Shaw v. AAA Engineering & Drafting, Inc.

F I L E D
United States Court of Appeals
Tenth Circuit
PUBLISH
MAY 18 2000
UNITED STATES COURT OF APPEALS
PATRICK FISHER
Clerk
TENTH CIRCUIT

DEBRA A. SHAW,

Plaintiff-Appellee,

v.

AAA ENGINEERING & DRAFTING,
INC., a Utah corporation; WILBUR L.
No. 97-6265
BRAKHAGE, Supervisor; JANICE
& 97-6266
KELLIN,

Defendants-Appellants.

UNITED STATES OF AMERICA,

Amicus Curiae.

Appeal from the United States District Court
for the W. District of Oklahoma
(D.C. No. 95-CV-950-M)
(D.C. No. 95-CV-951-M)

John B. Hayes, of Hayes & Magrini, Oklahoma City, Oklahoma, for Defendants-
Appellants.

Marilyn D. Barringer, Oklahoma City, Oklahoma, for Plaintiff-Appellee.

Matthew M. Collette, (Douglas N. Letter, with him on the brief), Appellate Staff,
Civil Division, Department of Justice, Washington, D.C., for Amicus Curiae.
Before HENRY, and MURPHY, Circuit Judges, and KIMBALL, *

MURPHY, Circuit Judge.

I. INTRODUCTION

One of these consolidated cases is a qui tam action brought under the False

Claims Act (“FCA”), 31 U.S.C. §§ 3729-33. Plaintiff Debra Shaw is the relator,

suing her former employer on behalf of the United States Government for

submitting false claims pursuant to a government contract. See 31 U.S.C. §

3729(a)(1)-(2). Specifically, Shaw claimed that Defendants had recorded falsely

inflated numbers on official work orders and then used these work orders to

support an equitable adjustment claim. Shaw also asserted that Defendants failed

to recover silver from photo laboratory chemicals as required by the contract. In

the other case, Shaw filed suit on her own behalf under the wrongful termination

provision of the FCA, 31 U.S.C. § 3730(h). She also filed a pendant Oklahoma

wrongful discharge claim. In these claims, Shaw asserted she was terminated in

*
Honorable Dale A. Kimball, District Judge, United States District Court
for the District of Utah, sitting by designation.

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retaliation for reporting Defendants’ fraudulent activities to U.S. government

officials at TAFB.

Defendants AAA Engineering & Drafting, Inc. (“AAA”), Wilbur Brakhage,

and Janice Keelin, now Keelin-Lowe, (collectively “Defendants”) appeal from a

judgment based on a jury verdict in Shaw’s favor on all claims. Defendants raise

the following issues on appeal: 1) whether the district court erred in denying

Defendants’ Rule 50 motions for judgment as a matter of law on Shaw’s FCA qui

tam claim that Defendants submitted false claims to the U.S. government; 2)

whether the district court erroneously denied Defendants’ Rule 50 motions on

Shaw’s FCA claim that she was terminated for her actions in furtherance of the

FCA; 3) whether the district court erred in denying Defendants’ Rule 50 motions

on Shaw’s Oklahoma public policy wrongful discharge claim; and 4) whether the

district court erred in receiving certain evidence. This court exercises jurisdiction

pursuant to 28 U.S.C. § 1291 and affirms the judgment based on the qui tam

action and the FCA wrongful discharge action, but reverses that part of the

judgment premised on the Oklahoma wrongful discharge claim.

II. FACTUAL AND PROCEDURAL BACKGROUND

A. The Contract

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 In April 1993, Defendant AAA was awarded a government contract (the

“contract”) to perform photography services at Tinker Air Force Base (“TAFB”)

in Oklahoma. 1 AAA’s duties under the contract included taking official Air Force

studio photographs, taking passport photographs, providing a photo-journalist to

photograph newsworthy events at TAFB, providing an on-call photographer to

assist in TAFB law enforcement investigations, and developing photographs for

TAFB personnel. Studio photography and most photography development was

performed at TAFB’s main photography laboratory (the “main lab”).

Additionally, the contract required AAA to provide photography services at the

metallurgical laboratory (the “met lab”), where AAA photographers assisted Air

Force engineers by taking and developing detailed, technical photographs of

failed aircraft parts.

When AAA began performance of the contract, it hired several employees

of the preceding contractor, including Shaw. Shaw had been employed by

photography service contractors at TAFB continuously since October 1980.

During her employment with AAA, Shaw worked primarily as a photographer in

the met lab.

B. Work Orders and the Request for an Equitable Adjustment

1
Defendant Brakhage was AAA’s project manger at TAFB until June 9,
1993. Defendant Keelin-Lowe was AAA’s branch manager during the contracting
period.

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 1. Work Orders and the Government’s Surveillance Under the Contract

The contract required AAA to prepare work orders, form number 833, for

all the work it performed under the contract. When a customer initially requested

photography products or services, a work order would be generated. The

customer would record on the work order the type and number of photographs or

other products she was requesting and any materials, such as negatives, which

she was providing. The work order would be assigned a number for tracking

purposes (the “tracking number”), and the AAA employee responsible for the

work order would record the work necessary to complete the customer’s order. A

priority level 2 would be assigned to the work and, if necessary, the work order

would be routed through the government Quality Assurance Evaluator’s (“QAE”)

office for pre-approval. 3

An AAA employee would then perform the work and record matters such

as the number of exposures taken, the amount of film developed, and how many

pictures resulted. The finished products would then be packaged together with

2
If a work order required faster processing than was normally required, it
would be designated Priority One. For example, black and white photography
development normally was required to be completed in three days, but if it was a
Priority One work order, the required completion time was four hours.
3
The QAE reviewed AAA’s work on a day-to-day basis to ensure that AAA
complied with the contract. The chief QAE under the AAA contract was Brenda
Coil; the assistant QAE was Marianne Griffeth. Only some types of work, for
example Priority One work, required QAE pre-approval.

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the work order. The government QAE would then have the opportunity to review

the work order and the final products, after which the QAE would return the

work order and products to AAA. After the customer picked up the finished

products, the AAA employee would record the type and amount of products

actually delivered to the customer.

AAA would temporarily retain the work orders, grouping them numerically

and by function. The numbers recorded on the work orders were tallied monthly

and the results printed in monthly production reports which AAA was required to

submit to the government under the contract. The work orders would then be

returned to the QAE monthly where they then remained.

