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The issue imo that the authors disregarded is the many different niches of insurance it allows an agent to sell.
While I am not a huge fan of excessive regulation, you might be on to something. In PC( at least in Michigan), there is Personal Lines PC or the full PC license. So, can't sell or legit service Farm, Commercial, WC,BAP,etc without the full license. Life basic if it became your trademark could maybe handle term life, then maybe mid level term & Final expense, then advanced term, WL, UL, IUL, Annuity.
The reason I cringe though is all the new annuity regs to control the bad agents & bad carriers (suitability & best interest), were intended to protect lower knowledge consumers. In reality, it has kept those same less knowledgeable savers with little to invest from having any place to easily save as those most knowledgeable about annuity can't make money on anything other than large existing rollovers or already existing large sums saved elsewhere currently
Edit-- carriers would not want layered licenses. Can you imagine those carriers or IMO having to police if someone had correct level of license to sell their basic or complicated products
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