IN RE BID SOLICITATION 18DPP00205, CENTRAL JERSEY LANDSCAPING T0777 SNOW PLOWING AND SPREADING SERVICES PROTEST OF NOTICE OF INTENT TO AWARD (NEW JERSEY DEPARTMENT OF THE TREASURY)

NOT FOR PUBLICATION WITHOUT THE
APPROVAL OF THE APPELLATE DIVISION
This opinion shall not "constitute precedent or be binding upon any court." Although it is posted on the
internet, this opinion is binding only on the parties in the case and its use in other cases is limited. R. 1:36-3.
SUPERIOR COURT OF NEW JERSEY
APPELLATE DIVISION
DOCKET NO. A-0515-18T3
IN RE BID SOLICITATION
#18DPP00205, CENTRAL JERSEY
LANDSCAPING T0777 SNOW
PLOWING AND SPREADING
SERVICES PROTEST OF NOTICE
OF INTENT TO AWARD.
______________________________
Argued June 4, 2019 – Decided June 26, 2019
Before Judges Fisher, Suter and Enright.
On appeal from the New Jersey Department of the
Treasury, Division of Purchase and Property, RFP No.
18DPP00205.
Richard Wayne Hunt argued the cause for appellant
Central Jersey Landscaping, Inc. (Parker McCay, PA,
attorneys; Richard Wayne Hunt and Ashley Hope
Buono, on the brief).
Rebecca Pluckhorn, Deputy Attorney General, argued
the cause for respondent Department of Treasury,
Division of Purchase and Property (Gurbir S. Grewal,
Attorney General, attorney; Beth L. Mitchell, Assistant
Attorney General, of counsel; Rebecca Pluckhorn, on
the brief).
PER CURIAM
Central Jersey Landscaping (CJL) appeals from two decisions made by
the Department of Treasury, Division of Purchase and Property (the Division),
initially rejecting CJL's bid for salt-spreading services and later denying CJL's
request for a stay of that decision. We affirm.
The record reveals that on January 30, 2018, the Division issued an online
Bid Solicitation, also known as a Request for Proposal (RFP). In its RFP, the
Division sought bids from contractors experienced in snow plowing and salt-
spreading services. However, potential vendors could choose to limit their bids
to either plowing or spreading services. The Division specifically solicited bids
for over three hundred "price lines," also known as "snow sections" for
approximately 13,000 miles of federal, state and interstate roads under its
jurisdiction. Snow sections are fixed sections of the highway requiring snow
plowing and salt spreading. The Division intended to award each contract to the
bidder with the lowest hourly rate.
The RFP informed bidders of the criteria the Division might use to
evaluate proposals, including: the firm's experience, which was to be detailed
in a form known as "Attachment Two"; the vendor's equipment, which was to
be detailed in a form known as "Attachment One"; and the vendor's hourly rate.
Regarding a vendor's level of experience, the RFP specifically required that
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bidders show "at a minimum, two years' experience performing snow plowing
or spreading services on public roadways." The proposal further advised
vendors that the stated criteria "may be used to evaluate Quotes . . . received
in response to this Bid Solicitation . . . . The evaluation criteria categories
may be used to develop more detailed evaluation criteria to be used in the
evaluation process." The RFP further instructed that bidding vendors "must
furnish all information required by completing the forms accompanying the
[RFP]." Additionally, vendors were cautioned that failure to submit the forms,
which included Attachments One and Two, "will result in rejection of the
Quote."
On March 16, 2018, CJL electronically submitted its bid for salt-spreading
services on several price lines. The same day, the State publicly announced the
names of one hundred and sixty-four firms who submitted quotes for the first
round. After reviewing the bids, the State rejected at least thirty-two vendors
for failure to conform to the mandatory administrative requirements for Quote
submission. Eight vendors, including CJL, were deemed non-responsive
because they failed to submit Attachment Two.
