ASI Lloyds Insurance Company v. Texas Windstorm Insurance Association, and the Honorable Cassie Brown, in Her Official Capacity As, Commissioner, Texas Department of Insurance

• Court: Court of Appeals of Texas
• Decided: January 10, 2025
• Docket: 15-24-00083-CV
• Status: Published

Opinion

ACCEPTED 15-24-00083-CV FIFTEENTH COURT OF APPEALS AUSTIN, TEXAS 1/10/2025 11:45 AM No. 15-24-00083-CV CHRISTOPHER A. PRINE CLERK _______________________________________________________________ FILED IN 15th COURT OF APPEALS AUSTIN, TEXAS In the 1/10/2025 11:45:54 AM CHRISTOPHER A. PRINE

Fifteenth Court of Appeals Clerk

_________________________________________________________________ ASI Lloyds Insurance Company, Appellant v. Texas Windstorm Insurance Association and Hon. Cassie Brown in her Official Capacity as Commissioner, Texas Department of Insurance, Appellees __________________________________________________________________ APPELLEE TEXAS WINDSTORM INSURANCE ASSOCIATION’S BRIEF __________________________________________________________________

Michael S. Wilson State Bar No. 21704810 mwilson@perkinslawtx.com Adrienne L. Barclay State Bar No. 24065955 abarclay@perkinslawtx.com PERKINS LAW GROUP PLLC One Far West Plaza, Suite 200 3410 Far West Boulevard Austin, Texas 78731 Telephone: (512) 717-3467 Fax: (512) 551-9895 Counsel for Appellee Texas Windstorm Insurance Association IDENTITY OF PARTIES AND COUNSEL

Appellant/Plaintiff: ASI Lloyds Insurance Company

Appellate Counsel: Wade C. Crosnoe THOMPSON, COE, COUSINS & IRONS, L.L.P. 2801 Via Fortuna, Suite 300 Austin, Texas 78746 (512) 703-5060 Telephone (512) 708-8777 Facsimile wcrosnoe@thompsoncoe.com

Trial and Appellate Counsel: Jay A. Thompson MITCHELL, WILLIAMS, SELIG, GATES & WOODYARD, P.L.L.C. 500 W. 5th St., Suite 1150 Austin, Texas 78701 (512) 480-5104 Telephone jthompson@mwlaw.com

Appellee/Defendant: Texas Windstorm Insurance Association Trial and Appellate Counsel:

Michael S. Wilson State Bar No. 21704810 mwilson@perkinslawtx.com Adrienne L. Barclay State Bar No. 24065955 abarclay@perkinslawtx.com PERKINS LAW GROUP PLLC One Far West Plaza, Suite 200 3410 Far West Boulevard Austin, Texas 78731 (512) 717-3467 Telephone (512) 551-9895 Facsimile

ii Appellee/Defendant: Hon. Cassie Brown, in her official capacity as Commissioner, Texas Department of Insurance

c/o Texas Department of Insurance Chief Clerk Office ChiefClerk@tdi.texas.gov Mail code GC-CCO P.O. Box 12030 Austin, Texas 78711-2030

Appellate Commissioner Counsel:

Ken Paxton Attorney General

Brent Webster First Assistant Attorney General

Aaron L. Nielson Solicitor General

Cory A. Scanlon Assistant Solicitor General Office of the Attorney General of Texas P.O. Box 12548 (MC 059) Austin, Texas 78711-2548 (512) 936-1820 Telephone cory.scanlon@oag.texas.gov

Commissioner Trial Counsel: Terry M. Abernathy, Assistant Attorney General State Bar No. 24062894 terri.abernathy@oag.texas.gov General Litigation Division P.O. Box 12548 Austin, Texas 78711 (512) 936-0562 Telephone

iii Rosalind Hunt, Assistant Attorney General State Bar No. 24067108 rosalind.hunt@oag.texas.gov Administrative Law Division P.O. Box 12548 Austin, Texas 78711 (512) 475-4166 Telephone

iv TABLE OF CONTENTS

IDENTITY OF PARTIES AND COUNSEL ..............................................ii TABLE OF CONTENTS ............................................................................ v INDEX OF AUTHORITIES ...................................................................... vi STATEMENT REGARDING ORAL ARGUMENT………………………..ix

RESPONSIVE ISSUES PRESENTED ..................................................... ix INTRODUCTION ....................................................................................... 1 STATEMENT OF FACTS .......................................................................... 1 SUMMARY OF ARGUMENT .................................................................... 6 ARGUMENT ............................................................................................... 8 I. Rule 5.4162(b) Is A Valid Administrative Rule …………………….…8 A. The Governing Statute…………………………………………..…..…8 B. The Governing Rules……………………………………………….…14 C. ASI Was Assessed In Compliance With The TWIA Act……….…16 D. Rule 5.4162(b) Remains Valid………………..……………………...18 II. The Trial Court’s Jurisdiction………………………………………..…33

CONCLUSION AND PRAYER………………………………………….......39 CERTIFICATE OF COMPLIANCE…………………………………….…...41 CERTIFICATE OF SERVICE……………………………….……………….42 APPENDIX………………………………………….…………………………..44 1. Index of Exhibits in the Administrative Record……………………...44 2. Glossary of Terms………………………………………………………....45 3. 2011 Adopted Rule 5.4162, 36 Tex. Reg. 786-809……….……..…….46 4. 2010 Proposed Rule 5.4162, 35 Tex. Reg. 6611-6630…….…….…….47

v INDEX OF AUTHORITIES

Cases Page(s)

Graff Chevrolet, Inc. v. Tex. Motor Vehicle Bd., 60 S.W.3d 154, 159 (Tex. App.—Austin 2001 pet. denied) ……………………………………….……18

R.R. Comm’n of Tex. v. Torch Operating Co., 912 S.W.2d 790 (Tex. 1995) ……………………………………………………………………….…………..18

TGS-NOPEC Geophysical Co. v. Combs, 340 S.W.3d 432, 438 (Tex. 2011) …………………………………………………………….……………………..13

Heritage on San Gabriel Homeowners Ass’n v. Tex. Comm’n on Env’t Quality, 393 S.W.3d 417, 424-35 (Tex. App.—Austin 2012, pet. den’d.) ………………………………………………………………………………...…13

Railroad Comm’n of Tex. v. Texas Citizens for a Safe Future & Clean Water, 336 S.W.3d 619, 628 (Tex. 2011) …………………………………...20

Tex. Catastrophe Prop. Ins. Ass’n v. Council of Co-Owners of Saida II Towers Condo. Ass’n, 706 S.W2d 644, 645-66 (Tex. 1986) ………...……………………………………………………………….……...…35

Dubai Petroleum Co. v. Kazi, 12 S.W. 3d.71, 76-77 (Tex. 2000) ……35, 36

Mingus v. Wadley, 285 S.W. 1084 (Tex. 1926) ……………………………37

Mosely v. Texas Health and Human Services Commission, 593 S.W.3d 250, 261 fn.3 (Tex. 2019) ……………………………………………………..37

Tex. Windstorm Ins. Ass’n. v. Boys & Girls Club of Coastal Bend, Inc., 2020 WL 6072624 at *5 (Tex. App.—Corpus Christi-Edinburg, 9/24/2020) …………………………………………………………...…………37

Housing & Comm. Servs., Inc. v. Tex. Windstorm Ins. Ass’n., 515 S.W.3d 906, (Tex. App.—Corpus Christi-Edinburg 2017, no pet.) ……………..37

vi Fiess v. State Farm Lloyds, 202 S.W.3d 744, 747-48 (Tex. 2006)………..21

First Am. Title Ins. Co. v. Combs, 258 S.W.3d 627, 632 (Tex. 2008)…….21

Rowden v. Tex. Catastrophe Prop. Ins. Ass’n, 677 S.W.2d 83, 87 (Tex. App. – Corpus Christi 1984, writ ref’d n.r.e.)……………………………...36

Statutes

Tex. Govt. Code Chapter 2001…………………...……………………..31, 36 Tex. Govt. Code §§ 2001.0225 - .034 …………………………..….………..31 Tex. Govt. Code § 2001.035 …………………….………………………........31 Tex. Govt. Code § 2001.038 ………………..……..………………...31, 33, 34 Tex. Govt. Code § 2001.039 …………………….………………………........31 Tex. Govt. Code § 2001.040 …………..………………….……………….….31 Tex. Govt. Code § 2001.051 ………………………....………………..……....5 Tex. Govt. Code § 2001.171 ………….………………....…….…….33, 34, 35 Tex. Govt. Code § 2001.174 …………………………....……………….…...18 Tex. Govt. Code Chap. 2001………………………….………………….....…5 Tex. Govt. Code §§ 311.021 - .022……..……………….……………….11, 13 Tex. Ins. Code § 36.202…..…………………….………….…….33, 34, 35, 36 Tex. Ins. Code § 36.203…………………………….……………33, 34, 35, 36 Tex. Ins. Code § 40.002……………………………………………..……….….5 Tex. Ins. Code Chapter 2210……………………………….……..……passim Tex. Ins. Code § 2210.001…………………………….……………….......2, 28 Tex. Ins. Code § 2210.003……….………………………………….………...11 Tex. Ins. Code § 2210.051(a)…………………………………………...……..2 Tex. Ins. Code § 2210.551……................................…5, 8, 9, 32, 33, 34, 35 Tex. Ins. Code § 2210.572……………………………….……………..…….37 Tex. Ins. Code § 2210.573(a)..………………………….…………………….38 Tex. Ins. Code § 2210.574……………………………….……………………37 Tex. Ins. Code Chap. 2210………………………………………………...…...1 Tex. Ins. Code § 2210.009(b)……….………….…………….…….……7, 8, 29 Tex. Ins. Code § 2210.052……………………………………………………….. ………..…1, 3, 4, 6, 7, 8, 9, 10, 11, 12, 14, 16, 17, 18, 19, 20, 21, 22, 24, 26 Tex. Ins. Code § 2210.052(a).……………….……………7, 11, 12, 19, 20, 23

vii Tex. Ins. Code § 2210.052(b)………………………..………………………..30 Tex. Ins. Code § 2210.052(c)…………………………….…………..12, 18, 19 Tex. Ins. Code § 2210.052(d)……………………………………………7, 8, 27 Tex. Ins. Code § 2210.053(b)……………………..….…………..…..…7, 8, 29 Tex. Ins. Code § 2210.071(b)……………………………………….………..12 Tex. Ins. Code §§ 2210.071 – 2210.075…………………...…………3, 11, 12 Tex. Ins. Code §§ 2210.601 – 2210.620………………………….…………...3 Tex. Ins. Code § 2210.701……….……………………...…….……..….7, 8, 29 Tex. Ins. Code § 2210.074………………………………………………………3 Tex. Ins. Code § 2210.0725…………………………..3, 7, 8, 9, 13, 19, 21, 22 Tex. Ins. Code § 2210.0725(b)…………………………………...……7, 11, 12 Tex. Ins. Code § 2210.0742.….………………………………………..........…3

