1

                                                                   EXHIBIT 10.28

                           FLOOD INSURANCE AGREEMENT

THIS FLOOD INSURANCE AGREEMENT("Agreement")is entered into this 6TH day of
January, 1998, by and between FIRST COMMUNITY INSURANCE COMPANY, 360 Central
Avenue, St. Petersburg, Florida 33701 (hereinafter referred to as "FCIC") and
KEYSTONE INSURANCE COMPANY, whose principal place of business is located at 2040
Market Street, Philadelphia, Pennsylvania 19103, and its Subsidiaries,
(hereinafter collectively referred to as "Keystone"), who mutually agree as
follows:

I.       Duties of Keystone as Broker:

         A.       Keystone shall solicit and submit applications, together with
                  premiums due, for the Flood Insurance Policies as authorized
                  under the National Flood Insurance Act, subject to the
                  published authority of the Federal Emergency Management
                  Agency/Federal Insurance Administration (FEMA/FIA).

         B.       Keystone shall comply with the underwriting guidelines,
                  bulletins, manuals, and written instructions issued by the
                  FCIC or the Federal Emergency Management Agency/Federal
                  Insurance Administration (FEMA/FIA) regarding the
                  solicitation and submission of flood insurance applications.

         C.       Keystone shall report all claims and claims related activity
                  promptly to FCIC.

II.      Duties of FCIC as Insurer:

         A.       FCIC shall underwrite and issue Flood Insurance Policies to
                  all applicants whose applications are submitted under this
                  Agreement who qualify under the National Flood Insurance Act
                  and comply with the underwriting guidelines, bulletins,
                  manuals and written instructions of FCIC and FEMA/FIA. FCIC
                  shall provide customary policyholder services to all FCIC
                  policyholders, whose policies have been written under this
                  Agreement.

         B.       FCIC shall provide Keystone with all underwriting guidelines,
                  bulletins, manuals and written instructions necessary for
                  Keystone to perform its duties under this Agreement in
                  compliance with the National Flood Insurance Act and
                  implementing regulations of FEMA and FIA.

         C.       FCIC shall adjust and pay all claims made by insureds under
                  polices solicited by Keystone under this Agreement.

         D.       FCIC shall provide a direct billed renewal premium notice to
                  each designated payor of a flood insurance policy written
                  pursuant to this Agreement prior to the expiration date of the
                  policy and shall provide Keystone with notice of the upcoming
                  expiration of such policies.

III.     Marketing Program:

         A.       Keystone shall implement a marketing program, to cross sell
                  FCIC flood insurance to Keystone's Homeowner File, using the
                  Laser Integrated Method as provided by LIM Systems
                  International, Inc. Additional insurance product lines may be
                  cross sold, pursuant to this paragraph, upon mutual written
                  agreement of the parties.

         B.       "Keystone's Homeowner File" shall be defined as those
                  homeowner files where Keystone is the insurer.




   2



         C.       In order to implement the Marketing Program, Keystone shall
                  provide FCIC with an electronic file showing the policyholder
                  names and risk locations for renewing Keystone homeowner
                  policyholders who have not previously been solicited or
                  purchased flood insurance under this Agreement. Keystone shall
                  submit such files on a quarterly basis, 120 days prior to the
                  policy renewal date. FCIC shall designate the flood zone and
                  community identifier, as determined by FEMA/FIA, for each
                  policy and return the electronic file to Keystone or a third
                  party designated by Keystone fifty (50) days prior to the
                  policy renewal date. The format of the electronic file will be
                  agreed upon by the parties.

IV.      Compensation:

         A.       FCIC will compensate Keystone for all acts performed under
                  Section I of this Agreement in accordance with the attached
                  Commission Schedule "A". After this Agreement has been in
                  effect for one (1) year, the Commission Schedule "A" may be
                  amended by FCIC, from time to time, upon thirty (30) days
                  written notice to Keystone. Notwithstanding, the Commission
                  Schedule may be amended by FCIC, at any time, upon thirty (30)
                  days written notice to Keystone, should the Fee Structure be
                  amended or modified by FEMA/FIA or the NFIP.

         B.       FCIC will compensate Keystone for all acts performed under
                  Section III of this Agreement in accordance with the attached
                  Commission Schedule "B". After this Agreement has been in
                  effect for one (1) year, the Commission Schedule "B" may be
                  amended by FCIC, from time to time, upon thirty (30) days
                  written notice to Keystone.

