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S 2835Benefit Programs

Public Officers and Employees - Retirement System - Administration

This bill changes the pension calculation for state and municipal workers to use their best three salary years instead of five.

Held for study
Population
Affected
15
Introduced Mar 4, 2026Committee Senate Finance

Plain-English Summary

This legislation amends the state and municipal employee retirement systems in Rhode Island. It changes the definition of "average compensation" (for state employees) and "final compensation" (for municipal employees) used to calculate pension benefits. Specifically, for members who retire on or after July 1, 2012, the bill mandates that their pension be calculated based on the average of their highest three consecutive years of salary, rather than the highest five years. This change effectively increases the retirement benefit formula for eligible public employees retiring after the specified date.

For younger readers

When people work for the government, like at the state house or for a town, they earn a "pension" which is money they get paid after they stop working. The amount of money they get is based on a math problem using their salary. Right now, the math uses the average of their pay for five years. This new rule changes the math to use only their best three years of pay. This usually results in the workers getting more money in their checks when they retire.

Who & Where It Applies

Impacted groups
State employeesMunicipal employeesRetireesPolice officersFirefighters
Impacted communities
All

Constitutional & Fiscal Check

None Likely

Estimated cost
Amount unknown
Estimated revenue
None

Bill Analysis

Both viewpoints
For Progressives
  • Strengthens the social safety net for retired public servants by increasing their pension benefits, ensuring they have greater financial security and dignity in their later years.
  • Restores fair labor compensation standards by reverting to a more generous benefit calculation, honoring the service of government workers who often accept lower salaries in exchange for stable benefits.
  • Injects capital into the local economy, as retirees with higher disposable incomes are likely to spend that money within their communities, supporting local businesses.
  • Allocates significant state and municipal funds to increase benefits for a specific group of former employees, which could divert limited resources away from urgent social programs for the poorest and most disadvantaged residents.
  • Disproportionately benefits higher-income state and municipal officials whose "highest three years" of salary create much larger pension payouts compared to lower-wage civil servants.
  • Places a potentially heavy financial burden on current and future taxpayers, including the working poor, to fund increased payouts for past retirees, raising intergenerational equity concerns.
For Conservatives
  • Benefits retired first responders, such as police officers and firefighters, ensuring those who protected the community receive better financial support and recognition for their service.
  • May reduce reliance on other forms of government welfare assistance by ensuring retirees have adequate independent income from their earned pensions.
  • Potentially improves the recruitment and retention of essential public safety and administrative personnel by making the retirement package more competitive with the private sector.
  • Significantly increases the financial burden on taxpayers by expanding government spending on entitlement programs for public sector employees without corresponding service improvements.
  • Strengthens the power and influence of public sector unions by granting them increased benefits, further entrenching the administrative state.
  • Threatens the long-term solvency of the state and municipal pension systems by retroactively increasing liabilities, potentially leading to future tax hikes or municipal fiscal crises.

Votes

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Full Bill Text

Changes to existing Rhode Island law · 4 additions · 2 deletions

SECTION 1. Section 36-8-1 of the General Laws in Chapter 36-8 entitled "Retirement System — Administration" is hereby amended to read as follows: 36-8-1. Definition of terms. The following words and phrases as used in chapters 8 to 10 of this title unless a different meaning is plainly required by the context, shall have the following meanings:

(1) “Accumulated contributions” shall mean the sum of all the amounts deducted from the compensation of a member and credited to their individual pension account.

(2) “Active member” shall mean any employee of the state of Rhode Island as defined in this section for whom the retirement system is currently receiving regular contributions pursuant to §§ 36-10-1 and 36-10-1.1.

(3) “Actuarial equivalent” shall mean an allowance or benefit of equal value to any other allowance or benefit when computed upon the basis of the actuarial tables in use by the system.

(4) “Annuity reserve” shall mean the present value of all payments to be made on account of any annuity, benefit, or retirement allowance granted under the provisions of chapter 10 of this title computed upon the basis of such mortality tables as shall be adopted from time to time by the retirement board with regular interest. (5)(a) “Average compensation” for members eligible to retire as of September 30, 2009, shall mean the average of the highest three (3) consecutive years of compensation, within the total service when the average compensation was the highest. For members eligible to retire on or after October 1, 2009, “Average compensation” shall mean the average of the highest five (5) consecutive years of compensation within the total service when the average compensation was the highest.

