regulating homeowners insurance in texas 2 7
TRANSCRIPT
Regulating homeowners insurance in Texas
October 18, 2010
This report reviews the recent history
of homeowners insurance regulation in Texas, as well as several proposals
for change that the 82nd Legislature may confront during its 2011 regular
session.
Number 81-14
2 Sunset Commission recommendations
7Using credit scoringto set rates
3 Definitions
Homeowners insurance policy forms
910
Expediting appeals in contested rate cases11Appointing or electing the commissioner
2 Methods of rateregulation
WiththecontinuinghighcostofTexashomeownersinsurancepoliciesandtheongoingSunsetreviewoftheTexasDepartmentofInsurance(TDI),theTexasLegislaturemayconsiderchangestohomeownersinsuranceregulationduringthe2011regularlegislativesession.TheamountTexanspayforhomeownersinsuranceisestimatedtobebetween52and76percentmorethanthenationalaverage,dependingonthetypeofpolicyformsbeingcompared.
Before2003,thelastyearinwhichtheLegislaturemadecomprehensivereformstohomeownersinsuranceregulation,premiumshadincreasednearly45percentinthreeyears.Thestatefacedacrisisofskyrocketingmoldclaims,and99percentofdirectwrittenpremiumsforhomeownersinsurancewereissuedbycompaniesexemptedfromrateregulation.The78thLegislaturereviewedtheseandotherissuesandenactedanewregulatorysystemintendedtolimittheincreaseinhomeownersratesbyeliminatingregulationexemptionsandestablishingaregulatorystructuretopromoteratecompetition.
ConsumeradvocatesarecallingformajorchangestoTexas’regulatorystructureforhomeownersinsurance,sayingthatreformsin2003havenotprovidedrelieftohomeownerspayingexcessiveratesforinsurance.Theycontendthecurrentenvironmentputsinsuranceindustryinterestsaheadofconsumerneedsinthenameofcompetition.Consumeradvocatessaythatbecausestandardinsurancepolicyformsnolongerare
requiredstatewide,insurersgenerallyareofferinglesscoveragebuthavenotdecreasedpremiumsaccordingly.Theysaymany
consumersarepayingmoreforlesscoveragethanbeforethe2003revisions.
InsurerssaythatbecauseTexashassomeofthemostextremeweatherinthenation,therates
Texanspayforhomeownersinsuranceareappropriatetoaddresstherisk.Thedirectlossesandexpensespaidby
insurersin2008,duemainlytohurricanesIkeandDolly,exceededdirectpremiumsearnedbymorethan$1.5billion.Theindustrysays
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profitsinyearswithrelativelylowclaimshelppayclaimswhenextremeweatherstrikes.
ThisreportreviewstherecenthistoryofhomeownersinsuranceregulationinTexas,aswellasseveralproposalsforchangethatthe82ndLegislaturemayconfrontduringits2011regularsession.
Sunset Commission recommendations
TheSunsetAdvisoryCommissionstaffhasconductedtworecentreviewsofTDI—acomprehensivereviewin2008andalimited,special-purposereviewin2010.SunsetstaffevaluatedTDI’simplementationoftherevisionstohomeownersinsuranceregulationenactedin2003bySB14byJackson.SB14madeallhomeownersinsurers,includingthosewhoseratespreviouslyhadbeenunregulated,subjecttoafile-and-userateregulationsystem.TheTexasfile-and-usesystemallowsinsurerstofilearatechange,thenputthenewrateineffectimmediatelyorwhenevertheychoose.TDImayrequirepriorapprovalofratesonlyifissuesareidentifiedwiththeinsurer’sfinancialconditionorratingpracticesorinastatewideinsuranceemergency.
SunsetstaffcompletedacomprehensivereviewofTDIbeforethe2009regularlegislativesession.Duringthisreview,staffsaidthatTDI’simplementationofthefile-and-usesystemlackedtransparencyandcouldcauseunpredictabilityinregulation.Thestaffrecommendations,whichwereadoptedbytheSunsetAdvisoryCommission,andtherevisionsproposedinSB1007byHegar,theTDISunsetbillin2009,focusedonclarifyingthefile-and-useprocessandthecircumstancesunderwhichaninsurermightbeplacedundertherequirementforpriorapproval.
SB1007passedtheSenatebutdiedintheHouseafteritwassetontheMajorStateCalendarbutnofurtheractionwastaken.The81stLegislature,initsfirstcalledsessionin2009,enactedSB2byHegar,whichextendedtheSunsetdateforTDItoSeptember1,2011,butdidnotincludeanyspecificregulatorychanges.SB2requiredtheSunsetAdvisoryCommissionstafftoperformalimitedspecial-purpose
reviewofTDIinpreparationfortheregularsessionofthe82ndLegislaturein2011,ratherthanrepeatthecomprehensivereviewof2008.FollowingthelimitedreviewofTDI,theSunsetAdvisoryCommissioninJuly2010madesubstantivelythesamerecommendationsforhomeownersinsuranceregulationthatweremadeinthe2008review.
Methods of rate regulation
Texascurrentlyregulateshomeownersinsuranceratesthroughafile-and-usesystem,inwhichinsurersmustfileratechangeswithTDIbutarenotrequired
towaitforTDIapprovaltoputnewratesineffect.File-and-useisoneofseveralrateregulationschemescommonamongthestates.Priorapprovalsystemsrequireinsurerstoreceiveapprovalfromregulatorsbeforetheymaychangerates.Flexibleratingsystemsallowinsurerstoimplementnewratesaslongas
theratesdonotexceedorfallbelowanacceptablerangesetbyregulators.ThemethodbywhichhomeownersinsuranceratesshouldberegulatedinTexashasremainedasourceofdebatesincetheregulatoryprocesswaschangedtoafile-and-usesystemin2003.
