|
PENSION REFORM AND SIMPLIFICATION
STATUS
On August 17, 2006,
President Bush signed into law H.R. 4, the Pension Protection
Act (PPA), after it was approved by the House of
Representatives and the Senate by votes of 279-131 and 93-5,
respectively.
BACKGROUND
On September 2, 1974
President Gerald R. Ford signed into law H.R. 2, the Employee
Retirement Income Security Act of 1974 (ERISA), which had been
overwhelmingly approved by both the House of Representatives
and the Senate by margins of 376-4 and 85-0, respectively.
This law created the Pension Benefit Guaranty Corporation (PBGC)
within the Department of Labor. The PBGC was established to
ensure the viability of private sector pension plans. It also
seeks to keep pension insurance premiums at a minimum. The
corporation is made up of two distinct insurance programs, a
single-employer plan and a multiemployer plan. The
multiemployer plan consists of collectively-bargained plans
with more than one company making contributions. In 2005, the
PBGC insured the private pensions of 44 million individuals,
paying about $3.7 billion in benefits to nearly 683,000
people.
Significantly, the PBGC
is not funded by tax revenue, but rather through insurance
premiums collected from employers that sponsor insured pension
plans, earns money from investments, and receives funds from
pension plans it takes over. Congress sets the premium rates,
which is the most significant source of revenue for the
program. Currently, the minimum annual premium charged for
each participant in a single-employer plan is $19, with an
additional $9 for each $1,000 of “unfunded vested benefits.”
Multiemployer plans pay a flat $2.60 annually per
participant. The PBGC is authorized to borrow up to $100
million from the U.S. Treasury, but must include their
receipts and disbursements in federal budget totals.
The single-employer PBGC
showed its first surplus in 1996, and peaked four years later
with a surplus of $9.7 million in 2000, largely as a result of
the strong performance of the equity markets in the 1990s.
However, since then, its net position has annually decreased
to the point where it posted a deficit of $23.3 billion in
2004. In 2005, the net position improved slightly by $500
million to a deficit of $22.8 billion. While the
corporation’s assets have increased by 160 percent since 2001,
to a total of $56.5 billion in 2005, its liabilities grew by a
far larger 470 percent to $79.3 billion. This is due largely
to the dire financial situation at some of the nation’s
largest airlines, most notably United Airlines and US
Airways.
PENSION PROTECTION ACT
One of
the major victories for Republicans during the 109th
Congress was completion of the PPA, the most comprehensive
reform of the nation’s pension laws since the ERISA. This new
law was spurred by the default in recent years of several
large, defined-benefit pension plans and the increasing
deficit of PBGC. At the beginning of his second term, George
W. President Bush advanced a proposal for pension funding
reform to increase the minimum funding requirements for
pension plans and strengthen the pension insurance system.
The new
law establishes new funding requirements for defined benefit
pensions and includes reforms that will affect cash balance
pension plans, defined contribution plans, and deferred
compensation plans for executives and highly-compensated
employees.
Single-Employer Plans
Since the
passage of ERISA, federal law has required companies to
prefund the pension benefits that the plan participants earn
each year. If a plan is underfunded, the plan sponsor must
pay off with interest this unfunded liability over a period of
years. The PPA establishes new rules for determining whether
a defined benefit pension plan is fully funded, the
contribution needed to fund the benefits, and the required
contribution to the plan if previously earned benefits are not
fully funded.
When the
PPA is fully phased in, it will require plan funding to be
equal to 100 percent of the plan’s liabilities. Any unfunded
liability will have to be paid off with interest over seven
years. Those with severely underfunded plans that are at risk
of defaulting on their obligations will be required to fund
their plans according to special rules that will result in
higher employer contributions to the plan. Plan sponsors will
continue to be allowed to use credit balances to offset
required contributions, but only if the plan is funded at 80
percent or more.
Under
this new law, a plan sponsor’s minimum required contribution
will be based on the plan’s target normal cost (the present
value of all benefits that plan participants will accrue
during the year) and the difference between the plan’s funding
target (the present value of all benefits already accrued by
plan participants as of the beginning of the plan year) and
the value of the plan’s assets. If a plan’s assets are less
than the funding target, the plan has an unfunded liability,
which must be paid off with interest in annual installments
over seven years.