(b) For members eligible to and who retire on or after July 1, 2024 2012, “average compensation” means the average of the highest three (3) consecutive years of compensation within the total service when the average compensation was the highest.

(c) For members who become eligible to retire on or after July 1, 2012, if more than one- half (½) of the member’s total years of service consist of years of service during which the member devoted less than thirty (30) business hours per week to the service of the state, but the member’s average compensation consists of three (3) or more years during which the member devoted more than thirty (30) business hours per week to the service of the state, such member’s average compensation shall mean the average of the highest ten (10) consecutive years of compensation within the total service when the average compensation was the highest; provided however, effective July 1, 2015, if such member’s average compensation as defined in subsection (a) above is equal to or less than thirty-five thousand dollars ($35,000), such amount to be indexed annually in accordance with § 36-10-35(h)(1)(B), such member’s average compensation shall mean the greater of: (i) The average of the highest ten (10) consecutive years of compensation within the total service when the average compensation was the highest; or (ii) The member’s average compensation as defined in subsection (a) above. To protect a member’s accrued benefit on June 30, 2012, under this § 36-8-1(5)(c), in no event shall a member’s average compensation be lower than the member’s average compensation determined as of June 30, 2012.

(6) “Beneficiary” shall mean any person in receipt of a pension, an annuity, a retirement allowance, or other benefit as provided by chapter 10 of this title.

(7) “Casual employee” shall mean those persons hired for a temporary period, a period of emergency, or an occasional period.

(8) “Compensation” as used in chapters 8 — 10 of this title, chapters 16 and 17 of title 16, and chapter 21 of title 45 shall mean salary or wages earned and paid for the performance of duties for covered employment, including regular longevity or incentive plans approved by the board, but shall not include payments made for overtime or any other reason other than performance of duties, including but not limited to the types of payments listed below:

(i) Payments contingent on the employee having terminated or died;

(ii) Payments made at termination for unused sick leave, vacation leave, or compensatory time;

(iii) Payments contingent on the employee terminating employment at a specified time in the future to secure voluntary retirement or to secure release of an unexpired contract of employment;

(iv) Individual salary adjustments which are granted primarily in anticipation of the employee’s retirement;

(v) Additional payments for performing temporary or extra duties beyond the normal or regular work day or work year.

(9) “Employee” shall mean any officer or employee of the state of Rhode Island whose business time is devoted exclusively to the services of the state, but shall not include one whose duties are of a casual or seasonal nature. The retirement board shall determine who are employees within the meaning of this chapter. The governor of the state, the lieutenant governor, the secretary of state, the attorney general, the general treasurer, and the members of the general assembly, ex officio, shall not be deemed to be employees within the meaning of that term unless and until they elect to become members of the system as provided in § 36-9-6, but in no case shall it deem as an employee, for the purposes of this chapter, any individual who devotes less than twenty (20) business hours per week to the service of the state, and who receives less than the equivalent of minimum wage compensation on an hourly basis for their services, except as provided in § 36-9- 24. Any commissioner of a municipal housing authority or any member of a part-time state, municipal, or local board, commission, committee, or other public authority shall not be deemed to be an employee within the meaning of this chapter.

(10) “Full actuarial costs” or “full actuarial value” shall mean the lump sum payable by a member claiming service credit for certain employment for which that payment is required which is determined according to the age of the member and the employee’s annual rate of compensation at the time the member applies for service credit and which is expressed as a rate percent of the employee’s annual rate of compensation to be multiplied by the number of years for which the member claims service credit as prescribed in a schedule adopted by the retirement board from time to time on the basis of computation by the actuary. Except as provided in §§ 16-16-7.1, 36-5-3, 36- 9-31, 36-10-10.4, 45-21-53, 36-10-8, 45-21-29, 8-3-16(c), 8-8-10.1(c), 42-28-22.1(d), and 28-30- 18.1(c):

(i) All service credit purchases requested after June 16, 2009, and prior to July 1, 2012, shall be at full actuarial value; and

(ii) All service credit purchases requested after June 30, 2012, shall be at full actuarial value which shall be determined using the system’s assumed investment rate of return minus one percent (1%). The rules applicable to a service credit purchase shall be the rules of the retirement system in effect at the time the purchase application is submitted to the retirement system.

(11) “Funded ratio” shall mean the ratio of the actuarial value of assets to the actuarial accrued liability consistent with the funding policy of the retirement board as defined in § 36-8-4.

