.

Paul advises alternative investment managers, private equity funds, credit funds and major creditors on cross‑border restructuring, insolvency, and complex financing matters. His practice spans some of the most challenging points in a company’s lifecycle, from financial distress and formal insolvency processes to new financings and fund‑level facilities.

In restructuring and insolvency mandates, Paul represents buyers of distressed assets, including purchasers in pre‑pack administrations, and advises creditors and alternative capital providers on their debt investments.  Paul also acts for officeholders — including administrators and liquidators — on formal insolvency processes and asset sales.

Paul's cross-border capabilities include advising on U.S. Chapter 11 proceedings and overseas company insolvencies with English law dimensions and financings involving U.S. borrowers and European lenders. His clients in this area include European family offices, U.S. alternative capital providers and multi-strategy European private equity funds.

Paul’s finance experience covers acquisition finance, fund finance facilities, project finance structures, secured bond issuances, and multi‑layered financings involving media, digital assets and other specialist sectors.

Select Experience

Restructuring & Insolvency

  • Advising the joint administrators of Inland Homes, a U.K. housebuilder and developer, in connection with the sale of developments and steps to maximize recoveries across the group.
  • Advising the joint administrators of certain property companies within the MFS Group in connection with their appointment and ongoing responsibilities.
  • Advised the liquidators on a complex insolvency process involving a group of international entertainment companies.
  • Advised the English subsidiary of Airspan Networks, a large U.S. telecommunications company, in connection with a prepackaged Chapter 11 plan of reorganization.

Education

  • BPP Law School (Postgraduate Diploma in Law, 2004)
  • University of Oxford, Balliol College (B.A., Modern History, 2001)
    • (Hons.)

Bar Admissions

  • England & Wales

Professional Affiliations

  • Member of IBA and INSOL International

Insights

Articles

Redemption Survives Default: Commercial Court Restricts Lenders’ Enforcement of Pledged Shares

