Affirmatively Furthering Fair Housing, 8516-8590 [2023-00625]
Download as PDF
8516
Federal Register / Vol. 88, No. 27 / Thursday, February 9, 2023 / Proposed Rules
DEPARTMENT OF HOUSING AND
URBAN DEVELOPMENT
24 CFR Parts 5, 91, 92, 93, 570, 574,
576, 903 and 983
[Docket No. FR–6250–P–01]
RIN 2529–AB05
Affirmatively Furthering Fair Housing
Office of the Secretary,
Department of Housing and Urban
Development (HUD).
ACTION: Proposed rule.
AGENCY:
Through this rulemaking,
HUD proposes to implement the
obligation to affirmatively further the
purposes and policies of the Fair
Housing Act, which is title VIII of the
Civil Rights Act of 1968, with respect to
certain recipients of HUD funds. The
Fair Housing Act not only prohibits
discrimination, but also directs HUD to
ensure that the agency and its program
participants will proactively take
meaningful actions to overcome patterns
of segregation, promote fair housing
choice, eliminate disparities in housingrelated opportunities, and foster
inclusive communities that are free from
discrimination. This proposed rule
builds on the steps previously taken in
HUD’s 2015 Affirmatively Furthering
Fair Housing (AFFH) final rule to
implement the AFFH obligation and
ensure that Federal funding is used in
a systematic way to further the policies
and goals of the Fair Housing Act. This
rule proposes to retain much of the 2015
AFFH Rule’s core planning process,
with certain improvements such as a
more robust community engagement
requirement, a streamlined required
analysis, greater transparency, and an
increased emphasis on goal setting and
measuring progress. It also includes
mechanisms to hold program
participants accountable for achieving
positive fair housing outcomes and
complying with their obligation to
affirmatively further fair housing,
modeled after those processes under
other Federal civil rights statutes that
apply to recipients of Federal financial
assistance.
DATES: Comment due date: April 10,
2023.
ADDRESSES: Interested persons are
invited to submit comments regarding
this proposed rule to the Regulations
Division, Office of General Counsel,
Department of Housing and Urban
Development, 451 7th Street SW, Room
10276, Washington, DC 20410–0500.
Communications must refer to the above
docket number and title. There are two
methods for submitting public
khammond on DSKJM1Z7X2PROD with PROPOSALS2
SUMMARY:
VerDate Sep<11>2014
16:40 Feb 08, 2023
Jkt 259001
comments. All submissions must refer
to the above docket number and title.
1. Submission of Comments by Mail.
Comments may be submitted by mail to
the Regulations Division, Office of
General Counsel, Department of
Housing and Urban Development, 451
7th Street SW, Room 10276,
Washington, DC 20410–0500.
2. Electronic Submission of
Comments. Interested persons may
submit comments electronically through
the Federal eRulemaking Portal at
www.regulations.gov. HUD strongly
encourages commenters to submit
comments electronically. Electronic
submission of comments allows the
commenter maximum time to prepare
and submit a comment, ensures timely
receipt by HUD, and enables HUD to
make them immediately available to the
public. Comments submitted
electronically through the
www.regulations.gov website can be
viewed by other commenters and
interested members of the public.
Commenters should follow the
instructions provided on that site to
submit comments electronically.
Note: To receive consideration as public
comments, comments must be submitted
through one of the two methods specified
above. Again, all submissions must refer to
the docket number and title of the rule.
No Facsimile Comments: Facsimile
(FAX) comments are not acceptable.
Public Inspection of Comments. All
properly submitted comments and
communications submitted to HUD will
be available for public inspection and
copying between 8 a.m. and 5 p.m.
weekdays at the above address. Due to
security measures at the HUD
Headquarters building, an advance
appointment to review the public
comments must be scheduled by calling
the Regulations Division at 202–402–
3055 (this is not a toll-free number).
HUD welcomes and is prepared to
receive calls from individuals who are
deaf or hard of hearing, as well as
individuals with communication
disabilities. To learn more about how to
make an accessible telephone call,
please visit https://www.fcc.gov/
consumers/guides/telecommunicationsrelay-service-trs. Copies of all comments
submitted are available for inspection
and downloading at
www.regulations.gov.
FOR FURTHER INFORMATION CONTACT:
Tiffany Johnson, Director, Policy and
Legislative Initiatives Division, Office of
Fair Housing and Equal Opportunity,
Department of Housing and Urban
Development, 451 7th Street SW, Room
5250, Washington, DC 20410–8000,
telephone number 202–402–2881 (this
PO 00000
Frm 00002
Fmt 4701
Sfmt 4702
is not a toll-free number). Individuals
who are deaf or hard of hearing and
individuals with speech impairments
may access this number via TTY by
calling the toll-free Federal Relay
Service during working hours at 1–800–
877–8339.
SUPPLEMENTARY INFORMATION:
I. Executive Summary
Purpose of the Regulatory Action
Housing plays a central role in
American life. Where children live and
grow up is inextricably linked to their
level of educational attainment, their
relationship with policing and the
criminal justice system, what jobs they
can obtain as adults, how much wealth
their family can attain, whether they
will someday purchase their own home,
whether they will face chronic health
conditions or other lifelong obstacles,
and ultimately the opportunities they
will be able to provide for their own
children and grandchildren. As the
United States Supreme Court noted
recently, in enacting the Fair Housing
Act more than fifty years ago, Congress
recognized the critical role housing
played and continues to play in creating
and maintaining inequities based on
race and color. See Tex. Dep’t of
Housing and Cmty Affairs v. Inclusive
Cmtys Project, Inc., 576 U.S. 519, 546
(2015) (‘‘The [Fair Housing Act] must
play an important part in avoiding the
Kerner Commission’s grim prophecy
that ‘our Nation is moving toward two
societies, one [B]lack, one [W]hite—
separate and unequal.’ The Court
acknowledges the Fair Housing Act’s
role in moving the Nation toward a
more integrated society.’’) (internal
citations omitted).
Notwithstanding progress in
combatting some types of housing
discrimination, the systemic and
pervasive residential segregation that
was historically sanctioned (and even
worsened) by Federal, State, and local
law, and that the Fair Housing Act was
meant to remedy has persisted to this
day. In countless communities
throughout the United States, people of
different races still reside separate and
apart from each other in different
neighborhoods, often due to past
government policies and decisions.
Those neighborhoods have very
different and unequal access to basic
infrastructure (streets, sidewalks, clean
water, and sanitation systems) and other
things that every thriving community
needs, such as access to affordable and
accessible housing, public
transportation, grocery and retail
establishments, health care, and
educational and employment
E:\FR\FM\09FEP2.SGM
09FEP2
khammond on DSKJM1Z7X2PROD with PROPOSALS2
Federal Register / Vol. 88, No. 27 / Thursday, February 9, 2023 / Proposed Rules
opportunities—frequently because
government itself has intentionally
denied resources to the neighborhoods
where communities of color live. And
this segregation is perpetuated by
policies that effectively preclude
mobility to neighborhoods where
opportunity is greater.
Moreover, inequities in real housing
choice do not exist solely on race or
color lines, but across all the classes the
Fair Housing Act protects. Individuals
with disabilities too frequently are
excluded not just from buildings but
from whole communities because of
lack of accessible and affordable
housing. The widespread lack of quality
affordable housing shuts out families
with children and members of other
protected class groups.
This proposed rule implements the
Fair Housing Act’s Affirmatively
Furthering Fair Housing (AFFH)
mandate across the Nation to address
these inequities and others that cause
unequal and segregated access to
housing and the platform it provides for
a better life. The proposed rule is
intended to foster local commitment to
addressing local and regional fair
housing issues, both requiring and
enabling communities to leverage and
align HUD funding with other Federal,
State, or local resources to develop
innovative solutions to inequities that
have plagued our society for far too
long. The proposed rule is meant to
provide the tools that HUD—together
with other Federal, State, and local
agencies, as well as public housing
agencies—can use to overcome
centuries of separate and unequal access
to housing opportunity. In line with the
Nation’s current reckoning with racial
and other types of inequity, the
proposed rule is designed to assist HUD
and its program participants to take
advantage of a unique opportunity to
fulfill the promise made when the Fair
Housing Act was enacted on April 11,
1968.
This proposed rule takes as its starting
point the fair housing planning process
created by the 2015 AFFH Rule (80 FR
42272, July 16, 2015), which was a
significant step forward in AFFH
implementation. It then proposes
refinements, informed by lessons HUD
learned from its implementation of the
2015 AFFH Rule, by feedback provided
by States and localities across the
country, and by stakeholder input. For
example, the proposed rule is designed
to reduce burden on program
participants by streamlining the analysis
of fair housing issues that they must
perform, allowing them to focus more
directly on the setting of effective fair
housing goals and strategies to achieve
VerDate Sep<11>2014
16:40 Feb 08, 2023
Jkt 259001
them. It also would provide greater
accountability mechanisms and increase
transparency to and participation by the
public.
Ultimately, this proposed rule would
provide a framework under which
program participants will set and
implement meaningful fair housing
goals that will determine how they will
leverage HUD funds and other resources
to affirmatively further fair housing,
promote equity in their communities,
decrease segregation, and increase
access to opportunity and community
assets for people of color and other
underserved communities.
Summary of Legal Authority
The Fair Housing Act (title VIII of the
Civil Rights Act of 1968, 42 U.S.C.
3601–3619) declares that it is ‘‘the
policy of the United States to provide,
within constitutional limitations, for fair
housing throughout the United States.’’
See 42 U.S.C. 3601. Accordingly, the
Fair Housing Act prohibits, among other
things, discrimination in the sale, rental,
and financing of dwellings, and in other
housing-related transactions because of
‘‘race, color, religion, sex,1 familial
status,2 national origin, or handicap.’’ 3
See 42 U.S.C. 3604 and 3605. Section
808(d) of the Fair Housing Act requires
all executive branch departments and
agencies administering housing and
urban development programs and
activities to administer these programs
in a manner that affirmatively furthers
fair housing. See 42 U.S.C. 3608.
Section 808(e)(5) of the Fair Housing
Act (42 U.S.C. 3608(e)(5)) requires that
HUD programs and activities be
administered in a manner that
1 Consistent with established practice, HUD
interprets the term ‘‘sex’’ to include gender identity,
sexual orientation, and nonconformance with
gender stereotypes. See Memorandum from Damon
Y. Smith, Principal Deputy General Counsel to
Jeanine M. Worden, Acting Assistant Secretary for
Fair Housing and Equal Opportunity, ‘‘Application
to the Fair Housing Act of the Supreme Court’s
decision in Bostock v. Clayton County, GA’’ (Feb.
9, 2021), available at https://www.hud.gov/sites/
dfiles/ENF/documents/Bostock%20Legal%20
Memorandum%2002-09-2021.pdf.
2 The term ‘‘familial status’’ is defined in the Fair
Housing Act at 42 U.S.C. 3602(k). It includes one
or more children who are under the age of 18 years
being domiciled with a parent or guardian, the
seeking of legal custody, or pregnancy.
3 Although the Fair Housing Act was amended in
1988 to extend civil rights protections to persons
with ‘‘handicaps,’’ the term ‘‘disability’’ is more
commonly used and accepted today to refer to an
individual’s physical or mental impairment that is
protected under Federal civil rights laws, the record
of such an impairment, and being regarded as
having such an impairment. For this reason, except
where quoting from the Fair Housing Act, this
preamble and proposed rule use the term
‘‘disability.’’
PO 00000
Frm 00003
Fmt 4701
Sfmt 4702
8517
affirmatively furthers the policies of the
Fair Housing Act.
Summary of Major Provisions of the
Rule
The proposed rule retains much of the
framework of the 2015 AFFH Rule.
Under the proposed rule, as under the
2015 AFFH Rule, program participants
will identify fair housing issues,
prioritize the fair housing issues they
will focus on overcoming in the next
three to five years, and develop the
goals they will implement to overcome
those fair housing issues. The proposed
rule contains refinements based on
HUD’s experience implementing the
2015 AFFH Rule and input from many
stakeholders. It is structured to simplify
and provide greater flexibility: regarding
the analysis that program participants
must perform as part of their Equity
Plans (which are a modified version of
the Assessments of Fair Housing
performed under the 2015 AFFH Rule),
to allow more time and energy to be
spent on effective goal setting; to
provide clarity, direction, and guidance
for program participants to promote fair
housing choice; to provide more
transparency to the public and greater
opportunity for public input; and to
provide accountability, a mechanism for
regular progress evaluation, and a
greater set of enforcement options to
ensure that program participants are
meeting their planning commitments
and to provide them the opportunity to
revise commitments where
circumstances change. The proposed
rule will advance these objectives in a
manner that is informed by the lessons
HUD learned from the implementation
of the 2015 AFFH Rule by:
a. Giving underserved communities a
greater say in the actions program
participants will take to address fair
housing issues. When HUD
implemented its 2015 AFFH Rule,
program participants and community
members alike consistently reported to
HUD that community engagement (then
called community participation) was an
extremely effective and important part
of identifying fair housing issues and
figuring out how best to prioritize and
address them. The proposed rule makes
that process more inclusive and robust,
for example by requiring program
participants to consult with a broad
range of community members, to hold
meetings in diverse settings, ensure that
individuals with disabilities and their
advocates have equal access to those
meetings, and partner with local
community-based organizations and
stakeholders to engage with protected
class groups and underserved
communities. The proposed rule
E:\FR\FM\09FEP2.SGM
09FEP2
khammond on DSKJM1Z7X2PROD with PROPOSALS2
8518
Federal Register / Vol. 88, No. 27 / Thursday, February 9, 2023 / Proposed Rules
empowers broader segments of the
community by, for example, requiring
program participants to engage with a
broad cross-section of the community,
which could include advocates, clergy,
community organizations, local
universities, resident advisory boards,
healthcare professionals and other
service providers, and fair housing
groups. HUD will also make the data
HUD provides to program participants
publicly available, including maps and
other information demonstrating the
existence of fair housing issues such as
segregated areas, to facilitate public
engagement throughout the process.
HUD specifically seeks comment below
regarding how it can best ensure that
community engagement is effective in
informing the Equity Plan. The
proposed rule also requires program
participants to submit, along with their
Equity Plans, more information
regarding their community engagement
efforts than was required by the 2015
AFFH Rule. Additionally, as described
further below, the proposed rule allows
the public to submit information
directly to HUD regarding submitted
Equity Plans, providing HUD greater
ability to ensure that community
engagement requirements are satisfied.
HUD also intends to supply more
technical assistance for program
participants on effective ways to
conduct community engagement.
b. Streamlining the Equity Plan’s
required fair housing analysis, while
providing easy-to-use data to support
that analysis. HUD will help program
participants and their communities
understand the data HUD provides
them. Aided by that data and more
comprehensive community engagement,
program participants will be
empowered to identify key fair housing
issues more effectively and efficiently
without unnecessary burden. Under
HUD’s 2015 AFFH Rule, HUD provided
program participants with considerable
data and then required program
participants to conduct extensive data
analysis in response to a large number
of questions. This data-driven analysis
was very useful for identifying fair
housing issues such as patterns of
segregation, but some program
participants, particularly smaller ones
that lacked relevant expertise, found it
more difficult to complete than HUD
had intended. The 2015 AFFH Rule
used an Assessment Tool that contained
approximately 100 questions program
participants were required to answer in
a prescribed format, as well as about
forty contributing factors that program
participants were required to consider
for each fair housing issue they
VerDate Sep<11>2014
16:40 Feb 08, 2023
Jkt 259001
identified. Some program participants,
working on their own or with technical
assistance from HUD, conducted
successful fair housing analyses using
the Assessment Tool. Other program
participants, however, struggled to
properly interpret the data provided by
HUD, and several program participants
retained consultants to perform the bulk
of the fair housing analysis for them. In
HUD’s experience reviewing the fair
housing plans submitted pursuant to the
2015 AFFH Rule, the fair housing
analyses conducted by program
participants themselves or with
technical assistance from fair housing
groups, universities, or HUD were
typically of much better quality than the
fair housing analyses prepared for
program participants solely by
consultants. Put differently, the fair
housing plans prepared by program
participants themselves typically
reflected better analysis that gave greater
consideration to local fair housing
issues and history rather than more
generic approaches taken by consultants
that prepared analyses for multiple
program participants in different
geographic areas of the country. The
proposed rule, therefore, reflects
improvements on the 2015 AFFH Rule
framework and is designed to reduce
burden for program participants in
conducting the fair housing analysis
portion of their Equity Plan and
identifying fair housing issues, leaving
program participants more time to
establish meaningful fair housing goals
and making them more likely to conduct
their own analyses. Under the proposed
rule, program participants will conduct
their fair housing analyses to identify
fair housing issues by responding to
questions in a few broad areas (seven for
consolidated plan recipients, five for
public housing agencies) that HUD is
proposing to constitute the core areas of
analysis. While HUD anticipates
providing program participants with
flexibility on the format of their Equity
Plans, HUD will expect program
participants to answer all required
questions, including those that assess
the reasons fair housing issues exist, as
in the 2015 AFFH Rule. Under this
proposed rule, HUD is considering ways
to reduce burden for program
participants by, for example, providing
the program participant with not only
raw data and maps, but is also
considering providing technical
assistance that helps highlight key
takeaways and fair housing issues. HUD
will also provide technical assistance on
common fair housing issues, potential
fair housing goals that could overcome
fair housing issues, and additional
PO 00000
Frm 00004
Fmt 4701
Sfmt 4702
training on how to identify and
prioritize fair housing issues. Finally,
HUD will make all program
participants’ Equity Plans available on a
HUD-maintained web page, allowing
program participants to review other
program participants’ Equity Plans that
have been accepted by HUD and learn
from the experiences of those who
already have been through the process.
While HUD believes these changes will
make it easier for many program
participants and their communities to
effectively use HUD-provided data, it
also understands that the raw data and
the AFFH Data & Mapping Tool (AFFH–
T) made available under the 2015 AFFH
Rule have proven invaluable for
researchers and high-capacity program
participants, and HUD will continue to
make such data available.
c. Placing greater focus on fair
housing goals. A key difference between
the proposed rule and the 2015 AFFH
Rule is a much greater focus on HUD’s
review of program participants’ goals
that will contribute to positive fair
housing outcomes. While the proposed
rule sets out questions for program
participants to answer, it does not
specify the content or length of
responses. In some cases, the answer to
the question will be relatively clear
based on the HUD-provided data and
technical assistance, and the program
participant will only then need to assess
the causes and circumstances that result
in fair housing issues. In other
instances, program participant may
need to do more analysis, including
assessing local data, local knowledge,
and information obtained through
community engagement, in order to
sufficiently respond to the question.
HUD is making clear here, and will
continue to do so with technical
assistance and guidance, that the
purpose of the questions is not to
generate an extensive written analysis of
local conditions for its own sake, but to
require program participants to give
serious consideration to the specific
local conditions (such as the existence
of segregation, or the lack of housing
choice throughout a jurisdiction) that
are likely to implicate fair housing
issues faced by different protected class
groups. Accordingly, HUD’s review of
program participants’ answers to those
questions will entail confirming that the
program participant did an adequate job
of identifying the fair housing issues
revealed by the HUD-provided data and
by information provided during
community engagement. HUD’s review
of fair housing goals, meanwhile, will
entail determining whether the program
participant’s goals have been designed
E:\FR\FM\09FEP2.SGM
09FEP2
khammond on DSKJM1Z7X2PROD with PROPOSALS2
Federal Register / Vol. 88, No. 27 / Thursday, February 9, 2023 / Proposed Rules
and can be reasonably expected to
overcome the fair housing issues that
the program participant has identified
and prioritized for action in the next
three to five years. Stated plainly,
HUD’s review will focus primarily on
whether the Equity Plan appropriately
identifies the relevant fair housing
issues and establishes fair housing goals
that can realistically be expected to
address them and produce meaningful
fair housing outcomes for various
protected class groups in the program
participant’s underserved communities;
HUD’s review will not focus on the
volume of written analysis underlying
the identification of the fair housing
issues.
d. Providing HUD more flexibility to
work with program participants to
improve a submitted Equity Plan and
ensure it meets regulatory requirements.
HUD’s experience implementing the
2015 AFFH Rule demonstrated that a
robust back and forth between HUD and
program participants regarding the
content of submitted plans was
important to the rule’s success; in many
instances, a submitted plan improved
substantially as a result of HUD
engagement. However, the structure of
the 2015 AFFH Rule limited HUD’s
practical ability to do this work. HUD
was required to either accept or not
accept a plan within 60 days of
submission. If an Assessment of Fair
Housing (AFH) was not accepted by
HUD after the initial submission, HUD
provided the program participant an
opportunity to revise and resubmit the
plan for HUD review; however, HUD
then had a limited amount of time to
review the revised plan, work with the
program participant to address
remaining issues, and then accept that
plan before a decision on a submitted
consolidated plan or public housing
agency (PHA) plan needed to be
rendered. If the program participant
could not achieve an accepted AFH by
the time the program participant’s
consolidated plan or PHA Plan was due,
the automatic consequence was a cut-off
of Federal funding. Faced with that
consequence, HUD ultimately accepted
every plan, although many of the plans
that HUD accepted could still have
benefited from improvements if there
had been additional time for HUD to
work with the program participant. This
proposed rule provides HUD more
time—100 days, with the ability to
extend that time for good cause—to
review a submitted Equity Plan and
work with a program participant to
ensure the plan meets the requirements
of this proposed rule. In addition, the
proposed rule provides that, if a
VerDate Sep<11>2014
16:40 Feb 08, 2023
Jkt 259001
program participant does not have an
accepted Equity Plan by the time a
consolidated plan or PHA Plan must be
approved, to have that plan approved it
must provide HUD with special
assurances that it will achieve an Equity
Plan that meets regulatory requirements
within 180 days of the end of HUD’s
review period for its consolidated plan
or PHA Plan. At the end of the 180-day
period, if the program participant still
does not have an Equity Plan that has
been accepted by HUD, HUD will seek
the most serious of remedies by
initiating the termination of funding and
will not grant or continue granting
applicable funds. HUD believes this
structure will provide it with the
necessary enforcement authority and the
flexibility to work with program
participants to achieve an Equity Plan
that meets this proposed rule’s
requirements. By obtaining special
assurances, HUD will continue to have
the ability to enforce this proposed rule
by initiating the termination of funding
for program participants that do not
provide the required special assurances
or that do not achieve an Equity Plan
that is accepted by HUD in the time
allotted. HUD believes the addition of
the procedures relating to special
assurances provide a stronger yet more
flexible mechanism for HUD to compel
compliance with the requirements of
this proposed rule beyond what it could
require under the 2015 AFFH Rule.
e. Creating a more direct linkage
between the Equity Plan’s fair housing
goals and the planning processes in the
consolidated plan, annual action plan,
or PHA Plan. The proposed rule
requires the program participant to
establish concrete fair housing goals that
are designed and can be reasonably
expected to achieve meaningful fair
housing outcomes. In the process,
program participants will identify the
funding and any contingencies that
must be met for the program participant
to achieve the goal. The proposed rule
then requires program participants to
incorporate the fair housing goals from
their Equity Plans into their
consolidated plan, annual action plan,
or PHA Plan. The direct linkage
between the Equity Plan and subsequent
program planning documents will
enable program participants to make
more informed decisions about how to
overcome circumstances that cause,
increase, contribute to, maintain, or
perpetuate fair housing issues. By
incorporating their fair housing goals,
strategies, and actions into their
planning documents, program
participants will be better positioned to
build equity and fairness into their
PO 00000
Frm 00005
Fmt 4701
Sfmt 4702
8519
decision-making processes for the use of
resources and other investments, live up
to the commitments they have made in
Equity Plans, and ultimately fulfill their
obligations to affirmatively further fair
housing.
f. Implementing a more transparent
process for program participants’
development and HUD’s review of
Equity Plans. The proposed rule will
enable members of the public to have
online access to all submitted Equity
Plans; to provide HUD with additional
information regarding Equity Plans that
are under HUD review; and to know
HUD decisions on Equity Plan
acceptance and on program participants’
annual progress evaluations. HUD will
use information submitted by the public
in its review of the Equity Plan. This
transparency is intended, in part, to
assist program participants with
understanding how other similarly
situated program participants conducted
their analyses. HUD believes that this
transparency will allow the public to be
more engaged in the local fair housing
planning process, the implementation of
fair housing goals, and ultimately in
assisting their local leaders in
determining how to allocate resources to
address fair housing issues.
g. Tracking progress on fair housing
goals. The proposed rule requires
program participants to conduct annual
progress evaluations regarding the
progress made on each goal. These
progress evaluations will be submitted
to HUD, and HUD will make them
publicly available on a HUD-maintained
website. This annual progress
evaluation ensures that goal
implementation stays on track and that
progress (or lack thereof) is disclosed to
the public. In conducting this
evaluation, a program participant must
assess whether to establish a new fair
housing goal or whether to modify an
existing fair housing goal because it
cannot be achieved in the amount of
time previously anticipated. The
proposed rule allows program
participants, with HUD’s permission, to
submit a revised Equity Plan that
modifies goals or set new goals if
circumstances changed or if the
established goals have been
accomplished. HUD believes this ability
to account for changed circumstances
will make program participants more
willing to set ambitious, creative goals
that may be dependent on certain
contingencies, since the goals can be
updated if the contingencies are not
met. However, HUD will not grant
permission to alter goals if the program
participant is simply choosing not to
take necessary steps. The annual
progress evaluation will allow for public
E:\FR\FM\09FEP2.SGM
09FEP2
khammond on DSKJM1Z7X2PROD with PROPOSALS2
8520
Federal Register / Vol. 88, No. 27 / Thursday, February 9, 2023 / Proposed Rules
awareness that a goal is not being met
before it is too late to change course to
meet it.
h. Increasing accountability by
creating a mechanism for members of
the public to file complaints and for
HUD to further engage in oversight and
enforcement. Under the proposed rule,
HUD will have the ability to open
compliance reviews, and members of
the public will be able to file complaints
directly with HUD regarding a program
participant’s AFFH-related activities.
While these processes are new to AFFH
compliance, the proposed regulatory
provisions relating to the filing and
investigation of complaints and HUD’s
procedures for obtaining compliance are
consistent with the oversight and
enforcement mechanisms that exist for
other Federal civil rights statutes that
HUD implements. Accordingly, HUD
anticipates that the agency, program
participants, and the public should be
able to readily acclimate themselves to
these processes and that the associated
burden will be manageable.
These improvements are intended to
result in tangible fair housing outcomes
that advance equity and increase
opportunity for people of color and
other underserved communities while
minimizing burden and constraints on
program participants in how those
outcomes are determined and achieved.
Ultimately, those tangible fair housing
outcomes will be locally driven based
on the fair housing issues that are
presented by local circumstances. This
proposed rule does not dictate the
particular steps a program participant
must take to resolve a fair housing issue.
Rather, the proposed rule is intended to
empower and require program
participants to meaningfully engage
with their communities and confront
difficult issues in order to achieve
integrated living patterns, overcome
historic and existing patterns of
segregation, reduce racial and ethnic
concentrations of poverty, increase
access to homeownership, and ensure
realistic and truly equal access to
opportunity and community assets for
members of protected class groups,
including those in historically
underserved communities.
As previously noted, this proposed
rule is intended to ensure that program
participants set and achieve meaningful
fair housing goals while reducing
program participant burden in
performing the required analysis in the
planning stage. The proposed rule
reduces burden compared with the 2015
AFFH Rule for program participants
through the provision of HUD data and
assistance in interpreting the data and
other modifications such as not
VerDate Sep<11>2014
16:40 Feb 08, 2023
Jkt 259001
prescribing a particular format for the
written analysis. It is HUD’s intention to
allow program participants to spend less
time on data analysis and more time on
setting meaningful fair housing goals
that are based on that data and other
information, including conversations
with their local community regarding
the most effective means of advancing
fair housing and equity. This does not
diminish the key role that interpretation
of maps and other objective data will
continue to play in the required
analysis, but rather enables program
participants to focus more of their time
and energy on the fair housing goals and
strategies and actions they will employ
to overcome the fair housing issues
identified using the data. HUD will
continue to provide program
participants datasets, including maps,
and tools that contain at least as much
data as is currently provided in the
AFFH–T Data & Mapping Tool. HUD
will continue to make these data
publicly available, including for use by
program participants in conducting
their Equity Plans, at https://
www.hud.gov/program_offices/fair_
housing_equal_opp/affh. HUD will
explore ways to build on and improve
the current AFFH–T Data & Mapping
Tool and will continue to evaluate
whether these data or other data may be
helpful to program participants and the
public in undertaking an analysis of
how to advance fair housing outcomes
within local communities.
HUD is contemplating making its
provision of these data more user
friendly in ways that will reduce burden
for smaller program participants and
those with fewer resources while
increasing their understanding—and
their communities’ understanding—of
what those data signify. Along with
updating and improving the current
AFFH–T Data & Mapping Tool, HUD is
contemplating providing technical
assistance that would highlight key
points to help program participants
understand what those maps and tables
show. For example, technical assistance
may include identification of racially or
ethnically concentrated areas of poverty
(R/ECAPs) in the jurisdiction and
demographic information about the R/
ECAPs’ residents, making it simpler for
the program participant to answer the
relevant question in the required
analysis. HUD anticipates that these
efforts will reduce the burden for
program participants to answer the
required analysis questions and identify
fair housing issues, while providing
information critical to the fair housing
analysis in a format that also can be
understood by the community.
PO 00000
Frm 00006
Fmt 4701
Sfmt 4702
The proposed rule is less burdensome
compared to the 2015 AFFH Rule.
While this proposed rule continues to
require program participants to review
and understand the data and their fair
housing implications, including for
purposes of setting fair housing goals,
program participants will not be
required to submit responses in the form
of data analysis. Except as specifically
instructed in the proposed analysis
questions (in instances where HUD
expects its own provision of data to
make it simple to do so), program
participants would not need to reference
specific percentages or calculations, for
example, regarding demographics or
segregation, but would be required to
show the connection between their data
analysis, their identification of fair
housing issues, and the establishment
fair housing goals. Instead, the data
provided by HUD, along with local data
and local knowledge, should be
sufficient to drive the program
participant’s analysis and ultimate
identification of goals and strategies.
The program participant’s answers
should be informed by data but need not
be written in that form. These
improvements will make it easier for
smaller program participants and those
with fewer resources to complete the
written analysis, and also make it easier
for the community to engage in the
process, understand the analysis of fair
housing issues in a submitted Equity
Plan, and provide additional relevant
information to facilitate HUD’s review.
Program participants will have the
opportunity to engage with HUD staff to
help ensure that consultants,
contractors, or complex data analysis
are not required to produce an Equity
Plan that can be accepted.4
This proposed rule features much
greater transparency for the public to
see and participate in the decisions
program participants make and HUD’s
responses to them. HUD expects to
publish all Equity Plan submissions and
decisions as to whether HUD has
accepted the Equity Plan on its AFFH
web page to further increase
transparency and reduce burden for
program participants. This transparency
is intended, in part, to assist program
participants with understanding how
other similarly situated program
participants conducted their analyses.
HUD believes that by publishing this
4 HUD is aware that during implementation of the
2015 AFFH Rule, many university-based
researchers (along with fair housing groups and
other non-profit organizations) assisted program
participants in analyzing and understanding HUDprovided data for purposes of identifying fair
housing issues and establishing fair housing goals
in their AFHs.
E:\FR\FM\09FEP2.SGM
09FEP2
Federal Register / Vol. 88, No. 27 / Thursday, February 9, 2023 / Proposed Rules
khammond on DSKJM1Z7X2PROD with PROPOSALS2
information, not only will local officials
be able to learn from other jurisdictions’
Equity Plans, but also the public will be
more engaged in the local fair housing
planning process and implementation of
local fair housing goals. HUD
anticipates that this approach may also
lead to collaboration with other
government entities as well as the
private sector with respect to housing
and community development activities
and investments in a program
participant’s jurisdiction. In addition,
this more robust community
engagement process to discuss fair
housing issues and potential fair
housing goals will lead to more
transparent fair housing planning and
greater ability to influence equitable
outcomes for members of protected class
groups, including people of color,
individuals with disabilities, and other
underserved communities.
HUD expects that the refinements
made to this proposed rule compared
with the 2015 AFFH Rule will help
program participants more easily
identify where equity in their
communities is lacking and how they
can affirmatively further fair housing by
advancing equity for protected class
groups through the use of HUD funds,
other investments, and policy decisions.
HUD’s commitment to be a partner in
the planning process for program
participants and the public alike should
result in a reduction of burden and
greater transparency and public
participation, and result in program
participants undertaking meaningful
actions to fulfill the promise of the
AFFH mandate established in 1968.
HUD is soliciting comment on this
proposed rule and also seeks comment
on specific topics in Section IV of this
preamble.
Summary of Benefits and Costs
As detailed in the Regulatory Impact
Analysis, HUD does not expect a large
aggregate change in compliance costs for
program participants as a result of the
proposed rule. As a result of increased
emphasis on affirmatively furthering fair
housing within the planning process,
there may be increased compliance
costs for some program participants,
while for others the improved process
and goal setting, combined with HUD’s
provision of foundational data, is likely
to decrease compliance costs. Program
participants are currently required to
engage in outreach and collect data in
order to support their certifications that
they are affirmatively furthering fair
housing. As more fully addressed in the
Regulatory Impact Analysis that
accompanies this rule, HUD estimates
that compliance with these additional
VerDate Sep<11>2014
16:40 Feb 08, 2023
Jkt 259001
planning requirements would
collectively cost program participants a
total of $5.2 million to $27 million per
year, once the Equity Plan cycle is fully
implemented, a sum that is offset by the
societal benefits accruing to fair housing
goals that decrease segregation and the
lack of equal access to housing and
related opportunities throughout
society.
Further, HUD believes that the
proposed rule has the potential for
substantial benefit for program
participants and the communities they
serve. The proposed rule would
improve the fair housing planning
process by providing greater clarity
regarding the steps program participants
must undertake to meaningfully
affirmatively further fair housing, and at
the same time provide better resources
for program participants to use in taking
such steps, thus increasing AFFH
compliance more broadly. Through this
rule, HUD commits to provide States,
local governments, PHAs, the
communities they serve, and the general
public with local and regional data, as
well as assistance in understanding that
data, as discussed further below. From
these data, program participants should
be better able to evaluate their present
environment to assess fair housing
issues, identify the primary
determinants that account for those
issues, set forth fair housing priorities
and goals, and document these
activities.
The rule covers program participants
that are subject to a great diversity of
local preferences and economic and
social contexts across American
communities and regions. For these
reasons, HUD recognizes there is
significant uncertainty associated with
quantifying outcomes of the process, as
proposed by this rule, to identify
barriers to fair housing, the priorities of
program participants in deciding which
barriers to address, the types of policies
designed to address those barriers, and
the effects of those policies on protected
classes. In brief, because of the diversity
of communities and regions across the
Nation and the resulting uncertainty of
precise outcomes of the proposed AFFH
planning process, HUD cannot estimate
the specific benefits and costs of
policies influenced by the rule. HUD
does recognize that segregation,
combined with the legacy of
discrimination against protected class
groups and longstanding disinvestment
in certain neighborhoods, has imposed
and continues to impose substantial
costs on members of protected classes
and society in general by reducing
employment, education, and
homeownership opportunities as well as
PO 00000
Frm 00007
Fmt 4701
Sfmt 4702
8521
the costs associated with reduced health
and safety in neighborhoods that have
long faced disinvestment and other
adverse environmental impacts.5 HUD
is confident, as discussed more fully
below, that the rule will create a process
that allows for each jurisdiction to not
only undertake meaningful fair housing
planning, but also build capacity and
develop a thoughtful strategy to
affirmatively further fair housing and
make progress towards a more
integrated society with more equitable
access to opportunity. The benefits of
undertaking meaningful actions to
produce an integrated, just, and
prosperous society and otherwise
further fair housing objectives far
outweigh the costs.
II. Background
A. Legal Authority
The Fair Housing Act (title VIII of the
Civil Rights Act of 1968, 42 U.S.C.
3601–3619), enacted into law on April
11, 1968, declares that it is ‘‘the policy
of the United States to provide, within
constitutional limitations, for fair
housing throughout the United States.’’
See 42 U.S.C. 3601. Accordingly, the
Fair Housing Act prohibits
discrimination in the sale, rental, and
financing of dwellings, and in other
housing-related transactions because of
race, color, religion, sex, familial status,
national origin, or disability. See 42
U.S.C. 3601 et seq. In addition to
prohibiting discrimination, the Fair
Housing Act (42 U.S.C. 3608(e)(5))
requires that HUD programs and
activities be administered in a manner
to affirmatively further the policies of
the Fair Housing Act. Section 808(d) of
the Fair Housing Act (42 U.S.C. 3608(d))
directs other Federal agencies ‘‘to
administer their programs . . . relating
to housing and urban development . . .
in a manner affirmatively to further’’ the
policies of the Fair Housing Act, and to
‘‘cooperate with the Secretary’’ in this
effort.
The Fair Housing Act’s provisions
related to ‘‘affirmatively . . .
further[ing]’’ fair housing, contained in
sections 3608(d) and (e), require more
than compliance with the Act’s antidiscrimination mandates. NAACP,
Boston Chapter v. HUD, 817 F.2d 149
5 See Acs, Pendall, Trekson, et al., ‘‘The Cost of
Segregation: National Trends and the Case of
Chicago 1990–2010,’’ Urban Institute and The
Metropolitan Housing and Communities Policy
Center (2017), available at https://www.urban.org/
sites/default/files/publication/89201/the_cost_of_
segregation.pdf (finding that higher levels of racial
segregation were associated with lower incomes for
Black residents, lower educational attainment levels
for White and Black residents, and lower levels of
public safety for all residents).
E:\FR\FM\09FEP2.SGM
09FEP2
8522
Federal Register / Vol. 88, No. 27 / Thursday, February 9, 2023 / Proposed Rules
khammond on DSKJM1Z7X2PROD with PROPOSALS2
(1st Cir. 1987); see, e.g., Otero v. N.Y.
City Hous. Auth., 484 F.2d 1122 (2d Cir.
1973); Shannon v. HUD, 436 F.2d 809
(3d Cir. 1970). When the Fair Housing
Act was originally enacted in 1968 and
amended in 1988, major portions of the
statute involved the prohibition of
discriminatory activities (whether
undertaken with a discriminatory
purpose or with a discriminatory effect)
and how private litigants and the
government could enforce these
provisions.
In sections 3608(d) and (e) of the Fair
Housing Act, however, Congress went
further by mandating that ‘‘programs
and activities relating to housing and
urban development’’ be administered
‘‘in a manner affirmatively to further the
purposes of this subchapter.’’ This is not
only a mandate to refrain from
discrimination but a mandate to take the
type of actions that undo historic
patterns of segregation and other types
of discrimination and afford access to
opportunity that has long been denied.
Congress has repeatedly reinforced and
ratified this uncontradicted
interpretation of the AFFH mandate,
requiring in the Housing and
Community Development Act of 1974,
the Cranston-Gonzalez National
Affordable Housing Act, and the Quality
Housing and Work Responsibility Act of
1998, that covered HUD program
participants certify, as a condition of
receiving Federal funds, that they will
affirmatively further fair housing. See 42
U.S.C. 5304(b)(2), 5306(d)(7)(B),
12705(b)(15), 1437C–1(d)(16).6
6 Section 104(b)(2) of the Housing and
Community Development Act (HCD Act) (42 U.S.C.
5304(b)(2)) requires that, to receive a grant, the state
or local government must certify that it will
affirmatively further fair housing. Section
106(d)(7)(B) of the HCD Act (42 U.S.C.
5306(d)(7)(B)) requires a local government that
receives a grant from a state to certify that it will
affirmatively further fair housing. The CranstonGonzalez National Affordable Housing Act (NAHA)
(42 U.S.C. 12704 et seq.) provides in section 105 (42
U.S.C. 12705) that states and local governments that
receive certain grants from HUD must develop a
comprehensive housing affordability strategy to
identify their overall needs for affordable and
supportive housing for the ensuing 5 years,
including housing for persons experiencing
homelessness, and outline their strategy to address
those needs. As part of this comprehensive
planning process, section 105(b)(15) of NAHA (42
U.S.C. 12705(b)(15)) requires that these program
participants certify that they will affirmatively
further fair housing. The Quality Housing and Work
Responsibility Act of 1998 (QHWRA), enacted into
law on October 21, 1998, substantially modified the
United States Housing Act of 1937 (42 U.S.C. 1437
et seq.) (1937 Act), and the 1937 Act was more
recently amended by the Housing and Economic
Recovery Act of 2008, Public Law 110–289 (HERA).
QHWRA introduced formal planning processes for
PHAs—a 5-Year Plan and an Annual Plan. The
required contents of the Annual Plan included a
certification by the PHA that the PHA will, among
other things, affirmatively further fair housing.
VerDate Sep<11>2014
16:40 Feb 08, 2023
Jkt 259001
Courts have found that the purpose of
the affirmatively furthering fair housing
mandate is to ensure that recipients of
Federal funds used for housing or urban
development and certain other Federal
funds do more than simply not
discriminate: recipients also must take
actions to address segregation and
related barriers for members of
protected class groups, as often reflected
in racially or ethnically concentrated
areas of poverty. The U.S. Supreme
Court, in one of the first Fair Housing
Act cases it decided, acknowledged that
the Act was intended to make
significant change in addition to
outlawing discrimination in housing,
noting that ‘‘the reach of the proposed
law was to replace the ghettos ‘by truly
integrated and balanced living
patterns.’ ’’ Trafficante v. Metro. Life Ins.
Co., 409 U.S. 205, 211 (1972); see also
Client’s Council v. Pierce, 711 F.2d
1406, 1425 (8th Cir. 1983) (‘‘Congress
enacted section 3608(e)(5) to cure the
widespread problem of segregation in
public housing’’); see also Crow v.
Brown, 332 F. Supp. 382, 391 (N.D. Ga.
1971), affirmed in part without op. and
reversed in part without op. by Banks v.
Perk, 473 F.2d 910 (6th Cir. 1973) (‘‘It
is also clear that the policy of HUD
requires that public housing be
dispersed outside racially compacted
areas . . . and [is] part of the national
housing policy.7 Indeed, relief has been
granted to plaintiffs and against HUD for
failing to comply with this affirmative
duty to disperse public housing which
is implicit in the Housing Act of 1949,
the Civil Rights Act of 1964, and the
Civil Rights Act of 1968.’’). The Act
recognized that ‘‘where a family lives,
where it is allowed to live, is
inextricably bound up with better
education, better jobs, economic
motivation, and good living
conditions.’’ 114 Cong. Rec. 2276–2707
(1968). As the First Circuit has
explained, section 3608(e)(5) and the
legislative history of the Act show that
Congress intended that ‘‘HUD do more
than simply not discriminate itself; it
reflects the desire to have HUD use its
grant programs to assist in ending
discrimination and segregation, to the
point where the supply of genuinely
open housing increases.’’ NAACP,
Boston Chapter v. HUD, 817 F.2d at 154;
see also Otero, 484 F.2d at 1134 (section
7 Reflecting the era in which it was enacted, the
Fair Housing Act’s legislative history and early
court decisions refer to ‘‘ghettos’’ when discussing
racially concentrated areas of poverty. In addition,
much of the litigation during this period related to
the siting of public housing; however, HUD notes
that the holdings of these courts apply to all
programs and activities administered by HUD and
are not limited to the public housing program.
PO 00000
Frm 00008
Fmt 4701
Sfmt 4702
3608(d) requires that ‘‘[a]ction must be
taken to fulfill, as much as possible, the
goal of open, integrated residential
housing patterns and to prevent the
increase of segregation, in ghettos, of
racial groups whose lack of opportunity
the Act was designed to combat’’).
The Act itself does not define the
precise scope of the affirmatively
furthering fair housing obligation for
HUD or HUD’s program participants.
Over the years, courts have provided
some guidance for this task. In the first
appellate decision interpreting section
3608, for example, the U.S. Court of
Appeals for the Third Circuit
emphasized the importance of racial
and socioeconomic data to ensure that
‘‘the agency’s judgment was an
informed one’’ based on an
institutionalized method to assess site
selection and related issues. Shannon,
436 F.2d at 821–22. In multiple other
decisions, courts have set forth that
section 3608 applies to specific policies
and practices of HUD program
participants. See e.g., Otero, 484 F.2d at
1132–37; NAACP, Boston Chapter, 817
F.2d at 156 (‘‘. . . a failure to ‘consider
the effect of a HUD grant on the racial
and socio-economic composition of the
surrounding area’ ’’ would be
inconsistent with the Fair Housing Act’s
mandate); Langlois v. Abington Hous.
Auth., 207 F.3d 43 (1st Cir. 2000); U.S.
ex rel. Anti-Discrimination Ctr. v.
Westchester Cnty., 2009 WL 455269
(S.D.N.Y. Feb. 24, 2009). The U.S. Court
of Appeals for the First Circuit, in
evaluating how the AFFH mandate
applies to HUD and its program
participants, including the decisions
made in the administration of their
programs and activities, further
provided that ‘‘the need for such
consideration itself implies, at a
minimum, an obligation to assess
negatively those aspects of a proposed
course of action that would further limit
the supply of genuinely open housing
and to assess those aspects of a
proposed course of action that would
increase that supply. If HUD is doing so
in any meaningful way, one would
expect to see, over time, if not in any
individual case, HUD activity that tends
to increase, or at least, that does not
significantly diminish the supply of
open housing.’’ NAACP, Boston
Chapter, 817 F.2d at 156.
More recently, in examining why
regional solutions to segregation may be
necessary, a United States District Court
declared that ‘‘[i]t is high time that HUD
live up to its statutory mandate to
consider the effect of its policies on the
racial and socioeconomic composition
of the surrounding area . . . The Court
finds it no longer appropriate for HUD,
E:\FR\FM\09FEP2.SGM
09FEP2
Federal Register / Vol. 88, No. 27 / Thursday, February 9, 2023 / Proposed Rules
khammond on DSKJM1Z7X2PROD with PROPOSALS2
as an institution with national
jurisdiction, essentially to limit its
consideration of desegregative programs
. . .’’ Thompson v. HUD, 348 F. Supp.
2d 398, 409 (D. Md. 2005). The court
emphasized the importance of using the
AFFH mandate to afford choice to
individuals and families about where
they live by stating that, ‘‘[i]n this
regard, it is appropriate to note that
there is a distinction between telling a
person that he or she may not live in [a]
place because of race and giving the
person a choice so long as the place in
question is, in fact, available to anyone
without regard to race.’’ Thompson, 398
F. Supp. 2d at 450. As recently as 2015,
the U.S. Supreme Court explained that
‘‘[m]uch progress remains to be made in
our Nation’s continuing struggle against
racial isolation . . . The Court
acknowledges the Fair Housing Act’s
continuing role in moving the Nation
toward a more integrated society.’’ Tex.
Dep’t of Hous. Cmty. Affairs v. Inclusive
Cmtys. Project, Inc., 576 U.S. 519, 546–
47 (2015). As the Supreme Court held in
lnclusive Communities, the Fair
Housing Act’s broad remedial purposes
cannot be accomplished simply by
banning intentional discrimination
today. Id.
In addition to the statutes and court
cases emphasizing the requirement of
recipients of Federal housing and urban
development funds and other Federal
funds to affirmatively further fair
housing, executive orders have also
addressed the importance of complying
with this requirement.8
8 Executive Order 12892, entitled ‘‘Leadership
and Coordination of Fair Housing in Federal
Programs: Affirmatively Furthering Fair Housing,’’
issued January 17, 1994, vests primary authority in
the Secretary of HUD for all Federal executive
departments and agencies to administer their
programs and activities relating to housing and
urban development in a manner that furthers the
purposes of the Fair Housing Act. Executive Order
12898, entitled ‘‘Executive Actions to Address
Environmental Justice in Minority Populations and
Low-Income Populations,’’ issued on February 11,
1994, declares that Federal agencies shall make it
part of their mission to achieve environmental
justice ‘‘by identifying and addressing, as
appropriate, disproportionately high and adverse
human health or environmental effects of its
programs, policies, and activities on minority
populations and low-income populations.’’
Executive Order 13985, ‘‘Advancing Racial Equity
for Underserved Communities Through the Federal
Government’’ issued on January 25, 2021,
establishes that it is the policy of the Federal
Government to pursue a comprehensive approach
to advancing equity for all, including people of
color and others who have been historically
underserved, marginalized, and adversely affected
by persistent poverty and inequality. Executive
Order 13985 makes clear that affirmatively
advancing equity, civil rights, racial justice, and
equal opportunity is the responsibility of the whole
of our Government, and that doing so requires a
systematic approach to embedding fairness in
decision making processes, and as such, executive
VerDate Sep<11>2014
16:40 Feb 08, 2023
Jkt 259001
B. HUD’s July 16, 2015 Final Rule,
HUD’s 2020 Preserving Communities
and Neighborhood Choice Rule, and
HUD’s June 10, 2021 Interim Final Rule
On July 16, 2015, the Department
published a final AFFH regulation (2015
AFFH Rule) at 24 CFR 5.150 through
5.180, which required program
participants to conduct and submit to
HUD an Assessment of Fair Housing
(AFH).9 The 2015 AFFH Rule reflected
HUD’s efforts to more fully and
meaningfully effectuate the AFFH
mandate of the Fair Housing Act. The
promulgation of the 2015 AFFH Rule
was a significant and important step
toward realizing the promise of the
AFFH mandate.
To implement the 2015 AFFH Rule,
the Department developed and required
the use of Assessment Tools for
different types of program participants
(which were subject to public comment
through the process required under the
Paperwork Reduction Act), created fact
sheets and guidance to assist program
participants in conducting their AFHs,
and provided a data and mapping tool
(AFFH–T) that remains publicly
available. While the promulgation of the
2015 AFFH Rule marked a substantial
improvement to HUD’s implementation
of the AFFH mandate with respect to
certain recipients of Federal financial
assistance from the Department, it was
not perfect, and HUD learned important
lessons about how the 2015 AFFH Rule
could be improved.
The required use of Assessment Tools
delayed implementation of the 2015
AFFH Rule because of the need to
adhere to the Paperwork Reduction Act
process, which includes publication of
two Federal Register notices and two
rounds of public comment
solicitation.10 When implementation
departments and agency must recognize and work
to redress inequities in their policies and programs
that serve as barriers to equal opportunity.
Furthermore, President Biden’s Memorandum to
the Secretary of HUD dated January 26, 2021, titled
‘‘Memorandum on Redressing our Nation’s and the
Federal Government’s History of Discriminatory
Housing Practices,’’ obligates HUD to examine its
programs and activities and empowers the Secretary
to take any necessary steps, as appropriate and
consistent with applicable law, to implement the
Fair Housing Act’s requirements that HUD
administer its programs and activities in a manner
that affirmatively furthers fair housing.
9 Prior to HUD’s 2015 AFFH Rule, beginning in
1996, HUD required program participants to
undertake an ‘‘Analysis of Impediments to Fair
Housing Choice,’’ (AI) which was the mechanism
for supporting their AFFH-related certifications.
HUD issued guidance in the form of the Fair
Housing Planning Guide for how to conduct an AI.
HUD did not require the AI to be submitted, though
HUD would review AIs in connection with
compliance reviews. The 2015 AFFH Rule replaced
the AI process with the AFH process.
10 See, PRA approval process at https://
pra.digital.gov/clearance-process/.
PO 00000
Frm 00009
Fmt 4701
Sfmt 4702
8523
began, between October 2016 and
December 2017, HUD received,
reviewed, and issued initial decisions
on forty-nine AFHs. HUD’s experience
with the implementation of the 2015
AFFH Rule highlighted some areas for
improvement, including ways in which
the identification of fair housing issues
could be streamlined. Furthermore, due
to the complexity of the assessment
required and the need to adhere to the
specific format required, many program
participants utilized outside contractors
to complete their AFHs, others
misunderstood the questions asked, and
some failed to identify fair housing
issues or set meaningful goals to
affirmatively further fair housing. Many
submissions merely recounted what the
HUD-provided data showed, rather than
providing an analysis of the actual fair
housing issues program participants’
communities were and are facing. In
some instances, this resulted in goals
that consisted of a program participant
merely continuing with actions that
would maintain existing conditions
rather than advancing equity for
members of protected class groups and
underserved communities. Similarly,
the 2015 AFFH Rule’s requirement that
program participants identify and
prioritize factors that contribute to fair
housing issues (from a list of over forty
potential factors) proved confusing and,
in some instances, program participants
were not able to translate identified
factors into meaningful goals that could
be reasonably expected to result in
material progress.
