A Turning Point for Defined Contribution Access to Private Assets?

A Turning Point for Defined Contribution Access to Private Assets?
December 23, 2025 11 mins

A Turning Point for Defined Contribution Access to Private Assets?

A Turning Point for Defined Contribution Access to Private Assets?

The August 7, 2025 Executive Order has triggered a meaningful shift in how regulators and the market view private assets in DC plans. Together, recent regulatory moves and rapid product innovation suggest a more durable opening for integrating private markets into participant portfolios.

Key Takeaways
  1. The Executive Order prompted fast regulatory change, including DOL’s withdrawal of its 2021 cautionary guidance and an SEC move that broadens non accredited investor access to private investments via closed end funds.
  2. Major asset managers are quickly launching target date and collective investment trusts that embed private markets, signaling strong industry commitment and innovation.
  3. More regulatory clarity, potential fiduciary safe harbors, and robust education for sponsors and participants will be critical to unlocking broader DC adoption of private assets.

Introduction

Plan sponsors are wondering whether the Executive Order the White House signed on August 7, 2025 marks a turning point for integrating private markets into defined contribution (DC) plans — especially given the limited uptake following the DOL’s letter in 2020 which was supportive of private equity in DC plans. This paper explores the regulatory, market and industry developments that followed the Executive Order, what is anticipated next, and why we believe this moment is noteworthy for defined contribution plan sponsors.

What Has Happened Since the Executive Order?

The issuance of the Executive Order set in motion a series of swift regulatory responses. Most notably, the Department of Labor (DOL) acted within days to withdraw the Biden-era December 2021 sub-regulatory guidance, which had previously cautioned fiduciaries against considering private equity in DC plans. This reversal effectively lifts a major barrier, signaling that the federal government is now open to a broader conversation about including private assets. While this alone may appear to return us to the DOL’s stance in 2020 during the first Trump administration, we believe there are other actions and factors that make this moment different.

For instance, the regulatory landscape shifted further later in August when the Securities and Exchange Commission (SEC) changed its stance on closed-end funds — a policy that had remained largely unchanged for over two decades. In Accounting and Disclosure Information (ADI) 2025-16, the SEC opened the door for non-accredited investors to access registered closed-end funds with more than 15% of their portfolios to private investments. This move is likely to expand access to private investments for millions of Americans.

Concurrently, the White House Council of Economic Advisers released a comprehensive analysis, “Retail Access to Alternative Investments via DC Plans.”1 This report emphasized the growing dominance of private companies in capital markets and highlighted how DC plan participants have missed out on the diversification and return potential offered by alternative investments.2 While the Council’s analysis considered benefits for the broader business community and U.S. economy, it also reminds plan fiduciaries that their responsibility remains squarely on the best interests of participants.

The asset management industry also responded rapidly and in broader ways than in 2020. BlackRock announced a new partnership with Great Gray Trust Company to launch a target date series with an allocation to private investments. Apollo and State Street Global Advisors (SSGA) are partnered and will integrate private markets strategies into a SSGA target date offering. KKR and Capital Group are also collaborating to bring private assets to retail investors. Blue Owl and Voya Financial are developing collective investment trusts for private market access, and Goldman Sachs has joined forces with T. Rowe Price to create new products for retail investors. These initiatives reflect a burst of innovation and commitment from leading asset managers.

What Is Still to Come?

Despite these advances, DC plan sponsors are looking for further guidance from regulators. There is hope that new rules expected in 2026 will clarify investment criteria for asset allocation funds and provide practical benchmarking standards, especially given the challenges of evaluating multi-asset portfolios that include private investments.

The market is also watching for the possible introduction of a fiduciary safe harbor, which could help sponsors navigate legal uncertainties and reduce the risk of litigation — a concern that has long inhibited innovation for DC plans. Rule making that is enduring is important. If plan sponsors believe that support for privates is tied to any one particular administration, they will likely be hesitant to implement.

Education remains another critical need for both plan sponsors and participants. In fact, recent research shows that only 12% of plan participants feel very knowledgeable about private assets.3 The complexity of these investments, ranging from liquidity, valuation, and performance to benchmarking and fiduciary process, requires thoughtful engagement from both sponsors and consultants. Adoption within a professionally managed solution like target date funds, however, lessens the need for participants to be very familiar with the complexities of private market strategies. That said, plan fiduciaries will likely demand education to make informed decisions on investment structure. The industry is expected to play a leading role in driving product development and education to address these needs.

12%

of DC plan participants feel very knowledgeable about private assets

What Has Not Changed (Yet)?

Continuing Challenges and Unchanged Realities

Despite these regulatory and market shifts, several fundamental aspects of the DC landscape remain unchanged. One of the continuing recent challenges is the fact that plan sponsors have little incentive to embrace innovation in DC plans. This has not always been the case. Years ago, DC plan sponsors innovated by adopting new features or investments like auto-enrollment, auto-escalation, and target date funds as Qualified Default Investment Alternatives (QDIA’s). Recently, however, for many the focus has been on risk mitigation rather than innovation or evolution. Further, the way plan sponsors and investment committee chairs are evaluated also remains unchanged, with more emphasis placed on staying out of the headlines rather than on optimizing participant outcomes.

