LUMA Energy LLC v. Puerto Rico Dep't of Consumer Affairs

Court of Appeals for the First Circuit·Decided August 13, 2026·No. 25-2077·Published

Opinion

United States Court of Appeals For the First Circuit

No. 25-2077

IN RE: THE FINANCIAL OVERSIGHT AND MANAGEMENT BOARD FOR PUERTO RICO, as Representative for the Commonwealth of Puerto Rico; THE FINANCIAL OVERSIGHT AND MANAGEMENT BOARD FOR PUERTO RICO, as Representative for the Employees Retirement System of the Government of the Commonwealth of Puerto Rico; THE FINANCIAL OVERSIGHT AND MANAGEMENT BOARD FOR PUERTO RICO, as Representative for the Puerto Rico Highways and Transportation Authority; THE FINANCIAL OVERSIGHT AND MANAGEMENT BOARD FOR PUERTO RICO, as Representative for the Puerto Rico Electric Power Authority (PREPA); THE FINANCIAL OVERSIGHT AND MANAGEMENT BOARD FOR PUERTO RICO, as Representative of the Puerto Rico Public Buildings Authority,

Debtors,

LUMA ENERGY, LLC; LUMA ENERGY SERVCO, LLC, Movants, Appellants,

v.

PUERTO RICO DEPARTMENT OF CONSUMER AFFAIRS (DACO); INSTITUTO DE COMPETITIVIDAD Y SOSTENIBILIDAD ECONÓMICA (ICSE),

Respondents, Appellees.

APPEAL FROM THE UNITED STATES DISTRICT COURT FOR THE DISTRICT OF PUERTO RICO

[Hon. Laura Taylor Swain,* U.S. District Judge]

* Of the Southern District of New York, sitting by designation.

Before

Dunlap, Lynch, and Kayatta, Circuit Judges.

David Horniak, with whom Brett Ingerman, Dale K. Cathell, DLA Piper LLP, Mariana Muñiz Lara, and DLA Piper (Puerto Rico) LLC were on brief, for appellants.

Peter Friedman, with whom Omar Andino Figueroa, Frank A.

Rosado Méndez, Office of the Solicitor General of Puerto Rico, Matthew M. Higgins, Maria J. DiConza, Gabriel Olivera, Jason Zarrow, and O'Melveny & Myers LLP were on brief, for appellee Puerto Rico Department of Consumer Affairs (DACO).

Fernando E. Agrait Betancourt, with whom José Leonardo Pou Román and Fernando E. Agrait Law Office were on brief, for appellee Instituto de Competitividad y Sostenibilidad Económica (ICSE).

Martin J. Bienenstock, John E. Roberts, Paul V. Possinger, Margaret A. Dale, and Proskauer Rose LLP on brief for Financial Oversight and Management Board for Puerto Rico as nonparty.

August 13, 2026

KAYATTA, Circuit Judge. LUMA Energy, LLC, and LUMA Energy ServCo, LLC, (collectively, "LUMA") agreed to take over operation and maintenance of Puerto Rico's electric power transmission and distribution system from Title III debtor the Puerto Rico Electric Power Authority (PREPA). When Puerto Rico's consumer protection agency sued LUMA and PREPA in a Puerto Rico court challenging an important term of that agreement, LUMA -- but not PREPA -- sought an order from the Title III court staying that action. After the Title III court denied LUMA's request, LUMA appealed. For the following reasons, we find that LUMA has no statutory standing to pursue this appeal.

I.

A.

We have elsewhere chronicled the fiscal emergency in the Commonwealth of Puerto Rico (the "Commonwealth") and Congress's 2016 enactment of PROMESA (short for the Puerto Rico Oversight, Management, and Economic Stability Act, 48 U.S.C. §§ 2101–2241) to address that emergency. See, e.g., Pierluisi v. Fin. Oversight & Mgmt. Bd. for P.R. (In re Fin. Oversight & Mgmt. Bd. for P.R.), 37 F.4th 746, 750 n.1 (1st Cir. 2022) (collecting cases). For present purposes, suffice it to say that PROMESA created a "modified version of the municipal bankruptcy code" and authorized the Financial Oversight and Management Board (the "Board") to place the Commonwealth and its instrumentalities into bankruptcy

proceedings known as Title III proceedings.1 Fin. Oversight & Mgmt. Bd. for P.R. v. Federacion de Maestros de P.R., Inc. (In re Fin. Oversight & Mgmt. Bd. for P.R.), 32 F.4th 67, 75 (1st Cir. 2022); see 48 U.S.C. §§ 2121(a), (b)(1), (c)(1), 2161–2178. In such proceedings the Board "is the representative of the debtor." 48 U.S.C. § 2175(b).

