The Florida Legislature has mandated that under certain circumstances, an insurance company is required to engage a licensed Professional Engineer or Professional Geologist to conduct sinkhole testing as provided in Fla. Stat. § 627.7072 and in accordance with § 627.7073[FN1]. As insurance companies do not typically have Professional Engineers or Geologists on staff, the carriers rely upon the findings and recommendations of these professionals when the carriers make their claims decisions[FN2]. If an insurance company denies a sinkhole claim based on the professional opinions of engineers or geologists, then the carrier should not be held liable on a breach of contract claim as long as its reliance upon the engineer of record and the subsequent denial were both in good faith. The legislature clearly contemplated this when it enacted § 627.7073 in 2005:
§ 627.7073(1)(c) The respective findings, opinions, and recommendations of the engineer and professional geologist as to the verification or elimination of a sinkhole loss and the findings, opinions, and recommendations of the engineer as to land and building stabilization and foundation repair shall be presumed correct. (2005)
After all, it really seems to be a matter of common sense…how could an insurance company be liable in a breach of contract action when it made a good faith denial based upon professional opinions of engineers and geologists, as is required by law pursuant to Florida Statutes? This was challenged at the conclusion of trial in Pasco County Florida and the issue made its way to the Florida Supreme Court. The Court’s analysis, in Universal Insurance Company of North America v. Warfel,[FN3] focused heavily on the Florida Evidence Code[FN4] as it applies to litigation. However, more focus should have been placed on timing, i.e., at the time of the claims decision, the report “shall be presumed correct,” thereby providing a statutory protection to the insurance company should it be sued in a breach of contract claim based upon the carrier’s reliance upon the “recommendations of the engineer.”
Notably, the Court recognized in its analysis that the “the presumption of correctness appears to be aimed at shielding the…insurance companies from claims of improper denials.” This recognition by the Court could have provided the basis for the Court to find that presumption of correctness should apply to the burden of proof. In almost all sinkhole related lawsuits where the carrier denied a claim, the allegations of the complaint are for a breach of contract action based on an improper denial. Those are the basic facts of the Warfel case. Thus, it was crucial that the Court allowed that statutory shield of § 627.7073 be used as an appropriate vehicle to allow evidence that the carrier could not be held liable for a breach of contract action when it denied a claim based upon “[t]he respective findings, opinions, and recommendations of the engineer and professional geologist,” which are to be presumed correct. Therefore, it would have been proper that the Plaintiff needed to prove by a preponderance of the evidence that the presumption was incorrect or improper at the time of claim denial. This makes the most sense as it puts everything in context based upon the information that was available to the insurance carrier at the time of the claim decision.
Nonetheless, it appears that the question regarding the effect of “the presumption of correct[ness]” has been definitively answered by the Florida Supreme Court. In its per curiam opinion released January 26, 2012, the Court sided with the respondent homeowner, ruling that the presumption created by § 627.7073(1)(c) is a “vanishing” presumption that drops out of a case once evidence to the contrary is introduced.[FN5] This is an unfortunate holding because it completely disregards that when the insurance carrier was evaluating the claim, it had a statutory right to presume that the engineering information that was available at the time of the claims decision was correct. Ultimately, the Court’s decision upheld the Second District Court of Appeal’s reversal of a jury verdict in favor of the Defendant-insurer based on an erroneous evidentiary ruling by the lower court. The jury instruction and closing arguments at issue essentially mandated that the jury presume the engineer of record’s findings concerning the existence of a sinkhole loss and the recommendations for repair were correct and that only by a preponderance of the evidence could Plaintiff-insured rebut the presumption.[FN6]
The Court determined that this was, in essence, awarding the Defendant-insurer a directed verdict, thereby shifting the long-standing burden from the insurer to insured in proving a claimed loss is covered. However, the Court could have upheld the presumption, but limited its scope and timing. Perhaps an appropriate jury instruction would be one that instructs it to presume that at the time of the claim decision, the report prepared pursuant to § 627.7073 was correct unless the Plaintiff has shown, by a preponderance of the evidence, that the findings should not have been presumed correct. Arguably, only if the Plaintiff was able to meet that burden, should the question then go to the jury on the issue of breach. The Supreme Court of Florida does not agree.
In reaching its decision, Florida’s high court discussed the history of presumptions in Florida’s jurisprudence. Briefly, there were two schools of thought predating the enactment of the Federal Evidence Code regarding the procedural strength a presumption should have in litigation. One view believed the presumption merely facilitated the resolution of evidentiary issues by proceeding through the course of litigation until evidence in opposition was produced, which would cause the presumption to vanish and never reach the jury. Because of its propensity to vanish when evidence to the contrary is produced, this type of presumption became known as a “bursting bubble” presumption. The other view maintained that the presumption remained in the action until reaching the jury even when evidence to the contrary existed. The jury was then instructed that the burden of persuasion rested with the party opposing the presumption. This is known as a “burden-shifting” presumption. This “burden-shifting” presumption is what the Defendant was seeking.
