United States Court of Appeals for the Federal Circuit 

05-5052 

JACOBS ENGINEERING GROUP, INC., 

 Plaintiff-Appellant, 

v. 

UNITED STATES, 

 Defendant-Appellee. 

Robert J. Symon, Spriggs & Hollingsworth, of Washington, DC, argued for 

plaintiff-appellant. 

James W. Poirier, Trial Attorney, Commercial Litigation Branch, Civil Division, 

United States Department of Justice, of Washington, DC, argued for defendantappellee. With him on the brief were Peter D. Keisler, Assistant Attorney General and 

David M. Cohen, Director. 

Appealed from: United States Court of Federal Claims 

Judge George W. Miller 
United States Court of Appeals for the Federal Circuit 

05-5052 

JACOBS ENGINEERING GROUP, INC., 

Plaintiff-Appellant, 

v. 

UNITED STATES, 

 Defendant-Appellee. 

______________________________ 

 DECIDED: January 19, 2006 

______________________________ 

Before MAYER, Circuit Judge, FRIEDMAN, Senior Circuit Judge, and BRYSON, Circuit 

Judge. 

FRIEDMAN, Senior Circuit Judge. 

 A development and construction contract required the government to reimburse 

the contractor for 80 percent of its cost of performing the contract. The contract’s 

termination-for-the-convenience-of-the-government clause (“termination clause”) 

required the government upon such termination to pay the contractor “[a]ll costs 

reimbursable” under the contract. See 48 C.F.R. § 52.249-6(g); Jacobs Eng’g Group, 

Inc. v. United States, 63 Fed. Cl. 451, 455 (2005) (trial court decision). The question is 

whether, when the government so terminated the contract, it was required to reimburse 

the contractor for all of the costs the contractor incurred up to that point or only for 80 

percent of them. Reversing the United States Court of Federal Claims, we hold that the 

contractor may recover all of its cost, rather than 80 percent. 
I 

The government entered into a contract with Jacobs Engineering Group, Inc. 

(“Jacobs”)’ predecessor (whose contract Jacobs took over when it acquired the 

predecessor) to develop, design, fabricate, construct, and install a gasification 

improvement facility. No fee was payable to the contractor, but the contract contained 

the following cost sharing provision covering the “total estimated cost for the work” of 

$28,750,375: 

Cost Sharing. The Contractor and the Government agree to 

share the cost of the effort for Phase I and Phase II as 

follows: 

 Government Contractor Total

 (80%) (20%) (100%)

Phase I $19,850,784 $4,962,696 $24,813,480 

Phase II 3,149,515 787,379 3,936,894 

Total $23,000,299 $5,750,075* $28,750,374 

*Includes foregone fee in the amount of $1,181,594 for 

Phase I and $169,531 for Phase II. 

The contract further provided that if the contracting officer approved a cost 

overrun, the contractor’s share would be 20 percent. 

The contract also contained a standard termination for convenience clause, 

Federal Acquisition Regulation (“FAR”) § 52.249-6 (May 1986), which authorized the 

government to “terminate performance of work [if] [t]he Contracting Officer determines 

that a termination is in the Government’s interest.” If that occurred, the government was 

required to pay the contractor “[a]ll costs reimbursable under this contract, not 

previously paid, for the performance of this contract before the effective date of the 

termination, and part of those costs that may continue for a reasonable time with the 

05-5052 2
approval of or as directed by the Contracting Officer.” FAR § 52.249-6(g)(1) (May 

1986). 

The contract also authorized the contractor to discontinue the project after Phase 

I was completed unless it received what it deemed “adequate cost sharing and . . . an 

advanced patent waiver.” If the contractor did so, it would “be liable for 20% of the 

costs incurred during the performance period.”

During performance, the government terminated the contract for its convenience 

(because it did not have funds to complete performance). Jacobs submitted a 

termination settlement proposal which sought reimbursement of 100 percent of its costs, 

which the government rejected. The contracting officer then rejected Jacobs’ claim for 

recovery of all of its costs, limiting recovery to 80 percent. Jacobs challenged that 

decision in the United States Court of Federal Claims. 