Rules

1 Tex. Admin. Code §155.505…………………………………………………5 28 Tex. Admin. Code § 5.4001(c)(2)(B)…………………………23, 25, 29, 39 28 Tex. Admin. Code Sec. 5.4161 – 5.4167………………………….…14, 23 28 Tex. Admin. Code § 5.4162……………………….……………………….. ……………………….v, ix, 6, 7, 8, 10, 14, 21, 22, 23, 24, 25, 26, 38, 46, 47 28 Tex. Admin. Code § 5.4162(b)&(c)……...………………..7, 8, 14, 16, 17 28 Tex. Admin. Code § 5.4162(b)……………………………………..………. ………………………………….v., 1, 8, 12, 14, 18, 19, 20, 21, 22, 24, 33, 34

Orders Official Order No. 2023-7903 ………………………..……………………..…5 Official Order No. 2023-8073…………..……………………………………...5

Texas Register 35 Tex. Reg. 6621………………………..………………….…………………22 35 Tex. Reg. 6611-6630………………………..……………………..…v., 6, 47 36 Tex. Reg. 786-809………………………..……………………….…v., 6, 46 46 Tex. Reg. 3740-3742……………………………..............……….………31

viii STATEMENT REGARDING ORAL ARGUMENT

The appeal involves questions of law, not fact. Appellee believes

this case can be decided on the briefs based on clear statutory authority,

and oral argument is not warranted. To the extent the Court feels oral

argument would aid in its resolution of this appeal, Appellee would

appreciate the opportunity to present its case.

RESPONSIVE ISSUES PRESENTED

I. Is Rule 5.4162 a valid rule of the Texas Department of Insurance

(the “Department”) and a reasonable construction that does not

contradict the plain language of the TWIA Act, specifically Tex.

Ins. Code §§ 2210.052, 2210.0725.

II. Does ASI’s cause of action go beyond subject matter jurisdiction

and exclusive remedies of the TWIA Act, Tex. Ins. Code §

2210.551(b), by seeking declaration of a money judgment against

TWIA as a “refund” of assessment.

ix INTRODUCTION

Texas Insurance Code Section 2210.052 remains the primary

authority requiring use of “preceding calendar year premiums” to

determine each member’s percentage of participation (POP) for

assessments, annually in the manner provided in the TWIA plan of

operation. The funding scheme for member assessments has changed

multiple times from 2007 to present; however, every formulation,

including 2011 and 2015 amendments, has expressly incorporated

Section 2210.052 as the method of determining each insurer’s

participation in assessments using “preceding calendar year premiums”,

not statically set to “catastrophe year” premiums as urged by Appellant

ASI. Annually variable participation based on preceding calendar year

premiums is statutorily required and properly reflected in Rule

5.4162(b).

STATEMENT OF FACTS

TWIA

The Association is a quasi-governmental entity that exists under

Tex. Ins. Code Chap. 2210, the Texas Windstorm Insurance Association

Act. (AR 0384-0437, Exh. 69) By legislative mandate, TWIA is an insurer 1 of last resort for the “seacoast territory”. Tex. Ins. Code §§ 2210.001, .003.

The Association was originally created in the form of the Texas

Catastrophe Property Insurance Association (“TCPIA”) in 1971 (AR 0955,

0964, 1014, 1028, 1093, 1107, 1230, 0384, Exhs. 59, 60, 62, 63, 65, 65A,

67A, 69) and has existed under rules of the Texas Department of

Insurance, including the Plan of Operation. (AR 0993, 1051, 1129, 1300,

Exhs. 61, 64, 66, 68)

The Association is composed of all insurers authorized to engage in

the business of property insurance in this state, with few exceptions. Tex.

Ins. Code § 2210.051(a). ASI is a member. (AR 464-475, Exh. 1)

Assessments

TWIA writes windstorm and hail insurance in the “catastrophe

area”, which consists of designated counties along the Texas Gulf Coast

and parts of Harris County, where policyholders are unable to obtain that

coverage in the private market. Tex. Ins. Code § 2210.001. If TWIA

incurs insured losses and operating expenses in excess of premium and

other revenue, member insurers are required to participate in those

excess losses within the funding scheme set up by the TWIA Act,

generally in the following order:

2 • TWIA premiums and other revenue • The Catastrophe Reserve Trust Fu nd (CRTF), an account held by the Comptroller containing the net gains from TWIA o_perat ions from prior years • $500 m ill io n in Class 1 public securities • $500 million in Class 1 company assessments • $250 mj llion in Class 2 public securities • $250 million in Class 2 company assessments • $250 m ill ion in Class 3 public securities • $250 m illion in Class 3 company assessments Tex. Ins. Code §§ 2210.052, 2210.071 – 2210.075, 2210.601 – 2210.620 (AR 0476, 0384, Exhs. 2, 69)

Members participate in excess losses through Class 1, Class 2, and

Class 3 assessments. Tex. Ins. Code §§ 2210.052, 2210.0725, 2210.074,

2210.0742 (AR 0384, Exh. 69) ASI’s appeal involves a Class 1 assessment

made by TWIA with Commissioner approval under §§ 2210.0725 and

2210.052. (AR 0727, 0700, Exhs. 49, 45) It was a third assessment

totaling $90,000,000 to members for excess losses from 2017 Hurricane

Harvey that ASI appealed. (AR 0464, Exh. 1) The first and second

assessments issued to members on 6/05/2018 (AR 0554, Exh. 15) and

8/29/2018 (AR 0582, Exh. 19) were not appealed. (AR 0465-0467, TWIA

Exh. 1)

ASI does not appeal any aspect of the assessment other than the use

of 2019 or 2020 participation percentages in the computation, as opposed

to ASI’s 2017 participation percentage. If TWIA had used ASI’s 2017

participation percentages, ASI’s proportionate share of the $90,000,000

3 assessment would have been less than what it paid using the 2019

participation percentage. (AR 0465-0467, Exh. 1; compare Exh. 11 to

Exhs. 41 and 45, AR 0538 to AR 0684, 0700)

Funding History

Appellant’s Statement of Facts focuses largely on legislative changes

to the sources and order of funding over 50 years but obscures the most

important facet that remained the same. From 1971 through present

each member’s percentage of participation in assessments has been

determined annually based on the member’s proportionate share of prior

calendar year premiums, regardless of when the assessment is made. (AR

0958, Exh. 59; AR 1016-1017, Exh. 62; AR 1033, Exh. 63; AR 1097, 1105,

Exh. 65; AR 1114, 1125, Exh. 65A; AR 1238, 1241-1242, Exh. 67A; AR

0392, 0395-0396, Exh. 69) Variable participation in assessments based

on preceding calendar year premiums was codified in 2005 under Texas

Insurance Code § 2210.052 and remains the law. (AR 0392, 0395-0396,

Exh. 69)

Appeal

Notices of assessment are an “act, ruling, or decision of the

association.” Following a contested case hearing and proposal for

4 decision in the State Office of Administrative Proceedings, the

Commissioner is required to “affirm, reverse, or modify … the act, ruling,

or decision appealed to the commissioner.” Tex. Ins. Code § 2210.551(f);

Tex. Govt. Code Chap. 2001, Subchapter C., §§ 2001.051 et. seq., 2003;

Tex. Ins. Code §§ 40.002, 2210.551.

The Administrative Law Judge issued a Proposal for Decision

granting summary disposition in favor of the Association under Rules

155.505, .507, SOAH Rules of Procedure. (AR 1969) The Commissioner’s

order adopted the ALJ’s Findings of Fact and Conclusions of Law, denied

ASI’s appeal in Order No. 2023-7903, and denied ASI’s motion for

rehearing in Order No. 2023-8073. (AR 2018, 2108)

The Hon. Jan Soifer, Presiding Judge of the 345th Judicial District

Court of Travis County, Texas conducted judicial review and signed an

order on 6/18/2024 affirming the Commissioner’s Order, denying

jurisdictional pleas, and denying all relief not expressly granted. (CR

534-35; Appellant Appx. A)

Administrative Record

The Administrative Record is in Joint Exhibit 1 and includes the

parties’ stipulations (AR 0464-467, 470-473, TWIA Exh. 1), the admitted

5 exhibits (AR 0476 - 0704, 0745, Exhs. 2 through 46, 51), the additional

documentary exhibits (AR 1443 – 1865, Exhs. 74 through 80), and SOAH

filings, which include legal authorities (AR 0955-1150, 0203-0246, 1195-

1413, 0361-0450, 0872-0954, 1443-1613, 1719-1781, 1838-1865, TWIA

Exhs. 59-73, and 75) The Administrative Record was forwarded to this

court on a thumb drive as part of the Reporter’s Record. (RR 6-7, CR 534-

537)

An Index of Exhibits in the Administrative Record (CR 409-

410), a Glossary of Terms (CR 411), 2011 Adopted Rule 5.4162, 36

Tex. Reg. 786-809 (AR 203-226), and 2010 Proposed Rule 5.4162, 35

Tex. Reg. 6611-6630 (AR 227-246) are included in TWIA’s Appendix at

the end of this brief.

SUMMARY OF ARGUMENT

The District Court’s final judgment against Appellant ASI is

compliant with applicable law and supported by substantial evidence in

the Administrative Record. While the Legislature has repeatedly

changed the usage and attachment points of member assessments among

the mix of other funding sources, member participation percentages

continue to be specified “for the year under Section 2210.052” based on

6 “preceding calendar year” premiums. Tex. Ins. Code §§ 2210.052(a),

.0725(b). (AR 1233, 1238, 1241-1242, Exh. 67A)

The subject rule, 28 Tex. Admin. Code § 5.4162, is valid and stated

in the Department’s adoption order to be based on Tex. Ins. Code §

2210.052. (AR 0220, Exh. 66A) The rule was justified as a redesignation

of the already existing Rule 5.4001(c)(2) of the plan of operation to make

the Association’s assessment procedure more accessible. (AR 0203-204,

Exh. 66A)

Rule 5.4162(b),(c) is a reasonable interpretation of Tex. Ins. Code §

2210.052 which the Legislature stipulated as the method of allocating

assessments under Tex. Ins. Code § 2210.0725(b). The rule and code

further a long-standing comprehensive and unified scheme of

incentivizing members to voluntarily write wind and hail insurance in

the catastrophe area. Tex. Ins. Code §§ 2210.009(b), 2210.052(d),

2210.053(b), 2210.701.

