Distributions From a Pension Plan Upon Attainment of Normal Retirement Age, 28604-28607 [E7-9643]
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28604
Federal Register / Vol. 72, No. 98 / Tuesday, May 22, 2007 / Rules and Regulations
DEPARTMENT OF THE TREASURY
Internal Revenue Service
26 CFR Part 1
[TD 9325]
RIN 1545–BD23
Distributions From a Pension Plan
Upon Attainment of Normal Retirement
Age
Internal Revenue Service (IRS),
Treasury.
ACTION: Final regulations.
AGENCY:
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SUMMARY: This document contains final
regulations under sections 401(a) and
411(d)(6) of the Internal Revenue Code.
These regulations provide rules
permitting distributions to be made
from a pension plan upon the
attainment of normal retirement age
prior to a participant’s severance from
employment with the employer
maintaining the plan. These regulations
provide the public with guidance
regarding distributions from qualified
pension plans and will affect
administrators of, and participants in,
such plans.
DATES: Effective Date: These regulations
are effective May 22, 2007.
Applicability Dates: These regulations
are generally applicable May 22, 2007.
For dates of applicability, see
§§ 1.401(a)–1(b)(4) and 1.411(d)–4, A–
12(a).
FOR FURTHER INFORMATION CONTACT:
Cathy A. Vohs at (202) 622–6090 or
Janet A. Laufer at (202) 622–6080 (not
a toll-free number).
SUPPLEMENTARY INFORMATION:
Background
Section 401(a) sets forth the
qualification requirements for a trust
forming part of a stock bonus, pension,
or profit-sharing plan of an employer.
Several of these qualification
requirements are based on a plan’s
normal retirement age. Section 411(a)(8)
defines the term ‘‘normal retirement
age’’ as the earlier of (a) the time a
participant attains normal retirement
age under the plan or (b) the later of the
time a plan participant attains age 65 or
the 5th anniversary of the time a plan
participant commenced participation in
the plan.
The definition of normal retirement
age is important in applying the rules
under section 411(b) which are designed
to preclude avoidance of the minimum
vesting standards through the
backloading of benefits (for example, a
benefit formula under which the rate of
benefit accrual is increased
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disproportionately for employees with
longer service) because those rules are
based on the benefit payable at normal
retirement age. Normal retirement age is
also relevant for applying the rules
relating to suspension of benefits under
section 411(a)(3)(B) and the rules under
section 411(b)(1)(H)(iii) that permit a
plan to offset accruals after normal
retirement age by either the actuarial
value of distributions made after normal
retirement age or the actuarial value of
increases in the benefits due to delay in
payment. Normal retirement age is also
used in determining the minimum
benefit for non-key employees in the
case of a top-heavy defined benefit plan.
See section 416(c)(1)(A) and (E). Also,
the vesting requirements of sections
401(a)(7) and 411 are based upon
normal retirement age.
Section 411(d)(6) generally prohibits a
qualified plan from being amended to
reduce a participant’s accrued benefit
and, for this purpose, an elimination or
reduction of an early retirement benefit
or a retirement-type subsidy, or an
elimination of an optional form of
benefit, is treated as a reduction in the
accrued benefit. The Secretary has the
authority under section 411(d)(6) to
allow amendments that eliminate an
optional form of benefit.
Section 401(a) permits three types of
plans to qualify under section 401(a):
Stock bonus, pension, and profit-sharing
plans. Section 1.401–1(a)(2)(i) and
(b)(1)(i) of the Income Tax Regulations
interprets what it means to be a
‘‘pension plan,’’ and has done so since
the publication of those regulations as
TD 6203 (1956–2 CB 219) (see
§ 601.601(d)(2)(ii)(b)). These regulations
(the 1956 regulations) provide that a
qualified plan under section 401(a) is a
program and arrangement which is
established and maintained by an
employer ‘‘in the case of a pension plan,
to provide for the livelihood of the
employees or their beneficiaries after
the retirement of such employees
through the payment of benefits
determined without regard to profits.’’ 1
The 1956 regulations defining a
qualified pension plan further provide
that a pension plan must be ‘‘a plan
established and maintained by an
employer primarily to provide
systematically for the payment of
definitely determinable benefits to his
employees over a period of years,
usually for life, after retirement.’’
1 This rule is limited to a pension plan, which is
either a defined benefit plan or a defined
contribution plan that is not a stock bonus or profitsharing plan (generally referred to as a money
purchase pension plan). Other rules apply to stock
bonus plans and profit-sharing plans.
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Following the enactment of the
Employee Retirement Income Security
Act of 1974 (ERISA), 93 Public Law 406
(88 Stat. 829), the regulations under
section 401(a) were modified to provide
that the 1956 regulations continued to
apply, except as otherwise provided.
See § 1.401(a)–1(b)(1)(i) and (ii).
Accordingly, a pension plan is generally
not permitted to pay benefits before
retirement. See also Rev. Rul. 56–693
(1956–2 CB 282), as modified by Rev.
Rul. 60–323 (1960–2 CB 148) (see
§ 601.601(d)(2)(ii)(b)).
Rev. Rul. 71–24 (1971–1 CB 114) (see
§ 601.601(d)(2)(ii)(b)) provides guidance
for the treatment of benefits under a
pension plan for employees who
continue employment after normal
retirement age. Rev. Rul. 71–24 includes
an example that indicates that benefits
are permitted to commence during
employment after normal retirement
age.
Rev. Rul. 71–147 (1971–1 CB 116) (see
§ 601.601(d)(2)(ii)(b)) provides that the
normal retirement age in a pension or
annuity plan is generally the lowest age
specified in the plan at which the
employee has the right to retire without
the consent of the employer and receive
retirement benefits based on the amount
of the employee’s service on the date of
retirement at the full rate set forth in the
plan (that is, without actuarial or similar
reduction because of retirement before
some later specified age). While
ordinarily the normal retirement age
under pension and annuity plans is age
65, Rev. Rul. 71–147 permitted a
different age to be specified, but an age
lower than 65 was permitted only if the
age represented the age at which
employees customarily retire in the
particular company or industry, and
was not a device to accelerate funding.
Following the enactment of section
411(a)(8) (defining normal retirement
age as described earlier in this
preamble) under ERISA, Rev. Rul. 71–
147 was modified by Rev. Rul. 78–120
(1978–1 CB 117) (see
§ 601.601(d)(2)(ii)(b)). Under Rev. Rul.