         C.       FCIC shall deduct from commission payments due Keystone, on
                  business written pursuant to or as a result of Section I or
                  Section III of this Agreement, compensation on canceled
                  policies and on reductions in premiums at the rate at which
                  such compensation was originally paid. Notwithstanding, if no
                  commission is due Keystone, Keystone shall refund promptly to
                  FCIC on business heretofore or hereafter written, pursuant to
                  or as a result of Section I or Section III of this Agreement,
                  compensation on canceled policies and on reductions in
                  premiums at the rate at which such compensation was originally
                  paid.

         D.       Compensation due under this Agreement is to be payable only
                  during the continuance of this Agreement and under its terms,
                  and while Keystone is actively producing and servicing
                  business hereunder. Any provision of this Agreement providing
                  for payment off compensation shall be subject to any
                  indebtedness by Keystone to FCIC arising out of flood
                  insurance policy premium transactions. FCIC shall have the
                  right to withhold payments to offset any such indebtedness;
                  provided, however, that any withholding of compensation shall
                  be only to the extent necessary to liquidate such
                  indebtedness.

V.       Limitation of Authority:

         A.       No provisions of this Agreement shall be construed to create
                  the relation of employer and employee between Keystone and
                  FCIC. Keystone and FCIC shall act as independent contractors
                  and Keystone shall be free within the prescribed underwriting
                  guidelines of FCIC or the Federal Emergency Management Agency
                  /Federal Insurance Administration (FEMA/FIA) in force at the
                  time to exercise its own judgment as to whom it will solicit,
                  and the time, place and manner, and the amount of such
                  solicitation.



   3



         B.       Keystone has no authority to extend time of payment of
                  premiums, or to waive or extend any obligation or condition of
                  the Standard Flood Insurance Policy, or incur any liability on
                  behalf of FCIC.

         C.       Keystone shall not pay claims or commit FCIC to the payment of
                  claims.

VI.      Assignment: All terms and conditions of this Agreement, including
         attachments, addendum, schedules and guaranty or indemnification
         agreements shall inure to the benefit of, and be binding upon, the
         parties hereto, their successors, heirs, administrators and assigns;
         provided, however, that this Agreement may not be assigned by either
         party without the prior written consent of the other party.

VII.     Warranties and Convents:

         A.       Keystone hereby warrants and covenants that it will comply
                  with all applicable state and federal statutes, rules and
                  regulations governing the solicitation and sale of flood
                  insurance under the National Flood insurance Act in the
                  state(s) of performance under this Agreement and shall
                  continue to comply with same so long as the Agreement shall
                  remain in effect. Further, Keystone specifically warrants and
                  covenants that any employee or agent acting on its behalf,
                  when producing business for FCIC pursuant to this Agreement,
                  shall comply with all of the applicable provisions of this
                  Agreement, including, but not limited to Section I of this
                  Agreement.

         B.       FCIC hereby warrants and covenants that it will comply with
                  all applicable state and federal statutes, rules and
                  regulations governing the business of insurance in the
                  state(s) of performance under this Agreement, including but
                  not limited to the National Flood Insurance Act and
                  regulations of FEMA/FIA, and shall continue to comply with
                  same so long as the Agreement shall remain in effect.

         C.       FCIC represents and warrants that the advent of the year 2000
                  shall not adversely affect the performance of its duties under
                  this Agreement with respect to date and date dependent data
                  and, more specifically, that all software used in the
                  performance of such duties shall be capable of (i) date
                  recognition and date calculations, comparison and sequencing,
                  (ii) manipulating date and date related data with dates prior
                  to, through and after January 1, 2000, (iii) transitioning
                  correctly into the year 2000 with the correct system date
                  without human intervention, including leap year calculations
                  and (iv) providing correct results when moving forward or
                  backward in time across the year 2000.

VIII.    Proprietary and Confidential Information:

         A.       FCIC expressly acknowledges that certain information of
                  Keystone, including but not limited to the names, addresses
                  and policy information of its insureds, its business practices
                  and strategies and its contracts with third parties
                  (hereinafter "Proprietary and Confidential Information"), is
                  proprietary and confidential information of Keystone that FCIC
                  shall safeguard as it would FCIC's own such information. FCIC
                  shall use the Proprietary and Confidential Information of
                  Keystone solely to perform it duties under this Agreement and
                  shall disclose such information to third parties only upon
                  written authorization of Keystone. The term "Proprietary and
                  Confidential Information" does not include information which
                  is or becomes generally available to the public other than as
                  a result of a disclosure by FCIC. The provisions of this
                  Section shall survive the termination of this Agreement.



