Andrew Bennett v. Jefferson County, Alabama
Opinion
Generally speaking, the doctrine of equitable mootness "permits courts sitting in bankruptcy appeals to dismiss challenges (typically to confirmation plans) when effective relief would be impossible."
Ullrich v. Welt (In re Nica Holdings, Inc.)
,
*1243 I
Municipal bankruptcy proceedings are usually complicated affairs, and the Chapter 9 proceeding for Jefferson County, Alabama-involving about $3.2 billion in total sewer-related debt-has proved to be no different. A detailed chronology can be found in
Bennett v. Jefferson County
,
A
Jefferson County filed for bankruptcy in November of 2011. In June of 2013, following 18 months of negotiations, the County announced that it had come to an agreement in principle with almost all of its major creditors.
The final settlement, reached in November of 2013, provided that the County would issue and sell in public markets new sewer warrants (through an indenture) in the amount of approximately $1.785 billion, with the proceeds and other funds being used to redeem and retire the prior sewer warrants (which, again, totaled about $3.2 billion) at a reduced and compromised amount of about $1.8 billion.
Pursuant to the settlement, the County would cut over $100 million in general fund expenditures, the creditors would write off a significant amount in outstanding debt, and the County (or the bankruptcy court if the County failed to act) would implement a series of single-digit-percent sewer rate increases over 40 years. The County would not be able to decrease sewer rates in a given fiscal year unless it could somehow offset the decrease (by, for example, increasing its customer base). Over the course of these 40 years-the planned time period for retiring the new sewer warrants-sewer rates would increase about 365%, which is not far off of the national increase in inflation in the previous 40 years. With respect to non-sewer debt, warrants would be repaid in full on terms favorable to the County through the exchange of existing general obligation warrants and school warrants for new warrants.
See
Bennett
,
At the confirmation hearing before the bankruptcy court on November 21, 2013, a group of Jefferson County ratepayers objected to the County's proposed plan. They argued that the plan validated corrupt government activity (e.g., bribery) that procured the execution of some of the prior sewer warrants and led to the debt crisis; that the plan, by taking the ability to set rates out of the hands of elected Jefferson County commissioners, infringed on their rights to vote and to be free from overly burdensome debt without due process; and that the plan was not feasible because it was imposed over a service area with a declining population and falling income levels, and because it increased costs for a long period of time without any consideration of the users' ability to pay.
See
The bankruptcy court entered a confirmation order over the ratepayers' objections on November 22, 2013, the day following the hearing. The order in part dismissed pending claims, and barred any and all persons from commencing or continuing any action to assert the claims made by the ratepayers prior to the start of, or in, the Chapter 9 bankruptcy proceeding.
In the confirmation order, the bankruptcy court retained jurisdiction for the 40-year life of the new sewer warrants to, among other things, adjudicate controversies *1244 regarding the validity of actions taken pursuant to the plan, including implementation or enforcement of the approved rate structure and issuance of the new sewer warrants, and enter any necessary or appropriate orders or relief (including mandamus). See Bankr. D.E. 2248 at 67-68. The disclosure statement for the indenture contained similar language describing the bankruptcy court's retention of jurisdiction.
The plan's effective date was December 3, 2013. Although Bankruptcy Rule 3020(e) normally imposes an automatic 14-day stay on the operation of a confirmation order, at the confirmation hearing the ratepayers did not object to the County's motion (filed two weeks earlier) to waive the automatic stay. In the absence of an objection, the bankruptcy court exercised its discretion under Rule 3020(e) to waive the automatic stay when it entered the confirmation order.
See
Bennett
,
The ratepayers filed their notice of appeal on December 1, 2013, two days prior to the plan's effective date. But they did not ask the bankruptcy court, or the district court, for a stay of the confirmation order pending appeal. Nor did they request that their appeal be expedited. On December 3, 2013, pursuant to the terms of the order, the County issued the new sewer warrants. The proceeds from the sale of these warrants went in part towards retiring the prior sewer warrants, with more than $1.454 billion going into a clearinghouse system to pay individual and institutional investors.
See
B
In the district court, the County moved to dismiss the ratepayers' appeal, arguing in relevant part that any challenges to the confirmation order were constitutionally, statutorily, and equitably moot because the plan had been consummated and the transactions that were completed could not be unwound. The ratepayers responded that their appeal was not moot because, among other things, the bankruptcy court could not constitutionally retain jurisdiction to conform (if necessary) sewer rates to the plan over a 40-year period. In the ratepayers' view, such rates had to be set in compliance with Alabama law. As the district court explained, the ratepayers wanted to "avoid ... paying rates set by a [County] Commission wh[ich] can be taken to the bankruptcy court if it enacts rates in violation of" the approved rate structure.
