HomeMy WebLinkAboutCC AG PKT 2014-07-28 #G SEAt
AGENDA STAFF REPORT
DATE: July 28, 2014
TO: Honorable Mayor and City Council
THRU: Jill R. Ingram, City Manager
FROM: Victoria L. Beatley
SUBJECT: RETIREE HEALTH LIABILITIES AS OF JULY 1, 2013
SUMMARY OF REQUEST:
That the City Council receive and file the Actuarial Study of Retiree Health
Liabilities as of July 1, 2013.
BACKGROUND AND ANALYSIS:
The Governmental Accounting Standards Board (GASB) issued Accounting
Standards 43 and 45, Accounting Standards for retiree health benefits. These
standards apply to all public employees that pay any part of the cost of retiree
health benefits. Standards 43 and 45 requires the City to account for these
promises on an accrual basis (as benefits are earned).
The City of Seal Beach (City) contracted with Total Compensation Systems, Inc.
to analyze liabilities associated with its current retiree health program as of July
1, 2013. The information contained in this report will be incorporated into the
fiscal year ended June 30, 2014.
ENVIRONMENTAL IMPACT:
There is no environmental impact related to this item.
LEGAL ANALYSIS:
The City Attorney has reviewed and approved as to form.
FINANCIAL IMPACT:
There is no financial impact in receiving this report.
Agenda Item— Q
RECOMMENDATION:
That the City Council receive and file this informational report relating to retiree
medical benefits.
SUBMITTED B NOTED AND APPROVED:
CIL V
C k
Victoria L. Beatley Ingram, City ��n ger
Director of Finance/City Treader
Attachments:
A. Actuarial Study of Retiree Health Liabilities
Page 2
Total Compensation Systems, Inc.
City of Seal Beach
Actuarial Study of
Retiree Health Liabilities
As of July 1,2013
Prepared by:
Total Compensation Systems, Inc.
Date:June 18,2014
Total Compensation Systems, Inc.
Table of Contents
PART L• EXECUTIVE SUMMARY............................................................................................................3
A. INTRODUCTION............................................................................................................................................................................3
B. GENERAL FINDINGS.....................................................................................................................................................................4
C. DESCRIPTION OF RETIREE BENEFTFS...........................................................................................................................................4
D. RECOMMENDATIONS...................................................................................................................................................................5
PARTII: BACKGROUND...........................................................................................................................7
A. SUMMARY...................................................................................................................................................................................7
B. ACTUARIALACCRUAL.................................................................................................................................................................7
PART III: LIABILITIES AND COSTS FOR RETIREE BENEFITS...................................................9
A. INTRODUCTION............................................................................................................................................................................9
B. MEDICARE...................................................................................................................................................................................9
C. LIABILITY FOR RETIREE BENEFITS...............................................................................................................................................9
D. COST TO PREFUND RETIREE BENEFTTs.....................................................................................................................................10
1. Normal Cost..........................................................................................................................................................................10
2. Amortization of Unfunded Actuarial Accrued Liability(UAAL).........................................................................................11
3. Annual Reyuired Contributions(ARC)................................................................................................................................11
4. Other Components ofAnnual OPEB Cost(AOC)...............................................................................................................12
PART IV: "PAY AS YOU GO" FUNDING OF RETIREE BENEFITS.............................................. 13
PART V: RECOMMENDATIONS FOR FUTURE VALUATIONS................................................... 14
PARTVI: APPENDICES...........................................................................................................................15
APPENDIX A: MATERIALS USED FOR THIS STUDY..........................................................................................................15
APPENDIX B: EFFECT OF ASSUMPTIONS USED IN CALCULATIONS...........................................................................16
APPENDIX C: ACTUARIAL ASSUMPTIONS AND METHODS........................................................................................... 17
APPENDIX D: DISTRIBUTION OF ELIGIBLE PARTICIPANTS BY AGE..........................................................................21
APPENDIX E: CALCULATION OF GASB 43/45 ACCOUNTING ENTRIES........................................................................22
APPENDIX F: GLOSSARY OF RETIREE HEALTH VALUATION TERMS.........................................................................24
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Total Compensation Systems, Inc.
City of Seal Beach
Actuarial Study of Retiree Health Liabilities
PART L• EXECUTIVE SUMMARY
A. Introduction
City of Seal Beach engaged Total Compensation Systems,Inc. (TCS)to analyze liabilities associated with
its current retiree health program as of July 1,2013 (the valuation date). The numbers in this report are based on the
assumption that they will first be used to determine accounting entries for the fiscal year ending June 30,2014. If the
report will first be used for a different fiscal year,the numbers will need to be adjusted accordingly.
This report does not reflect any cash benefits paid unless the retiree is required to provide proof that the
cash benefits are used to reimburse the retiree's cost of health benefits. Costs and liabilities attributable to cash
benefits paid to retirees are reportable under Governmental Accounting Standards Board(GASB) Standards 25/27.
This actuarial study is intended to serve the following purposes:
➢ To provide information to enable City of Seal Beach to manage the costs and liabilities associated
with its retiree health benefits.
➢ To provide information to enable City of Seal Beach to communicate the financial implications of
retiree health benefits to internal financial staff,the Council,employee groups and other affected
parties.
➢ To provide information needed to comply with Governmental Accounting Standards Board
Accounting Standards 43 and 45 related to"other postemployment benefits" (OPEB's).
Because this report was prepared in compliance with GASB 43 and 45,as appropriate,City of Seal Beach should
not use this report for any other purpose without discussion with TCS.This means that any discussions with
employee groups,governing Boards,etc. should be restricted to the implications of GASB 43 and 45 compliance.