(12) “Inactive member” shall mean a member who has withdrawn from service as an employee but who has not received a refund of contributions.

(13) “Members” shall mean any person included in the membership of the retirement system as provided in §§ 36-9-1 — 36-9-7.

(14) “Prior service” shall mean service as a member rendered before July 1, 1936, certified on the member’s prior service certificate and allowable as provided in § 36-9-28.

(15) “Regular interest” shall mean interest at the assumed investment rate of return, compounded annually, as may be prescribed from time to time by the retirement board.

(16) “Retirement allowance” shall mean annual payments for life made after retirement under and in accordance with chapters 8 to 10 of this title. All allowances shall be paid in equal monthly installments beginning as of the effective date thereof; provided, that a smaller pro rata amount may be paid for part of a month where separation from service occurs during the month in which the application was filed, and when the allowance ceases before the last day of the month.

(17) “Retirement board” or “board” shall mean the board provided in § 36-8-3 to administer the retirement system.

(18) “Retirement system” shall mean the employees’ retirement system of the state of Rhode Island as defined in § 36-8-2.

(19) “Service” shall mean service as an employee of the state of Rhode Island as described in subdivision (9) of this section.

(20) “Social Security retirement age” shall mean a member’s full retirement age as determined in accordance with the federal Old Age, Survivors and Disability Insurance Act, not to exceed age sixty-seven (67).

(21) “Total service” shall mean prior service as defined above, plus service rendered as a member on or after July 1, 1936.

SECTION 2. Section 45-21-2 of the General Laws in Chapter 45-21 entitled "Retirement of Municipal Employees" is hereby amended to read as follows: 45-21-2. Definitions. The following words and phrases as used in this chapter have the following meanings unless a different meaning is plainly required by the context:

(1) “Accumulated contributions” means the sum of all amounts deducted from the compensation of a member and credited to the member’s individual account in the members’ contribution reserve account.

(2) “Active member” means any employee of a participating municipality as defined in this section for whom the retirement system is currently receiving regular contributions pursuant to § 45-21-41, § 45-21-41.1, or § 45-21.2-14.

(3) “Actuarial reserve” means the present value of all payments to be made on account of any annuity, retirement allowance, or benefit, computed upon the basis of mortality tables adopted by the retirement board with regular interest.

(4) “Beneficiary” means any person in receipt of a retirement allowance, annuity, or other benefit as provided by this chapter.

(5) For purposes of this chapter, “domestic partner” shall be defined as a person who, prior to the decedent’s death, was in an exclusive, intimate, and committed relationship with the decedent, and who certifies by affidavit that their relationship met the following qualifications:

(i) Both partners were at least eighteen (18) years of age and were mentally competent to contract;

(ii) Neither partner was married to anyone else;

(iii) Partners were not related by blood to a degree which would prohibit marriage in the state of Rhode Island;

(iv) Partners resided together and had resided together for at least one year at the time of death; and

(v) Partners were financially interdependent as evidenced by at least two (2) of the following:

(A) Domestic partnership agreement or relationship contract;

(B) Joint mortgage or joint ownership of primary residence;

(C) Two (2) of: (I) Joint ownership of motor vehicle; (II) Joint checking account; (III) Joint credit account; (IV) Joint lease; and/or

(D) The domestic partner had been designated as a beneficiary for the decedent’s will, retirement contract, or life insurance.

(6) “Effective date of participation” means the date on which the provisions of this chapter have become applicable to a municipality accepting the provisions of the chapter in the manner stated in § 45-21-4.

(7) “Employee” means any regular and permanent employee or officer of any municipality, whose business time at a minimum of twenty (20) hours a week is devoted to the service of the municipality, including elective officials and officials and employees of city and town housing authorities. Notwithstanding the previous sentence, the term “employee,” for the purposes of this chapter, does not include any person whose duties are of a casual or seasonal nature. The retirement board shall decide who are employees within the meaning of this chapter, but in no case shall it deem as an employee any individual who annually devotes less than twenty (20) business hours per week to the service of the municipality and who receives less than the equivalent of minimum wage compensation on an hourly basis for their services, except as provided in § 45-21-14.1 [repealed]. Casual employees mean those persons hired for an occasional period or a period of emergency to perform special jobs or functions not necessarily related to the work of regular employees. Any commissioner of a municipal housing authority, or any member of a part-time state board commission, committee, or other authority is not deemed to be an employee within the meaning of this chapter. (8)(a) “Final compensation” for members who are eligible to retire on or prior to June 30, 2012, means the average annual compensation, pay, or salary of a member for services rendered during the period of three (3) consecutive years within the total service of the member when the average was highest, and as the term average annual compensation is further defined in §  36-8- 1(5)(a). For members eligible to retire on or after July 1, 2012, “final compensation” means the average of the highest five (5) consecutive years of compensation within the total service when the final compensation was the highest. For members eligible to and who retire on or after July 1, 2024 2012, “final compensation” means the average of the highest three (3) consecutive years of compensation within the total service when the final compensation was the highest.

