Fifth Circuit: Coal Act Retiree Benefits Can Be Modified Under Bankruptcy Code | Practical Law

Fifth Circuit: Coal Act Retiree Benefits Can Be Modified Under Bankruptcy Code | Practical Law

In a dispute involving potential modification of a coal company's obligations under the Coal Industry Retiree Health Benefit Act of 1992 (Coal Act), the US Court of Appeals for the Fifth Circuit held that the company's Coal Act obligations were "retiree benefits" that may be modified under Section 1114 of the Bankruptcy Code.

Fifth Circuit: Coal Act Retiree Benefits Can Be Modified Under Bankruptcy Code

Practical Law Legal Update w-026-8983 (Approx. 6 pages)

Fifth Circuit: Coal Act Retiree Benefits Can Be Modified Under Bankruptcy Code

by Practical Law Employee Benefits & Executive Compensation
Published on 06 Aug 2020USA (National/Federal)
In a dispute involving potential modification of a coal company's obligations under the Coal Industry Retiree Health Benefit Act of 1992 (Coal Act), the US Court of Appeals for the Fifth Circuit held that the company's Coal Act obligations were "retiree benefits" that may be modified under Section 1114 of the Bankruptcy Code.
In a dispute involving potential modification of a coal company's obligations under the Coal Industry Retiree Health Benefit Act of 1992 (Coal Act), the Fifth Circuit held that the company's Coal Act obligations were "retiree benefits" that may be modified under Section 1114 of the Bankruptcy Code (In re Westmoreland Coal Co., (5th Cir. Aug. 4, 2020)).

Coal Act and Retiree Health Benefits

Before the Coal Act was enacted, a coal workers' union and several coal companies entered into wage agreements resulting in the creation of two multiemployer trusts (the 1950 Benefit Plan and 1974 Benefit Plan and Trust) to provide lifetime health benefits to retirees. After experiencing financial difficulties, the 1950 and 1974 plans were largely replaced by individual arrangements under which each coal company became responsible for funding its own employer plan. However, the 1950 and 1974 plans continued to exist for limited purposes.
In response to ongoing difficulties in financing retiree benefits for coal workers, Congress in 1992 passed the Coal Act, which, among other things:
  • Merged the1950 and 1974 plans into a combined pan.
  • Required companies that had agreed to the wage agreements (signatory companies) to provide health benefits to retirees through individual employer plans.
The Coal Act also created an arrangement (the 1992 plan) to cover:
  • Individuals entitled to benefits under the 1950 and 1974 plans but who were not retired when the Coal Act was enacted.
  • Certain "orphaned" retirees whose employers were no longer in business.
The plans created by the Coal Act are financed by premiums paid by signatory companies and federal government funds.

Bankruptcy Code and Retiree Health Benefits

Under Section 1114 of the Bankruptcy Code, debtors must continue paying retiree health benefits unless benefits are modified by either:
  • A court order finding that the equities favor modification.
  • An agreement between a debtor and retirees' representatives.
Under Section 1114(a), "retiree benefits" include "payments to any entity ... for the purpose of providing ... retired employees ... medical ... benefits ... under any plan, fund or program ... maintained ... by the debtor" made before bankruptcy.
A debtor must engage in good faith negotiations with retirees' representatives before requesting a court order modifying retiree benefits.

Declaratory Judgment Action

After filing for Chapter 11 bankruptcy in 2018, the company in this case sought to modify its Coal Act obligations. In response, the trustees of the Coal Act's combined and 1992 plans sued the company, seeking a declaratory judgment that the company's Coal Act obligations were not retiree benefits for purposes of Section 1114 and therefore could not be modified. The bankruptcy court granted the company's motion for judgment on the pleadings and certified its judgment for direct appeal.

