[Federal Register Volume 62, Number 81 (Monday, April 28, 1997)]
[Rules and Regulations]
[Pages 22873-22877]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 97-10890]


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DEPARTMENT OF AGRICULTURE

Federal Crop Insurance Corporation

7 CFR Part 400

RIN 0563-AB05


General Administrative Regulations; Nonstandard Underwriting 
Classification System

AGENCY: Federal Crop Insurance Corporation, USDA.

ACTION: Final rule.

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SUMMARY: Federal Crop Insurance Corporation (FCIC) finalizes amendments 
to subpart O of the General Administrative Regulations, effective with 
the 1998 (1999 for Texas and Arizona/California Production Citrus) and 
succeeding crop years. This amendment is intended to clarify the effect 
of the nonstandard underwriting classification system (NCS) and to 
ensure that NCS is applied to all producers in a fair and consistent 
manner.

EFFECTIVE DATE: May 28, 1997.

FOR FURTHER INFORMATION CONTACT: Bill Smith, Supervisory Insurance 
Management Specialist, Research and Development, Product Development 
Division, Federal Crop Insurance Corporation, United States Department 
of Agriculture, 9435 Holmes Road, Kansas City, MO 64131, telephone 
(816) 926-7743.

SUPPLEMENTARY INFORMATION:

Executive Order 12866

    The Office of Management and Budget (OMB) has determined this rule 
to be not significant for the purposes of Executive Order 12866 and, 
therefore, has not been reviewed OMB.

Paperwork Reduction Act of 1995

    This rule does not contain information collection requirements that 
require approval by OMB under the Paperwork Reduction Act of 1995 (44 
U.S.C. chapter 35).

[[Page 22874]]

Unfunded Mandates Reform Act of 1995

    Title II of the Unfunded Mandates Reform Act of 1995 (UMRA), Public 
Law 104-4, 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. Thus, this 
rule is not subject to the requirements of sections 202 and 205 of the 
UMRA.

Executive Order 12612

    It has been determined under section 6(a) of Executive Order 12612, 
Federalism, that this rule does not have sufficient Federalism 
implications to warrant the preparation of a Federalism Assessment. The 
policies and procedures contained in this rule will not have a 
substantial direct effect on States or their political subdivisions, or 
on the distribution of power and responsibilities among the various 
levels of Government.

Regulatory Flexibility Act

    This regulation will not have a significant impact on a substantial 
number of small entities. New provisions in the rule will not impact 
small entities to a greater extent than larger entities. NCS program 
determinations are applied to all producers on a county basis and 
affect only a small number of producers (approximately 1 percent of all 
insureds). Therefore, this action is determined to be exempt from the 
provisions of the Regulatory Flexibility Act (5 U.S.C. 605), and no 
Regulatory Flexibility Analysis was prepared.

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

    The provisions of this rule will preempt State and local laws to 
the extent such State and local laws are inconsistent herewith. The 
administrative appeal provisions published at 7 CFR part 11 must be 
exhausted before judicial action may be brought.

Environmental Evaluation

    This action is not expected to have any significant impact on the 
quality of the human environment, health, and safety. Therefore, 
neither an Environmental Assessment nor an Environmental Impact 
Statement is needed.

National Performance Review

    The regulatory action is being taken as part of the National 
Performance Review Program to eliminate unnecessary regulations and 
improve those that remain in force.

