2021 Enterprise Housing Goals, 49312-49322 [2020-15959]
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Federal Register / Vol. 85, No. 157 / Thursday, August 13, 2020 / Proposed Rules
FEDERAL HOUSING FINANCE
AGENCY
Alfred M. Pollard, General Counsel,
Attention: Comments/RIN 2590–AB04,
Federal Housing Finance Agency,
Eighth Floor, 400 Seventh Street SW,
Washington, DC 20219. Please note that
all mail sent to FHFA via U.S. Mail is
routed through a national irradiation
facility, a process that may delay
delivery by approximately two weeks.
12 CFR Part 1282
FOR FURTHER INFORMATION CONTACT:
are not currently subject to energy
conservation standards.
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[FR Doc. 2020–15750 Filed 8–12–20; 8:45 am]
BILLING CODE 6450–01–P
RIN 2590–AB04
2021 Enterprise Housing Goals
Federal Housing Finance
Agency.
ACTION: Proposed rule.
AGENCY:
The Federal Housing Finance
Agency (FHFA) is proposing a rule and
seeking comments on proposed
benchmark levels for the 2021 housing
goals for Fannie Mae and Freddie Mac
(the Enterprises). The housing goals
apply to mortgages purchased by the
Enterprises and include separate
categories for single-family and
multifamily housing that is affordable to
low-income and very low-income
families, among other categories. This
proposed rule would establish
benchmark levels for each of the
housing goals for 2021.
DATES: Comments must be received on
or before October 13, 2020.
ADDRESSES: You may submit your
comments on the proposed rule,
identified by regulatory information
number (RIN) 2590–AB04, by any one of
the following methods:
• Agency Website: https://
www.fhfa.gov/open-for-comment-orinput.
• Federal eRulemaking Portal:
https://www.regulations.gov. Follow the
instructions for submitting comments. If
you submit your comment to the
Federal eRulemaking Portal, please also
send it by email to FHFA at
RegComments@fhfa.gov to ensure
timely receipt by FHFA. Include the
following information in the subject line
of your submission: Comments/RIN
2590–AB04.
• Hand Delivered/Courier: The hand
delivery address is: Alfred M. Pollard,
General Counsel, Attention: Comments/
RIN 2590–AB04, Federal Housing
Finance Agency, Eighth Floor, 400
Seventh Street SW, Washington, DC
20219. Deliver the package at the
Seventh Street entrance Guard Desk,
First Floor, on business days between 9
a.m. and 5 p.m.
• U.S. Mail, United Parcel Service,
Federal Express, or Other Mail Service:
The mailing address for comments is:
SUMMARY:
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Ted
Wartell, Associate Director, Housing &
Community Investment, Division of
Housing Mission and Goals, at (202)
649–3157, Ted.Wartell@fhfa.gov;
Padmasini Raman at (202) 649–3633,
Padmasini.Raman@fhfa.gov; or Kevin
Sheehan, Associate General Counsel,
Office of General Counsel, (202) 649–
3086, Kevin.Sheehan@fhfa.gov. These
are not toll-free numbers. The mailing
address is: Federal Housing Finance
Agency, 400 Seventh Street SW,
Washington, DC 20219. The telephone
number for the Telecommunications
Device for the Deaf is (800) 877–8339.
SUPPLEMENTARY INFORMATION:
I. Comments
FHFA invites comments on all aspects
of the proposed rule and will take all
comments into consideration before
issuing a final rule. Copies of all
comments on the proposed rule will be
posted without change, including any
personal information you provide such
as your name, address, email address,
and telephone number, on the FHFA
website at https://www.fhfa.gov. In
addition, copies of all comments
received will be available for
examination by the public through the
electronic rulemaking docket for this
proposed rule also located on the FHFA
website.
II. Background
Uncertainty over public health and
the economic impacts of the COVID–19
pandemic has caused significant
disruption in both the single-family and
multifamily housing markets since
March. For reasons explained in more
detail later in the proposed rule, due to
the unexpectedly severe nature of the
COVID–19 pandemic and associated
economic uncertainty, FHFA is
proposing benchmark levels for the
single-family and multifamily goals for
calendar year 2021 only. The proposed
benchmark levels are set forth below
and would be the same as those for
2018–2020. FHFA will subsequently
conduct a new round of notice and
comment rulemaking to establish
benchmark levels for 2022 and beyond.
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A. Statutory and Regulatory Background
for the Existing Housing Goals
The Federal Housing Enterprises
Financial Safety and Soundness Act of
1992 (Safety and Soundness Act)
requires FHFA to establish several
annual housing goals for both singlefamily and multifamily mortgages
purchased by Fannie Mae and Freddie
Mac.1 The annual housing goals are one
measure of the extent to which the
Enterprises are meeting their public
purposes, which include ‘‘an affirmative
obligation to facilitate the financing of
affordable housing for low- and
moderate-income families in a manner
consistent with their overall public
purposes, while maintaining a strong
financial condition and a reasonable
economic return.’’ 2
FHFA has established annual housing
goals for Enterprise purchases of singlefamily and multifamily goals consistent
with the requirements of the Safety and
Soundness Act. The structure of the
housing goals and the rules for
determining how mortgage purchases
are counted or not counted are defined
in the housing goals regulation.3 The
most recent rule established benchmark
levels for the housing goals for 2018–
2020.4 This proposed rule would
establish benchmark levels for 2021, but
it would not make any other changes to
the housing goals regulation.
Single-family goals. The single-family
goals defined under the Safety and
Soundness Act include separate
categories for home purchase mortgages
for low-income families, very lowincome families, and families that reside
in low-income areas.5 FHFA has also
established a subgoal within the lowincome areas goal that is limited to
families in low-income census tracts
and moderate-income families in
minority census tracts. Performance on
the single-family home purchase goals is
measured as the percentage of the total
home purchase mortgages purchased by
an Enterprise each year that qualify for
each goal or subgoal. There is also a
separate goal for refinancing mortgages
for low-income families, and
1 See
12 U.S.C. 4561(a).
12 U.S.C. 4501(7).
3 See 12 CFR part 1282.
4 See 83 FR 5878 (Feb. 12, 2018).
5 The low-income areas housing goal includes (1)
families in ‘‘low-income census tracts,’’ defined as
census tracts with median income less than or equal
to 80 percent of AMI; (2) families with incomes less
than or equal to area median income who reside in
minority census tracts (defined as census tracts
with a minority population of at least 30 percent
and a tract median income of less than 100 percent
of AMI); and (3) families with incomes less than or
equal to 100 percent of area median income who
reside in designated disaster areas.
2 See
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performance on the refinancing goal is
determined in a similar way.
Under the Safety and Soundness Act,
the single-family housing goals are
limited to mortgages on owner-occupied
housing with one to four units total. The
single-family goals cover conventional,
conforming mortgages, defined as
mortgages that are not insured or
guaranteed by the Federal Housing
Administration or another government
agency and with principal balances that
do not exceed the conforming loan
limits for Enterprise mortgages.
Two-part evaluation approach. The
performance of the Enterprises on the
housing goals is evaluated using a twopart approach, comparing the goalqualifying share of the Enterprise’s
mortgage purchases to two separate
measures: A benchmark level; and a
market level. In order to meet a singlefamily housing goal, the percentage of
mortgage purchases by an Enterprise
that meet each goal must equal or
exceed either the benchmark level or the
market level for that year. The
benchmark level is set prospectively by
rulemaking based on various factors set
forth in the Safety and Soundness Act.6
The market level is determined
retrospectively for each year, based on
the actual goal-qualifying share of the
overall market as measured by the Home
Mortgage Disclosure Act (HMDA) data
for that year. The overall market that
FHFA uses for setting both the
prospective benchmark level and the
retrospective market level consists of all
single-family owner-occupied
conventional conforming mortgages that
would be eligible for purchase by either
Enterprise. It includes loans purchased
by the Enterprises as well as comparable
loans held in a lender’s portfolio. It also
includes any loans that are part of a
private label security (PLS), though very
few such securities have been issued for
conventional conforming mortgages
since 2008.
While both the benchmark level and
the retrospective market level are
designed to measure the current year’s
mortgage originations, the performance
of the Enterprises on the housing goals
includes all Enterprise purchases in that
year, regardless of the year in which the
loan was originated. This includes
housing goals credit when the
Enterprises acquire qualified seasoned
loans. (Seasoned loans are loans that
were originated in prior years and
acquired by the Enterprise in the current
year.)
Multifamily goals. The multifamily
goals defined under the Safety and
Soundness Act include categories for
6 See
12 U.S.C. 4562(e).
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mortgages on multifamily properties
(properties with five or more units) with
rental units affordable to low-income
families and mortgages on multifamily
properties with rental units affordable to
very low-income families. FHFA has
also established a small multifamily
low-income subgoal for properties with
5–50 units. The multifamily housing
goals include all Enterprise multifamily
mortgage purchases, regardless of the
purpose of the loan. The multifamily
goals evaluate the performance of the
Enterprises based on numeric targets,
not percentages, for the number of
affordable units in properties backed by
mortgages purchased by an Enterprise.
FHFA has not established a
retrospective market level measure for
the multifamily goals, due in part to a
lack of comprehensive data about the
multifamily market. As a result, FHFA
currently measures Enterprise
multifamily goals performance against
the benchmark levels only.
The Safety and Soundness Act
requires that affordability for rental
units under the multifamily goals be
determined based on rents that ‘‘[do] not
exceed 30 percent of the maximum
income level of such income category,
with appropriate adjustments for unit
size as measured by the number of
bedrooms.’’ 7 The housing goals
regulation considers the net rent paid by
the renter and, therefore, nets out any
subsidy payments that the renter may
receive, including housing assistance
payments.
B. Adjusting the Housing Goals
If, after publication of a final rule
establishing the housing goals for 2021,
FHFA determines that any of the singlefamily or multifamily housing goals
should be adjusted in light of market
conditions, to ensure the safety and
soundness of the Enterprises, or for any
other reason, FHFA will take any steps
that are necessary and appropriate to
adjust that goal such as reducing the
benchmark levels through the processes
in the existing regulation. FHFA
recognizes that 2021 is likely to be a
year of disrupted economic activity.
While FHFA is taking this uncertainty
into consideration in proposing the
benchmark levels for 2021, FHFA may
take other actions consistent with the
7 See 12 U.S.C. 4563(c). This affordability
definition is sometimes referred to as the ‘‘Brooke
Amendment,’’ which states that to be affordable at
the 80 percent of area median income level, the
rents must not exceed 30 percent of the renter’s
income which must not exceed 80 percent of the
area median income. See https://www.huduser.gov/
portal/pdredge/pdr_edge_featd_article_092214.html
for a description of the Brooke Amendment and
background on the notion of affordability embedded
in the housing goals.
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Safety and Soundness Act and the
Enterprise housing goals regulation
based on new information or
developments that occur after
publication of a final rule.
For example, under the Safety and
Soundness Act and the Enterprise
housing goals regulation, FHFA may
reduce the benchmark levels in
response to an Enterprise petition for
reduction for any of the single-family or
multifamily housing goals in a
particular year based on a determination
by FHFA that: (1) Market and economic
conditions or the financial condition of
the Enterprise require a reduction; or (2)
efforts to meet the goal or subgoal would
result in the constraint of liquidity,
over-investment in certain market
segments, or other consequences
contrary to the intent of the Safety and
Soundness Act or the purposes of the
Enterprises’ charter acts.8
The Safety and Soundness Act and
the Enterprise housing goals regulation
also take into account the possibility
that achievement of a particular housing
goal may or may not have been feasible
for an Enterprise. If FHFA determines
that a housing goal was not feasible for
an Enterprise to achieve, then the
statute and regulation provide for no
further enforcement of that housing goal
for that year.9
If FHFA determines that an Enterprise
failed to meet a housing goal and that
achievement of the housing goal was
feasible, then the statute and regulation
provide FHFA with discretion to require
the Enterprise to submit a housing plan
describing the specific actions the
Enterprise will take to improve its
performance. FHFA is requesting
comments on factors that FHFA should
consider in determining whether to
require an Enterprise to submit a
housing plan. For example, are there
other Enterprise activities such as
forbearance actions, loss mitigation
efforts, loan modifications, and other
market support activities that FHFA
should take into account while
reviewing Enterprise goals performance
for 2021 on both the single-family and
multifamily side? While FHFA is not
proposing any change to the regulation
regarding housing plans, FHFA
welcomes input from the public on
factors that FHFA should consider in
making discretionary determinations on
whether to require a housing plan.
C. Housing Goals Under
Conservatorship
On September 6, 2008, FHFA placed
each Enterprise into conservatorship.
8 12
9 12
E:\FR\FM\13AUP1.SGM
CFR 1282.14(d).
CFR 1282.21(a); 12 U.S.C. 4566(b).
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Although the Enterprises remain in
conservatorship at this time, they
continue to have the mission of
supporting a stable and liquid national
market for residential mortgage
financing. FHFA has continued to
establish annual housing goals for the
Enterprises and to assess their
performance under the housing goals
each year during conservatorship.
III. Summary of Proposed Rule
Due to the unexpectedly severe nature
of the COVID–19 pandemic and
associated economic uncertainty, FHFA
is proposing benchmark levels for the
single-family and multifamily goals for
calendar year 2021 only. FHFA will
subsequently conduct a new round of
notice and comment rulemaking to
establish benchmark levels for 2022 and
Goal
beyond. The proposed benchmark levels
are set forth below and would be the
same as those for 2018–2020.
A. Proposed Benchmark Levels for the
Single-Family Housing Goals for 2021
This proposed rule would establish
the benchmark levels for the singlefamily housing goals and subgoal for
2021 as follows:
Current
benchmark
level for
2018–2020
(percent)
Criteria
Low-Income Home Purchase Goal
Very Low-Income Home Purchase
Goal.
Low-Income Areas Home Purchase
Subgoal.
Low-Income Refinancing Goal ........
Home purchase mortgages on single-family, owner-occupied properties
with borrowers with incomes no greater than 80 percent of area median income.
Home purchase mortgages on single-family, owner-occupied properties
with borrowers with incomes no greater than 50 percent of area median income.
Home purchase mortgages on single-family, owner-occupied properties
with:
• Borrowers in census tracts with tract median income of no greater
than 80 percent of area median income; or
• Borrowers with income no greater than 100 percent of area median
income in census tracts where (i) tract income is less than 100 percent of area median income, and (ii) minorities comprise at least 30
percent of the tract population.
