Case: NATHANIEL McKAY v. THE UNITED STATES
Abbreviation: McKay v. United States
Decision Date: 1892-06-27
Docket Number: No. 16816
Citation: 27 Ct. Cl. 422
Volume: 27
Reporter: United States Court of Claims Reports
Court: United States Court of Claims
Jurisdiction: United States
Parties: NATHANIEL McKAY v. THE UNITED STATES.
Judges: Peelle, J., was absent when this case was heard and took no part in the decision.
Pages: 422–438

Head Matter:
NATHANIEL McKAY v. THE UNITED STATES.
[No. 16816.
Decided June 27, 1892.]
On the Proofs.
McKay & Aldus contract to build the iron-clad Squando, and complete her hy the 4th November, 1863. In consequence of the defendants’ delays, alterations, changes of plan, and experiments the vessel is not completed until April 1, 1865. During the period of delay the price of labor, material, etc., increases. Subsequently McKay & Aldus fail, and the claimant buys this claim at the as-signee’s sale. In 1890 Congress passed an act for Ms relief, conferring jurisdiction, and prescribing the principles upon which the liability of the Government and the ascertainment of damages shall stand.
I. The purchaser of a claim against the Government at a sale in bankruptcy proceedings may maintain an action in his own name. It is well settled that the statute (Rev. Stat., § 3477) prohibiting the assignment of claims does not apply to transfer by operation of law.
H. The Act for the relief of McKay, 30th August, 1890 (26 Stat. L., p. 1247) restricts the issues to two questions, viz, whether there were alterations increasing the cost for which the contractors were not paid; whether there was delay, not the fault of the contractors, which enhanced the cost.
III. No damages can be allowed for the use of a shipyard and plant during a period of delay in an action ,under a statute which limits the recovery to “the additional cost which was necessarily incurred hy the contractors.”
The Reporters’ statement of tbe case:
The following are the facts of this case as found by the court:
I. The Secretary of the Navy, on the 4th of July, 1861, in his message to Congress, recommended the appointment of a proper and competent board to inquire into the subject of floating batteries or iron-clad steamers and make a report. Under the act of August 3,1861, a board was appointed. An advertisement was published August 7,1861, inviting the submission of designs. Seventeen proposals were received, all of which were rejected except three. The recommendations of the board were approved, and three contracts were entered into. The New Ironsides, built by Merrick & Sons, was an ironclad broadside frigate, carrying 11-inch guns. The G-alena, built by C. S. Bushnell, was a small corvette, plated with iron about 3 feet thick. The-Monitor, built by John Ericsson, was of a novel design, and characterized by the revolving turret and low free board. Nothing appears to have been done in the way of expending the money appropriated by the act of February 12,1862, until the conflict between the Monitor and Mer-rimac, on the 9th of March, 1862, demonstrated the utility of Mr. Ericsson’s invention. The Department, as soon as the engagement was over, gave to Mr. Ericsson an order for six more monitors, one of which was called the Passaic. The original monitor was built in one hundred days. The vessels of the Passaic class were built in six months. In these cases Capt. Ericsson had made the detailed drawings before taking the contracts. In the fall of 1862 the Navy Department entered into contracts for the construction of nine vessels known as river and harbor monitors, which were to be modifications of the Passaic class. During the year 1862 the necessity for some light-draft, armored vessels for operation on our Western rivers and the shallow bays and sounds upon the Atlantic and Gulf coasts became so urgent, that the Navy Department determined to provide some for that purpose, if possible. Application was made to Mr. John Ericsson, the inventor of the original monitor, for a plan of a light-draft monitor, to carry one turret, and to have a draft of from 6 to 6J feet. On the 9th of October Mr. Ericsson submitted to the Department a plan, which was not intended as a working plan, yet it defined the general principle and the mode of building the vessel, engines, boilers, and propeller.
II. The Navy Department issued the following advertisement:
“LIGHT-DBAET VESSELS EOB, BIVEBS AND BAYS.
