DESCRIPTION OF THE CHAIRMAN’S MARK OF THE

RETIREMENT ENHANCEMENT AND SAVINGS ACT OF 2016

Scheduled for Markup

by the

SENATE COMMITTEE ON FINANCE

on September 21, 2016

Prepared by the Staff

of the

JOINT COMMITTEE ON TAXATION

September 19, 2016

JCX-85-16
i

CONTENTS

Page

INTRODUCTION .......................................................................................................................... 1

I. EXPANDING AND PRESERVING RETIREMENT SAVINGS ..................................... 2

A. Enhancements to Section 401(k) Plans......................................................................... 2

1. Removal of limit on automatic enrollment safe harbor default rate ....................... 2

2. Election of safe harbor 401(k) plan status .............................................................. 4

B. Small Employer Plan Start-Up Credit........................................................................... 9

C. Small Employer Automatic Enrollment Credit........................................................... 10

D. Certain Non-Tuition Fellowship and Stipend Payments Treated as Compensation 

or IRA Purposes.......................................................................................................... 12

E. Repeal of Maximum Age for Traditional IRA Contributions .................................... 14

F. Shrinking Emergency Account Losses....................................................................... 15

1. Extended period for the rollover of plan loan offset amounts.............................. 15

2. Modification of rule governing hardship distributions......................................... 17

3. Qualified employer plans prohibited from making loans through credit cards

and other arrangements......................................................................................... 18

G. Portability of Lifetime Income Options...................................................................... 19

H. Treatment of Custodial Accounts under Section 403(b) Plan Upon Plan

Termination................................................................................................................. 23

II. ADMINISTRATIVE IMPROVEMENTS........................................................................ 26

A. Plan Adopted by Filing Due Date for Year May Be Treated as in Effect as

of Close of Year.......................................................................................................... 26

B. Combined Annual Report for Group of Plans ............................................................ 28

C. Disclosure Regarding Lifetime Income ...................................................................... 30

III. OTHER BENEFITS.......................................................................................................... 32

A. Judges and Special Trial Judges of the United States Tax Court ............................... 32

1. Tax Court Judges .................................................................................................. 32

2. Special Trial Judges of the Tax Court................................................................... 34
ii

IV. OTHER REVENUE PROPOSAL.................................................................................... 37

A. Penalty for Failure to File ........................................................................................... 37
1

INTRODUCTION

The Senate Committee on Finance has scheduled a committee markup on September 21, 

2016, of an original bill, the Retirement Enhancement and Savings Act of 2016 Act of 2016. 

This document,1 prepared by the staff of the Joint Committee on Taxation, provides a description 

of the bill. 

 1

 This document may be cited as follows: Joint Committee on Taxation, Description of the Chairman’s 

Mark of the Retirement Enhancement and Savings Act of 2016 Act of 2016 (JCX-85-16), September 19, 2016. This 

document can also be found on the Joint Committee on Taxation website at www.jct.gov. All section references 

herein are to the Internal Revenue Code of 1986, as amended, unless otherwise indicated.
2

I. EXPANDING AND PRESERVING RETIREMENT SAVINGS

A. Enhancements to Section 401(k) Plans

1. Removal of limit on automatic enrollment safe harbor default rate 

Present Law

General rules for 401(k) plans

A section 401(k) plan legally is not a separate type of plan, but is a profit-sharing or stock 

bonus plan that contains a qualified cash or deferred arrangement (which allows employees to 

make elective deferrals if certain requirements are satisfied).

2

 Thus, such arrangements are 

subject to the rules generally applicable to qualified defined contribution plans. In addition, 

special rules apply to such arrangements.3

The maximum annual amount of elective deferrals that can be made by an employee for a 

year is $18,000 (for 2016) or, if less, the employee’s compensation.4 For an employee who 

attains age 50 by the end of the year, the dollar limit on elective deferrals is increased by $6,000 

(for 2016) (called catch-up contributions).5 An employee’s elective deferrals must be fully 

vested. A section 401(k) plan may also provide for employer matching and nonelective 

contributions. 

Automatic enrollment

Section 401(k) plans may be designed so that the employee will receive cash 

compensation unless the employee affirmatively elects to make elective deferrals to the section 

401(k) plan. Alternatively, a plan may provide that elective deferrals are made at a specified rate 

(when the employee becomes eligible to participate) unless the employee elects otherwise (i.e., 

 2

 Certain pre-ERISA money purchase plans and rural cooperative plans may also include a qualified cash 

or deferred arrangement. Except for certain grandfathered plans, a State or local governmental employer may not 

maintain a section 401(k) plan.

3

 Elective deferrals are generally made on a pretax basis. However, a section 401(k) plan is permitted to 

include a “qualified Roth contribution program” that permits a participant to elect to have all or a portion of the 

participant’s elective deferrals under the plan treated as designated Roth contributions. Designated Roth 

contributions are elective deferrals that the participant designates as not excludable from the participant’s gross 

income. Qualified distributions from a designated Roth account are excluded from income, even though they include 

earnings not previously taxed. A qualified distribution is a distribution made after the end of a specified period 

(generally five years after the participant’s first designated Roth contribution) and that is (1) made on or after the 

date on which the participant attains age 591⁄2, (2) made to a beneficiary (or to the estate of the participant) on or 

after the death of the participant, or (3) attributable to the participant’s being disabled. 

4

 Sec. 402(g).

5

 Sec. 414(v).
3

affirmatively elects not to make contributions or to make contributions at a different rate). This 

plan design is referred to as automatic enrollment. 

Nondiscrimination test 

General rule

A special annual nondiscrimination test, called the actual deferral percentage test (the 

“ADP” test) applies to elective deferrals under a section 401(k) plan.6 The ADP test generally 

compares the average rate of deferral for highly compensated employees to the average rate of 

deferral for nonhighly compensated employees. The ADP test allows the average deferral rate 

for highly compensated employees to exceed that for nonhighly compensated employees within 

certain specified limits. 

Design-based safe harbors 

This nondiscrimination test is deemed to be satisfied if a section 401(k) plan includes 

certain minimum benefits (matching or nonelective contributions) as well as certain required 

rights and features and satisfies a notice requirement ("401(k) safe harbor plan"). One type of 

401(k) safe harbor includes automatic enrollment.7 Under an automatic enrollment 401(k) safe 

harbor, unless an employee elects otherwise, the employee is treated as electing to make elective 

deferrals equal to a percentage of compensation as stated in the plan, not in excess of 10 percent 

and at least (1) three percent of compensation for the first year the deemed election applies to the 

participant, (2) four percent during the second year, (3) five percent during the third year, and 

(4) six percent during the fourth year and thereafter.8 Under the automatic enrollment 401(k) 

safe harbor, the matching contribution requirement is 100 percent of elective contributions of the 

employee for contributions not in excess of one percent of compensation, and 50 percent of 

elective contributions for contributions that exceed one percent of compensation but do not 

exceed six percent (for a total matching contribution of up to 3.5 percent of 

compensation)("matching contribution automatic enrollment 401(k) safe harbor"). The rate of 

nonelective contribution under the automatic enrollment 401(k) safe harbor plan is three percent.

Under the automatic enrollment 401(k) safe harbors, the matching and nonelective contributions 

must become 100 percent vested no later than after two years of service

Description of Proposal

Under the proposal, the 10-percent limitation on the deemed election rate under the 

automatic enrollment safe harbor plan is removed after the first year that the deemed election 

applies.

 6

 Sec. 401(k)(3). 

7

 Secs. 401(k)(13) and (m)(12).

8

 These automatic increases in default contribution rates are required for plans using the safe harbor. Rev. 

Rul. 2009–30, 2009-39 I.R.B. 391, provides guidance for including automatic increases in other plans using 

automatic enrollment, including under a plan that includes an eligible automatic contribution arrangement.
4

Effective Date

The proposal applies to plan years beginning after December 31, 2016.

2. Election of safe harbor 401(k) plan status 

Present Law

General rules for 401(k) plans

A section 401(k) plan legally is not a separate type of plan, but is a profit-sharing or stock 

bonus plan that contains a qualified cash or deferred arrangement (which allows employees to 

make elective deferrals is certain requirements are satisfied).

9

 Thus, such arrangements are 

subject to the rules generally applicable to qualified defined contribution plans. In addition, 

special rules apply to such arrangements.10 One rule is that the arrangement must provide each 

eligible employee with an effective opportunity to make or change an election to make elective 

deferrals at least once each plan year.11 Whether an employee has an effective opportunity is 

determined based on all the relevant facts and circumstances, including the adequacy of notice of 

the availability of the election, the period of time during which an election may be made, and any 

other conditions on elections. 

The maximum annual amount of elective deferrals that can be made by an employee for a 

year is $18,000 (for 2016) or, if less, the employee’s compensation.12 For an employee who 

attains age 50 by the end of the year, the dollar limit on elective deferrals is increased by $6,000 

(for 2016) (called catch-up contributions).13 An employee’s elective deferrals must be fully 

vested. A section 401(k) plan may also provide for employer matching and nonelective 

contributions. 