At the same time, the 2015 AFFH
Rule demonstrated that its basic
planning structure had considerable
promise for assisting local communities
to achieve meaningful fair housing ends
that are responsive to local needs.
Program participants and members of
the community reported that, because
program participants were required to
answer specific questions regarding
longstanding segregation and other fair
housing issues, they had productive
conversations about important issues
they otherwise would not have
confronted. Moreover, some AFH
submissions contained creative fair
housing goals, including by
collaborating across different sectors
(e.g., public housing agencies and
school districts working together), to
find ways to overcome disparities for
protected class groups in specific
geographic areas. HUD believes this
demonstrates that the required focus on
core fair housing topics and goal setting
required by the 2015 AFFH Rule remain
appropriate, even as it also heard from
many stakeholders of the need for a
E:\FR\FM\09FEP2.SGM
09FEP2
khammond on DSKJM1Z7X2PROD with PROPOSALS2
8524
Federal Register / Vol. 88, No. 27 / Thursday, February 9, 2023 / Proposed Rules
greater emphasis on goals and outcomes
tied to a streamlined analysis. As more
fully explained below, this proposed
rule seeks to build on these lessons
learned. HUD specifically invites
comment on this proposal in Section IV
of this preamble.
In 2018, HUD suspended
implementation of the 2015 AFFH Rule
by withdrawing the operative
assessment tool that program
participants were required to use for
conducting an AFH. See 83 FR 23927
(Jan. 5, 2018). Then, on August 7, 2020,
at 85 FR 47899, HUD promulgated a
final rule—Preserving Community and
Neighborhood Choice (PCNC Rule)—
which repealed the 2015 AFFH Rule.
The PCNC Rule redefined the AFFH
mandate in a manner that was a
substantial and substantive departure
from decades of judicial and
administrative precedent interpreting
the AFFH mandate in the Fair Housing
Act.
On June 10, 2021, HUD promulgated
an interim final rule, ‘‘Restoring
Affirmatively Furthering Fair Housing
Definitions and Certifications’’ (AFFH
IFR), in order to repeal the PCNC Rule
and restore legally supportable
definitions and certifications for
program participants. See 86 FR 30779
(June 10, 2021). The AFFH IFR restored
relevant definitions from the 2015
AFFH Rule and created a process for
program participants to certify to HUD
that they will affirmatively further fair
housing. At that time, HUD did not
reinstate other provisions from the 2015
AFFH Rule, but committed to further
implementation of the AFFH mandate at
a future date, which is the purpose of
this proposed rule.
HUD invited and considered public
comments on the AFFH IFR. HUD also
undertook multiple listening sessions to
inform this proposed rule. These
listening sessions included a variety of
stakeholders including HUD program
participants, fair housing and civil
rights advocates, community
organizations, and other interested
members of the public. These
stakeholders provided their views about
what worked and what did not with
respect to the implementation of the
2015 AFFH Rule, recommended
additional features and refinements that
they believed a new rule should
include, and identified certain fair
housing- and equity-related issues
prevalent in their communities that they
hoped a proposed rule would address.
HUD thanks these stakeholders for this
valuable input and has taken it into
account in formulating this proposed
rule.
VerDate Sep<11>2014
16:40 Feb 08, 2023
Jkt 259001
This proposed rule, as more fully
described below, restores much of the
structure of the 2015 AFFH Rule, but
with modifications and improvements
to increase transparency and
accountability, and to reduce burden,
while retaining flexibility for program
participants to establish fair housing
goals based on their local
circumstances. The proposed rule
generally tracks the structure of the
2015 AFFH Rule because HUD believes
program participants are familiar with
that structure; however, HUD is open to
considering changes to this proposed
regulatory scheme to effectively and
meaningfully implement the Fair
Housing Act’s AFFH mandate. HUD
specifically seeks comment on this topic
in Section IV of this preamble.
C. HUD Proposes To Restore Much of
the Structure of the 2015 AFFH Rule,
While Streamlining the Required
Analysis for Program Participants, and
Adding Features That Will Bolster the
Effective Implementation of the AFFH
Rule
HUD now proposes to restore much of
the structure of the 2015 AFFH Rule,
while proposing modifications that
HUD believes will lead to a more
effective fair housing planning process
while reducing burden for program
participants and providing the public
more transparency and opportunities to
influence both planning and
implementation. HUD is responsible for
ensuring that the Fair Housing Act’s
AFFH mandate is implemented and that
it drives the change that Congress
intended in 1968—the undoing of
vestiges of segregation, unequal
treatment, and inequitable access to
opportunity that the Federal
Government itself helped create—and
helps combat the unequal access to
housing and related opportunities
because of race, color, national origin,
religion, sex, familial status, and
disability that persists in our society
today.
For change to occur throughout the
Nation, HUD must help the states and
localities it serves to bring it about,
arming them with the relevant
information and establishing a process
that assists in identifying fair housing
issues and then implementing
meaningful actions to remedy them. To
that end, the 2015 AFFH Rule created a
robust and data-driven analytical
scheme for program participants to use
when engaging in fair housing planning
and determining what actions were
necessary in their local communities to
affirmatively further fair housing. Under
the 2015 AFFH Rule, HUD provided
program participants with considerable
PO 00000
Frm 00010
Fmt 4701
Sfmt 4702
raw data, in part through an interface
known as AFFH–T that the program
participants were expected to use to
access data relevant to their geographic
areas of analysis, and then required
program participants to analyze this
data in answering questions contained
in the AFH Assessment Tool designed
to drive the identification of fair
housing issues. It was HUD’s intention
that the AFH Assessment Tool’s User
Interface would import the data from
the AFFH–T. HUD now recognizes that
this approach, while achieving a major
step forward in fair housing planning
and providing an invaluable source of
publicly available data, particularly for
researchers and better-resourced
program participants, created some
unnecessary burden and confusion
particularly for smaller program
participants and those with fewer
resources. For instance, HUD is aware
that program participants struggled to
use the AFH Assessment Tool’s User
Interface and perform the required datadriven analysis. Accordingly, while
HUD is using the 2015 AFFH Rule as a
model for this proposed rule, this
proposed rule streamlines the questions
in the required analysis and HUD
proposes to make it more user-friendly.
This would enable program participants
to more readily use HUD-provided data,
including during community
engagement, to identify fair housing
issues and set goals that will result in
meaningful change. HUD continues to
consider whether other changes to the
structure set out in the proposed rule
would further reduce burden and
maximize material positive change and
seeks comment to that effect in Section
IV, below.
HUD notes that the proposed rule is
not intended to conflict with or interfere
with program participants carrying out
existing programmatic responsibilities
including maintenance of affordable
housing. It remains a top priority for
HUD to preserve and maintain the
existing stock of long-term affordable
rental housing, including the federally
assisted stock. HUD recognizes the
overwhelming need for affordable and
accessible housing and the inadequate
supply of HUD-assisted housing to meet
that need. The most recent HUD report
on Worst Case Needs for Affordable
Housing (issued July 2021) found there
were over 7.77 million unassisted very
low-income renter households facing
either severe rent burden (paying more
than half their incomes for rent) or
severely inadequate housing conditions,
or both. This does not include persons
facing homelessness, nor does it include
lower income (but not very low-income)
E:\FR\FM\09FEP2.SGM
09FEP2
khammond on DSKJM1Z7X2PROD with PROPOSALS2
Federal Register / Vol. 88, No. 27 / Thursday, February 9, 2023 / Proposed Rules
cost burdened households. HUD
believes and expects that program
participants can act in recognition of
this urgent need to maintain and add to
existing affordable and accessible
housing stock consistent with the fair
housing principles and requirements set
forth in this proposed rule.
HUD recognizes that, notwithstanding
its efforts to make refinements in this
proposed rule to reduce burden and
simplify the Equity Plan analysis for all
program participants, some smaller
program participants may benefit from
additional flexibility and technical
assistance. In particular, HUD is aware
that small PHAs and consolidated plan
participants may have significantly
fewer personnel and financial resources
available to complete the analysis
contemplated in this proposed rule
when compared to larger entities,
especially if they are unable to identify
another entity they can work with to
submit a joint Equity Plan.
As compared to the 2015 AFFH Rule,
HUD has significantly streamlined the
analysis that would be required for a
program participant’s Equity Plan from
what was required in the Assessment of
Fair Housing and has eliminated the
analysis of contributing factors required
by the 2015 AFFH Rule. This
streamlined analysis would still require
program participants to assess the
underlying causes of the identified fair
housing issues as a basis for designing
effective fair housing goals. In addition,
by providing simpler, standard
questions for all program participants in
the regulatory text itself, HUD would
not be continually revisiting those
questions through revised assessment
tools, which would be subject to
changes under the Paperwork Reduction
Act (PRA) (a Federal law discussed later
in this preamble) at least every three
years, thereby giving program
participants long-term certainty about
the analysis they would be required to
undertake and reducing the burden
involved in preparing subsequent
Equity Plans.
Importantly, HUD has sought to
design the questions, and its anticipated
review of answers, such that the
complexity and burden of satisfactory
answers will scale based on the size of
a program participant. For example, the
largest PHAs (under the proposed rule,
a PHA that administers 10,000 or more
combined public housing and voucher
units) and the largest consolidated plan
participants (under the proposed rule, a
program participant that receives a total
of $100 million or more in formula grant
funds) are likely to operate in large
metropolitan areas with multiple local
government entities, various categories
VerDate Sep<11>2014
16:40 Feb 08, 2023
Jkt 259001
of publicly supported housing and other
affordable housing, many different types
of community assets across the
geographic area of analysis, and
millions of community residents with
significantly more complex
demographic patterns. Conversely, the
smallest PHAs and smallest
consolidated plan participants are likely
to operate in rural areas, newly
suburban areas, or other localities with
far fewer community assets, more
limited public infrastructure, and more
homogenous demographic patterns
among significantly smaller populations
(e.g., 50,000 residents). As a result,
smaller program participants, though
responding to the same questions,
would be expected to have less to
analyze and HUD anticipates that it
would be acceptable for them to provide
briefer answers. As described below, in
rare instances and typically with
smaller program participants, program
participants may respond that much or
all of the question is not applicable to
them, as long as this response is
supported by realities on the ground,
including through HUD-provided data
and insights drawn from local
knowledge and community engagement.
During the implementation of the
2015 AFFH Rule, HUD’s efforts to
address the issue of burden on small
program participants by requiring
simplified analyses were largely
unsuccessful. HUD created inserts
within the Assessment Tools for small
PHAs and consolidated plan program
participants but found that this process
still resulted in confusion. Moreover,
the smaller program participants that
submitted AFHs to HUD generally either
did not use the inserts or submitted
essentially the same analysis as would
have been required by the standard
questions. Nonetheless, HUD is
committed to exploring ways to further
reduce the burden of preparing an
Equity Plan for small PHAs and small
consolidated plan program participants
while ensuring that they engage in fair
housing planning that is sufficient to
meet their AFFH obligations. HUD
solicits comment in this proposed rule
on whether it should take an alternative
approach for smaller program
participants, including whether it
should require such participants to
analyze fair housing issues in a different
manner.
Additionally, HUD is aware that some
small PHAs (such as those that operate
only Public Housing but do not
participate in the Housing Choice
Voucher (HCV) program, including
many of those in rural areas) and some
small consolidated plan participants
(such as those that only receive
PO 00000
Frm 00011
Fmt 4701
Sfmt 4702
8525
Community Development Block Grant
(CDBG) funds) may have limited ability
to impact housing choice or mobility,
making it harder for them to establish
mobility-related goals as discussed in
the definition of ‘‘balanced approach’’
in § 5.152. In those circumstances, a
collaborative approach with other
entities to address issues outside their
control may be warranted and may
allow them to set goals that would
enable them to pursue a balanced
approach. For example, HUD expects
such small, public housing-only PHAs
could undertake collaboration and
outreach efforts with local governments,
the private sector, non-profits, and other
applicable governmental entities to
address fair housing issues and
formulate appropriate fair housing
goals. Specific examples include
working with a local government to
address exclusionary zoning,
coordinating with local or State agencies
to increase public transportation
options, addressing lead contamination
or other environmental hazards,
ensuring appropriate emergency
response coverage, or partnering with an
adjacent PHA or other larger PHAs that
have HCV programs to increase
mobility, including through portability
programs. Similarly, small PHAs (and
all PHAs as well) could review and
make revisions to their PHA Admissions
and Continued Occupancy Policy and
other policies to positively impact
underserved communities beyond
fulfilling existing requirements, e.g.,
modifying preferences or doing specific
outreach to organizations that support
underserved communities. Through
such actions, HUD believes that even
the smallest PHAs can meaningfully
impact fair housing outcomes within
their sphere of influence, even as it
recognizes that their options and
resources may be limited compared to
those of larger PHAs. HUD does not
propose to exempt smaller, public
housing-only PHAs from efforts to use a
balanced approach or their obligation to
affirmatively further fair housing, but it
is committed to providing guidance
regarding how the AFFH obligation and
the balanced approach apply when a
public housing-only PHA has limited
ability to directly control issues that
involve mobility-related goals as
discussed in the definition of balanced
approach.
Nonetheless, HUD seeks comment on
the extent to which smaller PHAs and
consolidated plan participants can set
goals that constitute a balanced
approach as defined in this proposed
rule, including examples of goals that
such PHAs and consolidated plan
E:\FR\FM\09FEP2.SGM
09FEP2
khammond on DSKJM1Z7X2PROD with PROPOSALS2
8526
Federal Register / Vol. 88, No. 27 / Thursday, February 9, 2023 / Proposed Rules
participants can appropriately and
reasonably set. To the extent that
commenters believe some smaller PHAs
and consolidated plan participants may
not be able to set goals consistent with
a balanced approach, HUD seeks
comment on what are appropriate
expectations for smaller PHAs and
consolidated plan participants that
ensure that meeting their regulatory
planning requirements will put them on
the path to comply with their
affirmatively furthering fair housing
obligation.
Please see specific requests for
comment in Section IV of this proposed
rule related to reducing burden on small
program participants.
HUD is also proposing other changes
to the 2015 AFFH Rule that are designed
to make the fair housing planning
processes more transparent to the public
and responsive to local fair housing
issues. For example, HUD is considering
how it can better support its program
participants during the community
engagement process in order to ensure
that representatives from the entire
community have the chance to provide
their important perspectives, including
members of protected class groups and
underserved communities. HUD
continues to consider and evaluate ways
to eliminate unnecessary burden for
program participants to incorporate
public feedback they receive so they can
develop effective goals to address local
fair housing issues. HUD anticipates
that the more transparent process
articulated in this proposed rule for
publication of Equity Plans will help
reduce burden by allowing program
participants to learn from and build
upon the experiences of others.
HUD acknowledges that
implementation of the AFFH mandate
will not and cannot occur without
burden for program participants, though
HUD is committed to ensuring that
program participants experience less
burden than the 2015 AFFH Rule
imposed. Under the proposed rule,
program participants would continue to
be required to submit certifications that
they will affirmatively further fair
housing in connection with documents
such as their consolidated plan, annual
action plan, or PHA Plan (or any plan
incorporated therein), and it will
continue to be HUD’s responsibility to
ensure that these certifications are
accurate. Furthermore, HUD is
committed to advancing equity for
protected class groups and underserved
communities, as well as assisting its
program participants in doing the same.
To truly honor Congress’ intent, any
regulation to implement the Fair
Housing Act’s AFFH mandate must help
VerDate Sep<11>2014
16:40 Feb 08, 2023
Jkt 259001
program participants move away from
the status quo with respect to planning
approaches and facilitate the
development of innovative solutions to
overcome decades, if not centuries, of
housing-related inequality throughout
American communities.
The need for change remains urgent;
many of the problems the Kerner
Commission Report 11 identified are still
with us today, even as other barriers to
equal access to housing opportunities
have taken on increased attention. In
particular, the Nation remains highly
segregated by race, communities
continue to have vastly different access
to critical resources because of historic
disinvestment in communities of color,
there is still a large wealth gap between
people of color and White persons, and
the lack of choice for many about where
to live persists notwithstanding that the
Fair Housing Act barred discrimination
based on race and other protected
characteristics as a formal matter more
than 50 years ago. Both anecdotal
evidence and empirical research
continue to demonstrate that many lowincome families in all protected class
groups face barriers to obtaining or
keeping housing in well-resourced, lowpoverty areas that provide access to
opportunity and community assets,
such as desirable schools, parks, grocery
stores, and reputable financial
institutions, among others. Ample
research demonstrates that ongoing
discrimination and exclusionary
practices, not preferences among lowincome families and members of
protected class groups, drives
residential and income segregation
today.12 In addition, continued
disinvestment not only in housing, but
in community assets in areas that are
not well-resourced perpetuates this
residential and income segregation.
Research also shows that this lack of
choice as to where families can live has
serious consequences. Children who
move to low-poverty neighborhoods
have increased academic achievement,
greater long-term chances of success,
and less intergenerational poverty.13
11 Report of the National Advisory Committee on
Civil Disorders, Mar. 1, 1968, available at https://
www.hud.gov/sites/dfiles/FHEO/documents/kerner_
commission_full_report.pdf.
12 See for example, Bergman, Chetty, DeLuca,
Hendren, Katz, and Palmer, ‘‘Creating Moves to
Opportunity: Experimental Evidence on Barriers to
Neighborhood Choice,’’ August 2019, available at
https://opportunityinsights.org/wp-content/
uploads/2019/08/cmto_paper.pdf.
13 Chetty, Hendren, and Katz, ‘‘The Effects of
Exposure to Better Neighborhoods on Children:
New Evidence from the Moving to Opportunity
Experiment,’’ American Economic Review, April
2016. Chetty and Hendren, ‘‘The Effects of
Neighborhoods on Intergenerational Mobility I:
PO 00000
Frm 00012
Fmt 4701
Sfmt 4702
Children who move to low-poverty
neighborhoods have also been shown to
experience lower rates of hospitalization
and lower hospital spending.14
Meanwhile, adults given the chance to
move to low-poverty neighborhoods
experience reductions in extreme
obesity and diabetes.15 For example, the
Opportunity Atlas examines a change in
the way the literature has studied and
measured poverty and neighborhood
conditions by looking at longitudinal
information rather than snapshots in
time, which allows an evaluation of the
root causes of long-term outcomes by
looking back at where children grew
up.16 One finding from the Opportunity
Atlas suggests that if a child moves from
a ‘‘below-average to an above-average
neighborhood at birth,’’ it could
increase the child’s lifetime earnings by
$200,000.17 Another study concluded
with respect to income disparities that
‘‘initiatives whose impacts cross
neighborhood and class lines and
increase upward mobility specifically
for Black men hold the greatest promise
of narrowing the [B]lack-[W]hite gap.
There are many promising examples of
such efforts: mentoring programs for
[B]lack boys, efforts to reduce racial bias
among [W]hites, interventions to reduce
discrimination in criminal justice, and
efforts to facilitate greater interaction
across racial groups.’’ 18 Furthermore,
researchers have found that even lowincome individuals can have an
increased life expectancy if they reside
in more affluent and educated cities.19
For these reasons, the proposed rule
requires program participants to not
only identify areas that are segregated
based on race and other protected
characteristics, but also areas (many of
Childhood Exposure and II: County-Level
Estimates,’’ Quarterly Journal of Economics, 2018.
14 Pollack, Blackford, Du, et al. ‘‘Association of
Receipt of a Housing Voucher With Subsequent
Hospital Utilization and Spending,’’ JAMA,
322(21):2115–2124. doi:10.1001/jama.2019.17432,
2019.
15 Ludwig, Sanbonmatsu, Gennetian, et al.
‘‘Neighborhoods, obesity, and diabetes—a
randomized social experiment,’’ New England
Journal of Medicine; 365(16):1509–1519.
doi:10.1056/NEJMsa1103216, 2011.
16 Chetty, Friedman, Hendren, Jones, Porter, ‘‘The
Opportunity Atlas: Mapping the Childhood Roots of
Social Mobility,’’ NBER Working Paper No. 25147
(Jan. 2020), available at https://opportunityinsights.
org/paper/the-opportunity-atlas/.
17 Id.
18 Chetty, Hendren, Jones, and Porter, ‘‘Race and
Economic Opportunity in the United States: An
Intergenerational Perspective,’’ Quarterly Journal of
Economics, Vol. 135, Issue 2, 711–783 (May 2020),
available at https://opportunityinsights.org/paper/
race/.
19 Chetty, Stepner, Lin, Scuderi, Turner,
Bergeron, and Cutler, ‘‘The Association Between
Income and Life Expectancy in the United States,
2001–2014,’’ The Journal of the American Medical
Association, 315(16): 1750–1766 (2016).
E:\FR\FM\09FEP2.SGM
09FEP2
khammond on DSKJM1Z7X2PROD with PROPOSALS2
Federal Register / Vol. 88, No. 27 / Thursday, February 9, 2023 / Proposed Rules
them the same ones) that lack critical
community assets. Such an inquiry is
vital to understanding how the
neighborhood where someone grows up
in many ways determines their life
outcomes, including for example by
perpetuating significant wealth gaps and
health and educational disparities and
limiting the overall opportunities that
person may have. This is not intended
to be a burdensome inquiry. In many
cases, it will be clear from local
knowledge (including what is gathered
through community engagement) that
disparities in community assets exist.
This proposed rule also recognizes
that there is a need to take a balanced
approach when devising ways to
overcome fair housing issues. The
affirmatively furthering fair housing
mandate is intended to increase fair
housing choice for persons of all
protected class groups, including those
with limited income and economic
resources. HUD also recognizes that
there are often economic factors
affecting fair housing choice, which
include rising rents and displacement
from existing housing due to
gentrification. Program participants, in
undertaking a balanced approach to
overcome fair housing issues should
consider the impact of these economic
factors. Affirmatively furthering fair
housing can involve both bringing
investments to improve the housing,
infrastructure, and community assets in
underserved communities as well as
enabling families to seek greater
opportunity by moving to areas of the
community that already enjoy better
community infrastructure and
community assets. Therefore, HUD’s
proposed rule supports program
participants’ choice to engage in placebased activities, such as preserving
affordable housing in particular
neighborhoods while making
complementary investments in other
infrastructure and assets in those
neighborhoods, as well as those choices
that promote mobility, including
housing mobility programs, in order to
increase access to well-resourced areas
and opportunity for protected class
groups that have historically been
housed in underserved neighborhoods.
The proposed rule calls on program
participants to identify, and over time
remedy, unequal access to
homeownership opportunities—which
is a more direct focus than was required
under the 2015 AFFH Rule—because of
race, color, national origin, disability, or
other protected characteristics.
Inequality in access to homeownership
has created a ballooning wealth gap
among racial and ethnic groups.
Homeownership is generally the most
VerDate Sep<11>2014
16:40 Feb 08, 2023
Jkt 259001
traditional and stable way for a family
to accumulate wealth; however, this
advantage has primarily been made
available only to White families, even
today.20 As one researcher described the
results of a 2019 study, the median
White family had eight times the wealth
of the median Black family and five
times the wealth of the median Latino
or Hispanic family.21 It is clear that
eliminating discrimination from
housing-related transactions today will
be insufficient to reduce the wealth gap
created over many years.22 While some
efforts are underway to remedy this
wealth gap, research also shows that
current programs that incentivize
homeownership may not be designed in
a manner that would result in a closing
of the wealth gap and an increase in
access to homeownership opportunities
for persons of color, other protected
class groups, and underserved
communities.23 There are myriad ways
to reimagine how homeownership
incentives can be created and utilized to
promote these opportunities more fairly.
Evaluating how homeownership can be
incentivized, including through publicprivate partnerships, and made a reality
for members of protected class groups
and underserved communities may be
one way that program participants can
affirmatively further fair housing, and
this proposed rule explicitly creates
space for them to do so.
In addition to the wealth gap, other
barriers to homeownership exist for
other protected class groups. For
example, program participants may
identify—and then set goals to
remedy—a lack of accessible housing
that prevents individuals with
disabilities from experiencing housing
choice. A 2015 analysis of 2011
American Housing Survey data found
that this was a widespread challenge.24
20 See McCargo and Choi, ‘‘Closing the Gaps:
Building Black Wealth through Homeownership,’’
Urban Institute (2020), available at https://
www.urban.org/research/publication/closing-gapsbuilding-black-wealth-through-homeownership/
view/full_report.
21 Schuetz, ‘‘Rethinking Homeownership
Incentives to Improve Household Financial Security
and Shrink the Racial Wealth Gap,’’ Brookings
Blueprints for American Renewal & Prosperity
(2020), available at https://www.brookings.edu/
research/rethinking-homeownership-incentives-toimprove-household-financial-security-and-shrinkthe-racial-wealth-gap/.
22 Id.
23 Id.
24 Accessibility of America’s Housing Stock:
Analysis of the 2011 American Housing Survey
(AHS), https://www.huduser.gov/portal/
publications/mdrt/accessibility-americahousingStock.html.
PO 00000
Frm 00013
Fmt 4701
Sfmt 4702
8527
D. Summary of Proposed Changes to
HUD’s July 16, 2015 Final Rule
a. Streamlined Analysis Will Reduce
Burden
Under the 2015 AFFH Rule, program
participants were required to use an
Assessment Tool to conduct their
Assessments of Fair Housing (AFHs).
The Assessment Tool required them to
address more than ninety questions and
rely on HUD-provided data, local data,
and local knowledge to answer all
questions. The Assessment Tool also
contained a list of over forty
contributing factors.25 The factors had to
be identified and prioritized for each
fair housing issue based on the
responses to the questions and data
analysis conducted.
While the Assessment Tool had the
worthwhile goal of ensuring that
program participants conducted a
thorough analysis in accordance with a
standardized process, HUD now
proposes a modified approach that is
intended to make it simpler for program
participants to identify fair housing
issues and thus allow them to focus
more of the planning process on setting
meaningful fair housing goals. While
HUD continues to believe that an
analysis and evaluation of current and
historic circumstances in a program
participant’s community is necessary to
determine appropriate fair housing
goals, and that such analysis must be
informed by data as well as local
knowledge and community input, such
objectives can be achieved without
requiring program participants to
undertake as much independent burden.
Accordingly, this proposed rule
eliminates the required use of an
Assessment Tool and instead, in § 5.154,
sets out a streamlined analysis that
program participants must follow to
develop their Equity Plans. The required
content, which is different for
consolidated plan participants and
PHAs, consists of fewer questions than
the Assessment Tool, and HUD
proposes to allow program participants
to determine the format for responding
to the questions. HUD believes these
questions constitute the core of the fair
housing inquiry that is required to
identify fair housing issues, including
what may be causing those issues, and
set meaningful fair housing goals. HUD
specifically solicits comment below on
25 Under the 2015 AFFH Rule, a contributing
factor or fair housing contributing factor was
defined as ‘‘a factor that creates, contributes to,
perpetuates, or increases the severity of one or more
fair housing issues. Goals in an AFH are designed
to overcome one or more contributing factors and
related fair housing issues. . .’’ 24 CFR 5.152
(2015).
E:\FR\FM\09FEP2.SGM
09FEP2
khammond on DSKJM1Z7X2PROD with PROPOSALS2
8528
Federal Register / Vol. 88, No. 27 / Thursday, February 9, 2023 / Proposed Rules
whether the questions in § 5.154 are
easily understood to require this type of
response and whether different or
additional questions are needed. HUD
believes that a more flexible format will
allow program participants to tailor
responses to local needs and priorities.
The proposed rule still requires program
participants to ground their analysis in
HUD-provided data, local data, and
local knowledge (including information
obtained during the community
engagement process), but does not
require a program participant to provide
a complete description of the data
analyzed in response to each question.
Instead, the written responses to the
questions should describe the fair
housing issues and their causes present
in the program participant’s geographic
areas of analysis, and describe the key
sources of information relied upon in
fair housing issues and their causes
sufficiently to ensure that responses are
grounded in data and local knowledge.
By streamlining the written analysis,
HUD believes the proposed rule will
reduce burden for program participants
in conducting their Equity Plans, will
result in clearer and more direct
identification of fair housing issues, and
will allow program participants and
their communities to place greater focus
on the real task at hand—setting and
implementing fair housing goals that are
tailored to overcome the fair housing
issues they collectively face. HUD also
believes that the streamlined written
analysis that focuses more on
identifying fair housing issues and
related causes will enable more program
participants to establish meaningful fair
housing goals that are concrete and
measurable without the need for
consultants and contractors.
For similar reasons, HUD is also
eliminating the need to identify and
prioritize factors contributing to fair
housing issues as part of the required
analysis within each section of the
Assessment Tool provided under the
2015 AFFH Rule. While the lists of
contributing factors included in the
2015 AFFH Rule’s Assessment Tool
were intended to help program
participants set meaningful goals to
remedy fair housing issues by first
requiring them to identify the causes of
those issues, HUD’s experience in
implementing the 2015 AFFH Rule
showed that this step led to confusion
without leading to the development or
implementation of meaningful fair
housing goals. Program participants are
still required to assess the underlying
reasons for the fair housing issues they
face as part of determining the best and
most effective approaches for
overcoming them, though HUD believes
VerDate Sep<11>2014
16:40 Feb 08, 2023
Jkt 259001
the approach taken under the 2015
AFFH Rule did not function as initially
envisioned.
Ultimately, because of this proposed
rule’s emphasis on outcomes, HUD
believes it will be unnecessary for
program participants to rely on
contractors, consultants, or other
experts that may be needed for a heavily
data-driven written analysis. At the
same time, HUD believes the simplified
analysis still requires the core fair
housing analysis—including
engagement with the data provided by
HUD—to drive meaningful goal setting.
b. Revised Fair Housing Planning
Procedures Will Simplify
Implementation, Reduce Burden, and
Increase Transparency
This proposed rule modifies many of
the procedures for how fair housing
planning is implemented by program
participants and their submissions
reviewed by HUD compared to the 2015
AFFH Rule based on HUD’s own
experiences and the feedback of
stakeholders regarding their experience
with the 2015 AFFH Rule worked in
practice.
First, while HUD’s 2015 AFFH Rule
was designed to provide program
participants with maximum flexibility
for how to collaborate on an AFH, the
two different types of collaboration
(joint program participants and
regionally collaborating program
participants) proved unnecessarily
confusing. HUD is proposing to
maintain the flexibilities for program
participants to collaborate on their
Equity Plans, while simplifying the
actual procedures for those
collaborations.
Second, the 2015 AFFH Rule
provided for only 60 days for HUD’s
initial review of a submitted AFH and
required program participants to have
an accepted AFH for their consolidated
plan, annual action plan, or PHA Plan
to be approved, which in turn meant
that the failure to have an accepted AFH
could result in the loss of funding for
program participants and their
communities. In practice, this created
unnecessary pressure on HUD and
program participants to ensure that an
AFH was accepted in a relatively short
period of time to avoid risking funding
that is designed to help low-income
families and underserved communities.
This timing also limited the extent to
which HUD could work with program
participants to revise a submitted plan
to ensure full compliance with the rule
and put program participants on a path
to meaningful fair housing
achievements. HUD has revised these
procedures in several ways to allow a
PO 00000
Frm 00014
Fmt 4701
Sfmt 4702
fuller review and revision process that
ultimately results in compliant Equity
Plans and meaningful actions by
program participants that implement
fair housing goals. HUD proposes to
increase the review period for submitted
plans from 60 to 100 days, providing
HUD with more time to work with all
program participants to improve their
Equity Plans after submission to ensure
the Equity Plan meets the regulatory
requirements set forth in this proposed
rule. The proposed rule provides that
HUD can extend that review period for
good cause. The proposed rule provides
that if a program participant does not
have an accepted Equity Plan, HUD may
approve a consolidated plan or PHA
Plan but only if the program participant
furnishes special assurances that require
the program participant to achieve an
Equity Plan that meets the requirements
of this proposed rule within 180 days of
the end of HUD’s review period for the
consolidated plan or PHA Plan, as
applicable, and that require the program
participant to then amend the
consolidated plan, annual action plan,
or PHA Plan upon HUD’s acceptance of
the Equity Plan. As a result, HUD will
have a clear mechanism to remedy
noncompliance with the requirement to
have an accepted Equity Plan, including
the ability to take a range of actions (up
to and including the cut-off of Federal
funding where appropriate) against
program participants who fail to provide
or comply with such special assurances.
HUD’s expectation is that review of
most Equity Plans will conclude with an
acceptance, but the additional available
procedures contained in this proposed
rule provide mechanisms for HUD to
take a progressive series of steps to
obtain compliance in cases where this
expectation is not met.
Third, while the 2015 AFFH Rule
endeavored to align the AFH with
program participants’ other planning
cycles, HUD recognizes that this
approach led to difficulty for program
participants in determining the date by
which their AFHs were required to be
submitted. This proposed rule, while
still generally aligning Equity Plan
cycles with other program cycles,
contains clearer submission deadlines to
allow program participants and the
public to know with certainty when an
Equity Plan will be due to HUD.
Furthermore, program participants will
have more time to prepare and refine
their Equity Plans. HUD also expects to
provide more robust technical
assistance throughout the planning
process. Based on this, and the changes
to the required analysis explained
throughout this preamble, HUD believes
E:\FR\FM\09FEP2.SGM
09FEP2
khammond on DSKJM1Z7X2PROD with PROPOSALS2
Federal Register / Vol. 88, No. 27 / Thursday, February 9, 2023 / Proposed Rules
it will be unnecessary for program
participants to rely on contractors,
consultants, or other experts that they
may have chosen to use under the 2015
AFFH Rule. HUD is committed to
building stronger partnerships with its
program participants in order to fully
implement the AFFH mandate.
Fourth, the 2015 AFFH Rule required
program participants to report on their
progress in subsequent AFHs—
essentially, once every five years. HUD
believes both that program participants
should provide more regular progress
updates and that they may need greater
flexibility to adjust, revise, or reposition
their fair housing goals on a more
regular basis, particularly if program
participants achieve their goals and
need to establish new ones. HUD also
believes that transparency around this
progress evaluation is necessary to
ensure that the community and
members of the public are aware of the
progress being made, including whether
there are obstacles preventing progress
from occurring. For this reason, HUD
has included the requirement that, as
part of their Equity Plans, program
participants submit to HUD annual
progress evaluations that summarize the
status of the implementation of the fair
housing goals. HUD does not anticipate
that these progress evaluations will be
long documents and expects many
program participants could meet this
requirement in a one- or two-page
summary. HUD will also post these
annual progress evaluations on its
public AFFH web page to maximize the
transparency of the progress being
made. At the same time, the proposed
rule provides a mechanism for program
participants to seek revision of their
established goals at these annual
checkpoints.
Finally, the 2015 AFFH Rule’s review
process was not transparent enough to
allow the public to know why HUD
accepted or did not accept an AFH. This
proposed rule creates a more
transparent review process, pursuant to
which submitted Equity Plans will be
posted on HUD’s AFFH web page, the
public will have the opportunity to
comment on submitted plans (as
described further below), and HUD will
publish its decisions on Equity Plan
submissions. HUD believes that
increasing the transparency around its
review of Equity Plans will promote
engagement by members of the public in
the fair housing planning process and
will serve to keep HUD and its program
participants accountable for meeting
their obligation to affirmatively further
fair housing. Ultimately, HUD believes
that, by having a transparent process,
program participants will be better
VerDate Sep<11>2014
16:40 Feb 08, 2023
Jkt 259001
positioned to implement the fair
housing goals established in their Equity
Plans because their communities will be
better equipped to contribute and hold
program participants accountable.
c. Modified Community Engagement,
Consultation, and Publication
Requirements Will Increase
Transparency
HUD recognizes that transparency and
inclusion are necessary components of
implementing the AFFH rule in a
manner that ensures that the people the
rule is meant to help have a significant
voice in shaping outcomes. In this
proposed rule, HUD offers modifications
to what the 2015 AFFH Rule termed
‘‘community participation’’—in the now
revised ‘‘community engagement’’
section at § 5.158—to include
requirements that HUD believes are
more likely to lead to broader
engagement, particularly by members of
protected class groups and other
underserved communities who have
historically been excluded from these
types of discussions. The proposed rule
would also require consultation with
various types of organizations, such as
Fair Housing Assistance Program
agencies and Fair Housing Initiative
Program grantees, and other groups
representing underserved communities,
which include organizations that
advocate on behalf of individuals with
disabilities such as Centers for
Independent Living, Protection &
Advocacy Agencies, Aging and
Disability Resource Centers, and
Councils on Developmental Disabilities,
among others. In addition, HUD will
require program participants to hold
multiple community meetings, at
different times of day, and in different
locations throughout the jurisdiction to
account for the needs of shift workers,
families requiring childcare, and
individuals with disabilities, among
others. Ensuring that all members of a
community have a say in the
identification of fair housing issues and
deciding how available resources are
allocated is the first step toward
advancing equity for everyone.
HUD intends to maintain an AFFH
web page where all submitted Equity
Plans will be posted for public view.
The AFFH web page will include public
posting of whether HUD has accepted or
has not accepted a plan, as well as the
annual progress evaluation that program
participants submit. HUD believes that
creating a central public site where all
of this information can be easily viewed
will improve public engagement in the
planning and implementation process
by enabling community members to
provide HUD with additional
PO 00000
Frm 00015
Fmt 4701
Sfmt 4702
8529
information that may be pertinent to its
review, and to hold program
participants accountable for
implementing the fair housing goals
established in their accepted Equity
Plans. HUD may publish submitted
Equity Plans or portions of such plans
on other HUD-maintained web pages for
the purposes of disseminating best
practices and in a searchable
information clearinghouse to benefit
program participants and the general
public.
d. New Complaint and Enforcement
Mechanisms Will Enhance HUD’s
Ability To Ensure AFFH Compliance
While the proposed rule continues to
focus on planning and goal setting, HUD
is proposing to add a complaint and
enforcement mechanism to help ensure
that program participants comply with
their duty to affirmatively further fair
housing. This proposed rule, at §§ 5.170
through 5.174, would permit the filing
of complaints, and for HUD to open a
compliance review in response to a
complaint or on its own initiative,
about: a program participant’s failure to
comply with the requirements of the
proposed rule; failure to comply with an
Equity Plan commitment; or any action
that is materially inconsistent with the
obligation to affirmatively further fair
housing as defined in this proposed
rule. This proposed rule would set out
how HUD will investigate complaints
and conduct compliance reviews and
the available mechanisms for HUD to
enforce compliance when a program
participant is found in noncompliance
and voluntary resolution cannot be
obtained. HUD has modeled these
procedures after existing regulations
that implement Federal civil rights laws,
particularly those that apply to
recipients of Federal financial assistance
such as title VI of the Civil Rights Act
of 1964 and section 504 of the
Rehabilitation Act of 1973, and
therefore are familiar to program
participants, all of whom are recipients
of Federal financial assistance from
HUD. See 24 CFR parts 1 (Title VI) and
8 (Section 504).
The 2015 AFFH Rule did not include
any explicit mechanism for members of
the public to file complaints with HUD
regarding a program participant’s failure
to comply with the requirements of the
regulation or for HUD to undertake a
review of a program participant’s
compliance. Instead, the primary
enforcement tools were HUD’s ability to
reject a submitted Assessment of Fair
Housing or challenge a program
participant’s certification that it would
affirmatively further fair housing. These
tools alone proved to be insufficient
E:\FR\FM\09FEP2.SGM
09FEP2
khammond on DSKJM1Z7X2PROD with PROPOSALS2
8530
Federal Register / Vol. 88, No. 27 / Thursday, February 9, 2023 / Proposed Rules
because they triggered drastic remedies
(such as the suspension or termination
of funding) that limited their practical
use for ensuring compliance. HUD uses
complaint and compliance review
processes as one of the standard ways it
ensures that program participants satisfy
other civil rights obligations that attach
to Federal funding and has used
complaint processes in other HUD
programs as a means to increase
compliance. HUD proposes to establish
a complaint and compliance process for
AFFH, based on its experience
implementing the 2015 AFFH Rule,
feedback it received from stakeholders
in listening sessions, the urgent need to
address the systemic inequities in
housing, and HUD’s belief that
community members are well
positioned to provide important
information regarding whether program
participants are meeting their
commitments made in the planning
process and their duty to affirmatively
further fair housing more generally.
While HUD proposes to implement an
enforcement mechanism for program
participants who fail to fulfill the AFFH
obligation, HUD understands that
certain enforcement mechanisms such
as withholding funds could have
substantial impacts on consolidated
plan program participants and PHAs
and the people that they serve. The
proposed rule would provide HUD with
the ability to tailor remedies
appropriately for particular
circumstances. In particular, HUD does
not intend to take actions that would
adversely impact families participating
in HUD’s assisted housing programs,
and is cognizant of the potential for
such adverse effects from conditioning
the disbursement of funds for public
housing programs under section 8 or
section 9. HUD would maintain a range
of enforcement options that can ensure
compliance, including finding a PHA in
default of the Annual Contributions
Contract if the circumstances require.
HUD does not intend this complaint
and compliance review process to
supplant the planning process as the
principal means by which HUD and its
program participants will implement
the AFFH obligation and by which the
community will have input into how
AFFH compliance takes place. The
proposed rule provides for public input
at multiple points in the planning
process, including while the program
participant is developing its Equity Plan
and while HUD is reviewing a
submitted Equity Plan. HUD expects
that interested members of the public
will actively participate in the
community engagement process and
VerDate Sep<11>2014
16:40 Feb 08, 2023
Jkt 259001
raise concerns in that forum about a
program participant’s identification of
fair housing issues or establishment of
fair housing goals. It also expects that
any concerns the public has regarding a
submitted Equity Plan will be provided
during HUD’s review of the Equity Plan,
since the proposed rule permits
members of the public to submit such
information at that time. HUD will not
treat information submitted regarding an
Equity Plan HUD is reviewing as a
complaint to be investigated; rather it
will consider it as additional
information that may be relevant to
HUD’s review of whether the Equity
Plan conforms to this rule’s
requirements. HUD anticipates that
these opportunities for the public to
participate in the Equity Plan process
will reduce the need to resort to the
complaint process.
HUD also does not intend the
complaint process to be a forum to
challenge program participants’ day-today activities that have little nexus to
the AFFH obligation. Program
participants are on notice of the types of
actions that would be materially
inconsistent with their obligation to
affirmatively further fair housing
because of prior guidance provided by
HUD (e.g., the 2015 AFFH Rule, the Fair
Housing Planning Guide, the 2015
AFFH Rule Guidebook, and caselaw,
including that cited above, interpreting
the AFFH mandate).26 HUD,
nonetheless, also commits to providing
further guidance as to the alleged
conduct that HUD will accept as
meriting an investigation. HUD’s
experience in administering other civil
rights statutes with similar complaint
and compliance review processes
indicates that program participants will
not be subject to investigations or
sanctions arising from frivolous
complaints regarding actions that do not
actually implicate AFFH compliance.
Additionally, HUD observes that the
lack of an explicit administrative
process that both permits the public to
file complaints and authorizes HUD to
investigate and take necessary corrective
action has not always permitted
program participants to avoid such
claims. Rather, such allegations have
been channeled into False Claims Act
suits and other lawsuits or complaints
of violations of other laws against
program participants that sometimes
required enforcement of AFFH in
unpredictable ways. HUD has also used
its authority to ensure program
26 The Fair Housing Planning Guide and 2015
AFFH Rule Guidebook are available at the Office of
Fair Housing and Equal Opportunity’s (FHEO)
AFFH web page https://www.hud.gov/AFFH.
PO 00000
Frm 00016
Fmt 4701
Sfmt 4702
participant compliance with the Fair
Housing Act to investigate and
conciliate complaints of AFFH
obligations even in the absence of an
explicit process. HUD believes it will
benefit program participants and the
Department to have a regular and
defined administrative process for its
consideration of such complaints. As
described below, HUD is specifically
soliciting comment on how it can most
effectively institute a complaint and
compliance review process to provide as
much notice as possible regarding the
proper subjects of complaints and
compliance reviews and ensure that
program participants will not be
subjected to frivolous complaints that
are not directly tied to the program
participant’s obligation to affirmatively
further fair housing.
e. Changes in Definitions Related to the
Fair Housing Analysis Will Add Clarity
to and Focus on Core Fair Housing
Concepts
As described above, the proposed rule
eliminates the need for a separate
Assessment Tool and instead sets out
the simplified fair housing analysis
required of program participants. Many
of the definitions in this proposed rule
therefore reflect some aspects of that
analysis. HUD has eliminated or
modified certain definitions from the
2015 AFFH Rule in this proposed rule
to provide program participants and the
public greater clarity regarding what the
obligation to affirmatively further fair
housing encompasses and what HUD’s
expectations are for its funding
recipients. Additionally, HUD believes
that by creating these new definitions
that they will provide additional
information and clarity regarding this
proposed rule and the topics that
program participants are expected
analyze. The new definitions include:
• ‘‘Affordable housing
opportunities,’’ which refers to whether
members of protected class groups and
underserved communities have
equitable access to housing that is
affordable to them, including with
respect to where such housing is
located, whether it meets the needs of
families of different sizes, whether it
meets the accessibility needs of
individuals with disabilities, whether it
affords access to opportunity, including
community assets, and whether there
are factors that adversely affect access to
affordable housing, specifically, but not
limited to, rising rents, evictions, source
of income discrimination, loss of
existing affordable housing;
• ‘‘Balanced approach,’’ which refers
to HUD’s acknowledgement of the
balancing of various approaches
E:\FR\FM\09FEP2.SGM
09FEP2
khammond on DSKJM1Z7X2PROD with PROPOSALS2
Federal Register / Vol. 88, No. 27 / Thursday, February 9, 2023 / Proposed Rules
program participants can employ when
undertaking community planning and
investments, which results in the
balancing of a variety of actions to
eliminate the housing-related disparities
that result from persistent segregation or
lack of integration, the lack of affordable
housing in well-resourced areas of
opportunity, the lack of investment in
community assets in R/ECAPs and other
high-poverty areas, and the loss of
affordable housing to meet the needs of
underserved communities. The
proposed definition would make clear
that both place-based and mobility
strategies are part of a balanced
approach necessary to achieve positive
fair housing outcomes. A program
participant that has the ability to create
greater fair housing choice outside
segregated, low-income areas should not
rely on solely place-based strategies;
• ‘‘Community assets,’’ which refers
to the types of assets that are often not
equitably distributed and available
within communities, such as high
quality schools, equitable employment
opportunities, reliable transportation
services, parks and recreation facilities,
community centers, community-based
supportive services, law enforcement
and emergency services, healthcare
services, grocery stores, retail
establishments, infrastructure and
municipal services, libraries, and
banking and financial institutions;
• ‘‘Equity or equitable,’’ which refers
to the consistent and systematically fair,
just, and impartial treatment of all
individuals, including individuals who
are members of protected class groups
or parts of underserved communities
that have been denied such treatment,
as well as persons otherwise adversely
affected by persistent poverty or
inequality;
• ‘‘Publication,’’ which refers to how
HUD will maintain web pages to
publicly post Equity Plan materials to
enhance transparency and provide
opportunities for communities to learn
from one another and benefit from the
innovative thinking of others;
• ‘‘Underserved communities,’’
which refers to the remedial nature of
the AFFH mandate so that groups or
classes of individuals, as well as
geographic communities who have
historically had inequitable access to
housing, education, transportation,
economic, and other important
opportunities, including community
assets, within the program participant’s
jurisdiction, and HUD would require
program participants to take them into
account to ensure communities
overcome the systemic perpetuation of
inequity.
VerDate Sep<11>2014
16:40 Feb 08, 2023
Jkt 259001
HUD believes that building these
definitions and others into the proposed
rule itself more directly articulates
HUD’s expectations for how program
participants can comply with this
proposed rule and the AFFH mandate
than leaving such matters to a separate
assessment tool as the 2015 AFFH Rule
did.
f. Conforming Amendments to Program
Regulations Are Necessary for
Consistency With This Proposed Rule
This proposed rule contains
conforming amendments to program
regulations at 24 CFR parts 91, 92, 93,
570, 574, 576, 903, and 983 in order to
ensure consistency between this
proposed rule and the implementation
of programmatic requirements for
States, local governments, insular areas,
and PHAs. Because HUD and its
program participants are required to
administer all programs and activities in
a manner that affirmatively furthers fair
housing, establishing consistent
mechanisms in these regulatory
provisions is necessary to ensure that
program participants are positioned to
fulfill this obligation.
E. Conclusion
The opportunity to choose where one
lives free from barriers or inequities
related to race, color, religion, sex,
national origin, familial status, or
disability is at the very heart of the Fair
Housing Act’s AFFH mandate. That
obligation is meant to ensure that
Federal money, which for too long was
used to perpetuate segregation and
impose discriminatory policies, is
instead used to dismantle the enduring
legacy of that history. This proposed
rule’s implementation of the Fair
Housing Act’s AFFH mandate requires
that communities confront and commit
to changing historic and ongoing
discriminatory practices and policies,
engage in proactive planning for the use
of Federal funds to ensure funds are
used equitably, and implement
meaningful actions that affirmatively
further fair housing. The new regulation
carries forward the core planning
process of the 2015 AFFH Rule, and
HUD anticipates that the plans
generated by this proposed rule will
drive how HUD funds will be used to
advance equity and affirmatively further
fair housing. The proposed rule also
modifies some aspects in order to make
the process more user-friendly and less
burdensome for program participants,
and more accessible and transparent to
the public. HUD’s objective in this
proposed rule is to provide greater
support for program participants in
performing the necessary analysis and
PO 00000
Frm 00017
Fmt 4701
Sfmt 4702
8531
otherwise meeting their obligations,
while requiring more inclusion in the
planning process for communities that
historically have had too little say in it;
more transparency for the public as to
the decisions that have been made; and
more regular progress reporting and
opportunity to change course to reflect
changed circumstances.
HUD is committed to taking active
measures to work with its program
participants to develop innovative and
consequential ways to affirmatively
further fair housing. For those program
participants that take the AFFH
obligation seriously, HUD anticipates
that this rule will be simpler and less
burdensome to follow, and that program
participants will find HUD to be a
helpful partner as they engage their
communities and seek creative ways to
remedy fair housing issues that have too
long been ignored. For those that do not,
HUD proposes changes that are
intended to make its review process
more robust and to otherwise provide
for vigorous enforcement to ensure that
the AFFH mandate is implemented.
Based on the lessons learned from the
implementation of the 2015 AFFH Rule,
this proposed rule builds on that rule’s
successes and offers a more streamlined,
effective approach to empower program
participants and their communities to
make informed decisions based on local
circumstances to advance equity and
affirmatively further fair housing.
III. Summary of Proposed Rule
This rule proposes to amend the
regulations in 24 CFR parts 5, 91, 92, 93,
570, 574, 576, 903, and 983 as discussed
in this section.
Affirmatively Furthering Fair Housing
Regulation
This proposed rule would amend
HUD regulations in 24 CFR part 5,
subpart A, which contains generally
applicable definitions and requirements
that are applicable to all or almost all
HUD programs. This rule proposes to
amend existing subpart A by adding
new §§ 5.150 through 5.180 under the
undesignated heading of ‘‘Affirmatively
Furthering Fair Housing.’’ These revised
or new sections will provide the
regulations that will govern how States,
local governments, insular areas, and
PHAs comply with their statutory
obligation to affirmatively further fair
housing, but reserves additional
sections in subpart A for HUD to
continue to provide regulations that will
assist all HUD program participants in
more effectively affirmatively furthering
fair housing.
E:\FR\FM\09FEP2.SGM
09FEP2
8532
Federal Register / Vol. 88, No. 27 / Thursday, February 9, 2023 / Proposed Rules
Affirmatively Furthering Fair Housing:
Purpose (§ 5.150)
Revised § 5.150 states that the
purpose of the AFFH mandate in the
Fair Housing Act is to ensure that
Federal funds are used in a manner to
overcome the legacy of public and
private policies and practices that
intentionally or unintentionally have
created segregated communities and
inequities for people of color and other
groups because of the characteristics the
Act protects. The purpose of HUD’s
AFFH regulation is to provide program
participants with an effective approach
to aid program participants in
identifying and taking meaningful
actions to overcome historic patterns of
segregation, promote fair housing
choice, eliminate inequities in access to
housing and related opportunities
caused by policies or actions that
discriminated on the basis of protected
class, and foster inclusive communities
that are free from discrimination. The
new AFFH regulation is intended to
provide a straightforward approach for
program participants to advance equity
in their communities using Federal
financial assistance from HUD, while
ensuring that HUD has a mechanism to
enforce the mandate.