Member participation percentages in assessments vary annually

based on the member’s “preceding calendar year” premiums, not

statically set to the “catastrophe year.” Tex. Ins. Code §§ 2210.052(d),

2210.0725. Because members receive credit for premiums voluntarily

7 written in the catastrophe area, members like ASI can reduce their

assessments after a major storm by increasing their voluntary writings

of windstorm and hail insurance. 28 TAC § 5.4162; Tex. Ins. Code §§

2210.009(b), 2210.052(d), 2210.0725, 2210.053(b), 2210.701. (AR 1347-

50, Exh. 68; AR 390, 392, 395, 396, 436, Exh. 69)

The trial court correctly affirmed the Commissioner’s order

upholding Rule 5.4162(b) and the assessment as a matter of law. If the

court were to find otherwise, Appellant’s request for declaration of a

money judgment against TWIA as a “refund” of the assessment was

abandoned in the trial court (CR 203) and, in any event, beyond subject

matter jurisdiction and exclusive remedies of appeal of TWIA’s “act,

ruling, or decision” under Tex. Ins. Code § 2210.551(b).

ARGUMENT

I. Rule 5.4162(b) Is A Valid Administrative Rule

28 Tex. Admin. Code Sec. 5.4162(b)&(c) is a valid rule, consistent with

the TWIA Act.

A. The Governing Statute

The governing law at the time of assessment includes Tex. Ins. Code

§§ 2210.052, .0725, .071, and .003(3-b):

8 § 2210.003. General Definitions § 2210.052. Member Participation in Association In this chapter, unless the context clearly indicates (a) Each member of the association shall participate otherwise: in insured losses and operating expenses of the asso<:i- … ation, in excess of premium and other revenue or the (3-b) "Catas1.rophe year' means a calendar year association, in the proportion that the net direct 1>re- in which an occurrence or a series of occurrences miums of that member during the preceding calendar results in insured losses, regardless of when the year bears to the aggregate net direct premiums by insured losses are ultimately paid. all members of the association, a.~ determined using … the information provided under Subsection (b). SUBCHAPTER B-1. PAYMEt-.7' OF LOSSES (b) The department shall review annual statements, other reports, and other statistics that the department § 2210.071. Payment of Excess LoJlses considers necessary t.o obtain the information required f, in a cata.strophe year, an occurrence or series of under Subsection (a) and shall provide that informa- occutn?nccs in a catastro~he area n,--sult!-= in insured tion to the association. The department is entitled to losse and operating expenses of the association in obtain the annual statemen~. other reports, and other excess of premium and other revenue of the 111;socia- statistics from any member of the association. tion. the excess losses and operating expenses shall be paid as provided by this subchapter. (c) Each member's participation in the association shall be determined annually in the manner provided … by the plan of operation. For ]lUTJ)05es of determin- § 2210.0725. Payment from Class 1 As.'!eSsmcnls ing participation in the n.'!Sociation, two or more mem- (a) ~ s in a catastrophe yea~ not paid under bers that are subject to common ownership or that Sections 2210.0716 and 2210.072 shall be paid as pro- operate in this state under common management or vided by this S<.>etion from Class 1 member asse,ss- control shall be treated as a slngle member. The ments not to exceed $500 million for that catastrophe determination shall also include the net direct premi- year. ums of an affiliate that is under that common manage- (b) The association, with the approval of the com- ment or control, including an afliliate that is not missioner, shall notify each member of the amount of :iuthotir.ed to engage in Uie business of property the member's as.5e5Sment under this section. h insurance in this state. (d) Notwithstanding Subsection (a), a member, in roporlion of the losses alloeaLle to each insurer aCC!ordance with the plan of operation, is entitled to under thi~ -seccion .shall be determined in the manne receive credit for similar insurance voluntarily written scd to determine each insurer's participation ilJ..Y!s in areas designated by the commissioner. The mem- association for t.hc year under &,ction 2210.052 ber's participation in the insured losses and operating … expenses of the association in excess of premium and other revenue of the association shall be reduced in accordance ,vith the plan of operation. … (AR 0387, 0392, 0394-0396, Exh. 69)

After the 2015 adoption of assessments under Section 2210.0725, the

TWIA Act continued to employ “preceding calendar year” premiums to

allocate percentages of participation in losses by reference to § 2210.052.

(AR 1233, 1238, 1241-1242, Exh. 67A)

9 The same statutory method of allocating member participation by

reference to § 2210.052 was also in place when Rule 5.4162 was adopted

in February 2011, even though the sources and order of funding were

different:

SUBCHAPTER B-1. PAYMENT OF LOSSES § 2210.052. Member Participation in Association

§ 2210.071. Payment Of Excess Losses; Payment (a) Each member of the association shall participate From Reserves And Trust Fund in insured losses and operating expenses of the associ- ation, in excess of premium and other revenue of the (a) If an occurrence or series of occurrences in a association, in the proportion that the net direct pre- ca~~li~ area results in insured losses and operat,. miums of that member during the preceding calendar mg expenses of the association in excess of premium year bears to the aggregate net direct premiums by and other reveµ,ue of the association, the excess losses all members of the association, as determined using and operating expenses shall be paid as provided by the information provided under Subsection (b). this subchapter. (b) The department shall review annual statements, § 2210.073. Paymemt From Class 2 P ublic Securi- other reports, and other statistics that the department ties considers necessary to obtain the information required (a) losses not paid under Sections 2210.071 anq under Subsection (a) and shall provide that informa- ?210.072 shall be paid as provided by this section from tion to the association. The department is entitled to proceeds from Class 2 public securities authoriwd to obtain the annual statements, other reports, and other be issued in accordance with Subchapter M on or after statistics from any member of the association. the date of any occurrence that resulu; in insur~ (c) Each member's participation in the association losses under this subsection. Public securities issued shall be determined annually in the manner provided under this section must be repaid within a period not by the plan of operation. For purposes of determin- to exceed 10 years, and may be repaid sooner if the ing participation in the association, two or more mem- board of directors elects to do so and the commission- bers that are subject to common ownership or that er approves. operate in this state under common management or § 2210.613. Payment Of Class 2 Public Securities control shall be treated as a single member. The determination shall also include the net direct premi- (a) The association shall pay Class 2 public securi- ums of an a.fftliate that is under that co=on manage- ties issued under Section 2210.073 as provided by this ment or control, including an affiliate that ls not section. _Jl'hirty percent of the cost of the public authorized to engage in the business of property securities 3hall be paid through member assessmencl ~s provided b this section. The association shall insurance in this state. notify each member of the association of the amount (d) Notwithstanding Subsection (a), a member, in of the member's assessment under this section:_Jl'he accordance "'ith the plan of operation, is entitled to frop<>rtion of the losses allocable to each insurer: receive credit for similar insurance voluntarily written under this section shall be de:ermined in the manner'. in areas designated by the commissioner. The mem- used to determine each insurer's participation in the ber's participation in the insured losses and operating , ociation for the year under Section 2210.052. !A expenses of the association in excess of premium and member o~ the association may not recoup an assess- other revenue of the association shall be reduced in ment paid under this subsection through a premium accordance with the plan of operation. surcharge or tax credit. … (AR 1097, 1099, 1105, Exh. 65)

10 Code Construction Act. If the Legislature intended to allocate

member participation percentage based on premiums in the “catastrophe

year,” it would have used that defined term in place of the phrase

“preceding calendar year” in Tex. Ins. Code § 2210.052(a). See Tex. Govt.

Code §§ 311.011, .021.

ASI’s argument that participation percentages should be fixed in the

“catastrophe year” conflates the terms “catastrophe year” and “calendar

year”. However, the Legislature clearly distinguished the two, each

having technical meaning. In the TWIA Act, the phrase “catastrophe

year” is used for aggregation of losses under Section 2210.071 and the

phrase “preceding calendar year” is used for allocating member

percentages of participation in losses based on premiums in Section

2210.052(a). Tex. Ins. Code §§ 2210.003(3-b); 2210.052, .071, .0725 (AR

1233, 1238, 1241-1242, Exh. 67A)

ASI’s construction is contrary to the Code Construction Act. Tex.

Govt. Code § 311.011 requires words and phrases to be read in context,

and that words and phrases having acquired a technical or particular

meaning be construed accordingly. Tex. Ins. Code § 2210.0725(b)

expressly requires that the proportion of losses allocable to each insurer

11 “shall be determined in the manner used to determine each insurer’s

participation in the association for the year under Section 2210.052”.

Section 2210.052(a) specifies percentage of participation based on each

member’s “preceding calendar year” premiums, determined annually

under § 2210.052(c). Both sections use the term “shall”, which imposes a

duty under Tex. Govt. Code § 311.016.

A plain, unstrained reading of the TWIA Act shows that Section

2210.052 sets participation percentages annually based on “preceding

calendar year” premiums, not the “catastrophe year”. There is no

ambiguity when Tex. Ins. Code § 2210.0725(b) is read, as expressly

required, in connection with § 2210.052(a) and (c). Rule 5.4162(b) is

consistent with the plain meaning of § 2210.052.

Texas Insurance Code § 2210.071(b) prohibits paying insured losses

and operating expenses in a catastrophe year with “premium and other

revenue earned in a subsequent year”. However, assessments are not

“premium and other revenue earned”. Assessments, public securities,

the catastrophe reserve trust fund, and reinsurance are funding sources

provided in Subchapter B-1 (Tex. Ins. Code §§ 2210.071 - .075) when

there are losses in excess of “premium and other revenue”. The definition

12 of “catastrophe year” contemplates that excess losses allocated to the

catastrophe year may be paid in subsequent calendar years.

Assessments in 2018, 2019 and 2020 were all for excess losses of the 2017

“catastrophe year”, consistent with Section 2210.0725. (AR 0395, 0548-

0592, 0690-0708, Exhs. 69, 13-20, 43-46)

For purposes of determining ambiguity, statutes and administrative

rules are construed in the same manner, using traditional principles of

statutory construction. TGS-NOPEC Geophysical Co. v. Combs, 340

S.W.3d 432, 438 (Tex. 2011); Heritage on San Gabriel Homeowners Ass’n

v. Tex. Comm’n on Env’t Quality, 393 S.W.3d 417, 424-35 (Tex. App.—

Austin 2012, pet. denied.); see Tex. Govt Code §§ 311.021-.022. In TGS-

NOPEC, the Supreme Court summarized the law,

When construing a statute, our primary objective is to ascertain and give effect to the Legislature's intent. To discern that intent, we begin with the statute's words. If a statute uses a term with a particular meaning or assigns a particular meaning to a term, we are bound by the statutory usage. Undefined terms in a statute are typically given their ordinary meaning, but if a different or more precise definition is apparent from the term's use in the context of the statute, we apply that meaning. And if a statute is unambiguous, we adopt the interpretation supported by its plain language unless such an interpretation would lead to absurd results. We further consider statutes as a whole rather than their isolated provisions. We presume that the Legislature chooses a statute's language with

13 care, including each word chosen for a purpose, while purposefully omitting words not chosen. (citations omitted)

Id. at 439.