Refinancing mortgages on single-family, owner-occupied properties with
borrowers with incomes no greater than 80 percent of area median
income.
The single-family housing goals also
include a Low-Income Areas Home
Purchase Goal that the regulation
defines as the benchmark level for the
Low-Income Areas Home Purchase
Subgoal plus an additional ‘‘disaster
areas’’ increment that FHFA determines
each year based on Federal Emergency
Management Agency declarations of
disasters that are applicable to that year.
The proposed rule would not make any
change to the criteria or process for
setting the additional ‘‘disaster areas’’
increment for 2021.
Units affordable to families with incomes no greater than 80 percent of
area median income in multifamily rental properties with mortgages
purchased by an Enterprise.
Units affordable to families with incomes no greater than 50 percent of
area median income in multifamily rental properties with mortgages
purchased by an Enterprise.
Units affordable to families with incomes no greater than 80 percent of
area median income in small multifamily rental properties (5 to 50
units) with mortgages purchased by an Enterprise.
Multifamily
IV. Single-Family Housing Goals
The Safety and Soundness Act
requires FHFA to consider the following
seven factors in setting the single-family
housing goals:
1. National housing needs;
2. Economic, housing, and
demographic conditions, including
expected market developments;
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3. The performance and effort of the
Enterprises toward achieving the
housing goals in previous years;
4. The ability of the Enterprises to
lead the industry in making mortgage
credit available;
5. Such other reliable mortgage data
as may be available;
6. The size of the purchase money
conventional mortgage market, or
refinance conventional mortgage
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6
6
14
14
21
21
Current
benchmark
level for
2018–2020
(units)
Low-Income Goal .............................
Small
24
The proposed rule would also
establish the benchmark levels for the
multifamily goal and subgoals for 2021
as follows:
Criteria
Low-Income
Subgoal.
24
B. Proposed Benchmark Levels for the
Multifamily Housing Goals for 2021
Goal
Very Low-Income Subgoal ..............
Proposed
benchmark
level for
2021
(percent)
Proposed
benchmark
level for
2021
(units)
315,000
315,000
60,000
60,000
10,000
10,000
market, as applicable, serving each of
the types of families described, relative
to the size of the overall purchase
money mortgage market or the overall
refinance mortgage market, respectively;
and
7. The need to maintain the sound
financial condition of the Enterprises.10
FHFA has considered each of these
10 12
E:\FR\FM\13AUP1.SGM
U.S.C. 4562(e)(2)(B).
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seven statutory factors in setting the
proposed benchmark levels for each of
the single-family housing goals and
subgoal.
In setting the benchmark levels for the
single-family housing goals, FHFA
typically relies on statistical market
models to evaluate these statutory
factors and generate a point forecast for
each goal as well as a confidence
interval for the point forecast. FHFA
then considers other statutory factors, as
well as other relevant policy issues, to
select a specific point forecast within
the confidence interval as the proposed
benchmark level. However, due to the
unexpectedly severe nature of the
COVID–19 pandemic and the current
associated uncertainty going forward,
FHFA has determined that the data used
to create the statistical market models is
not sufficient to reflect economic
conditions for 2021. As a result, FHFA
is proposing to keep the benchmark
levels for 2021 at the same level as for
2020.
In proposing the benchmark levels for
the single-family housing goals for 2021,
FHFA considered the statutory factors,
including the current economic
conditions, national housing needs,
recent market developments, and the
past performance of the Enterprises on
the housing goals.
Current Economic Conditions
Uncertainty over public health and
the economic impacts of the COVID–19
pandemic have dealt a severe blow to
the U.S. economy. The sudden drop in
economic activity has created
widespread disruptions and resulted in
an unprecedented level of job losses.
The unemployment rate jumped from
3.5 percent in February to 14.7 percent
in April.11 Inflation-adjusted consumer
expenditures, which account for about
two-thirds of gross domestic product
(GDP), declined 7.3 percent in March.
On June 8, the Business Cycle Dating
Committee of the National Bureau of
Economic Research officially declared
that the U.S. economy fell into a
recession in February, ending one of the
11 The Bureau of Labor Statistics (BLS), which
publishes the unemployment rate and other labor
statistics each month, noted that the April
unemployment rate probably understated the share
of unemployed workers in the labor force because
many workers who should have been classified as
‘‘unemployed on temporary layoff’’ were most
likely misclassified as ‘‘employed absent from
work’’ in the Current Population Survey. A BLS
analysis of the underlying data suggests that, had
that misclassification not occurred, the April
unemployment rate would have been nearly 5
percentage points higher. See Bureau of Labor
Statistics, ‘‘Frequently Asked Questions: The
Impact of the Coronavirus (COVID–19) Pandemic
on the Employment Situation for April 2020’’ (May
8, 2020), https://go.usa.gov/xvM73.
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longest economic expansions in
history.12
The depth and duration of this
recession and the path to economic
recovery remain highly uncertain.
According to the most recent estimate
published by the Congressional Budget
Office (CBO),13 the COVID–19
pandemic and associated social
distancing triggered a sharp contraction
in output in the second quarter of 2020
but the CBO projects that real Gross
Domestic Product (GDP) will grow
rapidly in the second half of 2020 and
the first half of 2021. Strong GDP growth
is projected to continue thereafter but at
a slower pace. The unemployment rate
is projected to peak at over 14 percent
in the third quarter of this year and then
to fall quickly as output increases in the
second half of 2020 and throughout
2021. Nonetheless, real GDP growth is
projected to be negative 5.8 percent for
2020 while the unemployment rate will
be 10.6 percent for 2020. However, the
CBO notes that there is an ‘‘unusually
high degree of uncertainty’’ surrounding
its projections due to the nature of the
pandemic and the behavioral and policy
responses aimed at containing its
spread, and the difficulties of recording
and compiling economic data during the
unusually strong economic disruption
in the second quarter of 2020.
The implications for the primary and
secondary mortgage markets are still
unfolding as policy makers consider
responses to the economic disruption
caused by COVID–19. Congress passed
the CARES Act to address some of the
most pressing impacts of the economic
disruption, including by extending
unemployment benefits. Nevertheless,
the availability of credit has contracted
in the mortgage market due to a variety
of factors, including additional down
payment and loan-to-value restrictions
and generally tightened underwriting
requirements.
FHFA is monitoring how these
unfolding changes may impact various
segments of the market, including those
targeted by the housing goals. For
instance, while the economic disruption
has resulted in tightening of credit, job
losses and uncertainty may also lead
many low-income households to exit
the market of potential homebuyers.
However, the size of the impact on the
share of low-income households among
all home purchase mortgages is
uncertain.
12 See https://www.nber.org/cycles/
june2020.html.
13 Congressional Budget Office, ‘‘An Update to the
Economic Outlook: 2020–2030,’’ published on July
2, 2020, accessed on 7/8/2020 at https://
www.cbo.gov/publication/56442.
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National Housing Needs
At the start of 2020, the American
housing market overall was in a strong
position. After falling for 12 consecutive
years, the U.S. homeownership rate
reached 65.1 percent in 2019, with firsttime homebuyers becoming an
increasingly larger share of the
homebuying market, helping to drive its
overall expansion.14 Affordability
challenges for low-income households
remained, however. While interest rates
have remained low since the recession,
home prices have climbed steadily, with
real prices back within 2 percent of their
2006 peak at the end of 2018, according
to the FHFA House Price Index. The
ratio of median home price to median
household income is a common
yardstick for measuring affordability,
indicating how difficult it is for wouldbe buyers to qualify for a mortgage and
save for a down payment. Nationwide,
this ratio declined from a peak of 4.7 in
2005 to a low of 3.3 in 2011 and then
rose to 4.1 in 2018.15 However, during
2019, house price growth was starting to
align with the growth in median
household incomes.
Recent Market Developments
In response to the COVID–19
pandemic, financial markets endured a
severe dislocation in March, and
housing markets were no exception.
What is known to date is preliminary,
as key housing market indicators—on
housing construction, sales, prices,
inventory, and more—indicate that the
extent of disruption is extensive. At the
same time housing supply remains tight,
providing support to house prices. At
least initially, the combination of social
distancing measures and heightened
economic concerns caused home sales
to drop significantly and homebuilders
to pull back on new housing starts.
Single-family housing starts declined
17.5 percent in March and another 25.4
percent in April. Housing starts rose 4.3
percent in May, but this still leaves the
rate down 23.2 percent compared to
May 2019.16
The full impact of the COVID–19
pandemic on the low-income home
purchase market is unknown. However,
the levels of output and employment
14 U.S. Census Bureau, ‘‘Quarterly Residential
Vacancies and Homeownership,’’ Fourth Quarter
2019, Release Number: CB20–05, available at
https://www.census.gov/housing/hvs/files/qtr419/
Q419press.pdf.
15 Joint Center for Housing Studies of Harvard
University, ‘‘The State of the Nation’s Housing
2019,’’ available at https://www.jchs.harvard.edu/
state-nations-housing-2019.
16 U.S. Census Bureau, ‘‘Monthly New Residential
Construction,’’ May 2020, Release Number: CB20–
90, available at https://www.census.gov/
construction/nrc/pdf/newresconst.pdf.
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remain far below their pre-pandemic
levels, and significant uncertainty
remains about the timing and strength of
the recovery. It is likely that the full
picture of the COVID–19 pandemic’s
impact on housing markets will not be
known until well after the virus is
contained. While the Enterprises
showed strong goals performance in
2020 before the onset of the COVID–19
pandemic, it is unclear whether this
will continue in the light of evolving
market conditions and continued
tightening of underwriting by lenders.
Thus, while recent Enterprise
performance on the housing goals has
tended to exceed the benchmark levels
set by FHFA, the economic disruption
and uncertainty seen so far in 2020
support keeping the levels unchanged
from 2018–2020.
Past Performance of the Enterprises
Table 1 provides the annual
performance of both Enterprises on the
single-family housing goals between
2010 and 2019.17 The performance of
the Enterprises in the two most recent
years (2018 and 2019) shows that both
Enterprises exceeded the benchmark
levels set by FHFA for each of the
single-family housing goals.
While the final determinations of
Enterprise goal compliance for 2019 are
pending FHFA’s determination of the
market level based on HMDA data, both
Enterprises report that their
performance exceeded the benchmark
levels, continuing the recent trend of
Enterprise performance above the
benchmark levels for the single-family
housing goals for 2018–2020.
TABLE 1—ENTERPRISE SINGLE-FAMILY HOUSING GOALS PERFORMANCE (2010-2019)
2010
2011
2012
2013
2014
2015
2016
2017
2018
2019
Low-Income Home Purchase Goal
Actual Market ...................................................
Benchmark .......................................................
Fannie Mae Performance ................................
Freddie Mac Performance ...............................
27.2
27
* 25.1
27.8
26.5
27
* 25.8
* 23.3
26.6
23
25.6
24.4
24
23
23.8
* 21.8
22.8
23
23.5
* 21
23.6
24
* 23.5
* 22.3
22.9
24
22.9
23.8
24.3
24
25.5
* 23.2
25.5
24
28.2
25.8
TBD
24
27.8
27.4
5.8
6
* 5.6
* 5.4
5.4
6
* 5.2
5.7
5.9
6
5.9
* 5.7
6.5
6
6.7
6.3
TBD
6
6.5
6.8
19.8
19
20.4
19
19.7
17
20.2
19.9
21.5
18
22.9
20.9
22.6
18
25.1
22.6
TBD
19
24.5
22.9
15
11
15.5
13.6
15.2
14
15.6
14.5
15.9
14
16.2
15.6
17.1
14
18.3
16.4
18
14
20.1
17.3
TBD
14
19.5
18.0
25
20
26.5
26.4
22.5
21
22.1
22.8
19.8
21
* 19.5
21
25.4
21
24.8
24.8
30.7
21
31.2
27.3
TBD
21
23.8
22.4
Very Low-Income Home Purchase Goal
Actual Market ...................................................
Benchmark .......................................................
Fannie Mae Performance ................................
Freddie Mac Performance ...............................
8.1
8
* 7.2
8.4
8
8
* 7.6
* 6.6
7.7
7
7.3
7.1
6.3
7
*6
* 5.5
5.7
7
5.7
* 4.9
Low-Income Areas Home Purchase Goal
Actual Market ...................................................
Benchmark .......................................................
Fannie Mae Performance ................................
Freddie Mac Performance ...............................
24
24
24.1
* 23.8
22
24
22.4
* 19.2
23.2
20
22.3
20.6
22.1
21
21.6
* 20
22.1
18
22.7
20.1
Low-Income Areas Home Purchase Subgoal
Actual Market ...................................................
Benchmark .......................................................
Fannie Mae Performance ................................
Freddie Mac Performance ...............................
12.1
13
12.4
* 10.8
11.4
13
11.6
* 9.2
13.6
11
13.1
11.4
14.2
11
14
12.3
Low-Income Refinance Goal
Actual Market ...................................................
Benchmark .......................................................
Fannie Mae Performance ................................
Freddie Mac Performance ...............................
20.2
21
20.9
22
21.5
21
23.1
23.4
22.3
20
21.8
22.4
24.3
20
24.3
24.1
* Numbers marked with asterisks are preliminary numbers reported by the Enterprises.
Tables 2 through 5 provide additional
detail on the recent performance of the
Enterprises for each of the goals and the
subgoal. The tables show the number as
well as the share of goal-qualifying
loans that the Enterprises acquired from
2013–2019. In 2018 and 2019, the
Enterprises increased the number of
goals-qualifying loans they acquired at
the same time that their overall singlefamily mortgage purchase volume
increased.
TABLE 2—LOW-INCOME HOME PURCHASE GOAL
Performance
Year
2013
Actual Market .............................
Benchmark .................................
Fannie Mae Performance:
24.0%
23%
17 The 2019 data is preliminary data reported by
the Enterprises. FHFA will make the official
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2015
22.8%
23%
23.6%
24%
2016
2017
22.9%
24%
24.3%
24%
determinations on Enterprise performance under
the 2019 housing goals later in 2020.
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25.5%
24%
2019
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49317
TABLE 2—LOW-INCOME HOME PURCHASE GOAL—Continued
Performance
Year
2013
Low-Income Home Purchase Mortgages .............
Total Home Purchase Mortgages ...............................
Low-Income % of Home
Purchase Mortgages .......
Freddie Mac Performance:
Low-Income Home Purchase Mortgages .............
Total Home Purchase Mortgages ...............................
Low-Income % of Home
Purchase Mortgages .......