Affirmatively Furthering Fair Housing:
Application (§ 5.151)
New § 5.151 provides the general
applicability of AFFH requirements as it
applies to all of HUD’s programs and
activities and makes clear that §§ 5.150
through 5.180 in subpart A also imposes
a planning requirement on certain
program participants.
khammond on DSKJM1Z7X2PROD with PROPOSALS2
Definitions (§ 5.152)
New § 5.152 provides the definitions
that are used for purposes of the AFFH
regulation and conforming amendments
to existing program regulations. HUD
has preserved and modified some of the
following definitions that were included
in the 2015 AFFH Rule (and in certain
instances the AFFH IFR), which include
‘‘Affirmatively furthering fair housing,’’
‘‘Community engagement’’ (formerly
‘‘Community Participation’’), ‘‘Data,’’
‘‘Disability,’’ ‘‘Fair housing choice,’’
‘‘Fair housing issue,’’ ‘‘Geographic
area,’’ ‘‘Integration,’’ ‘‘Local
knowledge,’’ ‘‘Meaningful actions,’’
‘‘Protected characteristics,’’ ‘‘Protected
class,’’ ‘‘Racially or ethnically
concentrated areas of poverty,’’
‘‘Region,’’ ‘‘Segregation,’’ and
‘‘Significant disparities in access to
opportunity.’’ New terms defined in this
section include ‘‘Affordable housing
opportunities,’’ ‘‘Analysis of
Impediments to Fair Housing Choice,’’
VerDate Sep<11>2014
16:40 Feb 08, 2023
Jkt 259001
‘‘Balanced approach,’’ ‘‘Community
asset,’’ ‘‘Equity or equitable,’’ ‘‘Equity
Plan,’’ ‘‘Fair housing gals,’’ ‘‘Fair
housing goal categories,’’ ‘‘Fair housing
strategies and actions,’’ ‘‘Funding
decisions,’’ ‘‘Publication,’’ ‘‘Publicly
supported housing,’’ ‘‘Responsible Civil
Rights Official,’’ ‘‘Reviewing Civil
Rights Official,’’ ‘‘Siting decisions,’’
‘‘Underserved communities,’’ and
‘‘Well-resourced areas.’’
The definition of ‘‘affirmatively
furthering fair housing’’ explains
program participants’ obligations under
the Fair Housing Act as described
throughout this preamble. This
definition provides greater clarity than
the definition contained in the 2015
AFFH Rule and the AFFH IFR by
expressly stating that the duty to
affirmatively further fair housing
extends to all of a program participant’s
activities, services, and programs
relating to housing and community
development; it extends beyond a
program participant’s duty to comply
with Federal civil rights laws and
requires a program participant to take
actions, make investments, and achieve
outcomes that remedy the pervasive
segregation and disparities the Fair
Housing Act was designed to redress.
The definition of ‘‘affordable housing
opportunities’’ is included in this
proposed rule to assist program
participants in identifying whether and
in which areas of their communities
members of protected class groups lack
access to affordable housing
opportunities. The definition also
includes that the housing must comply
with affordability and habitability
requirements. This definition also
includes the broader concept of whether
members of protected class groups and
underserved communities have
equitable access to housing that is
affordable to them, including with
respect to where such housing is located
and whether it affords access to
opportunity, including community
assets. HUD anticipates that this
definition, as incorporated into the
analysis required by § 5.154, will
provide a connection between housing
affordability, protected characteristic,
and access to other opportunities, such
as community assets. This definition
accounts for whether housing stability
for protected class groups is adversely
affected by various factors, including
rising rents, loss of existing affordable
housing, displacement due to economic
pressures, evictions, source of income
discrimination, or code enforcement.
This definition also contemplates that
individuals with disabilities who need
accessible housing have affordable
housing opportunities that meet their
PO 00000
Frm 00018
Fmt 4701
Sfmt 4702
needs in areas of their community that
also afford access to opportunity. HUD
notes that HUD is not changing the
standard for HUD-assisted housing in
program regulations with the inclusion
of this definition for purposes of the
Equity Plan analysis. By assessing
where affordable housing is located in a
community, as well as who has been
successful in accessing that housing,
program participants can better
understand how the location of such
housing, in relation to community
assets, promotes integration, provides
access to opportunity or is a barrier to
such access, and whether there are laws,
policies, or practices in their
jurisdictions that may impede the
provision of affordable housing in
certain areas, such as well-resourced
areas. With this understanding, program
participants will be better positioned to
set fair housing goals that can be
designed and reasonably expected to
result material positive change. This
definition is not intended to align with
HUD’s programmatic requirements, and
so whether housing meets this
definition does not speak to whether it
complies with programmatic rules.
The definition of ‘‘Analysis of
Impediments to Fair Housing Choice’’
provides context for the manner in
which program participants will meet
their obligations to affirmatively further
fair housing until such time as they are
required to submit an Equity Plan to
HUD.
The definition of ‘‘balanced
approach’’ is added to articulate HUD’s
acknowledgement that different
strategies for remedying fair housing
issues can be employed based on the
facts and circumstances specific to a
program participant’s community.
Where a community has been starved of
investment, some may want to leave for
other communities, while others will
want to bring those resources to bear to
improve the circumstances of where
they live. Accordingly, HUD has added
this definition to ensure that program
participants can adopt different types of
strategies that will meaningfully
increase fair housing choice in their
communities, including by choosing
from an array of place-based strategies
(e.g., the preservation of existing
affordable housing or increased
investments in community assets) and
mobility strategies (e.g., improved
housing counseling, assessing how
school assignments are made, or
building affordable housing in wellresourced areas). A combination of
actions will likely be necessary in most
communities, which would include
both place-based and mobility
strategies. The proposed rule requires
E:\FR\FM\09FEP2.SGM
09FEP2
khammond on DSKJM1Z7X2PROD with PROPOSALS2
Federal Register / Vol. 88, No. 27 / Thursday, February 9, 2023 / Proposed Rules
that a program participant’s goals, taken
together, meet the definition of a
balanced approach. HUD provides that
place-based and mobility strategies must
be designed to achieve positive fair
housing outcomes (including
accessibility for individuals with
disabilities) and that a program
participant that has the ability to create
greater fair housing choice outside
segregated, low-income areas should not
rely solely on place-based strategies.
HUD believes that the vast majority of,
if not all, program participants will be
able to set goals that rely on both placebased and mobility-based strategies.
HUD seeks specific comment on
whether this is a reasonable requirement
for every program participant and, if
not, the specific circumstances under
which it would not be.
The definition of ‘‘community assets’’
is added to describe the sorts of highquality assets that are characteristic of
communities that have not suffered
from disinvestment and that affect the
quality of housing opportunities. It is
meant to be a non-exhaustive but
illustrative list of assets. Consideration
of the location of and access to
community assets, by protected class, is
an integral part of the analysis of the
Equity Plan, which HUD anticipates
will allow program participants to be
better positioned to understand the
specific fair housing issues within their
local communities. HUD does not
intend to require analysis of community
assets to be particularly burdensome
and will provide data and technical
assistance to support this analysis.
The definition of ‘‘community
engagement’’ is included to provide
program participants with a baseline
understanding of what the obligation,
more specifically delineated at § 5.158,
entails.
The definition of ‘‘disability’’ in this
proposed rule, as in the 2015 AFFH
Rule, is intended to be consistent with
other Federal civil rights laws with
which program participants must
comply, such as section 504 of the
Rehabilitation Act of 1973 and the
Americans with Disabilities Act of 1990
(ADA), as amended by the ADA
Amendments Act of 2008. HUD
incorporates by reference the definition
of disability under section 504 and the
ADA, consistent with the Attorney
General’s interpretations of that
definition, see 28 CFR 35.108, for
purposes of the affirmatively furthering
fair housing obligation under section
808(e)(5) so as to provide consistency
and clarity to HUD program
participants, which are all already
bound by the same definition under
those statutes.
VerDate Sep<11>2014
16:40 Feb 08, 2023
Jkt 259001
The definition of ‘‘equity or
equitable,’’ which is consistent with
Executive Order 13985, is intended to
provide program participants with a
framework for how to assess their
communities in a manner that is fair,
just, and impartial.
The definition of ‘‘Equity Plan’’
provides a less burdensome and more
straightforward approach to fair housing
planning and replaces the Assessment
of Fair Housing that was required by the
2015 AFFH Rule. The Equity Plan
consists of the content included in
§ 5.154, is submitted to HUD for review,
and includes an annual progress
evaluation. Program participants may
submit an individual Equity Plan or
may partner with other program
participants to submit a joint Equity
Plan, as provided for in § 5.160.
The definition of ‘‘fair housing goals’’
sets forth how program participants will
overcome the fair housing issues
identified in their Equity Plans. ‘‘Fair
housing goals’’ are designed to go
beyond the status quo in the program
participant’s community and result in
tangible, positive, and measurable fair
housing outcomes. Each fair housing
goal will include a description of the
fair housing issue it is designed to
overcome.
The definition of ‘‘fair housing goal
categories’’ details the seven categories
for which program participants must
establish fair housing goals to overcome
fair housing issues. The purpose of this
definition, and related provisions, is to
help focus program participants’
prioritization of which identified fair
housing issues they will set goals to
remedy. HUD understands that, in many
cases, it will be beyond the capacity of
program participants to set goals to
remedy every identified issue in a single
5-year cycle. The fair housing goal
categories are intended to provide
program participants with a reasonable
number of specific areas in which to
focus their goals. Program participants
may address multiple fair housing
issues through a single goal, and doing
so need not be difficult. Accordingly,
the proposed rule does not require a
goal to be set for every identified fair
housing issue, but does require that a
goal be set that addresses issues in each
of the seven fair housing goal categories,
which are outlined in § 5.154(f). HUD
believes these to be at the core of the
AFFH obligation.
The definition of ‘‘fair housing
issues’’ is modified from the definition
in the 2015 AFFH Rule and provides the
substantive areas of analysis that
program participants will assess in their
Equity Plans before setting fair housing
goals. ‘‘Fair housing issues’’ now also
PO 00000
Frm 00019
Fmt 4701
Sfmt 4702
8533
include such conditions as ongoing
local or regional segregation or lack of
integration, racially or ethnically
concentrated areas of poverty,
significant disparities in access to
opportunity, inequitable access to
affordable housing opportunities and
homeownership opportunities, laws or
ordinances that impede the provision of
affordable housing in well-resourced
areas, evidence of discrimination or
violations of civil rights law or
regulations related to housing, and
inequitable distribution of local
resources, which may include
municipal services, emergency services,
community-based supportive services,
and investments in infrastructure.
The definition of ‘‘fair housing
strategies and actions’’ helps clarify how
program participants will implement
the fair housing goals established in
their Equity Plans, including with
respect to the allocation of funding that
may be necessary for purposes of
achieving the fair housing goals.
The definitions of ‘‘funding
decisions’’ and ‘‘siting decisions’’ refer
to a set of decisions that program
participants make about the allocation
of HUD funds and other investments in
their communities, decisions that have
contributed to inequity and segregation
in the past and that this proposed rule
seeks to reorient in order to advance
equity and undo patterns of segregation
going forward.
The definition of ‘‘geographic area’’
delineates the specific levels of
geographic areas of analysis that certain
types of program participants must
undertake when conducting the analysis
required in the Equity Plan by § 5.154.
These largely restate the geographic
areas of analysis that were established
by the 2015 AFFH Rule and the various
Assessment Tools that implemented it.
HUD flags that while the expected
geographic area of analysis for State and
insular areas includes the whole State or
insular area, including entitlement and
non-entitlement areas, this does not
change existing requirements that
restrict States to using CDBG and other
Community Planning and Development
funds only in non-entitlement areas.
The definitions of ‘‘integration,’’
‘‘segregation,’’ ‘‘racially or ethnically
concentrated areas of poverty,’’ and
‘‘significant disparities in access to
opportunity,’’ are included because they
are necessary components of the
required analysis in order to set and
implement meaningful fair housing
goals. When appropriate, they identify
cross-references to other legal standards
that are also relevant to how these terms
apply to specific classes protected under
E:\FR\FM\09FEP2.SGM
09FEP2
8534
Federal Register / Vol. 88, No. 27 / Thursday, February 9, 2023 / Proposed Rules
khammond on DSKJM1Z7X2PROD with PROPOSALS2
the Fair Housing Act (e.g., integration
and individuals with disabilities).27
The definition of ‘‘homeownership
opportunities’’ is included in this
proposed rule so that program
participants, in conducting their
analyses, consider whether members of
protected class groups have equitable
access to homeownership in their
jurisdictions, and if not, to determine
what barriers exist to attaining
homeownership so that fair housing
goals can be established.
The definition of ‘‘publication’’
encompasses the posting of the Equity
Plan materials for review on a HUDmaintained web page, which will
facilitate transparency of the local
decisions made and the HUD review
process. The public will be able to track
the status of HUD’s review and provide
feedback to HUD directly, and
communities will be able to learn and
benefit from the innovative ideas of
others.
The definition of ‘‘publicly supported
housing’’ sets forth the types of assisted
affordable housing that program
participants will analyze. HUD is
providing data regarding the location
and demographics of certain types of
such housing, and program participants
will also rely on local data and local
knowledge for other types of assisted
housing operated in the jurisdiction.
The definitions of ‘‘Responsible Civil
Rights Official’’ and ‘‘Reviewing Civil
Rights Official’’ clarify the Departmental
official with the authority to make
determinations regarding a program
participant’s Equity Plan and its
compliance with its obligation to
affirmatively further fair housing under
the Fair Housing Act.
The definition of ‘‘underserved
communities,’’ which is consistent with
Executive Order 13985, includes groups
or classes of individuals, as well as
geographic communities that
disproportionately include members of
particular protected class groups, who
have historically had inequitable access
to housing and other community assets.
27 In 1999, the United States Supreme Court
issued the landmark decision in Olmstead v. L.C.,
527 U.S. 581 (1999), affirming that the unjustified
segregation of individuals with disabilities is a form
of discrimination prohibited by title II of the ADA.
Following the Olmstead decision, there have been
increased efforts across the country to assist
individuals who are institutionalized or housed in
other segregated settings to move to integrated,
community-based settings. As a result of the
Olmstead decision and the integration mandate of
section 504 of the Rehabilitation Act included in
HUD’s section 504 regulation at 24 CFR part 8, HUD
has consistently recognized the great need for
affordable, integrated housing opportunities where
individuals with disabilities are able to live and
interact with individuals without disabilities, while
receiving the health care and long-term services and
supports they need.
VerDate Sep<11>2014
16:40 Feb 08, 2023
Jkt 259001
The definition of ‘‘well-resourced
areas’’ is included to emphasize that
program participants must assess which
areas and whether the residents who
reside in such areas have high-quality
and well-maintained community assets
(in view of local economic
circumstances), as defined in § 5.152,
which afford residents genuine access to
opportunity (e.g., infrastructure, high
performing schools, economic
opportunity, etc.) as a result of public
and private investments.
Equity Plan (§ 5.154)
New § 5.154 sets forth the substantive
requirement for program participants to
evaluate their communities in order to
more effectively affirmatively further
fair housing and advance equity. This
section sets forth the seven areas of
analysis, which will also serve as fair
housing goal categories for which
program participants must establish fair
housing goals. HUD seeks comment on
whether it is appropriate to require
every program participant to establish
goals in each of the seven categories.
The process described in this section
consists of fewer questions than
previously required by the 2015 AFFH
Rule to which program participants
must respond. The specific required
questions are codified in this section,
but program participants have the
flexibility to conduct their Equity Plan
in a manner and format that best suits
their local needs, so long as the required
content is submitted to HUD. HUD will
provide program participants with data
that include maps, tables, and may
include technical assistance that aids
program participants in conducting
their analysis. HUD will also continue
to provide the existing mapping tools,
first provided under the 2015 AFFH
Rule, and is exploring ways to improve
those offerings and provide additional
relevant data. In addition, for purposes
of the analysis related to access to
affordable housing opportunities, HUD
will continue to provide data to assist
program participants in assessing
disparities among protected class groups
based on factors of cost burden, severe
cost burden, overcrowding (particularly
for large families), and substandard
housing conditions. HUD believes this
approach will better facilitate the
discussions in communities around how
to develop and implement meaningful
fair housing goals. While HUD’s
approach under the 2015 AFFH Rule
often yielded meaningful fair housing
goals, HUD now understands that
requiring all program participants to
perform extensive data analysis
themselves and show their work in a
written submission (i.e., requiring
PO 00000
Frm 00020
Fmt 4701
Sfmt 4702
program participants to recite back to
HUD what the HUD-provided data
showed) may have impeded some
program participants’ ability to focus on
outcomes. HUD is now proposing to
simplify the required analysis and assist
program participants in understanding
how to use the relevant data to identify
fair housing issues. This will allow
program participants to place a greater
emphasis on developing fair housing
goals, making investment and funding
decisions in furtherance of those fair
housing goals, and listening to members
of the community who have historically
lacked equitable participation in such
decisions. When establishing fair
housing goals, program participants may
adopt a small number of goals if such
goals could ultimately result in
outcomes that have a significant impact
toward advancing equity for protected
class groups by reducing the adverse
effects of fair housing issues. HUD
recognizes that fair housing goals may
be short-term, in that they can be
achieved relatively quickly, or longterm, in that they may take more than
one funding cycle, and that program
participants may set both short- and
long-term goals in order to ensure that
they ultimately affirmatively further fair
housing.
Paragraphs (a) and (b) of § 5.154
provide the general requirement to
conduct and submit an Equity Plan,
including the obligation to engage the
community in the development of the
Equity Plan. Paragraph (b) makes clear
that certain portions of the analysis may
rely on local data, local knowledge, and
information obtained through
community engagement, particularly if
HUD is unable to provide data for a
specific topic required to be included as
part of the analysis. Paragraph (c)
provides the general content that must
be included in a program participant’s
Equity Plan and the requirement to
incorporate the Equity Plan into
subsequent planning documents such as
the consolidated plan, annual action
plan, and PHA Plan (or any plan
incorporated therein) so that program
participants can appropriately allocate
necessary funding for the
implementation of fair housing goals.
Paragraph (d) provides the specific
content the Equity Plan must contain for
local governments, States, and insular
areas, including the questions to which
these program participants must
respond. The questions consist of: (1)
demographics; (2) segregation and
integration; (3) R/ECAPs; (4) access to
community assets; (5) access to
affordable housing opportunities; (6)
access to homeownership and economic
E:\FR\FM\09FEP2.SGM
09FEP2
khammond on DSKJM1Z7X2PROD with PROPOSALS2
Federal Register / Vol. 88, No. 27 / Thursday, February 9, 2023 / Proposed Rules
opportunity; and (7) local policies and
practices impacting fair housing.
Paragraph (e) provides the specific
content the Equity Plan must contain for
PHAs, including the questions to which
PHAs must respond. The questions
consist of: (1) demographics; (2)
segregation and integration; (3) R/
ECAPs; (4) access to community assets
and affordable housing opportunities;
and (5) local policies and practices
impacting fair housing. As noted above,
HUD welcomes comment on whether
these questions should be modified for
the purposes of small PHAs or if HUD
should consider increased flexibilities
PHAs can use to comply with the Equity
Plan requirement or alternative
approaches HUD can use to ensure that
small PHAs comply with their
obligations to affirmatively further fair
housing.
To assist program participants in
conducting their Equity Plans’ analysis,
HUD intends to continue providing data
that program participants can rely on to
answer most of the questions that guide
the proposed rule’s required analysis.
Many program participants and others,
including researchers, found the raw
data HUD provided under the 2015
AFFH Rule to be invaluable. HUD is
committed to continuing to provide
such data, to improving its current data
and mapping tools (e.g., the AFFH–T
Data & Mapping Tool), and to building
additional tools and data products to
further facilitate the fair housing
analysis. For example, HUD is
contemplating developing a flexible
data tool for comparing the locations
and demographics of publicly supported
housing with patterns of segregation and
R/ECAPs. A version of this tool is
currently available in the AFFH–T Data
& Mapping Tool, in the ‘‘Query Tool’’
option, and HUD would welcome
feedback on potential improvements to
this functionality. Additionally, as
previously described, HUD is
contemplating various ways to present
this data to program participants outside
the AFFH–T interface and to provide
technical assistance, which may include
explanations that assist program
participants in understanding how to
use the data to identify fair housing
issues.
In addition, HUD intends to issue
guidance and technical assistance on
how to conduct an Equity Plan analysis
and set appropriate goals. HUD intends
to tailor this guidance to the various
types of program participants, including
State agencies and smaller and rural
PHAs and consolidated planning
agencies. HUD recognizes the wide
range of different types of housing and
community and economic development
VerDate Sep<11>2014
16:40 Feb 08, 2023
Jkt 259001
agencies that administer these vital
programs at the State and local level,
and that many of them have unique
geographies and jurisdictional
boundaries as well as unique datarelated needs.
Program participants will already be
familiar with several of the key Equity
Plan questions. For example, HUD notes
that almost all program participants will
already be familiar with the analysis of
disparities in access to community
assets and affordable housing
opportunities, including for protected
class groups. To the extent the proposed
rule’s analysis of ‘‘affordable housing
opportunities’’ overlaps with analysis
already conducted for the consolidated
plan, and often adopted also by PHAs,
there is little additional burden on
program participants in conducting this
part of the analysis in the new Equity
Plan. Similarly, new analysis conducted
for the Equity Plan can also inform
similar parts of the consolidated plan
and PHA Plans. HUD recognizes that
some program participants may not
have direct expertise to be able to fully
answer some questions in the Equity
Plan analysis section, for example those
asking about access to schools,
transportation, or employment
opportunities. HUD expects that in
addition to HUD-provided data,
program participants’ use of local data
and local knowledge, including that
gathered though the community
engagement process, will assist program
participants with conducting these
analyses.
Many of the questions are intended to
be an opportunity to solicit informed
feedback from the community,
including local organizations that
already work in these spaces, to assist
the program participant in assessing
disparities in access to community
assets by protected class groups. HUD
expects the community engagement
process may be particularly helpful in
consideration of certain aspects of the
analysis. HUD does not anticipate that
questions relying primarily on input
from local data and local knowledge,
which may be obtained through the
community engagement process, should
pose any major additional burden. As
provided for in the proposed rule’s
definition of ‘‘local data’’ in § 5.152, the
proposed rule requires consideration
only of such data that ‘‘can be found
through a reasonable amount of search
[and] are readily available at little or no
cost.’’ To provide one example,
questions asking about ‘‘underserved
communities’’ may not require a
granular, data-driven analysis in order
to identify fair housing issues. Rather,
program participants are encouraged to
PO 00000
Frm 00021
Fmt 4701
Sfmt 4702
8535
actively engage with these communities
in order to obtain the information
necessary to conduct the analysis and to
identify fair housing issues. This
includes opening dialogues and
engaging with individuals experiencing
homelessness, survivors of domestic
violence, people with criminal records,
persons identifying as Lesbian, Gay,
Bisexual, Transgender, Queer +
(LGBTQ+), individuals with disabilities,
and others who often have no
established forum to inform local
policymakers of their issues and needs.
Some of the proposed rule’s
questions, in asking about changes in
demographics or economic trends, ask
about a concept known to many
stakeholders as ‘‘gentrification.’’ The
term is used here because of its common
colloquial use to facilitate the program
participant’s and community’s ease of
understanding the concepts at issue in
order to have required discussion about
community trends. HUD notes the
robust debate around the term
‘‘gentrification’’ and its impact on
communities in both social science
research and among communities
themselves, and program participants
can also consider such discussions in
their review. This proposed rule does
not establish a HUD definition of
‘‘gentrification,’’ nor will program
participants be required to precisely
define the term.
For questions that ask about ‘‘livable
wage jobs,’’ while HUD provides several
data points that relate to employment,
labor participation, and proximity to
jobs, it acknowledges that the data may
not capture the full picture. Program
participants may have local data and
local knowledge that addresses this,
including information obtained from
local organizations that participate in
the community engagement process.
As noted above, HUD does not intend
for program participants to document
the performance of an extensive datadriven analysis for most questions, and
instead intends for program participants
to focus on effective goal setting to
address identified issues. The analysis
in the proposed rule is intended to
facilitate a balanced approach by
permitting the identification of fair
housing issues susceptible to being
remedied through a variety of policies.
For example, if disparities by protected
class group are identified in the
questions regarding homeownership
opportunities, responsive goals could
include specific policies to assist firsttime homebuyers and expand
availability of affordable
homeownership opportunities, such as
new construction of affordable singlefamily homes, downpayment assistance
E:\FR\FM\09FEP2.SGM
09FEP2
khammond on DSKJM1Z7X2PROD with PROPOSALS2
8536
Federal Register / Vol. 88, No. 27 / Thursday, February 9, 2023 / Proposed Rules
using the HOME Investment
Partnerships (HOME) program, or
zoning code reform. Similarly, an
identified issue regarding lack of
affordable housing opportunities in
certain areas could be remedied through
goals such as expanding rental
availability through new placements of
HOME, Housing Trust Fund (HTF), and
Low-Income Housing Tax Credits
(LIHTC) units, geographically targeted
project-based vouchers, improved
Housing Choice Voucher mobility, or
addressing unnecessary regulatory
barriers to affordable housing
production, strengthening tenant
protections, and preservation efforts.
Paragraph (f) describes how program
participants must identify and prioritize
the fair housing issues for each fair
housing goal category. In determining
how to prioritize fair housing issues
within each fair housing goal category,
program participants shall give highest
priority to fair housing issues that will
result in the most effective fair housing
goals for achieving material positive
change for underserved communities,
taking into account that different
protected class groups may be impacted
by different fair housing issues.
Paragraph (g) sets the requirements for
fair housing goals and for including fair
housing goals in the Equity Plan. This
paragraph is intended to provide
program participants with greater clarity
on what HUD will look for when an
Equity Plan is submitted for review,
including whether the fair housing
goals, when taken together, are designed
to overcome the effects of each
prioritized fair housing issue.
Broadly, the proposed rule requires
program participants to set and
implement fair housing goals that are
designed and can be reasonably
expected to result in a material positive
change relating to the fair housing
issues that they are intended to address.
HUD expects that, in subsequent
progress reports and planning cycles,
program participants will be able to
point to the changes that have resulted
from implementation of the goals
established in their Equity Plan. For
example, if a program participant has
identified as an issue segregation in
certain areas of its jurisdiction and has
set fair housing goals to reduce that
segregation, it should be able to point to
ways in which implementation of the
fair housing goals have resulted in or are
in the process of resulting in a decrease
in such segregation. This does not mean
that program participants must be able
to report changes that are occurring with
statistically significant data.
HUD recognizes that fully remedying
a fair housing issue will often take
VerDate Sep<11>2014
16:40 Feb 08, 2023
Jkt 259001
substantial time and occur in
incremental steps, spanning multiple
funding and Equity Plan cycles. Thus,
HUD expects the fair housing goals will
result in material positive change even
if that change will be incremental, and
it will take multiple funding cycles to
fully remedy the fair housing issue. For
example, a program participant might
set a goal in its Equity Plan to supply
100 units of affordable housing in a
well-resourced area. Completing this
fair housing goal might not completely
remedy the underlying fair housing
issues (e.g., segregation) due to the size
of the total population and existing
segregated residential patterns in the
jurisdiction and region. In such
circumstances, if HUD accepts the
program participant’s Equity Plan and
the program participant accomplishes
its fair housing goal of building the 100
units, the program participant will have
complied with its Equity Plan
obligation, but it will still be required to
set additional fair housing goals in
future Equity Plan submissions to
continue tackling the fair housing issue
of segregation.
HUD also understands that, with
respect to many fair housing issues,
forces other than the program
participant’s actions may influence the
course of change. A program
participant’s fair housing goal can be
successful on its own terms even as it
fails to accomplish material positive
change in terms of the underlying issue
it was designed to address. For example,
a program participant might identify the
lack of affordable housing in wellresourced areas as an issue and set a fair
housing goal to eliminate barriers to the
siting of affordable housing in wellresourced areas. It might achieve that
goal by eliminating the identified
barriers, and yet affordable housing is
not built in the areas in question for
other reasons. In such circumstances,
the program participant will have
satisfied its obligation with respect to
that fair housing goal and will not be
deemed to be out of compliance with its
Equity Plan obligations. The program
participant will be expected to continue
to set goals in subsequent planning
cycles to address the still existing fair
housing issue in ways that will
accomplish the required material
positive change.
Paragraph (h) consists of additional
content that is required for the Equity
Plan, including the community
engagement process and the submission
of certifications and assurances.
Paragraph (i) provides for program
participants and their communities to
engage in an evaluation of progress
toward advancing equity following the
PO 00000
Frm 00022
Fmt 4701
Sfmt 4702
acceptance of the Equity Plan. For each
Equity Plan submitted following the
first Equity Plan, program participants
are permitted to provide their annual
progress evaluations in the aggregate as
part of the overarching progress
evaluation required for each new Equity
Plan. Paragraph (j) provides for the
publication requirement of the Equity
Plan, which HUD will facilitate, in order
to increase transparency and allow for
program participants and the public to
view all Equity Plan submissions and
view the Department’s decisions
regarding such plans. This will allow
communities to discover and consider
the innovative ideas and strategies other
communities may be employing to
advance equity in meaningful ways.
This paragraph also provides for a
mechanism for the public to submit
information to HUD regarding the
content of a published Equity Plan.
Affirmatively Furthering Fair Housing
Through Equity Plan Incorporation Into
Subsequent Planning Documents
(§ 5.156)
New § 5.156 more closely and directly
ties the fair housing goals established in
the Equity Plan to the subsequent
planning processes program participants
are required to undertake to ensure that
program participants adequately and
appropriately undertake and fund
programs, services, and activities in a
manner that advances equity and
affirmatively furthers fair housing. This
will provide a more holistic approach to
the implementation of the AFFH
mandate by requiring program
participants to embed fairness and
equity into their decision-making
processes.
Community Engagement (§ 5.158)
New § 5.158 sets forth the
requirements for community
engagement as a key component of the
development of the Equity Plan. This
section, along with conforming
amendments to applicable program
regulations, provides program
participants the flexibility to conduct
this process differently from how they
conduct citizen participation for the
consolidated plan or annual action plan
or the policies and procedures PHAs use
for the PHA Plan if they so choose.
Program participants’ engagement with
their communities in the development
of the Equity Plan requires the
confrontation of difficult issues, and so
HUD is providing program participants
with flexibility to determine how best to
facilitate those important conversations.
HUD expects the community
engagement process to focus on the fair
housing issues facing communities, and
E:\FR\FM\09FEP2.SGM
09FEP2
Federal Register / Vol. 88, No. 27 / Thursday, February 9, 2023 / Proposed Rules
khammond on DSKJM1Z7X2PROD with PROPOSALS2
HUD further anticipates that by
providing data, guidance, and technical
assistance to program participants
regarding the fair housing issues
demonstrated by HUD-provided data,
this focus on community engagement as
a source of critical information can be
more easily maintained. The community
engagement process is intended to be a
robust discussion across all sectors of
the community so that program
participants can make informed choices
about how to overcome existing fair
housing issues, such as barriers to fair
housing choice, and make equitable
funding decisions. This section also
provides the Federal civil rights
requirements with which program
participants must comply when
conducting in community engagement
and permits program participants to
utilize the processes in their respective
program regulations to undertake these
activities.
Submission Requirements (§ 5.160)
New § 5.160 provides the
requirements for the submission of the
Equity Plan to HUD, including how
program participants may collaborate to
submit a joint Equity Plan to HUD, and
provides the timeframes for when a
program participant’s first Equity Plan
will be due. The timeframes for the first
Equity Plan in this section are intended
to be straightforward and easily
discernable so that program participants
have certainty as to when their
obligation to conduct and submit an
Equity Plan is triggered. This section
also provides for how and when annual
progress evaluations will be submitted
as well as subsequent Equity Plans.
Further, until such time as an Equity
Plan is due to HUD, program
participants must ensure they are
engaging in fair housing planning in a
publicly transparent way and this
section sets forth how to meet that
obligation.
Paragraph (a) allows program
participants to collaborate and conduct
an Equity Plan (joint Equity Plan) with
other program participants (joint
program participants), which may allow
program participants to pool resources
in order to overcome fair housing issues
that cross jurisdictional lines. This
paragraph sets out the requirements for
how program participants collaborate
and the obligations of each collaborating
participant, as well as notification to
HUD of the intent to collaborate on an
Equity Plan.
Paragraph (b) sets out the submission
deadlines for consolidated plan program
participants. These deadlines are tied to
the aggregate amount of formula funding
the program participant receives from
VerDate Sep<11>2014
16:40 Feb 08, 2023
Jkt 259001
HUD and then is further keyed to the
program year that begins on or after a
particular date. This paragraph thereby
creates a tiered submission schedule, in
which the first group of consolidated
plan program participants that have an
Equity Plan due will be all among the
largest such participants. HUD
anticipates that this group is better
positioned to begin implementation,
and the experiences of this first cohort
will allow for program participants of
different sizes to benefit from technical
assistance from HUD during the course
of implementation of this proposed rule.
Likewise, paragraph (c) sets out the
submission deadlines for PHAs based
on the aggregate number of units and
vouchers the PHA administers, which
are then keyed to the program year that
begins on or after a particular date. The
first cohort of PHAs with an Equity Plan
due will also be among the largest
PHAs, and their experience will allow
PHAs of different sizes to benefit from
technical assistance from HUD in
advance of an Equity Plan submission.
Paragraph (d) requires, until such
time as a program participant must
submit an Equity Plan to HUD, that the
program participant engage in fair
housing planning and sets forth how to
meet this obligation, including what
must be submitted to HUD and when
such submissions are required.
Paragraph (e) provides for the
procedures that HUD will utilize in
order to determine when an Equity Plan
is due for new program participants.
Paragraph (f) sets out the requirements
for submitting annual progress
evaluations as part of the Equity Plan.
Paragraph (g) specifies the deadlines for
subsequent Equity Plan submissions.
Paragraph (h) provides that program
participants must submit an Equity Plan
to HUD no less frequently than every
five years.
Paragraph (i) requires program
participants to include certifications
and assurances as part of the Equity
Plan submission to HUD. These
certifications and assurances are distinct
from those submitted in connection
with an application for Federal financial
assistance.
Review of Equity Plan (§ 5.162)
New § 5.162 provides the procedures
and standard HUD will use to review
submitted Equity Plans. This provision
sets forth the timing for HUD’s review
and what may occur as a result of HUD’s
review—HUD may accept the Equity
Plan, extend the time for review for
good cause, or provide notice to the
program participant that HUD does not
accept the Equity Plan and the reasons
why. Specifically, HUD will have 100
PO 00000
Frm 00023
Fmt 4701
Sfmt 4702
8537
calendar days from the date the Equity
Plan is submitted to review the plan.
HUD’s acceptance of an Equity Plan is
not a determination of whether the
program participant has met its
obligation to affirmatively further fair
housing under the Fair Housing Act and
means only that the program
participant’s submission appears to
meet the requirements of this proposed
regulation.
Paragraph (a) sets out the process for
review and what HUD’s acceptance of
an Equity Plan means. Paragraph (b) sets
out the standard HUD will apply when
determining to accept or not to accept
an Equity Plan—HUD will not accept
the Equity Plan if any portion of it is
inconsistent with fair housing or civil
rights requirements, which includes but
is not limited to any material
noncompliance with the requirements
of §§ 5.150 through 5.180. This
paragraph provides examples of reasons
why HUD will not accept an Equity
Plan. In the event an Equity Plan is not
accepted, paragraph (c) sets out the
procedures for program participants to
revise and resubmit their Equity Plan to
HUD. Paragraph (d) provides ways
HUD, at its discretion, can incentivize
and support program participants that
establish ambitious fair housing goals in
their Equity Plans including for example
assisting program participants in
securing additional resources for
implementing their fair housing goals
and achieving positive fair housing
outcomes in their communities.
Paragraph (e) explains the procedures
for when a program participant does not
have an accepted Equity Plan at the time
their consolidated plan or PHA Plan, as
applicable, must be submitted to HUD.
As explained above, the proposed rule
provides that a consolidated plan or
PHA Plan (or any plan incorporated
therein) may be accepted under such
circumstances, but only if a program
participant provides special assurances
that it will submit an Equity Plan that
meets the regulatory requirements
within 180 days of the end of HUD’s
review period for the consolidated plan
or PHA Plan. HUD notes that failure to
provide such special assurances will
lead to the disapproval of the applicable
programmatic plan. If the Secretary
determines that there has been a failure
to fulfill the terms set out in the special
assurances, the Secretary will initiate
the termination of funding, refuse to
grant or to continue to grant Federal
financial assistance, or seek other
appropriate remedies. In addition,
paragraph (e) explains that a program
participant’s failure to provide or
comply with special assurances can
provide the Secretary a basis to
E:\FR\FM\09FEP2.SGM
09FEP2
8538
Federal Register / Vol. 88, No. 27 / Thursday, February 9, 2023 / Proposed Rules
khammond on DSKJM1Z7X2PROD with PROPOSALS2
challenge the validity of the program
participant’s AFFH certification
pursuant to § 5.166. Finally, paragraph
(e) specifies that the procedures HUD
will follow if there is a failure to comply
are at § 5.172 and that the special
assurances are subject to the publication
requirement and will be made available
on HUD’s AFFH web page.
Revising an Accepted Equity Plan
(§ 5.164)
New § 5.164 sets out the minimum
criteria for when an Equity Plan must be
revised—that is, when a material change
occurs, upon written notification from
the Responsible Civil Rights Official
(Assistant Secretary for Fair Housing
and Equal Opportunity or his or her
designee) specifying a material change
that requires the Equity Plan to be
revised, or a program participant
chooses to revise its Equity Plan.
Paragraph (a)(1)(i) provides examples of
what a material change would include,
such as Presidentially declared disasters
under title IV of the Robert T. Stafford
Disaster Relief and Emergency
Assistance Act. A material change may
occur because the program participant’s
jurisdiction receives additional Federal
financial assistance, new fair housing
issues emerge in the program
participant’s jurisdiction, significant
demographic changes occur in the
program participant’s jurisdiction, or
civil rights findings, determinations,
settlements (including Voluntary
Compliance Agreements), or court
orders occur. Paragraph (a)(1)(ii)
specifies that the Responsible Civil
Rights Official may notify program
participants in writing that a material
change has occurred that requires
revision. Paragraph (a)(2) sets out the
circumstances under which a program
participant may choose to voluntarily
revise its previously accepted Equity
Plan, with permission from HUD. HUD
intends that this provision be used by
program participants who face changed
circumstances that make it difficult or
impossible to meet established fair
housing goals or otherwise require
revisions to their Equity Plans. HUD
does not intend this provision to be
used by program participants that
simply fail to accomplish the fair
housing goals they established.
Paragraph (a)(3) sets out the
requirements for a revised Equity Plan.
Paragraph (b) establishes the timeframes
that will apply when revising an Equity
Plan, paragraph (c) requires the revised
Equity Plan to be submitted to HUD for
review, and paragraph (d) requires that,
once a revised Equity Plan has been
accepted by HUD, the program
participant incorporate any revised fair
VerDate Sep<11>2014
16:40 Feb 08, 2023
Jkt 259001
housing goals into their consolidated
plan, annual action plan, PHA Plan or
any plan incorporated therein within 12
months of the date of HUD’s acceptance
of the revised Equity Plan.
AFFH Certifications Required for the
Receipt of Federal Financial Assistance
(§ 5.166)
New § 5.166 requires program
participants to provide certifications as
part of the submission of their required
consolidated plan, annual action plan,
or PHA Plan, or any plan incorporated
therein, pursuant to 24 CFR parts 91 and
903, as applicable, that they will
affirmatively further fair housing in
order to receive Federal financial
assistance from HUD.
Paragraph (a) of this section requires
a certification that program participants
will affirmatively further fair housing
and take no action that is materially
inconsistent with fair housing and civil
rights requirements throughout the
period for which Federal financial
assistance is extended. These
certifications are made in accordance
with applicable program regulations,
specifically 24 CFR part 91 for
consolidated plan program participants
and 24 CFR part 903 for PHAs.
Paragraph (b) sets out the policies and
procedures for when and how the
Department will challenge the validity
of an AFFH certification. HUD will
endeavor to voluntarily resolve any
potential inaccuracy or noncompliance
with an AFFH certification that could
result in the disapproval of a
consolidated plan, annual action plan,
or PHA Plan, and it expects recipients
of Federal financial assistance to work
cooperatively with the Department to
reach voluntary resolution when there is
a potential failure to comply with an
AFFH certification or the obligation to
affirmatively further fair housing. In the
event this does not occur, this paragraph
sets out the procedures HUD will use.
This paragraph also sets forth how the
process will work if there is evidence
the program participant’s certification is
inaccurate. For example, if the
noncompliance cannot be voluntarily
resolved, HUD may set conditions on a
grant for a consolidated planning
program participant (see e.g., 2 CFR
200.208) or reject the AFFH
certification. This paragraph also
specifies how certifications may be
challenged in the context of joint Equity
Plans with respect to one program
participant, but not necessarily all joint
program participants.
Recordkeeping (§ 5.168)
New § 5.168 requires program
participants to maintain sufficient
PO 00000
Frm 00024
Fmt 4701
Sfmt 4702
records that would enable the
Responsible Civil Rights Official to
determine whether the program
participant has complied with or is
complying with their AFFH obligations.
This provision permits access to records
by the Responsible Civil Rights Official
to make such a determination and sets
out examples of the types of records
program participants should maintain in
order to demonstrate their compliance
with this proposed rule. By providing
examples of the types of records HUD
would expect program participants to
maintain, HUD is providing notice to
program participants about how to best
demonstrate their compliance to HUD.
Compliance Procedures (§ 5.170)
New § 5.170 creates a process that
allows members of the public to submit
information to HUD alleging that a
program participant has failed to
comply with this proposed rule or its
Equity Plan, or that the program
participant has taken action that is
materially inconsistent with its
obligation to affirmatively further fair
housing, as defined in this proposed
rule. It then provides that, in response
to such a complaint or of its own
accord, HUD may initiate an
investigation to determine the program
participant’s compliance following
procedures consistent with existing
processes used for other Federal civil
rights statutory and regulatory
requirements accompanying the receipt
of Federal financial assistance, such as
title VI of the Civil Rights Act of 1964
and section 504 of the Rehabilitation
Act of 1973. See 24 CFR parts 1 (Title
VI) and 8 (Section 504).
As described above, HUD does not
intend the complaint process to be used
to relitigate decisions made by program
participants in the planning process
after opportunity for community input
and HUD’s acceptance of an Equity
Plan. HUD specifically seeks comment
on how it can effectively implement a
complaint and compliance review
process that works in tandem with the
proposed planning process including
specific regulatory text that would be in
accord with these principles. HUD also
seeks comment on whether and the
extent to which setting out an AFFH
complaint and compliance review
process is likely to facilitate AFFH
compliance. HUD recognizes that any
investigation creates some burden on
program participants and seeks
comment on ways HUD can minimize
the burden associated with an
investigation while maintaining a
mechanism for effectively enforcing the
Fair Housing Act’s AFFH mandate.
E:\FR\FM\09FEP2.SGM
09FEP2
khammond on DSKJM1Z7X2PROD with PROPOSALS2
Federal Register / Vol. 88, No. 27 / Thursday, February 9, 2023 / Proposed Rules
Paragraph (a)(1) provides for
submission of complaints and describes
the permissible subject matter of such
complaints. A complaint must allege the
failure to comply with a specified
requirement of this proposed rule; a
failure to meet specific commitments a
program participant has undertaken in
the Equity Plan; or that the program
participant has acted or is acting in a
manner that is materially inconsistent
with its obligation to affirmatively
further fair housing, as defined in this
regulation. This subject matter
restriction is intended to make clear that
HUD does not view the complaint
process as a vehicle for general
complaints about the activities of HUD
program participants that lack nexus to
the AFFH requirement.
With respect to allegations that a
program participant is failing to meet its
Equity Plan commitments, HUD
understands that accomplishing the
goals set out in Equity Plans will not
always happen immediately.
Accordingly, the complaint process
should not be used to attempt to
micromanage the pace and manner in
which they are accomplished, so long as
program participants are continuing to
make efforts to comply. Similarly, a
program participant’s inability to meet
an Equity Plan commitment because of
circumstances beyond its control will
not be treated as a violation, though the
program participant will be expected to
disclose those circumstances in its
annual progress evaluation and should
seek to modify the relevant portion of its
Equity Plan. With respect to claims that
a program participant is acting in a
manner that is materially inconsistent
with its AFFH obligation, that standard
is intended to mirror the certification
that program participants make
regularly that they will take no action
materially inconsistent with that
obligation. It is not intended to create
any new substantive requirement for
program participants, but rather to
provide a manageable and predictable
process to investigate and enforce
compliance with the existing AFFH
obligation in a manner that does not
necessarily require HUD to challenge
the validity of the certifications
submitted in connection with the
receipt of Federal financial assistance.
There is no requirement that each
individual action program participants
take be in furtherance of the AFFH
obligation, but rather program
participants’ actions must collectively
affirmatively further fair housing and
they may not take actions that are
materially inconsistent with their
obligation to affirmatively further fair
VerDate Sep<11>2014
16:40 Feb 08, 2023
Jkt 259001
housing. Therefore, it generally would
be insufficient for a complainant to
allege that a routine decision made or
routine action taken by a program
participant does not affirmatively
further fair housing. HUD seeks
comment on whether it should further
clarify the scope of permissible
complaints, including by reference to
specific examples of subject matter that
would or would not be the appropriate
basis of a complaint.
Paragraph (a)(2) further describes the
procedures HUD will utilize when a
complaint regarding a program
participant’s obligation to affirmatively
further fair housing is received.
Paragraph (a)(3) provides that
complaints shall be filed within 365
days of the date of the last incident of
the alleged violation, unless the
Responsible Civil Rights Official
extends the time limit for good cause,
such as where the complaint concerns
an alleged violation that took place
more than a year previously but was not
disclosed to the public until more
recently.
Paragraph (b) sets forth the
procedures HUD will utilize when it
initiates an investigation of either a
complaint filed with the Department or
a review initiated by the Department, in
order to ascertain whether there has
been a failure to comply with the
program participant’s obligation to
affirmatively further fair housing.
Paragraphs (b)(1) and (2) provide that
the Responsible Civil Rights Official
will provide notice to the program
participant of the investigation, and may
conduct interviews, request records, and
obtain other information required to
determine whether there has been a
failure to comply. Paragraph (b)(3)
provides that the Responsible Civil
Rights Official shall attempt informal
resolution where appropriate. In doing
so, HUD will be mindful that program
participants may have multiple ways
available to them to remedy an alleged
violation. While HUD believes it is
helpful to provide a program participant
with suggested remedies to facilitate
discussions of appropriate resolutions,
it does not intend to be prescriptive
about the remedy a program participant
ultimately agrees to so long as it is
adequate to address the alleged
violation. Paragraph (b)(3) also sets out
the process that will occur if an
informal resolution with the program
participant cannot be achieved and a
violation is found—the Responsible
Civil Rights Official will issue a Letter
of Findings. Paragraphs (b)(4) through
(6) set out the required contents of a
Letter of Findings, including findings of
facts and conclusions of law, a
PO 00000
Frm 00025
Fmt 4701
Sfmt 4702
8539
description of a remedy for each
violation found, and notice of the rights
and procedures under §§ 5.172 and
5.174, which include the right of the
program participant or complainant (if
any) to request review of the Letter of
Findings within 30 calendar days from
the date of issuance and the procedures
for such a review.
Paragraph (c) provides that the
mechanism for informal resolution of
matters is through either the execution
of a Voluntary Compliance Agreement
between the program participant and
HUD, which may occur at any stage of
processing of the matter, or, in
appropriate circumstances, the
Responsible Civil Rights Official may
seek, in lieu of a Voluntary Compliance
Agreement, assurances or special
assurances of compliance.
Paragraph (d) makes it a violation of
this proposed rule for a program
participant or other person to
intimidate, threaten, coerce, or
discriminate against any person for the
purpose of interfering with any right or
privilege secured by this proposed rule
or the Fair Housing Act because of
testimony, assistance, or participation in
any manner in the filing of a complaint,
an investigation, proceeding, or hearing
under §§ 5.150 through 5.180. HUD
takes seriously allegations of retaliation
and will investigate such claims.
The provisions above are largely
modeled on existing HUD regulations
with respect to complaints regarding
and enforcement of civil rights
requirements that attach to the receipt of
Federal financial assistance, such as
Title VI and Section 504. HUD has used
those regulations as a model because
they are familiar to HUD and to program
participants. HUD seeks comment on
whether any modifications to these
procedures are appropriate for purposes
of considering alleged violations of the
AFFH obligation.
Procedures for Effecting Compliance
(§ 5.172)
New § 5.172 sets forth the procedures
HUD will follow when informal or
voluntary resolution through a
Voluntary Compliance Agreement
cannot be achieved. Paragraph (a)
provides the non-exhaustive list of ways
in which the Responsible Civil Rights
Official may effect compliance, which
include: a referral to the Department of
Justice with a recommendation that
appropriate proceedings be brought to
enforce the rights of the United States
under any law of the United States, or
any assurance or contractual
undertaking (which includes the
assurances and certifications made in
connection with grant agreements and
E:\FR\FM\09FEP2.SGM
09FEP2
khammond on DSKJM1Z7X2PROD with PROPOSALS2
8540
Federal Register / Vol. 88, No. 27 / Thursday, February 9, 2023 / Proposed Rules
the requirements of this proposed rule);
the initiation of an administrative
proceeding by filing a Complaint and
Notice of Proposed Adverse Action
pursuant to 24 CFR 180.415, which may
seek the suspension or termination of or
refusal to grant or to continue to grant
Federal financial assistance along with
any other appropriate relief to remedy
the noncompliance with this proposed
rule; the initiation of debarment
proceedings pursuant to 2 CFR part
2424; and any applicable proceeding
under State or local law. This paragraph
incorporates the familiar and
longstanding mechanisms that HUD
uses to effect compliance with fair
housing and civil rights requirements by
recipients of Federal financial
assistance.
Paragraph (b) provides for the
remedies that will be available to the
Department if a program participant
fails or refuses to furnish an assurance
required under § 5.160(i), § 5.162(e), or
§ 5.170(c), or if the program participant
otherwise fails to comply with the
requirements of this proposed rule.
Specifically, in these circumstances, the
Department may seek to terminate,
refuse to grant, or not continue Federal
financial assistance. Paragraph (c)
further details the predicate steps that
must occur prior to an order
suspending, terminating, or refusing to
grant or continue Federal financial
assistance becomes effective. These
procedures are intended to ensure that
program participants’, as recipients of
entitlement grants from HUD, due
process rights are satisfied prior to any
termination, suspension, or refusal to
grant or to continue to grant Federal
funds. Like those in paragraph (c), the
procedures in paragraph (d) are the
same procedures that exist under the
other Federal civil rights statutes
requiring compliance by recipients in
connection with the receipt of Federal
funds. As drafted in this proposed rule,
these procedures are written in a
manner to give program participants
greater clarity as to how this process
will be operationalized. Furthermore,
Paragraph (d) ensures that HUD will
provide appropriate and proper notice
to the State or local government official
when the Secretary determines that a
recipient of Federal financial assistance
under title I of the Housing and
Community Development Act of 1974,
as amended (42 U.S.C. 5301–5318) has
failed to comply with this proposed
rule. This notice is intended to
safeguard the due process rights of
recipients and is consistent with
regulatory and statutory requirements of
VerDate Sep<11>2014
16:40 Feb 08, 2023
Jkt 259001
the Community Development Block
Grant program.
Hearings (§ 5.174)
New § 5.174 describes the procedures
for administrative hearings that HUD
will follow should it need to effect
compliance by filing a Complaint and
Proposed Notice of Adverse Action
pursuant to 24 CFR 180.415 before
HUD’s administrative law judges. These
procedures are consistent with the
hearing procedures contained in other
regulatory schemes implementing the
Federal civil rights laws, such as title VI
of the Civil Rights Act of 1964 and
section 504 of the Rehabilitation Act of
1973. They should be familiar to both
HUD and program participants and are
generally governed by HUD’s regulation
on Consolidated HUD Hearing
Procedures for Civil Rights Matters at 24
CFR part 180. However, this provision
is included to ensure that program
participants understand the procedures
that would be applicable.
Conforming Amendments Consolidated
Plan Regulations (24 CFR Part 91)
Because the AFFH regulation in 24
CFR part 5 builds on existing
consolidated plan regulations with
respect to the community engagement
process, the obligation to incorporate
fair housing goals from the Equity Plan
into subsequent planning documents,
the submission of certifications, and
procedures for effecting compliance
with this proposed rule, conforming
amendments to the consolidated plan
regulations must be made to reflect the
incorporation of the Equity Plan process
into the consolidated planning process.
