[Federal Register: August 2, 2005 (Volume 70, Number 147)]
[Rules and Regulations]
[Page 44222-44243]
From the Federal Register Online via GPO Access [wais.access.gpo.gov]
[DOCID:fr02au05-3]
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DEPARTMENT OF AGRICULTURE
Federal Crop Insurance Corporation
7 CFR Part 400
RIN 0563-AB84
General Administrative Regulations, Submission of Policies,
Provisions of Policies, Rates of Premium, and Premium Reduction Plans
AGENCY: Federal Crop Insurance Corporation, USDA.
ACTION: Final rule.
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SUMMARY: The Federal Crop Insurance Corporation (FCIC) amends the
General Administrative Regulations, which implement the statutory
mandates of the Agricultural Risk Protection Act of 2000 (ARPA) related
to the submission of policies for approval for reinsurance and the
reimbursement of research and development costs and maintenance costs.
DATES: Effective September 1, 2005.
FOR FURTHER INFORMATION CONTACT: For further information or a copy of
the Cost-Benefit Analysis, contact Louise Narber, Risk Management
Specialist, Research and Development, Product Development Division,
Risk Management Agency, United States Department of Agriculture, 6501
Beacon Drive, Stop 0812, Room 421, Kansas City, MO 64133-4676,
telephone (816) 926-7730.
SUPPLEMENTARY INFORMATION:
Executive Order 12866
This rule has been determined to be not significant for the
purposes of Executive Order 12866 and, therefore, it
[[Page 44223]]
has not been reviewed by the Office of Management and Budget (OMB).
Cost-Benefit Analysis
A Cost-Benefit Analysis has been completed and is available to
interested persons at the Kansas City address listed above. In summary,
the analysis finds that the guidelines contained in the regulation are
administrative in nature and in most cases, dictated by statutory
requirement. They are intended to facilitate the submission and review
of policy terms and conditions, endorsements, actuarial documents,
underwriting rules, administrative procedures, and rates of premium of
new insurance products submitted to FCIC under section 508(h) of the
Federal Crop Insurance Act (Act) for approval or disapproval by the
FCIC Board of Directors (Board), as well as reimbursement of research
and development costs, maintenance costs, and setting of user fees.
This regulation also requires approved insurance providers, reinsured
by FCIC, who develop and market non-reinsured supplemental (NRS)
policies to submit them to FCIC for review to be in compliance with the
Standard Reinsurance Agreement (SRA). These provisions provide uniform
guidance for FCIC's review and approval of NRS policies to assure the
orderly business transaction and vitality of the crop insurance market
place.
Paperwork Reduction Act of 1995
Pursuant to the Paperwork Reduction Act of 1995 (44 U.S.C. chapter
35), the collections of information in this rule have been approved by
the Office of Management and Budget (OMB) under control number 0563-
0064 through August 31, 2007.
Government Paperwork Elimination Act (GPEA) Compliance
In its efforts to comply with GPEA, FCIC requires all approved
insurance providers delivering the crop insurance program to make all
insurance documents available electronically and to permit producers to
transact business electronically. Further, to the maximum extent
practicable, FCIC transacts its business with approved insurance
providers electronically.
Unfunded Mandates Reform Act of 1995
Title II of the Unfunded Mandates Reform Act of 1995 (UMRA)
establishes requirements for Federal agencies to assess the effects of
their regulatory actions on State, local, and tribal governments and
the private sector. This rule contains no Federal mandates (under the
regulatory provisions of title II of the UMRA) for State, local, and
tribal governments or the private sector. Therefore, this rule is not
subject to the requirements of sections 202 and 205 of UMRA.
Executive Order 13132
It has been determined under section 1(a) of Executive Order 13132,
Federalism, that this rule does not have sufficient implications to
warrant consultation with the States. The provisions contained in this
rule will not have a substantial direct effect on States, on the
relationship between the national government and the States, or on the
distribution of power and responsibilities among the various levels of
government.
Regulatory Flexibility Act
FCIC certifies that this regulation will not have a significant
economic impact on a substantial number of small entities. This action
does not increase the burden on any entity because it merely clarifies
the process to submit policies, plans of insurance or rates of premium
to the FCIC Board of Directors for approval for reinsurance and subsidy
and the process to obtain reimbursement of research and development
costs and maintenance costs. The effect on small and large entities
would be the same because all entities must provide the same
information. A Regulatory Flexibility Analysis has not been prepared
since this regulation does not have an impact on small entities, and,
therefore, this regulation is exempt from the provisions of the
Regulatory Flexibility Act (5 U.S.C. 605).
Federal Assistance Program
This program is listed in the Catalog of Federal Domestic
Assistance under No. 10.450.
Executive Order 12372
This program is not subject to the provisions of Executive Order
12372, which require intergovernmental consultation with State and
local officials. See the Notice related to 7 CFR part 3015, subpart V,
published at 48 FR 29115, June 24, 1983.
Executive Order 12988
This rule has been reviewed in accordance with Executive Order
12988 on civil justice reform. The provisions of this rule will not
have a retroactive effect. The provisions of this rule will preempt
State and local laws to the extent such State and local laws are
inconsistent herewith. With respect to any direct action taken by FCIC
or to require the approved insurance provider to take specific action
under the terms of the crop insurance policy, the administrative appeal
provisions published at 7 CFR part 11 and 7 CFR part 400, subpart J for
the informal administrative review process of good farming practices,
as applicable, must be exhausted before any action against FCIC for
judicial review may be brought.
Environmental Evaluation
This action is not expected to have a significant economic impact
on the quality of the human environment, health, and safety. Therefore,
neither an Environmental Assessment nor an Environmental Impact
Statement is needed.
Background
On Monday, July 16, 2001, FCIC published a proposed rule in the
Federal Register at 66 FR 36951-36960 to revise 7 CFR part 400, subpart
V, General Administrative Regulations; Submission of Policies,
Provisions of Policies, and Rates of Premium. On July 24, 2001,
Congress enacted section 2103 of the Supplemental Appropriations Act,
2001, which exempted the implementation of section 522(b) of the Act,
involving the reimbursement for products submitted under section 508(h)
of the Act, from the rulemaking process. In response, on Monday,
September 17, 2001, FCIC published an interim rule in the Federal
Register at 66 FR 47949-47959 to revise 7 CFR part 400, subpart V,
General Administrative Regulations; Submission of Policies, Provisions
of Policies, and Rates of Premium. The interim rule was effective on
September 17, 2001.
Following publication of the proposed rule, the public was afforded
30 days to submit written comments and opinions. Following publication
of the interim rule, the public was afforded 60 days to submit written
comments and opinions. A total of 79 comments were received from a
university, legal counsels, insurance companies, an agricultural
association, and an insurance service organization for both rules. The
comments received and FCIC's responses are as follows:
Section 400.701
Comment: A legal counsel stated the definition of ``actuarially
appropriate'' should be amended to reflect the fact that 508(h)
proposals often cover new and innovative concepts, or previously
uncovered crops or risks for which underlying actuarial data might be
scarce. The commenter stated Congress chose the lesser standard of
``actuarially appropriate'' for submissions submitted
[[Page 44224]]
under section 508(h) of the Act as opposed to the requirement that
rates for established crop insurance policies be ``actuarially sound.''
The commenter also stated the following clause should be added,
``recognizing the potential relative scarcity of data for new or
innovative coverages.''
Response: While ``actuarially appropriate'' may not be as strict a
requirement as ``actuarially sound,'' there must still be at least a
reasonable certainty that the premiums charged will cover the
anticipated losses. FCIC has clarified the definition of ``actuarially
appropriate'' and added provisions regarding the possible scarcity of
data for new products.
Comment: An insurance service organization asked if there were any
guidelines for determining a ``reasonable reserve'' in the definitions
of ``actuarially appropriate'' and ``rate of premium'' such as from an
actuarial society.
Response: It would be impossible to list any specific amount for a
``reasonable reserve'' for any submission submitted under this rule.
The reasonable reserve is intended to cover unanticipated losses. The
reliability of the data used to determine the expected losses is a
factor that must be considered when setting the reserve. The less
reliable the data, the higher the reasonable reserve must be. Since it
is impossible to determine the type or reliability of data applicants
will use, it is impossible to set one amount that would be appropriate
to all submissions.
Comment: An insurance service organization stated ``maintenance''
refers to the support and improvement of the policy or plan of
insurance, including terms and conditions, rates, expansion, and other
measures necessary to assure financial viability and actuarial
soundness or to respond to statutory or regulatory changes. The
commenter stated that by comparing other defined terms, this appears to
include underwriting and loss adjustment procedures (the definition of
``policy'' includes ``related materials,'' which in turn includes the
actuarial documents, special provisions, and any underwriting or loss
adjustment manuals, handbooks, forms or other materials), and this
could be better clarified and the use of these terms be more
consistent. The commenter stated the definitions for ``policy'' and
``related materials'' include references to ``actuarial documents'' and
as a result, the ``policy'' definition is redundant in referring to the
actuarial documents for the insured commodity, and related materials.
The inclusion of underwriting and loss adjustment materials is not
clear or consistent in all of the references to the ``policy.''
Response: FCIC agrees with the commenter and has revised the
definitions of ``actuarial documents,'' ``policy,'' and ``related
materials'' to ensure consistency among those provisions. FCIC has also
revised the definitions of ``development,'' ``maintenance,''
``research,'' and ``research and development costs'' to eliminate the
conflicts between those provisions and better reflect the activities
associated with these processes.
Comment: An insurance company stated the definition of
``maintenance period'' states the period begins on the date the Board
approves the submission and ends on the date that is not later than
four reinsurance years after the date of Board approval. They suggested
the regulation should address what will happen to the product and
maintenance thereof if the submitting company that received approval of
a product is no longer in business or is otherwise not able to fulfill
the maintenance responsibilities before the expiration of the
maintenance period.
Response: The maintenance period begins the date the Board approves
the submission for maintenance, not approval of the submission for
reinsurance. Section 400.712(m) has been added to specify that once the
applicant no longer performs the maintenance responsibilities as
determined by FCIC, or gives FCIC notice they no longer wish to
maintain the submission, maintenance of the approved submission may be
assumed by FCIC or reinsurance by FCIC may be withdrawn.
Section 400.702
Comment: An insurance company stated any reference to a
competitor's product, including the Board meeting notices that announce
the name of the submission, indicates key characteristics of the
product and violates the principle of confidentiality and this
regulation should prohibit the disclosure of such information.
Response: FCIC agrees the name of a plan of insurance may indicate
key characteristics of the product and may give competitors an idea of
the product being considered by the Board. In the past, FCIC asked
submitters if they wanted the name of their product used. A new
paragraph (d) has been added to Sec. 400.702 to specify that the
submission must state whether the name of the submission may be used.
If the submission does not state the name may be used, it must remain
confidential.
Section 400.703
Comment: An insurance company stated the requirement for the
submission to be received a minimum of 180 days prior to the earliest
proposed sales closing date translates to a March 30 deadline for
winter crops and a September 15 deadline for spring crops. The
commenter stated that while this may appear reasonable for a new
complex plan of insurance, it appears arbitrarily lengthy for
submissions categorized as non-significant.
Response: In accordance with section 508(h)(4)(D) of the Act, the
Board has 90 days to determine whether it will approve or disapprove a
submission from the time it is accepted by the Board as a complete
submission, unless additional time is negotiated with the applicant.
While a single submission may be simple in design, the Board and Risk
Management Agency (RMA) are frequently reviewing several submissions
simultaneously. Given the workload issues, the Board may require all 90
days to make its decision. If intent to disapprove is provided, the
applicant can submit modifications, which must be reviewed by the Board
within 30 days. In addition, there must be time to make any revisions
to the policy or plan of insurance after its approval and prior to its
release, train agents, and offer the product for sale. Based on these
timelines, FCIC has determined that even 180 days does not provide
sufficient time to review, approve and sell the product. Section
400.703(c) has been revised to specify that a submission must be
received at least 240 days prior to the earliest proposed sales closing
date to be considered for sale in the requested crop year to allow the
outside reviewers and FCIC a reasonable time to review and implement
the submission. A new section (d) has been added to specify the Board,
or RMA if authorized by the Board will determine when sales can begin
for a submission approved by the Board.
Section 400.705
Comment: An insurance company stated the requirement to furnish
FCIC with seven identical copies of a submission should be eliminated
because submissions that are major new plans of insurance or
significant changes to an existing program, require a large amount of
documentation, not all of the internal RMA reviewers will have need for
a complete version of the submission, and shipping costs dramatically
outweigh the costs of RMA preparing its own working copies. The
commenter also stated limiting the
[[Page 44225]]
number of copies required will reduce development costs for new
submissions and will also reduce the reimbursement for research and
development costs, therefore, a larger amount of money will remain in
the fund to reimburse other submissions that are approved.
Response: FCIC agrees there is a cost for persons to supply RMA
with seven identical copies of a submission. However, the seven copies
are necessary. Five of the copies go to the five external reviewers,
one copy goes to the RMA Deputy Administrator, in Kansas City,
Missouri, and one copy goes to the FCIC Administrator in Washington DC.
All of these people must receive the full copy of the submission. RMA
makes working copies for RMA internal reviewers, Board members, and
legal counsel. Receiving seven copies expedites the review of
submissions, assures necessary and appropriate personnel of RMA and the
Board receive all of the applicable materials. However, Sec. Sec.
400.703(a), 400.705, and 400.713 have been revised to allow submissions
to be sent in an electronic format in accordance with the Freedom to E-
File Act (Pub. L. 106-222). They must contain all the information
required of hard copy documents and be in the same order. However, this
should substantially reduce the costs of transmitting such submissions.
Comment: An insurance company stated the word ``or'' in Sec.
400.705(a)(3)(iii), redesignated as Sec. 400.705(b)(3)(ii), of the
proposed rule should be deleted because it indicates an applicant must
select either reimbursement for research and development or
reimbursement for maintenance, but not both, and this is inconsistent
with the Act and other relevant sections of the proposed rule.
Response: Since requests for reinsurance, reimbursement for
research and development, and reimbursement for maintenance is at the
discretion of the applicant, the use of the term ``and'' would not be
appropriate. Therefore, the word ``or'' is correct. However, nothing
precludes the applicant from requesting reimbursement for both research
and development and maintenance in the first year, just as nothing
precludes the applicant from requesting reinsurance and reimbursement
for research and development. The term ``or'' implies the term ``and''
unless its usage indicates otherwise, which is not the case with these
provisions.
Comment: An insurance company stated Sec. 400.705(a)(8),
redesignated as Sec. 400.705(b)(8), should be clarified to indicate
any required marketing plan be limited solely to the intentions of the
applicant, if the applicant is an approved insurance provider or an
entity representing or affiliated with an approved insurance provider.
