"[T]he DOL rule could inhibit communication between licensed representatives like broker-dealers and employees ... [which] will increase the likelihood that terminating employees will cash out their crucial retirement savings.... [A] lack of educational communications to transitioning employees could result in an additional $20 to $32 billion of cash outs annually, decreasing the retirement savings of affected individuals by 20 to 40 percent.... Many experts think that the lack of a clear seller's exception will limit or discourage many small businesses from starting their own plans, negatively impacting the public policy goal of increasing access to retirement plans."