[33] 84] pay for one trip per week, although he contin | vision last quoted, in a letter to the Postmaster- The difference between the amounts paid to the claimant under this last order and the amount he would have received under the allowance fixed by the former orders, according to the stipulation of the contracts, constitutes the principal demand in the present suit. A short time after the number of trips was increased on the first route from six to seven per week it was reduced back to six, and one month's extra pay allowed to the contractor as indemnity for the discontinuance. The petition sets up a demand for the fifty per cent thereon, which has been withheld by the Postmaster-General. Another claim set up in the petition is for the amount deducted, as forfeitures alleged to be wrongfully imposed by the Postmaster-General, for failures by the contractor to cause the mail to be carried within the time prescribed. The petition was demurred to, and this appeal is from the judgment of the court sustaining the demurrer. Messrs. A. J. Willard and Sam'l M. Lake Mr. Robert A. Howard, Assist. Atty- Mr. Justice Lamar delivered the opinion the court: of The contracts in question were made in conformity with the provisions of SS 3960 and 3961 of the Revised Statutes. Section 3960 is as follows: "Compensation for additional service in carrying the mail shall not be in excess of the exact proportion which the original compensation bears to the original service; and when any such additional service is ordered, the sum to be allowed therefor shall be expressed in the order, and entered upon the books of the Department; and no compensation shall be paid for any additional regular service rendered before the issuing of such order." General, dated July 20, 1881, held that "The Our construction of this legislation, consid ered in pari materia with the provisions of 3960 and 8961, is this: Section 3960 treats the rate of pay for additional service as definitely fixed by the original contract, and under its provisions the compensation, which the contractor is to receive for each extra trip placed upon his route, is to bear an exact proportion to the additional service performed; that is, it is to be based upon the rate estab has direct reference to the compensation to be lished by the original contract. Section 3961 paid for the expedited service, and expressly provides that, in computing such compensation, the rate of pay fixed in the original con tract is to be taken as the standard of limitation, which shall not be exceeded. These two sections left it within the discretion of the Postmaster-General to expedite the service to [35] an indefinite extent, and to allow a pro rata compensation therefor. The proviso added in 1880 was clearly intended to limit that discre tion by providing that thereafter he should not have authority to expedite the service, under any contract, beyond 50 per cent of the rate The circumfixed in the original contract. stances under which contracts for the transportation of the mails are awarded, we think, Such awards are sustain this construction. made after public advertisement, and upon competitive bids; and it is presumed that the contract price is at as low a rate as can be made consistently with a proper performance of service. In the present case, it appears from the All the orders made by the Postmaster-Gen-record that the actual cost of the expedition oreral, subsequent to the execution of these contracts and whilst the service was in course of performance, were made after the Act of Congress of April 7, 1880, which contained this proviso: Section 3961 provides: "No extra allowance shall be made for any increase of expedition in carrying the mail unless thereby the employment of additional stock and carriers is made necessary, and in such case the additional compensation shall bear no greater proportion to the additional stock and carriers necessarily employed than the compensation in the original contract bears to the stock and carriers necessarily employed in its execution." "Provided, That the Postmaster-General shall not hereafter have the power to expedite the service under any contract either now exist ing or hereafter given, to a rate of pay exceeding fifty per centum upon the contract as originally let." (21 Stat. at L. 72.) The Attorney-General, construing the pro dered upon the single one of the seven weekly trips upon the second route was more than 50 per cent of the aggregate sum named in the original contract. The interpretation on which the last order is based assumes that Congress intended to leave with the Postmaster-General the power to exact from a contractor seven times the service stipulated in the contract as originally let, and to allow but 50 per cent compensation on the amount named in that contract. The construction contended for by the appellant is in harmony with the previous legisla [36] [75] [76] tion on the subject, and the established policy | his heirs and assigns, in fee simple, certain real As to so much of the demand as is claimed In the petition to be due to the petitioner under the contracts, and as to the 50 per cent of one month's extra pay, we hold and decide that the Court of Claims erred in sustaining the de murrer. But with regard to the claim for the amount deducted as forfeitures imposed by the Postmaster-General, because the contractor failed to cause the mail to be carried between the termini within the time prescribed, it is considered that these forfeitures were made by virtue of the power conferred upon the Postmaster-General by the statutes, and also recognized by the terms of the contracts to be within his discretion, and are not subject to review by this court. Chicago M. & St. P. R. Co. v. United States, 127 U. S. 406, 407 [32: 180]; Eastern R. Co. v. United States, 129 U. S. 391, 396 [32: 730, 732]. As far as the claim for the deduction of the amount of these forfeitures is concerned, the demurrer was properly