Background

    On Thursday, November 7, 1996, FCIC published a proposed rule in 
the Federal Register at 61 FR 57595-57597 to amend the General 
Administrative Regulations (7 CFR part 400, subpart O) to be effective 
for the 1998 (1999 for Texas and Arizona/California Production Citrus) 
and succeeding crop years. Following publication of that proposed rule, 
the public was afforded 60 days to submit written comments and 
opinions. A total of 22 comments were received from the crop insurance 
industry and FCIC. The comments received and FCIC responses are as 
follows:
    Comment: One comment received from FCIC recommended that the 
Summary, Background, and List of Subjects statements be clarified by 
changing references to ``Texas and Arizona/California Citrus'' to 
``Texas and Arizona/California Production Citrus'' and adding 
``sugarcane'' to the list of crops for which this subpart applies for 
the 1999 crop year. These changes would correspond with the usage of 
``production'' and ``sugarcane'' in the definition of ``NCS base 
period.''
    Response: The referenced statements specify the crop year this 
subpart is to be effective based on the crop year and contract change 
date contained in the applicable crop provisions. Since citrus trees 
and citrus production have different crop year definitions and contract 
change dates, FCIC will add ``production'' to eliminate any possible 
confusion regarding the crops affected by these statements. Under the 
policy provisions for sugarcane, this rule is applicable to the 1998 
crop year which is consistent with the applicable effective dates 
specified in this rule as currently written. The exceptions made for 
crops such as sugarcane in the definition of the ``NCS base period'' 
are necessary due to the availability of insurance experience data and 
are not related to the effective date of this subpart. Therefore, no 
change will be made regarding the addition of ``sugarcane'' to these 
statements.
    Comment: One comment received from FCIC questioned if insurance 
experience under the Group Risk Protection plan of coverage should be 
specifically excluded in this subpart from insurance experience based 
on the individual producer.
    Response: FCIC agrees with the comment and will amend Sec. 400.301 
to limit this subpart's effect to producers whose insurance coverage or 
indemnities are based on determinations applicable to the individual 
insured rather than determinations made on a county or area basis.
    Comment: One comment received from the crop insurance industry 
inquired how FCIC considered certain types of indemnities in making NCS 
determinations.
    Response: FCIC provided language in its definition of ``insurance 
experience'' that permits adjustment for certain types of indemnities 
and for the exclusion of replant payments for purposes of NCS 
selection, as applicable. Limiting the effect of certain losses, which 
do not clearly establish nonstandard risks, produce more accurate NCS 
determinations consistent with the purpose for which NCS was developed.
    Comment: One comment received from the crop insurance industry 
recommended that the reference to ``a significant contribution'' in the 
definition of ``actively engaged in farming'' was too broad and 
subjective.
    Response: FCIC agrees and will change the definition from ``a 
significant contribution'' to ``a contribution,'' reflecting the 
current definition before the term ``significant'' was added.
    Comment: One comment received from the crop insurance industry 
recommended ``applicable adjustments'' contained in the definition of 
``insurance experience'' be specified.
    Response: FCIC believes it is better to reference experience 
adjustments in broad terms as stated in the proposed definition to 
maintain flexibility in managing the effects of different loss 
conditions on insurance experience. Adjustments are made to limit the 
effect of losses caused by wide-spread crop failures caused by one or 
more perils affecting a large number of producers or other similar 
situations determined by FCIC to not reflect nonstandard risks. The 
impact of such adjustments is to improve identification of persons who 
represent nonstandard risks. Therefore, no change will be made.

[[Page 22875]]