(b) For members who become eligible to retire on or after July 1, 2012, if more than one half (½) of the member’s total years of service consist of years of service during which the member devoted less than thirty (30) business hours per week to the service of the municipality, but the member’s average compensation consists of three (3) or more years during which the member devoted more than thirty (30) business hours per week to the service of a municipality, such member’s average compensation shall mean the average of the highest ten (10) consecutive years of compensation within the total service when the average compensation was the highest; provided however, effective July 1, 2015, if such member’s average compensation as defined in subsection

(a) above is equal to or less than thirty-five thousand dollars ($35,000), such amount to be indexed annually in accordance with § 45-21-52(d)(1)(B), such member’s average compensation shall mean the greater of: (i) The average of the highest ten (10) consecutive years of compensation within the total service when the average compensation was the highest; or (ii) The member’s average compensation as defined in subsection (a) above. To protect a member’s accrued benefit on June 30, 2012, under this subsection (8)(b), in no event shall a member’s average compensation be lower than his or her average compensation determined as of June 30, 2012. Notwithstanding the preceding provisions, in no event shall a member’s final compensation be lower than the member’s final compensation determined as of June 30, 2012.

(9) “Fiscal year” means the period beginning on July 1 in any year and ending on June 30 of the next succeeding year.

(10) “Full actuarial costs” or “full actuarial value” mean the lump sum payable by a member claiming service credit for certain employment for which payment is required, which is determined according to the age of the member and their annual rate of compensation at the time he or she applies for service credit, and which is expressed as a rate percent of the annual rate of compensation to be multiplied by the number of years for which the member claims the service credit, as prescribed in a schedule adopted by the retirement board, from time to time, on the basis of computation by the actuary. Except as provided in §§ 16-16-7.1, 36-5-3, 36-9-31, 36-10-10.4, and 45-21-53: (i) All service credit purchases requested after June 16, 2009, and prior to July 1, 2012, shall be at full actuarial value; and (ii) All service credit purchases requested after June 30, 2012, shall be at full actuarial value which shall be determined using the system’s assumed investment rate of return minus one percent (1%).

(11) “Governing body” means any and all bodies empowered to appropriate monies for, and administer the operation of, the units as defined in subdivision (13) of this section.

(12) “Member” means any person included in the membership of the retirement system as provided in § 45-21-8.

(13) “Municipality” means any town or city in the state of Rhode Island, any city or town housing authority, fire, water, sewer district, regional school district, public building authority as established by chapter 14 of title 37 [repealed], or any other municipal financed agency to which the retirement board has approved admission in the retirement system.

(14) “Participating municipality” means any municipality which has accepted this chapter, as provided in § 45-21-4.

(15) “Prior service” means service as a member rendered before the effective date of participation as defined in this section, certified on the member’s prior service certificate, and allowable as provided in § 45-21-15.

(16) “Regular interest” means interest at the assumed investment rate of return, compounded annually, as may be prescribed from time to time by the retirement board.

(17) “Retirement allowance” or “annuity” means the amounts paid to any member of the municipal employees’ retirement system of the state of Rhode Island, or a survivor of the member, as provided in this chapter. All retirement allowances or annuities shall be paid in equal monthly installments for life, unless otherwise specifically provided.

(18) “Retirement board” or “board” means the state retirement board created by chapter 8 of title 36.

(19) “Retirement system” means the “municipal employees’ retirement system of the state of Rhode Island” as defined in § 45-21-32.

(20) “Service” means service as an employee of a municipality of the state of Rhode Island as defined in subdivision (7).

(21) “Total service” means prior service as defined in subdivision (15) plus service rendered as a member on or after the effective date of participation.

(22) Any term not specifically defined in this chapter and specifically defined in chapters 8 through 10 of title 36 shall have the same definition as set forth in chapters 8 through 10 of title 36.

SECTION 3. This act shall take effect upon passage.