Opinion ID: 1127890
Heading Depth: 1
Heading Rank: 2

Heading: Propriety of Granting the Writ

Text: After trial, the record of which is contained in five volumes and reflects the transactions between the Mental Health Board and Fullilove over a span of more than two years, the trial court made the following findings, amply supported by the evidence: Fullilove Excavating Company, Inc., sometimes hereinafter referred to as Fullilove, entered into a contract for site excavation on the Birmingham Developmental Center for the Alabama Mental Health Board, sometimes hereinafter referred to as the Board. The contract, dated January 14, 1974, was for the sum of $1,439,124.00 which, when added to a change order dated August 3, 1976, amounted to a total approved contract price of $1,498,044.66. The contract documents, plans, specifications, as well as the overall on-site supervision, was prepared and controlled by the Board and/or its duly authorized representatives. Fullilove submitted requests for periodic payments for work performed under the contract which were processed through regular channels of authorities for approval. In November, 1974, Fullilove, as required by the contract documents, made request upon the Board's on-site engineer, to examine and determine the disposition of certain materials to be excavated. An employee of the Board determined that the material in question was `garbage' and, therefore, `unsuitable materials excavation' under the detailed classification of excavation as shown by the contract documents. Authorization and instructions were given to Fullilove to `excavate and haul away' the unsuitable materials, with notice of such action being sent to the Board. Fullilove removed 8,128 cubic yards of `garbage' which is undisputed. A request for periodic payment was submitted in July, 1975, by Fullilove which was duly approved in due course and payment made for same. Included as a part of this request was a sum for $24,384.00 for `unsuitable material excavation.' The Board, thereafter, approved, in due course, each and every request for payment submitted by Fullilove, including the request for final payment. Each such request, as required by the Board, was accompanied by a summary of work completed for each and every item of work for which a unit price was applicable under the contract. Fullilove's request for final payment was approved in due course for the sum of $143,720.67. Thereafter, a warrant was issued for the sum of $128,306.91, which represented a decrease of $15,413.76 from Fullilove's approved final payment. Hardin and Adams sought to justify reduction in the amount of final payment to Fullilove on the basis that previous payment to it for excavating unsuitable material was erroneous because all material excavated under the terms of the contract was to be paid for at the lower unit price paid for excavating unclassified material. This position was based upon a review and interpretation of the contract after Fullilove's final payment request had been approved, including the $15,413.17 in dispute in this action. The reduction was effected by amending a change order under the contract and Fullilove's final estimate (payment request). We note that the provisions of the contract had previously been interpreted otherwise as reflected by the evidence and found by the trial court. Payment had been made to Fullilove on the basis of a prior interpretation that excavation of the material was properly paid for as unsuitable material. We would agree with the interpretation of the contract that Hardin and Adams originally placed upon it. Adams and Hardin contend that the trial court was in error in issuing the writ of mandamus because in interpreting the contract as they did they were exercising discretion, which they had a right to do, therefore Fullilove showed no clear right to issuance of the writ. Fullilove contends that it performed all required of it under an executed contract, at a price fixed under the contract, and its performance was approved accordingly; therefore, it had a clear right to the writ of mandamus to compel Hardin and Adams to certify to the Comptroller for payment to it the amount withheld from final payment. The trial court heard this case without a jury and made its findings of fact and conclusions of law. No citation of authority is needed, other than Rule 52, ARCP, to remind one of the favorable presumption given to those findings and the judgment. Based upon its findings, the trial court interpreted the contract as calling for payment of the disputed sum and concluded the writ should issue because of a clear right to it to prevent a failure of justice and the absence of any other remedy, or to prevent abuse of discretion, or to correct an arbitrary action outside the exercise of a reasonable discretion. The judgment in this case could be affirmed on the basis of any of these theories. However, we think the most sound basis to be that the writ was properly issued because there was a clear right to it so as to prevent a failure of justice. Numerous authorities are cited by the litigants, pro and con, as to the propriety of issuing the writ of mandamus in this case. Of these authorities we find the most apt, by analogy, to be State Board of Administration v. Roquemore, 218 Ala. 120, 117 So. 757 (1928). As previously stated, the evidence showed an executed contract; the trial court found there was a stated price in it to be paid for the work performed; the work was performed; and performance and payment were approved. The court, in Roquemore stated:    The petition shows an executed contract of purchase and sale, for a definite price, and therefore a clear legal duty on the part of the highway department, through its executive head, presumptively, to audit and approve petitioner's claim, in order that it may be paid out of the appropriate fund on warrant drawn by the state auditor in accordance with the usual practice. It is of course true that discretionary action or choice of action on the part of public officials cannot ordinarily be coerced by mandamus. [citations omitted] But, in cases like this, the board's discretion is exhausted when it gives an order for materials and accepts delivery of them in due season; or, if there is receipt without express acceptance, when the materials are accepted by their actual use. Of course it always remains for the responsible officer to ascertain the existence of the facts upon which his obligation to perform the duty depends, but that is not the kind of judgment or discretion which would avert the writ of mandamus. [citations omitted] If the rule were otherwise, there would be little, if any field for the operation of the writ. In this case the discretion of Hardin and Adams was exhausted, at the very latest, when approval was given Fullilove's final payment request if not when the July 1975 periodic payment request was approved and paid. There was no right to amend the final payment request and withhold payment of the $15,413.76 sum. There was no error in the entry of final judgment in this cause issuing the writ of mandamus. Mandamus was the appropriate remedy: Mandamus is an extraordinary legal remedy, grantable only when petitioner shows a clear, specific legal right for the enforcement of which there is no other adequate remedy.    All American Life and Casualty Co. v. Moore, 286 Ala. 492, 242 So.2d 661 (1970): AFFIRMED. TORBERT, C. J., and BLOODWORTH, FAULKNER and ALMON, JJ., concur.