    Comment: One comment received from FCIC recommended the definition 
of ``insurance experience'' be revised to remove the language which 
excludes replant payments from consideration in determining insurance 
experience.
    Response: FCIC believes that replant payments should not be 
considered in determining insurance experience for NCS selection 
purposes. FCIC provides replant payments to defray costs incurred by 
insureds replanting an insured crop damaged by insured causes, 
necessary to keep insurance in force or to reduce any future 
indemnities. Considering such payments when identifying insureds with 
nonstandard risks would be inequitable when FCIC requires or encourages 
replanting as a means to promote a sounder insurance program. 
Therefore, no change will be made.
    Comment: One comment received from FCIC recommended that the 
definition of ``NCS base period'' be changed to establish the base 
period for raisins as the 10 crop year period ending immediately 
preceding the crop year the NCS classification becomes effective.
    Response: The NCS base period ends 2 or 3 crop years (depending on 
the crop) prior to the effective NCS crop year to assure that all 
insurance experience records are available to meet NCS determination 
and notification requirements prior to the contract change date for 
each crop. The NCS base period, as defined, meets this requirement. 
Therefore, no change will be made.
    Comment: One comment received from the crop insurance industry 
recommended the definition of ``NCS base period'' not specify 
individual crops by base period. Changes in the crops listed would 
cause the definition to be inaccurate.
    Response: FCIC agrees with this comment and will revise the 
definition to provide crop exceptions on the Special Provisions.
    Comment: One comment received from FCIC suggested that the 
definition of ``NCS base period'' did not agree with the example 
contained in the definition.
    Response: FCIC agrees and has amended the provisions accordingly.
    Comment: One comment received from FCIC suggested that section 
400.303(a) (1) and (4) were mathematically redundant.
    Response: The selection criteria contained in Sec. 400.303(a) (1) 
and (4) would provide the same effect if, for example, the number of 
indemnified losses in the NCS base period equals three and the loss 
frequency is set at 30 percent. However, other frequency percentages 
are permitted under this subpart. FCIC currently uses 60 percent. The 
number of indemnified losses will also vary. In either case, each 
criteria impacts the NCS selection process differently. Therefore, no 
change will be made.
    Comment: Two comments received from FCIC recommended the reference 
to ``cumulative indemnities'' and ``cumulative loss ratio'' contained 
in Secs. 400.303 (a)(2) and (b)(5) be changed to ``cumulative adjusted 
indemnities'' and ``cumulative adjusted loss ratio'' to reflect 
adjustments to indemnities FCIC may make under certain circumstances.
    Response: Section 400.303(a) states that nonstandard classification 
procedures apply when all of the insurance experience criteria, 
including any adjustments to insurance experience which may be made 
under Sec. 400.300(c), have been met. However, since the insurance 
experience for individual producers or individual crop years may not 
qualify for insurance experience adjustment, it would be incorrect to 
add the term ``adjusted'' as recommended by the respondent. Therefore, 
no change will be made.
    Comment: One comment received from FCIC recommended deleting 
Sec. 400.303(a)(3) due to its inconsistency with Sec. 400.307, 
Discontinuance of participation which, other than as excepted, requires 
continued insurance experience to be eligible for removal from NCS.
    Response: FCIC agrees and will delete paragraph (a)(3) and 
redesignate paragraphs (a)(4) and (5) as (a)(3) and (4) and correct 
other section references accordingly.
    Comment: Two comments received from FCIC concerning 
Sec. 400.303(a)(5)(ii) questioned the necessity and advisability of 
providing notification in the Special Provisions of changes increasing 
the minimum standards for certain selection criteria contained in this 
section.
    Response: Sec. 400.303 establishes minimum NCS selection criteria 
which the public is notified through the rule making process. Certain 
criteria are allowed to increase above the minimum standards, reducing 
the probability of selection for NCS adjustments. However, such 
increases can only be applicable if the criteria stated in 
Sec. 400.303(a) are met and such decisions will be made on a county by 
county basis. The Special Provisions, which are part of the insurance 
contract and contain those terms and conditions specific to the county, 
are the appropriate documents to contain such increases which reduce 
the probability of selection for NCS. All increases will apply to all 
producers in the county. For any change in the selection criteria 
contained in this section that may result in an increased probability 
of selection for NCS, FCIC will make such changes through the 
rulemaking process. Therefore, no change will be made.
    Comment: One comment received from FCIC recommended Sec. 400.303(c) 
describe how indemnities are adjusted and reference the procedures and 
methods used by FCIC in its determinations and their availability to 
the public.
    Response: FCIC believes Sec. 400.303(c) adequately describes 
indemnity adjustments. Complete details are contained in procedures 
FCIC develops and publishes. This information is available for public 
inspection on request. FCIC will amend the rule to determine where such 
procedures will be available.
    Comment: One comment received from FCIC recommended the last 
sentence of Sec. 400.303(c) be changed to use a means other than the 
Special Provisions to provide for alternate methodologies of 
establishing crop disaster adjustments to insurance experience.
    Response: FCIC believes the Special Provisions, which are part of 
the insurance contract and contain those terms and conditions specific 
to the county, are the appropriate documents to provide for such 
alternatives. Therefore, no change will be made.
    Comment: Two comments received from the crop insurance industry 
regarding Sec. 400.305 suggested that FCIC implement measures using 
social security (SSN) or employer identification numbers (EIN) to 
correctly identify persons affected by NCS and to assure applicable 
coverage or rate classifications were used to establish liability and 
premium. Limiting the availability of optional units was also suggested 
as another way to improve insurance experience.
    Response: FCIC currently identifies persons listed on NCS through 
the use of SSN and EIN's. Changing the availability of optional units 
would represent a significant change and require an additional comment 
period to allow interested parties to consider the effects of this 
change. Therefore, no change will be made to the present rule. However, 
consideration will be given to this recommendation in any future change 
to this subpart.
    Comment: One comment received from the crop insurance industry 
recommended NCS classifications under Sec. 400.305(c) should not be 
assigned to identified insurable acreage or to specific crop practices, 
types, varieties, options, or amendments.

