NAIC Accounting Update: 2025 Fall National Meeting
Introduction
On December 8–11, 2025, the National Association of Insurance
Commissioners (NAIC) held its 2025 Fall National Meeting in Hollywood, Florida,
bringing together stakeholders to address current and emerging regulatory
challenges in the insurance industry. The event emphasized the importance of
market stability and consumer protection.
During the event, the NAIC Statutory Accounting Principles (E) Working Group
(SAPWG) met to continue progress on its focus areas. SAPWG is the group within
the NAIC that maintains revisions to the NAIC’s Accounting Practices and
Procedures Manual (the “AP&P Manual”). The AP&P Manual contains
guidance for insurers on preparing financial statements for financial regulation
purposes.
This insurance industry spotlight highlights key statutory accounting topics
discussed at the NAIC’s 2025 Fall National Meeting that have been or are being
addressed by various NAIC task forces and working groups, including SAPWG. A
comprehensive list of SAPWG agenda items that were adopted, exposed for public
comment, deferred, or otherwise addressed during the event can be found in the
Appendix.
Life Reinsurance
In December 2023, SAPWG received a referral from the NAIC
Valuation Analysis (E) Working Group concerning reinsurance risk transfer and
reserve credit for a specific reinsurance structure observed in the life
insurance industry. The structure, known as a combination reinsurance contract,
combines coinsurance and a yearly renewable term and includes interdependent
features. In response to the referral, SAPWG created Agenda Item 2024-06 to address risk
transfer considerations related to combination reinsurance contracts.
Revisions to SSAP No. 611 and Appendix A-7912 were originally adopted by SAPWG at the NAIC’s 2025 Summer National
Meeting. Those changes were intended to clarify statutory expectations and
eliminate inconsistent interpretations of existing guidance. However, the
changes were not adopted by the NAIC Financial Condition (E) Committee because
certain regulators expressed concerns about the effective date and transition.
As a result, the changes did not become immediately effective.
At the NAIC’s 2025 Fall National Meeting, the clarifications to SSAP No. 61 were
adopted at all levels. Clarifications are effective immediately for new and
newly amended contracts. For existing contracts, clarifications should be
accounted for as a change in accounting principle in accordance with SSAP No.
33 on or before December 31, 2026. Insurers will need to reevaluate risk
transfer on existing contracts that contain the noted features during 2026.
Applying the adopted clarifications to existing, and sometimes very old,
reinsurance contracts may present challenges.
Complex life reinsurance contracts in general, and treatment of
the assets that back them, continued to draw attention from regulators. Insurers
will be applying AG 55,4 which focuses on asset adequacy testing for reinsurance treaties that cede
asset-intensive business offshore, for the first time in year-end 2025
reporting. Disclosures about modified coinsurance and funds withheld treaties
were expanded in 2025; the expanded disclosures include the new Schedule S, Part
8, that is required to be provided in the life annual statement (Agenda Item 2024-07). Further, recently
adopted revisions to SSAP No. 15 require disclosure of the total book/adjusted carrying value of assets
held under modified coinsurance and funds withheld reinsurance agreements.
Private Placement Securities
Insurers continue to invest in private credit. To enhance transparency, SAPWG has
long sought clear and concise disclosures about investment portfolios, including
investments in private placement securities. Adopted revisions in Agenda Item 2025-19 will allow regulators easier access to
information about private placement securities and the associated private letter
ratings often used for private placements. Such revisions will also address
potential concerns about the increase in, and reliance on, Level 3 fair value
measurements for private placement securities.
To achieve its goals, SAPWG adopted new disclosure and reporting requirements for
private placement securities that are effective for year-end 2026 reporting.
As a result of adopting Agenda Item 2025-19, SAPWG sponsored a
proposal to the NAIC Blanks (E) Working Group to include a new column in the
relevant annual statement investment detail schedules. The new column will
identify each held debt security by category as follows:
- Public.
- Rule 144A (i.e., exempt from SEC registration in accordance with SEC Rule 144A under the Securities Act of 1933).