78–120, for purposes of section 411, a
pension plan is permitted to have a
normal retirement age lower than age
65, regardless of the age at which
employees customarily retire in the
particular company or industry.
Section 401(a)(36), added by section
905(b) of the Pension Protection Act of
2006, Public Law 109–280 (120 Stat.
780) (PPA ’06), provides that a trust
forming part of a pension plan is not
treated as failing to constitute a
qualified trust under section 401(a)
solely because the plan provides that a
distribution may be made from such
trust to an employee who has attained
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age 62 and who is not separated from
employment at the time of such
distribution. Section 401(a)(36) applies
to distributions in plan years beginning
after December 31, 2006.
On November 10, 2004, a notice of
proposed rulemaking (REG–114726–04)
under section 401 was published in the
Federal Register (69 FR 65108) (the
proposed regulations). The proposed
regulations would have allowed inservice distributions after normal
retirement age, but would not have
permitted a normal retirement age to be
set so low as to be a subterfuge to avoid
qualification requirements. The
proposed regulations would also have
permitted in-service distributions before
normal retirement age under a bona fide
phased retirement program.
On March 14, 2005, the IRS held a
public hearing on the proposed
regulations. Written comments
responding to the notice of proposed
rulemaking were also received. In light
of the enactment of section 401(a)(36) by
PPA ’06, only portions of the proposed
regulations are being finalized at this
time. The IRS recently issued a notice
requesting comments as to whether the
portions of the proposed regulations
relating to in-service distributions
pursuant to a bona fide phased
retirement program should be finalized.
See Notice 2007–8 (2007–3 IRB 276)
(see § 601.601(d)(2)(ii)(b)). The portions
of the proposed regulations relating to
normal retirement age and in-service
distribution upon attainment of normal
retirement age are being finalized by
this Treasury Decision. The significant
revisions to the proposed regulations are
discussed in this preamble.
Explanation of Provisions and
Summary of Comments
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I. Overview
This Treasury Decision modifies
existing regulations, including the
regulations at § 1.401(a)–1 which
generally require a pension plan to be
maintained primarily to provide
systematically for the payment of
definitely determinable benefits after
retirement. These regulations provide
two exceptions to this rule. First, they
clarify that a pension plan is permitted
to commence payment of retirement
benefits to a participant after the
participant has attained normal
retirement age. The regulations also
provide rules on how low a plan’s
normal retirement age is permitted to be
and include a related exception to the
anti-cutback rules of section 411(d)(6) to
allow conforming amendments during a
transitional period. Second, the
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regulations reflect the provisions of new
section 401(a)(36).
II. Normal Retirement Age
A. In General
These regulations adopt the rule of
the proposed regulations under which a
pension plan (a defined benefit plan or
money purchase pension plan) is
permitted to pay benefits upon an
employee’s attainment of normal
retirement age, even if the employee has
not yet had a severance from
employment with the employer
maintaining the plan. Comments
generally supported the inclusion of this
rule as reflecting existing practice
among some pension plans, based on an
example in Rev. Rul. 71–24.
These regulations also include rules
restricting a plan’s normal retirement
age. The proposed regulations would
have provided that a plan’s normal
retirement age could not be set so low
as to be a subterfuge to avoid the
requirements of section 401(a), and,
accordingly, normal retirement age
could not be earlier than the earliest age
that is reasonably representative of a
typical retirement age for the covered
workforce.2 Some comments expressed
concern about the specifics of this rule,
including concern about how it might
be applied in various circumstances,
and suggested that the regulations
contain a safe harbor for which there
would be no need for a demonstration
of the typical retirement age for the
covered workforce.
These final regulations modify the
proposed regulations to replace the
subterfuge standard with a requirement
that the normal retirement age under a
plan be an age that is not earlier than
the earliest age that is reasonably
representative of the typical retirement
age for the industry in which the
covered workforce is employed. To
address comments about the need for a
safe harbor age, these regulations
provide that a normal retirement age of
at least age 62 is deemed to be not
earlier than the typical retirement age
for the industry in which the covered
workforce is employed. Thus, a plan
satisfies this safe harbor if its normal
retirement age is age 62, or if its normal
retirement age is the later of age 62 or
another specified date, such as the later
of age 62 or the fifth anniversary of plan
participation. However, a plan that is
subject to section 411 cannot provide for
2 The preamble to the proposed regulations noted
that, while a low normal retirement age may have
a significant cost effect on a traditional defined
benefit plan, this effect is not as significant for
defined contribution plans or for certain hybrid
defined benefit plans.
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a normal retirement age that is later than
the later of the time the participant
attains age 65 or the fifth anniversary of
the time the participant commenced
participation in the plan. See section
411(a)(8)(B).
If a plan’s normal retirement age is
earlier than age 62, the determination of
whether the age is not earlier than the
earliest age that is reasonably
representative of the typical retirement
age for the industry in which the
covered workforce is employed is based
on all of the relevant facts and
circumstances. If the normal retirement
age is between ages 55 and 62, then it
is generally expected that a good faith
determination of the typical retirement
age for the industry in which the
covered workforce is employed that is
made by the employer (or, in the case
of a multiemployer plan, made by the
trustees) will be given deference,
assuming that the determination is
reasonable under the facts and
circumstances. However, a normal
retirement age that is lower than age 55
is presumed to be earlier than the
earliest age that is reasonably
representative of the typical retirement
age for the industry of the relevant
covered workforce absent facts and
circumstances that demonstrate
otherwise to the Commissioner.
In the case of a plan where
substantially all of the participants in
the plan are qualified public safety
employees (within the meaning of
section 72(t)(10)(B), as added by section
828 of PPA ’06), a normal retirement age
of age 50 or later is deemed not to be
earlier than the earliest age that is
reasonably representative of the typical
retirement age for the industry in which
the covered workforce is employed.
Under section 72(t)(10)(B), a qualified
public safety employee means any
employee of a State or political
subdivision of a State who provides
police protection, firefighting services,
or emergency medical services for any
area within the jurisdiction of such
State or political subdivision.
B. Section 411(d)(6) Relief
These regulations include an
amendment to the existing regulations
under section 411(d)(6) to permit a plan
to be amended during a transition
period to conform to the rules
concerning normal retirement age. Thus,
a plan amendment that changes the
normal retirement age under the plan to
a later normal retirement age (pursuant
to these regulations) does not violate
section 411(d)(6) merely because the
amendment eliminates a right to an inservice distribution prior to the
amended normal retirement age.
