What’s in the Window?

The Department of Labor’s March 2022 attempt to regulate cryptocurrency investments has left numerous outstanding questions about its effect on brokerage windows.

Defined contribution plans’ self-directed brokerage windows used to be a generally quiet component of plans’ investment offerings.

But in March 2022, regulators at the Department of Labor published the Employee Benefits Security Administration’s “Compliance Assistance Release No. 2022-01: 401(k) Plan Investments in ‘Cryptocurrencies.’” The release cited concern with the growing number of firms marketing cryptocurrency investments to 401(k) plans as potential investment options for participants as in-plan options or through brokerage windows.

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PLANSPONSOR’s 2023 Plan Benchmarking Report, which surveyed 2,562 plan sponsors from a broad variety of U.S. industries, found brokerage windows are not terribly widespread. Among survey respondents, 22.6% reported that their plan offers brokerage windows, and another 5.4% reported being offered a mutual fund window.

Many in the retirement plan industry did not expect the CAR’s specific inclusion of brokerage windows and challenged the release’s validity on that point.

“We were very surprised when we saw the guidance put out by the Department of Labor, which indicated that there was an obligation to review, for example, cryptocurrency investments, available under a brokerage window,” says Kent A. Mason, a partner in Davis & Harman LLP in Washington, D.C. “The law is clear that there is no obligation on behalf of a plan fiduciary to review the investments offered through a brokerage window. Essentially, a broad universe of investments can be made available through a brokerage window.”

One group of 11 trade associations, which included the American Bankers Association and the SPARK Institute, among others, wrote to the DOL in April 2022 claiming that the CAR “puts plan sponsors in the untenable position of having to choose between extending their fiduciary responsibility to such investments, contrary to longstanding guidance, or accepting the likelihood of a plan investigative audit, along with the very real expenditures, both in time and money, associated with such audits.”

Windows’ Status Remains Murky

The CAR’s impact on the availability of and investments allowed in brokerage windows remains unclear. Three companies—Bitwage, Digital Asset Investment Management and ForUsAll—were offering in-plan cryptocurrency options as of the CAR’s release date, and all three continue to do so. Additionally, Fidelity Investments launched its in-plan Digital Assets Account in April 2022. Bitwage, DAIM and Fidelity include cryptocurrency options as a diversifier within a plan’s lineup; ForUsAll uses a brokerage window.

ForUsAll sued the DOL in June 2022 and requested that the CAR be “vacated and set aside.” Among other points, the company cited the CAR’s business impact, claiming that approximately one-third of plans that had been discussing the crypto option with ForUsAll had put their plans on hold pending regulatory clarification. In Congress, Senator Tommy Tuberville, R-Alabama, in February reintroduced legislation to prohibit DOL regulation limiting the investments available in a 401(k) plan’s brokerage window.

Difficulties With In-Plan Crypto

Schwab’s Self-Directed Brokerage Account Indicator for the quarter ending March 31 shows how Schwab’s recordkeeping retirement plan participants were invested through their plans’ brokerage windows. According to the report, equities accounted for 33% of holdings, followed by mutual funds (29%), exchange-traded funds (22%), cash and equivalents (11%) and fixed income (4.4%).

Plan sponsors can limit participants’ investment options available through the brokerage window. Alight Solutions’ 2021 recordkeeping data survey found that 60% of sponsors offering windows allowed full brokerage options, while 40% imposed limits (31% allowed only mutual funds, and 9% allowed only mutual funds and ETFs). ForUsAll caps participants’ brokerage window cryptocurrency investments at 5% of the initial portfolio value, plus 5% of ongoing contributions.

Even with allocation and contribution limits in place, plan fiduciaries face operational challenges with crypto investments. The CAR mentions direct crypto investments plus “other products whose value is tied to cryptocurrencies.” In response, the trade associations cited previously highlighted the lack of available mechanisms “for identifying and excluding cryptocurrencies from brokerage windows, let alone explicitly defining cryptocurrency investments that could be problematic.”

The associations argued this is particularly true for “products such as mutual funds and exchange traded funds that offer exposure to cryptocurrencies but are not direct investment in cryptocurrencies per se.” As these types of investments proliferate, they believe it will be more difficult for plan sponsors to “identify, evaluate, and exclude such investments from brokerage windows.”

Going Forward

Tim Rouse, executive director of the SPARK [Society of Professional Asset Managers and Recordkeepers] Institute in Simsbury, Connecticut, believes that increasing fiduciary responsibility over brokerage widows due to the CAR would limit their benefit and take away a service that participants have come to value.

Despite the questions elicited by the CAR and the lack of clarity on what constitutes a crypto investment, neither Mason nor Rouse has seen any recent changes in plans’ use of brokerage windows. According to Vanguard, for example, at year-end 2022, 20% of the plans for which Vanguard serves as recordkeeper had a self-directed brokerage option. That result was unchanged from the previous year, before the DOL issued the CAR.

Several factors could explain the lack of immediate response to the CAR. First, the amount of assets in brokerage windows is small: just 1% of Vanguard plan participants’ assets at year-end for both 2021 and 2022, and other recordkeepers also report low-single-digit results.

Second, ForUsAll is the sole 401(k) provider to offer a dedicated cryptocurrency window. Plan participants with unrestricted windows at other recordkeepers could be investing in cryptocurrency via exchange-traded funds, for instance, but because there is no clearly defined asset class, recordkeepers cannot simply run a search to identify participants’ crypto holdings, Rouse notes.