B. The Governing Rules

At the time of the assessment, the Department’s Rule 5.4162 remained

part of the plan of operation and authorized by Tex. Ins. Code §§

2210.052, .0725. The Rule states, in relevant part: 1

§5.4161. Member Assessments. (a) The association, with the approval of the commissioner, must assess members as provided by Insurance Code Chapter 2210. … U) This section and §§5.4162 - 5.4167 of this division (relat- ing to Amount of Assessment; Notice of Assessment; Payment of As- sessment; Failure to Pay Assessment; Contest After Payment of As- sessment; and Inability to Pay Assessment by Reason of Insolvency, respectively) are a part of the association's plan of operation and will control over any conflicting provision in §5 .400 I of this subchapter (re- lating to Plan of Operation).

·5.4.162. •mai11nt o . s s. m nr. … (b) This detem1ination sha ll be compute-d 011 a calendar year basis for the year in which the assessment is made. This detem1inati mi shall not be based on the. year iJ1 which the. catastrop hic event oc-cWTe•d, except for an assessment rn ade during that year. Net dir,ect pr,erniums shall be deterrniJ1ed as provided under §5.4001 of this sub chapter (re- lating to Pl an of Operation). (c) The desiguate,d mem bers ofth•e Association sha ll partici- pate in any assessment levie,d in the proportion that the net d.ire-c.t pre- miums of such member ,vritten iJ1 this state during the pmceding cal- endar year bears to the aggregate net di.met premiums written iJ1 this

1 TWIA is citing to the rules in effect at the time of the assessment. 28 Tex. Admin Code Sec. 5.4162(b) and (c) were amended in December 2020 with “nonsubstantive stylistic edits” and “to aid in readability”. Section 5.4161(j) was moved to Section 5.4160. (AR 1731, 1732, 1768, 1772, Exh. 75) 14 state by all members of the Association as furnished to the Association by the department after review -o f annual statements, other reports, and required statistics; provided, however, that if at the time ofsuch assess- ment the department has not furnished to the Association information necessary to compute a member's participation during the preceding calendar year, then each member's participation shall be based upon information furnished to the Association from the lasit calendar year in which such information is available and, u_pon obtainfo_g the necessa:Y information fro m the department, the Association shall reassess or re- fund to each member such amounts as are necessary to properly reflect such member's part.ic ipation; provided, further, that a member shall be entitled to receive the following credit for insurance, similar to catas- trophe insurance, written in such catastrophe areas. … § 5.4001. Plan of Operation … (c) Financial Operation of the Association. … (2) Assessment of members. … (B) Amount of assessment. The board of directors shall determine which members of the association shall participate in any assessment for operating expenses and/or catastrophe losses. This determina- tion shall be computed on a calendar year basis. The designated members of the association shall partici- pate in any assessment levied in the proportion that the net direct premiums of such member written in this state during the preceding calendar year bears to the aggregate net direct premiums written in this state by all members of the association as furnished to the association by the Department after review of annual statements, other reports, and required sta- tistics; provided, however, that if at the time of such assessment the Department has not furnished to the association information necessary to compute a mem- ber's participation during the preceding calendar year, then each member's participation sh~I . be based upon information furnished to the assoc1auon from the last calendar year in which such informa- tion is available and, upon obtaining the necessary information from the Department, the association shall reassess or refund to each member such amounts as are necessary to properly reflect such member's participation; provided, further, that a member shall be entitled to receive the following credit for insurance, similar to catastrophe insur- ance. written in such catastr ophe areas. (AR 1410-1411, Exh. 68A; AR 0221-0222, Exh. 66A; AR 1131-1132, Exh. 66) 15 C. ASI Was Assessed in Compliance With The TWIA Act

2020 Assessment. In accordance with the Tex. Ins. Code §§

2210.052, .0725, and Rule 5.4162(b)&(c), TWIA used the “catastrophe

year” for aggregation of losses and used “preceding calendar year”

premiums for allocating member percentages of participation in losses on

the 2020 assessment. (AR 1233, 1238, 1241-1242, Exh. 67A)

The rule and code unambiguously require TWIA to compute

assessments on a calendar year basis for the year in which the

assessment is made using each member’s participation percentage for

that year. The participation percentage is based on each member’s net

direct premiums for the preceding calendar year. If the preceding

calendar year’s premium information has not been furnished, TWIA is

required to compute each member’s participation percentage from the

last year in which premium information is available. Upon receiving the

preceding year’s premium information, TWIA is required to reassess or

refund to each member such amounts necessary to properly reflect the

member’s participation for the year of assessment. (AR 0392, 395-396,

Exhs. 68A, 69) At the time that the third assessment was issued to ASI

in February 2020, calendar year 2018 was the last year for which

16 premium information was provided by the Department. (AR 0673, Exh.

37)

Accordingly, TWIA calculated 2019 participation percentages using

2018 premium information (AR 0684, Exh. 41) and assessed members

using the 2019 participation percentages. (AR 0700, Exh. 45) Members

were notified that when 2020 participation percentages were available

using 2019 premium information, TWIA would recalculate and either

reassess or refund to members the amounts necessary to reflect each

member’s 2020 participation. (AR 0700, Exh. 45)

ASI conceded that TWIA has issued the assessment using the 2019

participation percentage in accordance with Rule 5.4162(b)&(c), and that

a reassessment using the 2020 participation percentage also complies

with the rule. (AR 0465-467, 470-473, Exh. 1) Its appeal is based on the

contention that the rule itself is not authorized due to 2015 funding

changes through SB 900. (AR 1195, Exh. 67) However, nothing in Tex.

Ins. Code § 2210.052 changed since 2009. (AR 0392, Exh. 69) The TWIA

Act still requires annual determination of member participation in excess

losses on a proportionate basis using the “preceding calendar year”

premiums.

17 D. Rule 5.4162(b) Remains Valid

Judicial review is based on the record as a whole and applicable law.

Graff Chevrolet, Inc. v. Tex. Motor Vehicle Bd., 60 S.W.3d 154, 159 (Tex.

App.—Austin 2001 pet. denied) (reviewing court determines whether

agency’s findings, inferences, conclusions, and decisions are supported by

substantial evidence considering the reliable and probative evidence in

the record as a whole under Tex. Govt. Code § 2001.174); see also R.R.

Comm’n of Tex. v. Torch Operating Co., 912 S.W.2d 790 (Tex. 1995).

Based on a deferential standard of review, the Commissioner’s decision

must be upheld if there is some reasonable basis in the record for the

decision.

Plan of Operation. The Association does not believe Tex. Ins. Code

§ 2210.052 is ambiguous. However, if Section 2210.052 is subject to

multiple understandings, the Department’s construction in Rule

5.4162(b) resolves any ambiguity by requiring the determination of

member participation in an assessment to be computed on a calendar

year basis. In Section 2210.052(c), the Legislature authorized

participation to be “determined annually in the manner provided by the

18 plan of operation”. The Legislature expressly deferred to the Department

to determine the manner of participation, and the ALJ properly

recognized this in the Proposal for Decision, which was adopted by the

Commissioner. (CR 32, 45) Rule 5.4162(b) does not contradict the plain

language of Tex. Ins. Code §§ 2210.052, 2210.0725, or any other provision

of the TWIA Act. (AR 1347-1348, Exh. 68)

The ALJ wrote in the “Analysis” section of the Proposal for Decision

that the “Code does not state which calendar year POP should be used if

an assessment is necessary”. (CR 44) This was immediately followed

with quotes from Section 2210.052(a) which require participation “in the

proportion that the net direct premiums of that member during the

preceding calendar year bears to the aggregate net direct premiums by

all members … determined annually in the manner provided by the Plan

of Operation”. (CR 44) The ALJ did not issue findings of fact or

conclusions of law that the Code was ambiguous (AR 46-54) and did not

need to because § 2210.052(c) requires that “participation in the

association shall be determined annually in the manner provided by the

19 plan of operation”. 2 (CR 44) The ALJ wrote that “the Code does delegate

POP determination to the Department to establish in the Plan of

Operation. Therefore, deference to Department’s interpretation in

enacting Rule 5.41652(b) is appropriate so long as it is not “inconsistent

with the expression of the lawmakers’ intent”. (CR 45-46) The ALJ

disagreed that the funding language of Chapter 2210 is inconsistent with

Rule 5.4162(b) and explained that “Code § 2210.052(a) requires members

to participate in insured losses using the POP for the calendar year. Rule

5.4162(b) is a reasonable interpretation of the statutory funding scheme

set forth in Code §§ 2210.052 and .0725.” (CR 46) This analysis is

reflected in the ALJ’s Conclusions of Law and adopted by the

Commissioner. (CR 53-54, 32)

In Railroad Comm’n of Tex. v. Texas Citizens for a Safe Future &

Clean Water, 336 S.W.3d 619, 628 (Tex. 2011), the Texas Supreme

Court recognized deference to an agency’s formal regulation

containing a reasonable interpretation of an ambiguous statute. The

Department’s construction is reasonable, in harmony with the statute,

2 The Commissioner’s rule-making authority for implementation of the TWIA Act is further expressed in Tex. Ins. Code Secs. 2210.008 and 2210.151. (AR 0389, 0401, Exh. 69) 20 and is entitled to deference even if the statute in question could

reasonably be understood otherwise.

“The greater deficit in Texas Citizens’ arguments, though, is that while Texas Citizens’ position has some merit, the Commission’s interpretation does too. It is precisely when a statutory term is subject to multiple understandings that we should defer to an agency’s reasonable interpretation. … Because we only require an agency’s interpretation of a statute it is charged with administering to be reasonable and in accord with the statute’s plain language, we need not consider whether the Commission’s construction is the only - or the best - interpretation in order to warrant our deference.”

Id. (citing Fiess v. State Farm Lloyds, 202 S.W.3d 744, 747-48 (Tex. 2006)).

The Code Construction Act authorizes the court to consider the

Department’s “administrative construction of the statute”, whether or

not the statute is considered ambiguous on its face. Tex. Govt. Code §

311.023(6). The Department’s interpretation of the statute within Rule

5.4162 is entitled to “serious consideration.” Id. at 626 (citing First Am.

Title Ins. Co. v. Combs, 258 S.W.3d 627, 632 (Tex. 2008)).