This actuarial report includes several estimates for City of Seal Beach's retiree health program. In addition
to the tables included in this report,we also performed cash flow adequacy tests as required under Actuarial
Standard of Practice 6(ASOP 6). Our cash flow adequacy testing covers a twenty-year period.We would be happy
to make this cash flow adequacy test available to City of Seal Beach in spreadsheet format upon request.
We calculated the following estimates separately for active employees and retirees. As requested,we also
separated results by the following employee classifications:Management,OCEA, SBSPA and Police. We estimated
the following:
➢ the total liability created. (The actuarial present value of total projected benefits or
APVTPB)
➢ the ten year"pay-as-you-go" cost to provide these benefits.
➢ the "actuarial accrued liability(AAL)." (The AAL is the portion of the APVTPB
attributable to employees' service prior to the valuation date.)
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Total Compensation Systems, Inc.
➢ the amount necessary to amortize the UAAL over a period of 25 years.
➢ the annual contribution required to fund retiree benefits over the working lifetime of
eligible employees(the"normal cost").
➢ The Annual Required Contribution(ARC)which is the basis of calculating the annual
OPEB cost and net OPEB obligation under GASB 43 and 45.
We summarized the data used to perform this study in Appendix A.No effort was made to verify this
information beyond brief tests for reasonableness and consistency.
All cost and liability figures contained in this study are estimates of future results. Future results can vary
dramatically and the accuracy of estimates contained in this report depends on the actuarial assumptions used.
Normal costs and liabilities could easily vary by 10-20%or more from estimates contained in this report.
B. General Findines
We estimate the"pay-as-you-go" cost of providing retiree health benefits in the year beginning July 1,2013
to be$312,599(see Section IV.A.). The "pay-as-you-go"cost is the cost of benefits for current retirees.
For current employees,the value of benefits"accrued"in the year beginning July 1,2013 (the normal cost)
is$59,122. This normal cost would increase each year based on covered payroll. Had City of Seal Beach begun
accruing retiree health benefits when each current employee and retiree was hired,a substantial liability would have
accumulated. We estimate the amount that would have accumulated to be$6,657,361. This amount is called the
"actuarial accrued liability"(AAL). The remaining unamortized balance of the initial unfunded AAL(UAAL)is
$5,014,034. This leaves a"residual"AAL of$1,643,327.
City of Seal Beach has established a GASB 43 trust for future OPEB benefits.The actuarial value of plan
assets at June 30,2013 was$2,672,209. This leaves a residual unfunded actuarial accrued liability(UAAL)of
negative$1,028,882.We calculated the annual cost to amortize the residual unfunded actuarial accrued liability
using a 7.25%discount rate.We used an open 25 year amortization period. The current year cost to amortize the
residual unfunded actuarial accrued liability is negative$68,529.
Combining the normal cost with both the initial and residual UAAL amortization costs produces an annual
required contribution(ARC)of$326,401. The ARC is used as the basis for determining expenses and liabilities
under GASB 43/45. The ARC is used in lieu of(rather than in addition to)the "pay-as-you-go"cost.
We based all of the above estimates on employees as of June,2013. Over time,liabilities and cash flow will
vary based on the number and demographic characteristics of employees and retirees.
C. Description of Retiree Benefits
Following is a description of the current retiree benefit plan. Those employees who don't qualify for the
benefits shown below are eligible for statutory minimum benefits in accordance with provisions of the Government
Code collectively known as PEMHCA. In addition,certain retirees receive benefits under discontinued,
grandfathered benefit plans.
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Total Compensation Systems, Inc.
Management OCEA SBSPA Police
Applies to employees hired Hired before 1/1/08 All employees Hired before 4/13/09 Hired before 1/1/08
Benefit types provided Medical Medical Medical Medical
Duration of Benefits Lifetime Lifetime Lifetime Lifetime
Required Service 20 years for employee 20 years for 20 years for 15 years for employee
coverage employee coverage employee coverage coverage
30 years for dependent 30 years for 30 years for 20 years for employee
coverage dependent coverage dependent coverage plus spouse coverage
25 years for family
coverage
Minimum Age Age 55 Age 50 Age 55 Age 50
Dependent Coverage Eligible dependents with Eligible dependents Eligible dependents Eligible dependents
30 years of service with 30 years of with 30 years of with 30 years of
service service service
District Contribution% 100%up to cap 100%up to cap 100%up to cap 100%up to cap
District Cap Average of the two lowest Kaiser rate Kaiser rate Average of the two
cost plans but not lower lowest cost plans but
than the Kaiser rate not lower than the
Kaiser rate
D. Recommendations
It is outside the scope of this report to make specific recommendations of actions City of Seal Beach should
take to manage the substantial liability created by the current retiree health program. Total Compensation Systems,
Inc. can assist in identifying and evaluating options once this report has been studied. The following
recommendations are intended only to allow the City to get more information from this and future studies. Because
we have not conducted a comprehensive administrative audit of City of Seal Beach's practices,it is possible that
City of Seal Beach is already complying with some or all of our recommendations.
➢ We recommend that City of Seal Beach inventory all benefits and services provided to retirees—
whether contractually or not and whether retiree-paid or not.For each,City of Seal Beach should
determine whether the benefit is material and subject to GASB 43 and/or 45.
➢ We recommend that City of Seal Beach conduct a study whenever events or contemplated
actions significantly affect present or future liabilities,but no less frequently than every two
years,as required under GASB 43/45.
➢ We recommend that the City communicate the magnitude of these costs to employees and
include employees in discussions of options to control the costs.