Under the
PPA, pension plans that are determined to be at risk of
defaulting on their liabilities will be required to use
specific actuarial assumptions that will increase the required
contributions. A plan will be deemed at-risk if it is unable
to pass either of two tests. First, a plan will be deemed
at-risk if it is less than 70 percent funded under the
“worst-case scenario” assumption that (1) the employer is not
permitted to use credit balances to reduce its cash
contribution and (2) employees will retire at the earliest
possible date and will choose to take the most expensive
benefit. Second, a plan will be deemed at-risk unless it is
at least 80 percent funded under standard actuarial
assumptions. This test will be phased in over four years,
starting at 65 percent in 2008, 70 percent in 2009, 75 percent
in 2010, and 80 percent in 2011. Plans with 500 or fewer
participants in the preceding year would be exempt from the
at-risk funding requirements.
Beginning
in 2008, the maximum deductible employer contribution to a
defined benefit plan will be (1) the plan's target normal cost
plus (2) 150 percent of the funding target plus (3) an
allowance for future pay or benefit increases minus (4) the
value of the plan's assets. In 2006 and 2007, the deduction
limit will be to 150 percent of the plan's current liability
minus the value of the plan's assets. Contributions in excess
of this limit are subject to a 10 percent excise tax. The PPA
also repeals the alternative maximum deductible contribution
as determined using an interest rate of 90 percent to 105
percent of the four-year weighted average rate on 30-year
Treasury bonds.
Cash Balance Plans and other
Hybrids
The PPA clarifies that
cash balance plans do not discriminate against older workers
as long as benefits are fully vested after three years of
service and interest credits do not exceed a market rate of
return. The law also provides that the age discrimination
test is met if a participant's accrued benefit is not less
than the accrued benefit of any other employee similarly
situated in all respects except age. The accrued benefit can
be tested on the basis of an annuity payable at normal
retirement age, a hypothetical account balance, or the current
value of the accumulated percentage of the employee's final
average pay. The law prohibits wear-away of benefits accrued
before the conversion of a plan to a cash balance plan if the
conversion occurred after June 29, 2005. Earlier conversions
may still be subject to legal challenge under the laws in
effect at the time of the conversion. These provisions are
effective beginning in 2008.
Multiemployer Plans
Multiemployer plans are
collectively bargained plans maintained by several employers,
usually within the same industry, and a labor union.
Multiemployer defined benefit plans are subject to funding
requirements that differ from those for single-employer plans.
Most of the funding requirements for multiemployer plans that
were in effect before enactment of the PPA remain in effect
under the new law. The PPA establishes a new set of rules for
improving the funding of multiemployer plans that the law
defines as being in "endangered" or "critical" status. These
new requirements will remain in effect through 2014.
The PPA establishes new
requirements for multiemployer plans that are seriously
underfunded. A plan's actuaries will have 90 days after the
start of the plan year to certify the funding status of the
plan for that year and to project its funding status for the
following six years. If the plan is underfunded, it will have
30 days after the actuarial certification to notify
participants and approximately eight months to develop a
funding schedule to present to the parties of the plan's
collective bargaining agreement. The schedule must be
designed to meet the statutory funding requirements before the
end of the funding improvement period. For multiemployer
plans in "critical status," the law makes changes in the
anti-cutback rules of ERISA to give plans the right to
eliminate or reduce some benefit payment options and early
retirement benefits for plan participants who have not yet
retired. The law also establishes new disclosure requirements
for multiemployer plans.
The PPA requires plans
to amortize over 15 years (rather than 30 years, as under
prior law) any increases in plan liabilities that are due to
benefit increases or to changes in the actuarial assumptions
used by the plan. Amounts already being amortized under the
old amortization schedule need not be recalculated.
The PPA increases the
limit on tax-deductible employer contributions to
multiemployer plans to 140 percent of the plan's current
liability (up from 100 percent), and it eliminates the 25
percent of compensation combined limit on contributions to
defined-benefit and defined contribution plans. These
provisions went into effect in the 2006 tax year. The law
will allow the Internal Revenue Service (IRS) to permit
multiemployer plans that project a funding deficiency within
10 years to extend the amortization schedule for paying off
its liabilities by five years, with an additional five-year
extension permissible. It requires such plans to adopt a
recovery plan and to use specific interest rates for plan
funding calculations.