May 8, 2026

Overview In Rajiv Shukla v St James Bank & Trust Company Ltd & Anor [2026] EWHC 851 (Comm), the Commercial Court held that contractual provisions purporting to prevent a borrower from repaying a non-recourse secured loan and from recovering its pledged security were void under English law. The Court also held that the lenders’ failure to cooperate with repayment (including by refusing to provide a redemption figure and payment instructions) constituted a breach of an implied contractual duty, and gave rise to a claim in damages. The doctrine of the equity of redemption provides that a borrower has an inherent right to repay a secured loan and to recover its pledged security. That right cannot be excluded by contract; any provision which purports to do so is characterised as a "clog" or "fetter" and is void and unenforceable. The decision is of considerable significance for the securities-backed lending market where non-recourse lending arrangements are widely used and for lenders operating in participated or syndicated structures. Background In October 2023, Mr. Rajiv Shukla (the “Claimant”) entered into a non-recourse lending arrangement with St James Bank & Trust Company Ltd (“SJB”) (the “Agreement”). The loan was secured against certain listed shares. Although the Agreement created a personal debt obligation on the Claimant, SJB’s recourse was limited to the pledged shares. SJB also transferred a 100% participation in the loan to Omega & Corinth Group Ltd (“Omega”). Under the Agreement, an Event of Default occurred where the five-day average trading volume of the shares fell more than 20% below the contractual threshold. This occurred between 16 November 2023 and 30 January 2024, although neither party was aware at the time. In June and July 2024, the Claimant sought to repay the loan and to redeem the pledged shares (or alternatively to substitute the pledged shares for another collateral). SJB, which by this point had become aware of the Events of Default, asserted that they had caused the Agreement to terminate automatically. It maintained that it was therefore entitled to deal with the pledged shares as absolute owner and refused to provide a redemption figure or facilitate repayment. The Claimant sought declarations requiring SJB and Omega (the “Defendants”) to redeliver the pledged shares on repayment of the sums due under the Agreement and sought damages for loss suffered as a result of the Defendants’ failure to redeliver the shares in accordance with the Agreement. In relation to whether the pledged shares should be returned, the Defendants argued that: The non-recourse structure of the loan meant that the transaction was, in substance, a sale with a repurchase option, not a secured loan, with the result that the equity of redemption did not arise. Alternatively, even if the Agreement was properly characterised as a loan, the equity of redemption had been excluded by an express contractual waiver, which the Court should respect as a bargain between sophisticated commercial parties. As to the claim for damages, the Defendants argued that: There was no separate claim available for a breach of contract where the lender refuses to cooperate in redeeming the security, the Claimant’s only remedy being a redemption action. Alternatively, there was no implied duty on the Defendants to cooperate with the Claimant to enable him to repay the loan and redeem the shares, any implied terms having been excluded by way of an entire agreement clause. Even if there was an implied duty to cooperate, the Defendants were not in breach because the Claimant did not make a valid tender for repayment of the sum required to redeem the pledged shares. Judgment Was the Agreement a loan or a sale? The Court held that the Agreement was properly characterised as a secured loan. Applying ordinary principles of contractual interpretation and confining itself to the written terms of the Agreement, the Court focused on the Agreement’s express wording, including references to a “loan”, interest payments, custody arrangements, an express obligation to repay on the maturity date or upon an Event of Default, and an express obligation to return the shares upon repayment. The Court rejected the Defendants' argument that the non-recourse structure transformed the transaction into a sale with a repurchase option, confirming that non-recourse lending remains a recognised form of secured loan under English law. The fact that enforcement is limited to collateral does not negate the existence of a debt obligation. Could the Defendants exclude the equity of redemption? Once characterised as a secured loan, the equity of redemption arose as a matter of law. Although the borrower’s right to redeem may be regulated (for example, by a maturity date), provisions which purport to exclude the equity of redemption are void as “clogs”. This includes: (1) provisions that expose the secured assets to dealings that could generate third-party rights capable of defeating redemption in practice; (2) provisions that restrict the borrower to damages only in relation to the pledged shares, thereby obstructing the ability to recover the secured property; and (3) provisions that purport, whether directly or indirectly, to waive the right of redemption altogether. The Court acknowledged academic and judicial criticisms of the doctrine forbidding “clogs” on the equity of redemption, particularly in the context of bargains entered by parties of equal bargaining power. However, the Court confirmed that the doctrine remains binding law and must be applied, notwithstanding such criticisms about its suitability in sophisticated commercial financing. The Defendants reserved the right to argue that English law should be different on appeal. Did the Defendants have to cooperate with repayment? The Court held that the Defendants had an implied duty to cooperate with repayment, including by providing a redemption statement, account details, and releasing the security upon full repayment. In doing so, the Court held that although a redemption action is the usual remedy where a lender refuses repayment, it was not the only remedy. In a commercial loan secured over assets (such as publicly listed shares in this context, where refusal to accept repayment may cause significant loss) it would be inappropriate to limit the borrower to a redemption action, and a claim for damages for breach of contract may also arise. The Court rejected the Defendants’ argument that the entire agreement clause excluded the implied duty to cooperate with repayment. In the absence of express wording excluding implied terms, an entire agreement clause will not ordinarily prevent the implication of terms necessary for the performance of the contract. Further, a technically compliant tender was not a prerequisite to the Defendants being in breach of that implied duty. Once repayment was due, the duty to cooperate arose immediately. The Court held that it would be incongruous to allow a lender to withhold the information a borrower needs to make a proper tender and then rely on the absence of one as a defence. Outcome The Court granted summary judgment and ordered an interim payment provisionally assessed at US$5 million. It further directed the Defendants to disclose any profits derived from their possession of the shares from 1 October 2023. A significant feature of the judgment is that the Court held both SJB and Omega liable. The participation agreement did not operate as a novation and did not release SJB from its obligations to the Claimant. Key Points to Note The judgment will be of interest to lenders, borrowers, and other parties involved in securities-backed lending. It highlights several practical points: Failure to facilitate repayment can itself be a breach: Courts are prepared to imply duties requiring lenders to cooperate in redemption, including providing redemption figures, payment details, and releasing security. Entire agreement clauses will not usually exclude the implication of such duties where they are necessary for performance. Refusing to provide information necessary for repayment may amount to an independent breach of contract, even without a formal tender. The equity of redemption cannot be excluded: Once a transaction is characterised as a secured loan, the equity of redemption arises. Provisions inconsistent with it will be void regardless of the clarity of the drafting or the sophistication of the parties. Non-recourse lending remains secured lending: The fact that a lender’s enforcement rights are limited to the collateral does not transform a loan into a sale. Lenders relying on non-recourse structures to argue that no equity of redemption arises are unlikely to succeed. Substance prevails over form: Courts will characterise transactions based on their substance, rather than by their label or form. Arrangements framed as sales with repurchase rights may nonetheless be characterised as secured lending where, on proper construction, they operate as such. Account of profits may be available: Where a lender wrongfully retains or benefits from pledged assets, the Court may order an account of profits, in addition to compensatory damages. Participating lenders remain potentially liable: Selling a participation in a loan does not automatically release the original lender from its obligations to the borrower. Parties structuring loan participations should consider whether a formal novation (where the documentation permits it) is needed to achieve a clean transfer of liability.