In addition to being the organizational mechanism for recording and

tracking photography service orders, the work orders also assisted the government

employees who monitored AAA’s performance. QAE Brenda Coil testified,

however, that pursuant to the contract she would only inspect a portion of AAA’s

finished production through a method called random surveillance. Random

surveillance was performed in the following manner: at the end of each month, a

computer program provided Coil with a randomly-generated list of the tracking

numbers for the work orders she should inspect during the following month. If

the tracking number was on her list, she would then compare the information

recorded on the work order with the final product to determine whether the work

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was performed timely and in compliance with the customer’s request. She would

also inspect the photographs, negatives, or other final products individually to

determine whether the quality of the work was acceptable. 4

2. The Equitable Adjustment

The contract originally required AAA to perform photography services for

six months from April through September 1993, but it was later extended through

December 1993. The contract called for a fixed monthly payment of $23,240.

There were some circumstances, however, under which AAA’s payment could be

decreased or increased.

The way AAA could receive an increase in payment was by requesting an

equitable adjustment. AAA could receive such an adjustment if it performed

more work than was contemplated by the government at the time the contract was

signed. Technical Exhibit Two to the contract specified the government’s

estimate of the amount of work AAA would be required to perform for specific

tasks. If in the course of its performance AAA believed it was performing more

work than indicated in the government’s estimates, it could seek an equitable

adjustment. Because the numbers recorded on the work orders should reflect the

4
The random surveillance method was only utilized to review some types of
work performed under the contract, such as studio photography and color printing
services. Compliance with some contract requirements, for example the
timeliness of an on-call photographer, was monitored simply through the
presence or absence of customer complaints.

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exact amount of work AAA had performed, in order to pursue an equitable

adjustment AAA would need to calculate the total of the numbers recorded in the

amount produced and amount delivered sections of those forms (the “production

quantity sections”). If this total exceeded the government’s previous production

quantity estimates, AAA could use the work orders to support a claim for an

equitable adjustment.

Indeed, on June 21, 1993, AAA complained in a letter to the government

contracting officer (“CO”) Steve Hammond that it had performed work in excess

of that estimated by the government and thus requested an equitable adjustment.

AAA first specifically linked this request to the work orders at a meeting with the

government on June 30, 1993. At this meeting, AAA’s president distributed a

handout indicating that AAA’s workload had exceeded the government’s

production estimates by an average of 31% per month during the first three

months of the contract. AAA continued to claim that it was performing work in

excess of the government’s estimates throughout the contracting period. In

January 1994, after the contracting period ended, AAA claimed that it had

performed more work than the government’s estimates in almost every category of

work under the contract.

AAA originally claimed it was entitled to an equitable adjustment of

$184,872 for the first six months of the contracting period. Because the requested

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equitable adjustment was greater than $100,000, AAA was required to certify the

claim. AAA’s President did so in a letter to the government which stated:

I certify that this claim for equitable adjustment in the
amount of $184,872 is made in good faith, the
supporting data is accurate and complete to the best of
my knowledge, and that the amount to which I believe
AAA is entitled accurately reflects the contract
adjustment for which I believe the government is liable.

AAA later adjusted its claim to include expenses allegedly incurred for excess

work performed during the last three months of the contract. The adjusted claim

was for $248,410.15, and AAA issued a new certification based on this amount. 5

In the hope of reaching an agreement on the equitable adjustment claim, the

two sides agreed in early 1994 that AAA representatives and government

representatives would together count the production quantities recorded on the

work orders (the “joint count”), starting with work orders completed at the

beginning of the contract. In spite of this agreement, however, the attempt to

make the count a joint effort soon failed. After the first day, AAA employees

and the government QAEs separated and conducted two distinct production

quantity counts. QAE Marianne Griffeth counted on behalf of the government

and Garbutt counted on behalf of AAA. The matters on which the two sides

disagreed continued to be set aside for an ultimate determination by the CO.

5
The new certification differed from the original only in the amount of the
claim.

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 Despite the disagreements which arose at the joint count, the government

QAEs did not then suspect that the production quantities recorded on the work

orders might have been falsely inflated. QAE Griffeth was not instructed to

examine the work orders to determine if there was evidence that AAA had falsely

inflated its workload, and she did not report any problems of that kind.

Additionally, Garbutt testified that the disagreements concerned only whether

certain work should have been included on the work orders even if it was

performed. Thus, at the time of the joint count, no one questioned whether the

production quantities recorded on the work orders had been falsely inflated, either

when they were originally completed or through subsequent alteration by AAA

employees.

In addition to conducting its own count, the government requested

assistance in evaluating AAA’s equitable adjustment claim from the Defense

Contract Audit Agency (“DCAA”). DCAA examined AAA’s general financial

records but did not examine the work orders. DCAA determined that AAA’s

equitable adjustment claim was computed by subtracting the total contract

payments from its claimed total contract costs. As a consequence, DCAA

concluded that AAA’s calculation did not account for its own possible

inefficiencies in performing the contract. AAA responded that there was no

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inefficiency on its part and that the government’s estimated workload figures

were simply inaccurate.

After the production quantity counts, the DCAA audit, and further

communication between AAA and the government COs, the government offered

to settle AAA’s equitable adjustment claim for $78,190. The government

estimated that if AAA had hired one-and-a-half more employees at the beginning

of the contract, it would have been able to timely complete the quantity of work

reflected in the production quantity sections of the work orders. The

government’s settlement offer thus roughly equaled the salary of one-and-a-half

additional employees for the duration of the contract. AAA eventually invoiced

the government for and received the $78,190 as an equitable adjustment. 6 At the

time of the settlement offer, the government COs and QAEs still did not suspect

that information submitted by AAA on the work orders were falsified to make it

appear as if AAA had completed more work than it had in fact performed. CO

Hammond testified that if the government had known the work orders were

falsely inflated, it would not have settled the equitable adjustment claim.

3. The Work Orders Admitted at Trial

6
AAA then appealed to the Armed Services Board of Contract Appeals
(ASBCA), arguing the settlement was insufficient. The ASBCA case was pending
at the time of oral argument in the present appeal. See generally Appeals of AAA
Engineering & Drafting, Inc., 1999 WL 427880 (A.S.B.C.A.) (denying the
government’s motion to dismiss for reasons unrelated to the present appeal).

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 Prior to trial, it was discovered that some numbers recorded in the

production quantity sections of the forms had been visibly altered, and that these

and other numbers may have been falsely inflated. Nearly eighty of such work

orders were admitted at trial. There were various problems with these work

orders. On at least thirteen work orders, the number of prints ordered or the

number of prints delivered were visibly altered. Additionally, some products

were delivered to the customer without QAE review, which means the work order

and resulting products were never sent to the QAE for her to determine if the

work order tracking number was included on the QAE’s random surveillance list.

Other work orders displayed mathematical inconsistencies. For example, on one

work order the customer requested six prints of three negatives, for a total of

eighteen prints, but the work order showed that eighty-four prints had been

delivered to the customer.

There was additional evidence which placed the production quantities

recorded on the work orders in doubt. Shaw testified that three work orders

which she had originally inspected had been visibly altered with inflated numbers.

