1 Journal of Insurance Regulation Summer 2006 Vol. 24, No. 4 Mila Kofman, J.D., Co-Editor Terri M. Vaughan, Ph.D., Co-Editor National Association of Insurance Commissioners
2 Article Submission, Comments on Editorial Matters: All authors having articles that deal with insurance regulation are invited to submit manuscripts to the Journal for review. Articles are reviewed by the editors and members of the Editorial Review Board. Guidelines for authors and suggestions for first-time authors are available. For more information, visit manuscripts and all other editorial material, except legal reviews, to Mila Kofman, Associate Research Professor, Georgetown University, 3300 Whitehaven Street, NW, Suite 5000, Box , Washington, DC ; Suggestions for cases appropriate for legal review or analyses of such cases should be sent to Kay G. Noonan, NAIC Legal Staff, 2301 McGee St., Suite 800, Kansas City, MO SUBSCRIPTIONS: To subscribe, or to report problems in receiving issues or secure information about availability of back issues, call or write: Insurance Products and Services Division, NAIC, 2301 McGee St., Suite 800, Kansas City, MO Telephone: (816) REPRINTS: NAIC publications are subject to copyright protection. If you would like to reprint an NAIC publication, please submit a request for permission via the NAIC Web site at (Click on the Copyright & Reprint Info link at the bottom of the home page.) The NAIC will review your request National Association of Insurance Commissioners All rights reserved JIR-ZB National Association of Insurance Commissioners Insurance Products & Services Division Fax Printed in the United States of America No part of this book may be reproduced, stored in a retrieval system, or transmitted in any form or by any means, electronic or mechanical, including photocopying, recording, or any storage or retrieval system, without written permission from the NAIC. Executive Headquarters Securities Valuation Office Government Relations 2301 McGee Street 48 Wall Street Hall of States Bldg. Suite 800 6th Floor 444 North Capitol NW, Suite 701 Kansas City, MO New York, NY Washington, DC
3 Editorial Board of the Journal of Insurance Regulation Hon. L. Tim Wagner, Chair Director, Nebraska Department of Insurance Lincoln, NE Robert Hoyt, Ph.D. University of Georgia Athens, GA James L. Nelson, Esq. Austin, TX Ex Officio Julienne Fritz, NAIC Director, Insurance Products & Services Division Editorial Staff Co-Editors Mila Kofman, J.D. Washington, DC Terri M. Vaughan, Ph.D. Des Moines, IA Legal Editor Kay G. Noonan, J.D., NAIC Managing Attorney
4 Editorial Review Board David Appel, Economic Consulting Group, Milliman & Robertson, Inc., New York, NY Brian Atchinson, Insurance Marketplace Standards Association, Chevy Chase, MD Debra Ballen, American Insurance Association, Washington, DC Mike Barth, Georgia Southern University, Statesboro, GA Joseph Branch, Foley & Lardner, Milwaukee, WI Brendan Bridgeland, Center for Insurance Research, Medford, MA Steve Broadie, Property Casualty Insurers Association of America, Des Plaines, IL James Carson, Florida State University, Tallahassee, FL Cassandra Cole, Florida State University, Tallahassee, FL Lee Covington, Squire, Sanders & Dempsey LLP, Washington, DC Brenda Cude, University of Georgia, Athens, GA Paul Falon, University of Michigan Law School, Ann Arbor, MI Sholom Feldblum, Liberty Mutual Insurance Co., Boston, MA Bruce Ferguson, American Council of Life Insurers, Washington, DC Victoria Fimea, Fort Dearborn Life Insurance Company, Downers Grove, IL Jeff Gabardi, America s Health Insurance Plans, Washington, DC Robert Gibbons, International Insurance Foundation, Wayne, PA Robert Hoyt, University of Georgia, Athens, GA J. Robert Hunter, Consumer Federation of America, Arlington, VA Brent Kabler, Missouri Department of Insurance Robert Klein, Georgia State University, Atlanta, GA Donna Imhoff, Funk & Bolton, P.A., Baltimore, MD Kathleen McCullough, Florida State University, Tallahassee, FL Donna Novak, NovaRest, Inc, Fox Lake, IL Chris Petersen, Morris, Manning & Martin LLP, Washington, DC Karen Pollitz, Georgetown University, Washington, DC Harold Skipper, Georgia State University, Atlanta, GA Phillip Stano, Jorden Burt LLP, Washington, DC Larry Stern, Baker and Daniels, Washington, DC Sharon Tennyson, Cornell University, Ithaca NY Superintendent Alessandro Iuppa, Maine Bureau of Insurance, Augusta, ME