[[Page 22876]]

    Response: FCIC believes that assigning NCS classifications to 
identified insurable acreage or by practice, type, variety, option, or 
amendment rather than to a person only or to all crop production 
alternatives for the crop is fair and equitable. Where adverse 
insurance experience can be attributed to a specific land location or 
crop production choice, appropriate coverage or rating actions should 
be targeted at those conditions. Therefore, no change will be made.
    Comment: One comment received from FCIC recommended Sec. 400.307 be 
changed to eliminate the reinstatement requirement for persons who are 
removed from the NCS listing after stopping all farm operations and 
then begin farming again at some later time. Such determinations would 
be difficult to make and there was uncertainty about when the 
reinstatement would be effective.
    Response: FCIC agrees that reinstatements may be difficult to 
administer timely. FCIC will amend Sec. 400.307 to state that the 
person will continue to be listed on the NCS list in the county until 
the producer has ceased participation in the crop insurance program as 
a policyholder or person with a substantial beneficial interest in a 
policyholder for as least 10 consecutive crop years. NCS adjustments 
applicable to such persons will remain in effect in accordance with 
Sec. 400.307.
    Comment: One comment received from FCIC recommended language be 
added to Sec. 400.309 referencing applicable appeals regulations issued 
or being developed by the National Appeals Division or FCIC.
    Response: Producers are notified of their selection for NCS 
adjustments and of their rights to reconsideration under Sec. 400.309 
(a) through (d). Once FCIC has completed its appeals procedures, 
producers will be provided with a right to appeal under such 
regulations. Until such time, FCIC will amend Sec. 400.309 to add 
paragraph (e) stating that the producer's rights to appeal will be 
provided under 7 CFR part 11.
    In addition to the changes described above, FCIC has made the 
following changes to this subpart:
    1. Clarified the definition of ``indemnified loss'' by changing 
``total adjusted indemnity'' to ``total indemnity''. Any applicable 
adjustments to indemnities for purposes of this definition are provided 
in the definition of insurance experience.
    2. Clarified the definition of ``insurance experience'' by 
rearranging ``(applicable adjustments)'' and ``(but not including 
replant payments).'' This change will clarify that adjustments may be 
made in premiums, indemnities, and other data but that replant payments 
are not included in indemnities used for NCS selection purposes.
    3. Corrected Sec. 400.305(b) to replace the reference to subpart J 
with 7 CFR part 11.

List of Subjects in 7 CFR Part 400

    Crop insurance, Nonstandard Underwriting Classification System.

Final Rule

    Accordingly, for the reasons set forth in the preamble, the Federal 
Crop Insurance Corporation hereby amends 7 CFR part 400, subpart O, as 
follows:

PART 400--GENERAL ADMINISTRATIVE REGULATIONS

Subpart O--Nonstandard Underwriting Classification System 
Regulations for the 1991 and Succeeding Crop Years

    1. The authority citation for 7 CFR part 400, subpart O, is revised 
to read as follows:

    Authority: 7 U.S.C. 1506(1), 1506(p).

    2. Section 400.301 is revised to read as follows:


Sec. 400.301  Basis, purpose, and applicability.