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However, this rule does not provide any
other relief. For example, this rule does
not permit the amendment to reduce
benefits in some other manner that fails
to satisfy section 411(d)(6). Neither does
the rule provide relief under section
411(a)(9) (requiring that the normal
retirement benefit not be less than the
greater of any early retirement benefit
payable under the plan or the benefit
under the plan commencing at normal
retirement age), section 411(a)(10) (if the
amendment changes the plan’s vesting
rules), or section 4980F (or section
204(h), the parallel provision of ERISA)
(relating to amendments that reduce the
rate of future benefit accrual). See also
Rev. Rul. 81–210 (1981–2 CB 89) (see
§ 601.601(d)(2)(ii)(b)). An example is
included to illustrate this rule.
Effective Dates
These regulations are generally
applicable May 22, 2007. In the case of
a governmental plan (as defined in
section 414(d)), these regulations apply
with respect to plan years beginning on
or after January 1, 2009. In the case of
a plan maintained pursuant to one or
more collective bargaining agreements
that have been ratified and are in effect
on May 22, 2007, these regulations do
not apply before the first plan year that
begins after the last of the agreements
terminates determined without regard to
any extension thereof (or, if earlier, May
24, 2010.
A provision of a plan that results in
the failure of the plan to satisfy
§ 1.401(a)–1(b)(2) or (3) is a
disqualifying provision described in
§ 1.401(b)–1(b)(3)(i). Therefore, the
remedial amendment period rules of
§ 1.401(b)–1 apply. For example, in the
case of a plan with a calendar plan year
that is maintained by an employer with
a calendar taxable year (and the plan is
not a governmental plan and is not
maintained pursuant to a collective
bargaining agreement), the plan’s
remedial amendment period with
respect to § 1.401(a)–1(b)(2) and (3) ends
on the date prescribed by law for the
filing of the employer’s income tax
return (including extensions) for the
2007 taxable year.
In the case of a plan amendment that
increases the plan’s normal retirement
age pursuant to this regulation, the
amendment may also eliminate a right
to an in-service distribution prior to the
normal retirement age under the plan as
amended without violating section
411(d)(6) if the amendment is adopted
after May 22, 2007 and on or before the
last day of the applicable remedial
amendment period under § 1.401(b)–1
with respect to the requirements of
§ 1.401(a)–1(b)(2) and (3). For purposes
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of section 1107 of PPA ’06, such an
amendment is not made pursuant to
PPA ’06 and is not made pursuant to
any regulation issued under PPA ’06.
Special Analyses
It has been determined that this
Treasury Decision is not a significant
regulatory action as defined in
Executive Order 12866. Therefore, a
regulatory assessment is not required. It
also has been determined that section
553(b) of the Administrative Procedure
Act (5 U.S.C. chapter 5) does not apply
to these regulations, and because the
regulation does not impose a collection
of information requirement upon small
entities, the Regulatory Flexibility Act
(5 U.S.C. chapter 6) does not apply.
Pursuant to section 7805(f) of the
Internal Revenue Code, the notice of
proposed rulemaking preceding these
regulations was submitted to the Small
Business Administration for comment
on its impact on small business.
Drafting Information
The principal authors of these
regulations are Christopher A. Crouch
(formerly of the Office of the Division
Counsel/Associate Chief Counsel (Tax
Exempt and Government Entities)),
Cathy A. Vohs and Janet A. Laufer of the
Office of the Division Counsel/Associate
Chief Counsel (Tax Exempt and
Government Entities). However, other
personnel from the IRS and Treasury
Department participated in their
development.
List of Subjects in 26 CFR Part 1
Income taxes, Reporting and
recordkeeping requirements.
Adoption of Amendments to the
Regulations
Accordingly, 26 CFR part 1 is
amended as follows:
I
PART 1—INCOME TAXES
Paragraph 1. The authority citation
for part 1 is amended by adding an entry
in numerical order to read in part as
follows:
I
Authority: 26 U.S.C. 7805 * * *
Section 1.401(a)–1 also issued under 26
U.S.C. 401. * * *
Par. 2. Section 1.401(a)–1 is amended
by:
I 1. Revising paragraph (b)(1)(i).
I 2. Adding paragraphs (b)(2), (b)(3),
and (b)(4).
I The additions and revision read as
follows:
I
§ 1.401(a)–1 Post-ERISA qualified plans
and qualified trusts; in general.
*
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*
*
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*
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*
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(b) * * *
(1) * * *
(i) In order for a pension plan to be
a qualified plan under section 401(a),
the plan must be established and
maintained by an employer primarily to
provide systematically for the payment
of definitely determinable benefits to its
employees over a period of years,
usually for life, after retirement or
attainment of normal retirement age
(subject to paragraph (b)(2) of this
section). A plan does not fail to satisfy
this paragraph (b)(1)(i) merely because
the plan provides, in accordance with
section 401(a)(36), that a distribution
may be made from the plan to an
employee who has attained age 62 and
who is not separated from employment
at the time of such distribution.
*
*
*
*
*
(2) Normal retirement age—(i)
General rule. The normal retirement age
under a plan must be an age that is not
earlier than the earliest age that is
reasonably representative of the typical
retirement age for the industry in which
the covered workforce is employed.
(ii) Age 62 safe harbor. A normal
retirement age under a plan that is age
62 or later is deemed to be not earlier
than the earliest age that is reasonably
representative of the typical retirement
age for the industry in which the
covered workforce is employed.
(iii) Age 55 to age 62. In the case of
a normal retirement age that is not
earlier than age 55 and is earlier than
age 62, whether the age is not earlier
than the earliest age that is reasonably
representative of the typical retirement
age for the industry in which the
covered workforce is employed is based
on all of the relevant facts and
circumstances.
(iv) Under age 55. A normal
retirement age that is lower than age 55
is presumed to be earlier than the
earliest age that is reasonably
representative of the typical retirement
age for the industry in which the
covered workforce is employed, unless
the Commissioner determines that
under the facts and circumstances the
normal retirement age is not earlier than
the earliest age that is reasonably
representative of the typical retirement
age for the industry in which the
covered workforce is employed.