- Private placement (i.e., exempt from SEC registration in accordance with SEC Regulation D under the Securities Act of 1933, Section 4(a)(2) of the Securities Act of 1933, or another Securities Act of 1933 exclusion aside from Rule 144A).
- Not applicable (i.e., otherwise outside the scope of the Securities Act of 1933).
Using the same categories, the reporting entity will also be required to provide
aggregated disclosures — specifically, (1) total book-adjusted carrying value
(BACV), (2) fair value that represents Levels 2 and 3 of the fair value
hierarchy, (3) aggregate deferred interest and paid-in-kind interest, and (4)
total BACV with a private letter rating for each type of private security.
Insurers will need to prepare for the expanded disclosure requirements by
ensuring that they have the requisite information available. Working with
investment managers and investment accounting and reporting vendors will be
essential.
Investment Subsidiaries and Residential Mortgages
The concept of an “investment subsidiary” was a holdover from previous accounting
guidance that dealt with insurers’ investments in subsidiary, controlled, or
affiliated entities. However, references to investment subsidiaries remained in
the Risk-Based Capital Instructions and Annual Statement Instructions, and some
insurers were applying “look-through” treatment to assets held within an
investment subsidiary. Therefore, SAPWG adopted Agenda Item 2024-21, including the sponsoring of proposals
to the NAIC Blanks (E) Working Group and the NAIC Capital Adequacy (E) Task
Force to eliminate the concept of investment subsidiaries from those
instructions.
Insurers that use investment subsidiaries may continue to do so, but they must
evaluate how the elimination of look-through concepts affects their financial
reporting and risk-based capital calculations.
An exception was noted in the case of Delaware statutory trusts
that were created to hold residential mortgage loans. Specifically, SAPWG
adopted Agenda Item 2025-13, which expands the
scope of SSAP No. 376 to include residential mortgage loans held within qualifying trusts so
that those loans can be reported on Schedule B — Mortgage Loans. For a
residential mortgage held in a Delaware statutory trust or other statutory trust
to qualify for reporting on Schedule B, the trust must be 100 percent owned by
the reporting entity and hold only single residential mortgage loans, cash, and
foreclosed real estate. This guidance is effective January 1, 2027, with early
adoption permitted.
Insurers holding residential mortgage loans within a trust structure will need to
(1) evaluate whether the structure qualifies under the new guidance; (2)
determine whether to early adopt the new guidance; and (3) provide the requisite
disclosures upon adoption, including the identification of trusts as
subsidiaries on Schedule Y — Information Concerning Activities of Insurer
Members of a Holding Company Group.
Interest Maintenance Reserve
The Interest Maintenance Reserve (IMR) Ad Hoc Subgroup of SAPWG continues to meet
frequently to clarify and standardize the complex accounting for IMR with the
ultimate goal of substantively revising SSAP No. 7.7 NAIC staff noted that progress continues to be made, and a working draft
of revised SSAP No. 7 was provided to certain SAPWG members before year-end
2025. In addition, SAPWG Chairman Dale Bruggeman indicated that he aims for
revised SSAP No. 7 to be reviewed and adopted by the close of the NAIC’s next
Summer National Meeting in August 2026.
To that end, the IMR Ad Hoc Subgroup continues to expose items for discussion by
SAPWG. At the NAIC’s 2025 Fall National Meeting, SAPWG exposed two such items
for public comment:
- Agenda Item 2025-23 — This agenda item exposes concepts and templates for insurers that admit a net negative IMR to demonstrate proof of reinvestment. Net negative IMR is admissible under INT 23-01,8 subject to certain limitations. INT 23-01 was extended to be effective through year-end 2026 reporting.
- Agenda Item 2025-22 — This agenda item exposes revisions to SSAP No. 61 to clarify how IMR that is eliminated as part of a reinsurance transaction should influence the reinsurance collateral that is required for the cedent to receive reinsurance credit.
Insurers should monitor forthcoming changes to IMR guidance as they consider
portfolio rebalancing and reinsurance transactions.
