable. See Guardian Br. 20. Part I of the 

solicitation is titled “Request for Proposal Documents.” 

Under subsection (g) of Part I, offerors must submit a 

“[f]lood plain report from the Federal Emergency Management Agency, the United States Army Corps of Engineers[,] or [a] disinterested third party professional 

engineer/surveyor.” J.A. 400. Guardian sought to satisfy 

this requirement via submission of a form completed by 

CoreLogic Flood Services (“CoreLogic”), which, according 

to Guardian, is “the largest provider of Flood Zone Determinations to the mortgage industry.” Guardian Br. 8 n.1

(quotation marks and citation omitted). 

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The agency determined that “Guardian’s proposal was 

unacceptable because its flood plain report did not meet 

the solicitation’s requirements,” a determination the 

Claims Court upheld as “rational.” Guardian, 122 Fed. 

Cl. at 131. Specifically, the Claims Court determined 

“Guardian submitted a form . . . not prepared by one of the 

three entities specified in the solicitation.” Id. at 132

(emphasis added). 

Guardian contests the Claims Court’s determination, 

and argues that “CoreLogic . . . constitutes a disinterested 

third party professional engineer/surveyor” and, that the 

form completed by CoreLogic satisfied the flood plain 

report requirement of the solicitation. Guardian Br. 21 

(internal quotation marks omitted). Whether CoreLogic

is a disinterested third party professional engineer/surveyor raises a question of fact reviewed for clear 

error. See Bannum, 404 F.3d at 1354. 

The Claims Court did not clearly err in finding that 

Guardian’s flood plain report did not satisfy the relevant 

provision of the solicitation––in fact, it is compelled by the 

factual record. CoreLogic is “recognized on [the Federal 

Emergency Management Agency’s] website as a Flood 

Zone Determination Company.” See Guardian, 122 Fed. 

Cl. at 131 (emphasis added) (internal quotation marks 

and citation omitted). However, only “individuals” can be 

professional engineers/surveyors, and each state possesses a licensing board that establishes laws regarding how 

individuals can obtain engineering and surveying licensure. See Value of licensure, Nat’l Council of Exam’rs for 

Eng’g and Surveying, http://ncees.org/licensure/ (last 

visited Aug. 11, 2016) (asserting that “[p]rofessional 

licensure protects the public by enforcing standards that 

restrict practice to qualified individuals” (emphasis 

added)). ‘“[P]rofessional Engineer’ connotes and identifies 

a person with a high degree of learning, experience[,] and 

competence in mathematics, physics[,] and chemistry.” 

State ex rel. Wis. Registration Bd. of Architects & Prof’l 

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12 GUARDIAN MOVING & STORAGE CO. v. US

Eng’rs v. T.V. Eng’rs of Kenosha, 141 N.W.2d 235, 239 

(Wis. 1966); see also Anglin Eng’g Co. v. J.E. Barry Co.,

912 S.W.2d 633, 637 (Mo. Ct. App. 1995); N.J. Stat. Ann. § 

45:8–27 (West 1990) (“In order to safeguard life, health 

and property, and promote the public welfare, any person

practicing or offering to practice professional engineering 

or professional land surveying in this State shall hereafter be required to submit evidence that he is qualified so 

to practice and shall be licensed as hereinafter provided.” 

(emphasis added)). Moreover, although Guardian asserts 

that this was not a “material element” of the solicitation, 

see Oral Arg. at 8:08–8:10, 

http://oralarguments.cafc.uscourts.gov/default.aspx?fl=20

15-5132.mp3, Guardian acceded to its materiality when it 

subsequently submitted flood plain reports “signed by a 

disinterested third party professional land surveyor, Mr. 

Dennis Taflambas, [of] DKT Associates,” J.A. 1200. 

Guardian does not cite to contrary evidence to support 

its assertion that the flood plain reports were signed by a 

disinterested third party professional engineer/surveyor

employed by CoreLogic. See J.A. 444–47 (showing that 

Guardian’s initial flood plain report was signed by CoreLogic in its capacity as a company, as opposed to an 

individual professional engineer/surveyor). 

II. The USTC’s Corrective Action Moots Guardian’s First 

Post-Award Protest

The Claims Court’s conclusion that the agency’s decision to institute corrective action moots Guardian’s First 

Post-Award Protest is a legal one that we review de novo. 

See Glendale Fed. Bank, FSB v. United States, 239 F.3d 

1374, 1379 (Fed. Cir. 2001). 

By virtue of our decision regarding Guardian’s PreAward Protest, it necessarily follows that the Claims 

Court correctly determined that the corrective action 

moots Guardian’s First Post-Award Protest. Article III of 

the Constitution proscribes the power of federal courts to 

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“Cases” and “Controversies.” U.S. Const. art. I, § 2, cl. 1. 

“To invoke the jurisdiction of a federal court, a litigant 

must have suffered, or be threatened with, an actual 

injury traceable to the defendant and likely to be redressed by a favorable judicial decision.” Lewis v. Cont’l 

Bank Corp., 494 U.S. 472, 477 (1990) (citation omitted). 

The “case-or-controversy” requirement must be present 

“through all stages of federal judicial proceedings.” Id. 

Absent this requirement, as a general matter, a case 

becomes moot “[w]hen, during the course of litigation, it 

develops that the relief sought has been granted or that 

the questions originally in controversy between the parties are no longer at issue.” Chapman Law Firm Co. v. 

Greenleaf Constr. Co., 490 F.3d 934, 939 (Fed. Cir. 2007). 

Because Guardian has not shown that it should have 

been awarded the initial solicitation, the only other possible relief it could be entitled to is for “‘the [agency] to 

conduct a fair reevaluation of the existing proposals, and 

award a new contract, or contracts, under the terms and 

conditions of the [s]olicitation.’” Guardian, 122 Fed. Cl. at 

128 (quoting Guardian’s Compl. at 27). In response to its 

First Post-Award Protest, the agency, by virtue of its 

decision to institute corrective action, provided this relief. 

In instituting the corrective action, the agency provided 

both offerors the opportunity to submit final proposal 

revisions, see J.A. 947, reevaluated the revised proposals, 

and issued a new award, see J.A. 937. “[I]f an event 

occurs while a case is pending . . . that makes it impossible for the court to grant any effectual relief whatever . . . , the [case] must be dismissed.” Church of 

Scientology of Cal. v. United States, 506 U.S. 9, 12 (1992) 

(internal quotation marks and citation omitted). Here, 

the corrective action extinguished the existing controversy––i.e., whether MVS’s proposal was technically acceptable at the time of Guardian’s First Post-Award 

Protest. Accordingly, we affirm the Claims Court’s deCase: 15-5132 Document: 54-2 Page: 13 Filed: 08/22/2016
14 GUARDIAN MOVING & STORAGE CO. v. US

termination that the corrective action moots Guardian’s 

First Post-Award Protest. 

CONCLUSION

For the foregoing reasons, we affirm the final judgment of the United States Court of Federal Claims, denying Guardian’s motion for judgment on the administrative 

record filed in support of its Pre-Award Protest, and 

dismissing as moot Guardian’s First Post-Award Protest. 

AFFIRMED

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