    The regulations contained in this subpart are issued pursuant to 
the Federal Crop Insurance Act, as amended (7 U.S.C. 1501 et seq.), to 
prescribe the procedures for nonstandard determinations and the 
assignment of assigned yields or premium rates in conformance with the 
intent of section 508 of the Act (7 U.S.C. 1508). These regulations are 
applicable to all policies of insurance insured or reinsured by the 
Corporation under the Act and on those policies where the insurance 
coverage or indemnities are based on determinations applicable to the 
individual insured. These regulations will not be applicable to any 
policy where the amount of coverage or indemnities are based on the 
experience of the area.
    3. Section 400.302 is amended to remove all paragraph designations 
and the definition of ``base period;'' definitions of ``actively 
engaged in farming'' and ``insurance experience'' are revised; and 
definitions of ``earned premium,'' ``indemnified loss,'' ``NCS,'' and 
``NCS base period'' are added to read as follows:


Sec. 400.302  Definitions.

* * * * *
    Actively engaged in farming means a person who, in return for a 
share of profits and losses, makes a contribution to the production of 
an insurable crop in the form of capital, equipment, land, personal 
labor, or personal management.
* * * * *
    Earned premium means premium earned (both the amount subsidized and 
the amount paid by the producer, but excluding any amount of the 
subsidy attributed to the operating and administrative expenses of the 
insurance provider) for a crop under a policy insured or reinsured by 
the Corporation.
* * * * *
    Indemnified loss means a loss applicable for the policy for any 
year during the NCS base period for which the total indemnity exceeds 
the total earned premium. If the person has insurance for the crop in 
more than one county for any crop year, indemnities and premiums will 
be accumulated for all counties for each crop year to determine an 
indemnified loss.
    Insurance experience means earned premiums, indemnities paid (but 
not including replant payments), and other data for the crop (after 
applicable adjustments), resulting from all of the insured's crop 
insurance policies insured or reinsured by the Corporation for one or 
more crop years and will include all information from all counties in 
which the person was insured.
* * * * *
    NCS means nonstandard classification system.
    NCS base period means the 10 consecutive crop years (as defined in 
the crop policy) ending 2 crop years prior to the crop year in which 
the NCS classification becomes effective for all crops, except those 
specified on the Special Provisions. For these excepted crops, the NCS 
base period means the 10 consecutive crop years ending 3 crop years 
prior to the crop year in which the NCS classification becomes 
effective. For example: An NCS classification effective for the 1996 
crop year against a producer of citrus production in Arizona, 
California, and Texas, or sugarcane would have a NCS base period that 
includes the 1984 through 1993 crop years. An NCS classification 
effective for the 1996 crop year against a producer of all other crops 
would have a NCS base period that includes the 1985 through 1994 crop 
years.
* * * * *
    4. Section 400.303 is amended by revising paragraph (a), 
redesignating paragraph (b) as (c) and adding paragraphs (b), (d), and 
(e) to read as follows:

[[Page 22877]]

Sec. 400.303  Initial selection criteria.