2014
2015
2016
2017
2018
2019
193,660
177,846
188,891
221,628
263,296
294,559
* 298,702
814,066
757,870
802,432
966,800
1,032,567
1,044,098
* 1,075,032
23.8%
23.5%
23.5%
22.9%
25.5%
28.21/o
* 27.8%
93,425
108,948
129,455
153,434
165,555
199,429
* 235,811
429,086
519,731
579,340
644,988
713,901
774,394
* 860,669
21.8%
21.0%
22.3%
23.8%
23.2%
25.8%
* 27.4%
* Numbers marked with asterisks are preliminary numbers reported by the Enterprises.
TABLE 3—VERY LOW-INCOME HOME PURCHASE GOAL
Performance
Year
2013
Actual Market .............................
Benchmark .................................
Fannie Mae Performance:
Very Low-Income Home
Purchase Mortgages .......
Total Home Purchase Mortgages ...............................
Very Low-Income % of
Home Purchase Mortgages ...............................
Freddie Mac Performance:
Very Low-Income Home
Purchase Mortgages .......
Total Home Purchase Mortgages ...............................
Very Low-Income % of
Home Purchase Mortgages ...............................
2014
2015
2016
2017
2018
2019
6.30%
7%
5.70%
7%
5.80%
6%
5.40%
6%
5.90%
6%
6.50%
6%
TBD
6%
48,810
42,872
45,022
49,932
60,561
69,952
* 70,214
814,066
757,870
802,432
966,800
1,032,567
1,044,098
* 1,075,032
6.0%
5.7%
5.6%
5.2%
5.9%
6.7%
* 6.5%
23,705
25,232
31,146
36,837
40,848
48,823
* 58,136
429,086
519,731
579,340
644,988
713,901
774,394
* 860,669
5.5%
4.9%
5.4%
5.7%
5.7%
6.3%
* 6.8%
* Numbers marked with asterisks are preliminary numbers reported by the Enterprises.
TABLE 4—LOW-INCOME AREAS HOME PURCHASE SUBGOAL
Performance
Year
2013
Actual Market .............................
Benchmark .................................
Fannie Mae Performance:
Low-Income Area Home
Purchase Mortgages .......
High-Minority Area Home
Purchase Mortgages .......
Subgoal-Qualifying Total
Home Purchase Mortgages ...............................
Total Home Purchase Mortgages ...............................
Low-Income Area % of
Home Purchase Mortgages ...............................
Freddie Mac Performance:
Low-Income Area Home
Purchase Mortgages .......
High-Minority Area Home
Purchase Mortgages .......
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2014
2015
2016
2017
2018
2019
14.2%
11%
15.2%
11%
15.2%
14%
15.9%
14%
17.1%
14%
18.0%
14%
TBD
14%
86,430
91,691
99,723
125,956
152,102
167,265
* 166,709
27,425
25,650
25,349
30,535
36,942
42,099
* 42,732
113,855
117,341
125,072
156,491
189,044
209,364
* 209,441
814,066
757,870
802,432
966,800
1,032,567
1,044,098
* 1,075,032
14.0%
15.5%
15.6%
16.2%
18.3%
20.1%
* 19.5%
40,444
55,987
67,172
80,805
94,961
106,815
* 123,953
12,177
14,808
16,601
19,788
22,190
27,310
* 30,770
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Federal Register / Vol. 85, No. 157 / Thursday, August 13, 2020 / Proposed Rules
TABLE 4—LOW-INCOME AREAS HOME PURCHASE SUBGOAL—Continued
Performance
Year
2013
Subgoal-Qualifying Total
Home Purchase Mortgages ...............................
Total Home Purchase Mortgages ...............................
Low-Income Area % of
Home Purchase Mortgages ...............................
2014
2015
2016
2017
2018
2019
52,621
70,795
83,773
100,593
117,151
134,125
* 154,723
429,086
519,731
579,340
644,988
713,901
774,394
* 860,669
12.3%
13.6%
14.5%
15.6%
16.4%
17.3%
* 18.0%
* Numbers marked with asterisks are preliminary numbers reported by the Enterprises.
TABLE 5—LOW-INCOME REFINANCE GOAL
Performance
Year
2013
Actual Market .............................
Benchmark .................................
Fannie Mae Performance:
Low-lncome Refinance
Mortgages .......................
Total Refinance Mortgages
Low-lncome % of Refinance
Mortgages .......................
Freddie Mac Performance:
Low-Income Refinance
Mortgages .......................
Total Refinance Mortgages
Low-lncome % of Refinance
Mortgages .......................
2014
2015
2016
2017
2018
2019
24.3%
20%
25.0%
20%
22.5%
21%
19.8%
21%
25.4%
21%
30.7%
21%
TBD
21%
531,611
2,186,541
222,329
840,506
231,380
1,045,258
248,698
1,274,342
223,768
902,123
196,230
629,816
* 234,249
* 985,932
24.3%
26.5%
22.1%
19.5%
24.8%
31.2%
* 23.8%
320,962
1,331,034
131,921
514,936
182,594
800,369
174,708
830,888
143,475
578,548
104,843
384,593
* 159,322
* 712,376
24.1%
25.6%
22.8%
21.0%
24.8%
27.3%
* 22.4%
* Numbers marked with asterisks are preliminary numbers reported by the Enterprises.
Proposed Benchmark Levels for the
Single-Family Housing Goals for 2021
FHFA is proposing to establish the
benchmark levels for each of the singlefamily housing goals and the subgoal for
2021 at the same levels that applied for
2018–2020. While recent Enterprise
performance and market data have
tended to exceed the established
benchmark levels, FHFA expects that
both the market levels and Enterprise
performance could decline in 2021 due
to impacts related to economic
disruption caused by the COVID–19
pandemic. Information on Enterprise
goals performance remains confidential
until it is reported after the end of the
year. However, FHFA monitors this
confidential information on a regular
basis. FHFA recognizes that the
performance trends in the first half of
2020 reflect disruption due to COVID–
19, and FHFA expects this to continue
into 2021. Based on the above factors,
FHFA believes that extending the
benchmark levels from 2020 to 2021
will provide achievable yet challenging
targets for the Enterprises.
V. Multifamily Housing Goals
The Safety and Soundness Act
requires FHFA to consider the following
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six factors in setting the multifamily
housing goals:
1. National multifamily mortgage
credit needs and the ability of the
Enterprises to provide additional
liquidity and stability for the
multifamily mortgage market;
2. The performance and effort of the
Enterprises in making mortgage credit
available for multifamily housing in
previous years;
3. The size of the multifamily
mortgage market for housing affordable
to low-income and very low-income
families, including the size of the
multifamily markets for housing of a
smaller or limited size;
4. The ability of the Enterprises to
lead the market in making multifamily
mortgage credit available, especially for
multifamily housing affordable to lowincome and very low-income families;
5. The availability of public subsidies;
and
6. The need to maintain the sound
financial condition of the Enterprises.18
FHFA has considered each of these
statutory factors in setting the proposed
benchmark levels for each of the
multifamily goals.
18 12
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The multifamily housing goals are
measured based on the total volume of
affordable multifamily mortgage
purchases rather than on a percentage of
multifamily mortgage purchases. Unlike
the single-family housing goals,
performance on the multifamily housing
goals is measured solely against a
benchmark level, without any
retrospective market measure. The
absence of a retrospective market
measure for the multifamily housing
goals results, in part, from the lack of
comprehensive data about the
multifamily mortgage market. Unlike
the single-family market, for which
HMDA provides a reasonably
comprehensive dataset about singlefamily mortgage originations each year,
the multifamily market (including the
affordable multifamily market segment)
has no comparable source.
Consequently, it can be difficult to
correlate different datasets that usually
rely on different reporting formats.
Another difference between the
single-family and multifamily goals is
that there are separate single-family
housing goals for home purchase and
refinancing mortgages, while the
multifamily goals include all Enterprise
multifamily mortgage purchases,
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regardless of the purpose of the loan. In
addition, unlike the single-family
housing goals, the multifamily housing
goals are measured based on the total
volume of affordable multifamily
mortgage purchases rather than on a
percentage of multifamily mortgage
purchases. The use of total volumes,
which FHFA measures by the number of
eligible units, rather than percentages of
each Enterprises’ overall multifamily
purchases, requires that FHFA take into
account the expected size of the overall
multifamily mortgage market and the
affordable share of the market, as well
as the expected volume of the
Enterprises’ overall multifamily
purchases and the affordable share of
those purchases. The lack of
comprehensive data for the multifamily
mortgage market is even more acute
with respect to the segments of the
market that are targeted to low-income
families, defined as families with
incomes at or below 80 percent of AMI,
and very low-income families, defined
as families with incomes at or below 50
percent of AMI. As required by the
Safety and Soundness Act, FHFA
determines affordability of multifamily
units based on a unit’s rent and utility
expenses not exceeding 30 percent of
the area median income standard for
low- and very low-income families.19
Current Economic Conditions, National
Housing Needs, and Recent Market
Developments
Even as late as February 2020, the
multifamily originations market
appeared as strong as it had been in
2019. At that time, FHFA noted a
number of trends that have continued
for multiple years, including the
continued market focus on the
construction of high-end, luxury
apartments and the steady decline in the
number of low-cost rentals. While
completed rentals nearly reached a 30year high in 2018 with an addition of
360,000 units, supply dropped by
340,000 units between 2016 and 2017.20
Nationwide, there has been a loss of
four million low-cost rental units (rents
less than $800 per month) since 2011.21
There is a particularly acute shortfall of
affordable units for extremely lowincome renters (earning up to 30 percent
of area median income) that was
acknowledged as a persistent problem
even before the COVID–19 pandemic
began. For instance, as a recent report
from the Department of Housing and
19 12
U.S.C. 4563(c).
Center for Housing Studies of Harvard
University, ‘‘The State of the Nation’s Housing
2019,’’ available at www.jchs.harvard.edu/research/
state_nations_housing.
21 Id.
20 Joint
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Urban Development 22 notes, it is
increasingly difficult for housing
developers and landlords to provide
decent rental housing at rates that are
affordable to American working families
and more vulnerable households. In
2017, the most recent year for which
such data are available, only 59
affordable units were available per 100
very low-income renter households, and
only 40 units were available per 100
extremely low-income renter
households.
The full impact on the stock of lowcost rental units in the wake of the
COVID–19 pandemic and broader
economic downturn is not yet known.
In the short-term, the pandemic might
exacerbate the already-constrained
supply as lower housing mobility rates
limit the number of low-cost options for
renters and current residents stay in
place. As one study using the 2018
American Community Survey data
shows, demand for low-cost units was
already high while their availability was
extremely low.23 Additional tightening
at the low end of the market could pose
significant affordability challenges to
low- and middle-income renters.
Further, renters living in single-family
homes and smaller multifamily
buildings, along with the owners of
those properties, are more likely to be
negatively affected by the COVID–19
economic downturn. According to one
study, over half of renters with at-risk
wages 24 due to the pandemic live in
single-family rental housing with 1–4
units. The same study estimates that
nearly 20 percent of renters in small
multifamily (5 to 50 units) dwellings
may have difficulty paying full rent if
at-risk wages are lost, compared to 12
percent of renters living in larger
dwellings. This could, in turn, make it
difficult for the owners of those
properties, who are more likely to be
small, individual investors, to remain
22 U.S. Department of Housing and Urban
Development, ‘‘Worst Case Housing Needs: 2019
Report to Congress’’, June 19, 2020 accessed on 7/
10/2020 at https://www.huduser.gov/PORTAL/sites/
default/files/pdf/worst-case-housing-needs2020.pdf.
23 Joint Center for Housing Studies of Harvard
University, ‘‘The Continuing Decline of Low-Cost
Rentals,’’ May 11, 2020 accessed on 6/30/2020 at
https://www.jchs.harvard.edu/blog/the-continuingdecline-of-low-cost-rentals/.
24 ‘‘At risk wages’’ are wages associated with ‘‘At
Risk Jobs’’ which are defined as those in services,
retail, recreation, transportation and travel, and oil
extraction. Joint Center for Housing Studies of
Harvard University, ‘‘Pandemic Will Worsen
Housing Affordability for Service, Retail, and
Transportation Workers’’ March 30, 2020 accessed
on 6/30/2020 at https://www.jchs.harvard.edu/blog/
pandemic-will-worsen-housing-affordability-forservice-retail-and-transportation-workers/.
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49319
financially stable through the
pandemic.25
Conservatorship Scorecard Caps
Enterprise performance on the
multifamily housing goals is heavily
influenced by the caps on total
multifamily business that FHFA has
established as conservator of the
Enterprises. The multifamily volume
caps are intended to further FHFA’s
conservatorship goal: Maintaining the
presence of the Enterprises as a
backstop for the multifamily finance
market, while not impeding the
participation of private capital. The
multifamily volume caps reflect an
Enterprise share of the multifamily
origination market that FHFA has
determined to be an appropriate market
share for the Enterprises during normal
market conditions. The multifamily
volume caps are intended to prevent the
Enterprises from crowding out other
capital sources and restrain the rapid
growth of the Enterprises’ multifamily
businesses that started in 2011.
In September 2019, FHFA established
multifamily loan purchase caps at $100
billion for each Enterprise during the
five quarters beginning on October 1,
2019, and ending on December 31, 2020.
The new cap framework requires that
each Enterprise meet a target of 37.5
percent of its multifamily business as
mission-driven, affordable housing.
There is significant overlap between the
types of multifamily mortgages that
count toward the conservatorship
scorecard target of 37.5 percent and the
multifamily mortgages that contribute to
the performance of the Enterprises
under the affordable housing goals.
While the conservatorship scorecard
caps and target level for mission-driven
loans play a significant role in
determining the multifamily purchase
volume and affordable share for the
Enterprise multifamily businesses, the
multifamily housing goals target specific
segments of the multifamily business
and ensure appropriate Enterprise focus
on those segments as required by the
Safety and Soundness Act. In proposing
benchmark levels for the Enterprise
housing goals, FHFA has considered the
required statutory factors and is
proposing benchmark levels that would
be achievable if the conservatorship
scorecard caps and target levels for 2021
are similar to the conservatorship
scorecard limits in effect for 2020. If the
conservatorship scorecard has
established the multifamily purchase
25 Joint Center for Housing Studies of Harvard
University, ‘‘COVID–19 Rent Shortfalls in Small
Buildings,’’ May 26, 2020 accessed on 6/30/2020 at
https://www.jchs.harvard.edu/blog/covid-19-rentshortfalls-in-small-buildings/.