Applicability (§ 91.2)
This section specifies that all
programs covered by the consolidated
plan must comply with the
requirements to affirmatively further fair
housing.
Definitions (§ 91.5)
Section 91.5, the definition section of
HUD’s consolidated plan regulations,
would be revised to reflect that the term
‘‘Equity Plan’’ is defined in 24 CFR part
5.
Consultation; Local Governments
(§ 91.100)
Section 91.100 of HUD’s consolidated
plan regulations would be amended to
account for the community engagement
process and procedures required for the
development of the Equity Plan
pursuant to § 5.158.
Paragraph (c) of § 91.100, which
requires the local government to consult
with the local PHA, would be amended
PO 00000
Frm 00026
Fmt 4701
Sfmt 4702
to provide that the jurisdiction must
also consult with the PHA regarding the
Equity Plan, including affirmatively
furthering fair housing strategies and
meaningful actions that will implement
the fair housing goals from the Equity
Plan.
The proposed rule adds a new
paragraph (e) to § 91.100 to address the
requirement to affirmatively further fair
housing. Paragraph (e) provides that the
local government shall consult with
community- and regionally-based
organizations that represent protected
class members or enforce fair housing
laws, such as state or local fair housing
enforcement agencies, including
participants in the Fair Housing
Assistance Program (FHAP), fair
housing organizations and other nonprofit organizations that receive funding
under the Fair Housing Initiative
Program (FHIP), and other public and
private fair housing service agencies, to
the extent such entities operate within
its jurisdiction.
As noted in paragraph (e), this
consultation will help provide a better
basis for the local government’s Equity
Plan, its certification to affirmatively
further fair housing and other portions
of the consolidated plan concerning
affirmatively furthering fair housing.
Paragraph (e) provides that the
consultation required under this
paragraph can occur with any
organizations that have the capacity to
engage with data informing the Equity
Plan and are sufficiently independent
and representative to provide
meaningful feedback to a jurisdiction on
the Equity Plan, the consolidated plan,
and their implementation. A Fair
Housing Advisory Council or similar
group that includes community
members and advocates, fair housing
experts, housing and community
development industry participants, and
other key stakeholders can meet this
critical consultation requirement.
The proposed rule requires
consultation to occur throughout the fair
housing planning process, meaning that
the jurisdiction will consult with the
organizations described in this section
in the development of both the Equity
Plan and the consolidated plan. The
AFFH-related consultation on the
consolidated plan shall specifically seek
input into how the fair housing goals
identified in the accepted Equity Plan
will be incorporated into the
consolidated plan, including funding
allocations. This community input and
consultation is critical to ensure that the
jurisdiction is meeting the fair housing
needs of the community through the
implementation of the fair housing goals
E:\FR\FM\09FEP2.SGM
09FEP2
Federal Register / Vol. 88, No. 27 / Thursday, February 9, 2023 / Proposed Rules
from the Equity Plan into the
consolidated plan.
khammond on DSKJM1Z7X2PROD with PROPOSALS2
Citizen Participation Plan; Local
Governments (§ 91.105)
This section is amended to provide
program participants with the option to
incorporate and include the community
engagement requirements from § 5.158
for the development of the Equity Plan
into the requirements governing the
local government’s citizen participation
plan, should the program participant
decide to do so. While reference to the
Equity Plan is made throughout
§ 91.105, the amendments to specifically
note are as follows:
Paragraph (a)(1) distinguishes the
citizen participation plan required for
purposes of the consolidated plan from
the community engagement
requirements of § 5.158 for purposes of
the Equity Plan. This paragraph
provides jurisdictions with the
flexibility to include the policies and
procedures it will undertake for
purposes of the Equity Plan in the
citizen participation plan, so long as all
requirements for community
engagement contained in §§ 5.150
through 5.180 are included in the
citizen participation plan; however, this
paragraph does not require program
participants to amend their citizen
participation plans should they choose
to undertake community engagement for
purposes of the Equity Plan separate
from citizen participation for purposes
of the consolidated plan.
Paragraph (a)(2)(i) of this section
would be amended to add explicit
reference to residents and other
interested parties, including members of
protected class groups that have
historically been denied equal
opportunity and underserved
communities, that are encouraged to
participate in the development of the
Equity Plan and revisions to the Equity
Plan, along with participation in the
development of the consolidated plan
and substantial amendments to the
consolidated plan.
Paragraph (a)(2)(ii), which encourages
the participation of local and regional
institutions, would be amended to
reflect that such participation is not
only important to the consolidated plan
but to the Equity Plan as well.
Paragraph (a)(2)(iii), which addresses
consultation with PHAs, would be
amended to include how the
jurisdiction will consult with the PHA
regarding the jurisdiction’s Equity Plan
and how the jurisdiction will
affirmatively further fair housing
through implementation of its fair
housing goals from the Equity Plan.
VerDate Sep<11>2014
16:40 Feb 08, 2023
Jkt 259001
Paragraph (a)(2)(iv) of this section,
which encourages the jurisdiction to
explore alternative techniques to
encourage public engagement in the
development of the consolidated plan
and Equity Plan would be amended to
note that, to the extent the jurisdiction
includes the community engagement
requirements for the Equity Plan in its
citizen participation plan, the
techniques described must be consistent
with the requirements at § 5.158,
including the nondiscrimination
requirements detailed in that section.
Paragraph (a)(3) would be amended to
ensure jurisdictions meet their civil
rights obligations when seeking
comment on proposed plans,
particularly with respect to individuals
with disabilities and limited English
proficient (LEP) residents of the
community.
Paragraph (a)(4) would be amended to
set forth how the requirements of
paragraph (a)(3) apply to the Equity
Plan’s development for purposes of
providing language assistance to ensure
meaningful access to participation by
LEP residents.
The proposed rule adds new
paragraph (a)(5) to detail for
jurisdictions how to meet their
obligation to ensure effective
communication with persons with
disabilities during the development of
the consolidated plan and Equity Plan.
These requirements are consistent with
those contained in the implementing
regulations for section 504 of the
Rehabilitation Act and title II of the
Americans with Disabilities Act.
Paragraph (b) of § 91.105 would be
amended to provide that to the extent
the program participant includes the
Equity Plan and the requirements of
§ 5.158 in their citizen participation
plan, those requirements would be in
addition to the requirements for the
consolidated plan, which are described
in paragraph (b)(1).
Paragraph (c) of § 91.105 would be
amended so that the local government
must specify the criteria the local
government will use for determining
when revisions to the Equity Plan will
be appropriate, and provides that, at a
minimum, the local government’s
criteria must include the criteria
specified in 24 CFR 5.164, if the Equity
Plan is included in the citizen
participation plan.
Paragraph (e) of § 91.105 would be
amended to address the existing
requirement for the number of public
hearings to hold on the jurisdiction’s
consolidated plan and how those
requirements differ from what is
required for the development of the
Equity Plan pursuant to § 5.158.
PO 00000
Frm 00027
Fmt 4701
Sfmt 4702
8541
Paragraphs (f), (g), (i), and (j), would
each be revised to reference the Equity
Plan and the applicable fair housing and
civil rights requirements for conducting
meetings and making documents
publicly available. In addition,
paragraph (j) would be amended to
explain that the complaint procedures
the jurisdiction establishes in the citizen
participation plan are applicable to the
consolidated plan and are distinct from
the processes that apply to the Equity
Plan set forth at §§ 5.158(i) and 5.170.
Consultation; States (§ 91.110)
This section would be revised to
provide for the Equity Plan to be subject
to the same consultation requirements
as State consolidated plans. Two new
paragraphs would be added to
paragraph (a) of this section.
Paragraph (a)(1) would specifically
address consultation pertaining to
public housing, with the objective to
ensure that the PHA Plan is consistent
with the consolidated plan, including
with respect to the fair housing goals
established in the Equity Plan.
Paragraph (a)(2) would address
consultation pertaining to affirmatively
furthering fair housing, with the
objective to ensure that there is a
meaningful Equity Plan.
Citizen Participation Plan; States
(§ 91.115)
References to the Equity Plan would
be added to paragraphs (a)(1) and (2) of
this section. The amendments to this
section include the revisions to
paragraphs (a)(3) and (4) that would
require reasonable efforts to provide
language assistance to LEP residents and
adding new paragraph (a)(5) that
requires ensuring effective
communication with persons with
disabilities, as required by section 504
of the Rehabilitation Act and title II of
the Americans with Disabilities Act, and
their respective implementing
regulations.
Paragraph (b) of this section, which
addresses development of the
consolidated plan, would be amended
to address development of the Equity
Plan in addition to the consolidated
plan, to the extent the State decides to
include the Equity Plan in its citizen
participation plan.
Paragraphs (f) and (h) of this section,
which address availability of
information to the public’s access to
records, and complaints, respectively,
would be amended to reference the
Equity Plan. Paragraph (h) would also
be revised to make clear that the
complaint process in the State’s citizen
participation plan is distinct from the
E:\FR\FM\09FEP2.SGM
09FEP2
8542
Federal Register / Vol. 88, No. 27 / Thursday, February 9, 2023 / Proposed Rules
processes that apply to the Equity Plan
set forth at §§ 5.158(i) and 5.170.
Strategic Plan (§ 91.215)
This section of the consolidated plan
regulations describes the prescribed
content of the local government’s
strategic plan. This proposed rule adds
to this section a new paragraph (a)(5)
that requires the jurisdiction’s
consolidated plan to describe how the
priorities and specific objectives of the
jurisdiction will affirmatively further
fair housing, and that the description
should be done by setting forth
strategies and actions consistent with
the goals and other elements identified
in an Equity Plan conducted in
accordance with § 5.154. New paragraph
(a)(5) provides that for issues not
addressed by these priorities and
objectives, the plan must identify how
these goals have been incorporated into
the plan consistent with the
requirements of §§ 5.150 through 5.180.
khammond on DSKJM1Z7X2PROD with PROPOSALS2
Action Plan (§ 91.220)
This section of the consolidated plan
regulations lists the items that comprise
a local government’s action plan.
Paragraph (k) of § 91.220 is divided into
two paragraphs. Paragraph (k)(1)
requires the action plan to address the
actions that the local government plans
to take during the next year to address
fair housing issues identified in the
Equity Plan. Paragraph (k)(2) addresses
the existing provision of paragraph (k),
which is the requirement of the local
government to list the actions that it
plans to take to address, among other
things, obstacles to meeting underserved
needs, and fostering and maintaining
affordable housing.
Paragraph (l) of this section, which
sets forth the program-specific
requirements, would be revised to
include references to the Equity Plan
and the fair housing goals incorporated
from the Equity Plan for purposes of
how they relate to each program covered
by the Action Plan.
Certifications (§ 91.225)
The proposed rule would amend
paragraph (a)(1) of this section to
require the local government’s
certification that it will affirmatively
further fair housing and it will take no
action that is materially inconsistent
with fair housing and civil rights
requirements throughout the period for
which Federal financial assistance is
extended.
Monitoring (§ 91.230)
The proposed rule revises this section
to provide that a local government’s
monitoring of its activities carried out in
VerDate Sep<11>2014
16:40 Feb 08, 2023
Jkt 259001
furtherance of the consolidated plan,
must include monitoring of strategies
and actions that address the fair housing
issues identified in the Equity Plan.
Special Case: Abbreviated Consolidated
Plan (§ 91.235)
Paragraph (c) of this section, which
defines what is an abbreviated plan, is
revised to provide that the abbreviated
plan must describe how the jurisdiction
will affirmatively further fair housing by
addressing issues identified in an Equity
Plan conducted in accordance with 24
CFR 5.154.
Housing and Homeless Needs
Assessment (§ 91.305)
The proposed rule would amend
§ 91.305, which requires States to
provide a concise summary of the
estimated housing needs projected for
the ensuing 5-year period, would be
revised in paragraph (b), which requires
a description of the persons affected
under the plan, in order to allow States
to utilize the analysis contained in the
Equity Plan relating to affordable
housing opportunities pursuant to
§§ 5.152 and 5.154 to satisfy this
requirement, to the extent the Equity
Plan already contains such information.
Strategic Plan (§ 91.315)
This section of the consolidated plan
regulations describes the prescribed
content of the State government’s
strategic plan. The changes made to this
section mirror the changes made to
§ 91.215.
Action Plan (§ 91.320)
This section of the consolidated plan
regulations describes the prescribed
content of the State government’s action
plan. The changes made to this section
mirror the changes made to § 91.220, but
are found in paragraph (j) of § 91.320. In
addition, paragraph (k) of this section,
which describes the program-specific
requirements, would be revised to
distinguish any activities or procedures
applicable for programmatic
requirements from those relating to fair
housing and civil rights requirements,
including the obligation to affirmatively
further fair housing.
Certifications (§ 91.325)
Similar to the amendment to § 91.225,
the proposed rule would amend
paragraph (a)(1) of § 91.325 to require
the State’s certification that it will
affirmatively further fair housing and
that it will take no action that is
materially inconsistent with fair
housing and civil rights requirements
throughout the period for which Federal
financial assistance is extended.
PO 00000
Frm 00028
Fmt 4701
Sfmt 4702
Monitoring (§ 91.330)
This section of the consolidated plan
regulations describes the State’s
monitoring of its activities carried out in
furtherance of the consolidated plan.
The changes made to this section mirror
the changes made to § 91.230.
Strategic Plan (§ 91.415)
This section of the consolidated plan
regulations describes the prescribed
content of a consortium’s strategic plan.
This section requires a consortium to
comply with the provisions of § 91.215,
which is proposed to be revised by this
rule to incorporate the Equity Plan in
the strategic plan. The change that
would be made to § 91.415 by this rule
is to require the consortium to set forth,
in its strategic plan, strategies and
actions consistent with the fair housing
goals identified in an Equity Plan
conducted in accordance with new
§§ 5.150 through 5.180.
Action Plan (§ 91.420)
This section of the consolidated plan
regulations describes the prescribed
content of a consortium’s action plan.
Paragraph (b) of § 91.420 is revised to
provide that the action plan must
include actions that the consortium
plans to take during the next year that
will address fair housing issues
identified in the consortium’s Equity
Plan.
Certifications (§ 91.425)
As with the amendments to §§ 9.225
and 91.325, the proposed rule would
amend paragraph (a)(1) of this section to
require the consortium’s certification
that it will affirmatively further fair
housing and that it will take no action
that is materially inconsistent with fair
housing and civil rights requirements
throughout the period for which Federal
financial assistance is extended.
Monitoring (§ 91.430)
This section of the consolidated plan
regulations describes the consortium’s
monitoring of its activities carried out in
furtherance of the consolidated plan.
The changes made to this section mirror
the changes made to § 91.230.
HUD Approval Action (§ 91.500)
This section of the consolidated plan
regulations sets out, among others, the
standards by which HUD will review a
submitted consolidated plan. Paragraph
(b) of this section would be revised to
make clear for program participants that
the standards set forth in this section are
for purposes of the consolidated plan
and are distinct from the standards at
§ 5.162 for purposes of the Equity Plan.
E:\FR\FM\09FEP2.SGM
09FEP2
Federal Register / Vol. 88, No. 27 / Thursday, February 9, 2023 / Proposed Rules
Amendments to the Consolidated Plan
(§ 91.505)
Other Federal Requirements and
Nondiscrimination (§ 92.350)
This section lists the criteria and
procedures by which a jurisdiction must
amend its approved consolidated plan.
The proposed rule adds a new
paragraph (a)(4) to allow amendments to
the plan to make necessary changes to
account for any revisions to an Equity
Plan that is accepted or revised
pursuant to § 5.164 after a consolidated
plan is in effect.
This section requires participating
jurisdictions to comply with Federal
requirements, including
nondiscrimination requirements.
Paragraph (a) of this section would be
amended to include the obligation to
affirmatively further fair housing.
HOME Investment Partnerships (HOME)
Program Regulations (24 CFR Part 92)
Definitions (§ 92.2)
Section 92.2, the definitions section of
HUD’s HOME regulation, would be
revised to reflect that the terms
‘‘affirmatively furthering fair housing’’
and ‘‘Equity Plan’’ are defined in 24
CFR part 5.
Affirmatively Furthering Fair Housing
(§ 92.5)
This section specifics that all
participating jurisdictions must comply
with the requirements to affirmatively
further fair housing.
Program Description (§ 92.61)
This section sets forth how a recipient
will structure its use of HOME funds.
Paragraph (c)(5) of this section specifies
the certifications required for insular
areas and would be amended to account
for an insular area’s obligation to
affirmatively further fair housing and
conduct its federally funded programs
and activities in a manner that is
consistent with Federal fair housing and
civil rights requirements.
Submission of a Consolidated Plan and
Equity Plan (§ 92.104)
This section of the HOME program
regulations which addresses the
responsibility of a participating
jurisdiction to submit its consolidated
plan to HUD is revised to provide that
the jurisdiction must also submit its
Equity Plan to HUD in accordance with
the AFFH regulations in 24 CFR part 5,
subpart A.
khammond on DSKJM1Z7X2PROD with PROPOSALS2
Eligible Administrative and Planning
Costs (§ 92.207)
This section sets forth the eligible
administrative and planning costs for
the HOME program. Paragraph (d) of
this section specifically allows for
activities relating to fair housing and the
obligation to affirmatively further fair
housing, and would be amended to
cross reference certifications under
§ 5.166.
VerDate Sep<11>2014
16:40 Feb 08, 2023
Jkt 259001
Affirmative Marketing; Minority
Outreach Program (§ 92.351)
This section requires each
participating jurisdiction to adopt and
follow affirmative marketing procedures
and requirements. Paragraph (a) would
be amended for consistency with the
obligation to affirmatively further fair
housing and to better clarify a
recipient’s affirmative marketing
obligations.
Recordkeeping (§ 92.508)
The proposed rule would amend the
recordkeeping requirements of the
HOME program to provide in paragraph
(a)(7)(i)(B) of this section to require as
part of the documentation that the
participating jurisdiction has taken
actions to affirmatively further fair
housing, including documentation
relating to the participating
jurisdiction’s Equity Plan and the
requirements at § 5.168, as well as
documentation relating to the
participating jurisdiction’s AFFH
certification.
Housing Trust Fund (HTF) Regulations
(24 CFR Part 93)
Definitions (§ 93.2)
Section 93.2, the definitions section of
HUD’s HTF regulation, would be
revised to include introductory text to
reflect that the terms ‘‘affirmatively
furthering fair housing’’ and ‘‘Equity
Plan’’ are defined in 24 CFR part 5.
Affirmatively Furthering Fair Housing
(§ 93.4)
This section specifics that all
recipients of HTF funds must comply
with the requirements to affirmatively
further fair housing.
Participation and Submission
Requirements (§ 93.100)
Section 93.100 requires a grantee to
submit a consolidated plan in order to
receive HTF grants. The proposed rule
would amend this section, at paragraph
(b), to also include the requirement to
submit an Equity Plan.
Eligible Activities; General (§ 93.200)
This section of the HTF regulation
details the general activities that are
eligible to be funded using the HTF
PO 00000
Frm 00029
Fmt 4701
Sfmt 4702
8543
grant. Paragraph (a)(1) would be
amended by this proposed rule, for
consistency with other program
regulations for which a consolidated
plan is required, to clarify that to the
extent the activities in question
otherwise are eligible, one potential use
of HTF funds may be to implement fair
housing goals from an Equity Plan
developed pursuant to §§ 5.150 through
5.180.
Eligible Administrative and Planning
Costs (§ 93.202)
This section of the HTF regulation
describes the eligible administrative and
planning costs for administering the
HTF program. The changes made to this
section mirror the changes made to
§ 92.207.
Other Federal Requirements and
Nondiscrimination; Affirmative
Marketing (§ 93.350)
This section sets forth the generally
applicable nondiscrimination and
affirmative marketing requirements for
purposes of the HTF program. The
changes made to this section are
substantially similar to the changes
made to § 92.351.
Recordkeeping (§ 93.407)
This section requires HTF grantees to
maintain records relating to the
implementation of its HTF program.
This proposed rule would add new
paragraph (a)(1)(vii), which would
require grantees to maintain records
documenting the actions the grantee has
taken to affirmatively further fair
housing, including documentation
related to the grantee’s Equity Plan
described at § 5.168.
Community Development Block Grant
(CDBG) Regulations (24 CFR Part 570)
Definitions (§ 570.3)
Section 570.3, the definitions section
of HUD’s CDBG regulation, would be
revised to reflect that the terms
‘‘affirmatively furthering fair housing’’
and ‘‘Equity Plan’’ are defined in 24
CFR part 5.
Affirmatively Furthering Fair Housing
(§ 570.6)
This section specifies that all
programs covered by this part must
comply with the requirements to
affirmatively further fair housing.
Eligible Planning, Urban Environmental
Design, and Policy Planning
Management—Capacity Building
Activities (§ 570.205)
This section which lists policy
planning and capacity building
activities would add new paragraph
E:\FR\FM\09FEP2.SGM
09FEP2
8544
Federal Register / Vol. 88, No. 27 / Thursday, February 9, 2023 / Proposed Rules
(a)(4)(viii) to reference the Equity Plan.
In paragraph (a)(6) of this section,
references to the implementation of fair
housing goals from the Equity Plan
would be added throughout.
Program Administrative Costs
(§ 570.206)
This section sets forth the permissible
program administrative costs for the
CDBG program and paragraph (c)
specifically lists fair housing activities
as covered by this section. This
proposed rule would revise paragraph
(c) to update terminology that is
outdated.
Citizen Participation—Insular Areas
(§ 570.441)
The amendments to this section
include inserting references to the
Equity Plan.
The heading of this section would be
revised to read ‘‘Civil rights;
affirmatively furthering fair housing;
equal opportunity requirements,’’ and
paragraph (a)(2) of this section would be
amended to provide that the program
participant’s responsibility to undertake
fair housing planning includes taking
meaningful actions to further the fair
housing goals identified in an Equity
Plan that is developed in accordance
with the requirements of §§ 5.150
through 5.180 and that it will take no
action that is inconsistent with fair
housing and civil rights requirements.
Equal Opportunity and Fair Housing
Review Criteria (§ 570.904)
Other Applicable Laws and Related
Program Requirements (§ 570.487)
Paragraph (b) of this section, which
addresses the requirement to
affirmatively further fair housing,
provides that a State is required to
certify to HUD’s satisfaction that it will
affirmatively further fair housing
consistent with the requirements of
§§ 5.150 through 5.180 and will take no
action that is inconsistent with fair
housing and civil rights requirements
throughout the period for which Federal
financial assistance is extended.
Similarly, this paragraph would provide
that each unit of general local
government is also required to make
such a certification.
Recordkeeping Requirements
(§ 570.490)
This section sets forth that States and
local governments that receive CDBG
funds must maintain records and have
requirements for maintaining records of
the administration of CDBG funds.
Paragraphs (a) and (b) of this section
would be revised to include records
relating to the use of CDBG funds for
purposes of affirmatively furthering fair
housing and the grantee’s Equity Plan,
in accordance with § 5.168.
khammond on DSKJM1Z7X2PROD with PROPOSALS2
Public Law 88–352 and Public Law 90–
284; Affirmatively Furthering Fair
Housing; Equal Opportunity; Executive
Order 11063 (§ 570.601)
Paragraph (c)(2) clarifies that the
review undertaken pursuant to this
section is distinct from the procedures
set forth at 24 CFR part 1, 3, 5, 6, 8, or
146 or 28 CFR part 35 conducted by the
Responsible Civil Rights Official, which
are reviews for purposes of determining
a grantee’s compliance with Federal fair
housing and civil rights requirements,
including the grantee’s obligation to
affirmatively further fair housing.
Housing Opportunities for Persons With
AIDS (HOPWA) Regulations (24 CFR
Part 574)
Definitions (§ 574.3)
Section 574.3, the definitions section
of HUD’s HOWPA regulation, would be
revised to reflect that the term
‘‘affirmatively furthering fair housing’’
is defined in 24 CFR part 5.
Affirmatively Furthering Fair Housing
(§ 574.4)
This section specifies that all grantees
must comply with the requirements to
affirmatively further fair housing.
Recordkeeping (§ 574.530)
The proposed rule would amend this
section of the HOPWA regulations to
include documentation of a program
participant’s Equity Plan, consistent
with § 5.168.
Records To Be Maintained (§ 570.506)
Emergency Solutions Grants Program
(ESG) Regulations (24 CFR Part 576)
Similar to the amendment to
§ 570.490, the proposed rule would
amend this section to provide in
paragraph (g)(1) that documentation
related to the grantee’s Equity Plan is
required pursuant to § 5.168.
Definitions (§ 576.2)
VerDate Sep<11>2014
16:40 Feb 08, 2023
Jkt 259001
Section 576.2, the definitions section
of HUD’s ESG regulation, would be
revised to include introductory text to
reflect that the term ‘‘affirmatively
furthering fair housing’’ is defined in 24
CFR part 5.
PO 00000
Frm 00030
Fmt 4701
Sfmt 4702
Affirmatively Furthering Fair Housing
(§ 576.4)
This section specifies that all
recipients of ESG funds must comply
with the requirements to affirmatively
further fair housing.
Recordkeeping and Reporting
Requirements (§ 576.500)
The proposed rule would amend
paragraph (s)(1)(ii) of this section to
provide that documentation related to
its Equity Plan, consistent with § 5.168,
must be maintained.
Public Housing Agency Plans (24 CFR
Part 903)
What is the purpose of this subpart?
(§ 903.1)
The proposed rule would amend this
section to account for the PHA’s
obligation to affirmatively further fair
housing and comply with the
requirements set forth at §§ 5.150
through 5.180.
What are the Public Housing Agency
plans? (§ 903.4)
The proposed rule would add new
paragraph (a)(3) to this section to
explain that the plans described in this
section also include the incorporation of
the fair housing goals established in the
PHA’s Equity Plan pursuant to § 5.156.
What information must a PHA provide
in the 5-year plan (§ 903.6)
The proposed rule would add new
paragraph (a)(4) to this section to
account for the requirement that the 5year plan include the PHA’s fair
housing strategies and meaningful
actions it intends to undertake in order
to implement the fair housing goals
incorporated from the PHA’s Equity
Plan pursuant to § 5.156.
Paragraph (b)(2), which requires the
PHA to account for progress made in
meeting the goals and objectives in the
PHA’s previous 5-year plan, would be
revised to permit PHAs to rely on the
annual progress evaluations required for
the Equity Plan, conducted pursuant to
§§ 5.152, 5.154(i) and (j), 5.156(d), and
5.160(f) and (i) for purposes of meeting
this requirement as it relates to the
PHA’s fair housing goals. This means
PHAs would not be required to compile
new reports on the same information
multiple times.
What information must a PHA provide
in the annual plan? (§ 903.7)
The proposed rule would revise
§ 903.7 to account for the requirement to
develop an Equity Plan and incorporate
the fair housing goals from the Equity
Plan into the PHA Plan. Paragraph
E:\FR\FM\09FEP2.SGM
09FEP2
khammond on DSKJM1Z7X2PROD with PROPOSALS2
Federal Register / Vol. 88, No. 27 / Thursday, February 9, 2023 / Proposed Rules
(a)(1)(iii) would be revised to permit the
PHA, once it has submitted an Equity
Plan pursuant to the submission
schedule at § 5.160, to rely on its
analysis of affordable housing
opportunities and the analysis
conducted pursuant to § 5.154(e) in
connection with its Equity Plan, to the
extent applicable, for purposes of the
PHA’s Annual Plan.
Paragraph (b) of this section would be
revised to require that the PHA’s
deconcentration and other policies that
govern eligibility, selection, and
admission be consistent with the PHA’s
obligation to affirmatively further fair
housing and the PHA’s Equity Plan.
Paragraph (o) of this section would be
revised to indicate that each PHA must
certify, among other things, that it will
affirmatively further fair housing and
that it will take no action that is
materially inconsistent with fair
housing and civil rights requirements
throughout the period for which Federal
financial assistance is extended
pursuant to § 5.166. These revisions
relate to the 5-Year Plan and the Annual
Plan.
reflect the applicable nondiscrimination
requirements and the obligation to
affirmatively further fair housing.
Paragraph (c) is also amended to clarify
the certification the PHA must make
pursuant to § 903.7(o), and the
procedures HUD will follow if HUD
challenges the validity of a PHA’s
certification.
What is a Resident Advisory Board and
what is the role in development of the
annual plan? (§ 903.13)
This section specifies the
requirements for the Resident Advisory
Board, and the proposed rule would
revise paragraphs (a) and (c) to account
for any community engagement
activities relating to the Equity Plan
pursuant to § 5.158, as well as other
consultation requirements relating to
the development of the Equity Plan and
the incorporation of the fair housing
goals from the PHA’s Equity Plan into
the PHA Plan. The revisions to
paragraph (c) also distinguish the
different complaint processes as they
relate to complaints about the PHA Plan
as opposed to complaints relating to the
Equity Plan or the PHA’s obligation to
affirmatively further fair housing.
What is the process by which HUD
reviews, approves, and disapproves an
annual plan? (§ 903.23)
The proposed rule would amend
paragraph (f) of § 903.23 to require
PHAs to maintain records relating to its
Equity Plan, consistent with § 5.168,
and records relating to the PHA’s AFFH
certification.
What is the relationship of PHA Plan to
the Consolidated Plan and a PHA’s Fair
Housing and Civil Rights requirements?
(§ 903.15)
The proposed rule would revise the
heading of this section to include ‘‘civil
rights,’’ as PHAs are subject to
requirements beyond the Fair Housing
Act. The proposed rule would revise
§ 903.15 in paragraph (a) to indicate that
the PHA Plan must be consistent with
any applicable Equity Plan incorporated
into the applicable consolidated plan
pursuant to § 5.156.
Paragraphs (b) and (c) would be
revised to reference the Equity Plan.
Paragraph (c) would also be revised to
VerDate Sep<11>2014
16:40 Feb 08, 2023
Jkt 259001
What is the process for obtaining public
comment process on PHA Plans?
(§ 903.17)
The proposed rule would amend this
section to account for the Equity Plan,
including the community engagement
requirements under § 5.158 and the
obligation to incorporate the Equity
Plan’s fair housing goals into the PHA
Plan pursuant to § 5.156.
When is the 5-year plan or annual plan
ready for submission to HUD? (§ 903.19)
The proposed rule would add new
paragraph (d) to § 903.19 to clarify for
PHAs that the plan is not ready for
submission to HUD until the PHA has
incorporated the fair housing goals from
its Equity Plan.
How does HUD ensure PHA compliance
with its PHA Plan? (§ 903.25)
The proposed rule would amend this
section to clarify that the procedures
HUD will use for the PHA Plan are
different from those HUD will use for
the Equity Plan, and specifies that the
procedures for the Equity Plan are set
forth at §§ 5.162, 5.170, 5.172, and
5.174.
Project-Based Voucher (PBV) (24 CFR
Part 983)
Site Selection Standards (§ 983.57)
The proposed rule would amend
paragraph (b)(1) of § 983.57 to reference
the PHA’s Equity Plan and to remove
paragraph (b)(1)(iii) from this section.
IV. Questions for Comments
HUD welcomes comments on all
aspects of the proposal. In addition,
HUD specifically requests comments on
the following topics:
1. Are there ways in which HUD can
further streamline this proposed rule or
further reduce burden, while continuing
to ensure an appropriate and necessary
fair housing analysis that would enable
PO 00000
Frm 00031
Fmt 4701
Sfmt 4702
8545
program participants to set meaningful
goals that will affirmatively further fair
housing?
2. Does HUD’s removal of the
requirement to identify and prioritize
contributing factors still allow for a
meaningful analysis that will allow
program participants to set goals for
overcoming systemic and longstanding
inequities in their jurisdictions? If not,
how can HUD ensure that such an
analysis occurs without imposing undue
burden on program participants?
3. HUD intends to continue to provide
much of the same data it made available
in connection with the implementation
of the 2015 AFFH Rule through the
AFFH–T, which is available at https://
egis.hud.gov/affht/, while exploring
possible improvements to the existing
AFFH–T Data & Mapping Tool. HUD is
also exploring other approaches to
facilitating program participants’ data
analysis and making HUD-provided data
as useful and easy to understand as
possible for program participants and
the public. HUD seeks comment on the
following related questions:
a. This notice of proposed rulemaking
describes potential HUD-provided data,
data and mapping tools, guidance, and
technical assistance that may highlight
some of the key takeaways from the
HUD-provided data and help program
participants identify likely fair housing
issues. Should HUD also provide static
data packages that include some of the
data included in the AFFH–T and a
narrative description of those data? If so,
what data would be most helpful to
include in these data packages and
narrative descriptions? For which
program participants would data
packages and narrative descriptions be
most useful?
b. What additional data and tools
could HUD provide to facilitate a
regional analysis?
c. What types of data relating to
homeownership opportunities should
HUD consider providing? In addition to
data on homeownership rates, which
already are available in the consolidated
planning data (CHAS) (which can be
accessed at https://www.huduser.gov/
portal/datasets/cp.html), including by
protected class, what other data sources
are reflective of disparities in
homeownership opportunity?
d. What other data sources should
HUD provide for program participants
to better identify the various types of
inequity experienced by members of
protected class groups that are the
subject of the proposed rule’s required
analysis?
e. Are there specific functions that
could be included in the AFFH–T to
allow the data to be more usable, more
E:\FR\FM\09FEP2.SGM
09FEP2
khammond on DSKJM1Z7X2PROD with PROPOSALS2
8546
Federal Register / Vol. 88, No. 27 / Thursday, February 9, 2023 / Proposed Rules
clearly displayed, or otherwise easier to
interpret? If so, please provide a
description of such functionality.
f. Should HUD consider providing
data that are not nationally uniform if
they are available for certain program
participants even if such data are not
available for all program participants? If
so, please provide examples of data that
would be useful to provide for which
there is not nationally uniform data and
the reasons why it would be useful for
HUD to provide these data.
g. Are there additional data sets HUD
could provide or require to be used for
purposes of conducting a fair housing
analysis that relate to eviction,
neighborhood features (access to parks,
green space, trees), zoning and land use,
and housing-related costs (like
transportation)?
4. Are there different or additional
regulatory changes HUD could make to
the proposed rule that would be more
effective in affirmatively furthering fair
housing, including ways to improve
access to community assets and other
housing-related opportunities for
members of protected class groups,
including historically underserved
communities, individuals with
disabilities, and other vulnerable
populations?
5. In what ways can HUD assist
program participants in facilitating the
community engagement process so that
the Equity Plans program participants
develop are comprehensive and account
for issues faced by members of protected
class groups and underserved
communities that program participants
may not necessarily be aware of? HUD
specifically seeks feedback on the
following:
a. Should HUD require that a
minimum number of meetings be held
at various times of day and various
accessible locations to ensure that all
members of a community have an
opportunity to be heard? Should HUD
require that at least one meeting be held
virtually?
b. Should HUD provide different
requirements for community
engagement based on the type of
geographic area the program participant
serves (e.g., rural, urban, suburban,
statewide, etc.) and if so, why should
requirements differ based on type of
geography?
c. Should HUD require program
participants to utilize different
technology to conduct outreach and
engagement? If so, which technologies
have proven to be successful tools for
community engagement? Are these
technologies usable by individuals with
disabilities, including those who utilize
assistive technology or require
VerDate Sep<11>2014
16:40 Feb 08, 2023
Jkt 259001
reasonable accommodations such as
real-time captioning or sign-language
interpreters?
d. Has HUD sufficiently distinguished
the differences between community
engagement and citizen participation or
resident participation such that program
participants understand that HUD
expects a more robust engagement
process for purposes of the development
of the Equity Plan than has previously
been required for purposes of
programmatic planning? How can HUD
ensure that these important
conversations are fully had within
communities while not significantly
increasing the burden on program
participants and the communities
themselves? Are there ways in which
HUD can reduce any unnecessary
burden resulting from separate
requirements to conduct community
engagement and citizen participation
(for consolidated plan program
participants) or resident participation
(for PHAs)?
e. Are there specific types of technical
assistance that HUD can provide to
assist program participants in
conducting robust community
engagement, including how community
engagement can inform goal setting,
implementation of goals, and progress
evaluations? If so, please specify the
types of technical assistance that would
be must useful.
f. Should HUD require the community
engagement process to afford a
minimum amount of time for different
types of engagement activities (e.g.,
public comments on proposed Equity
Plans, notice before public meetings)? If
so, what should the minimum amount
of time be in order to afford members of
the community an equal and fair
opportunity to participate in the
development of the Equity Plan?
6. HUD seeks comments on whether
the definition of ‘‘affordable housing
opportunities’’ is sufficiently clear. HUD
also seeks comment on whether the
definition should apply to both rental
and owner-occupied units. Are there
other categories of affordable housing
that should be explicitly referenced in
this definition?
7. HUD has provided a new definition
of ‘‘geographic area of analysis,’’ which
is intended to provide program
participants and the public a clear
understanding of the types and levels of
analysis that are needed by different
types of program participants. Does this
definition clearly articulate the
geographic areas of analysis for each
type of program participant and are the
levels of analyses for the types of
program participants appropriate to
ensure Equity Plans are developed and
PO 00000
Frm 00032
Fmt 4701
Sfmt 4702
implemented in a manner that advances
equity?
8. HUD requests commenters provide
feedback on new § 5.154, which sets out
the content of the Equity Plan. HUD
specifically requests comment on the
following:
a. Are the questions in this proposed
rule at § 5.154 effective for purposes of
how to assess where equity is lacking
and to facilitate the development of
meaningful goals that are designed and
can be reasonably expected to overcome
the effects of past or current policies
that have contributed to a systemic lack
of equity? Put differently, do the
proposed questions clearly elicit from
program participants an assessment of
the fair housing issues that exist and
their causes so that goals can be
appropriately tailored to address the
identified fair housing issues?
b. Does the analysis in proposed
§ 5.154 lend itself to identifying fair
housing issues for each of the following
protected class groups: race, color,
national origin, sex, religion, familial
status, and disability? If not, how can
HUD improve this aspect of the analysis
to better serve this purpose? Are there
additional data sources that would
assist in facilitating this analysis?
c. What additional areas of analysis, if
any, should HUD include in § 5.154 that
are not currently included in this
proposed rule?
d. Should the section on fair housing
goals (§ 5.154(g)) be modified,
improved, or streamlined so that
program participants can set appropriate
goals for overcoming systemic issues
impacting their communities?
e. This proposed rule does not
currently identify which specific maps
and tables contained in the HUDprovided data program participants
should rely on in answering specific
questions provided at § 5.154. Should
HUD require the use of specific data sets
when responding to these questions in
§ 5.154, and if so, what benefit would
that have? How can HUD ensure that
program participants, in using the HUDprovided data, identify the fair housing
issues and underlying reasons for what
the data show in order to assess where
equity is truly lacking in their
geographic areas of analysis?
f. What is the proper regional analysis
program participants should undertake
in order to identify fair housing issues
and set meaningful fair housing goals?
Should different program participants
have different required regional
analyses (e.g., States vs. local
governments; non-statewide PHAs)?
g. Does HUD need to more specifically
explain the required level of geographic
analysis, whether in this rule itself or in
E:\FR\FM\09FEP2.SGM
09FEP2
Federal Register / Vol. 88, No. 27 / Thursday, February 9, 2023 / Proposed Rules
khammond on DSKJM1Z7X2PROD with PROPOSALS2
sub-regulatory guidance, for purposes of
the development of the Equity Plan,
including how different levels of
geographic analysis would facilitate the
setting of fair housing goals that would
result in material positive change that
advances equity within communities?
For example, should HUD require
certain types of program participants to
conduct an analysis at the following
levels of geography for each fair housing
issue: Core-Based Statistical Area,
Metropolitan Statistical Areas, Block
Groups, Census Tracts, and counties?
h. Are there different or additional
questions that HUD should pose to rural
areas to assist such areas in meeting
their obligations to affirmatively further
fair housing? If so, how should the
analysis for rural areas differ from the
required analysis in proposed § 5.154?
i. Has HUD sufficiently explained
how to prioritize fair housing issues
within fair housing goal categories for
purposes of establishing meaningful fair
housing goals? What additional
clarification is needed, if any?
j. In new § 5.154(e), the required
analysis for public housing agencies
(PHAs), has HUD sufficiently tailored
the analysis required for these entities,
in particular for small or rural PHAs,
while still ensuring the PHA’s Equity
Plan is developed and implemented in
a manner that advances equity for
members of protected class groups,
particularly those the PHAs serves or
who are eligible to be served by the
PHA? How can HUD continue to
streamline the required analysis for
PHAs while also ensuring an
appropriate fair housing analysis is
conducted and meaningful fair housing
goals are established and implemented?
k. Are there areas of analysis that
HUD should include for PHAs that it
has not included in this proposed rule
that would better assist PHAs in
meeting their obligation to affirmatively
further fair housing? This may include
analysis addressed to PHA-specific
programs, such as public housing,
vouchers, Moving To Work, or other
PHA programs, as well as by type of
PHA, such as troubled or qualified
PHAs.28
28 Section 2702 of title II of the Housing and
Economic Recovery Act (HERA) introduced a
definition of ‘‘qualified PHAs’’ to exempt such
PHAs, that is, PHAs that have a combined total of
550 or fewer public housing units and Section 8
vouchers, are not designated as troubled under
section 6(j)(2) of the 1937 Act, and do not have a
failing score under the Section Eight Management
Assessment Program (SEMAP) during the prior 12
months, from the burden of preparing and
submitting an annual PHA Plan. See Public Law
110–289, 122 Stat. 2654, approved July 30, 2008,
see 122 Stat. 2863.
VerDate Sep<11>2014
16:40 Feb 08, 2023
Jkt 259001
l. Are there additional ways HUD
could incentivize PHAs to collaborate
with consolidated plan program
participants in conducting an Equity
Plan such that they can pool resources
and develop broader solutions to fair
housing issues?
m. Since HUD has removed the
requirement to identify and prioritize
contributing factors, as was required by
the Assessment Tool under the 2015
AFFH Rule, do the questions in § 5.154
appropriately solicit responses that
would include the underlying causes of
the fair housing issues identified?
n. Are there specific questions HUD
should ask that it has not proposed in
§ 5.154 of this proposed rule?
9. In order to reduce burden on
program participants, and based on the
lessons learned from the
implementation of the 2015 AFFH Rule,
HUD requests comments on how Equity
Plans should be submitted to the
Department (e.g., through a secure
portal, via email, through a web page
that allows uploads, etc.) and whether
HUD should mandate the file format the
Equity Plan is submitted in (e.g., MS
Word, PDF, etc.).
10. HUD has included several new
definitions in this proposed rule and
requests feedback on whether they
should be drafted differently, whether
there may be additional definitions that
are not included that would be useful,
and whether any definitions included in
this proposed rule are unnecessary.
11. Has HUD appropriately captured
the types of populations—based on the
characteristics protected by the Fair
Housing Act—that have historically
been underserved and continue to be
underserved today in communities in
the new definition of ‘‘Underserved
communities,’’ and if not, which
additional types of populations or
groups should HUD consider adding to
this definition?
12. HUD requests feedback on
whether including the definition of
‘‘Balanced approach’’ is helpful in
understanding how to connect funding
decisions to advancing equity within
communities and how this definition
can be modified or improved in order to
more clearly make that connection.
13. HUD has changed the way
submission deadlines are determined
from the way submission deadlines
were established under the 2015 AFFH
Rule and requests feedback on whether
the new submission deadlines provided
in § 5.160 are clearer and are the
appropriate way to create tiers for the
submission by entities of different sizes.
HUD welcomes feedback on different
cutoffs for this section that are
accompanied by explanations of why
PO 00000
Frm 00033
Fmt 4701
Sfmt 4702
8547
different cut offs should be used instead
of those in this proposed rule. HUD also
welcomes comment on whether the
timeframes set out in § 5.162 are
appropriate and what, if any, obstacles
might these new timeframes present
with respect to the development of the
Equity Plan and compliance with other
programmatic requirements?
14. HUD seeks comment on whether
it should require new program
participants to engage in any specific
planning process or other actions to
meet their obligation to affirmatively
further fair housing prior to the
submission of their first Equity Plan.
15. HUD requests specific feedback on
new sections §§ 5.170 through 5.174 and
whether the compliance procedures and
procedures for effecting compliance can
be further clarified and improved.
16. This proposed rule provides a
stronger link between the regulatory
requirements for implementing the
AFFH mandate and program
participants’ subsequent planning
processes in order to better ensure that
all programs and activities are
administered in a manner that
affirmatively furthers fair housing,
including by taking into account how to
allocate funding to effectuate that
obligation. HUD requests comments on
how HUD can further ensure that
program participants are adequately
planning to carry out activities
necessary to advance equity in their
communities. Specifically, are
certifications and assurances
requirements in this proposed rule,
along with the new regulatory provision
at § 5.166 sufficient to achieve this
objective, and if not, what additional
regulatory language can be added that
would achieve this objective?
17. Has HUD adequately incorporated
the need to assess any lack of
homeownership opportunities for
protected class groups in this proposed
rule? If not, in what ways should access
to homeownership be further
incorporated? Is there specific data that
HUD could provide to further facilitate
this analysis?
18. Are there other types of
‘‘community assets,’’ that should be
included in the new definition and the
analysis of disparities in access to
opportunity for purposes of the Equity
Plan? If so, which assets should be
included that are not currently included
in this proposed rule?
19. How can HUD best facilitate
receiving feedback on Equity Plans
submitted for its review from members
of the public in order to inform the
review process and how should HUD
consider such feedback? HUD seeks
comment on whether changes to the
E:\FR\FM\09FEP2.SGM
09FEP2
khammond on DSKJM1Z7X2PROD with PROPOSALS2
8548
Federal Register / Vol. 88, No. 27 / Thursday, February 9, 2023 / Proposed Rules
regulatory text are necessary, and
specifically whether the new definition
of ‘‘publication’’ at § 5.152 and the
provisions in § 5.160 achieve this
objective.
20. Are there ways that HUD could
better clarify how the fair housing goals
from an Equity Plan are incorporated
into subsequent planning processes? If
so, how can HUD clarify this
requirement such that program
participants will be able to implement
their fair housing goals and achieve
positive fair housing outcomes in their
communities?
21. What forms of technical assistance
could HUD provide that would better
position program participants and their
communities to develop their Equity
Plans and ultimately implement and
achieve the fair housing outcomes set
therein?
22. HUD specifically solicits comment
on the proposal to publish submitted
plans that it is reviewing but has not yet
accepted or non-accepted. HUD seeks
comment on both the benefits of this
proposal and concerns with it.
23. HUD specifically asks for input on
the following proposals for reducing
burden on small program participants:
a. HUD notes that some pieces of the
analysis may not always be relevant to
some small program participants,
depending on the local circumstances. If
specific parts of the proposed analysis
are not applicable to a small program
participant’s local circumstances,
should HUD permit the program
participant to respond to that specific
piece of the analysis with ‘‘not
applicable’’? If so, please identify the
specific parts of the analysis that might
not always be applicable and the
circumstances under which it would not
be applicable. If HUD were to permit
this, are there procedures it should
follow to ensure that program
participants still conduct an appropriate
fair housing analysis, such as requiring
an explanation of why the piece of the
analysis is not applicable, with
reference to HUD-provided data, local
data, and local knowledge, including
information gained from community
engagement? HUD seeks comment on
the extent to which it can achieve
significant burden reduction for smaller
program participants (and in particular
small PHAs) by clarifying expectations
in this manner rather than altering the
proposed questions. In responding to
this request for comment, to the extent
a commenter contends that a particular
program participant can or cannot
reasonably conduct the analysis set
forth in the proposed rule, please
describe the relevant local
circumstances for the program
VerDate Sep<11>2014
16:40 Feb 08, 2023
Jkt 259001
participant, including any demographic
patterns, number of units or
consolidated plan program allocations,
and local infrastructure, as well as the
analysis the commenter believes the
question is requiring.
b. HUD intends that the burden of
analysis for many of the questions in the
proposed rule will be lower for smaller
program participants that have fewer
people, places, and geographic areas to
analyze and seeks comment on this
topic. Do the questions proposed in
§ 5.154 appropriately scale with the size
and complexity of a program
participant, such that it would be easier
for smaller program participants to
complete the analysis than larger
program participants? For example,
does the fact that smaller program
participants often operate in smaller
communities with fewer people, fewer
community assets, and less public
infrastructure make the analysis easier
to complete? If so, how can HUD make
explicit that the same question is
expected to result in a less burdensome
analysis for smaller or less complex
program participants? What other
mechanisms could be utilized to
minimize the burden for all program
participants, but particularly smaller
program participants, while ensuring an
appropriate analysis is conducted to
meet the proposed requirements in this
rule?
c. Are there other ways in which HUD
can alter the required analysis for small
program participants that meaningfully
reduce burden while ensuring an
appropriate AFFH analysis such that
these program participants can establish
meaningful fair housing goals?
d. To what extent, if any, should
small program participants have
modified community engagement
requirements, such as requiring fewer
in-person meetings and allowing
different formats for meetings? Are there
other ways this proposed rule could
modify community engagement
requirements to reduce burden on small
program participants, while ensuring
that underserved communities and
groups who have historically not
participated in this type of engagement
have the opportunity to be part of the
process? For purposes of small program
participants, are there other ways they
may be able to receive equivalent input
from the community, aside from those
contemplated in the community
engagement process set forth in the
proposed rule, that would reduce their
burden in obtaining local data and local
knowledge, while still ensuring they
have the necessary information to
produce a well-informed and
meaningful analysis?
PO 00000
Frm 00034
Fmt 4701
Sfmt 4702
e. Would it be appropriate to modify
the goal-setting requirements for smaller
PHAs and consolidated plan
participants and, if so, what
modification would be appropriate? The
proposed rule does not specify the
number of goals that program
participants must set. It does provide
that program participants must set goals
that collectively address each of the
seven fair housing goal categories
(which may require fewer than seven
goals, since a goal can address more
than one category), unless no fair
housing issue is identified for any
category, in which case no goal is
required to address that category. HUD
seeks comment on whether any
modification of this requirement is
appropriate for smaller entities.
24. One way small program
participants can reduce the burden of
completing the required analysis is to
complete joint Equity Plans with other
program participants. HUD seeks
comment on how it can further
encourage small program participants to
complete joint Equity Plans.
25. HUD seeks comment on whether
it is necessary to establish a definition
of ‘‘small PHA’’ or ‘‘small consolidated
plan participant’’ and, if so, how HUD
should define these terms.
26. Program participants who
collaborate and conduct a joint Equity
Plan may benefit from pooling resources
to overcome fair housing issues. Are
there further incentives HUD should or
could offer to program participants that
submit joint Equity Plans to HUD?
27. Proposed § 5.164 sets out the
minimum criteria for when an Equity
Plan must be revised. HUD seeks
comment on whether the proposed
§ 5.164 properly captures the
circumstances under which a program
participant should revise its Equity
Plan, and in particular on the
circumstances under which a disaster
should or should not trigger the need for
such revision.
28. With respect to the proposed
AFFH enforcement scheme, proposed
§ 5.170 would provide that complaints
alleging the failure of a program
participant to affirmatively further fair
housing must be filed with HUD within
365 days of the date of the last incident
of the alleged violation, unless the
Responsible Civil Rights Official
extends the time limit for good cause.
While noting that the proposed
inclusion of a good cause exception
reflects HUD’s intent to be consistent
with the regulations and practices of
Federal agencies with respect to
enforcement of various civil rights
statutes, HUD specifically seeks
comment on the following:
E:\FR\FM\09FEP2.SGM
09FEP2
khammond on DSKJM1Z7X2PROD with PROPOSALS2
Federal Register / Vol. 88, No. 27 / Thursday, February 9, 2023 / Proposed Rules
a. Is 365 days an appropriate time
limit? Are there specific considerations
that argue for a longer or shorter time
limit?
b. What specific circumstances might
constitute ‘‘good cause,’’ under which
the Responsible Civil Rights Official
might be justified in extending the
proposed 365-day deadline (e.g., the
conduct constituting the alleged
violation was not known or made public
within the 365-day period)? Are there
specific concerns that mitigate against a
good cause exception (e.g., a concern
about inconsistent application)?