Background
In1991,tostabilizetheinsurancemarketandpromotecompetition,the72ndLegislatureestablishedamodifiedbenchmarksystemthatallowedforflexiblerate-settingforhomeownersinsurance.Underthissystem,TDIannuallyestablishedabenchmarkrateforhomeownersinsurance.Insurerscouldchargeanyratewithinarangeof30percentmoreto30percentlessthanthestatebenchmarkwithoutpriorapprovalfromTDI,buthadtoreceivepriorapprovalfromtheinsurancecommissionerforratessetoutsidethis“flexibilityband.”
TheLegislatureexemptedhomeownerspoliciesprovidedbycertainentitiesfromthebenchmarkflexibleratingsystem.TheseincludedLloyd’splaninsurersandreciprocalandinterinsuranceexchanges,whichhistoricallyhadwrittenpoliciesforonlyasmallportionofthemarketandgenerallycoveredspecialty
The Sunset Advisory Commission staff has conducted two recentreviews of TDI.
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risksatrateslowerthanthestandardrates.Followingthisexemption,insurersbeganshiftingmoreoftheirbusinesstothesenon-rate-regulatedentities.TDIestimatedthatby2001,non-rate-regulatedentitieswroteabout95percentofTexashomeownersinsurancepolicies.
Homeownersinsurancepremiumsincreasedsignificantlybetween2000and2003,fueledbywidespread,costlyclaimsformolddamageandamarketthatlargelywasnotsubjecttorateregulation.ThispromptedGov.RickPerrytodeclaretheregulationofhomeownersinsuranceanemergencyissueforthe78thLegislaturein2003.Earlyinthe2003regularsession,the78thLegislatureenactedSB310byFraser,requiringcertainhomeownersinsurerstofilecurrentandprojectedratesandsupportingdatawiththecommissioner.TDIreportedtotheLegislatureitsfindingsabouttheratefilingsrequiredbySB310onMarch28,2003.Thereportindicatedthatinthepreviousthreeyears,rateshadincreasedstatewideanaverageof45percent.
Amongthetop12non-rate-regulatedinsurers,somerateswerejustifiedbutotherscouldbereducedasmuchas25percent,accordingtoTDI.
The78thLegislaturelaterinthe2003regularsessionenactedSB14byJackson,whichbroughtsweepingchangestohomeownersinsuranceregulation.Thebillmadeallhomeownersinsurers,includingthosewhoseratespreviouslywereunregulated,subjecttofile-and-userateregulation.
UndertheTexasfile-and-usesystem,insurersmustfilerateswithTDIandmayimplementtheratesimmediatelyorwhenevertheychoose.TDImaydisapproveadministrativelyaratedeemedexcessive,inadequate,orunfairlydiscriminatorybeforetheratehasbeenimplementedormaydisapprovearate-in-effectthroughacontestedcasehearingattheStateOfficeofAdministrativeHearings.TDImaysubjectcertaininsurerstoapriorapprovalprocessiftheinsurer’sfinancialconditionorratingpractices
File-and-use — aregulatorystructureunderwhichinsurersmustfilerateswithstateregulatorsbutdonothavetowaitforapprovalbeforetheratesmaybeused.Somestatesmayrequireinsurerstowaitaspecifiednumberofdaysbeforeafiledratemaybeused.Regulatorsmayretaintherighttodisapproveofaratelaterifitviolatesthelaw.
Prior approval — aregulatorystructureunderwhichinsurersmustfilerateswithstateregulatorsandthenawaitapprovaloftheratepriortoimplementingit.Somestatesmaydeemarateapprovediftherateisnotdeniedwithinaspecifiednumberofdays.
Flex-rating — aregulatorystructureunderwhichpriorapprovalofratesisnotrequiredunlessratechangesexceedacertainpercentageabove,orinsomecasesbelow,previouslyfiledrates.Forslightlymorethanadecadestartingin1991,Texasusedavariantofflex-ratinginwhichtheinsurancecommissionersetabenchmarkrateandallowedinsurerstouserateswithinacertainpercentageofthebenchmarkratewithoutpriorapproval.
Policy form — documentsthatestablishthetypesoflossesaninsurancepolicywillcover,theconditionsunderwhichtheselosseswillbecovered,andthedollaramountofthatcoverage.
Endorsement — modificationstoapolicyformthatmayclarify,broaden,orlimitthescopeofcoverage.
Deductible — portionofalossthattheinsuredmustpaybeforetheinsurancecompanypaysthebalance.Thismaybeaflatfeeorapercentageofthepolicyamount.
Definitions
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requiresupervisionorifthereisastatewideinsuranceemergency.InsurerssubjecttopriorapprovalmustfilerateswithTDI,thenawaitapprovalbeforeusingtherates.Ifarateisnotapprovedordisapprovedwithin30days,theinsurermaydeemtherateapproved.
Toestablishamoreappropriatebaselineforratesinthenewsystem,SB14alsoauthorizedTDItorequireinitialratereductionsforinsurersfoundtobechargingexcessiverates.BySeptember2003,theinsurancecommissionerhadorderedmorethan30companiestoreduceratesbyasmuchas31percent,foranoverallreductionof12percent,amountingtoatotalof$510millioninratereductions.AlltheinsurersultimatelycompliedwiththemandatoryratereductionsexceptStateFarmLloyds,whichwasaskedtoreduceratesby12percentbutrefused.Thestand-offbetweenTDIandStateFarmhasplayedoutsincethattimeintheStateOfficeofAdministrativeHearingsandinthecourts.ThematterispendinginTravisCountydistrictcourt.BecauseofStateFarm’slargemarketshare,theratereductionsthatwereintendedtosaveTexasconsumers$510millionhavesavedthemonly$355million.