Rule 5.4162(b) is in accord with Tex. Ins. Code § 2210.052, 2210.0725,

as highlighted above. However, Appellant argues a red herring that the

2011 adopted Rule 5.4162(b) could not have been an interpretation of

Code § 2210.0725 which was only adopted in 2015. This ignores the fact

21 that the 2011 Rule 5.4162(b) is an interpretation of Section 2210.052, and

the Legislature chose to incorporate Section 2210.052 into Section

2210.0725 as the method of apportioning assessments in 2015. (AR 1241-

1242, Exh. 67A)

Reasoned Justification: Appellant incorrectly asserts that

nothing shows Rule 5.4162(b) is interpreting Code § 2210.052. The 2010

proposed rule expressly cites to § 2210.052 as statutory authority for the

rule and provides an explanation as follows:

STATUTORY AUTHORITY. The sections are proposed un- der the Insurance Code §§2210.008, 2210.052, 2210.053, 2210.071 , 2210 .072, 2210.073, 2210.074, 2210.151 , 2210.152, 2210.609, 2210.613, 2210.6135, and 36 .001 . Section 2210.00B(b) authorizes the Commissioner to adopt reasonable and necessary rules in the manner prescribed in Subchapter A, Chapter 36, Insurance Code . The Insurance Code §2210.052(a) requires that a member company share in the losses and/or expenses of the Association based on the proportion that the net direct premiums of that member duri ng the preceding calendar year bears to the aggregate net direct premiums by all members of the Association . Under the Insurance Code §2210.052(c), a member company's share of the losses and/or expenses of the Association is requi red to be determined annually and in the manner provided by the plan of operation . In the determination of a member company's share of the losses and/or expenses of the Association, the Insurance Code §2210.052(d) specifies that members are entitled to a credit for insurance voluntarily written in the catastrophe areas. The Insurance Code §2210.052(d)

(AR 0237, Exh. 66B, 35 Tex. Reg. 6621)

The 2011 adoption order for Rule 5.4162 similarly cites to Code §

2210.052. (AR 0220, 0205, Exh. 66A)

In its “Reasoned Justification” for Rule 5.4162, the Department

explained that it redesignated the existing § 5.4001(c)(2) of the Plan of 22 Operation to make the Association’s assessment procedure more

accessible. (AR 0203-204, Exh. 66A; AR 0228, Exh. 66B) The

Department wrote that the “[p]roposed Rule 5.4162 reflects existing

§5.4001(c)(2)(B) of this subchapter, which it would control over”, and that

Sections 5.4161 – 5.4167 will continue to be considered part of the Plan

of Operation. (AR 0229, Exh. 66B) The adoption order states § 5.4162

becomes part of the Association’s plan of operation. (AR 0204, Exh. 66A)

Appellant included excerpts of the proposed and adopted rules in its

Appendix; however, ASI’s highlighting in Appendices E and F focuses on

public securities while missing the Department’s further justification

based on redesignation of already existing § 5.4001(c)(2) of the Plan of

Operation, non-substantive updates, making the rule more accessible,

incentivizing insurers to voluntarily write wind and hail insurance in the

catastrophe area, and discussing the role of Tex. Ins. Code §

2210.052(a),(c) in statutory authority for the Rule. These justifications

and authorities are highlighted in a complete copy of the adopted and

proposed rules in TWIA’s Appendices 3 and 4 (AR 203-226, 227-246,

Exhs. 66A, 66B)

Like Rule 5.4162, 28 Tex. Admin. Code Section 5.4001(c)(2) requires

23 all members to participate in any assessment “in the proportion that the

net direct premiums of such member written in this state during the

preceding calendar year bears to the aggregate net direct premium

written in this state by all members of the association”; to compute a

member’s participation based on the last calendar year in which such

information is available; and to reassess or refund to the member upon

obtaining the preceding calendar year’s information from the

Department. (AR 1056, Exh. 64)

The 2008 adoption order for Section 5.4001(c)(2) discusses the basis

for the rule in Tex. Ins. Code § 2210.052, the relationship to calendar

year premiums and the incentives for voluntary writings in the

catastrophe area. (AR 1065, Exh. 64A)

The Department’s Reasoned Justification for variable participation

percentages in 2008 are not negated by the Department restating the

existing provisions of § 5.4001(c)(2) in Rule 5.4162(b), (c) in 2011 with

non-substantive updates. (AR 0203-204, 206, Exh. 66A)

The 2011 adoption order explains why Rule 5.4162 is consistent with

implementation of 2009 funding for public securities, but it does not

obviate the original justification for variable participation that existed

24 before and after 2009’s HB4409 and 2015’s SB900 (AR 1195, Exh. 67)

through plan of operation Sections 5.4001(c)(2)(B) and 5.4162. That is,

incentivizing voluntary writings in the catastrophe area. (Compare AR

1065, Exh. 64A with AR 0204-0206, Exh. 66A)

The Department also highlighted the goal of incentivizing voluntary

writings through assessment procedures in 2008:

nee or re n s or er assessmen n er e a op e amendments, all of an assessment will IJe determined using the current assessment percentage, which reflects meml>er companies' most recent voluntary writings in the catastrophe areas. Eliminating the delay in the effect of member companies' increased or decreased voluntary writings in the catastrophe areas will provide an incentive to all member companies to maintain or provide similar insurance in the c.atastrophe areas, which may reduce property owners' reliance on the Association to provide windstorm and hail insurance coverage. (AR 1065, Exh. 64A)

In the 2011 adoption order, the Department did not alter the existing

variable participation scheme of Section 5.4001(c)(2)(B) but restated it in

Section 5.4162 after determining that the Rule was also consistent with

implementation of 2009 public securities funding. (AR 0204, 0206, Exh.

66A)

Rule 5.4001(c)(2)(B) remains in the plan of operation and authorizes

the same variable participation scheme on which Rule 5.4162 was

adopted, with few differences not relevant to ASI’s appeal. (Compare AR

1056, Exh. 64 with AR 0221, Exh. 66A) 25 Incentivizing Voluntary Writings: The Code Construction Act

authorizes the court to consider the “object sought to be attained”,

“former statutory provisions”, and “consequences of a particular

construction”. Tex. Govt. Code § 311.023. The Department recognized

in the 2011 adoption order that by computing participation on a calendar

year basis for the year in which the assessment is made, “this method

may encourage insurers to reduce their participation level by writing in

the catastrophe area after a catastrophic event.” (AR 0204-0205, Exh.

66A; AR 0229, Exh. 66B)

The variable participation scheme in § 2210.052 (one that is

determined each calendar year) encourages members to write voluntarily

in the catastrophe area in that voluntary writings are a credit against

net direct premiums and enable members to achieve a lower percentage

of participation each calendar year. If participation percentages were

static (that is set at the time of the catastrophe year), members would

lose an incentive for increasing voluntary writings after a catastrophe.

In proposing and adopting 28 TAC § 5.4162, the Department expressly

recognized the encouragement of voluntary writings as a justification for

26 annually variable participation percentages, as evidenced in highlighted

part:

A systemic oon-cern was that lhe insurers may determine that under a variable participation scheme it is best to stop writing wind and hail insurance ooverage in the catastrophe area now and lhen return after the event to lower their pa rticipation per• centage. The Department disagrees that insurers would reduce writings based on lhis requirement as a general oourse of ac- tion. Since Hurricane Rita, insurers have reduced writing wind … Code §2210.058(a)(1 ). Therefore, the Depa

A variable participation percentage encourages voluntary writings

because members can achieve a reduction in their participation

percentages for assessments made in the years following a catastrophic

storm. (AR 0203, Exh. 66A; AR 0227, Exh. 66B) The credit for voluntary

writings is written into § 2210.052(d) of the TWIA Act:

dj Nolwithsumding Subs<.-<,t.ion aJ, a member, in accol'dancc \\it.h th Ian of o~racion, is entitled to rec-~h I: eredil for :-.imilar in:--uran<'f:' voluntaril , • ,tt~n in :u-ea.s

27 (AR 0392, Exh. 69)

ASI increased its voluntary catastrophe area writings between 2016

and 2018, the years before and after Hurricane Harvey. ASI’s voluntary

writings increased $47,428 from $559,687 in 2016 premiums to $607,115

in 2018 premiums, which may have depopulated TWIA by 100 residential

policies. 3 (Compare AR 0540, Exh. 11 with AR 0686, Exh. 41)

Following Hurricane Harvey, TWIA’s residential policy count

dropped from 189,126 in 2019 to 179,114 in 2020, a 5.29% decrease in

population representing a $1.76 Billion decrease in residential direct

liability exposure of the Association. 4 (AR 1460, Exh. 74)

The Association is intended to “serve as a residual insurer of last

resort for windstorm and hail insurance in the seacoast territory” and to

provide such insurance to “those who are unable to obtain that coverage

in the private market.” Tex. Ins. Code § 2210.001. The TWIA Act

expressly states a public policy of incentivizing members to voluntarily

3 Based on an average of $482 in residential premiums per policy as of 2020; that is, 2020 residential written premiums of $86,252,128 divided by 179,114 residential policies in force. See table at AR 1460, Exh. 74. 4 2019 residential direct liability of $50,777,106.319 less 2020

residential direct liability of $49,017,458,552. AR 1460, Exh. 74. 28 write windstorm and hail insurance in the catastrophe area and thereby

depopulate TWIA. Tex. Ins. Code §§ 2210.009(b), 2210.053(b), 2210.701)

(AR 0384, Exh. 69)

Roots of Variable Participation. The same annually variable

participation scheme existed in 28 TAC Sec. 5.4001(c)(2)(B) before the

Legislature chose assessments to repay public securities. (AR 1056, Exh.

