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8 min read

The Speedway Orion JV Appeal and the Role of the Contracting Officer


The Intricate Nature of Contract No. N62473-19-D-1221 and the Authority of the Contracting Officer

The Contract Disputes Act (CDA) serves as a vital framework for the resolution of complex disputes arising from government contracts within the United States. It is designed to provide a structured and fair platform for contractors and the federal government to address and resolve disagreements that may arise during the course of their contractual obligations. In a recent case that exemplifies the significance of the CDA, Speedway Orion JV (Speedway) finds themselves embroiled in an intricate appeal process challenging the denial of their claim for $19,099 by the contracting officer.

A contracting officer is an authorized individual who manages contracts for the government or a contracting agency. They oversee the procurement process, negotiate contracts, ensure compliance, and resolve disputes.

The root of this dispute lies in Contract No. N62473-19-D-1221, a defining agreement between Speedway and the Naval Facilities Engineering Systems Command (NAVFAC). This extensive contract governs the intricate aspects of new construction, renovation, and repair of various government buildings at multiple installations. It sets the stage for a collaboration in which both Speedway and NAVFAC play essential roles in ensuring the successful completion of critical projects.

One notable aspect of this contract is the authority vested in the contracting officer to determine both the amount of work required and the timing of its performance. This authority allows for flexibility and adaptability throughout the duration of the contract. To ensure compliance with applicable regulations and guidelines, the contract incorporates several critical components, including Defense Federal Acquisition Regulation Supplement (DFARS) 252.216-7006 and Federal Acquisition Regulation (FAR) 52.236-15. The inclusion of Navy Facilities Acquisitions Standard (NFAS) 5252.211 further ensures that all parties involved are aware of and understand their obligations within the context of the contract.

Navigating Unforeseen Challenges: Speedway's Response and Communication

As the contractual obligations take shape, NAVFAC issues a specific task order to Speedway. The task order pertains to the renovation of multiple office buildings, presenting a significant challenge that calls for meticulous planning and execution. To ensure a smooth progression of work, the task order outlines that the renovation work will be conducted in carefully planned phases. Additionally, the task order includes clear guidance that emphasizes the importance of coordination between Speedway and NAVFAC's Construction Manager (CM) and Facilities Management Specialist (FMS). This coordination is vital to guaranteeing constructive and productive collaboration throughout the entire duration of the project.

With the task order in hand, Speedway begins their preparations by diligently submitting a baseline construction schedule for approval by the government. This schedule plays a crucial role, as it serves as a roadmap that defines the project's timelines and milestones, facilitating organized and efficient progress. The government, recognizing the importance of a solid foundation for project management, ensures the timely approval of Speedway's proposed baseline construction schedule.

While the project initially commences on a positive note, Speedway encounters a series of unforeseen challenges that could potentially impact their ability to adhere to the agreed-upon schedule. Limited access to work areas and outstanding changes emerge as significant obstacles, requiring Speedway to swiftly adapt their plans and develop innovative solutions to address these issues. Speedway promptly communicates these delays to the government by submitting two notices, highlighting the specifics of these impediments and their potential consequences.

Speedway's Denied Time Impact Analysis and Compensation Claim

Despite the considerable hurdles faced along the way, Speedway displays exceptional dedication and commitment to the successful completion of the project. Through their unwavering determination and relentless effort, Speedway manages to overcome the obstacles and completes the project work a remarkable 45 days before the designated contract completion date (CCD) of June 13, 2022. This early completion serves as a testament to Speedway's expertise, efficiency, and ability to deliver exceptional results, even under challenging circumstances.

In the aftermath of the project's completion, Speedway initiates the process of analyzing the impact of the encountered delays. They meticulously compile a Time Impact Analysis (TIA) detailing the delays experienced during the project. Speedway attributes these delays to unforeseen conditions, out-of-sequence work areas, and tenant move-out requests. They assert that these factors resulted in a total of 17 days of work stoppage, significantly impacting the project's timeline and overall progress. To support their claim for additional compensation, Speedway submits a cost proposal that accurately reflects the direct labor costs for the superintendent and the additional expenses incurred due to the encountered delays.