Appendix — SAPWG Agenda Items
The tables in the sections below summarize SAPWG agenda items adopted, exposed
for public comment, deferred, or otherwise addressed during the NAIC’s 2025 Fall
National Meeting. New statutory accounting principle (SAP) concepts (formerly
known as “substantive changes”), which are changes in accounting principles or
in the method of applying those principles, have explicit effective dates as
documented below. All SAP clarifications (formerly known as “nonsubstantive
changes”), which are changes that clarify existing accounting principles, are
effective upon adoption unless otherwise noted.
Agenda Items Adopted
There were no new SAP concepts adopted at the
NAIC’s 2025 Fall National Meeting. However, SAPWG (or the parent committee,
in the case of Agenda Item 2024-06) adopted the following SAP clarification
items as final during the event:
|
Reference No.
|
Relevant Guidance
|
Insurance Type
|
Revisions Adopted
|
Financial Statement Impact
|
Disclosure
|
Effective Date
|
|---|---|---|---|---|---|---|
|
SSAP No. 26, Bonds
SSAP No. 43, Asset-Backed
Securities
SSAP No. 21, Other Admitted
Assets
SSAP No. 2, Cash, Cash
Equivalents, Drafts, and Short-Term
Investments
|
Property and casualty (P&C)
Life
Health
|
“Debt Security
& Residual Interest Disclosures”
To ensure consistency of
disclosures for bonds, nonbond debt securities, and
residual interests, SAPWG adopted revisions to
disclosures and an Annual Statement General
Interrogatory. The revisions include the
following:
|
No
|
Yes
|
December 31, 2026
| |
|
SSAP No. 37, Mortgage Loans
|
P&C
Life
Health
|
“Residential
Mortgage Loans Held in Statutory Trusts”
This agenda item was developed to
address accounting requirements for residential
mortgage investments held in Delaware statutory
trusts and other qualifying statutory trusts.
Adopted revisions to SSAP No. 37 to
expand its scope to include mortgage loans acquired
through an investment in qualifying statutory trusts
and have them reported on Schedule B — Mortgage
Loans.
Also adopted revisions to allow
cash and foreclosed real estate held within the
qualifying statutory trust to be reported as
such.
|
Yes
|
Yes
|
January 1, 2027, with early
adoption permitted
| |
|
SSAP No. 61, Life, Deposit-Type
and Accident and Health Reinsurance
Appendix A-791, Life and Health
Reinsurance Agreements
|
Life
Health
|
“Risk Transfer
Analysis on Combination Reinsurance
Contracts”
Finalized revisions to require risk
transfer to be evaluated in the aggregate for
multiple contracts with interrelated contract
features, such as experience refunds. Revisions were
adopted at the parent committee level.
Also finalized revisions to refer
to paragraph 6 of Appendix A-791 when reinsurance
agreements also combine a yearly renewable term
contract to ensure that the entirety of the
agreement is evaluated for risk transfer.
|
Yes
|
No
|
For new or newly amended contracts,
the revisions are effective immediately.
For existing contracts, the
revisions are effective December 31, 2026, to allow
time for assessment by insurers and domiciliary
state regulators. Any change resulting from adoption
of these accounting requirements is accounted for as
a change in accounting principle under SSAP No. 3,
Accounting Changes and Corrections of
Errors.
| |
|
SSAP No. 92, Postretirement
Benefits Other Than Pensions
SSAP No. 102, Pensions
|
P&C
Life
Health
|
“Retirement
Plan Assets Held at NAV”
Adopted revisions to explicitly
address valuation of plan assets using the net asset
value (NAV) practical expedient for fair value
disclosures.
|
No
|
Yes
|
Year-end 2025 reporting
| |
|
SSAP No. 101, Income
Taxes
|
P&C
Life
Health
|
“ASU 2019-12,
Simplifying the Accounting for Income
Taxes”
Adopted revisions to SSAP No. 101
to (1) reflect SAPWG’s adoption, with modification,
of FASB Accounting Standards Update (ASU) No.
