Accounting for Environmental Liabilities in Bankruptcy · Copyright 2016 Eratosthenes, LLC. All Rights Reserved. 6 4. Perform a high level forensic analysis to determine whether reported

Copyright2016Eratosthenes,LLC.AllRightsReserved.

ACCOUNTINGFORENVIRONMENTALLIABILITIESINBANKRUPTCY

ByGregRogersandCharlieAtkins1

September2016

1Portionsofthismaterialwillbeincludedinaforthcomingbook,EnvironmentalIssuesinBankruptcy,tobepublishedin2016byAmericanBankruptcyInstitute.ThispaperispublishedherewiththeABI’skindpermission.

C.GregoryRogers,J.D.,CPA,isauthorofFinancialReportingofEnvironmentalLiabilitiesandRisksafterSarbanes-Oxley(Wiley,2005)andanationallyrecognizedexpertonenvironmentalaccountinganddisclosure.HeisapastChairmanoftheAmericanBarAssociation'sCommitteeonEnvironmentalDisclosureandacontributingexperttotheU.S.GovernmentAccountabilityOffice(GAO)investigationandreporttoCongressonEnvironmentalDisclosures.CharlesA.Atkinshasbeenactivelyinvolvedininvestmentmanagement,venturecapital,software,andpropertydevelopmentbusinessesoverthecourseofthepastthirty-sevenyears.Mr.AtkinsisaneconomistbytrainingwithaspecializationinInternationalMonetaryEconomics,FinanceandOperationsResearch.HewasaMoreheadScholaratUNCChapelHill,aMarshallScholarattheLondonSchoolofEconomicsandPoliticalScience,andaVisitingFellowattheBrookingsInstitution.

Copyright2016Eratosthenes,LLC.AllRightsReserved. 2

TableofContents

I. Introduction..................................................................................................................4

II. EnvironmentalLiabilities..............................................................................................7

A. SourceofObligation................................................................................................8

B. Materiality...............................................................................................................8

C. Uncertainty..............................................................................................................9

D. ObligatingEvents....................................................................................................9

E. ConnectiontoOngoingBusiness...........................................................................10

F. ConnectiontoAssets.............................................................................................10

G. Strict,Retroactive,JointandSeveralLiability.......................................................10

H. NonfinancialLiabilities..........................................................................................11

I. FinancialAssurance................................................................................................14

III. AccountingforEnvironmentalLiabilities....................................................................15

A. AccountingAuthorities..........................................................................................16

B. LiabilitiesandContingencies.................................................................................16

C. EnvironmentalLiabilitiesandContingencies.........................................................17

1. EnvironmentalLossContingencies....................................................................19

2. EnvironmentalRemediationLiabilities..............................................................20

3. AssetRetirementObligations............................................................................21

IV. PriorityinBankruptcy.................................................................................................22

A. ThePriorityScheme..............................................................................................23

B. PriorityAdministrativeExpenses...........................................................................23

C. Maturity.................................................................................................................25

D. ValuationandAllocation.......................................................................................26

E. SuperPriority.........................................................................................................31

V. EstimationofEnvironmentalLiabilities......................................................................33

A. Transparency.........................................................................................................34

B. Uncertainty............................................................................................................35

1. ExistenceofLiability..........................................................................................35

2. TimingandAmountofCashOutflows...............................................................38

C. ExistingLawsandInterpretations.........................................................................42


D. KnownMinimumValue.........................................................................................42

E. MidpointofRange.................................................................................................44

F. MostLikelyValue...................................................................................................44

G. ExpectedValue......................................................................................................45

H. ExpectedPresentValue........................................................................................45

I. ExitPrice.................................................................................................................46

J. FairValue................................................................................................................46

1. MeasurementObjective....................................................................................47

2. UnbundledLiabilities.........................................................................................47

3. NoActiveMarket...............................................................................................47

4. Applicability.......................................................................................................48

5. Methodology.....................................................................................................48

6. Inputs.................................................................................................................49

7. MarketRiskPremium........................................................................................50

8. Discounting........................................................................................................52

VI. TruthinAccounting....................................................................................................66

A. Incompleteness.....................................................................................................66

B. MeasurementPrinciple.........................................................................................67

C. DiversityinPractice...............................................................................................68

D. Subjectivity............................................................................................................69

VII.ValuationofEnvironmentalLiabilitiesinBankruptcy.................................................70

A. Contingencies........................................................................................................71

B. EnvironmentalRemediationLiabilities..................................................................71

C. AssetRetirementObligations................................................................................72

D. PresentValue........................................................................................................73

E. FairValueandFairValuation.................................................................................74

VIII. Conclusion............................................................................................................76


I. INTRODUCTION

Thefinancialstatementsofcompaniesnearorinbankruptcymayreflectsignificantamounts for environmental liabilities. Yet, these so-called “provisions” (alsosometimes called “reserves”) can be highly misleading. These misnomersmistakenly imply that assets have been set aside to resolve the liability,which israrely the case. They can also convey false assurance that the amount of acompany’senvironmentalobligationsisfullyknownandaccountedforwheninfacttheamountsrecordedinthefinancialstatementsoftenrepresentonlythetipoftheiceberg.Howcanthatbe?The“answer”liesinthepeculiaritiesandshortcomingsof current environmental accounting standards and practices, which can surprisenot only counterparties in bankruptcy transactions but also the debtor’smanagement. The consequences of misperceptions about the value ofenvironmental liabilities can be compounded by misunderstandings about thetreatmentofenvironmentalliabilitiesinbankruptcy.

Thepurposeof thischapter is toexplainhowenvironmental liabilitiesdiffer fromother types of claims in bankruptcy in important ways that are frequentlymisunderstood, how accounting principles and practices applicable toenvironmentalliabilitiescanresultinmisperceptionsofvaluationofenvironmentalobligations,howthesemisperceptionscanleadtomisjudgmentsinbankruptcy,andhowwell-informedbankruptcypractitionersandinterestedstakeholders,includingcreditratingsagenciesandequityanalysts,canovercomethesemisperceptionsandusethemtotheiradvantage.

Commonmisperceptionsaboutenvironmentalliabilitiesinclude:

• Environmentalliabilityprovisions(alsocalled“reserves”)representcashorotherassetssetasidetoresolveenvironmentalliabilitieswheninfacttheyreflectonlythemanagement’s(potentiallyflawedorself-serving)estimatesoffuturecashoutflows.

• Environmentalliabilitiesarecontingentwheninfactmostenvironmentalremediationliabilitiesandallassetretirementobligationsarenoncontingent.

• Environmentalliabilitiesarisefromlitigationinwhichthedebtordisputesliabilityand(or)damageswheninfactmostenvironmentalliabilitiesarestatutoryassetretirementobligationsthatariseoutsideoflitigationandareuncontestedbythedebtor.

• Environmentalliabilitiesarelikeotherfinancialliabilities(obligationstodelivercash)wheninfacttheyaremostoftennonfinancialliabilities(obligationstodeliverservices)andthusarenot“claims”inbankruptcy.

• Environmentalliabilityprovisionsreflectallofthedebtor’sknownenvironmentalliabilitiesandcontingencieswheninfacttheyreflectonly


thosemattersforwhichmanagementhasdeterminedliabilityisboth“probableandreasonablyestimable”.

• Environmentalliabilityprovisionsrepresenttheexpectedcashoutflowsrequiredtofullysettle,resolveortransferthecompany’sliabilitywheninfacttheyoftenrepresentonlythelowendoftherangeofpossibleoutcomes.

• Auditedfairvalueestimatesofenvironmentalliabilitiesreliablyreflectthetrueeconomicvalueoftheseobligationswheninfacttheymaynot.

Thesemisperceptionscanleadtomisjudgmentsinbankruptcy,suchas:

• Bankruptcypractitionersandstakeholdersmayassumethatenvironmentalliabilitiesareimmaterialwheninfacttheymaybehighlymaterialtoissuesofsolvencyandplanfeasibilityifproperlyvalued.

• Bankruptcypractitionersandstakeholdersmayassumethatenvironmentalliabilitiesaregeneralunsecuredclaimsthatcanbeimpairedanddischargedwheninfacttheymostoftenarepriorityadministrativeexpensesoreven“superpriorities”thatmustbepaidinfullandcannotbedischarged.

• Bankruptcypractitionersandstakeholdersmayassumethatenvironmentalliabilitiescanbetransferredtoabuyeralongwiththesaleoftherelatedassetswheninfactenvironmentalregulatorsmayhavethepowertopreventthesaleuntiltheobligationsareadequatelysecured.

• Bankruptcypractitionersandstakeholdersmayassumethatenvironmentalliabilitiesmustbepaidfromthebankruptcyestatewheninfactotherresponsibleparties,suchaspredecessors-in-interest,successors-in-interest,lenders,andaffiliatedentitiesmaybejointlyandseverallyliable.

To build confidence with debtor-in-possession lenders, prepetition creditors, theU.S. Trustee and the bankruptcy court, Chapter 11 debtors must present a truepictureofenvironmental liabilities in their initial filings. Bydoingsodebtorsandtheirrepresentativesmayfacilitatetimelyapprovaloftheirplanofreorganization.Toverifywhetherdebtorshaveinfactfairlypresentedthenatureandmagnitudeoftheirenvironmentalliabilitiesandtoavoidunpleasantsurpriseslateron,creditorsandotherstakeholdersshouldconsiderthefollowingsteps:

1. Comparethedebtor’sscheduleofliabilitieswithitsauditedfinancialstatementstoensurethatallreportedenvironmentalliabilityprovisionsarelistedintheschedule.

2. Distinguishbetweenthedebtor’sfinancialenvironmentalliabilities(thosesubjecttoarighttopayment)andthedebtor’snonfinancialenvironmentalliabilities(thoserequiringperformanceofservices).

3. Performsufficientenvironmentalduediligencetoassessthelikelihoodofsignificantunreportedenvironmentalliabilitiesandcontingencies.2

2SeeC.GregoryRogers,EnvironmentalDisclosureDueDiligence,BusinessLawToday,Volume16,No.5,May/June2007.


4. Performahighlevelforensicanalysistodeterminewhetherreportedenvironmentalprovisionsappearreliable.3

5. Ifreportedenvironmentalprovisionsappearunreliable,inquireabouttheaccountingprocessesfollowedtogeneratetheseestimates,includingtheprocessesforidentification,assessment,measurement,andreportingofenvironmentalliabilities.

6. Determinewhichenvironmentalliabilitieshavefairvalueestimatesandwhichdonot.Assumethatnon-fairvalueestimatesdonotreflectfairvalue.

7. Withrespecttofairvalueestimates,inquireaboutthemethodologiesandinputsusedtodetermineexpectedcashoutflows,marketriskpremium,discountratesandthediscountperiod.

8. Calculateadjustedestimatesbasedonalternativeassumptionsaboutinputs(e.g.,useofariskfreerateinsteadofacreditadjustedrate)andassessthematerialityoftheadjustedestimatestotheissuesofsolvencyandplanfeasibility.

9. Whenenvironmentalliabilitiesappeartobematerialtothedeterminationofthepriorsolvencyofthedebtorortothefeasibilityoftheproposedplanofreorganization,developground-upestimatesusingtheprinciplesoffairvaluemeasurementdescribedinthischapter.

By following these steps, interested parties can better ensure that environmentalliabilities are appropriately estimated with the objectives of fairly assessing thevalue of claims as well as maximizing the value and viability of the debtor uponemergencefrombankruptcy.

Practice Note: Past experience with environmental liabilities, especially assetretirementobligations,inbankruptcymaynotbeindicativeoffutureresultsduetotherapidlychangingeconomicenvironmentforenergyresources.Forexample,formanyyearscoalminingcompaniesandthemostastutebankruptcypractitioners,debtor-in-possession lenders, anddistresseddebt investorshavebelieved thatasset retirementobligations and related environmental liabilities could be safely ignored. Indeed, in2015 one of the heads of the nation’s largest distressed debt funds stated to theauthors:

Yourconclusion thatundervaluedobligations forassetretirementandrelated cleanup could dramatically affect creditor rights certainlyappears to bewell reasoned and correct, but I have been investing indistresseddebtandbankruptcysituationsfor30yearsandIhaveneverseenacasewheretheseliabilitiesmadeadifference.Inmyexperience,companies come into bankruptcy with these obligations and get

3SeeC.GregoryRogers,ABoard's-EyeViewofEnvironmentalLiabilities,NACDDirectorship,Vol.36Issue1,p66(Feb/Mar2010);seealsowww.era-tos-thenes.com.


dischargedwith themor theyare transferred toabuyer, andnothingreallychanges.

Likemusicalchairs,obligationsforassetretirementandrelatedcleanupoftencanbedeferred or passed along to otherswhoacquire the assets until themusic stops. In2016themusic stopped for thecoal industryasawholeandmanyplayerswere leftwithoutachairwhencountlessminesbecamenon-economicandsubjecttoimmediateretirement.Otherenergy-relatedindustriesmaybenextastheworldtransitionstoalow-carboneconomy.

II. ENVIRONMENTALLIABILITIES

Environmental liabilities have unique characteristics that may bear on theirrelevancyandvaluationinabankruptcycontext.

Practice Note: Common misperceptions about environmental liabilities include thefollowing:

• Environmentalliabilitiesarisefromlitigationinwhichliabilityand(or)damagesaredisputedwheninfactmostenvironmentalliabilitiesarestatutoryassetretirementobligationsthatariseoutsideoflitigationandareuncontestedbythedebtor.

• Environmentalliabilitiesbearsimilarcharacteristicstothedebtor’sotherliabilitieswheninfact“nonfinancial”environmentalliabilitiesarenot“claims”inbankruptcy.

• Environmentalliabilitiesaregeneralunsecuredclaimsthatcanbeimpairedanddischargedwheninfacttheymostoftenarepriorityadministrativeexpensesoreven“superpriorities”thatmustbepaidinfullandcannotbedischarged.

• Environmentalliabilityprovisions(alsocalled“reserves”)representcashorotherassetssetasidetoresolveenvironmentalliabilitieswheninfacttheyreflectonlymanagement’s(potentiallyflawedorself-serving)estimatesoffuturecashoutflows.

• Environmentalliabilitiesmustbepaidfromthebankruptcyestatewheninfactotherresponsibleparties,suchaspredecessors-in-interest,successors-in-interest,lenders,andaffiliatedentitiesmaybejointlyandseverallyliable.

Combined,thesemisperceptionscanleaddebtorstoomituncontestedenvironmentalliabilities from schedules and lull credit ratings agencies, equity analysts,counterparties, trustees and courts into overlooking the effect of these liabilities onsolvencyandplan feasibility, theirpossiblepriorityoverother claims,andpotentialalternativesourcesoffundingoutsideofthebankruptcyestate.


A. SOURCEOFOBLIGATION

Environmentalliabilitiesarelegalobligationsarisingunderlawsdesignedtoprotecthuman health and the environment. They may stem from historical releases ofhazardoussubstancesthatpredatemodernenvironmentalprotectionlaws,suddenand accidental releases such as the Gulf Oil Spill, criminal or improper wastemanagement practices, or in the case of decommissioning, restoration andenvironmentalrehabilitationobligations(knownas“assetretirementobligations”),thenormalcourseofoperations.4

B. MATERIALITY

Thepressureoncompaniestomeetlegalobligationsandglobalstandardsaimedatprotectionoftheenvironmentissignificantandrising.Theestimatedcoststofulfillexisting regulatory obligations for environmental remediation anddecommissioningadduptosizablepresentliabilities,particularlyforthechemicals,oilandgas,andmetalsandminingindustries.5

The prevalent types of environmental liabilities reflected in corporate financialstatements vary by industry. Chemical companies tend to have mainlyenvironmental remediation liabilities (see Section III.C.2). The majority ofenvironmental liabilities in the oil and gas andmetals andmining industries areassetretirementobligations(seeSectionIII.C.3).In2006,Standard&Poor’s(S&P)found that reported asset retirement obligations and environmental remediationliabilities combined averaged approximately 50%, 40% and 10%, respectively, ofreported financial debt in the oil and gas, metals and mining, and chemicalsindustries.6

CreditratingagenciessuchasS&Ptreatprovisionsforassetretirementobligationsasadditionstodebt.7Assetretirementobligationsrepresentasignificantpartofthe

4SeeC.GregoryRogers,FinancialReportingofEnvironmentalLiabilitiesandRisksafterSarbanes-Oxley(Wiley,2005)(hereinafter“Rogers”).5Standard&Poor’sRatingsDirect:PoorDisclosurebyEurope'sChemicals,Oil&Gas,AndMetals&MiningCompaniesGivesLimitedInsightintoDecommissioningandEnvironmentalProvisions(September27,2007)(hereafter“S&PEnvironmentalProvisions”),availableathttp://www.endseurope.com/docs/70927b.pdf.6Id.7SeeStandard&Poor’sEncyclopediaofAnalyticalAdjustmentsforCorporateEntities(2007).


financialriskofthesecompaniesbecausethemajorityofcashoutflowsoccurattheendoftheproject’slife.8Environmentalremediationliabilitiesalsocanrepresentasignificantfinancialriskduringadownwardbusinesscycle.9

C. UNCERTAINTY

Nonfinancialenvironmentalliabilitiesarecharacterizedbyuncertainty.Often,thereisuncertainty as to the existenceof liability—is there a currentobligationarisingfrom a past event that will result in a future cost to the company? When theexistenceofliabilityiscertain,oratleastprobable,therewillremainuncertaintyasto the timing and amount of the cost—the cash outflows required to pay for theservices required to settle the obligation. Consequently, judgment is required inmanyinstancestodeterminetheprobabilityofacontingentliability,rangingfrom0percentto100percent,andwhethertheexistenceofliabilityissufficientlylikelytobe recognized on the company’s balance sheet. Judgment is required in almosteveryinstancetoestimatetheultimatecost.Rarely,arenonfinancialenvironmentalliabilitiesfullyliquidated.

D. OBLIGATINGEVENTS

Anobligatingeventisaneventthatresultsintheexistenceofliabilityandleavestheobligor littleornodiscretiontoavoid the future transferoruseofassets tosettlethe obligation.10 An obligating event giving rise to environmental liability resultsfromacombinationoffactsandlaw.Forexample,anobligatingeventforanassetretirement obligation requires certain facts—the acquisition, construction,development or normal operation of a long-lived asset—and certain legalconditions—anexistingorenactedlaw,statute,ordinance,orcontractthatmandatespecifiedactivitiesoroutcomesuponpermanentretirementoftheasset.11

Unlikeamendingacontractbetweentwopartieswherebothpartiesmustconsenttothechange,governmentscanchangeenvironmental laws—throughthepoliticalprocess or by promulgating new or modified regulations—and thereby create ormodify a regulated entity’s liability retroactively.12 Enactment of a new law or a

8S&PEnvironmentalProvisions.9See,e.g.,InreTronoxIncorporated,503B.R.239(Bankr.S.DNewYork2013).10SeeASC410-20-55-3.11SeeASC410-20-15-2.12SeeRogersatp.34.


change in the interpretation of existing laws can give rise to new environmentalliabilities or change the expected activities and costs to settle existingenvironmentalliabilities.13

E. CONNECTIONTOONGOINGBUSINESS

Environmental remediation liabilities may involve cleanup of contaminated sitesconnectedwith past activities ormay be the result of a spill or release resultingfromcurrentbusinessoperations.Assetretirementobligations,bydefinition,arisefromtheacquisition,construction,developmentornormaloperationofalong-livedasset. Asset retirement activities may include dismantling and removal ofproductionfacilitiesandreturningproductionsitesbacktotheiroriginalconditionsubjecttoenvironmentalstandardsineffectatthetimeofassetretirement.

F. CONNECTIONTOASSETS

Unlikemostothertypesofliabilities,environmentalliabilitiesareofteninextricablylinked toacompany’sassets in that theasset iseithercontaminatedorsubject tospecial end-of-life abandonment, recycling, or disposal requirements. Assetretirement obligations, by definition, are legal obligations associated with theretirement of tangible long-lived assets. The legal obligation to retire an asset inaccordance with environmental laws cannot be separated from the asset itself.Environmental remediation liabilities may exist with respect to either owned orleasedproperties,suchasafactorysite,ornon-ownedsites,suchaswastedisposallandfills owned or operated by a third party. When a company’s environmentalliabilities are directly associated with its assets this link can make them moredifficult,orevenimpossible,toabandonordischargeinbankruptcy.14

G. STRICT,RETROACTIVE,JOINTANDSEVERALLIABILITY

The liability scheme under environmental remediation laws, such as theComprehensive Environmental Response, Compensation, and Liability Act

13StatementofFinancialAccountingStandardsNo.143,AccountingforAssetRetirementObligations(“SFAS143”),at¶B54.14Seee.g.,InreCMCHeartlandPartners,966F.2d1143(7thCir.1992),inwhichthedebtorownedahazardouswastesiteandwentthroughbankruptcyundertheBankruptcyActof1898.Subsequently,EPAissuedanorderpursuanttoCERCLA§106,42U.S.C.§9606,tothedebtor,whostillownedthesite,requiringremovalandremediationactivity.TheSeventhCircuitCourtofAppealsheldthattheorder,whichwasbasedonownershipoftheland,survivedreorganization.