5 Purpose The Journal of Insurance Regulation is sponsored by the National Association of Insurance Commissioners. The objectives of the NAIC in sponsoring the Journal of Insurance Regulation are: 1. To provide a forum for opinion and discussion on major insurance regulatory issues; 2. To provide wide distribution of rigorous, high-quality research regarding insurance regulatory issues; 3. To make state insurance departments more aware of insurance regulatory research efforts; 4. To increase the rigor, quality and quantity of the research efforts on insurance regulatory issues; and 5. To be an important force for the overall improvement of insurance regulation. To meet these objectives, the NAIC will provide an open forum for the discussion of a broad spectrum of ideas. However, the ideas expressed in the Journal are not endorsed by the NAIC, the Journal s editorial staff, or the Journal s board.
7 Journal of Insurance Regulation Summer 2006 Volume 24, No. 4 Contents Editors Perspective 1 Research Articles Reigniting the Insurance Redlining Debate? 3 Gregory D. Squires Insurance redlining is not the heated public policy issue it was just 10 short years ago. At that time, Congress was considering a disclosure rule that would have brought the kind of sunshine to the property insurance industry that the Home Mortgage Disclosure Act brought to mortgage lending. The absence of such debate today reflects, in part, changes that occurred because of the advocacy of non-profit fair housing organizations. But, according to the author, evidence suggests that redlining may be making a comeback. Two related articles in this issue of the JIR constitute a small but important step in what the author hopes will become a broader public discussion of this re-emerging phenomenon.
8 Journal of Insurance Regulation Do Home Insurance Base Premium-Setting Policies Create Disparate Racial Impacts? The Case of Large Insurance Companies in Ohio 7 George Galster Analyzing an unusual dataset acquired by the Ohio Civil Rights Commission from six large home insurers operating in Ohio, this study investigates the degree to which black, Hispanic and non-hispanic white homeowners face different base premium rates, on average, based on where they reside in the state. The evidence shows that, from a statewide perspective, there is no consistent pattern of minority homeowners disproportionately living in areas with substantially higher base premiums, though results vary by company. The Potential for Racial Discrimination by Homeowners Insurers Through the Use of Geographic Rating Territories 21 Stephen M. Dane This paper discusses the potential racial implications of using geographic rating territories in the homeowners insurance rating process. Specifically, the paper addresses a homeowners insurer s potential exposure to legal liability under the federal Fair Housing Act by the use of geographic rating territories to determine rates. The paper also discusses a recent study on homeowners insurance in Ohio, highlighting the study s limitations as a tool to determine whether insurers practices are the result of prohibited discrimination. Racial Profiling, Insurance Style 33 Gregory D. Squires Charis E. Kurbrin This article is a reprint of Chapter 4 from Privileged Places: Residence, and the Structure of Opportunity, by Gregory D. Squires and Charis E. Kurbrin.
