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28604 Federal Register / Vol. 72, No.

98 / Tuesday, May 22, 2007 / Rules and Regulations

DEPARTMENT OF THE TREASURY disproportionately for employees with Following the enactment of the
longer service) because those rules are Employee Retirement Income Security
Internal Revenue Service based on the benefit payable at normal Act of 1974 (ERISA), 93 Public Law 406
retirement age. Normal retirement age is (88 Stat. 829), the regulations under
26 CFR Part 1 also relevant for applying the rules section 401(a) were modified to provide
[TD 9325] relating to suspension of benefits under that the 1956 regulations continued to
section 411(a)(3)(B) and the rules under apply, except as otherwise provided.
RIN 1545–BD23 section 411(b)(1)(H)(iii) that permit a See § 1.401(a)–1(b)(1)(i) and (ii).
plan to offset accruals after normal Accordingly, a pension plan is generally
Distributions From a Pension Plan retirement age by either the actuarial not permitted to pay benefits before
Upon Attainment of Normal Retirement value of distributions made after normal retirement. See also Rev. Rul. 56–693
Age retirement age or the actuarial value of (1956–2 CB 282), as modified by Rev.
AGENCY: Internal Revenue Service (IRS), increases in the benefits due to delay in Rul. 60–323 (1960–2 CB 148) (see
Treasury. payment. Normal retirement age is also § 601.601(d)(2)(ii)(b)).
used in determining the minimum Rev. Rul. 71–24 (1971–1 CB 114) (see
ACTION: Final regulations.
benefit for non-key employees in the § 601.601(d)(2)(ii)(b)) provides guidance
SUMMARY: This document contains final case of a top-heavy defined benefit plan. for the treatment of benefits under a
regulations under sections 401(a) and See section 416(c)(1)(A) and (E). Also, pension plan for employees who
411(d)(6) of the Internal Revenue Code. the vesting requirements of sections continue employment after normal
These regulations provide rules 401(a)(7) and 411 are based upon retirement age. Rev. Rul. 71–24 includes
permitting distributions to be made normal retirement age. an example that indicates that benefits
from a pension plan upon the Section 411(d)(6) generally prohibits a are permitted to commence during
attainment of normal retirement age qualified plan from being amended to employment after normal retirement
prior to a participant’s severance from reduce a participant’s accrued benefit age.
employment with the employer and, for this purpose, an elimination or Rev. Rul. 71–147 (1971–1 CB 116) (see
maintaining the plan. These regulations reduction of an early retirement benefit § 601.601(d)(2)(ii)(b)) provides that the
provide the public with guidance or a retirement-type subsidy, or an normal retirement age in a pension or
regarding distributions from qualified annuity plan is generally the lowest age
elimination of an optional form of
pension plans and will affect specified in the plan at which the
benefit, is treated as a reduction in the
administrators of, and participants in, employee has the right to retire without
accrued benefit. The Secretary has the
such plans. the consent of the employer and receive
authority under section 411(d)(6) to
retirement benefits based on the amount
DATES: Effective Date: These regulations allow amendments that eliminate an
of the employee’s service on the date of
are effective May 22, 2007. optional form of benefit.
Applicability Dates: These regulations retirement at the full rate set forth in the
Section 401(a) permits three types of plan (that is, without actuarial or similar
are generally applicable May 22, 2007. plans to qualify under section 401(a): reduction because of retirement before
For dates of applicability, see Stock bonus, pension, and profit-sharing some later specified age). While
§§ 1.401(a)–1(b)(4) and 1.411(d)–4, A– plans. Section 1.401–1(a)(2)(i) and ordinarily the normal retirement age
12(a). (b)(1)(i) of the Income Tax Regulations under pension and annuity plans is age
FOR FURTHER INFORMATION CONTACT: interprets what it means to be a 65, Rev. Rul. 71–147 permitted a
Cathy A. Vohs at (202) 622–6090 or ‘‘pension plan,’’ and has done so since different age to be specified, but an age
Janet A. Laufer at (202) 622–6080 (not the publication of those regulations as lower than 65 was permitted only if the
a toll-free number). TD 6203 (1956–2 CB 219) (see age represented the age at which
SUPPLEMENTARY INFORMATION: § 601.601(d)(2)(ii)(b)). These regulations employees customarily retire in the
(the 1956 regulations) provide that a particular company or industry, and
Background qualified plan under section 401(a) is a was not a device to accelerate funding.