 9

 Certain pre-ERISA money purchase plans and rural cooperative plans may also include a qualified cash 

or deferred arrangement. Except for certain grandfathered plans, a State or local governmental employer may not 

maintain a section 401(k) plan.

10 Elective deferrals are generally made on a pretax basis. However, a section 401(k) plan is permitted to 

include a “qualified Roth contribution program” that permits a participant to elect to have all or a portion of the 

participant’s elective deferrals under the plan treated as designated Roth contributions. Designated Roth 

contributions are elective deferrals that the participant designates as not excludable from the participant’s gross 

income. Qualified distributions from a designated Roth account are excluded from income, even though they include 

earnings not previously taxed. A qualified distribution is a distribution made after the end of a specified period 

(generally five years after the participant’s first designated Roth contribution) and that is (1) made on or after the 

date on which the participant attains age 591⁄2, (2) made to a beneficiary (or to the estate of the participant) on or 

after the death of the participant, or (3) attributable to the participant’s being disabled. 

11 Treas. Reg. sec. 1.401(k)-1(e)(2)(ii).

12 Sec. 402(g).

13 Sec. 414(v).
5

Automatic enrollment

Section 401(k) plans may be designed so that the employee will receive cash 

compensation unless the employee affirmatively elects to make elective deferrals to the section 

401(k) plan. Alternatively, a plan may provide that elective deferrals are made at a specified rate 

(when the employee becomes eligible to participate) unless the employee elects otherwise (i.e., 

affirmatively elects not to make contributions or to make contributions at a different rate). This 

plan design is referred to as automatic enrollment. 

Nondiscrimination test 

General rule

A special annual nondiscrimination test, called the actual deferral percentage test (the 

“ADP” test) applies to elective deferrals under a section 401(k) plan.14 The ADP test generally 

compares the average rate of deferral for highly compensated employees to the average rate of 

deferral for nonhighly compensated employees. The ADP test allows the average deferral rate 

for highly compensated employees to exceed that for nonhighly compensated employees within 

certain specified limits. 15 If a plan does fails to satisfy the ADP test for a plan year based on the 

deferral elections of highly compensated employees, the plan is permitted to distribute deferrals 

to highly compensated employees ("excess deferrals") in a sufficient amount to correct the 

failure. The distribution of the excess deferrals must be made by the close day of the following 

plan year.16

Design-based safe harbors 

This nondiscrimination test is deemed to be satisfied if a section 401(k) plan includes 

certain minimum benefits (matching or nonelective contributions) as well as certain required 

rights and features and satisfies a notice requirement ("401(k) safe harbor plan"). Other 

requirements also apply, including requirements for a plan that satisfies the ACP test as well as 

the ADP on a safe harbor basis.17

 14 Sec. 401(k)(3). 

15 The limits under the ADP test for the average deferral rate for highly compensated employees are: 

(1) the average deferral rate for highly compensated employees can be up to 125 percent of the average deferral rate 

for nonhighly compensated employees; or (2) the average deferral rate for highly compensated employees can be 

two percentage points greater than the average deferral rate for nonhighly compensated employees or, if less, twice 

the average deferral rate for nonhighly compensated employees. Catch up contributions are not taken into account 

for this test. Under section 401(m)(2), employer matching contributions and after-tax employee contributions are 

subject to a similar special nondiscrimination test (the actual contribution percentage test or “ACP test”) which 

compares the average rate of matching and after-tax contributions to the plan of the two groups.

16 Sec. 401(k)(8).

17 Sec. 401(m)(11) and (12).
6

Safe harbor contributions 

Under one type of 401(k) safe harbor plan ("basic 401(k) safe harbor plan"),18 the plan 

either (1) satisfies a matching contribution requirement ("matching contribution basic 401(k) safe 

harbor plan") or (2) provides for a nonelective contribution to a defined contribution plan of at 

least three percent of an employee’s compensation on behalf of each nonhighly compensated 

employee who is eligible to participate in the plan ("nonelective basic 401(k) safe harbor plan"). 

The matching contribution requirement under the matching contribution basic 401(k) safe harbor

requires a matching contribution equal to at least 100 percent of elective contributions of the 

employee for contributions not in excess of three percent of compensation, and 50 percent of 

elective contributions for contributions that exceed three percent of compensation but do not 

exceed five percent, for a total matching contribution of up to four percent of compensation. 

The required matching contributions and the three percent nonelective contribution under the 

basic 401(k) safe harbor must be immediately nonforfeitable (i.e., 100 percent vested) when

made. 

Another safe harbor applies for a section 401(k) plan that include automatic enrollment 

("automatic enrollment 401(k) safe harbor").19 Under an automatic enrollment 401(k) safe 

harbor, unless an employee elects otherwise, the employee is treated as electing to make elective 

deferrals equal to a percentage of compensation as stated in the plan, not in excess of 10 percent 

and at least (1) three percent of compensation for the first year the deemed election applies to the 

participant, (2) four percent during the second year, (3) five percent during the third year, and 

(4) six percent during the fourth year and thereafter.20 Under the automatic enrollment 401(k) 

safe harbor, the matching contribution requirement is 100 percent of elective contributions of the 

employee for contributions not in excess of one percent of compensation, and 50 percent of 

elective contributions for contributions that exceed one percent of compensation but do not 

exceed six percent, for a total matching contribution of up to 3.5 percent of compensation 

("matching contribution automatic enrollment 401(k) safe harbor"). The rate of nonelective 

contribution under the automatic enrollment 401(k) safe harbor plan is three percent, as under the 

basic 401(k) safe harbor ("nonelective contribution automatic enrollment 401(k) safe harbor”). 

However, under the automatic enrollment 401(k) safe harbors, the matching and nonelective 

contributions are allowed to become 100 percent vested only after two years of service (rather 

than being required to be immediately vested when made). 

Safe harbor notice

The notice requirement for a 401(k) safe harbor plan is satisfied if each employee eligible 

to participate is given, within a reasonable period before any year, written notice of the 

employee's rights and obligations under the arrangement and the notice meets certain content and 

 18 Sec. 401(k)(12). 

19 Secs. 401(k)(13) and (m)(12).

20 These automatic increases in default contribution rates are required for plans using the safe harbor. Rev. 

Rul. 2009–30, 2009-39 I.R.B. 391, provides guidance for including automatic increases in other plans using 

automatic enrollment, including under a plan that includes an eligible automatic contribution arrangement.
7

timing requirements ("safe harbor notice"). To meet the content requirements, a safe harbor 

notice must be sufficiently accurate and comprehensive to inform an employee of the employee's 

rights and obligations under the plan, and be written in a manner calculated to be understood by 

the average employee eligible to participate in the plan. A safe harbor notice must provide 

certain information, including the plan's safe harbor contributions, any other plan contributions, 

the type and amount of compensation that may be deferred under the plan, how to make cash or 

deferred elections, the plan's withdrawal and vesting provisions, and specified contact 

information. In addition, a safe harbor notice for an automatic enrollment 401(k) safe harbor 

must describe certain additional information items, including the deemed deferral elections under 

the plan if the employee does not make an affirmative election and how contributions will be 

invested. 

Delay in adopting nonelective 401(k) safe harbor

Generally the plan provisions for the requirements that must be satisfied to be a 401(k) 

safe harbor plan must be adopted before the first day of the plan year and remain in effect for an 

entire 12-month plan year. However, in the case of a nonelective 401(k) safe harbor plan (but not 

the matching contribution 401(k) safe harbor), a plan may be amended after the first day of the 

plan year but no later than 30 days before the end of the plan year to adopt the safe harbor plan 

provisions including providing the 3 percent of compensation nonelective contribution. The plan 

must also provide a contingent and follow-up notice. The contingent notice must be provided 

before the beginning of the plan year and specify that the plan may be amended to include the 

safe harbor nonelective contribution and, if it is so amended, a follow-up notice will be provided. 

If the plan is amended, the follow-up notice must be provided no later than 30 days before the 

end of the plan year stating that the safe harbor nonelective contribution will be provided. 

Description of Proposal

In general

The proposal makes a number of changes to the rules for the nonelective contribution 

401(k) safe harbor. 

Elimination of notice requirement

The proposal eliminates the safe harbor notice requirement with respect to nonelective 

401(k) safe harbor plans. However, the general rule requiring a section 401(k) plan to provide 

each eligible employee with an effective opportunity to make or change an election to make 

elective deferrals at least once each plan year still applies. As described above, relevant factors 

used in determining if this requirement is satisfied include the adequacy of notice of the 

availability of the election and the period of time during which an election may be made.

Delay in adopting provisions for nonelective 401(k) safe harbor

Mid-year amendment

Under the proposal, a plan can be amended to become a nonelective 401(k) safe harbor 

plan, meaning be amended to provide the required nonelective contributions and thereby satisfy 
8

the safe harbor requirements, at any date during a plan year before the 30th day before the close 

of the plan year. 

Post-year amendment

Further, the proposal allows a plan to be amended after the 30th day before the close of 

the plan year to become a nonelective contribution 401(k) safe harbor plan if the plan is amended 

to instead provide for a nonelective contribution of at least four percent of compensation for all 

eligible employees, but the plan must be amended no later than the last day for distributing 

excess contributions for the plan year under present law (which is the close of following plan 

year). 