The commenter also stated there does not appear to be a requirement in
the Act for an applicant to demonstrate any capacity to market the new
insurance product.
Response: To be approved for reinsurance, there is no need for the
applicant to demonstrate the policy or plan of insurance is marketable.
However, in accordance with section 522(b)(3) of the Act, if the
applicant wants to be reimbursed for research and development or
maintenance costs, the applicant must demonstrate the policy or plan of
insurance is marketable. The applicant is responsible for developing
the marketing plan. If the applicant is not an approved insurance
provider, the applicant must show that it has a commitment from an
approved insurance provider to deliver the policy or plan of insurance.
The definitions of ``marketable'' and ``marketing plan'' and
redesignated Sec. 400.705(e) have been revised to add to and clarify
the information to be included in the marketing plan and the standards
used in evaluating whether a product or plan of insurance is
marketable.
Comment: An insurance service organization stated Sec.
400.705(a)(10)(i), redesignated as Sec. 400.705(b)(10)(i), requires
contact information for those who can answer questions regarding the
policy, underwriting rules and procedures, rate and price
methodologies, data processing and record keeping requirements, and any
other questions. The commenter states that if the underwriting rules
and procedures are listed separately from the policy, it seems loss
adjustment procedures should be listed as well.
Response: FCIC agrees and has added the phrase ``loss adjustment''
before the word ``procedures'' in redesignated Sec. 400.705(b)(10)(i).
Comment: An insurance company stated language in Sec.
400.705(b)(2), redesignated as Sec. 400.705(c)(2) should specify in
detail what constitutes ``verifiable evidence of demand'' because costs
for market research will increase submission costs considerably if more
than simple requests from producers, producer groups, or agents are
mandated. The commenter also stated credentialed marketing studies
should be discouraged, as their increased costs will inevitably lead to
higher reimbursement appropriations.
Response: When developing a product that will be accepted and
bought by producers, market research must be completed to determine
what is needed or what is desired. If the producers do not see a
benefit, they will not purchase the policy. Provisions have been added
to the definition of ``marketing plan'' and redesignated Sec.
400.705(e) to specify that focus group results, market research
studies, qualitative market estimates, correspondence from producers
expressing the need for such policy or plan of insurance, responses
from a reasonable representative cross-section of producers to be
affected by the product or plan of insurance and commitments from
approved insurance providers to sell and support the policy or plan of
insurance must be included in the submission. While market research
studies may increase the costs and reimbursements, at a time when
resources are scarce and the systems are straining to handle the
existing product load, the information obtained will be invaluable to
ensuring that only marketable products are offered.
Comment: An insurance service organization stated Sec. Sec.
400.705(c)(1)(i) and (ii), redesignated as Sec. Sec. 400.705(d)(1)(i)
and (ii), indicates what needs to be provided as part of the ``policy''
but makes no mention of the underwriting and loss adjustment procedures
that are considered part of the policy according to the ``policy''
definition. Section 400.705(e), redesignated as Sec. 400.705(f),
mentions ``underwriting'' information but only touches briefly on loss
adjustment examples in Sec. 400.705(e)(5), redesignated as Sec.
400.705(f)(5). The commenters state that this raises concerns relating
to past problems with new products that are issued before their loss
adjustment procedures are developed and issued. To be more consistent
with the ``policy'' definition, the commenter suggests it might help to
clarify that paragraph (c) deals only with the policy provisions and
endorsements, and that paragraph (e) addresses both underwriting and
loss adjustment information.
Response: FCIC agrees and has revised the provisions to clarify
that paragraph (c) involves the policy provisions related to the terms
of insurance and paragraph (e) involves the underwriting and loss
adjustment information.
Comment: An insurance company stated language in Sec.
400.705(c)(2), redesignated as Sec. 400.705(d)(2), should be clarified
by defining ``impact'' of changes to cut down on procedural delay since
assumptions made by the applicant may not be sufficient for RMA
reviewers.
Response: It is impossible to define the impact of the change
because it will be dependent on the type of change.
[[Page 44226]]
However, the applicant must consider all possible impacts, including on
the policy, participants and the crop insurance program. If all impacts
are considered and addressed, there should not be any procedural
delays. However, if reviewers question some important aspect of the
change that has not been identified, the applicant will be required to
respond or take the chance of the submission being disapproved.
Therefore, no change has been made.
Comment: An insurance company stated language in Sec.
400.705(d)(3), redesignated as Sec. 400.705(e)(3), should be amended
to include regions or other geographic areas that may apply to a
particular plan of insurance.
Response: Since the premiums are generally calculated on a county
basis, FCIC usually requires the expected liability and premium for
each county and state be listed rather than by large areas such as
multi-state regions or geographic areas. If the information is desired
by region or geographical area it would be simple to derive from county
and state data. Therefore, no change has been made.
Comment: An insurance company stated language in Sec.
400.705(d)(5), redesignated as Sec. 400.705(e)(5) of the proposed rule
is redundant with paragraphs (e) and (f), redesignated as paragraphs
(f) and (g) respectively, and should be eliminated.
Response: The language in the proposed rule was changed in the
interim rule so the request was not redundant. Redesignated paragraph
(e) contains information related to the marketing of the policy or plan
of insurance, redesignated paragraph (f) contains information related
to underwriting and loss adjustment, and redesignated paragraph (g)
contains information related to prices and rates of premium. To clarify
the information required, FCIC removed Sec. 400.705(d)(5) of the
interim rule and added paragraph (g)(6) to the final rule, which will
require a simulation of expected losses capturing both a probable loss
and a total loss.
Comment: An insurance company stated language in Sec.
400.705(e)(1) in the interim rule is unnecessary for the purpose of
reviewing the submission and impractical for the applicant because it
would necessitate additional cost on the part of the applicant to
produce marketing materials that may become obsolete before the
submission is approved. Providing a sample of each document that will
be used raises the prospect that FCIC must approve all marketing
materials. The commenter also asked what the implications are of
developing and using additional marketing materials after approval of
the submission.
Response: FCIC agrees advertising material and brochures do not
need to be included in the submission. Therefore, Sec. 400.705(e)(1)
of the interim rule has been removed.
Comment: An insurance company stated language in Sec.
400.705(e)(5) in the interim rule is overreaching as it is impossible
to anticipate every unique situation. It would be much more reasonable
to require an acceptable and reasonable number of examples to most
probable situations.
An insurance service organization also asked how many unique
situations occur and if FCIC considers all possible unique situations
now.
Response: FCIC agrees with the comment. The applicant should
determine all the probable situations there may be. The language in
Sec. 400.705(e)(5) of the interim rule, redesignated as (f)(4) in the
final rule has been revised accordingly.
Comment: An insurance company stated language in Sec.
400.705(f)(4), redesignated as 400.705(g)(4), is impractical for
applicant response because anticipating the questions of internal RMA
and external contract reviewers is unlikely and will be unnecessarily
burdensome. The commenter stated most applicants are expected to have a
high degree of faith in the reliability of the data used.
Response: Redesignated section 400.705(g)(4) does not require the
applicant to anticipate questions of the reviewers. As stated above,
there will be situations where the data will be scarce or related data
will be used. This section requires the applicant to objectively
evaluate the quality, quantity and applicability of the data relied
upon in the submission to assess its reliability and provide that
assessment in its submission. Since the amounts and types of data can
differ widely between submissions, the submitter is in the best
position to make this assessment. Further, this provides the applicant
an opportunity to explain why they have a high degree of faith in the
reliability of the data used. The provision has been revised to clarify
that an objective assessment of the data is required.
Comment: An insurance company stated language in Sec.
400.705(f)(5)(i), redesignated as Sec. 400.705(g)(5)(i), raises
questions regarding whether coverage of the same crop constitutes
``similar or comparable'' insurance plans and what would be the
necessity in conducting calculations comparing a new submission with
every product available for a crop. The commenter stated the review
process is meant to ensure the interests of producers are protected,
the interests of the public are protected, the submission is compliant
with the Act, is actuarially appropriate and complies with industry
standards and practices. Comparison outside this realm of review may be
inappropriate or unnecessary.
Response: Redesignated Sec. 400.705(g)(5)(i) requests a
recalculation of total premium and losses compared to a similar or
comparable insurance plan offered under the authority of the Act. It
does not ask for a comparison with every product available for a crop.
Further, the applicant is not required to conduct this analysis.
Redesignated Sec. 400.705(g)(5) only requires that one or more of the
three analyses be performed. If the analysis in redesignated Sec.
400.705(g)(5)(i) is chosen, the applicant must determine which
insurance plan offered under the Act is the most similar or comparable
to the applicant's submission so an analysis can be made on the
proposed premium rates and commodity prices, as applicable. Such
analysis is necessary for FCIC in its evaluation of whether the
interests of producers are protected, the interests of the public are
protected, the submission is compliant with the Act, is actuarially
appropriate, and does not introduce any program vulnerabilities.
Therefore, no change has been made.
Comment: An insurance company and an insurance service organization
suggested FCIC require detailed loss adjustment procedures/forms be
included with the initial submission and subject to the same approval
scrutiny as the policy provisions, rates, etc. The commenter stated
major problems have been incurred in the past because claims-handling
procedures were not finalized until after a product had been sold.
Response: FCIC agrees loss adjustment procedure should be included
with the initial submission. FCIC has revised redesignated Sec.
400.705(f) accordingly and has also added a new Sec. 400.705(l) so
approved insurance providers will have the information available to
immediately train personnel, including loss adjusters, on loss
adjustment procedures.
Comment: An insurance company stated language in Sec.
400.705(i)(4), redesignated as Sec. 400.705(j)(4), which requires the
applicant's legal counsel to certify compliance with the Act,
applicable regulations, and the SRA, is not necessary because the Board
relies solely on the Office of General Counsel (OGC) for legal
recommendations and it is difficult to see any value to the applicant,
FCIC, or the public. The
[[Page 44227]]
commenter also asked what the implications are of a conflict between
the certification and the opinions of OGC.
Response: The goal is for the submission to be as accurate,
comprehensible, and complete as possible. Requiring the applicant's
legal counsel to review the submission allows the applicant to revise
the submission if necessary before it is submitted to FCIC. This
requirement should improve the quality of the product and expedite the
review process by identifying and resolving issues prior to submitting
the product. OGC provides advice to the Board; it does not make
decisions for the Board. Regardless of whether there is a conflict
between the opinions of counsel, OGC will continue to provide its
advice and the Board will make its decision based on all the
information it receives. Therefore, no change has been made.
Comment: An insurance company and an insurance service organization
stated it is imperative that the submission fit into the existing Data
Acceptance System, so accurate programming may be accomplished by other
approved insurance providers with minimal time and expense.
Response: Redesignated Sec. 400.705(k) requires the submission to
comply in all respects with the standards established for processing
and acceptance of data as specified in the FCIC Data Acceptance System
Handbook (Appendix III), unless otherwise authorized by FCIC. New
provisions have also been added to require applicants to provide the
system or software necessary to allow FCIC to implement the product as
part of the research and development of such product. If the applicant
has the ability to deliver the policy or plan of insurance and has
developed a new system for processing and data acceptance that is
functional with FCIC, FCIC cannot limit the availability of innovative
products that may be advantageous to producers solely on the basis of
the time required for other approved insurance providers to program
data automation systems in order to sell and service the product.
However, the key is that any new system is functional and this will be
taken into consideration by FCIC and the Board when determining
reasonable timeframes for program implementation. Therefore, no change
has been made.
Comment: An insurance company stated this regulation does nothing
to minimize the burden of preparing a submission on the part of the
applicant, it will lengthen the time required to develop a submission
which will drive up costs significantly, the complexity required will
prove a hindrance to anyone desiring to casually submit a plan of
insurance and it will limit the opportunity to respond to last minute
market indications with any degree of flexibility.
Response: This regulation was designed to specify the information
necessary to properly evaluate a submission to ensure the interests of
producers are protected, the interests of the public are protected, the
submission is compliant with the Act, is actuarially appropriate, and
does not introduce any program vulnerabilities. While this may appear
burdensome and complex, the information requested should already have
been developed and considered by the applicant in the development of
the policy or plan of insurance. The costs associated with providing
such information are much less than the costs the program could incur
if a flawed policy or plan of insurance were offered to the
marketplace. Therefore, no change has been made.
Section 400.706
Comment: An insurance company stated it is not appropriate for the
requirement in Sec. 400.706(a)(2) to be implemented without a deadline
for action by RMA. The commenter suggested the requirement be within 10
business days of receipt. The commenter stated the questions of quality
of documentation may be subjective and asked what standard of measure
is to be applied and under whose responsibility will it fall. The
commenter stated the quality of documentation is best addressed during
the review process (not before) and includes the prospect that a
submission review be delayed or that it be disapproved. The commenter
also stated Sec. 400.706(a)(3) and (a)(4) should be amended to reflect
comments and revisions to paragraph (a)(2).
Response: The time frames for providing submissions are limited and
any number of submissions may be submitted each time frame. Further,
the submissions have varying levels of complexities from changes to
existing policies to introducing new and innovative plans of insurance.
Therefore, it is not possible for FCIC to set a time frame to review
the quality of the submissions. RMA agrees that the review of the
quality of the submission may be subjective but such a review is
necessary to ensure that the resources of the agency and expert
reviewers are not wasted on products that have not been sufficiently
developed. Such review is only intended to determine if there is
sufficient information to allow a meaningful review. This initial
review process is the responsibility of the Deputy Administrator of
RMA's Office of Research and Development. Without the initial review
process and a determination by the Board the submission is complete,
approval by the Board could be delayed for months or longer if the
submission goes to the experts and receives poor reviews or reviews
that state it is impossible to determine whether the standards for
approval have been met because there is insufficient information. An
initial determination of quality could preclude the need for multiple
expert reviews. A definition of ``complete submission'' has been added
for clarity. Further, Sec. 400.706(b) has been revised to clarify that
the Board will determine if a submission is complete.
Comment: An insurance company questioned if the language in Sec.
400.706(c)(3) of the interim rule requiring the Board to render a
decision to approve or give notice of an intent to disapprove within 90
days after acceptance of the submission and requiring the applicant to
be notified in writing at least 30 days prior to the Board taking such
action would require written notification of intent to disapprove
within 60 days of acceptance.
Response: Section 508(h)(4)(D) of the Act allows the Board 120 days
after a complete submission is received to make a determination whether
to approve or disapprove the submission. Section 508(h)(4)(C)(i) of the
Act directs the Board to give notification of its intent to disapprove
a submission not later than 30 days prior to making the disapproval.
This means the Board must initially act not later than 90 days after
determining the submission is complete, as reflected in Sec.