64; AR 1131, Exh. 66) This was recognized by the Department in its 2011

adoption order:

To effect these necessary amemfments, adopted §§5.4161 - 5.4 167 and 5.4173 become part of the Association's plan of operation. While §5.4161 and §5.4 162 include new provisions related to the implementation of HB 4409, §§5.4161 - 5.4167 also redesignate existing provisbns concerning member ai: sessments that are currenUy in §5.4001(c)(2) of the plan of operation into this division. The sections are being redesignated because including the Association's assessment procedure with other loss ftmding provisions will make it more accessible to interested persons. Further, because §5.4001 will be addressed at a later time, the existing provisions in §5.4001(c)(2) will not be repealed at this time. Rather, as provided in §5.4161(cJ, the redesignated sections will control over any conflicting provisions in §5.4001. Finalty, the redesign~ted sections include nonsub- … §5.4162. Amount of Assessment. Section 5.4162 substantially r estates existing §5.4001(c)(2)(B) of this chapter. As addressed in existing §S 400 1(c)(2)(B), this section establishes member partIeIpot,on in the assessment and thus the proporoonate amount each member shall be r~ ed to ~ lo the Asscx,ar~ tion. … ction .4 1 (cJ incorporates the remainder of existing §5.4001(c)G)(B) concerning member participation in the as- sessment Section 5.4 162(d) incorporates the Association's extStmg ca"'ndar year formula for detem1inng participation v Is th t ar t ut ,n xi 4 1 c 2 B i . Section (AR 0203-0204, 0206, Exh. 66A)

29 Variable participation similar to § 2210.052(b) existed when Texas

Catastrophe Property Insurance Association was created 5 and continued

through Texas Windstorm Insurance Association in one form or other

from 1971 to present. (AR 0958, Exh. 59; AR 1016, Exh. 62; AR 1033,

Exh. 63; AR 1097, Exh. 65; AR 1114, Exh. 65A; AR 1238, Exh. 67A; AR

0392 Exh. 69)

As ASI recognized, 2009’s HB 4409 created a further justification for

annually variable participation because assessments could be issued

annually over a 10-year term of securities used to fund losses. However,

long-term securities repayment was not the first or foremost reason for

annually variable participation. (AR 0204-0205, Exh. 66A) Variable

participation was always about incentivizing voluntary writings year-

over-year from 1971 to present. (AR 955, 0964, 1014, 1028, 1093, 1107,

1230, 0384, Exhs. 59, 60, 62, 63, 65, 65A, 67A, 69)

The Department’s regulatory scheme for annually variable

participation did not begin with HB4409 (2009) or end with SB900

5 S.B. 31 in 1971 tied participation in losses to each member’s

proportionate share of aggregate premiums written in “the preceding calendar year …”, with a “credit for similar insurance voluntarily written in the area designated …” (AR 0958, Exh. 59) 30 (2015). The same annually variable participation scheme has existed for

decades. (AR 0993, 1051, 1129, 0203, 1300, Exhs. 61, 64, 66, 66A, 68)

Rule Review. Appellant points out in footnote 12 that the

Department did not conduct rule reviews on the schedule required by the

Administrative Procedure Act (APA), Tex. Govt. Code § 2001.039. Texas

Register shows rule reviews in 2011 and 2021. 6 While rule reviews are

required every four years, the APA does not provide for invalidation of a

rule based on failure to conduct a timely review. Tex. Govt. Code Chapter

2001. APA § 2001.035 makes a rule voidable unless a state agency

adopts it in substantial compliance with §§ 2001.0225 through 2001.034,

but this does not apply to rule review under § 2001.039. (AR 888, Exh.

71) APA § 2001.040 provides for a court order invalidating an agency

rule that is not in substantial compliance with §§ 2001.0225 through

2001.034, but it does not apply to rule review under § 2001.039. (AR

0891, Exh. 71)

APA § 2001.035 provides a 2-year time limit to file an action based

on noncompliance with procedural requirements for a reasoned

6 There were Rule Reviews of Chapter 5 by the Department on 1/14/2011

and 6/08/2021. (AR 0946, Exh. 73) The 2021 Rule Review is at 46 Tex. Reg. 3740-3742 (CR 413-416). 31 justification, and it prohibits invalidation based on a mere technical

defect that does not result in prejudice to a person’s right or privileges.

(AR 888-889, Exh. 71)

During the pendency of ASI’s administrative appeal, the Department

adopted an amended Plan of Operation including “nonsubstantive

stylistic edits” to “aid readability” in § 5.4162(b),(c), and made no

substantive change even though ASI’s counsel submitted their

arguments as comments to the proposed rule. (AR 1732, 1735, 1749-1751,

1771-1773, Exh. 75) ASI seeks rule invalidation here that it could not

achieve in a direct rule challenge under the APA or before the

Department of Insurance.

II. The Trial Court’s Jurisdiction

ASI’s appeal of TWIA’s February 2020 assessment decision is

authorized exclusively by Section 2210.551(b) of the TWIA Act. (AR

0421, Exh. 69) That is, after hearing, the commissioner “shall affirm,

reverse, or modify … the act, ruling, or decision appealed to the

commissioner.” Tex. Ins. Code § 2210.551(f). A person or entity

“aggrieved by the order decision of the commissioner, may appeal to a

32 district court in the county in which the coverage property is located or a

district court in Travis County.” Tex. Ins. Code § 2210.551(g).

ASI’s right of action is an administrative appeal of TWIA’s “act,

ruling, or decision” to the commissioner of insurance under § 2210.551(b),

judicial review of the commissioner’s contested case order on the appeal

under Tex. Govt. Code § 2001.171, and action for declaratory judgment

over the validity or applicability of the subject rule, 28 Tex. Admin. Code

Sec. 5.4162(b), under Tex. Govt. Code § 2001.038. See also Tex. Ins. Code

§§ 36.202, 36.203, 2210.551(h).

Because ASI’s petition appears to request a money judgment for the

amount of the assessment (CR 24-26), Defendant TWIA moved for

dismissal of ASI’s request for money judgment due to lack of subject

matter jurisdiction, or alternatively, exclusive remedies under Tex. Ins.

Code § 2210.551(b). ASI stipulated in the trial court that they were not

seeking a money judgment against TWIA under the Uniform Declaratory

Judgment Act or Tex. Govt. Code § 2001.038. 7 On this basis, the trial

court acted within its discretion to deny TWIA’s jurisdictional challenge.

7 Plaintiff’s Trial Brief at p. 24. “Plaintiff agrees that a district court lacks jurisdiction to award monetary damages for ASI’s claims brought under the UDJA or under §2001.038.” (CR 203) 33 Appellant has now reasserted its pursuit of a money judgment by

requesting a declaration that ASI is entitled to a refund of $438,000 for

the third Hurricane Harvey assessment. In the event the court of appeals

is inclined to take up ASI’s request for declaration of a refund, Appellee

TWIA reasserts its jurisdictional plea and exclusive remedies defense as

follows.

authorized exclusively by § 2210.551(b) of the TWIA Act. (AR 0421, Exh.

69) ASI’s right of action is an administrative appeal of TWIA’s “act,

ruling, or decision” to the commissioner of insurance under Tex. Ins. Code

§ 2210.551(b), judicial review of the commissioner’s contested case order

under Tex. Govt. Code § 2001.171, and action for declaratory judgment

over the validity or application of the subject rule, 28 Tex. Admin. Code

§ 5.4162(b), under Tex. Govt. Code § 2001.038. Tex. Ins. Code §§ 36.202,

36.203, 2210.551(h).

ASI’s request for a declaration of entitlement to refund goes beyond

an appeal of TWIA’s “act, ruling, or decision” under Tex. Ins. Code §

2210.551(b). The District Court and Court of Appeals have jurisdiction

34 for judicial review of the commissioner’s order but lack subject matter

jurisdiction to award a declaration of money judgment against TWIA.

The rights to administrative appeal and judicial review are

mandatory and exclusive remedies by virtue of Tex. Ins. Code §§

2210.551(b), 36.202, 36.203 and Tex. Govt. Code § 2001.171. See Tex.

Catastrophe Prop. Ins. Ass’n v. Council of Co-Owners of Saida II Towers

Condo. Ass’n, 706 S.W2d 644, 645-66 (Tex. 1986), abrogated on other

grounds by Dubai Petroleum Co. v. Kazi, 12 S.W. 3d. 71 (Tex. 2000).

In Saida II, the court stated “When the Legislature creates an

administrative agency, it may also prescribe rules and regulations

governing the administrative body and the method by which the rights

determined by such body will be enforced, including the procedures for

obtaining judicial review of final agency decisions. ... The Legislature has

done precisely this with regard to the State Board of Insurance’s

supervision of the TCPIA …We have long recognized that if a cause of

action and remedy for its enforcement are derived not from the common

law but from a statute, the statutory provisions are mandatory and

exclusive, and must be complied with in all respects or the action is not

maintainable. … The APTRA sets forth the procedure for the institution

35 of an administrative appeal, which controls unless otherwise provided by

statute. … Because the Legislature has prescribed the method for review

of administrative action, that method must be followed to invoke the trial

court’s jurisdiction…” Id. at 645; citing Rowden v. Tex. Catastrophe Prop.

Ins. Ass’n, 677 S.W.2d 83, 87 (Tex. App. – Corpus Christi 1984, writ ref’d

n.r.e.).

Texas Insurance Code § 2210.551 permits a district court appeal of

the commissioner’s order affirming TWIA’s assessment decision.

However, such an action is explicitly subject to the procedures of

Subchapter D, Chapter 36. Tex. Ins. Code § 36.202 permits an insurance

company to file a petition for judicial review against the commissioner as

defendant. Section 36.203 states that judicial review “is under the

substantial evidence standard and shall be conducted under Chapter

2001, Government Code.”

Since the time of the Saida II decision, the Texas Supreme Court

reframed pleas to subject matter jurisdiction in a case of failure to meet

statutory requisites to a wrongful death suit. Dubai Petroleum Co. v.

Kazi, 12 S.W. 3d.71, 76-77 (Tex. 2000). In Dubai, the court recognized,

“The right of a plaintiff to maintain a suit, while frequently treated as

36 going to the question of jurisdiction, has been said to go in reality to the

right of the plaintiff to relief rather than to the jurisdiction of the court

to afford it.” Dubai abrogated the law of jurisdictional challenge decided

in Mingus v. Wadley, 285 S.W. 1084 (Tex. 1926) and underpinning Saida

II. However, in Mosely v. Texas Health and Human Services

Commission, 593 S.W.3d 250, 261 fn.3 (Tex. 2019), the court declined to

extend Dubai to a jurisdictional plea under the Administrative Procedure

Act.

If applied here, Dubai does not provide a pathway to declaration of

money judgment against TWIA. At most, Dubai would have the court

dismiss ASI’s request for monetary relief under the exclusive remedies of

Tex. Ins. Code § 2210.551 rather than under TWIA’s jurisdictional plea.

See e.g., Tex. Windstorm Ins. Ass’n. v. Boys & Girls Club of Coastal Bend,

Inc., 2020 WL 6072624 at *5 (Tex. App.—Corpus Christi-Edinburg,

9/24/2020) (not designated for publication) (court erred in denying

TWIA’s motion for partial summary judgment on claims for which

coverage was accepted due to exclusive remedies of Tex. Ins. Code §§

2210.572, .574); Housing & Comm. Servs., Inc. v. Tex. Windstorm Ins.

Ass’n., 515 S.W.3d 906, (Tex. App.—Corpus Christi-Edinburg 2017, no

37 pet.) (affirming summary judgment for TWIA where claimant failed to

file claim within one-year limitations period of § 2210.573(a), citing Saida

II exclusive remedies).