2019-12, Income Taxes (Topic 740): Simplifying
the Accounting for Income Taxes, and (2) fully
incorporate paragraphs 19 and 20 of Accounting
Principles Board Opinion No. 28, Interim
Financial Reporting (which were previously
incorporated by reference).
|
N/A
|
N/A
|
Year-end 2025 reporting
| |
|
All SSAPs on invested assets
|
P&C
Life
Health
|
Annual
Statement Recommendation: “Private Placement
Securities”
Adopted revisions to existing
disclosures to require a reporting entity to
identify each held debt security by category as
follows:
Using the same categories, the
reporting entity will also be required to provide
aggregated disclosures as follows:
|
No
|
Yes
|
December 31, 2026
| |
|
Annual Statement Blanks and Annual
Statement Instructions
Risk-Based Capital Instructions
|
P&C
Life
Health
|
“Investment
Subsidiary Classification”
Adopted the following revisions:
|
No
|
No
|
December 31, 2026
|
Agenda Items Exposed
SAPWG exposed the following items for written
comments by interested parties:
|
Reference No.
|
Relevant Guidance
|
Insurance Type
|
Revisions Exposed
|
Financial Statement Impact
|
Disclosure
|
Effective Date
|
|---|---|---|---|---|---|---|
|
SSAP No. 1, Accounting Policies,
Risks & Uncertainties, and Other
Disclosures
SSAP No. 5, Liabilities, Contingencies and
Impairments of Assets
SSAP No. 21, Other Admitted Assets
SSAP No. 26, Bonds
SSAP No. 43, Asset-Backed Securities
Annual Statement Instructions
|
P&C
Life
Health
|
Proposed SAP Clarification:
“Commitments and Contingencies
Disclosures”
Current disclosures of commitments and contingent
commitments are included in Notes 14 and 21 of the
annual statement. To address the risk that insurers
are entering into complex financial arrangements
that include various commitments, this item focuses
on consolidating and clarifying disclosures of
commitments and contingent commitments. Proposed
revisions are as follows:
Comments are requested on the existence of clawback
features in investments.
|
Yes
|
Yes
|
To be determined (TBD)
| |
|
SSAP No. 1, Accounting Policies, Risks &
Uncertainties, and Other Disclosures
|
P&C
Life
Health
|
Proposed SAP Clarification: “SSAP No. 1 Modco/FWH
Code”
Restricted asset disclosure
revisions are proposed to separately disclose assets
held under modco and funds withheld reinsurance
arrangements.
Proposed revisions would also add
reporting code categories within the investment
schedules for modco assets, funds withheld assets,
and collateral assets received and on the balance
sheet.
|
No
|
Yes
|
TBD
| |
|
SSAP No. 3, Accounting Changes and Corrections of
Errors
SSAP No. 51, Life Contracts
SSAP No. 52, Deposit-Type Contracts
|
P&C
Life
Health
|
Proposed SAP Clarification: “Updates on Economic
Scenario Generator and Non-Variable
Annuities”
In response to changes made to the NAIC’s
Valuation Manual whose effective date is
January 1, 2026, this item proposes to update
guidance and disclosures to include implementation
and phase-in guidance.
|
Yes
|
Yes
|
TBD
| |
|
SSAP No. 7, Asset Valuation Reserve and Interest
Maintenance Reserve
|
Life
|
Proposed New SAP Concept: “IMR Proof of
Reinvestment”
The deferral of realized loss recognition is premised
on the notion that proceeds are used to reinvest in
fixed-income instruments with a higher yield.
This item proposes a disclosure of proof of
reinvestment with verification that the
weighted-average yield on investments acquired is
greater than the weighted-average yield of the
investments sold.
Proof of reinvestment would be separately determined
for the general account and the separate
account.
The proposal would apply only if net negative IMR is
being admitted.
|
Yes
|
Yes
|
TBD
| |
|
SSAP No. 22, Leases
|
P&C
Life
Health
|
Proposed SAP Clarification: “Sale-Leaseback
Clarification”
This item’s reexposed proposed revision would clarify
that if the reporting entity’s use of cash received
in a sale-leaseback transaction is prevented or
restricted, the transaction does not qualify for
sale-leaseback accounting and is considered a
financing arrangement.
|
Yes
|
TBD
|
TBD
| |
|
SSAP No. 40, Real Estate Investments
SSAP No. 90, Impairment or Disposal of Real Estate
Investments
|
P&C
Life
Health
|
Proposed SAP Clarification: “Remove Shaded
Text”
This item proposes to remove shaded superseded
guidance. Shaded text was previously used to
indicate substantive revisions as deleted text but
is no longer used for SSAPs.