400.706(c)(3) of the interim rule. Due to other revisions made to Sec.
400.706, the 90 day notice of intent to disapprove is now contained in
Sec. 400.706(g) and the 30 day time frame for the applicant to be
notified if the Board intends to disapprove the submission is now
contained in Sec. 400.706(i) of this regulation.
Comment: A legal counsel stated Sec. 400.706(f)(3) which states,
``The submission does not conform to sound insurance and underwriting
principles;'' should be deleted because many coverages explicitly
mandated by Congress extend beyond traditional insurance concepts and
do not conform to sound insurance and underwriting principles. For
instance, crop insurance production risks for drought, price risks
under Crop Revenue Coverage (CRC), Group Risk Protection (GRP) allowing
a producer to collect an indemnity even though the producer did not
sustain a
[[Page 44228]]
loss, Catastrophic Risk Protection (CAT) coverage allowing a producer
to obtain a coverage guarantee possibly worth millions of dollars for
no premium and a token administrative fee, and the Agricultural Risk
Protection Act (ARPA) mandating the use of futures and options
contracts designed to provide reasonable protection from the financial
risks of price for income fluctuations inherent in the production and
marketing of livestock, transcend traditional insurance and
underwriting principles. Federal Crop Insurance is not simply a
business-based insurance system but a Federally subsidized program with
a social policy element and a mandate to address the full range of
agricultural risk management, not simply traditional insurance. Trying
to apply traditional insurance models as a legal standard for new
products under ARPA 2000 inevitably will result in selective
enforcement and arbitrary judgments. FCIC has the responsibility to
assure itself that any proposed new tool is technically sound and
protects the interests of both the taxpayers and farmers.
Response: Section 400.706(f)(5) has been redesignated as Sec.
400.706(h)(6). FCIC agrees ARPA encourages the development of products
that may be non-traditional and innovative in design. FCIC agrees that
not all traditional principles of insurance apply to these types of
products. However, there is express statutory authority to offer the
coverage referred to by the commenter. Absent express authority to the
contrary, the sound principles of insurance and underwriting continue
to apply since they are one of the underpinnings of a determination of
actuarial soundness. In addition to the requirements of the Act, FCIC
must protect taxpayer dollars. This means that insurance cannot provide
coverage in excess of the value of the commodity and no known program
vulnerabilities can be introduced as a result of the implementation of
the submission. Therefore, FCIC will review the submission to determine
whether it is in accordance with sound insurance and underwriting
principles and if it is not, FCIC will determine whether the Act
authorizes an exception. Redesignated section 400.706(h) has been
revised for clarity.
Comment: An insurance company stated language in Sec.
400.706(f)(5) should include a limitation that would prevent use of
this provision to deny approval of a submission when the time
constraint was created due to the action or inaction of RMA or the
Board, and not the applicant.
Response: Congress has set very tight time limits on the approval
process. In some quarters there may be many products submitted. This
provision was specifically intended to permit denial of a submission
if, even after due diligence, there is insufficient time to properly
evaluate the submission. For example, expert reviewers may not be
available because they are working on other projects or the submission
is so complex or requires such significant changes that it is
impossible to determine what changes are necessary in the available
time frame. To the extent that the applicant believes that RMA or the
Board is stalling on acting on a submission in order to utilize this
provision, the applicant always has recourse to challenge such actions
are arbitrary and capricious. Therefore, no change has been made.
Section 400.708
Comment: An insurance company suggested language be added to Sec.
400.708 to give SRA holders the option to not offer specific products
that the Board has approved. This decision by the SRA holder may be
based on the approved insurance provider's assessment of the product,
the reinsurance terms for the product, or any other reason.
Another insurance company and an insurance service organization
asked if all approved insurance providers reinsured by FCIC will be
required to offer every product that is approved or will a separate SRA
addendum be optional for each such product. The commenter also asked if
an insurance company reinsured by FCIC could opt out of a program if
the company deems the user fees to be excessive.
Response: Section II.A.2. of the 2005 Standard Reinsurance
Agreement, states in part ``* * * The Company is not required to offer
such plans of insurance as may be approved by FCIC under the authority
of section 508(h) of the Act. However, if the Company chooses to offer
any such plan, it must offer the plan in all approved states in which
it writes an eligible crop insurance contract and it must comply with
all provisions of this paragraph as to such plan.'' This means that
approved insurance providers can opt not to offer any policy or plan of
insurance approved under section 508(h) of the Act. However, if the
approved insurance provider opts to offer the policy or plan of
insurance, it must offer it everywhere. Separate SRAs or addendums to
the existing SRA will be used as appropriate. Therefore, no change has
been made.
Comment: An insurance company and an insurance service organization
stated Sec. 400.708(a)(1) needs to be clarified because it seems to
require a post approval disposition of property rights from the payment
for said property rights manifested in the reimbursement for research
and development costs articulated in Sec. 400.712(a) and it appears
the applicant ultimately gives up the property rights.
Response: The applicant continues to have property rights to the
submission until responsibility for maintenance is relinquished to
FCIC, as determined by the applicant. However, if research and
development or maintenance costs have been paid by RMA, section
522(b)(5) of the Act makes it very clear that if the applicant elects
not to continue to maintain the product, the research and development
or maintenance costs paid by RMA are payment in full for the product
and RMA has the property rights to the product. Section 400.708(a)(1)
simply incorporates this provision. Section 400.708(a)(1) has been
revised to clarify when property rights are transferred.
Section 400.709
Comment: An insurance company stated Sec. 400.709(a)(1)(ii)
requires the applicant to annually update and provide maintenance
changes to the insurance product and they suggested the regulation
should address what happens if the applicant is no longer able or
willing to continue to maintain or offer the product prior to the end
of the maintenance period.
Response: As previously stated, Sec. 400.712(m) has been added to
specify the maintenance period ends for an approved submission once the
applicant no longer performs the maintenance responsibilities, as
determined by FCIC, or the applicant gives FCIC notice they no longer
wish to maintain the submission. Maintenance of the approved submission
may be assumed by FCIC or the Board may withdraw reinsurance, risk
subsidy and A&O subsidy.
Comment: An insurance service organization stated Sec.
400.709(a)(2) requires any changes be submitted to FCIC no later than
180 days prior to the earliest sales closing date and asked how this
compares to the current requirement.
Response: Before this regulation was effective, specific deadlines
for changes were contained in a Memorandum of Understanding (MOU)
between the applicant and FCIC. For example, currently the CRC and RA
MOU's allow 153 days for changes to spring crop provisions and 122 days
for changes to
[[Page 44229]]
fall crop provisions; except, in the event of unforeseen circumstances,
changes may be made if they are submitted 30 days prior to the contract
change date. Given that RMA will be reviewing new submissions, revising
existing submissions, and maintaining its own products, the 180 day
deadline is necessary to allow adequate time for the review process and
Board approval and treat all products consistently. However, since some
submissions may allow producers to obtain insurance coverage at various
times during the year, the references to sales closing dates have been
changed to contract change dates in Sec. Sec. 400.709(a)(1)(ii) and
(2).
Comment: An insurance company and an insurance service organization
stated Sec. 400.709(b)(1)(ii) indicates approved insurance providers
should contact FCIC to obtain and execute a copy of the reinsurance
agreement for approved products and they suggested this language be
modified to require FCIC/RMA to contact approved providers and make
them aware of products that have been approved because the
responsibility for advising providers should fall to FCIC/RMA, as FCIC/
RMA holds the approval authority over the products.
Response: Section 400.709(b)(1)(ii) of the interim rule has been
redesignated as Sec. 400.709(b)(1)(iii). The fact that FCIC holds the
approval authority does not mean it is required to provide notice to
the approved insurance providers that products have been approved. The
approved insurance providers have notice throughout the process. When
products are considered by the Board, they are placed on the Board
meeting agenda, which is made public. Any approval of the product is
made in an open Board session and all resolutions are published on
RMA's public Web site at http://www.rma.usda.gov/ as soon as new
products are approved. Further, FCIC notifies all approved insurance
providers via a Manager's Bulletin when the product is released. Since
participation is voluntary, once RMA makes the information available,
it is the approved insurance providers who are appropriately
responsible for requesting and executing a copy of the reinsurance
agreement for the approved product. The specified section has been
redesignated as Sec. 400.709(b)(1)(iii) for clarity, however, no other
change has been made.
Comment: An insurance company and an insurance service organization
suggested the language in Sec. 400.709(b)(1)(iii) which states,
``Conducting the best review of the submission possible in the time
allowed'' should be revised to state, ``Conducting a thorough review of
the submission.'' Since FCIC/RMA has approval authority, and exercise
of that authority does have consequences, the language should reflect
the full responsibility that accompanies the authority. The commenter
asked if the best review possible in the brief time allowed will always
be adequate.
Response: Section 400.709(b)(1)(iii) of the interim rule has been
redesignated as Sec. 400.709(b)(1)(i). RMA has a limited time frame to
conduct its review and must conduct as thorough a review as possible
within that time frame. RMA acknowledges that its review may not catch
all the mistakes, errors, or flaws. However, since RMA is not the
developer of the product, the responsibility for such mistakes, errors,
or flaws correctly lies with the applicant. This provides applicants
with the incentive to thoroughly review and test their product prior to
submitting it to the Board. Since applicants will be reimbursed for
costs associated with such research and development, there is no
financial impediment to conducting a thorough review and test of the
product. Except for redesignation of the provision, no change has been
made.
Comment: A legal counsel, a university, an insurance service
organization, and insurance companies stated FCIC should be liable for
mistakes, errors, or flaws in a submitted product and its related
materials. The Board now conducts a substantial review process prior to
approving 508(h) submissions, including analyses by five outside
independent reviewers, OGC, and RMA's staff. It is unrealistic and
inconsistent with FCIC's past practice for FCIC to not be liable.
FCIC's formal approval of a product signifies that the Board has
reviewed it, and that the Board has determined its reviews to be
positive. The public and the applicant should be able to rely on this
public action by the Board. When the Board approved Crop Revenue
Coverage in the late 1990s, the memorandum of understanding between
FCIC and the sponsoring company assigned liability for such policy
errors to FCIC, and every legal challenge involving the policy since
that time has presumed FCIC responsibility. By sharing in the liability
for errors or flaws, FCIC retains an incentive for maintaining a high
level of quality control over new products. The Act intended to provide
a process and mechanism under which organizations can evaluate and
design programs that are needed in the marketplace and have them
available to producers under the FCIC/RMA umbrella. If FCIC/RMA
approves a submission, then FCIC/RMA must be the regulator, manager,
maintainer and administrator of that program. Section
400.709(a)(1)(iii) requires the applicant to respond to procedural
issues, questions, problems, etc., in regard to a policy or plan of
insurance and they suggested this is a role for FCIC/RMA as regulator
of the program, not the applicant that developed the product. Section
400.705(a)(10) requires the submission to include the names of those
responsible for addressing the policy and procedural issues and
questions that arise in administering the approved program. Once FCIC/
RMA grants approval of the product, responsibility for the product and
its delivery, including responding to questions about procedural
issues, policy language, etc., for the product should belong to FCIC/
RMA. The program becomes an FCIC/RMA program the same as MPCI or GRP or
any other RMA/FCIC approved or designed insurance program. Any other
conclusion is inconsistent with the SRA, which holds SRA holders
responsible for complying with FCIC policies, procedures, etc., not
those of other parties. This issue again reinforces that once FCIC/RMA
grants product approval, it becomes responsible for the product.
Section 400.709(a)(2) indicates only the applicant may make changes to
the policy, plan of insurance, or rates of premium approved by the
Board. The commenter stated FCIC/RMA has the responsibility to make
such changes after FCIC has approved the submission. It was also stated
that Sec. 400.709(b)(2) should be modified by removing the word
``not'' as FCIC assumes liability for submissions once they are
approved.
Response: Section 400.709(b)(2) has been redesignated as Sec.
400.709(b)(3). Applicants are liable for the insurance products they
submit under 508(h) of the Act because they own the product. FCIC does
not gain ownership or control over the product until such time as the
applicant agrees to relinquish the product to RMA. Further, while the
product is owned by the applicant, FCIC does not have the authority to
modify it. All it can do is disapprove a submission or withdraw
reinsurance if errors are discovered and the applicant is not willing
to correct the error. Also, it is the applicant that chooses the method
to use to correct the identified mistake. Therefore, FCIC cannot assume
the liability of a product over which it has so little control. In
addition, if FCIC were to assume the liability for mistakes, it would
delay the approval process considerably. All submissions would have to
be disapproved until FCIC had thoroughly completed its review and
tested the product. For its
[[Page 44230]]
own products, this process can take years. However, the Act only
provides 90 days to review the submission. This is not a sufficient
time to conduct a thorough review and test of the product. When CRC was
approved, the 90-day review requirement did not exist and RMA could
take such time as necessary to review the product. Therefore, FCIC
should not be responsible for the errors in a product that Congress has
given it insufficient time to thoroughly review and test. It is the
applicant that has unlimited time to develop, evaluate and test the
product and has the authority to make such changes as are necessary.
Therefore, the liability correctly lies with the applicant.
Comment: An insurance service organization stated the Web site is a
useful tool for making information available, but approved insurance
providers should be notified in writing when policies, plans of
insurance, or rates of premium are timely withdrawn because they are
deemed canceled and applications for insurance are not accepted as of
the date that FCIC publishes the notice of withdrawal on its Web site.
Section 400.709(a)(5) would require approved insurance providers to
check the Web site each time an application is processed in case a
cancellation notice was posted after the last check.
Response: Section 400.709(a)(5) applies to both producers and
approved insurance providers and simply provides the consequences if
reinsurance is withdrawn from a policy, plan of insurance, or rates of
premium. The reference to the Web site simply provides the date by
which cancellation is effective. FCIC agrees that if reinsurance is
withdrawn or denied from a policy, plan of insurance or rate of
premium, the approved insurance provider should be notified in writing
and has revised the provision accordingly.
Section 400.712
Comment: An insurance company and an agricultural association
stated Sec. Sec. 400.712(b) and (c) of the interim rule do not address
procedures for submissions sent to RMA and not yet approved by the
Board prior to publication of the interim rule and such circumstances
prevent compliance with paragraph (b), which states a request for
reimbursement be included with the original application.
Response: Revisions were made to Sec. 400.712 when the interim
rule was completed to accommodate this situation. However, this
information has been removed in the final rule since such information
is now obsolete.
Comment: An insurance company stated Sec. 400.712(d) is more
appropriate to the decision to approve or disapprove an application and
if an application is approved, the question of qualification for
reimbursement should be moot. The commenter also asked whose marketing
plan would be utilized to help render this decision.