Effective Date

The proposals apply to plan years beginning after December 31, 2016.
9

B. Small Employer Plan Start-Up Credit

Present Law

Present law provides a nonrefundable income tax credit for qualified start-up costs of an 

eligible small employer that adopts a new qualified retirement plan, SIMPLE IRA plan, or SEP, 

provided that the plan covers at least one nonhighly compensated employee.21 Qualified start-up 

costs are expenses connected with the establishment or administration of the plan or retirementrelated education for employees with respect to the plan. The credit is the lesser of a flat dollar 

amount for $500 per year or 50 percent of the qualified start-up costs. The credit applies for up 

to three years beginning with the year the plan is first effective, or, at the election of the 

employer, the preceding year. 

An eligible employer is an employer that, for the preceding year, had no more than 100 

employees with compensation of $5,000 or more. In addition, the employer must not have had a 

plan covering substantially the same employees as the new plan during the three years preceding 

the first year for which the credit would apply. Members of controlled groups and affiliated 

service groups are treated as a single employer for purposes of these requirements.22 All eligible 

employer plans of an employer are treated as a single plan. 

No deduction is allowed for the portion of qualified start-up costs paid or incurred for the 

taxable year which is equal to the amount of the credit for these costs.

Description of Proposal

The proposal changes the calculation of the flat dollar amount limit on the credit. The flat 

dollar amount for a taxable year is the greater of (1) $500 or (2) the amount that is the lesser of 

(a) $250 multiplied by the number of employees of the eligible employer who are not highly 

compensated employees (as defined in section 414(q)) and who are eligible to participate in the 

eligible employer plan maintained by the eligible employer, or (b) $5,000. As under present law, 

the credit only applies up to three years.

Effective Date

The proposal applies to taxable years beginning after December 31, 2016.

 21 Sec. 45E.

22 Sec. 52 (a) or (b) and 414(m) or (o).
10

C. Small Employer Automatic Enrollment Credit

Present Law

Small employer startup credit

Present law provides a nonrefundable income tax credit for qualified start-up costs of an 

eligible small employer that adopts a new qualified retirement plan, SIMPLE IRA plan, or 

simplified employee pension plan (‘SEP”), provided that the plan covers at least one nonhighly 

compensated employee.23 Qualified start-up costs are expenses connected with the 

establishment or administration of the plan or retirement-related education for employees with 

respect to the plan. The credit is the lesser of a flat dollar amount for $500 per year or 50 percent 

of the qualified start-up costs. The credit applies for up to three years beginning with the year 

the plan is first effective, or, at the election of the employer, the preceding year. 

An eligible employer is an employer that, for the preceding year, had no more than 100 

employees with compensation of $5,000 or more. In addition, the employer must not have had a 

plan covering substantially the same employees as the new plan during the three years preceding 

the first year for which the credit would apply. Members of controlled groups and affiliated 

service groups are treated as a single employer for purposes of these requirements.24 All eligible 

employer plans of an employer are treated as a single plan. 

No deduction is allowed for the portion of qualified start-up costs paid or incurred for the 

taxable year which is equal to the amount of the credit for these costs.

Automatic enrollment

A qualified retirement plan that is a profit-sharing plan is permitted to include a qualified 

cash or deferred arrangement (which allows employees to make elective deferrals if certain 

requirements are satisfied, and is commonly called a "section 401(k) plan") 25 A SIMPLE IRA 

plan is required to allow employees to make elective deferrals.26 Section 401(k) plans and 

SIMPLE IRA plans may be designed so that the employee will receive cash compensation unless 

the employee affirmatively elects to make elective deferrals to the plan. Alternatively, a plan 

may provide that elective deferrals are made at a specified rate (when the employee becomes 

eligible to participate) unless the employee elects otherwise (i.e., affirmatively elects not to make 

 23 Sec. 45E.

24 Sec. 52 (a) or (b) and 414(m) or (o).

25 Certain pre-ERISA money purchase plans and rural cooperative plans may also include a qualified cash 

or deferred arrangement. Except for certain grandfathered plans, a State or local governmental employer may not 

maintain a section 401(k) plan.

26 Sec. 408(p). Except in the cases of SEP plans that, as in effect on December 31, 1996, allowed elective 

deferrals, a SEP may not allow employees to make elective deferrals. 
11

contributions or to make contributions at a different rate). This alternative plan design is referred 

to as automatic enrollment. 

Description of Proposal

Under the proposal, eligible employers (as defined under present law) are allowed a 

credit of $500 per year for up to three years for startup costs for new section 401(k) plans and 

SIMPLE IRA plans that include automatic enrollment (which would be in addition to the credit 

allowed under present law). Eligible employers are also allowed a credit of $500 per year for up 

to three years if they add automatic enrollment as a feature to an existing plan.

Effective Date

The proposal applies to taxable years beginning after December 31, 2016.
12

D. Certain Non-Tuition Fellowship and Stipend

Payments Treated as Compensation for IRA Purposes

Present Law

There are two general types of individual retirement arrangements ("IRAs"): traditional 

IRAs and Roth IRAs.27 The total amount that an individual may contribute to one or more IRAs 

for a year is generally limited to the lesser of: (1) a dollar amount ($5,500 for 2016); and (2) the 

amount of the individual's compensation that is includible in gross income for the year. 28 In the 

case of an individual who has attained age 50 by the end of the year, the dollar amount is 

increased by $1,000. In the case of a married couple, contributions can be made up to the dollar 

limit for each spouse if the combined compensation of the spouses that is includible in gross 

income is at least equal to the contributed amount. 

An individual may make contributions to a traditional IRA (up to the contribution limit) 

without regard to his or her adjusted gross income. An individual may deduct his or her 

contributions to a traditional IRA if neither the individual nor the individual's spouse is an active 

participant in an employer-sponsored retirement plan. If an individual or the individual's spouse 

is an active participant in an employer-sponsored retirement plan, the deduction is phased out for 

taxpayers with adjusted gross income over certain levels.29

Individuals with adjusted gross income below certain levels may make contributions to a 

Roth IRA (up to the contribution limit).30 Contributions to a Roth IRA are not deductible.

As described above, an individual’s IRA contributions cannot exceed the amount of his 

or her compensation that is includible in gross income. Subject to the rule for spouses, described 

above, an individual who has no compensation income generally is not eligible to make IRA 

contributions, even if the individual has other income that is includible in gross income.31

Description of Proposal

Under the proposal, an amount that is includible in income and is paid to an individual to 

aid the individual in the pursuit of graduate or postdoctoral study or research is treated as 

compensation taken into account for IRA contribution purposes.

 27 Secs. 408 and 408A.

28 Sec. 219(b)(2) and (5), as referenced in secs. 408(a)(1) and (b)(2)(B) and 408A(c)(2). Under 

section 4973, IRA contributions in excess of the applicable limit are generally subject to an excise tax of six percent 

per year until withdrawn.

29 Sec. 219(g).

30 Sec. 408A(c)(3).

31 Under a special rule in section 219(f)(1), alimony that is includible in gross income under section 71 is 

treated as compensation for IRA contribution purposes.
13

Effective Date

This proposal is effective for taxable years beginning after December 31, 2016.
14

E. Repeal of Maximum Age for Traditional IRA Contributions

Present Law

Under present law, an individual may make deductible contributions to a traditional IRA 

up to the IRA contribution limit if neither the individual nor the individual’s spouse is an active 

participant in an employer-sponsored retirement plan.32 If an individual (or the individual’s 

spouse) is an active participant in an employer-sponsored retirement plan, the deduction is 

phased out for taxpayers with adjusted gross income (“AGI”) for the taxable year over certain 

indexed levels.33

To the extent an individual cannot or does not make deductible contributions to a 

traditional IRA, the individual may make nondeductible contributions to a traditional IRA (that 

is, no AGI limits apply), subject to contribution limits.34

An individual who has attained age 701⁄2 prior to the close of a year is not permitted to 

make contributions to a traditional IRA.35 This restriction does not apply to contributions to a 

Roth IRA.36

Description of Proposal

The proposal repeals the prohibition on contributions to a traditional IRA by an 

individual who has attained age 701⁄2 prior to the close of a year. 

Effective Date

The proposal applies to contributions made for taxable years beginning after 

December 31, 2016.

 32 Sec. 219.

33 Sec. 219(g).

34 Sec. 408(o). The annual contribution limit for IRAs is coordinated so that the maximum amount that 

can be contributed to all of an individual’s IRAs (both traditional and Roth) for a taxable year is the lesser of a 

certain dollar amount ($5,500 for 2016) or the individual’s compensation. 