(CERCLA), is dramatically different from traditional common law and statutoryliability schemes. CERCLA is characterizedby theway inwhich it imposes strict,retroactive,andjointandseveralliabilityonpersonsdeemedtoberesponsibleforenvironmentalcontamination, includingcurrentownersofcontaminatedproperty,whetherornottheycausedorcontributedtothecontamination.15Lawsgoverningdecommissioning requirements for offshore oil and gas production have adoptedsimilarapproaches.16

H. NONFINANCIALLIABILITIES

In accounting, a financial liability is broadlydefined as a contractual obligation todeliver cash; whereas, a nonfinancial liability is an obligation to deliver goods orservices.17 Nonfinancial liabilities include asset retirement and environmentalcleanup obligations, and the term nonfinancial liability seems destined to replacesuchtraditionaltermsasprovisionandreservetodescribetheseobligations.18Somehave expressed concern to accounting regulatorsabout theterm nonfinancialliability,notingthatallliabilitiesmaybedescribedasfinancialinitsbroadestsense.Notwithstanding, the potential for confusion, U.S. and international accountingstandardsboardsarecommittedtousingtheterm.19Bankruptcypractitionersneednot be concerned about evolving accounting terminology. Instead, we drawattentiontothetermnonfinancialliabilitybecausethedistinctionbetweenfinancialand nonfinancial environmental liabilities has important—indeed critical—consequences in bankruptcy, as will be explained below. Most significantly, pre-petitionnonfinancialenvironmentalliabilitiesarenot“claims”withinthedefinitionofBankruptcyCodesection101(5).

15SeeASC410-30-05.16Seegenerally30CFR§250.1701(a)(reoilandgaspipelines)(“Lesseesandownersofoperatingrightsarejointlyandseverallyresponsibleformeetingdecommissioningobligationsforfacilitiesonleases,includingtheobligationsrelatedtolease-termpipelines,astheobligationsaccrueanduntileachobligationismet.”).17SeeStatementofFinancialAccountingStandardsNo.157,FairValueMeasurements,¶15;seealsoInternationalAccountingStandardNo.32,FinancialInstruments:Presentation,¶11.18SeeExposureDraftofInternationalAccountingStandardNo.37,Provisions,ContingentLiabilitiesandContingentAssets,¶10.19SeeIAS37Redeliberations:ScopeofIAS37,at¶¶18-33,availableathttp://www.ifrs.org/Meetings/MeetingDocs/IASB/Archive/Liabilities/Development%20of%202nd%20ED/IAS37-0603b05a.pdf.


Environmentalliabilitiesmaybefinancialinnature,butaremostoftennonfinancialinnature.Environmentalliabilitiesarefinancialinnaturewhentheobligationhasbeenorcanbereducedtoamonetaryclaim.Examplesofenvironmentalliabilitiesthat are financial in nature include government claims for reimbursement of pre-petition asset retirement and remediation expenses and contractual claims forindemnificationofenvironmentallosses.Environmentalliabilitiesarenonfinancialinnaturewhenthedebtorhasanobligationtodeliverservices.Theseservicesmayinclude,forexample,remediatinghistoricalenvironmentalcontamination,properlydisposing of previously-generated hazardous wastes, or decommissioning andrestoringproductionassetssuchasmines, landfills,oilandgaswellsandasbestosbuildingmaterials inaccordancewithenvironmental lawsandregulations. Inanycasewherethegovernmentretainstheabilitytocompeltheperformanceoffuture(i.e.,post-petition)cleanuporassetretirementactivitiestoprotecttheenvironmentandpublichealth,theobligationisnonfinancialinnature.

Nonfinancial environmental liabilities differ from financial obligations in severalimportantrespects.Forexample:

• Governmentsarefreetoretroactivelychangelawsandregulationsimposingoraffectingnonfinancialenvironmentalliabilitiesrelatedtopre-existingconditions.

• Aslawsgoverningexistingassetretirementandcleanupobligationsorenforcementofexistinglawsbecomemorestringent,aresponsibleparty’scompliancecostscanincreasedramatically.

• Nonfinancialenvironmentalliabilitiesdonothaveaprincipalamountandhavenomonetarycap—itcostswhateveritcoststocompletetheactivitiesnecessarytoachievelegallymandatedoutcomes.

• Nonfinancialenvironmentalliabilitiesinvolvenegativecashflowswherethereisnocounterpartytoreceivethepositivecashflows.Thedebtormustspendmoneyonservicestosettletheobligation,buttheholderoftheobligation(usuallythegovernment)receivesservicesoranoutcomeratherthanmoney.

• Nonfinancialenvironmentalliabilitiesdonothavearecordedentrypriceattheonsetoftheobligationoranactivetradingmarkettosetpricesthereafter.20Certaintypesofassetretirementobligationsareestimatedinconnectionwithfinancialassurancerequirementsforfutureassetretirement

20Foraccountingpurposes,an“entryprice”isdefinedas“Thepricepaidtoacquireanassetorreceivedtoassumealiabilityinanexchangetransaction.”ASC820-10-20.An“activemarket”isdefinedas“Amarketinwhichtransactionsfortheassetorliabilitytakeplacewithsufficientfrequencyandvolumetoprovidepricinginformationonanongoingbasis.”ASC820-10-20.


activitiessuchasminereclamation.21However,eveninthesecases,thereisnoentryprice.

• Nonfinancialenvironmentalliabilitieshavenofixedpaymentdatesandmaycallforsettlementuponconditionalfutureevents,suchasthepermanentretirementofamineoroilandgasproductionfacility.

• Nonfinancialenvironmentalliabilitiesdonotbearinterest.• Nonfinancialenvironmentalliabilitiesaresubjecttotheextraordinary

regulatoryandpolicepowersofstateandfederalgovernments.Nonfinancialenvironmentalliabilitiesarenotdebtsinbankruptcy.TheBankruptcyCode defines the termdebt as “liability on a claim”.22 The Code defines the termclaimas—

(A) right to payment, whether or not such right is reduced tojudgment, liquidated, unliquidated, fixed, contingent, matured,unmatured, disputed, undisputed, legal, equitable, secured, orunsecured; or (B) right to an equitable remedy for breach ofperformanceifsuchbreachgivesrisetoarighttopayment,whetherornotsuchrighttoanequitableremedyisreducedtojudgment,fixed,contingent, matured, unmatured, disputed, undisputed, secured, orunsecured.23

Nonfinancialenvironmentalliabilities,bydefinition,arenotarighttopaymentorarighttoanequitableremedyforbreachofperformancethatgivesrisetoarighttopayment. 24 Because nonfinancial environmental liabilities are not debts, they21Seee.g.,NevadaBLMBondingGuidelinesforNoticesandPlansofOperationsAuthorizedUnder43CFR3809,availableathttp://www.blm.gov/style/medialib/blm/nv/information/laws__regs____policies/ibs___ims/2005/ims.Par.59592.File.dat/nvim2005-063a1.pdf.2211U.S.Code§101(12).2311U.S.Code§101(5).24BecausedebtsaredischargeableinChapter11,itiscriticalinabankruptcycasetodeterminewhetherthedebtor’senvironmentalobligationsarefinancialliabilitiesornonfinancialliabilities.Foranexampleofanenvironmentalfinancialliabilities,seeOhiov.Kovacs,469U.S.274,105S.Ct.705,83L.Ed.2d649(1985)(concludingthatthestatehada"righttopayment"andthuspossesseda"claim"againstthedebtoronbasisthatthedebtornolongerhadpossessionofthecontaminatedsitenorcontroloverthecleanupandallthestatesoughtfromthedebtorwasmoneytofundthecleanup).Forexamplesofnonfinancialenvironmentalliabilities,seeU.S.v.ApexOilCo.,Inc.,579F.3d734(7thCir.2009)(rejectingtheargumentthatthecostofcomplyingwithanequitabledecreetoperformcleanupshouldbedeemedamoneyclaim,andhencedischargeable)


cannotbedischargedinbankruptcy.25Moreover,asexplainedbelow,post-petitionexpenses to resolve nonfinancial environmental liabilities may be affordedadministrative expense priority or even super priority ahead of debtor-in-possessionloans.

I. FINANCIALASSURANCE

Acommonmisperceptionisthatanaccounting“provision”(alsosometimescalleda“reserve” or an “accrual”) represents assets set aside to resolve environmentalliability. However,accountingprovisionsforenvironmentalliabilityarenotassetsatall.Instead,theyaresimplyformalacknowledgementsofobligationstobesettledin the future. There isno“lockbox,”andtheseaccountingentriesdonot indicatethatthere ismoneyinareserveorthatassetshavebeenprovisionedtosettlethecompany’s environmental obligations. As stated by the Financial AccountingStandardsBoard,“Accountingaccrualsdonotprovideprotectionagainstlosses”:

Accrualofalossrelatedtoacontingencydoesnotcreateorsetasidefunds to lessen the possible financial impact of a loss…. The Boardbelieves that confusion exists between accounting accruals(sometimesreferredtoas"accountingreserves")andthereservingorsettingasideofspecificassetstobeusedforaparticularpurposeorcontingency. Accounting accruals are simply a method of allocatingcostsamongaccountingperiodsandhavenoeffectonanenterprise'scash flow. An enterprisemay choose tomaintain or have access tosufficient liquidassetstoreplaceorrepair lostordamagedpropertyortopayclaimsincasealossoccurs.Alternatively,itmaytransfertherisktoothersbypurchasinginsurance.Thosearefinancialdecisions,andifenterprisemanagementdecidestodoneither,thepresenceorabsenceofanaccruedcreditbalanceonthebalancesheetwillhavenoeffectontheconsequencesofthatdecision.26

Some environmental laws require companies to provide evidence of financialassurance(e.g.,lettersofcredit,insurancepolicies,suretybonds,and“self-bonding”

andInreTorwicoElectronics,Inc.,8F.3d146(3rdCir.1993)(state'sattempttoforceapartytocleanupawastesitewhichposesanongoinghazardisnota"claim"asdefinedbytheBankruptcyCode).25Seee.g.,11U.S.Code§1141(d)(1)(A)(theconfirmationofaplandischargesthedebtorfromany“debt”thatarosebeforethedateofsuchconfirmation).26SFAS5,AccountingforContingencies,¶61.


through demonstration of financial wherewithal) that they can satisfy theirobligationsastheycomedue.27However, financialassuranceprograms,especiallythose that allow self-bonding, frequently fail to fully secure environmentalobligations.28

Self-bondingforassetretirementobligationsisincreasinglyunderattack.Aspateofcoal bankruptcies in 2015-16 prompted calls for elimination of self-bonding formine reclamation costs.29 In June 2016, U.S. Senator Maria Cantwell [D-WA]introducedlegislationtoendthepracticeofself-bondingundertheSurfaceMiningControlandReclamationAct(SMCRA).30InAugust2016,theheadoftheU.S.OfficeofSurfaceMiningandReclamationEnforcement(OSMRE)announcedtheagency’sintenttotoughenwhathecalled"out-of-date"rulesforguaranteeingminecleanups.Similarly, the United States Department of the Interior Bureau of Ocean EnergyManagement issuednew rules that cut backon self-bonding fordecommissioningliabilityintheOuterContinentalShelf.31

III. ACCOUNTINGFORENVIRONMENTALLIABILITIES

Environmental liabilities and contingencies must be recorded (“recognized”) in acompany’s financial statements when certain criteria are met. This sectiondiscusses the criteria for recognition and initial measurement of environmentalliabilitiesunderU.S.andinternationalaccountingstandards.

Bankruptcy practitionersmust understandwhat can reasonably be inferred fromthepresenceorabsenceofenvironmentalliabilityaccountingestimatesinfinancialstatements.

27SeeRogersatp.273.28SeeproposedruletoupdateregulationsandprogramoversightforOuterContinentalShelf(OCS)financialassurancerequirements,70Fed.Reg.49027(August19,2014);seealsoJamesBoyd,Financialresponsibilityforenvironmentalobligations:Arebondingandassurancerulesfulfillingtheirpromise?,ResourcesfortheFuture(2001)athttp://core.ac.uk/download/pdf/9307839.pdf.29Seee.g.,Self-BondinginanEraofCoalBankruptcy:RecommendationsforReform,InstituteforPolicyReform,NewYorkUniversitySchoolofLaw(August2016).30SenateBill3066,“Abilltoprotecttaxpayersfromliabilityassociatedwiththereclamationofsurfacecoalminingoperations,andforotherpurposes.”31NTLNo.2016-N01,athttp://www.boem.gov/BOEM-NTL-2016-N01.


PracticeNote:Indeterminingfairvaluation,bankruptcycourtsdiscountthevalueofcontingentclaimstoreflecttheprobabilitythatafutureeventwillorwillnotoccur.Itisacommonmisperceptionthatenvironmentalliabilitiesarecontingentwheninfactmostenvironmentalliabilitiesarenoncontingent.Thismisperceptioncancausecreditratingsagencies,equityanalysts,andparties inbankruptcy tomidjudge theamountand timing of cash flows to resolve environmental liabilities and their potentialsignificancewithrespecttosolvencyandplanfeasibility.

A. ACCOUNTINGAUTHORITIES

Audited financial statements issued byU.S. listed companiesmust be prepared inaccordancewith generally accepted accounting principles (U.S. GAAP) establishedby the Financial Accounting StandardsBoard (FASB).32 Financial statements filedwiththeSecuritiesExchangeCommission(SEC)thatarenotpreparedinaccordancewith U.S. GAAP are presumed to bemisleading or inaccurate, unless the SEC hasotherwiseprovided.33

OutsidetheU.S.,mostcompaniesadheretoaccountingstandardsestablishedbytheInternational Accounting Standards Board (IASB) in London. 34 Accountingstandards issued by the IASB are generally referred to as International FinancialReportingStandards(IFRS).

B. LIABILITIESANDCONTINGENCIES

For accounting purposes, liabilities are defined as probable future sacrifices ofeconomicbenefitsarisingfrompresentobligationsofaparticularentitytotransferassets or provide services to other entities in the future as a result of pasttransactions or events.35 Loss contingencies are defined as an existing condition,situation, or set of circumstances involving uncertainty as to possible loss to anenterprisethatwillultimatelyberesolvedwhenoneormorefutureeventsoccurorfailtooccur.Resolutionoftheuncertaintymayconfirmthelossorimpairmentofanassetortheincurrenceofaliability.36

32ASC105-10-15.3317CFR§240.4-01(a)(1).34Seehttp://www.ifrs.org/Use-around-the-worldforacurrentlistofcountriesthathaveadoptedIFRS.35SeeStatementofFinancialAccountingConceptsNo.6¶35.36ASC450-20-20.


C. ENVIRONMENTALLIABILITIESANDCONTINGENCIES

For purposes of U.S. GAAP, there are three types of environmental liabilityestimates—1) environmental loss contingencies,372) environmental remediationliabilities,38and 3) asset retirement obligations.39 Under International FinancialReportingStandards(IFRS)issuedbytheIASB,theseareknownrespectivelyas1)contingentenvironmental liabilities,2)environmentalremediationprovisions,and3)decommissioning,restorationandenvironmentalrehabilitationprovisions.40

Accounting Standards Codification (ASC) Topic 410, Asset Retirement andEnvironmentalObligations, governs accounting for environmental liabilities underU.S. GAAP. Under IFRS, decommissioning (asset retirement) liabilities andenvironmental obligations are accounted for in accordance with the generalprinciples in IAS 37, Provisions, Contingent Liabilities and Contingent Assets, andIFRIC 1, Changes in Existing Decommissioning, Restoration and Similar Liabilities.Table 1 provides a high-level simplified summary of accounting terms andtreatmentsofenvironmentalliabilitiesunderU.S.GAAPandIFRS.

37ASC450-20.38ASC410-30.39ASC410-20.40InternationalAccountingStandard(IAS)37,Provisions,ContingentLiabilitiesandContingentAssets,at¶10andIFRICInterpretation1,ChangesinExistingDecommissioning,RestorationandSimilarLiabilities.


TABLE1ENVIRONMENTALLIABILITIES

U.S.GAAP Environmentallosscontingencies

Environmentalremediationliabilities

Assetretirementobligations

IFRS Contingentenvironmentalliabilities

Environmentalremediationprovisions

Decommissioning,restorationandenvironmentalrehabilitation

provisions

NatureofLiability

Contingent ContingentorNoncontingent Noncontingent

WhenRecorded When“probable41andreasonablyestimable”

When“probableandreasonablyestimable”

Whenreasonablyestimable

HowMeasured Ifnobestestimate,minimuminrange(midpointor

expectedvalueunderIFRS)

Ifnobestestimate,minimuminrange(midpointorexpected

valueunderIFRS)

Fairvalueorexpectedpresentvalue42

DiscountRateU.S.GAAP

Marketbasedbutnohigherthanriskfreerateifdiscountingisallowed

Marketbasedbutnohigherthanriskfreerateifdiscountingisallowed

Creditadjustedriskfreerateconsideringliability-specificrisks43

DiscountRateIFRS

Pre-taxmarketrateconsideringliability-specific

risks

Pre-taxmarketrateconsideringliability-specific

risks

Pre-taxmarketrateconsideringliability-specificrisks

ClaimValueinBankruptcy

Fairvaluation Fairvaluation Fairvaluation

41BothIFRSandU.S.GAAPcontainaprobabilitythresholdfortherecognitionofanenvironmentalliability.ProbablewithinIFRSisdefinedasmorelikelythannot(i.e.,morethan50%),whereasprobableisnotasclearlydefinedunderU.S.GAAP(butisinterpretedinthiscontexttobeapercentageashighas80%).42IFRSrequiresadecommissioningliabilitytobemeasuredinitiallyatthebestestimateoftheexpenditurerequiredtosettletheobligation.U.S.GAAPrequiressuchliabilitiestobemeasuredatfairvalue.AlthoughtheremaybedifferencesintheinitialmeasurementofdecommissioningliabilitiesunderIFRSandU.S.GAAP,theyaregenerallymeasuredusinganexpectedpresentvaluetechniqueunderbothstandards,andtheresultingestimatesshouldbereasonablycomparable.43SubsequentmeasurementofadecommissioningobligationisaccountedfordifferentlyunderIFRSandU.S.GAAPwithrespecttodiscountrates.UnderIFRS,adecommissioningobligationisremeasuredeachreportingperiodgivingconsiderationtochangesintheamountortimingofcashoutflowsandchangesinthediscountrate;whereas,underU.S.GAAP,theobligationisadjustedonlyforchangesintheamountortimingofcashoutflows(i.e.,theobligationcontinuestobemeasuredusingtheratewhenthedecommissioningobligationwasincurred).IfincrementalcashoutflowsarerequiredtobeincludedinthemeasurementoftheliabilityrecordedunderU.S.GAAP,thosecashoutflowsareincludedusingthecurrentdiscountrateresultingina“layering”ofadecommissioningobligationatdifferentdiscountratesiftheobligationisincurredoradjustedovertime.


1. ENVIRONMENTALLOSSCONTINGENCIESContingent environmental liabilities, also known as environmental losscontingencies, include—(a) possible obligations that arise from past events(commonlythereleaseofpollutantstotheenvironment)andwhoseexistencewillbe confirmedonlyby theoccurrenceornon-occurrenceofoneormoreuncertainfuture events not wholly within the control of the debtor (e.g., a neighbor’sdiscovery of offsite migration of contaminated groundwater or enforcement of aclaim by a regulatory agency); and (b) present obligations that arise from pasteventswhereit isnotprobable thatassetsmustbetransferredtosettlethem(e.g.,an environmental guaranty contained in a property sales contract). 44 Withcontingentenvironmentalliabilities,thereisuncertaintyastowhetheranobligatingeventimposingliabilityonthedebtorhasoccurredorwilloccurinthefuture.

Contingentenvironmentalliabilitiesmayarisefrom pendingorthreatenedlitigationandactualorpossibleclaimsandassessments.Insuchcases,thefollowingfactorsmust be considered in determining whether a liability has been incurred foraccountingpurposes:

• Theperiodinwhichtheunderlyingcauseofthependingorthreatenedlitigationoroftheactualorpossibleclaimorassessmentoccurred.

• Thedegreeofprobabilityofanunfavorableoutcome.• Theabilitytomakeareasonableestimateoftheamountofloss.45

Contingentenvironmentalliabilitiesmayalsoarisefromunassertedclaims,inwhichcasethereportingentitymustdeterminethedegreeofprobabilitythatasuitmaybe filed or a claim or assessment may be asserted and the possibility of anunfavorableoutcome,46orfirst-partyclaims(e.g.,whereapropertyownerdiscovershistorical contamination for which it is responsible and which is covered byenvironmental insurance). Claims for environmental liabilitymay not be broughtuntil years after the obligating event, if at all. Long delaysmay be due to severalfactors,including:

• Historicalpollutionconditionsoftengoundiscoveredorunreportedforlongperiods.