   4




         B.       During the term of this Agreement and for a period of two (2)
                  years following its termination, FCIC shall not solicit
                  Keystone insureds for any insurance product other than Flood
                  Insurance Policies under the National Flood Insurance Act
                  without the express written authorization of Keystone.
                  Notwithstanding the foregoing, it is understood and agreed
                  that in the ordinary course of business of marketing its
                  products to the general public, FCIC, its agents, affiliates
                  or subsidiaries are likely to encounter certain Keystone
                  insureds without emphasizing, targeting, or focusing upon them
                  as such. This section is not intended to prohibit the above
                  contacts or business resulting from the above contacts so long
                  as they neither result from nor are the product of activity
                  otherwise prohibited by this section. This provisions of this
                  section shall survive the termination of this Agreement for
                  the period stated above.


IX.      Termination:

         A.       This Agreement shall be for a period of three (3) years,
                  commencing upon the execution of this Agreement, provided,
                  however, that this Agreement shall automatically be renewed
                  for successive one (1) year terms thereafter, unless either
                  party gives the other written notice to terminate the
                  Agreement at the expiration of any term, which notice must be
                  given at least sixty (60) days prior to the expiration of said
                  term.

         B.       Notwithstanding the foregoing, this Agreement may be
                  terminated by either party upon giving to the other a written
                  notice at least 90 days prior to the effective date of such
                  termination; provided, however, either party may terminate
                  this Agreement immediately without notice if the other party
                  is guilty of any material violation of the terms hereof, and
                  has not cured such material violation within thirty (30) days
                  of written notice thereof. Keystone shall be liable for all
                  costs incurred by FCIC to collect outstanding balances
                  together with interest thereon in accordance with Paragraph
                  hereof.

         C.       In the event of termination of this Agreement, Keystone shall
                  promptly account for all premiums and transactions covered by
                  this Agreement, whereupon the ownership of the flood insurance
                  business produced under this Agreement shall be left in the
                  possession of Keystone. In the event Keystone shall fail to
                  render such an accounting within 90 days of the termination
                  hereof, any and all flood insurance business produced under
                  this Agreement shall become the property of FCIC.

X.       Enforcement of Obligations: If FCIC refers this Agreement to any
         attorney for the enforcement or collection of the obligations of
         Keystone, Keystone agrees to pay to FCIC all costs of such enforcement
         or collection including any of FCIC's reasonable attorneys' fees prior
         to trial, at the trial court level, in connection with any appeal, and
         in connection with any Bankruptcy proceedings, which attorney's fees
         may be assessed and recovered in any proceeding brought hereunder. If
         Keystone fails to pay funds due FCIC as herein provided, including but
         not limited to return premiums, Keystone shall pay to FCIC in addition
         to all sums otherwise due, interest which shall accrue at 1.5% per
         month on such delinquency from the date as provided herein. Failure or
         forbearance to exercise any of its rights and privileges hereunder
         shall not constitute the forfeiture or waiver of such rights and
         privileges on the part of FCIC.

XI.      Indemnification: Keystone shall indemnify and save FCIC harmless from
         any and all costs, claims or demands (including FCIC's reasonable
         attorneys' fees whether incurred prior to the commencement of formal
         legal action, or at the trial, at the Appellate Court level or in
         Bankruptcy Court), resulting from any unauthorized acts, any error or
         omission, or any breach of any of the provisions in this Agreement by
         Keystone, its officers, directors, employees and agents (and
         specifically any agent writing business pursuant to this Agreement).
         FCIC shall hold Keystone harmless for any judgment for damages rendered
         against Keystone as a result of any court action



   5



         by a Policyholder or applicant arising out of a direct error or
         omission on the part of FCIC. FCIC shall not hold harmless or indemnify
         Keystone, or its directors, officers, employee or agents, for their own
         error and omissions.

XII.     Attorney's Fees: IF FCIC or Keystone bring a Court action alleging
         breach of this Agreement or seeking to enforce, rescind, renounce,
         declare void or terminate this Agreement or any provisions thereof, the
         prevailing party shall be entitled to recover all of its legal
         expenses, including reasonable attorney's fees and cost (including
         legal expenses for any appeals taken) and to have the same awarded as
         part of the judgment in the proceeding in which such legal expenses and
         attorney's fees were incurred. Further, it is understood and agreed
         that should Keystone institute any Court action against FCIC, that the
         Court action shall be brought in a court of competent jurisdiction in
         Pinellas County, Florida and this Agreement shall be construed in
         accordance with the laws of the State of Florida. Likewise, it is
         understood and agreed that should FCIC institute any Court action
         against Keystone, that this action shall be brought in a court of
         competent jurisdiction in Philadelphia County, Pennsylvania and the
         Agreement shall be construed in accordance with the laws of the
         Commonwealth of Pennsylvania.