A legal counsel stated the proposed rule requires that to be
eligible for reimbursement, a product must be marketable based on a
reasonable marketing plan. Marketability so defined, is a judgement
that the Board can make in advance when the product is approved, and it
addresses a statutory requirement. However, the proposed rule defines
marketability as a measure of the acceptability of a policy as
reflected by the percent of market penetration of the identified target
market which is an after-the-fact judgement. It is unclear how or
whether the after-the-fact judgement applies as it is not referenced in
Sec. 400.712. The commenter opposes use of the after-the-fact test as
being unnecessary to legislative requirements, creating excessive
uncertainty, and conflicting with the regulatory scheme. Once the Board
has approved a reimbursement request at the time it approves the new
product (a full marketing plan will be included in the submission), the
applicant should be able to rely on the Board's decision.
Response: Section 400.712(d) has been redesignated as section
400.712(c). The definition of ``marketability'' in the proposed rule
was deleted and a definition of ``marketable'' was added in the interim
rule. The definition of ``marketable'' has been revised in the final
rule to make it clear that the determination of marketable will be
based on the marketing plan and the documentation provided to support
it. FCIC has also determined that marketability should also be
considered when determining whether the policy or plan of insurance
protects the interest of producers because unmarketable products waste
valuable resources that could be better used to provide products that
producers want to purchase. Therefore, it has also included the
requirement in redesignated Sec. 400.706(h).
Comment: A legal counsel stated it should be explicitly stated the
Board will approve a proposed research and development reimbursement
request, conditioned only on subsequent proration as specified in Sec.
400.712(f)(2) of the interim rule, at the same time the applicant's
proposed new product is approved.
Response: FCIC cannot determine when it approves a submission that
it will pay the research and development costs. Some of those costs may
not have yet been incurred and certain costs may be reduced or excluded
in accordance with Sec. 400.712(h). FCIC has revised the provisions to
clarify that a submission is eligible for reimbursement if the Board
determines the submission is marketable.
Comment: A legal counsel suggested Sec. 400.712(e) be modified by
adding ``except as provided in paragraph (c) of this section'' after
the phrase ``August 1'' because they stated that it could be read to
require that such requests be received by FCIC not later than August 1
to be considered for reimbursement in the current fiscal year.
Response: The information referencing a submission approved by the
Board or submitted to the Board prior to the interim rule being
published on September 17, 2001, is now obsolete and has been removed
in the final rule.
Comment: An insurance company asked if since limited funds exist
each fiscal year for reimbursement of research and development costs,
and maintenance costs, if the limit is met in any year, whether the
applicant can resubmit the ``shortfall'' for possible reimbursements in
a subsequent year.
A legal counsel stated that under the proposed rule in Sec.
400.712(f)(2) if the sum of all applicants requests for reimbursement
in a given year exceeds available funding, each amount is adjusted
downward by a uniform factor and portions of the reimbursement that
remains unpaid as a result of this reduction appear simply to expire.
This could be unfair based on arbitrary timing factors if applicants
adversely select against annual pools to the disadvantage of others. A
fairer approach would be to permit each company to receive its full
reimbursement as calculated under the rule and if the sum of all
applicants claims exceed available funding in a given fiscal year and a
uniform downward adjustment is applied, the unpaid portions should be
rolled over and paid in the following fiscal year when funds are
available.
Response: Applicants will not be allowed to receive additional
funds in a subsequent year for the ``short fall'' between the amount of
reimbursement they requested and the amount of reimbursement they
receive. The Act only authorizes one payment for research and
development costs. Therefore, these costs cannot be broken into two
separate payments in separate fiscal years. Further, the payment for
maintenance costs comes from a single
[[Page 44231]]
year's appropriations that can only be used to reimburse costs expended
for that fiscal year. Therefore, costs incurred in one fiscal year
cannot be rolled over to be paid in a subsequent fiscal year.
Therefore, no change has been made.
Comment: An agricultural association stated they do not know of any
legislative history which indicates that Congress intended for a
complicated rating system to be developed as is in Sec. 400.712(g) of
the interim rule for determining the level of reimbursement.
Response: Section 400.712(g) of the interim rule has been
redesignated as section 400.712(f). Section 522(b)(6) of the Act
states, ``The Corporation shall determine the amount of the payment
under this paragraph for an approved policy based on the complexity of
the policy and the size of the area in which the policy or material is
expected to be sold.'' Therefore, Congress expressly directed FCIC to
develop a rating structure to determine the complexity of the product
and how much it will be reimbursed.
Comment: An insurance company stated Sec. 400.712(g)(1) of the
interim rule indicates a high degree of subjective judgement as to what
degree a policy, plan of insurance, or various components thereof, may
be based on, or similar to, existing policies. The commenter stated
that given the requirement for adherence to industry standards and
practices it is likely that a complex, original plan may score highly
but be less likely to be approved, while proposals utilizing well-known
concepts might not score well but stand a better chance for approval.
Response: The scoring methodology in redesignated Sec. 400.712(f)
is not used for approving new insurance products. It is used for
computing an equitable amount of reimbursement for research and
development costs. The research and development expenses associated
with using well known concepts should be less because the development
and testing of such concepts has already been done by someone else. The
research and development expenses associated with complex, innovative
concepts would likely be higher because of their originality. The
scoring system assures that applicants with complex, innovative designs
have a better likelihood of having their research and development
expenses approved. Except for redesignation, no other change has been
made.
Comment: A university and an insurance company suggested emphasis
should be placed on accuracy, not necessarily on novelty. The
commenters also stated innovation is essential, but consistency and
accuracy may need more emphasis. Just being new or different does not
guarantee accuracy, program success, or fair and equitable programs for
policyholders or taxpayers. Section 400.712(g)(2) of the interim rule
states new methodologies will be eligible for higher reimbursement than
existing price methodologies.
Response: Section 400.712(g)(2) has been redesignated as Sec.
400.712(f)(2). The applicant should always place emphasis on accuracy
since the applicant is solely liable for any mistakes, errors, or flaws
in the submitted policy, plan of insurance, related material, or the
rates of premium that have been approved by the Board. It is also in
the best interests of the applicant to present to the Board the most
accurate information in order to be considered for approval since such
information and methodologies will be reviewed by expert reviewers and
any inaccuracies will result in delays in approval of the product. An
agreement to pay the research and development expenses associated with
complex products provides a greater incentive to applicants to ensure
that there are no errors, mistakes or flaws in the product. Except for
the redesignation, no other change has been made.
Comment: An insurance company stated Sec. 400.712(g)(5)(i) of the
interim rule should have descriptions of or definitions for what degree
of originality or modification qualifies a submission for each scoring
point.
Response: Section 400.712(g)(5)(i) has been redesignated as Sec.
400.712(f)(5)(i). It would be impractical to list definitions or degree
of originality that would be appropriate for every unique situation
that future innovative submissions may present. It is more appropriate
to use the broader based language that can be applied to the numerous
potential different innovative submissions. No other change has been
made.
Comment: Legal counsels and an agricultural association questioned
the rules and expectations of the reimbursement procedure for
submissions pending at the time of publication of the proposed rule.
The commenters asked if a pending product is approved by the Board
shortly after the regulation is a final rule would the applicant be
given the same 60-day grace period to submit its reimbursement
application as that provided for products approved prior to the rule's
publication or would the applicant be required to amend its pending
submission to include reimbursement material prior to final Board
action. The commenter asked if it could wait until August 1 of the
following year, the deadline for applications under Sec. 400.712(e),
and if the Board acts on the submission after August 1 (the deadline
for 2001 fiscal year applications) but prior to October 1, 2002, would
it qualify for funding in fiscal 2002. It was suggested FCIC give
applicants of products that have been pending before the FCIC Board,
prior to the publication of the proposed rule, a choice to either amend
their submissions to include a reimbursement request in accordance with
Sec. 400.705(k) so that the Board can consider it at the time it votes
on the product itself or to submit an application for reimbursement
within 60 days of the rule's publication, which would be the same grace
period applicable to products approved prior to the proposed rule. The
regulation is unclear as to whether an applicant must request a
projected or estimated level of maintenance costs in advance, when the
product is approved, at the beginning of each fiscal year, or
alternately whether an applicant may wait until the end of each fiscal
year and account for the actual costs accrued, and then request
reimbursement for such actual costs.
Response: Revisions were made to Sec. 400.712 when the interim
rule was completed to accommodate this situation. Submissions submitted
to the Board prior to publication of the interim rule followed the same
procedure as submissions approved by the Board prior to publication of
the interim rule. This obsolete information has been removed in the
final rule.
Comment: A legal counsel questioned why costs will be examined for
reasonableness and may be adjusted at the sole discretion of the Board
because this appears to undermine the very objectivity achieved by the
detailed criteria specified. If the Board, at its sole discretion, can
replace the application of objective standards by its own subjective
view of reasonableness, then the process becomes highly judgmental,
inevitably inviting questions of favoritism, bias, or unequal
treatment. The commenter stated, at a minimum Board judgments must be
available for review and the standard of reasonableness must be spelled
out with objective benchmarks.
Response: The detailed criteria in Sec. 400.712 will be followed.
However, there may be situations where costs for similar work among the
submissions may be substantially different. The Board must determine
what costs are reasonable. Further, since the Board is using
appropriated funds, it must take such actions as necessary to ensure
the funds are properly spent. Reimbursing exorbitant costs would be a
violation of this fiduciary duty. In addition, the
[[Page 44232]]
knowledge that only reasonable costs will be reimbursed may place
limitations on applicants so they do not incur excessive charges based
on the knowledge that such costs will eventually be borne by the
Government. Additional criteria has been added to redesignated
Sec. Sec. 400.712(g)(1)(iii) and (iv) for clarification.
Comment: An insurance company stated Sec. 400.712(i)(1) of the
interim rule should include costs associated with building rents or
space allocation paid for personnel directly involved in research and
development.
Response: There are no special building requirements for the
development of insurance policies. Therefore, the applicant can either
use the space in which normal business activities are currently
accommodated to do the research and development for a new product or
pay for additional space out of normal business funds. FCIC cannot
allow the costs of business expansion to be borne by the Government. It
is a normal business judgment of the applicant whether such costs will
be incurred. Section 400.712(g)(2)(xiv) has been added to specifically
state, costs associated with building rents or space allocation will
not be eligible for reimbursement.
Comment: An insurance company stated Sec. 400.712(k) does not
specify the consequences if an applicant does not notify FCIC, no later
than six months prior to the end of the last reinsurance year in which
a maintenance reimbursement will be paid, whether they will continue to
maintain the policy or plan of insurance and charge approved insurance
providers a user fee to cover the maintenance expenses or transfer
responsibility for maintenance to FCIC.
Response: FCIC agrees and has added a new Sec. 400.712(j)(8) to
specify that if the applicant fails to provide timely notice to FCIC,
the policy or plan of insurance will transfer to FCIC.
Comment: An insurance company stated they have concerns regarding
the availability of future reimbursement funding for research and
development costs, and maintenance costs if a significant increase in
the number of approvals should develop.
Response: The amount of funds available for reimbursement of
research and development costs has increased from $10,000,000 for each
of fiscal years 2001 and 2002 and not more than $15,000,000 for each of
the 2003 and subsequent fiscal years. However, these funding limits
cannot be exceeded so if the requested amounts exceed the available
funding, the reimbursements will have to be prorated.
Comment: An agricultural association stated since anyone can now
submit a new product under section 508(h) of the Act there are new
challenges faced by these applicants that are not addressed in the
proposed rule. New policies involve traditional underwriting risk and
market risk. Proper actuarial analysis, sound program rules, and
reinsurance can address underwriting risk. The approved insurance
provider must invest heavily in sales information, agent training,
outreach, education, and management systems to address business risk.
It may be argued that existing approved insurance providers should bear
the market risk of offering new policies in the pilot stage. However, a
new company will need a high potential rate of return in order to
attract investment capital. The existing SRA and section 508(k) of the
Federal Crop Insurance Act requires that approved insurance providers
bear a sufficient share of a potential loss so as to ensure that they
operate in a sound and prudent manner. The commenter stated the
principle should not apply to the same extent to a 508(h) policy
because Congress explicitly exempted 508(h) policies from such
``limitations in the Act'' in recognition of the innovative nature of
these products. The commenter stated if FCIC chooses not to provide 100
percent reinsurance, FCIC should offer a choice of either including
pilot insurance policies in the approved insurance provider's regular
SRA risk pool because the administrative cost to them of establishing
separate reinsurance systems under a separate SRA may outweigh
potential gains or creating a new reinsurance fund, which would combine
elements of both the current Commercial and Assigned Risk Funds (i.e.,
``Pilot Insurance Fund''). Approved insurance providers participating
in this new ``Pilot Insurance Fund'' would retain the same percentages
of ultimate net loss as are provided under the Assigned Risk Fund,
which would assure confidence in the new product, make up for the lack
of private reinsurance, but still require approved insurance providers
to retain some minimum amount of risk to assure proper program
performance. The reinsurance should be provided without regard to the
limitations in the SRA on the amount of an approved insurance
provider's portfolio that it can place in the Assigned Risk Fund.
Participating approved insurance providers should retain the
percentages of underwriting gain provided under the Commercial Fund.
The current SRA provides that, under the Assigned Risk Fund, the
approved insurance provider will retain 15 percent or less of
underwriting gain, a reasonable approach for a mature program but not
sufficient protection for a novel pilot program. The combination of
risk protection and gain potential under a new fund, plus the choice of
using current SRA pools for approved insurance providers so desiring,
will build a strong foundation for wide participation by private
insurance companies.
Response: FCIC recognizes there may be additional risks associated
with submissions approved under section 508(h) of the Act. To address
these risks, unlike other plans of insurance which must be offered by
all approved insurance providers in all states they write business,
approved insurance providers have the choice whether to offer a policy
or plan of insurance reinsured under section 508(h). Therefore,
approved insurance providers can evaluate the product and determine
whether they want to assume the risk. Because it is optional, approved
insurance providers who sell and service the new submission will have a
reinsurance agreement, which may simply be an amendment to the current
SRA. It would not be consistent with sound insurance principles or
FCIC's fiduciary duty to the taxpayer to allow approved insurance
providers to assume none or minimal risk and receive an even greater
share of the gains. Part of the process of offering these new products
is an evaluation of whether they are actuarially sound and do not
introduce program vulnerabilities. The approved insurance provider's
assessment of the risk is an integral part of this process and that
assessment could be skewed if the approved insurance provider did not
bear any meaningful risk. Further, it should be the market that
determines whether new policies or plans of insurance are sold and
approved insurance providers are part of that market. Therefore, no
change has been made.