• Thecauseorsourceofhistoricalpollutionconditionsmaybedifficulttodetermine.

44SeeIAS37¶10.45SFAS5,AccountingforContingencies,¶33.46SFAS5,AccountingforContingencies,¶38.


• Physicalmanifestationsofbodilyinjurycausedbyexposuretotoxicsubstancesmaytakelongperiodstodevelop.

Contingentenvironmentalliabilitiesarerecordedasliabilitiesinacompany’sbooksonly aftermanagement concludes that it is probable that an obligating event hasoccurredandtheamountoftheliabilitycanbereasonablyestimated.47Qualitativeorquantitativedescriptionsofcontingentenvironmentalliabilitiesthatarenotbothprobable and reasonably estimablemay be disclosed in the notes to the financialstatements,butpointestimates48arenotrecognizedandrecordedasliabilities.49

2. ENVIRONMENTALREMEDIATIONLIABILITIESEnvironmental remediation liabilities are obligations that arise underenvironmental remediation laws. 50 A unique characteristic of environmentalremediation laws such as the Comprehensive Environmental Response,Compensation, and Liability Act (CERCLA)51and corresponding state laws is thattheyimposestrict,retroactiveandjointandseveralliability.52Underthedoctrineofjoint and several liability, each potentially responsible party (PRP) is potentiallyliablefortheentirecostofcleanup,anditistheresponsibilityofthePRPstoallocatesharesofliabilityamongthemselves.53

Like environmental loss contingencies, environmental remediation liabilities arerecordedasliabilitiesinacompany’sbooksonlyaftermanagementconcludesthatitisprobablethatanobligatingeventhasoccurredandtheamountoftheliabilitycanbe reasonably estimated. 54 Qualitative or quantitative descriptions of

47ASC450-20-25.48A“pointestimate”isanamountselectedforrecognitionordisclosureinthefinancialstatementsasanaccountingestimate.Apointestimateisselectedfromwithinarangeofpossibleoutcomes.SeeAU-CSection540,AuditingAccountingEstimates,IncludingFairValueAccountingEstimates,andRelatedDisclosures,availableathttp://www.aicpa.org/Research/Standards/AuditAttest/DownloadableDocuments/AU-C-00540.pdf.49ASC450-20-50.50SeeASC410.30.05.5142USC§§9601et.seq.52Forageneralbackgroundonenvironmentalremediationlawsastheyrelatetofinancialaccounting,seeASC410-30-05-5.53ASC410-30-05-21&22.54ASC410-30-25-1.


environmental remediation liabilities that are not both probable and reasonablyestimable may be disclosed in the notes to the financial statements, but pointestimatesarenotrecognizedandrecordedasliabilities.55

3. ASSETRETIREMENTOBLIGATIONSAssetretirementobligationsarelegalobligationsassociatedwiththeretirementofa tangible long-lived asset that result from the acquisition, construction, ordevelopmentand(or)thenormaloperationofalong-livedasset,includinganylegalobligationsthatrequiredisposalofareplacedpartthatisacomponentofatangiblelong-livedasset.56

Asset retirement obligationsmay arise under an existing or enacted law, statute,ordinance,orwrittenororal contractorby legal constructionofacontractunderthe doctrine of promissory estoppel. 57 Retirement refers to the other-than-temporary removal of a long-lived asset from service and encompasses sale,abandonment,recycling,ordisposalinsomeothermanner.58Mostassetretirementobligations arise under laws intended to protect human health and theenvironment—forexample,statutesgoverningpluggingandabandonmentofwellsareintendedtopreventcontaminationofgroundwaterandsurfacewaterforallofgeologictime. ThisexplainswhyU.S.GAAPaddressesassetretirementobligationsundertheheading“AssetRetirementandEnvironmentalObligations.”

Anobligation thatwouldotherwisebeconsideredanERL,butwhichresults fromthenormaloperation(asopposedtotheimproperoperation)ofa long-livedassetand that is associated with the retirement of that asset, is an asset retirementobligation.59

Assetretirementobligationsarerecordedasliabilitiesinacompany’sbooksatthetime they are incurred unless the fair value of the liability cannot be reasonably

55ASC410-30-50.56ASC410-20-15-2(a).57ASC410-20-55-1;seeASC410-20-20(defining“Promissoryestoppel”byreferencetoBlack’sLawDictionaryas“Theprinciplethatapromisemadewithoutconsiderationmaynonethelessbeenforcedtopreventinjusticeifthepromisorshouldhavereasonablyexpectedthepromiseetorelyonthepromiseandifthepromiseedidactuallyrelyonthepromisetohisorherdetriment.")58ASC410-20-20.59ASC410-20-15-2.


estimated.60Ifareasonableestimateoffairvaluecannotbemadeintheperiodtheassetretirementobligationisincurred,theliabilityisrecognizedwhenareasonableestimateof fair value canbemade. If a tangible long-lived assetwith an existingassetretirementobligationisacquired,aliabilityforthatobligationisrecognizedattheasset’sacquisitiondateasifthatobligationwereincurredonthatdate.61

IV. PRIORITYINBANKRUPTCY

Environmental liabilitieswill oftenhavepriority over other claims in bankruptcy.Whenenvironmental liabilitiesarepresent, it is therefore important todeterminethenatureoftheobligationsandtheamountandtimingofthecashflowsnecessarytoresolvethem.

PracticeNote:Commonmisperceptionsaboutthepriorityofenvironmentalliabilitiesinbankruptcyincludethefollowing:

• Environmentalliabilitiesaregeneralunsecuredclaimsthatcanbeimpairedanddischargedwheninfactnonfinancialenvironmentalliabilitiesarepriorityadministrativeexpensesthatcannotbedischargedandmustbepaidinfull.

• Onlyliabilitiesthatariseafterthepetitiondatecanqualifyasadministrativeexpenses,wheninfactpost-petitionexpenditurestosatisfypre-petitionobligationsforassetretirementandcleanupareadministrativeexpensesiftheyarefoundtobe“actual,necessarycostsandexpensesofpreservingtheestate.”.

• Securedcreditorsstandinfrontofenvironmentalliabilitieswheninfactliensonassetsencumberedbysignificantnonfinancialenvironmentalliabilitiesmaybeundersecuredandpotentiallyworthless.

• Assetretirementobligationsareunmatured,discountedobligationsthatcansimplypassthroughbankruptcywheninfacttheymaybefullymaturedobligationsthatareimmediatelydueandpayable.

• Environmentalliabilitiescanbetransferredtoapurchaserofthedebtor’sassetswheninfactassetssubjecttononfinancialenvironmentalliabilitiesmayhavenegativevalueandthereforebeunsalable.

• Adebtorcansellits“goodassets”(andtransferanyrelatedenvironmentalliabilitiestothebuyer)andliquidateits“badassets”(therebytransferringanyrelatednonfinancialenvironmentalliabilitiestothepublic)wheninfactgovernmentregulatorsmayhavethepowertopreventsuchsales.

60ASC410-30-25-1.61ASC410-20-25-4.


• Governmentslackthepowerorincentivetoenforcesettlementofnonfinancialenvironmentalliabilitiesinbankruptcywheninfacttheyarecapableandincreasinglymotivatedtoprotecttheirinterests.

Combined, these misperceptions can lead credit ratings agencies, equity analysts,debtors, creditors, trustees and courts to misjudge the priority and credit riskimplicationsofpost-petitionexpensesrequiredtoprotecttheenvironmentandpublichealth.

A. THEPRIORITYSCHEME

The Bankruptcy Code prescribes a priority scheme for distributing assets tocreditors.62 Under that scheme, secured creditors (i.e., creditors with properlyperfected liens on the debtor’s property) are afforded the highest priority.Followingsecuredclaimsinpriorityareadministrativepost-petitionclaims,prioritypre-petition claims (e.g., certain employee and tax claims), non-priority generalunsecured claims (e.g., trade claims, contract/lease claims, deficiency claims ofsecured creditors), contractually subordinated claims, statutory subordinatedclaims,andequityinterests.

The priority scheme dictates the order inwhich claims are paid in a bankruptcyreorganization or liquidation. It also determines the degree to which thecontractualrightsofdifferentclassesofclaimholderswillbe impaired,andhencewhomayobjecttoaproposedplanofreorganization.

B. PRIORITYADMINISTRATIVEEXPENSES

The Bankruptcy Code grants “administrative expense priority” (i.e., a priority inright of payment) to certainpost-petition expenses if they are considered “actual,necessary costs and expenses of preserving the estate.”63 In the context ofenvironmentalclaims,courtshaveexpandedthemeaningof"preservingtheestate"under Section 503 of the Bankruptcy Code to encompass protection of theenvironment and public health. Because Section 959(b) of the Bankruptcy Coderequires a debtor-in-possession or a trustee to comply with applicable laws,

6211U.S.C.§507.6311U.S.C.§503(b)(1)(A).


includingenvironmentallaws,anyfuturecleanupnecessarilybenefitstheestateasitpermitstheestatetoremainincompliance.64

Courts have held that post-petition costs to perform asset retirement activitiesnecessary to protect the environment and public health, such as plugging andabandoning oil and gas wells, preparing an offshore oil platform fordecommissioning, or performing mine reclamation are priority administrativeexpenses. 65 Moreover, priority administrative expenses to comply withenvironmentallawarenotlimitedtopost-petitioncoststhatwillbeincurredpriortoplanapprovalbutalsoincludeestimatedexpensestobeincurredafterthedebtoremergesfrombankruptcy.66

As priority administrative expenses, post-petition costs to satisfy obligations forasset retirement and cleanup will have priority over all other unsecured claims,includingpre-petitionpriorityunsecuredclaimsandgeneralunsecuredclaims.67Toconfirm a reorganization plan, the debtor must pay all priority administrativeexpense claims in full, rather than at a fraction of the claim amount generallyaffordedtounsecuredclaims.

For these reasons, bankruptcy practitioners and stakeholders must be careful todistinguishbetweenadebtor’sfinancialenvironmentalobligationsandnonfinancialenvironmental liabilities (see II.H,Nonfinancial Liabilities). The debtor’s financialenvironmental obligations (e.g., government or third-party claims forreimbursementorindemnificationofpre-petitionexpensesforassetretirementand

64SeeInreStevens,68B.R.774,778(Bankr.D.Me.1987);InreLaurinburgOilCo.,49B.R.652, 654 (Bankr.M.D.N.C. 1984); cf. In re Allen Care Centers,175 B.R. 397, 299 (D.Or.1994).65SeeInreH.L.S.EnergyCo,151F.3d434,439(5thCir.1998)(TexasRailroadCommission’spost-petitionexpensestopluginactiveoilwellsheldtobepriorityadministrativeexpenses)andInreAmericanCoastalEnergyInc.,399B.R.805(Bankr.S.D.Texas2009)(TexasRailroadCommission’spost-petitionexpensestoremediateenvironmentalrisksforwhichdebtorhadongoingresponsibilityheldtobepriorityadministrativeexpenses).66In re Appalachian Fuels, LLC, et. al., Case No. 09-10343 (Bankr. E.D. Kentucky2014) (granting West Virginia Department of Environmental Protection’sapplicationforallowanceofanadministrativeexpenseclaimagainstthedebtorsforestimatedfutureminereclamationcostsandpenalties).

6711U.S.C.§507.


cleanup costs) are general unsecured claims, which will be treated under thedebtor’s plan together with all similar claims, such as the claims of unsecuredbondholders and trade creditors. Conversely, the debtor’s nonfinancialenvironmental liabilities (i.e., costs to perform post-petition services required tocomply with laws intended to protect the environment and public health) willgenerally be afforded priority administrative expense status. Also, as discussedpreviously, thedebtor’snonfinancialenvironmental liabilitiesarenot“claims”andcannotbedischargedinbankruptcy.

C. MATURITY

An asset retirement obligation is incurred upon any event that imposes a legalobligationtoperformspecifiedactivitieswhenanassetisultimatelyretired.Fromalegal and accounting perspective, the obligation to perform the asset retirementactivity is unconditional even though uncertaintymay exist about the timing andmethodof settlement, and even though settlementmaynot be required formanyyearsordecades.68Anassetretirementobligationdoesnotmatureuntiltheasset,orsomeportionthereof,ispermanentlyremovedfromservice.

Unmatured asset retirement obligations pose little concern in a Chapter 11bankruptcy.Thedebtorcaneithercontinuetoownoroperatetheassetitselforsellthe asset to a buyer who will assume the obligation and provide any requiredfinancial assurance. This explains why asset retirement obligations often simply“passthrough”thebankruptcy.

Matureassetretirementobligationsareconceptuallychallenging.Practitionersandcourtsmayincorrectlyassumethatbecauseanassetretirementobligationmaturedpriortofiling,itisapre-petitionclaim.Asnotedabove,however,assetretirementobligations arenot “claims”within the scopeof Section101(5) of theBankruptcyCode because they cannot be reduced to a monetary claim. Asset retirementobligationscanonlybesatisfiedthroughtheperformanceofservices.

If the debtor does not fulfill these services as required by law, a surety orgovernmentregulatormayperformtheservicesandseekreimbursementfromthedebtor. The debtor or othersmay contend that the expenditureswere for a pre-petitionliabilityandthatonlyliabilitiesthatariseafterthepetitiondatecanqualifyasaSection503(b)(1)(A)administrativeexpense.Butthisisnotthecase.

68SeeASC410-20-25-7.


The Court holds that the [Texas Railroad] Commission's claim forrecoveryof itspost-petitionexpenditures [toplugandabandon fouroilandgaswells]isanadministrativeexpenseunder§503(b)(1)(A).Debtors-in-possession must manage the bankruptcy estate incompliancewithstateandfederalenvironmentalandsafetylaws.Thefactthat[thedebtor’s]prepetitionactivitiesledtothenecessityofthepost-petition remediation does not alter [debtor’s] continuing post-petitionobligationtoconformwiththe law. Consequently, thecoststobringtheestate intocompliancewithsuchlawsarecoststhatareactualandnecessarytopreservetheestate,entitledtoadministrativeexpensecharacterizationunder§503(b)(1)(A).69

Asset retirementcosts incurredbyasuretyor regulatorprior to thepetitiondatecanbe reduced toamonetary claim. Accordingly, claims to recover such costs inbankruptcywillbetreatedasgeneralunsecuredclaims.70

Energybankruptciestendtobecausedbyorassociatedwithheavilyimpairedcoalandoilandgasreservesandrelatedassets. Theeconomic lifeof theseassetshasendedduetodecliningcommodityprices,risingcosts,orboth.Thereisnobuyerto“pick up the permit” for these assets, which will often have negative value afterconsidering the related asset retirement and cleanup obligations. Applicable lawnowrequiresthattheassetsbeproperlydecommissionedandrestored. Theassetretirement obligations are fully mature and cannot simply pass through thebankruptcybecausethedebtorhasacontinuingpost-petitionobligationtocomplywiththelaw.

D. VALUATIONANDALLOCATION

As noted above, an allowed claim of a creditor secured by a lien on the debtor’sproperty has priority over post-petition administrative expenses. However, thepriorityofsecuredclaimsislimitedtothevalueofthecollateral.Ifthevalueofthedebtor’sinterestinthecollateralislessthantheamountoftheclaim,Section506(a)

69InreAmericanCoastalEnergyInc.,399B.R.805(Bankr.S.D.Texas2009).70SeeOhiov.Kovacs,469U.S.274,105S.Ct.705,83L.Ed.2d649(1985)(concludingthatthestatehada"righttopayment"andthuspossesseda"claim"againstthedebtoronbasisthatthedebtornolongerhadpossessionofthecontaminatedsitenorcontroloverthecleanupandallthestatesoughtfromthedebtorwasmoneytofundthecleanup).


oftheBankruptcyCodesplitstheclaimintosecuredandunsecuredcomponents,asfollows:

Anallowedclaimofacreditorsecuredbyalienonpropertyinwhichtheestatehasaninterest,orthatissubjecttosetoffundersection553of this title, is a secured claim to theextent of the value of suchcreditor’s interest in the estate’s interest in suchproperty, or totheextentof the amount subject to setoff, as the casemaybe,andisanunsecuredclaimto theextent that thevalueof suchcreditor’s interestor the amount so subject to setoff isless than the amount of suchallowedclaim.Suchvalueshallbedeterminedin lightof thepurposeof the valuation and of the proposed disposition or use of suchproperty,andinconjunctionwithanyhearingonsuchdispositionoruseoronaplanaffectingsuchcreditor’sinterest.71

The bifurcation of a debtor's obligation to a secured creditor into secured andunsecured claimsdependson thevalueof the collateral. For example, if a lenderhadmadea loanof$500millionsecuredbyapropertyonceworth$1billion,andthe property declined in value to $100million at the plan confirmation date, thesecured creditor would have a secured claim for $100million and an unsecuredclaimfor$400million.

Often there is a vigorous dispute as to how the value of collateral is to bedetermined: liquidation value, market value or foreclosure value. The Codeprovidesthatonlythat“Suchvalueshallbedeterminedinlightofthepurposeofthevaluation and of the proposed disposition or use of such property, and inconjunctionwithanyhearingonsuchdispositionoruseoronaplanaffectingsuchcreditor’s interest.” Courts vary in their approaches to determining valuedependingon thecircumstances (e.g., aChapter7 liquidationversusaChapter11reorganization).InInreHeritageHighgate,Inc.,72theCourtofAppealsfortheThirdCircuit ruled that, in a Chapter 11 reorganization, the term "value," as applied tosection 506(a), should mean the fair market value of collateral as of planconfirmation.

In situations where the collateral is encumbered by existing asset retirementobligations or environmental remediation liabilities, the fair market value of the

7111U.S.C.§506(a)(emphasisadded).72679F.3d132(3dCir.2012).


collateral will reflect the fair value of these liabilities. It is self-evident thatenvironmentallyimpairedassetsareworthlessthanweretheynotsoimpaired.

In In reLTVSteel Co., Inc.,73the debtor had sold substantially all of its integratedsteel assets in a single transaction. Some of the assets were environmentallycontaminated, while others were not, and the cleanup liabilities were notdischarged. The buyer agreed to indemnify the debtor for any environmentalliabilityandreducedthenetcashpriceasaresult.

InsituationslikeLTVwheresomecollateralisimpairedandothercollateralisnot,saleproceedsmustbeattributedto individualassetsbeforethetreatmentof liensoneachassetcanbeconsidered.74Courtsallocatesaleproceedsbetweenindividualassetsbaseduponeachasset'sportionofthetotalvalueofalloftheassets.75Beforedeterminingeachasset'sportionofthecashproceeds,eachassetmustbevalued.