(v) Age 50 safe harbor for qualified
public safety employees. A normal
retirement age under a plan that is age
50 or later is deemed to be not earlier
than the earliest age that is reasonably
representative of the typical retirement
age for the industry in which the
covered workforce is employed if
substantially all of the participants in
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the plan are qualified public safety
employees (within the meaning of
section 72(t)(10)(B)).
(3) Benefit distribution prior to
retirement. For purposes of paragraph
(b)(1)(i) of this section, retirement does
not include a mere reduction in the
number of hours that an employee
works. Accordingly, benefits may not be
distributed prior to normal retirement
age solely due to a reduction in the
number of hours that an employee
works.
(4) Effective date. Except as otherwise
provided in this paragraph (b)(4),
paragraphs (b)(2) and (3) of this section
are effective May 22, 2007. In the case
of a governmental plan (as defined in
section 414(d)), paragraphs (b)(2) and (3)
of this section are effective for plan
years beginning on or after January 1,
2009. In the case of a plan maintained
pursuant to one or more collective
bargaining agreements that have been
ratified and are in effect on May 22,
2007, paragraphs (b)(2) and (3) of this
section do not apply before the first plan
year that begins after the last of such
agreements terminate determined
without regard to any extension thereof
(or, if earlier, May 24, 2010. See
§ 1.411(d)–4, A–12, for a special
transition rule in the case of a plan
amendment that increases a plan’s
normal retirement age pursuant to
paragraph (b)(2) of this section.
I Par. 3. Section 1.411(d)–4 is amended
by adding Q&A–12 as follows:
§ 1.411(d)–4
benefits.
Section 411(d)(6) protected
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*
*
*
*
*
Q–12. Is there a transition period
during which a plan is permitted to
eliminate a right to in-service
distributions in connection with an
amendment to ensure that the plan’s
normal retirement age satisfies the
requirements of § 1.401(a)–1(b)(2)?
A–12. (a) In general. A plan
amendment that changes the normal
retirement age under the plan to a later
normal retirement age pursuant to
§ 1.401(a)–1(b)(2) does not violate
section 411(d)(6) merely because it
eliminates a right to an in-service
distribution prior to the amended
normal retirement age. However, this
paragraph does not provide relief from
any other applicable requirements; for
example, this relief does not permit the
amendment to violate section 411(a)(9)
(requiring that the normal retirement
benefit not be less than the greater of
any early retirement benefit payable
under the plan or the benefit under the
plan commencing at normal retirement
age), section 411(a)(10) (if the
amendment changes the plan’s vesting
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rules), section 411(d)(6) (other than
elimination of the right to an in-service
distribution prior to the amended
normal retirement age), or section 4980F
(relating to an amendment that reduces
the rate of future benefit accrual). This
paragraph only applies to a plan
amendment that is adopted after May
22, 2007 and on or before the last day
of the applicable remedial amendment
period under § 1.401(b)–1 with respect
to the requirements of § 1.401(a)–1(b)(2)
and (3).
(b) Example. The following example
illustrates the application of this
section:
(i) Facts. (A) Plan A is a defined benefit
plan intended to be qualified under section
401(a). Plan A is maintained by a calendar
year taxpayer and has a normal retirement
age that is age 45. For employees who cease
employment before normal retirement age
with a vested benefit, Plan A permits benefits
to commence at any date after the attainment
of normal retirement age through attainment
of age 701⁄2 and provides for benefits to be
actuarially increased to the extent they
commence after normal retirement age. For
employees who continue employment after
attainment of normal retirement age, Plan A
provides for benefits to continue to accrue
and permits benefits to commence at any
time, with an actuarial increase in benefits to
apply to the extent benefits do not commence
after normal retirement age. Age 45 is an age
that is earlier than the earliest age that is
reasonably representative of the typical
retirement age for the industry in which the
covered workforce is employed.
(B) On February 18, 2008, Plan A is
amended, effective May 22, 2007, to change
its normal retirement age to the later of age
65 or the fifth anniversary of participation in
the plan. The amendment provides full
vesting for any participating employee who
is employed on May 21, 2007, and who
terminates employment on or after attaining
age 45. The amendment provides employees
who cease employment before the revised
normal retirement age and who are entitled
to a vested benefit with the right to be able
to commence benefits at any date from age
45 to age 701⁄2. The plan amendment also
revises the plan’s benefit accrual formula so
that the benefit for prior service (payable
commencing at the revised normal retirement
age or any other age after age 45) is not less
than would have applied under the plan’s
formula before the amendment (also payable
commencing at the corresponding dates),
based on the benefit accrued on May 21,
2007, and provides for service thereafter to
have the same rate of future benefit accrual.
Thus, for any participant employed on May
21, 2007, with respect to benefits accrued for
service after May 21, 2007, the amount
payable under the plan (as amended) at any
benefit commencement date after age 45 is
the same amount that would have been
payable at that benefit commencement date
under the plan prior to amendment. The plan
amendment also eliminates the right to an inservice distribution between age 45 and the
revised normal retirement age. Plan A has
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28607
been operated since May 22, 2007, in
conformity with the amendment adopted on
February 18, 2008.
(ii) Conclusion. The plan amendment does
not violate section 411(d)(6). Although the
amendment eliminates the right to
commence benefits in-service between age 45
and the revised normal retirement age, the
amendment is made before the last day of the
remedial amendment period applicable to the
plan under § 1.401(b)–1 with respect to the
requirements of § 1.401(a)–1(b)(2) and (3),
and therefore the amendment is permitted
under paragraph (a) of this A–12. Further, the
amendment does not result in a reduction in
any benefit for service after May 22, 2007.
Thus, the amendment does not result in a
reduction in any benefit for future service,
and advance notice of a significant reduction
in the rate of future benefit accrual is not
required under section 4980F.
Kevin M. Brown,
Deputy Commissioner for Services and
Enforcement.
Approved: May 9, 2007.
Eric Solomon,
Assistant Secretary of the Treasury (Tax
Policy).
[FR Doc. E7–9643 Filed 5–21–07; 8:45 am]
BILLING CODE 4830–01–P
DEPARTMENT OF HOMELAND
SECURITY
Coast Guard
33 CFR Part 100
[CGD05–07–020]
RIN 1625–AA08
Special Local Regulations for Marine
Events; Delaware River, Delaware City,
DE
Coast Guard, DHS.
Temporary final rule.