➢ Under GASB 45,it is important to isolate the cost of retiree health benefits. City of Seal Beach
should have all premiums,claims and expenses for retirees separated from active employee
premiums,claims,expenses, etc. To the extent any retiree benefits are made available to retirees
over the age of 65—even on a retiree-pay-all basis—all premiums,claims and expenses for post-65
retiree coverage should be segregated from those for pre-65 coverage.Furthermore,City of Seal
Beach should arrange for the rates or prices of all retiree benefits to be set on what is expected to be
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Total Compensation Systems, Inc.
a self-sustaining basis.
➢ City of Seal Beach should establish a way of designating employees as eligible or ineligible for
future OPEB benefits. Ineligible employees can include those in ineligible job classes;those hired
after a designated date restricting eligibility;those who,due to their age at hire cannot qualify for
City-paid OPEB benefits; employees who exceed the termination age for OPEB benefits,etc.
➢ Several assumptions were made in estimating costs and liabilities under City of Seal
Beach's retiree health program. Further studies may be desired to validate any assumptions
where there is any doubt that the assumption is appropriate. (See Appendices B and C for a
list of assumptions and concerns.)For example,City of Seal Beach should maintain a
retiree database that includes—in addition to date of birth,gender and employee
classification—retirement date and(if applicable)dependent date of birth,relationship and
gender. It will also be helpful for City of Seal Beach to maintain employment termination
information—namely,the number of OPEB-eligible employees in each employee class that
terminate employment each year for reasons other than death,disability or retirement.
Respectfully submitted,
C#W-`Z�
Geoffrey L.Kischuk,FSA,MAAA,FCA
Consultant
Total Compensation Systems,Inc.
(805)496-1700
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Total Compensation Systems, Inc.
PART II: BACKGROUND
A. Summary
Accounting principles provide that the cost of retiree benefits should be "accrued"over employees'working
lifetime.For this reason,the Governmental Accounting Standards Board(GASB)issued in 2004 Accounting
Standards 43 and 45 for retiree health benefits.These standards apply to all public employers that pay any part of the
cost of retiree health benefits for current or future retirees(including early retirees).
B. Actuarial Accrual
To actuarially accrue retiree health benefits requires determining the amount to expense each year so that
the liability accumulated at retirement is, on average,sufficient(with interest)to cover all retiree health expenditures
without the need for additional expenses. There are many different ways to determine the annual accrual amount.
The calculation method used is called an"actuarial cost method."
Under most actuarial cost methods,there are two components of actuarial cost-a"normal cost"and
amortization of something called the "unfunded actuarial accrued liability."Both accounting standards and actuarial
standards usually address these two components separately(though alternative terminology is sometimes used).
The normal cost can be thought of as the value of the benefit earned each year if benefits are accrued during
the working lifetime of employees. This report will not discuss differences between actuarial cost methods or their
application. Instead,following is a description of a commonly used,generally accepted actuarial cost method that
will be permitted under GASB 43 and 45. This actuarial cost method is called the "entry age normal'method.
Under the entry age normal cost method,the actuary determines the annual amount needing to be expensed
from hire until retirement to fully accrue the cost of retiree health benefits. This amount is the normal cost.Under
GASB 43 and 45,normal cost can be expressed either as a level dollar amount or a level percentage of payroll.
The normal cost is determined using several key assumptions:
➢ The current cost of retiree health benefits(often varying by age,Medicare status and/or dependent
coverage).The higher the current cost of retiree benefits,the higher the normal cost.
➢ The "trend"rate at which retiree health benefits are expected to increase over time.A higher trend
rate increases the normal cost. A"cap"on City contributions can reduce trend to zero once the cap
is reached thereby dramatically reducing normal costs.
➢ Mortality rates varying by age and sex. (Unisex mortality rates are not often used as individual
OPEB benefits do not depend on the mortality table used.)If employees die prior to retirement,past
contributions are available to fund benefits for employees who live to retirement.After retirement,
death results in benefit termination or reduction.Although higher mortality rates reduce normal
costs,the mortality assumption is not likely to vary from employer to employer.
➢ Employment termination rates have the same effect as mortality inasmuch as higher termination
rates reduce normal costs.Employment termination can vary considerably between public agencies.
➢ The service requirement reflects years of service required to earn full or partial retiree benefits.
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Total Compensation Systems, Inc.
While a longer service requirement reduces costs,cost reductions are not usually substantial unless
the service period exceeds 20 years of service.
➢ Retirement rates determine what proportion of employees retire at each age(assuming employees
reach the requisite length of service).Retirement rates often vary by employee classification and
implicitly reflect the minimum retirement age required for eligibility.Retirement rates also depend
on the amount of pension benefits available. Higher retirement rates increase normal costs but,
except for differences in minimum retirement age,retirement rates tend to be consistent between
public agencies for each employee type.
➢ Participation rates indicate what proportion of retirees are expected to elect retiree health benefits
if a significant retiree contribution is required. Higher participation rates increase costs.
➢ The discount rate estimates investment earnings for assets earmarked to cover retiree health benefit
liabilities. The discount rate depends on the nature of underlying assets.For example, employer
funds earning money market rates in the county treasury are likely to earn far less than an
irrevocable trust containing a diversified asset portfolio including stocks,bonds,etc.A higher
discount rate can dramatically lower normal costs.GASB 43 and 45 require the interest assumption
to reflect likely long term investment return.
The assumptions listed above are not exhaustive,but are the most common assumptions used in actuarial
cost calculations. The actuary selects the assumptions which-taken together-will yield reasonable results. It's not
necessary(or even possible)to predict individual assumptions with complete accuracy.