Section 401(a) sets forth the program and arrangement which is Following the enactment of section
qualification requirements for a trust established and maintained by an 411(a)(8) (defining normal retirement
forming part of a stock bonus, pension, employer ‘‘in the case of a pension plan, age as described earlier in this
or profit-sharing plan of an employer. to provide for the livelihood of the preamble) under ERISA, Rev. Rul. 71–
Several of these qualification employees or their beneficiaries after 147 was modified by Rev. Rul. 78–120
requirements are based on a plan’s the retirement of such employees (1978–1 CB 117) (see
normal retirement age. Section 411(a)(8) through the payment of benefits § 601.601(d)(2)(ii)(b)). Under Rev. Rul.
defines the term ‘‘normal retirement determined without regard to profits.’’ 1 78–120, for purposes of section 411, a
age’’ as the earlier of (a) the time a The 1956 regulations defining a pension plan is permitted to have a
participant attains normal retirement qualified pension plan further provide normal retirement age lower than age
age under the plan or (b) the later of the that a pension plan must be ‘‘a plan 65, regardless of the age at which
time a plan participant attains age 65 or established and maintained by an employees customarily retire in the
the 5th anniversary of the time a plan employer primarily to provide particular company or industry.
participant commenced participation in systematically for the payment of Section 401(a)(36), added by section
the plan. definitely determinable benefits to his 905(b) of the Pension Protection Act of
The definition of normal retirement employees over a period of years, 2006, Public Law 109–280 (120 Stat.
age is important in applying the rules usually for life, after retirement.’’ 780) (PPA ’06), provides that a trust
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under section 411(b) which are designed forming part of a pension plan is not
to preclude avoidance of the minimum 1 This rule is limited to a pension plan, which is treated as failing to constitute a
vesting standards through the either a defined benefit plan or a defined qualified trust under section 401(a)
contribution plan that is not a stock bonus or profit-
backloading of benefits (for example, a sharing plan (generally referred to as a money
solely because the plan provides that a
benefit formula under which the rate of purchase pension plan). Other rules apply to stock distribution may be made from such
benefit accrual is increased bonus plans and profit-sharing plans. trust to an employee who has attained

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Federal Register / Vol. 72, No. 98 / Tuesday, May 22, 2007 / Rules and Regulations 28605

age 62 and who is not separated from regulations reflect the provisions of new a normal retirement age that is later than
employment at the time of such section 401(a)(36). the later of the time the participant
distribution. Section 401(a)(36) applies attains age 65 or the fifth anniversary of
II. Normal Retirement Age
to distributions in plan years beginning the time the participant commenced
after December 31, 2006. A. In General participation in the plan. See section
On November 10, 2004, a notice of These regulations adopt the rule of 411(a)(8)(B).
proposed rulemaking (REG–114726–04) If a plan’s normal retirement age is
the proposed regulations under which a
under section 401 was published in the earlier than age 62, the determination of
pension plan (a defined benefit plan or
whether the age is not earlier than the
Federal Register (69 FR 65108) (the money purchase pension plan) is
earliest age that is reasonably
proposed regulations). The proposed permitted to pay benefits upon an
representative of the typical retirement
regulations would have allowed in- employee’s attainment of normal
age for the industry in which the
service distributions after normal retirement age, even if the employee has
covered workforce is employed is based
retirement age, but would not have not yet had a severance from
on all of the relevant facts and
permitted a normal retirement age to be employment with the employer circumstances. If the normal retirement
set so low as to be a subterfuge to avoid maintaining the plan. Comments age is between ages 55 and 62, then it
qualification requirements. The generally supported the inclusion of this is generally expected that a good faith
proposed regulations would also have rule as reflecting existing practice determination of the typical retirement
permitted in-service distributions before among some pension plans, based on an age for the industry in which the
normal retirement age under a bona fide example in Rev. Rul. 71–24. covered workforce is employed that is
phased retirement program. These regulations also include rules made by the employer (or, in the case
On March 14, 2005, the IRS held a restricting a plan’s normal retirement of a multiemployer plan, made by the
public hearing on the proposed age. The proposed regulations would trustees) will be given deference,
regulations. Written comments have provided that a plan’s normal assuming that the determination is
responding to the notice of proposed retirement age could not be set so low reasonable under the facts and
rulemaking were also received. In light as to be a subterfuge to avoid the circumstances. However, a normal
of the enactment of section 401(a)(36) by requirements of section 401(a), and, retirement age that is lower than age 55
PPA ’06, only portions of the proposed accordingly, normal retirement age is presumed to be earlier than the
regulations are being finalized at this could not be earlier than the earliest age earliest age that is reasonably
time. The IRS recently issued a notice that is reasonably representative of a representative of the typical retirement
requesting comments as to whether the typical retirement age for the covered age for the industry of the relevant
portions of the proposed regulations workforce.2 Some comments expressed covered workforce absent facts and
relating to in-service distributions concern about the specifics of this rule, circumstances that demonstrate
pursuant to a bona fide phased including concern about how it might otherwise to the Commissioner.
