Century Motor Freight sold all of its assets to Wintz Parcel Drivers in February 1992. The sale meant that Century would no longer be making pension contributions on behalf of its former employees to the Chicago Truck Drivers Union Pension Fund, a multiemployer fund. The responsibility to make payments became Wintz’s, but Century was by no means off the hook. Multiemployer pension plans are a popular way for employers to pool their risk and resources, and under ERISA
Such was the fate of Century. When it sold to Wintz, it thought it had come to an agreement with the fund relieving it of withdrawal liability, which of course the fund was entitled to do. Under Century’s agreement with the fund, Wintz had to enter into a collective bargaining agreement with the union, as well as post a $50,000 bond in favor of the fund, and Century had to pay everything it owed the fund. Century claims all those conditions were satisfied, which is why it says it was surprised when three years later (in 1995) the fund wrote Century reasserting the company’s withdrawal liability. The record is unclear as to what prompted the reassessment, though Century suggested in the district court that it was prompted by Wintz’s decision to shut down some of the acquired operations in 1995. Undoubtedly, the reason for the reassessment and its appropriateness will be fleshed out in arbitration, which the parties tell us is pending. For now the important point is that the fund instructed Century that it had to discharge its liability in a lump sum payment of $438,-624 or by a payment schedule. When Century did not pay on an installment basis, the fund accelerated the balance owed.
Still Century paid nothing, prompting the fund to file suit in federal court to recover the principal sum of $438,624 plus interest, liquidated damages, court costs and reasonable attorneys’ fees pursuant to 29 U.S.C. § 1132(g)(2). The fund successfully moved for summary judgment on its complaint. Century had argued that it was not legally required to pay an accelerated amount under 29 C.F.R. § 4219.31(c)(1),
The fund also asked the district court to award liquidated damages and interest on the accelerated amounts, plus costs and fees.. The court agreed and awarded the fund $335,560.18. That sum represented the outstanding principal owed the fund, interest, $87,724.80 in liquidated damages, costs and fees.
We reverse the district court’s determination that collateral estoppel precluded Century from litigating the validity of § 4219.31(c)(1), and further hold that this regulation prevents acceleration of a fund’s withdrawal liability assessment where the employer has timely filed for arbitration.
I.
An employer withdrawing from an ERISA plan typically has to pay withdrawal liability to the fund (in this case, a multiemployer pension fund). The fund sends a notice to the employer and a demand for the amount of liability. The employer may ask the plan sponsor to review the assessment of withdrawal liability, and if still dissatisfied, the employer may initiate arbitration under 29 U.S.C. § 1401(a). If the employer does not timely initiate the arbitration process to resolve a dispute over a plan’s determination of withdrawal liability, the employer waives the right to contest the assessment and the amounts demanded by the plan become “due and owing” and the plan can sue to collect it.
The issue in this case is not whether the arbitration process was initiated, but instead whether the entire withdrawal liability is due before the arbitration process is complete. On the one hand ERISA seems to say that it is. Section 1399(c)(5) states that “[i]n the event of a default, a plan sponsor may require immediate payment of the outstanding amount of an employer’s withdrawal liability, plus accrued interest on the total outstanding liability-..'.” (emphasis added). 29 U.S.C. § 1399(c)(5). But another section of ERISA, 29 U.S.C. § 1401(b)(1), appears to suggest that the employer may stay any obligation to pay the principal owed to the fund by timely seeking arbitration: “If no arbitration proceeding has been initiated ... the amounts demanded by the plan sponsor under section 1399(b)(1) of this title shall be due and owing on the schedule set forth by the plan sponsor.” (Emphasis added.) Add to this mix a federal regulation, 29 C.F.R. § 4219.31(c)(1), issued by the PBGC. That regulation plainly states that a “default as a result of failure to make any payments shall not occur until the 61st day after the last of — ... (iii) If arbitration is timely initiated ..., issuance of the arbitrator’s decision.” So on the one hand § 1399(c)(5) súggests that the fund may require “immediate payment” of a balance if an employer is in default, but on the other hand § 1401(b)(1) and C.F.R. § 4219.31(e)(1) appear to delay such a default and acceleration if the employer arbitrates.
Century’s argument here is the same as it was in the district court — that the sections are not inconsistent at all. Rather, Century argues, the rule that emerges from ERISA and the PBGC’s regulation is that a fund may accelerate, but not before the arbitrator makes his decision. In other words, the regulation would be inconsistent with the statute if it denied the right to accelerate in any circumstance, but it merely delays it, and this delay is entirely consistent with 29 U.S.C. § 1401(b)(1).
The district court did not determine whether the regulation conflicted with ERISA; rather, it found Century estopped to make their argument in the first place. In Century I, a different district court judge in the Northern District of Illinois rejected Century’s argument, instead determining the regulation to be in direct conflict with ERISA and therefore finding it invalid. That decision was not appealed. We therefore must decide whether the district court in this ease correctly applied the doctrine of collateral estoppel to Century’s argument under § 4219.31(e)(1).