Section 400.713
Comment: A legal counsel stated FCIC does not have authority to
make Sec. 400.713 effective without complying fully with the notice
and comment provisions of the Administrative Procedures Act (APA). The
preamble mistakenly refers to section 2108 of the 2001 Supplemental
Appropriations Act when the reference should be to section 2103(a). The
commenter stated the APA recognizes only one basis, good cause, for
making a substantive regulation effective upon publication. The
commenter stated this regulation does not have a ``good cause''
certification
[[Page 44233]]
and that such certification would be inappropriate anyway, since the
current SRA deals with a portion of the subject matter of Sec. 400.713
in section V.F. of the SRA, and there are no problems with respect to
compliance with or abuse of that provision in the SRA. The commenter
stated that Sec. 400.713 exceeds the contractual grounds in the SRA by
adding two new grounds for denial of subsidy and reinsurance which are
``any rights of the insured with respect to the underlying reinsured
policy or plan of insurance'' or if that policy causes ``disruption in
the marketplace for products reinsured by FCIC.'' The commenter also
stated it was misleading to describe this section as guidelines since
compliance with it is mandatory and failure to comply will result in
financial penalties. The commenter stated that section 2103(a)
explicitly concerns expediting effectiveness of regulations
implementing Sec. 522(b) of the Act, 7 U.S.C. 1522(b), which only
deals with reimbursement of research and development costs and
maintenance costs with respect to 508(h) products. Section 400.713
purports to cover all non-reinsured named peril coverage, except for
hail coverage, for all commodities which an approved insurance provider
may insure. This assertion of regulatory authority includes products
even if they have been approved by the relevant state insurance
departments. The definition of ``non-reinsured supplemental policy''
(NRS) may apply even if there is no federally approved reinsurance
product available for the commodity in one or more of the counties
where the non-reinsured policy is offered. If FCIC has approved any
product for reinsurance for any commodity, a NRS product covering the
same commodity is subject to its jurisdiction. It fails to take into
account the fact that availability of reinsured products is determined
on a county-by-county basis for any commodity with respect to which
FCIC has approved reinsurance. This means that there may be counties in
which an approved insurance provider wishes to offer a NRS product for
a commodity grown in that county although FCIC has not approved a
reinsurance product for sale in that same county for the commodity in
question. This ambiguity in the definition establishes that Sec.
400.713 is unduly broad because it seeks to extend review and approval
jurisdiction of the FCIC to non-reinsured policies even when they are
issued in counties where no underlying reinsured coverage for the same
commodity is available. The commenter states there is no statutory or
contractual authority permitting issuance of Sec. 400.713 of the
Interim Rule. It does not identify any laws, rules, regulations, or
contracts that are inconsistent and the preamble does not provide any
rationale for preempting state regulations of non-reinsured policies.
This section would allow FCIC to review and approve all insurance
products providing any form of coverage for any commodity even though
FCIC is not providing subsidy or reinsurance for that coverage. There
is no relationship between Sec. Sec. 400.702-400.712 and Sec.
400.713. The commenter also stated a contractual provision cannot be
utilized as authority for a federal regulation.
Response: FCIC agrees section 2108 of the 2001 Supplemental
Appropriations Act as presented in the Summary of the interim rule was
not correct. However, the correct section designation was in the
Background section of the interim rule published on September 17, 2001.
Further, FCIC acknowledges that section 2103 only applied to the
implementation of section 522(b) of the Act and that Sec. 400.713
exceeded the scope of that section. Therefore, the provisions of Sec.
400.713 are not effective until the effective date of this final rule.
However, with respect to the denial of reinsurance if the NRS shifts or
increases the risk to the underlying FCIC reinsured policy, that
requirement is contained in section V.F of the 2004 and previous SRAs
and section IV.E of the 2005 SRA. Therefore, notwithstanding the
effective date of Sec. 400.713, FCIC can deny reinsurance under the
SRA if the conditions in the SRA have been met.
The definition of a ``NRS'' specifically states that it includes
products that offer coverage, except for hail, for commodities in
addition to the coverage available under a policy or plan of insurance
reinsured by FCIC. This means that if there is no FCIC reinsured policy
for the commodity, the product is not considered a NRS. This would also
apply if there is no FCIC reinsured policy for the commodity in the
county. As the name implies, FCIC is seeking to examine those products
that are supplemental to FCIC reinsured policies. Therefore, the
provision is not overbroad. FCIC agrees that products with new coverage
must be submitted even if FCIC reinsured policies do not offer the
coverage. This is to ensure that the new coverage does not shift risk
to the underlying FCIC reinsured policy. However, if there is not an
underlying FCIC reinsured policy, Sec. 400.713 is not applicable. FCIC
has revised the definition of NRS for clarification.
Comment: An insurance company suggested Sec. 400.713 have a 60-day
time frame requiring FCIC to respond to the approved insurance provider
regarding the Non-Reinsured Supplemental policy submission.
Response: FCIC agrees that a time frame should be incorporated into
the regulation. FCIC is requesting that the NRS policy be submitted at
least 120 days prior to the first sales closing date. FCIC will respond
to the submitter not less than 60 days before the earliest sales
closing date or provide notice why it is unable to respond within the
time frame allotted.
Comment: A legal counsel asked if related materials submitted for a
NRS policy will be reviewed under the same standards as those employed
to review proposed 508(h) products or policies developed by FCIC
product development contractors. The commenter stated FCIC provides no
subsidy or reinsurance for a NRS policy, like it does for 508(h)
products and other policies approved for reinsurance so different
standards should apply.
Response: FCIC agrees different standards should apply, and do
apply. The purpose for FCIC's review of a NRS policy is to determine if
the NRS policy materially increases or shifts risk to the underlying
policy or plan of insurance reinsured by FCIC, reduces or limits the
rights of the insured with respect to the underlying reinsured policy
or plan of insurance, or causes disruption in the marketplace for
products reinsured by FCIC. FCIC will not be reviewing whether the NRS
policy is actuarially sound or protects the interest of producers.
Section 400.713 has been revised to define the basis of FCIC approval
of an NRS policy and for clarification.
Comment: A legal counsel stated Sec. 400.713 establishes no
meaningful criteria or standards for the reviews or determinations to
be made. It would penalize the issuer of a non-reinsured policy if it
affects ``any rights of the insured with respect to the underlying
reinsured policy or plan of insurance.'' It does not deal with the
issues such as whether the effect on rights is adverse or beneficial or
whether or not the effect is material or immaterial. The regulation
purports to define the ``marketplace disruption'' test for denying
subsidy and reinsurance, however they are not adequate. For instance,
the commenter asked how FCIC will evaluate and then implement (1) a
standard based on a test of ``adversely affecting sales'' of reinsured
products; or (2) evaluate and then implement a test on ``undermining
producers'' confidence'' in Federal crop insurance, relying on
decreased
[[Page 44234]]
``willingness or ability to use Federally reinsured risk management
products'' or based on harm to ``public perception of the Federal crop
insurance program?''
Response: NRS policies generally attach to or are written with an
underlying FCIC reinsured policy. However, NRS policies are not
reinsured by FCIC. NRS policies are not standardized so each could have
a unique impact on the underlying FCIC reinsured policy. It is
imperative provisions of the NRS be compatible and consistent with the
underlying policy in terms of coverage references, policy dates, and
generally accepted policy rules of administration to avoid coverage
ambiguities. The policyholder's perception of the underlying FCIC
reinsured policy and the NRS are indivisible parts of the entire risk
management package. The package must perform as expected to maintain
consumer confidence in Federal risk management programs. With respect
to whether the policy affects the rights of producers, FCIC will focus
on whether the NRS policy prevents the producer from receiving coverage
or changes such coverage so the producer does not receive the full
benefit under the underlying FCIC reinsured policy. FCIC will also
examine whether the NRS policy will result in over-insurance. With
respect to marketplace disruption, FCIC will generally consider
producer perceptions, comments, and market conduct. For example, if
producers then state they will not purchase FCIC reinsured policies
because of their performance in conjunction with the NRS policy or the
volume of sales of the FCIC reinsured policy decreases suddenly after
the release of a NRS policy.
Comment: A reinsurance company stated Sec. 400.702 addresses the
confidentiality of submissions submitted under section 508(h) of the
Act. The commenter suggested Sec. 400.713 should also address the
confidentiality of nonreinsured supplemental policies.
Response: Submissions under section 508(h) of the Act are
confidential because there is a specific requirement in section
508(h)(4)(A) of the Act. This confidentiality provision does not extend
to NRS policies. However, the release of information provided with the
NRS policy would be subject to the Freedom of Information Act, which
offers protection against the release of certain information.
Therefore, no change has been made.
In addition to the changes described above and minor editorial
changes, FCIC has made the following changes:
1. Removed the definition of ``revenue insurance'' because it is
not needed to clarify the provisions and the defined term is not used
in the provisions;
2. Amended Sec. 400.705 to designate it as paragraph (a) and
redesignate paragraphs (a) through (m) as paragraphs (b) through (n),
and amend redesignated (a) to specify that the submission must have a
table of contents and page numbers, and that when the electronic format
of the submission is printed it will be an exact duplicate of the
information that would have been found in the 3-ring binder, with the
exception of section dividers. This will ensure that the information is
the same and in the same order.
3. Amended redesignated Sec. 400.705(b)(6) to specify if a sales
closing date is not applicable, the applicant must give the earliest
date the applicant expects to release the product to the public to
cover those situations where the policy or plan of insurance does not
have a sales closing date but allows for continuous sales.
4. Amended redesignated Sec. 400.705(h) to specify the evaluation
and certification from an accredited associate or fellow of the
Casualty Actuarial Society or other similarly qualified professional
must be a disinterested third party to avoid any potential conflicts of
interest. A definition of ``disinterested party'' has also been added.
5. Amended redesignated Sec. 400.705(j)(1) to specify the
applicant will submit a statement specifying sales will not commence
for any new or revised submission until at least 60 days after all
policy provisions and related material are released to the public by
RMA, unless otherwise specified by RMA. This provision is necessary to
protect the program by allowing other approved insurance providers the
time needed to release materials to their agents and adequately train
agents and loss adjusters so that producers are properly informed of
the attributes and benefits of the new policy or plan of insurance and
losses are adjusted correctly.
6. Amended redesignated Sec. 400.705(k) to specify that
submissions must not only be in compliance with Appendix III, it must
contain any system(s) and software necessary to implement the
submission and such systems or software must be compatible with RMA's
systems.
7. Amended Sec. Sec. 400.706(a) and (b) to better clarify the
roles of RMA and the Board and to better structure the provisions to
better reflect the current practices of the Board.
8. Amended redesignated Sec. 400.706(h) to specify the Board may
disapprove a submission if it determines coverage would be similar to
another policy or plan of insurance and the producer would not further
benefit from the submission. It does not protect the interests of
producers if the new policy or plan of insurance offers the same or
similar coverage to existing policies or plans of insurance. It leads
to confusion in the marketplace and increases litigative risk.
9. Amended Sec. 400.706(j) to specify the Board will send the
applicant a letter stating the submission has been disapproved if the
applicant does not respond within the 30 day time period after the
Board provides written notice of intent to disapprove a submission, and
to specify the Board will send the applicant a letter stating the
submission has been disapproved if the applicant does not present a
modification of the submission to the Board on the date the applicant
anticipated presenting the modification or does not request an
additional time delay.
10. Amended Sec. 400.709 by adding a new paragraph (b)(2) to allow
the Board to limit the availability of coverage for a submission based
on the risks as authorized in sections 508(b)(8) and (c)(9) of the Act.
11. Amended redesignated Sec. 400.712(g)(1)(i) to allow for
compensation amounts to be compared to other substantiated wage
information, as deemed appropriate by the Board, in addition to the
Occupational Employment Statistics Survey, when computing reimbursement
for research and development costs, and maintenance costs.
12. Amended redesignated Sec. 400.712 by adding a paragraph (i) to
allow the product to be withdrawn at the discretion of the Board if the
applicant does not reasonably demonstrate that the submission meets the
marketing plan or does not comply with the requirements in this rule
and no further maintenance reimbursement will be paid.
13. Added a new Sec. 400.712(n) to specify that applicants
requesting reimbursement for research and development costs,
maintenance costs or user fees may present their request in person to
the Board prior to consideration for approval.
List of Subjects in 7 CFR Part 400
Administrative practice and procedure, Crop insurance.
Final Rule
0
Accordingly, as set forth in the preamble, the interim rule amending 7
[[Page 44235]]
CFR part 400, Subpart V, published in the Federal Register on September
17, 2001, at 66 FR 47949-47959 is adopted as final with the following
changes:
PART 400--GENERAL ADMINISTRATIVE REGULATIONS
0
1. The authority citation for 7 CFR part 400 continues to read as
follows:
Authority: 7 U.S.C. 1506(1), 1506(p).
Subpart V--Submission of Policies, Provisions of Policies, Rates of
Premium, and Premium Reduction Plans
0
2-3. Revise Sec. 400.700(a), to read as follows:
Sec. 400.700 Basis, purpose, and applicability.
(a) This subpart establishes guidelines for the submission of
policies, plans of insurance, and rates of premium to the Board as
authorized under section 508(h) of the Act and for nonreinsured
supplemental policies in accordance with the SRA, and the roles and
responsibilities of FCIC and the applicant. It also specifies the
procedures for requesting reimbursement for research and development
costs, and maintenance costs for products and the approval process.
* * * * *
0
4. Amend Sec. 400.701 by adding definitions for ``complete
submission'' and ``disinterested third party'', revising the
definitions of ``actuarial documents'', ``actuarially appropriate'',
``applicant'', ``development'', ``endorsement'', ``maintenance''
``marketable'', ``marketing plan'', ``multiple peril crop insurance
(MPCI)'', ``non-reinsured supplemental policy (NRS),'' ``non-
significant changes'', ``plan of insurance'', ``policy'', ``related
materials'', ``research'', ``research and development costs,'' and
``Special Provisions'', placing the revised definition of ``policy'' in
alphabetical order, and removing the definition of ``revenue
insurance'' to read as follows:
Sec. 400.701 Definitions.
* * * * *
Actuarial documents. The material for the crop or insurance year
which is available for public inspection in your agent's office and
published on RMA's website at http://www.rma.usda.gov/, or a successor
website, and which shows available coverage levels, information needed
to determine premium rates, premium adjustment percentages, practices,
particular types or varieties of the insurable crop or agricultural
commodity, insurable acreage or commodities, and other related
information regarding crop insurance or other risk management plans of
insurance in the county or state.
Actuarially appropriate. Premium rates expected to cover
anticipated losses and a reasonable reserve based on valid reasoning,
an examination of available risk data, which for new products may be
scarce but must still be of sufficient quality and quantity to
reasonably determine the anticipated losses, or thorough knowledge or
experience of the expected value of future costs associated with the
risk to be transferred.