29. A large amount of Federal funding
flows through States to local
jurisdictions, and HUD is interested in
hearing about how States can utilize
those funds to affirmatively further fair
housing. HUD recognizes the unique
planning responsibilities of States, as
well as the wide variation in data,
including with respect to the varying
sizes and geographies of States (e.g.,
urban and rural areas). HUD specifically
seeks comment on the data needs and
tools that may be useful to States in
conducting their Equity Plans.
a. How can States encourage broader
fair housing strategies at the State level
and in localities, and what changes, if
any, are needed to the proposed rule
that could improve its effectiveness as a
tool for States to further fair housing
goals?
b. Are there data that HUD could
provide to States to assist and facilitate
the fair housing analysis required by
§ 5.154?
c. Is there additional information
HUD could provide to States, such as,
for example, identifying regional issues
where metropolitan areas cross State
borders?
d. How can HUD best display or
provide data to States given their varied
sizes and geographies in order to
facilitate the analysis required by
§ 5.154?
e. Given the unique role that States
play, does the analysis and content
required in the Equity Plan provide
States with sufficient opportunities to
coordinate both within the State (e.g.,
across various departments, offices, or
agencies as well as with local
jurisdictions) and, as appropriate, with
neighboring States?
30. HUD seeks comment on whether
the conforming amendments in 24 CFR
parts 91, 92, 93, 570, 574, 576, 903, and
983 are adequate to ensure that
programmatic requirements are
consistent with program participants’
implementation of this proposed rule’s
requirements. Specifically, HUD seeks
comment on whether the specific
provisions amended are sufficient or
VerDate Sep<11>2014
16:40 Feb 08, 2023
Jkt 259001
whether additional amendments should
be made. Are there specific ways in
which HUD can further clarify the
conforming amendments to assist
program participants in understanding
and fulfilling their obligations to
affirmatively further fair housing?
31. Certain definitions in this
proposed rule contain language
explaining how the defined term applies
to the analysis required by § 5.154 and
the type of analysis that HUD expects to
be included in an Equity Plan. HUD
seeks comment on whether the
inclusion of this type of language in the
regulations is helpful and provides
additional clarity regarding how the
defined term should be used for
purposes of developing an Equity Plan.
32. As explained in this preamble, the
proposed rule would take a different
approach than the 2015 AFFH Rule did
as it relates to circumstances in which
HUD has not accepted a program
participant’s fair housing plan prior to
the date HUD must accept or reject its
programmatic plan (i.e., consolidated
plan or PHA Plan). Under the 2015
AFFH Rule, HUD was required to
disapprove a program participant’s
programmatic plan under such
circumstances, putting the program
participant’s continued funding at risk.
This meant HUD had only two options:
(a) accept a fair housing plan despite
deficiencies or (b) terminate the
program participant’s funding. In
practice, although HUD rejected some
program participants’ fair housing plans
on initial review and required them to
be revised and resubmitted, HUD then
accepted every resubmitted plan before
the program plan was due, and thus
never invoked the only available
remedy of rejecting a programmatic
plan. In this proposed rule, HUD sets
out a more flexible framework that
would enable HUD to take additional
steps that do not put funding
immediately at risk but give a program
participant a reasonable opportunity to
address deficiencies and submit an
acceptable fair housing plan. Under the
proposed framework, HUD can reject a
program participant’s Equity Plan but
accept its programmatic plan, allowing
funding to continue so long as the
program participant signs special
assurances prepared by the Responsible
Civil Rights Official that require the
program participant to submit and
obtain HUD acceptance of an Equity
Plan by a specific date. The proposed
rule provides that the program
participant must commit to achieving an
Equity Plan that meets regulatory
requirements within 180 days of the end
of the HUD review period for the
programmatic plan and to amend its
PO 00000
Frm 00035
Fmt 4701
Sfmt 4702
8549
programmatic plans to reflect the Equity
Plan’s fair housing goals within 180
days of HUD’s acceptance of the Equity
Plan in order to continue to receive
Federal financial assistance from HUD.
A program participant’s failure to enter
into special assurances will result in
disapproval of its funding plan. Those
program participants that submit special
assurances but do not fulfill them
within the timeline provided will face
enforcement action that includes the
initiation of fund termination and a
refusal to grant or to continue to grant
Federal financial assistance. Consistent
with the increased transparency this
proposed rule provides, HUD will
publicly post all executed special
assurances, and subsequently publicly
post Equity Plans submitted pursuant to
the special assurances and HUD’s
decision to accept the plans or not. HUD
requests specific feedback on this
special assurance framework in general
and on revisions that would better
effectuate the purposes expressed here
and throughout this preamble. In
particular, HUD asks:
a. Does the special assurance
framework, which would make program
participants that enter into special
assurances subject to the remedies set
out in §§ 5.172 and 5.174, provide
sufficient incentive for program
participants to develop and submit
compliant Equity Plans in a timely
manner? Are there changes that can be
made to this proposed rule that would
further incentivize timely and sufficient
submissions?
b. Are the remedies available to HUD
under this framework sufficient? Does
HUD need to set forth with greater
specificity the remedies that a program
participant could face for failing to
provide an acceptable Equity Plan by
the time its programmatic plan must be
accepted? In particular, should the final
rule specify the circumstances under
which a program participant necessarily
will lose funding, and if so, what are
those circumstances?
V. Findings and Certifications
Regulatory Planning and Review—
Executive Orders 12866 and 13563
Under Executive Order 12866,29 the
Office of Management and Budget
(OMB) must determine whether this
regulatory action is ‘‘significant’’ and,
therefore, subject to the requirements of
the Executive order and subject to
review by OMB.
29 Exec. Order on Regulatory Planning and
Review, E.O. 12866, 58 FR 190 (Oct. 4, 1993),
https://www.reginfo.gov/public/jsp/Utilities/EO_
12866.pdf.
E:\FR\FM\09FEP2.SGM
09FEP2
8550
Federal Register / Vol. 88, No. 27 / Thursday, February 9, 2023 / Proposed Rules
This proposed action is ‘‘significant’’
and therefore subject to review by OMB
under section 3(f)(4) of Executive Order
12866. The Department has assessed the
potential costs and benefits, both
quantitative and qualitative, of this
proposed regulatory action and has
determined that the benefits would
justify the costs.
The Department has also reviewed
these proposed regulations under
Executive Order 13563,30 which
supplements and explicitly reaffirms the
principles, structures, and definitions
governing regulatory review established
in Executive Order 12866. Executive
Order 13563 also requires an agency ‘‘to
use the best available techniques to
quantify anticipated present and future
benefits and costs as accurately as
possible.’’ The Office of Information and
Regulatory Affairs of OMB has
emphasized that these techniques may
include ‘‘identifying changing future
compliance costs that might result from
technological innovation or anticipated
behavioral changes.’’
The Department is issuing the
proposed regulations only on a reasoned
determination that their benefits would
justify their costs. In choosing among
alternative regulatory approaches, the
Department selected those approaches
that maximize net benefits. HUD
completed a Regulatory Impact Analysis
for this proposal. This section
summarizes the findings of that analysis
and explains why the Department
believes that the proposed regulations
are consistent with the principles in
Executive Order 13563.
The Department also has determined
that this regulatory action would not
unduly interfere with State, local, or
Tribal governments in the exercise of
their governmental functions.
khammond on DSKJM1Z7X2PROD with PROPOSALS2
1. Need for Regulatory Action
The segregation and disparities in
access to opportunity that prompted the
Fair Housing Act’s drafters to codify the
AFFH obligation persist. This Nation’s
failure to engage in a concerted and
systematic effort to redress its history of
housing discrimination has further
perpetuated barriers to opportunity,
compounding the damage done and
heightening the need for regulatory
action. This rule operationalizes the
statutory obligation to AFFH by creating
a streamlined structure for program
participants to engage in fair housing
planning, in the form of an Equity Plan,
calculated to satisfy the AFFH mandate
30 Exec. Order on Improving Regulation and
Regulatory Review, E.O. 13563, 76 FR 3821 (Jan. 18,
2011), https://www.govinfo.gov/content/pkg/FR2011-01-21/pdf/2011-1385.pdf.
VerDate Sep<11>2014
16:40 Feb 08, 2023
Jkt 259001
by prompting program participants to
take meaningful actions to achieve
outcomes that remedy the pervasive
segregation and disparities in access to
opportunity that the Fair Housing Act
was designed to redress.
This rule is necessary to establish an
effective approach to implement the
AFFH mandate. HUD is currently
implementing the obligation to AFFH by
requiring that HUD program
participants certify that they will
affirmatively further fair housing in
their programs and activities. The
current framework, established by the
AFFH IFR, provides program
participants with flexibility to choose
the method of fair housing planning that
they undertake to support their
certification. However, the current
regulatory regime would benefit from a
standardized mechanism to promote
compliance with the statutory
obligation. This proposed rule restores
the planning structure associated with
the 2015 AFFH Rule, but with
substantial improvements that increase
transparency and accountability, while
retaining flexibility for program
participants to establish fair housing
goals based on local circumstances.
This rule creates a guided inquiry to
enable program participants to engage in
fair housing planning that empowers
them to advance equity for members of
protected class groups and underserved
communities in their jurisdictions and
set meaningful goals that effectuate
positive fair housing outcomes. In
addition, the rule establishes a direct
connection between fair housing goals
and subsequent planning processes in
the consolidated plan, annual action
plan, or PHA Plan, thus supporting
program participants in embedding
equity throughout their decision-making
and planning processes as directed by
Executive Order 13985.
Without such a guided inquiry,
program participants will be greatly
hindered in their efforts to redress
inequities in their policies, activities,
services, and programs that serve as
barriers to opportunity and fair housing
choice. The rule also provides both
HUD and the public with enhanced
transparency over, and participation in,
a program participant’s fair housing
planning. This proposed rule would
also address HUD’s current lack of a
mechanism to engage in oversight and
enforcement to ensure that program
participants comply with their AFFH
obligations.
The baseline situation would reflect a
similar landscape as HUD’s
implementation of the AFFH obligation
prior to the promulgation of the 2015
AFFH Rule. Prior to that rule, without
PO 00000
Frm 00036
Fmt 4701
Sfmt 4702
a formal regulatory planning scheme in
place, HUD’s implementation of the
AFFH obligation was reliant on
providing program participants with
guidance, mainly in the form of the Fair
Housing Planning Guide, to support a
broadly permissive approach to fair
housing planning which did not require
submission of fair housing planning
documents to HUD for review. However,
as noted by advocates, stakeholders, and
community members, and reinforced by
the U.S Government Accountability
Office in its report, ‘‘HUD Needs to
Enhance Its Requirements and Oversight
of Jurisdiction’s Fair Housing Plans,’’ 31
such an approach failed to ensure that
program participants consistently
embedded the required fair housing
considerations in their decision-making
processes. This approach also prevented
HUD from engaging in effective
oversight of fair housing planning.
HUD’s recently published AFFH IFR
was intended to be an interim measure,
necessary to expeditiously repeal the
PCNC Rule and restore legally
supportable definitions and
certifications for program participants.
This proposed rule would reinstate an
effective and meaningful regulatory
scheme to implement the AFFH
mandate, enhanced by efficiencies
derived from lessons learned from the
implementation of the 2015 AFFH Rule.
With appropriate planning, guided by
the Equity Plan framework laid out in
this rule, program participants can be
more intentional and strategic in their
work to take meaningful actions that
overcome patterns of segregation and
foster inclusive communities. This
proposed rule offers a more streamlined
approach to better ensure that tangible
fair housing outcomes are achieved.
This rule also commits HUD to helping
program participants more easily
identify where equity in their
communities is lacking and how they
can advance equity for protected class
groups using HUD funds and other
investments.
2. Summary Discussion of Costs,
Benefits
HUD has analyzed the costs and
benefits of complying with this
proposed regulation. HUD firmly
believes that the benefits of this rule
justify the costs of compliance. While
program participants will incur costs
associated with compliance, including
in the development of the Equity Plan,
HUD believes such costs are justified by
the benefits to society and to
individuals of not having to endure the
31 GAO–10–905, Sept. 14, 2010, available at
https://www.gao.gov/products/gao-10-905.
E:\FR\FM\09FEP2.SGM
09FEP2
Federal Register / Vol. 88, No. 27 / Thursday, February 9, 2023 / Proposed Rules
costs of racial and other forms of
inequity. Additionally, as noted, the
approach here reduces prior burdens
associated with fair housing planning
imposed by the 2015 AFFH Rule, greatly
alleviating the compliance costs that
were associated with the 2015 AFFH
Rule.
khammond on DSKJM1Z7X2PROD with PROPOSALS2
3. Benefits of the Proposed Regulations
HUD has analyzed the benefits of
complying with the proposed
regulations. Executive Order 13985
begins with an acknowledgement that
equal opportunity is the bedrock of our
democracy. Yet because of our country’s
legacy of segregation, systemic racism,
and other forms of injustice against
protected groups, far too many have
been denied equal opportunity. This
rule directly implements this Executive
order’s command of affirmatively
advancing equity, requiring that
program participants, with the support
of HUD, identify and address housingrelated disparities and other significant
disparities in access to opportunity.
This rule would specifically provide
substantial benefits directly to groups
protected by the Act by requiring HUD
program participants to expand fair
housing choice and improve access to
opportunity. By enhancing such
opportunity for these groups,
implementation of this proposed rule
will also promote a more just and equal
society.
Current patterns of residential
segregation are largely reflective of this
Nation’s legacy of racially
discriminatory housing, ableism, and
other policies. As noted earlier in this
preamble, these vestiges of
discrimination, as well as the
corresponding inequitable access to
opportunity, persist to this day. This
proposed rule requires program
participants to redress these injustices.
Program participants will be required to
promote fair housing choice, enhancing
the opportunity for protected groups to
live where they choose by addressing
the variety of barriers that inhibit such
access. For many program participants,
expanding access to fair housing choice
will necessitate both preserving and
expanding accessible and affordable
housing opportunities, a critical and
urgent need for this country. In
particular, this rule requires an analysis
of barriers to affordable housing,
representing a key opportunity for
program participants to identify the
policies and practices, such as land use
and zoning ordinances, that impede the
development and maintenance of
affordable housing commensurate with
need.
VerDate Sep<11>2014
16:40 Feb 08, 2023
Jkt 259001
Increasing access to homeownership
opportunities based on race can begin to
address the racial wealth gap, enabling
families of color to accumulate wealth
and develop financial security.32
Individuals with disabilities will also
greatly benefit from enhanced access to
accessible and affordable housing
opportunities, particularly where
expanded affordable housing enables
individuals with disabilities to access
supportive services in a communitybased setting.
This rule creates a clearer definition
of a balanced approach. A balanced
approach entails the balancing of placebased strategies that target investment in
areas that have historically been denied
critical resources along with strategies
designed to combat segregation and
promote integration of protected class
groups. There is a thorough and growing
body of social science research
documenting the enhanced quality of
life outcomes based on living in wellresourced areas of opportunity.33 As
noted above, growing up in
neighborhoods with lower levels of
poverty improves children’s long-term
prospects, through a combination of a
variety of factors, including through
greater access to quality schools and
lower exposure to environmental and
other health hazards. This research
furnishes strong empirical support for
the proposition that where one lives has
a profound impact on their trajectory in
life. By facilitating moves to areas of
opportunity on a substantial scale, as
well as place-based transformation of
existing areas to areas with opportunity,
this rule has the capacity to improve the
quality of life of many individuals.34
The concept of community assets,
embedded as a critical focus in the
Equity Plan framework used by the rule,
acknowledges that residential
segregation did not simply act to
produce racially homogenous
neighborhoods. Rather, segregation also
acted to deprive people of color of
access to high-quality features that
enhance equality of opportunity and
quality of life.35 Disparities in access to
community assets overlap significantly
with enduring patterns of residential
segregation. By directly requiring that
program participants consider
community assets in their fair housing
planning, this rule will prompt greater
access for underserved populations to,
among other features, environmentally
32 See supra note 16, McCargo and Choi; note 17,
Schuetz.
33 See supra notes 8, 9, 10, 11, 12, 15.
34 Id.; see also infra note 12.
35 See, e.g., Troustine, Segregation by Design:
Local Politics and Inequality in American Cities,
November 2018.
PO 00000
Frm 00037
Fmt 4701
Sfmt 4702
8551
healthy neighborhoods, grocery stores,
employment opportunities that pay a
living wage, and reliable transportation
services.
For example, the rule critically
identifies ‘‘high quality schools’’ as an
example of a community asset that is
not often equitably distributed and
available within communities. In 1954,
the Supreme Court in Brown v. Board of
Education found that separate
educational facilities are inherently
unequal.36 Yet students of color across
the Nation are still disproportionately
confined to racially and economically
segregated, underfunded schools.37
Disparities in access to equal
educational opportunity continue to
persist based on protected class group,
largely because where a child lives often
dictates their ability to attend a highquality school. Research has shown that
most schools’ racial composition is
relatively similar to that of their
surrounding neighborhoods due to
existing school boundaries, which has
perpetuated school segregation.38 This
rule acknowledges the direct link
between housing opportunities and
access to equal educational opportunity
and prompts program participants to
address and eliminate discriminatory
housing policies that lead to segregation
among schools.39
Recent research has identified the
extent to which modification of a single
school’s boundary can upend
entrenched patterns of residential and
corresponding school segregation.40
This research highlights the dramatic
degree to which school attendance
boundaries demarcate racially and
ethnically unequal schools, with
corresponding data identifying the
extent to which these schools are also
36 Brown v. Bd. of Educ. of Topeka (No. 1.), 347
U.S. 483, 495 (1954).
37 ‘‘Closing America’s Education Funding Gaps,’’
The Century Foundation (July 22, 2020), https://
tcf.org/content/report/closing-americas-educationfunding/.
38 Richard V. Reeves, Nathan Joo, and Grover J.
‘‘Russ’’ Whitehurst, ‘‘How school district
boundaries can create more segregated schools,’’
Brookings (November 20, 2017), https://
www.brookings.edu/blog/social-mobility-memos/
2017/11/20/how-school-district-boundaries-cancreate-more-segregated-schools/.
39 See also Executive Order on White House
Initiative on Advancing Educational Equity,
Excellence, and Economic Opportunity for Black
Americans (October 19, 2021), https://
www.whitehouse.gov/briefing-room/presidentialactions/2021/10/19/executive-order-on-whitehouse-initiative-on-advancing-educational-equityexcellence-and-economic-opportunity-for-blackamericans/.
40 Tomas Monarrez & Carina Chien, ‘‘Dividing
Lines: Racially Unequal School Boundaries in US
Public School Systems,’’ Urban Institute (September
2021), https://www.urban.org/research/publication/
dividing-lines-racially-unequal-school-boundariesus-public-school-systems.
E:\FR\FM\09FEP2.SGM
09FEP2
8552
Federal Register / Vol. 88, No. 27 / Thursday, February 9, 2023 / Proposed Rules
khammond on DSKJM1Z7X2PROD with PROPOSALS2
unequal in terms of student
achievement, staffing, academic
offerings, and discipline rates.41 In turn,
unequal schools further perpetuate both
racial and ethnic segregation.42 This
research simultaneously illuminates the
depth of this persistent problem while
also showcasing the extent to which the
housing-school segregation relationship
can be disrupted through meaningful
yet realistic actions by program
participants within their control. In
addition to perpetuating the racial
achievement gap, such segregation often
denies equal educational opportunity to
many students with disabilities, who
lack access to well-resourced special
education programs and related
services.
The proposed rule also offers
healthcare services as another example
of a community asset. Disparities in
access to healthcare services,
particularly for individuals of color,
have been widely documented. The
Centers for Disease Control (CDC) has
highlighted the extent to which the
COVID–19 pandemic has unequally
affected many racial and ethnic
minority groups, placing them at higher
risk of getting sick and dying from
COVID–19.43 The American Medical
Association explains that racial and
ethnic minorities experience a lower
quality of health care, are less likely to
receive routine medical care, and face
higher rates of morbidity and mortality
than nonminorities.44 By asking
program participants to consider
inequities in access to healthcare
services that are driven by lack of fair
housing choice, this proposed rule
would seek to expand critical access for
racial minorities and other protected
class groups to quality healthcare
services.
Finally, the proposed rule also
implements a more transparent process,
allowing the public to have access to all
submitted Equity Plans. This will afford
the public an opportunity to provide
comments to HUD on Equity plan
submissions, allowing the public to
provide the Department with
information relating to a submission
that may be useful to HUD in its review
of the Equity Plan. The rule also creates
a mechanism for HUD to engage in
oversight and enforcement of the
41 Id.
42 Id.
43 CDC, Health Equity Considerations and Racial
and Ethnic Minority Groups, https://www.cdc.gov/
coronavirus/2019-ncov/community/health-equity/
race-ethnicity.html.
44 See Reducing Disparities in Health Care,
American Medical Association, available at https://
www.ama-assn.org/delivering-care/patient-supportadvocacy/reducing-disparities-health-care.
VerDate Sep<11>2014
16:40 Feb 08, 2023
Jkt 259001
obligation to affirmatively further fair
housing, increasing the likelihood that
program participants achieve tangible
outcomes that advance equity and
increase opportunity for protected
groups.
Quantifiable Benefits
There will be substantial benefits
associated with the promulgation of this
rule. The precise manner in which
program participants will comply with
this obligation will vary substantially
based on the unique local fair housing
issues of each program participant.
Therefore, it is not possible to quantify
many of these benefits with precision.
However, once implemented, HUD
expects this rule will greatly enhance
the welfare of members of protected
class groups across a variety of qualityof-life metrics.
Benefits That Cannot Be Quantified
In acknowledging the limitations of
assessing proposed regulations
exclusively based on those benefits that
can be quantified, Executive Order
12866 and Executive Order 13563
require that agencies include qualitative
consideration of benefits. This
principle, recently affirmed by the
White House’s Memorandum on
Modernizing Regulatory Review,
acknowledges that many of the benefits
associated with an agency’s rulemaking,
including equity, justice, and human
dignity, are difficult or impossible to
quantify.
This rule would promote social
welfare, racial justice, human dignity,
and equity, essential values not
susceptible to quantification. By
requiring that program participants
effectuate positive fair housing
outcomes by reducing longstanding
inequities faced by people of color,
persons with disabilities, and other
protected class groups, this rule would
greatly advance racial justice and begin
to redress our Nation’s history of
discriminatory housing policies and
practices. It is not enough for
governments of all levels to
acknowledge the role they played in
systematically declining to invest in
communities. They must take
meaningful actions to overcome the
effects of past and current injustices,
which HUD is requiring in this rule.
Individuals with disabilities have
historically faced discrimination that
has limited their opportunity to live
independently in community-based
settings, resulting in them unnecessarily
living in institutions or other segregated
settings that limit their autonomy and
ability to enjoy the freedom of
expression and association that is part
PO 00000
Frm 00038
Fmt 4701
Sfmt 4702
of everyday life in the United States.
Preventing unnecessary
institutionalization and enabling an
individual with a disability to live
independently and access affordable
accessible housing and supportive
services in their community is
invaluable. Additionally, by improving
access to efficient and accessible
transportation for this group,
individuals with disabilities are more
likely to enjoy the independence and
dignity associated with employment
that pays a living wage.
This rule will also spur program
participants to take actions to ensure
that other underserved communities
have equitable access to affordable
housing opportunities, including for
LGBTQ+ persons and survivors of
domestic violence who face
discrimination because of their
protected characteristics. Facilitating
access to housing can serve as a critical
lifeline for these populations that have
long been denied equal access in many
aspects of American life. While the
precise fair housing goals will vary
based on the program participant, in the
aggregate, these benefits will likely be
realized after implementation of this
rule. Although the Department cannot,
at this time, entirely quantify the
economic impacts of the benefits
outlined above, the Department believes
that they are substantial and outweigh
the estimated costs of the proposed
regulations.
4. Costs of the Proposed Regulations
HUD does not expect a large change
in compliance cost as a result of the
rule, as States, local governments, and
PHAs are already required to engage in
fair housing planning to support their
certifications. As discussed more fully
in the Regulatory Impact Analysis, HUD
estimates a low-end collective
compliance cost impact of $21.4 million
per 5-year planning cycle for program
participants, or about $4.3 million per
year. HUD estimates the high-end
collective compliance cost to be $135
million per 5-year planning cycle for
program participants, or about $27
million per year. The aggregate cost of
complying with the planning
requirements in this proposed rule is
not uniformly distributed among the
5,000 program participants that would
bear the costs. Costs would vary among
program participants due to several
factors.
Given the many uncertainties in the
precise cost program participants will
incur in complying with the planning
processes proposed in this rule, HUD
requests public comment on the
accuracy of the assumptions contained
E:\FR\FM\09FEP2.SGM
09FEP2
Federal Register / Vol. 88, No. 27 / Thursday, February 9, 2023 / Proposed Rules
khammond on DSKJM1Z7X2PROD with PROPOSALS2
in estimates in the Regulatory Impact
Analysis. As explained above, HUD is
committed to mitigating compliance
costs for these entities by providing
technical assistance, including related
to the HUD-provided data, particularly
so that the required analysis and
planning can be completed without the
need to hire external consultants and
contractors.
HUD also notes that the goal of this
rule is to establish a regulatory
framework by which program
participants may more effectively meet
an existing statutory obligation; one that
has applied to all recipients of Federal
financial assistance for over 50 years.
HUD intends for the streamlined
analysis proposed in this rule to
enhance the efficacy of the fair housing
process while lightening the burden
faced by program participants in
complying with the statutory
requirement.
4. A Selected Changes in the Proposed
Regulation Not Estimated To Have Costs
HUD does not anticipate that most of
the provisions in this proposed rule
would generate costs for program
participants. Program participants are
currently required to certify compliance
with a definition of AFFH that is
substantially similar to the definition
proposed in this rule. Thus, to support
this certification, program participants
must currently incur some costs to
comply. While this rule would reduce
some of the currently provided
flexibility in fair housing planning,
given the streamlined nature of the
Equity Plan, HUD anticipates that
program participants can accomplish
the requirements of this rule by using
their existing fair housing planning
infrastructure.
As noted earlier in the preamble, this
proposed rule refocuses fair housing
planning toward the development of
meaningful fair housing goals through
the Equity Plan framework, which will
make the fair housing planning process
simpler, while also improving the
likelihood of success for program
participants. This proposed rule
contains substantially fewer questions
compared to the requirements of the
2015 AFFH Rule for program
participants to answer to determine how
best to advance equity for members of
protected class groups and underserved
communities in their jurisdictions. To
the extent program participants were
using a process analogous to the 2015
AFFH Rule to support their fair housing
planning, this proposed rule would
reduce much of that analysis.
HUD has further committed to
providing program participants with a
VerDate Sep<11>2014
16:40 Feb 08, 2023
Jkt 259001
data analysis to inform fair housing
planning, which, when supplemented
with local knowledge, will streamline
the identification of fair housing issues.
The Department will also provide robust
technical assistance and feedback to
program participants during the Equity
Plan process. Taken together, these
process improvements are likely to
reduce the compliance costs associated
with this rule, let alone impose
additional costs over current
compliance costs.
Distributional Impacts
As noted, HUD believes that the
benefits of this rule will exceed the
costs associated with compliance. Even
if the aggregate costs associated with
compliance with this rule exceeded the
net benefits, the rule would still be
justified due to its distributional
impacts. Under applicable Executive
orders governing agency rulemaking, as
well as OMB Circular A–4, agencies are
required to consider the distributional
impacts associated with any rulemaking
to ensure that the regulation
appropriately benefits, and does not
inappropriately burden, disadvantaged,
vulnerable, or marginalized
communities.
By design and definition, this rule
will distribute substantial benefits to
groups that lack equitable access to fair
housing opportunities, often because
they have historically experienced
disadvantage. The benefits of this rule
will be accrued primarily by protected
groups as defined by the Fair Housing
Act. These are groups that have been
and continue to be denied fair housing
choice, isolated in racially or ethnically
concentrated areas of poverty or other
segregated settings, and subjected to
disparities in access to opportunity.
HUD also does not believe that this rule
places any burden on these groups. In
light of the modest anticipated
compliance costs associated with the
rule, HUD believes that the substantial
distributional benefits justify the
promulgation of this rule.
5. Regulatory Alternatives Considered
The Department considered the
following alternatives to the proposed
regulations (1) leaving the current
regulations in place without issuing the
proposed regulations and (2)
repromulgating the 2015 AFFH Rule.
The Department rejected alternative (1)
for the reasons expressed in the
preamble. The current regime, while
providing substantial flexibility, lacks a
standardized mechanism to promote
compliance with the statutory
obligation. Under the current
framework, HUD also lacks the ability to
PO 00000
Frm 00039
Fmt 4701
Sfmt 4702
8553
engage in effective oversight and
enforcement of program participants’
fair housing planning. Alternative (2)
was also rejected for reasons expressed
in the preamble. This proposed rule
provides a more transparent and
streamlined approach than the one HUD
implemented in 2015 to help guide
communities in taking meaningful
actions to achieve tangible fair housing
outcomes. After careful consideration of
these alternatives, the Department
believes that the proposed regulations
represent the most effective way to
implement the obligation to
affirmatively further the purposes and
policies of the Fair Housing Act.
Environmental Impact
This proposed rule is a policy
document that sets out fair housing and
nondiscrimination standards.
Accordingly, under 24 CFR 50.19(c)(13),
this proposed rule is categorically
excluded from environmental review
under the National Environmental
Policy Act of 1969 (42 U.S.C. 4321 et
seq.).
Regulatory Flexibility Act
The Regulatory Flexibility Act (5
U.S.C. 601 et seq.) generally requires an
agency to conduct a regulatory
flexibility analysis of any rule subject to
notice and comment rulemaking
requirements, unless the agency certifies
that the rule will not have a significant
economic impact on a substantial
number of small entities. The
undersigned certifies that this rule
would not have a significant economic
impact on a substantial number of small
entities.
This rule proposes to strengthen the
way in which HUD and its program
participants meet the requirement under
the Fair Housing Act to take affirmative
steps to further fair housing. The
preamble identifies the statutes,
executive orders, and judicial precedent
that address this requirement and that
place responsibility directly on certain
HUD program participants, specifically
local governments, States, insular areas,
and PHAs, underscoring that the use of
Federal funds must promote fair
housing choice and open communities.
Although local governments, States,
insular areas, and PHAs must
affirmatively further fair housing
independent of any regulatory
requirement imposed by HUD, HUD
recognizes its responsibility to provide
leadership and direction in this area,
while preserving local determination of
fair housing needs and strategies.
This rule primarily focuses on
establishing a regulatory framework by
which program participants may more
E:\FR\FM\09FEP2.SGM
09FEP2
khammond on DSKJM1Z7X2PROD with PROPOSALS2
8554
Federal Register / Vol. 88, No. 27 / Thursday, February 9, 2023 / Proposed Rules
effectively meet their statutory
obligation to affirmatively further fair
housing. The statutory obligation to
affirmatively further fair housing
applies to all program participants, large
and small. The statutory obligation
requires program participants to
develop strategies to affirmatively
further fair housing as part of statutorily
imposed plans that address the use of
HUD funds and that must be submitted
to HUD for review and approval. This
proposed rule builds on the statutory
requirements to affirmatively further fair
housing in conjunction with the
development of consolidated plans for
States, insular areas, and local
governments, and PHA Plans for PHAs,
and, in doing so, provides for all
program participants to comply with
their statutory requirements in a costefficient, yet meaningful and effective
manner.
The current statutory requirement
imposed on States, insular areas, local
governments, and PHAs requires the
program participant to certify that it is
affirmatively furthering fair housing.
While that certification is a simple and
brief document submitted to HUD, it
nevertheless represents the attestation of
the program participant that it will take
meaningful actions to affirmatively
further fair housing. While the
certification is an important component
of a program participant’s statutory
obligation to affirmatively further fair
housing, even more important are the
specific actions the program participant
takes to affirmatively further fair
housing. Because the Fair Housing Act
requires that HUD programs and
activities be administered in a manner
that affirmatively furthers the policies of
the Fair Housing Act, it is important for
HUD to review the plans that delineate
how HUD programs will be
implemented so that the Secretary can
be assured that HUD program
participants are in fact affirmatively
furthering fair housing. The proposed
rule, therefore, provides for program
participants to submit an Equity Plan to
HUD.
The rule proposes to reduce
administrative burden on program
participants in preparing and submitting
an Equity Plan to HUD as compared to
the prior AI or AFH processes because
HUD has proposed to codify, in this
proposed rule, the precise and direct
questions to which program participants
must respond and will assist program
participants by providing data,
guidance, and technical assistance. HUD
will continue to provide local and
regional data on access to community
assets, such as education,
transportation, employment, low-
VerDate Sep<11>2014
16:40 Feb 08, 2023
Jkt 259001
poverty exposure, as well as patterns of
integration and segregation, and the
demographics of particular types of
housing. By responding to the questions
in this proposed rule, engaging with
their communities, and bringing to bear
the knowledge they already have, along
with relying on the HUD-provided data,
program participants will engage in a
more meaningful evaluation of who has
access to equity in their communities.
This more straightforward and direct
analysis will allow program participants
to more clearly identify how HUD funds
can be used to promote equity,
overcome patterns of segregation, and
increase access to opportunity and
community assets for underserved
communities. HUD will also be
available to provide technical assistance
to program participants in the
development of their Equity Plans and
implementation of meaningful fair
housing strategies and actions. It is
HUD’s position that this more
streamlined approach will reduce
burden for program participants, large
and small, in meeting their statutory
obligation to affirmatively further fair
housing, relative to the 2015 AFFH
Rule. Nonetheless, HUD is sensitive to
the fact that the uniform application of
requirements on entities of differing
sizes often places a disproportionate
burden on small entities. HUD commits
to provide guidance to small entities on
how the Equity Plan’s direct questions
may be answered without the need for
consultants, contractors, statisticians, or
other experts and how they may still
establish meaningful and achievable fair
housing goals that result in a material
positive change.
Executive Order 13132, Federalism
Executive Order 13132 (entitled
‘‘Federalism’’) prohibits, to the extent
practicable and permitted by law, an
agency from promulgating a regulation
that has federalism implications and
either imposes substantial direct
compliance costs on State and local
governments and is not required by
statute, or preempts State law, unless
the relevant requirements of section 6 of
the Executive order are met. This rule
does not have federalism implications
and does not impose substantial direct
compliance costs on State and local
governments or preempt State law
within the meaning of the Executive
order.
The proposed rule will assist program
participants of HUD funds to
satisfactorily fulfill the statutory
obligation to affirmatively further fair
housing. As HUD has noted in the
preceding section discussing the
Regulatory Flexibility Act, and in the
PO 00000
Frm 00040
Fmt 4701
Sfmt 4702
Background section of this preamble,
the obligation to affirmatively further
fair housing is imposed by statute
directly on local governments, States,
insular areas, and PHAs. As the agency
charged with administering the Fair
Housing Act, HUD is responsible for
overseeing that its programs are
administered in a manner that
affirmatively furthers the fair housing
and civil rights-related purposes and
policies of the entities receiving HUD
funds and that they fulfill their
affirmatively furthering fair housing
obligation.
The approach taken by HUD in this
proposed rule is to help local
governments, States, insular areas, and
PHAs meet this obligation in a way that
is meaningful, but without undue
burden. As noted throughout this
preamble, HUD proposes to provide
local and regional data on patterns of
integration and segregation and access
to community assets such as education,
transportation, employment, and other
important community amenities. This
approach, in which HUD offers data,
clear standards and required areas of
analysis, guidance, and technical
assistance, is anticipated to reduce
burden and costs that have historically
been involved in regulatory schemes
governing affirmatively furthering fair
housing. Since Federal law requires
States, insular areas, local governments,
and PHAs to affirmatively further fair
housing, there is no preemption, by this
rule, of State law.
Paperwork Reduction Act
The information collection
requirements contained in this proposed
rule will be submitted to the Office of
Management and Budget (OMB) under
the Paperwork Reduction Act of 1995
(44 U.S.C. 3501–3520). In accordance
with the Paperwork Reduction Act, an
agency may not conduct or sponsor, and
a person is not required to respond to,
a collection of information, unless the
collection displays a currently valid
OMB control number.
Currently, States, local governments,
and PHAs are encouraged to prepare
written plans to affirmatively further
fair housing, undertake activities to
overcome identified barriers to fair
housing choice, and maintain records of
the activities and their impact
consistent with their planning
documents and certification. This
burden is generally accounted for in the
Consolidated Planning and PHA Plan
Information Collection Requests (ICRs).
OMB Control No. 2506–0117
(Consolidated Plan, Annual Action Plan
& Annual Performance Report) estimates
1,234 Localities spend 305 hours
E:\FR\FM\09FEP2.SGM
09FEP2
Federal Register / Vol. 88, No. 27 / Thursday, February 9, 2023 / Proposed Rules
annually on their planning and 50
States spend 741 hours annually on
their planning. OMB Control No. 2577–
0226 (PHA Plans) estimates that 3,780
PHAs will spend 37.88 hours annually
on their planning.
These currently approved collections
do not account for the specific burden
for the affirmatively furthering fair
housing activities addressed in this
notice of proposed rulemaking. HUD
proposes that the burden of these ICRs
would be reduced by accounting for the
burden of the affirmatively furthering
fair housing planning process provided
for in this new ICR. HUD estimates that
the burden reduction for the existing
collection would be 5%, which HUD
would update in future revisions to ICR
2506–0117 and ICR 2577–0226. HUD
estimates that the burden hours to
develop an Equity Plan will be on a
sliding scale from the largest program
participants to the smallest considering
that the number of factors to consider in
an Equity Plan also scales to the size of
the program participant. As detailed
more fully below, for example, HUD
estimates it would take 150 hours for
the largest program participants to
develop an Equity Plan, i.e., those
consolidated planning program
participants receiving more than $100
million in annual entitlement
allocations and PHAs with 50,000 or
more combined public housing and
HCV units, as compared to 50 hours for
the smallest consolidated planning and
PHA program participants, i.e., those
consolidated planning program
participants receiving less than $1
million in annual entitlement
allocations and PHAs with 1,000 or
fewer public housing and HCV units.
HUD provides these sliding scale
estimates for several reasons. HUD
8555
most program participants once every
five years. Based on HUD’s experience
implementing its 2015 AFFH Rule, HUD
estimates that 50% of plans will be joint
Equity Plans, whereby burden is
significantly reduced for program
participants. HUD estimates that such
joint Equity Plans will, on average,
include four joint program participants,
and the program participant burden will
be reduced to 50 hours per program
participant.
In certain circumstances, program
participants will be required to revise
their Equity Plans. HUD anticipates that
5% of program participants would be
required to or voluntarily would revise
their Equity Plan, and the revised
planning process would take an
additional 50 hours per participant. As
part of the Equity Plan and revising
such plan, program participants will
have to complete community
engagement activities and maintain
records of these activities. HUD
estimates that recordkeeping under the
proposed rule will be 5 hours per
program participant. In support of their
progress under the Equity Plan, program
participants must complete and provide
to HUD annual progress evaluations
which are estimated for each program
participant to take 10 hours.
As a part of this rulemaking, HUD is
providing a process whereby
individuals can submit complaints
related to the program participant’s
obligations to affirmatively further fair
housing, and HUD anticipates 100
complaints to be received each year,
with an estimated total processing
burden time of 10 hours for program
participants.
The burden of the information
collections in this proposed rule is
estimated as follows:
proposes significant changes in this
proposed rule from the final 2015 AFFH
Rule in order to reduce burden. In
particular, HUD is proposing to codify
the analysis questions for all program
participants rather than having separate
assessment tools subject to change
through PRA every three years. Because
larger program participants tend to
operate in larger geographic areas with
larger populations, in particular, large
metropolitan areas, States, and insular
areas, these larger program participants
will have more content to analyze.
Conversely, smaller program
participants tend to operate in less
densely populated areas and tend to
have fewer community assets. The
questions proposed are expected to
scale with the size of the jurisdiction of
the program participant. In addition,
HUD has eliminated various
components of the 2015 AFFH Rule’s
AFH analysis, including, for example,
the contributing factors analysis. HUD
anticipates that the more streamlined
Equity Plan analysis, which will not
change every three years pursuant to
PRA, will provide a significantly
reduced burden. HUD also bases these
estimates, including the sliding scale,
on the burden hours estimated for AFH
preparation during implementation of
the 2015 AFFH Rule. Smaller program
participants took significantly less time
to prepare AFHs than did the larger
program participants, and the AFHs
were similarly less extensive. These
combined factors led to HUD’s estimate
of 150 hours for the largest program
participants, which is 50 hours less than
the expected burden for the preparation
of all AFHs under the 2015 AFFH Rule.
HUD notes that while these burdens
are listed as annual obligations, the
majority of any burden will happen for
REPORTING AND RECORDKEEPING BURDEN
Number of
parties
Section reference
Estimated
average
time for
requirement
(hours)
Number of
responses
per party
Total
estimated
annual burden
(hours)
khammond on DSKJM1Z7X2PROD with PROPOSALS2
§§ 5.154, 5.168(a)(1) and (3) Equity Plan—Analysis, Fair Housing Goals, Meaningful Actions
Consolidated Plan Program Participant (States, Insular Areas, Local Governments, and Consortia) ............................................................................
$100 Million or More ........................................................................................
$30–99 Million ..................................................................................................
$1–29 Million ....................................................................................................
Less than $1 Million .........................................................................................
Total Consolidated Plan Program Participant Burden .............................
All PHAs ...........................................................................................................
50,000 or More Public Housing and Voucher Unit PHAs ...............................
10,000–49,999 Public Housing and Voucher Unit PHAs ................................
1,000–9,999 Public Housing and Voucher Unit PHAs ....................................
Fewer than 1,000 Public Housing and Voucher Unit PHAs ............................
VerDate Sep<11>2014
16:40 Feb 08, 2023
Jkt 259001
PO 00000
Frm 00041
Fmt 4701
45 1,250
10
40
660
540
1
1
1
1
1
........................
150
125
100
50
........................
2,700
6,000
63,800
24,150
........................
46 3,835
5
50
610
3,170
........................
1
1
1
1
1
........................
........................
150
125
100
50
96,650
........................
600
6,125
61,000
158,600
Sfmt 4702
E:\FR\FM\09FEP2.SGM
09FEP2
8556
Federal Register / Vol. 88, No. 27 / Thursday, February 9, 2023 / Proposed Rules
REPORTING AND RECORDKEEPING BURDEN—Continued
Section reference
Number of
parties
Number of
responses
per party
Estimated
average
time for
requirement
(hours)
Total PHA Plan Program Participant Burden ...........................................
Joint Equity Plans (Total Burden for All Joint Program Participants Combined) ...........................................................................................................
Cumulative Total Burden Hours for Equity Plans and Joint Equity Plans ......
§§ 5.158, 5.168 Recordkeeping for Community Engagement and Other Activities ...........................................................................................................
§ 5.160(f) Annual progress evaluations ...........................................................
§ 5.170 Complaints ..........................................................................................
§§ 5.162(c) and 5.164 Revisions of Equity Plans ............................................
........................
........................
........................
226,325
2,511
5,022
1
........................
50
........................
125,550
* 287,038
5,022
5,022
100
251
1
1
1
1
5
10
10
50
25,110
50,220
1,000
12,550
Total Burden .............................................................................................
........................
........................
........................
375,918
Total
estimated
annual burden
(hours)
khammond on DSKJM1Z7X2PROD with PROPOSALS2
*(Con Plan + PHA)/2 + Joint Equity Plan.
In accordance with 5 CFR
1320.8(d)(1), HUD is soliciting
comments from members of the public
and affected agencies concerning this
collection of information to:
(1) Evaluate whether the proposed
collection of information is necessary
for the proper performance of the
functions of the agency, including
whether the information will have
practical utility;
(2) Evaluate the accuracy of the
agency’s estimate of the burden of the
proposed collection of information;
(3) Enhance the quality, utility, and
clarity of the information to be
collected; and
(4) Minimize the burden of the
collection of information on those who
are to respond, including through the
use of appropriate automated collection
techniques or other forms of information
technology, e.g., permitting electronic
submission of responses.
Interested persons are invited to
submit comments regarding the
information collection requirements in
this rule. Comments must refer to the
proposal by name and docket number
(FR–5593–P–01) and must be sent to:
HUD Desk Officer, Office of
Management and Budget, New
Executive Office Building,
Washington, DC 20503, Fax: (202)
395–6947
And
Reports Liaison Officer, Office of Public
and Indian Housing, Department of
Housing and Urban Development,
Room 451, 7th Street SW,
Washington, DC 20410
Interested persons may submit
comments regarding the information
collection requirements electronically
through the Federal eRulemaking Portal
45 Based
on FY2021 data.
46 Based on FY2022 data.
VerDate Sep<11>2014
16:40 Feb 08, 2023
Jkt 259001
at https://www.regulations.gov. HUD
strongly encourages commenters to
submit comments electronically.
Electronic submission of comments
allows the commenter maximum time to
prepare and submit a comment, ensures
timely receipt by HUD, and enables
HUD to make them immediately
available to the public. Comments
submitted electronically through the
https://www.regulations.gov website can
be viewed by other commenters and
interested members of the public.
Commenters should follow the
instructions provided on that site to
submit comments electronically.
List of Subjects
24 CFR Part 5
Administrative practice and
procedure, Aged, Claims, Grant
programs—housing and community
development, Individuals with
disabilities, Intergovernmental relations,
Loan programs—housing and
community development, Low and
moderate income housing, Mortgage
insurance, Penalties, Pets, Public
housing, Rent subsidies, Reporting and
recordkeeping requirements, Social
security, Unemployment compensation,
Wages.
24 CFR Part 91
Aged, Grant programs—housing and
community development, Homeless,
Individuals with disabilities, Low and
moderate income housing, Reporting
and recordkeeping requirements.
24 CFR Part 92
Administrative practice and
procedure, Grant programs—housing
and community development, Low and
moderate income housing,
Manufactured homes, Rent subsidies,
Reporting and recordkeeping
requirements.
PO 00000
Frm 00042
Fmt 4701
Sfmt 4702
24 CFR Part 93
Administrative practice and
procedure, Grant programs—housing
and community development, Low- and
moderate-income housing,
Manufactured homes, Rent subsidies,
Reporting and recordkeeping
requirements.
24 CFR Part 570
Administrative practice and
procedure, American Samoa,
Community development block grants,
Grant programs—education, Grant
programs—housing and community
development, Guam, Indians, Lead
poisoning, Loan programs—housing and
community development, Low and
moderate income housing, New
communities, Northern Mariana Islands,
Pacific Islands Trust Territory, Pockets
of poverty, Puerto Rico, Reporting and
recordkeeping requirements, Small
cities, Student aid, Virgin Islands.
24 CFR Part 574
Community facilities, Disabled, Grant
programs—health programs, Grant
programs—housing and community
development, Grant programs—social
programs, HIV/AIDS, Homeless,
Housing, Low and moderate income
housing, Non profit organizations, Rent
subsidies, Reporting and recordkeeping
requirements, Technical assistance.
24 CFR Part 576
Community facilities, Emergency
solutions grants, Grant programs—
housing and community development,
Grant program—social programs,
Homeless, Reporting and recordkeeping
requirements.
24 CFR Part 903
Administrative practice and
procedure, Public housing, Reporting
and recordkeeping requirements.
E:\FR\FM\09FEP2.SGM
09FEP2
Federal Register / Vol. 88, No. 27 / Thursday, February 9, 2023 / Proposed Rules
24 CFR Part 983
Grant programs—housing and
community development, Grant
programs—Indians, Indians, Public
Housing, Rent subsidies, Reporting and
recordkeeping requirements.
Accordingly, for the reasons described
in the preamble, HUD proposes to
amend 24 CFR parts 5, 91, 92, 93, 570,
574, 576, 903, and 983 as follows:
PART 5—GENERAL HUD PROGRAM
REQUIREMENTS; WAIVERS
1. The authority citation for part 5
continues to read as follows:
■
Authority: 29 U.S.C. 794, 42 U.S.C. 1437a,
1437c, 1437c–1(d), 1437d, 1437f, 1437n,
3535(d), and Sec. 327, Pub. L. 109–115, 119
Stat. 2936; 42 U.S.C. 3600–3620; 42 U.S.C.
5304(b); 42 U.S.C. 12101 et seq.; 42 U.S.C.
12704–12708; E.O. 11063, 27 FR 11527, 3
CFR, 1958–1963 Comp., p. 652; E.O. 12892,
59 FR 2939, 3 CFR, 1994 Comp., p. 849.
Subpart A—Generally Applicable
Definitions and Requirements; Waivers
2. Revise §§ 5.150 through 5.180
under the undesignated center heading
‘‘Affirmatively Furthering Fair Housing’’
to read as follows:
■
Affirmatively Furthering Fair Housing
Sec.
5.150 Affirmatively furthering fair housing:
Purpose.
5.151 Affirmatively furthering fair housing:
Application.
5.152 Definitions.
5.154 Equity Plan.
5.156 Affirmatively furthering fair housing
through Equity Plan incorporation into
subsequent planning documents.
5.158 Community engagement.
5.160 Submission requirements.
5.162 Review of Equity Plan.
5.164 Revising an accepted Equity Plan.
5.166 AFFH certifications required for the
receipt of Federal financial assistance.
5.168 Recordkeeping.
5.170 Compliance procedures.
5.172 Procedures for effecting compliance.
5.174 Hearings.
5.175–5.180 [Reserved]
Affirmatively Furthering Fair Housing
khammond on DSKJM1Z7X2PROD with PROPOSALS2
§ 5.150 Affirmatively furthering fair
housing: Purpose.
(a) This section and §§ 5.151 through
5.180 implement the Fair Housing Act’s
affirmatively furthering fair housing
(AFFH) mandate, which requires
Federal housing and urban development
programs and activities to be
administered in a manner that not only
avoids and eliminates discrimination,
but also remedies the legacy of public
and private policies and practices that
have created segregated communities
and enduring inequities in housing and
related opportunities throughout the
VerDate Sep<11>2014
16:40 Feb 08, 2023
Jkt 259001
Nation. This section and §§ 5.151
through 5.180 are intended to ensure
that HUD program participants, while
making local decisions responsive to
local circumstances, commit to and
implement concrete actions that will
meaningfully remedy persistent
segregation, limitations on fair housing
choice, and unequal access to
community assets and related economic
opportunities. This section and §§ 5.151
through 5.180 aim to provide publicly
transparent processes, to provide
flexibility and avoid unnecessary
burden and confusion for program
participants, and to create
accountability mechanisms that ensure
HUD, program participants, and the
public at large, all can play a part in
meeting the urgent need to ensure that
local fair housing issues are fully
identified and meaningfully addressed.
(b) To further these aims, this section
and §§ 5.151 through 5.180 set out a
process under which program
participants, after robust engagement
with their communities, will conduct a
focused analysis of the fair housing
issues in their areas, establish fair
housing goals to overcome them, and
submit their analysis and commitments
for HUD review, with the public having
an opportunity to submit comments for
consideration during HUD’s review.
Program participants will submit annual
progress evaluations, made available to
the public, on their accomplishments
under each goal they commit to achieve,
and will be able to amend or adjust
goals that cannot be met or that may
require additional time. This section
and §§ 5.151 through 5.180 provide
procedures for the public to file
complaints alleging violations of this
section and §§ 5.151 through 5.180 or
the duty to affirmatively further fair
housing, as well as for HUD to conduct
investigations and take any actions
necessary to ensure compliance.
(c) Ultimately, this section and
§§ 5.151 through 5.180 seek to further
implement the AFFH statutory mandate
by requiring and assisting HUD program
participants to embed fairness and
equity in their decision-making
processes, particularly with respect to
the use of Federal financial assistance
and resources, as they recognize and
redress inequities in their policies,
activities, services, and programs that
serve as barriers to equal opportunity in
housing. This section and §§ 5.151
through 5.180 seek to expand equitable
access to housing and related
opportunities across all protected
classes, including race, color, national
origin, religion, sex (including gender
identity, sexual orientation, and
nonconformance with gender
PO 00000
Frm 00043
Fmt 4701
Sfmt 4702
8557
stereotypes), disability, and familial
status.
§ 5.151 Affirmatively furthering fair
housing: Application.
All programs and activities relating to
housing and urban development must
comply with the obligation to
affirmatively further fair housing.
Sections 5.150 through 5.180 also
include specific planning requirements
for program participants, as defined in
§ 5.152.
§ 5.152
Definitions.
For purposes of §§ 5.150 through
5.180, the terms ‘‘consolidated plan,’’
‘‘consortium,’’ ‘‘unit of general local
government,’’ ‘‘jurisdiction,’’ and
‘‘State’’ are defined in 24 CFR part 91.
For public housing agencies (PHAs),
‘‘jurisdiction’’ is defined in 24 CFR
982.4. The following additional
definitions are provided solely for
purposes of §§ 5.150 through 5.180 and
related amendments in 24 CFR parts 91,
92, 93, 570, 574, 576, 903, and 983.
