NOT FOR PUBLICATION

UNITED STATES COURT OF APPEALS

FOR THE NINTH CIRCUIT

GALLAGHER & KENNEDY, P.A., 

Plaintiff-Appellant, 

 v. 

CITY OF PHOENIX, a political subdivision 

of the State of Arizona; et al., 

Defendants-Appellees.

No. 23-15938 

D.C. No. 

2:16-cv-04447-DAE-BGM 

MEMORANDUM*

Appeal from the United States District Court

for the District of Arizona

David A. Ezra, District Judge, Presiding

Argued and Submitted August 12, 2024

San Francisco, California

Before: GRABER, CALLAHAN, and KOH, Circuit Judges.

Gallagher & Kennedy, P.A. (“G&K”), a law firm, seeks to recover $21.1 

million in costs that it allegedly incurred in responding to the City of Phoenix, 

Maricopa County, and Prudential Overall Supply’s (collectively “City”) release of 

hazardous substances that contaminated the Roosevelt Irrigation District’s (“RID”) 

groundwater wells. G&K filed the current cost recovery action under the 

* This disposition is not appropriate for publication and is not precedent 

except as provided by Ninth Circuit Rule 36-3.

FILED

AUG 30 2024

MOLLY C. DWYER, CLERK

U.S. COURT OF APPEALS
2 

Comprehensive Environmental Response, Compensation, and Liability Act 

(“CERCLA”), specifically 42 U.S.C. § 9607. The district court granted the City’s 

motion for partial summary judgment, concluding that G&K did not “incur” the 

response costs as required under CERCLA and thus was unable to recover, and 

dismissed the case. G&K now appeals. We have jurisdiction under 28 U.S.C. § 

1291. Reviewing de novo, Brown v. Arizona, 82 F.4th 863, 874 (9th Cir. 2023) (en 

banc), we affirm in part, reverse in part, and remand for further proceedings. 

1. CERCLA provides that “any person who accepts or accepted any 

hazardous substances for transport to disposal or treatment facilities, incineration 

vessels or sites selected by such person, from which there is a release, or a 

threatened release which causes the incurrence of response costs, of a hazardous 

substance, shall be liable for . . . any other necessary costs of response incurred by 

any other person consistent with the national contingency plan.” 42 U.S.C. § 

9607(a)(4)(B). The parties currently dispute only the third requirement for 

recovery, that a party “incur” a response cost. 

G&K entered into an agreement with RID to manage the cleanup of the 

contaminated groundwater affecting RID’s wells. To carry out the work, G&K 

entered into agreements with consultants, including Spinnaker Holdings, LLC;

Synergy Environmental, LLC; and Errol L. Montgomery & Associates, Inc. (the 

“subcontractors”), to perform the investigation and work needed to address the 
3 

contamination. G&K now seeks to recover for six categories of costs which we 

group together generally as either (1) costs related to G&K’s own time and 

resources expended on the cleanup effort or (2) costs related to either paid or 

pending invoices from the subcontractors. 

G&K first asserts that it incurred recoverable costs related to its own 

expenditure of time and effort. Under its agreement with RID, G&K spent time 

overseeing and managing the cleanup actions at the contaminated site and was to 

be compensated on a contingency basis from moneys that the parties referred to as 

“Project Funds.” The Project Funds were to be collected on behalf of RID from

settlements with potentially responsible parties and from anticipated future 

proceeds from the sale of treated RID water, among other sources. The district 

court found that, because G&K agreed to be paid out of the Project Funds on a 

contingency basis, G&K had not “incurred” costs under CERCLA as G&K bore 

the risk of not receiving compensation in the event of insufficient Project Funds. 

We disagree. In Key Tronic Corp. v. United States, 511 U.S. 809 (1994), the 

Supreme Court recognized that certain non-litigation attorney costs could be 

recovered under CERCLA. See id. at 820 (noting that the plaintiff had played a 

vital role by “[t]racking down other responsible solvent polluters,” which 

“increases the probability that a cleanup will be effective and get paid for”). Under 

Key Tronic, an entity that conducts non-litigation activity that is “closely tied to the 
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actual cleanup,” id., can be entitled to reimbursement for that entity’s 

“commitment of resources” to the cleanup effort, In re Dant & Russell, Inc., 951 

F.2d 246, 249 (9th Cir. 1991). Even though G&K itself did not undertake the 

physical cleanup work, to the extent that G&K has incurred non-litigation related 

costs in the form of its own time and effort, those costs may be reimbursable 

consistent with Key Tronic. G&K’s contingent fee agreement with RID has no 

bearing on the question of whether it committed resources to activities that were 

closely tied to the cleanup. We remand for the district court to determine whether 

G&K has met the additional requirements to recover under 42 U.S.C. § 9607.

Regarding G&K’s claimed costs related to paid and unpaid invoices to the 

subcontractors who performed the actual cleanup work, however, we agree with 

the district court that G&K has not shown that it incurred those costs. All

payments to the subcontractors for work performed was contingent on the 

existence of sufficient Project Funds to pay the invoices. G&K does not dispute 

that it did not contribute firm money to the Project Funds. To the extent that G&K 

now seeks to be reimbursed for payments from the Project Funds already made to 

the subcontractors, those are not costs that G&K incurred but, rather, are costs 

G&K reimbursed to others who undertook and incurred costs for the cleanup 

activity. See Chubb Custom Ins. Co. v. Space Systems/Loral, Inc., 710 F.3d 946, 

964 (9th Cir. 2013) (“Chubb has not incurred response costs solely by virtue of 
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reimbursing [other’s] response costs . . .”). To the extent that G&K seeks to be 

reimbursed for costs reflected in pending invoices, G&K’s legal obligation to pay 

those invoices is contingent on the future availability of sufficient Project Funds. 

