45 pages. "[Participants and plan sponsors] have observed and still often note long delays ... confusing and contradictory exchanges ... and difficulties when an issue transcends multiple departments within the agency.... [Given] rising premiums and the dwindling premium payer base as sponsors de-risk their defined benefit plans, the agency must be mindful of the resources it uses when pursuing plan sponsors for prolonged periods of time, such as during protracted negotiations in the distress termination process."