Affirmatively furthering fair housing
means taking meaningful actions, in
addition to combating discrimination,
that overcome patterns of segregation,
eliminate inequities in housing and
related community assets, and foster
inclusive communities free from
barriers that restrict access to
opportunity based on protected
characteristics. Specifically,
affirmatively furthering fair housing
means taking meaningful actions that,
taken together, reduce or end significant
disparities in housing needs and in
access to opportunity, replacing
segregated living patterns with truly
integrated and balanced living patterns,
transforming racially and ethnically
concentrated areas of poverty into wellresourced areas of opportunity, and
fostering and maintaining compliance
with civil rights and fair housing laws
and requirements. The duty to
affirmatively further fair housing
extends to all of a program participant’s
activities, services, and programs
relating to housing and community
development; it extends beyond a
program participant’s duty to comply
with Federal civil rights laws and
requires a program participant to take
actions, make investments, and achieve
outcomes that remedy the segregation,
inequities, and discrimination the Fair
Housing Act was designed to redress.
Affordable housing opportunities
means:
(1) Housing that:
(i) Is affordable to low- and moderateincome households;
(ii) Has a sufficient number of
bedrooms to meet the needs of families
E:\FR\FM\09FEP2.SGM
09FEP2
khammond on DSKJM1Z7X2PROD with PROPOSALS2
8558
Federal Register / Vol. 88, No. 27 / Thursday, February 9, 2023 / Proposed Rules
of various sizes, particularly large
families; and
(iii) Meets basic habitability
requirements.
(2) Affordable housing includes
publicly supported housing as well as
housing that is otherwise affordable to
low-income households. For publicly
supported housing, such housing must
comply with applicable program
requirements for affordability and
habitability.
(3)(i) The term ‘‘affordable housing
opportunities’’ includes the location of
such housing, including proximity to
community assets, locations that
promote integration, and locations that
provide access to opportunity and wellresourced areas.
(ii) Affordable housing opportunities
also includes housing that is accessible
to individuals with disabilities,
including by providing necessary
accessibility features.
(iii) Affordable housing opportunities
also includes housing stability for
protected class groups, which may be
adversely affected by factors such as,
but not limited to, rising rents, loss of
existing affordable housing, and
displacement due to economic
pressures, evictions, source of income
discrimination, or code enforcement.
Analysis of Impediments to Fair
Housing Choice means the analysis
described in the Fair Housing Planning
Guide (FHPG) originally published by
the Department in 1996 or in any
subsequent update to the FHPG that
HUD may make available.
Balanced approach means and refers
to an approach to community planning
and investment that balances a variety
of actions to eliminate the housingrelated disparities that result from
segregation, racially or ethnically
concentrated areas of poverty (R/
ECAPs), the lack of affordable housing
in well-resourced areas of opportunity,
the lack of investment in community
assets in R/ECAPs and other highpoverty areas, and the loss of affordable
housing to meet the needs of
underserved communities. A balanced
approach includes a combination of
actions designed to address all these
disparities. For example, place-based
strategies include actions and
investment to substantially improve
living conditions and community assets
in high-poverty neighborhoods while
preserving existing affordable housing
stock to meet the needs of underserved
communities and address inequitable
access to affordable rental and
homeownership opportunities. Mobility
strategies, on the other hand, focus on
the removal of barriers that prevent
people from accessing affordable
VerDate Sep<11>2014
16:40 Feb 08, 2023
Jkt 259001
housing, for example in well-resourced
areas of opportunity that have
historically lacked such housing and
effective housing mobility programs and
services. To achieve a balanced
approach, community planning and
investment would need to balance
place-based strategies with mobility
strategies. Both place-based and
mobility strategies that are part of a
balanced approach must be designed to
achieve positive fair housing outcomes.
A program participant that has the
ability to create greater fair housing
choice outside segregated, low-income
areas should not rely on solely placebased strategies consistent with a
balanced approach.
Community assets means programs,
infrastructure, and facilities that provide
opportunity and a desirable
environment. Examples of community
assets include: high performing schools
(as well as quality daycare and
childhood educational services),
desirable employment opportunities,
efficient transportation services, safe
and well-maintained parks and
recreation facilities, well-resourced
libraries and community centers,
community-based supportive services
for individuals with disabilities,
responsive emergency services
(including law enforcement), healthcare
services, environmentally healthy
neighborhoods (including clean air,
clean water, access to healthy food),
grocery stores, retail establishments,
infrastructure and municipal services,
banking and financial institutions, and
other assets that meet the needs of
residents throughout the community.
Community engagement, as required
by § 5.158, means a solicitation of views
and recommendations from members of
the community and other interested
parties, consideration of the views and
recommendations received, and a
process for incorporating such views
and recommendations into planning
processes, decisions, and outcomes.
Consolidated plan program
participant. See definition of ‘‘program
participants’’ in this section.
Data collectively refers to:
(1) HUD-provided data. The term
‘‘HUD-provided data’’ refers to metrics,
statistics, and other quantified
information, including data sets specific
to each program participant, provided
by HUD, that program participants are
required to use in preparing an Equity
Plan. HUD-provided data will not only
be provided to program participants but
will also be posted on HUD’s website for
public availability; and
(2) Local data. The term ‘‘local data’’
refers to metrics, statistics, and other
quantified information, subject to a
PO 00000
Frm 00044
Fmt 4701
Sfmt 4702
determination of reliability or statistical
validity by HUD, relevant to the
program participant’s geographic areas
of analysis, that program participants
can find through a reasonable amount of
search, are readily available at little or
no cost, including the location of
publicly supported housing, and are
necessary for the completion of the
Equity Plan.
Days means calendar days.
Disability, as used in this part:
(1) The term ‘‘disability’’ means, with
respect to an individual:
(i) A physical or mental impairment
that substantially limits one or more
major life activities of such individual;
(ii) A record of such an impairment;
or
(iii) Being regarded as having such an
impairment.
(2) The term ‘‘disability’’ as used in
this part shall be interpreted consistent
with the definition of such term under
section 504 of the Rehabilitation Act of
1973, as amended by the ADA
Amendments Act of 2008. This
definition does not change the
definition of ‘‘disability’’ or ‘‘disabled
person’’ adopted pursuant to a HUD
program statute for purposes of
determining an individual’s eligibility
to participate in a housing program that
serves a specified population.
Equity or equitable means the
consistent and systematic fair, just, and
nondiscriminatory treatment of all
individuals, regardless of protected
characteristic, including concerted
actions to overcome past discrimination
against underserved communities that
have been denied equal opportunity or
otherwise adversely affected because of
their protected characteristics by public
and private policies and practices that
have perpetuated inequality,
segregation, and poverty.
Equity Plan means:
(1) The plan prepared by program
participants, pursuant to § 5.154, to
advance local equity in housing,
community development programs, and
access to well-resourced areas,
opportunity, and community assets. The
Equity Plan includes two distinct parts:
(i) The analysis of fair housing data
and identification of fair housing issues
required by the fair housing goal
category; and
(ii) The establishment and
commitment to undertake fair housing
goals, strategies, and meaningful actions
for each fair housing goal category,
which program participants shall
incorporate into subsequent planning
documents that identify how the
program participant will use funds or
take actions to affirmatively further fair
housing.
E:\FR\FM\09FEP2.SGM
09FEP2
khammond on DSKJM1Z7X2PROD with PROPOSALS2
Federal Register / Vol. 88, No. 27 / Thursday, February 9, 2023 / Proposed Rules
(2) Program participants submit their
Equity Plan to HUD for review. The
Equity Plan may be conducted and
submitted by an individual program
participant (individual Equity Plan) or
may be a single Equity Plan that is
jointly conducted and submitted by two
or more program participants (joint
Equity Plan). The Equity Plan includes
program participants’ submission of
annual progress evaluations, which will
be published on HUD maintained web
pages.
Fair housing choice means that
individuals and families have the
information, opportunity, and options to
live where they choose, including in
well-resourced areas, without unlawful
discrimination and other barriers related
to race, color, religion, sex (including
sexual orientation gender identity, and
nonconformance with gender
stereotypes), familial status, national
origin, or disability. Fair housing choice
encompasses:
(1) Actual choice, which means the
existence of realistic housing options
(e.g., those that are affordable and
attainable), including but not limited to
homeownership options;
(2) Protected choice, which means
housing that can be accessed without
discrimination; and
(3) Enabled choice, which means
realistic access to sufficient information,
services, and other options regarding
both rental housing and homeownership
so that any choice is informed. For
persons with disabilities, fair housing
choice includes a realistic opportunity
to obtain and maintain housing with
accessibility features meeting the
individual’s disability-related needs,
housing provided in the most integrated
setting appropriate to an individual’s
needs, and housing where community
assets are accessible to individuals with
disabilities, including voluntary
disability-related services that an
individual needs to live in such
housing.
Fair housing goals means the goals
developed by program participants that
are based on the analysis conducted in
the Equity Plan and are designed and
can be reasonably expected to overcome
circumstances that cause, increase,
contribute to, maintain, or perpetuate
fair housing issues in the program
participant’s geographic areas of
analysis. Fair housing goals include a
description of progress-oriented,
specific measurable steps, including
timeframes for achievement, and a
description of the amount of and
potential sources of funds (if any)
needed to implement the goal. Fair
housing goals may be short-term, in that
they can be achieved relatively quickly,
VerDate Sep<11>2014
16:40 Feb 08, 2023
Jkt 259001
or more ambitious, long-term goals, in
that they may take more than a single
funding cycle to be fulfilled. Fair
housing goals are designed to achieve
tangible, positive, and measurable fair
housing outcomes for each of the seven
fair housing goal categories in the
program participant’s community. A
program participant’s fair housing goals
must work together to overcome fair
housing issues identified in the program
participant’s Equity Plan. To ensure
program participants affirmatively
further fair housing, if program
participants establish ambitious goals
that are contingent upon funding or
other actions that are not entirely within
their control, program participants also
must establish fair housing goals that
will achieve positive fair housing
outcomes in each goal category without
reliance on contingencies that may not
be fulfilled. Each fair housing goal
includes a description of the key fair
housing issue(s) it is designed to remedy
or overcome. When achieved, fair
housing goals must result in a material
positive change toward overcoming fair
housing issues.
Fair housing goal categories means
the following categories for which
program participants must establish fair
housing goals to overcome identified
fair housing issues:
(1) Integration and segregation;
(2) Racially or ethnically concentrated
areas of poverty (R/ECAPs);
(3) Significant disparities in access to
opportunity;
(4) Inequitable access to affordable
housing and homeownership
opportunities;
(5) Laws, ordinances, policies,
practices, and procedures that impede
the provision of affordable housing in
well-resourced areas of opportunity,
including housing that is accessible for
individuals with disabilities;
(6) Inequitable distribution of local
resources, which may include State or
municipal services, emergency services,
community-based supportive services,
and investments in infrastructure; and
(7) Discrimination or violations of
civil rights law or regulations related to
housing and access to community
assets.
Fair housing issue means a condition
in a program participant’s geographic
area of analysis that restricts fair
housing choice or access to opportunity
and community assets. Examples of
such conditions include but are not
limited to: ongoing local or regional
segregation or lack of integration,
racially or ethnically concentrated areas
of poverty, significant disparities in
access to opportunity, inequitable
access to affordable housing
PO 00000
Frm 00045
Fmt 4701
Sfmt 4702
8559
opportunities and homeownership
opportunities, laws, ordinances,
policies, practices, and procedures that
impede the provision of affordable
housing in well-resourced
neighborhoods of opportunity,
inequitable distribution of local
resources, which may include
municipal services, emergency services,
community-based supportive services,
and investments in infrastructure, and
discrimination or violations of civil
rights law or regulations related to
housing or access to community assets.
Participation in ‘‘housing programs
serving specified populations,’’ as
defined in this section, does not present
a fair housing issue of segregation,
provided that such programs are
administered by program participants so
that the programs comply with title VI
of the Civil Rights Act of 1964 (42
U.S.C. 2000d—2000d–4)
(Nondiscrimination in Federally
Assisted Programs); the Fair Housing
Act (42 U.S.C. 3601–19), including the
duty to affirmatively further fair
housing; section 504 of the
Rehabilitation Act of 1973 (29 U.S.C.
794); the Americans with Disabilities
Act (ADA) (42 U.S.C. 12101, et seq.);
and other Federal civil rights statutes
and regulations.
Fair housing strategies and actions
means the specific policies and actions
intended to implement fair housing
goals established in an Equity Plan that
are incorporated into the program
participant’s subsequent planning
documents (e.g., consolidated plan,
annual action plan, PHA Plan, and other
plans relating to education,
transportation, infrastructure, and
environmental protection, including
those required in connection with the
receipt of Federal financial assistance
from any executive agency or
department). Fair housing strategies and
actions describe how the funds that are
the subject of the particular planning
document will be used to affirmatively
further fair housing in the program
participant’s jurisdiction consistent
with the Equity Plan.
Funding decisions means decisions
made to allocate resources, including
Federal financial assistance, State or
local funds, bond financing, and the
administration, utilization, and
allocation of low-income housing tax
credits by States, local governments,
public housing agencies (as applicable),
or other entities.
Geographic area, geographic area of
analysis, or area means the areas,
including a jurisdiction, region, State,
Core-Based Statistical Area (CBSA), or
other applicable area (e.g., census tract,
neighborhood, ZIP code, block group,
E:\FR\FM\09FEP2.SGM
09FEP2
khammond on DSKJM1Z7X2PROD with PROPOSALS2
8560
Federal Register / Vol. 88, No. 27 / Thursday, February 9, 2023 / Proposed Rules
housing development, or portion
thereof) relevant to the analysis required
by § 5.154. The geographic areas of
analysis for the different types of
program participants are as follows:
(1) For States or insular areas, the
expected geographic area of analysis
includes the whole State or insular area
pursuant to 24 CFR 91.5, including
entitlement and non-entitlement areas,
on a county-by-county basis (not
neighborhood-by-neighborhood), and,
where necessary to identify fair housing
issues, lower levels of geography, while
also including any analysis of
circumstances outside the State that
impact fair housing issues within the
State;
(2) For local governments, the
expected geographic area of analysis
includes the whole jurisdiction of the
local government pursuant to 24 CFR
91.5, the CBSA, and where necessary to
identify fair housing issues, lower levels
of geography such as neighborhoods,
ZIP codes, census tracts, block groups,
housing developments, or portions
thereof, while also including any
analysis of circumstances outside the
jurisdiction that impact fair housing
issues within the jurisdiction; and
(3)(i) For PHAs that operate below the
State level, the expected geographic area
of analysis includes the PHA’s whole
service area (e.g., the area where a
public housing agency is authorized to
operate), the CBSA, and where
necessary to identify fair housing issues,
includes lower levels of geography such
as neighborhoods, ZIP codes, census
tracts, block groups, housing
developments, or portions thereof, along
with locations where vouchers
administered by the PHA are or could
be utilized, while also including any
analysis of circumstances outside the
service area that impact fair housing
issues within the service area.
(ii) For PHAs that operate within an
entire State, the PHA’s expected
geographic area of analysis includes the
areas of analysis for States as referenced
in paragraph (3)(i) of this definition
along with the areas in which the PHA
owns, operates, and administers
housing programs, and where necessary
to identify fair housing issues, includes
lower levels of geography.
Homeownership opportunity means
that one has the actual choice to own,
sell, buy, and finance a home, without
discrimination based on a protected
characteristic.
Housing programs serving specified
populations are HUD and Federal
housing programs, including
designations in the programs, as
applicable, such as HUD’s Supportive
Housing for the Elderly, Supportive
VerDate Sep<11>2014
16:40 Feb 08, 2023
Jkt 259001
Housing for Persons with Disabilities,
homeless assistance programs under the
McKinney-Vento Homeless Assistance
Act (42 U.S.C. 11301 et seq.), and
housing designated under section 7 of
the United States Housing Act of 1937
(42 U.S.C. 1437e), that:
(1) Serve specific identified
populations; and
(2) Comply with title VI of the Civil
Rights Act of 1964 (42 U.S.C. 2000d—
2000d–4) (Nondiscrimination in
Federally Assisted Programs); the Fair
Housing Act (42 U.S.C. 3601–19),
including the duty to affirmatively
further fair housing; section 504 of the
Rehabilitation Act of 1973 (29 U.S.C.
794); the Americans with Disabilities
Act (42 U.S.C. 12101, et seq.); and other
Federal civil rights statutes and
regulations.
Insular area has the same meaning as
provided in 24 CFR 570.405.
Integration means a condition, within
the program participant’s geographic
area of analysis, in which there is not a
high concentration of persons of a
particular race, color, religion, sex,
familial status, national origin, or
having a disability or a particular type
of disability when compared to a
broader geographic area. Racial
integration means that people of
different racial groups generally are not
highly concentrated in distinct
geographic areas within a community
(e.g., census tract or block group). For
individuals with disabilities, integration
also means that such individuals are
able to access housing and services in
the most integrated setting appropriate
to the individual’s needs. The most
integrated setting is one that enables
individuals with disabilities to interact
with persons without disabilities to the
fullest extent possible, consistent with
the requirements of the Americans with
Disabilities Act (42 U.S.C. 12101, et
seq.) and section 504 of the
Rehabilitation Act of 1973 (29 U.S.C.
794). See 28 CFR part 35, appendix B
(addressing 28 CFR 35.130 and
providing guidance on the Americans
with Disabilities Act regulation on
nondiscrimination on the basis of
disability in State and local government
services).
Joint program participants means two
or more program participants that are
jointly conducting and submitting a
single Equity Plan (a joint Equity Plan),
in accordance with § 5.156 and 24 CFR
903.15(a)(1) and (2), as applicable. Joint
program participants pool resources to
work together to solve crossjurisdictional fair housing issues.
Local knowledge means information
not provided by HUD that relates to the
program participant’s geographic areas
PO 00000
Frm 00046
Fmt 4701
Sfmt 4702
of analysis, is relevant to the
identification of fair housing issues in
the program participant’s Equity Plan
and for setting of fair housing goals to
overcome the effects of identified fair
housing issues pursuant to § 5.154, is
known or becomes known to the
program participant, and is necessary
for the completion of the Equity Plan.
Local knowledge includes, but is not
limited to:
(1) Historical information on why
current conditions within the
geographic areas of analysis exist and
persist, which may include State or
local laws, ordinances, or policies that
cause, perpetuate, increase the severity
of, or maintain fair housing issues;
(2) Information provided to the
program participant during the
community engagement process that
draws attention to the existence or cause
of one or more fair housing issues; and
(3) Information that assists the
program participant in identifying the
causes of their local fair housing issues
along with appropriate solutions.
Meaningful actions means significant
actions that are designed and can be
reasonably expected to achieve a
material positive change that
affirmatively furthers fair housing by,
for example, decreasing segregation and
increasing integration, increasing fair
housing choice, or decreasing
disparities in access to opportunity in
the program participant’s jurisdiction.
Program participants means:
(1) Jurisdictions and insular areas that
are required to submit consolidated
plans for the following programs:
(i) The Community Development
Block Grant (CDBG) program (see 24
CFR part 570, subparts D, F, and I);
(ii) The Emergency Solutions Grants
(ESG) program (see 24 CFR part 576);
(iii) The HOME Investment
Partnerships (HOME) program (see 24
CFR part 92);
(iv) The Housing Opportunities for
Persons With AIDS (HOPWA) program
(see 24 CFR part 574); and
(v) The Housing Trust Fund (HTF)
program (see 24 CFR part 93).
(2) Public housing agencies (PHAs)
receiving assistance under sections 8 or
9 of the United States Housing Act of
1937 (42 U.S.C. 1437f or 1437g).
Protected characteristics are race,
color, religion, sex (including sexual
orientation, gender identity, and
nonconformance with gender
stereotypes), familial status, national
origin, having a disability, and having a
type of disability.
Protected class means a group of
persons who have the same protected
characteristic; e.g., a group of persons
who are of the same race are a protected
E:\FR\FM\09FEP2.SGM
09FEP2
khammond on DSKJM1Z7X2PROD with PROPOSALS2
Federal Register / Vol. 88, No. 27 / Thursday, February 9, 2023 / Proposed Rules
class. Similarly, a person who has a
mobility disability is a member of the
protected class of persons with
disabilities and a member of the
protected class of persons with mobility
disabilities.
Publication means the public online
posting of the Equity Plans and annual
progress evaluations submitted to HUD
for review on HUD-maintained web
pages. These web pages will include,
among other things, a dashboard to track
the status of a program participant’s
AFFH planning and implementationrelated activities and access to Equity
Plan submissions, annual progress
evaluation reports, and related
notifications from the Department.
Publicly supported housing means
affordable housing assisted with
funding through Federal, State, or local
agencies or programs as well as
affordable housing financed or
administered by or through any such
agencies or programs. Examples of
publicly supported housing for
purposes of the analysis required by
§ 5.154 include: public housing; ProjectBased Section 8; Other HUD
Multifamily Housing (e.g., Section 202
Supportive Housing for the Elderly and
Section 811 Supportive Housing for
Persons with Disabilities); housing
financed with Low-Income Housing Tax
Credits (LIHTC); housing financed
through loan guarantees (Section 108);
and housing subsidized with Housing
Choice Vouchers. Other publicly
supported housing includes housing
funded through the U.S. Department of
Agriculture and the U.S. Department of
Veterans Affairs, or other HUD-funded
housing, such as affordable multifamily
housing financed using HOME
Investment Partnerships funds, housing
financed through the Housing Trust
Fund, and housing converted under the
Rental Assistance Demonstration.
Racially or ethnically concentrated
areas of poverty or R/ECAPs means a
geographic area with both significant
concentrations of poverty and
segregation of racial or ethnic
populations.
Region means the larger geographic
area that a jurisdiction lies within.
Regions may vary in size, scope, and
relevance based on the nature of the
jurisdiction and the fair housing issues
present. Regions, which include areas
outside the program participant’s
jurisdiction that are identified in HUDprovided data and supplemented based
on local data and local knowledge, and
that impact fair housing issues in the
jurisdiction. For local government or
PHA program participants’ jurisdictions
that are adjacent to but not located
within a Core-Based Statistical Area
VerDate Sep<11>2014
16:40 Feb 08, 2023
Jkt 259001
(CBSA), the region includes the CBSA.
For local government or PHA program
participants’ jurisdictions that are
located within CBSAs, the region
includes but is not necessarily limited
to the other portions of the CBSA.
Responsible Civil Rights Official
means the Assistant Secretary for Fair
Housing and Equal Opportunity (FHEO)
or his or her designee.
Reviewing Civil Rights Official means
the FHEO official with the designated
authority to carry out the actions
described in §§ 5.170 and 5.172.
Segregation means a condition within
the program participant’s geographic
areas of analysis in which there is a
significant concentration of persons of a
particular race, color, religion, sex
(including sexual orientation, gender
identity, and nonconformance with
gender stereotypes), familial status,
national origin, or having a disability or
a type of disability in a particular
geographic area when compared to a
different or broader geographic area.
Racial segregation includes a
concentration of persons of the same
race regardless of whether that race is
the majority or minority of the
population in the geographic area of
analysis. For example, in a community
where persons of one race (e.g., White)
are concentrated in one neighborhood
and persons of another race (e.g.,
African American) are concentrated in a
different neighborhood, racial
segregation exists in each of the
neighborhoods. For persons with
disabilities, segregation includes a
condition in which available housing or
services are not in the most integrated
setting appropriate to an individual’s
needs in accordance with the
requirements of the Americans with
Disabilities Act (42 U.S.C. 12101, et
seq.) and section 504 of the
Rehabilitation Act of 1973 (29 U.S.C.
794). See 28 CFR part 35, appendix B
(addressing 28 CFR 35.130).
Participation in ‘‘housing programs
serving specified populations’’ as
defined in this section does not present
a fair housing issue of segregation,
provided that such programs are
administered to comply with title VI of
the Civil Rights Act of 1964 (42 U.S.C.
2000d—2000d–4) (Nondiscrimination in
Federally Assisted Programs); the Fair
Housing Act (42 U.S.C. 3601–19),
including the duty to affirmatively
further fair housing; section 504 of the
Rehabilitation Act of 1973 (29 U.S.C.
794); the Americans with Disabilities
Act (42 U.S.C. 12101, et seq.); and other
Federal civil rights statutes and
regulations.
Significant disparities in access to
opportunity means substantial and
PO 00000
Frm 00047
Fmt 4701
Sfmt 4702
8561
measurable differences in access to and
quality of housing, education,
transportation, economic, and other
important opportunities in a
community, including community
assets, based on protected class and
related to where individuals of a
particular protected class reside in the
program participant’s geographic areas
of analysis.
Siting decisions means decisions
made by State or local entities,
including cities, counties, or general
units of local government regarding
where and where not in a jurisdiction to
locate, build, finance, rehabilitate,
develop, or permit the development of
affordable housing.
Underserved communities means
groups or classes of individuals (i.e.,
underserved populations), that are
protected classes or who share a
particular characteristic,
disproportionately include members of
protected class groups, and have not
received equitable treatment, as well as
geographic communities (i.e.,
underserved geographic areas) where
members of protected class groups do
not enjoy equitable access to housing,
education, transportation, economic,
and other important housing and
community-related opportunities,
including well-resourced areas and
community assets. Examples of
underserved communities include:
communities of color, individuals
experiencing homelessness, Lesbian,
Gay, Bisexual, Transgender, Queer, +
persons (LGBTQ+), low-income
communities or neighborhoods,
survivors of domestic violence, persons
with criminal records, and rural
communities.
Well-resourced areas means areas
within the program participant’s
geographic area of analysis that have
high-quality and well-maintained
community assets (in view of local
economic circumstances), as defined in
§ 5.152, which afford residents genuine
access to opportunity (e.g.,
transportation, infrastructure, high
performing schools, economic
opportunity, etc.) as a result of public
and private investments.
§ 5.154
Equity Plan.
(a) General. (1) Program participants
must develop an Equity Plan in
accordance with this section. To
develop an Equity Plan that is
successful in overcoming local fair
housing issues, program participants
must first conduct an analysis—
informed by community engagement,
HUD-provided data, and local data and
local knowledge—to identify the fair
housing issues in their geographic area
E:\FR\FM\09FEP2.SGM
09FEP2
khammond on DSKJM1Z7X2PROD with PROPOSALS2
8562
Federal Register / Vol. 88, No. 27 / Thursday, February 9, 2023 / Proposed Rules
of analysis as well as the circumstances
and factors that cause, increase,
contribute to, maintain, or perpetuate
those fair housing issues. Program
participants’ analysis will focus, at
minimum, on seven areas of inquiry
specified in this section. These seven
areas are the core fair housing goal
categories for which program
participants must establish fair housing
goals for identified fair housing issues.
(2) After engaging with the
community in accordance with § 5.158,
conducting the analysis, and identifying
fair housing issues, circumstances, and
factors, program participants must then
prioritize the identified fair housing
issues in accordance with paragraph
(f)(2) of this section for purposes of
setting one or more fair housing goal(s)
for each fair housing goal category.
(3) After prioritizing fair housing
issues, program participants must then
establish one or more fair housing
goal(s) to overcome the prioritized fair
housing issues for each fair housing goal
category. A well-designed fair housing
goal may be effective in overcoming
more than one fair housing issue,
including fair housing issues in more
than one fair housing goal category.
(4) After the program participant has
established fair housing goals, the
program participant must submit the
Equity Plan to HUD for review in
accordance with § 5.160.
(5) Once a program participant’s
Equity Plan has been reviewed and
accepted by HUD in accordance with
§ 5.162, the program participant must
incorporate the fair housing goals from
its Equity Plan, along with the fair
housing strategies and actions that are
necessary to implement the goals, into
its planning documents that are
required by Federal statutes or
regulations as described in § 5.156.
(6) On an annual basis following the
acceptance of a program participant’s
Equity Plan, the program participant
must prepare and submit to HUD for
review an annual progress evaluation
that describes the program participant’s
progress toward achieving each fair
housing goal in the Equity Plan, any
changed circumstances that are likely to
affect the program participant’s ability
to achieve any of its established fair
housing goals, and any proposed
adjustments to the program participant’s
fair housing goals that are necessary to
ensure that the program participant will
be able to achieve the fair housing goals
in its Equity Plan and comply with the
requirements of this subpart.
(7) Following the submission of a
program participant’s annual progress
evaluation, HUD will accept the
proposed adjustment to any fair housing
VerDate Sep<11>2014
16:40 Feb 08, 2023
Jkt 259001
goal(s) or provide feedback to the
program participant describing how the
fair housing goals may be adjusted so
HUD can accept them. The fair housing
goals of an Equity Plan that has been
accepted by HUD will remain in effect
unless a program participant’s adjusted
goal has been accepted by HUD.
(b) Development of the Equity Plan.
Aided by training, technical assistance,
and HUD-provided data as well as local
knowledge, local data, and information
from engaging with their communities
and other agencies or government
entities in their geographic area of
analysis, program participants will
develop the Equity Plan and submit to
HUD for review. Certain portions of the
analysis required for the development of
an Equity Plan may rely on local data,
local knowledge, or information
obtained through community
engagement to supplement HUDprovided data or in lieu of HUDprovided data if HUD is unable to
provide data.
(c) Content of Equity Plan—(1)
General. Each program participant shall
prepare an Equity Plan for the purpose
of developing fair housing goals,
strategies, and meaningful actions that
are designed and can be reasonably
expected to overcome identified fair
housing issues in each fair housing goal
category and advance equity based on
protected characteristics in its
geographic area of analysis with respect
to its programs, services, and activities,
including funding and siting decisions.
(2) Fair housing goals. Fair housing
goals established by the program
participant in the Equity Plan shall
include strategies and meaningful
actions. The fair housing goals,
strategies, and meaningful actions shall
be incorporated, pursuant to § 5.156,
into the program participant’s
consolidated plans, annual action plans,
PHA Plans, and any other plan
incorporated therein, and community
plans including, but not limited to,
education, transportation, or
environment and climate related plans,
including those required in connection
with the receipt of Federal financial
assistance from any Federal executive
agency or department.
(3) Scope of analysis. The Equity
Plan’s analysis, identification of fair
housing issues, and establishment of
goals must address, at minimum, the
following fair housing goal categories:
(i) Segregation and integration;
(ii) Racially or ethnically concentrated
areas of poverty (R/ECAPs);
(iii) Disparities in access to
opportunity;
PO 00000
Frm 00048
Fmt 4701
Sfmt 4702
(iv) Inequitable access to affordable
housing opportunities and
homeownership opportunities;
(v) Laws, ordinances, policies,
practices, and procedures that impede
the provision of affordable housing in
well-resourced areas of opportunity,
including housing that is accessible for
individuals with disabilities;
(vi) Inequitable distribution of local
resources, which may include
municipal services, emergency services,
community-based supportive services
and investments in infrastructure; and
(vii) Discrimination or violations of
civil rights law or regulations related to
housing or access to community assets
based on race, color, national origin,
religion, sex, familial status, and
disability.
(4) Conducting the analysis. In
conducting the Equity Plan’s analysis,
the program participant must evaluate
the jurisdiction’s local policies and
practices impacting fair housing to
determine whether changes are
necessary in order to affirmatively
further fair housing. The analysis
required will depend on whether the
program participant is a local
government, State, insular area, or a
PHA.
(d) Content: Analysis—local
governments, States, and insular areas.
At minimum, using HUD-provided data,
local data, and local knowledge,
including information obtained through
community engagement required by
§ 5.158, the Equity Plan shall respond to
the following questions with respect to
the program participant’s jurisdiction
and region:
(1) Demographics. (i) What are the
current demographics of the geographic
area of analysis by protected class group
(race, color, national origin, religion,
sex, familial status, and disability) and
how have demographics changed over
time (e.g., since 1990 or the three last
decennial censuses, whichever is
shorter)?
(ii) What are the current
demographics of residents of different
categories of publicly supported
housing in the jurisdiction and how
have those demographics changed over
time?
(2) Segregation and integration. (i)(A)
Which areas within the geographic area
of analysis have significant
concentrations of particular protected
class groups, including racial/color/
ethnic groups, national origin groups,
particular limited English proficient
(LEP) groups, individuals with
disabilities, and other protected class
groups?
(B) Which, if any, of these geographic
areas extend beyond the boundaries of
E:\FR\FM\09FEP2.SGM
09FEP2
khammond on DSKJM1Z7X2PROD with PROPOSALS2
Federal Register / Vol. 88, No. 27 / Thursday, February 9, 2023 / Proposed Rules
the jurisdiction? Please note that
depending on the geographic areas used
in this analysis, the jurisdiction’s
analysis may need to include areas that
go beyond the jurisdiction’s specific
boundaries.
(ii) How have patterns of segregation
and integration in particular geographic
areas, as defined in § 5.152, changed
over time in the jurisdiction and region?
(iii)(A) Compare the locations of
publicly supported housing with the
areas of concentration (identified in
paragraph (d)(2)(i) of this section).
(B) How do the demographics of
publicly supported housing compare to
the demographics of areas where the
housing is located (identified in
paragraph (d)(2)(i) of this section)?
(C) How have siting decisions of
private or publicly supported housing or
the location of residents using Housing
Choice Vouchers impacted the overall
patterns of concentration (identified in
paragraph (d)(2)(i) of this section)?
(iv) What public or private policies or
practices, demographic shifts, economic
trends, or other factors may have caused
or contributed to the patterns described
in paragraphs (d)(2)(i) through (iii) of
this section?
(3) R/ECAPs. (i)(A) Identify and
describe R/ECAPs, including their
location.
(B) What are the demographic groups
living in R/ECAPs by protected class?
(C) Which protected class groups
predominantly reside in R/ECAPS? To
the extent that data is available, what
percentage of each protected class group
in the jurisdiction or region resides in
R/ECAPs?
(ii) How have the demographics and
location of R/ECAPs changed over time?
For example, has there been an
expansion or decrease in the number of
R/ECAPs in the geographic area of
analysis? Has concentration of protected
class groups within each R/ECAP
increased or decreased?
(iii)(A) How do R/ECAPs in the
geographic area of analysis align with
the location of publicly supported
housing?
(B) What are the demographics of
residents of publicly supported housing
residing in R/ECAPs, including by
program category, in comparison to the
demographics of R/ECAPs?
(iv) What public or private policies or
practices, demographic shifts, economic
trends, or other factors may have caused
or contributed to the patterns described
in the responses to paragraphs (d)(3)(i)
through (iii) of this section?
(4) Access to community assets. (i)
Describe which protected class groups
experience significant disparities in
VerDate Sep<11>2014
16:40 Feb 08, 2023
Jkt 259001
access to the following community
assets:
(A) Education;
(B) Employment;
(C) Transportation;
(D) Low-poverty neighborhoods;
(E) Environmentally healthy
neighborhoods; and
(F) Other community assets as defined
in § 5.152?
(ii)(A) Are there locations in the
geographic areas of analysis in which
protected class groups experience
significant disparities in access to
community assets listed in paragraph
(d)(4)(i) of this section?
(B) If so, which protected class groups
experience lack of access and where?
(C) Describe whether there is a
difference in whether residents of
segregated areas and R/ECAPs,
identified in paragraphs (d)(2) and (3) of
this section, have access to each of the
community assets listed in paragraph
(d)(4)(i) of this section compared to the
jurisdiction as a whole?
(iii) Describe the barriers that deny
individuals with disabilities access to
opportunity and community assets in
your geographic area of analysis with
regard to the following:
(A) Accessible and affordable
housing;
(B) Accessible government facilities
and websites;
(C) Accessible public infrastructure
(sidewalks, pedestrian crossings, parks
and recreation, libraries);
(D) Reliable and accessible
transportation;
(E) Accessible schools and
educational programs, and, in
particular, high-performing schools and
educational programs;
(F) Employment; and
(G) Community-based supportive
services.
(iv)(A) In what ways do residents of
publicly supported housing, by
protected class group, experience
disparities in access to opportunity and
community assets described in
paragraphs (d)(4)(i) through (iii) of this
section?
(B) In what ways do underserved
communities experience such
disparities?
(v) Is there a disproportionate need in
underserved communities for placebased community or economic
development, such as assistance for
small businesses and microenterprises,
infrastructure, commercial
redevelopment, job creation or retention
and job training? If so, note the type of
issues identified by program
participants or residents.
(vi) What public or private policies or
practices, demographic shifts, economic
PO 00000
Frm 00049
Fmt 4701
Sfmt 4702
8563
trends, or other factors may have caused
or contributed to the patterns described
in the responses to paragraphs (d)(4)(i)
through (iv) of this section?
(5) Access to affordable housing
opportunities. (i) Describe the
availability of affordable housing
opportunities that are affordable to
families, by protected class group, at
various income levels and where such
housing is located in the geographic
area of analysis, including whether such
housing affords access to community
assets and well-resourced areas. This
assessment includes an evaluation of
whether different protected class groups
at various income levels have fair
housing choice in their ability to access
affordable housing in particular areas in
the jurisdiction.
(ii) Describe the housing cost burden
(e.g., more than 30 percent of monthly
income) and severe housing cost burden
(e.g., more than 50 percent of monthly
income) and overcrowding (particularly
for large families) experienced by
protected class groups and indicate
whether such burden aligns with
previously identified segregated or
integrated areas, or R/ECAP or non-R/
ECAP areas.
(iii) Describe disparities in housing
quality (i.e., substandard housing
conditions) by protected class group and
indicate whether such disparities align
with previously identified segregated or
integrated areas, or R/ECAP or non-R/
ECAP areas.
(iv) Which protected class groups, in
the geographic area of analysis,
disproportionately face housing
instability due to rising rents, loss of
existing affordable housing, and
displacement due to economic
pressures, eviction, source of income
discrimination, or code enforcement?
(v) Describe how access to affordable
housing opportunities has changed in
the geographic area of analysis over
time. Describe how this change has
affected patterns of segregation and
integration or the expansion or
contraction of R/ECAP and non-R/ECAP
areas in the geographic area of analysis.
(vi) What public or private policies or
practices, demographic shifts, economic
trends, or other factors may have caused
or contributed to the patterns described
in responses to paragraphs (d)(5)(i)
through (v) of this section?
(6) Access to homeownership and
economic opportunity. (i)(A) Which
protected class groups experience
significant disparities in access to
homeownership opportunities?
(B) What are the homeownership rates
by protected class?
(ii) Are there protected class groups
that experience significant disparities in
E:\FR\FM\09FEP2.SGM
09FEP2
khammond on DSKJM1Z7X2PROD with PROPOSALS2
8564
Federal Register / Vol. 88, No. 27 / Thursday, February 9, 2023 / Proposed Rules
access to other economic opportunities,
which may include but are not limited
to:
(A) Access to livable-wage jobs;
(B) Access to services of reputable
mortgage lenders and other financial
institutions;
(C) Access to fair and affordable
credit;
(D) Access to reputable financial
counseling services; and
(E) Fair residential real estate
appraisals and valuations? If so, which
protected class groups experience lack
of access?
(iii) What public or private policies or
practices, demographic shifts, economic
trends, or other factors may have caused
or contributed to the patterns described
in responses to paragraphs (d)(6)(i) and
(ii) of this section?
(7) Local and State policies and
practices impacting fair housing. (i)
How do local laws, policies, ordinances,
and other practices impede or promote
the siting or location of affordable
housing in well-resourced
neighborhoods? What is the relationship
between those laws, policies,
ordinances, and other practices and the
segregated or integrated areas and R/
ECAP or non-R/ECAP areas identified in
paragraphs (d)(2) and (3) of this section?
(ii) How do local laws, policies,
ordinances, and other practices impede
or promote equitable access to
homeownership and other asset
building and economic opportunities by
protected class group?
(iii) How have existing zoning and
land use policies or ordinances, the
presence or lack of source of income
anti-discrimination laws, eviction
policies and practices, and other State
and local policies or practices
contributed to the patterns of
segregation, integration, and R/ECAPs
identified in paragraphs (d)(2) and (3) of
this section, as well as access to
affordable housing opportunities in
well-resourced areas throughout the
geographic area of analysis for protected
class groups?
(iv) Describe the efforts and activities
undertaken by the program participant
to work, collaborate, or partner with
other offices, departments, agencies, or
entities within the program participant’s
jurisdiction that aim to advance equity.
(v) What is the status of any
unresolved findings, lawsuits,
enforcement actions, settlements, or
judgments in which the program
participant has been a party related to
fair housing or other civil rights laws in
the jurisdiction?
(vi) What efforts does the program
participant take to increase fair housing
compliance and enforcement capacity,
VerDate Sep<11>2014
16:40 Feb 08, 2023
Jkt 259001
and to ensure compliance with existing
fair housing and civil rights laws and
regulations, in its geographic area?
(e) Content: Analysis—public housing
agencies. PHAs must include in their
Equity Plan an analysis of the area in
which the PHA operates, whether the
PHA operates in all parts of its
authorized service area, and the PHA’s
programs. PHAs may rely on relevant
aspects of the analysis contained in an
accepted Equity Plan of the jurisdiction
within which it operates to ensure
consistency with the jurisdiction’s
consolidated plan, to the extent the
accepted Equity Plan covers the PHA’s
service area or region. PHAs may rely on
the jurisdiction’s analysis with respect
to general demographics, areas of
segregation and integration, the location
of R/ECAPs, and where certain
opportunities exist or do not exist, but
must perform its own analysis of how
those background circumstances affect
equity in its own programs, activities,
and services. Similarly, PHAs that
conduct a joint Equity Plan with a local
government, State, or insular area may
rely on the analysis provided by the
other joint program participants with
respect to certain aspects of the analysis
(so long as the analysis is sufficient for
the PHA to meet its own obligations
with respect to this section), such as
general demographics, areas of
segregation and integration, the location
of R/ECAPs, and where certain
opportunities exist or do not exist
within the PHA’s service area and
region. Using HUD-provided data, local
data, and local knowledge, including
information obtained through
community engagement required by
§ 5.158, the Equity Plan shall respond to
the following questions with respect to
the PHA’s service area and region:
(1) Demographics. (i) What are the
current demographics of the geographic
area of analysis by protected class group
(race, color, national origin, religion,
sex, familial status, and disability) and
how have those demographics changed
over time (e.g., since 1990 or the three
last decennial censuses, whichever is
shorter)?
(ii)(A) What are the current
demographics of the different categories
of PHA owned or administered housing,
and how have those demographics
changed over time?
(B) What are the current
demographics of the different categories
of other publicly supported housing in
the PHA’s geographic area of analysis,
and how have those demographics
changed over time?
(2) Segregation and integration. (i)
Which areas within the geographic area
of analysis have significant
PO 00000
Frm 00050
Fmt 4701
Sfmt 4702
concentrations of particular protected
class groups, including racial/color/
ethnic groups, national origin groups,
particular limited English proficient
(LEP) groups, individuals with
disabilities, and other protected class
groups? Which, if any, of these areas
extend beyond the boundaries of the
service area?
(ii) How have patterns of segregation
and integration in particular geographic
areas changed over time?
(iii)(A) How do patterns of segregation
and integration in the geographic area of
analysis align with the demographics
and location of publicly supported
housing developments?
(B) Since 1990 or the three last
decennial censuses, whichever is
shorter, how have publicly supported
housing siting decisions resulted in an
increase or decrease of patterns of
segregation or integration in the area, or
have no such changes related to
publicly supported housing siting
decisions been experienced?
(iv) What public or private policies or
practices, demographic shifts, economic
trends, or other factors may have caused
or contributed to the patterns described
in responses to paragraphs (e)(2)(i)
through (iii) of this section?
(3) R/ECAPs. (i)(A) Identify and
describe R/ECAPs, including their
location.
(B) What are the demographic groups
(by protected class) living in R/ECAPs?
(C) What percentage of each protected
class group in the jurisdiction or region
resides in R/ECAPs?
(ii)(A) How have the demographics
and location of R/ECAPs changed over
time? For example, has there been an
expansion or decrease in the number of
R/ECAPs in the geographic area of
analysis? Has concentration of protected
class groups within each R/ECAP
increased or decreased?
(B) Describe the conditions in R/
ECAPs that limit access to opportunity
for the residents who live there,
including housing costs and cost
burden, housing quality, housing
instability, displacement, source of
income discrimination, and eviction
risk. How have these conditions
changed over time?
(iii)(A) How many of the PHAs’ public
housing developments are located in R/
ECAPs?
(B) Compare the demographics and
location of the residents of public
housing with the demographics and
location of the R/ECAP.
(iv)(A) What proportion of the PHA’s
vouchers are inside R/ECAPs compared
to those outside R/ECAPs?
(B) What are the demographics (by
protected class) of the PHA’s Housing
E:\FR\FM\09FEP2.SGM
09FEP2
khammond on DSKJM1Z7X2PROD with PROPOSALS2
Federal Register / Vol. 88, No. 27 / Thursday, February 9, 2023 / Proposed Rules
Choice Voucher assisted households
residing inside R/ECAPs compared to
those outside R/ECAPs?
(C) Compare the locations of the
Housing Choice Vouchers in the service
area (including other PHAs’ Housing
Choice Vouchers) to the location of R/
ECAPs described in paragraph (e)(3)(i)
of this section.
(v) What public or private policies or
practices, demographic shifts, economic
trends, or other factors may have caused
or contributed to the patterns described
in paragraph (e)(3)(i) through (iv) of this
section?
(4) Access to community assets and
affordable housing opportunities. (i)(A)
Describe which protected class groups
have a disproportionately greater need
for affordable housing opportunities.
How do these groups compare to the
PHA’s current assisted resident
demographics?
(B) Are there other underserved
communities or groups (e.g., persons
experiencing homelessness) that also
have a disproportionately greater need
for affordable housing opportunities?
(ii)(A) Of PHA participants, describe
which protected class groups experience
significant disparities in access to the
following community assets:
(1) Education;
(2) Employment;
(3) Transportation;
(4) Low-poverty neighborhoods;
(5) Environmentally healthy
neighborhoods;
(6) Affordable housing opportunities
and homeownership opportunities; and
(7) Other community assets as defined
in § 5.152.
(B) Which protected class groups on
the PHA’s waiting list or who want to
be on the PHA’s waiting list experience
significant disparities in access to the
community assets identified in
paragraph (e)(4)(ii)(A) of this section
based on available local data and local
knowledge?
(iii)(A) Compare locations of the
PHA’s public housing and Housing
Choice Vouchers and the demographics
of voucher assisted households with
areas that have greater access or that
lack access to these community assets
identified in paragraph (e)(4)(i)(A) of
this section.
(B) Using this comparison, together
with the analysis on segregation
(paragraph (e)(2)(i) of this section) and
R/ECAPs (paragraph (e)(3)(i) of this
section), is there a lack of affordable
rental opportunities in more wellresourced areas, including units
affordable for housing choice vouchers
and for improved voucher mobility
outcomes?
(C) How has access to community
assets changed for the PHA’s residents
VerDate Sep<11>2014
16:40 Feb 08, 2023
Jkt 259001
based on the PHA’s funding and sitting
decisions?
(iv) Are there developments in the
PHA’s stock or residents of the PHA’s
publicly supported housing in
particular neighborhoods in the PHA’s
service area that do not have the same
access to the community assets
compared to other residents located in
the PHA’s service area? Assets in this
question refer to those described in
paragraph (e)(4)(i) of this section as well
as other infrastructure and municipal
services (e.g., potable drinking water,
sewer and drainage systems, trash
collection, snow removal, sidewalks,
etc.).
(v) Describe any differences, based on
local data and local knowledge, in the
quality of the PHA’s housing for
residents residing in:
(A) R/ECAPs compared to the housing
the PHA offers residents residing in
other parts of the PHA’s service area;
and
(B) Elderly-designated housing or
housing disproportionately serving
older adults (whether or not specifically
authorized to do so) compared to
housing serving families.
(vi) Describe whether individuals
with disabilities who participate in or
who are eligible to participate in the
PHA’s programs, services, and activities
experience barriers that deny
individuals with disabilities access to
opportunity and community assets in
the geographic areas of analysis with
regard to the following:
(A) Accessible and affordable
housing;
(B) Accessible government facilities
and websites;
(C) Accessible public infrastructure;
(D) Reliable and accessible
transportation;
(E) Accessible schools and
educational programs, and in particular,
high-performing schools and
educational programs;
(F) Employment; and
(G) Community-based supportive
services.
(vii) What public or private policies or
practices, demographic shifts, economic
trends, or other factors may have caused
or contributed to the patterns described
in the responses to paragraphs (e)(4)(i)
through (vi) of this section?
(5) Local policies and practices
impacting fair housing. (i) How do local
laws, policies, ordinances, and other
practices impede or promote the siting
of affordable housing and use of
Housing Choice Vouchers in wellresourced areas of opportunity? This
analysis shall include both policies of
the kind that are under the PHA’s direct
control (for example, preferences, types
PO 00000
Frm 00051
Fmt 4701
Sfmt 4702
8565
of housing designations, creation and
retention of units for large families) and
municipal or State policies, such as
zoning and land use policies,
ordinances, or regulations, eviction
policies and procedures, or the lack of
laws banning source of income
discrimination, that are known to the
PHA that impact the siting of affordable
housing and voucher mobility.
(A) Describe the boundaries of the
PHA’s service area.
(B) Describe the PHA’s mobility and
portability policies and activities; is
there a need for additional mobility
services, landlord incentives, policies
related to portability policies or to
payment standards and fair market
rents, or other policies that might
improve housing choice voucher
mobility outcomes?
(C) Is there a need for services,
improved access to economic
opportunity, or place-based investments
to assist the PHA’s assisted residents or
the neighborhoods where its housing
developments or Housing Choice
Vouchers are located? Examples could
include a need for services for residents,
job training and placement, service
coordinators, health access, after-school
programs or tutors, broadband access,
access to reputable and affordable
financial services?
(ii) Describe the efforts and activities
undertaken by the PHA to work,
collaborate, or partner with other
offices, departments, agencies, or
entities within the program participant’s
jurisdiction that aim to advance equity.
(iii) What is the status of any
unresolved findings, lawsuits,
enforcement actions, settlements, or
judgments involving the PHA related to
fair housing or other civil rights laws?
(iv) What specific steps does the PHA
take to ensure compliance with existing
fair housing and civil rights laws and
regulations, including the
implementation of discretionary
policies and practices (e.g., policies
related to preferences, portability,
reasonable accommodations, unit
tenanting, including designated
accessible units, evictions)?
(f) Content: Description and
prioritization of fair housing issues. (1)
For each program participant, the Equity
Plans shall include a description of the
fair housing issues identified during the
analysis conducted for each fair housing
goal category. The description of a fair
housing issue shall include the specific
conditions that constitute the fair
housing issue and the protected class
groups that are adversely affected by the
issue. Program participants are expected
to identify all fair housing issues. They
must also identify those that present the
E:\FR\FM\09FEP2.SGM
09FEP2
khammond on DSKJM1Z7X2PROD with PROPOSALS2
8566
Federal Register / Vol. 88, No. 27 / Thursday, February 9, 2023 / Proposed Rules
greatest barriers to fair housing choice
and deny equitable access to community
assets for protected class groups.
(2) For purposes of establishing the
Equity Plan’s fair housing goals,
program participants must prioritize the
identified fair housing issues in each
fair housing goal category. When
prioritizing fair housing issues, program
participants must give consideration to
fair housing issues faced by underserved
communities that have historically been
denied fair housing choice, isolated in
racially or ethnically concentrated areas
of poverty or other segregated settings,
and subjected to disparities in access to
opportunity, including the opportunity
to live in well-resourced areas, the
opportunity to enjoy equal access to
community assets, and access to
homeownership opportunities. In
determining how to prioritize fair
housing issues within each fair housing
goal category, program participants shall
give highest priority to fair housing
issues that will result in the most
effective fair housing goals for achieving
material positive change for
underserved communities, taking into
account that different protected class
groups may be impacted by different fair
housing issues.
(g) Content: Fair housing goals. (1) For
each program participant, the Equity
Plan shall include the establishment of
fair housing goals that are designed and
can be reasonably expected to overcome
the fair housing issues identified
through the analysis conducted
pursuant to paragraphs (d) and (e) of
this section. Program participants are
not required to set fair housing goals for
fair housing goal categories that do not
have identified fair housing issues.
While HUD expects to see progress
toward the achievement of each goal by
the time of the program participant’s
next Equity Plan, HUD recognizes that
all goals may not be fully achieved
during a single five-year cycle.
(2) Fair housing goals, when taken
together, must be designed to overcome
prioritized fair housing issues in each
fair housing goal category and must be
designed and reasonably expected to
result in material positive change and
consistent with a balanced approach.