This contingent obligation is too speculative to qualify as an incurred cost. See 

Trimble v. ASARCO, Inc., 232 F.3d 946, 958 (8th Cir. 2000) (“[T]he mere 

possibility, even the certainty, that an obligation to pay will arise in the future does 

not establish that a cost has been incurred[.]”), abrogated on other grounds by

Exxon Mobil Corp. v. Allapattah Servs., Inc., 545 U.S. 546, 549–51 (2005); In re 

Dant & Russell, 951 F.2d at 249 (stating that CERCLA does not allow recovery 

when “there has been no commitment of resources for meeting th[o]se costs”); 

ASARCO LLC v. Atl. Richfield Co., LLC, 975 F.3d 859, 866 (9th Cir. 2020) (noting 

that “speculative, potential future response costs are not recoverable . . .”). We 

affirm the district court’s dismissal as to the subcontractor costs. 

2. G&K argues that the City should be judicially estopped from (1) 

stating that G&K did not “incur” the response costs, contrary to its position in prior 

litigation with RID; and (2) asserting that G&K cannot recover amounts owed to 

the subcontractors, contrary to its position in prior litigation with a subset of those 

subcontractors. The record does not support G&K’s arguments. 

Judicial estoppel requires both that a party has taken a certain position and 

that the party succeeded in persuading a court to accept the position. See New 
6 

Hampshire v. Maine, 532 U.S. 742, 749–50 (2001). G&K states that in prior 

litigation with RID, RID v. Salt River Project Agricultural Improvement and 

Power District, 222 F. Supp. 3d 757 (D. Ariz. 2016), the City argued that G&K 

had incurred the response costs. Although the City did argue that G&K, rather 

than RID, might be a proper party to recover, the City did not concede that G&K 

was a proper party for all those costs. Rather, the City argued that RID did not

incur the costs, not that G&K did. In fact, the district court explicitly noted that it 

“did not make any ruling as to whether G&K actually incurred the response costs, 

only that the costs were paid out of Project Funds by G&K acting on behalf of 

RID.” 1 Thus, the court did not accept an argument that G&K “incurred” the costs 

of the cleanup as the term is used under the CERCLA. 

Similarly in the litigation with the subcontractors, Spinnaker Holdings, LLC 

v. City of Phoenix, 2:16-cv-04448-PHX-DAE-BGM (D. Ariz.), the City did not 

take a position that G&K was the proper party to recover funds owed to the 

subcontractors. Rather, the City argued that the subcontractors’ claims were not 

ripe, which is not inconsistent with its current position that G&K did not incur the 

subcontractors’ costs. Additionally, that lawsuit was dismissed voluntarily, and 

therefore there was no judicial acceptance of any position that the City might have 

1 We agree with the district court’s characterization because it was not being 

asked at that time to evaluate G&K’s costs, and “had not had the opportunity to 

consider the evidence brought forth in the instant motion.” Id.
7 

raised. Accordingly, the City is not estopped from raising its arguments against 

G&K. 

3. Finally, the City also challenges G&K’s standing to bring this action. 

The City argues that G&K has not suffered a concrete or particularized injury, 

citing Price Trucking Corp. v. Norampac Industries, Inc., 748 F.3d 75 (2d Cir. 

2014), to argue that G&K cannot bring a claim on behalf of a subcontractor. 

Neither argument is persuasive.

Regarding Article III standing, and accepting the allegations in the 

complaint as true, G&K has asserted a sufficient injury to meet the standing 

requirements. G&K’s allegations that it suffered an economic harm when it lost 

money related to its own actions to implement its agreement with RID and its 

alleged obligation to pay the pending invoices suffice to meet this requirement. 

See Lujan v. Defs. of Wildlife, 504 U.S. 555, 560–61 (1992) (explaining that, to 

establish standing, plaintiffs must show that they suffered an “injury in fact” with a 

“causal connection between the injury and the conduct complained of” such that 

the injury will “likely. . . be redressed by a favorable decision” (internal quotations 

and citations omitted)). 

As to whether G&K can bring a claim on behalf of the subcontractors, the 

parties rely on different interpretations of Price Trucking. There, the Second 

Circuit addressed “whether CERCLA creates direct liability between owners and 
8 

subcontractors with respect to cleanup on a CERCLA site when the owner has paid 

a general contractor in full for the subcontractor’s work.” Price Trucking, 748 

F.3d at 79. The Second Circuit held that it did not. However, to the extent that 

G&K is arguing that subcontractor cost-recovery suits must be brought by the 

general contractor, G&K overreads Price Trucking, which explicitly declined to 

address whether there might be a different circumstance in which a subcontractor 

could bring a CERCLA cost-recovery action. See id. at 77, 85 (noting that the 

“sole question presented on appeal is whether CERCLA grants the subcontractor a 

right of recovery against the landowner in these circumstances” and that “we need 

not decide and do not imply a view as to whether there may be cases in which a 

cleanup contractor or subcontractor could successfully bring a cost-recovery 

action”). In any event, G&K still must meet CERCLA’s requirement that it 

incurred the costs for which it seeks to be reimbursed. As to the payments made or 

owed to the subcontractors, G&K did not incur those costs. Therefore, we affirm 

the district court’s dismissal of this theory on that ground.

We AFFIRM in part and REVERSE in part, and REMAND to the district 

court for further proceedings consistent with this disposition.2

2 The parties shall bear their own costs on appeal.