The PPA also establishes
mandatory procedures, effective through 2014, to improve the
funding of seriously underfunded multiemployer plans. Under
the PPA, a plan is considered to be endangered if it is less
than 80 percent funded or if the plan is projected to have a
funding deficiency within seven years. A plan that is less
than 80 percent funded and is projected to have a funding
deficiency within seven years is considered to be seriously
endangered. An endangered plan has one year to implement a
"funding improvement plan" designed to reduce the amount of
under-funding. Endangered plans have 10 years to improve their
funding. They must improve their funding percentage by
one-third of the difference between 100 percent funding and
the plan's funded percentage from the earlier of (1) two years
after the adoption of the funding improvement plan or (2) the
first plan year after the expiration of collective bargaining
agreements that cover at least 75 percent of the plan's active
participants.
Seriously endangered
plans that are less than 70 percent funded will have 15 years
to improve their funding. They must improve their funding
percentage by one-fifth of the difference between 100 percent
funding and the plan's funded percentage from the earlier of
(1) two years after the adoption of the funding improvement
plan or (2) the first plan year after the expiration of
collective bargaining agreements that cover at least 75
percent of the plan's active participants. A plan that is
endangered or seriously endangered may not increase benefits.
If the parties to the collective bargaining agreement are not
able to agree on a funding improvement plan, a default funding
schedule will apply. This schedule would reduce future benefit
accruals. Additional contribution requirements will apply only
if they are needed to achieve the funding improvement required
by the law. A plan is not endangered in any plan year in which
the required funding percentages are met.
A multiemployer plan is
considered to be in critical status if (1) it is less than 65
percent funded and has a projected funding deficiency within
five years or will be unable to pay benefits within seven
years; (2) it has a projected funding deficiency within four
years or will be unable to pay benefits within five years
(regardless of its funded percentage); or (3) its liabilities
for inactive participants are greater than its liabilities for
active participants, its contributions are less than carrying
costs, and a funding deficiency is projected within five
years. A plan in critical status has one year to develop a
rehabilitation plan designed to reduce the amount of
underfunding. The plan sponsors will not be required to make
"lump-sum" contributions that normally are required to meet
the minimum funding standard when a plan has an accumulated
funding deficiency. Employers will not be subject to an excise
tax if a funding deficiency occurs as long as the plan is
meeting its obligations under the rehabilitation plan and
under the collective bargaining agreements negotiated to
improve plan funding.
Defined-Contribution
Plans
The PPA makes permanent
the higher benefit limits in defined benefit plans, higher
contribution limits for individual retirement accounts and
defined contribution plans, and catch-up contributions for
workers 50 and older that were included in the Economic Growth
and Tax Relief Reconciliation Act of 2001. These provisions
had been scheduled to expire on December 31, 2010.
Federal law prohibits
tax-qualified retirement plans from discriminating in favor of
highly-compensated employees (HCEs) with regard to coverage,
amount of benefits, or availability of benefits. A "highly
compensated employee" is defined in law as any employee who
owns 5 percent or more of the company or whose compensation
exceeds $100,000 (indexed to inflation). An employer can elect
to count as HCEs only those employees who rank in the top 20
percent of compensation in the firm, but it must include all 5
percent owners.
To be tax-qualified, a
401(k) plan must satisfy one of two tests: either the
proportion of non-highly compensated employees (NHCEs) covered
by the plan must be at least 70 percent greater than the
proportion of highly compensated employees (HCEs) covered by
the plan, or the average contribution percentage for NHCEs
must be at least 70 percent of the average contribution
percentage for HCEs. Contributions to a plan cannot
discriminate in favor of HCEs. Plans that have after-tax
contributions or matching contributions are subject to the
"actual contribution percentage" (ACP) test, which measures
the contribution rate to HCE accounts relative to the
contribution rate to NHCE accounts. Some 403(b) plans are
subject to nondiscrimination rules; 457 plans generally are
not. The actual contribution percentage of HCEs in a 401(k)
plan generally cannot exceed the limits shown in the following
table:
Maximum Average 401(k) Contributions for Highly Compensated
Employees
Non-highly
compensated employees (NHCEs) |
Highly
compensated employees (HCEs) |
Maximum average
deferral and match |
Maximum average
deferral and match |
2 percent of pay or
less |
NHCE percentage x 2 |
2 percent to 8
percent of pay |
NHCE percentage + 2
percent |
8 percent of pay or
more |
NHCE percentage x
1.25 |
Note: "Deferral and match" equals the sum of employer and
employee contributions.
