On June 24, the mayor and council of Lake City, Florida, gathered in an emergency session to decide how to resolve a ransomware attack that had locked the city's computer files for the preceding fortnight. Following the Pledge of Allegiance, Mayor Stephen Witt led an invocation. "Our heavenly father," Witt said, "we ask for your guidance today, that we do what's best for our city and our community."

Witt and the council members also sought guidance from City Manager Joseph Helfenberger. He recommended that the city allow its cyber insurer, Beazley, an underwriter at Lloyd's of London, to pay the ransom of 42 bitcoin, then worth about $460,000. Lake City, which was covered for ransomware under its cyber-insurance policy, would only be responsible for a $10,000 deductible. In exchange for the ransom, the hacker would provide a key to unlock the files.

"If this process works, it would save the city substantially in both time and money," Helfenberger told them.

Without asking questions or deliberating, the mayor and the council unanimously approved paying the ransom. The six-figure payment, one of several that US cities have handed over to hackers in recent months to retrieve files, made national headlines.

Left unmentioned in Helfenberger's briefing was that the city's IT staff, together with an outside vendor, had been pursuing an alternative approach. Since the attack, they had been attempting to recover backup files that were deleted during the incident. On Beazley's recommendation, the city chose to pay the ransom because the cost of a prolonged recovery from backups would have exceeded its $1 million coverage limit, and because it wanted to resume normal services as quickly as possible.

"Our insurance company made [the decision] for us," city spokesman Michael Lee, a sergeant in the Lake City Police Department, said. "At the end of the day, it really boils down to a business decision on the insurance side of things: them looking at how much is it going to cost to fix it ourselves and how much is it going to cost to pay the ransom."

The mayor, Witt, said in an interview that he was aware of the efforts to recover backup files but preferred to have the insurer pay the ransom because it was less expensive for the city. "We pay a $10,000 deductible, and we get back to business, hopefully," he said. "Or we go, 'No, we're not going to do that,' then we spend money we don't have to just get back up and running. And so to me, it wasn't a pleasant decision, but it was the only decision."

Across America

Ransomware is proliferating across America, disabling computer systems of corporations, city governments, schools and police departments. This month, attackers seeking millions of dollars encrypted the files of 22 Texas municipalities. Overlooked in the ransomware spree is the role of an industry that is both fueling and benefiting from it: insurance. In recent years, cyber insurance sold by domestic and foreign companies has grown into an estimated $7 billion to $8 billion-a-year market in the US alone, according to Fred Eslami, an associate director at AM Best, a credit rating agency that focuses on the insurance industry. While insurers do not release information about ransom payments, ProPublica has found that they often accommodate attackers' demands, even when alternatives such as saved backup files may be available.

The FBI and security researchers say paying ransoms contributes to the profitability and spread of cybercrime and in some cases may ultimately be funding terrorist regimes. But for insurers, it makes financial sense, industry insiders said. It holds down claim costs by avoiding expenses such as covering lost revenue from snarled services and ongoing fees for consultants aiding in data recovery. And, by rewarding hackers, it encourages more ransomware attacks, which in turn frighten more businesses and government agencies into buying policies.

"The onus isn't on the insurance company to stop the criminal, that's not their mission. Their objective is to help you get back to business. But it does beg the question, when you pay out to these criminals, what happens in the future?" said Loretta Worters, spokeswoman for the Insurance Information Institute, a nonprofit industry group based in New York. Attackers "see the deep pockets. You've got the insurance industry that's going to pay out, this is great."

Mitigate losses

A spokesperson for Lloyd's, which underwrites about one-third of the global cyber-insurance market, said that coverage is designed to mitigate losses and protect against future attacks, and that victims decide whether to pay ransoms. "Coverage is likely to include, in the event of an attack, access to experts who will help repair the damage caused by any cyberattack and ensure any weaknesses in a company's cyberprotection are eliminated," the spokesperson said. "A decision whether to pay a ransom will fall to the company or individual that has been attacked." Beazley declined comment.

Fabian Wosar, chief technology officer for anti-virus provider Emsisoft, said he recently consulted for one US corporation that was attacked by ransomware. After it was determined that restoring files from backups would take weeks, the company's insurer pressured it to pay the ransom, he said. The insurer wanted to avoid having to reimburse the victim for revenues lost as a result of service interruptions during recovery of backup files, as its coverage required, Wosar said. The company agreed to have the insurer pay the approximately $100,000 ransom. But the decryptor obtained from the attacker in return didn't work properly and Wosar was called in to fix it, which he did. He declined to identify the client and the insurer, which also covered his services.

"Paying the ransom was a lot cheaper for the insurer," he said. "Cyber insurance is what's keeping ransomware alive today. It's a perverted relationship. They will pay anything, as long as it is cheaper than the loss of revenue they have to cover otherwise."

Worters, the industry spokeswoman, said ransom payments aren't the only example of insurers saving money by enriching criminals. For instance, the companies may pay fraudulent claims—for example, from a policyholder who sets a car on fire to collect auto insurance—when it's cheaper than pursuing criminal charges. "You don't want to perpetuate people committing fraud," she said. "But there are some times, quite honestly, when companies say: 'This fraud is not a ton of money. We are better off paying this.' ... It's much like the ransomware, where you're paying all these experts and lawyers, and it becomes this huge thing."