“Navy Depabtment, February 10,1863.
“The Navy Department will receive proposals for the construction and completion in every respect (except guns, ordnance stores, fuel, provisions, and nautical instruments) of armored steamers of about seven hundred tons, of wood and iron combined, having a single revolving turret.
“On personal application at the Navy Department at Washington, or to Bear-Admiral Gregory, No. 413 Broadway, New York, parties intending to offer can examine the plans and specifications, which will be furnished to the eontraetors by the Department.
“No offer will be considered unless -from parties who are prepared to execute work of this kind — having suitable shoos and tools — of which, if not known to the Department, they must present evidence with their bid.
“The act of Congress approved July 17,1860, prohibits the transfer of any contract or order or interest therein.
“The bidders will state the price and the time within which they will agree to complete the vessel or vessels, and the bid must be accompanied by the guaranty required by law — that if awarded to them they will promptly execute the contract.
“Propositions will be received until the 24th day of February, and they must be indorsed “Proposals for vessels for river defense,” to distinguish them from other business letters.”
III. From the bids thus received a general average price was established of a little less than $400,000 each, and during the months of March, April, and May, 1863, contracts were made for the building of twenty light-draft monitors upon the same plan. Mr. Stimers was placed in charge of their construction, and the contractors were directed to look to him for instructions. He was ordered to consult with Mr. Ericsson in preparing his plans and drawings for contractors, and, at his own request, was authorized to establish an office and employ assistants in New York City, where he could have facilities for frequent and easy consultation with Mr. Ericsson.
IY. Nathaniel McKay, representing the firm of McKay & Aldus, visited this office, in New York City, and was there shown a set of plans and specifications and weights for light-draft monitors submitted to bidders. The said firm of McKay & Aldus made a bid, and on the 4th of May, 1863, the contract set forth in the petition as Exhibit A was entered into between McKay & Aldus and the United States. It was signed by the contractors at Boston, it having been received by mail, but no plans and specifications were transmitted there'with, and on the 5th and the 25th of May, 1863, McKay & Aldus wrote to the chief of the Bureau and to Admiral Gregory for plans and specifications. On the execution of the agreement the contractors set to work to prepare the sheds in which to build the hull and to make such other preparations for carrying out the agreement as their information permitted.
Y. Ericsson not having time to make all the calculations and detailed working plans, that work was confided to Chief Engineer AlbanC. Stimers, of theTJnitedStatesNavy. Stimers, who had been engaged with Mr. Ericsson in the construction of the first monitor, bad gone in tliat vessel in tbe capacity of engineer from New York to Hampton Boads, bad there assisted in tbe contest between tbe Monitor and Merrimac, and since that time bad been engaged more or less, by order of tbe Navy Department, in superintending tbe construction of tbe other monitors contracted for by tbe Department. He witnessed tbe assault upon Fort Sumter by seven monitors in tbe spring of 1863, and on bis return to Washington bad a consultation at tbe Navy Department. Tbe question discussed by the officers was, whether it would be better to build tbe vessels in strict accordance with tbe letter of tbe contracts which were being given out without any change whatever, or to take advantage of experience from time to time and make improvements as they went along, although such course would delay tbe completion and add to tbe cost of tbe vessels. It was determined to make changes as experience suggested. McKay & Aldus were not furnished with a general plan identical with those on which the contract was based, but with general plan and details thereof, as well as specifications, embodying changes from, and additions to, the originals. Changes and additional work were ordered from time to time during the construction of the vessel, or required by other general plans dated October 25,1863, and April 26, 1864, and by altered specifications of August 7, 1863, and those of October 27, 1863.
YI. The Department commenced forwarding to the contractors orders for, and drawings of, changes before the keel was laid, and those changes, which in the aggregate affected all parts of the vessel and made in the end different vessels, were continued, and the drawings therefor furnished for nearly a year and a half after the time specified in the contract for their completion had elapsed, and from the 23d of June, 1864, for about' the period of three months work was suspended by the orders of the Navy Department, which had then in contemplation some general changes in its construction which required time to perfect. During this time the contractors were under expenses ; they dared not discharge their men for fear of inability to supply their places.