(3) A program participant’s goals may
consist of short-term goals such that
material positive change is readily
achieved, as well as long-term goals
such that material positive change
occurs within the jurisdiction over a
prolonged but reasonable period of time.
When establishing fair housing goals,
program participants may adopt a small
number of goals if such goals could
ultimately result in outcomes that have
a significant impact toward advancing
VerDate Sep<11>2014
16:40 Feb 08, 2023
Jkt 259001
equity for protected class groups by
reducing the adverse effects of fair
housing issues. Program participants’
consideration of the reach and breadth
of their own authority and spheres of
influence must be taken into account
when determining which goals to set. A
program participant may prioritize
implementation of particular goals over
others but must ensure that any
prioritization will result in meaningful
actions that affirmatively further fair
housing. So long as a program
participant meets these requirements,
the program participant has discretion
to set goals that can reasonably be
expected to address local fair housing
issues and to specify actions necessary
to implement those goals. The following
are examples of some goals that may be
appropriate depending on the
circumstances facing the jurisdiction;
these examples are not the only types of
goals program participants may set nor
are program participants required to set
these specific goals if they would not
address the fair housing issues in their
communities.
(i) A fair housing goal to overcome
segregation in specific neighborhoods in
the jurisdiction could consist of:
(A) Siting development of future
affordable housing outside of segregated
areas; and
(B) Eliminating barriers to
homeownership for members of
protected class groups that have
historically been denied an equal
opportunity to become homeowners.
(ii) A fair housing goal to overcome
segregation in specific neighborhoods
and promote integration and fair
housing choice in others could consist
of expanding mobility programs to
provide more housing opportunities in
well-resourced areas of opportunity for
individuals or families that utilize
housing vouchers.
(iii) A fair housing goal to overcome
disparities in access to affordable
housing could consist of a PHA’s
revision of its own policies to provide
more flexibility in admission criteria
(for example, with respect to those who
have previously faced eviction due to
financial hardship or individuals who
have been denied access to housing due
to prior involvement in the justice
system), efforts to combat source of
income discrimination, and any
necessary revisions to a PHA’s eviction
policies so individuals from protected
class groups are not excluded from the
PHA’s programs or activities.
(iv) A fair housing goal to overcome
inequitable access to high-performing
schools could consist of realignment of
school district boundaries, school zones,
or school feeder patterns and increasing
PO 00000
Frm 00052
Fmt 4701
Sfmt 4702
the funding for schools in R/ECAPs to
ensure that members of historically
underserved protected class groups have
equitable access to educational
opportunities regardless of where they
live; such a goal could require multiple
parts of the jurisdiction to work together
to advance equity and may require
leaders in the community to provide the
political will for such a goal to be
established and implemented.
(v) A fair housing goal to increase
housing and neighborhood access could
consist of reducing land use and zoning
restrictions that limit housing supply
and increase housing costs in order to
ensure that members of historically
underserved communities and protected
class groups have equitable access to
affordable housing opportunities in
well-resourced areas throughout the
jurisdiction.
(vi) A fair housing goal to ensure that
underserved communities have
equitable access to affordable housing
opportunities, homeownership, and
community assets may include
amending local laws to include
additional protections for certain
underserved populations, such as
LGBTQ+ persons or survivors of
domestic violence, and may include the
removal of barriers that exist in local
laws such as nuisance or crime free
ordinances, which may limit access to
affordable housing because of protected
characteristics.
(vii) A fair housing goal to overcome
the fair housing issues of segregation
and disparities in access to opportunity
for individuals with disabilities due to
a lack of accessible, affordable housing
could include the incorporation of the
provision of enhanced accessibility
features (e.g., features that provide
greater accessibility than the minimum
features required by accessibility
standards) in new construction and
rehabilitation of affordable housing to
create greater access to integrated
housing opportunities for individuals
with disabilities.
(viii) A fair housing goal to enact
source of income anti-discrimination
laws, and/or to develop better
enforcement strategies around such laws
to ensure that underserved communities
have equitable access to housing
assistance programs, affordable housing
opportunities, and community assets.
(4) Though program participants may
not have direct or sole control over
certain issues within their communities,
HUD expects program participants to
work closely with entities that have
control of such issues to achieve fair
housing outcomes. With respect to
identified fair housing issues over
which the program participant has
E:\FR\FM\09FEP2.SGM
09FEP2
khammond on DSKJM1Z7X2PROD with PROPOSALS2
Federal Register / Vol. 88, No. 27 / Thursday, February 9, 2023 / Proposed Rules
limited control, the program participant
must consider the types of goals it can
achieve that would ameliorate the
effects of prioritized fair housing issues
using the authority, tools, and influence
it does have, including by collaborating
with other program participants.
(5) Fair housing goals in the Equity
Plan must not result in policies or
practices that discriminate in violation
of the Fair Housing Act or other Federal
civil rights laws. Fair housing goals also
may not require residents of racially or
ethnically concentrated areas of poverty
to move away from those areas if they
prefer to stay in those areas as a matter
of fair housing choice.
(6) In addition, fair housing goals
must:
(i) Identify the fair housing issue(s)
the goal is designed to address—for
instance, where segregation in a
development or geographic area is
determined to be a fair housing issue,
HUD expects the Equity Plan to
establish one or more goals to reduce
the segregation;
(ii) Explain how the goal, alone or in
concert with other goals, will overcome
the fair housing issue(s) it is designed to
address;
(iii) Set timeframes for achievement of
the goal, including metrics and
milestones for how achievement of the
goal will be measured; and
(iv) Describe the specific steps or
actions that need to be taken to achieve
the goal and the amount of funding that
will be needed in order to fully achieve
the goal.
(h) Additional content. (1) Program
participants must include the following
additional content as part of their Equity
Plan submitted to HUD:
(i) A summary of the community
engagement activities undertaken
pursuant to § 5.158;
(ii) A description of how the program
participant addressed the comments
received through the community
engagement process required by § 5.158;
(iii) As an attachment, all written
comments received and transcripts or
audio or video recordings of hearings
held during the development of the
Equity Plan; and
(iv) Signed certifications and
assurances, as required by § 5.160.
(2) Program participants may include
an executive summary or any other
information the program participant
believes relevant to the Equity Plan.
(i) Progress evaluation. (1) Program
participants should engage in continual
evaluation of their progress, but must do
so no less frequently than once per year,
to determine whether any changes,
adjustments, or new information
VerDate Sep<11>2014
16:40 Feb 08, 2023
Jkt 259001
requires a revision to the Equity Plan or
a subsequent planning document.
(2) Program participants must conduct
and submit annual progress evaluations
to HUD in a manner specified by the
Responsible Civil Rights Official. The
annual progress evaluation shall include
the program participant’s report on
progress achieved under each fair
housing goal, including whether goals
have been fully achieved, and
assessment of whether the fair housing
goals established in the Equity Plan
require adjustment because of changed
circumstances or because they are
unlikely to result in material positive
change in overcoming fair housing
issues. The program participants’
annual progress evaluation must be
accompanied by the signed
certifications and assurances required
by § 5.160 and shall be published on
HUD-maintained web pages.
(3) For each Equity Plan submitted
after the first Equity Plan submission,
the program participant shall provide a
summary of the progress achieved in
meeting the fair housing goals set in the
prior Equity Plan. This summary
progress evaluation shall be part of the
subsequent Equity Plan (and is distinct
from the annual progress evaluations
required by paragraphs (i)(1) and (2) of
this section, but may include a
compilation of those progress
evaluations) subject to community
engagement as part of the subsequent
Equity Plan’s development.
(4) All progress evaluations (i.e.,
annual progress evaluations and
summaries for purposes of subsequent
Equity Plans) shall include, at
minimum:
(i) An evaluation of the progress on
each goal established in the prior Equity
Plan, including whether the goal was
achieved, some progress toward
achieving the goal was made, or no
progress toward achieving the goal was
made;
(ii) An identification of any barriers
that impeded the progress or
achievement of the fair housing goals in
the prior Equity Plan;
(iii) A description of any changes or
adjustments to the goals undertaken
during the prior Equity Plan cycle and
how those changes or adjustments
impacted the progress toward
achievement of the goal;
(iv) A description of HUD funds or
other Federal, State, local funds, or
philanthropic support that were used
toward achievement of the goal; and
(v) An explanation of the outcomes
based on the achievement of the goal.
For example, this explanation may
include any results with respect to the
reduction of segregation in a particular
PO 00000
Frm 00053
Fmt 4701
Sfmt 4702
8567
geographic area, increased access to
opportunity by protected class groups,
or other material positive change
observed, including how the program
participant advanced equity for
members of protected class groups and
underserved communities since the goal
was implemented.
(j) Publication. The Equity Plan,
progress evaluations, and HUD
notifications related to Equity Plans
shall be public documents.
(1) Program participants shall make
drafts of the Equity Plan available
pursuant to § 5.158 for purposes of
community engagement.
(2) Upon submission of the Equity
Plan to HUD, HUD will publish the
submitted Equity Plan on a HUDmaintained web page and will update
this web page to reflect the status of the
Equity Plan pursuant to § 5.162. In
particular, this web page will reflect
whether an Equity Plan has been
accepted and if an accepted Equity Plan
differs from the initially submitted
version. HUD may publish final Equity
Plans or portions of such plans on other
HUD-maintained web pages for the
purposes of disseminating best practices
and in a searchable information
clearinghouse to benefit program
participants and the general public.
Program participants are also
encouraged to post their HUD-reviewed
Equity Plans on their official websites,
in formats that satisfy civil rights
requirements including title VI of the
Civil Rights Act of 1964 and the
regulation at 24 CFR part 1; section 504
of the Rehabilitation Act of 1973 and the
regulation at 24 CFR part 8; and the
Americans with Disabilities Act and the
regulations at 28 CFR parts 35 and 36,
as applicable.
(3) HUD will accept information from
the public during its review of the
submitted Equity Plan, consistent with
§ 5.162, relating to whether the Equity
Plan was developed in accordance with
the required community engagement,
whether the content of a published
Equity Plan is deficient, including
whether fair housing issues were
appropriately identified, whether the
information provided during the
community engagement process
required by § 5.158 was appropriately
incorporated into the Equity Plan,
whether fair housing issues were
appropriately prioritized, and whether
the fair housing goals are appropriate,
meaning that they are designed and can
be reasonably expected to overcome the
effects of the identified fair housing
issues.
E:\FR\FM\09FEP2.SGM
09FEP2
8568
Federal Register / Vol. 88, No. 27 / Thursday, February 9, 2023 / Proposed Rules
khammond on DSKJM1Z7X2PROD with PROPOSALS2
§ 5.156 Affirmatively furthering fair
housing through Equity Plan incorporation
into subsequent planning documents.
(a) General. It is the Department’s
policy to ensure that program funding is
used to eliminate disparities resulting
from Federal, State, and local laws,
policies, and practices that have
perpetuated segregation or denied equal
opportunity because of a protected
characteristic. Accordingly, any policies
or practices adopted through program
participants’ planning documents or as
part of program participants’
implementation of programs, activities,
and services shall be consistent with the
commitments program participants have
made in their Equity Plans, this part,
and the AFFH mandate. By
incorporating their fair housing goals,
strategies, and actions into their
planning documents, program
participants will be better positioned to
build equity and fairness into their
decision-making processes for the use of
resources and other investments, live up
to the commitments they have made in
Equity Plans, and ultimately fulfill their
obligations to affirmatively further fair
housing. A program participant must
incorporate its implementation of these
concepts and commitments in its Equity
Plan into other planning documents,
such as the consolidated plan, annual
action plan, PHA Plan, disaster plan, or
any plan incorporated therein.
(b) Strategies and meaningful actions.
To implement the fair housing goals
from the Equity Plan, program
participants must include strategies and
meaningful actions in their consolidated
plans, annual action plans, and PHA
Plans (including any plans incorporated
therein). Program participants are only
required to include the implementation
of fair housing goals that are intended
to be undertaken or funded in a
particular program year in their annual
action plans, though all fair housing
goals must be incorporated into their 3–
5-year consolidated or PHA Plans.
Strategies and meaningful actions must
affirmatively further fair housing and
identify specific expected allocation of
funding by program year for the use of
HUD and other funds to implement each
fair housing goal (if funding is
necessary). Strategies and meaningful
actions may include, but are not limited
to: elimination of local laws or
ordinances that are barriers to equitable
access to homeownership or other
affordable housing opportunities;
enactment of local laws or ordinances
that remove barriers or increase access
to homeownership or other affordable
housing opportunities; build strong fair
housing and civil rights protections into
State and local laws; enhancing mobility
VerDate Sep<11>2014
16:40 Feb 08, 2023
Jkt 259001
strategies and encouraging development
of new affordable housing in wellresourced areas of opportunity; and
place-based strategies and meaningful
actions that are a part of a balanced
approach, including preservation of
existing HUD-assisted and other
affordable housing.
(c) Other planning activities or
processes. Program participants must
incorporate the fair housing goals from
their Equity Plans into planning
documents required in connection with
the receipt of Federal financial
assistance from any other Federal
executive department or agency. This
incorporation shall include the
allocation of resources necessary for
achievement of the goal. The program
participant’s progress evaluation
includes an evaluation of the goals
incorporated into these other planning
documents as required pursuant to
§ 5.154.
(d) Meaning of approval or
acceptance of planning documents.
Approval by HUD or any other agency
of a planning document that must be
approved or accepted by the Department
or any other agency for purposes of
program administration does not mean
that the program participant has
complied with the incorporation
requirements set forth in this section or
has otherwise complied with its
obligation to affirmatively further fair
housing or any other Federal fair
housing and civil rights requirements.
(e) Failure to incorporate fair housing
goals into planning documents. A
program participant must incorporate
the fair housing goals from its Equity
Plan into its consolidated plan or PHA
Plan in order to allocate funding for
implementation of such goals as
strategies and meaningful actions. Upon
a determination by HUD that fair
housing goals from the Equity Plan have
not been incorporated into subsequent
plans, and following notification to the
program participant and opportunity for
the program participant to respond and
cure any deficiency, the Secretary may
condition a grant (see e.g., 2 CFR
200.208), obtain an assurance that the
program participant will revise the plan
to comply with the requirements of
§§ 5.150 through 5.180 by a specified
date, or may disapprove a consolidated
plan or reject a PHA Plan consistent
with 24 CFR 91.500 for consolidated
plans and 24 CFR 903.23 for PHA Plans,
or may take the actions set forth at
§§ 5.170 and 5.172.
§ 5.158
Community engagement.
(a) General. (1) To ensure that the
Equity Plan is informed by meaningful
input from the community, program
PO 00000
Frm 00054
Fmt 4701
Sfmt 4702
participants must engage with the
public during the development of the
Equity Plan, including with respect to
both the identification of fair housing
issues (including inequities faced by
members of protected class groups and
underserved communities) and the
setting of fair housing goals to remedy
the identified fair housing issues.
Community engagement includes
program participants’ consideration of
the views and recommendations
received from members of the
community and other interested parties.
(2) Program participants must
proactively facilitate community
engagement to ensure they receive and
address information from the
community regarding the effects of
historical decisions and practices,
current conditions, and other concerns
relating to fair housing choice, equitable
provision of services, access to
opportunity, and specific fair housing
issues. Members of the community are
in a unique position to provide the
program participant with perspectives
on the impact of fair housing issues
facing the community.
(3) To the extent practicable, program
participants are permitted to combine
this engagement with other community,
resident, or citizen participation
required for purposes of other HUD
programs and planning processes;
however, program participants are
required to explain the Fair Housing
Act’s affirmatively furthering fair
housing duty and ensure the
engagement regarding the Equity Plan
meets all the criteria set forth in this
section.
(4) In addition, and in accordance
with program regulations, the public
shall have reasonable opportunity for
involvement in the incorporation of the
fair housing goals as strategies and
meaningful actions into the
consolidated plan, annual action plan,
PHA Plan (and any plans incorporated
therein), and other required planning
documents.
(5) Program participants must employ
communication methods designed to
reach the broadest possible audience
and should make efforts to reach
members of protected class groups that
have historically been denied equal
opportunity and underserved
communities. Such communications
may include but are not limited to
publishing a summary of each
document on the program participant’s
official government website and one or
more newspapers of general circulation,
and by making copies of each document
available on the internet (including free
web-based social bulletin boards and
E:\FR\FM\09FEP2.SGM
09FEP2
khammond on DSKJM1Z7X2PROD with PROPOSALS2
Federal Register / Vol. 88, No. 27 / Thursday, February 9, 2023 / Proposed Rules
platforms), and as well at libraries,
government offices, and public places.
(6) In order to comply with the
obligation to affirmatively further fair
housing, program participants must
actively engage with a wide variety of
diverse perspectives within their
communities and use the information
available in a manner that promotes the
setting of meaningful fair housing goals
that will lead to material positive
change.
(7) Program participants must ensure
that all aspects of community
engagement are conducted in
accordance with fair housing and civil
rights requirements, including title VI of
the Civil Rights Act of 1964 and the
regulations at 24 CFR part 1; section 504
of the Rehabilitation Act of 1973 and the
regulations at 24 CFR part 8; and the
Americans with Disabilities Act and the
regulations at 28 CFR parts 35 and 36,
as applicable.
(8) A program participant may, if
practicable, combine the requirements
of this section with applicable public
participation requirements of
consolidated plan program participants
and PHAs, subject to the following
requirements:
(i) Consolidated plan program
participants. The consolidated plan
program participant may, if practical,
combine the requirements of this
section with its applicable citizen
participation plan requirements,
adopted pursuant to 24 CFR part 91 (see
24 CFR 91.105, 91.115, and 91.401).
However, the community engagement
for purposes of developing an Equity
Plan must allow for sufficient
opportunity for the community to have
the in-depth discussions about fair
housing issues required by this section.
Therefore, to the extent the citizen
participation plan does not provide for
this opportunity, program participants
must undertake separate engagement
activities.
(ii) PHAs. To the extent practicable,
PHAs may combine the requirements of
this section when implementing the
procedures described in 24 CFR 903.13,
903.15, 903.17, and 903.19 in the
process of developing the Equity Plan,
obtaining Resident Advisory Board and
community feedback, and addressing
complaints. The community
engagement for purposes of developing
an Equity Plan must allow for sufficient
opportunity for the community to have
the in-depth discussions about fair
housing issues required by this section.
Accordingly, to the extent the
regulations at 24 CFR part 903 do not
provide for this opportunity, PHAs must
undertake separate engagement
activities or incorporate such activities
VerDate Sep<11>2014
16:40 Feb 08, 2023
Jkt 259001
into the implementation of the specific,
applicable program regulations.
(b) Coordination. (1) To the extent
practicable, program participants
submitting a joint Equity Plan may
fulfill their community engagement
responsibilities by combining efforts
with other program participants by:
(i) Jointly conducting community
engagement activities with a
consolidated plan program participant;
(ii) Jointly conducting community
engagement activities with one or more
PHAs; or
(iii) Separately conducting
community engagement activities.
(2) Joint program participants are
encouraged to enter into Memoranda of
Understanding (MOUs) to clearly define
the functions, level of member
participation, method of dispute
resolution, and decision-making process
of the program participants, for
purposes of engaging with the
community as well as in the
development of the Equity Plan.
(c) Frequency. (1) Program
participants must engage with their
communities prior to and during the
development of an Equity Plan.
(2) While the Equity Plan is in effect,
program participants must engage with
their communities on at least an annual
basis. To the extent practicable, this
engagement may be combined with any
citizen participation or resident
participation for purposes of developing
annual plans pursuant to program
requirements. The purpose of such
annual engagement shall be to receive
community input as to whether the
program participant is taking effective
and necessary actions to implement the
Equity Plan’s fair housing goals,
whether adjustments to goals need to be
made, and whether a change in
circumstance may require a revision of
the Equity Plan pursuant to § 5.164,
including the formulation of additional
goals.
(d) Methods. Program participants
may choose any methods that are
effective in engaging their communities,
but at minimum must employ the
following methods:
(1) For the development of an Equity
Plan, hold at least three (3) public
meetings, at various accessible locations
and at different times to ensure that
members of protected class groups and
underserved communities are afforded
opportunities to provide input. At least
one such meeting shall be held in a
location in the jurisdiction in which
underserved communities
disproportionately reside and efforts to
obtain input from underserved
populations who do not live in
PO 00000
Frm 00055
Fmt 4701
Sfmt 4702
8569
underserved neighborhoods shall also
be employed;
(2) For the annual engagement, hold
at least two (2) public meetings, at
different locations, one of which shall
be located in an area of the jurisdiction
in which underserved communities
predominantly reside;
(3) Connect with and provide
information about fair housing planning
to local community leaders, which may
include, but are not limited to
advocates, community-based
organizations, clergy, healthcare
professionals, educational leaders or
teachers, and other service providers
such as social workers and case
managers to provide and solicit the
views of the communities they serve;
and
(4) Make available to the public data
and information demonstrating the
existence of fair housing issues
(including segregated areas).
§ 5.160
Submission requirements.
(a) General. Program participants
must submit an Equity Plan to HUD for
review pursuant to the schedule set
forth in this section. Program
participants may submit an individual
Equity Plan or may collaborate with
other program participants (joint
program participants) to submit a joint
Equity Plan.
(1) Goals in an individual Equity Plan
may contemplate and include
coordination or collaboration with other
program participants or other public or
private entities even if those entities are
not part of a joint Equity Plan.
(2) Program participants are
encouraged to collaborate to conduct
and submit a single Equity Plan (i.e., a
joint Equity Plan) for the purpose of
sharing resources and developing
partnerships to address fair housing
issues. When collaborating to submit a
joint Equity Plan, joint program
participants may divide work as they
choose, but all program participants are
accountable for any joint analysis and
any joint fair housing goals. Program
participants are accountable for their
individual analysis and fair housing
goals included in the joint Equity Plan.
Participation in a joint Equity Plan does
not relieve each program participant
from its obligation to analyze and
address fair housing issues by setting
goals and implementing strategies and
meaningful actions to overcome the
effects of any identified fair housing
issues. Each program participant must
sign the joint Equity Plan and associated
certifications and assurances submitted
to HUD.
(i) Program participants that are either
not located within the same CBSA or
E:\FR\FM\09FEP2.SGM
09FEP2
khammond on DSKJM1Z7X2PROD with PROPOSALS2
8570
Federal Register / Vol. 88, No. 27 / Thursday, February 9, 2023 / Proposed Rules
that are not located within the same
State that seek to collaborate on a joint
Equity Plan must submit a written
request to HUD for approval of the
collaboration, stating why the
collaboration is appropriate. The written
request must be submitted not less than
180 days before the start of the
development of the joint Equity Plan.
The joint Equity Plan may not proceed
until such time as the Responsible Civil
Rights Official approves the
collaboration.
(ii) All other joint Equity Plan
program participants must promptly
notify HUD of their intent to collaborate,
but need not obtain HUD approval prior
to conducting the joint Equity Plan. The
notification to HUD must include a copy
of their written agreement.
(iii) Program participants must
designate, through express written
consent, one program participant to
serve as the lead entity to oversee the
submission of the joint Equity Plan. The
notification to HUD of the collaboration
shall include the identification of the
lead entity.
(iv) The submission schedule for the
joint Equity Plan shall be the schedule
that ordinarily would apply to the joint
Equity Plan’s lead entity unless the
Responsible Civil Rights Official
determines that an earlier submission is
required for good cause, in which case
the Responsible Civil Rights Official
will designate an earlier submission
date that provides the collaborating
program participants a reasonable
amount of time to develop and submit
a joint Equity Plan.
(v) Program participants conducting a
joint Equity Plan must have a plan for
community engagement that complies
with the requirements of §§ 5.150
through 5.180, and must include the
jurisdictions of each program
participant, not just that of the lead
entity. A material change that requires
the revision of an Equity Plan pursuant
to § 5.164 for any program participant
that is part of a joint Equity Plan will
trigger a requirement to revise the joint
Equity Plan, including any necessary
community engagement.
(vi) Program participants conducting a
joint Equity Plan may determine that it
would be practicable to align program
and fiscal years according to the
procedures set forth at 24 CFR 91.10 and
24 CFR part 903, as applicable for
purposes of the submission schedule set
forth in this section. To the extent that
alignment of program and fiscal years is
not practicable, a program participant
may be required by the Secretary to
make appropriate revisions to its full
consolidated plan or PHA Plan, or any
plan incorporated therein, that was
VerDate Sep<11>2014
16:40 Feb 08, 2023
Jkt 259001
approved by HUD prior to the
submission and HUD review of the joint
Equity Plan in order to appropriately
incorporate strategies and meaningful
actions to implement the fair housing
goals from the joint Equity Plan.
(vii) A program participant that, for
any reason, decides to withdraw from a
previously arranged joint Equity Plan
must promptly notify HUD of the
withdrawal. HUD will work with the
withdrawing program participant, as
well as the remaining program
participants conducting the joint Equity
Plan, to determine whether a new
submission date is needed for the
withdrawing participant or the
remaining participants. If a new
submission date is needed for the
withdrawing participant or the
remaining participants, HUD will
establish a submission date for the
program participant’s individual Equity
Plan that is as close as feasible to the
originally intended submission date and
is no later than the original submission
date for the joint Equity Plan, unless
good cause for an extension is shown,
as determined by the Responsible Civil
Rights Official.
(b) Submission of first Equity Plan—
consolidated plan program participants.
(1) For each program participant that
receives a total of $100 million or more
in formula grant funds from programs
that are subject to the consolidated plan
requirements for the program year that
begins on or after January 1, 2024, the
first Equity Plan shall be submitted by
24 months after [effective date of final
rule], or 365 calendar days prior to the
date for which a new consolidated plan
is due, whichever is earlier.
(2) For each program participant that
receives a total of $30–99 million in
formula grant funds for the program
year that begins on or after January 1,
2025, the first Equity Plan shall be
submitted no later than 365 calendar
days prior to the date for which a new
consolidated plan is due.
(3) For each program participant that
receives a total of $1–29 million in
formula grant funds for the program
year that begins on or after January 1,
2026, the first Equity Plan shall be
submitted no later than 365 calendar
days prior to the date for which a new
consolidated plan is due.
(4) For each program participant that
receives a total of less than $1 million
in formula grant funds for the program
year that begins on or after January 1,
2027, the first Equity Plan shall be
submitted no later than 365 calendar
days prior to the date for which a new
consolidated plan is due.
(c) Submission of first Equity Plan—
public housing agencies (PHAs). For
PO 00000
Frm 00056
Fmt 4701
Sfmt 4702
purposes of determining the PHA’s total
number of public housing units and
vouchers, the inventory shall be
determined as of [effective date of final
rule].
(1) For each PHA with a combined
total number of public housing units
and vouchers of 50,000 or more, the first
Equity Plan shall be submitted no later
than 24 months after [effective date of
final rule], or 365 calendar days prior to
the date for which a new 5-year plan is
due following the start of the fiscal year
that begins on or after January 1, 2024,
whichever is earlier.
(2) For each PHA with a combined
total number of public housing units
and vouchers between 10,000 and
49,999, the first Equity Plan shall be
submitted no later than 365 calendar
days prior to the date for which a new
5-year plan is due following the start of
the fiscal year that begins on or after
January 1, 2025.
(3) For each PHA with a combined
total number of public housing units
and vouchers between 1,000 and 9,999
or PHAs that operate statewide, which
includes certain Qualified PHAs, the
first Equity Plan shall be submitted no
later than 365 calendar days prior to the
date for which a new 5-year plan is due
following the start of the fiscal year that
begins on or after January 1, 2026.
(4) For each PHA with a combined
total number of public housing units
and vouchers that is less than 1,000, the
first Equity Plan shall be submitted no
later than 365 calendar days prior to the
date for which a new 5-year plan is due
following the start of the fiscal year that
begins on or after January 1, 2027.
(d) How to comply with AFFH
planning and certification requirements
until first Equity Plan submission. (1)
Except as provided in paragraph (e) of
this section, until such time as a
program participant submits or is
required to submit an Equity Plan, the
program participant shall engage in fair
housing planning (e.g., prepare an
Analysis of Impediments to Fair
Housing Choice, Assessment of Fair
Housing, or other fair housing plan).
Program participants that have not
conducted or updated their fair housing
plans for more than three years prior to
[effective date of final rule], and who are
not required to submit an Equity Plan
pursuant to paragraph (b) or (c) of this
section within twenty-four months of
[effective date of final rule], shall either
conduct or update their fair housing
plans (i.e., Analysis of Impediments to
Fair Housing Choice, Assessment of Fair
Housing, or other fair housing plan) and
submit such plan to HUD for
publication and potential review no
later than 365 days from [effective date
E:\FR\FM\09FEP2.SGM
09FEP2
khammond on DSKJM1Z7X2PROD with PROPOSALS2
Federal Register / Vol. 88, No. 27 / Thursday, February 9, 2023 / Proposed Rules
of final rule]. Program participants that
have conducted or updated their fair
housing plans during the three years
prior to [effective date of final rule], are
not required to undertake additional
updates pursuant to this paragraph
(d)(1), but must submit their existing
fair housing plan to the Department for
publication and potential review no
later than 120 days from [effective date
of final rule]. Program participants may,
alternatively, conduct an Equity Plan in
advance of when such plan would
otherwise be due for submission to HUD
pursuant to paragraph (b) or (c) of this
section. The Responsible Civil Rights
Official may review and provide
feedback on a program participant’s
submitted fair housing plan. If the
Secretary determines there is evidence
that challenges the accuracy of the
program participant’s certification that
it will affirmatively further fair housing,
the Secretary will provide written
notification to the program participant
of such a determination consistent with
24 CFR 91.500 for consolidated plans
and 24 CFR 903.23 for PHA Plans and
§ 5.162. The Responsible Civil Rights
Official’s review of a fair housing plan
under this paragraph (d)(1) may also
provide reason for the initiation of a
compliance review pursuant to § 5.170.
(2) Program participants shall
continue to update their fair housing
plans at least every five years and
submit updated plans to HUD for
publication and potential review until
such time as the program participant is
required to begin preparing its Equity
Plan for submission to HUD.
(e) New program participants. For a
new program participant that has not
submitted a consolidated plan or PHA
Plan as of [30 days after date of
publication of final rule], HUD will
provide the new program participant
with a deadline for submission of its
first Equity Plan, which shall be at least
24 months after the date for which the
program participant’s first consolidated
plan or PHA Plan is due. Prior to the
submission of its first Equity Plan, new
program participants are required to
affirmatively further fair housing and
engage in fair housing planning during
the development of its first consolidated
or PHA Plan.
(f) Annual progress evaluations.
Program participants shall, in
accordance with § 5.154(h), submit
annual progress evaluations to the
Responsible Civil Rights Official, which
shall be accompanied by the
certifications and assurances in
paragraph (i) of this section. The first
annual progress evaluation shall be
submitted for publication and review no
later than 365 days from the date of
VerDate Sep<11>2014
16:40 Feb 08, 2023
Jkt 259001
HUD’s notification that the Equity Plan
is accepted, and subsequent progress
evaluations shall be submitted for
publication and review no later than
365 days from the date of the last
progress evaluation submitted.
(g) Second and subsequent Equity
Plans. Following the first Equity Plan,
for all program participants, subsequent
Equity Plans shall be submitted for
publication and review 365 days before
the date for which a new 3- to 5-year
consolidated plan or PHA Plan is due
(as applicable).
(h) Frequency. All program
participants shall submit an Equity Plan
no less frequently than once every 5
years, or at such time agreed upon in
writing by the Responsible Civil Rights
Official and the program participant, as
necessary to remedy or avoid
noncompliance with Federal fair
housing and civil rights requirements.
(i) Equity Plan certifications and
assurances. Each program participant,
including program participants
submitting a joint Equity Plan, must
include the following certifications and
assurances with each Equity Plan and
annual progress evaluation submitted to
HUD:
(1) The program participant’s
statements and information contained in
the Equity Plan submitted to HUD are
true, accurate, and complete and that
the program participant developed the
Equity Plan in compliance with the
requirements of §§ 5.150 through 5.180.
(2) The program participant will take
meaningful actions to implement the
goals established in its Equity Plan
conducted in accordance with the
requirements of §§ 5.150 through 5.180
and 24 CFR 91.225(a)(1), 91.325(a)(1),
91.425(a)(1), 570.487(b)(1), 570.601,
903.7(o), and 903.15(d), as applicable,
which require that the program
participant will affirmatively further fair
housing. In addition, the program
participant will take no action that is
materially inconsistent with the duty to
affirmatively further fair housing.
(3) The program participant shall
submit, in conjunction with the Equity
Plan submitted to HUD, an assurance to
HUD that its programs, activities, and
services are operated in compliance
with the requirements of §§ 5.150
through 5.180 and in a manner that
affirmatively furthers fair housing, as
well as that its programs, activities, and
services are operated in compliance
with Federal fair housing and civil
rights nondiscrimination requirements.
The assurance shall obligate the
program participant to comply with
§§ 5.150 through 5.180 for the full
period during which Federal financial
assistance is extended.
PO 00000
Frm 00057
Fmt 4701
Sfmt 4702
§ 5.162
8571
Review of Equity Plan.
(a) HUD review of submitted Equity
Plan—(1) General. HUD’s review of an
Equity Plan is to determine whether the
program participant has developed an
Equity Plan that includes the required
analysis, identification of fair housing
issues, and establishment of fair housing
goals, as set forth in § 5.154. HUD will
promptly publish each submitted Equity
Plan on HUD-maintained web pages.
Members of the public may submit
comments regarding the submitted
Equity Plan to HUD in a manner
specified by the Responsible Civil
Rights Official during the timeframe for
HUD’s review and should do so no later
than 60 days from the date the Equity
Plan is submitted to HUD. The
timeframe for submission of comments
may be extended for good cause by the
Responsible Civil Rights Official.
Providing comments on a submitted
Equity Plan pursuant to this paragraph
(a)(1) is distinct from the filing of
complaints pursuant to § 5.170.
(2) HUD review. Within 100 calendar
days after the date HUD receives the
Equity Plan, HUD will accept the Equity
Plan unless on or before that date the
Responsible Civil Rights Official
provides the program participant
notification that the date is extended for
good cause or that HUD does not accept
the Equity Plan. If HUD does not accept
the Equity Plan, in its notification, HUD
will inform the program participant in
writing of the reasons why HUD has not
accepted the Equity Plan and actions the
program participant may take to resolve
the nonacceptance. HUD will publish
any written feedback that it provides on
accepted Equity Plans, as well as
notifications of non-acceptance, and
related notifications and
communications on HUD-maintained
web pages. HUD ordinarily will review
an Equity Plan before acceptance,
though an Equity Plan may be accepted
without HUD review due to infeasibility
or other exigent circumstances beyond
HUD’s control.
(3) Meaning of HUD acceptance of an
Equity Plan. HUD’s acceptance of an
Equity Plan means only that, for
purposes of administering HUD program
funding, HUD has not found that the
program participant has failed to
comply with the required elements, as
set forth in § 5.154. HUD’s acceptance of
an Equity Plan does not mean that the
program participant has complied with
its obligation to affirmatively further fair
housing under the Fair Housing Act; has
complied with other provisions of the
Fair Housing Act; or has complied with
other civil rights laws and regulations.
HUD’s acceptance of an Equity Plan also
E:\FR\FM\09FEP2.SGM
09FEP2
khammond on DSKJM1Z7X2PROD with PROPOSALS2
8572
Federal Register / Vol. 88, No. 27 / Thursday, February 9, 2023 / Proposed Rules
does not limit HUD’s ability to
undertake an investigation pursuant to
§ 5.170.
(b) Nonacceptance of an Equity Plan.
(1) The Responsible Civil Rights Official
will not accept an Equity Plan if the
Equity Plan or a portion of the Equity
Plan is inconsistent with fair housing or
civil rights requirements, which
includes but is not limited to any
material noncompliance with the
requirements of §§ 5.150 through 5.180.
In connection with a joint Equity Plan,
HUD’s determination to not accept the
Equity Plan with respect to one program
participant does not necessarily affect
the status of the Equity Plan with
respect to another program participant.
The following are non-exclusive
examples of an Equity Plan that is
inconsistent with fair housing and civil
rights requirements:
(i) HUD determines that the analysis
of fair housing issues and fair housing
goals contained in the Equity Plan
would result in policies or practices that
would operate to discriminate in
violation of the Fair Housing Act or
other civil rights laws;
(ii) The Equity Plan does not identify
local policies or practices as fair
housing issues when such policies or
practices pose a barrier to equity;
(iii) The fair housing goals contained
in the Equity Plan are not designed and
cannot be reasonably expected to result
in a material positive change with
respect to one or more identified and
prioritized fair housing issues;
(iv) The fair housing goals contained
in the Equity Plan merely consist of
actions already required to comply with
nondiscrimination requirements (e.g.,
establishing a process for reviewing,
making, and documenting decisions on
reasonable accommodation requests
received by the program participant);
(v) The Equity Plan was developed
without the required community
engagement;
(vi) The Equity Plan contains an
analysis in which the identification of
fair housing issues or the established
fair housing goals are materially
inconsistent with the data or other
evidence available to the program
participant, or in which fair housing
goals are not designed to overcome the
effects of identified fair housing issues
as required by §§ 5.150 through 5.180;
(vii) The Equity Plan fails to
acknowledge the existence of a fair
housing issue identified during
community engagement; or
(viii) The Equity Plan does not
contain the required certifications and
assurances pursuant to § 5.160.
(2) HUD will provide written
notification to the program participant,
VerDate Sep<11>2014
16:40 Feb 08, 2023
Jkt 259001
including each program participant
involved in a joint Equity Plan,
explaining HUD’s decision to accept or
not accept the Equity Plan. For Equity
Plans that are not accepted, the written
notification will provide guidance on
how a non-accepted Equity Plan may be
revised to achieve acceptance and how
a program participant may request
reconsideration by the Reviewing Civil
Rights Official of HUD’s non-acceptance
of an Equity Plan, including by
submitting clarifying information that
may be sufficient to address the
concerns raised in HUD’s notification of
non-acceptance. HUD will provide a
decision on the request for
reconsideration in advance of the
deadline to resubmit a revised Equity
Plan. To provide transparency regarding
the status of program participants’
Equity Plans, HUD will publish all such
notifications on HUD-maintained web
pages.
(c) Revisions and resubmission. In
HUD’s notification of non-acceptance,
HUD will provide a program
participant, including each program
participant involved in a joint Equity
Plan, with a reasonable time period to
revise and resubmit the Equity Plan. All
revisions or resubmissions, and any
HUD notifications relating to revisions
and resubmissions, shall be published
on HUD-maintained web pages.
(1) If HUD does not accept the Equity
Plan, HUD will provide written
notification to the program participant
and shall provide no more than 60
calendar days after the date of HUD’s
notification to revise and resubmit the
Equity Plan. HUD may extend this date
for good cause.
(2) The revised Equity Plan will be
reviewed by HUD within 75 calendar
days of the date by which HUD receives
the revised Equity Plan. HUD may
provide notification that HUD does not
accept the revised Equity Plan on or
before that date. If HUD does not accept
the revision, the procedures set forth in
this section will continue to apply until
such time as the program participant’s
revised Equity Plan has been accepted
by HUD or the Responsible Civil Rights
Official instead determines that a
different procedure is necessary to
ensure compliance, such as the
procedures set forth at § 5.172.
(3) If a program participant’s Equity
Plan is accepted by HUD and the
program participant voluntarily revises
its Equity Plan in response to feedback
contained in HUD’s notification of
acceptance, the revised Plan shall be
submitted no later than 120 days
following the date of HUD’s notification
of acceptance of the Equity Plan. If the
revised Equity Plan does not meet the
PO 00000
Frm 00058
Fmt 4701
Sfmt 4702
requirements set forth in §§ 5.150
through 5.180, HUD will not accept the
revision, and the previously accepted
Equity Plan will remain in effect. If
HUD determines a revision is necessary
pursuant to the requirements of this
section, the procedures set forth in this
section will continue to apply until
such time as the program participant’s
revised Equity Plan has been accepted
by HUD or the Responsible Civil Rights
Official instead determines that a
different procedure is necessary to
ensure compliance, such as the
procedures set forth at § 5.172.
(d) Incentives. At its discretion and
consistent with applicable laws and
program objectives, HUD may establish
incentives or other ways to recognize
program participants that set ambitious
goals that are designed and can be
reasonably expected to overcome
challenging fair housing issues. These
incentives may include HUD
recognizing the value of relevant,
effective fair housing goals when HUD
establishes the criteria for evaluating
applications for discretionary funding.
Program participants are encouraged to
include implementation of fair housing
goals from their Equity Plans in
subsequent applications to HUD for
discretionary funding for purposes of
securing additional resources to
implement such goals.
(e) Failure to have an accepted Equity
Plan at the time of submission of the
consolidated plan or PHA Plan. (1) At
the time a program participant submits
its consolidated plan or PHA Plan, as
applicable, the program participant
must have either a current, accepted
Equity Plan or must have executed
special assurances that require the
program participant to submit and
obtain HUD’s acceptance of its Equity
Plan by a specified date following the
end of HUD’s review period for the
consolidated plan or PHA Plan. A
program participant’s failure to provide
the required special assurances will lead
to the disapproval of a consolidated
plan or PHA Plan, and a program
participant’s failure to provide or
comply with special assurances will
jeopardize funding in accordance with
§§ 5.172 and 5.174. Failure to provide or
comply with special assurances may
constitute evidence that a program
participant’s AFFH certification is
inaccurate pursuant to 24 CFR 91.500 or
that the program participant’s AFFH
certification appears inaccurate
pursuant to 24 CFR 903.15, providing
the Secretary a basis to challenge the
validity of the AFFH certification
pursuant to § 5.166.
(i) If a consolidated plan program
participant does not have an Equity Plan
E:\FR\FM\09FEP2.SGM
09FEP2
khammond on DSKJM1Z7X2PROD with PROPOSALS2
Federal Register / Vol. 88, No. 27 / Thursday, February 9, 2023 / Proposed Rules
that has been accepted by HUD as
provided by § 5.160 at the time the
program participant submits its
consolidated plan, the Responsible Civil
Rights Official shall obtain special
assurances prior to the date the
consolidated plan must be disapproved
pursuant to 24 CFR 91.500 (i.e., within
45 days of the date the consolidated
plan is submitted to HUD); if a program
participant fails to provide such special
assurances, HUD will initiate the
disapproval of the consolidated plan.
The special assurances shall:
(A) Require the program participant to
achieve an accepted Equity Plan that
meets the requirements of §§ 5.150
through 5.180 no later than 180 days
following the end of HUD’s 45-day
review period for the consolidated plan;
(B) Set out a date, consistent with that
deadline, by which the program
participant shall submit its Equity Plan
to HUD for review; and
(C) Require the program participant to
amend its consolidated plan to
incorporate the fair housing goals of the
accepted Equity Plan no later than 180
days from the date the Equity Plan is
accepted by HUD.
(ii) If a PHA does not have an Equity
Plan that has been accepted by HUD as
provided by § 5.160 at the time the
program participant submits its PHA
Plan, the Responsible Civil Rights
Official shall obtain special assurances
prior to the date the PHA Plan must be
disapproved pursuant to 24 CFR 903.23
(i.e., 75 days from the date the PHA Plan
is submitted to HUD); if a program
participant fails to provide such special
assurances, HUD will disapprove the
PHA Plan. The special assurances shall:
(A) Require the program participant to
achieve an accepted Equity Plan that
meets the requirements of §§ 5.150
through 5.180 no later than 180 days
following the end of HUD’s 75-day
review period for the PHA Plan;
(B) Set out a date, consistent with that
deadline, by which the program
participant shall submit its Equity Plan
to HUD for review; and
(C) Require the program participant to
amend its PHA Plan to incorporate the
fair housing goals of the accepted Equity
Plan no later than 180 days from the
date the Equity Plan is accepted by
HUD.
(2) Upon a determination by the
Secretary that the program participant
has failed to submit an Equity Plan that
meets the requirements of §§ 5.150
through 5.180, and after the 180-day
period described in any applicable
special assurance has expired, the
following shall apply.
(i) With respect to a consolidated plan
program participant:
VerDate Sep<11>2014
16:40 Feb 08, 2023
Jkt 259001
(A) The Secretary shall promptly
initiate termination of funding;
(B) The Secretary shall refuse to grant
or not continue granting applicable
Federal financial assistance until such
time as the program participant comes
into compliance; and
(C) The Secretary shall follow the
procedures at § 5.172 to effect these
remedies.
(ii) With respect to a PHA:
(A) The Secretary shall notify the
PHA that it is in substantial default;
(B) The Secretary shall take any other
action authorized by law to effect
compliance; and
(C) The Secretary shall follow the
procedures at § 5.172 to effect these
remedies.
(3) Special assurances and any
submission of an Equity Plan, including
HUD’s decision to accept or not accept
the Equity Plan shall be subject to the
publication requirement at § 5.154(j).
Such publication shall indicate whether
the special assurances have been
satisfied as part of HUD’s decision to
accept the Equity Plan.
§ 5.164
Revising an accepted Equity Plan.
(a) General—circumstances for
revising an Equity Plan. (1) An Equity
Plan previously accepted by HUD must
be revised and submitted to HUD for
review under the following
circumstances:
(i) A material change occurs. A
material change is a change in
circumstances in a program
participant’s jurisdiction that affects the
information on which the Equity Plan is
based to the extent that the analysis and
fair housing goals of the Equity Plan no
longer reflect actual circumstances. An
Equity Plan must be revised in the event
of a presidentially declared disaster that
impacts a program participant’s
jurisdiction and is expected to result in
additional Federal financial assistance
for the jurisdiction, under title IV of the
Robert T. Stafford Disaster Relief and
Emergency Assistance Act (42 U.S.C.
5121 et seq.); or
(ii) Upon the Responsible Civil Rights
Official’s written notification specifying
a material change that requires the
revision.
(2) An Equity Plan previously
accepted by HUD may be revised and
submitted to HUD for review under the
following circumstances:
(i) If there are changes in the program
participant’s geographic area of analysis
that significantly impact the steps a
program participant may need to take to
affirmatively further fair housing;
(ii) A fair housing goal established in
the Equity Plan cannot be achieved;
(iii) Significant demographic changes
occur;
PO 00000
Frm 00059
Fmt 4701
Sfmt 4702
8573
(iv) New fair housing issues emerge in
the jurisdiction;
(v) Short-term fair housing goals have
been achieved;
(vi) Civil rights findings,
determinations, settlements (including
Voluntary Compliance Agreements), or
court orders are entered; or
(vii) The program participant advises
HUD of a change that similarly may
merit the program participant’s
submission of a revised Equity Plan, and
HUD grants the program participant
permission to submit a revised Equity
Plan by a specific date for HUD review.
(3) Requirements for revisions of an
Equity Plan. A revision pursuant to
paragraph (a)(1) or (2) of this section
consists of preparing any necessary
amended analyses and fair housing
goals that take into account the change,
including any new fair housing issues.
A revision may not necessarily require
the submission of an entirely new
Equity Plan and a program participant
may focus only on the change and the
appropriate and necessary adjustments
to the analysis and fair housing goals,
but any revision shall trigger the
program participant’s obligation to
conduct community engagement on the
amended portions of the Equity Plan
pursuant to the requirements at § 5.158.
(b) Timeframe for required revisions.
(1) Where a revision is undertaken
pursuant to paragraph (a)(1)(i) of this
section, such revision shall be
submitted within 12 months of the onset
of the material change, or at such later
date as the Responsible Civil Rights
Official may provide. When the material
change is the result of a presidentially
declared disaster, such time shall be
automatically extended to the date that
is 2 years after the date upon which the
disaster declaration is made, and the
Responsible Civil Rights Official may
extend such deadline, upon request, for
good cause shown.
(2)(i) When a revision is required
under paragraph (a)(1)(ii) of this section,
the Responsible Civil Rights Official
will specify a date by which the
program participant must submit the
revision of the Equity Plan to HUD,
considering the material change and the
need for a valid Equity Plan to guide
planning activities. The Responsible
Civil Rights Official may extend the due
date upon written request by the
program participant that describes the
reasons the program participant is
unable to satisfy the deadline for
submitting a revised Equity Plan.
(ii) On or before 30 calendar days
following the date of HUD’s written
notification under paragraph (a)(1)(ii) of
this section, the program participant
may advise the Responsible Civil Rights
E:\FR\FM\09FEP2.SGM
09FEP2
8574
Federal Register / Vol. 88, No. 27 / Thursday, February 9, 2023 / Proposed Rules
Official in writing of its belief that a
revision to the Equity Plan is not
required. The program participant must
state with specificity the reasons for its
belief that a revision is not required.
The Responsible Civil Rights Official
will take into account any such
response and issue to the program
participant in writing a determination as
to whether the program participant must
proceed with the revision. The
Responsible Civil Rights Official may
establish a new due date that is later
than the date specified in the original
notification.
(c) Submission of the revised Equity
Plan. Upon completion, any revision to
the Equity Plan must be submitted to
HUD and will be published in
accordance with § 5.154(j). The revised
Equity Plan will follow the same
procedures for HUD review at § 5.162.
(d) Incorporation of revised fair
housing goals into subsequent planning
documents. Upon HUD’s notice that the
revised Equity Plan has been accepted,
the program participant shall, within 12
months, incorporate any revised fair
housing goals into its consolidated plan,
annual action plan, or PHA Plan, or any
plan incorporated therein.
khammond on DSKJM1Z7X2PROD with PROPOSALS2
§ 5.166 AFFH certifications required for
the receipt of Federal financial assistance.
(a) Certifications. Prior to the receipt
of Federal financial assistance, program
participants must certify that they will
affirmatively further fair housing, which
means engaging in fair housing planning
and taking meaningful actions in
accordance with the requirements of
§§ 5.150 through 5.180 and 24 CFR
91.225, 91.325, 91.425, 570.487,
570.601, 903.7, and 903.15, and take no
action that is materially inconsistent
with the duty to affirmatively further
fair housing throughout the period for
which Federal financial assistance is
extended. Such certifications must be
made in accordance with applicable
program regulations, specifically 24 CFR
part 91 for consolidated plan program
participants and 24 CFR part 903 for
PHAs.
(b) Procedures for challenging the
validity of an AFFH certification—(1)
Consolidated plan program
participants. If HUD has evidence that
could be used to challenge the accuracy
of a program participant’s AFFH
certification, the Secretary may provide
written notice of the intent to reject the
program participant’s AFFH
certification as inaccurate. The notice
will include the evidence challenging
the accuracy of the AFFH certification
and provide the program participant an
opportunity to comment and submit
additional evidence to the Secretary in
VerDate Sep<11>2014
16:40 Feb 08, 2023
Jkt 259001
support of the AFFH certification. The
notice may include other actions the
program participant may take for the
Secretary to accept the AFFH
certification, including conditions (see
e.g., 2 CFR 200.208). The failure to
comply with the conditions established
by the Secretary may trigger the
procedures set forth in § 5.172. The
notice will also provide a date by which
the program participant must respond.
After consideration of the evidence and
any other actions taken by the program
participant, if the Secretary determines
that the AFFH certification is
inaccurate, the Secretary may reject the
certification consistent with 24 CFR
91.500.
(2) PHAs. If, consistent with the
criteria at 24 CFR 903.15, HUD
challenges the validity of a PHA’s
certification, HUD will do so in writing,
specifying the deficiencies, and will
give the PHA an opportunity to respond
to the particular challenge in writing. In
responding to the specified deficiencies,
a PHA must establish, as applicable,
that it has complied with fair housing
and civil rights laws and regulations
and has adopted policies and
undertaken actions to affirmatively
further fair housing, including but not
limited to, providing a full range of
housing opportunities to applicants and
tenants and taking affirmative steps as
described in 24 CFR 903.15(c)(2) in a
nondiscriminatory manner. In
responding to the PHA, HUD may
accept the PHA’s explanation and
withdraw the challenge, undertake
further investigation, or pursue other
remedies available under law. HUD will
seek to obtain voluntary corrective
action consistent with the specified
deficiencies. In determining whether a
PHA has complied with its certification,
HUD will review the PHA’s
circumstances, including characteristics
of the population served by the PHA;
characteristics of the PHA’s existing
housing stock; and decisions, plans,
goals, priorities, strategies, and actions
of the PHA, including those designed to
affirmatively further fair housing. If the
PHA has not resolved the identified
deficiencies, the Secretary may pursue
any other appropriate remedies under
law, including:
(i) Requiring the PHA to revise and
resubmit its PHA Plan and
corresponding certifications in a manner
that would demonstrate the PHA’s
certifications are valid;
(ii) Requiring the execution of a
Voluntary Compliance Agreement that
permits the Secretary to determine the
PHA’s certifications are valid; or
PO 00000
Frm 00060
Fmt 4701
Sfmt 4702
(iii) Finding the PHA in substantial
default on an Annual Contributions
Contract.
