BILL ANALYSIS Ó ------------------------------------------------------------ |SENATE RULES COMMITTEE | AB 340| |Office of Senate Floor Analyses | | |1020 N Street, Suite 524 | | |(916) 651-1520 Fax: (916) | | |327-4478 | | ------------------------------------------------------------ THIRD READING Bill No: AB 340 Author: Furutani (D), et al. Amended: 9/2/11 in Senate Vote: 21 SEN.PUBLIC EMPLOY. & RETIRE. COMMITTEE : 5-0, 6/27/11 AYES: Negrete McLeod, Walters, Gaines, Padilla, Vargas ASSEMBLY FLOOR : 73-0, 5/12/11 - See last page for vote SUBJECT : County employees retirement SOURCE : Author DIGEST : This bill prohibits certain cash payments from being included in compensation for the purpose of determining a retirement benefit in county retirement systems subject to the 1937 Act County Retirement Law, and prohibits retirees in those retirement systems from immediately returning to employment with the public employer on a part-time or contract basis. Senate Floor Amendments of 9/2/11 remove a redundant provision that is already provided for in another existing Government Code section and add a co-author. ANALYSIS : Existing law: CONTINUED AB 340 Page 2 1.Establishes the 20 county retirement systems operating under the 1937 Act County Retirement Law ('37 Act), which provide defined benefit retirement allowances based on employees' years of service, age at retirement, and final compensation (most commonly, the highest paid 12 or 36 months of employment). 2.Allows public employers, through laws, rules, local ordinances, and collective bargaining agreements, to pay differentials, bonuses, overtime, separation pay, holiday pay, and other forms of compensation in addition to base pay and requires that employers accurately and timely report to the retirement boards the amount of compensation paid to employees, including special forms of pay, changes in employment status, leaves, and other facts that impact compensation. 3.Defines "compensation earnable" in the '37 Act system as the average compensation for the period under consideration with respect to the average number of days ordinarily worked by persons in the same grade or class of positions during the period, and at the same rate of pay. 4.Allows a retired public employee or teacher to return to public employment with an employer covered by the retirement system he or she retired from on a part-time basis, as specified. An employee who exceeds the limited time base or earnings, as specified, may be subject to reinstatement into the retirement system and reduction or cessation of his or her retirement allowance or earnings. This bill: 1.Makes findings and declarations that the act achieves pension reforms, including giving retirement boards the authority and responsibility to audit and deny compensation that is paid to spike a pension and assess penalties to employers for non-compliance, prohibiting final settlement pay and various types of leave pay from being included in retirement calculations, and prohibiting the practice of "double-dipping," defined as immediately (within 180 days) returning to public employment after retirement. CONTINUED AB 340 Page 3 2.Excludes from the definition of "compensation earnable" payments for unused vacation time, annual leave, personal leave, sick leave, or compensatory time off that exceeds what is earned and payable in a 12-month period, payments for service rendered outside of normal working hours, bonus payments, housing allowances, severance pay, and vehicle allowances, as specified. 3.Authorizes a '37 Act retirement board to establish a procedure for determining whether an element of compensation as paid for the principal purpose of pension spiking and requires the board to provide notice to the employer and member when such a termination has been made. 4.Specifies that compensation paid to a retiring member to restore compensation the member would have been entitled to receive pursuant to a collective bargaining agreement that was subsequently deferred or modified, as specified, will be considered compensation earnable and not considered to have been paid for the purpose of enhancing the member's retirement benefits. 5.Establishes compensation reporting requirements for counties and districts and authorizes a '37 Act retirement board to audit and determine the correctness of specified information and assess a county or district a reasonable cost to cover the cost of the audit and any necessary adjustment or correction if the board determines the county or district knowingly failed to comply with the compensation reporting requirements. 6.Requires a county or district to enroll an eligible employee into membership with the retirement system within 90 days. Employers who fail to meet this requirement are required to pay all costs in arrears for member contributions and administrative costs of $500 per member. 7.Prohibits a person who retires on or after January 1, 2012, from returning to work as a retired annuitant or as a contract employee for a period of 180 days after retirement. CONTINUED AB 340 Page 4 8.Specifies that a retiree hired in violation of the 180 days rule is required to reimburse the retirement system for any retirement allowance received during that period and any administrative expenses incurred. 9.Specifies that a county or district that hires someone in violation of the 180 day rule is required to reimburse the retirement system for any administrative expenses incurred if the county or district is determined to be at fault by the executive officer of the retirement system. 10.Clarifies that this act shall not be applied to reduce the pension of any individual who has retired prior to January 1, 2012. Comments Similarity to SB 27 (Simitian) and Previously Vetoed Bills . The 180 day provision in this bill is similar to provisions contained in SB 27 (Simitian) of this year. SB 27 prohibits, for 180 days after the date of retirement, any member of the California Public Employees' Retirement System (CalPERS) or the California State Teachers' Retirement System (CalSTRS) who retires on or after January 1, 2013, from returning to work as a part-time, paid employee, contracting employee, or employee of a third party contractor for a period of 180 days following retirement. The provisions relative to working after retirement were also contained in AB 1987 (Ma), 2009-10 Session, and SB 1425 (Simitian), 2009-10 Session, which were vetoed by the Governor. The Governor did not mention the 180 day provisions in his veto messages on the bills. Other concerns with the bills were cited. Related and Prior Legislation SB 27 (Simitian), 2011-12 Session, among other things, prohibits a retiree from returning to work as a retired annuitant or contract employee for a period of 180 days