Articles

Intercreditor Agreements – Getting Your Priorities Right

November 12, 2025

The contractual framework which regulates the rights of different classes of lenders and the ranking of different types of debt in respect of payments and security is principally set out in the intercreditor agreement.  While a company is solvent and able to meet its payment obligations to its lenders, the terms of the intercreditor agreement are unlikely to be tested. But once a company begins to experience financial difficulties and lenders are forced to assess their rights, many lenders realise too late that they paid insufficient attention to the terms of the intercreditor agreement at the time at which they lent. The effect of this can be fatal to efforts to protect value. We are increasingly seeing lender clients across the capital structure focusing (often forensically) on the finer detail of the intercreditor agreement both at the lending stage and when things take a turn for the worse to safeguard their interests. Responding to this trend, in this article, we look at 5 important intercreditor issues that lenders should be aware of. 1. Permitted Payments  The types of payments permitted to be made to junior lenders in the ordinary course of business can be contentious from the outset. It is generally accepted that payments of principal and PIK interest are not permitted, but that fees, cash interest, and increased cost payments should be. The triggers allowing senior lenders to send a notice of default to other creditors to suspend these payments are typically not contested and include insolvency of the company, breach of a financial covenant, and non-payment to the senior lenders. However, once a notice of default has been issued by the senior lenders, opinion is divided as to which payments should be suspended. The UK Loan Market Association (LMA) form of intercreditor agreement provides that most payments to junior lenders should be halted. From a junior lender perspective, it is vital that payments to cover reasonable legal fees are permitted. This is so that these lenders can obtain independent legal advice and protect their position in a default scenario. Conversely, senior lenders tend to be naturally concerned about value leakage to other lenders who, in effect, will be spending the cash to prepare and mount a legal defence to senior lenders’ actions. A capped payment amount is typically agreed, but the size of that cap will vary according to the transaction and the makeup of the lender group. 2. Enforcement of Security The definition of Enforcement Action is an important defined term in the intercreditor agreement from a lender perspective. Typically, the definition of Enforcement Action will include: the acceleration of debt; the recovery (by legal proceedings or otherwise) of debt; the making of a demand against any member of the debtor’s group in relation to the debt; and the exercise of any right to enforce any security under security documents.   The general principle is that the most senior class of lender controls the enforcement of security, but there is debate in the market about whether senior lenders have too much power when it comes to controlling the enforcement process, should the credit become distressed. To safeguard their position, thought needs to be given at the outset as to which procedural rights junior lenders will require. Lack of information for junior lenders and a lack of prescribed valuation requirements are commonly cited by junior lenders as problems which need addressing when the intercreditor agreement is being negotiated. The Intercreditor Agreement should therefore be checked to see whether it contains any obligations for the senior lenders to consider the interests of the junior lenders when taking any Enforcement Action. Introducing provisions at the outset which give junior lenders access to valuation reports commissioned by the senior lenders or the ability for them to jointly instruct the report provider can help solve for these issues. 3. Cure Rights The LMA form of intercreditor agreement gives junior lenders (as well as sponsors) a cure right by injecting new money as equity to cure a breach, such as breach of a financial covenant in the senior debt. It is in the interests of the lenders to be given an equity cure right, so that in cases where the sponsor does not wish to inject further capital into the company, they can step in to remedy a default. Although, in principle, most senior lenders are not usually opposed to this, the longer the junior lender can prevent the senior lender from exercising its enforcement rights due to the junior lender exercising its cure rights, the better it will be for the junior lender. This may not be commercially acceptable to the senior lenders so the length of the cure period or the aggregate number of cure events will often be hotly debated. Depending on the length of the loan, it is common to see monetary cure rights limited to as few as 3-4 over the lifetime of the loan, with no more than 2 per year and no consecutive quarterly cures. 4. Release Provisions Release provisions are contractual agreements that allow the security agent under the loan arrangements to release security and, in certain cases, to release borrowing and guarantee claims of lenders against the debtor.  Particular attention should be given to the release provisions in the intercreditor agreement in case of an asset disposal both pre and post enforcement. Mechanically, the release provisions relating to security that encumbers the asset being disposed of, must work correctly to allow for a “clean sale” free of junior lender claims. It is important to pay attention to the precise drafting of the clause, as the trigger event for the release right can be quite narrowly prescribed. On the other hand, loopholes or ambiguities in the drafting of these release provisions could provide leverage to junior lenders in relation to negotiations around asset sales. Moreover, in certain transactions, the conditions for release aim to ensure that a more senior creditor class cannot release junior claims without some evidence that the value for which the assets are being disposed of is fair. These conditions often require a fairness opinion or transaction-based valuation provided by an appropriate expert, which can provide junior lenders with greater information and, depending on the situation, bargaining power in their negotiations. This is particularly relevant in the context of the senior lenders trying to effectuate a pre-packaged sale of the secured assets free from the claims of lower ranking creditors. 5. Pre-packaged Sales Few intercreditor agreements will place restrictions on the senior lenders selling the secured assets to a special purpose vehicle owned by the senior lenders. Historically it was also unusual to specify criteria with which the senior lenders had to comply during an asset enforcement process. But more recently, junior lenders have been advocating for restrictions to be placed on senior lenders trying to implement a pre-packaged sale of the secured assets. In order to avoid circumstances where the sale price is such that the junior debt is entirely written off, requirements are increasingly being built into the terms of intercreditor agreements, so that disposal proceeds must be received in cash (given it is not uncommon to see intercreditor agreements which enable a security agent to accept non-cash consideration) and a fair market value is established (through a requirement for an independent valuation, fairness opinion, and a thorough marketing process). 