If all actuarial assumptions are exactly met and an employer expensed the normal cost every year for all past
and current employees and retirees,a sizeable liability would have accumulated(after adding interest and
subtracting retiree benefit costs).The liability that would have accumulated is called the actuarial accrued liability or
AAL. The excess of AAL over the actuarial value ofplan assets is called the unfunded actuarial accrued liability
(or UAAL).Under GASB 43 and 45,in order for assets to count toward offsetting the AAL,the assets have to be
held in an irrevocable trust that is safe from creditors and can only be used to provide OPEB benefits to eligible
participants.
The actuarial accrued liability(AAL)can arise in several ways.At inception of GASB 43 and 45,there is
usually a substantial UAAL. Some portion of this amount can be established as the "transition obligation" subject to
certain constraints.UAAL can also increase as the result of operation of a retiree health plan-e.g.,as a result of plan
changes or changes in actuarial assumptions. Finally,AAL can arise from actuarial gains and losses.Actuarial gains
and losses result from differences between actuarial assumptions and actual plan experience.
Under GASB 43 and 45,employers have several options on how the UAAL can be amortized as follows:
➢ The employer can select an amortization period of 1 to 30 years. (For certain situations that result in a
reduction of the AAL,the amortization period must be at least 10 years.)
➢ The employer may apply the same amortization period to the total combined UAAL or can apply
different periods to different components of the UAAL.
➢ The employer may elect a"closed"or"open"amortization period.
➢ The employer may choose to amortize on a level dollar or level percentage of payroll method.
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Total Compensation Systems, Inc.
PART III: LIABILITIES AND COSTS FOR RETIREE BENEFITS
A. Introduction.
We calculated the actuarial present value of projected benefits(APVPB)separately for each employee.We
determined eligibility for retiree benefits based on information supplied by City of Seal Beach. We then selected
assumptions for the factors discussed in the above Section that,based on plan experience and our training and
experience,represent our best prediction of future plan experience.For each employee,we applied the appropriate
factors based on the employee's age,sex and length of service.
We summarized actuarial assumptions used for this study in Appendix C.
B. Medicare
The extent of Medicare coverage can affect projections of retiree health costs. The method of coordinating
Medicare benefits with the retiree health plan's benefits can have a substantial impact on retiree health costs.We
will be happy to provide more information about Medicare integration methods if requested.
C. Liability for Retiree Benefits.
For each employee,we projected future premium costs using an assumed trend rate(see Appendix Q. To
the extent City of Seal Beach uses contribution caps,the influence of the trend factor is further reduced.
We multiplied each year's projected cost by the probability that premium will be paid;i.e.based on the
probability that the employee is living,has not terminated employment and has retired. The probability that premium
will be paid is zero if the employee is not eligible.The employee is not eligible if s/he has not met minimum service,
minimum age or,if applicable,maximum age requirements.
The product of each year's premium cost and the probability that premium will be paid equals the expected
cost for that year.We discounted the expected cost for each year to the valuation date July 1,2013 at 7.25%interest.
Finally,we multiplied the above discounted expected cost figures by the probability that the retiree would
elect coverage.A retiree may not elect to be covered if retiree health coverage is available less expensively from
another source(e.g.Medicare risk contract)or the retiree is covered under a spouse's plan.
For any current retirees,the approach used was similar. The major difference is that the probability of
payment for current retirees depends only on mortality and age restrictions(i.e. for retired employees the probability
of being retired and of not being terminated are always both 1.0000).
We added the APVPB for all employees to get the actuarial present value of total projected benefits
(APVTPB). The APVTPB is the estimated present value of all future retiree health benefits for all current
employees and retirees. The APVTPB is the amount on July 1,2013 that,if all actuarial assumptions are exactly
right,would be sufficient to expense all promised benefits until the last current employee or retiree dies or reaches
the maximum eligibility age.
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Total Compensation Systems, Inc.
Actuarial Present Value of Total Projected Benefits at July 1,2013
Total Management OCEA SBSPA Police
Active:Pre-65 $1,294,516 $65,823 $316,067 $86,976 $825,650
Post-65 $1,862,075 $153,402 $587,780 $248,279 $872,614
Subtotal $3,156,591 $219,225 $903,847 $335,255 $1,698,264
Retiree:Pre-65 $830,721 $76,319 $101,807 $29,389 $623,206
Post-65 $3,118,966 $496,304 $436,214 $439,051 $1,747,397
Subtotal $3,949,687 $572,623 $538,021 $468,440 $2,370,603
Grand Total $7,106,278 $791,848 $1,441,868 $803,695 $4,068,867
Subtotal Pre-65 $2,125,237 $142,142 $417,874 $116,365 $1,448,856
Subtotal Post-65 $4,981,041 $649,706 $1,023,994 $687,330 $2,620,011
The APVTPB should be accrued over the working lifetime of employees.At any time much of it has not
been"earned"by employees. The APVTPB is used to develop expense and liability figures. To do so,the APVTFB
is divided into two parts:the portions attributable to service rendered prior to the valuation date(the past service
liability or actuarial accrued liability under GASB 43 and 45)and to service after the valuation date but prior to
retirement(the future service liability).
The past service and future service liabilities are each funded in a different way. We will start with the
future service liability which is funded by the normal cost.
D. Cost to Prefund Retiree Benefits
1. Normal Cost
The average hire age for eligible employees is 34.To accrue the liability by retirement,the City would
accrue the retiree liability over a period of about 24 years(assuming an average retirement age of 58).We applied an
"entry age normal' actuarial cost method to determine funding rates for active employees.The table below
summarizes the calculated normal cost.