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volume caps applicable for 2021 at the
time FHFA publishes a final rule setting
benchmark levels for the multifamily
housing goals, FHFA may adjust the
benchmark levels based on those
purchase volume caps.
Past Performance on the Multifamily
Low-Income Housing Goal
The multifamily low-income housing
goal is based on the total number of
rental units in multifamily properties
financed by mortgages purchased by the
Enterprises that are affordable to low-
income families, defined as families
with incomes less than or equal to 80
percent of the area median income.
Since 2016, each Enterprise has
performed significantly above the
benchmark level for the multifamily
low-income housing goal each year.
TABLE 6—LOW-INCOME MULTIFAMILY GOAL
Performance
Year
Fannie Mae Benchmark ...
Freddie Mac Benchmark ..
Fannie Mae Performance:
Low-Income Multifamily Units ............
Total Multifamily Units
Low-Income % Total
Freddie Mac Performance:
Low-Income Multifamily Units ............
Total Multifamily Units
Low-Income % of
Total Units .............
2012
2013
2014
2015
2016
2017
2018
2019
285,000
225,000
265,000
215,000
250,000
200,000
300,000
300,000
300,000
300,000
300,000
300,000
315,000
315,000
315,000
315,000
375,924
501,256
75.0%
326,597
430,751
75.8%
262,050
372,072
70.4%
307,510
468,798
65.6%
352,368
552,785
63.7%
401,145
630,868
63.6%
421,813
628,230
67.1%
* 384,572
* 596,137
* 64.5%
298,529
377,522
254,628
341,490
273,434
366,377
379,042
514,275
406,958
597,399
408,096
630,037
474,062
695,587
* 455,451
* 661,417
79.1%
74.6%
74.6%
73.7%
68.1%
64.8%
68.2%
* 68.9%
* Numbers marked with asterisks are preliminary numbers reported by the Enterprises.
Past Performance on the Multifamily
Very Low-Income Housing Subgoal
The multifamily very low-income
housing subgoal includes units
affordable to very low-income families,
defined as families with incomes no
greater than 50 percent of area median
income. Both Enterprises have
surpassed the benchmark level for the
multifamily very low-income housing
subgoal by a significant margin in recent
years.
TABLE 7—VERY LOW-INCOME MULTIFAMILY GOAL
Performance
Year
Fannie Mae Benchmark ...
Freddie Mac Benchmark ..
Fannie Mae Performance:
Very Low-Income
Multifamily Units ....
Total Multifamily Units
Very Low-Income %
of Total Units .........
Freddie Mac Performance:
Very Low-Income
Multifamily Units ....
Total Home Purchase
Mortgages .............
Very Low-Income %
of Total Units .........
2012
2013
2014
2015
2016
2017
2018
2019
80,000
59,000
70,000
50,000
60,000
40,000
60,000
60,000
60,000
60,000
60,000
60,000
60,000
60,000
60,000
60,000
100,878
501,256
78,071
430,751
60,542
372,072
69,078
468,798
65,910
552,785
82,674
630,868
80,891
628,230
* 78,835
* 596,137
21.7%
18.1%
16.3%
14.7%
11.9%
13.1%
12.9%
* 13.2%
60,084
56,742
48,689
76,935
73,030
92,274
105,612
* 112,785
377,522
341,490
366,377
514,275
597,399
630,037
695,587
* 661,417
15.9%
16.6%
13.3%
15.0%
12.2%
14.6%
15.2%
* 17.1%
* Numbers marked with asterisks are preliminary numbers reported by the Enterprises.
Past Performance on the Small
Multifamily Low-Income Housing
Subgoal
The small multifamily low-income
housing subgoal is based on the total
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number of units in small multifamily
properties financed by mortgages
purchased by the Enterprises that are
affordable to low-income families,
defined as families with incomes less
than or equal to 80 percent of the area
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Sfmt 4702
median income. A small multifamily
property is defined as a property with
5 to 50 units. Both Enterprises have met
the small multifamily low-income
housing subgoal each year in recent
years.
E:\FR\FM\13AUP1.SGM
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Federal Register / Vol. 85, No. 157 / Thursday, August 13, 2020 / Proposed Rules
49321
TABLE 8—SMALL (5–50) LOW-INCOME MULTIFAMILY GOAL
Performance
Year
Small Low-Income Multifamily Benchmark .........
Fannie Mae Performance:
Small Low-Income
Multifamily Units ....
Total Small Multifamily Units ............
Low-Income % of
Total Small Multifamily Units ............
Freddie Mac Performance:
Small Low-Income
Multifamily Units ....
Total Small Multifamily Units ............
Low-Income % of
Total Small Multifamily Units ............
2012
2013
2014
2015
2016
2017
2018
2019
....................
....................
....................
6,000
8,000
10,000
10,000
10,000
16,801
13,827
6,732
6,731
9,312
12,043
11,890
* 17,782
26,479
21,764
11,880
11,198
15,211
20,375
17,894
* 25,565
63.5%
63.5%
56.7%
60.1%
61.2%
59.1%
66.4%
* 69.6%
829
1,128
2,076
12,801
22,101
39,473
39,353
* 34,847
2,194
2,375
4,659
21,246
33,984
55,116
53,893
* 46,862
37.8%
47.5%
44.6%
60.3%
65.0%
71.6%
73.0%
* 74.4%
* Numbers marked with asterisks are preliminary numbers reported by the Enterprises.
Proposed Benchmark Levels for the
Multifamily Housing Goals for 2021
FHFA is proposing to establish the
benchmark levels for each of the
multifamily housing goal and subgoals
for 2021 at the same levels that applied
for 2018–2020. In proposing the
benchmark levels for the multifamily
low-income housing goal and the
multifamily very low-income housing
goal, FHFA considered the statutory
factors including current economic
conditions, national housing needs,
recent market developments, the most
recent conservatorship scorecard cap
levels, and the past performance of the
Enterprises in meeting each goal.
Due to the relatively low volume of
small multifamily loans purchased by
each Enterprise, the conservatorship
scorecard cap has less impact on the
ability of the Enterprises to meet the
small multifamily low-income housing
goal. Based on the recent performance of
the Enterprises on the goal, FHFA
believes the benchmark levels for 2018–
2020 continue to be appropriate for
2021 to ensure that the Enterprises
maintain a meaningful presence in the
market for small multifamily loans.
While the recent performance of the
Enterprises on the multifamily housing
goals suggests that each Enterprise may
be able to meet a higher benchmark
level, FHFA has also considered a
variety of factors including recent
market trends and especially the
economic disruption due to the COVID–
19 emergency that support keeping the
benchmark levels for the multifamily
housing goals at the same level as the
2018–2020 goals. Based on the above
VerDate Sep<11>2014
16:27 Aug 12, 2020
Jkt 250001
factors, FHFA believes that extending
the benchmark levels from 2020 to
2021 26 will provide achievable yet
challenging targets for the Enterprises.
VI. Paperwork Reduction Act
The Paperwork Reduction Act (44
U.S.C. 3501 et seq.) requires that
regulations involving the collection of
information receive clearance from the
Office of Management and Budget
(OMB). The proposed rule does not
contain any information collection
requirement that would require OMB
approval under the Paperwork
Reduction Act. Therefore, FHFA has not
submitted the rule to OMB for review.
analysis need not be undertaken if the
agency has certified that the regulation
will not have a significant economic
impact on a substantial number of small
entities. 5 U.S.C. 605(b). FHFA has
considered the impact of the proposed
rule under the Regulatory Flexibility
Act. The General Counsel of FHFA
certifies that the proposed rule, if
adopted as a final rule, will not have a
significant economic impact on a
substantial number of small entities
because the regulation applies only to
Fannie Mae and Freddie Mac, which are
not small entities for purposes of the
Regulatory Flexibility Act.
VII. Regulatory Flexibility Act
List of Subjects in 12 CFR Part 1282
The Regulatory Flexibility Act (5
U.S.C. 601 et seq.) requires that a
regulation that has a significant
economic impact on a substantial
number of small entities, small
businesses, or small organizations must
include an initial regulatory flexibility
analysis describing the regulation’s
impact on small entities. Such an
Mortgages, Reporting and
recordkeeping requirements.
26 The benchmark level for the Low-Income Areas
Purchase goal will be set by FHFA notice in 2021
pursuant to 12 CFR 1282.12(e). The Low-Income
Areas Purchase goal has a disaster component that
is dependent on the Federal disaster declarations in
place at the beginning of each calendar year. The
regulation defines ‘‘designated disaster area’’ as
‘‘any census tract that is located in a county
designated by the federal government as adversely
affected by a declared major disaster administered
by FEMA, where individual assistance payments
were authorized by FEMA.’’ 12 CFR 1282.1
(emphasis added). While most of the country has
been declared a disaster area by reason of COVID–
19, those declarations have not been accompanied
by FEMA authorizations of individual assistance
payments.
PO 00000
Frm 00041
Fmt 4702
Sfmt 4702
Authority and Issuance
For the reasons stated in the
under the
authority of 12 U.S.C. 4511, 4513, and
4526, FHFA proposes to amend part
1282 of Title 12 of the Code of Federal
Regulations as follows:
SUPPLEMENTARY INFORMATION,
CHAPTER XII—FEDERAL HOUSING
FINANCE AGENCY
SUBCHAPTER E—HOUSING GOALS AND
MISSION
PART 1282—ENTERPRISE HOUSING
GOALS AND MISSION
1. The authority citation for part 1282
continues to read as follows:
■
Authority: 12 U.S.C. 4501, 4502, 4511,
4513, 4526, 4561–4566.
E:\FR\FM\13AUP1.SGM
13AUP1
49322
Federal Register / Vol. 85, No. 157 / Thursday, August 13, 2020 / Proposed Rules
2. Section 1282.12 is amended by
revising paragraphs (c)(2), (d)(2), (f)(2),
and (g)(2) to read as follows:
■
§ 1282.12
Single-family housing goals.
Mark A. Calabria
Director, Federal Housing Finance Agency.
*
*
*
*
*
(c) * * *
(2) The benchmark level, which for
2021 shall be 24 percent of the total
number of purchase money mortgages
purchased by that Enterprise in each
year that finance owner-occupied
single-family properties.
(d) * * *
(2) The benchmark level, which for
2021 shall be 6 percent of the total
number of purchase money mortgages
purchased by that Enterprise in each
year that finance owner-occupied
single-family properties.
*
*
*
*
*
(f) * * *
(2) The benchmark level, which for
2021 shall be 14 percent of the total
number of purchase money mortgages
purchased by that Enterprise in each
year that finance owner-occupied
single-family properties.
(g) * * *
(2) The benchmark level, which for
2021 shall be 21 percent of the total
number of refinancing mortgages
purchased by that Enterprise in each
year that finance owner-occupied
single-family properties.
*
*
*
*
*
■ 3. Section 1282.13 is amended by
revising paragraphs (b) through (d) to
read as follows:
[FR Doc. 2020–15959 Filed 8–12–20; 8:45 am]
BILLING CODE 8070–01–P
Federal Aviation Administration
14 CFR Part 39
[Docket No. FAA–2020–0733; Project
Identifier AD–2020–00990–E]
RIN 2120–AA64
Airworthiness Directives; General
Electric Company Turbofan Engines
Federal Aviation
Administration (FAA), DOT.
ACTION: Notice of proposed rulemaking
(NPRM).
AGENCY:
16:27 Aug 12, 2020
Jkt 250001
The FAA proposes to adopt a
new airworthiness directive (AD) for
certain General Electric Company (GE)
GE90–110B1 and GE90–115B model
turbofan engines. This proposed AD was
prompted by the detection of meltrelated freckles in the billet, which may
reduce the life limits of certain highpressure turbine (HPT) rotor stage 2
disks and certain rotating compressor
discharge pressure (CDP) HPT seals.
This proposed AD would require
replacement of the affected HPT rotor
stage 2 disks and rotating CDP HPT
seals. The FAA is proposing this AD to
address the unsafe condition on these
products.
SUMMARY:
*
*
*
*
(b) Multifamily low-income housing
goal. The benchmark level for each
Enterprise’s purchases of mortgages on
multifamily residential housing
affordable to low-income families shall
be at least 315,000 dwelling units
affordable to low-income families in
multifamily residential housing
financed by mortgages purchased by the
Enterprise for 2021.
(c) Multifamily very low-income
housing subgoal. The benchmark level
for each Enterprise’s purchases of
mortgages on multifamily residential
housing affordable to very low-income
families shall be at least 60,000 dwelling
units affordable to very low-income
families in multifamily residential
housing financed by mortgages
purchased by the Enterprise for 2021.
(d) Small multifamily low-income
housing subgoal. The benchmark level
for each Enterprise’s purchases of
mortgages on small multifamily
properties affordable to low-income
families shall be at least 10,000 dwelling
VerDate Sep<11>2014
OH 45215; phone: (513) 552–3272;
email: aviation.fleetsupport@ae.ge.com;
website: www.ge.com. You may view
this service information at the FAA,
Airworthiness Products Section,
Operational Safety Branch, 1200 District
Avenue, Burlington, MA 01803. For
information on the availability of this
material at the FAA, call 781–238–7759.
Examining the AD Docket
DEPARTMENT OF TRANSPORTATION
§ 1282.13 Multifamily special affordable
housing goal and subgoals.
*
units affordable to low-income families
in small multifamily properties financed
by mortgages purchased by the
Enterprise for 2021.
The FAA must receive comments
on this proposed AD by September 14,
2020.
ADDRESSES: You may send comments,
using the procedures found in 14 CFR
11.43 and 11.45, by any of the following
methods:
• Federal eRulemaking Portal: Go to
https://www.regulations.gov. Follow the
instructions for submitting comments.
• Fax: 202–493–2251.
• Mail: U.S. Department of
Transportation, Docket Operations, M–
30, West Building Ground Floor, Room
W12–140, 1200 New Jersey Avenue SE,
Washington, DC 20590.
• Hand Delivery: Deliver to Mail
address above between 9 a.m. and 5
p.m., Monday through Friday, except
Federal holidays.
For service information identified in
this NPRM, contact General Electric
Company, 1 Neumann Way, Cincinnati,
DATES:
PO 00000
Frm 00042
Fmt 4702
Sfmt 4702
You may examine the AD docket on
the internet at https://
www.regulations.gov by searching for
and locating Docket No. FAA–2020–
0733; or in person at Docket Operations
between 9 a.m. and 5 p.m., Monday
through Friday, except Federal holidays.
