TALLAHASSEE - The Florida Legislature voted Monday to overhaul the state's hurricane-insurance market, promising big savings for homeowners and businesses while expanding the role and risk of the state as never before.

But despite the politicians' promises, they wouldn't and couldn't guarantee how large those savings will be for most people or when they will begin.

The bill, which Gov. Charlie Crist said he will sign as early as Wednesday, has no clear requirement for immediate across-the-board rate reductions and relies on ever-changing calculations. Estimated average savings: about 22 percent for private-insurance customers and 8 percent to nearly 19 percent for those covered by Citizens Property Insurance.

Those promised savings, though, could be permanently shattered if a major hurricane hits, because the Legislature has pledged the state's finances to cover damages that exceed about $35 billion. If that happens, Floridians can expect increases on everyone's windstorm policies -- as well as their car, fire and liability insurance as well.

''What we're doing is we're gambling. We're doing that with all the people of the state of Florida. That's what insurance is -- gambling,'' said Rep. Ronald Reagan, a Bradenton Republican who helped craft the bill.

Crist, who had said he would accept nothing less than substantial rate reduction, said he was comfortable with the risk and the shifting numbers because he's an ''optimist.'' He joined legislators to jubilantly cheer the bill, acknowledging that while he threatened a veto early in the day, lawmakers addressed his concerns.

''They said this could not be done. You've done it,'' Crist said. ``We are going to lower rates in a meaningful way. This is a great start.''

The bill not only rolls back huge planned rate increases for Citizens, it allows more commercial businesses into Citizens and adds $100 million in new federal money to beef up the My Safe Florida Home Program, which subsidizes inspections and storm-proofing of some homes.

Lawmakers and analysts estimated the average homeowner lives in a structure sound enough to merit an 18 percent rate cut. Legislators said the bill codifies rate cuts for home improvements, such as adding shutters or strengthening roofs.

After congratulating themselves for the bipartisan, ''responsible'' work that lowers rates but doesn't raise taxes, lawmakers approved the final package 40-0 in the Senate -- where Kumbaya was played after the vote -- and 116-2 in the House, with the House's two former insurance chairmen, Republicans Dennis Ross of Lakeland and Don Brown of DeFuniak Springs, voting no.

NEW DIRECTION

The two men crafted last year's law that legislators spent the last week trying to undo. That plan was designed to lower premiums and increase competition, but it didn't stop rising insurance costs or deter insurance companies from leaving the state.

Almost as uncertain as the weather are the many unknowns in expanding the state-run insurer, Citizens, and requiring the state to assume more risk by offering below-market-rate ''reinsurance'' to private companies. Among the unknowns:

• The effect the Citizens expansion will have on insurance costs statewide. A deficit in Citizens would be made up by assessments on most other policies in Florida and could potentially offset savings brought about by the plan.

• Whether Citizens' ability to offer more kinds of state-subsidized insurance will help or discourage private competition. The insurance industry warns that it's unfair and foolhardy.