Recent issues
In2009,despiteimplementationofthefile-and-usesystem,only10percentofhomeownerinsurersfiledandbegantousenewratesonthesameday.ManyinsurershaveexpressedconcernsthattheTexassystemismorea“file-and-haggle”systemthanafile-and-usesystem.Theysaythatbecausetherate-filingprocessisunpredictable,insurersfaceariskthatiftheyfileandusearateimmediately,itlatercouldbecontested.Theysaythispreventsthemfromusingfiledratesrightaway,whichstiflesthepossiblecompetitivebenefitsofthesystem.
SB1007byHegar,theTDISunsetbillintroducedintheregularsessionin2009,includedprovisionsintendedtomaketheratefilingprocessmorepredictableandtoclarifywhatcouldsubjectaninsurertopriorapproval.SB1007wouldhaverequiredthecommissionertodisapproveratesthatdidnotcomplywithstatutoryrequirementsbeforearatetookeffectorwithin30daysofthedaytheratewasfiled,whicheveroccurredfirst.Ifthecommissionerhadnotdisapprovedaratebeforethesedeadlines,thecommissionercouldhavedisapprovedtherateonlyafterahearing.Thebillwouldhaverequiredthecommissionertoestablish
thefinancialconditionsandratingpracticesthatcouldsubjectaninsurertopriorapprovalandtoexplaintoinsurersunderpriorapprovalthestepsnecessarytotaketobeexcusedfromtheorder.
Thosewhosupportsomeformoffile-and-usesystemsayTexashasyettoseetheratereductionbenefitsthatenhancedcompetitionundersuchasystemcouldprovidebecausethecurrentregulatoryprocesscontainstoomuchuncertainty.TheysaythefearofTDIinterventionincreasescoststhroughouttheindustrybecauseinsurersmustanticipatetheriskofhavingaraterejectedandtheadministrativecostsofhagglingovertherate.Thisuncertaintyalsomeansthatinsurersrarelyfeelcomfortablefilingandimmediatelyimplementingratechanges.
Somefile-and-usesupporterssaytheSunsetrecommendationswouldaddthecertaintythatthecurrentregulatorysystemislacking,andotherssayTDI’sauthoritytodisapproveratesshouldbelimitedevenmore.SomewouldpreferthatTDIbepermittedonlytodisapproverates-in-effectandwouldlimitTDIregulationof“excessive”ratestocircumstancesinwhichthenumberofparticipatinginsurerswasinsufficienttomaintainacompetitivemarket.Theysaythatinacompetitivemarket,consumerswillnotpayexcessiveratesandthemarketwillregulateitselfnaturally.
Thosewhoopposethefile-and-usesystemsayithasbeenharmfultoconsumersandthattheSunsetreviewisanopportunitytochangetoapriorapprovalsystem—onethatrequiresTDItoapproveallratechangesbeforenewratesmaybeused.FifteenstateswererequiringpriorapprovalofallhomeownersinsuranceratechangesasofFebruary2010,accordingtoinformationcompiledbytheNationalAssociationofInsuranceCommissioners.
Debate about prior approval of rates
SupportersofimplementingapriorapprovalsystemofrateregulationsaythatTexashomeownersdeservetohavestateregulatorsensurethattheirinsuranceratesarenotexcessiveorunfairlydiscriminatorybeforetheyhavetopaythem.Theburdenshouldrestsquarelyoninsurerstojustifywhyarateincreaseisneededbeforeconsumersareaskedtopaymorefortheirinsurance.
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Consumeradvocatessayafile-and-usesystembenefitsonlyinsurers,makingitmoredifficulttorollbackinappropriaterateincreasesoncetheyareineffectandthereforelesslikelythatTDIwillchallengearatechangethathasbeenimplemented.TDIcurrentlycannotdisapprovearateineffect,evenifthedepartmentdeemsitunfairorexcessive,withoutanadministrativehearingandpossibleappealtoadistrictcourt,whichcanbecostly.Meanwhile,homeownersmustpaythenew,higherratesuntiltheratechallengeisresolved.Apriorapprovalsystemwouldpreventconsumersfromhavingtopayhigherratesovermanyyearswhilearatedisputeplaysoutinthecourts.TheunresolveddisputebetweenStateFarmLloydsandTDIoveraTDIrequestforStateFarmLloydstoreduceitsrateshasbeeninthecourts
since2003,demonstratinginsurerresolvetodisputetheauthorityofTDItoregulaterates.
Thefile-and-usesystemwassupposedtodecreaseTexas’insuranceratesbyenhancingcompetition,yetTexasconsumerscontinuetopaysomeofthehighestratesinthenation.Asof2007,themostrecentyearforwhichdataareavailable,Texashomeownersinsurancewasthesecondmostcostlyinthenationandwas76percentmoreexpensivethanthenationalaverageforthemostcommonlypurchasedpolicy,accordingtotheNationalAssociationofInsuranceCommissioners.Thesehighpremiumshavebeenassessedevenasinsurershavemadehugeprofitsinseveralrecentyears.
Incurred loss ratio-annual losses incurred, including amounts already paid out plus the change in amounts set aside to coverfuture payments, as a proportion of the amount of premiums collected.
Expense ratio - annual business expenses incurred as a proportion of the amount of premiums collected.
Combined loss ratio - sum of incurred loss ratio and expense ratio.