Fifth Circuit Avoids Circuit Split on Coal Act Issue

The Fifth Circuit affirmed the bankruptcy court on appeal, concluding that:

Issue Preclusion Did Not Apply

The Fifth Circuit first addressed whether an Eleventh Circuit decision involving the same issue and plaintiffs prevented it from reviewing the bankruptcy court's decision (see In re Walter Energy, Inc., 911 F.3d 1121 (11th Cir. 2018)). The Fifth Circuit concluded that an exception to issue preclusion applied and so the court could review the decision. The Fifth Circuit reasoned that:
  • The instant action raised only questions of law.
  • The Walter Energy case was decided by a fellow circuit court.
  • The Supreme Court had not decided the issue.

Anti-Injunction Act Did Not Deprive Court of Jurisdiction

The Fifth Circuit next addressed a jurisdictional question under the AIA that turned on whether premiums required under the Coal Act's combined plan were taxes. As addressed in a Supreme Court ruling involving the Affordable Care Act's (ACA's) individual mandate, the AIA prohibits lawsuits to restrain the assessment or collection of any tax (see Legal Update, Supreme Court Upholds the ACA's Individual Mandate: Anti-Injunction Act Does Not Apply). Following the approach taken by the Eleventh Circuit in Walter Energy, the Fifth Circuit assumed that, because the penalty for failing to pay the combined plan premiums must be treated like a tax (26 U.S.C. § 9707), the premiums are effectively taxes for AIA purposes.
Relying on an exception, however, the Fifth Circuit concluded that the AIA did not bar the company's Section 1114 proceeding (and by extension the related adversary proceeding). The court reasoned that the only way for a company to modify its Coal Act obligations is through a Section 1114 proceeding in a bankruptcy court. Accordingly, absent an alternative avenue for the company to modify its payments, the AIA did not deprive the court of jurisdiction.

Coal Act Obligations Are Retiree Benefits Subject to Modification

On the merits, the Fifth Circuit held that Coal Act obligations are retiree benefits under Section 1114, and therefore are subject to modification under the Bankruptcy Code. In reaching this conclusion, the court first considered whether the company had maintained the plans, in whole or in part, before filing for bankruptcy (11 U.S.C. § 1114(a)). The trustees argued that the company did not "maintain" the plans because it merely provided financial support (that is, the company did not administer or otherwise handle plan operations). In support of this argument, the trustees relied on cases addressing what constitutes an "employee welfare benefit plan" under ERISA. However, the Fifth Circuit declined to rely on ERISA cases in interpreting the Bankruptcy Code, reasoning that the two statutes have different purposes. Based on the plain meaning of "maintain," the court concluded that the company's financial support maintained the plans (at least in part). The court also observed that the relevant statutory language regarding maintaining an ERISA plan versus maintaining a plan under the Section 1114 definition of retiree benefits – though similar – are not identical.
The court also rejected the trustees' argument that the company's Coal Act obligations, aside from premiums, were not retiree benefits. The trustees argued that although the company posted a bond to satisfy the Coal Act's security requirement before it filed for bankruptcy (26 U.S.C. § 9712(d)(1)(B)), the money did not reach the 1992 plan before bankruptcy because the company maintained individual employer plans until that point. In the court's view, however, the Coal Act did not require the bond payments to reach the plan before bankruptcy to meet the Section 1114 definition of retiree benefits.
Finally, the court addressed the potential conflict between the Coal Act and Section 1114 of the Bankruptcy Code. The trustees asserted that several Coal Act provisions prevented the type of negotiations required for a modification under Section 1114. The trustees argued that Coal Act obligations cannot be negotiated or modified because they are statutorily required. While the court agreed that Coal Act obligations are mandatory, it noted that such obligations have, in certain situations, been modified by settlement. The court also cited Fourth and Eleventh Circuit decisions holding that Coal Act obligations are somewhat negotiable. In the absence of a clear congressional intent to prevent Section 1114 from applying to Coal Act obligations, the Fifth Circuit held that Coal Act obligations can be modified under Section 1114.

Practical Impact

As this case demonstrates, successor liability for a company's Coal Act retiree health obligations can become a major issue when the company later attempts to sell its assets. A framework in which these obligations are subject to modification therefore may be beneficial to both a company and its potential buyers. As the Fifth Circuit emphasizes, its holding in this decision is consistent with other circuits that have ruled on the issue and concluded that Coal Act obligations are subject to modification.