Normal Cost Year Beginning July 1,2013
Total Management OCEA SBSPA Police
#of Employees 93 17 27 18 31
Per Capita Normal Cost
Pre-65 Benefit N/A $137 $521 $130 $216
Post-65 Benefit N/A $306 $556 $294 $264
First Year Normal Cost
Pre-65 Benefit $25,432 $2,329 $14,067 $2,340 $6,696
Post-65 Benefit $33,690 $5,202 $15,012 $5,292 $8,184
Total $59,122 $7,531 $29,079 $7,632 $14,880
Accruing retiree health benefit costs using normal costs levels out the cost of retiree health benefits over
time and more fairly reflects the value of benefits"earned" each year by employees. This normal cost would
increase each year based on covered payroll.
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2. Amortization of Unfunded Actuarial Accrued Liability(UAAL)
If actuarial assumptions are borne out by experience,the City will fully accrue retiree benefits by expensing
an amount each year that equals the normal cost. If no accruals had taken place in the past,there would be a shortfall
of many years'accruals,accumulated interest and forfeitures for terminated or deceased employees. This shortfall is
called the actuarial accrued liability(AAL).We calculated the AAL as the APVTPB minus the present value of
future normal costs.
The initial UAAL was amortized using an open amortization period of 30 years. The City can amortize the
remaining or residual UAAL over many years. The table below shows the annual amount necessary to amortize the
UAAL over a period of 25 years at 7.25%interest. (Thirty years is the longest amortization period allowable under
GASB 43 and 45.)GASB 43 and 45 will allow amortizing the UAAL using either payments that stay the same as a
dollar amount, or payments that are a flat percentage of covered payroll over time.The figures below reflect the
level percentage of payroll method.
Actuarial Accrued Liability as of July 1,2013
Total Management OCEA SBSPA Police
Active:Pre-65 $1,101,023 $46,773 $208,448 $71,240 $774,562
Post-65 $1,606,650 $110,852 $472,932 $212,692 $810,174
Subtotal $2,707,673 $157,625 $681,380 $283,932 $1,584,736
Retiree:Pre-65 $830,721 $76,319 $101,807 $29,389 $623,206
Post-65 $3,118,966 $496,304 $436,214 $439,051 $1,747,397
Subtotal $3,949,687 $572,623 $538,021 $468,440 $2,370,603
SubtotPre-65 $1,931,744 $123,092 $310,255 $100,629 $1,397,768
SubtotPost-65 $4,725,616 $607,156 $909,146 $651,743 $2,557,571
Grand Total $6,657,361 $730,248 $1,219,401 $752,373 $3,955,339
Unamortized Initial UAAL $5,014,034
Plan assets at 6/30/13 $2,672,209
Residual UAAL ($1,028,882)
Residual UAAL Amortization ($68,529)
at 7.25%over 25 Years
3. Annual Required Contributions(ARC)
If the City determines retiree health plan expenses in accordance with GASB 43 and 45,costs will include
both normal cost and one or more components of UAAL amortization costs. The sum of normal cost and UAAL
amortization costs is called the Annual Required Contribution(ARC)and is shown below.
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Total Compensation Systems, Inc.
Annual Required Contribution (ARC)Year Beginning July 1,2013
Total
Normal Cost $59,122
Initial UAAL Amortization $335,808
Residual UAAL Amortization ($68,529)
ARC $326,401
The normal cost remains as long as there are active employees who may some day qualify for City-paid
retiree health benefits. This normal cost would increase each year based on covered payroll.
4. Other Components of Annual OPEB Cost(AOC)
Expense and liability amounts may include more components of cost than the normal cost plus amortization
of the UAAL. This will apply to employers that don't fully fund the Annual Required Cost(ARC)through an
irrevocable trust.
➢ The annual OPEB cost(AOC)will include assumed interest on the net OPEB obligation
(NOO). The annual OPEB cost will also include an amortization adjustment for the net
OPEB obligation. (It should be noted that there is no NOO if the ARC is fully funded
through a qualifying"plan".)
➢ The net OPEB obligation will equal the accumulated differences between the(AOC)and
qualifying"plan"contributions.
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PART IV: "PAY AS YOU GO" FUNDING OF RETIREE BENEFITS
We used the actuarial assumptions shown in Appendix C to project ten year cash flow under the retiree
health program.Because these cash flow estimates reflect average assumptions applied to a relatively small number
of employees,estimates for individual years are certain to be inaccurate. However,these estimates show the size of
cash outflow.
The following table shows a projection of annual amounts needed to pay the City share of retiree health
premiums.
Year Beginning
July 1 Total Management OCEA SBSPA Police
2013 $312,599 $42,596 $53,092 $37,686 $179,225
2014 $326,065 $43,878 $55,637 $40,273 $186,277
2015 $345,869 $45,297 $60,739 $44,981 $194,852
2016 $358,025 $45,292 $66,855 $48,651 $197,227
2017 $396,373 $46,778 $75,868 $49,823 $223,904
2018 $425,660 $48,010 $79,616 $49,366 $248,668
2019 $443,725 $47,727 $80,700 $50,820 $264,478
2020 $471,367 $48,827 $81,845 $53,337 $287,358
2021 $487,207 $49,933 $87,927 $56,112 $293,235
2022 $495,093 $50,913 $93,086 $57,262 $293,832
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PART V: RECOMMENDATIONS FOR FUTURE VALUATIONS
To effectively manage benefit costs,an employer must periodically examine the existing liability for retiree
benefits as well as future annual expected premium costs. GASB 43/45 require biennial valuations. In addition,a
valuation should be conducted whenever plan changes,changes in actuarial assumptions or other employer actions
are likely to cause a material change in accrual costs and/or liabilities.
Following are examples of actions that could trigger a new valuation.
➢ An employer should perform a valuation whenever the employer considers or puts in place
an early retirement incentive program.
➢ An employer should perform a valuation whenever the employer adopts a retiree benefit
plan for some or all employees.