Bennett
,
First, the district court concluded that the appeal was not moot under Article III. Although the consummation of the plan might limit the scope of relief available to the ratepayers, the court concluded that it could fashion " '
some
form of meaningful relief.' "
See
Second, there was no "statutory mootness" under
Third, the district court ruled that the appeal was not equitably moot despite the failure of the ratepayers to seek, let alone obtain, a stay of the confirmation order. The court thought that the doctrine of equitable mootness, which is prudential
*1245
in nature, was in some tension with the Supreme Court's reaffirmation of the principle that federal courts have a "virtually unflagging" obligation to hear and decides cases within their jurisdiction.
See
Finally, the district court explained that, even if the doctrine of equitable mootness applied in Chapter 9 bankruptcy proceedings, it would nevertheless deny the County's motion to dismiss. The court could, as it had noted, grant the ratepayers some relief by striking the terms providing for the bankruptcy court's retention of jurisdiction and authority to set sewer rates in the future. Moreover, the ratepayers' failure to obtain a stay, though significant in the equitable mootness analysis, was not dispositive. There had been a rush to consummation, and seeking a stay "was futile and cost-prohibitive."
The district court later certified its ruling for interlocutory review, and Jefferson County instituted the present appeal. We conclude that the case is not constitutionally moot, but hold that it is equitably moot, and therefore reverse and remand for dismissal of the ratepayers' appeal from the bankruptcy court's confirmation order. We do not reach statutory mootness as a separate issue, but touch on it briefly in discussing equitable mootness.
II
We first address Article III mootness-i.e., mootness in the jurisdictional and constitutional sense. This doctrine, the Supreme Court has held, emanates from the "case or controversy" requirement of Article III.
See, e.g.,
Arizonans for Official English v. Arizona
,
"[T]he party who alleges that a controversy before us has become moot has the 'heavy burden' of establishing that we lack jurisdiction."
Michigan v. Long
,
The County's argument is essentially that we (and the district court) lack the legal authority to issue the relief that the ratepayers seek.
See
County's Opening Br. at 28 ("[T]he dispositive question is ... whether a reviewing court can provide meaningful relief if it agrees with the [party challenging the bankruptcy court's order] that the order is erroneous"). "But that argument-which goes to the meaning of the [bankruptcy laws] and the legal availability of a certain kind of relief-confuses mootness with the merits."
Chafin v. Chafin
,
Notably, the County does
not
contend-as the respondent did in
Chafin
-that any of the forms of relief sought here (e.g., striking the offending jurisdictional provision from the confirmed plan) would be "ineffectual" with respect to the ratepayers' harm.
See
Chafin
,
In sum, we have a live case under Article III. We proceed to consider the parties' arguments about another sort of "mootness."
III
We review de novo the district court's conclusion that the doctrine of equitable mootness does not apply in the Chapter 9 context. The same standard of review applies to the district court's alternative ruling that, if the doctrine did generally apply, it would not bar the ratepayers' appeal.
See
In re Club Assocs.
,
The County argues that the doctrine of equitable mootness bars the ratepayers' appeal from the bankruptcy court, and that the district court erred in concluding otherwise. We agree. First, we explore what precisely the doctrine is. Second, we explain why the doctrine can apply in a Chapter 9 proceeding like this one. Finally, we conclude that the doctrine bars the ratepayers' appeal from the bankruptcy court's confirmation order.
*1247 A
The doctrine of equitable mootness appears to have emerged at least a few decades ago in the various federal courts of appeals.
See, e.g.,
Am. Grain Ass'n v. Lee-Vac, Ltd.
,
Essentially, this doctrine provides that reviewing courts will, under certain circumstances, reject bankruptcy appeals if rulings have gone into effect and would be extremely burdensome, especially to non-parties, to undo. The use of the word mootness (and the invocation of the consequences that arise from a mootness finding) in the term equitable mootness is a legal fiction, akin to the use of the word "eviction" (and the analogous invocation of relevant consequences) in the term "constructive eviction."
See, e.g.,
Detroit
,
The doctrine, then, does not reference actual mootness at all. As the leading bankruptcy treatises explain, its application turns on equitable and prudential concerns which focus on whether it is reasonable to entertain the contentions of the parties challenging an order of the bankruptcy court.
See
William L. Norton, Jr. & William L. Norton III, 8 Norton Bankr. Law & Practice § 170:87 (3d ed. 2018); 7 Collier on Bankruptcy ¶ 1129.09[1] & n.2 (16th ed. 2018). It would perhaps be more appropriate for us to file the doctrine under the rubrics of forfeiture, waiver, or laches.
See
In re One2One Commc'ns, LLC
,
B
Given that we are being asked to apply equitable mootness in a new setting, it makes sense to take a step back and consider the doctrine's origins. By the mid-1990s, most federal circuits had applied a version of the doctrine, and some had even
*1248
referred to it as "equitable mootness."