The AD docket contains this NPRM, any
comments received, and other
information. The street address for
Docket Operations is listed above.
FOR FURTHER INFORMATION CONTACT:
Mehdi Lamnyi, Aerospace Engineer,
ECO Branch, FAA, 1200 District
Avenue, Burlington, MA 01803; phone:
(781) 238–7743; fax: (781) 238–7999;
email: Mehdi.Lamnyi@faa.gov.
SUPPLEMENTARY INFORMATION:
Comments Invited
The FAA invites you to send any
written relevant data, views, or
arguments about this proposal. Send
your comments to an address listed
under the ADDRESSES section. Include
‘‘Docket No. FAA–2020–0733; Project
Identifier AD–2020–00990–E’’ at the
beginning of your comments. The most
helpful comments reference a specific
portion of the proposal, explain the
reason for any recommended change,
and include supporting data. The FAA
will consider all comments received by
the closing date and may amend this
NPRM because of those comments.
The FAA has been informed that GE
has communicated with affected
operators regarding the proposed
corrective action for this unsafe
condition. As a result, affected operators
are already aware of the proposed
corrective action and, in some cases,
have already performed the actions
proposed in this AD. Therefore, the
FAA has determined that a 30-day
comment period is appropriate given
the proposed short cyclic compliance
period to correct the unsafe condition
on the affected GE90 model turbofan
engines.
Except for Confidential Business
Information as described in the
following paragraph, and other
information as described in 14 CFR
11.35, the FAA will post all comments
received, without change, to https://
www.regulations.gov, including any
E:\FR\FM\13AUP1.SGM
13AUP1
Agencies
[Federal Register Volume 85, Number 157 (Thursday, August 13, 2020)]
[Proposed Rules]
[Pages 49312-49322]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2020-15959]
=======================================================================
-----------------------------------------------------------------------
FEDERAL HOUSING FINANCE AGENCY
12 CFR Part 1282
RIN 2590-AB04
2021 Enterprise Housing Goals
AGENCY: Federal Housing Finance Agency.
ACTION: Proposed rule.
-----------------------------------------------------------------------
SUMMARY: The Federal Housing Finance Agency (FHFA) is proposing a rule
and seeking comments on proposed benchmark levels for the 2021 housing
goals for Fannie Mae and Freddie Mac (the Enterprises). The housing
goals apply to mortgages purchased by the Enterprises and include
separate categories for single-family and multifamily housing that is
affordable to low-income and very low-income families, among other
categories. This proposed rule would establish benchmark levels for
each of the housing goals for 2021.
DATES: Comments must be received on or before October 13, 2020.
ADDRESSES: You may submit your comments on the proposed rule,
identified by regulatory information number (RIN) 2590-AB04, by any one
of the following methods:
Agency Website: https://www.fhfa.gov/open-for-comment-or-input.
Federal eRulemaking Portal: https://www.regulations.gov.
Follow the instructions for submitting comments. If you submit your
comment to the Federal eRulemaking Portal, please also send it by email
to FHFA at [email protected] to ensure timely receipt by FHFA.
Include the following information in the subject line of your
submission: Comments/RIN 2590-AB04.
Hand Delivered/Courier: The hand delivery address is:
Alfred M. Pollard, General Counsel, Attention: Comments/RIN 2590-AB04,
Federal Housing Finance Agency, Eighth Floor, 400 Seventh Street SW,
Washington, DC 20219. Deliver the package at the Seventh Street
entrance Guard Desk, First Floor, on business days between 9 a.m. and 5
p.m.
U.S. Mail, United Parcel Service, Federal Express, or
Other Mail Service: The mailing address for comments is: Alfred M.
Pollard, General Counsel, Attention: Comments/RIN 2590-AB04, Federal
Housing Finance Agency, Eighth Floor, 400 Seventh Street SW,
Washington, DC 20219. Please note that all mail sent to FHFA via U.S.
Mail is routed through a national irradiation facility, a process that
may delay delivery by approximately two weeks.
FOR FURTHER INFORMATION CONTACT: Ted Wartell, Associate Director,
Housing & Community Investment, Division of Housing Mission and Goals,
at (202) 649-3157, [email protected]; Padmasini Raman at (202) 649-
3633, [email protected]; or Kevin Sheehan, Associate General
Counsel, Office of General Counsel, (202) 649-3086,
[email protected]. These are not toll-free numbers. The mailing
address is: Federal Housing Finance Agency, 400 Seventh Street SW,
Washington, DC 20219. The telephone number for the Telecommunications
Device for the Deaf is (800) 877-8339.
SUPPLEMENTARY INFORMATION:
I. Comments
FHFA invites comments on all aspects of the proposed rule and will
take all comments into consideration before issuing a final rule.
Copies of all comments on the proposed rule will be posted without
change, including any personal information you provide such as your
name, address, email address, and telephone number, on the FHFA website
at https://www.fhfa.gov. In addition, copies of all comments received
will be available for examination by the public through the electronic
rulemaking docket for this proposed rule also located on the FHFA
website.
II. Background
Uncertainty over public health and the economic impacts of the
COVID-19 pandemic has caused significant disruption in both the single-
family and multifamily housing markets since March. For reasons
explained in more detail later in the proposed rule, due to the
unexpectedly severe nature of the COVID-19 pandemic and associated
economic uncertainty, FHFA is proposing benchmark levels for the
single-family and multifamily goals for calendar year 2021 only. The
proposed benchmark levels are set forth below and would be the same as
those for 2018-2020. FHFA will subsequently conduct a new round of
notice and comment rulemaking to establish benchmark levels for 2022
and beyond.
A. Statutory and Regulatory Background for the Existing Housing Goals
The Federal Housing Enterprises Financial Safety and Soundness Act
of 1992 (Safety and Soundness Act) requires FHFA to establish several
annual housing goals for both single-family and multifamily mortgages
purchased by Fannie Mae and Freddie Mac.\1\ The annual housing goals
are one measure of the extent to which the Enterprises are meeting
their public purposes, which include ``an affirmative obligation to
facilitate the financing of affordable housing for low- and moderate-
income families in a manner consistent with their overall public
purposes, while maintaining a strong financial condition and a
reasonable economic return.'' \2\
---------------------------------------------------------------------------
\1\ See 12 U.S.C. 4561(a).
\2\ See 12 U.S.C. 4501(7).
---------------------------------------------------------------------------
FHFA has established annual housing goals for Enterprise purchases
of single-family and multifamily goals consistent with the requirements
of the Safety and Soundness Act. The structure of the housing goals and
the rules for determining how mortgage purchases are counted or not
counted are defined in the housing goals regulation.\3\ The most recent
rule established benchmark levels for the housing goals for 2018-
2020.\4\ This proposed rule would establish benchmark levels for 2021,
but it would not make any other changes to the housing goals
regulation.
---------------------------------------------------------------------------
\3\ See 12 CFR part 1282.
\4\ See 83 FR 5878 (Feb. 12, 2018).
---------------------------------------------------------------------------
Single-family goals. The single-family goals defined under the
Safety and Soundness Act include separate categories for home purchase
mortgages for low-income families, very low-income families, and
families that reside in low-income areas.\5\ FHFA has also established
a subgoal within the low-income areas goal that is limited to families
in low-income census tracts and moderate-income families in minority
census tracts. Performance on the single-family home purchase goals is
measured as the percentage of the total home purchase mortgages
purchased by an Enterprise each year that qualify for each goal or
subgoal. There is also a separate goal for refinancing mortgages for
low-income families, and
[[Page 49313]]
performance on the refinancing goal is determined in a similar way.
---------------------------------------------------------------------------
\5\ The low-income areas housing goal includes (1) families in
``low-income census tracts,'' defined as census tracts with median
income less than or equal to 80 percent of AMI; (2) families with
incomes less than or equal to area median income who reside in
minority census tracts (defined as census tracts with a minority
population of at least 30 percent and a tract median income of less
than 100 percent of AMI); and (3) families with incomes less than or
equal to 100 percent of area median income who reside in designated
disaster areas.
---------------------------------------------------------------------------
Under the Safety and Soundness Act, the single-family housing goals
are limited to mortgages on owner-occupied housing with one to four
units total. The single-family goals cover conventional, conforming
mortgages, defined as mortgages that are not insured or guaranteed by
the Federal Housing Administration or another government agency and
with principal balances that do not exceed the conforming loan limits
for Enterprise mortgages.
Two-part evaluation approach. The performance of the Enterprises on
the housing goals is evaluated using a two-part approach, comparing the
goal-qualifying share of the Enterprise's mortgage purchases to two
separate measures: A benchmark level; and a market level. In order to
meet a single-family housing goal, the percentage of mortgage purchases
by an Enterprise that meet each goal must equal or exceed either the
benchmark level or the market level for that year. The benchmark level
is set prospectively by rulemaking based on various factors set forth
in the Safety and Soundness Act.\6\ The market level is determined
retrospectively for each year, based on the actual goal-qualifying
share of the overall market as measured by the Home Mortgage Disclosure
Act (HMDA) data for that year. The overall market that FHFA uses for
setting both the prospective benchmark level and the retrospective
market level consists of all single-family owner-occupied conventional
conforming mortgages that would be eligible for purchase by either
Enterprise. It includes loans purchased by the Enterprises as well as
comparable loans held in a lender's portfolio. It also includes any
loans that are part of a private label security (PLS), though very few
such securities have been issued for conventional conforming mortgages
since 2008.
---------------------------------------------------------------------------
\6\ See 12 U.S.C. 4562(e).
---------------------------------------------------------------------------
While both the benchmark level and the retrospective market level
are designed to measure the current year's mortgage originations, the
performance of the Enterprises on the housing goals includes all
Enterprise purchases in that year, regardless of the year in which the
loan was originated. This includes housing goals credit when the
Enterprises acquire qualified seasoned loans. (Seasoned loans are loans
that were originated in prior years and acquired by the Enterprise in
the current year.)
Multifamily goals. The multifamily goals defined under the Safety
and Soundness Act include categories for mortgages on multifamily
properties (properties with five or more units) with rental units
affordable to low-income families and mortgages on multifamily
properties with rental units affordable to very low-income families.
FHFA has also established a small multifamily low-income subgoal for
properties with 5-50 units. The multifamily housing goals include all
Enterprise multifamily mortgage purchases, regardless of the purpose of
the loan. The multifamily goals evaluate the performance of the
Enterprises based on numeric targets, not percentages, for the number
of affordable units in properties backed by mortgages purchased by an
Enterprise. FHFA has not established a retrospective market level
measure for the multifamily goals, due in part to a lack of
comprehensive data about the multifamily market. As a result, FHFA
currently measures Enterprise multifamily goals performance against the
benchmark levels only.
The Safety and Soundness Act requires that affordability for rental
units under the multifamily goals be determined based on rents that
``[do] not exceed 30 percent of the maximum income level of such income
category, with appropriate adjustments for unit size as measured by the
number of bedrooms.'' \7\ The housing goals regulation considers the
net rent paid by the renter and, therefore, nets out any subsidy
payments that the renter may receive, including housing assistance
payments.
---------------------------------------------------------------------------
\7\ See 12 U.S.C. 4563(c). This affordability definition is
sometimes referred to as the ``Brooke Amendment,'' which states that
to be affordable at the 80 percent of area median income level, the
rents must not exceed 30 percent of the renter's income which must
not exceed 80 percent of the area median income. See https://www.huduser.gov/portal/pdredge/pdr_edge_featd_article_092214.html
for a description of the Brooke Amendment and background on the
notion of affordability embedded in the housing goals.
---------------------------------------------------------------------------
B. Adjusting the Housing Goals
If, after publication of a final rule establishing the housing
goals for 2021, FHFA determines that any of the single-family or
multifamily housing goals should be adjusted in light of market
conditions, to ensure the safety and soundness of the Enterprises, or
for any other reason, FHFA will take any steps that are necessary and
appropriate to adjust that goal such as reducing the benchmark levels
through the processes in the existing regulation. FHFA recognizes that
2021 is likely to be a year of disrupted economic activity. While FHFA
is taking this uncertainty into consideration in proposing the
benchmark levels for 2021, FHFA may take other actions consistent with
the Safety and Soundness Act and the Enterprise housing goals
regulation based on new information or developments that occur after
publication of a final rule.
For example, under the Safety and Soundness Act and the Enterprise
housing goals regulation, FHFA may reduce the benchmark levels in
response to an Enterprise petition for reduction for any of the single-
family or multifamily housing goals in a particular year based on a
determination by FHFA that: (1) Market and economic conditions or the
financial condition of the Enterprise require a reduction; or (2)
efforts to meet the goal or subgoal would result in the constraint of
liquidity, over-investment in certain market segments, or other
consequences contrary to the intent of the Safety and Soundness Act or
the purposes of the Enterprises' charter acts.\8\
---------------------------------------------------------------------------
\8\ 12 CFR 1282.14(d).
---------------------------------------------------------------------------
The Safety and Soundness Act and the Enterprise housing goals
regulation also take into account the possibility that achievement of a
particular housing goal may or may not have been feasible for an
Enterprise. If FHFA determines that a housing goal was not feasible for
an Enterprise to achieve, then the statute and regulation provide for
no further enforcement of that housing goal for that year.\9\
---------------------------------------------------------------------------
\9\ 12 CFR 1282.21(a); 12 U.S.C. 4566(b).
---------------------------------------------------------------------------
If FHFA determines that an Enterprise failed to meet a housing goal
and that achievement of the housing goal was feasible, then the statute
and regulation provide FHFA with discretion to require the Enterprise
to submit a housing plan describing the specific actions the Enterprise
will take to improve its performance. FHFA is requesting comments on
factors that FHFA should consider in determining whether to require an
Enterprise to submit a housing plan. For example, are there other
Enterprise activities such as forbearance actions, loss mitigation
efforts, loan modifications, and other market support activities that
FHFA should take into account while reviewing Enterprise goals
performance for 2021 on both the single-family and multifamily side?
While FHFA is not proposing any change to the regulation regarding
housing plans, FHFA welcomes input from the public on factors that FHFA
should consider in making discretionary determinations on whether to
require a housing plan.
C. Housing Goals Under Conservatorship
On September 6, 2008, FHFA placed each Enterprise into
conservatorship.
[[Page 49314]]
Although the Enterprises remain in conservatorship at this time, they
continue to have the mission of supporting a stable and liquid national
market for residential mortgage financing. FHFA has continued to
establish annual housing goals for the Enterprises and to assess their
performance under the housing goals each year during conservatorship.