YII. But for the delay of the Government in furnishing plans and specifications the Squando would have been substantially completed within the time specified in the contract; the con tractors bad tbe means and tbe ability to do so. Tbe losses sustained by reason of tbe delays of tbe Government eould not bave been prevented by any reasonable prudence or foresight on their part, tbe labor could not be anticipated, nor could they know, from tbe changes being made, tbe kind, quantity, and quality of the material necessary to be used in complying with tbe changes.
YI1I. In May, 1864, tbe first of these vessels, tbe Chimo, was launched at Boston. She was found to be defective. All these vessels having been designed upon tbe same plan, further work was at once suspended upon tbein. A commission was appointed June, 1864, to examine them and to recommend what should be done with them to remedy their defects. Tbe commission reported on tbe 9th of July, 1864, recommending that five of tbe vessels should be changed into torpedo boats, in order to lighten their draft, and that tbe other fifteen should be changed by building up their sides 22 inches, increasing their draft, but rendering them more serviceable as monitors. That recommendation was adopted by the Department, and the proposed changes were carried out. The allowance for the change of 22 inches is shown in finding ix.
IX. When it was found that these vessels were failures, as originally designed and constructed, they were placed in charge of other officers, and altered as recommended by the commission appointed to examine them. The vessel was completed April 4,1865; the time required in its construction was 1 wenty-three months. For four alterations the compensation was fixed in advance by the contractors and the Government, as provided in the contract, to wit:
For bulkheads, authorized. September 29,1863. $1,547.52
Alteration m pilot-house cover, September 21,1863 (p. 99). 1,000.00
Alteration of port stoppers, authorized October2,1863. 300.00
2,847.52
Raising the vessel 22 inches. 90,000.00
X. The amount received for the changes and alterations by the contractors over and above the contract price was $194,-535.70. These alterations, when made, complied with the specifications of the same as furnished by the Government. The value and cost of the changes, additions, and alterations made by defendants to said vessel not embraced in the original agreement, and not embraced in the special allowance to said contractors and not paid for in tbe payments heretofore made to contractors, is tbe sum of $41,375. Tbe cost to said contractors because of tbe enhanced price of labor and material which occurred during tbe prolonged term for completing tbe work is tbe sum of $60,462; said prolonged term resulted from tbe delays of tbe defendants. Tbe exercise of ordinary prudence and diligence on tbe part of contractors would not have avoided said enhanced price of labor and material. Tbe clerk hire and watchmen employed by said contractors during tbe time prolonged by said defendants as aforesaid is tbe sum of $13,320. Saidamountisnotincluded in tbe cost of additions and alterations.
XI. Tbe firm of McKay & Aldus went into bankruptcy in tbe year 1868, tbe assignees in bankruptcy being Edward Page, J. A. Kichards, and Dwight Foster, and on tbe 29th day of July, 1871, at a public sale of tbe assets of said firm, tbe claimant purchased tbe claim against tbe defendants, and in pursuance of such sale an assignment was made to claimant, as shown in finding xvi.
XII. At tbe time for making tbe contract for tbe construction of tbe said vessel or battery tbe contractors were informed that tbe working drawings were not yet elaborated in in detail either for tbe vessel or its machinery.
XIII. When tbe contract was made tbe contractors bad not their yard fully prepared and no shipbuilders in their employ, and during tbe twenty-two days between tbe signing of tbe contract and tbe receipt of tbe first working drawings tbe contractors were engaged in getting some portions of their yard in order.
XIV. That tbe contract price of $395,000 was paid tbe contractors in full. In addition thereto there has heretofore been paid'to them by tbe Government tbe sum of $194,555.70 for extra work upon tbe said vessel.
XV. On tbe day of tbe date of said receipt tbe sum therein specified was paid claimant upon tbe account as therein stated.