Florida codified both positions into the evidence code creating two types of presumptions.[FN7] Under the Florida Statutes, most presumptions are vanishing or “bursting bubbles.” Burden-shifting presumptions, remaining in the action even if the opposing party produces evidence to the contrary, exist only where the presumption was established primarily to implement public policy or where the legislature expressly stated it was creating a burden-shifting presumption.
While the Court considered various arguments asserting the § 627.7073 presumption was burden-shifting, it found that, although the legislature had the opportunity to explicitly state its intent to create such a presumption, it did not do so. Further, the Court read nothing in the sinkhole statutes that lead it to conclude the presumption created by § 627.7073(1)(c), was established to implement a particular public policy. Accordingly, the Court determined that the presumption of correctness that attaches to an engineer’s report under § 627.7073 is a vanishing presumption that disappears once evidence contradicting the report is produced. Significantly, however, § 627.7065, enacted in 2005, specifically states that “the Legislature finds that there has been a dramatic increase in the number of sinkholes and insurance claims for sinkhole damage in the state during the past 10 years.” (Emphasis added). The entire statutory scheme relating to sinkhole claims that was developed in 2005 relates directly to public policy, particularly as Florida continued (and still continues) to work through its insurance crisis.
In fairness, however, the sinkhole insurance statutes, including § 627.7073, have been amended twice since the 2005 version at issue in this case. Both times, however, the legislature refrained from changing the presumption language of § 627.7073(1)(c). In the early drafts of SB 408 (2011), it was clear that Senator Richter intended to clarify the burden-shifting presumption in § 627.7073 as he included the following language:
…shall be presumed correct, which presumption shifts the burden of proof in accordance with s. 90.302(2). The presumption of correctness is based upon public policy concerns regarding the affordability of sinkhole coverage, consistency in claims handling, and a reduction in the number of disputed sinkhole claims. (emphasis added)[FN8]
This language did not make it into the final version of the bill that was ultimately signed into law. Based on the analysis in Warfel from the Florida Supreme Court and the Second District Court of Appeal, these Courts wanted explicit language within the statute, as set forth above, in order to recognize the burden-shifting presumption.
The Florida Supreme Court may have been informed of these legislative changes in which the legislature left the presumption language substantially unchanged. Undoubtedly, while enacting the most recent changes, the legislature was aware of the question raised by the Second District Court of Appeal’s decision in the underlying Warfel case, as the district court decided and certified its question to the Supreme Court prior to the last legislative session. See 36 So. 2d 136 (Fla. 2d DCA 2010). The Court had enough of a basis that it could have reached a different conclusion and, perhaps, could still support a finding that because the insurer is entitled to presume the professional’s opinion is correct at the time it makes the coverage decision, the burden must be shifted to the plaintiff to prove, later in court, that the presumption was incorrect. However, based on the unchanged statutory language since 2005 and, in light of the Supreme Court holding in Warfel, this holding will likely apply to current version of § 627.7073. It appears that the responsibility now reverts back to the Florida Legislature to propose and pass amendments that properly shift the burden of proof in sinkhole cases so that the insurance carriers are afforded some protection at the time that they make their claim decision.
Authors: Judd Goodall and Christopher Borzell
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[FN1] See Fla Stat. §§ 627.707, 627.7072, 627.7073 (2011).
[FN2] Notably, these professional sign and seal their conclusions within reasonable professional probability and pursuant to all other obligations of their professional licenses. See Fla. Stat. § 627.7073(1).
[FN3] 2012 WL 224104 (Fla. Jan. 26, 2012).
[FN4] Fla. Stat. 90.301 – 90.304
[FN5] 2012 WL 224104.
[FN6] The closing argument of the Insurer’s counsel was worded more strongly than the jury instruction, potentially leading a juror to believe no other determination could be made but to find for the insurer.
[FN7] 90.303 – Presumption affecting the burden of producing evidence defined.–In a civil action or proceeding, unless otherwise provided by statute, a presumption established primarily to facilitate the determination of the particular action in which the presumption is applied, rather than to implement public policy, is a presumption affecting the burden of producing evidence.
90.304 – Presumption affecting the burden of proof defined.–In civil actions, all rebuttable presumptions which are not defined in s. 90.303 are presumptions affecting the burden of proof.
[FN8] S.B. 408, 2011 Leg. Session (Jan 12, 2011). This language was removed from SB 408 prior to being signed into law.
Previously published in the 2012 First Quarter edition of The Benchmark