By Michael Sams, Partner at Bowditch
The Massachusetts Appeals Court has affirmed judgment against a public awarding authority for acting in bad faith in refusing to award Revoli Construction a large public works contract. In Revoli, after a Superior Court trial, the Appeals Court affirmed Revoli’s jury verdict against the awarding authority for its bad faith refusal to award Revoli a public works project. The jury awarded, and the Appeals Court affirmed, Revoli’s $3 million dollar lost profit award, which, with interest, totaled $5.2 million at the time of award and now totals well over $6 million dollars. Revoli established at trial that it was the lowest responsible bidder and that the awarding authority acted in bad faith by rejecting its bid. Specifically, Revoli established that the awarding authority predetermined to reject Revoli before conducting any review of Revoli’s responsibility and by then seemingly rigging the review process against Revoli. There are few cases on bad faith in the public construction/public works contract award process and this case provides insight both on what bad faith means and how to win these cases.
As such, the Revoli decision is important for the public construction (including public works) industry. In the public contract awards process, favorites cannot be chosen. Bias is not allowed. Outcomes cannot be predetermined. Responsible bidders cannot be blacklisted. The playing field must be kept level. Low, responsible bidders must be awarded the contract. This decision affirms that when bad faith occurs, the contractor receives its lost profits, even though it did not actually perform.
In what often seems to be a judicial or agency related review process that weighs the review of awarding authority conduct greatly in the awarding authority’s favor, this is a reminder that bad faith exists in that process at times and that these cases can be won. Indeed, to assure the integrity of the public construction bidding processes, contractors should pick their battles wisely, but pursue cases where bad faith can be proven.
The following from the Appeals court is instructive on the issue of bad faith:
Bad faith is a 'general and somewhat indefinite term' that goes beyond 'bad judgment' or 'negligence,' suggesting 'a dishonest purpose or some moral obliquity,' a 'conscious doing of wrong,' or a 'breach of a known duty through some motive of interest or ill will.'" Buffalo-Water 1, LLC v. Fidelity Real Estate Co., LLC, 481 Mass. 13, 25-26 (2018), quoting Spiegel v. Beacon Participations, Inc., 297 Mass. 398, 416 (1937). "In the context of State action, [bad faith] includes the use of an otherwise lawful power for an improper purpose." Judge Rotenberg Educ. Ctr., Inc. v. Commissioner of the Dep't of Developmental Servs., 492 Mass. 772, 790 (2023). See Pheasant Ridge Assocs. Ltd. Partnership v. Burlington, 399 Mass. 771, 777-780 4915-3777-2971.1 (1987) (taking of land for public park pursuant to town meeting vote was invalid where manifest purpose behind taking was to block low or moderate income housing); Northeast Reclamation Corp. v. Wareham, 54 Mass. App. Ct. 564, 566 (2002) (jury's finding of bad faith supported by evidence of "town's pretextual rejection of the plaintiff's bid because of threats of litigation made by an ineligible bidder").
In the Revoli case, the evidence established for the jury that the awarding authority never had worked with Revoli yet decided before any review that it did not want Revoli on the project. It then seemingly rigged the review process to create a façade of propriety, but intended to meet the predetermined end result that Revoli was not responsible.
At the heart of what seemed to drive the awarding authority and its engineer in this direction was Revoli’s willingness on prior non-awarding authority projects to stand up for itself; namely, it’s history of pursuing its change order rights on prior public works projects (indeed, the awarding authority even cited Revoli as litigious early on in court pleadings). The awarding authority and its third-party engineer then concocted evaluations to be completed by awarding authorities on prior projects that were intended to reveal Revoli’s history of pursuing change order claims as a negative.
Revoli countered that it had a contractual, statutory and even constitutional right (to petition the government) to seek change orders and established that its change order history on the projects the awarding authority cited were not only in good faith but resulted in payments to Revoli approaching $2 million dollars. Moreover, the awarding authority was forced to admit that the pursuit of change orders alone is not bad faith, that one had to know about the substance of the change order requests to assess the good faith nature of them and that at the time it assessed Revoli as litigious, the awarding authority had no idea about the nature of Revoli’s change order history or that it had recovered close to $2 million on these claims.
Revoli established other pretextual issues the awarding authority created, as well. It demonstrated that although the awarding authority purported to be concerned about safety as a basis for rejecting Revoli, the bidder to whom it awarded the contract had a documented history of OSHA safety issues approximately ten times higher than Revoli’s. Revoli also demonstrated that the awarding authority ignored all of the positive reviews submitted by awarding authorities that previously worked with Revoli and that even seemingly positive reviews the awarding authority did not ignore, were treated negatively. The evidence also demonstrated that awarding authority personnel had not disclosed much of this to the City Manager at the time he approved Revoli’s rejection and award to the second low bidder.
Contractors cannot give up the fight. Awarding authorities are not benign boxes. They are institutions of people who, like anyone else, are constituted with pride and prejudice and who therefore, for any number of reasons, may act in bad faith. Certainly, that is not always the case but if contractors do not fight to maintain the level playing field in those instances where bad faith occurs, the lessons of the Ward Commission will be lost, along with the level playing field.