Source for loss ratio data: Texas Department of Insurance
History of loss ratios for Texas homeowners insurance
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108
1992 1993 1994 1995 1996 1997 1998 1999 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009
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5833
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127
38
67
HurricanesIke and Dolly
Hurricane Rita
MetroplexHail
TexasMold Crisis
MetroplexHail & Tornado
File-and-userate regulation
Incurred loss ratio
Expense ratioCommissioner approves
non-standard policy forms
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Insurers’profitsaredemonstratedthroughtheirlossratios.Lossratiosareameasureofaninsurer’sannuallosses—amountspaidoutplusthechangeinamountssetasidetocoverfuturepayments—asaproportionofthepremiumsaninsurercollectedthatyear.Morespecifically,the“combinedlossratio”istheamountofclaimslossesandbusinessexpensesincurredduringayearasapercentageoftheamountofpremiumscollected.Before2008,whenhurricanesIkeandDollystruck,theaverage,combinedlossratioforinsurersusingratesunderthenewfile-and-usesystemwas72.9percent,meaninginsurersweremakingprofitsaveragingmorethan27percentfrom2004to2007(see chart).Thisfiguredoesnotevenincludetheadditionalprofitsinsurersweremakingfrominvestmentincome.WhiletheyearhurricanesIkeandDollystruckwasanextremelybadyearforinsurers,thisleveloflossisrare.HurricaneIkewasconsidereda35-to40-yearstorm,meaningthat,onaverage,astormofthissizeisexpectedtooccuronceevery35to40years.Insurerswillbepocketinghuge,unjustifiedprofitsonthebacksofconsumersiftheycontinuechargingtheircurrentrates,saypriorapprovaladvocates.
NotonlydoTexasconsumerspaymorefortheirinsurancethanmostofthecountry,buttheypaymoretodayforlesscoveragethantheyreceivedbeforetheshifttofile-and-use.TDI’sSB310reportpublishedinMarch2003estimatedthatafterTDIbeganapprovingnon-standardformsin2002,thecoverageTexashomeownerspoliciesprovidedwasreducedbybetween15and45percent,dependingontheform.Despitethereducedcoverage,asofMarch2010,homeownerswerepayingonaverageabout5percentmorefortheirhomeownerspoliciesthaninJune2003.Thisincreaseisespeciallytroublingsincethemoldcrisisandunregulatedmarketalreadyhadcausedhomeownersinsuranceratestospike45percentinthethreeyearsbeforethe2003reforms,supportersofpriorapprovalsay.
ApriorapprovalsystemwouldallowTDItoreviewandapprove,andrequireinsurerstojustify,allratesbeforetheywerepassedalongtopolicyholders.Thisisnecessarybecausetheinsurancemarketisnotastandardcompetitivemarketplace.Homeownersarerequiredbymortgagelenderstohaveinsuranceandneedittoprotecttheirmostvaluableasset,theirhome.Thisnecessitatesratereviewsothatinsurersdonottake
advantageofconsumervulnerability,priorapprovaladvocatessay. Supportersofmovingtoapriorapprovalsystemsaythatasurveyhasdemonstratedthatpriorapprovalisasystemthatpeoplewouldwant.TexasWatch,aconsumeradvocacyorganization,hadHillResearchConsultantsconductapollinlateAugust2010of600voters.ThosesurveyedwereaskediftheywouldapproveordisapproveofthefollowingproposalifitwerepresentedtotheTexasLegislature:““PRIORAPPROVAL,”whichwouldrequireinsurancecompaniessubmitandjustifyrateincreasesforreviewbytheTexasDepartmentofInsurancebeforetheycouldgointoeffect,notafter.”About74percentsaidtheywouldapprove,with51percentstronglyapproving.Onlyabout17percentsaidtheywoulddisapprove,with8percentofthosesayingtheywoulddisapprovestrongly.
Opponentsofimplementingapriorapprovalsystemofrateregulationsaythatpriorapprovalsystemsinhibitthebenefitsofacompetitivemarketplacethatcanbetappedthroughfile-and-usesystems.Ahealthy,competitiveinsurancemarketwithmanyparticipatinginsurersisthebestwaytoensurecompaniesstriveforefficienciestokeepcostsdownandtokeeprateslowenoughtoattractalargeconsumerbase.File-and-useallowsinsurerstoassessrisks,fileanactuariallyjustifiedrate,andimmediatelybeginusingthefiledrate.Bycontrast,priorapprovalallowsregulatorstointerferewithinsurers’determinationsofwhatratesarenecessarytokeeptheirbusinesssolventinthelongterm.
Theinsuranceindustryisbasedonassessmentofrisk,andinsurersmustassessavarietyofconsumer,environmental,andregulatoryfactors,aswellastheperformanceofthefinancialmarket,whensettingrates.Apriorapprovalsystemwouldintroduceyetanotherrisktoaninsurerbecausetheinsurerwouldnotknowwhetherinsuranceregulatorswouldapproveratechanges.Thiscouldleadtoworseoutcomesforconsumersbecauseinsurerswouldtrytosethigherratestoaccountforthishigherriskandalsocoulddecidetoleavethemarketorreducethenumberofpoliciestheywrotetoavoidlosses.
Whileeffortstoincreaseregulationthroughproposalssuchaspriorapprovalmaybewellintended,
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theyleadtoworseconsumeroutcomes.Thebiggestrisktoconsumerswouldbetoregulateinsurerratesinawaythatledinsurerstobecomeinsolventandunabletopayconsumerclaimsfollowingacatastrophebecausestateregulatorshadpreventedtheinsurerfromestablishinganadequatereserve.Althoughinsurerprofitswererelativelyhighin2006and2007,theyallowedmanyinsurerstostayinbusinessdespitetheextremelossestheyfacedin2008forhurricanesIkeandDolly.