III. Summary of Proposed Rule
Due to the unexpectedly severe nature of the COVID-19 pandemic and
associated economic uncertainty, FHFA is proposing benchmark levels for
the single-family and multifamily goals for calendar year 2021 only.
FHFA will subsequently conduct a new round of notice and comment
rulemaking to establish benchmark levels for 2022 and beyond. The
proposed benchmark levels are set forth below and would be the same as
those for 2018-2020.
A. Proposed Benchmark Levels for the Single-Family Housing Goals for
2021
This proposed rule would establish the benchmark levels for the
single-family housing goals and subgoal for 2021 as follows:
----------------------------------------------------------------------------------------------------------------
Current Proposed
benchmark benchmark
Goal Criteria level for level for
2018-2020 2021
(percent) (percent)
----------------------------------------------------------------------------------------------------------------
Low-Income Home Purchase Goal.............. Home purchase mortgages on single- 24 24
family, owner-occupied properties
with borrowers with incomes no
greater than 80 percent of area
median income.
Very Low-Income Home Purchase Goal......... Home purchase mortgages on single- 6 6
family, owner-occupied properties
with borrowers with incomes no
greater than 50 percent of area
median income.
Low-Income Areas Home Purchase Subgoal..... Home purchase mortgages on single- 14 14
family, owner-occupied properties
with:
Borrowers in census tracts
with tract median income of no
greater than 80 percent of area
median income; or
Borrowers with income no
greater than 100 percent of area
median income in census tracts
where (i) tract income is less
than 100 percent of area median
income, and (ii) minorities
comprise at least 30 percent of
the tract population.
Low-Income Refinancing Goal................ Refinancing mortgages on single- 21 21
family, owner-occupied properties
with borrowers with incomes no
greater than 80 percent of area
median income.
----------------------------------------------------------------------------------------------------------------
The single-family housing goals also include a Low-Income Areas
Home Purchase Goal that the regulation defines as the benchmark level
for the Low-Income Areas Home Purchase Subgoal plus an additional
``disaster areas'' increment that FHFA determines each year based on
Federal Emergency Management Agency declarations of disasters that are
applicable to that year. The proposed rule would not make any change to
the criteria or process for setting the additional ``disaster areas''
increment for 2021.
B. Proposed Benchmark Levels for the Multifamily Housing Goals for 2021
The proposed rule would also establish the benchmark levels for the
multifamily goal and subgoals for 2021 as follows:
----------------------------------------------------------------------------------------------------------------
Current
benchmark Proposed
Goal Criteria level for benchmark
2018-2020 level for
(units) 2021 (units)
----------------------------------------------------------------------------------------------------------------
Low-Income Goal............................ Units affordable to families with 315,000 315,000
incomes no greater than 80 percent
of area median income in
multifamily rental properties with
mortgages purchased by an
Enterprise.
Very Low-Income Subgoal.................... Units affordable to families with 60,000 60,000
incomes no greater than 50 percent
of area median income in
multifamily rental properties with
mortgages purchased by an
Enterprise.
Low-Income Small Multifamily Subgoal....... Units affordable to families with 10,000 10,000
incomes no greater than 80 percent
of area median income in small
multifamily rental properties (5
to 50 units) with mortgages
purchased by an Enterprise.
----------------------------------------------------------------------------------------------------------------
IV. Single-Family Housing Goals
The Safety and Soundness Act requires FHFA to consider the
following seven factors in setting the single-family housing goals:
1. National housing needs;
2. Economic, housing, and demographic conditions, including
expected market developments;
3. The performance and effort of the Enterprises toward achieving
the housing goals in previous years;
4. The ability of the Enterprises to lead the industry in making
mortgage credit available;
5. Such other reliable mortgage data as may be available;
6. The size of the purchase money conventional mortgage market, or
refinance conventional mortgage market, as applicable, serving each of
the types of families described, relative to the size of the overall
purchase money mortgage market or the overall refinance mortgage
market, respectively; and
7. The need to maintain the sound financial condition of the
Enterprises.\10\ FHFA has considered each of these
[[Page 49315]]
seven statutory factors in setting the proposed benchmark levels for
each of the single-family housing goals and subgoal.
---------------------------------------------------------------------------
\10\ 12 U.S.C. 4562(e)(2)(B).
---------------------------------------------------------------------------
In setting the benchmark levels for the single-family housing
goals, FHFA typically relies on statistical market models to evaluate
these statutory factors and generate a point forecast for each goal as
well as a confidence interval for the point forecast. FHFA then
considers other statutory factors, as well as other relevant policy
issues, to select a specific point forecast within the confidence
interval as the proposed benchmark level. However, due to the
unexpectedly severe nature of the COVID-19 pandemic and the current
associated uncertainty going forward, FHFA has determined that the data
used to create the statistical market models is not sufficient to
reflect economic conditions for 2021. As a result, FHFA is proposing to
keep the benchmark levels for 2021 at the same level as for 2020.
In proposing the benchmark levels for the single-family housing
goals for 2021, FHFA considered the statutory factors, including the
current economic conditions, national housing needs, recent market
developments, and the past performance of the Enterprises on the
housing goals.
Current Economic Conditions
Uncertainty over public health and the economic impacts of the
COVID-19 pandemic have dealt a severe blow to the U.S. economy. The
sudden drop in economic activity has created widespread disruptions and
resulted in an unprecedented level of job losses. The unemployment rate
jumped from 3.5 percent in February to 14.7 percent in April.\11\
Inflation-adjusted consumer expenditures, which account for about two-
thirds of gross domestic product (GDP), declined 7.3 percent in March.
On June 8, the Business Cycle Dating Committee of the National Bureau
of Economic Research officially declared that the U.S. economy fell
into a recession in February, ending one of the longest economic
expansions in history.\12\
---------------------------------------------------------------------------
\11\ The Bureau of Labor Statistics (BLS), which publishes the
unemployment rate and other labor statistics each month, noted that
the April unemployment rate probably understated the share of
unemployed workers in the labor force because many workers who
should have been classified as ``unemployed on temporary layoff''
were most likely misclassified as ``employed absent from work'' in
the Current Population Survey. A BLS analysis of the underlying data
suggests that, had that misclassification not occurred, the April
unemployment rate would have been nearly 5 percentage points higher.
See Bureau of Labor Statistics, ``Frequently Asked Questions: The
Impact of the Coronavirus (COVID-19) Pandemic on the Employment
Situation for April 2020'' (May 8, 2020), https://go.usa.gov/xvM73.
\12\ See https://www.nber.org/cycles/june2020.html.
---------------------------------------------------------------------------
The depth and duration of this recession and the path to economic
recovery remain highly uncertain. According to the most recent estimate
published by the Congressional Budget Office (CBO),\13\ the COVID-19
pandemic and associated social distancing triggered a sharp contraction
in output in the second quarter of 2020 but the CBO projects that real
Gross Domestic Product (GDP) will grow rapidly in the second half of
2020 and the first half of 2021. Strong GDP growth is projected to
continue thereafter but at a slower pace. The unemployment rate is
projected to peak at over 14 percent in the third quarter of this year
and then to fall quickly as output increases in the second half of 2020
and throughout 2021. Nonetheless, real GDP growth is projected to be
negative 5.8 percent for 2020 while the unemployment rate will be 10.6
percent for 2020. However, the CBO notes that there is an ``unusually
high degree of uncertainty'' surrounding its projections due to the
nature of the pandemic and the behavioral and policy responses aimed at
containing its spread, and the difficulties of recording and compiling
economic data during the unusually strong economic disruption in the
second quarter of 2020.
---------------------------------------------------------------------------
\13\ Congressional Budget Office, ``An Update to the Economic
Outlook: 2020-2030,'' published on July 2, 2020, accessed on 7/8/
2020 at https://www.cbo.gov/publication/56442.
---------------------------------------------------------------------------
The implications for the primary and secondary mortgage markets are
still unfolding as policy makers consider responses to the economic
disruption caused by COVID-19. Congress passed the CARES Act to address
some of the most pressing impacts of the economic disruption, including
by extending unemployment benefits. Nevertheless, the availability of
credit has contracted in the mortgage market due to a variety of
factors, including additional down payment and loan-to-value
restrictions and generally tightened underwriting requirements.
FHFA is monitoring how these unfolding changes may impact various
segments of the market, including those targeted by the housing goals.
For instance, while the economic disruption has resulted in tightening
of credit, job losses and uncertainty may also lead many low-income
households to exit the market of potential homebuyers. However, the
size of the impact on the share of low-income households among all home
purchase mortgages is uncertain.
National Housing Needs
At the start of 2020, the American housing market overall was in a
strong position. After falling for 12 consecutive years, the U.S.
homeownership rate reached 65.1 percent in 2019, with first-time
homebuyers becoming an increasingly larger share of the homebuying
market, helping to drive its overall expansion.\14\ Affordability
challenges for low-income households remained, however. While interest
rates have remained low since the recession, home prices have climbed
steadily, with real prices back within 2 percent of their 2006 peak at
the end of 2018, according to the FHFA House Price Index. The ratio of
median home price to median household income is a common yardstick for
measuring affordability, indicating how difficult it is for would-be
buyers to qualify for a mortgage and save for a down payment.
Nationwide, this ratio declined from a peak of 4.7 in 2005 to a low of
3.3 in 2011 and then rose to 4.1 in 2018.\15\ However, during 2019,
house price growth was starting to align with the growth in median
household incomes.
---------------------------------------------------------------------------
\14\ U.S. Census Bureau, ``Quarterly Residential Vacancies and
Homeownership,'' Fourth Quarter 2019, Release Number: CB20-05,
available at https://www.census.gov/housing/hvs/files/qtr419/Q419press.pdf.
\15\ Joint Center for Housing Studies of Harvard University,
``The State of the Nation's Housing 2019,'' available at https://www.jchs.harvard.edu/state-nations-housing-2019.
---------------------------------------------------------------------------
Recent Market Developments
In response to the COVID-19 pandemic, financial markets endured a
severe dislocation in March, and housing markets were no exception.
What is known to date is preliminary, as key housing market
indicators--on housing construction, sales, prices, inventory, and
more--indicate that the extent of disruption is extensive. At the same
time housing supply remains tight, providing support to house prices.
At least initially, the combination of social distancing measures and
heightened economic concerns caused home sales to drop significantly
and homebuilders to pull back on new housing starts. Single-family
housing starts declined 17.5 percent in March and another 25.4 percent
in April. Housing starts rose 4.3 percent in May, but this still leaves
the rate down 23.2 percent compared to May 2019.\16\
---------------------------------------------------------------------------
\16\ U.S. Census Bureau, ``Monthly New Residential
Construction,'' May 2020, Release Number: CB20-90, available at
https://www.census.gov/construction/nrc/pdf/newresconst.pdf.
---------------------------------------------------------------------------
The full impact of the COVID-19 pandemic on the low-income home
purchase market is unknown. However, the levels of output and
employment
[[Page 49316]]
remain far below their pre-pandemic levels, and significant uncertainty
remains about the timing and strength of the recovery. It is likely
that the full picture of the COVID-19 pandemic's impact on housing
markets will not be known until well after the virus is contained.
While the Enterprises showed strong goals performance in 2020 before
the onset of the COVID-19 pandemic, it is unclear whether this will
continue in the light of evolving market conditions and continued
tightening of underwriting by lenders.
Thus, while recent Enterprise performance on the housing goals has
tended to exceed the benchmark levels set by FHFA, the economic
disruption and uncertainty seen so far in 2020 support keeping the
levels unchanged from 2018-2020.
Past Performance of the Enterprises
Table 1 provides the annual performance of both Enterprises on the
single-family housing goals between 2010 and 2019.\17\ The performance
of the Enterprises in the two most recent years (2018 and 2019) shows
that both Enterprises exceeded the benchmark levels set by FHFA for
each of the single-family housing goals.
---------------------------------------------------------------------------
\17\ The 2019 data is preliminary data reported by the
Enterprises. FHFA will make the official determinations on
Enterprise performance under the 2019 housing goals later in 2020.
---------------------------------------------------------------------------
While the final determinations of Enterprise goal compliance for
2019 are pending FHFA's determination of the market level based on HMDA
data, both Enterprises report that their performance exceeded the
benchmark levels, continuing the recent trend of Enterprise performance
above the benchmark levels for the single-family housing goals for
2018-2020.
Table 1--Enterprise Single-Family Housing Goals Performance (2010-2019)
--------------------------------------------------------------------------------------------------------------------------------------------------------
2010 2011 2012 2013 2014 2015 2016 2017 2018 2019
--------------------------------------------------------------------------------------------------------------------------------------------------------
Low-Income Home Purchase Goal
--------------------------------------------------------------------------------------------------------------------------------------------------------
Actual Market................................................. 27.2 26.5 26.6 24 22.8 23.6 22.9 24.3 25.5 TBD
Benchmark..................................................... 27 27 23 23 23 24 24 24 24 24
Fannie Mae Performance........................................ * 25.1 * 25.8 25.6 23.8 23.5 * 23.5 22.9 25.5 28.2 27.8
Freddie Mac Performance....................................... 27.8 * 23.3 24.4 * 21.8 * 21 * 22.3 23.8 * 23.2 25.8 27.4
--------------------------------------------------------------------------------------------------------------------------------------------------------
Very Low-Income Home Purchase Goal
--------------------------------------------------------------------------------------------------------------------------------------------------------
Actual Market................................................. 8.1 8 7.7 6.3 5.7 5.8 5.4 5.9 6.5 TBD
Benchmark..................................................... 8 8 7 7 7 6 6 6 6 6
Fannie Mae Performance........................................ * 7.2 * 7.6 7.3 * 6 5.7 * 5.6 * 5.2 5.9 6.7 6.5
Freddie Mac Performance....................................... 8.4 * 6.6 7.1 * 5.5 * 4.9 * 5.4 5.7 * 5.7 6.3 6.8
--------------------------------------------------------------------------------------------------------------------------------------------------------
Low-Income Areas Home Purchase Goal
--------------------------------------------------------------------------------------------------------------------------------------------------------
Actual Market................................................. 24 22 23.2 22.1 22.1 19.8 19.7 21.5 22.6 TBD
Benchmark..................................................... 24 24 20 21 18 19 17 18 18 19
Fannie Mae Performance........................................ 24.1 22.4 22.3 21.6 22.7 20.4 20.2 22.9 25.1 24.5
Freddie Mac Performance....................................... * 23.8 * 19.2 20.6 * 20 20.1 19 19.9 20.9 22.6 22.9
--------------------------------------------------------------------------------------------------------------------------------------------------------
Low-Income Areas Home Purchase Subgoal
--------------------------------------------------------------------------------------------------------------------------------------------------------
Actual Market................................................. 12.1 11.4 13.6 14.2 15 15.2 15.9 17.1 18 TBD
Benchmark..................................................... 13 13 11 11 11 14 14 14 14 14
Fannie Mae Performance........................................ 12.4 11.6 13.1 14 15.5 15.6 16.2 18.3 20.1 19.5
Freddie Mac Performance....................................... * 10.8 * 9.2 11.4 12.3 13.6 14.5 15.6 16.4 17.3 18.0
--------------------------------------------------------------------------------------------------------------------------------------------------------
Low-Income Refinance Goal
--------------------------------------------------------------------------------------------------------------------------------------------------------
Actual Market................................................. 20.2 21.5 22.3 24.3 25 22.5 19.8 25.4 30.7 TBD
Benchmark..................................................... 21 21 20 20 20 21 21 21 21 21
Fannie Mae Performance........................................ 20.9 23.1 21.8 24.3 26.5 22.1 * 19.5 24.8 31.2 23.8
Freddie Mac Performance....................................... 22 23.4 22.4 24.1 26.4 22.8 21 24.8 27.3 22.4
--------------------------------------------------------------------------------------------------------------------------------------------------------
* Numbers marked with asterisks are preliminary numbers reported by the Enterprises.