sustained. The judgment is reversed, and the case remanded for action in accordance with the principles of this decision. WALLACE DOUGLASS, Plff. in Err., v. CHARLES W. LEWIS ET UX. (See S. C. Reporter's ed. 75-88.) Covenant in deed-construction of statute-corenants of warranty and seisin. estate," describing it, and then continued, “and the defendants did by their said deed, for themselves, their heirs and personal representatives, covenant with the plaintiff, his heirs and assigns, amongst other things, that at the time of the making, ensealing, and delivery of said deed, and at the time of the execution of said conveyance,' they, the said defendants, were lawfully seised of an indefeasible estate, and in possession of a title in fee simple in and to the said property, and then had good right and full power to convey the same. Nevertheless, plaintiff avers that the said tract of land in said deed described, and by said defendants bargained and sold to said plaintiff, was not the property of said defendants, and at the time of the making and delivery of said deed they, the said defendants, were not lawfully seised of an indefeasible estate in fee simple in and to said real estate, nor had they then good right and full power to convey the same, but, on the contrary thereof, the Government of the United States had, at the time of the making and delivery of said deed, and still has, lawful right and title to said real estate; and plaintiff avers that in consideration of the conveyance and sale of said lands in said deed described and set forth, he paid to said defendants the sum of five thousand three hundred and thirty-three dollars and thirty-three cents ($5,333.33); that he, said plaintiff, has further expended and laid out large sums of money in building houses upon and improving said land, to wit, four thousand dollars ($4,000); and so the plaintiff says that they, said defendants, have not kept the said covenants according to the true intent and meaning of said deed, and according to the statute in such case made and provided, but have broken the same, to the damage of plaintiff in the sum of ten thousand 1. The introduction into a deed of an express cov-dollars ($10,000).' 2. The words of a deed are to be taken most " Profert of the deed was made by the declaration, and defendants filed a demurrer, October 1, 1883, craving oyer of the condition of the said deed and covenant, which being read and heard, they insisted that the declaration and the matters therein contained, etc., were [77] insufficient in law. Pleas were also filed alleging that the deed was not defendants' deed; denying that the defendants covenanted with the plaintiff that they were lawfully seised; and averring that it was not true that they had not kept their covenants. Subsequently, and Argued April 3, 1889. Decided May 13, 1889. on the 19th day of October, an amended spe 8. The covenant of warranty and that of seisin or [No. 226.] IN ERROR to the Supreme Court of the Ter Statement by Mr. Chief Justice Fuller: cial demurrer to the declaration was filed, averring "that the said deed upon in contand [78] ought not to have and maintain his said ac- | verdict. The case was carried by appeal to This, upon argument, was overruled November 3, 1883, the District Judge filing his opinion thereon January 8, 1884, which thus concludes: "In the case at bar I am of opinion that the express covenant of warranty is independent of the covenant of seisin implied by the statute, and that an action may be maintained upon the latter, and can only be met by plea and proof of good title in the grantor at the time of the execution of the deed." On the 16th of May, 1884, the defendants filed two pleas, alleging, in the first, that at the time of making the deed the grantors were seised and possessed of the said real estate, with full power and authority to convey according to the effect of the deed; and, in the second, that at the time of making the said deed the grantors "were lawfully seised of an indefeasible estate and in possession of a title in fee simple in and to the said real property, and then had good right and full power to convey the same" according to the form and effect of said deed. The plaintiff demurred to the first of these pleas, the court sustained the demurrer, and the case went to trial on the issue made up on the second plea. Evidence was given on behalf of the plaintiff tending to show that the United States had assumed ownership and control over all the land in controversy and had disposed of a portion of the same, and that the defendants claimed that the land had been granted by Spain or Mexico to one Sandoval, who devised it to one of his relatives, from whom it had descended to the grantor of defendant Lewis, but that the claim of Sandoval had never been presented to any tribunal or officer of the United States for adjudication. All the documentary evidences of title offered on defendants' behalf, except the will of Sandoval and papers relating thereto, bore date in 1879 or subsequent thereto. The oral testimony tended to show that Sandoval and his descendants were in possession of the land for a number of years, probably from the date of the Treaty of Guadalupe Hidalgo. the supreme court of the Territory, which Messrs. J. H. McGowan and C. W. Hol- The warranty found in the deed does not exclude the statutory covenants, but these must be considered as express covenants, having the same effect as though written in full in the instrument. Alexander v. Schreiber, 10 Mo. 460; Browning v. Wright, 2 Bos. & P. 14; Howell v. Richards, 11 East, 633; Bender v. Fromberger, 4 U. S. 4 Dall. 436 (1: 898); Funk v. Voneida, 11 Serg. & R. 109; Brown v. Tomlinson, 2 Greene (Iowa) 525; Hesse v. Stevenson, 3 Bos. & P. 565; Gainsford v. Griffith, 1 Saund. 