➢ An employer should perform a valuation whenever the employer considers or implements
changes to retiree benefit provisions or eligibility requirements.
➢ An employer should perform a valuation whenever the employer introduces or changes
retiree contributions.
We recommend City of Seal Beach take the following actions to ease future valuations.
➢ We have used our training, experience and information available to us to establish the
actuarial assumptions used in this valuation. We have no information to indicate that any of
the assumptions do not reasonably reflect future plan experience. However,the City should
review the actuarial assumptions in Appendix C carefully. If the City has any reason to
believe that any of these assumptions do not reasonably represent the expected future
experience of the retiree health plan,the City should engage in discussions or perform
analyses to determine the best estimate of the assumption in question.
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PART VI: APPENDICES
APPENDIX A: MATERIALS USED FOR THIS STUDY
We relied on the following materials to complete this study.
➢ We used paper reports and digital files containing employee demographic data from the
City personnel records.
➢ We used relevant sections of collective bargaining agreements provided by the City.
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APPENDIX B: EFFECT OF ASSUMPTIONS USED IN CALCULATIONS
While we believe the estimates in this study are reasonable overall,it was necessary for us to use
assumptions which inevitably introduce errors. We believe that the errors caused by our assumptions will not
materially affect study results. If the City wants more refined estimates for decision-making,we recommend
additional investigation. Following is a brief summary of the impact of some of the more critical assumptions.
1. Where actuarial assumptions differ from expected experience,our estimates could be
overstated or understated. One of the most critical assumptions is the medical trend rate.
The City may want to commission further study to assess the sensitivity of liability
estimates to our medical trend assumptions. For example,it may be helpful to know how
liabilities would be affected by using a trend factor 1%higher than what was used in this
study. There is an additional fee required to calculate the impact of alternative trend
assumptions.
2. We used an"entry age normal' actuarial cost method to estimate the actuarial accrued
liability and normal cost. GASB allows this as one of several permissible methods under
GAS1345. Using a different cost method could result in a somewhat different recognition
pattern of costs and liabilities.
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APPENDIX C: ACTUARIAL ASSUMPTIONS AND METHODS
Following is a summary of actuarial assumptions and methods used in this study.The City should carefully
review these assumptions and methods to make sure they reflect the City's assessment of its underlying experience.
It is important for City of Seal Beach to understand that the appropriateness of all selected actuarial assumptions and
methods are City of Seal Beach's responsibility.Unless otherwise disclosed in this report,TCS believes that all
methods and assumptions are within a reasonable range based on the provisions of GASB 43 and 45, applicable
actuarial standards of practice,City of Seal Beach's actual historical experience,and TCS's judgment based on
experience and training.
ACTUARIAL METHODS AND ASSUMPTIONS:
ACTUARIAL COSTMETHOD: Entry age normal. The allocation of OPEB cost is based on years of
service.We used the level percentage of payroll method to allocate OPEB cost over years
of service.
Entry age is based on the age at hire for eligible employees. The attribution period is
determined as the difference between the expected retirement age and the age at hire. The
present value of future benefits and present value of future normal costs are determined on
an employee by employee basis and then aggregated.
To the extent that different benefit formulas apply to different employees of the same class,
the normal cost is based on the benefit plan applicable to the most recently hired employees
(including future hires if a new benefit formula has been agreed to and communicated to
employees).
AMORTIZATIONMETHODS: We used a level percent,open 30 year amortization period for the initial
UAAL.We used a level percent,open 25 year amortization period for any residual UAAL.
SUBSTANTIVE PLAN. As required under GASB 43 and 45,we based the valuation on the substantive
plan.The formulation of the substantive plan was based on a review of written plan
documents as well as historical information provided by City of Seal Beach regarding
practices with respect to employer and employee contributions and other relevant factors.
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ECONOMIC ASSUMPTIONS:
Economic assumptions are set under the guidance of Actuarial Standard of Practice 27(ASOP 27).Among other
things,ASOP 27 provides that economic assumptions should reflect a consistent underlying rate of general inflation.
For that reason,we show our assumed long-term inflation rate below.
INFLATION. We assumed 2.75%per year.
INVESTMENTRETURNIDISCOUNTRATE: We assumed 7.25%per year.This is based on assumed
long-term return on plan assets assuming 100%funding through CERBT.We used the
"Building Block Method"as described in ASOP 27 Paragraph 3.6.2.
TREND: We assumed 4%per year. Our long-term trend assumption is based on the conclusion that,
while medical trend will continue to be cyclical,the average increase over time cannot
continue to outstrip general inflation by a wide margin. Trend increases in excess of
general inflation result in dramatic increases in unemployment,the number of uninsured
and the number of underinsured. These effects are nearing a tipping point which will
inevitably result in fundamental changes in health care finance and/or delivery which will
bring increases in health care costs more closely in line with general inflation. We do not
believe it is reasonable to project historical trend vs. inflation differences several decades
into the future.
PAYROLL INCREASE: We assumed 2.75%per year. This assumption applies only to the extent that either
or both of the normal cost and/or UAAL amortization use the level percentage of payroll
method.For purposes of applying the level percentage of payroll method,payroll increase
must not assume any increases in staff or merit increases.
ACTUARIAL VALUE OFPLANASSETS OVA): We used asset values provided by City of Seal Beach.We
used a 5 year smoothing formula with a 20%corridor around market value.