9 Journal of Insurance Regulation Changes in Medigap Supplemental Insurance Premiums, John Robst A 2001 Weiss Ratings study reported that premiums for plans that cover prescription drugs increased 37.2%, while premiums for plans without prescription benefits increased 15.5%. However, the computation of average premiums did not take into account the market share of the insurers. This paper weights premium growth by Medigap plan enrollment to account for market share, then re-examines premium growth between 1998 and 2000 for Medigap supplemental insurance coverage. Health Insurance Regulation by the States and the Federal Government: A Review of Current Regulation and Proposals for Change 77 Mila Kofman, J.D. Karen Pollitz, M.P.P. This paper provides an overview of the current regulation of health insurance, including a discussion of state and federal standards, regulation and oversight. It then reviews three Congressional proposals to change health insurance regulation, largely by altering the current balance of federal and state regulatory roles. Legal Reviews Significant Insurance Litigation Post-Hurricane Katrina 109 Kara D. Binderup, J.D. Guidelines for Authors 117
10 Journal of Insurance Regulation
11 Editors Perspective As regulators and policymakers face challenges in how to effectively regulate an evolving marketplace, with new products and business practices evolving at record speed, we have decided to devote a portion of this issue of the Journal of Insurance Regulation to exploring a topic that has been the subject of ongoing public policy debates: race and insurance. To that end, there are four articles on the subject. In Reigniting the Insurance Redlining Debate? Professor Gregory Squires introduces the topic and the two related articles. In his introduction, Prof. Squires provides the reader with background information about insurance redlining and highlights some of the findings and discussion in accompanying articles. Next is an article by Professor George Galster called Do Home Insurance Base Premium-Setting Policies Create Disparate Racial Impacts? The Case of Large Insurance Companies in Ohio. Prof. Galster analyzes insurers pricing practices in Ohio based on data from the Ohio Civil Rights Commission on six large home insurers operating statewide. He investigates the degree to which minority homeowners face different base premium rates compared to white homeowners. Steve Dane, in an article titled The Potential for Racial Discrimination by Homeowners Insurers Through the Use of Geographic Rating Territories provides a detailed background to federal laws designed to prohibit racial discrimination. The article then discusses the Ohio study and highlights its limitations. Finally, the JIR includes a reprint of a chapter titled Racial Profiling, Insurance Style from Prof. Squires new book on race in America. Our hope is that these articles will help inform regulators and policymakers about the ongoing issues surrounding race and insurance. Included in the remainder of this issue is an article by Professor John Robst titled Changes in Medigap Supplemental Insurance Premiums, It examines the growth of premiums and looks at a prior study by Weiss Ratings, Inc., that reported growth in premiums for policies with prescription drugs at more than twice the rate for policies without such coverage. Prof. Robst re-examines Weiss findings and, based on a consideration of insurers market share, provides different results. Finally, this issue of the JIR includes an article titled Health Insurance Regulation by the States and the Federal Government: A Review of Current Regulation and Proposals for Change by Mila Kofman (one of the JIR s co-editors) and Karen Pollitz. This article provides an overview of how states regulate health insurance and the varying approaches for consumer protection and oversight. It also examines implications of three federal proposals that seek to federalize (to different degrees) the regulation of health insurance. As always, we invite feedback from our readers.
12 2 Journal of Insurance Regulation
13 Reigniting the Insurance Redlining Debate? Gregory D. Squires* Do the kids in the neighborhood play hockey or basketball? Anonymous Boston insurance agent (Luquetta 2002) Insurance redlining is not the heated public policy issue it was just 10 short years ago. At that time, Congress was considering a disclosure rule that would have brought the kind of sunshine to the property insurance industry that the Home Mortgage Disclosure Act (HMDA) brought to mortgage lending. The nation s largest insurers were in the process of settling fair housing complaints. And the U.S. Department of Housing and Urban Development (HUD) was considering a regulation clarifying the application of the Fair Housing Act to property insurance (Squires, 1998). The absence of such debate today reflects, in part, changes that occurred because of the advocacy of non-profit fair housing organizations. But evidence in the current case of National Fair Housing Alliance v. Prudential Ins. Co (208 F. Supp 2d (D.C.C., 2002)), the more recent debate over the use of credit scores (Birnbaum, 2003; Snyder, 2003; Tuckey, 2005; Texas Department of Insurance, 2004; Center for Economic Justice, 2005) in the pricing and underwriting of insurance, and informal discussions with staff at fair housing organizations (Smith, 2006) suggests that redlining may be making a comeback. It may be more subtle today than in earlier years, as suggested by the hockey or basketball question an insurer posed to one of its agents about a Boston neighborhood. But it persists. Two related articles in this issue of the JIR constitute a small but important step in what hopefully will be a broader public discussion of that re-emerging phenomenon. Most prior research on insurance redlining and discrimination has examined the underwriting and marketing of policies. But pricing, which is more closely scrutinized by insurance regulators, is the focus of the following two articles by George Galster ( Do Home Insurance Base * Professor of sociology, public policy and public administration, and chair of the Department of Sociology at George Washington University.