Century contends that the second requirement was missing in Century I. It claims that it never had a full opportunity to litigate the validity of § 4219.31(c)(1) because the fund (and summary judgment movant) in that case did not argue the point until its reply brief. It invokes the settled rule that parties may not raise arguments for the first time in reply. In essence, Century is claiming that it was sandbagged and that it never got a chance to convince the district court that the regulation was valid and that it did not conflict with ERISA. But our review of the record tells us that Century itself raised the issue of § 4219.31(c)(1) in its response to the motion for summary judgment, so it was quite natural that any argument concerning that regulation — including its possible invalidity — would be raised by the plaintiff in reply. Century contends that it raised only the application, not the validity, of § 4219.31(c)(1) in its response. But Century is splitting hairs. In defending against the motion for summary judgment by invoking that regulation, Century necessarily was relying on its validity at the same time it was leaving that issue open to attack.
Nevertheless, we are not satisfied that the validity of § 4219.31(c)(1), which in fact was never argued by Century (it filed no surreply), received the kind of analysis needed to decide such an important issue. For example, in Century I, neither of the parties, nor for that matter the district court, invited the PBGC to participate in the proceeding, presumably to argue in support of its regulation. (The PBGC did not petition to appear as an amicus curiae in this case on appeal, either.) And while the district court determined that the terms of ERISA took precedence over the regulation (citing the rule of law that a statute always trumps a regulation), it did so without hearing from Century on the issue, and without any discussion of conflicting case law and admittedly without any attempt “to reconcile the statute with the regulations.” Century I,
In all events, we need not decide whether each of the prerequisites for collateral estoppel was met in Century I because Century points us to other reasons not to apply the doctrine in this case. It directs us to Parklane Hosiery Co. v. Shore,
None of the Parklane Hosiery factors counsels against the application of collateral estoppel in this case. The fund did not wait to see the result in Century I before filing its lawsuit, so it could hardly be labeled opportunistic. The judgment against Century in Century I exceeded $1.9 million, meaning that it had every incentive to vigorously contest it (though favorably settling the case subsequently may have persuaded it not to appeal). While Century has identified other cases in conflict with the holding in Century I, it was not a party to any of them. And both Century I and this case were decided by district courts at the summary judgment stage, thereby affording Century equivalent procedural opportunities.
But a significant exception remains: whether because of “other reasons, the application of offensive estoppel would be unfair.”Parklane Hosiery,
In this ease, the district court was faced with a pure legal question, the validity of § 4219.31(c)(1) in light of the provisions pertaining to a contributing employer’s default in ERISA. The Supreme Court has not confronted this issue, and neither has this court. But other circuits have had occasion to apply the regulation, and none has suggested that it is invalid as a matter of law. See Board of Trustees No. 15 Machinists’ Pension Fund v. Kahle Engineering Corp.,
We are also concerned about consistency and fairness. Under § 28(2) of the Restatement, an issue is not precluded if it is “one of law and ... (b) a new determination is warranted ... to avoid inequitable administration of the laws.” Determining whether preclusion would lead to an “inequitable administration” of law — in this case, ERISA— involves two competing concepts of equality. As Comment c following § 28 explains:
One is the concept that the outcomes of similar legal disputes between the same parties at different points in time should not be disparate. The other is that the outcomes of similar legal disputes being contemporaneously determined between different parties should be resolved according to the same legal standards. Applying issue preclusion invokes the first of these concepts, treating temporally separated controversies the same way at the expense of applying different legal standards to persons similarly situated at the time of the second litigation.
Here we are concerned about the second concept of equality, i.e., the notion that “outcomes of similar legal disputes ... between different parties should be resolved according to the same legal standards.” If we affirmed the district court on the basis of collateral estoppel, we would not be saying that the court in Century I necessarily was correct in concluding that § 4219.31(e)(1) was invalid as a matter of law. And though we would be free in a future case to determine that § 4219 is valid and stays acceleration of withdrawal liability pending arbitration, that determination would apply to everyone but Century. For whatever reason Century did not appeal Century I; it apparently was willing to risk another plaintiff using the decision against them in the future. Nevertheless, such inconsistency in treatment is a concern. Wright, Miller & Cooper, § 4425, at 244 (among “[t]he reasons most commonly advanced [against estoppel] ... [is] that it is particularly unjust to preclude reargument of questions of law that would be open to challenge by other litigants”); Austin Wakeman Scott, Collateral Estoppel by Judgment, 56 Harv. L.Rev. 1, 7 (1942) (“It would manifestly be unjust to apply one rule of law forever as between the parties and to apply a different rule as to all other persons.”).
This is not a case where a plaintiff seeks to estop a defendant to relitigate a question of fact, or even a mixed question of law and fact unlikely to arise again in exactly the same way. As a pure question of law, the validity of § 4219.31(c)(1) might result in one answer when Century asks the question but another answer when the question is asked by anyone else. As we noted above, the appropriateness of collateral estoppel depends upon the particular practical realities in each case. In this case, those realities lead us to worry less about the dangers of repetitive litigation than about the inconsistency that estoppel would produce. For all of these reasons, the particular circumstances of this case warranted against the application of collateral estoppel. Century
II.