Thefactthatonly10percentofinsurersfeelconfidentenoughtofileandimmediatelyuseratesinthecurrentfile-and-usesystemmeansthatTexashasyettoseethefulladvantagesthatatrulycompetitivefile-and-usesystemcouldprovide.Insteadofracingtoscrapthefile-and-usesysteminfavorofpriorapproval,TexasshouldimplementtheSunsetrecommendationsproposedlastsessiontoclarifythecurrentfile-and-usesystemforinsurers.Thestateshouldconsiderstillmorereformstooptimizecompetitioninthemarketplace,suchasallowingTDItodisapproveofratesonlyiftheyarediscriminatoryorinadequateandnotiftheyareexcessive,saypriorapprovalopponents.
Priorapprovaladvocatescomplainthatratesaretoohigh,yetsince2003theindustryhasbeenhitbyclaimsresultingfromthreemajorhurricanes.Insurersneedtochargetheratestheyarecharginginordertostaysolventandcontinueservingconsumersinlightofhuge,weather-relatedlosses.Forexample,thecombinedlossratioin2008whenHurricanesIkeandDollyhitwas176percent.Thismeansthattheamountinsurersneededtopayclaimsandbusinessexpensesthatyearwasmorethanone-and-a-halftimestheamountofpremiumscollected.Surplusesinyearswithfewerclaimsareneededtopayforextremelossessuchasthese,criticsofpriorapprovalsay.
Homeowners insurance policy forms
Policyformsestablishthetypesoflossesapolicywillcoverandthedollaramountofcoverage.Endorsementsaremodificationstoapolicyformthatmayclarify,broaden,orlimitthescopeofcoverage.
Formanyyears,Texasrequiredallinsurerstousethesamepolicyformsandendorsements.Thestatehasshiftedawayfromrequiringstandardformsoverthelastdecade,butnotallpartieshaveseenthisaspositiveforconsumers.
Background
Inpreviousyears,Texashomeownerinsurerscouldofferonlythreestandard,state-promulgatedforms—theHO-A,HO-B,andHO-C.TDIalsoapprovedcertainendorsementstotheseforms.Morethan90percentofhomeownershadanHO-Bpolicy,whichcoveredall
lossestoadwellingexceptthosespecificallyexcludedandcoveredthecontentsofadwellingfromlossesduetospecificallynamedperils.
In1997,the75thLegislatureenactedSB1499bySibley,whichpermittedTDItoapprovepolicy
formsandendorsementsthatwereusedbylarge,nationalinsurersorthathadbeenadoptedbynationalinsuranceorganizations.ThismarkedthefirstoccasiononwhichTexasauthorizedtheuseofformsotherthanthestate’sstandardforms.Severalinsurersthenfiledalternateformsforapproval,andin2002TDIapprovedthefirstalternate,nationalpolicyforms.
Inresponsetoratespikesthatfollowedasuddenincreaseinmoldandwaterdamageclaims,TDIeliminatedcoverageformoldremediationinthestandardHO-Bform,effectiveJanuary1,2002.Atthesametime,TDIestablishedendorsementsthatgavepolicyholderstheoptiontobuybackmoldandwaterremediationatvariouslevelsofcoverage.Beforethismodification,someinsurershadstoppedwritingorrenewingTexashomeownersinsurancepoliciesbecausetheysaidthelackofflexibilityinformspreventedthemfromestablishingspecializedcoverageforhigh-risk,costlysituationslikemoldandwaterdamage.
In2003,the78thLegislatureenactedSB14byJackson,which,amongotherchanges,eliminatedtherequirementthatinsurersofferstandard,state-promulgatedhomeownersinsuranceforms.WhileTexasnolongerrequireshomeownersinsurerstoofferthestate’sstandardforms,TDImustapproveallalternate
The state has shifted away from requiring standard forms over the last decade.
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policyformsbeforetheymaybeused.Manylargeinsurersnowuseplanstheyusenationallythatallowconsumerstochooseamongmanycoverageoptions.
Recent issues
Whilesupportersoftheformderegulationenactedin2003citedthemoldcrisisasanexampleofwhyformderegulationwasnecessary,othersbelieveformderegulationhasbeenharmfultoconsumersandhasmadeunderstandingtheimpactofthebroader2003reformsmorechallenging.Severalbillswerefiledduringthe2009legislativesessionthatwouldhaverequiredhomeownersinsurerstoofferstandardformswhileallowingthemtocontinueofferingtheircurrentforms.
SB1,thegeneralappropriationsactforfiscal2010-11,includesArt.8,DepartmentofInsurance,Rider20,whichdirectsTDItoconductareviewtodeterminewhat,ifany,changeshaveoccurredinthelevelofprotectionofferedbyhomeownersinsurancepoliciessincethedepartment’sadoptionofapprovednationalformsin2002.
Debate about using standard forms
Supportersofrequiringinsurerstofilestandardformssaythatwhenallinsurersarerequiredtoofferthesamepolicyforms,consumerscanmake“applestoapples”comparisonsofwhichcompaniesofferthemostaffordablehomeownersinsurancecoverage.Withoutsuchatool,itisdifficultifnotimpossibleforconsumerstointerpretandcomparecomplexpoliciestodetermineappropriate,cost-effectivecoverage.