“New Yoek, July 13th, 1865.
“JJ, S. Na/oy Department to MeKay Aldus, Dr.
“ On account of work done to the lighfeclraft monitor Squando, which is extrato the contract dated May 4th, 1863, being the full and final payment on all extras and in full for all claims and demands for that work. $28,288.18
“ Cr.
“By machinery and materials received from Chimo for use in the construction of the Squando. Bypartsof two gun-carriages received from Modoc. By fitting magazines in Boston navy-yard. By equipments furnished by Boston navy-yard_ $14,220.09 182.40 153.92 304. 82
$14,861.23
Balance due 13,426.95
“ I certify that the materials and labor which are extra to the contract dated May 4th, 1863, put upon the vessel Squando, built by Messrs. McKay & Aldus, amount in value to $101,-135-nro" (certificates having been previously given for $72,847f-0a0, and that they are according to directions which have been given them from time to time.
“Wi. W. W. Wood,
“ General Inspector of Steam Machinery for the Wavy.
“Approved.
“F. EL Gregory,
“ Bear-Admiral, Superintending.
“Received of R. H. Clark, paymaster, thirteen thousand four hundred twenty-six and -fife dollars, in full for the above bill.
“McKay & Aldus.
“Navy Department,
“Bureau oe Construction, &c.,
“July 22d, 1865.
“ ($13,426.95.)
“Approved, in triplicate, for thirteen thousand four hundred and twenty-six dollars and ninety-five cents, payable by the navy agent at Boston.
John Lenthall,
“ Chf of Bureau.
The claimants objected to the final balance as not sufficient at the time they gave the receipt.
XY1. — Assignment referred to in finding xi:
“Whereas the undersigned assignees in bankruptcy of the estate of Nathaniel McKay and Ceorge Aldus, bankrupts, have sold by public auction, by license of court, duly obtained upon their petition therefor, certain securities, debts, and uncollected claims belonging to the estate of said bankrupts, whereof a schedule appears in the notice of said sale heretofore annexed, to wit:
“BY SAMUEL HATCH & CO.
“Assignees sale of the booh aceotmts a/nd other securities belonging to the bankrupt estate of Messrs. McKay & Aldus.
“On Saturday, July 29,1871} at 12 o’clock m., at tbe office of Samuel Hatch & Co., auctioneers, No. 3 Morton Place.
“Will be sold by public auction, by license of court, tbe following securities, debts, and uncollected claims belonging to tbe bankrupt estate of Nathaniel McKay and George Aldus, bankrupts, to wit: A'judgment recovered June 5th, 1871, in tbe United States circuit court for the district of Maine, by the assignees of said estate against William Hill for $3,350.15, damages and $81.69 costs in á suit since removed by writ of error to the Supreme Court of the United States and now pending therein
“ 1,500 shares in the Fall Eiver Gold Mining Association.
“ One-seventh interest in the patent right and business of the Drummond Gas Tip Co.
“ 5 shares in the capital stock of the New York and La Plata Steamship Co.
“Also, overdue promissory notes from the individuals and for the amounts following:
W. L. Hanscordb. $1,260.00
Samuel Churchman .... 1,500.00
E. E. Curtis. 200.00
J. H. Arnold. 150.00
George F. Emery. 28.00
C. C. Spaulding. 42.00
Dexter A Tompkins. 20.00
B. M. Johnson. 10. 00
Agnes Gannett.,... 300.00
W. W. & J. E. Bennett... 44.44
G. H. Williams. 81.75
Susan Langdon. 100. 00
William Curry...... 30.00
“Also, an unadjusted claim against the United States Government for $142,793.76, for extra compensation and damages growing out of a contract for building the light-draft monitor vessel Squando.
“Also, all other unsettled and uncollected claims and ac- • counts standing on the books of said bankrupts.
“Dwight Foster,
“ Edward Page,
“ J. Avery Richards,
“Assignees Estate McKay & Aldus.
July 19.