Though we cannot affirm the district court on the basis of collateral estoppel, the fund asks us to affirm on the merits. See McClendon v. Indiana Sugars, Inc.,
But the regulation and the statute do not necessarily conflict. 29 U.S.C. § 1399(c)(5) suggests that the fund may require “immediate payment” of a balance if an employer withdraws from the fund, but it is by no means unconditional. If it were, § 1401(a) and (b) would not exist. Section 1401(a)(1) mandates that any dispute under § 1399 “shall be resolved through arbitration.” Section 1401(b)(1) states that “[i]f no arbitration proceeding has been initiated ... the amounts demanded by the plan sponsor under section 1399(b)(1) of this title shall be due and owing on the schedule set forth by the plan sponsor.” (Emphasis added.) According to the fund, § 1401(b)(1) only reaffirms § 1399(c)(5) — that it may demand immediate payment if the employer does not seek arbitration — and that it says nothing about what a fund can (or cannot) do in a ease like this one where an employer does seek arbitration. The fund’s reading of § 1401(b)(1) is slightly off course. This section would not exist simply to restate § 1399(c)(5), and courts make it a practice not to read into statutes such redundancies. See Mackey ¶. Lanier Collection Agency & Service, Inc.,
This interpretation is entirely consistent with § 4219.31(c)(1). That regulation states that a “default as a result of failure to make any payments shall not occur until the 61st day after the last of — ... (iii) If arbitration is timely initiated ..., issuance of the arbitrator’s decision.” The rule that emerges from the statute and the regulation is that a fund may accelerate, but not before the arbitrator renders a decision. The regulation would be inconsistent with the statute if it denied the right to accelerate in any circumstance, but it merely delays it, and this delay comports with § 1401(b)(1).
This is not a particularly unusual interpretation of the regulation. In fact, while other courts apparently have not been confronted with the exact issue of § 4219.31(c)(l)’s validity, it is clear that they have never questioned it. See Board of Trustees No. 15 Machinists’ Pension Fund,
On appeal, Century does not contest its duty to make installment payments on its withdrawal liability, though it concedes it failed to make them in this case. Century’s concession notwithstanding, the fund submitted additional authority, specifically Galgay v. Beaverbrook Coal Co.,
For these reasons we think the proper interpretation of the statute and the PBGC’s regulation is that the fund may exercise its right to an accelerated payment, but acceleration may be delayed if the employer invokes its own right to arbitration. As we have noted, the PBGC was not asked to participate in this suit, and we would have found its input beneficial. Trustees of Iron Workers Local 473 Pension Trust v. Allied Products Corp.,
At oral argument the fund suggested that no harm would be done by making an employer like Century pay the accelerated amount prior to arbitration. According to the fund, the entire amount of withdrawal liability would be refunded if the employer prevailed in arbitration. But from a penalty standpoint, even if an employer like Century eventually wins, it loses. As we noted in Central States Pension Fund v. Lady Baltimore Foods,
So while we are reversing the district court’s acceleration of Century’s entire withdrawal liability, we agree with the court that the fund is entitled to liquidated damages. These damages penalize Century for deciding not to make installment payments until being ordered to do so by a court. As we noted above, Century tells us that it now agrees that such interim payments are due and owing under ERISA prior to an arbitrator’s decision concerning withdrawal liability. But it came to this conclusion late, and accordingly must pay damages as “a penalty for trying to litigate before paying rather than paying [installment payments] upon assessment and litigating to get the payments refunded.” Id. Century unpersuasively argues that it should not have to pay any
We nevertheless agree with Century that its interest and liquidated damages liability should not be based on the entire accelerated assessment made by the district court. Century was obligated only to make installment payments prior to arbitration, and its penalties under 29 U.S.C. § 1132(g)(2) should derive from those missed payments. Therefore, Century’s interest liability accrues from the due date of each missed installment payment, and any liability for liquidated damages (either double interest or up to 20% of unpaid contributions, whichever is greater) should relate only to missed installment payments as well. See Carriers Container Council, Inc. v. Mobile Steamship Ass’n, Inc.,
In sum, Century is obligated to make installment payments pending arbitration of its withdrawal liability dispute with the fund. The district court’s accelerated assessment of withdrawal liability is reversed. The issues of interest and liquidated damages are remanded to the district court so that it may enter judgment consistent with this opinion. We affirm the award of attorneys’ fees and costs because Century precipitated the plan’s suit in the district court by unlawfully failing to make any installment payments pending arbitration.
Affirmed in part, and Reversed and Remanded in part.
Notes
. As amended by the Multiemployer Pension Plan Amendments Act of 1980, 29 U.S.C. § 1381 et seq.
. Previously found at 29 C.F.R. § 2644.2(c)(1).
. We concede the term is cumbersome. Offensive use of collateral estoppel occurs when a plaintiff seeks to foreclose a defendant from relit¡gating an issue the defendant has previously litigated unsuccessfully in another action against the same party (hence, "mutual”) or against a