35 Sec. 219(d)(1).

36 Sec. 408A(c)(4). 
15

F. Shrinking Emergency Account Losses

1. Extended period for the rollover of plan loan offset amounts 

Present Law

Taxation of retirement plan distributions

General rule

A distribution from a tax-favored employer-sponsored retirement plan (that is, a qualified 

retirement plan, section 403(b) plan, or a governmental section 457(b) plan) is generally 

includible in gross income, except to the extent that the distribution is a recovery of basis under 

the plan, or the amount of the distribution is contributed to an eligible retirement plan (that is, 

another tax-favored employer-sponsored retirement plan or an individual retirement arrangement 

(“IRA”)) in a tax-free rollover. In the case of a distribution from a retirement plan to a 

participant under age 591⁄2, the distribution (other than a distribution from a governmental section 

457(b) plan) is also subject to a 10-percent early distribution tax, unless an exception applies.37 

Rollovers

A distribution from a tax-favored employer-sponsored retirement plan that is an eligible 

rollover distribution may be rolled over to an eligible retirement plan. The rollover generally can 

be achieved by direct rollover (direct payment from the distributing plan to the recipient plan) or 

by contributing the distribution to the eligible retirement plan within 60 days of receiving the 

distribution (“60-day rollover”). Amounts that are rolled over are usually not included in gross 

income. Generally, any distribution of the balance to the credit of a participant is an eligible 

rollover distribution with exceptions, for example, certain periodic payments, required minimum 

distributions, and hardship distributions.38 

Tax-favored employer-sponsored retirement plans are required to offer a direct rollover 

with respect to any eligible rollover distribution before paying the amount to the participant or 

beneficiary.39 If an eligible rollover distribution is not directly rolled over into an eligible 

 37 Sec. 72(t).

38 Sec. 402(c)(4). Treas. Reg. sec. 1.402(c)-1 identifies certain other payments that are not eligible for 

rollover, including, for example, certain corrective distributions, loans that are treated as deemed distributions under 

section 72(p), and dividends on employer securities as described in section 404(k). In addition, pursuant to 

section 402(c)(11), any distribution to a beneficiary other than the participant’s surviving spouse is only permitted to 

be rolled over to an IRA using a direct rollover; 60-day rollovers are not available to nonspouse beneficiaries.

39 Sec. 401(a)(31). Unless a participant elects otherwise, a mandatory cash-out of more than $1,000 must 

be directly rolled over to an IRA chosen by the plan administrator or the payor. 
16

retirement plan, the taxable portion of the distribution generally is subject to mandatory 

20-percent income tax withholding.40 

Plan loan as a deemed distribution

Tax-favored employer-sponsored retirement plans may provide loans to participants. 

Unless the loan satisfies certain requirements in both form and operation, the amount of a 

retirement plan loan is a deemed distribution from the retirement plan.41 These requirements 

include the following: the amount of the loan must not exceed the lesser of 50 percent of the 

participant’s account balance or $50,000; the terms of the loan must provide for a repayment 

period of not more than five years42 and provide for level amortization of loan payments (with 

payments not less frequently than quarterly); and the terms of the loan must be legally 

enforceable. The rules do not limit the number of loans an employee may obtain from a plan.

If a plan participant ceases to make payments on a loan before it is repaid according to 

the required schedule, a deemed distribution of the outstanding loan balance generally occurs. 

This deemed distribution of an unpaid loan balance is generally taxed as though an actual 

distribution occurred, including being subject to a 10-percent early distribution tax, if applicable. 

However, a deemed distribution is not eligible for rollover to another eligible retirement plan. 

Loan offset amount

A plan may also provide that, in certain circumstances (for example, upon a participant’s 

termination of employment with the employer), a participant’s obligation to repay a loan is 

accelerated and, if the loan is not repaid, the loan is cancelled and the amount in participant’s 

account balance is offset by the amount attributable to the loan (the amount of the unpaid loan 

balance). In the case of a loan offset, an actual distribution equal to the unpaid loan balance (as 

opposed to a deemed distribution as described above) occurs, and (unlike a deemed distribution) 

the amount of the distribution is eligible for tax-free rollover to another eligible retirement 

plan.43 However, the plan is not required to offer a direct rollover with respect to a plan loan 

offset amount that is an eligible rollover distribution and the plan loan offset amount is generally 

not subject to 20-percent income tax withholding.44

Description of Proposal

Under the proposal, the period during which a qualified plan loan offset amount may be 

contributed to an eligible retirement plan as a rollover contribution is extended from 60 days 

after the date of the offset to the due date (including extensions) for filing the Federal income tax 

 40 Treas. Reg. sec. 1.402(c)-2, Q&A-1(b)(3). 

41 Sec. 72(p).

42 Loans specifically for home purchases may be repaid over a longer period.

43 Treas. Reg. sec.1.402(c)-2, A-9.

44 Treas. Reg. sec. 1.401(a)(31)-1, A-16, and Treas. Reg. sec. 31.3405(c)-1, A-11.
17

return for the taxable year in which the plan loan offset occurs (meaning the taxable year in 

which such amount is treated as distributed by the plan). Under the proposal, a qualified plan 

loan offset amount is a plan loan offset amount which is treated as distributed from a tax-favored 

employer-sponsored retirement plan to a participant or beneficiary solely by reason of either the 

termination of the plan, or the failure to meet the repayment terms of the loan from such plan 

because of the separation from service of the participant (whether due to layoff, cessation of 

business, termination of employment, or otherwise). As under present law, a loan offset amount 

under the proposal is the amount by which a participant’s accrued benefit under the plan is 

reduced to repay a loan from the plan.

Effective Date

The proposal applies to loan offsets made in taxable years beginning after December 31, 

2016. 

2. Modification of rule governing hardship distributions 

Present Law

A qualified retirement plan that is a profit-sharing plan or stock bonus plan (and certain 

money purchase pension plans) may allow an employee to make an election between cash and an 

employer contribution to the plan pursuant to a qualified cash or deferred arrangement.45 A plan 

with this feature is generally referred to as a section 401(k) plan. A section 403(b) plan may 

allow a similar salary reduction agreement under which an employee may make an election 

between cash and an employer contribution to the plan.46 

Amounts contributed pursuant to these qualified cash or deferred arrangements and salary 

reduction agreements generally are referred to as elective deferrals. Elective deferrals under a 

section 401(k) plan or 403(b) plan may not be distributable prior to the occurrence of one or 

more specified events. One event upon which distribution is permitted is the financial hardship 

of the employee.47 The amount allowed to be distributed on account of hardship is limited to the 

dollar amount of the employee's elective deferrals, reduced by the amount of elective deferrals 

previously distributed on account of hardship. Applicable Treasury regulations provide that a 

distribution is made on account of hardship only if the distribution is made on account of an

immediate and heavy financial need of the employee and is necessary to satisfy the heavy need.48

The Treasury regulations provide a safe harbor under which a distribution may be 

deemed necessary to satisfy an immediate and heavy financial need. One requirement of this 

 45 Sec. 401(k).

46 Section 403(b) plans may be maintained only by (1) tax-exempt charitable organizations, and 

(2) educational institutions of State or local governments (including public schools). Many of the rules that apply to 

section 403(b) plans are similar to the rules applicable to qualified retirement plans, including section 401(k) plans. 

47 Sec. 401(k)(2)(B)(i)(IV).

48 Treas. Reg. sec. 1.401(k)-1(d)(3).
18

safe harbor is that the employee be prohibited from making elective deferrals and employee 

contributions to the plan and all other plans maintained by the employer for at least six months 

after receipt of the hardship distribution. 

Description of Proposal

The Secretary of the Treasury is directed to revise the applicable regulations within one 

year of the date of enactment to eliminate the requirement that an employee be prohibited from 

making elective deferrals and employee contributions for six months after the receipt of a 

hardship distribution in order for the distribution to be deemed necessary to satisfy an immediate 

and heavy financial need. It is intended that an employee not be prevented for any period after 

the receipt of a hardship distribution from continuing to make elective deferrals and employee 

contributions. 

Effective Date

This proposal applies to plan years beginning after December 31, 2016. 

3. Qualified employer plans prohibited from making loans through credit cards and other

arrangements

Present Law

Tax-favored employer-sponsored retirement plans may provide loans to participants. 

Unless the loan satisfies certain requirements in both form and operation as discussed above, the 

amount of a retirement plan loan is a deemed distribution from the retirement plan These 

requirements include the following: the amount of the loan must not exceed the lesser of 50 

percent of the participant’s account balance or $50,000 (generally taking into account 

outstanding balances of previous loans); the terms of the loan must provide for a repayment 

period of not more than five years49 and provide for level amortization of loan payments (with 

payments not less frequently than quarterly); and the terms of the loan must be legally 

enforceable. Subject to the limit on the amount of loans, as described above, the rules do not 

limit the number of loans an employee may obtain from a plan. 

Description of Proposal

Under the proposal, a plan loan that is made through the use of a credit card or similar 

arrangement does not meet the requirements for loan treatment and is therefore a deemed 

distribution.

Effective Date

The proposal applies to plan years beginning after December 31, 2016.