“And whereas Nathaniel McKay, of-, bought at said auction sale, he being the highest and best bidder therefor, thefoll owing-described securities, debts, and uncollected claims belonging to said bankrupt estate, to wit:
1,500 shares in. the Fall Kiver Gold Mining Association for.$0.10
One-seventh interest in the patent right and business of the Drum-mond Gas Tip Company. 20.00
5 shares in the capital stock of the New York and La Plata Steamship Co.01
Also promissory notes from the individuals and for the amounts following :
W. L. Hanscomb. Samuel Churchman.... E. F. Curtis.. Geo. F. Emery. C. C. Spaulding. Dexter A. Tompkins_ B. M. Johnson. Agnes Gannett. W. W. &. J. F. Bennett G. H. Williams.. Susan Langdon. William Curry. $1.260.00 1,500.00 200. 00 28.001 42. 00 20.00 10.00 300.00 44.44 81.75 100.00 for > for 30.00 $60.00 1.25 1.00 10.12
Also an unadjusted claim against the United States Government for $142,793.76. for extra compensation and damages growing out of a contract for building the light-draft monitor vessel Squando. 1,250.00
Also all other unsettled and uncollected claims and accounts standing on the books of said bankrupt for and not specifically described in said notice of sale... 250.00
$1,592.48
“Now, therefore, in consideration of said sum of $1,592.48 (being the aggregate sum of the several amounts bid by him, as appears by the foregoing schedule), this day paid to the undersigned by the said Nathaniel McKay, we, the undersigned assignees, as aforesaid, of the bankrupt estate of said McKay & Aldus, hereby sell and assign to the said Nathaniel McKay all our right and interest in and unto the aforesaid securities, debts, and uncollected claims so bid off by him at said auction sale.”
Mr. Silas W. Pettit, Mr. George S. Boutwell, and Mr. John S. Blair for the claimant.
Mr. James S. Nixon (with whom was Mr. Assistmt Attorney General Cotton) for the claimants.

Opinion:
Weldon, J.,
delivered the opinion of the court:
The claimant alleges that he and G-eorge Aldus, as copart-ners, doing business as McKay & Aldus, on the 4th day of May, 1863, entered into a contract with the defendants for the construction of an iron-clad steam battery of wood and iron combined, afterwards known as tbe Squando. Tbat at tbe time of making said contract tbey bad all tbe facilities for completing tbe same witbin six months (tbe time in wbicb by tbe terms of tbe contract tbey were to complete tbe same), and would bave done so if it bad not been for tbe delays occasioned by tbe acts of tbe Government; tbat it did not furnish drawings promptly nor in systematic order; tbat tbe officers in charge directed numerous alterations and changes from tbe original plan and at times suspended tbe work entirely; tbat such changes and failures on tbe part of tbe defendants consumed time and interfered with tbe progress of tbe work; tbat in consequence of such delays tbe completion of the work was delayed until tbe 5th of April, 1865.
Tbat tbe delays and changes resulted in increasing tbe expense of tbe contractors in building said vessel in tbe sum of 1414,696.44; tbat during tbe prolonged period occasioned by tbe acts of tbe defendants tbe price of labor and material advanced, and tbat no exercise of diligence and care on tbe part of contractors could have averted such increased price; tbat in doing extra work on said vessel contractors followed tbe drawings and specifications furnished by tbe officers of tbe Government; that in addition to tbe contract price tbe defendants bave paid tbe sum of $194,555.70 for extra work upon said ship, but tbat there is still due claimant tbe sum of $225,000 for extra work and damages because of tbe failures and negligence of tbe officers in charge of tbe construction of tbe work.
In an amended petition tbe claimant alleges tbat no person other than himself is interested in this claim; tbat no assignment has been made of it except tbat in tbe year 1868 be and tbe said George Aldus went into bankruptcy; tbat by operation of law tbe claim vested in tbe assignees in bankruptcy and was by them assigned to claimant for a valuable consideration to carry out a sale of tbe claim against tbe United States; tbat tbe assignees in bankruptcy, George Aldus and claimant, bave been loyal citizens of tbe United States.