Standardformswouldnothavetoberequiredexclusively.Insurerscouldbeallowedtocontinueofferingtheirexistingpolicyformsaswell.InsurersalsocouldmakestandardformscustomizablewithTDI-approvedendorsementstomeetahomeowner’sspecificneeds.
TheAugust2010TexasWatchpollshowsthatmostvotersliketheideaofstandardforms.ThepollaskedvoterswhattheywouldthinkofthefollowingproposalifpresentedtotheLegislature:“Uniformstandards,whichwouldrequireinsurancecompaniesofferafewstandardpolicieswritteninplainlanguagethatwould
beconsistentacrosstheindustry.”About85percentsaidtheywouldapprove,with58percentstronglyapproving.Onlyabout7percentsaidtheywoulddisapproveorstronglydisapprove.
Supportersofrequiringinsurerstoofferstandardpolicyformssaytheneedforstandardformsisgreaternowthaneverbecauseinsurershavebeenreducingcoveragethroughcrucialchangestopolicywording.Forexample,theHO-Bprovidescoverageforwaterdamageforboth“suddenandaccidental”causesandfor“continuousorrepeatedleakage.”Manypoliciesdonotprovidecoveragefor“continuousorrepeatedleakage,”whichahomeownermaydiscoveronlywhenaleakoccursandaclaimisdenied.Manyinsuranceagentsarenotfamiliarwiththesmallvariancesinwordingbetweenpolicies,soconsumersshouldnotbeassumedtorecognizethesedifferenceseither.
Whilewww.helpinsure.comisanexcellenttooltoperformbasicpolicycomparisons,itisinadequatetohelpconsumersunderstandthedetaileddifferencesinthecontentofvariouspolicyoptionsthatmaymakealargedifferencetotheirpocketbookswhenfilingaclaim.Standardformshavebeentestedsuccessfullyinthemarketplaceandinthecourts,providingtheconsistencythathelpstopreserveconsumerprotections.Evenwithplainlanguagerequirements,policyformsoftenarecomplicatedandcanbe50ormorepageslong.
Theindustryexaggeratesthecostsofbeingrequiredtoofferstandardformsbecausetheyfearthatifconsumerscouldcomparedirectlythepricesforthemorecomprehensive,standardformstheywouldrealizehowmuchinsurershavebeenchargingformuchlesscomprehensivecoverage.Anotherwaytheindustryhasusedpolicyformsinrecentyearstoboostprofitsistosignificantlyincreasedeductibles.Consumersformerlyhadmoreoptionstopurchasepolicieswithaflatdeductible,suchas$500.Increasingly,deductiblesareapercentageofthepolicyamount.Ifaconsumerwitha2percentdeductiblemadeaclaimonahomewith$100,000ofcoverage,thatconsumerwouldhavetopay$2,000insteadof$500beforecollectingonthepolicy.SomehomeownersontheTexascoasthave5percentwinddeductibles,whicharehigherthanthedeductiblechargedbytheTexasWindstormInsuranceAssociation,thestate’sinsureroflastresortforcoastalwindstormcoverage.
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Most Texas insurers use consumer credit information as a factor in establishing rates for homeowners insurance.
Opponentsofrequiringinsurerstofilestandardformssaythatstandard,Texas-specificformswouldmakehomeownerscoveragemorecostlywithoutaddingsignificantbenefits.Inotherstates,nationalcompaniesmayusetheirnationalformsexclusively.HavingtomaintainandmarketTexas-specificformswouldleadtoextraadministrativeexpensesthatarepasseddirectlytoTexasconsumersintheformofhigherhomeownersinsurancerates.
Texasconsumersarenolesssavvythanconsumersinotherstateswhosimilarlymustshoparoundforthemostappropriatecoverage,opponentsofstandardformssay.Texasconsumersalreadyhaveatoolthatassiststheminestimatingthecostofhomeownerscoveragefromvariousinsurers.ThistoolismaintainedbyTDIatwww.helpinsure.com.Asinotherstates,ifconsumershavefurtherquestionsabouttheamountofcoverageaplanoffers,theycanuseaninsuranceagentwhosejobitistounderstandthedifferencesbetweenvariouspolicies.
Opponentsofstandardformssaythatevenifinsurerswereallowedtocontinueofferingtheirownformsinadditiontothestandardforms,theystillwouldbesubjectedtomajorriskssuchasoccurredduringthemoldcrisis.Foryearspriortothesurgeinmoldclaims,insurershadanticipatedpotentialproblemswiththestate’sstandardformsandhadbeenattemptingtohaveTDIadoptchangestoavoidtheseissues.TDIdidnotadoptanyofthesechangesuntil2002,aftertheindustryalreadyhadlostbillions.ThefactthatthisenvironmentputinsurersatthemercyofstateregulatorscausedseveralinsurerstostopwritingnewpoliciesinTexasuntiltheformswererevised.Thehighmoldclaimscostsdirectlyledtodramaticrateincreasesforhomeownersstatewide,whichcouldhavebeenavoidedhadstandardformsnotbeenrequired.
Using credit scoring to set rates
MostTexasinsurersuseconsumercreditinformationasafactorinestablishingratesforhomeownersinsurance.Theymayconsiderindividualcomponentsofcreditreports,suchasbankruptcies,
ormaycomputecreditscoresbasedonnumerouscomponentsofcreditreports.Insurerscalculatecreditscoresbyplacingvariousfactorsfromaconsumer’screditreportintomathematicalmodelsthatmayvaryfrominsurertoinsurer.Homeownersinsurersmayusecreditscoresasabasisforprovidingdiscountsorimposingsurchargesoncertainconsumersorforplacingconsumersinratingtiers.