retirement program should be finalized. be applied in various circumstances, In the case of a plan where
See Notice 2007–8 (2007–3 IRB 276) and suggested that the regulations substantially all of the participants in
(see § 601.601(d)(2)(ii)(b)). The portions contain a safe harbor for which there the plan are qualified public safety
of the proposed regulations relating to would be no need for a demonstration employees (within the meaning of
normal retirement age and in-service of the typical retirement age for the section 72(t)(10)(B), as added by section
distribution upon attainment of normal covered workforce. 828 of PPA ’06), a normal retirement age
retirement age are being finalized by These final regulations modify the of age 50 or later is deemed not to be
this Treasury Decision. The significant proposed regulations to replace the earlier than the earliest age that is
revisions to the proposed regulations are subterfuge standard with a requirement reasonably representative of the typical
discussed in this preamble. that the normal retirement age under a retirement age for the industry in which
plan be an age that is not earlier than the covered workforce is employed.
Explanation of Provisions and the earliest age that is reasonably Under section 72(t)(10)(B), a qualified
Summary of Comments representative of the typical retirement public safety employee means any
I. Overview age for the industry in which the employee of a State or political
covered workforce is employed. To subdivision of a State who provides
This Treasury Decision modifies address comments about the need for a police protection, firefighting services,
existing regulations, including the safe harbor age, these regulations or emergency medical services for any
regulations at § 1.401(a)–1 which provide that a normal retirement age of area within the jurisdiction of such
generally require a pension plan to be at least age 62 is deemed to be not State or political subdivision.
maintained primarily to provide earlier than the typical retirement age
systematically for the payment of for the industry in which the covered B. Section 411(d)(6) Relief
definitely determinable benefits after workforce is employed. Thus, a plan These regulations include an
retirement. These regulations provide satisfies this safe harbor if its normal amendment to the existing regulations
two exceptions to this rule. First, they retirement age is age 62, or if its normal under section 411(d)(6) to permit a plan
clarify that a pension plan is permitted retirement age is the later of age 62 or to be amended during a transition
to commence payment of retirement another specified date, such as the later period to conform to the rules
benefits to a participant after the of age 62 or the fifth anniversary of plan concerning normal retirement age. Thus,
participant has attained normal participation. However, a plan that is a plan amendment that changes the
retirement age. The regulations also subject to section 411 cannot provide for normal retirement age under the plan to
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provide rules on how low a plan’s a later normal retirement age (pursuant
normal retirement age is permitted to be 2 The preamble to the proposed regulations noted to these regulations) does not violate
and include a related exception to the that, while a low normal retirement age may have section 411(d)(6) merely because the
a significant cost effect on a traditional defined
anti-cutback rules of section 411(d)(6) to benefit plan, this effect is not as significant for
amendment eliminates a right to an in-
allow conforming amendments during a defined contribution plans or for certain hybrid service distribution prior to the
transitional period. Second, the defined benefit plans. amended normal retirement age.