14 4 Journal of Insurance Regulation Premium-Setting Policies Create Disparate Racial Impacts? The Case of Large Insurance Companies in Ohio ) and Stephen M. Dane ( The Potential for Racial Discrimination by Homeowners Insurers through the Use of Geographic Rating Territories ). More specifically, they explore the implications of territorial rating for the prevalence of pricing practices that exert an adverse disparate impact on racial minorities. Galster raises the question of what is the most appropriate geographic unit of analysis for determining whether territorial rating has a disparate impact. He considers several options and concludes that the least arbitrary and, therefore, most appropriate level is the state. He examines six large insurers in Ohio and concludes that, in general, the pricing practices of these companies do not yield higher premiums for minorities across the state as a whole. Dane demonstrates important limitations to state-level analysis, pointing out that such inquiries risk missing much of the action going on at the local level. He also notes that smaller units of analysis, like ZIP codes and census tracts, are too small to permit statistically reliable estimates of loss costs and, therefore, appropriate pricing. He concludes that municipal boundaries define the appropriate unit of analysis. Despite the rigor that both bring to the subject, it remains unclear at what geography disparate impact can be most effectively determined. State-level analysis can be misleading, as Dane suggests, in part because of some of the empirical evidence Galster provides. He notes that non-metropolitan or rural areas tend to have higher premiums because of longer distances from professional fire departments, and whites disproportionately reside in these communities. So some whites are paying higher premiums for legitimate risk-related reasons. At the same time, racial minorities may be paying higher prices in the urban communities where they are concentrated, and those disparities could be due to discrimination. The end result would be the appearance of non-discriminatory pricing practices, with whites and non-whites paying comparable prices for insurance, but masking what could be systematic discrimination throughout the state s several metropolitan areas. This suggests the need for a more local examination of pricing practices. But relying on current municipal boundaries is also problematic. Just because the boundaries are determined by political authorities rather than insurers does not make race irrelevant in their designation or the consequences, including the price of insurance. For example, racially exclusionary zoning laws in most suburban communities contribute to the racial demography of the nation s metropolitan areas. Though more diverse today than in the past, cities still tend to be disproportionately non-white and suburbs disproportionately white. If loss costs differ between cities and suburbs, this reflects a host of historical and ongoing inequities in both public and private investment and planning activities, including those of the home insurance industry (Badain, 1980; Yaspan, 1970; Massey and Denton, 1993; Dreier et al., 2004). If losses are higher in cities, such disparities reflect far more than the behavior and characteristics of current residents.