 49 Loans specifically for home purchases may be repaid over a longer period.
19

G. Portability of Lifetime Income Options 

Present Law

Distribution restrictions for accounts under employer-sponsored plans

Types of plans and contributions

Tax-favored employer-sponsored retirement plans under which individual accounts are 

maintained for employees include qualified defined contribution plans, tax-deferred annuity 

plans (referred to as “section 403(b)” plans), and eligible deferred compensation plans of State 

and local government employers (referred to as “governmental section 457(b)” plans).50

Contributions to a qualified defined contribution plan or section 403(b) plan may include 

some or all of the following types of contributions:

• pretax elective deferrals (that is, pretax contributions made at the election of an 

employee in lieu of receiving cash compensation),

• after-tax designated Roth contributions (that is, elective deferrals made on an after-tax 

basis to a Roth account under the plan),

• after-tax employee contributions (other than designated Roth contributions), 

• pretax employer matching contributions (that is, employer contributions made as a 

result of an employee’s elective deferrals, designated Roth contributions, or after-tax 

contributions), and

• pretax employer nonelective contributions (that is, employer contributions made 

without regard to whether an employee makes elective deferrals, designated Roth 

contributions, or after-tax contributions).

Contributions to a governmental section 457(b) plan generally consist of pretax elective 

deferrals and, if provided for under the plan, designated Roth contributions.

Restrictions on in-service distributions

The terms of an employer-sponsored retirement plan generally determine when 

distributions are permitted. However, in some cases, statutory restrictions on distributions may 

apply.

Elective deferrals under a qualified defined contribution plan are subject to statutory 

restrictions on distribution before severance from employment, referred to as “in-service” 

 50 Secs. 401(a), 403(a), 403(b), 457(b) and (e)(1)(A). 
20

distributions.51 In-service distributions of elective deferrals (and related earnings) generally are 

permitted only after attainment of age 591⁄2 or termination of the plan. In-service distributions of 

elective deferrals (but not related earnings) are also permitted in the case of hardship.

Other distribution restrictions may apply to contributions under certain types of qualified 

defined contribution plans. A profit-sharing plan generally may allow an in-service distribution 

of an amount contributed to the plan only after a fixed number of years (not less than two).52 A 

money purchase pension plan generally may not allow an in-service distribution before 

attainment of age 62 (or attainment of normal retirement age under the plan if earlier) or 

termination of the plan.53

Elective deferrals under a section 403(b) plan are subject to in-service distribution 

restrictions similar to those applicable to elective deferrals under a qualified defined contribution 

plan, and, in some cases, other contributions to a section 403(b) plan are subject to similar 

restrictions.54 Deferrals under a governmental section 457(b) plan are subject to in-service 

distribution restrictions similar to those applicable to elective deferrals under a qualified defined 

contribution plan, except that in-service distributions under a governmental section 457(b) plan 

apply until age 701⁄2 (rather than age 591⁄2).55

Distributions and rollovers

A distribution from an employer-sponsored retirement plan is generally includible in 

income except for any portion attributable to after-tax contributions, which result in basis.56 

Unless an exception applies, in the case of a distribution before age 591⁄2 from a qualified 

retirement plan or a section 403(b) plan, any amount included in income is subject to an 

additional 10-percent tax, referred to as the “early withdrawal” tax.57

A distribution from an employer-sponsored retirement plan generally may be rolled over 

on a nontaxable basis to another such plan or to an individual retirement arrangement (“IRA”), 

either by a direct transfer to the recipient plan or IRA or by contributing the distribution to the 

 51 Sec. 401(k)(2)(B). Similar restrictions apply to certain other contributions, such as employer matching 

or nonelective contributions required under the nondiscrimination safe harbors under section 401(k).

52 Rev. Rul. 71-295, 1971-2 C.B. 184, and Treas. Reg. sec. 1.401-1(b)(1)(ii). Similar rules apply to a stock 

bonus plan. Treas. Reg. sec. 1.401-1(b)(1)(iii).

53 Sec. 401(a)(36) and Treas. Reg. secs. 1.401-1(b)(1)(i) and 1.401(a)-1(b).

54 Sec. Secs. 403(b)(7)(A)(ii) and 403(b)(11).

55 Sec. 457(d)(1)(A).

56 Secs. 402(a), 403(b)(1) and 457(a)(1). Under section 402A(d), a qualified distribution from a designated 

Roth account under an employer-sponsored plan is not includible in income.

57 Sec. 72(t).
21

recipient plan or IRA within 60 days of receiving the distribution.58 If the distribution from an 

employer-sponsored retirement plan consists of property, the rollover is accomplished by a 

transfer or contribution of the property to the recipient plan or IRA.

Investment of accounts under employer-sponsored plans

Qualified defined contribution plans, section 403(b) plans, and governmental 

section 457(b) plans commonly allow employees to direct the manner in which their accounts are 

invested. Employees may be given a choice among specified investment options, such as a 

choice of specified mutual funds, and, in some cases, may be able to direct the investment of 

their accounts in any product, instrument or investment offered in the market.

The investment options under a particular employer-sponsored retirement plan may 

change at times.59 Similarly, a plan that allows employees to direct the investment of their 

accounts in any product, instrument or investment offered in the market may be amended to limit 

the investments that can be held in the plan. In these cases, employees may be required to 

change the investments held within their accounts. 

The terms of some investments impose a charge or fee when the investment is liquidated, 

particularly if the investment is liquidated within a particular period after acquisition. For 

example, a lifetime income product, such as an annuity contract, may impose a surrender charge 

if the investment is discontinued. 

If an employee has to liquidate an investment held in an employer-sponsored retirement 

plan because of a change in investment options or a limit on investments held in the plan, the 

employee may be subject to a charge or fee as described above. In addition, restrictions on 

in-service distributions may prevent the employee from preserving the investment through a 

rollover.

Description of Proposal

Under the proposal, if a lifetime income investment is no longer authorized to be held as 

an investment option under a qualified defined contribution plan, section 403(b) plan, or

governmental section 457(b) plan, except as otherwise provided in guidance, the plan does not 

fail to satisfy the Code requirements applicable to the plan solely by reason of allowing

(1) qualified distributions of a lifetime income investment, or (2) distributions of a lifetime 

income investment in the form of a qualified plan distribution annuity contract. Such a

 58 Secs. 402(c), 402A(c)(3), 403(b)(8) and 457(e)(16). 

59 In the case of a plan subject to the Employee Retirement Income Security Act of 1974 (“ERISA”), a 

participant’s exercise of control over the investment of the assets in his or her account by choosing among the 

investment options offered under the plan does not relieve a plan fiduciary from the duty to prudently select and 

monitor the investment options offered to participants. 29 C.F.R. sec. 2550.404c-1(d)(2)(iv) (2010); Tibble v. 

Edison International, No. 13-550, 135 S. Ct. 1823 (2015). The duty to monitor investment options may result in a 

change in the options offered.
22

distribution must be made within the 90-day period ending on the date when the lifetime income 

investment is no longer authorized to be held as an investment option under the plan.

For purposes of the proposal, a qualified distribution is a direct trustee-to-trustee transfer 

to another employer-sponsored retirement plan or IRA. A lifetime income investment is an 

investment option designed to provide an employee with election rights (1) that are not 

uniformly available with respect to other investment options under the plan and (2) that are to a 

lifetime income feature available through a contract or other arrangement offered under the plan 

(or under another employer-sponsored retirement plan or IRA through a direct trustee-to-trustee 

transfer). A lifetime income feature is (1) a feature that guarantees a minimum level of income 

annually (or more frequently) for at least the remainder of the life of the employee or the joint 

lives of the employee and the employee's designated beneficiary, or (2) an annuity payable on 

behalf of the employee under which payments are made in substantially equal periodic payments 

(not less frequently than annually) over the life of the employee or the joint lives of the employee 

and the employee's designated beneficiary. Finally, a qualified plan distribution annuity contract

is an annuity contract purchased for a participant and distributed to the participant by an 

employer-sponsored retirement plan. 

Effective Date

The proposal applies to plan years beginning after December 31, 2016.
23

H. Treatment of Custodial Accounts under Section 403(b) Plan

Upon Plan Termination 

Present Law

Tax-sheltered annuities (section 403(b) plans)

Section 403(b) plans are a form of tax-favored employer-sponsored plan that provide tax 

benefits similar to qualified retirement plans. Section 403(b) plans may be maintained only by 

(1) charitable tax-exempt organizations, and (2) educational institutions of State or local 

governments (that is, public schools, including colleges and universities). Many of the rules that 

apply to section 403(b) plans are similar to the rules applicable to qualified retirement plans, 

including section 401(k) plans. Employers may make nonelective or matching contributions to 

such plans on behalf of their employees, and the plan may provide for employees to make pretax elective deferrals, designated Roth contributions (held in designated Roth accounts)60 or 

other after-tax contributions. Generally section 403(b) plans provide for contributions toward 

the purchase of annuity contracts or provide for contributions to be held in custodial accounts for 

each employee. In the case of contributions to custodial accounts under a section 403(b) plan, the 

amounts must be invested only in regulated investment company stock.61 Contributions to a 

custodial account are not permitted to be distributed before the employee dies, attains age 591⁄2, 

has a severance from employment, or, in the case of elective deferrals, encounters financial 

hardship. 