after retirement. (In Assembly Appropriations Committee) CONTINUED AB 340 Page 5 SB 1425 (Simitian), 2009-10 Session, would have established minimum standards and requirements for all public retirement systems in California with respect to final compensation, ongoing audits with penalties for noncompliance, and prohibitions against a retiree from immediately returning to employment with the public employer on a part-time or contract basis. Passed the Senate with a vote of 37-0 on August 31, 2010. The bill was subsequently vetoed by Governor Schwarzenegger, whose veto message read: "The enactment of this bill is contingent upon the enactment of AB 1987 (Ma). I am vetoing AB 1987 because it does not provide real pension reform. I am still hopeful that the Legislature will pass an acceptable bill that really addressed California's pension problem." AB 1987 (Ma), 2009-10 Session, would have established minimum standards and requirements for all public retirement systems in California with respect to final compensation, ongoing audits with penalties for noncompliance, and prohibitions against a retiree from immediately returning to employment with the public employer on a part-time or contract basis. Passed the Senate with a vote of 28-1 on August 30, 2010. The bill was subsequently vetoed by Governor Schwarzenegger, whose veto message read: "The practice of pension-spiking is a serious one that deserves significant attention by the Legislature in curbing the unacceptable manner in which individual workers are able to artificially boost their retirement payouts. There are numerous examples of public employees taking home larger pension checks in retirement than what they earned in base salary when they were actually working. "California does need a consistent standard that is transparent, understandable, and implementable throughout the state. While this bill purports to address this issue by segregating out some of the factors that have allowed pension spiking, in some CONTINUED AB 340 Page 6 instances it still allows local pension boards to determine what is ultimately counted in an employee's pension calculation. This does not provide a consistent treatment of all employees. The taxpayers of California deserve better. I am still hopeful that the Legislature can send me acceptable pension reform legislation." FISCAL EFFECT : Appropriation: No Fiscal Com.: No Local: No SUPPORT : (Verified 9/6/11) American Federation of State, County and Municipal Employees, AFL-CIO Association for Los Angeles Deputy Sheriffs California Association of Psychiatric Technicians California School Employees Association Glendale City Employees Association Los Angeles County Probation Officers Union Organization of SMUD Employees Redondo Beach Chamber of Commerce Retired Public Employees Association San Bernardino Public Employees Association San Luis Obispo County Employees Association Santa Rosa City Employees Association Service Employees International Union South Bay Association of Chambers of Commerce OPPOSITION : (Verified 9/6/11) Association of California Water Agencies California District Attorneys Association California State Association of Counties (oppose unless amended) ARGUMENTS IN SUPPORT : According to the author's office, "California's public pension systems were established to provide retirement security for those who give their lives in public service. Recently, the benefits provided by those systems have been tainted by a few individuals who have taken advantage of the system. This is in part due to the "37 Act's very broad and general definition of 'compensation earnable' (the amount of which a member's CONTINUED AB 340 Page 7 pension is calculated). In these counties some public employees, most of them in upper level positions, have taken advantage of this situation to include items in their compensation that 'spike' their final compensation to create vastly increased pension checks for themselves. "The abusive practices engaged in by a few individual have put retirement benefits at risk for the vast majority of honest, hard-working public servants. Additionally, the practice of having someone retire on Friday and come back to work on Monday and being able to collect a full retirement benefit along with a full paycheck, is something the public simply will not tolerate any longer. Allowing this 'double-dipping' to continue only adds to the growing public concern over the pension being received by public employees." The author concludes, "This measure will address these abusive practices by giving the '37 Act retirement boards the authority and the obligation to deny compensation items that are provided to an employee for the principal purpose of enhancing a member's retirement, specifically excluding certain payments from the definition of 'compensation earnable', and requiring an employee to 'sit out' for 180 days after retirement before returning to service." Supporters state, "AB 340 would eliminate the current ability for employees to manipulate their final compensation calculations to enhance their retirement benefits. Additionally, AB 340 restricts the ability of members to retire immediately and return to employment as a retired annuitant and begin collecting a salary and pension simultaneously?AB 340 ends 'double-dipping' employed by many of the managers and highly compensated employees." ARGUMENTS IN OPPOSITION : Those opposed to the bill are concerned about the provision prohibiting a retiree from returning to work for their previous employer until 180 days have elapsed from the day of retirement. They state, "The use of recent retirees allows public agencies to save public dollars during the recruitment period and until the position is filled with a competent person. Many of the positions for which retirees are re-hired temporarily are highly skilled trade's positions which are difficult to CONTINUED AB 340 Page 8 fill." ASSEMBLY FLOOR : 73-0, 5/12/11 AYES: Achadjian, Alejo, Allen, Ammiano, Atkins, Beall, Bill Berryhill, Block, Blumenfield, Bonilla, Bradford, Brownley, Buchanan, Butler, Charles Calderon, Campos, Carter, Chesbro, Cook, Davis, Dickinson, Donnelly, Eng, Feuer, Fletcher, Fong, Fuentes, Furutani, Beth Gaines, Gatto, Gordon, Grove, Hagman, Halderman, Hall, Harkey, Hayashi, Roger Hernández, Hill, Huber, Hueso, Huffman, Jeffries, Jones, Knight, Lara, Logue, Bonnie Lowenthal, Ma, Mansoor, Mendoza, Miller, Mitchell, Monning, Morrell, Nestande, Nielsen, Norby, Olsen, Pan, Perea, V. Manuel Pérez, Silva, Skinner, Smyth, Solorio, Swanson, Valadao, Wagner, Wieckowski, Williams, Yamada, John A. Pérez NO VOTE RECORDED: Cedillo, Conway, Galgiani, Garrick, Gorell, Portantino, Torres CPM:cm 9/2/11 Senate Floor Analyses SUPPORT/OPPOSITION: SEE ABOVE **** END **** CONTINUED