On cross-motion for summary judgment, the court granted the government’s 

motion and entered a judgment on its behalf. 63 Fed. Cl. at 459. The court stated: 

The termination clause does not invalidate the cost-sharing 

provision of the Contract. Rather, it clearly seeks to fashion 

a remedy for the contractor in conjunction with the costsharing provisions. Thus, only those costs that would be 

reimbursed under the Contract will be paid to the contractor 

in the event of a termination for convenience. Here 80 

percent of Jacobs’s costs were reimbursable under the costsharing provision and therefore, under the termination for 

convenience clause, Jacobs is entitled to only 80 percent of 

its costs not previously paid. 

Id. At 457 (emphasis in original) (citations omitted). 

II 

The termination clause required the government, upon terminating the contract, 

to pay the contractor “[a]ll costs reimbursable under this contract.” The government 

05-5052 3
contends, as the Court of Federal Claims held, that since the contract required it to 

reimburse the contractor for only 80 percent of the costs, its payment under the 

termination clause is limited to 80 percent of the costs. We conclude, however, that the 

term “all costs reimbursable” defines the type or kind of costs for which the contract 

provides reimbursement and not the amount of such costs. 

The contract specifies a substantial number of costs that are reimbursable and 

some that are not. Reimbursable costs include “fabricated or unfabricated, parts, work 

in process, completed work, supplies, and other materials procured or acquired for the 

work terminated, . . . completed or partially completed plans, drawings, information, and 

other property that . . . would be required to be furnished to the Government, . . . and 

the jigs, dies, fixtures, and other special tools and tooling acquired or manufactured for 

this contract.” FAR § 52.249-6(c)(6) (May 1986). They also include costs allowable 

under FAR § 31.2 (see FAR § 52.249-6(h) (May 2004)), such as labor relations costs 

(FAR § 31.205-21), plant protection costs (FAR § 31.205-29), and help-wanted 

advertising costs for jobs specific to the project (FAR § 31.205-34(a)(1)). On the other 

hand, entertainment costs (FAR § 31.205-14), fines and penalties (FAR § 31.205-15), 

and general help-wanted advertisement costs (FAR § 31.205-34(b)) are not 

reimbursable. The termination clause’s reference to “all costs reimbursable” under the 

contract appears designed to incorporate the contract’s division between reimbursable 

and non-reimbursable costs. 

Throughout the contract, when the parties intended the 80 percent – 20 percent 

division of costs to cover particular situations, they explicitly so provided. The table 

shown above specified the amount of the costs for each phase of the contract that each 

05-5052 4
party would bear. If the contractor terminated performance after Phase I was 

completed, it would “be liable for 20% of the costs incurred during the performance 

period.” If there was an approved cost overrun, the contractor was required to absorb 

20 percent of it. 

In these circumstances, it seems most unlikely that if the parties had intended the 

termination clause to limit the contractor to 80 percent of the termination costs, they 

would not have said so instead of providing that the government would pay “[a]ll costs 

reimbursable” under the contract. We cannot read the latter phrase covering “all” 

reimbursable costs to mean 80 percent of such costs. In any event, to the extent there 

is an ambiguity on the point, it must be resolved in favor of Jacobs, the non-drafter of 

the contract. 

Our conclusion also accords with the basic financial situation underlying the 

contract. FAR § 16.303(b) states that “[a] cost-sharing contract may be used when the 

contractor agrees to absorb a portion of the costs, in the expectation of substantial 

compensating benefits.” If the contract had been completely performed at an estimated 

cost of more than $28 million, the government’s reimbursement of only 80 percent of 

that amount presumably would have resulted in a substantial loss to the contractor. 

Jacobs tells us in its brief that the reason the contractor entered into such a seemingly 

unattractive venture was the anticipation that as a result of its performance, it would 

obtain valuable patent rights, to which the contract referred.

As a result of the government’s termination of the contract, Jacobs was denied 

the opportunity to obtain such patent rights. In these circumstances, it seems unfair to 

Jacobs to deny it full reimbursement for the costs of its performance up to the 

05-5052 5
government’s contract termination, which thwarted its possibility of obtaining the patent 

rights. “A contractor is not supposed to suffer as the result of a termination for 

convenience of the Government, nor to underwrite the Government’s decision to 

terminate. If he has actually incurred costs . . . , it is proper that he be reimbursed 

those costs when the Government terminates for convenience and thereby custs [sic] 

off his ability to amortize those costs completely.” In re Kasler Elec. Co., DOTCAB 

1425, 84-2 BCA ¶ 17374 (May 21, 1984). 

CONCLUSION 

The judgment of the Court of Federal Claims is reversed and the case is 

remanded to that court to award damages. 

REVERSED AND REMANDED. 

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