In LTV, different creditors, each with claims of unique priority, held securityinterests in the individual assets, which were not valued individually within thepurchase agreement. The court’s job was to determine each asset's value andallocate the sale proceeds between the individual assets to permit distribution ofproceeds to lienholders. The debtor proposed a valuation model based uponSection 506(a), and various lienholders objected, arguing, among other things for“compartmentalizing,”whichthecourtdescribedas“theperceivedabilitytocarveoffthefruitofanasset(i.e.,afacility'sequipment)andassignthatcarvedoffpiece'svalue to the secured claims,while ignoring or leaving behind the poisoned stems

73285BR259(N.D.Ohio2002).74SeeId.at267-68,citingInreWesleyCorp.,18F.Supp.at349."[A]lienonlessthanalloftheseveralparcelsofpropertysoldinonelotmaybetransferredtothegrossproceedsonlytotheextentastheparticularpropertycoveredbytheliencontributedtothewholefund";InreManningtonPotteryCo.,104F.Supp.at520(citationomitted);andInreWesleyCorp.,18F.Supp.at350.75SeeId.at267-68,citingLesliev.KnightSodaFountainCo.(InreWilkes),55F.2d224(2dCir.1932);Inre26TrumbullStreet,77B.R.374;FirstFederalSavings&LoanAssoc.ofPineBluffv.Dickinson(InrePortCityConstructionCo.,Inc.&OakParkHeating&AirConditioningCo.,Inc.),387F.Supp.236(E.D.Ark.1975);Moudy,164F.Supp.490;InreManningtonPotteryCo.,104F.Supp.506;InreBeardsley,38F.Supp.799;InreWesleyCorp.,18F.Supp.347;InreBovenzi,2F.Supp.538.


androots, theenvironmental liabilitiesassociatedwith the facility fromwhich theassetwasremoved.”76

Debtor argues for valuing the assets on a going concern basis usingfacilitybyfacilityanalysis,e.g.IndianaHarborWorks,Hennepin,LTVTech Center, and so on. Objectors argue for compartmentalizing. ...Theeffectofthedifferenceisobvious.Valuableequipmentisfarlessso if it must be valued as a package with the environmentallydamagedsite. Debtorvaluedeachsiteasapartofthegoingconcernwhole, thus offsetting in whole or in part the value of personalpropertyorfixturesattachedtoenvironmentallysensitiverealestate.If correct, the question is not merely the accuracy of objectors'equipmentappraisals,butthematerialityoftheappraisalsifpersonalproperty value is inseparable from the premises. The net effect ofDebtor'sapproach is toplacethecostofenvironmental liabilitiesonthesecuredcreditors,forthebenefitofthepublicatlarge.[Footnoteomitted.]Conversely,objectors'approachwouldpreservethevalueoftheassets for secured creditorsandplace the costof environmentalliabilitiesonthepublicand,totheextentofanydividend,unsecuredcreditors. Persuasive policy arguments may be made for eitherposition,buttheCourtneednotdecidewhichisappropriate.Thediewaspreviously cast by the termsof 506(a). Section506(a) requiresthat "[s]uchvalue shall bedetermined in lightof thepurposeof thevaluationandoftheproposeddispositionoruseofsuchproperty[.]"Thedispositionorusewasasaleasagoingconcerntobeoperatedasa going concern. ISG [thebuyer] agreed to indemnify theDebtor forany environmental liability and thenet cashpricewas reduced as aresult. This result is counterintuitive to bankruptcy participants,becausegoingconcernsalesnormallyresultinhighervaluations.Thisexpectedresultdoesnotoccurinthiscasebecausethegoingconcernvalue premium, whether denominated as goodwill or otherwise, ismore than offset by the perceived environmental cost assumed.Section 506(a) does not mandate that going concerns are valuedhigher. That is a common, but sometimes misplaced, assumption.Rather, section 506(a) dictates valuation in light of the proposeddispositionoruse.Inthiscase,thedispositionandusewasasagoingconcern.Personaltyandrealtywerebundledtogether,theirpositive

76Id.at267.


and negative values inextricably intertwined. Much like thepathologist, objectors prove much, but too late. The sale was as agoing concern,purposefully cuttingoff environmental liabilities, andknowingly reducing the cash price. Personal property, fixtures, realestate, and intangibleswere sold together tobeoperatedas a goingconcern.Section506(a)castthedieandtheSaleOrderwasforgedinit. The result is impelled by 506(a) and any balancing of harm orpolicyconsiderationscouldonlybemadeatthetimeofthesale.Onceapproved,thenatureandstructureofthesalebecameafactdictatingthevaluationanalysisthroughtheapplicationof506(a).77

The lesson of LTV is that when secured assets are bundled together with assetretirement obligations and cleanup liabilities, their positive and negative valuesinextricably intertwined,securedcreditorscannotpreservethevalueof theassetsforthemselvesandplacethecostofenvironmental liabilitiesonthepublicand, tothe extent of any dividend, unsecured creditors. In coal and oil and gasbankruptcies,theprincipalcollateralwilloftenbereservebearingmineralinterestsor leaseholds that are subject to nonfinancial environmental liabilities for assetretirementand cleanupcosts. When suchassetsbecomenon-economic, their fairvalue,afterconsiderationoftheattendant(andnowfullymatured)environmentalliabilities,oftenwillbenegative.

In thesesituations,securedcreditorswill standbehindthepriorityadministrativeexpense claims of government creditors and their secured liensmay be renderedundersecuredorworthlessbythecombinedeffectofthedeclineinthevalueofthe“lienedup”collateralandthescaleofthepriorityadministrativeexpensesnecessaryto decommission and reclaim the estate’s assets. Moreover, as discussed below,undertheapplicableenvironmentalstatuteshedgefundsthatarebothlendersandowners of debtors in bankruptcy are potentially at risk of being held jointly andseverally liable for the entirety of the debtor’s environmental liabilities, includingliabilitiesunrelatedtothesecuredcollateral,becauseoftheirpre-orpost-petitioncontrol of the debtor (see Section V.J.8.c)(4)(h), Direct and Derivative Liability ofOwnersandLenders).78

77Id.at268-69.78SeeRegulatorsFear$1BillionCoalCleanupBill,NewYorkTimes,June6,2016(“InthecaseofPatriotCoal,anotherlargeminingcompanythatdeclaredbankruptcylastyear,WestVirginiasoughttoholditshedgefundlendersdirectlyliableforminereclamation.”)


E. SUPERPRIORITY

As previously discussed, asset retirement obligations are typically connected tocurrentoperationsandinextricablylinkedtoadebtor’sassets.Timelysettlementofassetretirementobligationsandcompliancewithfinancialassuranceobligationsisnecessarytoremain incompliancewith laws intendedtoprotect theenvironmentand public health. In Chapter 11 cases, this combination of factors grantsgovernment creditors power to demand enhanced security or funding of assetretirement obligations tied to non-economic assets as a precondition to planconfirmation.

For example, in the Chapter 11 bankruptcy of Energy Future Holdings (EFH) theRailroad Commission of Texas negotiated a court-approved $1.1 billion carve outwith super-priority status over all other pre-petition and post-petition claims,including the DIP Financing, for EFH’s previously self-bonded lignite minereclamationobligations.79

In thebankruptcyofAlphaNaturalResources, theU.S.Departmentof the Interiorrefused to grant consent to Alpha’s proposed sale and assignment of federal coalleases, grazing leases,andmineralmaterialssalescontracts inWyomingbasedonAlpha’s inability to satisfy its asset retirement and related financial assuranceobligationsinKentucky,Tennessee,Virginia,andWestVirginia:

DOI has not consented to the proposed assumption and assignmentfor various reasons. Foremost, the assumption and assignment areproposedaspartofaPlanthat,ascurrentlyproposed,wouldtransfertheDebtors’most valuable assets (including the subject leases) to anew entity, while leaving the less valuable assets – and the verysignificant associated environmental liabilities – behind in whatpresently is proposed to be an inadequately funded and infeasiblereorganizedentity.80

Alpha’s proposed plan was to sell its “good assets” for the benefit of securedcreditorsand leave the“badassets” for thepublic tocleanup. Bywithholding itsconsent to the transfer of federal leases to the point of forcing a liquidation, theUnited States was able to negotiate significant concessions from the debtor, the

79Case14-10979-CSS,Doc856filed06/06/14,availableathttp://dm.epiq11.com/EFH/Docket.80AlphaNaturalResources,Inc.etal,Case 15-33896-KRH Doc 2724 (June 20, 2016).


purchaser,and thesecured lenders for thebenefitofU.S.andstateenvironmentalregulators.81

The bankruptcy of Peabody Coal followed the precedent set in prior coalbankruptcies. In July andAugust 2016Peabody granted super priority status formine reclamation liabilities to the states of Illinois, Indiana, New Mexico andWyoming.ThefollowingtableshowstheamountofPeabody’sself-bondedliabilityandtheamountoftheapprovedsuperpriorityclaim.

State Self-BondedLiability SuperPriorityClaimIndiana $145,200,000 $17,916,529Illinois $92,200,000 $12,897,495NewMexico $181,000,000 $31,603,771Wyoming $726,800,000 $126,942,205

Peabody’s court-approved stipulation agreementswith the four states recited therelevantprecedent,asfollows:

• InreAlphaNaturalRes.,No.15-33896 (KRH) (Bankr.E.D.Va.Oct.8,2015)(Docket No. 628) (order approving settlement providing Wyoming with a$61 million superpriority claim to resolve a $411 million substitutiondemand).

• InreAlphaNaturalRes.,No.15-33896(KRF)(Bankr.E.D.Va.Dec.22,2015)(DocketNo.1158)(orderapprovingsettlementprovidingtheWestVirginiaDepartmentofEnvironmentalProtectionwitha$15million letterof creditand$24millionsuperpriorityclaimtoresolveanapproximately$244millionsubstitutiondemand).

• In re Arch Coal, Inc., No. 16-40120-705 (Bankr. E.D. Mo. Feb. 29, 2016)(Docket No. 432) (order approving settlement providing Wyoming with a$75millionsuperprioirtyclaimandapproximately$17millioninthird-partybondingobligationstoresolve$485.5millioninreclamationobligations).

In addition to obtaining super priority status to assure payment of mature assetretirement obligations, states also have successfully negotiated 100% security forunmatured asset retirement obligations as a condition of plan confirmation. For81SeeInreChapter11AlphaNaturalResources,Inc.,etal.,Case15-33896-KRH

Document2985,NoticeofFilingofCertainAgreementswiththeUnitedStatesinConnectionwithResolutionofReclamationObligations(July7,2016),availableathttp://www.kccllc.net/alpharestructuring/document/1533896160707000000000011.


example, Arch’s approved plan of reorganization required it to replace all formerWyomingself-bondswithsurety,cashorcollateralizedfinancialassurances.82

In cases where assets essential to preservation of the estate are subject todiscretionarypermitrenewalsortransfers,asintheAlpha,Arch,PeabodyandEFHcases, regulators have significant leverage to prioritize environmental liabilitiesaheadof all other claims.Asdemonstrated in theAlphabankruptcy, governmentscanusethisleveragetoreprioritizesecuredcollateralforthebenefitofthepublic.And, as shown in the Arch bankruptcy, regulators can also use this leverage toimprovetheirpost-bankruptcysecurityposition.

V. ESTIMATIONOFENVIRONMENTALLIABILITIES

The principal challenge in accounting for environmental liabilities is uncertainty.The same is truewhen valuing environmental liabilities in bankruptcy. Althoughaccounting estimates are not determinative of fair value in a bankruptcy context,accounting estimates and themethodologiesbywhich they are generatedmaybeinstructivetobankruptcypractitioners.

As explained below, accounting standards address uncertainty inwidely differingandinconsistentwaysdependingonthetypeofliability.Theaccountingstandardsgoverningassetretirementobligations,forexample,attempttovalueuncertaintyinthemanner that financial markets value uncertainty. Conversely, the accountingstandards governing environmental remediation liabilities and environmentalcontingencieslargelyignorethevaluationofuncertaintyinfavorofminimumvaluesthataremoreobjectiveandauditable.

Insituationswherethereisnoactivetradingmarkettopriceuncertainty,valuationofuncertaintynecessarily involvessubjectivity, judgmentandspeculation. Today,no active tradingmarkets exist for the transfer of environmental liabilities. As aresult, even where applicable accounting standards call for market valuation ofuncertainty,thereiswidediversityofpracticeinhowthisisdone.

This section describes the types of uncertainty associated with environmentalliabilities and the various techniques used to value uncertainty. Bankruptcypractitioners can use this section to understand why a debtor’s accounting

82InreArchCoal,Inc.,No.16-40120-705(Bankr.E.D.Mo.Sept.13,2016)OrderConfirmingDebtors’JointPlanof,Reorganization.


estimatesshouldneverbeacceptedatfacevalueandhowtogoaboutdeterminingafairvaluation.

Practice Note: Common misperceptions about environmental liabilities include thefollowing:

• Environmentalliabilityprovisionsreflectallofthedebtor’sknownenvironmentalliabilitiesandcontingencieswheninfacttheyreflectonlythosemattersforwhichmanagementhasdeterminedliabilityisboth“probableandreasonablyestimable”.

• Environmentalliabilityprovisionsrepresenttheexpectedcashoutflowsrequiredtofullysettle,resolveortransferthecompany’sliabilitywheninfacttheyoftenrepresentonlythelowendoftherangeofpossibleoutcomes.

Combined, these misperceptions can lead credit ratings agencies, equity analysts,debtors, creditors, trusteesandcourts tomisjudge thematerialityof these liabilitieswithrespecttosolvencyandplanfeasibility.

A. TRANSPARENCY

Environmentalliabilityestimatesusedforfinancialaccountingpurposestendtobebasedonmanagement’sjudgmentratherthanindependentthird-partyappraisals.83Thiscontrastswithpensionprovisions,wherethirdpartiesprovidesignificantinputas toobligations for futurepayments.84Significantdisclosure is required inorderforanoutsideanalysttodeconstructacompany’saccountingestimatesandassessthereasonablenessoftheembeddedassumptions. Sufficientdisclosures,however,aremostoftenunavailable.

S&Phasobservedthat,“Currentdisclosuremakescomparativeassessmentdifficultas the details on timing and nature of the decommissioning and environmentalprovisions is opaque”; “Poor disclosure is making understanding the basis andreasons for changes in such provisions guesswork”; and “Clearer reporting of

83Reportingentitiesarenotrequiredtousespecialists,suchasappraisersoractuaries,toestimateassetretirementandenvironmentalobligations.Accordingly,theyaresubjecttothepossibilityofmanagementbias.SeeAU-CSection540AuditingAccountingEstimates,IncludingFairValueAccountingEstimates,andRelatedDisclosures,¶.21and.A28,availableathttp://www.aicpa.org/Research/Standards/AuditAttest/DownloadableDocuments/AU-C-00540.pdf.84SeeS&PEnvironmentalProvisions.


decommissioningandenvironmentalprovisionswouldprovidegreaterguidanceforanalysis.”

TheU.S.GovernmentAccountabilityOffice(GAO)reachedasimilarconclusion:

Little is known about the extent towhich companies are disclosingenvironmental information in their filings with SEC. Determiningwhatcompaniesshouldbedisclosingisextremelychallengingwithoutaccesstocompanyrecords,consideringtheflexibilityinthedisclosurerequirements. ... One cannot determine whether a low level ofdisclosuremeansthatacompanydoesnothaveexistingorpotentialenvironmental liabilities,hasdetermined thatsuch liabilitiesarenotmaterial, or is not adequately complying with disclosurerequirements.85

Because of the high levels of subjectivity and general insufficiency of disclosure,third parties should view management’s reported accounting estimates withskepticism.

B. UNCERTAINTY

Environmental liabilities are often subject to two basic types of uncertainty—uncertainty as to the existence of liability and uncertainty as to the timing andamountofcashoutflows.

1. EXISTENCEOFLIABILITYFor accounting purposes, a “liability” is a present obligation arising from pasttransactions or events.86 For liability to exist, an obligating event must haveoccurred.Obligatingeventsareasvariedasareleaseofhazardoussubstancestotheenvironment,theassumptionofownershipofacontaminatedsite,constructionofanewasset, a change in law,or a court judgment. In some instances, suchaswithmostassetretirementobligations,existenceof liabilityisclearfromtheoutset. Inother cases, the existence or non-existence of liability only becomes evident overtime.

Wheretheexistenceofliabilityiscontingentononeormorefutureeventsornon-events,valuationof the legaluncertaintycanbeaddressed inoneofseveralways.

85UnitedStatesGovernmentAccountabilityOffice,EnvironmentalDisclosure:SECShouldExploreWaystoImproveTrackingandTransparencyofInformation(July2004).86SeeStatementofFinancialAccountingConceptsNo.6¶35.


Oneway is to conclude thatno liability exists at all, or at leastnot yet; therefore,there isnoneed tovalue ituntil liability is certain.87Anotherway is tovalue thecontingencybymultiplyingtheprobabilityfrom0%to100%thatliabilityhasbeenor will be incurred by the amount of the loss that will be suffered if and whenliability is imposed.88 Yet anotherway is to value the contingency onlywhen theexistenceofliabilityreachesasubjectiveprobabilitythreshold(e.g.,whenliabilityisdeemed“probable”or“morelikelythannot”).89

Inaccountingterms,iftheexistenceofliabilityisuncertain,thepossible,butasyetuncertain, obligation is called a “loss contingency” or a “contingent liability”.Contingentenvironmentalliabilitiesarepossibleobligationswheretheexistenceofliability capable of giving rise to a loss remains uncertain. An example of anenvironmentallosscontingencyisathreatenedbutasyetunassertedenvironmentallawsuitrelatedtohistoricalreleasesofhazardoussubstances.

Environmental contingencies are not recorded as “liabilities” for financialaccountingpurposesuntil certain criteria aremet. UnderU.S.GAAPand IFRS, anenvironmental contingency becomes an environmental liability only when theexistence of liability becomes probable and the amount of the liability becomesreasonablyestimable.

Althoughnotrecordedasliabilitiesonthebalancesheet,contingentenvironmentalliabilities do have an exit price. In other words, a third party would chargesomething to assume or guaranty the debtor’s possible obligation, even if theprobabilityof liability is remote. The theoreticalexitprice is largelya functionoftheprobabilityandmagnitudeofpossibleloss.

87Thisistheapproachtypicallytakenbydefendantsinlitigation.SeeDisclosureDilemma:FinancialReportingofContingentandEnvironmentalLiabilities,AcademicCaseStudyA200,byAlanD.Jagolinzer,NathanT.Blair,C.GregoryRogers(HarvardBusinessPublishing2008).88Thisistheapproachfollowedbybankruptcycourts.SeeInreW.R.Grace&Co.,281B.R.852(Bankr.D.Del.2002)(itisnecessarytodiscountcontingentclaimsbytheprobabilitythatthecontingencywillneveroccur),89SeeASC450-20-25-2(a)(acontingentliabilityisrecognizedonlywhenitis“probable”thataliabilityhasbeenincurredandtheamountofthelosscanbereasonablyestimated).


Environmental remediation liabilitiesusuallybeginas losscontingenciesand thengradually mature into noncontingent liabilities as more information becomesavailable.

An entity's environmental remediation obligation that results in aliabilitygenerallydoesnotbecomedeterminableasadistinct event,noristheamountoftheliabilitygenerallyfixedanddeterminableataspecific point in time. Rather, the existence of a liability forenvironmental remediation costs becomes determinable and theamountoftheliabilitybecomesestimableoveracontinuumofeventsandactivitiesthathelptoframe,define,andverifytheliability.90

The evolution of environmental remediation liabilities from contingencies toliabilities may depend on whether the company is contesting liability in ongoinglegalproceedings.Althoughtheymaybedisclosedinnotestofinancialstatements,environmental remediation liabilities are rarely if ever recorded in the financialstatementssolongasthecompanyiscontestingliability.Torecognizealiabilityforaccountingpurposesatatimewhenliabilityremainscontestedcouldbedeemedaprejudicialadmissionof liability.91Fewcompaniesarewilling to risk thepossibleprejudicial effect of recognizing an environmental remediation liability until theexistenceofcontestedliabilityisvirtuallycertain.

Similarly, companies rarely if ever record environmental liabilities for latentpollutionconditionsknownonlytoit.Managementismorelikelytoconcludethata“don’task,don’ttell”policyisthebettercourseofaction.92

If an environmental remediation liability is on the books, it is likely that thecompanyisnolongerseekingtoavoidliabilityandisalreadymakingpaymentsonthe debt—incurring cash expenditures for pre-cleanup activities, remediation

90“Althoughenvironmentalremediationliabilitiesisnotoneoftheexamplesdiscussedinparagraph450-20-05-10,environmentalremediationliabilitiesarelosscontingencies.”ASC410-30-05-25.91SeeDisclosureDilemma:FinancialReportingofContingentandEnvironmentalLiabilities,AcademicCaseStudyA200,byAlanD.Jagolinzer,NathanT.Blair,C.GregoryRogers(HarvardBusinessPublishing2008).92SeeCorporateEnvironmentalDisclosurePolicy,byC.GregoryRogers,ABAEnvironment,Energy,andResourcesLawSummit:17thSectionFallMeeting,September2009,availableathttp://www.fin47.com/documents/CorporateEnvironmentalDisclosurePolicy.pdf.


activities, or post-remediation monitoring activities, which are being chargedagainsttheaccountingreservecreatedfortheliability.

In contrast to early stage environmental remediation liabilities, uncertainty aboutthe existence of liability with respect to asset retirement obligations is generallyquite lowfromtheoutset. Althoughthetimingandmethodofsettlementofassetretirement obligations are often conditional on future events (e.g., the timing ofassetretirement),thesourceandtimingoftheobligatingeventisgenerallyclear.

[W]henanexistinglaw,regulation,orcontractrequiresacompanytoperformanassetretirementactivity,anunambiguousrequirementtoperform the retirement activity exists, even if that activity can bedeferred indefinitely. At some point, deferral is no longer possible,because no tangible asset will last forever (except land). Therefore,the obligation to perform the asset retirement activity isunconditional even though uncertainty exists about the timing and(or)methodofsettlement.93

Althoughthetimingofsettlementmaybeconditionalonafutureevent,liabilityforasset retirement obligations is incurred upon the acquisition, construction,developmentornormaloperationoftheasset.94

2. TIMINGANDAMOUNTOFCASHOUTFLOWSEnvironmentalliabilitiesarealmostalwayssubjecttouncertaintyaboutthetimingand amount of cash outflowsnecessary to resolve them. Uncertainty often existswith regard to, among other things, the resolution of contractual, investigative,technological,regulatory,legislative,andjudicialissues,allofwhichcouldaffectthetiming and amount of cash outflows to resolve asset retirement obligations andenvironmentalremediationliabilities.

93FASBInterpretationNo.47,AccountingforConditionalAssetRetirementObligations.94SeeInreAppalachianFuels,LLC.al.,CaseNo.09-10343(Bankr.E.D.Kentucky2014)(findingthat“undertheEnvironmentalLaws,surfacecoalminingactivitiescanonlybeconductedundertheauspicesofapermit.[citationsomitted]Inorderforapermittobeissued,amongotherrequirements,anapplicantmustsubmitandobtainapprovalofadetailedreclamationplan.[citationsomitted]Thepermitteeandallsuccessorpermitteesandoperatorsofthepermittedsitebecomeobligatedtocomplywithallpermitrequirementsasaconditionofpermitissuance,includingcorrectionofexistingviolations.[citationsomitted]Thus,anoperator'sdutytoperformreclamationarisesfromthemomentitbeginstooperateundertheauspicesofapermitandanybreachofthatdutysubjectsittocivilliabilityaswellascriminalpenalties.”).