Implementation barriers remain as well. However, the growing interest in private markets is driving innovation in product offerings for DC plans. Although custom target date funds and managed accounts are not always used, new solutions are being developed to make private assets more accessible. This presents an opportunity for plan sponsors to further diversify portfolios and potentially enhance participant outcomes by adding private markets.

Another challenge may be perception. For some plan fiduciaries, their paternalistic nature has caused them to view the asset management community’s rapid increased interest in the defined contribution space with some skepticism. This is especially in light of headlines framing the $12 trillion retirement savings market as a “golden goose”4 for asset managers. As always, plan sponsors have a duty to act in the best interests of their participants.

Lastly, litigation risk continues to be a significant concern for sponsors, and while regulatory relief may address some barriers, it is unlikely to eliminate this challenge entirely. Litigation risk is often centered around fees, and including private assets is likely to increase costs even though we forecast allocations to private markets may result in higher returns/ higher participant balances. Aon’s Financial Services Group has noted that “plan sponsors which permit PE investments within their DC plan investment lineups (or self-directed brokerage windows) should expect additional underwriting scrutiny from fiduciary liability insurers. To mitigate against potentially adverse pricing and higher retentions, such insurers will likely expect plan sponsors to adequately explain how the fees associated with PE investments are benchmarked and calculated, the method and frequency with which valuations of such investments are conducted, and the ease with which plan participants can divest from these investments.”5

Why This Moment Is Different

While some may argue that the Executive Order and roll back of the Biden era sub-regulatory guidance may simply return us to the landscape of 2020, we believe the current environment is fundamentally different for several reasons. The administration’s support is broader and more explicit, this time extending beyond private equity to include private credit, real estate, and infrastructure. Further, anticipated guidance is expected to provide fiduciaries with clearer frameworks for evaluating and monitoring products.

From a litigation perspective, the favorable verdict in the Intel lawsuit has also offered additional comfort to sponsors considering private assets, even though it took years to reach this stage (the plaintiffs have appealed to the Supreme Court). The Intel case is notable as it centered around the use of alternatives in their defined contribution plan. The court reiterated the need for a prudent process in selecting and monitoring investments. This focus on process is a familiar expectation of plan fiduciaries and thereby increases their confidence when innovating.

There is also some evidence of growing participant interest. According to Schroders, nearly half of workplace retirement plan participants would invest in private equity and private debt if given the opportunity, and a majority indicate that access to these assets would encourage them to increase their contributions.3 This marks a notable shift in sentiment compared to previous years.

Perhaps most importantly, the wave of innovative partnerships and new product offerings from major asset managers is unlike anything seen in 2020.  
Asset managers have invested energy in building defined contribution friendly vehicles such as collective investment trusts (CITs) in ways they did not previously.

Conclusion

This recent Executive Order and events that followed kicked off a discussion about private assets in defined contribution plans that is broader than what had occurred previously. The convergence of regulatory change, market innovation, and participant interest makes it essential for sponsors to reassess their approach to private assets. Sponsors will balance the potential benefits of diversification and enhanced returns with the realities of product complexity and litigation risk. The important next step is for plan sponsors to educate themselves on private assets and stay abreast of product development and regulatory guidance.

 
Aon’s Thought Leaders
  • Beth Hanig
    Defined Contribution Solutions Leader, Aon Investments USA Inc.

1 The White House Council of Economic Advisers, 2025, Retail Access to Alternative Investments Via Defined Contribution Plans – The White House. This site contains information that has been created, published, maintained or otherwise posted by institutions or organizations independent of Aon. Aon does not endorse, approve, certify or control these websites and does not assume responsibility for the accuracy, completeness or timeliness of the information located there.
2Diversification does not ensure a profit nor does it protect against loss of principal. Diversification among investment options and asset classes may help to reduce overall volatility.
3Schroders, 2025 https://www.schroders.com/en-us/us/institutional/insights/how-interested-are-retirement-plan-participants-in-adding-private-assets-to-their-portfolios/. This site contains information that has been created, published, maintained or otherwise posted by institutions or organizations independent of Aon. Aon does not endorse, approve, certify or control these websites and does not assume responsibility for the accuracy, completeness or timeliness of the information located there.
4Barrons, 2025, https://www.barrons.com/articles/private-equity-401k-retirement-funds-84bb5794. This site contains information that has been created, published, maintained or otherwise posted by institutions or organizations independent of Aon. Aon does not endorse, approve, certify or control these websites and does not assume responsibility for the accuracy, completeness or timeliness of the information located there.
5Aon | Financial Services Group — Private Markets in Defined Contribution Plans: The Potential Impact on Fiduciary Liability Risk, 2025.

Investment advice and consulting services provided by Aon Investments USA Inc. (“Aon Investments”). The information contained herein is given as of the date hereof and does not purport to give information as of any other date. The delivery at any time shall not, under any circumstances, create any implication that there has been a change in the information set forth herein since the date hereof or any obligation to update or provide amendments hereto.

This document is not intended to provide, and shall not be relied upon for, accounting, legal or tax advice. Any accounting, legal, or taxation position described in this presentation is a general statement and shall only be used as a guide. It does not constitute accounting, legal, and tax advice and is based on Aon Investments’ understanding of current laws and interpretation.

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