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1. Surviving Spouse Benefit for Non Line of Duty Death — Under Tier 1 benefits, surviving spouses
of police and fire pension participants were entitled to 54% of final average salary, and if the
employee passes away before they are vested, the spouse is still eligible for 54% of the salary
at the time of death. When Tier 2 was enacted, Tier 2 spouses became entitled to two-thirds of
the pension the deceased was entitled to at time of death, and therefore no pension benefit if
the employee has not worked at least 10 years. This change is of particular concern, and
unique to, first responders. To ensure surviving spouses are entitled to some benefit in the
event of a tragic pre-mature death of a first responder, the Task Force recommends the Tier 1
surviving spouse benefits be reinstated for Tier 2 police officers and firefighters.
2. Pensionable Salary Cap — Due to the aforementioned federal safe harbor concerns, for
downstate and suburban police and fire employees the Task Force recommends increasing the
pensionable salary cap growth (since the enactment of Tier 2 in 2011) from the current lesser
of one-half the Consumer Price Index (CPI-U) or 3%, to the lesser of CPI-U or 3%. This will
attempt to ensure the pensionable salary cap grows quickly enough to avoid non-compliance
with the federal safe harbor provision.
3. Final Average Salary — Currently under Tier 2, pension benefits are calculated based on the
average of the highest 8 of the last 10 years of a member’s service. Because of the physical
demands of the job for first responders, their years of service tend to be more abbreviated
than other public-sector occupations. With this concern and the aforementioned safe harbor
concerns, the Task Force recommends police officers’ and firefighters’ benefits be calculated
instead on the average of the highest 4 of the last 5 years of a member’s service.
While the fixes to Tier 2 benefits for suburban and downstate police and fire plans will have some
associated cost, that cost is minimal in proportion to the improved investment returns resulting from
consolidation. On average and over a five-year period, the recommended fixes to Tier 2 benefits are
estimated to offset between $70 and $95 million of the $820 million to $2.5 billion (3-9%) in investment
return gains, and avoids a potential and costly safe harbor violation.
Recommendation, Step 2: Review consolidation of suburban/downstate
police & fire pension plan benefit administration; review of other state
and local plans to determine advantages of consolidation
While much of the focus of the Task Force’s initial recommendations have been on the advantages to
consolidating assets of suburban and downstate police and fire pension plans, there also may be
advantages to the consolidation of the benefit administration of these plans as well. The Task Force
does recognize the latter may require a longer discussion with those affected by such a change,
particularly the members of the plans themselves. At $26 billion in actuarial accrued liabilities, as of
fiscal year 2017, across these suburban and downstate plans, the stakes are high, both for the financial
resources of the plans and taxpayers, and for the life-altering decisions in awarding members certain
benefits. With many of these plans in dire financial positions, and with an average funded level of only
55%, both components of assets and liabilities need a thorough review.
The more decentralized the structure is for benefit administration, the greater the cost becomes to
administer those benefits, but with perhaps more nuanced information guiding the prevailing decision
to offer certain benefits in unique cases. As mentioned prior in this report, the trade-offs for this nuance
entail administrative duplication (e.g. accounting, legal services, auditing, actuarial, training, association
fees, travel, etc.) and a lack of consistency in decision-making among funds, associated with having 649