Additional Information

Select Writings

  • Author, Private financial markets: tacking into strong headwinds (October 2022)
  • Author, Re-packing UK pre-packs: 5 key effects on creditors and other stakeholders, Collateral (June 2021)
  • Co-author, Directors of cash-squeezed and distressed companies – 5 liability points to note, Collateral (May 2020)
  • Author, The Intercreditor Agreement – protecting mezzanine value in sticky situations, Collateral (November 2019)
  • Co-author, Creditors – Getting a Seat at the Negotiating Table, MJ Hudson – Research and Practical Guide (June 2019)
  • Co-author, Acquiring Distressed Assets - Top Tips for Buyers, MJ Hudson - On Target (January 2018)

Firm Highlights

Insights

Energy Law: Month in Review - September 2026

Welcome to Dorsey’s Energy Law: Month in Review. We provide this update to our clients to identify significant developments in the previous month. Please reach out to any of the authors, listed above, to discuss these issues. Regulatory Developments Massachusetts Ratchets Up State and Local Regulation of AI Data Centers In early September, Governor Maura Healey of Massachusetts signed an executive order requiring that artificial intelligence data centers secure the approval of local communities as a precondition to proceeding with a given project. According to the terms of the order, data center developers will need to secure a “community benefits agreement” as a precondition to receiving permits from numerous state agencies, including the Department of Environmental Protection, the Energy Facilities Siting Board, and the Massachusetts Environmental Policy Act Office. Beyond requiring community benefits agreements, the order also mandates that developers mitigate utility costs to consumers, prohibits the use of nondisclosure agreements, and requires various state agencies to develop measures to limit data center impacts on the environment. North Carolina Regulators Decline Approval of Duke Energy Gas Turbine On September 18, 2026, North Carolina Utilities Commission (NCUC) denied Duke Energy’s application for a certificate of public convenience and necessity required to construct a gas-fueled combustion turbine at its Smith Energy Complex in North Carolina. The NCUC objected strongly to the $584 million price tag and noted that Duke appeared to be constructing the facility “based on anticipated data center customer additions.” The NCUC rejected that anticipated growth as “insufficiently reliable for the Commission to act at this point.” In rejecting Duke’s application, the NCUC also noted that Duke had signed the White House Ratepayer Protection Pledge, in which it represented that it would not shift data center costs to consumers. The NCUC observed that the record did not demonstrate how Duke “intends to adhere to its commitments under the Ratepayer Protection Pledge with regard to the Proposed Facility.” Notably, commission staff had actually supported the construction of the turbine, citing concerns about Duke’s reserve margins. The NCUC noted that it “understands the Public Staff’s expressed concerns,” but those concerns were outweighed by the NCUC’s reservations, including questions of demand. Department of Energy Approves Funds for Grid Improvement The U.S. Department of Energy (DOE) recently announced that it would fund 31 grid-improvement projects in 26 states. The funding initiative is part of the DOE’s “SPARK” initiative. The funding will include $1.9 billion in federal funding from DOE and $3.35 billion in recipient cost-sharing funding. The funds will go to projects designed to improve grid reliability and lower electricity costs. Recipients plan to reconductor over 1,500 miles of transmission lines and will deploy grid-enhancing technologies across approximately 21,000 miles. DOE stated that this initiative will make available over 23 additional gigawatts of electricity. Texas Moderates Rules Governing Data Center Interconnection The Texas Public Utility Commission adopted new regulations governing large-load interconnections. The rules impose a flat study fee of $100,000 for all proposed interconnections, which departs from the initial proposal to impose study fees using a tiered system based on project size. Additionally, the final rule eliminates the PUC’s previous proposal to impose a non-refundable interconnection fee of $50,000 per MW of contracted peak demand. The final rule also moderates the initially proposed regulations governing Electric Reliability Council of Texas (ERCOT) notifications for large-load customers’ non-utilized capacity. The proposed rules would have required notifying ERCOT within 30 days of missing a scheduled energization milestone by six months. The final rules, however, do not require informing ERCOT unless a scheduled energization milestone is missed by 24 months. FERC Denies TransAlta 202(c) Cost-Recovery Plan The Federal Energy Regulatory Commission (FERC) recently rejected TransAlta’s plan to recover $19.9 million in expenses stemming from a DOE order in which DOE prohibited TransAlta from retiring its coal-powered Centralia power plant. TransAlta had previously intended to retire the facility at the end of 2025. TransAlta’s cost recovery plan proposed spending an additional $23 million on repairs to continue operating the unit. FERC’s main objection had to do with geographic scope. TransAlta’s recovery plan called for recovering costs from California Independent System Operator (CAISO) and the Southwest Power Pool (SPP), but the DOE’s order requiring operation of the plant was designed to ensure reliability in the Northwest assessment area (Montana, Oregon, Washington, and parts of northern California and northern Idaho). Accordingly, FERC was unwilling to allow cost recovery from CAISO and SPP when the order that precipitated the additional costs only related to the Northwest assessment area. FERC informed TransAlta that it would only approve cost recovery from load-serving entities in the Northwest assessment area. FERC’s decision comes amid a rush of DOE emergency orders requiring the continued operation of coal-fired generating units. Litigation Appeals Court Upholds Washington Hydropower Plant With Caveats In a September 21, 2026, opinion, the Washington Court of Appeals largely upheld a Clean Water Act water quality certification by the Washington Department of Ecology for the Goldendale Energy Storage Project, a proposed pumped-water storage hydropower system adjacent to, but off-stream from, the Columbia River. A nonprofit (Columbia Riverkeeper) and the Confederated Tribes and Bands of the Yakama Nation appealed the certification, contending that it failed to impose necessary conditions and monitoring requirements to protect the water quality of the Columbia River. Most saliently, the plaintiffs argued that the project had the potential to leak 100 acre-feet of water per year into tributaries of the Columbia River. The Court of Appeals broadly rejected plaintiffs’ challenge to the state’s conclusion that “the project was designed not to leak.” That said, the Court of Appeals did reverse on one narrow issue. Specifically, the court determined that the state’s conclusion that “leakage from the project’s tunnels would be monitored and reported” was not supported by the evidence because the certification “does not explicitly require monitoring and reporting to determine whether there is any leakage.” Accordingly, the court remanded the matter to the state to impose monitoring and reporting requirements but otherwise affirmed the certification. Legislative Developments California Legislates Restrictions on Data Center Energy Use and Grid Costs On September 21, 2026, California Governor Gavin Newsom signed seven bills broadly regulating data centers in the state. SB 1168 directed the California Public Utilities Commission to assess the energy used by data centers. It also requires the PUC to pass costs of transmission and distribution upgrades and load increases on to data centers, rather than customers. SB 886 and SB 887 compel data centers to pay for infrastructure upgrade and generation costs, and wildfire mitigation costs, in addition to imposing environmental review. The statutes additionally increase local oversight of data centers. AB 1577 imposes a monthly reporting requirement that requires data centers to supply energy consumption and efficiency data to the California Energy Commission. AB 2383 contains incentives for data centers to use onsite clean energy generation. Finally, AB 2469 and AB 2619 require data center developments to assess water supply and develop a water scarcity plan. The statutes also mandate statewide water reporting as a precondition to obtaining and renewing business licenses.