The following are the calculations for the adjusted value of plan assets:
CERBT-Strategy 1 Amount
(1)Market value at 6/30/13 $2,770,266
(2)Accumulated contributions(disbursements)at 7.25% $2,647,694
(3)Value in(2)+1/5 of(1)minus(2) $2,672,209
(4)Value in(3)adjusted to minimum or maximum* $2,672,209
(5)AVA at 6/30/13 adjusted to valuation date at 7.25% $2,672,209
*Minimum is 80%of market value;maximum is 120%of market value
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NON-ECONOMIC ASSUMPTIONS:
Economic assumptions are set under the guidance of Actuarial Standard of Practice 35 (ASOP 35).
MORTALITY
Employee Type Mortality Tables
Miscellaneous 2009 CAPERS Mortality for Miscellaneous Employees
Police 2009 CAPERS Rates for Active Sworn Employees
RETIREMENT RATES
Employee Type Retirement Rate Tables
Miscellaneous 2009 CAPERS 2.0%@55 Rates for Miscellaneous Employees
Police 2009 CalPERS 3%@50 Rates for Sworn Police
VESTING RATES
See table page 5
COSTS FOR RETIREE COVERAGE
Retiree liabilities are based on actual retiree costs.Liabilities for active participants are based on the first year costs
shown below. Subsequent years' costs are based on first year costs adjusted for trend and limited by any City
contribution caps.
Employee Type Future Retirees Pre-65 Future Retirees Post-65
Management Statutory minimum:$1,380 Statutory minimum: $1,380
Single coverage: $4,191 Single coverage: $2,194
Retirees eligible for dependent coverage: $8,426 Retirees eligible for dependent coverage: $4,832
OCEA Statutory minimum: $1,380 Statutory minimum: $1,380
Single coverage: $4,925 Single coverage: $2,356
Retirees eligible for dependent coverage: $9,748 Retirees eligible for dependent coverage: $5,125
Police Statutory minimum: $1,380 Statutory minimum: $1,380
Retirees with additional benefits: $8,426 Retirees with additional benefits:$4,832
SBSPA Statutory minimum: $1,380 Statutory minimum: $1,380
Single coverage: $4,191 Single coverage: $2,194
Retirees eligible for dependent coverage: $8,426 Retirees eligible for dependent coverage: $4,832
PARTICIPATIONRATES
Employee Type <65 Non Medicare Participation % 65+Medicare Participation %
Management Statutory minimum: 80% Statutory minimum: 80%
Enhanced benefits: 100% Enhanced benefits: 100%
OCEA Statutory minimum: 80% Statutory minimum: 80%
Enhanced benefits: 100% Enhanced benefits: 100%
SBSPA Statutory minimum: 80% Statutory minimum: 80%
Enhanced benefits: 100% Enhanced benefits: 100%
Police Statutory minimum: 80% Statutory minimum: 80%
Enhanced benefits: 100% Enhanced benefits: 100%
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TURNOVER
Employee Type Turnover Rate Tables
Miscellaneous 2009 Ca1PERS Turnover for Miscellaneous Employees
Police 2009 CalPERS Rates for Sworn Police
SPOUSE PREVALENCE
To the extent not provided and when needed to calculate benefit liabilities, 80%of retirees assumed to be married at
retirement.After retirement,the percentage married is adjusted to reflect mortality.
SPOUSEAGES
To the extent spouse dates of birth are not provided and when needed to calculate benefit liabilities,female spouse
assumed to be three years younger than male.
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APPENDIX D: DISTRIBUTION OF ELIGIBLE PARTICIPANTS BY AGE
ELIGIBLE ACTIVE EMPLOYEES
Age Total Management OCEA SBSPA Police
Under 25 2 0 2 0 0
25-29 12 1 4 4 3
30-34 10 3 3 1 3
35-39 11 3 2 2 4
40-44 18 5 1 5 7
45-49 15 1 7 0 7
50-54 10 2 3 1 4
55-59 8 1 4 1 2
60-64 3 1 1 1 0
65 and older 4 0 0 3 1
Total 93 17 27 18 31
ELIGIBLE RETIREES
Age Total Management OCEA SBSPA Police
Under 50 1 0 1 0 0
50-54 3 0 0 0 3
55-59 11 1 1 1 8
60-64 12 2 5 1 4
65-69 18 2 2 4 10
70-74 8 1 2 3 2
75-79 6 1 1 1 3
80-84 1 0 1 0 0
85-89 1 0 1 0 0
90 and older 0 0 0 0 0
Total 61 7 14 10 30
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APPENDIX E: CALCULATION OF GASB 43/45 ACCOUNTING ENTRIES
This report is to be used to calculate accounting entries rather than to provide the dollar amount of
accounting entries. How the report is to be used to calculate accounting entries depends on several factors.Among
them are:
1) The amount of prior accounting entries;
2) Whether individual components of the ARC are calculated as a level dollar amount or as a level
percentage of payroll;
3) Whether the employer using a level percentage of payroll method elects to use for this purpose
projected payroll,budgeted payroll or actual payroll;
4) Whether the employer chooses to adjust the numbers in the report to reflect the difference between the
valuation date and the first fiscal year for which the numbers will be used.
To the extent the level percentage of payroll method is used,the employer should adjust the numbers in this report
as appropriate to reflect the change in OPEB covered payroll. It should be noted that OPEB covered payroll should
only reflect types of pay generating pension credits for plan participants.Please note that plan participants do not
necessarily include all active employees eligible for health benefits for several reasons.Following are examples.
1) The number of hours worked or other eligibility criteria may differ for OPEB compared to active health
benefits;
2) There may be active employees over the maximum age OPEB are paid through.For example, if an
OPEB plan pays benefits only to Medicare age,any active employees currently over Medicare age are
not plan participants;
3) Employees hired at an age where they will exceed the maximum age for benefits when the service
requirement is met are also not plan participants.