See generally
Cont'l Airlines
,
For our part, we have used variations of the term equitable mootness (including "equitably moot") in three published opinions involving bankruptcy appeals:
Florida Agency for Health Care Administration v. Bayou Shores SNF, LLC (In re Bayou Shores SNF, LLC)
,
Over the years, we have identified a number of important considerations for deciding whether the doctrine bars an appeal. The facts will weigh in favor of finding equitable mootness when allowing an appeal to go forward will impinge upon actions taken to one's detriment in "good faith reliance on a [final and unstayed] judgment."
Conversely, if the relief sought does not undermine actions that may have been taken in reliance on the judgment, or if no such actions have been taken, then there will be no reason to conclude that an appeal is equitably moot.
See, e.g.,
Russo v. Seidler (In re Seidler)
,
We are sensitive to the "interests that underlie the right of a party to seek review of a bankruptcy court order adversely affecting him."
Club Assocs.
,
We have said that equitable mootness is rooted in the "general [principles] of appellate procedure."
Lee-Vac
,
*1250 C
We have never addressed whether equitable mootness applies in the Chapter 9 context. Because the doctrine is driven by its principles rather than any particular codification or arbitrary limitation,
see
Lee-Vac
,
The district court concluded that Chapter 9 is different in ways that required it to hold that equitable mootness does not apply in this context. The ratepayers, defending the district court's decision, contend that the doctrine has no role in municipal bankruptcies because Chapter 9 "implicates public concerns" and potentially involves constitutional issues (like the ones they are asserting). See Appellees' Br. at 4. These are important points, and we have duly considered them. Nevertheless, we are still persuaded that equitable mootness can apply in Chapter 9 cases.
The main theme running through the district court's reasoning, and the ratepayers' arguments, is that municipalities and their bankruptcies implicate issues of sovereignty, whereas corporations or individuals and their bankruptcies do not-and that, accordingly, it is important for us to tread carefully where self governance is concerned.
See
Bennett
,
But this argument doesn't speak to the threshold question of whether equitable mootness can apply in any case-it only speaks to whether it applies in particular cases. We see no reason why, for example, if a run-of-the-mill creditor of a municipality (which would have no greater basis in a Chapter 9 case than in any other bankruptcy case for laying claim to any equities of constitutional proportion) objects to a Chapter 9 bankruptcy plan, that creditor should be able to avoid equitable mootness merely because the bankruptcy proceedings happen to be under Chapter 9. Just as in other kinds of bankruptcy proceedings, concerns about finality, reliance, and equity will be at play.
In addition, it is not at all clear in which direction the ratepayers' federalism arguments will cut from one Chapter 9 bankruptcy to the next. Given the interests of the municipality and those of its residents *1251 (among others), there is a countervailing argument that a court ought to be more solicitous to the municipality that has obtained confirmation of its plan and thus be especially inclined to pull the trigger of equitable mootness. In the present case, the ratepayers (to whom a state's or municipality's rights ultimately accrue) are challenging the confirmed bankruptcy plan's alleged trampling of their state-based rights, but what about the actual state entity (for whose sovereignty Chapter 9 procedures reflect such concern)?
Finally, we recognize that, given the centrality of constitutional rights to the fabric of our republic, there is a fair argument to be made that we should allow some leniency when a party who has allowed a bankruptcy plan to go into effect asserts constitutional claims on appeal. But the mere fact that a potential or actual violation of a constitutional right exists does not generally excuse a party's failure to comply with procedural rules for assertion of the right. A "constitutional right, or a right of any other sort, may be forfeited in criminal as well as civil cases by the failure to make timely assertion of the right before a tribunal having jurisdiction to determine it."
Henderson v. United States
,
Ultimately, we think the correct result is to join the Sixth Circuit and the Ninth Circuit B.A.P. in allowing equitable mootness to apply in the Chapter 9 context. As for federalism concerns, it will be appropriate to note them when deciding whether the doctrine should bar an appeal in a particular bankruptcy case. We do precisely this below.
D
Having explained the law that underpins our equitable mootness inquiry, and having concluded that the doctrine can apply in a Chapter 9 case such as this, we now explain why equitable mootness bars the ratepayers' appeal.
First, and critically, the ratepayers here have never asked any court to stay the implementation of the plan that the bankruptcy court confirmed-not the bankruptcy court itself, not the district court, and not this court-and consequently no court has ever stayed the implementation of the plan. Indeed, the ratepayers had the opportunity to defend the automatic 14-day stay when Jefferson County asked the bankruptcy court to waive it, but they raised no objection then either. Nor did the ratepayers ever ask that their appeal be expedited. Consequently, when Jefferson County commenced this appeal, the bankruptcy court's confirmation order (and the plan) had been in effect, never having been stayed, for more than a year.