It is alleged tbat certain specific alterations were made during tbe progress of tbe work, and tbat for these alterations tbe claimant and defendants agreed on tbe price, amounting to the sum of $92,547.22, and tbat amount has been paid. It is also conceded tbat for other alterations, increasing tbe amount of work and material, tbe claimant was allowed and paid tbe sum of $101,135.70; but it is alleged that other alterations .were made and work done for which no allowance or payment has been made.
The issue in the case involves a claim for extra work and damages consequent upon the alleged delays and failures of the officers of the defendants to furnish plans and specifications according to the requirements of tbe contract. The suit is predicated upon the provisions of the act of August 30,1890, which is as follows:
"AN ACT for the relief of Nathaniel McKay and the executors of Donald McKay.
"Be it enacted by the Senate and Souse of Representatives of the United States of America in Congress assembled, That the claims of Nathaniel McKay and the executors of Donald McKay for further compensation for the construction of the iron-clad monitors Squando and Nauset and the side-wheel steamer Ashuelot may be submitted by said claimants within six months after the passage of this act to the Court of Claims, under and in compliance with the rules and regulations of said, court; and said court shall have jurisdiction to hear and determine and render judgment upon the same: Provided, however, That the investigation of said claim shall be made upon the following basis: The said court shall ascertain the additional cost which was necessarily incurred by the contractors for building the light-draught monitors Squando and Nauset' and the side-wheel steamer Ashuelot in the completion of the same by reason of any changes or alterations in the plans and specifications required and delays in the prosecution of the work: Provided, That such additional cost in completing the same, and such changes or alterations in the plans and specifications required and delays in the prosecution of the work were occasioned by the Government of the United States; but no allowance for any advance in the price of labor or material shall be considered unless such advance occurred during the prolonged term for completing the work rendered necessary by delay resulting from the action of the Government aforesaid, and then only when such advance could not have been avoided by the exercise- of ordinary prudence and diligence on the part of the contractors: And provided further, That the compensation fixed by the contractors and the Government for specific alterations in advance of such alterations shall be conclusive as to the compensation to be made therefor: Provided, That such alterations, when made, complied with the specifications of the same as furnished by the Government aforesaid: And provided further, That all moneys paid to said contractors by the Government over and above the original contract price for building said vessel shall be deducted from any amounts allowed by said court by reason of the matters hereinbefore stated: And provided further, That if any such changes caused less work and expense to the contractors than the original plan and specifications, a corresponding deduction shall be made from the contract price, and the amount thereof be deducted from any allowance which may be made by said court to said claimants.
"Approved August 30,1890."
This suit is not prosecuted by claimant as surviving partner of McKay & Aldus, but in his individual right, founded upon a deed of assignment of the assignees in bankruptcy of McKay & Aldus, who were declared bankrupts in the year 1868. At a sale of a portion of the assets of the firm the plaintiff, among other assets, purchased the claim against the United States, as shown by the deed of assignment set forth in the findings. It is contended that if a judgment is recovered it can only be for one-half of the amount to which the firm of McKay & Aldus would be entitled to on the facts and law of the case. The statute of our jurisdiction does not limit the right of recovery as contended for by defendants. If the plaintiff was remitted to the legal rights originally inherent in the firm of McKay & Aldus, he would be compelled to sue as surviving partner of McKay & Aldus; but predicating his right and title on the deed of assignment to him, by the assignees of the firm of McKay & Aldus under the statute giving the court jurisdiction, and aside from any and all questions of the rights of the assignees under the bankrupt act and the statutes of the United States, we determine that the suit is properly brought, and the claimant is entitled to have his claim heard upon its legal merits. The right of an assignee to maintain a suit in his own name is sustained by the following decisions.