Former AAA photographer Larry Smith also identified three of his work orders

which had been subsequently altered by someone else. Additionally, Sharon Bass,

a former AAA employee, testified that at one point during the contract Brakhage

directed AAA employees to “make the numbers higher,” and that the employees

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complied with that directive. According to Bass, Brakhage’s stated reason for

this directive was that he wanted to include test prints in the count, even though

these test prints were not requested by or delivered to the customer. Both Smith

and Bass testified that on another occasion, Brakhage directed employees to leave

portions of the work order forms blank and said that he would complete the

quantity produced and quantity delivered to the customer sections himself.

C. Silver Recovery

Silver recovery is the process by which trace silver is removed from film

processing solution, also known as fixer. During the photography development

process, fixer is used to remove silver from film; the silver then leeches into the

now-used fixer. The silver has to be removed before the used fixer can be safely

disposed of in an ordinary drain. A silver recovery machine is used to separate

the silver from the used fixer; this process is known as silver recovery. The

recovered silver may then be sold and the used fixer disposed of in an ordinary

drain. Under the contract, AAA was required to provide the equipment necessary

for silver recovery and was required to dispose of the used fixer and other

chemicals in accordance with Environmental Protection Agency (“EPA”)

guidelines and standards. 7

7
The contract’s Performance Work Summary, § C-4, Para. 4.1.2, provides:
Precious Metal Recovery Equipment. The contractor is
required to provide any precious metal recovery
(continued...)

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 Shaw testified that in mid-April, 1993, she asked her supervisor, Brakhage,

for containers to store used fixer until silver recovery could be accomplished and

that Brakhage responded, “[W]e’re not going to mess with that, just dump it.”

Shaw further testified that when she continued questioning Brakhage, he replied

“just dump it down the drain, we’re not going to mess with it.” Shaw discussed

Brakhage’s directive with her assistant photographer in the met lab, Sharon

Massegee-Thrower. Massegee-Thrower felt they were at risk to be terminated and

should do as instructed. Shaw was uncertain, and she left the met lab to find

containers for the used fixer. When she returned, Massegee-Thrower was pouring

the used fixer down the drain. Shaw stopped her, and they argued. Shaw then

called and informed QAE Coil that Brakhage directed her to pour the used fixer

down the drain. Coil later reported this to CO Hammond.

There was also testimony of at least two additional instances when

Brakhage directed employees to dispose of used fixer in the drain, three instances

when employees were observed using the drain for used fixer disposal, and two

7
(...continued)
equipment deemed necessary for proper disposal and/or
recovery of precious metals/chemicals. All recovery
disposal shall be accomplished by the contractor with all
recovered materials remaining the property of the
contractor. Contractor shall dispose of chemicals in
accordance with EPA guidelines and standards.
Section C-5, Para. 5.9 also states: “The contractor shall establish a Precious
Metals Recovery Program, to comply with Environmental Protection Agency
requirements.”

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instances when fixer residue was observed in lab sinks. Throughout this time, the

government questioned AAA about silver recovery. After CO Hammond learned

there was a problem, he mentioned the lack of silver recovery equipment in the

photography labs at a meeting with AAA’s managers. CO Hammond testified that

Keelin-Lowe responded, “[B]e patient, we’re trying our best to get everything

worked out and . . . we plan on having it.” When Hammond mentioned the lack

of silver recovery equipment to Keelin-Lowe again in May or June 1993, he

testified her response was the same. Additionally, on more than one occasion

QAE Coil asked Brakhage what AAA was doing to accomplish silver recovery.

Coil testified that Brakhage initially responded to her inquiry by saying “We’re

working on it.” Later, however, he responded, “[Y]ou don’t want to know.”

Eventually, Brakhage would not respond to Coil’s inquires at all.

Prompted by allegations that chemicals had been improperly poured down

the drain, the Office of Special Investigation inspected and temporarily closed the

main lab in July 1993. AAA first installed a silver recovery unit in the main

photo lab after this inspection. Massagee-Thrower testified that shortly after the

inspection, Mike McCurry, AAA’s project manager at the time, told her that AAA

was in trouble because of its failure to practice silver recovery. Massegee-

Thrower further testified that McCurry instructed her to deny improper disposal

of used fixer if questioned by government employees. According to the

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testimony, when Massegee-Thrower responded that this would be a lie, McCurry

replied, “I know it is, but I just talked to [Keelin-Lowe] and we were told to say

that . . . . I lied and you better, too, if you know what’s good for you.”

D. Retaliation

QAE Coil testified that on May 14, 1993, Brakhage told her he felt like

Keelin-Lowe “really had it in for [Shaw] and [Massegee-Thrower] and that

anything to do with silver recovery. . . she would probably pin on them in an

effort to get rid of them.” Coil further testified that on June 2, 1993, Brakhage

told her “people like Debra Shaw who complain too much . . . could not be

tolerated by [Keelin-Lowe].” Brakhage elaborated that Shaw was “always

bitching about silver recovery and paper chemicals, etc.” Coil then testified, “I

told Mr. Brakhage that Debra Shaw told me that when she asked what to do about

the [used fixer], she was told to put it down the drain. He didn’t say anything.

He just walked away from me angry, mad at me.” (emphasis added)

Shaw was terminated by AAA on June 23, 1993. According to the

testimony of two AAA employees, immediately after firing Shaw, Keelin-Lowe’s

assistant Beth Snyder-Hurley told them she had “fired that troublemaker.” Shaw

remained unemployed for approximately six months before being hired by AAA’s

successor at TAFB. Shaw also lost some employment benefits as a result of the

interruption of her years of service at TAFB.

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E. Procedural History

At the close of Shaw’s evidence and again at the close of all the evidence,

Defendants moved for judgment as a matter of law under Federal Rule of Civil

Procedure 50(a). 8 Defendants argued 1) there was insufficient evidence to

support Shaw’s qui tam claims based on the work orders; 2) the failure to recover

silver in violation of the contract could not, as a matter of law, be the basis for an

FCA action; 3) Shaw had not satisfied the elements of a retaliation claim under

the FCA; and 4) Shaw failed to demonstrate that her termination violated any

Oklahoma public policy.

These motions were denied and the case went to the jury, which found each

defendant liable for three false claims under the FCA and found total actual

damages of $4900. The jury also found that defendant AAA discharged Shaw

because of her lawful acts in furtherance of an FCA lawsuit and in violation of

Oklahoma public policy. The jury awarded Shaw $100,000 in compensatory

8
At the close of Shaw’s case-in-chief, Defendants moved for a dismissal of
Shaw’s claims based on insufficient evidence, and this motion was incorporated
by reference at the close of all the evidence. In addition, Defendants requested
an instruction to the jury to return a “directed verdict” for the Defendants. This
court construes Defendants’ motions as motions for judgment as a matter of law
pursuant to Federal Rule of Civil Procedure 50(a). Cf. FDIC v. UMIC, Inc., 136
F.3d 1375, 1382 n.1 (10th Cir. 1998), cert. denied, 535 U.S. 962 (U.S. Nov. 2,
1998 (No. 98-186).