News

Dorsey & Whitney Partner Michael W. Droke Releases Fourth Edition of Cooperative Business Law: A Practical Guide with Enhanced Insights for Today's Cooperatives

Industry-leading reference updated with practical tips and current cooperative law developments Dorsey & Whitney LLP is pleased to announce the publication of the fourth edition of Cooperative Business Law: A Practical Guide to the Special Laws Governing Cooperatives, authored by Dorsey Partner Michael W. Droke. Drawing on more than 20 years of direct experience as outside general counsel to major agricultural and food industry cooperatives, Droke has updated this essential resource with new practical tips, real-world guidance, and insights into emerging cooperative law issues that matter to cooperative leaders and their advisors. Since its initial publication, this comprehensive guide has become the standard reference for attorneys, executives, and cooperative governance professionals navigating the unique legal landscape of cooperative organizations. The new fourth edition builds on that foundation by incorporating practical lessons learned from recent cooperative transactions, governance challenges, and regulatory developments. "I am grateful for Dorsey's continued support of this work and for the opportunity to contribute to the cooperative community," said Droke. "Over the past 20 years, I've had the privilege of serving as outside general counsel to some of the nation's most successful cooperatives. The practical insights gained from that work inform every page of this edition. I wanted to create a resource that helps cooperative leaders and their legal advisors tackle real business challenges with confidence." The Fourth Edition features: Practical tips and real-world case examples drawn from decades of cooperative practice Guidance on cooperative formation, governance, member rights, and voting structures Current analysis of antitrust and Capper-Volstead Act issues affecting modern cooperatives Insights into financing, mergers and acquisitions, and corporate restructuring for cooperatives Member relations strategies and dispute resolution approaches specific to cooperative structures About Michael W. Droke Michael W. Droke is a Partner at Dorsey & Whitney LLP and Firmwide Co-Chair of the Food, Beverage & Agriculture practice group. He serves as outside primary counsel for numerous cooperatives, providing comprehensive legal guidance on all aspects of cooperative operations, governance, member relations, corporate restructuring, financing, and mergers and acquisitions. His representative clients include National Co+op Grocers, Darigold, the Northwest Dairy Association, Organic Family Farms Cooperative, Chelan Fruit Cooperative, and Sacramento Natural Foods Co-op. A former business executive who brings a dual perspective to his practice, Droke combines legal expertise with practical business acumen. He has served as an outside board member and general counsel for major cooperatives and maintains deep involvement in the cooperative community through regular presentations and participation in industry organizations including NCBA CLUSA, the National Society of Accountants for Cooperatives, and the National Council of Farmer Cooperatives. About Dorsey & Whitney's Cooperative Law Practice Dorsey & Whitney's Cooperative Law practice group is a recognized national leader in cooperative law with more than 45 years of experience serving agricultural cooperatives, rural electric cooperatives, purchasing cooperatives, consumer cooperatives, worker cooperatives, and cooperative start-ups across the nation. The practice includes 20 dedicated lawyers who advise cooperatives and other agriculture-related organizations on formation and organization, voting rights and governance, antitrust and Capper-Volstead Act compliance, tax issues, project development and finance, mergers and acquisitions, real estate, labor and employment, environmental compliance, and all other aspects of cooperative business operations. Cooperative Business Law: A Practical Guide to the Special Laws Governing Cooperatives, Fourth Edition, is available from major book retailers and online booksellers.