It was held in the ease of Ervin v. The United States (97 U. S. R., 392): "The act of Congress of February 26,1853, to prevent frauds upon the Treasury of the United States, which was the subject of consideration in the Gillis Case, applies only to voluntary assignments of demands against the Government. It does not embrace cases where there has been a transfer by operation of law. The passage of claims to heirs and devisees or assignees in bankruptcy is not within the evils at which the statute aimed; nor does the construction given by this court deny to such parties a standing in the Court of Claims."
In the case of Goodman v. Niblack (102 U. S. R., 556), it was held that section 3477, Kevised Statutes, did not prevent a claim from passing to an assignee under a general assignment for the benefit of creditors. The court said: "In what respect does the voluntary assignment for the benefit of creditors — which is made by an insolvent debtor of all his effects, which must, if it be honest, include a claim against the Government — differ from an assignment which is made in bankruptcy." (United States ex rel. Redford v. Windom, 137 U. S. R., 636.)
The object of the statute was to give claimant individually a standing in this court, so as to enable him to investigate the full claim, as it originally existed in the ownership of McKay & Aldus. His rights are to be determined upon the limitations and qualifications set forth in the several provisos to that part of the law which confers jurisdiction on the court " to hear and determine and render judgment on the same." The claim has been pending in some form or other before the different departments of the Government continuously, until by the enactment of the law of 3.890 it was sent by Congress to be judicially adjudicated by a proper form of action in this court.
On the 10th day of February, 1863, the Navy Department published an advertisement under which the firm of McKay & Aldus made a bid, and from which originated the contract of May 4,1863, in and by the terms of which they agreed to build the Squando for the sum of $395,000, the work to be finished within six months from the date of the agreement. Among other provisions it is stipulated:
" It is further agreed that the parties of the second part shall have the privilege of making alterations and additions to the plans and specifications at any time during the progress of the work as they may deem necessary and proper, and if said alterations and additions shall cause extra expense to the parties of the first part they will pay for the same at fair and reasonable rates, and should such changes cause less work and expense to the parties of the first part, a corresponding reduction to be made from the contract price, and in each case the cost of the alterations to be determined when the changes are directed to be made."
It does not appear, that the cost of the changes as to the items in controversy was determined at the time when they were directed to be made. Changes to the amount of $92,847.52 were made and the prices agreed upon, but such changes are not in controversy in this proceeding. That provision of the contract seems to have been disregarded to the extent of more than $100,000, which has been paid, and as to the alleged changes and alterations, for which this suit was brought.
The particular grievance complained of upon the part of the contractors was, the alleged delay of the officers in charge in furnishing drawings and plans, with sufficient facility to enable the parties to prosecute the work with diligence and complete the same within the time specified by the agreement. The work was not completed until April, 1865, nearly two years after the date of the agreement. The first delay, as shown by the findings, arose from the failure of the defendants to furnish plans and specifications until about the 26th of May, 1863, which prevented the contractors from entering upon the performance of the contract at as early a period as they might have done. At the time the contract was made the building of the class of war vessels to which the Squando belonged was to some extent an experiment, and the plan of a vessel was necessarily subject to the changes which might from time to time be suggested by the rapidly occurring developments of war.
It was determined by the officers in charge to take advantage of experience, and from time to time make such improvements and alterations as were deemed expedient, although it might involve delay and require a departure from the terms of the contracts then existing. For the purpose of adopting that policy to its fullest extent, the provision as to changes and alterations was evidently inserted in the agreement which we have quoted.
Having considered and determined, the right of the plaintiff to sue in his individual name because of the assignment to him under the sale by the assignees in bankruptcy of McKay & Aldus, his rights are to be measured by the application of the provisions of the law of our jurisdiction to the facts found from the evidence and stated in the findings of the court. The contract required McKay & Aldus to finish the vessel in six months from the time of making the contract, which expired on the 4th of November, 1863. The vessel was not completed un til April, 1865, which, was nearly seventeen months in excess of the time limited by the terms of the agreement. This was an extraordinary delay, considering the fact that the vessel was intended for use in the war which was then flagrant.