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damages under the FCA and state law wrongful discharge claims, 9 and $25,000 in

punitive damages based solely on the state law claim.

Judgment was entered jointly and severally against the Defendants for

three times the actual damages found by the jury in the qui tam action, or

$14,700, plus $15,000 in civil penalties. 10 The district court awarded Shaw as the

qui tam plaintiff $7425, or 25% of the government’s FCA award. See 31 U.S.C. §

3730(d)(2). Judgment was also entered on the wrongful discharge action against

AAA alone for $100,000 compensatory and $25,000 punitive damages. Finally,

the district court ordered Shaw’s original seniority status reinstated at TAFB. See

id. § 3730(h).

III. DISCUSSION

A. False Claims

Defendants appeal the denial of their Rule 50(a) motions on Shaw’s FCA

qui tam claim. Rule 50(a) provides,

9
The jury was instructed that the state and federal wrongful discharge
claims were alternative theories of recovery and that Shaw was entitled to recover
compensatory damages only once.
10
Persons who violate the False Claims Act (FCA) are “liable to the United
States Government for a civil penalty of not less than $5,000 and not more than
$10,000, plus 3 times the amount of damages which the Government sustains
because of the act of that person. . . .” 31 U.S.C. 3729(a). The district court
imposed a civil penalty of $5000 for each of the three false claims, resulting in
$15,000 in total penalties.

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 If during a trial by jury a party has been fully heard on an issue and
there is no legally sufficient evidentiary basis for a reasonable jury to
find for that party on that issue, the court may determine the issue
against that party and may grant a motion for judgement as a matter
of law against that party. . . .

This court reviews de novo the denial of a motion for judgment as a matter of law,

applying the same legal standard as the district court and construing the evidence

and inferences therefrom in the light most favorable to the nonmoving party. See

Greene v. Safeway Stores, Inc., 98 F.3d 554, 557 (10th Cir. 1996). We may not

weigh evidence, pass on the credibility of witnesses, or substitute our judgment

for that of the jury. See id. Judgment as a matter of law is improper unless the

evidence so overwhelmingly favors the moving party as to permit no other

rational conclusion. See id.

The applicable sections of the FCA state:

(a) Liability for certain acts. -- Any person who --
(1) knowingly presents, or causes to be presented, to an
officer or employee of the United States Government . . . a
false or fraudulent claim for payment or approval; [or]
(2) knowingly makes, uses, or causes to be made or
used, a false record or statement to get a false or fraudulent
claim paid or approved by the Government . . .
is liable. . . .

31 U.S.C. § 3729(a)(1)-(2). Although the verdict form instructed the jury to

indicate the number of false claims for which Defendants were liable, the form

did not instruct the jury to specify which of Defendants’ actions were FCA

violations. In Defendants’ opening brief, they contend that Shaw alleged two

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types of FCA violations at trial: 1) the work orders were “false or fraudulent

record[s] or statement[s]” designed to cause a false or fraudulent claim to be paid

or approved by the United States pursuant to 31 U.S.C. § 3729(a)(2); and 2) the

monthly invoices, submitted after failure to practice silver recovery as required

by the contract, were false claims pursuant to id. § 3729(a)(1). Defendants argue

that the district court should have granted their Rule 50(a) motions on the FCA

qui tam claim because neither the work orders nor the invoices, given the

evidence presented, constitute false or fraudulent claims.

Because Defendants never made a Rule 50(b) motion and now appeal only

from the denial of their Rule 50(a) motions, the question before this court is

whether the district court properly allowed the jury to render a verdict on Shaw’s

FCA claim. Thus, if a reasonable jury could have found, based on the evidence

presented at trial, that any of AAA’s activities violated the FCA, the district

court was correct in denying AAA’s Rule 50(a) motions on Shaw’s FCA claim.

This court therefore may affirm the judgment on Shaw’s FCA claim if either the

work orders or the monthly invoices could constitute “false or fraudulent claims”

based on the evidence presented.

1. The Work Orders

Defendants first contend that only claims submitted for the purpose of

receiving payment are actionable under the FCA, and because AAA’s submission

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of work orders did not serve that purpose, they cannot form the basis for Shaw’s

FCA claim. They assert the work orders were submitted merely as a record of

work requested and work performed. Moreover, Defendants argue that the work

orders did not contribute towards AAA’s receipt of the equitable adjustment;

rather, the equitable adjustment settlement was based solely on the government’s

decision that with one-and-a-half additional employees plus additional supplies,

AAA could have timely performed the work which it claimed exceeded the

government’s estimates in the contract. The Defendants thus contend that even if

some of the work orders were false and fraudulent records, because they were not

linked to any payment from the government, they could not be the basis for FCA

liability.

This argument fails, however, because the purported provision of work

exceeding the government’s estimates, which AAA proved by reference to work

orders, prompted the award of an equitable adjustment for some amount. COs

Hammond and Nicewander both testified they relied on the work orders in

deciding to grant an equitable adjustment. CO Dan Gaston also testified that if

the production quantity numbers on the work orders were falsely inflated, this

would have a “direct impact” on an equitable adjustment request which was

based on workload. Simply because the production quantities recorded on the

work orders did not determine the exact amount of the settlement does not

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eradicate a connection between the work orders and the equitable adjustment.

This court thus concludes that the work orders were submitted, at least in part, to

justify AAA’s request for the equitable adjustment payment.

Defendants’ second argument is that the work orders do not constitute false

or fraudulent records because the numbers on the orders with which the

government disagreed during the joint count merely reflected AAA’s different

interpretation of the contract. Defendants point out that this dispute arose

because AAA wanted to include certain items on the work orders which the QAEs

thought should not be counted under the terms of the contract. This argument,

however, entirely ignores the substantial evidence, which we must view in a light

most favorable to Shaw, indicating that the numbers AAA recorded on the work

orders represented work that was never actually performed, not merely work

which might not justify compensation pursuant to the contract. This evidence

gave rise to an inference that the work orders were deliberately or recklessly 11

11
The intent requirement under the FCA is defined as follows:
“Knowingly” means that a person, with respect to
information --
(1) has actual knowledge of the information;
(2) acts in deliberate ignorance of the truth or
falsity of the information; or
(3) acts in reckless disregard of the truth or falsity
of the information,
and no proof of specific intent to defraud is required.