Finally,GASB 43 and 45 require reporting covered payroll in RSI schedules regardless of whether any ARC
component is based on the level percentage of payroll method. This report does not provide,nor should the actuary
be relied on to report covered payroll.
GASB 45 Paragraph 26 specifies that the items presented as RSI"should be calculated in accordance with the
parameters." The RSI items refer to Paragraph 25.c which includes annual covered payroll. Footnote 3 provides
that when the ARC is based on covered payroll,the payroll measure may be the projected payroll,budgeted
payroll or actual payroll. Footnote 3 further provides that comparisons between the ARC and contributions
should be based on the same measure of covered payroll.
At the time the valuation is being done,the actuary may not know which payroll method will be used for
reporting purposes. The actuary may not even know for which period the valuation will be used to determine the
ARC.Furthermore,the actuary doesn't know if the client will make adjustments to the ARC in order to use it for
the first year of the biennial or triennial period. (GASB 45 is silent on this.)Even if the actuary were to know all
of these things, it would be a rare situation that would result in me knowing the appropriate covered payroll
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number to report. For example, if the employer uses actual payroll,that number would not be known at the time
the valuation is done.
As a result,we believe the proper approach is to report the ARC components as a dollar amount. It is the client's
responsibility to turn this number into a percentage of payroll factor by using the dollar amount of the ARC
(adjusted, if desired) as a numerator and then calculating the appropriate amount of the denominator based on the
payroll determination method elected by the client for the appropriate fiscal year.
If we have been provided with payroll information,we are happy to use that information to help the employer
develop an estimate of covered payroll for reporting purposes. However,the validity of the covered payroll
remains the employer's responsibility even if TCS assists the employer in calculating it.
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APPENDIX F: GLOSSARY OF RETIREE HEALTH VALUATION TERMS
Note: The following definitions are intended to help a non-actuary understand concepts related to retiree health
valuations. Therefore,the definitions may not be actuarially accurate.
Actuarial Accrued Liability: The amount of the actuarial present value of total projected benefits attributable to
employees' past service based on the actuarial cost method used.
Actuarial Cost Method: A mathematical model for allocating OPEB costs by year of service.
Actuarial Present Value of Total
Projected Benefits: The projected amount of all OPEB benefits to be paid to current and future retirees
discounted back to the valuation date.
Actuarial Value of Assets: Market-related value of assets which may include an unbiased formula for
smoothing cyclical fluctuations in asset values.
Annual OPEB Cost: This is the amount employers must recognize as an expense each year. The annual
OPEB expense is equal to the Annual Required Contribution plus interest on the
Net OPEB obligation minus an adjustment to reflect the amortization of the net
OPEB obligation.
Annual Required Contribution: The sum of the normal cost and an amount to amortize the unfunded actuarial
accrued liability. This is the basis of the annual OPEB cost and net OPEB
obligation.
Closed Amortization Period: An amortization approach where the original ending date for the amortization
period remains the same. This would be similar to a conventional, 30-year
mortgage,for example.
Discount Rate: Assumed investment return net of all investment expenses. Generally, a higher
assumed interest rate leads to lower normal costs and actuarial accrued liability.
Implicit Rate Subsides The estimated amount by which retiree rates are understated in situations where,
for rating purposes,retirees are combined with active employees.
Mortali. Rate: Assumed proportion of people who die each year. Mortality rates always vary by
age and often by sex. A mortality table should always be selected that is based on
a similar"population"to the one being studied.
Net OPEB Obli ate ion: The accumulated difference between the annual OPEB cost and amounts
contributed to an irrevocable trust exclusively providing retiree OPEB benefits and
protected from creditors.
Normal Cost: The dollar value of the "earned"portion of retiree health benefits if retiree health
benefits are to be fully accrued at retirement.
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OPEB Benefits: Other PostEmployment Benefits.Generally medical,dental,prescription drug,life,
long-term care or other postemployment benefits that are not pension benefits.
Open Amortization Period: Under an open amortization period,the remaining unamortized balance is subject
to a new amortization schedule each valuation. This would be similar, for example,
to a homeowner refinancing a mortgage with a new 30-year conventional mortgage
every two or three years.
Participation Rate: The proportion of retirees who elect to receive retiree benefits. A lower
participation rate results in lower normal cost and actuarial accrued liability. The
participation rate often is related to retiree contributions.
Retirement Rate: The proportion of active employees who retire each year. Retirement rates are
usually based on age and/or length of service. (Retirement rates can be used in
conjunction with vesting rates to reflect both age and length of service). The more
likely employees are to retire early,the higher normal costs and actuarial accrued
liability will be.
Transition Obligation: The amount of the unfunded actuarial accrued liability at the time actuarial accrual
begins in accordance with an applicable accounting standard.
Trend Rate: The rate at which the cost of retiree benefits is expected to increase over time. The
trend rate usually varies by type of benefit(e.g.medical,dental,vision,etc.)and
may vary over time. A higher trend rate results in higher normal costs and
actuarial accrued liability.
Turnover Rate: The rate at which employees cease employment due to reasons other than death,
disability or retirement. Turnover rates usually vary based on length of service and
may vary by other factors. Higher turnover rates reduce normal costs and actuarial
accrued liability.
Unfunded Actuarial
Accrued Liability: This is the excess of the actuarial accrued liability over assets irrevocably
committed to provide retiree health benefits.
Valuation Date: The date as of which the OPEB obligation is determined.Under GASB 43 and 45,
the valuation date does not have to coincide with the statement date.
Vesting Rate: The proportion of retiree benefits earned,based on length of service and,
sometimes,age. (Vesting rates are often set in conjunction with retirement rates.)
More rapid vesting increases normal costs and actuarial accrued liability.
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