Rep. Richard Neal Proposes Near-Universal Federal Auto-IRA Program

The retirement and insurance industries are backing the bill.

Representative Richard Neal, D-Massachusetts, the ranking member of the U.S. House Committee on Ways and Means, on Wednesday proposed the Automatic IRA Act of 2024, followed quickly with industry support.

The bill would create an automatic individual retirement account program at the federal level that would require employers with more than 10 employees that lack a retirement plan to enroll employees into an IRA, with exemptions for church and government plans. It would also open the door for the use of lifetime income options such as annuities for employees with a balance of $200,000 or more as a way to introduce a pension-like income option in retirement.

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Many representatives of the retirement and insurance industry backed the bill on Wednesday, including the Insured Retirement Institute, the American Council of Life Insurers and the Teachers Insurance and Annuity Association of America.

The American Retirement Association also backed the proposal, writing in a statement that it would “dramatically expand retirement coverage of employees, gig workers, and other independent contractors.” The endorsement comes after the ARA was a staunch opponent of another federal IRA bill from October 2023, the Retirement Savings for Americans Act, which never came up for vote.

The RSAA proposed a federally run universal IRA program with a 5% matching contribution paid from general tax revenue. The creators of the bill wrote at the time that it would be a “simple and straightforward step” to cover tens of millions of Americans without access to a plan.

Brian Graff, the CEO of the American Retirement Association, explains that the RSAA would create a “federally run program,” potentially incentivizing businesses to terminate a plan in order to take the government match, which would be “to the detriment of the private sector.”

The Automatic IRA Act, by contrast, has no government match and is essentially a requirement to have a plan in which the minimum requirement is an IRA funded by payroll deduction.

Many states have started their own mandatory or optional retirement programs in recent years that often include auto-IRAs. As of January, 2024, there are 19 states that have state-facilitated retirement programs for private sector workers, with a mix of auto IRAs, multiple employer plans, or a combination, according to Georgetown University’s Center for Retirement Initiatives.

A participant enrolled in an IRA created by the Automatic IRA Act would be defaulted for the first year of the plan at a contribution rate of 6% to 10%, which would automatically escalate by 1% until it reached 10%. Starting in the second year, plans would be able to default participants as high as 15%, but no further. Participants would be able to opt out or elect different contribution levels.

Participants would also be defaulted into a Roth IRA, but unlike some state IRA programs, they would be able to elect a traditional IRA instead. A $500 tax credit would be granted for the first three years to an employer that participates in the program.

The bill only permits three investment types in the IRA “and no other investment options.” The default investment would be a target-date fund. There would also be a “principal preservation” fund and a “balanced option.”

The Department of Labor defines balanced funds as those “diversified so as to minimize the risk of large losses and that is designed to provide long-term appreciation and capital preservation through a mix of equity and fixed income exposures consistent with a target level of risk appropriate for participants of the plan as a whole.”

Other types of funds, such as domestic or foreign equity funds, would not be permissible.

The bill also addresses lifetime income options. For employers with at least 100 employees participating in the federal IRA program, they must permit employees with a balance of at least $200,000 to invest at least 50% of their balance into a lifetime income option.

The Insured Retirement Institute, which represents the insured retirement strategies industry, backed the strategy as a way to get workers into a guaranteed income option and “address the anxiety many workers feel about outliving their retirement savings,” according to a statement.

How Sponsors Can Get the Most out of DC Plan Design Changes

Annuities may be a hot topic, but sponsors can add the most value to plans by incorporating features like auto-enrollment and auto-escalation before they move to the heavy lifting.

Building the optimal defined contribution plan design to support participant retirement readiness requires integrating flexible options to account for the consistent income stream workers will lose in retirement.

Guaranteed lifetime income features—annuity products—are useful to sponsors, but retirement experts recommend that sponsors instead focus on Social Security optimization, automatic features and other high-value and low-cost features to alter plan designs before moving on to annuities.

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Financial insurance provider Unum Group is currently implementing guaranteed retirement income, using Fidelity Guaranteed Income Direct, to enable workers to convert all or a portion of their retirement savings—from a 401(k), 403(b) or 457(b) plan—into an immediate income annuity to provide consistent, pension-like payments throughout retirement.  Unum expects to have the feature implemented by end of the first quarter, says Ben Roberge, the company’s director of financial and retirement programs.

Yet reaching the execution stage was a multi-year journey, Roberge says, adding that Unum chose the annuity plan design to provide participants with retirement income options because it valued flexibility.  

It was “important to have different options, because all of our retirees have different situations, [because] some of them are going to have access to pretty significant guaranteed income already” from Unum’s frozen defined benefit pension plan, Roberge says.