Just two days after learning of its rejection by the Division, CJL emailed
the Division informally asking it to reconsider its decision. CJL advised it had
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"been a vendor with the DOT for the past five years" and had interpreted a
section of the RFP to apply only to snow removal vendors because the clause
stated "The Vendor (Bidder) must furnish all information required by
completing the forms accompanying this Bid Solicitation (RFP) for one (1) or
more Snow Sections and offering optional graders and loaders."
On August 29, CJL formally asked the Division to either provide CJL an
in-person hearing or reconsider its decision, again noting it had five years of
experience on other State contracts. CJL completed and submitted Attachment
Two with its protest. CJL argued it was not afforded the same flexibility as
other vendors (who also had been deemed deficient) to cure deficiencies. CJL
further complained the online bidding system had malfunctioned. Additionally,
CJL contended Attachment Two only applied to vendors bidding on snow
plowing contracts, whereas CJL limited its bids to salt-spreading contracts.
Without holding a hearing, the Division denied CJL's request for
reconsideration on September 5, 2018. The Acting Director issued a twelve-
page decision in which it found CJL's bid materially deviated from t he bid
requirements, that the Division could not consider experience which was not
detailed in CJL's bid, that instructions on the bidder solicitation form were not
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materially misleading and that no system issues impacted the bidding process
when the bidding opened.
CJL filed a notice of appeal on October 3, 2018, and on the following day,
it asked the Division to stay the award of the disputed salt-spreading contracts
until the appeal was heard. The Acting Director denied CJL's request for a stay
on October 16, 2018, whereupon CJL moved for emergent relief before us. We
denied CJL's application and this appeal followed.
CJL raises the following arguments for our consideration:
POINT I
THE DIVISION'S DECISION TO REJECT
[APPELLANT'S] BID WAS ARBITRARY,
CAPRICIOUS, AND UNREASONABLE BECAUSE
ATTACHMENT [TWO] WAS NOT A MATERIAL
TERM OF THE SOLICITATION AND THEREFORE,
THE DIVISION'S REJECTION SHOULD BE
REVERSED.
POINT II
THE DIVISION'S PROCUREMENT METHOD AND
AUTOMATIC REJECTION OF [APPELLANT'S] BID
WAS IMPROPER, UNFAIR, AND DID NOT
PROVIDE UNIFORMITY TO ALL BIDDERS.
THUS, [APPELLANT'S] BID SHOULD BE
REMANDED TO THE DIVISION FOR
EVALUATION AND CONSIDERATION ON THE
REMAINING CONTRACT YEARS.
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Our role when reviewing administrative agency determinations is limited.
In re Stallworth, 208 N.J. 182, 194 (2011). Courts can intervene only in rare
instances when "an agency action is clearly inconsistent with its statutory
mission or with other State policy." George Harms Constr. v. N.J. Tpk. Auth.,
137 N.J. 8, 27 (1994). A reviewing court "may not substitute its own judgment
for the agency's, even though the court might have reached a different
result." Stallworth, 208 N.J. at 194 (citations omitted). Generally, a reviewing
court "will not interfere with a Final Agency Determination which pertains to
contract awards or rejecting a bid or bidders unless there is a finding of 'bad
faith, corruption, fraud or gross abuse of discretion.'" In re Jasper Seating Co.,
Inc., 406 N.J. Super. 213, 222 (App. Div. 2009) (quoting Commercial Cleaning
Corp. v. Sullivan, 47 N.J. 539, 549 (1966)).
An agency action is only reversed when it is "arbitrary, capricious, or
unreasonable, or [] not supported by substantial credible evidence in the record
as a whole." Stallworth, 208 N.J. at 194 (alteration in original) (quoting Henry
v. Rahway State Prison, 81 N.J. 571, 579-80 (1980)). A challenger must prove
an agency's action breached this standard. Bueno v. Bd. of Trs., 422 N.J. Super.
227, 234 (App. Div. 2011).