Any of three
"safe-harbor" designs are deemed to satisfy the ACP test
automatically for employer matching contributions (up to 6
percent of compensation):
1.
The employer
matches 100 percent of employee elective deferrals up to 3
percent of compensation, matches 50 percent of elective
deferrals between 3 percent and 5 percent of compensation, and
all employer matching contributions are fully vested.
2.
Employer-matching
contributions can follow any other matching formula that
results in total matching contributions that are equal to or
greater than under the first design. All employer-matching
contributions vest immediately.
3.
The employer
automatically contributes an amount equal to at least 3
percent of pay for all eligible NHCEs. Employer contributions
vest immediately.
All 401(k) plans must
satisfy an "actual deferral percentage" (ADP) test, which
measures employees' elective-deferral rates. The same
numerical limits are used as under the ACP test. Three
"safe-harbor" designs, similar to the safe-harbor designs for
the ACP test, are deemed to satisfy the ADP test
automatically. In addition, "cross-testing" allows defined
contribution plans to satisfy the nondiscrimination tests
based on projected account balances at retirement age, rather
than current contribution rates. This permits bigger
contributions for older workers. Because higher-paid employees
receive proportionally smaller Social Security benefits
relative to earnings than lower-paid workers, employers are
permitted to make larger contributions on earnings in excess
of the Social Security wage base ($94,200 in 2006).
Regulations limit the size of the permitted disparity
in favor of workers whose earnings are above the wage base.
Automatic Enrollment
"Safe Harbor"
The PPA creates a "safe
harbor" from nondiscrimination testing for plans that adopt
automatic enrollment, provided the plans meet certain
requirements. The requirements include notifying employees of
the amount of pay to be deferred, the investments into which
the deferrals will be deposited, and giving the employee the
right to change the amount deferred or the investments into
which the money is deferred or to opt out of the arrangement
altogether. A plan with automatic enrollment will be deemed
to satisfy the nondiscrimination rules for elective deferrals
and matching contributions if it provides a minimum matching
contribution of 100 percent of elective deferrals up to 1
percent of compensation, plus 50 percent of elective deferrals
between 1 percent and 6 percent of compensation.
The nondiscrimination
safe harbor that existed prior to the PPA (described above)
will continue to be available for all 401(k) plans, including
those with automatic enrollment. To qualify for the automatic
enrollment safe harbor, the contribution rate for automatic
enrollees must be at least 3 percent during the first year of
participation, 4 percent during the second year, 5 percent
during the third year, and 6 percent thereafter. The plan may
specify a higher contribution up to a maximum of 10 percent.
The automatic enrollment arrangement will not have to apply to
employees already participating in the plan. Employees must be
fully vested in employer contributions after no more than two
years, rather than the immediate vesting rule for other safe
harbor 401(k) plans. The distribution restrictions under
Internal Revenue Code 401(k)(2) also will apply to
automatic-contribution plans.
An employee who is
automatically enrolled will have 90 days to opt out of the
plan and withdraw any contributions made on his or her behalf,
plus the earnings on those contributions. These amounts will
be taxed in the year the employee receives them, but they will
not be subject to the 10 percent extra tax that ordinarily
would apply to distributions received before age 59 1/2. This
rule also will apply to 403(b) plans and 457(b) plans that
adopt automatic enrollment.
Plans that opt for
automatic enrollment must choose a set of default investments
for participants who have not designated their specific
investment choices. Under the PPA, an automatic enrollment
plan will be granted protection from fiduciary liability under
ERISA 404(c) for its default investments, provided that
automatic contributions are invested in accordance with
regulations to be issued by the Department of Labor and that
the plan notifies employees of their right to change the
investments or to opt out of the plan. The PPA clarifies that
ERISA preempts any state law that would prohibit automatic
enrollment, provided that the plan notifies affected employees
annually of their rights in the plan. The automatic
enrollment provisions of the PPA are effective for plan years
starting in 2008, except the ERISA preemption of state law,
which is effective on the date of enactment.
OUTLOOK
Senators Gordon Smith
(R-OR) and Jeff Bingaman (D-NM) have introduced S. 1141, the
Automatic IRA Act. This bill would require employers that do
not have pension plans to set up Automatic IRAs for their
employees. No employer contribution would be required and
employees would be automatically enrolled unless they chose to
“opt out.” This legislation could have “legs” this Congress.
We will keep you informed on this issue and any developments.
/I76100807
###
Back to Issue Papers |