“Minimize losses”

Insurers approve or recommend paying a ransom when doing so is likely to minimize costs by restoring operations quickly, regulators said. As in Lake City, recovering files from backups can be arduous and time-consuming, potentially leaving insurers on the hook for costs ranging from employee overtime to crisis management public relations efforts, they said.

"They're going to look at their overall claim and dollar exposure and try to minimize their losses," said Eric Nordman, a former director of the regulatory services division of the National Association of Insurance Commissioners, or NAIC, the organization of state insurance regulators. "If it's more expeditious to pay the ransom and get the key to unlock it, then that's what they'll do."

As insurance companies have approved six- and seven-figure ransom payments over the past year, criminals' demands have climbed. The average ransom payment among clients of Coveware, a Connecticut firm that specializes in ransomware cases, is about $36,000, according to its quarterly report released in July, up sixfold from last October. Josh Zelonis, a principal analyst for the Massachusetts-based research company Forrester, said the increase in payments by cyber insurers has correlated with a resurgence in ransomware after it had started to fall out of favor in the criminal world about two years ago.

One cybersecurity company executive said his firm has been told by the FBI that hackers are specifically extorting American companies that they know have cyber insurance. After one small insurer highlighted the names of some of its cyber policyholders on its website, three of them were attacked by ransomware, Wosar said. Hackers could also identify insured targets from public filings; the Securities and Exchange Commission suggests that public companies consider reporting "insurance coverage relating to cybersecurity incidents."

“They’re going to ask for more”

Even when the attackers don't know that insurers are footing the bill, the repeated capitulations to their demands give them confidence to ask for ever-higher sums, said Thomas Hofmann, vice president of intelligence at Flashpoint, a cyber-risk intelligence firm that works with ransomware victims.

Ransom demands used to be "a lot less," said Worters, the industry spokeswoman. But if hackers think they can get more, "they're going to ask for more. So that's what's happening. ... That's certainly a concern."

In the past year, dozens of public entities in the US have been paralyzed by ransomware. Many have paid the ransoms, either from their own funds or through insurance, but others have refused on the grounds that it's immoral to reward criminals. Rather than pay a $76,000 ransom in May, the city of Baltimore—which did not have cyber insurance—sacrificed more than $5.3 million to date in recovery expenses, a spokesman for the mayor said this month. Similarly, Atlanta, which did have a cyber policy, spurned a $51,000 ransom demand last year and has spent about $8.5 million responding to the attack and recovering files, a spokesman said this month. Spurred by those and other cities, the US Conference of Mayors adopted a resolution this summer not to pay ransoms.

Still, many public agencies are delighted to have their insurers cover ransoms, especially when the ransomware has also encrypted backup files. Johannesburg-Lewiston Area Schools, a school district in Michigan, faced that predicament after being attacked in October. Beazley, the insurer handling the claim, helped the district conduct a cost-benefit analysis, which found that paying a ransom was preferable to rebuilding the systems from scratch, said Superintendent Kathleen Xenakis-Makowski.

"They sat down with our technology director and said, 'This is what's affected, and this is what it would take to re-create,'" said Xenakis-Makowski, who has since spoken at conferences for school officials about the importance of having cyber insurance. She said the district did not discuss the ransom decision publicly at the time in part to avoid a prolonged debate over the ethics of paying. "There's just certain things you have to do to make things work," she said.

Ransomware is everywhere

Ransomware is one of the most common cybercrimes in the world. Although it is often cast as a foreign problem, because hacks tend to originate from countries such as Russia and Iran, ProPublica has found that American industries have fostered its proliferation. ProPublica reported in May on two ransomware data recovery firms that purported to use their own technology to disable ransomware but in reality often just paid the attackers. One of the firms, Proven Data, of Elmsford, New York, tells victims on its website that insurance is likely to cover the cost of ransomware recovery.

Lloyd's of London, the world's largest specialty insurance market, said it pioneered the first cyber liability policy in 1999. Today, it offers cyber coverage through 74 syndicates—formed by one or more Lloyd's members such as Beazley joining together—that provide capital and accept and spread risk. Eighty percent of the cyber insurance written at Lloyd's is for entities based in the US. The Lloyd's market is famous for insuring complex, high-risk, and unusual exposures, such as climate-change consequences, Arctic explorers and Bruce Springsteen's voice.

Many insurers were initially reluctant to cover cyber disasters, in part because of the lack of reliable actuarial data. When they protect customers against traditional risks such as fires, floods and auto accidents, they price policies based on authoritative information from national and industry sources. But, as Lloyd's noted in a 2017 report, "there are no equivalent sources for cyber-risk," and the data used to set premiums is collected from the Internet. Such publicly available data is likely to underestimate the potential financial impact of ransomware for an insurer. According to a report by global consulting firm PwC, both insurers and victimized companies are reluctant to disclose breaches because of concerns over loss of competitive advantage or reputational damage.