Reckoning with Historic Unfunded Municipal Pension Obligations

This report examines the historical decisions that contributed to these unfunded liabilities and highlights how current taxpayers are paying more than their fair share.

Key Takeaways

  • As of 2023, recent generations of Massachusetts taxpayers paid an estimated $22 billion more than their fair share to cover local pension obligations left by prior generations, yet these local plans still have an estimated $8 billion in unfunded liabilities.
  • Current taxpayers face additional costs because most of the pension funds are managed by local boards that have underperformed the state pension fund by more than $5.4 billion since the 1980s.
  • Geographic disparities associated with uneven changes in population since the late 1970s have exacerbated this burden for residents of some communities, including many Gateway Cities.
  • This pattern means lower-income residents and people of color shoulder an inequitable share of legacy pension costs. Since the 1980s, Gateway City residents have paid billions more than their own generation’s fair share to cover local pension costs, with more than $5 billion in appropriations made for legacy pension costs since 2010.

Pensions have long been a key part of local public employee compensation in Massachusetts, but decades of underfunding by past leaders have left today’s taxpayers — particularly those in Gateway Cities — shouldering heavy costs. This report examines the historical decisions that contributed to these unfunded liabilities and highlights how current taxpayers are paying more than their fair share. It also presents data showing that offering defined benefit pensions remains affordable when funds are set aside and invested responsibly. 

The report concludes with recommendations to improve transparency and accountability in local pension funding. It calls for stronger disclosures to taxpayers and explores a potential state-level funding approach to mitigate intergenerational inequities. Additionally, it suggests incentivizing local pension plans to manage assets more efficiently by investing through the state’s Pension Reserve Investment Management (PRIM) Board.