18 Mass. App. Ct. 621 | Mass. App. Ct. | 1984
Pursuant to G. L. c. 30, § 39M, as amended by St. 1977, c. 970, § 1, the Boston Water and Sewer Commission (commission) in May, 1983, invited bids for the construction of two miles of underground sewer lines. The bid documents provided that the commission reserved the right to reject any bid if deemed to be in its best interest and any bid which might be “unbalanced.”
The Department of Labor and Industries (DOLI) held an “informal” hearing on the protest. It found that the bid was not unbalanced, as there was no evidence that Longo had inflated any other unit price to recoup monies lost from the penny unit price. It concluded, however, that the penny bid did not accurately reflect the total cost of the item and, as such, was unrealistic, unresponsive and violative of DOLI policy. It instructed the commission to reject Longo’s bid. The commission ignored the instruction and voted to recommend that the contract be awarded to Longo.
As a result of the action of the commission, DOLI and Schia-vone filed a complaint for declaratory relief in the Superior Court seeking an injunction against the awarding of the contract to Longo. The complaint also sought a declaration that Longo’s bid was invalid and that DOLI’s decision was correct. A judge granted a preliminary injunction, as requested. He concluded, however, that the record before him was insufficient to deter
Indeed, there is no evidence in the record that DOLI has ever purported to adopt any mle or regulation forbidding penny bidding. Further, an examination of the pertinent statutes does not show that the Legislature has conferred on DOLI the authority to make a rule of the type it here seeks to enforce under the label of “policy.” Borden, Inc. v. Commissioner of Pub. Health, 388 Mass. 707, 721 (1983) (“an agency’s power to make regulations [must be] delegated by the Legislature”). Under the provisions of G. L. c. 149, § 44H, as we observed in n.7, the Commissioner of DOLI is given the power to investigate the facts to determine if there has been a violation of §§ 44A through 44H of G. L. c. 149 or of § 39M of G. L. c. 30, and to institute proceedings in the Superior Court to enjoin the award of a contract if a violation is found. This power does not concern rule making but rather is investigatory in scope. See Sun Oil Co. v. Director of the Div. on the Necessaries of Life, 340 Mass. 235, 239-240 (1960). Under G. L. c. 23, § 3, as amended through St. 1981, c. 351, § 233, the Commissioner may prepare “rules and regulations for the conduct of [DOLI] and all other rules and regulations which [DOLI] is by law authorized to make” but this power does not authorize the promulgation of any rule or regulation of the type that DOLI seeks to enforce here.
On appeal, DOLI and Schiavone argue another ground in support of the judge’s decision. They claim that the judge has
In any event, it appears that DOLI and Schiavone have confused the “equal footing” principle with certain advantages which may be possessed by any bidder. Every bidder on a construction contract, public or private, has varying degrees of experience, ingenuity and resources. Some have more experienced and capable estimators, supervisors, and workers. Some already own equipment and materials that the job requires which other bidders must purchase or rent.
The judgment is reversed, and a new judgment is to issue declaring that the commission has the power to award the contract to Longo.
So ordered.
An “unbalanced” bid contains an abnormally low price for one item and an abnormally high price for another item in order to recoup losses from the abnormally low price.
Schiavone had bid a price of $1,515,000 for temporary sheeting as contrasted to Longo’s $5,500. At least five other contractors had also inserted a one penny per square foot price on the item.
A “front-end-loaded” bid contains abnormally high prices for items that the owner pays for first, so the bidder gets paid more in the beginning than the actual value of the work that has been done.
Longo and the commission petitioned a single justice of this court for relief from the permanent injunction ordered by the judge. The single justice dissolved the injunction. Pending the appeals of Longo and the commission, a single justice of the Supreme Judicial Court denied Schiavone’s petition to invoke the court’s power under G. L. c. 211, § 3.
It is apparent from his comments and his action in remanding the matter to DOLI for further findings that the judge was under the mistaken belief that the proceedings conducted by DOLI on the protest of Schiavone were adjudicatory in nature and covered by G. L. c. 30A. Under the provisions of G. L. c. 149, § 44H (see note 9, infra), the Commissioner of DOLI or his designee is given the power to investigate the facts to determine if there has been a violation of §§ 44A through 44H, inclusive, of G. L. c. 149 or of § 39M of G. L. c. 30 and to institute proceedings in the Superior Court to
Here, DOLI offered no admissible evidence in court that Longo had violated any statute. The judge should have dismissed the action for lack of prosecution. We refrain from ordering such action because it makes no difference in the ultimate result and because we believe it is of some importance that our views as to the legality of penny bidding be expressed, in order to prevent other actions on the point.
In fact, if Longo had used Schiavone’s price for temporary sheeting ($1,515,000) instead of its own figure ($5,500), its total bid would still have been approximately $475,000 lower than that of Schiavone.
General Laws c. 149, § 44H, as appearing in St. 1980, c. 579, § 55, provides in pertinent part: “[T]he commissioner of labor and industries or his/her designee shall enforce sections forty-four A through forty-four H, inclusive of this chapter and section thirty-nine M of chapter thirty. S/he shall have all the necessary powers to require compliance therewith including the power to institute and prosecute proceedings in the superior court to restrain the award of contracts and the performance of contracts in all cases where, after investigation of the facts, s/he has made a finding that such award or performance has resulted in a violation, directly or indirectly, of the provisions of said sections forty-four A through forty-four H, inclusive, or of said section thirty-nine M . . . .”
We recognize that administrative policy and interpretations may be announced in a manner less formal than the publication of regulations. Board of Educ. v. School Comm. of Amesbury, 16 Mass. App. Ct. 508, 515 (1983). There is no indication in the record that any policy of DOLI had been “circulated or available to the parties likely to be concerned by memorandum, bulletin, letter, or other form of communication.” Id. at 516. The judge, in one of his memoranda, identified the policy of DOLI against penny bidding as “publicly known.” There is nothing in the record before us that shows the source of that conclusion. The fact that at least five of the bidders bid a penny on the item (note 4, supra) suggests that the “policy” of DOLI was not “publicly known.”
In Interstate Eng’g Corp. v. Fitchburg, supra, the court, in discussing the fundamental objectives underlying G. L. c. 149, §§ 44A-44L, stated that “the statute establishes an honest and open procedure for competition for public contracts and, in so doing, places all general contractors and subbidders on an equal footing in the competition to gain the contract.” Id. at 758. Also see James J. Welch & Co. v. Deputy Commr. of Capital Planning & Operations, 387 Mass. 662, 666 (1982).
Longo submitted an affidavit to DOLI which was not disputed. In the affidavit, it stated that it had recently performed a similar job and already had on hand large quantities of the sheeting, materials, and equipment needed for the job.