Abasicprincipleofaccountingisthatunliquidatedanddisputedliabilitiesshouldberecorded in the balance sheet only when they can be reasonably, or reliably,estimated.95Thisprinciplerequirescompaniestoanswertwoquestions—(1)whenis an uncertain liability reasonably estimable?; and (2) how is uncertainty to beaddressedincalculatingareasonableestimate?Accountingstandardsanswerthesequestions differently for asset retirement obligations and environmentalremediationliabilities.

a) ASSETRETIREMENTOBLIGATIONSThetimingofsettlementofanassetretirementobligationmaybeconditionalontheuncertaintimingofafutureevent(e.g.,permanentcessationofoperations).Insomecases,sufficientinformationaboutthetimingofsettlementmaynotbeavailabletoreasonably estimate fair value. Oil companies rarely record asset retirementobligations for refineries because they believe they cannot reasonably estimatewhenarefinerywillbepermanentlyshuttered.Similarly,railroadcompaniesrarelyrecord asset retirement obligations for contaminated rail yards on the basis thattheseassetshaveanindefiniteusefullife.

Butthereisuncertaintyaboutthetimingofsettlementofrecordedassetretirementobligations as well. Retirement of long-lived assets can be accelerated byregulatory,economic,ornaturaleventsbeyondthedebtor’scontrol. Forexample,in2010theU.S.DepartmentofInteriorissuedan“idleiron”orderrequiringoilandgasproducersoperatingintheGulfofMexicotosetpermanentplugsinnearly3,500nonproducing completedwells and dismantle about 650 production platforms nolongerbeingused.96ThisactionbytheDepartmentofInteriorforcedoilcompaniesto permanently retire assets that had been temporarily idled for years andmightotherwise have remained so formany years or decades longer. The Fukushimanuclear disaster in Japan is an example of how unforeseen natural disasters canaccelerateassetretirementanddramaticallyincreasethecost.

For accounting purposes, asset retirement obligations are considered reasonablyestimableunlessthereisinsufficientinformationtoreasonablyestimatearangeofsettlement dates, potential methods of settlement, or the probabilities associatedwiththepotentialsettlementdatesandpotentialmethodsofsettlement.97Ifthese

95SeeASC¶¶410-20-55-14,410-30-25-1(b)and450-20-25-2(b).96UnitedStatesDepartmentoftheInterior,BureauofOceanEnergy,ManagementandRegulation,NTLNo.2010-G05(September15.2010).97ASC¶ 410-20-25-8(b).


factorscanbereasonablyestimated,uncertaintyisfactoredintotheestimateusinganexpectedpresentvaluetechniquedescribedbelow.98

b) ENVIRONMENTALREMEDIATIONLIABILITIESCertainty about the timing and amount of cash outflows for environmentalremediation liabilities tends to emerge over time as the remedial process (i.e.,investigation,feasibilitystudy,remedialdesign,operationandmaintenance,closure,and post-closure care and monitoring) develops. At the early stages of theremediationprocess,aresponsiblepartywillhavevaryingamountsofinformationrelated to the different components. For example, itmay be able to estimate themostlikelyvalueofthecostofinvestigationandthelowandhighendoftherangeofthepossiblecostsforthefeasibilitystudy,buthavenoreasonablebasistodeveloparangeofpossiblecostsforanyoftheothercomponentphasesofthecleanup.

Foraccountingpurposes,environmentalremediation liabilitiesare firstbrokenupintotheircomponentparts.Individualcomponentpartsareconsideredreasonablyestimable if a range of possible costs can be reasonably estimated. If there is anamount that appears to be a better estimate than any other amount within therange,thatamountisrecordedasaliability.Otherwise,thelowendoftherangeisrecorded.99 Accordingly, the overall liability that is recorded may be based onamountsrepresentingbestestimateswithinrangesofcostsofsomecomponentsofthe liability (e.g., investigation), the lower end of a range of costs for othercomponentsoftheliability(e.g.,feasibilitystudy),andzeroforothercomponentsofthe liability.100 Unlike asset retirement obligations, environmental remediationliabilitiesaremeasuredinawaythatavoidstheuseofprobabilisticmethodssuchasexpected value to factor uncertainty into the estimate. Moreover, early-stageestimates often do not include any costs whatsoever for the most expensivecomponents of the overall liability, including remedial design, operation andmaintenance,closure,andpost-closurecareandmonitoring.

The manner in which accounting standards deal with uncertainty variessignificantlyfromhowbankruptcycourtsdealwithuncertainty.Bankruptcycourtsdonotpostponerecognitionofliabilityuntilanamountcanbereasonablyestimatedand they do not value environmental liabilities at the low end of the range ofpossibleoutcomes.

98ASC¶ 410-20-25-7.99SeeASC¶¶410-30-30-17and450-20-30-1.100SeeASC¶ 410-30-25-9.


[T]heobjectofasolvencyanalysisistoassigna"fairvaluation"toalldebts, with the term "debt" defined as a liability on a claim, and"claim"definedinthe"broadestpossiblesense"toincludecontingent,unmaturedandunliquidatedclaims.Theresultingsolvencyanalysisisoftenusedinconnectionwithabankruptcyfiling,wherealldebtsareaccelerated and debtors are obligated to send notice of therequirement of filing a proof of claim to every known potentialenvironmentalcreditor.101

Unwary creditors, ratings agencies, equity analysts, corporate managers andbankruptcypractitionersmaybeshockedtolearnthattheunfunded“reserves”forenvironmental liability shown in the debtor’s balance sheet do not come close toapproximatingfairvalue.Forexample,inits10-KfortheyearendedDecember31,2005,TronoxInc.reportedthat,“AsofDecember31,2005,wehadreservesintheamount of $223.7 million for environmental matters and receivables forreimbursement for such matters of $56.7 million.”102 Tronox later argued inbankruptcy that that the net present value of its environmental remediationliabilitiesasofNovember2005was$278.1,butthecourtfoundthatafairvaluationof Tronox’s environmental liabilities for solvency purposes was $1.5 billion atNovember2005.103

Whenlong-termenvironmentalliabilitiesareestimatedforaccountingpurposesatthelowendoftherange,iftheyarerecognizedatall,theresultisoftenarecordedreserve balance that never decreases, notwithstanding ongoing expenditures toresolvetheliability.Thecourt’sfindingsinTronoxareindicative:

[InconsideringthereasonablenessofTronox’senvironmentalliabilityestimateof $278.1million,whichwasdeveloped fromKerr-McGee’spre-spinoff estimate] it bears recalling that Kerr-McGee'senvironmentalexpendituresduringthefiveyearspriortotheIPOhadaveraged$160millionperyear,thatithadspent$580millionjustattheWestChicagosite,thatithadreceivedademandfromtheEPAfor$179millionforcleanupataSuperfundsite inManville,NewJersey,

101InreTronoxIncorporated,503B.R.239(Bankr.S.DNewYork2013).102Availableathttp://www.sec.gov/Archives/edgar/data/1328910/000114118506000045/tronox10k2005.htm.103InreTronoxIncorporated,503B.R.239(Bankr.S.DNewYork2013).


andthatTronoxsucceededtovirtuallyallof theKerr-McGeesites. Itwas a common refrain of Defendants that Kerr-McGee'senvironmental costs were diminishing, but as discussed elsewhere,thiscontentionisnotsupportedbytherecord.104

C. EXISTINGLAWSANDINTERPRETATIONS

Becauseliabilities,bydefinition,arecurrentobligationsarisingfrompastobligatingevents,liabilityestimatescannotconsiderpossiblefuturechangesinlaworchangesintheinterpretationofexistinglaws.

A legal obligation may exist even though no party has taken anyformalaction.Inassessingwhetheralegalobligationexists,anentityis not permitted to forecast changes in the law or changes in theinterpretationofexistinglawsandregulations.105

Asenvironmentalregulationschangeovertime,companiesmustrevisetheirprior liability estimates to reflect new or modified obligations.Environmental liabilities tend to be long-term in nature, often spanningseveral decades from inception to settlement. Consequently, changes inenvironmentalregulationsoverthelifespanofanenvironmentalliabilitycanhave a significant impact on the nature of the obligation and the cashoutflowsultimatelyrequiredtosettleit.

D. KNOWNMINIMUMVALUE

Under U.S. GAAP, contingent environmental liabilities and environmentalremediation liabilities are measured at the low end of the range of possibleoutcomesunlessthereisabetterestimate(i.e.,asinglemostlikelyoutcome).

If some amount within a range of loss appears at the time to be abetterestimatethananyotheramountwithintherange,thatamountshall be accrued. When no amount within the range is a betterestimate than any other amount, however, theminimum amount intherangeshallbeaccrued.Eventhoughtheminimumamountintherange is not necessarily the amount of loss that will be ultimately

104Id.105SFAS143¶A3.


determined,itisnotlikelythattheultimatelosswillbelessthantheminimumamount.106

Theminimumintherangeofpossibleliabilityisalsousedwhenthereisuncertaintyaboutthetimingofexpenditures:

The measurement of environmental remediation liabilities shall bebasedonthereportingentity'sestimateofwhatitwillcosttoperformeachof the elementsof the remediation effortwhen those elementsareexpectedtobeperformed. Althoughthisapproach issometimesreferred to as considering inflation, it does not simply rely on aninflation index (cost estimates submitted to the EnvironmentalProtection Agency usually include a prescribed inflation factor) andshould take into account factors such as productivity improvementsdue to learning from experience with similar sites and similarremedial action plans. In situations inwhich it is not practicable toestimateinflationandsuchotherfactorsbecauseofuncertaintyaboutthe timing of expenditures, a current cost estimate would be theminimumintherangeoftheliabilitytoberecordeduntilsuchtimeasthesecosteffectscanbereasonablyestimated.107

ASTM E 2137-01, StandardGuide forEstimatingMonetaryCosts andLiabilities forEnvironmentalMatters,108statesthat,“Whentheoutcomeandcostuncertaintiesaresogreatthatitisprematuretoestimatearangeofvaluesoramostlikelyvalue,thenaminimumvalueincludingcomponentcosts(e.g.,contractsentered,initialstudies)that are reasonably certain to be incurred should be estimated.”109 Of course,subjective judgment is required to determine “when the outcome and cost

106ASC¶ 450-20-30-1.107ASC410-30-30-17.108ThisASTMstandardisnotauthoritativeaccountingguidanceforpurposesofU.S.GAAPorIFRS.ItstatesinSection1.1that,“itisnotintendedtosupersedeaccountingandactuarialstandardsincludingthosebytheFinancialAccountingStandardsBoardandtheU.S.[SecuritiesExchangeCommission].Thisstandarddoesnotaddresstheestablishmentofreservesordisclosurerequirements.”However,E2137iswidelyregardedbyvaluationexpertsinbankruptcyasauthoritativefordeterminingthefairvaluationofenvironmentalliabilitiesinbankruptcy.See,e.g.,InreTronoxIncorporated,503B.R.239(Bankr.S.DNewYork2013).109ASTME2137-01§5.4.4.


uncertaintiesaresogreatthatitisprematuretoestimatearangeofvaluesoramostlikelyvalue.”

Like environmental loss contingencies, environmental remediation liabilities aregenerally subject to uncertainty regarding the amount or timing of cash outflowsandarecommonlyreportedattheminimumintherangeofliability,whichmaybethe amount of the company’s current budget forecast for remediationexpenditures.110

Knownminimumvalueestimateshavethebenefitofavoidingspeculation,butatthecost of also avoiding recognition of economic reality. Unwary observers thatmistake known minimum value estimates for fair valuations stand to beunpleasantlysurprised.

E. MIDPOINTOFRANGE

UnderIFRS,ifthereisarangeofequallylikelyoutcomes,themidpointoftherange,asopposedtothe lowendoftherange, isconsideredthebestestimate. Themid-point between the high and low cost estimates is typically not the most likelyvalue.111

Rarely, if ever, is there isa rangeofequally likelyoutcomes foranenvironmentalliability. Midpoint estimates may be more reliable than known minimum valueestimates,buttheyarenotareasonableproxyforfairvalue.

F. MOSTLIKELYVALUE

Amost likelyvalue(MLV)estimaterepresentsa technicalandregulatoryscenariothatismostlikelytooccur.U.S.GAAPandIFRSimplicitlyassumethatamostlikelyvaluedoesnotexist“whenthereisarangeofequallylikelyoutcomes”or“whennoamountwithintherangeisabetterestimatethananyotheramount.”ASTME2137statesthat:

When an expected value approach is not practical or appropriate, amost likely value could be developed using engineering estimates.ThisMLVcapturesthecostofthescenariobelievedtobemostlikelyto occur (for example, a stated preferred remedy). Typically, theestimator exercises a priori judgments (based on experience) about

110SeeRogers,C.Gregory,ABoard's-EyeViewofEnvironmentalLiabilities,NACDDirectorship,Vol.36Issue1,p.66(Feb/Mar2010).111ASTME2137-01§5.4.2.


the ranking of likely outcomes, but because of cost or otherconsiderationsdoesnotdevelopa fullrangeofpossibleoutcomestosupportanexpectedvalueestimate.112

Amost likelyvalueestimate canbe just asdeceptiveasaknownminimumvalue.Consider, for example, an environmental liability with only two possibleoutcomes—(1) a 51 percent chance of costing $1 million, and (2) a 49 percentchanceof costing$100million. In thisexample, themost likelyvalueandknownminimumvalueareboth$1million.

G. EXPECTEDVALUE

TheFASBdescribesexpectedvalue,instatisticalterms,astheweightedaverageofadiscrete random variable’s possible valueswhere the respective probabilities areusedasweights.113Theexpectedvaluetechniquestartswithasetofcashoutflowsthat, in theory, represents all possible cash outflows (expected cash outflows).Becauseallpossiblecashoutflowsareprobabilityweighted,theresultingexpectedcash outflow is not conditional upon the occurrence of any specified event.114Possible outcomes should be limited to realistic outcomes with statisticallysignificantprobabilitiestoavoidshiftingtheexpectedvaluethroughtheadditionofextremeoutcomeswithinsignificantprobabilitiesofoccurrence.115

UnderIFRS,ifthereisarangeofequallylikelyoutcomes,thenthemidpointofthatrange is considered the best estimate.116 If outcomes within the range differ inlikelihood, a probability-weighted expected value is the best estimate.117 For U.S.GAAP, expected value is a component of expected present value and fair valuemeasurementsdiscussedbelow.

H. EXPECTEDPRESENTVALUE

Present value is a tool used to link future amounts (for example, expected cashoutflowsusedtodevelopanexpectedvalueestimate)toapresentamountusinga

112Id.113SFAS157¶B12.114Id.115ASTME2137-01§5.4.1.2.116IAS37¶39.117Id.


discountrate.118Expectedpresentvaluecombinesprobability-weightedcash flowestimates (expected value)withpresent valuediscounting. The expectedpresentvalue approach allows use of present value (discounting) techniques when thetimingofcashoutflowsisuncertain,bydevelopingaprobabilisticweightedaverageofvariouspossiblefuturescenarios.

Expectedpresentvalue isa startingcomponent indevelopinganexitpriceor fairvalueestimate.

I. EXITPRICE

An“exitprice”isthepricethatwouldbereceivedtosellanassetorpaidtotransferaliability.Thetransactiontoselltheassetortransfertheliabilityisahypotheticaltransaction,consideredfromtheperspectiveofamarketparticipantthatholdstheassetorowestheliability.Anexitpriceisnotthenecessarilythesameasan“entryprice,”thepricethatwouldbepaidtoacquiretheassetorreceivedtoassumetheliability.119 Thus, amining company at the time of permitting a newminemightvalue the assumed asset retirement obligation for futuremine reclamation (entryprice)differentfromwhatitwouldexpecttopaytoimmediatelytransferthatsameassetretirementobligationtoafinancialinvestor(exitprice).

J. FAIRVALUE

Mark-to-marketorfairvaluemeasurementreferstoaccountingforthe"fairvalue"ofanassetor liabilitybasedonthecurrentmarketprice,or forsimilarassetsandliabilities,orbasedonahypotheticalmarketvaluation. Fairvalueaccountinghaslong been viewed in academia as the gold standard for preparing financialstatements,andhasbeenapartofU.S.GAAPsincetheearly1990s.120

Because fair valuemeasurement seeks tomeasure the price to “exit” the liabilitythroughamarkettransaction,whenfaithfullyapplied,webelieveitoffersboth—(1)the best methodology to account for environmental liabilities in financialstatements, and (2) an appropriate and perhaps the best methodology forestimatingthefairvaluationofenvironmentalliabilitiesinbankruptcyforpurposes

118ASC820-10-55-5.119SFAS157¶ 7.120SeeMark-to-MarketAccountsSignalCautionforInvestors.Bloomberg.May2,2012,availableathttp://www.bloomberg.com/news/2012-05-02/mark-to-market-accounts-signal-caution-for-investors.html.


of valuing claims, administrative expenses and super-priorities, determiningsolvency,andevaluatingplanfeasibility.

1. MEASUREMENTOBJECTIVEThe objective of fair value measurement is to determine an exit price.121 Withrespect to theestimationof liabilities, a fair valuemeasurement assumes that theliability is exchanged in an orderly transaction between market participants totransfer the liability at the date of measurement. The hypothetical transactionassumesthattheliabilitytothecounterpartycontinues.Theliabilityistransferred,but not settled, and the nonperformance risk relating to the liability is the samebeforeandafteritstransfer.122

The transaction assumes time to allow formarketing activities that areusual andcustomary for transactions involving such liabilities; it is not a forced a forcedliquidation or distress sale. The transaction is viewed from the perspective of amarket participant that owes the liability. Therefore, the objective of a fair valuemeasurementistodeterminethepricethatwouldbepaidtotransfertheliability.

2. UNBUNDLEDLIABILITIESAfairvalueestimateofaliabilityimplicitlyassumesthattheliabilityistransferredbyitself,unbundledfromanyaccompanyingassets.So,forexample,thefairvalueofan environmental remediation liability would not include the value of thecontaminatedrealestateassociatedwiththecleanupliability,andthefairvalueofanassetretirementobligationwouldnotincludethevalueoftherelatedasset.

It’s liketradinginausedcarwhenbuyinganewone. If thedealercredits$5,000overmarketforatrade-inasaninducementtogetthebuyertopaythefullMSRPfor a new car, the trade-in credit does not reflect the fair value of the used car.Similarly, the value internally assigned to decommissioning, plugging andabandonmentcoststobeassumedbyaprospectivepurchaserofa late lifeoilandgas field are not necessarily reflective of the fair value of these asset retirementobligationsinthehandsoftheseller.

3. NOACTIVEMARKETEnvironmental liabilities are routinely transferred in business combinationsinvolvingthenegotiatedsaleortransferofpartoralloftheassetsandliabilitiesofabusiness. Also, there is a negotiated market for the transfer of environmentalremediation liabilities, often along with the contaminated real estate. However,121Id.122SFAS157¶ 15.


there is no active market with quoted prices for the transfer of environmentalliabilitiesstandingalone.Consequently,itisnotpossibletodeterminethefairvalueofenvironmentalliabilitiesbasedoncurrentmarketpricesforthesameorsimilarliabilities.

4. APPLICABILITYUnder U.S. GAAP, asset retirement obligations are measured at fair value, butcontingent environmental liabilities and environmental remediation liabilities arenot.TheFASBadoptedastandardthatwouldhaveappliedfairvaluetocontingentenvironmental liabilities and environmental remediation liabilities assumed in abusinesscombination,butlaterreverseditsdecisionwhenpreparers,auditors,andmembersofthelegalprofessionexpressedconcerns,includingthefollowing:

• Determiningthefairvalueoflitigation-relatedcontingencies.• Supportingtherecognitionandmeasurementofliabilitiesarisingfromlegal

contingencieswhensupportinginformationmaybesubjecttoattorney-clientprivilege.

• Disclosingpotentiallyprejudicialinformationinfinancialstatements.123TheFASBhassincemadenoefforttoexpandthescopeoffairvaluemeasurementtoinclude environmental liabilities other than asset retirement obligations. As aresult, different types of environmental liabilities aremeasured in fundamentallydifferentwaysunderU.S.GAAP,withassetretirementobligationsmeasuredatfairvalue and environmental remediation liabilities measured at the low end of therangeormostlikelyvalue.