* * * * *
Applicant. Any person or entity that submits a policy, plan of
insurance, provisions of a policy or plan of insurance, or rates of
premium to the Board for approval under section 508(h) of the Act.
* * * * *
Complete submission. A submission determined by the Board to
contain all necessary and appropriate documentation in accordance with
Sec. 400.705 and is of sufficient quality to conduct a meaningful
review.
* * * * *
Development. The process of drafting rules, new policy provisions,
pricing and rating methodologies, administrative and operating
procedures, systems and software, supporting materials, and
documentation necessary to create and implement a proposed policy or
coverage.
Disinterested third party. A person who does not have any familial
relationship (parents, brothers, sisters, children, spouse,
grandchildren, aunts, uncles, nieces, nephews, first cousins, or
grandparents, related by blood, adoption or marriage, are considered to
have a familial relationship) with anyone employed or contracted by the
applicant or who will not benefit financially from the approval of the
submission.
Endorsement. A document that amends a policy reinsured under the
Act in a manner that supplements or amends the insurance coverage
provided by that policy.
* * * * *
Maintenance. For the purposes of this subpart only, the process of
continual support and improvement, as needed, for a policy or plan of
insurance, including the periodic review of setting prices, updating
premium rates or the rating methodology, updating or modifying policy
terms and conditions, and any other actions necessary to provide
adequate and meaningful protection for producers, ensure actuarial
soundness, or to respond to statutory or regulatory changes.
* * * * *
Marketable. A determination by the Board that a sufficient number
of producers will purchase the product and approved insurance providers
will sell the product to make it economical, based on credible evidence
provided by the applicant and any other relevant information.
Marketing plan. A detailed, written plan that identifies, at a
minimum, the expected number of potential buyers, premium, liability, a
prescribed insurance year cycle, the data upon which such information
is based, such data may include, but is not limited to, focus group
results, market research studies, qualitative market estimates, effects
upon the delivery system or ancillary participants, correspondence from
producers expressing the need for such policy or plan of insurance,
responses from a reasonable representative cross-section of producers
to be effected by the policy or plan of insurance demonstrating the
number of producers likely interested in purchasing the product, and a
commitment from at least one approved insurance provider to sell and
support such a policy or plan of insurance.
Multiple peril crop insurance (MPCI). All insurance policies
reinsured by FCIC that offers coverage for loss of production, loss of
revenue, or both.
* * * * *
Nonreinsured supplemental policy (NRS). A policy, endorsement or
other risk management tool that is not reinsured under the Act, or has
not been submitted to FCIC under section 508(h) of the Act, that offers
additional coverage, other than loss related to hail, to a policy or
plan of insurance that is reinsured by FCIC.
Non-significant changes. Minor changes to the policy or plan of
insurance, such as technical corrections, that do not affect the rating
or pricing methodologies, the amount of subsidy owed, the amount or
type of coverage, the interests of producers, FCIC's reinsurance risk,
or any condition that does not affect liability or the amount of loss
to be paid under the policy. Statutory or regulatory requirements are
included in this category regardless of impact.
Plan of insurance. A class of policies, such as MPCI or Group Risk
Plan of Insurance, that offers a specific type of coverage to one or
more agricultural commodities.
[[Page 44236]]
Policy. A contract for insurance that includes an accepted
application, Basic Provisions, applicable Commodity Provisions, other
applicable options and endorsements, the Special Provisions, related
materials, and the applicable regulations published in 7 CFR chapter
IV.
* * * * *
Related material. The actuarial documents for the insured
agricultural commodity and any underwriting or loss adjustment manual,
handbook, form or other information needed to administer the policy.
Research. For the purposes of development, the gathering of
information related to: Producer needs and interests; the marketability
of the policy or plan of insurance; the appropriate policy terms,
premium rates, price elections, administrative and operating
procedures, supporting materials, and the documentation, systems and
software necessary to implement a policy or plan of insurance.
Gathering of information to determine whether it is feasible to expand
a policy or plan of insurance to a new area or to cover a new commodity
under the same policy terms and conditions, price, and premium rates is
not considered research.
Research and development costs. Specific expenses incurred and
directly related to the research and development of a submission, as
initially approved by the Board.
* * * * *
Special Provisions. The part of the policy that contains specific
provisions of insurance for each insured commodity that may vary by
geographic area.
* * * * *
0
5. Amend Sec. 400.702 by adding a new paragraph (d) to read as
follows:
Sec. 400.702 Confidentiality of submission and duration of
confidentiality.
* * * * *
(d) In the submission, the applicant must state if the name of the
submission may be used in Board documents including but not limited to
the agenda, minutes, and Board memoranda. The applicant cannot use
false names to mislead the public regarding the nature of the
submission. If permission is not given to use the name of the
submission, the submission will simply be referred to as a ``Section
508(h) submission.''
0
6. Revise Sec. 400.703 to read as follows:
Sec. 400.703 Timing of submission.
(a) A submission may only be provided to FCIC, in either a hard
copy or electronic format, during the first 5 business days of January,
April, July, and October.
(b) Any submission not provided within the first 5 business days of
a month stated in paragraph (a) of this section, will be considered to
have been provided the next month stated in paragraph (a). For example,
if an applicant provides a submission on January 10, it will be
considered to have been received on April 1.
(c) Any submission must be provided to the Deputy Administrator,
Research and Development (or any successor), Risk Management Agency,
6501 Beacon Drive, Stop 0812, Kansas City, MO 64133-4676, not later
than 240 days prior to the earliest proposed sales closing date to be
considered for sale in the requested crop year.
(d) The Board, or RMA if authorized by the Board, shall determine
when sales can begin for a submission approved by the Board.
0
7. Revise Sec. 400.705 to read as follows:
Sec. 400.705 Contents required for a new submission or changes to a
previously approved submission.
(a) A complete submission must contain the following material, as
applicable, in the order given, in a three ring binder, with a table of
contents, page numbers, and section dividers clearly labeling each
section or in an electronic format that when printed will be an exact
duplicate of the information that would have been found in the three-
ring binder with the exception of section dividers.
(1) If a hard copy of the submission is provided, it must include
six identical copies provided to the Deputy Administrator, Research and
Development (or successor), Risk Management Agency, 6501 Beacon Drive,
Stop 0812, Kansas City, MO 64133-4676, and one identical copy of the
submission provided to the Administrator, Risk Management Agency, 1400
Independence Ave., Stop 0801, Room 3053 South Building, Washington, DC
20250-0801.
(2) Electronic submissions must be sent to the Deputy
Administrator, Research and Development (or successor) at
DeputyAdministrator@rma.usda.gov and the Administrator at
Administrator@rma.usda.gov.
(b) The first section will contain general information, including,
as applicable:
(1) The applicant's name, address or primary business location,
phone number, and e-mail address;
(2) The type of submission (see Sec. 400.704);
(3) A statement of whether the applicant is requesting:
(i) Reinsurance, which includes risk subsidy and A&O subsidy;
(ii) Reimbursement for research and development costs, as
applicable; or
(iii) Reimbursement for maintenance costs, as applicable;
(4) The proposed agricultural commodities, including types,
varieties, and practices covered by the submission;
(5) The crop and reinsurance years in which the submission is
proposed to be available for purchase by producers;
(6) The proposed sales closing date, if applicable, or if not
applicable, the earliest date the applicant expects to release the
product to the public;
(7) The proposed duration and scope of the plan of insurance;
(8) A marketing plan;
(9) Any known or anticipated future expansion plans;
(10) Identification, including names, addresses, telephone numbers,
and e-mail addresses, of the persons responsible for:
(i) Addressing questions regarding the policy, underwriting rules,
loss adjustment procedures, rate and price methodologies, data
processing and record-keeping requirements, and any other questions
that may arise in administering the program after it is approved; and
(ii) Annual reviews to ensure compliance with all requirements of
the Act, this subpart, and any agreements executed between the
applicant and FCIC; and
(11) A statement of whether the submission will be filed with the
applicable office responsible for regulating insurance in each state
proposed for insurance coverage, and if not, reasons why the submission
will not be filed for review.
(c) The second section must contain the benefits of the plan,
including, as applicable, a statement about the plan that demonstrates:
(1) How the submission offers coverage or other benefits not
currently available from existing public and private programs;
(2) The projected demand for the submission, which must be
supported by information from market research, producers or producer
groups, agents, lending institutions, and other interested parties that
provide verifiable evidence of demand; and
(3) How the submission meets public policy goals and objectives
consistent with the Act and other laws, as well as policy goals
supported by USDA and the Federal Government.
[[Page 44237]]
(d) Except as provided in this section, the third section must
contain the policy, including, as applicable:
(1) If the submission involves a new insurance policy or plan of
insurance:
(i) All applicable policy provisions; and
(ii) A list and description of any additional coverage that may be
elected by the insured, including how such coverage may be obtained;
and
(2) If the submission involves a change to a previously approved
policy, plan of insurance, or rates of premium, the proposed revisions,
rationale for each change, data and analysis supporting each change,
the impact of each change, and the impact of all changes in aggregate.
(e) The fourth section must contain the information related to the
marketing of the policy or plan of insurance, including, as applicable:
(1) A list of counties and states where the submission is proposed
to be offered;
(2) The amount of commodity (acres, head, board feet, etc.), the
amount of production, and the value of each agricultural commodity
proposed to be covered in each proposed county and state;
(3) The expected liability and premium for each proposed county and
state;
(4) If available, any insurance experience for each year and in
each proposed county and state in which the policy has been previously
offered for sale including an evaluation of the policy's performance
and, if data are available, a comparison with other similar insurance
policies reinsured under the Act;
(5) Focus group results;
(6) Market research studies;
(7) Qualitative market estimates;
(8) Affects upon the delivery system or ancillary participants;
(9) Correspondence from producers expressing the need for such
policy or plan of insurance;
(10) Responses from a reasonable representative cross-section of
producers to be affected by the policy or plan of insurance; and
(11) Commitment in writing from at least one approved insurance
provider to sell and support the policy or plan of insurance.
(f) The fifth section must contain the information related to the
underwriting and loss adjustment of the submission, including as
applicable:
(1) Detailed rules for determining insurance eligibility, including
all producer reporting requirements;
(2) Relevant dates, if not included in the proposed policy;
(3) Detailed examples of the data and calculations needed to
establish the insurance guarantee, liability, and premium per acre or
other unit of measure, including worksheets that provide the
calculations in sufficient detail and in the same order as presented in
the policy to allow verification that the premiums charged for the
coverage are consistent with policy provisions;
(4) Detailed examples of calculations used to determine indemnity
payments for all probable situations where a partial or total loss may
occur;
(5) A detailed description of the causes of loss covered by the
policy or plan of insurance and any causes of loss excluded;
(6) Any statements to be included in the actuarial documents; and
(7) The loss adjustment standards handbook for the policy or plan
of insurance that includes:
(i) A table of contents and introduction;
(ii) A section containing abbreviations, acronyms, and definitions;
(iii) A section containing insurance contract information
(insurability requirements; crop provisions not applicable to
catastrophic risk protection; specific unit division guidelines, if
applicable; notice of damage or loss provisions; quality adjustment
provisions; etc);
(iv) A section that thoroughly explains appraisal methods, if
applicable;
(v) Illustrative samples of all the applicable forms needed for
insuring and adjusting losses in regards to the product plus detailed
instructions for their use and completion;
(vi) Instructions, examples of calculations, and loss adjustment
procedures that are necessary to establish the amounts of coverage and
loss;
(vii) A section containing any special coverage information (i.e.,
replanting, tree replacement or rehabilitation, prevented planting,
etc.), as applicable; and
(viii) A section containing all applicable reference material
(i.e., minimum sample requirements, row width factors, etc.).
(g) The sixth section must contain information related to prices
and rates of premium, including, as applicable:
(1) A list of all assumptions made in the premium rating and
commodity pricing methodologies, and the basis for these assumptions;
(2) A detailed description of the pricing and rating methodologies,
including supporting documentation, all mathematical formulas,
equations, and data sources used in determining rates and prices and an
explanation of premium components that detail how rates were determined
for each component, that demonstrate the rate is appropriate;
(3) An example of both a rate calculation and a price calculation;
(4) A discussion of the applicant's objective evaluation of the
reliability of the data;
(5) An analysis of the results of simulations or modeling showing
the performance of proposed rates and commodity prices, as applicable,
based on one or more of the following (Such simulations must use all
years of experience available to the applicant);
(i) A recalculation of total premium and losses compared to a
similar or comparable insurance plan offered under the authority of the
Act with modifications, as needed, to represent the components of the
submission;
(ii) A simulation based on the probability distributions used to
develop the rates and commodity prices, as applicable, including
sensitivity tests that demonstrate price or yield extremes, and the
impact of inappropriate assumptions; or
(iii) Any other comparable simulation that provides results
indicating both aggregate and individual performance of the submission
under various scenarios depicting good and poor actuarial experience;
and
(6) A simulation of expected losses capturing both a probable loss
and a total loss.
(h) The seventh section must contain an evaluation and
certification from a disinterested third party who is an accredited
associate or fellow of the Casualty Actuarial Society, or other
similarly qualified professional, who certifies the submission is
actuarially appropriate and consistent with appropriate insurance
principles and practices.
(i) The eighth section must contain all forms applicable to the
submission, including:
(1) An application for insurance and procedures for accepting the
application; and
(2) All applicable policy forms, instructions and procedures that
are necessary to establish the amounts of coverage or loss.
(j) The ninth section must contain the following:
(1) A statement specifying sales will not commence for any new or
revised submission until at least 60 days after all policy provisions
and related material are released to the public by
[[Page 44238]]
RMA, unless otherwise specified by the Board;
(2) An explanation of any provision of the policy not authorized
under the Act and identification of the portion of the rate of premium
due to these provisions;
(3) Agent and loss adjuster training plans; and
(4) A certification from the applicant's legal counsel that the
submission meets and complies with all requirements of the Act,
applicable regulations, and any reinsurance agreement.