TWIA’s jurisdictional and exclusive remedies challenge does not

leave Appellant without remedy if the court were to declare Rule 5.4162

invalid. ASI acknowledged in its Trial Brief that the district court lacks

jurisdiction to award monetary damages for ASI’s claim, and that it is

within the Commissioner’s authority to order a reassessment by TWIA. 8

In February 2021, TWIA informed ASI and all other members that

the third assessment of 2020 would be recalculated and reassessed to all

members based on 2020 percentages of participation and adjustments

required by administrative appeals. (AR 1852, Exh. 79) There were 375

insurers in the Department’s 2018 premium call. (AR 0655-0666, Exh.

34) ASI’s group percentage of participation for the third assessment was

3.223%. Other member insurers account for 96.777% of participation.

(AR 0466, Stipulations para. 38, Exh. 1)

In the event of a final judgment that invalidates Rule 5.4162, the

Commissioner should order TWIA to reassess all members consistent

8 Plaintiff’s Trial Brief at p. 24. (CR 203) 38 with a final judgment, which may necessitate a rulemaking proceeding,

use of participation rules that remain authorized by Rule

5.4001(c)(2)(B) 9, or other agency action that applies to all members. Even

if the court were to find that ASI is entitled to a refund on the third

assessment (AR 0700, Exh. 45), the computation will likely change in a

reassessment for the reasons discussed in the 2020 notice of POP (AR

1852, Exh. 79), and it will necessarily involve all member insurers.

CONCLUSION AND PRAYER

BASED ON THE FOREGOING, Appellee Texas Windstorm

Insurance Association requests that the Court affirm the Trial Court’s

Final Judgment and deny Appellant ASI’s request for declaratory relief.

Appellee further requests that Appellant ASI Lloyds Insurance

Company take nothing from Texas Windstorm Insurance Association,

and that Texas Windstorm Insurance Association have judgment for

costs, and such further relief to which it is justly entitled.

9 AR 1056, 0228, Exhs. 64, 66B. 39 Respectfully submitted,

f ____________________________________

~ Michael S. Wilson State Bar No. 21704810 mwilson@perkinslawtx.com Adrienne L. Barclay State Bar No. 24065955 abarclay@perkinslawtx.com PERKINS LAW GROUP PLLC One Far West Plaza, Suite 200 3410 Far West Boulevard Austin, Texas 78731 Telephone: (512) 717-3467 Fax: (512) 551-9895 ATTORNEYS FOR APPELLEE TEXAS WINDSTORM INSURANCE ASSOCIATION

40 CERTIFICATE OF COMPLIANCE

In accordance with Texas Rule of Appellate Procedure 9.4, I hereby certify that this Brief complies with the length limitations of Texas Rule Appellate Procedure 9.4 and the typeface requirements of Texas Rule Appellate Procedure 9.4.(e).

Exclusive of contents excluded under Texas Rule Appellate Procedure 9.4(i)(1), this Brief contains 8,699 words (including textboxes, footnotes, and endnotes) as counted by the word count function of Microsoft Word for Microsoft 365 and hand-counted text boxes.

This Brief has been prepared in proportionally spaced typeface using:

Software Name and Version: Microsoft Word for Microsoft 365

Typeface Name: Century Schoolbook

Font Size: 14 point (14 point footnotes) f ~

Michael S. Wilson

41 CERTIFICATE OF SERVICE

I hereby certify that on the ____ 10th day of January 2025, a true and correct copy of the above and foregoing has been sent to the following counsel of record and TDI Chief Clerk:

Wade C. Crosnoe (via electronic filing service) THOMPSON, COE, COUSINS & IRONS, L.L.P. 2801 Via Fortuna, Suite 300 Austin, Texas 78746 (512) 703-5060 Telephone (512) 708-8777 Facsimile wcrosnoe@thompsoncoe.com

Jay A. Thompson MITCHELL, WILLIAMS, SELIG, GATES & WOODYARD, P.L.L.C. 500 W. 5th St., Suite 1150 Austin, Texas 78701 (512) 480-5104 Telephone jthompson@mwlaw.com Attorneys for Appellant

42 Ken Paxton (via electronic filing service) Attorney General

Cory A. Scanlon Assistant Solicitor General Office of the Attorney General of Texas P.O. Box 12548 (MC 059) Austin, Texas 78711-2548 (512) 936-1820 Telephone cory.scanlon@oag.texas.gov

Counsel for Appellee Cassie Brown, Commissioner Texas Department of Insurance

Texas Department of Insurance (by email) Chief Clerk Office ChiefClerk@tdi.texas.gov Mail code GC-CCO P.O. Box 12030 Austin, Texas 78711-2030 f

_____________________________________ ~

43 APPENDIX

APPENDIX 1. Index of Exhibits in the Administrative Record (CR 410)

44 TWIA APPENDIX 1 INDEX TO THE ADMINISTRATIVE RECORD

TDI TWIA cc EXH. NO. CATEGORY DATE DOCUMENT ORIGINATOR

TOI CC 0464-475 Stipulations JOINT TOI CC 0476 Order of Payment of Losses ("Li Exh . 32") Li Oe po

TOI CC 0477-511 2017 POP 6/28/2017 TDI Email re 2016 premium data to calculate 2017 POP TOI TOI CC 0512-522 4 2017 POP 9/8/2017 TDI Email re 2016 updated premium data to calculate 2017 POP TOI

TOI CC 0523-524 2017 POP 9/27/2017 Ltr 1 - 2016 Net Direct Premium to Acuity TWIA TOI CC 0525-527 6 2017 POP 9/27/2017 Ltr 1 - 2016 Net Direct Premium to Allstate TWIA TOI CC 0528-529 2017 POP 9/27/2017 Ltr 1 - 2016 Net Direct Premium to ASI Lloyds TWIA TOI CC 0530-531 8 2017 POP 9/27/2017 Ltr 1 - 2016 Net Direct Premium to United Fire TWIA

TOI CC 0532-534 2017 POP 1/24/2018 Ltr 2 - 2017 Percentage of Participation to Acuity TWIA TOI CC 0535-537 10 2017 POP 1/24/2018 Ltr 2 - 2017 Percentage of Participation to Allstate TWIA TOI CC 0538-540 11 2017 POP 1/24/2018 Ltr 2 - 2017 Percentage of Participation to ASI Lloyds TWI A TOI CC 0541-543 12 2017 POP 1/24/2018 Ltr 2 - 2017 Percentage of Participation to United Fire TWIA

TOI CC 0544-548 13 2017 POP 6/5/2018 Ltr 3 - 1st Assessment Notice to Acuity TWIA TOI CC 0549-55 3 14 2017 POP 6/5/2018 Ltr 3 - 1st Assessment Notice to Allstate TWIA TOI CC 0554-559 15 2017 POP 6/5/2018 Ltr 3 - 1st Assessment Notice to ASI Lloyds TWIA TOI CC 0560-570 16 2017 POP 6/5/2018 Ltr 3 - 1st Assessment Notice to United Fire TWIA

TOI CC 0571-575 17 2017 POP 8/29/2018 Ltr 4 - 2nd Assessment Notice to Acuity TWI A TOI CC 0576-581 18 2017 POP 8/29/2018 Ltr 4 - 2nd Assessment Notice to Allstate TWIA TOI CC 0582-587 19 2017 POP 8/29/2018 Ltr 4 - 2nd Assessment Notice to ASI Lloyds TWIA TOI CC 0588-592 20 2017 POP 8/29/2018 Ltr 4 - 2nd Assessment Notice to United Fire TWIA TOI CC 0593-622 21 2018 POP 7/23/2018 TDI Email re 2017 voluntary premium to caculate 2018 POP TOI TOI CC 0623-624 22 7/10/2018 Comm. Order 2018-5567 suspending 1st Assessment to RFMIC TOI BLANK TOI CC 0625-626 24 2018 POP 11/29/2018 Ltr 1 - 2017 Net Direct Premium to Acuity TWIA TOI CC 0627-630 25 2018 POP 11/29/2018 Ltr 1 - 2017 Net Direct Premium to Allstate TWIA TOI CC 0631-633 26 2018 POP 11/29/2018 Ltr 1 - 2017 Net Direct Premium to Progressive (ASI Lloyds) TWIA TOI CC 0634-63 5 27 2018 POP 11/29/2018 Ltr 1 - 2017 Net Direct Premium to United Fire TWIA

TOI CC 0636-638 28 10/1/2018 Comm. Order 2018-5648 suspending 2nd Assessment to RF MIC TOI TOI CC 0639-642 29 2018 POP 6/18/2020 Ltr 2 - 2018 Percentage of Participation to Acuity TWIA TOI CC 0643-646 30 2018 POP 6/18/2020 Ltr 2 - 2018 Percentage of Participation to Allstate TWIA TOI CC 0647-650 31 2018 POP 6/18/2020 Ltr 2 - 2018 Percentage of Participation to Progressive (ASI) TWIA TOI CC 0651-654 32 2018 POP 6/18/2020 Ltr 2 - 2018 Percentage of Participation to United Fire TWIA BLANK TOI CC 0655-666 34 2019 POP 9/24/2019 TOI Email re 2018 premium data to calculate 2019 POP TOI TOI CC 0667-668 35 2019 POP 10/31/2019 Ltr 1 - 2018 Net Direct Premium to Acuity TWIA TOI CC 0669-672 36 2019 POP 10/31/2019 Ltr 1 - 2018 Net Direct Premium to Allstate TWIA TOI CC 0673-675 37 2019 POP 10/31/2019 Ltr 1 - 2018 Net Direct Premium to Progressive (ASI) TWIA TOI CC 0676-677 38 2019 POP 10/31/2019 Ltr 1 - 2018 Net Direct Premium to United Fire TWIA

TOI CC 0678-680 39 2019 POP 1/17/2020 Ltr 2 - 2019 Percentage of Participation to Acuity TWIA TOI CC 0681-683 40 2019 POP 1/17/2020 Ltr 2 - 2019 Percentage of Participation to Allstate TWIA TOI CC 0684-686 41 2019 POP 1/17/2020 Ltr 2 - 2019 Percentage of Participation to Progressive (ASI) TWIA TOI CC 0687-689 42 2019 POP 1/17/2020 Ltr 2 - 2019 Percentage of Participation to United Fire TWIA

TOI CC 0690-694 43 2019 POP 2/13/2020 Ltr 3 - 3rd Assessment Notice to Acuity TWIA TOI CC 0695-699 44 2019 POP 2/13/2020 Ltr 3 - 3rd Assessment Notice to Allstate TWIA TOI CC 0700-703 45 2019 POP 2/13/2020 Ltr 3 - 3rd Assessment Notice to Progressive (ASI) TWIA TOI CC 0704-708 46 2019 POP 2/13/2020 Ltr 3 - 3rd Assessment Notice to United Fire TWIA