AGENCY:
ACTION:
SUMMARY: The Coast Guard is
establishing temporary special local
regulations during the ‘‘7th Annual
Escape from Fort Delaware Triathlon’’,
an event to be held June 9, 2007 on the
waters of Delaware River at Delaware
City, DE. These special local regulations
are necessary to provide for the safety of
life on navigable waters during the
event. This action will temporarily
restrict vessel traffic in a portion of the
Delaware River during the 7th Annual
Escape from Fort Delaware Triathlon.
DATES: This rule is effective from 5:30
a.m. to 10:30 a.m. on June 9, 2007.
ADDRESSES: Documents indicated in this
preamble as being available in the
docket, are part of docket (CGD05–07–
020) and are available for inspection or
copying at Commander (dpi), Fifth
Coast Guard District, 431 Crawford
E:\FR\FM\22MYR1.SGM
22MYR1
Agencies
[Federal Register Volume 72, Number 98 (Tuesday, May 22, 2007)]
[Rules and Regulations]
[Pages 28604-28607]
From the Federal Register Online via the Government Printing Office [www.gpo.gov]
[FR Doc No: E7-9643]
[[Page 28604]]
=======================================================================
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DEPARTMENT OF THE TREASURY
Internal Revenue Service
26 CFR Part 1
[TD 9325]
RIN 1545-BD23
Distributions From a Pension Plan Upon Attainment of Normal
Retirement Age
AGENCY: Internal Revenue Service (IRS), Treasury.
ACTION: Final regulations.
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SUMMARY: This document contains final regulations under sections 401(a)
and 411(d)(6) of the Internal Revenue Code. These regulations provide
rules permitting distributions to be made from a pension plan upon the
attainment of normal retirement age prior to a participant's severance
from employment with the employer maintaining the plan. These
regulations provide the public with guidance regarding distributions
from qualified pension plans and will affect administrators of, and
participants in, such plans.
DATES: Effective Date: These regulations are effective May 22, 2007.
Applicability Dates: These regulations are generally applicable May
22, 2007. For dates of applicability, see Sec. Sec. 1.401(a)-1(b)(4)
and 1.411(d)-4, A-12(a).
FOR FURTHER INFORMATION CONTACT: Cathy A. Vohs at (202) 622-6090 or
Janet A. Laufer at (202) 622-6080 (not a toll-free number).
SUPPLEMENTARY INFORMATION:
Background
Section 401(a) sets forth the qualification requirements for a
trust forming part of a stock bonus, pension, or profit-sharing plan of
an employer. Several of these qualification requirements are based on a
plan's normal retirement age. Section 411(a)(8) defines the term
``normal retirement age'' as the earlier of (a) the time a participant
attains normal retirement age under the plan or (b) the later of the
time a plan participant attains age 65 or the 5th anniversary of the
time a plan participant commenced participation in the plan.
The definition of normal retirement age is important in applying
the rules under section 411(b) which are designed to preclude avoidance
of the minimum vesting standards through the backloading of benefits
(for example, a benefit formula under which the rate of benefit accrual
is increased disproportionately for employees with longer service)
because those rules are based on the benefit payable at normal
retirement age. Normal retirement age is also relevant for applying the
rules relating to suspension of benefits under section 411(a)(3)(B) and
the rules under section 411(b)(1)(H)(iii) that permit a plan to offset
accruals after normal retirement age by either the actuarial value of
distributions made after normal retirement age or the actuarial value
of increases in the benefits due to delay in payment. Normal retirement
age is also used in determining the minimum benefit for non-key
employees in the case of a top-heavy defined benefit plan. See section
416(c)(1)(A) and (E). Also, the vesting requirements of sections
401(a)(7) and 411 are based upon normal retirement age.
Section 411(d)(6) generally prohibits a qualified plan from being
amended to reduce a participant's accrued benefit and, for this
purpose, an elimination or reduction of an early retirement benefit or
a retirement-type subsidy, or an elimination of an optional form of
benefit, is treated as a reduction in the accrued benefit. The
Secretary has the authority under section 411(d)(6) to allow amendments
that eliminate an optional form of benefit.
Section 401(a) permits three types of plans to qualify under
section 401(a): Stock bonus, pension, and profit-sharing plans. Section
1.401-1(a)(2)(i) and (b)(1)(i) of the Income Tax Regulations interprets
what it means to be a ``pension plan,'' and has done so since the
publication of those regulations as TD 6203 (1956-2 CB 219) (see Sec.
601.601(d)(2)(ii)(b)). These regulations (the 1956 regulations) provide
that a qualified plan under section 401(a) is a program and arrangement
which is established and maintained by an employer ``in the case of a
pension plan, to provide for the livelihood of the employees or their
beneficiaries after the retirement of such employees through the
payment of benefits determined without regard to profits.'' \1\ The
1956 regulations defining a qualified pension plan further provide that
a pension plan must be ``a plan established and maintained by an
employer primarily to provide systematically for the payment of
definitely determinable benefits to his employees over a period of
years, usually for life, after retirement.''
---------------------------------------------------------------------------
\1\ This rule is limited to a pension plan, which is either a
defined benefit plan or a defined contribution plan that is not a
stock bonus or profit-sharing plan (generally referred to as a money
purchase pension plan). Other rules apply to stock bonus plans and
profit-sharing plans.
---------------------------------------------------------------------------
Following the enactment of the Employee Retirement Income Security
Act of 1974 (ERISA), 93 Public Law 406 (88 Stat. 829), the regulations
under section 401(a) were modified to provide that the 1956 regulations
continued to apply, except as otherwise provided. See Sec. 1.401(a)-
1(b)(1)(i) and (ii). Accordingly, a pension plan is generally not
permitted to pay benefits before retirement. See also Rev. Rul. 56-693
(1956-2 CB 282), as modified by Rev. Rul. 60-323 (1960-2 CB 148) (see
Sec. 601.601(d)(2)(ii)(b)).
Rev. Rul. 71-24 (1971-1 CB 114) (see Sec. 601.601(d)(2)(ii)(b))
provides guidance for the treatment of benefits under a pension plan
for employees who continue employment after normal retirement age. Rev.
Rul. 71-24 includes an example that indicates that benefits are
permitted to commence during employment after normal retirement age.
