Actuarial Fiscal Note

Date Requested:January 11, 2023
Time Requested:08:20 PM
Agency: Consolidated Public Retirement Board
CBD Number: Version: Bill Number: Resolution Number:
1857 Introduced HB2026
CBD Subject: Retirement

Retirement Systems Impacted by Legislation:

PERS 2501 and MPFRS 2390

FUND(S):

Other Fund

Sources of Revenue:

Local Governments Creates New Expense

Legislation creates:

PERS and MPFRS



Actuarial Note Summary

Impact this measure will have on the liabilities and contributions associated with the retirement system(s).


    HB 2026 would allow PERS police officers to transfer from PERS to MPFRS. There are currently 267 PERS members that are police officers and HB 2026 would give these members the option to transfer all their PERS service to MPFRS.
    
    We assume all 267 PERS members that are police officers would elect to transfer all their service from PERS to MPFRS and based on the transfer calculation outlined in ยง8-22A-33b, as of July 1, 2022, the estimated assets that would transfer from PERS to MPFRS is $28.7 million. The actual assets that would transfer from PERS to MPFRS depend on the PERS market value of assets, the PERS active and inactive actuarial accrued liability, and the PERS actuarial accrued liability for the transferring police officers, all quantities measured as of July 1, 2022.
    
    Measured as of July 1, 2022, the estimated PERS actuarial accrued liability for the 267 police officers is $30.2 million. Therefore, as of July 1, 2022, HB 2026 would decrease the PERS Unfunded Actuarial Accrued Liability (based on market value of assets) by about $1.5 million ($30.2 million โ€“ $28.7 million) The impact from HB 2026 on the PERS employer Normal Cost and the PERS Unfunded Actuarial Accrued Liability is immaterial.
    
    It is important to note that the estimated asset transfer amount is based on PERS liabilities, calculated as of July 1, 2022, using the data, assumptions, and plan provisions from the July 1, 2022 funding valuation for PERS. Moreover, the PERS market value of assets, as of July 1, 2022, is provided by the West Virginia Investment Management Board (WVIMB). The actual assets transferred in the future from PERS to MPFRS may be different from the estimated asset transfer amount.
    
    Measured as of July 1, 2022, the estimated MPFRS actuarial accrued liability for the 267 police officers is $40.4 million. This liability was calculated as of July 1, 2022, using the data, assumptions, and plan provisions from the July 1, 2022 funding valuation for MPFRS. The results will change if the liabilities are calculated at a different date in the future.
    
    Therefore, as of July 1, 2022, the Unfunded Actuarial Accrued Liability for MPFRS would increase by approximately $11.7 million ($40.4 million โ€“ $28.7 million) because of the 267 police officers transferring from PERS to MPFRS. Amortizing this amount over 10 years on a level dollar basis would increase the annual MPFRS amortization of the Unfunded Actuarial Accrued Liability by about $1.6 million or 3.27% of MPFRS payroll (including transfers). Moreover, HB 2026 would increase the MPFRS employer normal cost by about $630,000 per year, or 1.29% of MPFRS payroll (including transfers). Therefore, the total MPFRS annual required employer contribution would increase by approximately $2.23 million or 4.56% of MPFRS payroll (including transfers).
    
    For fiscal 2024, the current MPFRS employer contribution rate of 8.5% of payroll and the current MPFRS employee contribution rate of 8.5% of payroll are not expected to change as result of HB 2026, however, as of July 1, 2022, the funded percent of MPFRS would change from 140.05% to about 93.50% as a result of HB 2026. In the future if there are experience losses, then HB 2026 could lead to an increase in the MPFRS employer contribution rate above the current level of 8.5% of payroll.
    



Fiscal Detail of Actuarial Impact

Impact on current benefit costs, prior service benefit costs and ongoing contribution requirements following full implementation.


Impact On Following Full Implementation
Increase in Unfunded Actuarial Accrued Liability Initial Impact on Annual Contribution Requirement of System(s) Contribution Increase as a Percentage of Annual Payroll
Total Annual Costs $11,700,000.00 $2,230,000.00 4.56 %
Normal Cost of System N/A $630,000.00 1.29 %
Past Service Liabilities $11,700,000.00 $1,600,000.00 3.27 %
Fiscal Year Past Service
Amortization Period Ends
N/A 2032 N/A


Explanation of above Actuarial estimates:


    The impact from HB 2026 on the PERS employer Normal Cost and the PERS Unfunded Actuarial Accrued Liability is immaterial.
    
    As of July 1, 2022, the Unfunded Actuarial Accrued Liability for MPFRS would increase by approximately $11.7 million ($40.4 million โ€“ $28.7 million) because of the 267 police officers transferring from PERS to MPFRS. Amortizing this amount over 10 years on a level dollar basis would increase the annual MPFRS amortization of the Unfunded Actuarial Accrued Liability by about $1.6 million or 3.27% of MPFRS payroll (including transfers). Moreover, HB 2026 would increase the MPFRS employer normal cost by about $630,000 per year, or 1.29% of MPFRS payroll (including transfers). Therefore, the total MPFRS annual required employer contribution would increase by approximately $2.23 million or 4.56% of MPFRS payroll (including transfers).
    
