Pension Neutrality: Idaho

Analysis of Idaho's policies

Idaho's pension system is based on a benefit formula that is not neutral, meaning that each year of work does not accrue pension wealth in a uniform way until teachers reach conventional retirement age, such as that associated with Social Security.

Teachers' retirement wealth is determined by their monthly payments and the length of time they expect to receive those payments. Monthly payments are usually calculated as final average salary multiplied by years of service multiplied by a set multiplier (such as 1.5). Higher salary, more years of service or a greater multiplier increases monthly payments and results in greater pension wealth. Earlier retirement eligibility with unreduced benefits also increases pension wealth, because more payments will be received. 

To qualify as neutral, a pension formula must utilize a constant benefit multiplier and an eligibility timetable based solely on age, rather than years of service. Basing eligibility for retirement on years of service creates unnecessary and often unfair peaks in pension wealth, while allowing unreduced retirement at a young age creates incentives to retire early. Plans that change their multipliers for various years of service do not value each year of teaching equally. Therefore, plans with a constant multiplier and that base retirement on an age in line with Social Security are likely to create the most uniform accrual of wealth.

Idaho's pension plan is commended for utilizing a constant benefit multiplier of 2 percent; however, teachers may retire before standard retirement age based on years of service without a reduction in benefits. Teachers may retire when they qualify for the "Rule of 90," meaning their age plus years of service equal 90, while other vested teachers may not retire until age 65. Therefore, teachers who begin their careers at age 22 can reach the "Rule of 90" with 34 years of service by age 56, entitling them to nine additional years of unreduced retirement benefits beyond what other teachers would receive who may not retire until age 65. These provisions may encourage effective teachers to retire early, and they fail to treat equally those teachers who enter the system at a later age and give the same amount of service.

Citation

Public Employee Retirement System of Idaho Member Handbook, July 2010 http://www.persi.state.id.us/handbook/PERSI_Member_Handbook.pdf

Recommendations for Idaho

End retirement eligibility based on years of service.
Idaho should change its practice of allowing teachers whose age plus years of service equal 90 to retire early with full benefits. If retirement at an earlier age is offered to some teachers, benefits should be reduced accordingly to compensate for the longer duration they will be awarded.

Align eligibility for retirement with unreduced benefits with Social Security retirement age.
Idaho allows all teachers to retire before conventional retirement age, some as young as 56. As life expectancies continue to increase, teachers may draw out of the system for many more years than they contributed. This is not compatible with a financially sustainable system (see Goal 4-H).

State response to our analysis

Idaho asserted: "The recommendation is inconsistent with previous recommendations. Previously NCTQ recommended the system should be portable to allow teachers flexibility to freely move. If an individual were to have a portable pension tool (defined contribution plan (401K)) and started employment later in his life, he would most likely not accrue an equal nest-egg to the individual who began employment (and participation) earlier. If a teacher provides the same amount of service (all other issues being equal) he would receive the same benefit." Idaho also stated that "actuarial assumption address[es] the issues NCTQ points out."

Last word

An individual that began employment and participation earlier in life would most likely accrue a greater benefit regardless of the type of retirement system in which he participated. A teacher that provides the same amount of service but is able to retire at an earlier age will, on average, receive greater pension benefits because he will receive them over a longer period of time.