|
No
|
No
|
TBD
| |
|
SSAP No. 47, Uninsured Plans
|
P&C
Life
Health
|
Proposed SAP Clarification: “Administrative
Services Contracts Disclosure
Clarification”
This item would clarify the disclosure of
profitability of administrative services contract
plans.
|
No
|
Yes
|
TBD
| |
|
SSAP No. 48, Joint Ventures, Partnerships and
Limited Liability Companies
|
P&C
Life
Health
|
Proposed SAP Clarification: “SSAP No. 48 Equity
Changes”
In review of valuation changes in the annual
statement for entities accounted for under SSAP No.
48, a disconnect was noted related to unrealized
gain/loss and valuation increase/decrease reported
on the investment schedules.
Although no revisions were proposed, this agenda item
requests comments on equity method accounting in the
following areas:
|
TBD
|
TBD
|
TBD
| |
|
SSAP No. 56, Separate Accounts
|
Life
|
Proposed New SAP Concept: “Separate Account
Nonadmitted Assets”
This agenda item addresses an issue identified by the
IMR Ad Hoc Subgroup of SAPWG. This subgroup noted
that with book-value separate accounts, there is no
mechanism to ensure that assets backing these
products are subject to the same admittance
provisions as the general account.
Proposed revisions include the following:
|
Yes
|
Yes
|
TBD
| |
|
SSAP No. 61, Life, Deposit-Type and Accident and
Health Reinsurance
|
Life
|
Proposed SAP Clarification: “IMR Impact to
Reinsurance Collateral”
This agenda item addresses another issue identified
by the IMR Ad Hoc Subgroup of SAPWG. It applies to
both unauthorized and certified reinsurers and to
both positive and negative IMR.
Key topics of the agenda item’s proposed revisions
include the following:
|
Yes
|
TBD
|
TBD
| |
|
SSAP No. 86, Derivatives
|
P&C
Life
Health
|
Proposed New SAP Concept: “Asset Liability
Management Derivatives”
Previously, SAPWG exposed two versions of a draft
SSAP addressing the use of interest-rate hedging
derivatives for asset-liability management (ALM).
The draft SSAPs considered two differing methods of
accounting: (1) amortized cost and (2) fair value
mark and spread. SAPWG held an interim conference
call to receive comments.
After discussion, SAPWG directed the preparation of
an issue paper and concurrent SSAP on the amortized
cost approach. Under the amortized cost approach:
Development of applicable annual statement reporting
revisions will occur during the interim period.
|
Yes
|
TBD
|
TBD (tentative effective date is January 1, 2027)
| |
|
SSAP No. 103, Transfers and Servicing of Financial
Assets and Extinguishments of Liabilities
|
P&C
Life
Health
|
Proposed New SAP Concept: “Nonadmittance of
Long-Term Repos”
This agenda item’s proposed revisions to SSAP No. 103 would:
|
Yes
|
No
|
TBD
| |
|
INT 05-05, Accounting for Revenues Under Medicare
Part D Coverage
|
Health
|
Proposed SAP Clarification: “Update Coverage Gap
Reference”
This agenda item proposes to update INT 05-05 to
reflect the following changes resulting from the
Inflation Reduction Act of 2022.
|
Yes
|
No
|
TBD
| |
|
Annual Statement Blanks and Annual
Statement Instructions
|
P&C
Life
Health
|
Proposed SAP Clarification: “Reporting
Clarifications”
This agenda item proposes to clarify reporting for
debt securities as a result of the principles-based
bond definition. It addresses the following topics:
|
No
|
Yes
|
TBD
| |
|
Annual Statement Blanks and Annual
Statement Instructions
|
P&C
Life
Health
|
Proposed SAP Clarification: “Update to Annual
Statement Expense Descriptions and
Categories”
The proposed revisions in this agenda item would
update the annual statement expense categories and
related descriptions.
|
No
|
Yes
|
TBD
|
Agenda Items Deferred
SAPWG deferred action on the following items
previously exposed:
|
Reference No.
