Federal Employees' Retirement System: Benefits and Financing

Publication Date: June 2003

Publisher: Library of Congress. Congressional Research Service

Author(s):

Research Area: Government

Type:

Abstract:

Most civilian federal employees who began their careers before 1984 are covered by the Civil Service Retirement System (CSRS). Federal employees first hired in 1984 or later are covered by the Federal Employees’ Retirement System (FERS). Both CSRS and FERS require participants to contribute toward the cost of the plans through a payroll tax. Employees who are covered by CSRS contribute 7.0% of pay to the Civil Service Retirement and Disability Fund (CSRDF). They do not pay Social Security taxes and are not eligible for Social Security benefits. Employees who are covered under FERS contribute 0.8% of pay to the civil service trust fund and 6.2% of pay to Social Security on salary up to the maximum taxable wage base ($87,000 in 2003).

The normal retirement age under both CSRS and FERS is 55 for workers who have at least 30 years of service; however, the FERS normal retirement age will increase beginning with workers born in 1948 and eventually will reach age 57 for employees born in 1970 or later. FERS and CSRS both allow retirement with an unreduced pension at age 60 for employees with 20 or more years of service, and at age 62 for workers with at least 5 years of service.

The Thrift Savings Plan (TSP) is a defined contribution retirement plan similar to the “401(k)” plans provided by many employers in the private sector. In 2003, employees covered by FERS can make voluntary contributions equal to the lesser of 13% of pay or $12,000. Employee contributions of up to 5% of pay are matched by the federal government. Federal workers covered by CSRS also can participate in the TSP, but their total contribution in 2003 is limited to 8% of pay, and they receive no matching contributions from their employing agency.

The Office of Personnel Management (OPM) estimates the cost of CSRS to be 24.4% of payroll. The federal government pays 17.4% of payroll and the other 7.0% is paid by employees. OPM estimates the cost of the FERS basic annuity at 11.5% of payroll. The federal government contributes 10.7% of payroll with the other 0.8% paid by employees. There are three other employer costs for employees covered by FERS. Social Security taxes are 6.2% of payroll on both the employee and the employer; agencies automatically contribute an amount equal to 1% of employee pay to the TSP; and agencies also make matching contributions to the TSP.

At the start of FY2001, taking into account benefits yet to be earned in addition to benefits that have already been accrued, the Civil Service Retirement and Disability Fund had an unfunded liability of $509 billion, all of which is attributable to CSRS and none to FERS. Although the civil service trust fund has an unfunded liability, it is not in danger of becoming insolvent. At no point over the next 75 years will the fund be exhausted. All of the monies of the Civil Service Retirement and Disability Trust Fund are invested in special-issue U.S. Treasury bonds. Congress could permit the trust fund to invest in other assets – such as corporate stocks and bonds – but the effects of such a change on the federal budget and on government ownership of private-sector assets would deserve careful consideration.