 

Critical Design Question

Well before annuities are even on the radar, plan sponsors should give attention to plan design because participants want guidance from the plan, says Kerry Bandow, head of defined contribution solutions at Russell Investments.

Early in Bandow’s career, he used to hold employee seminars for clients to teach their participants about retirement plans “to get them to pay attention to their account, [but] they generally just want to be told what to do,” he says. “That’s why it’s so important to focus on plan design: because [research and] studies indicate that participants want the sponsor to tell them what to do through the design of the plan.”

Sponsors implementing plan design features such as permitting partial or periodic withdrawals, offering Social Security claiming and planning tools, and increasing the number of investment options of in-plan core menus each have to answer a critical question about adding retirement income options: How are plan sponsors going to enable their participants to “create a pension-like income stream after [they] finish working, with everything available [in savings] to primarily have enough money to live in retirement and not outlive your money?” says John Carter, president and chief operating officer of Nationwide Financial.

Among other offerings, the Nationwide Retirement Institute incorporates a sponsor education series focused on Social Security claiming strategies, Carter explains.

Plan Design Considerations

Sponsors interested in adding guaranteed retirement income options to plans must examine the demographics of their workforce before jumping into annuity products, says Roberge.

“I would encourage folks to take a look at what their population needs first and use that as your starting point,” he explains. “What problem [is the sponsor] trying to solve when it relates to guaranteed income? From there, explore all the different solutions, not necessarily with who is providing them, but what their solutions are addressing.”

Chris Littlefield, president of retirement income and solutions at Principal Financial Group, says the DC plan design alternatives he sees sponsors incorporate have focused on increased participant contributions and employer matches. Sponsors’ plan designs tactics tend to focus on the kinds of retirement benefits that make the company competitive as an employer.

“Are they offering immediately available vesting or a shorter vesting period for people that come in and get retirement benefits?” Littlefield asks. “What is their match like? Are they doing anything on profit sharing? And what are they doing for [new workers]?”

Assessing potential plan design changes by evaluating what others are doing is a key factor to incorporate, he explains.  

“There’s a lot of competition for CDL [workers with a commercial driver’s license] right now in the economy, and so you see a lot of signing bonuses and different ways to attract that kind of worker,” Littlefield says. “We can tell [sponsors] exactly what competitors like them are doing and how they might differentiate themselves in the market for talent from a benefits perspective: both a voluntary benefit and a retirement benefits perspective.”

 

Focus on Social Security

David Blanchett, head of retirement research at PGIM DC Solutions, agrees that plan sponsors should try to get the most value from automatic features and should make Social Security optimization planning tools available—specifically, a bridging strategy to enable participants to delay claiming the benefit, thereby receiving the maximum amount.

Although annuity products were the right plan design choice at Unum, other sponsors can extract optimal value and efficiency from low-cost features, which should be sponsors’ focus instead of adding annuities, Blanchett says.  

While some sponsors “are rushing to think about annuities” for their plans, “the most depressing statistic from our last DC landscape survey was only 13% of plan sponsors make available Social Security optimization planning tools,” he says. “That is the first place that someone should always go if they want more guaranteed lifetime income. Hard stop.”

 

Start Automatically

Doug LaMendola, senior vice president and the business development practice leader at retirement plan consulting and benefits administration firm USI Consulting Group, says plan sponsors should focus on automatic enrollment and automatic escalation to see the largest positive effects.

The asset size of a plan correlates to the sponsor offering auto-enrollment, according to the 2023 PLANSPONSOR DC Plan Benchmarking Survey. It found that auto-enrollment is used by 22% of plans with assets less than $5 million; 45% of plans with assets between $5 million and $50 million; 66% of plans with assets between $50 million and $200 million; 67% of plans with assets between $200 million and $1 billion; and 70% of plans with $1 billion or greater.

“Automatic enrollment, as well as automatic escalation … [are] what’s going to move the needle the most,” he explains. “Employer matching contributions are going to incentivize employees to save more.”

For sponsors, evaluating DC plan designs, including profit-sharing contributions, non-qualified plans and hybrid plans with defined benefit features, will add value to the plan, “but overall, [if the goal is] trying to get employees to save, automatic enrollment [and] automatic escalation [are] going to be what moves the needle most,” LaMendola says.

Sponsors mulling over plan design changes should first ensure that they have automatic features and education campaigns to teach participants how to become wise DC investors, says LaMendola.

The sponsors’ education program should focus on “not so much … trying to encourage employees to save—employees are going to be automatically saving because of those [features],” he says. “It is going to be more about ‘OK, now that you are saving, are you saving the right amount? How do you look at the match? How do you look at your account?’”

Blanchett sees the value of education programs but ranks other offerings as more important. He is “not as worried about education because, increasingly, individuals who should be in the default investment … tend to be, so the question is: What [investment] options are you including in the menu?”

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