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28606 Federal Register / Vol. 72, No. 98 / Tuesday, May 22, 2007 / Rules and Regulations

However, this rule does not provide any of section 1107 of PPA ’06, such an (b) * * *
other relief. For example, this rule does amendment is not made pursuant to (1) * * *
not permit the amendment to reduce PPA ’06 and is not made pursuant to (i) In order for a pension plan to be
benefits in some other manner that fails any regulation issued under PPA ’06. a qualified plan under section 401(a),
to satisfy section 411(d)(6). Neither does the plan must be established and
Special Analyses
the rule provide relief under section maintained by an employer primarily to
411(a)(9) (requiring that the normal It has been determined that this provide systematically for the payment
retirement benefit not be less than the Treasury Decision is not a significant of definitely determinable benefits to its
greater of any early retirement benefit regulatory action as defined in employees over a period of years,
payable under the plan or the benefit Executive Order 12866. Therefore, a usually for life, after retirement or
under the plan commencing at normal regulatory assessment is not required. It attainment of normal retirement age
retirement age), section 411(a)(10) (if the also has been determined that section (subject to paragraph (b)(2) of this
amendment changes the plan’s vesting 553(b) of the Administrative Procedure section). A plan does not fail to satisfy
rules), or section 4980F (or section Act (5 U.S.C. chapter 5) does not apply this paragraph (b)(1)(i) merely because
204(h), the parallel provision of ERISA) to these regulations, and because the the plan provides, in accordance with
(relating to amendments that reduce the regulation does not impose a collection section 401(a)(36), that a distribution
rate of future benefit accrual). See also of information requirement upon small may be made from the plan to an
Rev. Rul. 81–210 (1981–2 CB 89) (see entities, the Regulatory Flexibility Act employee who has attained age 62 and
§ 601.601(d)(2)(ii)(b)). An example is (5 U.S.C. chapter 6) does not apply. who is not separated from employment
included to illustrate this rule. Pursuant to section 7805(f) of the at the time of such distribution.
Effective Dates Internal Revenue Code, the notice of * * * * *
proposed rulemaking preceding these (2) Normal retirement age—(i)
These regulations are generally regulations was submitted to the Small
applicable May 22, 2007. In the case of General rule. The normal retirement age
Business Administration for comment under a plan must be an age that is not
a governmental plan (as defined in on its impact on small business.
section 414(d)), these regulations apply earlier than the earliest age that is
with respect to plan years beginning on Drafting Information reasonably representative of the typical
or after January 1, 2009. In the case of retirement age for the industry in which
The principal authors of these
a plan maintained pursuant to one or the covered workforce is employed.
regulations are Christopher A. Crouch
more collective bargaining agreements (ii) Age 62 safe harbor. A normal
(formerly of the Office of the Division
that have been ratified and are in effect retirement age under a plan that is age
Counsel/Associate Chief Counsel (Tax
on May 22, 2007, these regulations do 62 or later is deemed to be not earlier
Exempt and Government Entities)),
not apply before the first plan year that than the earliest age that is reasonably
Cathy A. Vohs and Janet A. Laufer of the
begins after the last of the agreements representative of the typical retirement
Office of the Division Counsel/Associate
terminates determined without regard to age for the industry in which the
Chief Counsel (Tax Exempt and
any extension thereof (or, if earlier, May covered workforce is employed.
Government Entities). However, other
24, 2010. (iii) Age 55 to age 62. In the case of
personnel from the IRS and Treasury
A provision of a plan that results in a normal retirement age that is not
Department participated in their
the failure of the plan to satisfy earlier than age 55 and is earlier than
development.
§ 1.401(a)–1(b)(2) or (3) is a age 62, whether the age is not earlier
disqualifying provision described in List of Subjects in 26 CFR Part 1 than the earliest age that is reasonably
§ 1.401(b)–1(b)(3)(i). Therefore, the Income taxes, Reporting and representative of the typical retirement
remedial amendment period rules of recordkeeping requirements. age for the industry in which the
§ 1.401(b)–1 apply. For example, in the covered workforce is employed is based
case of a plan with a calendar plan year Adoption of Amendments to the on all of the relevant facts and
that is maintained by an employer with Regulations circumstances.