A section 403(b) plan is permitted to contain provision for plan termination and that 

allow accumulated benefits to be distributed on termination.62

Rollovers

A distribution from a section 403(b) plan that is an eligible rollover distribution may be 

rolled over to an eligible retirement plan (which include another 403(b) plan, a qualified 

retirement plan, and an IRA).63 The rollover generally can be achieved by direct rollover (direct 

payment from the distributing plan to the recipient plan) or by contributing the distribution to the 

eligible retirement plan within 60 days of receiving the distribution (“60-day rollover”).64 

Amounts that are rolled over are usually not included in gross income. Generally, a distribution 

 60 Sec. 402A.

61 Sec. 403(b)(7).

62 Treas. Reg. sec. 1.403(b)-10(a).

63 Sec. 403(b)(8). Similar rules apply to distributions from qualified retirement plans and governmental 

section 457(b) plans. 

64 Under section 402(c)(11), any distribution to a beneficiary other than the participant’s surviving spouse 

is only permitted to be rolled over to an IRA using a direct rollover; 60-day rollovers are not available to nonspouse 

beneficiaries.
24

of any portion of the balance to the credit of a participant is an eligible rollover distribution with 

exceptions, for example, certain periodic payments, required minimum distributions, and 

hardship distributions.65 

Roth conversions

Distributions from section 403(b) plans may be rolled into a Roth IRA.66 Distributions 

from these plans that are rolled over into a Roth IRA and that are not distributions from a 

designated Roth account must be included in gross income. Further, a section 403(b) plan that 

allows employees to make designated Roth contributions may also allow employees to elect to 

transfer amounts held in accounts that are not designated Roth accounts into designated Roth 

accounts, but the amount transferred must be included in income as though it were distributed.67

Approved nonbank trustees required for IRAs

An IRA can be a trust, a custodial account, or an annuity contract. The Code requires 

that the trustee or custodian of an IRA be a bank (which is generally subject to Federal or State 

supervision) or an IRS approved nonbank trustee, that an annuity contract be issued by an 

insurance company (which is subject to State supervision), and that an IRA trust or custodial 

account be created and organized in the United States. 

In order for a trustee or custodian that is not a bank to be an IRA trustee or custodian, the 

entity must apply to the IRS for approval. Treasury Regulations list a number of factors that are 

taken into account in approving an applicant to be a nonbank trustee.68 The applicant must 

demonstrate fiduciary ability (ability to act within accepted rules of fiduciary conduct including 

continuity and diversity of ownership), capacity to account (experience and competence with 

other activities normally associated with handling of retirement funds), and ability to satisfy 

other rules of fiduciary conduct which includes a net worth requirement. Because it is an 

objective requirement that may be difficult for some applicants to satisfy, the net worth 

requirement is the most significant of the requirements for nonbank trustees. 

To be approved, the entity must have a net worth of at least $250,000 at the time of the 

application. There is a maintenance rule that varies depending on whether the trustee is an active 

trustee or a passive trustee and that includes minimum dollar amounts and minimum amounts as 

 65 Sec. 402(c)(4). Treas. Reg. sec. 1.402(c)-1 identifies certain other payments that are not eligible for 

rollover, including, for example, certain corrective distributions, loans that are treated as deemed distributions under 

section 72(p), and dividends on employer securities as described in section 404(k). 

66 Sec. 408A(d)(3). Similar rules apply to qualified retirement plans and governmental section 457(b) 

plans.

67 Sec. 402A(d)(4). Similar rules apply to qualified retirement plans and governmental section 457(b) 

plans. 

68 Treas. Reg. sec. 1.408-2(e).
25

a percentage of assets held in fiduciary accounts. A special rule is provided for nonbank trustees 

that are members of the Security Investor Protection Corporation (“SIPC”).

Description of Proposal

Under the proposal, if an employer terminates a section 403(b) plan under which amounts 

are contributed to custodial accounts, and the person holding the assets of the accounts is an IRS 

approved nonbank trustee, then, as of the date of the termination, the custodial accounts are

deemed to be IRAs. Only a custodial account under a section 403(b) plan that is a designated 

Roth account is treated as a Roth IRA upon termination of the section 403(b) plan. 

Effective Date

The proposal applies to plan terminations occurring after December 31, 2016. 
26

II. ADMINISTRATIVE IMPROVEMENTS

A. Plan Adopted by Filing Due Date for Year May Be Treated

as in Effect as of Close of Year 

Present law

In order for a stock bonus, pension, profit-sharing plan or annuity plan to be treated as 

maintained for a taxable year, the plan must be adopted by the last day of the taxable year.69 

However, the trust under the plan will not fail to be treated as in existence due to lack of corpus 

merely because it holds no assets on the last day of the taxable year.70 Contributions made by 

the due date (plus extensions) of the tax return for the employer maintaining the plan for a 

taxable year are treated as contributed on account of that taxable year.71 Thus a plan can be 

established on the last day of a taxable year even though the first contribution is not made until 

the due date of the employer's taxable year. Further, if the terms of a plan adopted during an 

employer's taxable year fail to satisfy the qualification requirements that apply to the plan for the 

year, the plan may also be amended retroactively by the due date (including extensions) of the 

employer’s return, provided that the amendment is made retroactively effective.72 However, this 

provision does not allow a plan to be adopted after the end of a taxable year and made 

retroactively effective, for qualification purposes, for the taxable year prior to the taxable year in 

which the plan was adopted by the employer.73

Description of Proposal

Under the proposal, if an employer adopts a stock bonus, pension, profit-sharing, or 

annuity plan after the close of a taxable year but before the time prescribed by law for filing the 

return of the employer for the taxable year (including extensions thereof), the employer may 

elect to treat the plan as having been adopted as of the last day of the taxable year.

The proposal does not override rules requiring certain plan provisions to be in effect 

during a plan year, such as the provision for elective deferrals under a qualified cash or deferral 

arrangement (“generally referred to as a 401(k) plan”).74

 69 Rev. Rul. 76-28; 1976-1 C.B. 106

70 Rev. Rul. 81-114; 1981-1 C.B. 207

71 Sec. 404(a)(6). 

72 Sec. 401(b).

73 Treas. Reg. sec. 1.401(b)-1(a). 

74 Treas. Reg. sec. 1.401(k)-1(e)(2)(ii).
27

Effective Date

The proposal applies to plans adopted for taxable years beginning after December 31, 

2016. 
28

B. Combined Annual Report for Group of Plans

Present Law

Under the Code, an employer maintaining a qualified retirement plan generally is 

required to file an annual return containing information required under regulations with respect 

to the qualification, financial condition, and operation of the plan.75 ERISA requires the plan 

administrator of certain pension and welfare benefit plans to file annual reports disclosing certain 

information to the Department of Labor (“DOL”).76 These filing requirements are met by filing 

a completed Form 5500, Annual Return/Report of Employee Benefit Plan. Forms 5500 are filed 

with DOL, and information from Forms 5500 is shared with the IRS.77 A separate Form 5500 is 

required for each plan.

Description of Proposal 

The proposal directs the IRS and DOL to work together to modify Form 5500 so that all 

members of a group of plans described below may file a single consolidated Form 5500. In 

developing the consolidated Form 5500, IRS and DOL may require it to include all information 

for each plan in the group as IRS and DOL determine is necessary or appropriate for the 

enforcement and administration of the Code and ERISA.

For purposes of the proposal, a group of plans is eligible for a consolidated Form 5500 if 

all the plans in the group (1) are defined contribution plans, (2) have the same trustee, the same

named fiduciary (or named fiduciaries) under ERISA, and the same administrator, (3) use the 

same plan year, and (4) provide the same investments or investment options to participants and 

beneficiaries. A plan not subject to ERISA may be included in the group if the same person that 

performs each of the previous functions, as applicable, for all the other plans in the group 

performs each of the functions for the plan not subject to ERISA.

 75 Sec. 6058. In addition, under section 6059, the plan administrator of a defined benefit plan subject to the 

minimum funding requirements is required to file an annual actuarial report. Under Code section 414(g) and ERISA 

section 3(16), plan administrator generally means the person specifically so designated by the terms of the plan 

document. In the absence of a designation, the plan administrator generally is (1) in the case of a plan maintained by 

a single employer, the employer, (2) in the case of a plan maintained by an employee organization, the employee 

organization, or (3) in the case of a plan maintained by two or more employers or jointly by one or more employers 

and one or more employee organizations, the association, committee, joint board of trustees, or other similar group 

of representatives of the parties that maintain the plan. Under ERISA, the party described in (1), (2) or (3) is 

referred to as the “plan sponsor.”

76 ERISA secs. 103 and 104. Under ERISA section 4065, the plan administrator of certain defined benefit 

plans must provide information to the PBGC.

77 Information is shared also with the PBGC, as applicable. Form 5500 filings are also publicly released in 

accordance with section 6104(b) and Treas. Reg. sec. 301.6104(b)-1 and ERISA secs. 104(a)(1) and 106(a).
29

Effective Date

The consolidated Form 5500 is to be implemented not later than plan years beginning on 

or after January 1, 2020.
30

C. Disclosure Regarding Lifetime Income

Present Law

ERISA requires the administrator of a defined contribution plan to provide benefit 

statements to participants.78 In the case of a participant who has the right to direct the 

investment of the assets in his or her account, a benefit statement must be provided at least 

quarterly. Benefit statements must be provided at least annually to other participants.