Insights

EPA Limits Title V Re-Litigation of NSR Permits

Overview On September 25, 2026, the U.S. Environmental Protection Agency (“EPA”) published a final rule that significantly limits the ability of third parties to use the Clean Air Act (“CAA”) Title V permitting process to revisit New Source Review (“NSR”) permitting decisions years after those decisions were made. The rule establishes that NSR permitting determinations generally must be challenged during the original permitting proceeding, thereby providing regulated sources with greater permitting certainty and finality for major capital projects. Published in the Federal Register titled Clarifying the Scope of “Applicable Requirements” Under State Operating Permit Programs and the Federal Operating Permit Program (Docket ID No. EPA-HQ-OAR-2023-0401), the rule amends 40 C.F.R. Parts 70 and 71 to codify EPA’s interpretation regarding when requirements established under other CAA programs may be reviewed, modified, or implemented through the Title V operating permit program. The rule becomes effective 30 days after publication. The rule addresses two principal issues: (1) the relationship between NSR preconstruction permitting and Title V operating permits, and (2) the treatment of the General Duty Clause under CAA section 112(r)(1). Most significantly, the rule provides greater certainty for sources navigating the NSR permitting process. EPA’s amendments are intended to ensure that NSR permitting decisions made through an approved public process are generally not revisited later through Title V permit proceedings. The rule responds to a circuit split between the U.S. Courts of Appeals for the Fifth and Tenth Circuits. In Environmental Integrity Project v. EPA, 969 F.3d 529 (5th Cir. 2020), the Fifth Circuit upheld EPA’s interpretation, concluding that it was consistent with the text, structure, and purpose of Title V. In contrast, the Tenth Circuit reached the opposite conclusion in Sierra Club v. EPA, 964 F.3d 882 (10th Cir. 2020), finding that the then-existing regulatory definition of “applicable requirement” did not support EPA’s position. By amending the regulatory language on which the Tenth Circuit relied and codifying the interpretation approved by the Fifth Circuit, EPA has established a nationwide framework governing the interaction between NSR and Title V. NSR and Title V: EPA Establishes a Uniform Nationwide Framework At the core of the rule is EPA’s effort to define the respective roles of NSR and Title V. The rule codifies the approach EPA has applied since 2017: once a source obtains an NSR permit under an EPA-approved permitting program, and that permit was issued following public notice with an opportunity for comment and judicial review, the permit establishes the NSR-related “applicable requirements” of the State Implementation Plan (“SIP”) or Federal Implementation Plan (“FIP”) for Title V purposes. Under this framework, Title V is not a vehicle for re-examining underlying NSR permitting decisions. EPA does not intend to use the Title V process to revisit applicability determinations, emissions calculations, control technology determinations, permit conditions, or other issues resolved through the NSR permitting process. This principle applies regardless of the stage of the Title V proceeding; whether the NSR permit was issued pursuant to a SIP or FIP; the type of NSR issue involved; or whether the NSR permit is incorporated into Title V sequentially or concurrently. Limited Exceptions EPA recognizes several circumstances in which NSR issues may still be reviewed through the Title V program: No NSR permit was issued at all; The permit was issued without public notice and an opportunity for comment and judicial review; or The issue involves substantive overlap between Title V and NSR requirements, such as the adequacy of monitoring provisions. As a result, the rule does not insulate unpermitted projects or foreclose review of matters that independently arise under Title V. Key Regulatory Amendments The rule revises the definition of “applicable requirement” in 40 C.F.R. §§ 70.2 and 71.2. Paragraph (1): Where an NSR permit is issued with public notice and an opportunity for comment and judicial review, the permit establishes and defines the applicable SIP or FIP requirements for Title V purposes. Paragraph (2): All NSR permit terms, including terms contained in minor NSR permits, constitute applicable requirements that must be incorporated into Title V permits. Paragraph (4): CAA section 112(r)(1) (the General Duty Clause) is expressly excluded from the definition of “applicable requirement,” while section 112(r)(7) Risk Management Program requirements remain included. EPA also amended 40 C.F.R. §§ 70.8 and 70.12 to clarify that alleged defects in requirements established outside the Title V process generally do not provide a basis for EPA objection to a Title V permit or for a Title V citizen petition. General Duty Clause Exclusion The rule also codifies EPA’s longstanding position that the General Duty Clause in CAA section 112(r)(1) is not an “applicable requirement” for Title V purposes. EPA points to several considerations supporting that conclusion, including the distinction between the General Duty Clause and Title V permit terms, the provision’s origins in the Occupational Safety and Health Act’s general duty clause, and the different enforcement structures applicable to the General Duty Clause and Title V permit requirements. Importantly, excluding section 112(r)(1) from the definition of “applicable requirement” does not eliminate EPA’s authority to enforce the General Duty Clause independently of the Title V program. The final rule instead clarifies that the General Duty Clause need not—and should not—be incorporated into Title V permits as an applicable requirement. Practical Implications for Regulated Sources Greater Finality for NSR Permits  For projects requiring PSD, nonattainment NSR, or minor NSR permits, the permitting process becomes the primary forum for resolving disputes regarding applicability determinations, emissions calculations, control technology requirements, offsets, and permit conditions. Once an NSR permit is issued through a qualifying public process, regulated sources should face substantially reduced risk that those same issues will be challenged years later through Title V permit proceedings. Reduced Risk of Collateral Permit Challenges Stakeholders have sometimes sought to use Title V permit issuance, renewal, revision, or citizen-petition proceedings to challenge underlying NSR determinations. The final rule makes clear that Title V is not the appropriate vehicle for challenging whether an applicable requirement was correctly established in the first instance. This should reduce the risk of permit delays and uncertainty associated with collateral challenges to previously issued NSR permits. The rule does not, however, eliminate all Title V challenges relating to an NSR permit. Challenges concerning the Title V permit itself—including whether it appropriately incorporates applicable requirements or contains adequate compliance provisions—remain possible. Increased Importance of the Initial NSR Proceeding Because Title V generally will not provide a second opportunity to challenge the substantive validity of an NSR determination, the administrative record developed during the NSR process becomes increasingly important. Permit applicants should ensure that applicability analyses, emissions calculations, control technology evaluations, modeling demonstrations, and supporting technical documentation are thoroughly developed during the original permitting proceeding. For significant projects, applicants may therefore have an additional incentive to identify and resolve potential permitting issues before the NSR permit is issued rather than assuming that unresolved issues can be addressed during a subsequent Title V proceeding. Potential Incentive for Broader Public Participation EPA also notes that permitting authorities may choose to provide public notice and an opportunity for comment for a broader range of NSR permits because permits issued through a qualifying public process receive the benefit of the finality framework established by the rule. Some permitting authorities may conclude that greater public participation at the NSR stage is preferable to uncertainty during subsequent Title V proceedings. Conclusion The final rule is principally a permitting-certainty measure. For sources that obtain NSR permits through a public process, EPA has substantially limited the ability of third parties to revisit underlying NSR determinations through the Title V program. As a result, regulated entities should benefit from greater finality regarding key permitting decisions, reduced risk of collateral permit challenges, and increased certainty when planning and implementing capital projects.