31 U.S.C. § 3729 (b).

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altered for the purpose of causing the government to pay additional sums in the

form of an equitable adjustment. See id. § 3729(a)(2), (b). There was thus

sufficient evidence to support a finding by the jury that some of the work orders

were false records submitted in order to get a false claim paid. See id. §

3729(a)(2).

2. The Monthly Invoices

Defendants argue that an invoice, submitted after the violation of a

contractual provision, 12 cannot constitute the knowing presentation of “a false or

fraudulent claim for payment or approval” under the FCA. 13 Id. § 3729(a)(1).

Specifically, Defendants assert that the monthly invoices which they submitted

could not be false or fraudulent because the invoices only billed the amount called

for by the fixed price contract and did not contain any factual misrepresentations

regarding either monthly billings or AAA’s equitable adjustment request. The

Defendants conceded in their Rule 50 motion that disposing used fixer
12

without first practicing silver recovery would violate the contract.
13
Defendants characterize Shaw’s argument as saying that each monthly
billing subsequent to the first improper disposal of used fixer constituted a “false
or fraudulent claim.” This court, however, understands her argument to be slightly
different: The invoices for each month in which AAA failed to practice silver
recovery yet billed the government for the full amount under the contract
constituted false claims. Also, because no silver recovery machine existed in
AAA’s labs at TAFB until July 1993, it can be fairly inferred that the used fixer
continued to be improperly disposed from April until July, or for three to four
invoices.

-23-
United States, appearing as Amicus Curiae, 14 responds that when AAA submitted

its monthly invoices, it impliedly certified that it had complied with the silver

recovery provisions in the contract; because AAA was being paid not only for

photography services but also for environmental compliance, its false implied

certification of compliance with the contract’s silver recovery requirement gives

rise to liability under the FCA.

Permitting FCA liability based on a false certification of compliance with a

government contract, whether the certification is express or implied, 15 is

consistent with the legislative history of the 1986 Amendments to the FCA. See

S. Rep. No. 99-345 (1986), reprinted in 1986 U.S.C.C.A.N. 5266. The Senate

Committee on the Judiciary noted a false claim under the FCA “may take many

forms, the most common being a claim for goods or services not provided, or

provided in violation of contract terms, specification, statute, or regulation.”

We grant Defendants’ application for leave to respond to the Amicus
14

Curiae brief filed by the United States government.
15
In numerous cases, express false certification of compliance with a
government contract provision has been the basis for an FCA claim. See, e.g.,
United States v. Rule Indus., Inc., 878 F.2d 535, 536-37 (1st Cir. 1989); United
States ex rel. Compton v. Midwest Specialties, Inc., 142 F.3d 296, 302-04 (6th
Cir. 1998); United States ex rel. Fallon v. Accudyne Corp. 880 F. Supp. 636, 638
(W.D. Wis. 1995) (Fallon I). In the instant case, however, this court must only
decide whether an FCA claim may be premised on implied false certification of
contractual compliance.

-24-
S.Rep. No. 99-345 at 9, reprinted in 1986 U.S.C.C.A.N. at 5274 (emphasis

added).

Additionally, the language and structure of the FCA itself supports the

conclusion that, under 31 U.S.C. § 3729(a)(1), a false implied certification may

constitute a “false or fraudulent claim.” This interpretive conclusion flows from a

distinction between the language of § 3729(a)(1) and that of § 3729(a)(2). Under

§ 3729(a)(2), liability is premised on the presentation of a “false record or

statement to get a false or fraudulent claim paid or approved.” Section

3729(a)(1), however, requires only the presentation of a “false or fraudulent claim

for payment or approval” without the additional element of a “false record or

statement.” See United States ex rel. Fallon v. Accudyne, 921 F. Supp. 611, 627

(W.D. Wis. 1995) (Fallon II) (noting this distinction between § 3729(a)(1) and §

3729(a)(2)); cf. United States ex rel. Aakhus v. Dyncorp, Inc. 136 F.3d 676, 682-

83 (10th Cir. 1998) (concluding that there needs to be a specific statement by a

contractor in order to support a cause of action under § 3729(a)(2)). Thus, FCA

liability under § 3729(a)(1) may arise even absent an affirmative or express false

statement by the government contractor.

The validity of an FCA claim based on a false implied certification of

contractual compliance has been expressly recognized by the Court of Federal

Claims and at least one district court. In Ab-Tech Constr., Inc. v. United States,

-25-
Ab-Tech was a minority-owned small business which was awarded a service

contract by the Small Business Administration. See 31 Fed. Cl. 429, 430 (1994),

aff’d without written opinion 57 F.3d 1084 (Fed. Cir. 1995). Ab-Tech then

entered into a prohibited co-management agreement with one of its principal

subcontractors, a non-minority owned enterprise, but nevertheless continued to

submit claims for payment to the government and to receive payment under the

contract. See id. at 431-33. Stating that the FCA “extends ‘to all fraudulent

attempts to cause the Government to pay out sums of money,’” the Ab-Tech court

concluded the claims for payment were false claims within the meaning of the

FCA. Id. at 433 (quoting United States v. Neifert-White, 390 U.S. 228, 233

(1968)). The Ab-Tech court reasoned the “payment vouchers represented an

implied certification by Ab-Tech of its continuing adherence to the requirements

for participation in the [minority-owned business] program.” Id. at 434 (emphasis

added); see also United States ex rel. Pogue v. American Healthcorp, Inc., 914 F.

Supp. 1507, 1508-10, 1513 (M.D. Tenn. 1996) (vacating a prior dismissal

decision in an FCA suit based on the theory that by submitting Medicare claims

defendants implicitly certified compliance with the statutes, rules, and regulations

governing the Medicare program); BMY-Combat Sys. Div. of Harsco Corp. v.

United States, 38 Fed. Cl. 109, 124-25 (1997) (holding that invoices provided by

a government contractor for the supply of goods impliedly but falsely represented

-26-
contractual compliance which was “critical to defendant’s decision to pay,” and

thus invoices constituted false claims under the FCA). The Ab-Tech court also

reasoned that each submission seeking payment from the government constituted

a “claim” under the FCA, even when the submissions were made pursuant to one

contract. See 31 Fed. Cl. at 435.

Without explicitly stating that the decisions were based on an implied

certification theory, other cases have also recognized that FCA liability may arise

even when there has been no express false declaration. The D.C. Circuit, for

example, determined that a contractor may be liable under the FCA when it

knowingly omitted from progress reports material information concerning non-

compliance with the program it had contracted to implement. See United States v.

TDC Management Corp., 24 F.3d 292, 296, 298 (D.C. Cir. 1994); see also United

States ex rel. Oliver v. Parsons Co., 195 F.3d 457, 464-65 (9th Cir. 1999),

petition for cert. filed, 68 U.S.L.W. 3491 (U.S. Jan. 20, 2000) (No. 99-1225)

(concluding that a contractor’s failure to disclose information specifically

requested by the government can form the basis for FCA liability); Fallon II, 921

F. Supp. at 621 (holding that a contractor may be liable under the FCA for

knowingly failing to perform a material requirement of the contract yet seeking

full payment without disclosing its nonperformance).