(k) The tenth section must contain a written plan, including
specifications and details for the systems and software development
necessary for the implementation of the submission, if applicable, and
the documents that demonstrate the submitter has the capability and
resources to develop systems that comply in all respects with the
standards established for processing and acceptance of data by the FCIC
Data Acceptance System, or successor system, unless otherwise
authorized by FCIC. Unless otherwise determined by FCIC, the applicant
must consult with FCIC to determine whether their submission can be
implemented and administered through the current system;
(1) If FCIC approves the submission and determines that its system
has the capacity to implement and administer the submission, the
applicant must provide acceptable computer requirements, code and
software, consistent with that used by FCIC, to facilitate the
acceptance of producer applications and all related data;
(2) If FCIC approves the submission and determines that its system
lacks the capacity to implement and administer the submission, the
applicant must provide acceptable computer systems, requirements, code
and software necessary to implement and administer the policy or plan
of insurance;
(3) Any computer systems, requirements, code and software must be
consistent with that used by FCIC and comply with the standards
established in Appendix III, or any successor document, of the Standard
Reinsurance Agreement or other reinsurance agreement as specified by
FCIC; and
(4) These requirements are available from the Risk Management
Agency, 6501 Beacon Drive, Stop 0812, Kansas City, MO, 64133-4676 or on
RMA's Web site at http://www.rma.usda.gov/data/#m13, or a successor
website.
(l) The eleventh section must contain a training package. The
training package must include a thorough discussion, explanations,
written exercises, and examples covering the following topics:
(1) Basic and catastrophic risk protection policy provisions;
(2) The commodity provisions and any endorsements;
(3) Underwriting under the underwriting guide;
(4) Eligibility requirements;
(5) Guarantee, indemnity, and premium calculations;
(6) Special Provisions of Insurance;
(7) Actuarial documents;
(8) Loss adjustment under the loss adjustment standards handbook;
(9) Applicable additions to the Crop Insurance Handbook (CIH); and
(10) Applicable additions to the Loss Adjustment Manual (LAM).
(m) The twelfth section submitted on separate pages and in
accordance with Sec. 400.712 must specify:
(1) On one page, the total estimated amount that will be requested
for reimbursement of research and development costs (for new products
only) or the estimated amount for maintenance costs for the year for
which the submission will be effective (for products that are within
the maintenance period); and
(2) On another page, a comprehensive estimate of maintenance costs
for each future year of the maintenance period and the basis for which
such maintenance costs will be incurred, including, but not limited to:
(i) Any anticipated expansion;
(ii) The generation of rates, Special Provisions, underwriting
rules, etc;
(iii) The determination of prices; and
(iv) Any other costs that the applicant anticipates will be
requested for reimbursement.
(n) The thirteenth section must contain executed certification
statements in accordance with the following:
(1) ``{Applicant's Name{time} hereby claim that the amounts set
forth in this section and Sec. 400.712 are correct and due and owing
to {Applicant's Name{time} by FCIC under the Federal Crop Insurance
Act''; and
(2) ``{Applicant's Name{time} understands that, in addition to
criminal fines and imprisonment, the submission of false or fraudulent
statements or claims may result in civil and administrative
sanctions.''
8. Revise Sec. 400.706 to read as follows:
Sec. 400.706 Review of submission.
(a) Prior to providing the submission to the Board to determine
whether it is a complete submission, RMA will:
(1) Review the submission to determine if all necessary and
appropriate documentation is included in accordance with Sec. 400.705;
(2) Review the submission to determine whether the submission is of
sufficient quality to conduct a meaningful review;
(3) Inform the applicant of the information RMA deems necessary for
the submission to comply with paragraphs (a)(1) and (2) of this
section; and
(4) Forward the submission and the results of RMA's initial review
to the Board.
(b) Upon the Board's receipt of the submission, the Board will:
(1) Determine if the submission is a complete submission (The date
the Board votes to contract with independent reviewers is the date the
submission is deemed to be a complete submission for the start of the
120 day time-period for approval);
(2) Forward the complete submission to at least five independent
persons with underwriting or actuarial experience to review the
submission:
(i) Of the five reviewers, no more than one will be employed by the
Federal Government, and none may be employed by any approved insurance
provider or their representative; and
(ii) The reviewers will each provide their assessment of whether
the submission protects the interest of agricultural producers and
taxpayers, is actuarially appropriate, follows appropriate insurance
principles, meets the requirements of the Act, does not contain
excessive risks, follows sound, reasonable, and appropriate
underwriting principles, as well as other items the Board may deem
necessary;
(3) Return to the applicant any submission the Board determines is
not a complete submission, and provide documentation to the applicant
explaining such. If the submission is resubmitted at a later date, it
will be considered a new submission;
(4) For all complete submissions:
(i) Request review of the submission by RMA to provide its
assessment of whether:
(A) The submission protects the interests of agricultural producers
and taxpayers, is actuarially appropriate, follows appropriate
insurance principles, meets the requirements of the Act, does not
contain excessive risks, is consistent with USDA's public policy goals,
does not increase or shift risk to any other FCIC reinsured policy,
offers coverage that is similar to another policy or plan of insurance
and if the producer would further benefit from the submission and can
be administered and delivered efficiently and effectively;
(B) The marketing plan is reasonable;
(C) RMA has the resources to consider, implement, and administer
the submission; and
[[Page 44239]]
(D) The requested amount of government reinsurance, risk subsidy,
and administrative and operating subsidies is reasonable and
appropriate for the type of coverage provided by the policy submission;
and
(ii) Seek review from the Office of the General Counsel (OGC) to
determine if the submission conforms to the requirements of the Act and
all applicable Federal regulations.
(c) All comments and evaluations will be provided to the Board by a
date determined by the Board to allow the Board adequate time for
review.
(d) The Board will consider all comments, evaluations, and
recommendations in its review process. Prior to making a decision, the
Board may request additional information from RMA, OGC, the independent
reviewers, or the applicant.
(e) An applicant may request, at any time, a time delay before the
Board provides a notice of intent to disapprove the submission. The
Board is not required to agree to such an extension.
(1) Any requested time delay will not be limited in the length of
time or the number of delays. However, delays may make implementation
of the submission for the targeted crop year impractical or impossible.
(2) The time period during which the Board must make a decision to
approve or disapprove shall be extended commensurately with any time
delay requested by the applicant.
(3) If the Board agrees to an extension of time, the Board and the
applicant must agree to a time period in which the Board must make its
decision to approve or disapprove after the expiration of any requested
time delay.
(f) The applicant may withdraw a submission or a portion of a
submission at any time by written request to the Board. A withdrawn
submission that is resubmitted will result in the submission being
deemed a new submission for the purpose of determining the amount of
time that the Board must act on such submission.
(g) The Board will render a decision to approve the submission with
or without revision or give notice of intent to disapprove within 90
days after the date the submission is considered complete by the Board
in accordance with paragraph (b)(1) of this section, unless the
applicant and Board agree to a time delay in accordance with paragraph
(e) of this section.
(h) The Board may disapprove a submission if it determines that:
(1) The interests of producers and taxpayers are not protected,
including but not limited to:
(i) The submission does not provide adequate coverage or treats
producers disparately;
(ii) The applicant has not presented sufficient documentation that
the submission is marketable;
(iii) Coverage would be similar to another policy or plan of
insurance and the producer would not further benefit from the
submission; or
(iv) The resources of FCIC or RMA are not sufficient to support the
review and implementation of the product;
(2) The premium rates are not actuarially appropriate;
(3) The submission does not conform to sound insurance and
underwriting principles;
(4) The risks associated with the submission are excessive or it
increases or shifts risk to any other FCIC reinsured policy;
(5) The submission does not meet the requirements of the Act or is
not in accordance with USDA's public policy goals; or
(6) There is insufficient time before the submission would become
effective under section 508(h) of the Act for the Board to make an
informed decision with respect to whether the interests of producers
are protected, the premium rates are actuarially appropriate, or the
risks associated with the submission are excessive;
(i) If the Board intends to disapprove the submission, the
applicant will be notified in writing at least 30 days prior to the
Board taking such action. The Board will provide the applicant with a
written explanation for the intent to disapprove the submission.
(j) After written notice of intent to disapprove all or part of a
submission has been provided by the Board, the applicant must provide
written notice to the Board not later than 30 days after the Board
provided such notice, if the submission will be modified. Except as
provided in paragraph (j)(3) of this section, the applicant must also
include an anticipated date that the modification will be provided to
the Board. If the applicant does not respond within the 30-day period,
the Board will send the applicant a letter stating the submission is
disapproved.
(1) If the modification is in direct response to reviewer comments,
the Board may act on the modification immediately or seek further
review within the 30-day time period allowed.
(2) The Board will approve or disapprove a modified submission not
later than 30 days after receiving a modified submission from the
applicant, unless the applicant and the Board agree to a time delay. If
a time delay is agreed upon, the time period during which the Board
must act on the modified submission will not be in effect during the
delay.
(3) The Board will disapprove a modified submission if:
(i) All causes for disapproval stated by the Board in its
notification of intent to disapprove the submission are not
satisfactorily addressed;
(ii) Insufficient time is available for review of the modified
submission to determine whether all causes for disapproval have been
satisfactorily addressed; or
(iii) Modification is so substantial that the Board determines that
additional independent review is required and a time delay can not be
agreed upon to allow for such review.
(k) A submission will be disapproved if the applicant does not
present a modification of the submission to the Board on the date the
applicant anticipated presenting the modification or does not request
an additional time delay.
(l) If the Board fails to take action on a new submission within
the prescribed 90-day period in paragraph (g) of this section, or
within the time period in accordance with paragraph (e)(3) of this
section after receiving the revised submission, such submission will be
deemed approved by the Board for the initial reinsurance year
designated for the submission. The Board must approve the submission
for it to be available for any subsequent reinsurance year.
Sec. 400.707 [Amended]
0
9. Amend Sec. 400.707(c) by removing the words ``Sec. 400.706(c)''
and adding in its place the words ``Sec. 400.706(b)''.
0
10. Revise Sec. 400.708(a)(1) to read as follows:
Sec. 400.708 Approved Submission.
(a) * * *
(1) If FCIC requires, an agreement between the applicant and FCIC
that specifies:
(i) The responsibilities of each with respect to the
implementation, delivery and oversight of the submission; and
(ii) That the property rights to the submission automatically
transfers to FCIC if the applicant elects not to maintain the
submission and FCIC has paid any amounts under Sec. 400.712.
* * * * *
Sec. 400.708 [Amended]
0
11. Amend Sec. 400.708(a)(2) by removing the phrase ``Standard
Reinsurance Agreement'' and adding the phrase ``available existing
reinsurance agreements'' in its place;
0
12. Revise Sec. 400.709 to read as follows:
[[Page 44240]]
Sec. 400.709 Roles and responsibilities.
(a) With respect to the applicant:
(1) The applicant is responsible for:
(i) Preparing and ensuring that all policy documents, rates of
premium, and supporting materials, including actuarial documents, are
submitted to FCIC in the form approved by the Board;
(ii) Annually updating and providing maintenance changes no later
than 180 days prior to the earliest contract change date for the
commodity in all counties or states in which the policy or plan of
insurance is sold, unless FCIC assumes maintenance of the product;
(iii) Addressing responses to procedural issues, questions,
problems or clarifications in regard to a policy or plan of insurance
(all such resolutions will be communicated to all approved insurance
providers through FCIC's official issuance system); and
(iv) Annually reviewing the policy's performance and providing a
report on the policy's performance to the Board by each anniversary
date of when the product was first available to be purchased by the
public;
(2) Only the applicant may make changes to the policy, plan of
insurance, or rates of premium approved by the Board (Any changes, both
non-significant and significant, must be submitted to FCIC no later
than 180 days prior to the earliest contract change date for the
commodity in all counties or states in which the policy of plan of
insurance is sold. Significant changes must be submitted to the Board
for review in accordance with this subpart and will be considered as a
new submission);
(3) Except as provided in paragraph (a)(4) of this section, the
applicant is solely liable for any mistakes, errors, or flaws in the
submitted policy, plan of insurance, their related materials, or the
rates of premium that have been approved by the Board unless the policy
or plan of insurance is transferred to FCIC. The applicant remains
liable for any mistakes, errors, or flaws that occurred prior to
transfer of the policy or plan of insurance to FCIC;
(4) If the mistake, error, or flaw in the policy, plan of
insurance, their related materials, or the rates of premium is
discovered not less than 45 days prior to the cancellation or
termination date for the policy or plan of insurance, the applicant may
request in writing that FCIC withdraw the approved policy, plan of
insurance, or rates of premium:
(i) Such request must state the discovered mistake, error, or flaw
in the policy, plan of insurance, or rates of premium, and the expected
impact on the program; and
(ii) For all timely received requests for withdrawal, no liability
will attach to such policies, plans of insurance, or rates of premium
that have been withdrawn and no producer, approved insurance provider
or any other person will have a right of action against the applicant;
and
(5) Notwithstanding the policy provisions regarding cancellation,
any policy, plan of insurance, or rates of premium that have been
withdrawn by the applicant in accordance with paragraph (a)(4) of this
section is deemed canceled and applications deemed not accepted as of
the date that FCIC publishes the notice of withdrawal on its website at
http://www.rma.usda.gov; and
(i) Approved insurance providers will be notified in writing by
FCIC that the policy, plan of insurance, or premium rates have been
withdrawn; and
(ii) Producers will have the option of selecting any other policy
or plan of insurance authorized under the Act that is available in the
area by the sales closing date for such policy or plan of insurance;
and
(6) Failure of the applicant to perform the applicant's
responsibilities may result in the denial of reinsurance for the policy
or plan of insurance.
(b) With respect to FCIC:
(1) FCIC is responsible for:
(i) Conducting the best review of the submission possible in the
time allowed;
(ii) Ensuring that all approved insurance providers receive the
approved policy or plan of insurance, and related material, for sale to
producers in a timely manner (All such information shall be
communicated to all approved insurance providers through FCIC's
official issuance system);
(iii) Ensuring that all approved insurance providers receive
reinsurance under the same terms and conditions as the applicant
(approved insurance providers should contact FCIC to obtain and execute
a copy of the reinsurance agreement) if required; and
(iv) Reviewing the activities of approved insurance providers,
agents, loss adjusters, and producers to ensure that they are in
accordance with the terms of the policy or plan of insurance, the
reinsurance agreement, and all applicable procedures;
(2) The Board may limit the availability of coverage, for any
product developed under the authority of the Act and this regulation,
on any farm or in any county or area;
(3) FCIC will not be liable for any mistakes, errors, or flaws in
the policy, plan of insurance, their related materials, or the rates of
premium and no cause of action will exist against FCIC as a result of
such mistake, error, or flaw in a submission submitted under this
subpart;
(4) If at any time prior to the cancellation date, FCIC discovers
there is a mistake, error, or flaw in the policy, plan of insurance,
their related materials, or the rates of premium, or any other reason
for denial of reinsurance contained in Sec. 400.706(h) exists, FCIC
will deny reinsurance to such policy or plan of insurance. If
reinsurance is denied, a written notice of the denial of reinsurance
will be provided to the approved insurance providers;
(5) If reinsurance is denied under paragraph (b)(4) of this
section, the approved insurance provider will have the option of:
(i) Selling and servicing the policy or plan of insurance at its
own risk and without any subsidy; or
(ii) Canceling the policy or plan of insurance in accordance with
its terms; and
(6) After maintenance of the policy or plan of insurance is
transferred to FCIC, FCIC will be liable for any mistakes, errors, or
flaws that occur after the date the policy or plan of insurance was
transferred.
