Both government employers and employees generally make contributions  to fund state and local pension benefits. The excess of actuarial accrued liabilities  over the actuarial value of assets is referred to as the “unfunded actuarial  accrued liability” or “unfunded liability.” Under accounting standards,  such information is disclosed in financial statements. Federal law generally does not require  state and local governments to prefund or report on the funded status of  pension plans. State And Local Government Pension Plans Typically Include A Defined Benefit Plan And A Supplemental Voluntary Savings Plan And Laws Protect Benefits

State and local governments typically provide their employees with  retirement benefits that include a defined benefit plan and a supplemental  defined contribution plan for voluntary savings. Statutes and local  ordinances protect and manage pension plans and are often anchored by  provisions in state constitutions and local charters. About 90 percent of full-time state and local  employees participated in defined benefit plans as of 1998. 1.) We found that  defined benefit plans were still prevalent for most of these other state and  local employees as well. Provisions in state constitutions often protect pensions from being  eliminated or diminished. The majority of states have some form of constitutional protection for  their pensions. Pensions Are Typically Managed as Trust Funds with Board Oversight

In accordance with state constitution and/or statute, the assets of state  and local government pension plans are typically managed as trusts and  overseen by boards of trustees to ensure that the assets are used for the  sole purpose of meeting retirement system obligations and that the plans  are in compliance with the federal tax code. 2.) Most Public Pensions Have Assets To Pay Benefits Over Several Decades, But Contributions Vary

Currently, most state and local government pension plans have enough  invested resources set aside to pay for the benefits they are scheduled to  pay over the next several decades. Many experts consider a funded ratio of  about 80 percent or better to be sound for state and local government  pensions. While most plans’ funding may be sound, a few plans have  persistently reported low funded ratios, which will eventually require the  government employer to improve funding, for example, by reducing  benefits or by increasing contributions. Even for many plans with lower  funded ratios, benefits are generally not at risk in the near term because  current assets and new contributions may be sufficient to pay benefits for  several years. Still, many governments have often contributed less than the  amount need to improve or maintain funded ratios. Low contributions  raise concerns about the future funded status, and may shift costs to  future generations. Many experts and officials to  whom we spoke consider a funded ratio of 80 percent to be sufficient for  public plans for a couple of reasons.
Why GAO Did This Study

Millions of state and local government employees are promised pension benefits when they retire. Although these benefits are not subject, for the most part, to federal laws governing private sector benefits, there is a federal interest in ensuring that all American have a secure retirement, as reflected in the special tax treatment provided for private and public pension funds. Recently, new accounting standards have called for the reporting of liabilities for future retiree health benefits. It is unclear what actions state and local governments may take once the extent of these liabilities become clear but such anticipated fiscal and economic challenges have raised questions about the unfunded liabilities for state and local retiree benefits, including pension benefits. GAO was asked to report on (1) the current structure of state and local government pension plans and how pension benefits are protected and managed, and (2) the current funded status of state and local government pension plans. GAO spoke to a wide range of public experts and officials from various federal and nongovernmental entities, made several site visits and gathered detailed information about state benefits, and analyzed self-reported data on the funded status of state and local pension plans from the Public Fund Survey and Public Pension Coordinating Council.

What GAO Found

State and local entities typically provide pension plans with defined benefits and a supplemental defined contribution plan for voluntary savings. Most states still have traditional defined benefit plans as the primary retirement plans for their workers. However, a couple of states have adopted defined contribution and other plans as their primary plan. State and local entities typically offer tax-deferred supplemental voluntary plans to encourage workers to save. State statutes and local ordinances protect and manage pension benefit and often include explicit protections, such as provisions stating that pensions promised to public employees cannot be eliminated or diminished. In addition, state constitutions and/or statutes often require pension plans to be managed as trust funds and overseen by boards of trustees. Most state and local government pension plans have enough invested resources set aside to fund the benefits they are scheduled to pay over the next several decades. Many experts consider a funded ratio (actuarial value of assets divided by actuarial accrued liabilities) of about 80 percent or better to be sound for government pensions. We found that 58 percent of 65 large pension plans were funded to that level in 2006, a decrease since 2000 when about 90 percent of plans were so funded. Low funded ratios would eventually require the government employer to improve funding, for example, by reducing benefits or by increasing contributions. However, pension benefits are generally not at risk in the near term because current assets and new contributions may be sufficient to pay benefits for several years. Still, many governments have often contributed less than the amount needed to improve or maintain funded ratios. Low contributions raise concerns about the future funded status.