-27-
 Not all courts have embraced the theory that an FCA suit may be based on

an implied certification. Those cases, however, are distinguishable. For instance,

while not expressly addressing an implied certification claim, the Ninth Circuit

concluded that a teacher who accused her school district of failing to comply with

federal and state laws could not maintain an action under the FCA. See United

States ex rel. Hopper v. Anton, 91 F.3d 1261 (9th Cir. 1996). The Hopper court

reasoned that “[v]iolations of laws, rules, or regulations alone do not create a

cause of action under the FCA,” and held there must be a “false certification of

compliance” with those laws. Id. at 1266-67. The forms on which the Hopper

plaintiff premised her FCA claims, however, differed significantly from AAA’s

monthly invoices. The Hopper forms did not request payment for statutory or

contractual compliance and thus did not impliedly certify such compliance.

Additionally, the court in Hopper reasoned the relator had not produced sufficient

evidence that the defendant “knowingly” maintained a policy not to be in

compliance with federal laws. See id. at 1268. In contrast, Shaw presented ample

evidence that AAA knowingly failed to practice silver recovery but nevertheless

invoiced for and accepted full payment under the contract.

One district court has also held that a contractor’s violation of state law

may not support an FCA action without some express certification that Defendant

complied with those laws. See United States ex rel. Joslin v. Community Home

-28-
Health of Md., Inc., 984 F. Supp. 374, 383-84 (D. Md. 1997). The Joslin court

expressed concern with the decision in Ab-Tech, because it feared the doctrine of

implied certification would permit “FCA liability potentially to attach every time

a document or request for payment is submitted to the Government, regardless of

whether the submitting party is aware of its non-compliance.” Id. at 384. While

the Joslin court surmises the Ab-Tech court ignored the FCA’s “knowing”

requirement, this court reads the Ab-Tech decision differently. See id. at 384-85.

Regardless of Ab-Tech, however, this court holds that when FCA liability is

premised on an implied certification of compliance with a contract, the FCA

nonetheless requires that the contractor knew, or recklessly disregarded a risk,

that its implied certification of compliance was false. See 31 U.S.C.A. § 3729(b);

see also infra Section III.B.2.

In sum, because Shaw presented sufficient evidence demonstrating AAA

submitted invoices for full payment on the contract knowing it had failed to

comply with the silver recovery contract requirements, the district court properly

denied AAA’s Rule 50(a) motions.

B. Other Qui Tam Issues

1. Materiality

-29-
 Defendants also argue on appeal that the FCA contains a materiality

requirement which was not met here. 16 We decline to address this argument,

however, for Defendants failed to present it to the district court. In neither of

their Rule 50 motions did the Defendants mention “materiality,” or any similar

concept such as “causation” or “governmental reliance,” as elements which Shaw

must, but failed, to satisfy. Defendants simply argued, as discussed above, that a

mere violation of the contract cannot legally constitute a false claim. Defendants

did not argue to the district court that the failure to practice silver recovery was

not material, or that it did not cause the government to pay more than it would

have in the absence of AAA’s contract violations. This court therefore concludes

Defendants have waived this argument for appellate review. We decline to decide

whether the contractual provision with which a defendant failed to comply must

be material or the non-compliance itself must be a material breach in order to

prevail on an implied certification theory under the FCA. 17 See King of the

16
Defendants make this argument only with respect to the evidence of their
failure to practice silver recovery.
17
In their opening brief, Defendants allege there was no evidence of
monetary damages to the government flowing from their failure to practice silver
recovery. In their brief in reply to the United States as Amicus Curiae,
Defendants develop this into a separate argument: they argue that based on the
silver recovery theory of liability, the jury had no evidence from which to assess
$4,900 in actual damages. This issue was not separately raised in the
Defendants’ opening brief, however, and thus the point is waived. See State
Farm Fire & Cas. Co. v. Mhoon, 31 F.3d 979, 984 n.7 (10th Cir. 1994).

-30-
Mountain Sports, Inc. v. Chrysler Corp., 185 F.3d 1084, 1091 n.2 (10th Cir.

1999).

2. Intent and Government Knowledge

Defendants also argue that neither the failure to practice silver recovery nor

the work orders can be the basis for false claims under the FCA because the QAE

and the Contracting Officers 1) had access to the work orders during the contract

and 2) knew about the failure to practice proper silver recovery. Defendants

reason that because of this government knowledge, AAA could not have had the

requisite intent to violate the FCA. See 31 U.S.C. § 3729 (b).

Prior to amendments in 1986, the FCA contained the following language:

“The court shall have no jurisdiction to proceed with any [FCA] suit . . .

whenever it shall be made to appear that such suit was based upon evidence or

information in the possession of the United States, or any agency, officer, or

employee thereof, at the time such suit was brought.” 31 U.S.C. § 232(C)

(1976). This language was removed in 1986, however, and government

knowledge of a contractor’s wrongdoing is no longer an automatic defense to an

FCA action. See United States ex rel. Hagood v. Sonoma County Water Agency,

929 F.2d 1416, 1420 (9th Cir. 1991); 31 U.S.C. §§ 3729-3733. Nevertheless,

there may still be occasions when the government’s knowledge of or cooperation

with a contractor’s actions is so extensive that the contractor could not as a matter

-31-
of law possess the requisite state of mind to be liable under the FCA. See United

States ex rel. Butler v. Hughes Helicopters, Inc. , 71 F.3d 321, 327 (9th Cir.

1995); Wang ex rel. United States v. FMC Corp. , 975 F.2d 1412, 1421 (9th Cir.

1992).

In Butler, for example, the Ninth Circuit affirmed a directed verdict for the

government contractor. See Butler, 71 F.3d at 323. Butler argued the Defendant

falsified test reports because a different type of tests were performed than those

identified in the reports. See id. at 328. The evidence showed, however, that the

tests were the subject of discussion between the defendant and the Army, and the

Army knew of and had approved the testing method actually used. See id. The

Butler court stated, “[T]he only reasonable conclusion a jury could draw from the

evidence was that [defendant] and the Army had so completely cooperated and

shared all information . . . that [defendant] did not ‘knowingly’ submit false

claims . . . .” Butler, 71 F.3d at 327 (emphasis added). Similar facts underlie

Wang, in which the government had extensive knowledge of all the engineering

deficiencies identified by the qui tam relator, and the defendant had an ongoing

dialogue with the government about the problems. See Wang, 975 F.2d at 1421.