Among other items, a benefit statement provided with respect to a defined contribution 

plan generally must include (1) the participant’s total benefits accrued, that is, the participant’s

account balance, (2) the vested portion of the account balance or the earliest date on which the 

account balance will become vested, and (3) the value of each investment to which assets in the 

participant’s account are allocated. A quarterly benefit statement provided to a participant who 

has the right to direct investments must provide additional information, including information 

relating to investment principles. 

In May 2013, the Department of Labor issued an advance notice of proposed rulemaking 

providing rules under which a benefit provided to a defined contribution plan participant would 

include an estimated lifetime income stream of payments based on the participant’s account 

balance.

79 However, information about lifetime income that might be provided by funds in a 

defined contribution plan is not currently required to be included in a benefit statement.

Description of Proposal

The proposal requires a benefit statement provided to a defined contribution plan 

participant to include a lifetime income disclosure as described in the proposal. However, the 

lifetime income disclosure is required to be included in only one benefit statement during any 

12-month period.

A lifetime income disclosure is required to set forth the lifetime income stream 

equivalent of the participant’s total account balance under the plan. The lifetime income stream 

equivalent to the account balance is the amount of monthly payments the participant would 

receive if the total account balance were used to provide lifetime income streams, based on 

assumptions specified in guidance prescribed by the Secretary of Labor. The required lifetime 

income streams are (1) a qualified joint and survivor annuity for the participant and the 

participant’s surviving spouse, based on assumptions specified in guidance, including the 

assumption that the participant has a spouse of equal age, and (2) a single life annuity. The

lifetime income streams may have a term certain or other features to the extent permitted under 

guidance.

 78 ERISA sec. 105. Benefits statements are required also with respect to defined benefit plans. A civil 

penalty may apply for a failure to provide a required benefit statement.

79 78 Fed. Reg. 26727 (May 8, 2013).
31

The Secretary is directed to issue, not later than a year after the proposal is enacted, a 

model lifetime income disclosure, written in a manner to be understood by the average plan 

participant. The model must include provisions to (1) explain that the lifetime income stream 

equivalent is only provided as an illustration, (2) explains that the actual payments under the 

lifetime income stream that may be purchased with the account balance will depend on numerous 

factors and may vary substantially from the lifetime income stream equivalent in the disclosure, 

(3) explain the assumptions on which the lifetime income stream equivalent is determined, and

(4) provides other similar explanations as the Secretary considers appropriate. 

In addition, the Secretary is directed, not later than a year after the proposal is enacted, 

(1) to prescribe assumptions that defined contribution plan administrators may use in converting 

account balances into lifetime income stream equivalents, and (2) issue interim final rules under 

the proposal. In prescribing assumptions, the Secretary may prescribe a single set of specific 

assumptions (in which case the Secretary may issue tables or factors that facilitate conversions of 

account balances) or ranges of permissible assumptions. To the extent that an account balance is 

or may be invested in a lifetime income stream, the prescribed assumptions are to allow, to the 

extent appropriate, plan administrators to use the amounts payable under the lifetime income 

stream as a lifetime income stream equivalent.

Under the proposal, no plan fiduciary, plan sponsor, or other person has any liability 

under ERISA solely by reason of the provision of lifetime income stream equivalents that are 

derived in accordance with the assumptions and guidance under the proposal and that include the 

explanations contained in model disclosure. This protection applies without regard to whether 

the lifetime income stream equivalent is required to be provided.

Effective Date

The requirement to provide a lifetime income disclosure applies with respect to benefit 

statements provided more than 12 months after the latest of the issuance by the Secretary of

(1) interim final rules, (2) the model disclosure, or (3) prescribed assumptions.
32

III. OTHER BENEFITS

A. Judges and Special Trial Judges of the United States Tax Court

1. Tax Court Judges

Present Law

Retirement and survivors benefits

A judge of the United States Tax Court (“Tax Court”)80 may be covered under the 

Federal Employees Retirement System (“FERS”) or, depending on when the judge began 

Federal employment, the Civil Service Retirement System (“CSRS”). FERS and CSRS provides 

annuity benefits to a retired employee and, in some cases, to survivors of a deceased employee. 

Employees covered by FERS are also covered by the Social Security program.81 Employees 

covered by FERS and CSRS may contribute to the Thrift Savings Plan (“TSP”). Employees 

covered by FERS (but not CSRS) generally are also eligible for agency contributions (that is, 

nonelective contributions and matching contributions). A Tax Court judge is eligible to 

contribute to the Thrift Savings Plan, but is not eligible for agency contributions, regardless of 

which Federal retirement plan the judge is covered by.

A Tax Court judge may elect at any time while serving as a Tax Court judge to receive 

“retired pay” from the Tax Court rather than benefits under another Federal retirement program, 

such as FERS or CSRS.

82 A Tax Court judge may also elect to participate in a plan providing 

annuity benefits for the judge’s surviving spouse and dependent children (the “Tax Court 

survivors’ annuity plan”).83 Generally, benefits under the Tax Court survivors’ annuity plan are 

payable only if the judge has performed at least five years of service and made contributions to 

the plan for at least five years of service.

84

The rules governing the retired pay plan for Tax Court judges and the Tax Court 

survivors’ annuity plan provide for coordination between CSRS and the retired pay or survivors’

annuity plan when a judge covered by CSRS elects into those plans. For example, if a judge 

covered by CSRS elects retired pay, the accumulated CSRS contributions previously made by 

 80 The Tax Court is established (under section 7441) by the Congress pursuant to Article I of the U.S. 

Constitution.

81 Wages of employees covered by Social Security are subject to old-age, survivors and disability 

insurance (“OASDI”) taxes under the Federal Insurance Contributions Act (“FICA”), consisting of employer and 

portions, each at a rate of 6.2 percent of covered wages up to the OASDI wage base ($118,500 for 2016). Wages up 

to the OASDI wage base are taken into account in determining Social Security benefits.

82 Secs. 7447. Retired pay is generally equal to the salary of an active Tax Court judge.

83 Sec. 7448. Special trial judges may also elect into the Tax Court survivors’ annuity plan.

84 For this purpose, a judge may make contributions with respect to service performed before electing to 

participate in the plan. 
33

the judge are refunded to the judge with interest. However, the rules do not address coordination 

with FERS.

Limit on outside earned income of a judge receiving retired pay

Under the retired pay plan for Tax Court judges, retired judges generally receive retired 

pay equal to the salary of an active judge and must be available for recall to perform judicial 

duties as needed by the court for up to 90 days a year (unless the judge consents to a longer 

period). However, retired judges may elect to freeze the amount of their retired pay, and those 

who do so are not available for recall.

Retired Tax Court judges on recall are subject to the limitations on outside earned income 

that apply to active Federal employees under the Ethics in Government Act of 1978. Retired Tax 

Court judges who elect to freeze the amount of their retired pay (thus making themselves 

unavailable for recall) are not subject to the limitations on outside earned income.

Description of Proposals

Retirement and survivors benefits

The proposal allows a Tax Court judge who is covered by FERS to receive agency 

contributions to the TSP, similar to other employees covered by FERS. If a judge covered by 

FERS elects retired pay, rather than FERS benefits, the judge’s retired pay is offset by the 

amount of previous TSP distributions attributable to agency contributions (without regard to 

earnings on the agency contributions) made during years of service as a Tax Court judge while 

covered by FERS.

Under the proposal, benefits under the survivors’ annuity plan are payable if a Tax Court 

judge has performed at least 18 months of service and made contributions for at least 18 months 

(rather than five years). In addition, benefits under the survivors’ annuity plan are payable if a 

Tax Court judge is assassinated before the judge has performed 18 months of service and made 

contributions for 18 months.

85

The proposal amends the rules governing the retired pay plan for Tax Court judges and 

the Tax Court survivors’ annuity plan to provide for coordination between FERS and those plans 

when a judge covered by FERS elects into those plans, similar to coordination with CSRS under 

present law.

Limit on outside earned income of a judge receiving retired pay

Under the proposal, compensation earned by a retired Tax Court judge for teaching is not 

treated as outside earned income for purposes of limitations under the Ethics in Government Act 

of 1978.

 85 These changes apply also to special trial judges who elect into the Tax Court survivors’ annuity plan.
34

Effective Date

The proposals are effective on the date of enactment, except that the proposal relating to 

TSP contributions applies to basic pay earned while serving as a Tax Court judge and the 

proposal relating to outside earned income of a judge receiving retired pay applies to any 

individual serving as a retired Tax Court judge on or after the date of enactment.

2. Special Trial Judges of the Tax Court

Present Law

The chief judge of the Tax Court may appoint special trial judges to handle certain 

cases.86 Special trial judges serve for an indefinite term. Special trial judges receive a salary of 

90 percent of the salary of a Tax Court judge. Special trial judges do not have authority to 

impose punishment in the case of contempt of the authority of the Tax Court.87 

Special trial judges generally are covered by the benefit programs that apply to Federal 

executive branch employees, including CSRS or FERS (depending on when the judge began 

Federal employment). Special trial judges may contribute to TSP, and those covered by FERS 

are also eligible for agency contributions. Special trial judges covered by FERS are also covered 

by the Social Security program. Special trial judges may also elect to participate in the Tax 

Court survivors’ annuity plan. An election into the Tax Court survivors’ annuity plan must be 

made not later than six months after the later of the date the special trial judge takes office or the 

date the judge marries.