a calendar taxable year (and the plan is (iv) Under age 55. A normal
■Accordingly, 26 CFR part 1 is
not a governmental plan and is not retirement age that is lower than age 55
amended as follows:
maintained pursuant to a collective is presumed to be earlier than the
bargaining agreement), the plan’s PART 1—INCOME TAXES earliest age that is reasonably
remedial amendment period with representative of the typical retirement
respect to § 1.401(a)–1(b)(2) and (3) ends ■ Paragraph 1. The authority citation age for the industry in which the
on the date prescribed by law for the for part 1 is amended by adding an entry covered workforce is employed, unless
filing of the employer’s income tax in numerical order to read in part as the Commissioner determines that
return (including extensions) for the follows: under the facts and circumstances the
2007 taxable year. Authority: 26 U.S.C. 7805 * * * normal retirement age is not earlier than
In the case of a plan amendment that Section 1.401(a)–1 also issued under 26 the earliest age that is reasonably
increases the plan’s normal retirement U.S.C. 401. * * * representative of the typical retirement
age pursuant to this regulation, the ■ Par. 2. Section 1.401(a)–1 is amended age for the industry in which the
amendment may also eliminate a right by: covered workforce is employed.
to an in-service distribution prior to the ■ 1. Revising paragraph (b)(1)(i). (v) Age 50 safe harbor for qualified
normal retirement age under the plan as ■ 2. Adding paragraphs (b)(2), (b)(3), public safety employees. A normal
amended without violating section and (b)(4). retirement age under a plan that is age
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411(d)(6) if the amendment is adopted ■ The additions and revision read as 50 or later is deemed to be not earlier
after May 22, 2007 and on or before the follows: than the earliest age that is reasonably
last day of the applicable remedial representative of the typical retirement
amendment period under § 1.401(b)–1 § 1.401(a)–1 Post-ERISA qualified plans age for the industry in which the
with respect to the requirements of and qualified trusts; in general. covered workforce is employed if
§ 1.401(a)–1(b)(2) and (3). For purposes * * * * * substantially all of the participants in

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Federal Register / Vol. 72, No. 98 / Tuesday, May 22, 2007 / Rules and Regulations 28607

the plan are qualified public safety rules), section 411(d)(6) (other than been operated since May 22, 2007, in
employees (within the meaning of elimination of the right to an in-service conformity with the amendment adopted on
section 72(t)(10)(B)). distribution prior to the amended February 18, 2008.
(3) Benefit distribution prior to normal retirement age), or section 4980F (ii) Conclusion. The plan amendment does
retirement. For purposes of paragraph not violate section 411(d)(6). Although the
(relating to an amendment that reduces amendment eliminates the right to
(b)(1)(i) of this section, retirement does the rate of future benefit accrual). This commence benefits in-service between age 45
not include a mere reduction in the paragraph only applies to a plan and the revised normal retirement age, the
number of hours that an employee amendment that is adopted after May amendment is made before the last day of the
works. Accordingly, benefits may not be 22, 2007 and on or before the last day remedial amendment period applicable to the
distributed prior to normal retirement of the applicable remedial amendment plan under § 1.401(b)–1 with respect to the
age solely due to a reduction in the period under § 1.401(b)–1 with respect requirements of § 1.401(a)–1(b)(2) and (3),
number of hours that an employee to the requirements of § 1.401(a)–1(b)(2) and therefore the amendment is permitted
works. and (3). under paragraph (a) of this A–12. Further, the
(4) Effective date. Except as otherwise amendment does not result in a reduction in
(b) Example. The following example
provided in this paragraph (b)(4), any benefit for service after May 22, 2007.
illustrates the application of this Thus, the amendment does not result in a
paragraphs (b)(2) and (3) of this section section: reduction in any benefit for future service,
are effective May 22, 2007. In the case and advance notice of a significant reduction
(i) Facts. (A) Plan A is a defined benefit
of a governmental plan (as defined in plan intended to be qualified under section in the rate of future benefit accrual is not
section 414(d)), paragraphs (b)(2) and (3) 401(a). Plan A is maintained by a calendar required under section 4980F.
of this section are effective for plan year taxpayer and has a normal retirement
years beginning on or after January 1, age that is age 45. For employees who cease Kevin M. Brown,
2009. In the case of a plan maintained employment before normal retirement age Deputy Commissioner for Services and
pursuant to one or more collective with a vested benefit, Plan A permits benefits Enforcement.
bargaining agreements that have been to commence at any date after the attainment Approved: May 9, 2007.