We acknowledge that the "failure to obtain a stay does not necessarily preclude review of [an] appeal."
Club Assocs.
,
Claiming this "not necessarily preclude[d]" rubric for themselves, the ratepayers contend (and the district court held) that seeking a stay would have been futile because the ratepayers could never have raised sufficient money to post a supersedes bond for a plan confirmation with billions of dollars at stake.
See
Bennett
,
Second, and closely related to the stay question, the County and others have taken significant and largely irreversible steps in reliance on the unstayed plan confirmed by the bankruptcy court. Specifically, the County has issued over one billion dollars' worth of new sewer warrants and has used the proceeds to retire the old sewer warrants. These new warrants were sold based on a commitment-backed up by an unstayed court order-to set sewer rates at particular amounts over the course of the next 40 years. The relief sought here, even if limited to striking the provision giving the bankruptcy court jurisdiction with respect to future rates, would seriously undermine actions taken in reliance on the confirmation order. If the district court were to excise the part of the plan providing the bankruptcy court with jurisdiction to oversee disputes regarding the required future increases in sewer rates, there would be serious uncertainty about what would happen to the value of the new warrants, released into the market in the absence of a stay of the confirmation order. We think it is fair to assume that, at the very least, whoever ultimately held those warrants would be adversely affected. Were we to do more, as the County insists that we would be required to do, and vacate the confirmation order in toto , any concern about the value of these warrants would pale in comparison to the ill effects not just to investors, but to the County and, ultimately, its residents.
This case is, consequently, much like others in which we have refused to allow a party fully to air the merits of its appeal because granting the relief sought would be inequitable or practically impossible.
See, e.g.,
Club Assocs
.,
Finally, as with many equitable determinations based on notions of fairness, we look briefly at the merits and the public interest to determine whether or to what extent a decision either way in this case might result in injustice.
See
In re Club Assocs.
,
The core of the ratepayers' arguments is that, through the plan, the bankruptcy court has allowed County commissioners at one point in time to bind future County commissioners-indeed, the County as a whole-in a way that impermissibly reduces the autonomy of the County and the political voice of the voters of Jefferson County (including the ratepayers). This argument is, in our view, not very strong.
Courts are sympathetic to concerns about end-runs around political processes,
see, e.g.,
INS v. Chadha
,
Elected officials can bind their successors-and consequently also their constituents, the people-to all kinds of unavoidably long-lasting financial effects, sometimes irreversibly: they spend budget surpluses; they run deficits; they raise and cut taxes; they expand and contract boundaries; they sign long-term contracts; and they enter into expensive consent decrees to resolve litigation. We know of no authority for the proposition that such government action, which impinges on the rights (or at least limits the ability) of future governments to undo, becomes an illegal end-run around constitutional governance. That a Chapter 9 bankruptcy plan subjects the residents of Jefferson County to rate increases over time, instead of forcing them to bear the financial pain all at once, does not transmogrify it into one that per se violates the ratepayers' constitutional rights.
Cf.
Schweitzer v. Comenity Bank
,
*1254 We note, in concluding, that no party has so far asked the bankruptcy court to exercise its jurisdiction to force Jefferson County to adjust its sewer rates according to the provisions of the confirmed plan. We therefore express no view on whether the ratepayers (or anyone else) will be able to mount a challenge to aspects of the plan in the future should the bankruptcy court in fact purport to exercise its jurisdiction to compel an increase in rates in compliance with the plan.
IV
We reverse the order of the district court and remand for dismissal of the ratepayers' appeal from the plan confirmed by the bankruptcy court.
REVERSED and REMANDED.
Not all members of the Supreme Court have agreed with the Article III characterization of mootness.
See
Honig v. Doe
,
We recognize that some other circuits review the application of the equitable mootness doctrine under an abuse of discretion standard.
See, e.g.,
R
2
Investments, LDC v. Charter Commc'ns, Inc. (In re Charter Commc'ns, Inc.)
,
For other Eleventh Circuit cases holding that bankruptcy appeals were barred by equitable and prudential considerations, see
Miami Ctr. Ltd. P'ship v. Bank of N.Y.
,
We have, in this respect, perhaps differed somewhat from some other circuits, which have varied in how much they have focused on statutory provisions or rules in interpreting the doctrine.
See, e.g.,
Detroit,
Reference
- Full Case Name
- Andrew BENNETT, Jefferson County Tax Assessor, Bessemer Division, Roderick v. Royal, Former Birmingham City Council President, Mary Moore, Alabama State Legislator, John W. Rogers, Alabama State Legislator, William R. Muhammad, Et Al., Plaintiffs-Appellees, v. JEFFERSON COUNTY, ALABAMA, Defendant-Appellant.
- Cited By
- 22 cases
- Status
- Published