0
13. Revise Sec. 400.711 to read as follows:
Sec. 400.711 Right of review, modification, and the withdrawal of
reinsurance.
At any time after approval, the Board may review any policy, plan
of insurance, related material, and rates of premium approved under
this subpart and request additional information to determine whether
the policy, plan of insurance, related material, and rates of premium
comply with statutory or regulatory changes or court orders, are still
actuarially appropriate, and protect program integrity and the
interests of producers. The Board will notify the applicant of any
problem or issue that may arise and allow the applicant an opportunity
to make any needed change. The Board may deny reinsurance for the
applicable policy, plan of insurance or rate of premium if the
applicant:
(a) Fails to perform the responsibilities stated under Sec.
400.709(a); or
(b) Does not satisfactorily provide materials or resolve any issue
so that necessary changes can be made prior to the earliest contract
change date.
0
14. Amend Sec. 400.712 as follows:
0
a. Revise paragraphs (a), (b), (c), (d), (e), (h), (i), (l), and (m);
0
b. Remove paragraph (f) and redesignate paragraph (g) as (f);
[[Page 44241]]
0
c. Remove paragraph (j) and redesignate paragraph (k) as (j);
0
d. Add new paragraphs (g), (k), and (n);
0
e. Amend redesignated paragraph (f) introductory text by removing the
phrase ``and maintenance costs, as applicable'', and by removing the
phrase ``paragraph (f)'' and adding the phrase ``paragraph (e)'' in its
place;
0
f. Amend redesignated paragraphs (f)(5)(i)(A)(3), (B)(3), (C)(3),
(D)(3), and (E)(3) by removing the phrase ``(g)(3)'' and adding the
phrase ``(f)(3)'' in its place;
0
g. Amend redesignated paragraph (f)(5)(i)(B) by removing the word
``Crop'' and adding the word ``Commodity'' in its place;
0
h. Amend redesignated paragraph (f)(5)(ii)(B) by revising the phrase
``regional, state or county'' to read ``county, state or regional'';
0
i. Amend redesignated paragraph (f)(6) introductory text by removing
the phrase ``In accordance with paragraph (e) of this section, those'';
0
j. Amend redesignated paragraphs (f)(6)(i), (ii), and (iii) by removing
the phrase ``paragraphs (h), (i), or (j)'' and adding ``paragraph (g)''
in its place;
0
k. Amend the first sentence of redesignated paragraph (j)(1)(i) by
removing the phrase ``a user fee, as approved by the Board, to approved
insurance providers for all policies earning premium to cover
maintenance expenses'' and adding in its place the phrase ``approved
insurance providers a user fee to cover maintenance expenses for all
policies earning premium'', and in the last sentence by revising the
words ``which ever'' to read ``whichever''; and
0
l. Revise redesignated paragraph (j)(2);
0
m. Add paragraph (j)(8).
The revised and added text reads as follows:
Sec. 400.712 Research and development reimbursement, maintenance
reimbursement, and user fees.
(a) For submissions approved by the Board for reinsurance under
section 508(h) of the Act:
(1) If it is determined to be marketable by the Board, the
submission may be eligible for a one-time payment of research and
development costs and reimbursement of maintenance costs for up to four
reinsurance years, as determined by the Board, after the date such
costs have been approved by the Board.
(2) Reimbursement of research and development costs or maintenance
costs will be considered as payment in full by FCIC for the submission.
(3) If the applicant elects at any time not to continue to maintain
the submission, it will automatically become the property of FCIC and
the applicant will no longer have any property rights to the
submission.
(b) For submissions submitted to the Board for reinsurance after
publication of the interim rule on September 17, 2001, an estimated
amount of the total cost for reimbursement of research and development
costs and maintenance costs must be included with the original
submission to the Board in accordance with this section. These
estimates will be used by FCIC to evaluate if the interests of
producers are protected and to track potential expenditures and will
not provide a basis for making any reimbursements under this section.
Documentation of actual costs allowed under this section will be used
to determine any reimbursement.
(c) To be eligible for any reimbursement under this section, FCIC
must determine that a submission is marketable.
(d) To be considered for reimbursement of:
(1) Research and development costs, the total of the amount
requested, and all supporting documentation, must be submitted to FCIC
by electronic method or by hard copy and received by FCIC by August 1
immediately following the date the submission was first available to be
purchased by producers;
(2) Maintenance costs, the total of the amount requested, and all
supporting documentation, must be submitted to FCIC by electronic
method or by hard copy and received by FCIC by August 1 of each year of
the maintenance period;
(3) The procedure and time-frame in paragraphs (d)(1) or (2) of
this section, as applicable, must be followed or research and
development costs and maintenance costs may not be reimbursed; and
(4) Given the limitation on funds, regardless of when the request
is received, no payment will be made prior to September 15 of the
applicable fiscal year.
(e) There are limited funds available on an annual fiscal year
basis as contained in the Act. Therefore, requests for reimbursement
will not be considered in the order in which they are received.
Consistent with paragraphs (f), (g), (h), and (k) of this section, if
all applicants' requests for reimbursement of research and development
costs and maintenance costs in any fiscal year:
(1) Do not exceed the maximum amount authorized by law, the
applicants may receive the full amount of reimbursement authorized
under these paragraphs; and
(2) Exceed the amount authorized by law, each applicant's
reimbursement will be determined by dividing the total amount of each
individual applicants' reimbursable costs authorized in paragraphs (f),
(g), (h), and (k) of this section by the total amount of the aggregate
of all applicants' reimbursable costs authorized in paragraphs (f),
(g), (h), and (k) of this section for that year and multiplying the
result by the amount of reimbursement authorized under the Act.
* * * * *
(g) For those submissions submitted to the Board for approval after
September 17, 2001, research and development costs must be supported by
itemized statements and supporting documentation (copies of contracts,
billing statements, time sheets, travel vouchers, accounting ledgers,
etc.). Actual costs submitted will be examined for reasonableness and
may be adjusted at the sole discretion of the Board.
(1) Allowable research and development expense items (directly
related to research and development of the submission only) may include
the following:
(i) Straight-time hourly wage, exclusive of bonuses, overtime pay,
or shift differentials (One line per employee, include job title, total
hours, and total dollars. Compensation amounts will be compared with
the Occupational Employment Statistics Survey (published each January
by the U.S. Department of Labor, Bureau of Labor Statistics) or other
substantial wage information as deemed appropriate by the Board);
(ii) Benefit cost per employee (Benefit costs are considered
overhead and will be compared with the Employment Cost Index Annual
Employer Cost Survey published each March by the U.S. Department of
Labor, Bureau of Labor Statistics); and
(iii) Contracted expenses if fully disclosed, documented, and:
(A) The applicant provides a copy of the contract, billing
statements, accounting records, etc;
(B) The applicant provides the relationship, if any, between the
applicant and the contractor, such as parent company, subsidiary, etc.
(Reimbursement may be limited or denied if the contractor is closely
associated to the applicant so that they could be considered as one and
the same, such as a separate entity being created by the applicant to
conduct research and development);
(C) The applicant provides any and all other involvement of the
contractor with the applicant, such as being a director, officer,
employee, etc., or having common directors, officers, employers,
[[Page 44242]]
employees, etc. (Reimbursement may be reduced or denied if the
contractor is paid a salary or other compensation from the applicant
based on this other involvement); and
(D) The contracted expenses are broken out by line item (including
all persons who make up the contracted party who had a substantive
involvement in the development of the submission), such as:
(1) Individual names;
(2) Rate of pay;
(3) Hours allocated to the submission;
(4) Benefit rate; and
(5) Overhead;
(iv) Professional fees if fully disclosed, documented, and:
(A) The applicant provides the job title, straight-time hourly
wage, total hours, and total dollars;
(B) The applicant provides the relationship, if any, between the
applicant and the professional, such as parent company, subsidiary,
etc. (Reimbursement may be limited or denied if the contractor is
closely associated to the applicant so that they could be considered as
one and the same, such as a separate entity being created by the
applicant to conduct research and development);
(C) The applicant provides any other involvement of the
professional with the applicant, such as being a director, officer,
employee, etc., or having common directors, officers, employers,
employees, etc. (Reimbursement may be reduced or denied if the
contractor is paid a salary or other compensation from the applicant
based on this other involvement); and
(D) The professional fees are broken out by line item (including
all persons who make up the professional party who had a substantive
involvement in the development of the submission), such as;
(1) Individual names;
(2) Rate of pay;
(3) Hours allocated to the submission;
(4) Benefit rate; and
(5) Overhead;
(v) Travel and transportation (One line per event, include the job
title, destination, purpose of travel, lodging cost, mileage, air or
other identified transportation costs, food and miscellaneous expenses,
other costs, and the total cost);
(vi) Software and computer programming developed specifically to
determine appropriate rates, prices, or coverage amounts (Identify the
item, include the purpose, and provide receipts or contract or
straight-time hourly wage, hours, and total cost.) Software developed
to send or receive data between the producer, agent, approved insurance
provider or RMA or such other similar software may not be included as
an allowable cost); and
(vii) Miscellaneous expenses such as postage, telephone, express
mail, and printing (Identify the item, cost per unit, number of items,
and total dollars); and
(2) The following expenses are specifically not eligible for
research and development and maintenance cost reimbursement:
(i) Copyright or patent fees;
(ii) Training costs;
(iii) State filing fees and expenses;
(iv) Normal ongoing administrative expenses;
(v) Paid or incurred losses;
(vi) Loss adjustment expenses;
(vii) Sales commission;
(viii) Marketing costs;
(ix) Indirect overhead costs;
(x) Lobbying costs;
(xi) Product or applicant liability resulting from the research,
development, preparation or marketing of the policy;
(xii) Copyright infringement claims resulting from the research,
development, preparation or marketing of the policy;
(xiii) Costs of making program changes as a result of any mistakes,
errors or flaws in the policy or plan of insurance; and
(xiv) Costs associated with building rents or space allocation.
(h) Requests for reimbursement of maintenance costs for submissions
approved after September 17, 2001, must be supported by itemized
statements and supporting documentary evidence for each reinsurance
year in the maintenance period. Actual costs submitted will be examined
for reasonableness and may be adjusted at the sole discretion of the
Board. Maintenance costs for the following activities may be
reimbursed:
(1) Expansion of the original submission into additional counties
or states;
(2) Non-significant changes to the policy and any related material;
(3) Non-significant or significant changes to the policy as
necessary to protect program integrity or as required by Congress; and
(4) Any other activity that qualifies as maintenance.
(i) If the applicant does not reasonably demonstrate that the
submission meets the marketing plan or does not follow the criteria set
forth in this regulation, the product may be withdrawn at the
discretion of the Board and no further maintenance reimbursement will
be paid.
(j) * * *
(2) If the applicant elects to:
(i) Continue to maintain the policy or plan of insurance, the
applicant must submit a request for approval of the user fee by the
Board at the time of the election; or
(ii) Transfer the policy or plan of insurance to FCIC, FCIC may at
its sole discretion, continue to maintain the policy or plan or
insurance or elect to withdraw the availability of the policy or plan
of insurance.
* * * * *
(8) If the applicant does not notify FCIC at least six months prior
to the last day of the last reinsurance year in which a maintenance
reimbursement will be paid, as approved by the Board, ownership of the
policy or plan of insurance will be automatically transferred to FCIC
beginning with the next reinsurance year.
(k) The Board may consider information from the Equal Access to
Justice Act, 5 U.S.C. 504, the Bureau of Labor Statistic's Occupational
Employment Statistics Survey, the Bureau of Labor Statistic's
Employment Cost Index, and any other information determined applicable
by the Board, in making a determination whether to approve a submission
for reimbursement of research and development costs, or maintenance
costs under this section or the amount of reimbursement.
(l) For the purposes of this section, rights to, or obligations of,
research and development cost reimbursement, maintenance cost
reimbursement, or user fees cannot be transferred from any individual
or entity unless specifically approved in writing by the Board.
(m) Notwithstanding the definition in Sec. 400.701, the
maintenance period ends for an approved submission once the applicant
no longer performs the maintenance responsibilities, as determined by
FCIC, or the applicant gives FCIC notice they no longer wish to
maintain the submission.
(n) Applicants requesting reimbursement for research and
development costs, maintenance costs, or user fees, may present their
request in person to the Board prior to consideration for approval.
0
15. Revise Sec. 400.713 to read as follows:
Sec. 400.713 Nonreinsured supplemental (NRS) policy.
(a) Unless notified by FCIC, three hard copies, or an electronic
copy in a format approved by RMA, of the new or revised NRS policy and
related materials must be submitted to the Deputy Administrator,
Research and Development (or successor), Risk Management Agency, 6501
Beacon Drive, Stop 0812, Kansas City, MO
[[Page 44243]]
64133-4676, at least 120 days prior to the first sales closing date
applicable to the policy.
(b) FCIC will review the NRS policy to determine that it does not
materially increase or shift risk to the underlying policy or plan of
insurance reinsured by FCIC, reduce or limit the rights of the insured
with respect to the underlying policy or plan of insurance, or cause
disruption in the marketplace for products reinsured by FCIC.
(1) An NRS policy will be considered to disrupt the marketplace if
it adversely affects the sales or administration of reinsured policies,
undermines producers' confidence in the Federal crop insurance program,
decreases the producer's willingness or ability to use Federally
reinsured risk management products, or harms public perception of the
Federal crop insurance program.
(2) The applicant, at a minimum, must provide worksheets and
examples that establish liability and determine indemnities that
demonstrate the performance of the NRS policy under differing
scenarios. When the review is complete, FCIC will forward their
findings to the applicant.
(c) If the approved insurance provider sells an NRS policy that RMA
determines materially increases or shifts risk to the underlying FCIC
reinsured policy, reduces or limits the rights of the insured with
respect to the underlying policy, or causes disruption in the
marketplace for products reinsured by FCIC, reinsurance, A&O subsidy
and risk subsidy will be denied on the underlying FCIC reinsured policy
for which such NRS policy was sold.
(d) FCIC will respond to the submitter not less than 60 days before
the first sales closing date or provide notice why FCIC is unable to
respond within the time frame allotted.
Signed in Washington, DC on July 26, 2005.
Ross J. Davidson, Jr.,
Manager, Federal Crop Insurance Corporation.
[FR Doc. 05-15102 Filed 8-1-05; 8:45 am]
BILLING CODE 3410-08-P