Background
Inthe1990s,insurersincreasinglybeganusingcreditscoringasacomponentinsettingconsumers’homeownersinsurancerates.Thispracticeispermitted
federallybytheFederalFairCreditReportingAct(PublicLaw91-508),whichallowsinsurancecompaniestouseconsumercreditreportsforunderwritingpurposeswithoutnotificationorconsentoftheconsumer.
Becausemosthomeownersinsurancepolicieswereprovidedthroughnon-rate-regulatedcompaniesintheearly2000s,itwasnotclearhowmostinsurerswereusingcreditscoringtodetermineconsumerrates.TDIreportedthatcomplaintsaboutcredit-scoringpracticesincreasedfrom40in2000tomorethan600in2002.SB14byJackson,enactedin2003,requiredcompaniestofilewithTDItheircredit-scoringmodelalongwithotherinformationtoactuariallyjustifytheirratefilings.ThebillalsorequiredTDItoconductastudyofhowinsurerswereusingcreditinformationandhowtheircreditscoringpracticesaffectedconsumers.
Inaddition,underSB14,aninsurermaynotdeny,cancel,ornon-renewapolicysolelyonthebasisofcreditinformation.Insurersmustdisclosetoconsumersifcreditscoringwillbeusedinunderwriting.Theinsurancecommissionerisrequiredtoestablishruleslimitingtheallowabledifferenceinrateschargedbyinsurersduesolelytodifferencesincreditscores.
DuringTDIrulemaking,optionswereconsideredthatwouldhavelimitedtoafixedpercentageofvariancehowmuchratescouldvaryonthebasisofcreditscore.Ultimately,TDIruledthatanyratevarianceduesolelytocreditscoringwouldbeacceptableifactuariallyjustifiedbydatafiledwiththedepartment.
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Recent issues
Credit-scoringforinsurancepurposeshasbeenanongoingsourceofcontroversyduetoconcernsthatitleadstodiscriminatoryratingpractices.Somestateshavebannedtheuseofcredit-scoringaltogether.Duringthe81stLegislature,severalbillswerefiledtobantheuseofcreditscoringinratesetting.AnunsuccessfulamendmentalsowasofferedduringSenateconsiderationofSB1007,theTDISunsetbill,tobancreditscoringpractices.
Debate about credit scoring in rate setting
Supportersofbanningtheuseofcreditscoringinpolicyratingsaycreditscoringisadiscriminatorypracticeusedasaproxyforsettingratesbasedonraceandisnotanappropriatewaytomeasurerisk.Creditscoringoftenleadstorateincreasesfortheconsumerswhocanleastaffordthem—eventhosewhohaveneverfiledaclaim.Manystudies,includingtheDecember2004TDIstudytitledUse of Credit Information by
Insurers in Texas anda2007FederalTradeCommissionreport,havefoundthatcredit-scoringscenariosdisproportionatelyhaveanegativeimpactonAfricanAmericans,Latinos,andpeoplewithlowerincomes.Supportersofbanningtheuseofcreditscoringsayitsuseinratesettingisnotjustified.Forexample,alowcreditscoredoesnotincreasetheriskthatahailstormwillstrikeaperson’shome,resultinginaclaim.
Opponentsofbanningtheuseofcredit-scoringinpolicyratingsaycredit-scoringhasprovedanaccuratewaytomeasureriskandisnotintentionallydiscriminatory.AsupplementalanalysistoTDI’sDecember2004reportfoundthatthe10percentofpolicyholderswiththeworstcreditscoreswere1.5to2timesmorelikelytofileaclaimthanthe10percentofpolicyholderswiththebestcreditscores.The2007FederalTradeCommissionstudycorroboratedthatlowercreditscorespredictahighernumberofinsuranceclaims.Whateverthefactorthatdrivestheriskassociationbetweencreditscoresandclaimsfrequency,insurersshouldbeabletomeasurethisactuarially
InTexas,thecommissionerofinsurancedirectsthepolicyandoperationsoftheDepartmentofInsurance.Thegovernor,withtheSenate’sconfirmation,appointsthecommissionerofinsuranceforatwo-yearterm.Elevenstateselecttheirinsurancecommissioners.Severalofthesestatesrestrictorbancontributionsfrominsurancecompaniestocommissionercandidates,citingconflict-of-interestconcernsaboutregulatorsacceptingdonationsfromtheindustrytheyregulate.Duringthe2009regularsessionofthe81stTexasLegislature,severalbillsandanamendmentofferedtotheTDISunsetbillintheSenatewouldhavemadethecommissionerofinsuranceanelectedpositioninTexas.Noneoftheseproposalswasenacted.
Supportersofmakingthecommissionerofinsuranceanelectedofficesaythatanelectedcommissionerwouldbemoreresponsivetoconsumersthananappointedcommissioner.Forhomeownersinsuranceregulation,theysay,anelectedcommissionerwouldenhanceconsumerprotectioninoversightofrate-settingandformregulation.Texanselecttheiragricultureandrailroadcommissioners,whohavelessimpactonthelivesofTexansthantheinsurancecommissioner,supportersofelectingtheinsurancecommissionersay.TheysaythecommissionerdirectspolicythatinfluencesallTexashomeownersandotherconsumersyetisaccountableonlytothegovernor.
Opponentsofmakingthecommissionerofinsuranceanelectedofficesaytheinsurancecommissionershouldbeanimpartialregulator,notanelectedofficial.Theysaythebestwayforaninsurancecommissionercandidatetoappealtocitizenswouldbetorunonthepremiseofloweringinsurancerates,yetthemarketdoesnotalwayssafelyallowthisgoal.Opponentsexpressconcernthataninsurancecommissionerelectedwiththemandatetolowerratescouldimplementpoliciesthatcouldjeopardizeinsurersolvency.