Tables 2 through 5 provide additional detail on the recent
performance of the Enterprises for each of the goals and the subgoal.
The tables show the number as well as the share of goal-qualifying
loans that the Enterprises acquired from 2013-2019. In 2018 and 2019,
the Enterprises increased the number of goals-qualifying loans they
acquired at the same time that their overall single-family mortgage
purchase volume increased.
Table 2--Low-Income Home Purchase Goal
--------------------------------------------------------------------------------------------------------------------------------------------------------
Performance
Year -------------------------------------------------------------------------------------------------
2013 2014 2015 2016 2017 2018 2019
--------------------------------------------------------------------------------------------------------------------------------------------------------
Actual Market......................................... 24.0% 22.8% 23.6% 22.9% 24.3% 25.5% TBD
Benchmark............................................. 23% 23% 24% 24% 24% 24% 24%
Fannie Mae Performance:
[[Page 49317]]
Low-Income Home Purchase Mortgages................ 193,660 177,846 188,891 221,628 263,296 294,559 * 298,702
Total Home Purchase Mortgages..................... 814,066 757,870 802,432 966,800 1,032,567 1,044,098 * 1,075,032
Low-Income % of Home Purchase Mortgages........... 23.8% 23.5% 23.5% 22.9% 25.5% 28.21/o * 27.8%
Freddie Mac Performance:
Low-Income Home Purchase Mortgages................ 93,425 108,948 129,455 153,434 165,555 199,429 * 235,811
Total Home Purchase Mortgages..................... 429,086 519,731 579,340 644,988 713,901 774,394 * 860,669
Low-Income % of Home Purchase Mortgages........... 21.8% 21.0% 22.3% 23.8% 23.2% 25.8% * 27.4%
--------------------------------------------------------------------------------------------------------------------------------------------------------
* Numbers marked with asterisks are preliminary numbers reported by the Enterprises.
Table 3--Very Low-Income Home Purchase Goal
--------------------------------------------------------------------------------------------------------------------------------------------------------
Performance
Year -------------------------------------------------------------------------------------------------
2013 2014 2015 2016 2017 2018 2019
--------------------------------------------------------------------------------------------------------------------------------------------------------
Actual Market......................................... 6.30% 5.70% 5.80% 5.40% 5.90% 6.50% TBD
Benchmark............................................. 7% 7% 6% 6% 6% 6% 6%
Fannie Mae Performance:
Very Low-Income Home Purchase Mortgages........... 48,810 42,872 45,022 49,932 60,561 69,952 * 70,214
Total Home Purchase Mortgages..................... 814,066 757,870 802,432 966,800 1,032,567 1,044,098 * 1,075,032
Very Low-Income % of Home Purchase Mortgages...... 6.0% 5.7% 5.6% 5.2% 5.9% 6.7% * 6.5%
Freddie Mac Performance:
Very Low-Income Home Purchase Mortgages........... 23,705 25,232 31,146 36,837 40,848 48,823 * 58,136
Total Home Purchase Mortgages..................... 429,086 519,731 579,340 644,988 713,901 774,394 * 860,669
Very Low-Income % of Home Purchase Mortgages...... 5.5% 4.9% 5.4% 5.7% 5.7% 6.3% * 6.8%
--------------------------------------------------------------------------------------------------------------------------------------------------------
* Numbers marked with asterisks are preliminary numbers reported by the Enterprises.
Table 4--Low-Income Areas Home Purchase Subgoal
--------------------------------------------------------------------------------------------------------------------------------------------------------
Performance
Year -------------------------------------------------------------------------------------------------
2013 2014 2015 2016 2017 2018 2019
--------------------------------------------------------------------------------------------------------------------------------------------------------
Actual Market......................................... 14.2% 15.2% 15.2% 15.9% 17.1% 18.0% TBD
Benchmark............................................. 11% 11% 14% 14% 14% 14% 14%
Fannie Mae Performance:
Low-Income Area Home Purchase Mortgages........... 86,430 91,691 99,723 125,956 152,102 167,265 * 166,709
High-Minority Area Home Purchase Mortgages........ 27,425 25,650 25,349 30,535 36,942 42,099 * 42,732
Subgoal-Qualifying Total Home Purchase Mortgages.. 113,855 117,341 125,072 156,491 189,044 209,364 * 209,441
Total Home Purchase Mortgages..................... 814,066 757,870 802,432 966,800 1,032,567 1,044,098 * 1,075,032
Low-Income Area % of Home Purchase Mortgages...... 14.0% 15.5% 15.6% 16.2% 18.3% 20.1% * 19.5%
Freddie Mac Performance:
Low-Income Area Home Purchase Mortgages........... 40,444 55,987 67,172 80,805 94,961 106,815 * 123,953
High-Minority Area Home Purchase Mortgages........ 12,177 14,808 16,601 19,788 22,190 27,310 * 30,770
[[Page 49318]]
Subgoal-Qualifying Total Home Purchase Mortgages.. 52,621 70,795 83,773 100,593 117,151 134,125 * 154,723
Total Home Purchase Mortgages..................... 429,086 519,731 579,340 644,988 713,901 774,394 * 860,669
Low-Income Area % of Home Purchase Mortgages...... 12.3% 13.6% 14.5% 15.6% 16.4% 17.3% * 18.0%
--------------------------------------------------------------------------------------------------------------------------------------------------------
* Numbers marked with asterisks are preliminary numbers reported by the Enterprises.
Table 5--Low-Income Refinance Goal
--------------------------------------------------------------------------------------------------------------------------------------------------------
Performance
Year -------------------------------------------------------------------------------------------------
2013 2014 2015 2016 2017 2018 2019
--------------------------------------------------------------------------------------------------------------------------------------------------------
Actual Market......................................... 24.3% 25.0% 22.5% 19.8% 25.4% 30.7% TBD
Benchmark............................................. 20% 20% 21% 21% 21% 21% 21%
Fannie Mae Performance:
Low-lncome Refinance Mortgages.................... 531,611 222,329 231,380 248,698 223,768 196,230 * 234,249
Total Refinance Mortgages......................... 2,186,541 840,506 1,045,258 1,274,342 902,123 629,816 * 985,932
Low-lncome % of Refinance Mortgages............... 24.3% 26.5% 22.1% 19.5% 24.8% 31.2% * 23.8%
Freddie Mac Performance:
Low-Income Refinance Mortgages.................... 320,962 131,921 182,594 174,708 143,475 104,843 * 159,322
Total Refinance Mortgages......................... 1,331,034 514,936 800,369 830,888 578,548 384,593 * 712,376
Low-lncome % of Refinance Mortgages............... 24.1% 25.6% 22.8% 21.0% 24.8% 27.3% * 22.4%
--------------------------------------------------------------------------------------------------------------------------------------------------------
* Numbers marked with asterisks are preliminary numbers reported by the Enterprises.
Proposed Benchmark Levels for the Single-Family Housing Goals for 2021
FHFA is proposing to establish the benchmark levels for each of the
single-family housing goals and the subgoal for 2021 at the same levels
that applied for 2018-2020. While recent Enterprise performance and
market data have tended to exceed the established benchmark levels,
FHFA expects that both the market levels and Enterprise performance
could decline in 2021 due to impacts related to economic disruption
caused by the COVID-19 pandemic. Information on Enterprise goals
performance remains confidential until it is reported after the end of
the year. However, FHFA monitors this confidential information on a
regular basis. FHFA recognizes that the performance trends in the first
half of 2020 reflect disruption due to COVID-19, and FHFA expects this
to continue into 2021. Based on the above factors, FHFA believes that
extending the benchmark levels from 2020 to 2021 will provide
achievable yet challenging targets for the Enterprises.
V. Multifamily Housing Goals
The Safety and Soundness Act requires FHFA to consider the
following six factors in setting the multifamily housing goals:
1. National multifamily mortgage credit needs and the ability of
the Enterprises to provide additional liquidity and stability for the
multifamily mortgage market;
2. The performance and effort of the Enterprises in making mortgage
credit available for multifamily housing in previous years;
3. The size of the multifamily mortgage market for housing
affordable to low-income and very low-income families, including the
size of the multifamily markets for housing of a smaller or limited
size;
4. The ability of the Enterprises to lead the market in making
multifamily mortgage credit available, especially for multifamily
housing affordable to low-income and very low-income families;
5. The availability of public subsidies; and
6. The need to maintain the sound financial condition of the
Enterprises.\18\
---------------------------------------------------------------------------
\18\ 12 U.S.C. 4563(a)(4).
---------------------------------------------------------------------------
FHFA has considered each of these statutory factors in setting the
proposed benchmark levels for each of the multifamily goals.
The multifamily housing goals are measured based on the total
volume of affordable multifamily mortgage purchases rather than on a
percentage of multifamily mortgage purchases. Unlike the single-family
housing goals, performance on the multifamily housing goals is measured
solely against a benchmark level, without any retrospective market
measure. The absence of a retrospective market measure for the
multifamily housing goals results, in part, from the lack of
comprehensive data about the multifamily mortgage market. Unlike the
single-family market, for which HMDA provides a reasonably
comprehensive dataset about single-family mortgage originations each
year, the multifamily market (including the affordable multifamily
market segment) has no comparable source. Consequently, it can be
difficult to correlate different datasets that usually rely on
different reporting formats.
Another difference between the single-family and multifamily goals
is that there are separate single-family housing goals for home
purchase and refinancing mortgages, while the multifamily goals include
all Enterprise multifamily mortgage purchases,
[[Page 49319]]
regardless of the purpose of the loan. In addition, unlike the single-
family housing goals, the multifamily housing goals are measured based
on the total volume of affordable multifamily mortgage purchases rather
than on a percentage of multifamily mortgage purchases. The use of
total volumes, which FHFA measures by the number of eligible units,
rather than percentages of each Enterprises' overall multifamily
purchases, requires that FHFA take into account the expected size of
the overall multifamily mortgage market and the affordable share of the
market, as well as the expected volume of the Enterprises' overall
multifamily purchases and the affordable share of those purchases. The
lack of comprehensive data for the multifamily mortgage market is even
more acute with respect to the segments of the market that are targeted
to low-income families, defined as families with incomes at or below 80
percent of AMI, and very low-income families, defined as families with
incomes at or below 50 percent of AMI. As required by the Safety and
Soundness Act, FHFA determines affordability of multifamily units based
on a unit's rent and utility expenses not exceeding 30 percent of the
area median income standard for low- and very low-income families.\19\
---------------------------------------------------------------------------
\19\ 12 U.S.C. 4563(c).
---------------------------------------------------------------------------
Current Economic Conditions, National Housing Needs, and Recent Market
Developments
Even as late as February 2020, the multifamily originations market
appeared as strong as it had been in 2019. At that time, FHFA noted a
number of trends that have continued for multiple years, including the
continued market focus on the construction of high-end, luxury
apartments and the steady decline in the number of low-cost rentals.
While completed rentals nearly reached a 30-year high in 2018 with an
addition of 360,000 units, supply dropped by 340,000 units between 2016
and 2017.\20\ Nationwide, there has been a loss of four million low-
cost rental units (rents less than $800 per month) since 2011.\21\
There is a particularly acute shortfall of affordable units for
extremely low-income renters (earning up to 30 percent of area median
income) that was acknowledged as a persistent problem even before the
COVID-19 pandemic began. For instance, as a recent report from the
Department of Housing and Urban Development \22\ notes, it is
increasingly difficult for housing developers and landlords to provide
decent rental housing at rates that are affordable to American working
families and more vulnerable households. In 2017, the most recent year
for which such data are available, only 59 affordable units were
available per 100 very low-income renter households, and only 40 units
were available per 100 extremely low-income renter households.
---------------------------------------------------------------------------
\20\ Joint Center for Housing Studies of Harvard University,
``The State of the Nation's Housing 2019,'' available at
www.jchs.harvard.edu/research/state_nations_housing.
\21\ Id.
\22\ U.S. Department of Housing and Urban Development, ``Worst
Case Housing Needs: 2019 Report to Congress'', June 19, 2020
accessed on 7/10/2020 at https://www.huduser.gov/PORTAL/sites/default/files/pdf/worst-case-housing-needs-2020.pdf.
---------------------------------------------------------------------------
The full impact on the stock of low-cost rental units in the wake
of the COVID-19 pandemic and broader economic downturn is not yet
known. In the short-term, the pandemic might exacerbate the already-
constrained supply as lower housing mobility rates limit the number of
low-cost options for renters and current residents stay in place. As
one study using the 2018 American Community Survey data shows, demand
for low-cost units was already high while their availability was
extremely low.\23\ Additional tightening at the low end of the market
could pose significant affordability challenges to low- and middle-
income renters.
---------------------------------------------------------------------------
\23\ Joint Center for Housing Studies of Harvard University,
``The Continuing Decline of Low-Cost Rentals,'' May 11, 2020
accessed on 6/30/2020 at https://www.jchs.harvard.edu/blog/the-continuing-decline-of-low-cost-rentals/.