Rev. Rul. 71-147 (1971-1 CB 116) (see Sec. 601.601(d)(2)(ii)(b))
provides that the normal retirement age in a pension or annuity plan is
generally the lowest age specified in the plan at which the employee
has the right to retire without the consent of the employer and receive
retirement benefits based on the amount of the employee's service on
the date of retirement at the full rate set forth in the plan (that is,
without actuarial or similar reduction because of retirement before
some later specified age). While ordinarily the normal retirement age
under pension and annuity plans is age 65, Rev. Rul. 71-147 permitted a
different age to be specified, but an age lower than 65 was permitted
only if the age represented the age at which employees customarily
retire in the particular company or industry, and was not a device to
accelerate funding.
Following the enactment of section 411(a)(8) (defining normal
retirement age as described earlier in this preamble) under ERISA, Rev.
Rul. 71-147 was modified by Rev. Rul. 78-120 (1978-1 CB 117) (see Sec.
601.601(d)(2)(ii)(b)). Under Rev. Rul. 78-120, for purposes of section
411, a pension plan is permitted to have a normal retirement age lower
than age 65, regardless of the age at which employees customarily
retire in the particular company or industry.
Section 401(a)(36), added by section 905(b) of the Pension
Protection Act of 2006, Public Law 109-280 (120 Stat. 780) (PPA '06),
provides that a trust forming part of a pension plan is not treated as
failing to constitute a qualified trust under section 401(a) solely
because the plan provides that a distribution may be made from such
trust to an employee who has attained
[[Page 28605]]
age 62 and who is not separated from employment at the time of such
distribution. Section 401(a)(36) applies to distributions in plan years
beginning after December 31, 2006.
On November 10, 2004, a notice of proposed rulemaking (REG-114726-
04) under section 401 was published in the Federal Register (69 FR
65108) (the proposed regulations). The proposed regulations would have
allowed in-service distributions after normal retirement age, but would
not have permitted a normal retirement age to be set so low as to be a
subterfuge to avoid qualification requirements. The proposed
regulations would also have permitted in-service distributions before
normal retirement age under a bona fide phased retirement program.
On March 14, 2005, the IRS held a public hearing on the proposed
regulations. Written comments responding to the notice of proposed
rulemaking were also received. In light of the enactment of section
401(a)(36) by PPA '06, only portions of the proposed regulations are
being finalized at this time. The IRS recently issued a notice
requesting comments as to whether the portions of the proposed
regulations relating to in-service distributions pursuant to a bona
fide phased retirement program should be finalized. See Notice 2007-8
(2007-3 IRB 276) (see Sec. 601.601(d)(2)(ii)(b)). The portions of the
proposed regulations relating to normal retirement age and in-service
distribution upon attainment of normal retirement age are being
finalized by this Treasury Decision. The significant revisions to the
proposed regulations are discussed in this preamble.
Explanation of Provisions and Summary of Comments
I. Overview
This Treasury Decision modifies existing regulations, including the
regulations at Sec. 1.401(a)-1 which generally require a pension plan
to be maintained primarily to provide systematically for the payment of
definitely determinable benefits after retirement. These regulations
provide two exceptions to this rule. First, they clarify that a pension
plan is permitted to commence payment of retirement benefits to a
participant after the participant has attained normal retirement age.
The regulations also provide rules on how low a plan's normal
retirement age is permitted to be and include a related exception to
the anti-cutback rules of section 411(d)(6) to allow conforming
amendments during a transitional period. Second, the regulations
reflect the provisions of new section 401(a)(36).
II. Normal Retirement Age
A. In General
These regulations adopt the rule of the proposed regulations under
which a pension plan (a defined benefit plan or money purchase pension
plan) is permitted to pay benefits upon an employee's attainment of
normal retirement age, even if the employee has not yet had a severance
from employment with the employer maintaining the plan. Comments
generally supported the inclusion of this rule as reflecting existing
practice among some pension plans, based on an example in Rev. Rul. 71-
24.
These regulations also include rules restricting a plan's normal
retirement age. The proposed regulations would have provided that a
plan's normal retirement age could not be set so low as to be a
subterfuge to avoid the requirements of section 401(a), and,
accordingly, normal retirement age could not be earlier than the
earliest age that is reasonably representative of a typical retirement
age for the covered workforce.\2\ Some comments expressed concern about
the specifics of this rule, including concern about how it might be
applied in various circumstances, and suggested that the regulations
contain a safe harbor for which there would be no need for a
demonstration of the typical retirement age for the covered workforce.
---------------------------------------------------------------------------
\2\ The preamble to the proposed regulations noted that, while a
low normal retirement age may have a significant cost effect on a
traditional defined benefit plan, this effect is not as significant
for defined contribution plans or for certain hybrid defined benefit
plans.
---------------------------------------------------------------------------
These final regulations modify the proposed regulations to replace
the subterfuge standard with a requirement that the normal retirement
age under a plan be an age that is not earlier than the earliest age
that is reasonably representative of the typical retirement age for the
industry in which the covered workforce is employed. To address
comments about the need for a safe harbor age, these regulations
provide that a normal retirement age of at least age 62 is deemed to be
not earlier than the typical retirement age for the industry in which
the covered workforce is employed. Thus, a plan satisfies this safe
harbor if its normal retirement age is age 62, or if its normal
retirement age is the later of age 62 or another specified date, such
as the later of age 62 or the fifth anniversary of plan participation.
However, a plan that is subject to section 411 cannot provide for a
normal retirement age that is later than the later of the time the
participant attains age 65 or the fifth anniversary of the time the
participant commenced participation in the plan. See section
411(a)(8)(B).
If a plan's normal retirement age is earlier than age 62, the
determination of whether the age is not earlier than the earliest age
that is reasonably representative of the typical retirement age for the
industry in which the covered workforce is employed is based on all of
the relevant facts and circumstances. If the normal retirement age is
between ages 55 and 62, then it is generally expected that a good faith
determination of the typical retirement age for the industry in which
the covered workforce is employed that is made by the employer (or, in
the case of a multiemployer plan, made by the trustees) will be given
deference, assuming that the determination is reasonable under the
facts and circumstances. However, a normal retirement age that is lower
than age 55 is presumed to be earlier than the earliest age that is
reasonably representative of the typical retirement age for the
industry of the relevant covered workforce absent facts and
circumstances that demonstrate otherwise to the Commissioner.