|
Relevant Guidance
|
Insurance Type
|
Revisions Exposed
|
Financial Statement Impact
|
Disclosure
|
Effective Date
|
|---|---|---|---|---|---|---|
|
SSAP No. 7, Asset Valuation
Reserve and Interest Maintenance Reserve
|
Life
|
Proposed New SAP Concept: “IMR
Definition”
This agenda item is related to a
broader project aimed at incorporating accounting
guidance on asset valuation reserve (AVR) and IMR
into SSAP No. 7 and removing such guidance from the
Annual Statement Instructions. It discusses a
definition of IMR proposed by the American Council
of Life insurers (ACLI) and the NAIC staff’s
recommended changes to the ACLI’s proposed
definition of the term.
Future guidance developed in the broader project will
use the definition of IMR as ultimately
determined.
|
Yes
|
TBD
|
TBD
| |
|
SSAP No. 7, Asset Valuation Reserve and Interest
Maintenance Reserve
|
Life
|
Proposed New SAP Concept: “SSAP No. 7 — Asset
Valuation Reserve and Interest Maintenance
Reserve”
This agenda item is related to the
broader project to incorporate accounting guidance
on AVR and IMR into SSAP No. 7 and remove such
guidance from the Annual Statement Instructions.
SAPWG previously exposed proposed revisions to remove
hypothetical IMR as recommended by the IMR Ad Hoc
Subgroup.
In a reinsurance transaction, current guidance
requires a three-step process to determine the
interest-related gain/loss for the block.
Hypothetical IMR is the IMR balance and future
amortization that would result if the remaining
assets associated with the block of liabilities were
sold.
|
Yes
|
TBD
|
TBD
| |
|
SSAP No. 103, Transfers and
Servicing of Financial Assets and Extinguishments
of Liabilities
|
P&C
Life
Health
|
Proposed SAP Clarification: “Conforming Repurchase
Agreements”
As noted in this agenda item, SAPWG “directed NAIC
staff [on the date the agenda item was exposed] to
work with industry in determining current
application/interpretation differences on the
reporting of securities lending collateral and
repurchase agreement collateral for possible
consistency revisions.”
A previously exposed memo describes similarities and
differences between securities lending and
repurchase agreements.
SAPWG is considering adoption, with modification, of
certain disclosures from ASU 2023-06, Disclosure
Improvements: Codification Amendments in Response
to the SEC’s Disclosure Update and Simplification
Initiative, including the following.
|
Yes
|
TBD
|
TBD
|
Contacts
If you have questions about this publication,
please contact the following Deloitte professionals:
|
|
Andrew Pidgeon
Audit & Assurance
Partner
Deloitte & Touche LLP
+1 415 783 6426
|
|
Bala Bellur
Audit & Assurance
Managing Director
Deloitte & Touche LLP
+1 813 769 3210
|
|
|
Josh Martin
Audit & Assurance
Managing Director
Deloitte & Touche LLP
+1 860 725 3153
|
|
John Tittle
Audit & Assurance
Specialist
Deloitte & Touche LLP
+1 312 486 5486
|
Footnotes
1
NAIC Statement of Statutory Accounting Principles
(SSAP) No. 61, Life, Deposit-Type and Accident and Health
Reinsurance.
2
NAIC Appendix A-791, Life and Health Reinsurance Agreements.
3
NAIC Statement of Statutory Accounting Principles No. 3, Accounting
Changes and Corrections of Errors.
4
NAIC Actuarial Guideline No. LV, Application of the
Valuation Manual for Testing the Adequacy of Reserves Related to
Certain Life Reinsurance Treaties.
5
NAIC Statement of Statutory Accounting Principles No.
1, Accounting Policies, Risks & Uncertainties, and Other
Disclosures.
6
NAIC Statement of Statutory Accounting Principles No.
37, Mortgage Loans.
7
NAIC Statement of Statutory Accounting Principles No. 7, Asset
Valuation Reserve and Interest Maintenance Reserve.
8
Interpretation of the Statutory Accounting Principles (E) Working
Group No. 23-01, Net Negative (Disallowed) Interest
Maintenance Reserve.