A public authority whose project costs are reimbursed by another government entity is not thereby disentitled from including a liquidated damages clause in a construction contract; the test of disproportionality applies equally to public and private institutions. Loss of public utility, interest on capital, and diversion of resources are all relevant components of the greatest conceivable loss when assessing whether a liquidated damages clause in a public works contract is a penalty. The objective test requires comparison of the stipulated sum as a whole with the greatest conceivable loss, not subjective analysis of the individual components of the estimate.
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