5. METHODOLOGYValuation techniques consistent with the market approach, income approach,and/orcostapproachareusedtomeasurefairvalue.124Themarketapproachusesprices andother relevant informationgeneratedbymarket transactions involvingidenticalorcomparableassetsorliabilities.125

123Formoreonthetopicofprejudicialeffect,seeDisclosureDilemma:FinancialReportingofContingentandEnvironmentalLiabilities,AcademicCaseStudyA200,byAlanD.Jagolinzer,NathanT.Blair,C.GregoryRogers(HarvardBusinessPublishing2008),availableathttp://www.gsb.stanford.edu/faculty-research/case-studies/disclosure-dilemma-financial-reporting-contingent-environmental.124SFAS157¶ 18.125Id.


The income approach uses valuation techniques, such as present value, option-pricingmodels,andbinomialmodels,toconvertfutureamounts(forexample,cashoutflows or earnings) to a single discounted present value amount. Themeasurementisbasedonthevalueindicatedbycurrentmarketexpectationsaboutthosefutureamounts.126

The cost approach is based on the amount that currently would be required toreplace the service capacity of an asset (often referred to as current replacementcost).127

Because there is no activemarket for the transfer of environmental liabilities, anexpected present value technique (an income approach) is most often the onlyfeasiblemeansbywhichtoestimatethefairvalueoftheseobligations.128

6. INPUTSInputs refer broadly to the assumptions that market participants would use inpricingtheliability,includingassumptionsaboutrisk.Suchrisksmightinclude,forexample, therisk inherent in the inputs to thevaluation technique. Inputsmaybeobservableorunobservable.129

Observable inputs are inputs that reflect the assumptions market participantswoulduseinpricingtheassetorliabilitydevelopedbasedonmarketdataobtainedfromsources independentof thereportingentity. Unobservable inputsare inputsthat reflect management’s own assumptions about the assumptions marketparticipantswoulduseinpricingtheassetorliability.130

Estimationofenvironmental liabilitiesgenerallymustrelyonunobservable inputsbecause therearenoactivemarkets for identical or similar liabilities. To complywith accounting standards for fair valuemeasurement, unobservable inputsmustreflect—(1) the reporting entity’s own assumptions about the assumptions thatmarketparticipantswoulduseinpricingtheliability;(2)thebestinformationabout

126Id.127Id.128SeeASC410.20.30-1.129SFAS157¶ 21.130Id.


marketparticipantassumptionsthatisreasonablyavailablewithoutunduecostandeffort.131

Inputs to fair value estimatesof asset retirementobligations should include all ofthefollowingelements:

• Anestimateoffuturecashoutflowstosettletheobligation.• Expectationsaboutpossiblevariationsintheamountandtimingofthe

cashoutflowsrepresentingtheuncertaintyinherentinthecashoutflows.• Thetimevalueofmoney,representedbytherateonrisk-freemonetary

assetsthathavematuritydatesordurationsthatcoincidewiththeperiodcoveredbythecashoutflowsandposeneitheruncertaintyintimingnorriskofdefaulttotheholder(thatis,arisk-freeinterestrate).132

• Thepriceforbearingtheuncertaintyinherentinthecashoutflows(thatis,amarketriskpremium).

• Otherfactorsthatmarketparticipantswouldtakeintoaccountinthecircumstances.

• Thenonperformanceriskrelatingtothatliability,includingbutnotlimitedtothedebtor’sowncreditrisk(readmoreaboutcreditriskbelow).133

Cash flowsanddiscountratesshouldreflectassumptionsthatmarketparticipantswouldusewhenpricing the liabilityandshould take intoaccountonly the factorsattributabletothespecificliabilitybeingmeasured.134

7. MARKETRISKPREMIUMFair value estimates of environmental liabilities should include a market riskpremium. U.S. GAAP definesmarket riskpremium as the price that a third partywould demand and could expect to receive for bearing the uncertainties andunforeseeablecircumstancesinherentintheobligation.135

131FAS157¶ 30.132ForpresentvaluecomputationsdenominatedinnominalU.S.dollars,theyieldcurveforU.S.Treasurysecuritiesdeterminestheappropriaterisk-freeinterestrate.133ASC820-10-55-5.134ASC820-10-55-6.135ASC410-20-55-13(d).


Pricing market risk premium for purposes of fair value measurement might bedifficult.However,thedegreeofdifficultyaloneisnotasufficientreasontoexcludeariskpremium.136

Marketrisksassociatedwithenvironmentalliabilitiesincludeuncertaintyabouttheamountandtimingoffuturecashoutflowsandlackofliquidity,orstateddifferently,theinabilitytoeasilytransfersuchobligationstoothermarketparticipants.

a) UNCERTAINTYINEXPECTEDCASHOUTFLOWSTheriskpremiumforbearingtheuncertaintyintheamountandtimingofthecashoutflows required to settle an environmental obligation can be measured bycomparisontoacertainty-equivalentcashflow.

A certainty-equivalent cash flowrefers to an expected cash flow (asdefined), adjustedfor risk such that one is indifferent to trading acertaincashflowforanexpectedcashflow.Forexample,ifonewerewillingtotradeanexpectedcashflowof$1,200foracertaincashflowof $1,000, the $1,000 is the certainty equivalent of the $1,200 (the$200wouldrepresentthecashriskpremium).Inthatcase,onewouldbeindifferentastotheassetheld.137

Theexampleabovecanbechangedslightlytoaddresstheexpectedcashoutflowstosettlealiability.Forexample,considerthepriceatwhichonewouldbeindifferentas to the assumption of two different obligations where the transferee agrees toassume the obligation tomake future cash payments in exchange for receipt of asinglelumpsumpaymenttoday.ObligationAhasanexpectedvalueof$1,000withafattail(i.e.,lowprobabilitiesofcashoutflowsfarinexcessof$1,000)andnocostceiling. Obligation B is a fixed certain amount. At what fixed certain amount ofObligationBwouldonebeindifferentbetweenassumingitortheuncertainamountofObligationA?Thedifferencebetweenthatpriceand$1,000reflectsamarketriskpremium.

Environmentalliabilitiesofteninvolvehighlevelsofuncertaintyintheamountandtiming of future cash outflows. In addition, unlike financial debt instruments,environmentalliabilitiestypicallyhavenocostceiling.Theresponsiblepartymustcompletetherequiredactivitiesregardlessoftheircost.

136ASC820-10-55-8.137SFAS157¶E14.


Experiencedenvironmentalpractitionersunderstandthatenvironmentalregulatorsrarelyifeveragreetocompletelyreleaseresponsiblepartiespriortocompletionofall legallymandated activities, even in exchange for a cost premium,whichmostresponsiblepartieswouldhappilypayinexchangeforcertainty. Regulatorsknowthatthemarketriskpremiumforenvironmentalliabilitiesishighduetohighlevelsofuncertaintyabouttheamountandtimingoftherequiredcashoutflows.

b) LIQUIDITYRISKLiquidityriskistheriskstemmingfromthelackofmarketabilityofaninvestmentthat cannot be bought or sold quickly enough to prevent or minimize a loss.138Thereisnoactivetradingmarketforthetransferofenvironmentalliabilities.Asaresult,theseobligationsarehighlyilliquid.Amarketparticipantacceptingpaymentin exchange for the assumption of environmental liabilities would reasonablyassume that it would have to pay a premium on estimated value or pay hightransactionscoststoliquidateitsliabilitypositionortransfertheobligation,ifitisindeedpossibletodosoatanyprice.Accordingly,itwilldemandapaymentamountthatishigherthanitsestimatedcostoftheliabilitytobeassumed.

Toillustratethispoint,considertwoscenarios.Inthefirstscenario,PartyBagreestoassumefinancialresponsibility forPartyA’sassetretirementobligationsdue in30years.PartyBreceivesarisk-freeputoptiontotransfertheobligationsbacktoPartyA at any timeprior to settlement at 100percent of their current estimatedcostwithnopenalty.Inthesecondscenario,PartyBreceivesnosimilarputoption.Allotherthingsbeingequal,thepricethatthePartyBwillchargeislessinthefirstscenariothanthesecondscenariobecausethereislessliquidityrisk.Inreallife,theputoptionwouldcomeatacost,andthenegotiatedpriceoftheoptionwouldreflectthemarketriskpremiumforilliquidity.

8. DISCOUNTINGDiscountingistheprocessofdeterminingthepresentvalueoffuturecashoutflows,eitherintheformofalumpsumpaymentorastreamofcashoutflows,whichmaybeeitherconstantorvariable.Discountingrequiresthreebasicinputs—theamountof expected future cashoutflows, the timeperiodoverwhich these cashoutflowsareexpectedtooccur,andadiscountrate.

UnderU.S.GAAP,thediscountrateusedtoestimatethefairvalueofenvironmentalliabilities is the reporting entity’s credit adjusted risk free rate after taking intoconsiderationtheeffectsofallterms,collateral,andexistingguaranteesthatwould138SeeInvestopediadefinitionathttp://www.investopedia.com/terms/l/liquidityrisk.asp.


affecttheamountrequiredtosettletheliability.139Acreditadjustedriskfreerateincludesthreesubcomponents:

• Theestimatedrealriskfreerate• Theestimatedrateofinflation• Theestimatedcreditrisk140

a) RISKFREERATEThe real risk free rate is the theoretical rate of return of an investment withabsolutely zero default risk and no premium to offset the effect of inflation. Thenominalriskfreerateistherealriskfreerateplustheinflationratepremium.

In the United States, the Treasury Bond rate is usually considered to be theappropriate indicator of the nominal risk free rate, and the Treasury InflationProtected Security (TIPS) rate is usually chosen as the real risk free rate. Whenchoosinganindicativerealriskfreerate,caremustbegiventochoosingariskfreesecurityof thesamematurityanddurationof theobligationtobediscountedthathas no currency or reinvestment rate risk. For example, in theUnited States if acompanyhada lumpsumassetretirementobligationduein30years, the30-yearzerocouponTIPSratewouldbeusedasanindicatoroftherealriskfreerateasithasnoreinvestmentraterisk(asTreasuryBondsdo)orcurrencyrisk.141

b) INFLATION

139“Anentityshalldiscountexpectedcashoutflowsusinganinterestratethatequatestoarisk-freeinterestrateadjustedfortheeffectofitscreditstanding(acredit-adjustedrisk-freerate).Indeterminingtheadjustmentfortheeffectofitscreditstanding,anentityshouldconsidertheeffectsofallterms,collateral,andexistingguaranteesonthefairvalueoftheliability.”ASC410-20-55-15.140Ifamarketriskpremiumisnotpricedseparatelyasdescribedintheprevioussection,itmaybeincorporatedintoadiscountrate.“Anentitythatperformsanexpectedcashflowapproachthatencompassesmanydifferentcashflowprobabilitiesmayeffectivelyincorporatetheimplicitmarketriskpremiumassociatedwithvariabilityintothosecashoutflows.Arguablythemorerobustanexpectedcashflowapproachis,thelesslikelyapremiumforvariabilityincashoutflowswouldbesignificant.Entitiesmayalsoincludeanimplicitmarketriskpremiumintheirdeterminationofanappropriatediscountratewhenexplicitevidenceofsuchapremiumisnotavailable.Inthiscase,thediscountratewouldnolongerbesolelythecredit-adjustedrisk-freerate.”AssetRetirementObligations(Ernst&Young,June2011).141Seehttp://www.treasury.gov/resource-center/data-chart-center/interest-rates/Pages/TextView.aspx?data=realyield.


The estimated rate of inflation is the expected loss in the purchasing power ofmoneyover thediscountperiodexpressedasanannualpercentage. Assumptionsaboutcashoutflowsanddiscountratesshouldbeinternallyconsistentwithrespectto inflation. For example, nominal cash outflows, which include the effect ofinflation, should be discounted at a rate that includes the effect of inflation. Thenominal risk-free interest rate includes the effect of inflation. Real cash outflows,whichexcludetheeffectofinflation,shouldbediscountedataratethatexcludestheeffectofinflation.142

c) CREDITRISKCreditriskpremium,ordefaultpremium,isthepremiumchargedtocompensateacreditorfortheriskoflossofprincipalorlossofafinancialrewardstemmingfromadebtor’sfailuretorepayaloanorotherwisemeetacontractualobligation.143FASBspecifically consideredwhether adjustments for the reporting entity’s own creditstanding (sometimes called “own credit risk”) should be reflected in the discountrateortheexpectedcashoutflowswhenestimatingthefairvalueof liabilitiesanddetermined that it should be reflected in the discount rate.144 The key point forbankruptcypractitionerstounderstandisthis:Ascounter-intuitiveasitmayseem,allotherthingsbeingequal,higher liabilitydefaultriskequatesto lowerrecordedliabilityestimates.

(1) CONTROVERSYFew issues in accounting generate the kind of gut-level reaction that this issueprovokes.Somehavetermedtheideaofincludinganentity’screditstandinginthemeasurementofitsliabilitiesaperfidiousdoctrine.Othersarguethatreportingtheeffectofchangesinanentity'screditstandingiscounterintuitiveorevendangerous.

Theprincipalargumentagainstincorporatingcreditriskinaccountingestimatesofliabilities is thatdoingsocanmask impendingbankruptcy foranextendedperiodby depressing the value of recorded liabilities and when actual bankruptcy

142ASC820-10-55-6(d).143Seedefinitionof“defaultpremium”atInvestopediaathttp://www.investopedia.com/terms/d/defaultpremium.asp.144SFAS157§E23.Acredit-adjustedrisk-freerateisaninterestratethatequatestoarisk-freeinterestrateadjustedfortheeffectofthecompany’screditstanding.Indeterminingtheadjustmentfortheeffectofitscreditstanding,anentityshouldconsidertheeffectsofallterms,collateral,andexistingguaranteesthatwouldaffecttheamountrequiredtosettletheliability.SeeSFAS143¶A21.


intervenestheliabilitymaybemarkeddowneventozeroonanaccountingbasisifit,infact,becomesworthlessinthemarketplace.

(2) RATIONALEInresponsetodetractors,U.S.accountingregulatorsunofficiallyjustifyinclusionofthedebtor’sowncreditriskinvaluingitsliabilitiesasfollows:

Some argue that incorporating credit standing producescounterintuitivereporting.Theyobservethatadecreaseinanentity’scredit standing would, if incorporated in measurement, produce adecrease in the recorded liability. The offsetting credit to this debitwould be a gain. The entity would appear to be profiting from itsdeterioratingfinancialcondition.Ontheotherhand,anincreaseinanentity’s credit standing would produce an increase in the recordedliability. The entitywould appear to beworse off as a result of theimprovement. Those results are certainly unfamiliar, but are theyreallycounterintuitive?Abalancesheet iscomposedof threeclassesofelements—theentity’seconomicresources(assets),claimsagainstthose resources held by non-owners (liabilities) and the residualclaims of owners (equity). In a corporation, the value of owners’residual claims cannot decline below zero; a shareholder cannot becompelled to contribute additional assets. When an entity’s creditstanding changes, the relative values of claims against the assetschange. The residual interest—the stockholders’ equity—canapproach, but cannot go below, zero. The value of creditors’ claimscan approach, but probably can never reach, default risk free.Traditional financial statements have ignored those economic andlegal truisms, so anymeasurementmore consistentwith realworldrelationshipswillnecessarilybeunfamiliar.145

FASB’sofficialpositiononincorporatingcreditriskinthefairvaluemeasurementofliabilities, including asset retirement obligations, is based on the Statement ofFinancialAccountingConceptsNo.7.146AccordingtoFASB:

The most relevant measure of a liability always reflects the creditstanding of the entity obligated to pay. Thosewho hold the entity’s

145UnderstandingtheIssues:“CreditStandingandLiabilityMeasurement,”byMichaelCrooch,FASBMember,andWayneS.Upton,FASBSeniorProjectManager.146Seeparagraphs78-88.


obligations as assets incorporate the entity’s credit standing indeterminingthepricestheyarewillingtopay.Whenanentityincursaliabilityinexchangeforcash,theroleofitscreditstandingiseasytoobserve. An entity with a strong credit standing will receive morecash, relative to a fixed promise to pay, than an entitywith aweakcreditstanding.

Theeffectofanentity’screditstandingonthefairvalueofparticularliabilitiesdependson the ability of the entity topay andon liabilityprovisions that protect holders. Liabilities that are guaranteed bygovernmental bodies (for example, many bank deposit liabilities intheUnitedStates)maypose littleriskofdefault totheholder.Otherliabilities may include sinking-fund requirements or significantcollateral. All of those aspectsmust be considered in estimating theextenttowhichtheentity’screditstandingaffectsthefairvalueofitsliabilities.

(3) CREDITRISKISLIABILITY-SPECIFICBothU.S.GAAPand IFRS call for considerationof the risks specific to the liabilitywhendeterminingtheappropriatediscountrate.147IFRSprovidesthatthediscountrateshouldincludeonlythoserisksspecifictotheliability.U.S.GAAPprovidesthatestimated credit risk should take into consideration “the effects of all terms,collateral, andexistingguarantees thatwouldaffect theamount required to settletheliability”.148

(4) CREDITRISKCONSIDERATIONSSPECIFICTOENVIRONMENTALLIABILITIES

Indeterminingtheadjustmentfortheeffectofitscreditstanding,anentityshouldconsider“theeffectsofallterms,collateral,andexistingguaranteesonthefairvalueoftheliability.”149Ourresearchshowsthatcompaniesfrequentlyestimatethefairvalueofassetretirementobligationsusingacreditriskadjustmentbasedontheirincrementalunsecuredborrowingrateaboveariskfreerate(creditspread)ondebtofsimilarmaturity.Forexample,iftheinterestrateona30-yearU.S.Treasuryis2.5percentandthe interestrateonthereportingentity’s30-yearunsecuredbonds is6.5percent,thecreditspreadis4.0percent.

147Indeed,IFRSinstructsthedebtortoconsideronlythoserisksspecifictotheliability.148ASC410-20-55-15.149SFAS143¶A21,note18.


Use of the entity’s credit spread in estimating the fair value of environmentalliabilities implicitly assumes that the “terms, collateral, and existing guarantees”applicable to a company’s unsecured corporate bonds are the same as thoseapplicabletoitsenvironmentalliabilities.However,thisassumptionisnotvalid.

The following example illustrates how default risks specific to environmentalliabilities are quite different from the standard reference point of a long-termunsecuredcorporatebond.

AssumethattheU.S.governmentholdsa30-yearcorporateunsecuredzerocoupondebenture150issued by PetroCo and PetroCo has an asset retirement obligationarisingunder federal law that isexpected tobesettled in30years. Whatare thecomparative risksofdefault from theperspectiveof theholder specific toeachofthesetwodifferentobligations,andhowdotheserisksaffecttheappropriatecreditriskadjustmenttothediscountrateusedtovaluethem?Answeringthesequestionsrequires separate consideration of the terms, collateral, guarantees and otherconditionsassociatedwiththetwodifferentobligations.151

TABLE2COMPARISONOFDEFAULTRISKSFORCORPORATEDEBENTUREANDASSETRETIREMENTOBLIGATION

Terms CorporateDebenture AssetRetirementObligationPrincipalamount Fixedamount IndeterminateamountMaturity Fixeddate IndeterminateduedateInterestrate Fixedoradjustable NointerestCollateral None SecuredbyrelatedassetOthersecurity None RegulatoryfinancialassuranceTaxeffects Principalpaymentsnottax

deductiblePrincipalpaymentsaretaxdeductible

PriorityinBankruptcy Lowestpriorityforgeneralunsecuredclaims

Canbeadministrativeexpensepriorityorsuper-priority

Obligors Issueronly Otherjointlyandseverallyliableparties

150Adebentureisatypeofdebtinstrumentthatisnotsecuredbyphysicalassetsorcollateral.Debenturesarebackedonlybythegeneralcreditworthinessandreputationoftheissuer.Seehttp://www.investopedia.com/terms/d/debenture.asp#ixzz3cX0wYeX6.151Thetermsandconditionsofabondareusuallysetforthinabond’sindenture.Abondindentureisalegalandbindingcontractbetweenabondissuerandthebondholders,anditspecifiesalloftheimportanttermsandconditionsofabondsuchasitsprincipalamount,itsmaturitydate,thetimingofinterestpayments,therateofinterest,whetherthebondmaybecalledbytheissuerorputbacktotheissuerbytheholderandifso,uponwhattermsandconditions.Othercriticaltermsandconditionsincludecovenantsmadebytheissuer.


With respect to the asset retirement obligation, there are several terms andconditions that protect the holder (the U.S. government) against default by thedebtor. Examples of such terms and conditions are summarized in Table 2 anddescribedmorefullybelow.

(a) MATURITYAssetretirementobligationshaveanindeterminatematuritydatethatissubjecttoacceleration due to unilateral government action, natural disasters, economicdisruption, or other causes. As observed by S&Pwith respect to asset retirementobligations:

Uncertainties inherent in their estimation include … The timing ofasset retirement, which is subject to assumptions that can changematerially. For example, in extractive projects, future priceexpectations forhydrocarbonorminerals affect theeconomic lifeofthe assets. For power generators, asset-retirement timing dependsnotably on local regulatory decisions. Their impact might befavorable (i.e., in the case of an operating license extension) orunfavorable(i.e.,inthecaseofanearlymandatedclosure).152

(b) INTERESTRATEAssetretirementobligationsdonotcarry interest. Accordingly, there isnoriskofdefault on accrued but unpaid interest on the debt as would be the case with acorporatebond.Therefore,theriskofdefaultislower.