Insights

The Supreme Court Update - October 8, 2026

On September 29, 2026, the Supreme Court granted certiorari in one case: Department of Homeland Security v. D.V.D., No. 26-426: This case concerns the Trump Administration’s “third-country removal” procedures, where immigrants are deported to countries not listed in the removal orders. In granting certiorari, the Court granted the Government’s application to stay a lower court decision halting the practice, which will allow third-country removals to continue pending resolution of the case. The issues presented are: (1) Whether the district court had jurisdiction over respondents’ claims; (2) whether the district court had authority to enter class-wide declaratory relief and APA vacatur under 8 U.S.C. § 1252(f)(1); (3) whether the Government’s guidance on third-country removals is unlawful under 8 U.S.C. § 1231(b), the due process clause, or FARRA/CAT and its implementing regulations; and (4) such other questions that the Government determines are appropriate for the proper disposition of the case. On October 1, 2026, the Court granted certiorari in three additional cases: Rhoney v. Barbosa da Cunha, No. 26-104: Immigration officials detained Ricardo Aparecido Barbosa da Cunha—a Brazilian citizen who had lived in the United States for approximately twenty years after entering without inspection—and denied him a bond hearing under 8 U.S.C. § 1225(b)(2)(A). The Second Circuit held that his detention was instead governed by § 1226(a), which permits release on bond, because § 1225(b)(2)(A)’s mandatory-detention requirement applies only to noncitizens apprehended while entering the country or shortly thereafter. The question presented is: Whether 8 U.S.C. § 1225(b)(2)(A) mandates the detention pending removal proceedings of aliens who, like Barbosa da Cunha, are present in the United States without having been admitted. Missionaries of St. John the Baptist, Inc. v. Frederic, No. 25-113: A Catholic religious organization sought to build a shrine to the Virgin Mary on land the organization owned adjacent to its church in Park Hills, Kentucky. Local zoning restrictions prohibited the proposed construction. The question presented is: Whether a land-use regulation that prohibits a religious institution from building a religious structure on its own property constitutes a “substantial burden” on religious exercise under the Substantial Burden Provision of the Religious Land Use and Institutionalized Persons Act, 42 U.S.C. § 2000cc(a). Marschner v. Marschner, No. 25-1349: Under the Uniformed Services Former Spouses’ Protection Act (“USFSPA”), a veteran’s longevity-based retirement pay can be divided in a divorce, but retirement pay based on disability and retirement pay that was waived to receive disability pay are indivisible. The question presented is: Does the USFSPA require state courts to refuse enforcement of indemnification provisions in a divorce settlement agreement?