ratified and are in effect on May 22, of normal retirement age through attainment Eric Solomon,
2007, paragraphs (b)(2) and (3) of this of age 701⁄2 and provides for benefits to be
Assistant Secretary of the Treasury (Tax
actuarially increased to the extent they
section do not apply before the first plan commence after normal retirement age. For Policy).
year that begins after the last of such employees who continue employment after [FR Doc. E7–9643 Filed 5–21–07; 8:45 am]
agreements terminate determined attainment of normal retirement age, Plan A BILLING CODE 4830–01–P
without regard to any extension thereof provides for benefits to continue to accrue
(or, if earlier, May 24, 2010. See and permits benefits to commence at any
§ 1.411(d)–4, A–12, for a special time, with an actuarial increase in benefits to
apply to the extent benefits do not commence
DEPARTMENT OF HOMELAND
transition rule in the case of a plan SECURITY
amendment that increases a plan’s after normal retirement age. Age 45 is an age
that is earlier than the earliest age that is
normal retirement age pursuant to reasonably representative of the typical Coast Guard
paragraph (b)(2) of this section. retirement age for the industry in which the
■ Par. 3. Section 1.411(d)–4 is amended covered workforce is employed. 33 CFR Part 100
by adding Q&A–12 as follows: (B) On February 18, 2008, Plan A is
[CGD05–07–020]
amended, effective May 22, 2007, to change
§ 1.411(d)–4 Section 411(d)(6) protected its normal retirement age to the later of age RIN 1625–AA08
benefits. 65 or the fifth anniversary of participation in
* * * * * the plan. The amendment provides full Special Local Regulations for Marine
Q–12. Is there a transition period vesting for any participating employee who Events; Delaware River, Delaware City,
during which a plan is permitted to is employed on May 21, 2007, and who DE
eliminate a right to in-service terminates employment on or after attaining
age 45. The amendment provides employees AGENCY: Coast Guard, DHS.
distributions in connection with an who cease employment before the revised
amendment to ensure that the plan’s ACTION: Temporary final rule.
normal retirement age and who are entitled
normal retirement age satisfies the to a vested benefit with the right to be able SUMMARY: The Coast Guard is
requirements of § 1.401(a)–1(b)(2)? to commence benefits at any date from age
A–12. (a) In general. A plan establishing temporary special local
45 to age 701⁄2. The plan amendment also
amendment that changes the normal revises the plan’s benefit accrual formula so regulations during the ‘‘7th Annual
retirement age under the plan to a later that the benefit for prior service (payable Escape from Fort Delaware Triathlon’’,
normal retirement age pursuant to commencing at the revised normal retirement an event to be held June 9, 2007 on the
§ 1.401(a)–1(b)(2) does not violate age or any other age after age 45) is not less waters of Delaware River at Delaware
section 411(d)(6) merely because it than would have applied under the plan’s City, DE. These special local regulations
formula before the amendment (also payable are necessary to provide for the safety of
eliminates a right to an in-service commencing at the corresponding dates),
distribution prior to the amended life on navigable waters during the
based on the benefit accrued on May 21, event. This action will temporarily
normal retirement age. However, this 2007, and provides for service thereafter to
paragraph does not provide relief from restrict vessel traffic in a portion of the
have the same rate of future benefit accrual.
any other applicable requirements; for Thus, for any participant employed on May Delaware River during the 7th Annual
example, this relief does not permit the 21, 2007, with respect to benefits accrued for Escape from Fort Delaware Triathlon.
amendment to violate section 411(a)(9) service after May 21, 2007, the amount DATES: This rule is effective from 5:30
(requiring that the normal retirement payable under the plan (as amended) at any a.m. to 10:30 a.m. on June 9, 2007.
benefit commencement date after age 45 is
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benefit not be less than the greater of ADDRESSES: Documents indicated in this
the same amount that would have been
any early retirement benefit payable payable at that benefit commencement date preamble as being available in the
under the plan or the benefit under the under the plan prior to amendment. The plan docket, are part of docket (CGD05–07–
plan commencing at normal retirement amendment also eliminates the right to an in- 020) and are available for inspection or
age), section 411(a)(10) (if the service distribution between age 45 and the copying at Commander (dpi), Fifth
amendment changes the plan’s vesting revised normal retirement age. Plan A has Coast Guard District, 431 Crawford

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