15 Reigniting the Insurance Redlining Debate? 5 But using political jurisdictions, whose character has been shaped by conscious, as well as perhaps unintentional, racial bias as a basis for pricing insurance locks in and perpetuates into the future institutionalized discrimination, both historical and contemporary. Another problem with using a city as a rating territory is that, contrary to what Dane asserts, it is often the case that there are sound actuarial reasons to believe one section of a city would lead to higher or lower losses than another section of that same city. Some neighborhoods are densely settled with high concentrations of wood frame homes, while others are sparsely settled primarily with brick homes. Fires are more likely to occur, and then spread to neighboring homes, in the former neighborhood. Theft rates also differ, sometimes dramatically, across neighborhoods. And it is increasingly the case that some inner-ring suburban neighborhoods experience the ills often previously associated almost exclusively with inner city neighborhoods (Orfield, 1997, 2002) and, therefore, have higher losses than many urban communities. Current municipal boundaries do not necessarily provide a reasonable basis for determining geographic rating territories. Insurers often acknowledge that underwriting is as much an art as it is a science. Pricing, too, has its subjective dimensions. Determining appropriate boundaries for delineating geographic rating territories remains a challenge, as most insurers would likely acknowledge. The overriding issue that remains is just how prevalent redlining and racial discrimination are in the pricing (as well as underwriting, marketing and other parts) of the home insurance industry. How much progress has been made, and to what extent redlining has made a comeback, cannot be systematically determined with data that are currently available, at least to the public. A critical next step is to secure an HMDA-like national disclosure law for home insurance. Some states have enacted limited disclosure laws. But they generally call for ZIP code, rather than tract-level, disclosure and they often do not include denial rates or pricing information. Only a handful of states require any disclosure at all (Squires et al., 2001). The limited data available have proved useful in some of the fair housing litigation that has occurred (Lynch, 1997). But far more information is required in order to answer most of the questions that have been raised in several decades of debate over insurance redlining and discrimination. Hopefully, these two articles will jumpstart a national discussion about the many unsettled issues. And, hopefully that discussion will generate the kind of systematic public information that will enable us to resolve remaining issues pertaining to insurance availability and unfair discrimination, and put this debate behind us.
16 6 Journal of Insurance Regulation References Badain, David, Insurance Redlining and the Future of the Urban Core. Columbia Journal of Law and Social Problems 16(1): Birnbaum, Birny, Insurer s Use of Credit Scoring for Homeowners Insurance in Ohio: A Report to the Ohio Civil Rights Commission, Columbus, OH: Civil Rights Commission. Center for Economic Justice, Results Are In: Insurance Credit Scoring Causes Higher Rates for Poor and Minority Consumers, News Release, Austin, TX: Center for Economic Justice. Dreier, Peter, John Mollenkopf and Todd Swanstrom, Place Matters: Metropolitics for the Twenty-first Century, second edition, Lawrence, KS: University Press of Kansas. Luquetta, Andrea (Director of Housing and Community Reinvestment, Massachusetts Association of Community Development Corporations), Personal communication, March 29. Lynch, William H., NAACP v. American Family, in Gregory D. Squires (ed) Insurance Redlining: Disinvestment, Reinvestment, and the Evolving Role of Financial Institutions, Washington, D.C.: Urban Institute Press. Massey, Douglas S. and Nancy A. Denton, American Apartheid: Segregation and the Making of the Underclass, Cambridge, MA: Harvard University Press. Orfield, Myron, Metropolitics: A Regional Agenda for Community Stability, Washington, D.C., and Cambridge, MA: Brookings Institution Press and The Lincoln Institute of Land Policy. Orfield, Myron, American Metropolitics: Social Separation and Sprawl, Washington D.C.: Brookings Institution Press. Smith, Shanna (Executive Director, National Fair Housing Alliance), Personal communication, April 28. Snyder, David F., The Consumer Benefits of Credit-Based Insurance Scoring: Ohio Civil Rights Commission, Washington, D.C.: American Insurance Association. Squires, Gregory D., Why An Insurance Regulation to Prohibit Redlining? The John Marshall Law Review 31(2): Squires, Gregory D., Sally O Connor and Josh Silver, The Unavailability of Information on Insurance Unavailability: Insurance Redlining and the Absence of Geocoded Disclosure Data, Housing Policy Debate 12(2): Texas Department of Insurance, Use of Credit Information by Insurers in Texas, Austin, TX: Texas Department of Insurance. Tuckey, Steve, Beating the Odds: Despite Criticism, Is Credit Scoring Here to Stay? National Underwriter, June 13, pp. 6, 7, 46. Yaspan, Robert, Property Insurance and the American Ghetto: A Study in Social Irresponsibility, Southern California Law Review, 44:
17 Do Home Insurance Base Premium-Setting Policies Create Disparate Racial Impacts? The Case of Large Insurance Companies in Ohio* George Galster** Abstract The conventional wisdom is that the substantially higher home insurance premiums observed in urban compared to suburban rating territories have a disproportionate effect on minority homeowners because they are overrepresented in urban areas. Analyzing an unusual dataset acquired by the Ohio Civil Rights Commission from six large home insurers operating statewide, this study investigates the degree to which black, Hispanic and non-hispanic white homeowners face different base premium rates, on average, based on where they reside in the state. The evidence shows that, from a statewide perspective, there is no consistent pattern of minority homeowners disproportionately living in areas with substantially higher base premiums, though results vary by company. * The author wishes to thank Brandi Klein, Matt Miko and Ronnell Tomlinson of the Ohio Civil Rights Commission, who provided the premium data upon which this analysis was based. Thanks are also due the Office of Strategic Research, Ohio Department of Development, which assembled these data into geographic areas, and the Ohio Department of Insurance, which provided market share data. Greg Squires and anonymous referees provided constructive suggestions on an earlier draft. Noelia Caraballo provided production assistance. The opinions expressed in this note are the author s, and do not necessarily reflect those of the Ohio Civil Rights Commission, the Ohio Department of Development or the Ohio Department of Insurance. ** Clarence Hilberry Professor of Urban Affairs, Wayne State University;
18 8 Journal of Insurance Regulation Based on their 2000 residential distribution across geographical rating territories, black and Hispanic homeowners are estimated to live in areas with 4% to 5% higher, on average, home insurance base rates charged by insurance companies C and D during The comparable figure is 2% to 3% in the case of insurance company E. In the case of company F, these differences are 1% or less. In the case of company B, black (Hispanic) homeowners live in areas with base rates up to 2% less (more), depending on policy type. In the case of company A, black and Hispanic homeowners live in areas with 3% to 5% lower base rates, on average. The findings raise the question of the appropriate geographic scale over which to assess potential disparate racial impacts of rating territory and premium designations: metropolitan area or state? Scholarly, Public Policy and Regulatory Context At least since the Kerner Commission Report (President s National Advisory Panel, 1968), there have been widespread concerns that a variety of practices of home insurance companies have been racially discriminatory in their effect, and perhaps in their intent (e.g., Heimer, 1982; Kinkaid, 1994; Smith and Cloud, 1997; Squires, 1997, 2003; Yaspan, 1970). Subsequent decades of research has revealed insurance industry abuses in several areas: marketing and office location (Squires, Velez and Taeuber, 1991; Schultz, 1995, 1997), information provided (Galster et al., 2001), underwriting criteria (Powers, 1997), types of policies made available (Klein, 1997) and claims adjustment (Baker and McElrath, 1997; Saadi, 1987). There also have been several significant court findings returned against major insurance companies related to these behaviors (Lynch, 1997; Squires, 2003). Another prominent area of concern relates to the oft-observed substantial differences in premiums charged in urban and suburban neighborhoods. In the most comprehensive study to date, Klein (1997) found for all policy types that predominantly minority-occupied ZIP codes evinced substantially higher average premiums (per $1,000 insured value) than predominantly white-occupied ZIP codes in a sample of 33 large metropolitan areas. This observation raises a crucial question for scholars, policymakers and regulators alike: What is the source of this interracial/urban-suburban differential in premiums (as appropriately standardized)? Some have alleged that illegal, race-based overt and/or discriminatory differential treatment against individual minority homeowners and/or minority-occupied neighborhoods is to blame (ACORN, 1992; Tisdale et al., 1994; National Fair Housing Alliance, 1995). Studies employing the paired testing methodology to carefully control for all aspects of the insurance underwriting decision (except the racial-ethnic character of the individual