    For fiscal 2024, the current MPFRS employer contribution rate of 8.5% of payroll and the current MPFRS employee contribution rate of 8.5% of payroll are not expected to change as result of HB 2026, however, as of July 1, 2022, the funded percent of MPFRS would change from 140.05% to about 93.50% as a result of HB 2026.
    
    However, these cost estimates are based on an expected path, where all plan assumptions are met in the future, with no gains or losses. In the future if there are experience losses, then HB 2026 could lead to an increase in the MPFRS employer contribution rate above the current level of 8.5% of payroll.
    
    Future actuarial measurements may differ significantly from the current measurements shown in this actuarial/fiscal note due to plan experience differing from that anticipated by the economic and demographic assumptions, changes expected as part of the natural operation of the methodology used for these measurements, and changes in plan provisions, applicable law, and regulations.
    

Analysis of Impact on Public Pension Policy:


    All costs associated with this legislation are based on the July 1, 2022, Actuarial Funding Valuations for PERS and MPFRS and assume that all relevant assumptions will be met in all future years. If those assumptions are not met, costs could fluctuate resulting in a potential increase or decrease in costs.
    
    If all 267 PERS police officers transfer to MPFRS, the experience of this transferring group may be different from the current active population of MPFRS, which could lead to gains or losses in the future for the group of 267 police officers assumed to join MPFRS. In the future if there are experience losses, then HB 2026 could lead to an increase in the MPFRS employer contribution rate above the current level of 8.5% of payroll.
    



Fiscal Note Summary


Effect this measure will have on costs and revenues of state government.


    The impact from HB 2026 on the PERS employer Normal Cost and the PERS Unfunded Actuarial Accrued Liability is immaterial.
    
    MPFRS consists of local municipalities and does not cover any state employees. For fiscal 2024, funding for MPFRS is through member contributions of 8.50% of payroll and employer contributions of 8.50% of payroll. In the future if there are experience losses, then HB 2026 could lead to an increase in the employer contribution rate above the current level of 8.5% of payroll.
    
    MPFRS does not impact the costs or revenues of state government.
    



Fiscal Note Detail


Effect of Proposal Fiscal Year
2023
Increase/Decrease
(use"-")
2024
Increase/Decrease
(use"-")
Fiscal Year
(Upon Full
Implementation)
1. Estmated Total Cost 0 25,000 0
Personal Services 0 0 0
Current Expenses 0 25,000 0
Repairs and Alterations 0 0 0
Assets 0 0 0
Other 0 0 0
2. Estimated Total Revenues 0 0 0


Explanation of above Fiscal Note estimates (include possible long-range effect):


    The impact from HB 2026 on the PERS employer Normal Cost and the PERS Unfunded Actuarial Accrued Liability is immaterial.
    
    MPFRS consists of local municipalities and does not cover any state employees. Funding for MPFRS is through member contributions of 8.50% of payroll and employer contributions of 8.50% of payroll. In the future if there are experience losses, then HB 2026 could lead to an increase in the employer contribution rate above the current level of 8.5% of payroll.
    
    MPFRS does not impact the costs or revenues of state government. However, additional costs of approximately $25,000 would be incurred by the CPRB in making the required changes to the computer software used to administer pension benefits. The bill does not provide a source of funding for this additional cost.
    



Memorandum


    This Actuarial/Fiscal Note is being submitted by the Consolidated Public Retirement Board. It has been reviewed by the CPRB Actuary. Both the Board and the CPRB Actuary are available upon request for questions.
    
    For the appropriate actuarial disclosures, see the July 1, 2022, funding valuation reports for PERS and MPFRS, expected to be published on March 31, 2023.
    
    In particular, future actuarial measurements may differ significantly from current measurements due to System experience differing from that anticipated by the economic and demographic assumptions, changes expected as part of the natural operation of the methodology used for these measurements, and changes in system provisions or applicable law or regulations.
    
    Regarding Actuarial Standards of Practice 51, the risk assessment for MPFRS may be affected by allowing PERS police officers to transfer to MPFRS to the extent that the higher contributions necessitated by permitting the PERS police officers to transfer to MPFRS may not be covered.
    
    Kenneth Woodson Jr., the CPRB Board Actuary, is a Fellow of the Society of Actuaries and a Member of the American Academy of Actuaries. He meets the Qualification Standards of the American Academy of Actuaries to render the actuarial opinions contained in this Actuarial/Fiscal Note.
    



    Person submitting Fiscal Note: Kenneth M. Woodson Jr.
    Email Address: kenneth.m.woodson@wv.gov