In the case of a plan where substantially all of the participants
in the plan are qualified public safety employees (within the meaning
of section 72(t)(10)(B), as added by section 828 of PPA '06), a normal
retirement age of age 50 or later is deemed not to be earlier than the
earliest age that is reasonably representative of the typical
retirement age for the industry in which the covered workforce is
employed. Under section 72(t)(10)(B), a qualified public safety
employee means any employee of a State or political subdivision of a
State who provides police protection, firefighting services, or
emergency medical services for any area within the jurisdiction of such
State or political subdivision.
B. Section 411(d)(6) Relief
These regulations include an amendment to the existing regulations
under section 411(d)(6) to permit a plan to be amended during a
transition period to conform to the rules concerning normal retirement
age. Thus, a plan amendment that changes the normal retirement age
under the plan to a later normal retirement age (pursuant to these
regulations) does not violate section 411(d)(6) merely because the
amendment eliminates a right to an in-service distribution prior to the
amended normal retirement age.
[[Page 28606]]
However, this rule does not provide any other relief. For example, this
rule does not permit the amendment to reduce benefits in some other
manner that fails to satisfy section 411(d)(6). Neither does the rule
provide relief under section 411(a)(9) (requiring that the normal
retirement benefit not be less than the greater of any early retirement
benefit payable under the plan or the benefit under the plan commencing
at normal retirement age), section 411(a)(10) (if the amendment changes
the plan's vesting rules), or section 4980F (or section 204(h), the
parallel provision of ERISA) (relating to amendments that reduce the
rate of future benefit accrual). See also Rev. Rul. 81-210 (1981-2 CB
89) (see Sec. 601.601(d)(2)(ii)(b)). An example is included to
illustrate this rule.
Effective Dates
These regulations are generally applicable May 22, 2007. In the
case of a governmental plan (as defined in section 414(d)), these
regulations apply with respect to plan years beginning on or after
January 1, 2009. In the case of a plan maintained pursuant to one or
more collective bargaining agreements that have been ratified and are
in effect on May 22, 2007, these regulations do not apply before the
first plan year that begins after the last of the agreements terminates
determined without regard to any extension thereof (or, if earlier, May
24, 2010.
A provision of a plan that results in the failure of the plan to
satisfy Sec. 1.401(a)-1(b)(2) or (3) is a disqualifying provision
described in Sec. 1.401(b)-1(b)(3)(i). Therefore, the remedial
amendment period rules of Sec. 1.401(b)-1 apply. For example, in the
case of a plan with a calendar plan year that is maintained by an
employer with a calendar taxable year (and the plan is not a
governmental plan and is not maintained pursuant to a collective
bargaining agreement), the plan's remedial amendment period with
respect to Sec. 1.401(a)-1(b)(2) and (3) ends on the date prescribed
by law for the filing of the employer's income tax return (including
extensions) for the 2007 taxable year.
In the case of a plan amendment that increases the plan's normal
retirement age pursuant to this regulation, the amendment may also
eliminate a right to an in-service distribution prior to the normal
retirement age under the plan as amended without violating section
411(d)(6) if the amendment is adopted after May 22, 2007 and on or
before the last day of the applicable remedial amendment period under
Sec. 1.401(b)-1 with respect to the requirements of Sec. 1.401(a)-
1(b)(2) and (3). For purposes of section 1107 of PPA '06, such an
amendment is not made pursuant to PPA '06 and is not made pursuant to
any regulation issued under PPA '06.
Special Analyses
It has been determined that this Treasury Decision is not a
significant regulatory action as defined in Executive Order 12866.
Therefore, a regulatory assessment is not required. It also has been
determined that section 553(b) of the Administrative Procedure Act (5
U.S.C. chapter 5) does not apply to these regulations, and because the
regulation does not impose a collection of information requirement upon
small entities, the Regulatory Flexibility Act (5 U.S.C. chapter 6)
does not apply. Pursuant to section 7805(f) of the Internal Revenue
Code, the notice of proposed rulemaking preceding these regulations was
submitted to the Small Business Administration for comment on its
impact on small business.
Drafting Information
The principal authors of these regulations are Christopher A.
Crouch (formerly of the Office of the Division Counsel/Associate Chief
Counsel (Tax Exempt and Government Entities)), Cathy A. Vohs and Janet
A. Laufer of the Office of the Division Counsel/Associate Chief Counsel
(Tax Exempt and Government Entities). However, other personnel from the
IRS and Treasury Department participated in their development.
List of Subjects in 26 CFR Part 1
Income taxes, Reporting and recordkeeping requirements.
Adoption of Amendments to the Regulations
0
Accordingly, 26 CFR part 1 is amended as follows:
PART 1--INCOME TAXES
0
Paragraph 1. The authority citation for part 1 is amended by adding an
entry in numerical order to read in part as follows:
Authority: 26 U.S.C. 7805 * * *
Section 1.401(a)-1 also issued under 26 U.S.C. 401. * * *
0
Par. 2. Section 1.401(a)-1 is amended by:
0
1. Revising paragraph (b)(1)(i).
0
2. Adding paragraphs (b)(2), (b)(3), and (b)(4).
0
The additions and revision read as follows:
Sec. 1.401(a)-1 Post-ERISA qualified plans and qualified trusts; in
general.
* * * * *
(b) * * *
(1) * * *
(i) In order for a pension plan to be a qualified plan under
section 401(a), the plan must be established and maintained by an
employer primarily to provide systematically for the payment of
definitely determinable benefits to its employees over a period of
years, usually for life, after retirement or attainment of normal
retirement age (subject to paragraph (b)(2) of this section). A plan
does not fail to satisfy this paragraph (b)(1)(i) merely because the
plan provides, in accordance with section 401(a)(36), that a
distribution may be made from the plan to an employee who has attained
age 62 and who is not separated from employment at the time of such
distribution.
* * * * *
(2) Normal retirement age--(i) General rule. The normal retirement
age under a plan must be an age that is not earlier than the earliest
age that is reasonably representative of the typical retirement age for
the industry in which the covered workforce is employed.
(ii) Age 62 safe harbor. A normal retirement age under a plan that
is age 62 or later is deemed to be not earlier than the earliest age
that is reasonably representative of the typical retirement age for the
industry in which the covered workforce is employed.
(iii) Age 55 to age 62. In the case of a normal retirement age that
is not earlier than age 55 and is earlier than age 62, whether the age
is not earlier than the earliest age that is reasonably representative
of the typical retirement age for the industry in which the covered
workforce is employed is based on all of the relevant facts and
circumstances.