Assuming some level of government knowledge would negate the intent

requirement under the FCA as a matter of law, the level of government knowledge

in the present case does not do so. It was the plaintiff, Shaw, and not the

-32-
individual defendants or other AAA employees, who told the government about

the failure to practice silver recovery. Additionally, AAA was not forthcoming

about silver recovery and repeatedly evaded government employees’ questions on

the subject. 18

As for the work order evidence, this court has already determined that the

evidence supports an inference that Defendants falsely inflated the production

quantities on some work orders. Moreover, several government employees

testified that during the performance of the contract and the settlement of the

equitable adjustment claim, including the joint count, they were unaware that any

work orders may have been falsely inflated. The government’s alleged knowledge

of Defendants’ actions therefore does not, as a matter of law, negate the evidence

of Defendants’ intent to submit a false record in support of a claim. See 31

U.S.C. § 3729(a)(2).

C. Retaliation Claim

The Defendants also appeal the district court’s denial of their motions for

judgement as a matter of law on Shaw’s retaliation claims. The standard of

Defendants also argue AAA’s management did not know of the failure to
18

practice silver recovery, and therefore they cannot be held liable for false claims
which resulted from this failure. The evidence, however, showed the following:
1) Brakhage, the project manager, directed several employees to dispose of used
fixer without practicing silver recovery; and 2) McCurry, also the project
manager, both disposed of used fixer himself without practicing silver recovery
and told Massegee-Thrower to lie about it.

-33-
review is de novo, and this court construes the evidence and inferences therefrom

in the light most favorable to the nonmoving party. See Greene, 98 F.3d at 557.

Shaw alleged AAA discharged her because of her acts in furtherance of a

qui tam action. 19 Defendants argue AAA was not aware of Shaw’s protected

lawful activities and thus could not have terminated her for engaging in those

activities. 20 This argument ignores testimony by QAE Coil. Coil testified that on

June 2, 1993, she told Brakhage that Shaw informed her that Brakhage told Shaw

to pour used fixer down the drain. Coil then connected Brakhage with the

termination when she further testified that Brakhage said Keelin-Lowe intended to

fire Shaw because Shaw had complained about AAA’s failure to practice silver

recovery. A reasonable jury could therefore infer that Brakhage told Keelin-Lowe

about Shaw’s reporting to the government, and Keelin-Lowe fired Shaw because

19
“Any employee who is discharged . . . by his or her employer because of
lawful acts done by the employee on behalf of the employee or others in
furtherance of an action under this section, including investigation for, initiation
of, testimony for, or assistance in an action filed or to be filed under this section,
shall be entitled to all relief necessary to make the employee whole.” 31 U.S.C. §
3730(h).
20
Defendants also argue that they submitted no false claims and thus Shaw
could not have taken any action in furtherance of a false claims suit. Because this
court has determined Shaw presented sufficient evidence that AAA submitted
false claims under the FCA, however, we need not consider this argument. See
supra Section III.A.
For the same reason, we reject Defendants’ argument that the district court
abused its discretion in giving instruction eighteen.

-34-
of the reporting. This court thus affirms the denial of Defendants’ Rule 50(a)

motions on Shaw’s FCA retaliation claim.

D. Oklahoma Public Policy Claim

Shaw also alleged that she was terminated in violation of the public policy

exception to the Oklahoma employment-at-will doctrine. Defendants moved for

judgment as a matter of law on this state law claim, arguing that Oklahoma lacks

a well-defined public policy in favor of employees who report the submission of

false claims by their employers. The district court denied these Rule 50(a)

motions and the jury subsequently rendered a verdict in favor of Shaw on her

state law claim. Defendants now appeal the denial of those motions on that claim,

and this court reviews those rulings de novo. See id.

In Burk v. K-Mart Corp., the Oklahoma Supreme Court stated that the

public policy exception only applies “in a narrow class of cases in which the

discharge is contrary to a clear mandate of public policy as articulated by

constitutional, statutory or decisional law.” 770 P.2d 24, 28 (Okla. 1989).

Additionally, on appeal from the grant of summary judgment in federal district

court in Burk, 21 the Tenth Circuit determined there was no Oklahoma public

21
The Oklahoma Supreme Court’s opinion in Burk was issued following the
certification of questions from the United States District Court for the Northern
District of Oklahoma. See Burk v. K-Mart Corp., 770 P.2d 24, 25-26 (Okla.
1989).

-35-
policy against terminating employees in retaliation for general whistle blowing.

See Burk v. K Mart Corp., 956 F.2d 213, 214 (10th Cir. 1992).

The Tenth Circuit has also determined that whistle blowing under the Fair

Labor Standards Act and the Family and Medical Leave Act does not fall under

the Oklahoma public policy exception. See Richmond v. ONEOK, Inc., 120 F.3d

205, 210 (10th Cir. 1997); 29 U.S.C. §§ 201-219; 29 U.S.C. §§ 2601-2654. In

Richmond, this court stated that public policy exception “claims must have their

basis in Oklahoma state law.” 120 F.3d at 210; see also McKenzie v. Renberg’s

Inc., 94 F.3d 1478, 1487-88 (10th Cir. 1996).

The Oklahoma Court of Civil Appeals has held, however, that an employee

who alleged he was terminated for reporting violations of the federal Food, Drug,

and Cosmetic Act to his superiors stated a claim for wrongful discharge within

the Burk public policy exception. See Tyler v. Original Chili Bowl, Inc., 934 P.2d

1106, 1108-09 (Okla. Ct. App. 1997). In Griffin v. Mullinix, decided seven

months after Tyler, the Oklahoma Supreme Court stated that the federal

Occupational Safety and Health Act did not, standing alone, constitute a statement

of a well-defined Oklahoma public policy as demanded by Burk. See Griffin v.

Mullinix, 947 P.2d 177, 180 (Okla. 1997). The Griffin court cited with approval

this court’s decision in McKenzie, stating, “The Oklahoma Legislature, not this

-36-
Court or Congress, is primarily vested with the responsibility to declare the public

policy of this state.” Id.