(c) COLLATERALTherelatedassetsecures theassetretirementobligation. If thevalueof theassetexceeds the value of the asset retirement obligation, as can always be reasonablyassumed at the time the asset retirement obligation is incurred, the obligation isfully secured. The asset can be sold to a third party who will then assume theobligation. In this case the holder of the asset retirement obligation (thegovernment)maynowhavethesecurityofthenewownerinadditiontothepriorowneraswellastheasset(see“StrictandJointandSeveralLiability”below).

In addition, the asset retirement obligationmaybe effectively cross-collateralizedbyotherassetsofthedebtor,suchastheprivilegetooperateonothergovernmentproperty.Forexample,immediatelyfollowingtheBPOilSpill,theU.S.government

152Standard&Poor’sEncyclopediaofAnalyticalAdjustmentsforCorporateEntities.


effectivelythreatenedtorevokeBP’slicensetodobusinessintheUnitedStatesuntilit committed to put $20 billion into a trust fund to secure payment for damages.Finally, at the end of the asset’s useful life, there may still be significant salvagevaluethatcanbeusedtooffsetassetretirementcosts.

(d) OTHERFORMSOFSECURITYManyoftheenvironmentalstatutesunderwhichassetretirementobligationsariserequirethedebtortoprovidefinancialassuranceintheformoftrustfunds,suretybonds, letters of credit, insurance, corporate guarantees, or some combinationthereof. In some cases, debtorsmay “self-bond” based on a showing of financialstrength; however, the financial criteria used in self-bonding are specificallydesignedtoensurethatthedebtorposesanacceptablysmalldefaultrisk.

(e) TAXEFFECTSAsset retirement costs are tax deductible. Thus, tax savings, which are notconsidered in the estimated cash outflows used to calculate the asset retirementobligation, should be deducted from the principal amount of the obligationwhencalculating the amount of the debt. Because the principal amount of the debt issmallerrelativetothedebtor’sassets,defaultriskisreduced.

(f) PRIORITYINBANKRUPTCYAs discussed in Section IV, non-financial environmental liabilities will often haveadministrative priority and may be accorded super-priority status above DIPfinancingandsecuredclaims.

(g) JOINTANDSEVERALLIABILITYStrict liability and joint and several liability are hallmarks of environmental law.assetretirementobligationsthatariseunderenvironmentallawsmaybesubjecttostrict liability and joint and several liability. For example, under regulationsgoverning decommissioning of offshore wells in the Gulf of Mexico, lessees andowners of operating rights are jointly and severally responsible for meetingdecommissioning obligations for facilities on leases, including the obligationsrelatedtolease-termpipelines,astheobligationsaccrueanduntileachobligationismet.153Also,theDepartmentoftheInteriorhasconsistentlyinterpreted"operator"under the Surface Mining Control and Reclamation Act (SMCRA) to include both

15330CFR§250.1701.


mining contractors and landowners, and has declared them to be jointly andseverallyliableforSMCRAreclamationfees.154

Owners and operators facing environmental remediation liabilities arising undertheComprehensiveEnvironmentalResponse,Compensation, andLiabilityAct andthe Clean Water Act may also be subject to strict, joint and several liability.Remediationliabilitiesareoftenassociatedwithassetretirementobligations.155

The ability of a creditor to pursue predecessors and successors in interest if thedebtorcannotsatisfyitsobligationreducesdefaultrisk.Ineffect,otherentitieshaveguaranteedthedebtor’sobligation.156Partiesthatpaydecommissioningcostsmaybe subrogated to the economic rights of theUnited States in claims against otherjointlyandseverallyliableparties.157

(h) DIRECTANDDERIVATIVELIABILITYOFOWNERSANDLENDERS

Under statutory and case law governing environmental protection, a corporateparent, shareholder or lender that actively participates in, and exercises controlover, theoperationsofacorporation’sassetsandassetretirementactivitiesmightbe held directly liable for the corporation’s environmental liabilities. Moreover,courts have shown a greater willingness in environmental protection cases to“piercethecorporateveil”—overridinganacceptedprincipleofcorporatelawthatshareholdersarenotliablefortheactionsofthecorporation—whenthecorporate

154U.S.v.ManningCoalCorp.,977F.2d117(4thCir.1992),citing46Fed.Reg.60780(Dec.11,1981),42Fed.Reg.62713(Dec.13,1977),and49Fed.Reg.31412(Aug.7,1984).Seealso,LiabilitiesofNon-PermitHoldersUndertheSurfaceMiningControlandReclamationAct,16E.Min.L.Inst.ch.8(1997).155SeeRogersforadetaileddiscussiononthedifferencesbetweenassetretirementobligationsandenvironmentalremediationliabilities.156SeeInreATPOil&GasCorporation,CaseNo.12-36187,(Bankr.S.D.Tex.2013)(findingthat“AnadarkoE&POnshoreLLCisapredecessor-in-interesttoATPwithrespecttoaportionoftheGomezProperties.Asapredecessor-in-interest,Anadarkohaspotentialliabilityforalloraportionofthedecommissioningcosts.ATP'sabandonmentofthepropertypriortodecommissioningmayforceAnadarkotoabsorballoraportionofthemorethan$100,000,000cost.”).157SeeInreTri-UnionDevelopmentCorp.,314B.R.611(Bankr.S.D.Tex.2004).


formwouldotherwisebemisused to accomplish certainwrongfulpurposes,mostnotablyfraud,ontheshareholders'behalf.158

Suchargumentsmaybeparticularlypersuasive in instanceswhere thedebtorhaspaiddividendsorengagedinstockbuy-backsatatimewhenitcouldnotmeetsitsasset retirement obligations. The possibility that the value of owners’ residualclaims(i.e., theirequity interests)coulddeclinebelowzeroandthat lenderscouldbe directly liable for a borrower’s environmental liabilities reduces the debtor’senvironmentalliabilitydefaultrisk.

Hedgefundsthatarebothlendersandownersofdebtorsinbankruptcyareatriskof being held directly liable for the debtor’s environmental liabilities. In PatriotCoal’sbankruptcycommencedin2015,WestVirginiasoughttoholdPatriot’shedgefund lendersdirectly liable formine reclamationon thebasis that thehedge fundgrouphadexercisedsomedegreeofcontroloverandhadplayedasignificantroleinPatriot’s management since the new board of directors assumed control afterconsummationofapreviouschapter11plan in2013.159WestVirginiawasabletoreach an agreement with Patriot to set aside more than $50 million for thecompany’s environmental cleanup responsibilities. Patriot’s hedge fund investorsagreedtoprovidetheadditionalcashneededtofundPatriot’sobligations.160

(i) NON-ABANDONMENTUndersection554(a)oftheBankruptcyCode,afternoticeandahearing,thetrusteemayabandonanypropertyoftheestatethatisburdensometotheestateorthatisof inconsequential value and benefit to the estate.161 However, the U.S. SupremeCourthasruledthatatrusteemaynotabandonpropertyincontraventionofastatestatute or regulation that is reasonably designed to protect the public health orsafety from identified hazards.162 Chapter 11 debtors cannot abandon assets and158SeeU.S.v.Bestfoods,524U.S.51,at63-64(statingthatwhen(butonlywhen)thecorporateveilmaybepierced,mayaparentcorporationbechargedwithderivativeCERCLAliabilityforitssubsidiary'sactions);andn.9(statingthatveil-piercingcansubjectaparentcorporationtoderivativeliabilityasbothanowneroroperator).159InrePatriotCoalCorporation,Case15-32450-KLPDoc1161(09/09/15).160WVDEP,PatriotCoalReachAgreement,10/6/2015,availableathttp://www.dep.wv.gov/news/Pages/WVDEP,-Patriot-Coal-Reach-Agreement.aspx.16111U.S.C.§544(a).162MidlanticNat'l.Bankv.NewJerseyDept.ofEnvironmentalProtection,474U.S.494,507(1986)(holdingthatcontaminatedpropertycouldnotbeabandonedpriortoitsdecontamination,asabandonmentinacontaminatedstatewouldbeincontravention


thereby avoid nonfinancial environmental liabilities associated with those assetsabsentconditionsthatwilladequatelyprotectthepublic'shealthandsafety,suchasthe existence of a jointly and severally liable predecessor-in-interest or theassumptionofliabilitybyabuyer.163

(j) EXTRAORDINARYPOWERSOFGOVERNMENTSGovernments face many challenges in promulgating and enforcing financialassurance requirements, 164 including the need to balance environmental andeconomicobjectives.However,governmentshaveextraordinaryresourcesat theirdisposal to enforce environmental obligations. If governments fail to ensure fullsettlementofenvironmentaldebts,itisinpartduetotheirfailuretofullyexercisetheirpower torequireadequate financialassuranceorexercise theirenforcementauthority,orboth.

(5) APPROPRIATECREDITRISKADJUSTMENTTakingfullyintoaccountthefactorsaffectingcreditriskonenvironmentalliabilitiesreducescredit riskessentially tozero. Asdescribedbelow, this isconsistentwiththe positions of the IASB, the SEC, environmental regulatory agencies, andbankruptcycourts.

(a) SECGUIDANCEUnder U.S. GAAP, estimated future cash outflows for environmental remediationliabilitiesmaybediscountedtoreflectthetimevalueofmoneyonlyiftheaggregateamountoftheliabilityandtheamountandtimingofcashpaymentsfortheliabilityarefixedorreliablydeterminable.165

Themeasurement of the remediation liability should not have beendiscountedat anypointduring theperiodunderdiscussionbecause

ofastatestatuteorregulationthatisreasonablydesignedtoprotectthepublichealthorsafetyfromidentifiedhazards.)163SeeInreATPOil&GasCorporation,CaseNo.12-36187,(Bankr.S.D.Tex.2013)(allowingdebtortoabandonoffshoreoilandgasleasesandavoidrelatedAROswithconsentoftheUnitedStatesgovernmentwhichcouldlooktopredecessor-in-interestforsettlementoftheARO).164Seee.g.,AdvancenoticeofproposedrulemakingonRiskManagement,FinancialAssuranceandLossPreventionbytheBureauofOceanEnergyManagement,79Fed.Reg.160at49027,Tuesday,August19,2014.165ASC410-30-35-12.


the amount of the obligation and the amount and timing of cashpaymentswerenotfixedorreliablydeterminable.166

Ifanenvironmentalremediationliabilitymeetstheconditionsforrecognitiononadiscountedbasis in theparagraphabove, the SEChas stated that the rateused todiscounttheestimatedfuturecashoutflowsshouldbe“theratethatwillproduceanamountatwhichtheliabilitycouldbesettledinanarm's-lengthtransactionwithathird party and should not exceed the interest rate on monetary assets that areessentiallyriskfreeandhavematuritiescomparabletothatoftheliability.”167

Inpractice,estimatedfuturecashoutflowsforenvironmentalremediationliabilitiesarerarelydiscountedunderU.S.GAAP,butifdiscounted,theyaretobediscountedatarateequaltoorlessthantheestimatedriskfreeratewithoutadjustmentforthedebtor’s estimated credit risk. Given its stated position on environmentalremediationliabilities,thereisnoreasontoexpectthattheSECwouldsanctionuseofacredit-adjustedratetodiscountassetretirementobligations.

(b) IASBGUIDANCEUnder theprovisionsof IAS37, estimated future cashoutflows for environmentalliabilitiesarediscounted, “wheretheeffectof the timevalueofmoney ismaterial,usingapre-taxdiscountrate(orrates)thatreflect(s)currentmarketassessmentsofthetimevalueofmoneyandthose‘risksspecifictotheliability’thathavenotbeenreflected in the best estimate of the expenditure.”168 The IASB has specificallyconsideredwhetherthe‘risksspecifictotheliability’includeanadjustmentfortheentity’sowncreditrisk,findingthat—

• ThereisdiversityofpracticeunderIFRSregardingwhether‘risksspecifictotheliability’includecreditrisk.

• Somereportingentitiesbelievethatcreditriskisa‘riskspecifictotheliability’andeitherthecashoutflowsorthediscountrateshouldbeadjustedforthisrisk,andtheseentitiesfinditpracticallysimplertoadjustthecashoutflowsforrisk,insteadofthediscountrate.169

166410-30-55-51.167SABTopic5.Y,AccountingandDisclosuresRelatingtoLossContingencies,ASC450-20-S99-1.168IAS37¶ IN6and¶ 47169Adjustmentstoexpectedcashoutflowsinsteadofthediscountratecannotbeobservedinanentities’calculatedaccretionrate.Thus,itisnotpossibleforananalysttoassesstheamountofsuchadjustments.


• Thepredominantviewisthatcreditriskisnota‘riskspecifictotheliability’,andthereforethemeasurementof(non-financial)liabilitiesshouldnotincludeanadjustmentforcreditrisk.Proponentsofthisviewthinkthatnon-financialliabilitiesarequitedifferentfromfinancialliabilities;soincludingcreditriskinthemeasurementofthelatterhaslittlebearingonthesametreatmentfornon-financialliabilities.

• Theissueisbothmoresignificantandmoreurgentforoilandgasentities,forwhichacreditriskadjustmentcanincreaseassetretirementobligationestimatesby100%to125%.170

TheIASBultimatelydeterminedthatobjectionswerenotpersuasivetooverturnthepredominantpracticetoexcludeowncreditriskfrom'risksspecifictotheliability'in IAS 37 paragraph 47. Under IFRS, the rate used to discount environmentalliabilitiesshouldnotincludethedebtor’sowncreditrisk.

(c) FINANCIALASSURANCEEnvironmentalregulatoryagenciesdonotconsidertheregulatedentity’sowncreditrisk in determining the amounts required for financial assurance to demonstratethat adequate funds will be readily available to settle asset retirementobligations.171

(d) BANKRUPTCYCOURTSBankruptcy courts have also addressed the issue of the debtor’s own credit risk.Overtime,thedebtor’screditstandingmayvaryupordown.Inthemostextremecase,whenadebtor faces liquidation, the riskofdefaultonunsecuredobligationsmay rise to 100 percent and market valuations may fall to zero. However,bankruptcycourtsdonotconsiderthedebtor’scurrentcreditstandinganditseffectonthemarketvaluationsofitstradabledebtsecurities:

‘Ifholdersofclaimsarefullyinformedofthedebtor’saffairsandtheassetvaluesare less than the faceamountof theclaims, theywould

170SeeIFRSInterpretationsCommitteeMeetingStaffPaperon“IAS37Provisions,ContingentLiabilitiesandContingentAssets-discountrate,”(November2010)andIFRSInterpretationsCommitteemeeting–10-11(March2011)athttp://www.iasplus.com/en/meeting-notes/ifrs-ic/2011/agenda_ifric_1103/agenda1775.171Seee.g.,U.S.EnvironmentalProtectionAgencyFinalRuleonFinancialAssuranceMechanismsforLocalGovernmentOwnersandOperatorsofMunicipalSolidWasteLandfillFacilities61Fed.Reg.60328(Nov.27,1996)(authorizingStateDirectorstoallowdiscountingatanessentiallyriskfreerateofinterestforclosure,post-closurecare,andcorrectiveactioncostestimatesundercertainconditions).


nevervaluetheirclaimsatmorethanthevalueoftheassets.Likewise,the fully informed debtor would never be willing to pay claimantsmore thanclaimantswouldbewilling to take.Thus, thevalueof theclaims would never exceed the value of the assets and insolvencycould never occur.’ We agree with this reasoning. If [defendant’s]argument were correct, insolvency could never occur, which is anabsurd result. Therefore, we conclude for purposes of determiningwhetheradebtorisinsolventundersection547,theliabilitiesofthedebtormustbevaluedatfacevalue.172

InInreTronoxInc.,173thecourtspecificallyconsideredthequestionofwhetherthedebtor’sowncreditriskshouldbeincludedinthediscountrateusedtocalculatethepresentvalueoffutureenvironmentalresponsecostsandconcludedthatitshouldnot:

Thefinalstepinvaluingtheenvironmentalliabilitiesasofthedateofthe IPO is to reduce the future costs to present value. Prof. Newtonused a rate of 2.5% as a risk-free rate, based on the yields of U.S.treasury obligations and high-grade corporate bonds. Mr. Shifrin'scolleague,Mr.White,advocatedtheuseofa5%discountrateonthegroundthereshouldbeanelementofriskbuiltintotherate.Thereisnoquestionthatariskelementisbuiltintoananalysisofincometobereceived in the future, on the ground that the expected incomemayneverbereceived.However,avaluationofenvironmentalandsimilarliabilities does not take into account the possibility that the debtormaynotbeable topaytheobligation; itattemptstoarriveata"fairvaluation" of the liability regardless of ability to pay. Accordingly,Newton's discount rate is appropriate, and Defendants 5% rateresultsinanundulysmallpresentvalue.174

U.S.GAAPmightat firstappeartobe inconflictwithotherauthoritiesonwhetherthe debtor’s credit risk should be included in the discount rate used to estimateenvironmental liabilities. However, U.S. GAAP and the other authorities can bereconciled in their application by concluding that the appropriate credit risk

172InreORBCOMMGlobal,L.P.,2003WL21362192,at*3(citationomitted).173503B.R.239(S.D.NewYork2013).174Id.


adjustmentonenvironmentalliabilitiesisessentiallyzeroforthereasonsdescribedabove.

In summary, bankruptcy courts, the SEC, the IASB, environmental regulators, andU.S. GAAP all reach the same conclusion: the debtor’s credit risk should not beincluded in the discount rate used to estimate environmental liabilities. Instead,environmentalliabilitiesshouldbediscountedataratenohigherthantheriskfreerate.175

VI. TRUTHINACCOUNTING

Audited financial accounting estimates, even fair value estimates, may fail toaccuratelyfairlyreflecttheeconomicvalueofenvironmentalliabilities.Thisfailuremay be due to shortcomings in the applicable accounting standard or in theapplicationofthestandard.

Practice Note: Ratings agencies, equity analysts and bankruptcy practitioners mayassume that audited financial accounting estimates for environmental liabilities,especially fair value estimates, fairly reflect economic value when they in fact maysignificantly understate fair value for a variety of reasons. Thismisperceptionmaylead analysts, debtors, creditors, trustees and courts to rely on the debtor’s auditedaccountingestimatesinsteadofperforminganindependentanalysis.

A. INCOMPLETENESS

An entity’s financial statementsmaynot reflect all of its environmental liabilities,and a debtor’s schedules of liabilities may not reflect all of the environmentalliabilitiesrecordedinitsfinancialstatements.176Companiesaresupposedtorecord

175Asexplainedabove,thecreditadjustmenttotheriskfreerateapproacheszeroaftertakingintoaccounttheeffectsof“allterms,collateral,andexistingguarantees”onthefairvalueofassetretirementobligationsunderU.S.GAAP.176Seee.g.,MagnumHunterResourcesCorporationv.Hall,Kistler&Company,LLP,CivilActionNo.12-70-KSF.(U.S.Distr.Court,E.D.Kentucky2013)(FollowingMagnumHunter’s$124millionacquisitionofNGAS,apubliclytradedoilandgasexplorationandproductioncompany,MagnumHuntersuedNGAS’sauditorforissuinganunqualifiedopinionthatNGAS’financialstatementswereinconformitywithgenerallyacceptedaccountingprincipleswheninfactNGAShadfailedtorecordassetretirementobligationsassociatedwiththeretirementofoilandgaswellsintheamountof$6,677,688andminereclamationcostsintheamountof$2,000,000.).


environmental obligations as a liability in their financial statementswhen certaincriteria are met (i.e., when probability is deemed to be probable and reasonablyestimable).177

In addition, to comply with GAAP and U.S. securities laws, companies may berequired to disclose certain quantitative and non-quantitative information aboutenvironmentalliabilitiesandcontingencies.Butcompanies,evenpubliccompanieswith audited financial statements, don’t always dowhat they are supposed to do,andauditorscannotalwaysbecountedontoassurefullandfairpresentation.

Moreover, environmental laws afford companies a great deal of discretion onwhether to look for and acknowledge the existence of unasserted environmentalclaims, especially those impairing its own assets. Charged with preservingcorporateassets,managementmayconcludeitisbesttoletsleepingdogslie.178

B. MEASUREMENTPRINCIPLE

An entity’s reported estimates may not accurately reflect the fair value itsenvironmental liabilities because some or all of the individual estimates weredetermined using a measurement principle other than fair value measurement.Estimatesbasedonthelowendoftherangeofpossibleoutcomes,forexample,donot purport to reflect fair value. Thus, the proper application of accountingstandardswillnotnecessarilyresultinestimatesthatreflect“truth”.

