In the meantime (as we wait for guidance), there's Rev. Rul. 89-49, 1989-1 C.B. 117, which is summarized in one publication as follows: Factors to be considered include the degree of control the federal or state government has over the organization’s everyday operations, whether there is specific legislation creating the organization, the source of funds for the organization, the manner in which the organization’s operating officials are selected, and whether the governmental unit involved considers the organization’s employees to be its own employees. A plan is not considered a governmental plan merely because the sponsoring organization has a relationship with a governmental unit or some quasi-governmental power.