(iv) Under age 55. A normal retirement age that is lower than age
55 is presumed to be earlier than the earliest age that is reasonably
representative of the typical retirement age for the industry in which
the covered workforce is employed, unless the Commissioner determines
that under the facts and circumstances the normal retirement age is not
earlier than the earliest age that is reasonably representative of the
typical retirement age for the industry in which the covered workforce
is employed.
(v) Age 50 safe harbor for qualified public safety employees. A
normal retirement age under a plan that is age 50 or later is deemed to
be not earlier than the earliest age that is reasonably representative
of the typical retirement age for the industry in which the covered
workforce is employed if substantially all of the participants in
[[Page 28607]]
the plan are qualified public safety employees (within the meaning of
section 72(t)(10)(B)).
(3) Benefit distribution prior to retirement. For purposes of
paragraph (b)(1)(i) of this section, retirement does not include a mere
reduction in the number of hours that an employee works. Accordingly,
benefits may not be distributed prior to normal retirement age solely
due to a reduction in the number of hours that an employee works.
(4) Effective date. Except as otherwise provided in this paragraph
(b)(4), paragraphs (b)(2) and (3) of this section are effective May 22,
2007. In the case of a governmental plan (as defined in section
414(d)), paragraphs (b)(2) and (3) of this section are effective for
plan years beginning on or after January 1, 2009. In the case of a plan
maintained pursuant to one or more collective bargaining agreements
that have been ratified and are in effect on May 22, 2007, paragraphs
(b)(2) and (3) of this section do not apply before the first plan year
that begins after the last of such agreements terminate determined
without regard to any extension thereof (or, if earlier, May 24, 2010.
See Sec. 1.411(d)-4, A-12, for a special transition rule in the case
of a plan amendment that increases a plan's normal retirement age
pursuant to paragraph (b)(2) of this section.
0
Par. 3. Section 1.411(d)-4 is amended by adding Q&A-12 as follows:
Sec. 1.411(d)-4 Section 411(d)(6) protected benefits.
* * * * *
Q-12. Is there a transition period during which a plan is permitted
to eliminate a right to in-service distributions in connection with an
amendment to ensure that the plan's normal retirement age satisfies the
requirements of Sec. 1.401(a)-1(b)(2)?
A-12. (a) In general. A plan amendment that changes the normal
retirement age under the plan to a later normal retirement age pursuant
to Sec. 1.401(a)-1(b)(2) does not violate section 411(d)(6) merely
because it eliminates a right to an in-service distribution prior to
the amended normal retirement age. However, this paragraph does not
provide relief from any other applicable requirements; for example,
this relief does not permit the amendment to violate section 411(a)(9)
(requiring that the normal retirement benefit not be less than the
greater of any early retirement benefit payable under the plan or the
benefit under the plan commencing at normal retirement age), section
411(a)(10) (if the amendment changes the plan's vesting rules), section
411(d)(6) (other than elimination of the right to an in-service
distribution prior to the amended normal retirement age), or section
4980F (relating to an amendment that reduces the rate of future benefit
accrual). This paragraph only applies to a plan amendment that is
adopted after May 22, 2007 and on or before the last day of the
applicable remedial amendment period under Sec. 1.401(b)-1 with
respect to the requirements of Sec. 1.401(a)-1(b)(2) and (3).
(b) Example. The following example illustrates the application of
this section:
(i) Facts. (A) Plan A is a defined benefit plan intended to be
qualified under section 401(a). Plan A is maintained by a calendar
year taxpayer and has a normal retirement age that is age 45. For
employees who cease employment before normal retirement age with a
vested benefit, Plan A permits benefits to commence at any date
after the attainment of normal retirement age through attainment of
age 70\1/2\ and provides for benefits to be actuarially increased to
the extent they commence after normal retirement age. For employees
who continue employment after attainment of normal retirement age,
Plan A provides for benefits to continue to accrue and permits
benefits to commence at any time, with an actuarial increase in
benefits to apply to the extent benefits do not commence after
normal retirement age. Age 45 is an age that is earlier than the
earliest age that is reasonably representative of the typical
retirement age for the industry in which the covered workforce is
employed.
(B) On February 18, 2008, Plan A is amended, effective May 22,
2007, to change its normal retirement age to the later of age 65 or
the fifth anniversary of participation in the plan. The amendment
provides full vesting for any participating employee who is employed
on May 21, 2007, and who terminates employment on or after attaining
age 45. The amendment provides employees who cease employment before
the revised normal retirement age and who are entitled to a vested
benefit with the right to be able to commence benefits at any date
from age 45 to age 70\1/2\. The plan amendment also revises the
plan's benefit accrual formula so that the benefit for prior service
(payable commencing at the revised normal retirement age or any
other age after age 45) is not less than would have applied under
the plan's formula before the amendment (also payable commencing at
the corresponding dates), based on the benefit accrued on May 21,
2007, and provides for service thereafter to have the same rate of
future benefit accrual. Thus, for any participant employed on May
21, 2007, with respect to benefits accrued for service after May 21,
2007, the amount payable under the plan (as amended) at any benefit
commencement date after age 45 is the same amount that would have
been payable at that benefit commencement date under the plan prior
to amendment. The plan amendment also eliminates the right to an in-
service distribution between age 45 and the revised normal
retirement age. Plan A has been operated since May 22, 2007, in
conformity with the amendment adopted on February 18, 2008.
(ii) Conclusion. The plan amendment does not violate section
411(d)(6). Although the amendment eliminates the right to commence
benefits in-service between age 45 and the revised normal retirement
age, the amendment is made before the last day of the remedial
amendment period applicable to the plan under Sec. 1.401(b)-1 with
respect to the requirements of Sec. 1.401(a)-1(b)(2) and (3), and
therefore the amendment is permitted under paragraph (a) of this A-
12. Further, the amendment does not result in a reduction in any
benefit for service after May 22, 2007.
Thus, the amendment does not result in a reduction in any
benefit for future service, and advance notice of a significant
reduction in the rate of future benefit accrual is not required
under section 4980F.
Kevin M. Brown,
Deputy Commissioner for Services and Enforcement.
Approved: May 9, 2007.
Eric Solomon,
Assistant Secretary of the Treasury (Tax Policy).
[FR Doc. E7-9643 Filed 5-21-07; 8:45 am]
BILLING CODE 4830-01-P