PREPA is a public corporation and instrumentality of the Commonwealth that was created by statute in 1941 to provide electric power to Puerto Rico. See P.R. Laws Ann. tit. 22, § 193(a) (2025); Union de Trabajadores de la Industria Eléctrica y Riego v. Fin. Oversight & Mgmt. Bd. (In re Fin. Oversight & Mgmt. Bd. for P.R.), 7 F.4th 31, 34 (1st Cir. 2021). To that end, PREPA owns and has operated an extensive electric power transmission and distribution system (the "T&D System").

In an effort to restructure PREPA's daunting debt, the Board initiated Title III proceedings on behalf of the company in 2017. Those proceedings triggered an automatic stay of many claims against PREPA, including "any act to obtain possession of" or "exercise control over property of the estate." 11 U.S.C.

1 "Title III" refers to the subchapter of PROMESA that authorizes and details these bankruptcy proceedings. See 48 U.S.C. §§ 2161–2178. When overseeing Title III cases, the district court is commonly referred to as the "Title III court." See, e.g., Fin. Oversight & Mgmt. Bd. for P.R. v. Ad Hoc Grp. of PREPA Bondholders (In re Fin. Oversight & Mgmt. Bd. for P.R.), 899 F.3d 13, 18 (1st Cir. 2018).

§ 362(a)(3); 48 U.S.C. § 2161(a) (incorporating 11 U.S.C. § 362 into PROMESA); see Union de Trabajadores, 7 F.4th at 35.

B.

In 2018, while PREPA's restructuring case was underway in the Title III court, the Legislative Assembly of Puerto Rico passed the Puerto Rico Electric Power System Transformation Act. See P.R. Laws Ann. tit. 22, §§ 1111–1125 (2025); Union de Trabajadores, 7 F.4th at 35. That Act authorized the partial privatization of PREPA and facilitated a competitive bidding process to select a private partner who would assume operation and maintenance of the T&D system. See Union de Trabajadores, 7 F.4th at 35. The Puerto Rico Public-Private Partnerships Authority (P3A), another public corporation of the Commonwealth, oversaw the bidding process. LUMA, a private corporation, was ultimately selected as the winning bidder. See id.

In June 2020, P3A, PREPA, and LUMA entered into a long-

term contract, the Operation and Maintenance Agreement (OMA), in which LUMA agreed to take over operation and maintenance of the T&D System, with PREPA retaining ownership of that system. The OMA also called for the parties to apply to the Puerto Rico Energy Bureau (PREB), an independent regulator of Puerto Rico's public energy policy, for a waiver of LUMA's liability to consumers in connection with its management of the T&D system:

Liability Waiver. In connection with the submission of the Initial Budgets to PREB, the Parties agree to apply for inclusion in the Rate Order that the . . . terms of service include: (i) a waiver of [PREPA]'s, [LUMA Energy]'s and [LUMA Energy ServCo]'s2 liability to customers or any Person receiving Power and Electricity for any Losses arising in any way out of or in connection with the operation of the T&D System and the provision of Power and Electricity including any events of interrupted, irregular or defective electric service due to Force Majeure Events, other causes beyond [PREPA]'s, [LUMA Energy]'s or [LUMA Energy ServCo]'s control or ordinary negligence, gross negligence or willful misconduct of [PREPA], [LUMA Energy] or [LUMA Energy ServCo], or their respective employees, agents or contractors; and (ii) a waiver in all cases of responsibility for any loss of profits or revenues, special, exemplary, punitive, indirect, incidental or consequential damages, including loss of revenue, loss of use of equipment, cost of capital, cost of temporary equipment, overtime, business interruption, spoilage of goods, claims of customers of electric customers or other economic harms, in each case howsoever and whensoever arising, including where caused by any of [PREPA]'s, [LUMA Energy]'s or [LUMA Energy ServCo]'s ordinary negligence, gross negligence or willful misconduct (collectively the "Liability Waiver").

Under the OMA, PREB's approval of a liability waiver "generally consistent" with this provision and that waiver being "in full force and effect" are conditions precedent to LUMA's obligation to

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