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CJL initially contends Attachment Two was an immaterial requirement
for its bid and therefore, a waivable defect. It also asserts the Division's final
decision is incompatible with the two-part materiality test, noting Attachment
Two was used in the evaluation process as a tiebreaker for certain price lines.
We do not find these arguments persuasive.
"[T]he bidding statutes are [intended] to benefit the taxpayers and they
'are construed as nearly as possible with sole reference to the public good.'" In
re Jasper, 406 N.J. Super. at 222 (quoting Terminal Constr. Corp. v. Atl. County
Sewerage Auth., 67 N.J. 403, 409 (1975)). "Their objects are to guard against
favoritism, improvidence, extravagance and corruption; their aim is to secure
for the public the benefits of unfettered competition." Terminal Constr. Corp.,
67 N.J. at 410. The statute governing the specifications, invitations and award
of public contracts, N.J.S.A. 52:34-12, reflects that an award of a public
contract: "shall be made with reasonable promptness . . . by written notice to
that responsible bidder whose bid, conforming to the invitation for bids, will be
most advantageous to the State, price and other factors considered." State v.
Ernst & Young, L.L.P., 386 N.J. Super. 600, 618-19 (App. Div. 2006) (quoting
N.J.S.A. 52:34-12(g)). "Any or all bids may be rejected when the State
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Treasurer or the Director of the Division of Purchase and Property determines
that it is in the public interest so to do." N.J.S.A. 52:34-12(a).
The Director of the Division is vested with the discretion to determine
"which bid will be most advantageous to the State." Commercial Cleaning Corp.
v. Sullivan, 47 N.J. at 548. Although the Director enjoys broad discretion, that
discretion is not limitless. Barrick v. State Dept. of Treasury, Div. of Property,
218 N.J. 247, 258 (2014). For example, the Division is prohibited from
awarding a contract to a proposal that materially deviates from RFP
requirements. Id. at 259. In determining whether a deviation is material and
not waivable, our Supreme Court articulated a two-prong test.
[F]irst, whether the effect of a waiver would be to
deprive the [contracting party] of its assurance that the
contract will be entered into, performed and guaranteed
according to its specified requirements, and second,
whether [the defect] is of such a nature that its waiver
would adversely affect competitive bidding by placing
a bidder in a position of advantage over other bidders
or by otherwise undermining the necessary common
standard of competition.
[Meadowbrook Carting Co. v. Borough of Island
Heights, 138 N.J. 307, 315 (1994).]
We are satisfied the Division performed an appropriate Meadowbrook
analysis and properly concluded the subject specification involving Attachment
Two was a material, non-waivable condition.
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As to the first prong of the Meadowbrook test, the Acting Director
concluded that without Attachment Two, the Division could not be assured the
spreading services would be done appropriately. There was nothing arbitr ary or
capricious in finding a deviation from disclosing CJL's level of experience
deprived the State of its "assurance that the contract will be entered into,
performed and guaranteed according to its specified requirements."
Meadowbrook, 138 N.J. at 315. The Acting Director noted RFP section 3.2
specified that vendors must "[p]ossess, at minimum, two (2) years' experience
performing snow plowing or spreading services on public roadways." Next,
RFP section 4.4.3 advised bidders that Attachment Two was a necessary
submittal and RFP section 6.7 confirmed that experience was a factor upon
which awards would be made. Additionally, N.J.A.C. 17:12-2.2(a) states that
in order for a bidder to be eligible for a contract award, its proposal must contain
all attachments required by the RFP's terms. Since Attachment Two was the
only bid form that covered a bidder's experience as required by the RFP, it meets
the first prong of the materiality test.