59; Smith v. Compton, 3 Barn. & Ad. 189; Roebuck v. Dupuy, 2 Ala. 535; Gates v. Caldwell, 7 Mass. 68; Carver v. Louthain, 38 Ind. 530; Kent v. Cantrall, 44 Ind. 452; Bush v. Person, 59 U. S. 18 How. 82 (15 : 273). The statutory covenant of seisin is a general Browning v. Wright, 2 Bos. & P. 13; Du The covenant of seisin is broken, if at all, as King v. Gilson, 32 Ill. 348; Ross v. Turner, 7 Ark. 132; Abbott v. Allen, 14 Johns. 248; Moore v. Merrill, 17 N. H. 75; Logan v. Moul der, 1 Ark. 313. Messrs. Samuel Shellabarger and J. M. Plaintiff admitted that he was put into pos- [79] Mr. Chief Justice Fuller delivered the opin- [80] Assuming that defendants in error failed to sustain their plea that they "were lawfully seised of an indefeasible estate, and in possession of a title in fee simple in and to the said real property, and then had good right and full power to convey the same," counsel for plaintiff in error state their position "in the following propositions: 1. The covenant of warranty which is found written in the deed does not exclude the statutory covenants; | of the execution of such deed seised of the these latter must be considered as express hereditaments and premises thereby granted, [81] covenants, having the same effect as though bargained, and sold, of an indefeasible estate written out in full in the instrument of con- in fee simple, free from all incumbrances (rent veyance. 2. The statutory covenant of sei- and services due to the lord of the fee only exsin is a general covenant, unlimited by any cepted), and for quiet enjoyment thereof restrictive words found in the second statutory against the bargainor, his heirs and assigns, covenant. 3. The covenant of seisin is broken, and all claiming under him, and also for furif at all, as soon as it is made. 4. The plaintiff ther assurance thereof to be made by the bar. is only required to declare its breach, and need gainor, his heirs and assigns, and all claiming neither aver eviction or damages. 5. The bur- under him, unless the same shall be restrained den of proof is on defendant. 6. The measure and limited by express particular words conof damages is the purchase money and in-tained in such deed; and that the bargainee, his heirs, executors, administrators, and assigns, respectively, shall and may, in any action to be brought, assign a breach or breaches thereupon, as they might do in case such covenants were expressly inserted in such bargain and sale." [82] terest." The defendants in error by their deed entered The language used is somewhat ambiguous, arising, as the Supreme Court of the Territory informs us, from the section having been orig, inally enacted in Spanish from English and then retranslated, but we are content with the view of that court that "hereditary real estate means real estate of inheritance, and "possessed of an irrevocable possession in fee simple means seised of an indefeasible estate in fee simple. At common law, in the transfer of estates of freehold by deed, a warranty was implied from the word of feoffment, dedi, and from no other word; and from words of bargain and sale merely no covenant was implied in any case. In 1707, the Statute of 6 Anne, chap. 35, was enacted, of which the 30th section is as follows: "In all deeds of bargain and sale hereafter enrolled in pursuance of this Act, whereby any estate of inheritance in fee simple is limited to the bargainee and his heirs, the words 'grant, bargain and sell' shall amount to, and be construed and adjudged in all courts of judicature to be, express covenants to the bargainee and his heirs and assigns, from the bargainor for himself, his heirs, executors and administrators, that the bargainor, notwith standing any act done by him, was at the time And in 1715 an Act was passed by the "All deeds to be recorded in pursuance of ་ In Gratz v. Ewalt, 2 Binney, 98, the con struction of this statute was carefully consid ered, and Tilghman, C. J., in delivering the opinion, said: "The meaning is not clearly expressed; but I take it to be a covenant. that the estate was indefeasible as to any act of the grantor. For if it was intended that the covenant should be that the grantor was seised of an estate absolutely indefeasible, it was improper to add the subsequent words freed from incumbrance done or suffered by him.' The words 'seised of an indefeasible estate in fee simple' are to be considered, therefore, as not standing alone, but in connection with the words next following, freed from incumbrances done or suffered from the grantor.' I am the more convinced that this was the intention of the Legislature, by comparing the expressions in this Act with the 30th section of the Statute of 6 Anne, chap. 35, which contains provisions on the same subject, and was evidently in the eye of the persons who framed our law. The British statute makes use of more words, and the intention is more clearly expressed. It declares that the words 'grant, bargain and sell' shall amount to a covenant that the bargainor, notwithstanding any act done by him, was at the time of the execution of the deed seised of an indefeasible estate in fee simple, etc. Our law seems intended to express the substance of the British statute in fewer words, and has fallen into a degree of obscurity, which is often the consequence of [83] [84] [85] attempting brevity. I can conceive no good The Statute of Anne, the Pennsylvania Act, The provision upon this subject in the stat- The language of the statute of Missouri (Gen. conceded that a special covenant will restrain It appears to us, however, that where the Apart from this, as the statute in vests the ticular words are only intended to be operative "The words 'grant,' 'bargain' and 'sell,' in And the Supreme Court of Missouri, in Al exander v. Schreiber, supra, after citing many cases holding that where a deed contains a limited covenant that the premises are free from incumbrances, and also a general covenant of warranty, the one does not limit the other, thus proceeds: "It is apparent from these cases, to which we have briefly referred, that whilst it is Mr. Justice Walker, speaking for the court, [86] |