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SEC Proposes Expansion of Investment Adviser Performance-Based Compensation Rule

On September 30, 2026, the Securities and Exchange Commission (the “SEC”) proposed amendments to Rule 205-3 under the Investment Advisers Act of 1940, as amended (the “Advisers Act”), which provides an exemption from the general prohibition under Section 205(a)(1) of the Advisers Act on registered investment advisers receiving performance-based compensation (the “Proposal”) so long as performance-based compensation is limited to “qualified clients”.1 Most notably for private fund sponsors, the Proposal would expand the definition of “qualified client” to include any investors that satisfy the “accredited investor” definition under Regulation D. The Proposal may also have implications for private fund managers that rely on exemptions from investment adviser registration under state law because certain state-level investment adviser registration exemptions incorporate or otherwise reference the federal qualified client definition. Expansion of the Qualified Client Definition Under the current Rule 205-3, an investor generally may qualify as a qualified client if, among other alternatives, the investor has at least $1.4 million under management with the adviser or has a net worth exceeding $2.7 million. These thresholds are higher than the financial thresholds applicable to many accredited investors under Regulation D. As a result, an investor may currently qualify as an accredited investor for purposes of investing in a private offering without qualifying as a qualified client for purposes of paying performance-based compensation. The Proposal would expand the qualified client definition to include any natural person or legal entity investor that satisfies the accredited investor definition under Regulation D. The Proposal would also remove the assets under management and net worth thresholds under the current Rule 205-3 qualified client test. For private funds relying on Section 3(c)(1) of the Investment Company Act of 1940, this change could reduce the need to apply a separate qualified client standard to investors that already qualify as accredited investors. Dorsey Observations and Next Steps If adopted as proposed, the expanded qualified client definition could be particularly significant for private fund managers. Most private fund offerings are already limited to accredited investors under Regulation D. However, the Proposal could expand the pool of prospective investors available to emerging private fund managers while reducing the regulatory burden associated with complying with Rule 205-3. The Proposal could also benefit advisers operating below the SEC registration threshold that rely on a state private fund adviser exemption. A number of states have adopted exemptions modeled on the North American Securities Administrators Association (“NASAA”) private fund adviser exemption, which may condition relief for advisers to certain funds relying on Section 3(c)(1) on each beneficial owner satisfying the federal qualified client definition. However, state requirements vary, and any effect of the Proposal would depend on the text of the applicable state exemption and how it incorporates Rule 205-3. Many emerging private fund managers may have a larger network of accredited investor relationships than qualified client relationships during the early stages of their investment advisory business. Currently, under Rule 205-3, private fund managers may receive performance-based compensation from investors who do not satisfy the qualified client definition if those investors were admitted to their private funds prior to registration with the SEC. Following registration with the SEC, however, managers may continue to permit investors that are not qualified clients to invest in future private funds but may not receive performance-based compensation from those investors with respect to such investments. In addition, because the net worth and assets under management thresholds for qualified client status are adjusted for inflation every five years, the pool of qualified client investors may diminish over time as previously eligible investors no longer satisfy the applicable thresholds. The Proposal could provide the dual benefit of greater flexibility for private fund managers to establish and maintain relationships with accredited investors as their businesses scale and they become registered with the SEC, and greater flexibility for certain accredited investors to participate in investment strategies that historically have been restricted to much larger institutional investors. Unless and until the Proposal is adopted, investment advisers should continue to comply with the existing qualified client requirements. If the Proposal is adopted, private fund sponsors should consider whether corresponding changes are appropriate for their subscription documents, investor questionnaires, and other offering materials. Advisers that are state-registered or rely on a state-level exemption should also consult the laws and regulations of each relevant jurisdiction before changing investor eligibility standards or performance-based compensation practices, because adoption of the federal amendments may not automatically modify state requirements. Comments on the Proposal will be due 60 days after publication in the Federal Register. 1 Investment Adviser Performance-Based Compensation Modernization, Investment Advisers Act Release No. IA-7022 (Sept. 30, 2026), available at https://www.sec.gov/rules-regulations/2026/09/s7-2026-28#33-11443proposed.