Prong two of the Meadowbrook test also is satisfied, as waiver of CJL's
completion of Attachment Two would have placed CJL in a position of unfair
advantage over other bidders. In Meadowbrook, 138 N.J. at 311-12, a
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government entity waived the requirement for a consent of surety on a garbage -
removal contract for one of the bidders. Addressing the second prong of the
materiality test, the Meadowbrook Court ruled this consent was non-waivable,
in part, because the waiver gave the vendor an unfair advantage over other
bidders. Id. at 322-23. The Court expressed concern that other bidders unable
to meet the requirement for a consent of surety may have been dissuaded from
bidding at all. Id. at 323. Likewise, had other vendors known the requirement
was waivable, they may have entered bids and increased competition for the
contract. Id. at 323-24. The Meadowbrook Court cautioned that providing a
waiver for a defective bid "had the capacity to affect the fairness of the bidding
process," even though it was evident there was no corruption or actual adverse
effect on the process. Id. at 322-23. In voiding the bid, the Court recognized
its decision might occasionally result in additional cost to the public, but found
the integrity of the bidding process is paramount. Id. at 325.
Meadowbrook guides our analysis here. Had CJL been awarded a contract
on its bids without furnishing Attachment Two, it would have enjoyed an unfair
advantage over contractors who chose not to bid due to the requirements set
forth in Attachment Two. Moreover, the possibility certainly exists th at other
contractors could have put forth a more advantageous bid than CJL if they knew,
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in advance, the requirement of Attachment Two was waivable. Thus, we agree
with the Acting Director that the second prong of Meadowbrook was satisfied
here.
As our Supreme Court has observed:
Deviations from material specifications risk
transgressing the duty to avoid favoritism, corruption,
and the like. Requiring adherence to material
specifications maintains a level playing field for all
bidders competing for a public contract. Thus,
requirements that are material to an RFP are non-
waivable; the winning bidder's proposal must comply
with all material specifications.
[Barrick, 218 N.J. at 259.]
Essentially, if a vendor's bid fails to satisfy an RFP requirement which is
determined to be non-waivable, then "the inquiry is over because the bid is non-
conforming and a non-conforming bid is no bid at all." In re On-Line Games
Contract, 279 N.J. Super 566, 595 (App. Div. 1995).
CJL next argues Attachment Two was not material as it was not itemized
or included on the Bidder's checklist - which was appended to the solicitation.
Moreover, CJL argues against materiality, claiming the language of Attachment
Two does not inquire about salt-spreading experience. We find no merit in these
arguments.
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The Procurement Program Checklist states it was created "as a guide to
assist Vendors . . . in preparing a complete and responsive Quote . . . ." The
checklist confirms "[i]t is the Vendor's . . . responsibility to ensure that all
requirements of the Bid Solicitation . . . have been met." This warning appears
in bold font at the top of the page with the word, "all," underlined. At the bottom
of the checklist, the form also advises "[v]endors . . . must ensure that all
requirements of the Bid Solicitation . . . have been met as the Bid Solicitation
. . . language supersedes this advisory checklist in the event of an error or
omission." In an effort to highlight this language, the words are in a slightly
larger font than those on the rest of the form and the word, "supersedes," is
underlined. These statements on the checklist, taken together with the
mandatory language in other parts of the RFP, provided notice it was the bidder's
responsibility to ensure all the required forms were submitted and that the
checklist might not list all necessary paperwork. CJL's failure to heed the
warnings outlined in the checklist does not make Attachment Two any less
material.
As to CJL's argument that Attachment Two does not pertain to salt-
spreading experience, we refer to question three on the form, which states: "[i]f
you do not possess experience plowing public roadways, please document any
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plowing or spreading experience you possess." Although the other questions
predominately relate to snow plowing, question three clearly asks the vendor
about its spreading experience. Additionally, the RFP defines a "snow section"
as "[a] predetermined section of highway requiring snow plowing and/or
spreading services." Thus, CJL's argument regarding the materiality of
Attachment Two as to spreading experience is flawed.
We also find CJL's contention that Attachment Two was not material
because the Division used the form as a "tiebreaker" in certain instances just as
unavailing. As the State points out, Attachment Two was used in the evaluation
process as a tiebreaker for certain price lines. A tie could surface if vendors
submitted identical hourly rates. Such a situation would not make Attachment
Two any less material.