TOI CC 0709-717 47 2019 POP 3/12/2020 Notice of Appeal of 3rd Assessment -Acuity PETITIONER TOI CC 0032-40 48 2019 POP 3/13/2020 Notice of Appeal of 3rd Assessment - Allstate PETITIONER TOI CC 0727-735 49 2019 POP 3/13/2020 Notice of Appeal of 3rd Assessment - Progressive (ASI) PETITIONER TOI CC 0049-57 50 2019 POP 3/12/2020 Notice of Appeal of 3rd Assessment - United Fire PETITIONER TOI CC 0745-781 51 3/20/2020 Comm. Order 2020-6291 on RFMIC appeal TOI BLANK

Index to Ad min Record - TWIA Appendix 1 Rev. 4/2/2024

Page 409 TWIA APPENDIX 1 INDEX TO THE ADMINISTRATIVE RECORD

TOI CC 0955-963 59 LAW 4/29/1971 TCPIPA, Art. 21.49 (S.B. 31, Ch. 100) TOI CC 0964-99 2 60 LAW 6/6/1991 TCPIPA, Art. 21.49 (H.B. 2, Ch. 242)) TOI CC 0993-1013 61 LAW 7/21/1995 28 TAC 5.4001 Plan of Operation TOI CC 1014-1027 62 LAW 9/1/1997 TIC Chap. 2210

.__T_D_I _CC_ 10_2_8_-1_0_ 50_ _ _6_3_ _ _ _ LA_W _ _--+-_ 4/_1_/2_0_0_7_e----. TIC Chap. 2210 .--T_D_I_C_C_l_0_5_1-_1_06_1_ _ _ 64_ _ ___ LA_W 9/_2_/2_0_0_8_ _,___l 28 TAC 5.4001 Plan of Operation _ _ ------t-__ .--T_D_I_C_C_l_0_62_-_1_08_0_ _ _6_4_A_ _ _ _LA_W _ _------t-__9/_2_/2_0_0_8_ _,___ 5.4001 Adopted, 33 Tex Reg 7245 t--T_D_I_C_C_l_0_8_1-_1_09_2_ _ _6_4_B_ _ __ LA_W _ _ ------t-__ 7/_4_/2_0_0_8_ _,__~ 5.4001 Proposed, 33 Tex Reg 522S

TOI CC 1093-1106 65 LAW 6/19/2009 TIC Chap 2210 (HB4409) TOI CC 1107-1128 65A LAW 9/28/2011 TIC Chap 2210 (HB3) .__T_D_I_C_C_1_1_29_-_1_15_0_ _ _ 6_6_ _ __ LA_W _ _ --+_2_/_16~/_2_01_1_+---' 28 TAC 5.4001 Plan of Operation .___T_D_ IC_C_0_2_0_ 3-_2_26_ _ _ 66_A_ _ _ _LA_W _ _--+-_ 2/_1_6_ / 2_0_1_1 --+_ 5.4162 Adopted, 36 Tex Reg 786 .--_T_D_IC_C_0_2_2_7_-2_4_6_ __6_6_B_ _ _ _LA_W _ _ ------t-_7_/_30_/_2_01_0_ _,__~ 5.4162 Proposed, 35 Tex Reg 6611

TOI CC 1195-1229 67 LAW 9/1/2015 SB 900 TOI CC 1230-1276 67A LAW 9/1/2015 TIC Chap. 2210 TOI CC 1277-1292 67B LAW 7/6/2015 SB 900 SRC Bill Analysis TOI CC 1293-1299 67C LAW 5/24/2015 SB 900 HRC Bill Analysis TOI CC 1300-1398 68 LAW 1/18/2017 28 TAC 5.4001 Plan of Operation TOI CC 1399-1413 68A LAW 3/9/2016 5.4161 Adopted, 41 Tex Reg 1679 TOI CC 0361-383 68B LAW 9/28/2015 5.4161 Proposed, 40 Tex Reg 7020

TOI CC 0384-437 69 LAW 6/10/2019 TIC Chap. 2210 TOI CC 0438-450 70 LAW 6/19/2020 5.4162 et al Proposed, 45 Tex Reg 4138

TOI CC 0872-928 71 LAW 9/1/2019 Govt Code Chap. 2001 TOI CC 0929-945 72 LAW 7/10/2020 TX Register - Search Results TOI Rule Reviews 1/2011- 7/10/2020 TOI CC 0946-954 73 LAW 7/10/2020 TX Register -TOI Rule Reviews 1/2011- 7/10/2020

TOI CC 1443-1613 74 6/1/2020 TWIA Annual Report TWIA TOI CC 1719-1781 75 LAW 12/16/2020 Commissioner's Order 2020-6617 amending Plan of Operation TOI

TOI CC 1838-1844 77 2020 POP 2/26/2021 Ltr 2 - 2020 Percentage of Participation to Acuity TWIA TOI CC 1845-1851 78 2020 POP 2/26/2021 Ltr 2 - 2020 Percentage of Participation to Allstate TWIA TOI CC 1852-1858 79 2020 POP 2/26/2021 Ltr 2 - 2020 Percentage of Participation to Progressive (ASI) TWIA TOI CC 1859-1865 80 2020 POP 2/26/2021 Ltr 2 - 2020 Percentage of Participation to United Fire TWIA

TOI CC 0141-187 6/24/2020 Petitioners' Motion for Continuance PETITIONER TOI CC 0188-450 6/26/2020 TWIA Response to Motion for Continuance TWIA TOI CC 1414-1415 7/16/2020 Order Granting Petitioners' Motion for Continuance TOI TOI CC 1416-1442 7/16/2020 TWIA Motion for Summary Disposition TWIA TOI CC 1614-1640 7/21/2020 TWIA First Amended Motion for Summary Disposition TWIA TOI CC 1641-1642 9/1/2020 Joint Status Report Joint TOI CC 1653-1681 6/11/2021 TWIA Second Amended Motion for Summary Disposition TWIA TOI CC 1682 6/11/2021 Declaration of Jerome Fadden TWIA TOI CC 1782-1805 6/14/2021 Petitioners' Motion for Summary Disposition PETITIONER TOI CC 1835-1837 6/16/2021 TWIA's First Amended Exhibit List and Witnesses TWIA TOI CC 1866-1893 6/17/2021 TWIA's Third Amended Motion for Summary Disposition TWIA TOI CC 1897-1901 6/21/2021 TWIA's Response to Petitioners' Motion for Summary Disposition TWIA TWIA APPENDIX 3 LAW 6/18/2021 TDI Rule Review, 46 TexReg 3740-3743 TOI TOI CC 1920-1968 7/9/2021 TDI Hearing Transcript TOI TOI CC 1969-1990 PFD 9/2/2021 Proposal for Decision SOAH TOI CC 1991-2002 9/17/2021 Petitioners' Exceptions to Proposal for Decision PETITIONER TOI CC 2003-2014 9/29/2021 TWIA's Reply to Petitioners' Exceptions to Proposal for Decision TWIA TOI CC 2018-2048 ORDER 4/25/2023 Commissioner Order TOI TOI CC 2055-2057 ORDER 5/30/2023 Commissioner Order on Motion for Rehearin g TOI TOI CC 2062-2093 6/16/2023 Petitioners' Motion for Rehearing PETITIO NER TOI CC 2094-2107 6/26/2023 TWIA Reply to Petitioners' Motion for Rehearing TWIA TOI CC 2108-2113 ORDER 7/11/2023 Commisioner Order Denying Motion for Rehearing TOI

Page 410 APPENDIX 2. Glossary of Terms (CR 411)

45 Appendix 2. Glossary of Terms

Assessments: Members are assessed to pay for "excess losses" of Texas Windstorm Insurance Association; that is, insured catastrophe losses in excess of TWIA's premium revenue, reserves, and other sources of funding. Ins. Code Secs. 2210.0725, .074, .0742. Calendar Year: The preceding calendar year premiums of each member are used to determine the member's percentage of participation for the year of an assessment. Ins. Code Sec. 2210.052 Catastrophe Area: First and second tier coastal counties designated by the commissioner of insurance where TWIA writes windstorm and hail insurance that is not reasonably available in the voluntary market. Ins. Code Secs. 2210.003(3), .005.

Catastrophe Year: A calendar year in which an occurrence or series of occurrences results in insured losses, regardless of when the insured losses are ultimately paid; used to determine the period of losses that triggers an assessment. Ins. Code Secs. 2210.003, . 725(a). Participation Percentage (POP): Each member participates in a percentage of an assessment based on the member's preceding calendar year premium writings, with a credit for premiums voluntarily written in the catastrophe area. Ins. Code Sec. 2210.052

Page 411 APPENDIX 3. 2011 Adopted Rule 5.4162, 36 Tex. Reg. 786-809 (AR 203-226, Exh. 66A, highlights added)

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³´µ¶·¸¶¹ºº³» ¼½¾¿³»ÀÁ»Â» µ¶·Ãĸ¶¹ÅÄÆ¶Ç TDI CC 0246 ÈÉÊÉËÌÍËÎÏÎÊÐÑÒÿÔÕÖ×ÿÍÊÉØ Automated Certificate of eService This automated certificate of service was created by the efiling system. The filer served this document via email generated by the efiling system on the date and to the persons listed below. The rules governing certificates of service have not changed. Filers must still provide a certificate of service that complies with all applicable rules.

Shawn Pettyjohn on behalf of Mike Wilson Bar No. 21704810 spettyjohn@perkinslawtx.com Envelope ID: 96078403 Filing Code Description: Brief Not Requesting Oral Argument Filing Description: Appellee TWIA's Brief Status as of 1/10/2025 12:02 PM CST

Case Contacts

Name BarNumber Email TimestampSubmitted Status

Wade Crosnoe 783903 wcrosnoe@thompsoncoe.com 1/10/2025 11:45:54 AM SENT

Rosalind Hunt 24067108 Rosalind.Hunt@oag.texas.gov 1/10/2025 11:45:54 AM SENT

Cory Scanlon 24104599 cory.scanlon@oag.texas.gov 1/10/2025 11:45:54 AM SENT

Michael Wilson mwilson@perkinslawtx.com 1/10/2025 11:45:54 AM SENT

Nancy Villarreal nancy.villarreal@oag.texas.gov 1/10/2025 11:45:54 AM SENT

Jay A.Thompson jthompson@mwlaw.com 1/10/2025 11:45:54 AM SENT

Terri M.Abernathy terri.abernathy@oag.texas.gov 1/10/2025 11:45:54 AM SENT

Shawn Pettyjohn spettyjohn@perkinslawtx.com 1/10/2025 11:45:54 AM SENT

Adrienne Barclay abarclay@perkinslawtx.com 1/10/2025 11:45:54 AM SENT