A final factor could be the belief that the CAR does not align with past DOL guidance and the hope that it will be either modified or withdrawn. Per the trade associations’ letter: “At a minimum, it is critical that the [CAR’s] announcement of a new fiduciary standard with respect to brokerage windows be withdrawn.”

 

How Plan Sponsors Make Sure Their QDIA Is Still the Best Option

Large plan sponsors explain what they look for in quarterly reviews of their plans' qualified default investment alternatives.

Plan sponsors Dawn Foods Inc. and the Southwest Airlines Pilots Association use different qualified default investment alternatives for their 401(k) plans, but they share several of the same practices to make sure they are looking out for their participants.  

Employers review the defined contribution plan default regularly, performing quarterly examinations to fulfill their fiduciary duty under the Employee Retirement Income Security Act.  

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The Southwest Airlines Pilots Association reviews the performance of target-date funds used as the default in its 401(k) plan quarterly, both with its 401(k) plan committee and with an outside consultant, explains Mike Haynes, director of retirement at the Dallas-based union.

“We look at the performance of other target-dates relative to our target-dates as part of our due diligence, not only for the investments, but also for the QDIA,” Haynes says. “We compare them with the Vanguard target-dates on a regular basis, because when we selected our QDIA initially and our target-dates, it came down [to a choice] between American Funds and Vanguard, so we continue to monitor to make sure that that was a prudent decision, and it has been since 2016.”

As of July 26, the Southwest Pilots 401(k) plan held about $8.7 billion of participant retirement assets, with about $3 billion in the plan default, Capital Group’s American Funds target-date funds R6 share class, he says.

Plan fiduciaries also review the default option because it is a critical fiduciary duty to satisfy “the required due diligence for monitoring investment funds within the plan,” says Haynes.

Dawn Foods uses Empower Retirement-managed accounts as its QDIA, says Brian Coleman, vice president of total rewards at the Jackson, Michigan-based company. Participants at American Fidelity Assurance Co. are defaulted into Vanguard target-date funds, says Shawn Adams, vice president and human resources director at the Oklahoma City-based company. 

Each of the plan sponsors has used the support of an outside partner to review the default investment offerings. Dawn’s default is reviewed by its investment adviser, UBS; Southwest Airlines Pilots’ default is reviewed by plan consultant Callan LLC; and American Fidelity Assurance Co.’s default is reviewed by investment adviser Cerity Partners, according to representatives for each plan sponsor. 

Quarterly Default Reviews

Cerity reviews American Fidelity’s investments and plan default each quarter, grading “all of our investment options,” says Adams. The review is presented to the retirement committee by the plan sponsor’s investment adviser.

“The retirement committee is made up of senior people throughout the organization,” says Adams, who chairs the committee. “We have representation from our legal department [and] from different affiliates that are also part of the retirement plan.”

When plan sponsor default investments are reviewed, auditing must delve deep, because “RFPs don’t get to where you need to go,” in terms of fiduciary duty, Coleman explains. 

At Dawn, several key aspects of the default investments are reviewed: fund fees, performance net of fees, fund management, any changes to portfolio managers, investment objectives, strategies and additions, and subtractions or alterations each quarter.

Funds with lower returns compared to peers or that are deemed to have deviated from the plan sponsor’s investment strategy are placed on a watch list, he explains.   

After the review, the plan sponsor investigates why a fund underperformed and if lower returns are expected to be temporary or lasting, adds Haynes.

“Is it [because of] a managerial change? Is it something that’s [temporary]? Then we’ll watch [funds] for one quarter [or] two quarters and make a decision if we move forward,” Haynes says. “In some cases, it’s the fund is doing OK, but they went on watch because they changed management teams.”

American Fidelity Assurance Co. reviews the plans’ default investments for many of the same aspects as Dawn: “It’s a pretty extensive list,” Adams says.

At Southwest Pilots, the reviews during quarterly audits are similar, but the plan sponsor also relies on its consultant, says Haynes: “Some of the underlying holdings of the target-date funds we do review, because there’s different glide paths associated with the various vintages, [because] in the older vintages, they are more conservative, and so we do a dive into that area as well.”

He referenced specific TDF series—2025 and lower number vintages—for review in which participants are “actually very close to retirement or in retirement,” he says. “We do look at the underlying components of the target dates, [because] some of those individuals were defaulted” to TDFs early in their careers.

QDIA Comparison

Plan sponsors must compare their default investments based on the performance of products provided by competitor fund families or asset managers and what peer plan sponsors have selected, the plan sponsors agree.

Dawn Foods compares the plan and the default to similarly sized plans, developing a clearer understanding of performance against its peer group, says Coleman.

“How are you going to do your fiduciary responsibility without looking at [plans] of like size [and] what are their costs?” asks Coleman. Questions like, “How the plan is doing and what are the actual costs to each plan and how do they compare to the marketplace?” are critical.

At Southwest Pilots, the default investment offering is reviewed for the performance of underlying funds inside the target-date funds, measuring the TDF returns against competitors and other plans, explains Haynes.

Southwest compares the default funds’ risk-adjusted returns—the Sharpe Ratio—to peer funds over long-term time horizons because retirement planning is a long-term investment, adds Haynes.

“When we look at it, we don’t look at near-term returns; we look at, typically, five [years], seven or longer on the return history,” he says.

Examining returns without considering the effect of fees will create a blurred picture for plan sponsors, adds Haynes.

“We do look at look at costs [closely]: We look at costs on our investments and we look at costs on our target-date funds, but we have to remember that performance is net of costs, so you can’t strictly look at cost, because if you did, you would make the incorrect decision,” Haynes explains. “[Instead], you have to look at the net effect … that is a critical factor.”

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