Although perhaps falling short of a categorical statement that federal law

can never be the basis for a claim under the public policy exception, the Griffin

court’s statement is sufficient authority that the FCA is not a statement of a well-

defined Oklahoma public policy. 22 The FCA thus cannot be the basis, standing

alone, for a claim under the Burk public policy exception to the employment-at-

will doctrine. Because Shaw failed to point out any Oklahoma decision, statute or

constitutional provision supporting employees who report FCA violations, this

court reverses the denial of Defendants’ Rule 50(a) motions on Shaw’s state

wrongful discharge claim. 23 Additionally, because the FCA does not provide for

22
Admittedly, this conclusion appears to conflict with Tyler v. Original
Chili Bowl, Inc., 934 P.2d 1106, 1108-09 (Okla. Ct. App. 1997). This court
rejects Tyler as binding state authority, however, because we are “convinced by
persuasive indications,” namely the later decision in Griffin v. Mullinix, 947 P.2d
177, 180 (Okla. 1997), that the Oklahoma Supreme Court would not follow the
Tyler holding. Best v. State Farm Mut. Auto. Ins. Co., 953 F.2d 1477, 1481 (10th
Cir. 1991); see also Okla. Stat. Ann. tit. 20, § 30.5 (“No opinion of the Court of
Civil Appeals shall be binding or cited as precedent unless it shall have been
approved by the majority of the justices of the Supreme Court for publication in
the official reporter.”); Okla. Stat. Ann. tit. 12, Appendix 1, Rule 1.200(c)(2)
(establishing that opinions of the Court of Civil Appeals ordered released for
publication by that court but not by the Oklahoma Supreme Court have persuasive
effect but are not accorded precedential value).
23
Defendants also argue that the district court erred in giving jury
instruction twenty, which provided that Shaw’s reporting of AAA’s actions was
consistent with Oklahoma’s public policy of complying with federal
(continued...)

-37-
punitive damages, and because the jury was instructed to award punitive damages

only for a violation of Oklahoma public policy, the award of punitive damages is

vacated. 24 See 31 U.S.C. § 3730(h).

E. Evidence Issues

Defendants contend that the district court erred in admitting certain

evidence. This court reviews the district court’s decision to admit evidence for an

23
(...continued)
environmental regulations. In light of our decision that Defendant’s Rule 50
motions concerning the pendant state public policy claim should have been
granted, this court agrees with Defendants that instruction twenty was given in
error. Defendants then state, without citation to the record or further argument,
that the instruction misled the jury and that the entire judgment should be vacated
and a new trial ordered. Because Defendants provide this court with no basis on
which to conclude that this instruction misled the jury as to the federal law issues,
this argument is waived. See Franklin Savings Corp. v. United States, 180 F.3d
1124, 1128 n.6 (10th Cir. 1999), cert denied , 120 S.Ct. 398 (U.S. Nov. 1, 1999)
(No. 99-208).
24
The jury was instructed that the state and federal claims were merely
alternative theories of recovery and that Shaw was only entitled to recover
compensatory damages once. The verdict form further instructed the jury to award
compensatory damages if it found Shaw’s termination violated either the FCA or
Oklahoma public policy. The award of $100,000 in compensatory damages
therefore stands.

-38-
abuse of discretion. 25 See Robinson v. Missouri Pac. R.R. Co., 16 F.3d 1083,

1086 (10th Cir. 1994).

First, Defendants maintain the district court erred in allowing Contract

Discrepancy Reports (“CDRs”) to be admitted. They argue on appeal that the

reports were meant to prejudice the jury and show that less than perfect

performance gives rise to an FCA suit. This argument appears to be premised on

Federal Rule of Evidence 403, although no reference is made to Rule 403. At

trial, Defendants simply stated that these reports were irrelevant, without arguing

unfair prejudice. Absent plain error, a claim of “[e]rror may not be predicated

upon a ruling which admits or excludes evidence unless . . . [when] the ruling is

one admitting evidence, a timely objection . . . appears of record, stating the

specific ground of the objection . . . .” Fed. R. Evid. 103(a)(1). The admission of

the CDRs was not plain error, and Defendants thus waived for appellate review

any argument beyond relevance. See Wheeler v. John Deere Co., 862 F.2d 1404,

1409 n.1 (10th Cir. 1988). Considering only the relevance objection, these CDRs

25
Defendants allege fifteen specific errors in the admission of evidence in
their opening brief, but they only present specific arguments as to five instances.
In addition, Defendants broadly state, without citation to the record or authority
and with only superficial development of the argument, that a great deal more
evidence was improperly admitted. This court concludes, both as to the ten
instances which were specified but not discussed and as to the general allegation
of additional improper admission of evidence, that Defendants developed these
arguments so superficially as to waive them for appellate review. See Franklin
Savings Corp., 180 F.3d at 1128 n.6.

-39-
demonstrated that contract payments could in certain instances be reduced for

deficient performance. This negated AAA’s argument that it could only be paid a

fixed price under the contract. In addition, the evidence was relevant to a general

understanding of the way the parties functioned under the contract and to

demonstrate that during the contracting period Defendants had a motivation to

conceal violations of the contract. Thus, the district court did not abuse its

discretion in determining the CDRs were relevant and allowing their admission.

Second, Defendants argue that three lists of customer complaints against

AAA were erroneously admitted over a relevance objection, asserting on appeal

that this evidence was also intended to prejudice the jury. Once again, however,

Defendants waived all but their relevance challenge. See id; Fed. R. Evid.

103(a)(1). As for the relevance objection, there was no abuse of discretion in

admitting this evidence. In context, it was clear these customer complaints

related to the CDRs. They were thus relevant to a general understanding of the

contract and the method by which contract payments could be reduced.

Third, over Defendants’ objection, CO Nicewander testified that some

organizations on TAFB were dissatisfied with AAA’s performance. On appeal,

Defendants argue that this evidence was offered solely to prejudice the jury. The

objection at trial, however, was that the question prompting Nicewander’s

testimony was outside the scope of cross-examination. Defendants’ challenge on

-40-
appeal to this testimony is thus waived. See Wheeler, 862 at 1409 n.1; Fed. R.

Evid. 103(a)(1).

Fourth, Defendants objected to the work orders based on relevance and a

failure to timely list them as trial exhibits. We first dispose of Defendant’s

relevance argument by noting that one of Shaw’s qui tam theories was based on

Defendants’ submission of these and other work orders in support of an equitable

adjustment claim, pursuant to 31 U.S.C. § 3729(a)(2). The work orders

themselves would thus be relevant to Shaw’s claim that the work orders were

false records submitted in order to obtain payment.

Defendants contend that they were prejudiced because they did not have

time to conduct meaningful discovery or to locate rebuttal witnesses. All the

work orders admitted were listed in the pretrial order, however, and Shaw sent

copies to AAA in March 1997. It was thus not an abuse of discretion for the

district court to rule that Defendants were not unfairly prejudiced by the

introduction of these work orders.

Finally, over a relevance objection, the district court admitted a letter from

an Air Force officer to the CO dated one day prior to Shaw’s termination. The

letter praised Shaw’s and Massegee-Thrower’s performance in the met lab, and

was thus relevant to counter AAA’s assertions that Shaw was fired for poor

performance. It was not an abuse of discretion to admit this evidence.

-41-
VI. CONCLUSION

For the reasons set out above, this court AFFIRMS the judgment against

Defendants on Shaw’s FCA qui tam and retaliation claims. However, we

REVERSE the judgment against Defendants on the Oklahoma public policy claim

and order that the award of punitive damages be vacated.

-42-