19 Home Insurance Base Premium-Setting Policies 9 homeowner or the neighborhood where the home is located) have, however, produced mixed results in this regard (cf. Squires and Velez, 1987; Smith and Cloud, 1997; Galster, Wissoker and Zimmermann, 2001; Squires and Chadwick, 2006). While acknowledging an interracial/urban-suburban differential in premiums in metropolitan areas, home insurance industry representatives have argued that these patterns are generated purely by rating territory structure, not differential treatment of individuals or neighborhoods. These rating territories and their corresponding differences in base premium rates, in turn, reflect risk differentials, as evinced by studies showing that insured losses due to crime, fire and other perils are higher in urban, minorityoccupied neighborhoods (e.g., National Association of Independent Insurers, 1994). Moreover, they note that the insurance industry is heavily regulated by state insurance regulators, who require that differences in premiums across geographical areas (rating territories) be justified by actuarial loss histories (Wissoker et al., 1998: ch. 2). Consumer and civil rights advocates have responded that, even if risks of loss vary substantially across space, the current design of metropolitan rating territories creates illegal disparate-impact discrimination against minorities. The argument is that current rating territory designations are arbitrary and force urban minority homeowners to bear higher premiums than are necessary. Some advocates have argued, for example, that minority homeowners premiums could, in principle, be lowered if the territories were redesigned to include combinations of suburban and urban neighborhoods. If these territories are well designed and premiums set appropriately, they claim, insurance companies could expect to earn the same rate of return under this hypothetical, nondiscriminatory scenario as under the status quo. In this paper, I raise the question of whether the foregoing debate skirts a crucial point. Though the evidence on premiums clearly establishes a prima facie basis for alleging illegal disparate racial impact when the metropolitan area is used, it begs the question of whether such is the appropriate geographic scale of analysis. After all, insurance companies must have their statewide delineation of rating territories, premiums and policy types offered approved by each state s appropriate insurance regulatory office. And there has never to my knowledge been a study of interracial differences in premiums conducted at the level of a state. This can undoubtedly be traced to the fact that states do not publicly report the appropriate data at a level of geography that could allow a formal test of disparate racial impacts of insurance pricing policies (Squires, O Connor and Silver, 2001). Fortunately, this barrier was removed recently in Ohio, where the Ohio Civil Rights Commission (OCRC) acquired data from the six large home insurers and granted access to the author for analyses at their behest. This research reports on the results generated by this unusual analytical opportunity.
20 10 Journal of Insurance Regulation The goal here is to ascertain the degree to which black, Hispanic and non-hispanic white ( white hereafter) homeowners face different premium base rates, on average, based on where they reside across the entire state of Ohio. The research is intended to answer the question: To what extent did black, Hispanic and white homeowners in Ohio face different average home insurance premium base rates in 2002 because of the geographic rating territory in which they reside? Put differently, the research will ascertain the degree to which the current structure of insurance rating territories and pricing thereof creates disproportionately higher base premiums for minority homeowners across Ohio as a whole. Disparate-Impact Discrimination, Insurance Rating Territories and Premiums: A Conceptual Discussion Before turning to the evidence, important analytical foundations must be laid. First is the notion of disparate impact, which this paper investigates. 1 Illegal disparate impact occurs when a given policy or practice: 1) creates statistically disproportionate adverse effects upon a legally protected group; and either 2) there is no sound business justification for the policy or practice or 3) there is a sound business justification, but there is an alternative policy or practice that fulfills the same justification but has no disproportionate effects. 2 In terms of the issue at hand, the policy or practice is the insurance company s designation of its rating territories and its corresponding establishment of base premium rates for each (for a particular sort of policy type and dwelling type). A prima facie case of disparate impact would be established if the first condition above were met; i.e., if minority homeowners were distributed geographically such that their base premiums were higher, on average, than those faced by white homeowners. But the central issue is this: Over what set of rating territories should this comparison be made? As means to an answer, consider the following thought experiment utilizing Figure 1. Figure 1 shows a stylized state (the rectangle) containing 1. I do not investigate here differential treatment discrimination, which would require analytically that otherwise risk-identical properties be charged different premiums based purely on the race of homeowner or the neighborhood. For examples of such a test, see Smith and Cloud (1997) and Galster, Wissoker and Zimmermann (2001). 2. For more on standards of proof in disparate impact cases of discrimination, see Schwemm (1994) and Crowell, Johnson and Trost (1994).
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