CJL next complains it was unfairly treated by the Division because other
vendors were allowed to go outside the "four corners" of their bids to cure their
bid deficiencies. In its reply brief, CJL also posits the Division should have
considered CJL's bid because CJL performed spreading work under previous
State contracts. Additionally, CJL asserts Attachment One contained enough
information about its experience to warrant further inquiry from the Division,
and that it was a pre-qualified vendor that had previously provided its experience
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to the Division. In essence, CJL suggests the Division improperly rejected its
bid because it had enough information about CJL's experience from sources
other than Attachment Two. We find these arguments misplaced.
As to its claims of disparate treatment, CJL points to the Division's
Recommendation Report, which identified certain rejections that were
ultimately rescinded. CJL notes one of the bidders had its bid originally rejected
because it did not provide pricing information. However, that same bidder later
contacted the hearing unit stating the pricing information was submitted with its
bid. The Division soon discovered the correct documentation had been
submitted, but the format was not compatible with the Division's computer
software. Unlike CJL, this bidder submitted the required documentation with
its bid and the Division did not have to go outside the four corners of the bid to
find it.
The other three vendors initially found to be noncompliant had not
submitted Ownership Disclosure forms. 1 However, the RFP provided:
[a] current completed Ownership Disclosure Form must
be received prior to or accompany the submitted Quote
. . . . A Vendor's . . . failure to submit the completed
and signed form with its Quote . . . will result in the
1
This form addresses N.J.S.A. 52:25-24.2, which requires a corporation,
partnership, or limited liability company to disclose the names and addresses of
all members or stockholders of the entity who own a ten percent or more share.
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rejection of the Quote . . . unless the Division has on
file a signed and accurate Ownership Disclosure Form
dated and received no more than six (6) months prior to
the . . . submission deadline for this procurement.
[Emphasis added.]
This language mirrors N.J.S.A. 52:25-24.2, which requires the disclosure to
either accompany the bid or occur prior to the bid. Specifically, N.J.S.A. 52:25-
24.2 states that "no corporation, partnership, or limited liability company shall
be awarded a contract . . . unless prior to the receipt of the bid or accompanying
the bid . . ." the vendor discloses the required information. Thus, the requisite
disclosure of ownership, which was missing from three other vendors, could be
submitted prior to their bids. On the other hand, CJL cites to no statutory
authority, statute, precedent or any language in the RFP that permitted the
Division to rely on CJL's previous record with the DOT to satisfy the experience
criteria. In light of these facts, we are not persuaded other vendors were given
preferential treatment over CJL to cure their bid deficiencies. Essentially, CJL
was not similarly situated to the other vendors, as no avenue existed for the
Division to look outside the four corners of CJL's bid and cure the deficiencies
pertaining to CJL's prior experience. Our conclusion that CJL was not subjected
to disparate treatment also is bolstered by the uncontroverted fact that seven
other bidders who did not submit Attachment Two were deemed non-responsive
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and were not awarded a contract while two other vendors who did submit
Attachment Two were also rejected because they did not demonstrate they had
the requisite experience.
Next, CJL's suggestion that the Division could have gleaned CJL's level
of experience from its submission of other paperwork, such as its
prequalification paperwork, is similarly unpersuasive. Although CJL submitted
prequalification paperwork to the State, no statute or other authority permitted
the Division to rely on information CJL had on file with the Division. As the
State highlights, RFP section 6.7 made clear the experience component of the
evaluation would be based on the information provided in Attachment Two and
not information outside of a bidder's proposal.
As we are satisfied the Acting Director correctly determined Attachment
Two was material to CJL's bid and that the Division fairly treated all bidders
who either did not submit Attachment Two or failed to demonstrate the requisite
experience during the bidding process, we discern no basis to disturb the
Division's final agency decisions of September 5, 2018 and October 16, 2018.
The remainder of CJL's arguments do no warrant discussion in a written opinion.
R. 2:11-3(e)(1)(E).
Affirmed.
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