Special trial judges are required to be covered by a leave program under which they earn 

annual and sick leave during their period of employment. At termination of employment, a 

lump-sum payment is made to the special trial judge for unused annual leave, and unused sick 

leave is credited as additional service for certain purposes under CSRS or FERS. Group-term life 

insurance is available to Federal employees, including special trial judges, under the Federal 

Employees Group Life Insurance (“FEGLI”) program. Under changes made to the FEGLI 

program in 1999, higher premiums apply to older employees than to younger employees (“agebased premiums”).

Description of Proposals

Magistrate judges of the Tax Court 

Under the proposal, the position of special trial judge of the Tax Court is renamed as 

magistrate judge of the Tax Court (“magistrate judge”). Magistrate judges are appointed (or 

reappointed) to serve for eight-year terms and are subject to removal in limited circumstances. A

magistrate judge receives a salary of 92 percent of the salary of a Tax Court judge.

 86 Sec. 7443A.

87 Sec. 7456(c) deals with contempt authority.
35

Contempt authority

Under the proposal, magistrate judges have the authority to impose punishment in the 

case of contempt of the authority of the Tax Court, subject to a limit on the sentence that may be 

imposed.

Leave, FEGLI and survivors’ annuity plan

Under the proposal, magistrate judges are not required to be covered by a leave program. 

Existing leave balances will be maintained and made available if a magistrate judge changes to a 

Federal position covered by a leave program. Otherwise, at separation from Federal 

employment, a lump-sum payment will be made to the magistrate judge for unused annual leave, 

and unused sick leave will be credited as additional service for certain purposes under CSRS or 

FERS.

In the case of magistrate judges age 65 or older, the proposal allows the Tax Court to pay 

the portion of FEGLI premiums attributable to increases resulting from the 1999 FEGLI changes.

Under the proposal, a magistrate judge may elect to participate in the Tax Court 

survivors’ annuity plan at any time while serving as a magistrate judge.

Retirement plan for magistrate judges

In general

The proposal establishes a new retirement plan for magistrate judges, under which a 

magistrate judge may elect to receive a retirement annuity from the Tax Court in lieu of benefits 

under CSRS or FERS. A magistrate judge who elects to be covered by the retirement program 

generally receives a refund of contributions (with interest) made to CSRS or FERS. A 

magistrate judge who elects to be covered by the retirement program may contribute to the TSP, 

but not receive agency contributions. The judge’s retired pay is offset by the amount of previous 

TSP distributions attributable to agency contributions (without regard to earnings on the agency 

contributions) made during years of service as a Tax Court judge while covered by FERS. A 

special trial judge covered by the retirement program is not covered by the Social Security 

program.

Under the new plan, a magistrate judge may retire at age 65 with 14 years of service and 

receive an annuity equal to his or her salary at the time of retirement. For this purpose, service 

may include service performed as a special trial judge or a magistrate judge, provided the service 

is performed no earlier than 91⁄2 years before the date of enactment of the proposal. The proposal

also provides for payment of a reduced annuity in the case a magistrate judge with at least eight 

years of service or in the case of disability or failure to be reappointed after serving at least one 

full term.

A magistrate judge receiving a retirement annuity is entitled to cost-of-living increases 

based on cost-of-living increases in benefits paid under CSRS. However, such an increase 

cannot cause the retirement annuity to exceed the current salary of a magistrate judge. A 
36

magistrate judge’s retirement annuity is subject to freezing or suspension if the retired magistrate 

judge practices law or accepts other Federal employment.

Contributions of one percent of salary are withheld from the salary of a magistrate judge 

who elects to participate in the retirement annuity program. Such contributions must be made 

also with respect to prior service for which the magistrate judge elects credit under the retirement 

annuity program. No contributions are required after 14 years of service (or retirement before 

14 years of service. A lump sum refund of the magistrate judge’s contributions (with interest) is 

made if no annuity is payable, for example, if the magistrate judge dies before retirement.

Establishment of Tax Court Judicial Officers’ Retirement Fund

The proposal establishes the Tax Court Judicial Officers’ Retirement Fund (the “Fund”), 

which is appropriated for the payment of annuities, refunds, and other payments under the 

retirement annuity program. Contributions withheld from a magistrate judge’s salary are 

deposited in the Fund. In addition, the proposal requires there to be deposited into the Fund, by 

the end of each fiscal year, amounts required to reduce the Fund’s unfunded liability to zero. For 

this purpose, the Fund’s unfunded liability means the estimated excess, actuarially determined on 

an annual basis, of the present value of benefits payable from the Fund over the sum of (1) the 

present value of contributions to be withheld from the future salary of the magistrate judges and 

(2) the balance in the Fund as of the date the unfunded liability is determined.

Recall of retired magistrate judges

The proposal provides rules under which a retired magistrate judge may be recalled to 

perform services for up to 90 days a year. A retired magistrate judge who is receiving an annuity 

under the retirement plan for magistrate judges and is recalled is to be paid the difference 

between the annuity and the current rate of salary for magistrate judges. For years after any year 

in which the retired judge was recalled, the retirement annuity is increased to the rate of salary 

for magistrate judges during the last year in which the judge was recalled.

Effective Date

The proposals are generally effective on the date of enactment of the proposals. In 

addition, the proposals relating to the position of magistrate judge, terms of appointment, salary, 

contempt authority, and leave apply to individuals serving as special trial judges as of the day 

before the date of enactment. Any individual serving as special trial judges as of the day before 

the date of enactment is deemed to be appointed as a magistrate judge on the date of enactment.
37

IV. OTHER REVENUE PROPOSAL

A. Penalty for Failure to File

Present Law

The Federal tax system is one of “self-assessment,” i.e., taxpayers are required to declare 

their income, expenses, and ultimate tax due, while the IRS has the ability to propose subsequent 

changes. This voluntary system requires that taxpayers comply with deadlines and adhere to the 

filing requirements. While taxpayers may obtain extensions of time in which to file their returns, 

the Federal tax system consists of specific due dates of returns. In order to foster compliance in 

meeting these deadlines, Congress has enacted a penalty for the failure to timely file tax 

returns.88

A taxpayer who fails to file a tax return on or before its due date is subject to a penalty 

equal to five percent of the net amount of tax due for each month that the return is not filed, up to 

a maximum of 25 percent of the net amount.89 If the failure to file a return is fraudulent, the 

taxpayer is subject to a penalty equal to 15 percent of the net amount of tax due for each month 

the return is not filed, up to a maximum of 75 percent of the net amount.90 The net amount of 

tax due is the amount of tax required to be shown on the return reduced by the amount of any 

part of the tax which is paid on or before the date prescribed for payment of the tax and by the 

amount of any credits against tax which may be claimed on the return.91 The penalty will not 

apply if it is shown that the failure to file was due to reasonable cause and not willful neglect.92

If a return is filed more than 60 days after its due date, and unless it is shown that such 

failure is due to reasonable cause, then the failure to file penalty may not be less than the lesser 

of $205 or 100 percent of the amount required to be shown as tax on the return. If a penalty for 

failure to file and a penalty for failure to pay tax shown on a return both apply for the same 

month, the amount of the penalty for failure to file for such month is reduced by the amount of 

the penalty for failure to pay tax shown on a return.93 If a return is filed more than 60 days after 

its due date, then the penalty for failure to pay tax shown on a return may not reduce the penalty 

 88 See United States v. Boyle, 469 U.S. 241, 245 (1985).

89 Sec. 6651(a)(1).

90 Sec. 6651(f).

91 Sec. 6651(b)(1).

92 Sec. 6651(a)(1).

93 Sec. 6651(c)(1).
38

for failure to file below the lesser of $205 or 100 percent of the amount required to be shown on 

the return.94

The failure to file penalty applies to all returns required to be filed under subchapter A of 

Chapter 61 (relating to income tax returns of an individual, fiduciary of an estate or trust, or 

corporation; self-employment tax returns, and estate and gift tax returns), subchapter A of 

chapter 51 (relating to distilled spirits, wines, and beer), subchapter A of chapter 52 (relating to 

tobacco, cigars, cigarettes, and cigarette papers and tubes), and subchapter A of chapter 53 

(relating to machine guns and certain other firearms).95 The failure to file penalty is adjusted 

annually to account for inflation. The failure to file penalty does not apply to any failure to pay 

estimated tax required to be paid by sections 6654 or 6655.96

Description of Proposal

Under the proposal, if a return is filed more than 60 days after its due date, then the 

failure to file penalty may not be less than the lesser of $400 or 100 percent of the amount 

required to be shown as tax on the return.

Effective Date

The proposal applies to returns with filing due dates (including extensions) after December 

31, 2016. 

 94 Ibid.

95 Sec. 6651(a)(1).

96 Sec. 6651(e).