Surprisingly, despite the government's acknowledgment and acceptance of the successfully completed project on April 29, 2022, they proceed to deny Speedway's TIA. The basis of their denial stems from the assertion that the delays encountered by Speedway did not have a significant impact on the contract completion date (CCD). The government argues that since Speedway completed the project ahead of schedule, there is no justifiable basis for compensation related to the alleged delays.

The Contention Surrounding Reimbursement for Superintendent's Daily Rate and Markups

To address this denial, Speedway takes the next logical step by submitting a certified claim for $19,099, seeking reimbursement for the superintendent's daily rate and markups associated with the 17 days of alleged delay. Speedway firmly believes that they acted in accordance with the terms outlined within the contract and fulfilled their obligations as expected. However, the contracting officer denies the claim, leading to the initiation of the appeal process.

The central issue that the appeal seeks to resolve is the question of whether Speedway is entitled to receive reimbursement for the superintendent's daily rate and corresponding markups for the 17 days at the center of the dispute. The government firmly contends that Speedway is not eligible for compensation in light of their early completion of the project before the CCD and the absence of any intentional acceleration efforts. From the government's perspective, Speedway's early completion effectively undermines their claim for reimbursement.

Speedway, on the other hand, staunchly argues that the government's failure to make work areas available as promised and their refusal to compensate Speedway for the encountered delays amounts to a breach of the contract. They further assert that the government "almost immediately abandoned the approved baseline schedule," leading to disruptions and pauses in the progress of their work. Speedway firmly believes that these alleged breaches substantiate their claim for compensation.

The Government's Response and Speedway's Allegations

In response to Speedway's argument, the government asserts that the response to a Request for Information (RFI) does not amount to a "promise to prevent pauses in construction." They contend that the Task Order served as a clear notification to Speedway that the contracting officer would be the final authority responsible for determining the actual amount of work required and the designated time for its completion. Accordingly, the government maintains that Speedway must present evidence to substantiate the extent of the delay, establish a causal link between alleged delays and harm to the contractor, and demonstrate the resulting impact on their ability to complete the work.

Speedway, in their pursuit of a favorable outcome, alleges a significant four-month delay in the processing of cost proposals, further bolstering their claim for compensation. However, upon closer examination, Speedway fails to establish a direct causal link between the large-scale delay alleged and the 17 days of claimed delay. Such a connection is essential to substantiating their claim and demonstrating the adverse effects of the alleged delay on their ability to meet the agreed-upon schedule.

The Board's Evaluation and Denial of Speedway's Claims

To fortify their argument, Speedway cites several Armed Services Board of Contract Appeals (ASBCA) decisions to support their breach claim. However, the government is quick to raise counterarguments, effectively distinguishing the cited cases and highlighting their differing factual contexts.

Additionally, Speedway asserts that their work was not only delayed but also constructively suspended on three separate occasions, accumulating a total of 17 days. These instances of constructive suspension, in Speedway's view, further substantiate their claim for compensation. The government, however, argues that the Board lacks jurisdiction to consider constructive suspension as a basis for recovery.

Remarkably, the Board takes a contrasting stance. They assert their jurisdiction to evaluate Speedway's constructive suspension legal theory, intending to carefully examine and assess the elements presented by Speedway in support of their claim. Regrettably for Speedway, their efforts prove ineffective, as they fail to establish the necessary elements required to substantiate their claim for constructive suspension.

In a concluding attempt to secure some form of compensation, Speedway also seeks Eichleay damages. Unfortunately, the Board determines that Speedway is not entitled to the requested damages, thereby denying their appeal.

The Impact of the Contract Disputes Act on Government Project Resolution

The Speedway Orion JV (Speedway) appeal offers a fascinating glimpse into the intricacies of the Contract Disputes Act (CDA) and its profound impact on resolving contractual conflicts arising from government projects. This case serves as a valuable lesson on the criticality of well-defined and comprehensive contractual agreements, meticulous project management, and open lines of communication among all stakeholders involved.

In their pursuit of reimbursement for the superintendent's daily rate and markups, Speedway encountered an unfortunate setback as their appeal was ultimately denied by the Board. This outcome sheds light on the significant role that effective contract management plays in the success of government contracts. It underscores the importance of adhering to the established terms and conditions with scrupulous precision and rectifying any potential disputes promptly and efficiently.