AsstatedbyStandard&Poor’s:

[T]he issuer’s financial statements (historical or projected) are notnecessarilyviewedas“Truth”—i.e.,theoptimalorultimatedepictionof the economic reality of the issuer’s financial performance and

177Generally,environmentalobligationsarerecordedasliabilitiesinthefinancialstatementsonlyafterthecompanyfirstdeterminesthatlegalliabilityisprobableandtheamountrequiredtosettletheobligationcanbereasonablyestimated.Obligationsthataremerelypossibleorthatcannotbereasonablyestimatedarenotrecordedasliabilitiesinthefinancialstatementsandmayormaynotbedisclosed.178Thecriteriafordisclosingorbookingenvironmentalliabilitiesoftenallowforsignificantmanagementdiscretion.Forareviewofmanagementincentives,disincentivesandpolicyoptions,seeCorporateEnvironmentalDisclosurePolicy,C.GregoryRogers,ABAEnvironment,Energy,andResourcesLawSummit:17thSectionFallMeeting,September2009,athttp://www.advancedenvironmentaldimensions.com/documents/Corporate%20Environmental%20Disclosure%20Policy.pdf.


position. The financial analysis process necessitates making certainanalytical adjustments to financial statements, to arriveatmeasures[S&P believes] are more reflective of creditors’ risks, rights, andbenefits; enable more meaningful peer and period-over-periodcomparisons;andfacilitatemorerobustfinancialforecasts.

Adjustingfinancialslonghasbeen[S&P’s]practice,andisanintegralpart of the ratingprocess.Although such adjustments revise certainamounts reported by issuers under applicable Generally AcceptedAccounting Principles (GAAP), that does not imply that [S&Pchallenges]theapplicationofGAAPbytheissuer,theadequacyofitsauditor financial reportingprocess,or theappropriatenessofGAAPaccounting to fairly depict the issuer’s financial position and resultsforotherpurposes.

Rather, it reflects a fundamental difference between accounting andanalysis.Theaccountantnecessarilymust findonenumbertouse inpresenting financial data. The analyst, by definition, picks apart thenumbers. Good analysis looks atmultiple perspectives—andutilizesadjustmentsasananalyticaltechniquetodepictasituationdifferentlyforaspecificpurposeortogainanothervantagepoint.179

Even fair value estimates may fall short of the “truth” due to wide “diversity inpractice” in themanner inwhich different companies apply the principles of fairvaluemeasurement.

C. DIVERSITYINPRACTICE

“Diversityinpractice”isthetermusedbyanaccountingstandardsboardtoindicatethat companies are applying its standards in significantly different ways. Forexample, the IASB has identified diversity in practice regarding consideration ofcreditriskindiscountrates.180OurresearchshowsthatthereisalsowidediversityinpracticeunderU.S.GAAPonthisissue,withamajorityofcompaniesincludingtheentity’s credit spread in the interest rates used to discount asset retirement179Standard&Poor’sEncyclopediaofAnalyticalAdjustmentsforCorporateEntities.180SeeIFRSInterpretationsCommitteeMeetingStaffPaperon“IAS37Provisions,ContingentLiabilitiesandContingentAssets-discountrate,”(November2010)andIFRSInterpretationsCommitteemeeting–10-11(March2011)athttp://www.iasplus.com/en/meeting-notes/ifrs-ic/2011/agenda_ifric_1103/agenda1775.


obligations and a minority of companies using a risk free rate. Our consultingexperiencealsopointstowidediversityinpracticeinestimatingkeyinputsintofairvaluemeasurements, including expected cash outflows,market risk premiumandexpectedsettlementdates.

Thereisalsothematterofcost-effectiveness.Itisabasicaccountingprinciplethatfinancial reporting should not entail “undue cost and effort”—in otherwords thecosttopreparersshouldnotexceedthevaluetofinancialstatementusers.Thelevelof effort required to produce reliable fair value asset retirement obligationestimates, for example, can be significant, especially for companies with manythousands of assets. Accounting standards appropriately offer some leeway forprocesssimplification,butthisopensthedoortomorediversityinpractice.181

We believe that fair value measurement offers an appropriate methodology forestimatingthetrueeconomicvalueofenvironmental liabilities. However,becausesmalldifferencesintheapplicationoffairvaluemeasurementprinciplescanresultinwidelydiffering results, one cannot reasonably assume that reported fair valueestimates, evenwhen audited by a reputable public accounting firm, in fact fairlypresentfairvalue.

D. SUBJECTIVITY

Because there are no active markets for identical or similar liabilities,environmentalliabilityestimates,includingfairvalueestimatesofassetretirementobligations, must largely be developed using unobservable inputs. Accordingly,environmentalliabilityestimatesgenerallyinvolvehighdegreesofsubjectivityandjudgmentbasedonmanagement’sownassumptionsandbiases.

Initsdescriptionofanalyticaladjustmentstocorporateassetretirementobligationestimates,Standard&Poor’soffers the followingexplanationofuncertainty intheestimationofassetretirementobligations:

ARO measurement involves a high degree of subjectivity andmeasurementimprecision.Ourstartingpointisthereportedliability

181Seee.g.,ASC410-20-55-11(“Ifassetswithassetretirementobligationsarecomponentsofalargergroupofassets(forexample,anumberofoilwellsthatmakeupanentireoilfieldoperation),aggregationtechniquesmaybenecessarytoderiveacollectiveassetretirementobligation.ThisSubtopicdoesnotprecludetheuseofestimatesandcomputationalshortcutsthatareconsistentwiththefairvaluemeasurementobjectivewhencomputinganaggregateassetretirementobligationforassetsthatarecomponentsofalargergroupofassets.”)


amount,whichmaybeadjustedforanticipatedreimbursements,assetsalvage value, and tax reductions, further adjusted for anyassumptionsweviewasunrealistic.

MostAROsinvolveobligationstoincurcoststhatmayextendwellintothefuture.Uncertaintiesinherentintheirestimationinclude:

• Theamountoftheultimatecostofassetretirement,whichwilldependontherelevantcountry’slawsandasset-specificenvironmentalregulationsatretirement;theconditionofthemarketsforthespecificassets’retirementservices;possibleeconomiesofscalefortheoperator;andwhethertheactivitiesultimatelyareperformedbytheoperatororbyathirdparty.

• Thetimingofassetretirement,whichissubjecttoassumptionsthatcanchangematerially.Forexample,inextractiveprojects,futurepriceexpectationsforhydrocarbonormineralsaffecttheeconomiclifeoftheassets.Forpowergenerators,asset-retirementtimingdependsnotablyonlocalregulatorydecisions.Theirimpactmightbefavorable(i.e.,inthecaseofanoperatinglicenseextension)orunfavorable(i.e.,inthecaseofanearlymandatedclosure).

• Thediscountratetobeusedinthepresentvaluecalculation.U.S.GAAPrequirestheuseofanentity-specificdiscountrate.Hence,thestrongertheentity’scredit,thelowerthediscountrate—andthehighertheliability.Similarly,theperiodicaccretionrateislowerforstrongercredits,andhigherforweakercredits.Ifnothingelse,thishinderscomparabilityacrosscompaniesusingU.S.GAAP,aswellastoIFRS-reportingcompanies,whichusemarket-relatedratesadjustedtorisk-specificfactorsattributabletotheliability.182

Each of these areas of uncertainty is subject to management’s assumptions andbiases.Moreover,variancesinindividualinputscanhaveacompoundingdistortioneffectonfinalestimates.

VII. VALUATIONOFENVIRONMENTALLIABILITIESINBANKRUPTCY

Fair valuation of environmental liabilities in bankruptcy may be an importantconsideration for purposes of valuing claims, administrative expenses and super-priorities,determiningsolvency,andevaluatingplanfeasibility.

182Standard&Poor’sEncyclopediaofAnalyticalAdjustmentsforCorporateEntities.


PracticeNote:Financialaccountingprinciplesarenotcontrollingforpurposesoffairvaluation in bankruptcy and, for the reasons explained in this chapter, accountingestimates of environmental liabilities should never be accepted at face value.Bankruptcy practitioners may assume therefore that accounting principles have nouseful purpose in bankruptcy valuations when in fact fair value measurement isarguably the most rigorous methodology for determining the fair valuation ofenvironmentalliabilities.Thismisperceptionmayleaddebtors,creditors,trusteesandcourts to ignore the debtor’s current and prior accounting estimates instead ofsystematically testing them against the principles of fair value measurement.Systematic analysis of current and former accounting estimatesmay show that thedebtor failed to fairly present its financial condition in accordance with applicableaccounting principles and securities laws, which could give rise to other legalremedies.

A. CONTINGENCIES

Bankruptcy courts use an expected value methodology to estimate contingentliabilities by discounting the amount of potential liability by the likelihood thatactualliabilitywill(orwillnot)occur.

[T]o avoid creating the unsettling impression that contingentliabilities must for purposes of determining solvency be treated asdefiniteliabilitieseventhoughthecontingencyhasnotoccurred…itisnecessarytodiscount[acontingentliability]bytheprobabilitythatthecontingencywilloccurandtheliabilitybecomereal.183

B. ENVIRONMENTALREMEDIATIONLIABILITIES

Bankruptcy courtshave consideredwhether environmental remediation liabilitiesarecontingentornoncontingentsimplybecausetheyaresubjecttouncertaintyandfoundthattheyarenoncontingent.

[Defendant’s "conceptual probability"matrix,which assigned a 10%probabilitytoresponseactionsdeemed"unlikelybutpossible,"a30%probability to response actions that were "possible," a 50%probability to response actions that were "equally likely," a 70%probabilitytoresponseactionsthatwere"morelikelythannot",anda90%probabilitytoresponseactionsthatwerehighlylikely,]tendstoassume that the environmental claims at issue here are mere

183InreXonicsPhotochemical,Inc.,841F.2d198,200-01(7thCir.1988).


contingent claims that should be subject to a discount for theprobabilitytheywillneverbepursued,whereasinfactenvironmentalclaimsareclaimsthatcanbebrought(orfiled inabankruptcycase)withoutsatisfactionofacontingency.184

C. ASSETRETIREMENTOBLIGATIONS

Incertain industries,suchassurfaceminingandnuclearpowergeneration,wherestate or federal law requires companies to obtain a permit before commencingoperations,thepermitteemayberequiredtoprovidefinancialassurancethatitcansatisfy the amount of pre-determined estimated costs to comply with assetretirement obligations, such as decommissioning, reclamation, cleanup andrestoration requirements.185 The financial assurancemay be in the form of trustfunds, surety bonds, letters of credit, insurance, corporate guarantees, or somecombinationthereof.

The face amount of these financial assurance obligations is unlikely tomatch thedebtor’s accounting estimates, if for no other reason than because financialassuranceestimatesaregenerallynotdiscountedandaccountingestimatesforassetretirement obligations are. Government regulators may also fail to maintainaccurateandcompletedataonassetretirementcosts.Ina2015investigationoftheU.S. Department of Interior’s management of decommissioning liabilities fromoffshoreoilandgasproduction,theGovernmentAccountabilityOfficefound:

Unless and until Interior obtains accurate and complete data ondecommissioning costs, Interiormaynot have reasonable assurancethat its cost estimates of decommissioning liabilities in the Gulf areaccurate, or that it is requiring sufficient amounts of financialassurancebasedontheseestimates.

Nonetheless,whengiventhechoicebetweenadebtor’saccountingestimatesandagovernment-approved financial assurance amount, bankruptcy courts have foundthelattertobemorecredibleevidenceoffairvalue:

Finally, the bankruptcy court held that the Debtor's [coal mine]reclamation liability, one of the Debtor's most significant liabilities,

184InreTronoxIncorporated,503B.R.239(Bankr.S.DNewYork2013).185Inothercases,suchasonshoreandoffshoreoilandgasdrilling,lawsrequirecompaniesseekingdrillinglicensestodemonstratesomeformoffinancialresponsibility,butdonotrequireapre-commencementestimateofclosurecosts.


had a fair value in excess of $1,000,000. The court again refused toapply the Debtor's book value of $432,000, stating that "[t]hemostcredible proof is that the liability is in the amounts required by thegovernmentalentitiesforthedebtor'sbonds.Fromourreviewoftherecord,thesefactualfindingsarenotclearlyerroneous.186

Evenwhenestimatedandapprovedinadvancebythegovernment,environmentalliability estimates may nonetheless warrant careful review due to changes inconditions or applicable laws and legal interpretations. For example, increasedregulatoryconcernabouthighseleniumconcentrationsinsurfacewaterrunoffhavecausedcoalminingcompaniesto incursignificantunexpectedexpendituresandtoincreasetheirassetretirementobligationestimates:

In 2012, Debtors [Patriot Coal] spent approximately $43.6 milliondollarsonseleniumtreatmentandrelatedactivitiesand$46.8milliondollarsonreclamation.Reclamation involveswater treatment…andtherestorationtothesurfaceofacoalminetoatleastitspre-miningconditions. Debtors were also required to close several mines thatcould not be brought into compliance with environmentalrequirements….Debtors,likemanyofDebtors'competitors,havealsoreceived adverse court dispositions in environmental cases. As aresult of these lawsuits — and related court orders and consentdecrees—Debtorsrecorded$443milliondollarsinassetretirementobligationsonseleniumwatertreatmentprojectsasofDecember31,2012.187

D. PRESENTVALUE

InInreTronox,thebankruptcycourtfortheSouthernDistrictofNewYorkexplicitlyacknowledged that the fair valuation of environmental liabilities in a solvencyanalysis requires the application of discounting to produce a present valueestimate—“The final step in valuing the environmental liabilities asof thedateoftheIPOistoreducethefuturecoststopresentvalue.”Also,asdiscussedinbelow,theTronox courtspecificallyconsidered thequestionofwhether thedebtor’sowncredit risk should be included in the discount rate used to calculate the presentvalueoffutureenvironmentalresponsecostsandconcludedthatitshouldnot.

186InreSunsetSales,Inc.,220B.R.1005(Bankr.App.Panel10thCir.1998).187InrePatriotCoalCorporation,493B.R.65(Bankr.E.D.Missouri2013).


E. FAIRVALUEANDFAIRVALUATION

Valuationof liabilities isofparticular importance inproceedings todetermine thedebtor’s solvency. For entities other than partnerships and municipalities, theBankruptcyCodedefines“insolvent”as:

afinancialconditionsuchthatthesumofsuchentity’sdebtsisgreaterthan all of such entity’s property, at a fair valuation, exclusive of (i)property transferred, concealed, or removed with intent to hinder,delay,ordefraudsuchentity’screditors;and(ii)propertythatmaybeexempted from property of the estate under section 522 of [theBankruptcyCode].188

TheBankruptcyCodedoesnotdefine“fairvaluation,”189butcourtshaveconstruedthetermtorefertothefairmarketvalueofthedebtor'sassetsandliabilitieswithinareasonabletimeofthetransfer.190

[F]air valuedoesnotmean the amount thepropertywouldbring intheworstcircumstancesorinthebest.. . .Forexample,aforcedsaleprice is not fair value though it may be used as evidence on thequestionoffairvalue.…Thegeneralideaoffairvalueistheamountofmoney thedebtor could raise from its property in a short periodoftime, but not so short as to approximate a forced sale, if thedebtoroperatedasareasonablyprudentanddiligentbusinessmanwithhis

18811U.S.C.A.§101(32)(A).189[Updateandrephrase]See,e.g.,LiquidationTrustofHechingerInv.Co.ofDel.,Inc.v.FleetRetailFin.Group(InreHechingerInv.Co.ofDel.),327B.R.537,548(Bankr.D.Del.2005)(“TheBankruptcyCodedoesnotmandatewhatconstitutesa‘fairvaluation.’”);TotalTechnicalServs.,Inc.v.Whitworth(InreTotalTechnicalServs.,Inc.andTTS,Inc.),150B.R.893,900(Bankr.D.Del.1993)(“FairvalueisnotdefinedbytheBankruptcyCode.”).SeealsoTravellersInt’lAGv.TransWorldAirlines,Inc.(InreTransWorldAirlines,Inc.),203B.R.890,893(D.Del.1996)(“Themeaningascribedtotheterm‘fairvaluation’iscrucial,inthatitguidestheinterpretationofadebtor’sfinancialdata,whichthenenablesacourttodetermineifthedebtor’sliabilitiesexceeditsassets,thatis,whetherthedebtorisinsolvent.”),rev’dinpartonothergrounds,134F.3d188(3dCir.),cert.denied,523U.S.1138(1998).190InreOhioCorrugatingCo.,91B.R.430(Bankr.N.D.Ohio1988),citingBridenv.Foley,776F.2d379,382(1stCir.1985).


interests inmind,especiallyaproperconcernforthepaymentofhisdebts.191

Althoughcourtsattributevaryingdegreesofevidentiarysignificancetoaccountingestimates, it is well accepted that financial accounting conventions are notcontrolling in determining the fair valuation of the debtor’s environmentalliabilities.192

The fairvalueofa liability foraccountingpurposes—i.e., “theprice thatwouldbepaidtotransferaliabilityinanorderlytransactionbetweenmarketparticipantsatthemeasurementdate”193—isessentiallyidenticaltojudicialinterpretationsof“fairvaluation” in bankruptcy. Accordingly, we believe that fair value measurementprovidesanappropriatemethodology—ifnot thebestavailablemethodology—fordeterminingthefairvaluationofenvironmentalliabilitiesinbankruptcy.

AlthoughfairvaluemeasurementunderU.S.GAAPiscurrentlyappliedonlytoassetretirementobligations,webelieve themethodologycanbeappliedequallywell toenvironmental remediation liabilities and environmental loss contingencies.Uncertainty about the existence of liability or the timing and amount of cashoutflowsdoesnotpreventthedeterminationofareasonableestimateoffairvaluebecausethatuncertaintycanbefactoredintothemeasurementthroughassignmentof probabilities to cash outflows in the same way bankruptcy courts valuecontingencies.194

191InreJoeFlynnRareCoins,Inc.,81B.R.1009(Bankr.D.Kan.1988).192InreTronoxIncorporated,503B.R.239(Bankr.S.DNewYork2013)(“Aprincipalreasonwhyfinancialstatementsareoflittleuseinasolvencyanalysisisthatgenerallyacceptedaccountingprinciples(GAAP)requirereservesonlyforclaimsthatare‘probableandreasonablyestimable.’[citationsomitted]Therecordisrepletewithevidencethat[thedefendant]misappliedthisstandardandtherebyunderstateditsliabilitiesforGAAPpurposes.”);Heilig-MeyersCo.v.WachoviaBank,N.A.(InreHeilig-MeyersCo.),328B.R.471,488(E.D.Va.2005)(“AlthoughthevaluesreportedinfinancialstatementstoshareholdersarebasedonaccountingmethodsthatareinapplicabletothedeterminationofsolvencyundertheBankruptcyCode,suchreportedvaluesare‘competentevidencefromwhichinferencesaboutadebtor’sinsolvencymaybedrawn.’”).193ASC820-10-20.194SeeSFAS143¶ A17(“Uncertaintyaboutwhetherperformancewillberequireddoesnotdefertherecognitionofaretirementobligation;rather,thatuncertaintyisfactoredintothemeasurementofthefairvalueoftheliabilitythroughassignmentof


We believe fair value measurement, faithfully applied, offers the most robustavailable methodology for valuing the inherent uncertainty associated withenvironmental liabilities. It starts by determining probability-weighted expectedcash flows, but it does not end there. Probability-weighted expected cash flowsalonedonotreflectthemarketvalueoftheuncertaintyinthecashflows(e.g., fat-tailed distributionswith no cost ceiling) nor the liquidity risk that exists becausethereisnoactivetradingmarketforenvironmentalliabilities.Themarketpremiumassociated with these risks can be significant and should be included in a fairvaluation of environmental liabilities. Finally, fair valuemeasurement provides asound andwell-articulatedmethodology for determining the appropriate interestratetobeusedindiscountingenvironmentalliabilities—thatis,ariskfreerate.

For the foregoing reasons, we recommend the use of fair valuemeasurement, asproscribed under U.S. GAAP, to determine the fair valuation of all environmentalliabilitiesinbankruptcy.Werushtocaution,however,thatwedonotbelievethatadebtor’s reported fair value accounting estimates warrant significant evidentiaryvalueinbankruptcyforthereasonsdiscussedinSectionVI(TruthinAccounting).

VIII. CONCLUSION

Manybankruptcypractitionersandinterestedstakeholders,includingcreditratingsagenciesandequityanalysts,mayoperateundercommonmisperceptionsaboutthenatureandmagnitudeofcorporateenvironmentalliabilities.Estimatesrecordedinadebtor’s financialstatementsandschedulesmaysignificantlyunderstate the fairvalueof its environmental liabilities. Withmoredetailed informationabouthowenvironmental liability estimates are developed and recorded, practitioners andstakeholders can, hopefully, avoid being surprised by these misperceptions, and,indeed,helpensurethatenvironmentalliabilitiesareappropriatelyestimatedwiththeobjectivesoffairlyassessingthevalueofclaimsaswellasmaximizingthevalueandviabilityofdebtorsuponemergencefrombankruptcy.

probabilitiestocashflows.Uncertaintyaboutperformanceofconditionalobligationsshallnotpreventthedeterminationofareasonableestimateoffairvalue.”)