---------------------------------------------------------------------------
Further, renters living in single-family homes and smaller
multifamily buildings, along with the owners of those properties, are
more likely to be negatively affected by the COVID-19 economic
downturn. According to one study, over half of renters with at-risk
wages \24\ due to the pandemic live in single-family rental housing
with 1-4 units. The same study estimates that nearly 20 percent of
renters in small multifamily (5 to 50 units) dwellings may have
difficulty paying full rent if at-risk wages are lost, compared to 12
percent of renters living in larger dwellings. This could, in turn,
make it difficult for the owners of those properties, who are more
likely to be small, individual investors, to remain financially stable
through the pandemic.\25\
---------------------------------------------------------------------------
\24\ ``At risk wages'' are wages associated with ``At Risk
Jobs'' which are defined as those in services, retail, recreation,
transportation and travel, and oil extraction. Joint Center for
Housing Studies of Harvard University, ``Pandemic Will Worsen
Housing Affordability for Service, Retail, and Transportation
Workers'' March 30, 2020 accessed on 6/30/2020 at https://www.jchs.harvard.edu/blog/pandemic-will-worsen-housing-affordability-for-service-retail-and-transportation-workers/.
\25\ Joint Center for Housing Studies of Harvard University,
``COVID-19 Rent Shortfalls in Small Buildings,'' May 26, 2020
accessed on 6/30/2020 at https://www.jchs.harvard.edu/blog/covid-19-rent-shortfalls-in-small-buildings/.
---------------------------------------------------------------------------
Conservatorship Scorecard Caps
Enterprise performance on the multifamily housing goals is heavily
influenced by the caps on total multifamily business that FHFA has
established as conservator of the Enterprises. The multifamily volume
caps are intended to further FHFA's conservatorship goal: Maintaining
the presence of the Enterprises as a backstop for the multifamily
finance market, while not impeding the participation of private
capital. The multifamily volume caps reflect an Enterprise share of the
multifamily origination market that FHFA has determined to be an
appropriate market share for the Enterprises during normal market
conditions. The multifamily volume caps are intended to prevent the
Enterprises from crowding out other capital sources and restrain the
rapid growth of the Enterprises' multifamily businesses that started in
2011.
In September 2019, FHFA established multifamily loan purchase caps
at $100 billion for each Enterprise during the five quarters beginning
on October 1, 2019, and ending on December 31, 2020. The new cap
framework requires that each Enterprise meet a target of 37.5 percent
of its multifamily business as mission-driven, affordable housing.
There is significant overlap between the types of multifamily mortgages
that count toward the conservatorship scorecard target of 37.5 percent
and the multifamily mortgages that contribute to the performance of the
Enterprises under the affordable housing goals.
While the conservatorship scorecard caps and target level for
mission-driven loans play a significant role in determining the
multifamily purchase volume and affordable share for the Enterprise
multifamily businesses, the multifamily housing goals target specific
segments of the multifamily business and ensure appropriate Enterprise
focus on those segments as required by the Safety and Soundness Act. In
proposing benchmark levels for the Enterprise housing goals, FHFA has
considered the required statutory factors and is proposing benchmark
levels that would be achievable if the conservatorship scorecard caps
and target levels for 2021 are similar to the conservatorship scorecard
limits in effect for 2020. If the conservatorship scorecard has
established the multifamily purchase
[[Page 49320]]
volume caps applicable for 2021 at the time FHFA publishes a final rule
setting benchmark levels for the multifamily housing goals, FHFA may
adjust the benchmark levels based on those purchase volume caps.
Past Performance on the Multifamily Low-Income Housing Goal
The multifamily low-income housing goal is based on the total
number of rental units in multifamily properties financed by mortgages
purchased by the Enterprises that are affordable to low-income
families, defined as families with incomes less than or equal to 80
percent of the area median income. Since 2016, each Enterprise has
performed significantly above the benchmark level for the multifamily
low-income housing goal each year.
Table 6--Low-Income Multifamily Goal
--------------------------------------------------------------------------------------------------------------------------------------------------------
Performance
--------------------------------------------------------------------------------------------------------------------------------------------------------
Year 2012 2013 2014 2015 2016 2017 2018 2019
--------------------------------------------------------------------------------------------------------------------------------------------------------
Fannie Mae Benchmark............................ 285,000 265,000 250,000 300,000 300,000 300,000 315,000 315,000
Freddie Mac Benchmark........................... 225,000 215,000 200,000 300,000 300,000 300,000 315,000 315,000
Fannie Mae Performance:
Low-Income Multifamily Units................ 375,924 326,597 262,050 307,510 352,368 401,145 421,813 * 384,572
Total Multifamily Units..................... 501,256 430,751 372,072 468,798 552,785 630,868 628,230 * 596,137
Low-Income % Total.......................... 75.0% 75.8% 70.4% 65.6% 63.7% 63.6% 67.1% * 64.5%
Freddie Mac Performance:
Low-Income Multifamily Units................ 298,529 254,628 273,434 379,042 406,958 408,096 474,062 * 455,451
Total Multifamily Units..................... 377,522 341,490 366,377 514,275 597,399 630,037 695,587 * 661,417
Low-Income % of Total Units................. 79.1% 74.6% 74.6% 73.7% 68.1% 64.8% 68.2% * 68.9%
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* Numbers marked with asterisks are preliminary numbers reported by the Enterprises.
Past Performance on the Multifamily Very Low-Income Housing Subgoal
The multifamily very low-income housing subgoal includes units
affordable to very low-income families, defined as families with
incomes no greater than 50 percent of area median income. Both
Enterprises have surpassed the benchmark level for the multifamily very
low-income housing subgoal by a significant margin in recent years.
Table 7--Very Low-Income Multifamily Goal
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Performance
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Year 2012 2013 2014 2015 2016 2017 2018 2019
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Fannie Mae Benchmark............................ 80,000 70,000 60,000 60,000 60,000 60,000 60,000 60,000
Freddie Mac Benchmark........................... 59,000 50,000 40,000 60,000 60,000 60,000 60,000 60,000
Fannie Mae Performance:
Very Low-Income Multifamily Units........... 100,878 78,071 60,542 69,078 65,910 82,674 80,891 * 78,835
Total Multifamily Units..................... 501,256 430,751 372,072 468,798 552,785 630,868 628,230 * 596,137
Very Low-Income % of Total Units............ 21.7% 18.1% 16.3% 14.7% 11.9% 13.1% 12.9% * 13.2%
Freddie Mac Performance:
Very Low-Income Multifamily Units........... 60,084 56,742 48,689 76,935 73,030 92,274 105,612 * 112,785
Total Home Purchase Mortgages............... 377,522 341,490 366,377 514,275 597,399 630,037 695,587 * 661,417
Very Low-Income % of Total Units............ 15.9% 16.6% 13.3% 15.0% 12.2% 14.6% 15.2% * 17.1%
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* Numbers marked with asterisks are preliminary numbers reported by the Enterprises.
Past Performance on the Small Multifamily Low-Income Housing Subgoal
The small multifamily low-income housing subgoal is based on the
total number of units in small multifamily properties financed by
mortgages purchased by the Enterprises that are affordable to low-
income families, defined as families with incomes less than or equal to
80 percent of the area median income. A small multifamily property is
defined as a property with 5 to 50 units. Both Enterprises have met the
small multifamily low-income housing subgoal each year in recent years.
[[Page 49321]]
Table 8--Small (5-50) Low-Income Multifamily Goal
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Performance
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Year 2012 2013 2014 2015 2016 2017 2018 2019
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Small Low-Income Multifamily Benchmark.......... ........... ........... ........... 6,000 8,000 10,000 10,000 10,000
Fannie Mae Performance:
Small Low-Income Multifamily Units.......... 16,801 13,827 6,732 6,731 9,312 12,043 11,890 * 17,782
Total Small Multifamily Units............... 26,479 21,764 11,880 11,198 15,211 20,375 17,894 * 25,565
Low-Income % of Total Small Multifamily 63.5% 63.5% 56.7% 60.1% 61.2% 59.1% 66.4% * 69.6%
Units......................................
Freddie Mac Performance:
Small Low-Income Multifamily Units.......... 829 1,128 2,076 12,801 22,101 39,473 39,353 * 34,847
Total Small Multifamily Units............... 2,194 2,375 4,659 21,246 33,984 55,116 53,893 * 46,862
Low-Income % of Total Small Multifamily 37.8% 47.5% 44.6% 60.3% 65.0% 71.6% 73.0% * 74.4%
Units......................................
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* Numbers marked with asterisks are preliminary numbers reported by the Enterprises.
Proposed Benchmark Levels for the Multifamily Housing Goals for 2021
FHFA is proposing to establish the benchmark levels for each of the
multifamily housing goal and subgoals for 2021 at the same levels that
applied for 2018-2020. In proposing the benchmark levels for the
multifamily low-income housing goal and the multifamily very low-income
housing goal, FHFA considered the statutory factors including current
economic conditions, national housing needs, recent market
developments, the most recent conservatorship scorecard cap levels, and
the past performance of the Enterprises in meeting each goal.
Due to the relatively low volume of small multifamily loans
purchased by each Enterprise, the conservatorship scorecard cap has
less impact on the ability of the Enterprises to meet the small
multifamily low-income housing goal. Based on the recent performance of
the Enterprises on the goal, FHFA believes the benchmark levels for
2018-2020 continue to be appropriate for 2021 to ensure that the
Enterprises maintain a meaningful presence in the market for small
multifamily loans.
While the recent performance of the Enterprises on the multifamily
housing goals suggests that each Enterprise may be able to meet a
higher benchmark level, FHFA has also considered a variety of factors
including recent market trends and especially the economic disruption
due to the COVID-19 emergency that support keeping the benchmark levels
for the multifamily housing goals at the same level as the 2018-2020
goals. Based on the above factors, FHFA believes that extending the
benchmark levels from 2020 to 2021 \26\ will provide achievable yet
challenging targets for the Enterprises.
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\26\ The benchmark level for the Low-Income Areas Purchase goal
will be set by FHFA notice in 2021 pursuant to 12 CFR 1282.12(e).
The Low-Income Areas Purchase goal has a disaster component that is
dependent on the Federal disaster declarations in place at the
beginning of each calendar year. The regulation defines ``designated
disaster area'' as ``any census tract that is located in a county
designated by the federal government as adversely affected by a
declared major disaster administered by FEMA, where individual
assistance payments were authorized by FEMA.'' 12 CFR 1282.1
(emphasis added). While most of the country has been declared a
disaster area by reason of COVID-19, those declarations have not
been accompanied by FEMA authorizations of individual assistance
payments.
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VI. Paperwork Reduction Act
The Paperwork Reduction Act (44 U.S.C. 3501 et seq.) requires that
regulations involving the collection of information receive clearance
from the Office of Management and Budget (OMB). The proposed rule does
not contain any information collection requirement that would require
OMB approval under the Paperwork Reduction Act. Therefore, FHFA has not
submitted the rule to OMB for review.
VII. Regulatory Flexibility Act
The Regulatory Flexibility Act (5 U.S.C. 601 et seq.) requires that
a regulation that has a significant economic impact on a substantial
number of small entities, small businesses, or small organizations must
include an initial regulatory flexibility analysis describing the
regulation's impact on small entities. Such an analysis need not be
undertaken if the agency has certified that the regulation will not
have a significant economic impact on a substantial number of small
entities. 5 U.S.C. 605(b). FHFA has considered the impact of the
proposed rule under the Regulatory Flexibility Act. The General Counsel
of FHFA certifies that the proposed rule, if adopted as a final rule,
will not have a significant economic impact on a substantial number of
small entities because the regulation applies only to Fannie Mae and
Freddie Mac, which are not small entities for purposes of the
Regulatory Flexibility Act.
List of Subjects in 12 CFR Part 1282
Mortgages, Reporting and recordkeeping requirements.
Authority and Issuance
For the reasons stated in the Supplementary Information, under the
authority of 12 U.S.C. 4511, 4513, and 4526, FHFA proposes to amend
part 1282 of Title 12 of the Code of Federal Regulations as follows:
CHAPTER XII--FEDERAL HOUSING FINANCE AGENCY
SUBCHAPTER E--HOUSING GOALS AND MISSION
PART 1282--ENTERPRISE HOUSING GOALS AND MISSION
0
1. The authority citation for part 1282 continues to read as follows:
Authority: 12 U.S.C. 4501, 4502, 4511, 4513, 4526, 4561-4566.
[[Page 49322]]
0
2. Section 1282.12 is amended by revising paragraphs (c)(2), (d)(2),
(f)(2), and (g)(2) to read as follows:
Sec. 1282.12 Single-family housing goals.
* * * * *
(c) * * *
(2) The benchmark level, which for 2021 shall be 24 percent of the
total number of purchase money mortgages purchased by that Enterprise
in each year that finance owner-occupied single-family properties.
(d) * * *
(2) The benchmark level, which for 2021 shall be 6 percent of the
total number of purchase money mortgages purchased by that Enterprise
in each year that finance owner-occupied single-family properties.
* * * * *
(f) * * *
(2) The benchmark level, which for 2021 shall be 14 percent of the
total number of purchase money mortgages purchased by that Enterprise
in each year that finance owner-occupied single-family properties.
(g) * * *
(2) The benchmark level, which for 2021 shall be 21 percent of the
total number of refinancing mortgages purchased by that Enterprise in
each year that finance owner-occupied single-family properties.
* * * * *
0
3. Section 1282.13 is amended by revising paragraphs (b) through (d) to
read as follows:
Sec. 1282.13 Multifamily special affordable housing goal and
subgoals.
* * * * *
(b) Multifamily low-income housing goal. The benchmark level for
each Enterprise's purchases of mortgages on multifamily residential
housing affordable to low-income families shall be at least 315,000
dwelling units affordable to low-income families in multifamily
residential housing financed by mortgages purchased by the Enterprise
for 2021.
(c) Multifamily very low-income housing subgoal. The benchmark
level for each Enterprise's purchases of mortgages on multifamily
residential housing affordable to very low-income families shall be at
least 60,000 dwelling units affordable to very low-income families in
multifamily residential housing financed by mortgages purchased by the
Enterprise for 2021.
(d) Small multifamily low-income housing subgoal. The benchmark
level for each Enterprise's purchases of mortgages on small multifamily
properties affordable to low-income families shall be at least 10,000
dwelling units affordable to low-income families in small multifamily
properties financed by mortgages purchased by the Enterprise for 2021.
Mark A. Calabria
Director, Federal Housing Finance Agency.
[FR Doc. 2020-15959 Filed 8-12-20; 8:45 am]
BILLING CODE 8070-01-P