XIII.    General Agreements:

         A.       It is mutually agreed that if either parry deviates from the
                  provisions of the Agreement, whether or not such deviation is
                  protested by the other party or parties, such deviation shall
                  not be held to have changed this Agreement, or the rights of
                  the parties hereunder in any respect. No change in or
                  modification to this Agreement, excluding specifically any
                  change or modification to the attached Commission Schedule(s),
                  shall be valid and binding unless reduced to writing and
                  executed by both parties. The attached Commission Schedules
                  may be amended as provided within this Agreement.

         B.       Applications, advertising material and other material
                  furnished by FCIC are the property of FCIC and will be
                  returned to FCIC upon termination of the Agreement. All data,
                  logos and other materials furnished to FCIC by Keystone are
                  the property of Keystone and will be returned to Keystone upon
                  termination of this Agreement. Further, Keystone shall review
                  and approve, at origination, FCIC's use of the Keystone, AAA
                  Mid-Atlantic logo.

         C.       Keystone shall allow FCIC to audit all books and records
                  relating to insurance written pursuant to this Agreement.

         D.       All accounting, information system, agency licensing and cash
                  flow functions shall be handled by FCIC and Keystone in
                  accordance with standard insurance business practices and
                  applicable federal and state statutes and regulations.

XIV.     Notices: Any and all notices, designations, consents, offers,
         acceptances, or any other communication provided for herein, shall be
         given in writing by certified mail, by hand delivery, by express
         overnight courier or by facsimile transmission. All notices sent by
         certified mail shall be deemed delivered on the second regular business
         day after the post mark. All notices sent by express overnight courier
         shall be deemed delivered on the day after pickup by the courier. All
         notices sent by hand delivery or facsimile transmission shall be deemed
         delivered on the day of hand delivery or facsimile transmission unless
         delivered or transmitted after 5 p.m., whereupon, delivery shall be
         deemed effective on the next regular business day. All notices shall be
         addressed as follows:



   6


                             COMMISSION SCHEDULE "A"

FCIC shall compensate Keystone for all acts performed and all flood insurance
business produced pursuant to Section I of the Agreement in the amount of 18% on
the annual written premium per policy issued by FCIC. This Commission Schedule
may be amended, at any time, by FCIC upon thirty (30) days written notice to
Keystone in accordance with the Agreement. Commission shall be paid monthly on
the 15th day of the month following receipt of the corresponding premium by
FCIC.

   7

   8
                            COMMISSION SCHEDULE "B"
 
FCIC shall compensate Keystone for all acts performed and all flood insurance
business produced pursuant to Section III of the Agreement in the amount of 10%
on the annual written premium per policy issued by FCIC.  This Commission
Schedule may be amended, at any time, by FCIC upon thirty (30) days written
notice to Keystone in accordance with the Agreement.  Commission shall be paid
monthly on the 15th day of the month following receipt of the corresponding
premium by FCIC.


   9
        As to Keystone:   Keystone Insurance Company
                          2040 Market Street
                                            -----------------------    
                          Philadelphia, Pennsylvania 19103             
                                                          ---------    
        Attention:        Robert Iwanczuk                              
                                         --------------------------    
        Fax No.:          (215) 568-1153                               
                                         --------------------------    
                                                                       
        As to FCIC:       First Community Insurance Company            
                          360 Central                                  
                                     ------------------------------    
                          St. Petersburg, FL 33701                     
                                                  -----------------    
        Attention:        Kathleen M. Batson                           
                                             ----------------------    
        Fax No.:          (813) 823-6518                               
                                        ---------------------------    
                                                                       
    
This Agreement constitutes the full agreement, oral, or written, between FCIC,
and Keystone, but shall be subject to such changes as may be provided in writing
from time to time.

IN WITNESS WHEREOF, the Parties hereto have executed this Agreement.

                                       KEYSTONE INSURANCE COMPANY:

Signed this 16 day of January, 1998    By /s/ Terrance R. Powers
                                          ---------------------------

                                       Title Executive Vice President
                                             ------------------------

                                       Broker No.
                                                 --------------------

Signed this 6 day of January, 1998     FIRST COMMUNITY INSURANCE COMPANY

                                       By /s/ Kathleen M. Batson
                                          ------------------------------

                                       Title Senior Vice President
                                             ---------------------------