At the time the contract was made the contractors were the owners of a shipyard in or near East Boston, with facilities to enter upon the performance of the agreement at once, and within a reasonable time were possessed of the means and facilities to prosecute to a faithful performance the entire contract within the time limited by the terms of the agreement. It does not appear that any part of the delay was occasioned by the want of diligence upon the part of the contractors, nor that any complaint was made by the officers in charge of the construction that the contractors were not sufficiently diligent in the performance of the work. As has been stated, the defendants were experimenting in the construction of war vessels, and the result of that was thatthe Squando when built differed very materially from its construction as intended by the original plan.
During the period of its construction the contractors were continually complaining to the officers in charge because of the delay, and while so delayed exercised reasonable diligence to prevent increased cost in the value of material and labor. Under the statute the court is to ascertain the additional cost, if any, which was necessarily incurred by the contractors in building the light draft Squando, in the completion of the same, by reason of any changes or alterations in the plans and specifications required and delays in the prosecution of the work, subject to certain rules and limitations prescribed by the statute.
The issue by the terms of the statute is circumscribed to two questions: First, whether there was any alteration made in the construction and material of the Squando increasing .the cost of the work for which the contractors have not been paid; and, second, whether there was any delay not the fault of the contractors which enhanced the cost of the material and labor. In accordance with the terms of the agreement, the parties settled by express stipulation the cost and value of certain additions and alterations, to wit: $90,000 for raising the vessel 22 inches, the sum of $1,547.52 for bulkhead in quarters, $1,000 for pilot house, and $300 for alteration in port stopper, making in the aggregate the sum of $92,847.52.
In addition to the sum allowed and paid fox these alterations, the contractors have been paid for other alterations and additions to the extent of $101,530.70, which did not come within the original contract, nor within the additions and alterations specifically stipulated for in the item of $92,847.52. The last payment, which was made by the defendants after the completion of the work and acceptance of the vessel, was on the 13th day of July, 1865, at which time and for which payment the contractors executed a receipt, as shown in the findings. Whatever may have been the legal effect of that receipt, the purpose and effect of the statute are to open the account between the parties, and to give to the claimant whatever may be due him, (subject to the limitations of the law) for the reasonable value of additions and alterations not heretofore paid for, and which were additional to the original contract and damages for the delays.
The findings show that in consequence of the delay occasioned by the failure of the defendants to furnish specifications, plans, and drawings at proper times the increased cost of material and labor occurring during the prolonged term for the completion of the work was in the aggregate the sum of $60,462 upon the materials and labor necessary to perform the original contract; that the additional work performed and material furnished beyond the requirements of the original contract not allowed by the defendants in the payments made is the sum of $41,375; that the clerk hire employed by the defendants for the time in which the claimant was delayed by the failure of the defendants and the additional watchmen necessarily employed by claimant in consequence of the prolonged period in consequence of the failures of the defendants is the sum of $13,320. The loss to the contractors in consequence of the increased price of labor and material was much larger than the sum allowed, but that loss does not come within the limit of the statute, and is disallowed.
As to the additional item for the use and rent of the plant of the claimant for the period prolonged by the delays incident to the failure of the defendants we make no allowance. The right to recover under the terms of the law is limited to the additional cost which was necessarily incurred by the contractors. If the contractors did anything beyond the requirements of the contract for which they have not been paid, the reasonable value of sucb work is a cost incurred within the meaning of the law, and then by the proviso an allowance is to be made for any increase in cost of labor and material which may have occurred during the prolonged period which could not be avoided by the exercise of ordinary prudence and diligence on the part of the contractors. It is impossible from the general nature of the testimony to reach a satisfactory result as to the reasonable value of the plant; but holding as we do that such a claim is not within the act of Congress, it is not material.
Aggregating the sums for which an allowance is made in the conclusion of law a judgment will be entered for the claimant in the sum of 8115,157.
Peelle, J., was absent when this case was heard and took no part in the decision.