This court challenge concerns California’s FAIR Plan, the state-mandated “insurer of last resort” for property owners who cannot obtain coverage in the ordinary market (Ins. Code, § 10090 et seq.). The Plan is an involuntary association of all property insurers licensed in California; each member shares proportionally in the Plan’s writings, profits, and losses based on its market share two years earlier (Ins. Code, § 10095(c)). When the Plan runs short, it may levy an assessment on its member insurers, subject to the Commissioner’s approval.
At issue were two bulletins issued by Insurance Commissioner Ricardo Lara. Bulletin 2024-8 (Sept. 3, 2024) set out a procedure by which FAIR Plan member insurers could seek the Commissioner’s prior approval, under Proposition 103, to recoup any FAIR Plan assessment from their own policyholders. Bulletin 2025-4 (Feb. 11, 2025) updated that guidance after the “highly unlikely event” actually occurred: following the January 2025 Los Angeles wildfires, the FAIR Plan sought approval for roughly $1 billion in assessments — the first in over 30 years — and insurers were permitted to pass through some, but not all, of those costs to policyholders over no more than two years. Per the Department, the median homeowner fee was about $28 per year.
In April 2025, Consumer Watchdog — a nonprofit public-interest organization — sued Commissioner Lara and the Department of Insurance to invalidate the bulletins. Its verified petition raised three claims: that the bulletins were “regulations” adopted without complying with the Administrative Procedure Act; that they exceeded the Commissioner’s authority under the FAIR Plan statutes; and that, by letting insurers pass assessments through to policyholders, they violated the equal profit-and-loss-sharing command of section 10095(c).
This was a trial-court ruling on a petition for a traditional writ of mandate (Code Civ. Proc., § 1085), not an appeal. Earlier, in a July 22, 2025 order, the court had sustained the Department’s demurrer without leave to amend as to the first two causes of action — holding that the bulletins fell within an APA exception and that the Commissioner had authority for the pass-throughs under Proposition 103. Only the third cause of action — the claim that the bulletins violate section 10095(c) — survived to be decided on the merits. Consumer Watchdog argued that section 10095(c) reflects a legislative design of “symmetry,” under which member insurers who reap the Plan’s profits must also absorb its losses, and that shifting assessment costs to non-FAIR-Plan policyholders effectively turns ordinary consumers into reinsurers of their own insurers.
The trial court denied the petition in its entirety, along with the requests for declaratory and injunctive relief. The court declined to reach the Department’s argument that Consumer Watchdog lacked standing, resolving the case instead on the merits.
The court first set aside the bulk of Consumer Watchdog’s briefing, which re-argued that the bulletins were not authorized under Proposition 103. That question, the court held, had already been decided at the demurrer stage — where it ruled the Commissioner had Proposition 103 authority for the pass-throughs — and the time to seek reconsideration had passed. Attempts to reframe the argument as newly raised questions were unavailing.
On the sole surviving claim, the court held the statute’s meaning is plain: it governs how writings, profits, losses, and expenses are allocated among FAIR Plan member insurers — the Plan’s internal affairs — and says nothing about what an insurer may later do with its own policyholders. The court found Ohio Casualty Ins. Co. v. Garamendi (2006) 137 Cal.App.4th 64, on which Consumer Watchdog relied, addressed only insurers’ ongoing loss-sharing obligations to one another, not their relationships with policyholders. As the court put it, nothing in the statutory text conditions an insurer’s proportional share of Plan expenses on ultimately absorbing those costs rather than merely paying them initially; the statute regulates the apportionment obligation itself, not the insurer’s later financial decisions.
Because the statute was unambiguous, the court refused to resort to canons of construction or to compare the FAIR Plan against other insurance “safety-net” programs (CIGA, CLHIGA, and the CEA) that expressly authorize pass-throughs. It distinguished each of Consumer Watchdog’s authorities — In re Jennings (2004) 34 Cal.4th 254, BullsEye Telecom, Inc. v. Public Utilities Com. (2021) 66 Cal.App.5th 301, Goldstein v. California Unemployment Ins. Appeals Bd. (2019) 34 Cal.App.5th 1006, and Medical Bd. of California v. Superior Court (2001) 88 Cal.App.4th 1001 — noting that each involved a genuinely ambiguous statute and that none endorsed reading an affirmative limitation into a statute from a comparison to different schemes. Invoking the plain-meaning rule (Kavanaugh v. West Sonoma County Union High School Dist. (2003) 29 Cal.4th 911; Burden v. Snowden (1992) 2 Cal.4th 556), and finding Gomes v. Mendocino City Community Services Dist. (2019) 35 Cal.App.5th 249 more persuasive, the court concluded that the absence of express pass-through language in the FAIR Plan statutes could not be construed as an affirmative limit on authority the Commissioner otherwise holds under Proposition 103.
The two sides framed the outcome very differently. In a July 1, 2026 press release titled “Commissioner Lara defeats attempt to undermine California insurance market,” the Department cast the ruling as vindication of the Commissioner’s authority to stabilize the market. (The Department’s framing was echoed in trade coverage.)
Consumer Watchdog, in a same-day statement (“Court Upholds FAIR Plan Surcharges, Consumer Watchdog Weighs Appeal”), respectfully acknowledged the ruling but sharply criticized the Commissioner and said it is reviewing its options, including an appeal.
The litigation sits within a broader, contentious backdrop around the commissioners “Sustainable Insurance Strategy.” Consumer Watchdog has repeatedly tied the case to criticism of the Commissioner, and has noted that former Insurance Commissioner (and later Congressman) John Garamendi publicly urged Lara to resign in 2025, saying he had not been willing to stand up to the insurance industry. Whether Consumer Watchdog appeals — which would move the section 10095(c) question, and potentially the reserved standing and Proposition 103 issues, before the Court of Appeal — remains to be seen.