The statute to which I’ve devoted almost all of my legal career – the Employee Retirement Income Security Act of 1974 (“ERISA”) – gets only intermittent (and usually only modestly accurate) attention from the media. A new burst occurred on October 14th, when the Department of Labor published a proposed regulation designed to prod investment managers of employer-sponsored retirement plans to give greater consideration to “the economic effects of climate change and other environmental, social, or governance factors on the particular investment or investment course of action”.
The proposed regulation is the latest volley in a back-and-forth that began in 1994, when the Clinton Administration published an “interpretive bulletin” (a document included in the Code of Federal Regulations but of considerably lower status than a real regulation) designed to dispel “a perception [that] exists within the investment community that investments in ETIs are incompatible with ERISA’s fiduciary obligations”. “ETI” was the acronym for “economically targeted investment”, which the bulletin described as “an investment that is selected for the economic benefit it creates, in addition to the investment return to the employee benefit plan investor”. This was the predecessor to the wider-ranging acronym that enjoys favor today: “ESG” for “environmental, social and governance” factors.
The (W.) Bush Administration revoked the Clinton interpretive bulletin, replacing it with one declaring that “ERISA’s plain text thus establishes a clear rule that in the course of discharging their duties, fiduciaries may never subordinate the economic interests of the plan to unrelated objectives, and may not select investments on the basis of any factor outside the economic interest of the plan except in very limited circumstances”. The Obama Administration revoked the revocation and reinstated the Clinton bulletin verbatim.
The Trump Administration sought to put its own reversal of its predecessor’s position on firmer ground by promulgating an actual regulation, whose philosophy is summarized by the statement, “A fiduciary may not subordinate the interests of the participants and beneficiaries in their retirement income or financial benefits under the plan to other objectives, and may not sacrifice investment return or take on additional investment risk to promote non-pecuniary benefits or goals.” 29 C.F.R. §2550.404a-1(c)(1).
The Biden Administration’s proposed amendment to the regulation doesn’t overturn that principle. Rather, it amounts to an op-ed in the guise of regulatory text. The current regulation states that investment managers must consider “The projected return of the portfolio relative to the funding objectives of the plan”. The proposed amendment adds, “which may often require an evaluation of the economic effects of climate change and other environmental, social, or governance factors on the particular investment or investment course of action”.
Similar editorializing shows up in a paragraph that begins innocuously: “A prudent fiduciary may consider any factor in the evaluation of an investment or investment course of action that, depending on the facts and circumstances, is material to the risk-return analysis, which might include, for example”, followed by a list heavily weighted toward “woke” favorites like “exposure to the physical and transitional risks of climate change”, “the positive or negative effect of Government regulations and policies to mitigate climate change”, “board composition”, and “progress on workforce diversity, inclusion, and other drivers of employee hiring, promotion, and retention”.
There isn’t a word in the proposed amendment that puts a fiduciary who wants to make climate stasis or racial discrimination (to call things by their correct names) a key investment criterion in any better position than under the current regulation. What’s more, notwithstanding a quarter century of abrupt volte-faces in official guidance, no reported decision in any case involving ERISA fiduciary duties has turned on, or so much as discussed, plan fiduciaries’ attention or inattention to “environmental, social and governance” factors.
Why, then, are the progressives who now control policymaking at the Department of Labor eager to insert ineffectual pro-ESG propaganda into the regulations? To grasp that, one must look at what the ESG movement is in practice.
ESG advocates don’t call for granular consideration of each of the variety of practices that fall under the headings “environmental”, “social” and “governance”. No one disputes that some of those are of vital importance to some companies. No rational being would evaluate investment in a coal company without taking into account government hostility to the industry (and without also taking into account, one might add, that coal is one of the world’s most efficient and abundant energy sources, a fact that can frustrate governments’ hostile plans). On the other hand, it is doubtful that a coal company with a minuscule proportion of female miners could become more profitable by hiring a sexually balanced work force.
What ESG analysis typically does is aggregate all kinds of disparate practices to produce ratings whose objective is to influence investment decisions. As the DOL noted in the preamble to the proposed version of the Trump regulation, there has been “a steady upward trend in use of the term ESG among institutional asset managers, an increase in the array of ESG-focused investment vehicles available, a proliferation of ESG metrics, services, and ratings offered by third-party service providers, and an increase in asset flows into ESG funds”. To the best of my knowledge, none of the “ESG metrics, services, and ratings” weights its factors by their importance to the individual companies under review. A high or low rating can flow from elements that are of no consequence for the bottom line.
As a further complication, “There is no consensus about what constitutes a genuine ESG investment, and ESG rating systems are often vague and inconsistent, despite featuring prominently in marketing efforts” – another point that the Trump DOL made in the preamble to its proposed regulation. In other words, there’s no way to be confident that an “ESG rating” genuinely rates ESG performance.
ESG evaluations are an expensive exercise. The evaluators must assemble data that don’t appear in financial statements and that can’t be easily acquired from other sources. Once acquired, the data must be updated regularly to watch for significant changes. Somebody must pay for those exertions, and that cost is inevitably passed on to the users of the evaluations. As the Wall Street Journal observes, “According to Morningstar, the asset-weighted average expense ratio of U.S. ‘sustainable’ funds was 0.61% in 2020 compared to 0.41% for all open-ended mutual and exchange-traded funds and 0.12% for passive funds.”
As already noted, ESG has been a non-factor in ERISA litigation to date, but that could change if it continues to make inroads among investment decision makers. Both the dubious linkage of ESG ratings to factors pertinent to particular companies’ performance and the high cost of producing those ratings raise ERISA red flags, and plaintiffs throw red flags with increasing frequency these days. Lawsuits alleging that plans acquiesce in excessive fees for inferior performance have become commonplace over the past several years. One of them, Hughes v. Northwestern University, is on next term’s Supreme Court docket. (It has no ESG angle; the Court will consider pleading standards for complaints that charge plan fiduciaries with allowing the payment of excessive investment fees.)
The Biden Administration wants to encourage greater use of ESG. ERISA-governed retirement plans are one of the world’s largest sources of investment capital. Unhappily for the ESG battalion, ERISA isn’t particularly favorable to the concept, nor does its categorical language leave room for an “ESG exception” to plan fiduciaries’ duties to participants.
For want of a better alternative, the Biden regulators have resorted to erecting a cardboard façade. Their proposed regulation implies that letting ESG factors influence investments is a great idea but doesn’t succeed in turning it into an idea that can be lawfully pursued. The reaction of the trade press, which has overwhelmingly reported the proposed regulation as a retraction of restrictions on ESG investing (restrictions attributed to the Trump Administration in 2020 rather than the Congress that enacted ERISA in 1974), suggests that the façade can withstand minimal poking by reporters who have trouble spelling “ERISA”.
Judges will be a bigger challenge. The proposed regulation doesn’t approve evaluating an investment on the basis of an aggregated rating that includes factors that both do and do not have a bearing on performance. Nor does it authorize paying fees for advice of dubious value. We’re probably a few years away, though, from the first ERISA ESG case. Until it arises, the purveyors of ESG ratings – I’ll take wild guesses that many of them make substantial campaign contributions and that little of that money goes to Republican candidates (well, maybe to Liz Cheney) – have received a boost to their industry.