The Speedway case illustrates the stringent requirements imposed by the CDA, emphasizing the need for both government contractors and contracting officers to approach contractual matters with the utmost diligence and attention to detail. Clear and unambiguous contracts become the foundation upon which successful projects are built. These agreements should encompass an array of crucial aspects, including payment terms, project timelines, performance expectations, and dispute resolution procedures.

Mitigating Disputes through Meticulous Project Management and Communication

Additionally, meticulous project management proves indispensable in avoiding and addressing contract disputes. By diligently documenting all project activities, maintaining accurate records of expenditures and labor hours, and promptly addressing potential concerns, both contractors and government entities can significantly mitigate the chances of disputes arising.

Communication serves as the lifeblood of successful contractual relationships. Regular and open lines of dialogue between the government contractor and the contracting officer foster mutual understanding, ensure that project goals remain aligned, and provide opportunities for early dispute resolution. Effective communication also aids in preventing misunderstandings that can escalate into time-consuming and costly legal battles.

The Speedway appeal serves as a reminder that careful compliance with contractual obligations is paramount. Government contractors must remain vigilant in meeting certification requirements, adhering to the Federal Acquisition Regulation (FAR), and promptly addressing any issues or concerns that may arise. By doing so, contractors can establish themselves as reliable partners in government projects while minimizing the risk of disputes and subsequent denials of claims.


The Speedway Orion JV (Speedway) appeal serves as a prime example that exemplifies the complex and intricate nature of the Contract Disputes Act (CDA). This case not only highlights the nuances involved in this area of law but also emphasizes the criticality of meticulous contract management, rigorous compliance, and effective communication in the realm of government contracting.

The Speedway case underscores the importance of establishing and maintaining clear and concise contractual agreements from the outset of any collaboration between government entities and contractors. Such agreements serve as the foundation upon which successful partnerships are built, paving the way for smooth operations and fruitful outcomes. Ensuring that contract terms are clearly outlined and agreed upon by all parties involved is paramount to minimizing the likelihood of disputes arising down the road.

By delving into cases like Speedway, government contractors can gain valuable insights that facilitate their navigation through the complexities of the CDA. These insights can provide a roadmap to ensure compliance with applicable regulations, mitigate risks, and ultimately increase the chances of favorable outcomes in the event of contract disputes.

One significant takeaway from the Speedway appeal is the importance of meticulous contract management. This entails diligent record-keeping, precise documentation, and vigilant adherence to contractual obligations. By maintaining comprehensive records of all pertinent communications, transactions, and modifications, contractors can effectively defend their positions and provide evidence in support of their claims, should disputes arise.

Rigorous compliance with applicable laws, regulations, and contractual requirements is another critical aspect emphasized by the Speedway case. Government contractors must acquaint themselves with the pertinent rules and regulations governing their industry and align their practices accordingly. Thoroughly understanding and adhering to the Federal Acquisition Regulation (FAR) and other applicable guidelines is essential for avoiding contract disputes and ensuring smooth operations.

Effective communication also emerges as a key factor in successfully navigating the intricacies of the CDA. Establishing clear lines of communication, maintaining open dialogue, and addressing concerns promptly and transparently can help prevent misunderstandings and foster collaborative relationships. By cultivating effective communication channels, government contractors can mitigate the likelihood of disputes escalating and work towards amicable resolutions in the event that issues do arise.

The Speedway appeal also sheds light on the significance of seeking legal advice when contract disputes arise. Collaborating with experienced attorneys who specialize in government contracting law can provide contractors with invaluable guidance and support throughout the dispute resolution process. Attorneys well-versed in contract claims and the CDA can offer insights into legal strategies, present compelling arguments, and navigate the various stages of the appeals process with precision.

The Speedway Orion JV appeal showcases the intricate and multifaceted nature of the Contract Disputes Act. It underscores the criticality of meticulous contract management, rigorous compliance, and effective communication in the realm of government contracting. By drawing lessons from cases such as Speedway, government contractors can improve their understanding of the CDA, enhance their compliance efforts, and increase their chances of achieving favorable outcomes in contract disputes.