Should the commissioner of insurance be elected or appointed?
House Research Organization Page 11
supportedindicatorofriskandchargeratesaccordingly.Ifcreditscoringweresuddenlybanned,theinsurancemarketwouldbedisruptedandmanyconsumerswithgoodcreditscoreswouldexperienceasuddenincreaseintheirpremiums.
Expediting appeals in contested rate cases
InsurersmayappealhomeownersinsuranceratefilingsthathavebeendisapprovedbyTDI.TheratedisputebetweenTDIandStateFarmLloydsthathaspersistedsince2003hashighlightedformanyobserverstheneedtorefinetheprocessforappealingratecasesforhomeownersinsurancesorateappealsmayberesolvedmorequickly.TheHouseCommitteeonInsuranceisrequiredbyaninterimchargetothe81stLegislatureto“studywhetheranewsystemorprocessshouldbeemployedtoexpediteappealsbyinsurersagainstTDIinhomeowner’sratecases.”
Background
Currently,theinsurancecommissionermaydisapproveadministrativelyafiledratebeforeitisimplementedormayrefer,withpropernotice,arate-in-effectforahearingbeforetheStateOfficeofAdministrativeHearings(SOAH).SOAHissuesaproposeddecisionincontestedratecases,andthecommissionerreviewsthisdecisiontomakeafinaldeterminationaboutwhethertodisapprovearate.ThelawdoesnotestablishcleartimeframesforhowquicklyaSOAHhearingmustbeconductednorhowlongthecommissionerhastoissueafinalorder.AninsurermayappealadisapprovedratetotheTravisCountydistrictcourt.FurtherappealsadvancetotheThirdCourtofAppealsinAustinandtheTexasSupremeCourt.
Recent issues
InSeptember2003,followingenactmentthatyearofmajorinsurancereformsduringtheregularlegislativesession,TDIreviewedhomeownersratesandorderedmorethan30insurerstoreduceratesfoundtobeexcessive.StateFarmLloydswasorderedtoreduceratesby12percentbutrefused.Thecompanyappealedthecommissioner’sordertotheTravisCountydistrictcourt.Sincethatappeal,TDIandStateFarmLloydshavefacedoffinSOAH,districtcourt,andtheThirdCourtofAppeals,withoutresolution.
InMay2008,theThirdCourtofAppealsorderedTDItorehearthecase.Basedonthatrehearing,thecommissionerfoundStateFarmLloyds’ratesfrom2003to2008tobeexcessiveandinNovember2009orderedthecompanytopaymorethan$310millioninrefundsandinteresttoconsumers.StateFarmLloydsappealedtheordertotheTravisCountydistrictcourt,wherethecaseremainspending.
Consumeradvocatesarefrustratedthatthe$310milliontheyfeelconsumersareowedstillcannotberefundedaftersevenyearsoflegalbattles.Theyfeelthebestsolutionwouldbetoavoidhavingconsumerfundstiedupduringlegalbattlesbyrequiringthecommissioner’spriorapprovalofallratechanges.Shortofthisproposal,manyfeeltherearewaystoimprovethecurrentsystemthatcouldspeedtherateappealsprocess.
Proposals for expediting appeals
Variousproposalstospeeduptheappealsprocesshaveemergedforpotentialconsiderationbythe82ndLegislature.Lawmakerscouldconsideramendingtheadministrativeandjudicialprocessesincontestedratecasestoexpediteappeals.TheLegislaturecouldestablishtimeframesinwhichSOAHhearingswouldhavetooccurandlimithowlongthecommissionerhadtoissueanorderbasedupontheSOAHdecision.ThescopeandtimelinefortheSOAHdiscoveryprocessalsocouldbelimited.Inthecourts,theTravisCountydistrictcourtcouldbebypassedandrateappealsinsteadcouldbesentdirectlytoappealscourts.AspecialcourtcouldbeestablishedwithintheAustinCourtofAppealstoperformexpeditedreviewsofrateappeals.Finally,thestatecouldimplementanarbitrationsystemforappeals.Floridahadanarbitrationprocessfrom1996until2007thatgaveathree-memberarbitrationpanel90daystoissueadecisionaboutarateappeal.
Whilepartiesonallsidesofratedisputesclaimtheycouldbenefitfromexpeditingtheappealsprocess,theysaythatproposalsforchangeshouldbescrutinizedtoensuretheydonotinfringeonanyparty’sdueprocessrights.TheysaythatanyproposaltoexpeditecontestedratecasesshouldmaintainthebasicrightsoutlinedforcontestedcasesintheTexasAdministrativeProcedureAct(GovernmentCode,ch.2001)—includingtherighttoahearingandtoconductdiscovery,presentwitnesstestimony,cross-examinewitnesses,andappeal.
— by Carisa Magee
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HOUSE RESEARCH ORGANIZATION
Steering Committee:
Bill Callegari, Acting Chairman Drew Darby Harold Dutton David Farabee Dan Gattis Yvonne Gonzalez Toureilles Carl Isett Susan King Jim McReynolds Jose Menendez Geanie Morrison Elliott Naishtat Rob Orr Joe Pickett Todd Smith
John H. Reagan BuildingRoom 420P.O. Box 2910Austin, Texas 78768-2910
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Staff:Tom Whatley, Director; Laura Hendrickson, Editor; Rita Barr, Office Manager/Analyst; Catherine Dilger, Kellie Dworaczyk, Tom Howe, Andrei Lubomudrov, Carisa Magee, Blaire Parker, Research Analysts