    (a) Nonstandard classification procedures in this subpart initially 
apply when all of the following insurance experience criteria 
(including any applicable adjustment in Sec. 400.303(d)) for the crop 
have been met:
    (1) Three (3) or more indemnified losses during the NCS base 
period;
    (2) Cumulative indemnities in the NCS base period that exceed 
cumulative premiums during the same period by at least $500;
    (3) The result of dividing the number of indemnified losses during 
the NCS base period by the number of years premium is earned for that 
period equals .30 or greater; and
    (4) Either of the following apply:
    (i) The natural logarithm of the cumulative earned premium rate 
multiplied by the square root of the cumulative loss ratio equals 2.00 
or greater; or
    (ii) Five (5) or more indemnified losses have occurred during the 
NCS base period and the cumulative loss ratio equals or exceeds 1.50.
    (b) The minimum standards provided in paragraphs (a) (2), (3), and 
(4) of this section may be increased in a specific county if that 
county's overall insurance experience for the crop is substantially 
different from the insurance experience for which the criteria was 
determined. The increased standard will apply until the conditions 
requiring the increase no longer apply. Any change in the standards 
will be contained in the Special Provisions for the crop.
* * * * *
    (d) Insurance experience for the crop will be adjusted, by county 
and crop year, to discount the effect of indemnities caused by 
widespread adverse growing conditions. Adjustments are determined as 
follows:
    (1) Determine the average yield for the county using the annual 
county crop yields for the previous 20 crop years, unless such data is 
not available;
    (2) Determine the normal variability in the average yield for the 
county, expressed as the standard deviation;
    (3) Subtract the result of Sec. 400.303(d)(2) from 
Sec. 400.303(d)(1);
    (4) Divide the annual crop yield for the county for each crop year 
in the NCS base period by the result of Sec. 400.303(d)(3), the result 
of which may not exceed 1.0;
    (5) Subtract the result of Sec. 400.303(d)(4) for each crop year 
from 1.0;
    (6) Multiply the result of Sec. 400.303(d)(5) by the liability for 
the crop year; and
    (7) Subtract the result of Sec. 400.303(d)(6) from any indemnity 
for that crop year.
    (e) FCIC may substitute the crop yields of a comparable crop in 
determining Sec. 400.303(d) (1) and (2), or may adjust the average 
yield or the measurement of normal variability for the county crop, or 
any combination thereof, to account for trends or unusual variations in 
production of the county crop or if the availability of yield and loss 
data for the county crop is limited. Information about how these 
determinations are made is available by submitting a request to the 
FCIC Regional Service Office for the producer's area. Alternate methods 
of determining the effects of adverse growing conditions on insurance 
experience may be implemented by FCIC if allowed in the Special 
Provisions.
    5. Section 400.305 is amended by revising paragraph (b) and the 
introductory text of paragraph (c) to read as follows:


Sec. 400.305  Assignment of Nonstandard Classification.

* * * * *
    (b) Nonstandard classification assignment will be made each year, 
for the year identified on the assignment forms, and are not subject to 
change under the provisions of this subpart by the Corporation for that 
year when included in the actuarial tables for the county, except as a 
result of a request for reconsideration as provided in section 400.309, 
or as the result of appeals under 7 CFR part 11.
    (c) A nonstandard classification may be assigned to identified 
insurable acreage; a person; or to a combination of person and 
identified acreage for a crop or crop practice, type, variety, or crop 
option or amendment whereby:
* * * * *
    6. Section 400.307 is revised to read as follows:


Sec. 400.307  Discontinuance of participation.

    If the person has discontinued participation in the crop insurance 
program, the person will still be included on the NCS list in the 
county until the person has discontinued participation as a 
policyholder or a person with a substantial beneficial interest in a 
policyholder for at least 10 consecutive crop years. The most recent 
nonstandard classification assigned will be continued from year to year 
until participation has been renewed for at least one crop year and at 
least three years of insurance experience have occurred in the current 
base period. A nonstandard classification will no longer be applicable 
to the person or the person on identified acreage if the Corporation 
determines the person is deceased.
    7. Section 400.309 is amended by revising paragraph (a), removing 
paragraph (e), and redesignating paragraph (f) as (e) and revising 
newly redesignated paragraph (e) to read as follows:


Sec. 400.309  Requests for reconsideration.

    (a) Any person to be assigned a nonstandard classification under 
this subpart will be notified of and allowed not less that 30 days from 
the date notice is received to request reconsideration before the 
nonstandard classification becomes effective. The request will be 
considered to have been made when received, in writing, by the 
Corporation.
* * * * *
    (e) Any person not satisfied by a determination of the Corporation 
upon reconsideration may further appeal under the provisions of 7 CFR 
part 11.

    Signed in Washington, DC, on April 23, 1997.
Suzette M. Dittrich,
Deputy Manager, Federal Crop Insurance Corporation.
[FR Doc. 97-10890 Filed 4-25-97; 8:45 am]
BILLING CODE 3410-FA-P