(3) Joint Equity Plans. In the case of
a joint Equity Plan, if the Secretary
rejects the AFFH certification for one
program participant’s consolidated plan,
annual action plan, or PHA Plan, this
rejection shall not affect the
certifications of the other joint program
participants unless the Secretary
provides written notification to each
program participant. The Secretary shall
employ the procedures set forth in
paragraph (b)(1) or (2) of this section,
depending on whether the program
participant is a consolidated plan
program participant or a PHA.
§ 5.168
Recordkeeping.
Each program participant must
establish and maintain sufficient
records to enable the Responsible Civil
Rights Official to determine whether the
program participant has complied with
or is complying with the requirements
of this subpart. A PHA not preparing its
own Equity Plan in accordance with 24
CFR 903.15(a)(3) must maintain a copy
of the applicable Equity Plan and
records reflecting actions to
affirmatively further fair housing as
described in 24 CFR 903.7(o). All
program participants shall permit access
by the Responsible Civil Rights Official
during normal business hours to its
electronically stored information, books,
records, accounts, and other sources of
information, and its facilities, as may be
pertinent to ascertain compliance with
§§ 5.150 through 5.180. Where any
information required of a program
participant is in the exclusive
possession of any other agency,
institution, or person and this agency,
institution, or person fails or refuses to
furnish this information, the program
participant shall so certify to the
Responsible Civil Rights Official and set
forth what efforts the program
participant made to obtain the
information. At a minimum, the
following records, which may be
maintained and provided in electronic
format, are needed for each consolidated
plan program participant and each PHA
that prepares its own Equity Plan:
(a) Information and records relating to
the program participant’s Equity Plan
and any significant revisions to the
Equity Plan, including, but not limited
to, statistical data, studies, and other
diagnostic tools used by the jurisdiction;
and any policies, procedures, or other
documents relating to the analysis or
preparation of the Equity Plan;
(b) Records demonstrating compliance
with the community engagement
requirements of §§ 5.150 through 5.180,
E:\FR\FM\09FEP2.SGM
09FEP2
khammond on DSKJM1Z7X2PROD with PROPOSALS2
Federal Register / Vol. 88, No. 27 / Thursday, February 9, 2023 / Proposed Rules
including the names of organizations
involved in the development of the
Equity Plan, summaries or transcripts of
public meetings or hearings, written
public comments, public notices and
other correspondence, distribution lists,
surveys, or interviews (as applicable);
(c) Records demonstrating the
meaningful actions the program
participant has taken to affirmatively
further fair housing, including activities
carried out in furtherance of the Equity
Plan; the program participant’s fair
housing goals set forth in its Equity
Plan, and strategies and meaningful
actions, including funding allocations in
its consolidated plan, or PHA Plan, and
any plan incorporated therein; and the
actions the program participant has
carried out to implement the fair
housing goals identified in accordance
with § 5.154 during the preceding 5
years;
(d) Where a court or an agency of the
United States Government or of a State
government has found that the program
participant has violated any applicable
nondiscrimination and equal
opportunity requirement set forth in
§ 5.105(a) or any applicable civil rightsrelated program requirement,
documentation related to the underlying
judicial or administrative finding and
affirmative measures that the program
participant has taken in response;
(e) Documentation relating to the
program participant’s efforts to ensure
that housing and community
development activities (including those
assisted under programs administered
by HUD) are in compliance with
applicable nondiscrimination and equal
opportunity requirements set forth in
§ 5.105(a) and applicable civil rights
related program requirements;
(f) Records demonstrating that
consortium members, units of general
local government receiving allocations
from a State, or units of general local
government participating in an urban
county have conducted their own or
contributed to the jurisdiction’s Equity
Plan (as applicable) and documents
demonstrating their meaningful actions
to affirmatively further fair housing;
(g) Evidence of the program
participant’s or its subrecipients’
certifications and assurances of
compliance in accordance with §§ 5.160
and 5.162(e), or any other civil rightsrelated certifications and assurances
required in connection with the receipt
of Federal financial assistance; and
(h) Any other evidence relied upon by
the program participant to support its
affirmatively furthering fair housing
certifications and assurances.
VerDate Sep<11>2014
16:40 Feb 08, 2023
Jkt 259001
§ 5.170
Compliance procedures.
(a) Complaints. (1) Complaints may be
submitted by an individual, association,
or other organization that alleges that a
program participant has failed to
comply with this subpart,
noncompliance with the program
participant’s commitments made under
this subpart, or that the program
participant has taken action that is
materially inconsistent with the
obligation to affirmatively further fair
housing, as defined in § 5.152.
(2) Complaints related to the Equity
Plan, the requirements of §§ 5.150
through 5.180, and the AFFH obligation
may be submitted to the Responsible
Civil Rights Official. The Responsible
Civil Rights Official shall process the
complaint in accordance with the
procedures set forth in this section and,
upon the acceptance of a complaint, the
Responsible Civil Rights Official will
provide notification to the complainant
and the program participant. If the
Responsible Civil Rights Official
determines a complaint does not
contain sufficient information, the
Responsible Civil Rights Official will
notify the complainant and specify the
additional information needed to
complete the complaint. If the
complainant fails to complete this
complaint within a timeframe
established by the Responsible Civil
Rights Official, the Responsible Civil
Rights Official will close the complaint
without prejudice.
(3) Complaints shall be filed within
365 days of date of the last incident of
the alleged violation, unless the
Responsible Civil Rights Official
extends the time limit for good cause
shown.
(b) Investigations and compliance
reviews. (1) The Responsible Civil
Rights Official shall investigate
complaints and may periodically
conduct reviews of program participants
in order to ascertain whether there has
been a failure to comply with this
subpart or the program participant’s
obligation to affirmatively further fair
housing under the Fair Housing Act. If
the investigation implicates an alleged
failure to comply with any other Federal
civil rights law for which HUD has
jurisdiction, the notification provided
pursuant to paragraph (a)(2) of this
section shall include notification that
the investigation will also involve a
review under those laws.
(2) The Responsible Civil Rights
Official may conduct interviews, request
records, and obtain other information
required to be maintained by the
program participant pursuant to § 5.168
in furtherance of the investigation and
in order to determine whether there has
PO 00000
Frm 00061
Fmt 4701
Sfmt 4702
8575
been noncompliance with §§ 5.150
through 5.180 or the program
participant’s obligation to affirmatively
further fair housing.
(3) Where appropriate, the
Responsible Civil Rights Official shall
attempt informal resolution of any
matter being investigated under this
section. If voluntary resolution is not
achieved and a violation is found, the
Responsible Civil Rights Official shall
issue a Letter of Findings to the program
participant and complainant, if any.
(4) The Letter of Findings shall
include:
(i) Findings of fact and conclusions of
law;
(ii) A description of a remedy for each
violation found;
(iii) Notice of the rights and
procedures under this paragraph (b) and
§§ 5.172 and 5.174; and
(iv) Notice of the right of the program
participant or complainant, if any, to
request review of the Letter of Findings
not later than 30 calendar days from the
date of issuance of the Letter of Findings
by mailing or delivering to the
Reviewing Civil Rights Official, Office
of Fair Housing and Equal Opportunity,
Washington, DC 20410, a written
statement of the reasons why the letter
of findings should be modified in light
of supplementary information provided
by the program participant or
complainant, if any.
(5) Upon receipt of a request for
review of the Letter of Findings, the
Reviewing Civil Rights Official shall
either sustain or modify the Letter of
Findings, which will occur within 120
days, subject to extension for good cause
as determined by the Reviewing Civil
Rights Official. The Reviewing Civil
Rights Official’s decision shall
constitute the formal determination.
(6) If no request for review is
submitted to the Reviewing Civil Rights
Official under paragraph (b)(4)(iv) of
this section, the Letter of Findings shall
constitute the formal determination.
(c) Voluntary compliance. (1) It is the
policy of the Department to encourage
the informal resolution of matters.
Additionally, it is the policy of the
Department to ensure appropriate
actions are taken to remedy
noncompliance and prevent future
noncompliance in an effort to avoid
more severe corrective actions. In
attempting informal resolution, the
Responsible Civil Rights Official shall
attempt to achieve a just resolution of
the matter that will satisfactorily
remedy any violations of §§ 5.150
through 5.180 or the program
participant’s obligation to affirmatively
further fair housing. The Responsible
Civil Rights Official may require in any
E:\FR\FM\09FEP2.SGM
09FEP2
8576
Federal Register / Vol. 88, No. 27 / Thursday, February 9, 2023 / Proposed Rules
Voluntary Compliance Agreement that
the program participant will take certain
actions with respect to any aggrieved
individual or class of individuals. The
Responsible Civil Rights Official, in
appropriate circumstances, may seek, in
lieu of a Voluntary Compliance
Agreement, assurances or special
assurances of compliance. Any informal
resolution shall include actions that will
prevent the occurrence of such
violations in the future. The
Responsible Civil Rights Official may
attempt to resolve a matter through
informal means at any stage of
processing. A matter may be resolved by
informal means through entry into a
Voluntary Compliance Agreement at
any time. If a Letter of Findings of
Noncompliance is issued, the
Responsible Civil Rights Official or
Reviewing Civil Rights Official shall
attempt to resolve the matter by
informal means, as applicable.
(2) In the event a program participant
fails to comply with the terms of a
Voluntary Compliance Agreement or
assurance, the Responsible Civil Rights
Official shall provide prompt notice to
the program participant of its failure to
comply and provide the program
participant with a timeframe to cure the
noncompliance. If the Responsible Civil
Rights Official determines the program
participant has failed to cure the
noncompliance within the specified
timeframe, any remedy provided by law
may be used, including the procedures
set forth in § 5.172.
(d) Intimidatory or retaliatory acts
prohibited. No program participant or
other person shall intimidate, threaten,
coerce, or discriminate against any
person for the purpose of interfering
with HUD’s administration of §§ 5.150
through 5.180 or the Fair Housing Act,
or because he, she, or they have
testified, assisted, or participated in any
manner in an investigation, proceeding,
or hearing under §§ 5.150 through 5.180
or the Fair Housing Act.
khammond on DSKJM1Z7X2PROD with PROPOSALS2
§ 5.172 Procedures for effecting
compliance.
(a) General. If the Responsible Civil
Rights Official determines that
compliance cannot be secured by
voluntary means and ten days have
elapsed since the determination of
noncompliance was issued pursuant to
§ 5.170(b)(5) and (6), compliance with
§§ 5.150 through 5.180 or the obligation
to affirmatively further fair housing
under the Fair Housing Act may be
effected through such actions, which
may include, but are not limited to:
(1) A referral to the Department of
Justice with a recommendation that
appropriate proceedings be brought to
VerDate Sep<11>2014
16:40 Feb 08, 2023
Jkt 259001
enforce any rights of the United States
under any law of the United States, or
any assurance or other contractual
undertaking;
(2) The initiation of an administrative
proceeding by filing a Complaint and
Notice of Proposed Adverse Action
pursuant to 24 CFR 180.415 seeking
suspension or termination of or refusal
to grant or to continue to grant Federal
financial assistance and any other
appropriate relief necessary to remedy
the non-compliance, including but not
limited to conditioning the use of
Federal financial assistance, and other
declaratory, injunctive, or monetary
relief;
(3) The initiation of debarment
proceedings pursuant to 2 CFR part
2424; and
(4) Any applicable proceeding under
State or local law.
(b) Noncompliance with § 5.160(i),
§ 5.162(e), or § 5.170(c). If a program
participant fails or refuses to furnish an
assurance required under § 5.160(i),
§ 5.162(e), or § 5.170(c), or otherwise
fails or refuses to comply with the
requirements imposed by §§ 5.150
through 5.180, Federal financial
assistance may be refused under
paragraph (c) of this section. HUD is not
required to provide assistance during
the pendency of the administrative
proceeding under paragraph (a)(2) or (c)
of this section.
(c) Termination of or refusal to grant
or to continue to grant Federal financial
assistance. Should HUD seek to
terminate, refuse to grant or to not
continue granting Federal financial
assistance through an action initiated
pursuant to paragraph (a)(2) of this
section, no order suspending,
terminating, or refusing to grant or to
continue to grant Federal financial
assistance shall become effective until:
(1) The Responsible Civil Rights
Official has advised the program
participant of its failure to comply and
has determined that compliance cannot
be secured by voluntary means;
(2) There has been an express finding
on the record, after an opportunity for
a hearing, of a failure by the program
participant to comply with the
requirements of §§ 5.150 through 5.180
or its obligation to affirmatively further
fair housing under the Fair Housing Act;
(3) The action has been approved by
the Secretary; and
(4) Any action to suspend or
terminate, or to refuse to grant or to
continue Federal financial assistance
shall be limited to the particular
political entity, or part thereof, or the
particular program participant as to
whom such a finding has been made
and shall be limited in its effect to the
PO 00000
Frm 00062
Fmt 4701
Sfmt 4702
particular program, or part thereof, in
which such noncompliance has been
found.
(d) Notice to State or local
government. Whenever the Secretary
determines that a State or local
government that is a recipient of Federal
financial assistance under title I of the
Housing and Community Development
Act of 1974, as amended (42 U.S.C.
5301–5318) has failed to comply with a
requirement of §§ 5.150 through 5.180
or its obligation to affirmatively further
fair housing under the Fair Housing Act,
the Secretary shall notify the Governor
of the State or the chief executive officer
of the unit of general local government
of the noncompliance and shall request
the Governor or the chief executive
officer secure compliance. Such
notification may be satisfied through the
procedures set forth in § 5.170(c). The
notice shall be given at least sixty days
before:
(1) An order suspending, terminating,
or refusing to grant or to continue to
grant Federal financial assistance
becomes effective under paragraph (a)(2)
or (c) of this section; or
(2) Any other action to effect
compliance is taken under paragraph (a)
of this section.
§ 5.174
Hearings.
(a) Opportunity for hearing. Whenever
an opportunity for a hearing is required
by § 5.172 (a)(2) or (c), notice shall be
given by certified mail, return receipt
requested, to the affected program
participant. This notice, pursuant to 24
CFR 180.415, shall advise the program
participant of the action proposed to be
taken, the specific provisions under
which the proposed action against it is
to be taken, and the matters of fact or
law asserted as the basis for this action.
This notice shall accompany service of
a complaint filed pursuant to 24 CFR
part 180. The notice shall:
(1) Fix a date not less than twenty
days after the date of the notice for the
program participant to request the
administrative law judge schedule a
hearing; or
(2) Advise the program participant
that the matter has been scheduled for
hearing at a stated time and place. The
time and place so fixed shall be
reasonable and shall be subject to
change for cause. A program participant
may waive a hearing and submit written
information and argument for the
record. The failure of a program
participant to request a hearing under
this paragraph (a) or to appear at a
hearing for which a date has been set is
a waiver of the right to a hearing under
§ 5.172(a)(2) or (c) and consent to the
E:\FR\FM\09FEP2.SGM
09FEP2
Federal Register / Vol. 88, No. 27 / Thursday, February 9, 2023 / Proposed Rules
making of a decision on the basis of
available information.
(b) Hearing procedures. Hearings shall
be conducted in accordance with 24
CFR part 180.
§§ 5.175–5.180
[Reserved]
PART 91—CONSOLIDATED
SUBMISSION FOR COMMUNITY
PLANNING AND DEVELOPMENT
PROGRAMS
3. The authority citation for part 91
continues to read as follows:
■
Authority: 42 U.S.C. 3535(d), 3601–3619,
5301–5315, 11331–11388, 12701–12711,
12741–12756, and 12901–12912.
4. In § 91.2, paragraph (e) is added to
read as follows:
■
§ 91.2
Applicability.
*
*
*
*
*
(e) All programs covered by the
consolidated plan must comply with the
requirements to affirmatively further fair
housing, including those at §§ 5.150
through 5.180 of this title.
■ 5. In § 91.5, the introductory text is
revised to read as follows:
§ 91.5
Definitions.
The terms affirmatively furthering fair
housing, elderly person, Equity Plan,
and HUD are defined in 24 CFR part 5.
*
*
*
*
*
■ 6. In § 91.100, paragraph (c) is revised
and paragraph (e) is added to read as
follows:
§ 91.100
Consultation; local governments.
khammond on DSKJM1Z7X2PROD with PROPOSALS2
*
*
*
*
*
(c) Public housing agencies (PHAs).
(1) The jurisdiction shall consult with
local PHAs operating in the jurisdiction
regarding consideration of public
housing needs, planned programs and
activities, and the fair housing strategies
and meaningful actions that will
implement the fair housing goals from
the Equity Plan consistent with § 5.156
of this title. This consultation will help
provide a better basis for the
certification by the authorized official
that the PHA Plan is consistent with the
consolidated plan and the local
government’s description of its strategy
for affirmatively furthering fair housing
and the manner in which it will address
the needs of public housing and, where
necessary, the manner in which it will
provide financial or other assistance to
a troubled PHA to improve the PHA’s
operations and remove the designation
of troubled, as well as obtaining PHA
input on addressing fair housing issues
in the Public Housing and Housing
Choice Voucher programs.
(2) This consultation will also help
ensure that activities with regard to
VerDate Sep<11>2014
16:40 Feb 08, 2023
Jkt 259001
affirmatively furthering fair housing,
local drug elimination, neighborhood
improvement programs, and resident
programs and services, those funded
under a PHA’s program and those
funded under a program covered by the
consolidated plan, are fully coordinated
to implement the fair housing goals
from the jurisdiction’s and PHA’s Equity
Plan, achieve comprehensive
community development goals, and
affirmatively further fair housing. If a
PHA is required to implement remedies
under a Voluntary Compliance
Agreement, the local jurisdiction should
work with or consult with the PHA, as
appropriate, to identify actions the
jurisdiction may take, if any, to assist
the PHA in implementing the required
remedies.
*
*
*
*
*
(e) Affirmatively furthering fair
housing. (1) For the Equity plan, the
jurisdiction shall follow the community
engagement requirements at § 5.158 of
this title. For the consolidated plan, the
jurisdiction shall consult with
community-based and regionally-based
organizations that represent protected
class members and organizations that
enforce fair housing laws, such as State
or local fair housing enforcement
agencies (including participants in the
Fair Housing Assistance Program
(FHAP)), fair housing organizations and
other non-profit organizations that
receive funding under the Fair Housing
Initiatives Program (FHIP), and other
public and private fair housing service
agencies, to the extent that such entities
operate within its jurisdiction. This
consultation will help provide a better
basis for the jurisdiction’s Equity Plan,
its certification to affirmatively
furthering fair housing, and other
portions of the consolidated plan
concerning affirmatively further fair
housing.
(2) This consultation must occur with
any organizations that have relevant
knowledge or data to inform the Equity
Plan and that are sufficiently
independent and representative to
provide meaningful feedback to a
jurisdiction on the Equity Plan and its
implementation.
(3) Consultation must occur at various
points in the fair housing planning
process, meaning that, at a minimum,
the jurisdiction will consult with the
organizations described in this
paragraph (e) in the development of
both the Equity Plan and the
consolidated plan. Consultation on the
consolidated plan shall specifically seek
input into how the fair housing goals
identified in an accepted Equity Plan
PO 00000
Frm 00063
Fmt 4701
Sfmt 4702
8577
will be achieved through the priorities
and objectives of the consolidated plan.
■ 7. In § 91.105, paragraphs (a), (b), (c),
(e) heading, (e)(1)(i), (e)(2) through (4),
(f), (g), (i), and (j) are revised to read as
follows:
§ 91.105 Citizen participation plan; local
governments.
(a) Applicability and adoption of the
citizen participation plan—(1) Citizen
participation plan. The jurisdiction is
required to adopt a citizen participation
plan that sets forth the jurisdiction’s
policies and procedures for citizen
participation for purposes of the
consolidated plan. The citizen
participation plan may include the
community engagement procedures for
development of the Equity Plan, which
shall be consistent with the
requirements set forth at § 5.158 of this
title.
(2) Encouragement of citizen
participation. (i) The citizen
participation plan must provide for and
encourage citizens to participate in the
development of the Equity Plan, any
revisions to the Equity Plan, the
consolidated plan, any substantial
amendment to the consolidated plan,
and the performance report. The
requirements in this paragraph (a)(2)(i)
are designed especially to encourage
participation by low- and moderateincome persons, particularly those
persons living in areas designated by the
jurisdiction as a revitalization area or in
a slum and blighted area and in areas
where CDBG funds are proposed to be
used, and by residents of predominantly
low- and moderate-income
neighborhoods, as defined by the
jurisdiction, as well as members of
protected class groups that have
historically been denied equal
opportunity, and underserved
communities. A jurisdiction must take
appropriate actions to encourage the
participation of all its residents,
including minorities and non-English
speaking persons, as provided in
paragraph (a)(4) of this section, as well
as persons with disabilities, as provided
in paragraph (a)(5) of this section.
(ii) The jurisdiction shall encourage
the participation of local and regional
institutions, Continuums of Care, and
other organizations (including
businesses, developers, non-profit
organizations, philanthropic
organizations, metropolitan planning
organizations, and community-based
and faith-based organizations) in the
process of developing and
implementing the Equity Plan and
consolidated plan.
(iii) The jurisdiction shall encourage,
in conjunction with consultation with
E:\FR\FM\09FEP2.SGM
09FEP2
khammond on DSKJM1Z7X2PROD with PROPOSALS2
8578
Federal Register / Vol. 88, No. 27 / Thursday, February 9, 2023 / Proposed Rules
public housing agencies, the
participation of residents of public and
assisted housing developments
(including any resident advisory boards,
resident councils, and resident
management corporations) in the
process of developing and
implementing the consolidated plan,
along with other low-income residents
of targeted revitalization areas in which
the developments are located. The
jurisdictions shall make an effort to
provide information to the PHA about
how the jurisdiction will affirmatively
furthering fair housing through
implementation of its fair housing goals
from the Equity Plan, and other
consolidated plan activities related to
the PHA’s developments and
surrounding communities so that the
PHA can make this information
available at the annual public hearing(s)
required for the PHA Plan.
(iv) The jurisdiction should explore
alternative public involvement
techniques and quantitative ways to
measure efforts that encourage citizen
participation in a shared vision for
change in communities and
neighborhoods, and the review of
program performance; e.g., use of focus
groups, the internet, and social media.
To the extent the jurisdiction includes
the community engagement
requirements for the Equity Plan in its
citizen participation plan, the
techniques described in this paragraph
(a)(2)(iv) that are utilized for purposes of
community engagement pursuant to
§ 5.158 of this title shall be consistent
with the requirements of that section,
including the nondiscrimination
requirements described at § 5.158(a)(7)
of this title.
(3) Citizen comment on the citizen
participation plan and amendments.
The jurisdiction must provide citizens
with a reasonable opportunity to
comment on the original citizen
participation plan and on substantial
amendments to the citizen participation
plan, and must make the citizen
participation plan public. The citizen
participation plan must be in a format
accessible to persons with disabilities
and shall provide meaningful access to
limited English proficient persons as
more fully described in paragraphs
(a)(4) and (5) of this section.
(4) Language assistance for
individuals with limited English
proficiency. The citizen participation
plan shall describe the jurisdiction’s
procedures for assessing its language
needs and identify any need for
translation of notices and other vital
documents. At a minimum, the citizen
participation plan shall require that the
jurisdiction take reasonable steps to
VerDate Sep<11>2014
16:40 Feb 08, 2023
Jkt 259001
provide language assistance to ensure
meaningful access to participation by
non-English-speaking residents of the
community in the development of the
consolidated plan.
(5) Accessibility for persons with
disabilities. The citizen participation
plan shall describe the jurisdiction’s
procedures for ensuring effective
communication with persons with
disabilities, consistent with the
jurisdiction’s obligations under section
504 of the Rehabilitation Act and HUD’s
implementing regulation at 24 CFR part
8 and title II of the Americans with
Disabilities Act and the implementing
regulation at 28 CFR part 35. At
minimum, the citizen participation plan
shall include the requirement that the
jurisdiction furnish appropriate
auxiliary aids and services where
necessary to afford persons with
disabilities an equal opportunity to
participate in the development of the
consolidated plan.
(b) Development of the consolidated
plan. The citizen participation plan
must include the following minimum
requirements for the development of the
consolidated plan:
(1)(i) The citizen participation plan
must require that at or as soon as
feasible after the start of the public
participation process the jurisdiction
will make the HUD-provided data and
any other supplemental information the
jurisdiction plans to incorporate into its
Equity Plan or consolidated plan
available to its residents, public
agencies, and other interested parties.
(ii) The citizen participation plan
must require that, before the jurisdiction
adopts a consolidated plan, the
jurisdiction will make available to
residents, public agencies, and other
interested parties information that
includes the amount of assistance the
jurisdiction expects to receive
(including grant funds and program
income) and the range of activities that
may be undertaken, including the
estimated amount that will benefit
persons of low- and moderate-income.
The citizen participation plan also must
set forth the jurisdiction’s plans to
minimize displacement of persons and
to assist any persons displaced,
specifying the types and levels of
assistance the jurisdiction will make
available (or require others to make
available) to persons displaced, even if
the jurisdiction expects no displacement
to occur.
(iii) The citizen participation plan
must state when and how the
jurisdiction will make this information
available.
(2) The citizen participation plan
must require the jurisdiction to publish
PO 00000
Frm 00064
Fmt 4701
Sfmt 4702
the proposed consolidated plan in a
manner that affords its residents, public
agencies, and other interested parties a
reasonable opportunity to examine its
content and to submit comments. The
citizen participation plan must set forth
how the jurisdiction will publish the
proposed consolidated plan and give
reasonable opportunity to examine each
document’s content. The requirement
for publishing may be met by publishing
a summary of each document in one or
more newspapers of general circulation,
and by making copies of each document
available on the internet, on the
jurisdiction’s official government
website and pages on social media, and
as well at libraries, government offices,
and public places. The summary must
describe the content and purpose of the
consolidated plan and must include a
list of the locations where copies of the
entire proposed documents may be
examined. In addition, the jurisdiction
must provide a reasonable number of
free copies of the plans to residents and
groups that request them.
(3) The citizen participation plan
must provide for at least one public
hearing during the development of the
consolidated plan. See paragraph (e) of
this section for public hearing
requirements, generally. See § 5.158(d)
of this title for public hearing
requirements for purposes of the Equity
Plan.
(4) The citizen participation plan
must provide a period, not less than 30
calendar days, to receive comments
from residents of the community on the
consolidated plan. This timing is
distinct from the required community
engagement for purposes of the Equity
Plan set forth at § 5.158(a)(8)(i) of this
title.
(5) The citizen participation plan
shall require the jurisdiction to consider
any comments or views of residents of
the community received in writing, or
orally at the public hearings, in
preparing the consolidated plan. A
summary of these comments or views,
and a summary of any comments or
views not accepted and the reasons
why, shall be attached to the final
consolidated plan. See § 5.154(h) of this
title for the content requirements for
purposes of the Equity Plan’s
community engagement process.
(c) Consolidated plan amendments
and Equity Plan revisions. (1) The
citizen participation plan must specify
the criteria the jurisdiction will use for
determining what changes in the
jurisdiction’s planned or actual
activities constitute a substantial
amendment to the consolidated plan.
(See § 91.505.) The citizen participation
plan must include, among the criteria
E:\FR\FM\09FEP2.SGM
09FEP2
khammond on DSKJM1Z7X2PROD with PROPOSALS2
Federal Register / Vol. 88, No. 27 / Thursday, February 9, 2023 / Proposed Rules
for a substantial amendment, changes in
the use of CDBG funds from one eligible
activity to another. If the jurisdiction
includes the Equity Plan in its citizen
participation plan, then the citizen
participation plan shall specify the
criteria for revisions of the Equity Plan,
which shall, at minimum, be consistent
with § 5.164 of this title.
(2) The citizen participation plan
must provide community residents with
reasonable notice and an opportunity to
comment on substantial amendments to
the consolidated plan. The citizen
participation plan must state how
reasonable notice and an opportunity to
comment will be given. The citizen
participation plan must provide a
period, of not less than 30 calendar
days, to receive comments on the
consolidated plan substantial
amendment before the consolidated
plan substantial amendment is
implemented. If the citizen participation
plan includes the Equity Plan, it shall be
consistent with the requirements at
§ 5.164(a)(3) of this title.
(3) The citizen participation plan
shall require the jurisdiction to consider
any comments or views of residents of
the community received in writing, or
orally at public hearings, if any, in
preparing the substantial amendment of
the consolidated plan. A summary of
these comments or views, and a
summary of any comments or views not
accepted and the reasons why, shall be
attached to the substantial amendment
of the consolidated plan. If the
jurisdiction includes the Equity Plan in
the citizen participation plan, it shall be
consistent with the requirements set
forth at §§ 5.154(h) and 5.158 of this
title.
*
*
*
*
*
(e) Public hearings. (1)(i) Consolidated
plan. The citizen participation plan
must provide, for purposes of the
consolidated plan, for at least two
public hearings per year to obtain
residents’ views and to respond to
proposals and questions, to be
conducted at a minimum of two
different stages of the program year.
Together, the hearings must address
housing and community development
needs, development of proposed
activities, proposed fair housing
strategies and meaningful actions for
affirmatively furthering fair housing
based on the fair housing goals from the
Equity Plan consistent with § 5.156 of
this title, and a review of program
performance. If the jurisdiction has
included the community engagement
procedures for development of the
Equity Plan in its citizen participation
VerDate Sep<11>2014
16:40 Feb 08, 2023
Jkt 259001
plan, the requirements at § 5.158 of this
title shall apply.
*
*
*
*
*
(2) The citizen participation plan
must state how and when adequate
advance notice will be given to citizens
of each hearing on the consolidated
plan, with sufficient information
published about the subject of the
hearing to permit informed comment.
(Publishing small print notices in the
newspaper a few days before the hearing
does not constitute adequate notice.
Although HUD is not specifying the
length of notice required, it would
consider two weeks adequate.)
(3) The citizen participation plan
must provide that hearings be held at
times and locations convenient to
potential and actual beneficiaries, and
accessible to persons with disabilities.
The citizen participation plan must
specify how it will meet the
requirements in this paragraph (e)(3).
(4) The citizen participation plan
must identify how the needs of nonEnglish speaking residents will be met
in the case of public hearings where a
significant number of non-English
speaking residents can be reasonably
expected to participate.
(f) Meetings. The citizen participation
plan, for purposes of the consolidated
plan, must provide residents of the
community with reasonable and timely
access to local meetings, consistent with
accessibility and reasonable
accommodation requirements, in
accordance with section 504 of the
Rehabilitation Act of 1973 and the
regulations at 24 CFR part 8; and the
Americans with Disabilities Act and the
regulations at 28 CFR parts 35 and 36,
as applicable. If the Equity Plan is
included in the jurisdiction’s citizen
participation plan, the requirements for
meetings set forth at § 5.158 of this title
shall apply.
(g) Availability to the public. The
citizen participation plan must provide
that the consolidated plan as adopted,
consolidated plan substantial
amendments, and the performance
report will be available to the public,
including the availability of materials in
a form accessible to persons with
disabilities and shall provide
meaningful access to limited English
proficient persons as more fully
described in paragraphs (a)(4) and (5) of
this section. The citizen participation
plan must state how these documents
will be available to the public.
*
*
*
*
*
(i) Technical assistance. The citizen
participation plan must provide for
technical assistance to groups
representative of persons of low- and
PO 00000
Frm 00065
Fmt 4701
Sfmt 4702
8579
moderate-income that request such
assistance in commenting on the Equity
Plan and in developing proposals for
funding assistance under any of the
programs covered by the consolidated
plan, with the level and type of
assistance determined by the
jurisdiction. The assistance need not
include the provision of funds to the
groups.
(j) Complaints. The citizen
participation plan shall describe the
jurisdiction’s appropriate and
practicable procedures to handle
complaints from its residents related to
the consolidated plan, amendments,
revisions, and the performance report.
At a minimum, the citizen participation
plan shall require that the jurisdiction
must provide a timely, substantive
written response to every written
resident complaint, within an
established period of time (within 15
working days, where practicable, if the
jurisdiction is a CDBG grant recipient).
This procedure is distinct from the
processes that apply to the Equity Plan
set forth at §§ 5.158(i) and 5.170 of this
title.
*
*
*
*
*
■ 8. In § 91.110, paragraph (a) is revised
to read as follows:
§ 91.110
Consultation; States.
(a) When preparing the consolidated
plan, the State shall consult with other
public and private agencies that provide
assisted housing (including any State
housing agency administering public
housing), health services, and social and
fair housing services (including those
focusing on services to children, elderly
persons, persons with disabilities,
including persons with HIV/AIDS and
their families, and homeless persons).
For the Equity Plan, the jurisdiction
shall follow the community engagement
requirements at § 5.158 of this title.
(1) With respect to public housing or
Housing Choice Voucher programs, the
State shall consult with any housing
agency administering public housing or
the section 8 program on a Statewide
basis as well as PHAs that certify
consistency with the State’s
consolidated plan. State consultation
with these entities may consider public
housing needs, planned programs and
activities, the Equity Plan strategies for
affirmatively furthering fair housing and
proposed actions to affirmatively further
fair housing. This consultation helps
provide a better basis for the
certification by the authorized official
that the PHA Plan is consistent with the
consolidated plan and the State’s
description of its strategy to
affirmatively further fair housing, and
the manner in which the State will
E:\FR\FM\09FEP2.SGM
09FEP2
khammond on DSKJM1Z7X2PROD with PROPOSALS2
8580
Federal Register / Vol. 88, No. 27 / Thursday, February 9, 2023 / Proposed Rules
address the needs of public housing
and, where applicable, the manner in
which the State may provide financial
or other assistance to a troubled PHA to
improve its operations and remove such
designation, as well as in obtaining PHA
input on addressing fair housing issues
in public housing and the Housing
Choice Voucher programs. This
consultation also helps ensure that
activities with regard to affirmatively
furthering fair housing, local drug
elimination, neighborhood
improvement programs, and resident
programs and services, funded under a
PHA’s program covered by the
consolidated plan are fully coordinated
to achieve comprehensive community
development goals and affirmatively
further fair housing. If a PHA is required
to implement remedies under a
Voluntary Compliance Agreement, the
State should consult with the PHA and
identify actions the State may take, if
any, to assist the PHA in implementing
the required remedies.
(2) The State shall consult with Statebased and regionally-based
organizations that represent protected
class groups, including underserved
communities, and organizations that
enforce fair housing laws, such as State
fair housing enforcement agencies
(including participants in the Fair
Housing Assistance Program (FHAP)),
fair housing organizations and other
non-profit organizations that receive
funding under the Fair Housing
Initiatives Program (FHIP), and other
public and private fair housing service
agencies, to the extent such entities
operate within the State. This
consultation will help provide a better
basis for the State’s Equity Plan, its
certification that it is affirmatively
furthering fair housing, and other
portions of the consolidated plan
concerning affirmatively furthering fair
housing. This consultation should occur
with organizations that have the
capacity to engage with data informing
the Equity Plan and be sufficiently
independent and representative to
provide meaningful feedback on the
Equity Plan, the consolidated plan, and
their implementation. Consultation
must occur at various points in the fair
housing planning process, meaning that,
at a minimum, the jurisdiction will
consult with the organizations described
in this paragraph (a)(2) in the
development of both the Equity Plan
and the consolidated plan. Consultation
on the consolidated plan shall
specifically seek input into how the fair
housing goals established in the Equity
Plan will be incorporated into the
VerDate Sep<11>2014
16:40 Feb 08, 2023
Jkt 259001
priorities and objectives of the
consolidated plan.
*
*
*
*
*
■ 9. In § 91.115:
■ a. Paragraphs (a)(1), (a)(2)(i) and (ii),
and (a)(3) and (4) are revised;
■ b. Paragraph (a)(5) is added; and
■ c. The introductory text of paragraph
(b), paragraphs (b)(1) and (2), the
introductory text of paragraph (b)(3),
and paragraphs (b)(4) and (5), (f), and (h)
are revised.
The revisions and addition read as
follows:
§ 91.115
Citizen participation plan; States.
(a) * * *
(1) When citizen participation plan
must be amended. The State is required
to adopt a citizen participation plan that
sets forth the State’s policies and
procedures for citizen participation for
purposes of the consolidated plan. The
citizen participation plan may include
the community engagement procedures
for development of the Equity Plan,
which shall be consistent with the
requirements set forth at § 5.158 of this
title.
(2) * * *
(i) The citizen participation plan must
provide for and encourage citizens to
participate in the development of the
Equity Plan, any revisions to the Equity
Plan, the consolidated plan, any
substantial amendments to the
consolidated plan, and the performance
report. These requirements are designed
especially to encourage participation by
low- and moderate-income persons,
particularly those living in slum and
blighted areas and in areas where CDBG
funds are proposed to be used and by
residents of predominantly low- and
moderate-income neighborhoods. A
State must take appropriate actions to
encourage the participation of all its
residents, including minorities and nonEnglish speaking persons, as provided
in paragraph (a)(4) of this section, as
well as persons with disabilities, as
provided in paragraph (a)(5) of this
section.
(ii) The State shall encourage the
participation of Statewide and regional
institutions, Continuums of Care, and
other organizations (including
businesses, developers, non-profit
organizations, philanthropic
organizations, metropolitan planning
organizations, and community-based
and faith-based organizations) that are
involved with or affected by the
programs or activities covered by the
consolidated plan in the process of
developing and implementing the
Equity Plan and consolidated plan.
Commencing with consolidated plans
submitted in or after January 1, 2018,
PO 00000
Frm 00066
Fmt 4701
Sfmt 4702
the State shall also encourage the
participation of public and private
organizations, including broadband
internet service providers, organizations
engaged in narrowing the digital divide,
agencies whose primary responsibilities
include the management of flood prone
areas, public land or water resources,
and emergency management agencies in
the process of developing the
consolidated plan. For purposes of the
development of the Equity Plan, this
obligation shall commence following
[30 DAYS AFTER DATE OF
PUBLICATION OF FINAL RULE].
*
*
*
*
*
(3) Citizen and local government
comment on the citizen participation
plan and amendments. The State must
provide citizens and units of general
local government a reasonable
opportunity to comment on the original
citizen participation plan and on
substantial amendments to the citizen
participation plan, and must make the
citizen participation plan public. The
citizen participation plan must be in a
format accessible to persons with
disabilities and shall provide
meaningful access to limited English
proficient persons as more fully
described in paragraphs (a)(4) and (5) of
this section.
(4) Language assistance for
individuals with limited English
proficiency. The citizen participation
plan shall describe the State’s
procedures for assessing its language
needs and identify any need for
translation of notices and other vital
documents. At a minimum, the citizen
participation plan shall require the State
to make reasonable efforts to provide
language assistance to ensure
meaningful access to participation by
non-English speaking persons in the
development of the consolidated plan.
(5) Accessibility for persons with
disabilities. The citizen participation
plan shall describe the jurisdiction’s
procedures for ensuring effective
communication with persons with
disabilities, consistent with the
jurisdiction’s obligations under section
504 of the Rehabilitation Act and HUD’s
implementing regulation at 24 CFR part
8 and title II of the Americans with
Disabilities Act and the implementing
regulation at 28 CFR part 35. At
minimum, the citizen participation plan
shall include the requirement that the
jurisdiction furnish appropriate
auxiliary aids and services where
necessary to afford persons with
disabilities an equal opportunity to
participate in the development of the
consolidated plan.
E:\FR\FM\09FEP2.SGM
09FEP2
khammond on DSKJM1Z7X2PROD with PROPOSALS2
Federal Register / Vol. 88, No. 27 / Thursday, February 9, 2023 / Proposed Rules
(b) Development of the Equity Plan
and consolidated plan. The citizen
participation plan must include the
following minimum requirements for
the development of the Equity Plan and
consolidated plan:
(1) The citizen participation plan
must require that, before the State
adopts a consolidated plan, the State
will make available to its residents,
public agencies, and other interested
parties information that includes the
amount of assistance the State expects
to receive and the range of activities that
may be undertaken, including the
estimated amount that will benefit
persons of low- and moderate-income
and the plans to minimize displacement
of persons and to assist any persons
displaced. The State will also provide
the amount of any assistance that will
benefit protected class groups and
underserved communities that have
historically been denied access to
opportunity. The citizen participation
plan must state when and how the State
will make this information available.
(2) The citizen participation plan
must require the State to publish the
proposed Equity Plan and the proposed
consolidated plan in a manner that
affords residents, units of general local
governments, public agencies, and other
interested parties a reasonable
opportunity to examine the document’s
content and to submit comments. The
citizen participation plan must set forth
how the State will make publicly
available the proposed Equity Plan and
proposed consolidated plan and give
reasonable opportunity to examine each
document’s content. To ensure that the
Equity Plan, consolidated plan, and the
PHA Plan are informed by meaningful
community participation, program
participants should employ
communications means designed to
reach the broadest audience. Such
communications may be met by
publishing a summary of each
document in one or more newspapers of
general circulation, and by making
copies of each document available on
the internet, on the grantee’s official
government website and its pages on
social media, and as well at libraries,
government offices, and public places.
The summary must describe the content
and purpose of the Equity Plan and
consolidated plan, and must include a
list of the locations where copies of the
entire proposed document(s) may be
examined. In addition, the State must
provide a reasonable number of free
copies of the plans to its residents and
groups that request a copy of the plan.
(3) The citizen participation plan
must provide for at least one public
hearing on housing and community
VerDate Sep<11>2014
16:40 Feb 08, 2023
Jkt 259001
development needs before the proposed
consolidated plan is published for
comment. See § 5.158(d) of this title for
public hearing requirements for
purposes of the Equity Plan.
*
*
*
*
*
(4) The citizen participation plan
must, for purposes of the consolidated
plan, provide a period of not less than
30 calendar days, to receive comments
from residents and units of general local
government on the consolidated plan.
This timing is distinct from the required
community engagement for purposes of
the Equity Plan set forth at
§ 5.158(a)(8)(i) of this title.
(5) The citizen participation plan
shall require the State to consider any
comments or views of its residents and
units of general local government
received in writing, or orally at the
public hearings, in preparing the final
Equity Plan or consolidated plan. A
summary of these comments or views,
and a summary of any comments or
views not accepted and the reasons
therefore, shall be attached to the final
consolidated plan (as applicable). See
§ 5.154(h) of this title for the content
requirements for purposes of the Equity
Plan’s community engagement process.
*
*
*
*
*
(f) Availability to the public. The
citizen participation plan must provide
that the consolidated plan as adopted,
consolidated plan substantial
amendments and the performance
report will be available to the public,
including the availability of materials in
a form accessible to persons with
disabilities and shall provide
meaningful access to limited English
proficient persons as more fully
described in paragraphs (a)(4) and (5) of
this section. The citizen participation
plan must state how these documents
will be available to the public.
*
*
*
*
*
(h) Complaints. The citizen
participation plan shall describe the
State’s appropriate and practicable
procedures to handle complaints from
its residents related to the consolidated
plan, consolidated plan amendments,
and the performance report. At a
minimum, the citizen participation plan
shall require that the State must provide
a timely, substantive written response to
every written resident complaint, within
an established period of time (within 15
working days, where practicable, if the
State is a CDBG grant recipient). This
procedure is distinct from the processes
that apply to the Equity Plan set forth
at §§ 5.158(i) and 5.170 of this title.
*
*
*
*
*
■ 10. In § 91.215:
PO 00000
Frm 00067
Fmt 4701
Sfmt 4702
8581
a. Paragraph (a)(4) is amended by
removing the period at the end of the
paragraph and adding ‘‘; and’’ in its
place; and
■ b. Paragraph (a)(5) is added.
The addition reads as follows:
■
§ 91.215
Strategic plan.
(a) * * *
(5)(i) Describe how the priorities and
specific objectives of the jurisdiction
under paragraph (a)(4) of this section
will affirmatively further fair housing by
setting forth fair housing strategies and
meaningful actions consistent with the
fair housing goals and other elements of
the Equity Plan conducted in
accordance with §§ 5.150 through 5.180
of this title.
(ii) For any fair housing goals from the
Equity Plan not addressed by the
priorities and objectives under
paragraph (a)(4) of this section, identify
how these goals have been incorporated
into the plan consistent with the
requirements of § 5.156.
*
*
*
*
*
■ 11. In § 91.220, paragraphs (k),
(l)(1)(iv), and (l)(3) are revised to read as
follows:
§ 91.220
Action plan.
*
*
*
*
*
(k) Affirmatively furthering fair
housing and other actions—(1)
Affirmatively furthering fair housing.
Actions the jurisdiction plans to take
during the next year to implement the
fair housing goals established in the
Equity Plan developed pursuant to
§§ 5.150 through 5.180 of this title or
other actions to address fair housing
issues consistent with the jurisdiction’s
obligation to affirmatively further fair
housing.
(2) Other actions. Actions it plans to
take during the next year to address
obstacles to meeting underserved needs,
foster and maintain affordable housing,
evaluate and reduce lead-based paint
hazards, reduce the number of povertylevel families, develop institutional
structure, and enhance coordination
between public and private housing and
social service agencies (see § 91.215(a),
(b), (i), (j), (k), and (l)).
(l) * * *
(1) * * *
(iv) The plan shall identify the
estimated amount of CDBG funds that
will be used for activities that benefit
persons of low- and moderate-income.
The information about activities shall be
in sufficient detail, including location,
to allow residents to determine the
degree to which they are affected. The
information about activities shall also
include whether the activities are for
purposes of implementing any fair
E:\FR\FM\09FEP2.SGM
09FEP2
8582
Federal Register / Vol. 88, No. 27 / Thursday, February 9, 2023 / Proposed Rules
housing goals from the Equity Plan
incorporated pursuant to § 5.156 of this
title.
*
*
*
*
*
(3) HOPWA. For HOPWA funds, the
jurisdiction must specify one-year goals
for the number of households to be
provided housing through the use of
HOPWA activities for: short-term rent,
mortgage, and utility assistance
payments to prevent homelessness of
the individual or family; tenant-based
rental assistance; and units provided in
housing facilities that are being
developed, leased, or operated with
HOPWA funds and shall identify the
method of selecting project sponsors
(including providing full access to
grassroots faith-based and other
community organizations). The
information about activities shall
include whether the activities are for
purposes of implementing the fair
housing goals, from the Equity Plan.
*
*
*
*
*
■ 12. In § 91.225, paragraph (a)(1) is
revised to read as follows:
§ 91.225
Certifications.
(a) * * *
(1) Affirmatively furthering fair
housing. Each jurisdiction is required to
submit a certification that they will
affirmatively further fair housing, which
includes engaging in fair housing
planning and taking meaningful actions,
in accordance with the requirements of
§§ 5.150 through 5.180 of this title, and
that it will take no action that is
materially inconsistent with the duty to
affirmatively further fair housing
throughout the period for which Federal
financial assistance is extended.
*
*
*
*
*
■ 13. Section 91.230 is revised to read
as follows:
khammond on DSKJM1Z7X2PROD with PROPOSALS2
§ 91.230
Monitoring.
The plan must describe the standards
and procedures that the jurisdiction will
use to monitor activities carried out in
furtherance of the plan, including
strategies and actions that address the
fair housing issues and goals identified
in the Equity Plan and that the
jurisdiction will use to ensure long-term
compliance with requirements of the
programs involved, including civil
rights related program requirements,
minority business outreach, and the
comprehensive planning requirements.
■ 14. In § 91.235, paragraphs (c)(1) and
(4) are revised to read as follows:
§ 91.235 Special case; abbreviated
consolidated plan.
*
*
*
(c) * * *
VerDate Sep<11>2014
*
*
16:40 Feb 08, 2023
Jkt 259001
(1) Assessment of needs, resources,
and planned activities. An abbreviated
plan must contain sufficient information
about needs, resources, and planned
activities to address the needs to cover
the type and amount of assistance
anticipated to be funded by HUD. The
jurisdiction must describe how the
jurisdiction will affirmatively further
fair housing by implementing the fair
housing goals established in the Equity
Plan developed in accordance with
§§ 5.150 through 5.180 of this title.
*
*
*
*
*
(4) Submissions, certifications,
amendments, and performance reports.
An insular area grantee that submits an
abbreviated consolidated plan under
this section must comply with the
submission, certification, amendment,
and performance report requirements of
§ 570.440 of this title. This includes the
certification that the grantee will
affirmatively further fair housing, which
means that it will take meaningful
actions to implement the goals
identified in the Equity Plan in
accordance with the requirements of
§§ 5.150 through 5.180 of this title and
that it will take no action that is
materially inconsistent with its
obligation to affirmatively further fair
housing.
*
*
*
*
*
■ 15. In § 91.305, paragraph (b)(1)(ii) is
revised to read as follows:
§ 91.305 Housing and homeless needs
assessment.
*
*
*
*
*
(b) * * *
(1) * * *
(ii) The description of housing needs
shall include a concise summary of the
cost burden and severe cost burden,
overcrowding (especially for large
families), and substandard housing
conditions being experienced by
extremely low-income, low-income,
moderate-income, and middle-income
renters and owners compared to the
State as a whole. (The State must define
in its consolidated plan the terms
‘‘standard condition’’ and ‘‘substandard
condition but suitable for
rehabilitation.’’) The State may utilize
the analysis contained in the Equity
Plan relating to affordable housing
opportunities pursuant to §§ 5.152 and
5.154 of this title to satisfy the
requirement in this paragraph (b)(1)(ii).
*
*
*
*
*
■ 16. In § 91.315, paragraph (a)(5) is
added to read as follows:
§ 91.315
Strategic plan.
(a) * * *
(5)(i) Describe how the priorities and
specific objectives of the State under
PO 00000
Frm 00068
Fmt 4701
Sfmt 4702
paragraph (a)(4) of this section
affirmatively further fair housing by
setting forth fair housing strategies and
meaningful actions consistent with the
fair housing goals and other elements of
the Equity Plan conducted in
accordance with §§ 5.150 through 5.180
of this title.
(ii) For any fair housing goals from the
Equity Plan not addressed by the
priorities and objectives under
paragraph (a)(4) of this section, identify
how these goals have been incorporated
into the plan consistent with the
requirements of §§ 5.150 through 5.180.
*
*
*
*
*
■ 17. In § 91.320, paragraphs (j),
(k)(3)(iv), and (k)(4), the introductory
text of paragraph (k)(5), and paragraph
(k)(5)(ii) are revised to read as follows:
§ 91.320
Action plan.
*
*
*
*
*
(j) Affirmatively furthering fair
housing and other actions—(1)
Affirmatively furthering fair housing.
Actions it plans to take during the next
year that implement fair housing goals
established in the Equity Plan.
(2) Other actions. Actions it plans to
take during the next year to implement
its strategic plan and address obstacles
to meeting underserved needs, foster
and maintain affordable housing
(including allocation plans and policies
governing the use of Low-Income
Housing Credits under 26 U.S.C. 42,
which are more commonly referred to as
Low-Income Housing Tax Credits),
evaluate and reduce lead-based paint
hazards, reduce the number of povertylevel families, develop institutional
structure, enhance coordination
between public and private housing and
social service agencies, address the
needs of public housing (including
providing financial or other assistance
to troubled PHAs), and encourage
public housing residents to become
more involved in management and
participate in homeownership.
(k) * * *
(3) * * *
(iv) The State must describe the
performance standards for evaluating
ESG activities, which includes
implementation of the fair housing goals
from the Equity Plan.
*
*
*
*
*
(4) HOPWA. For HOPWA funds, the
State must specify one-year goals for the
number of households to be provided
housing through the use of HOPWA
activities for short-term rent; mortgage
and utility assistance payments to
prevent homelessness of the individual
or family; tenant-based rental assistance;
and units provided in housing facilities
E:\FR\FM\09FEP2.SGM
09FEP2
khammond on DSKJM1Z7X2PROD with PROPOSALS2
Federal Register / Vol. 88, No. 27 / Thursday, February 9, 2023 / Proposed Rules
8583
that are being developed, leased or
operated with HOPWA funds, and shall
identify the method of selecting project
sponsors (including providing full
access to grassroots faith-based and
other community-based organizations).
The information about activities shall
include whether the activities are for
purposes of implementing the fair
housing goals from the Equity Plan.
(5) Housing Trust Fund. The action
plan must include the HTF allocation
plan that describes the distribution of
the HTF funds, and establishes the
application requirements and the
criteria for selection of applications
submitted by eligible recipients that
meet the State’s priority housing needs.
The plan must also establish the State’s
maximum per-unit development
subsidy limit for housing assisted with
HTF funds. If the HTF funds will be
used for first-time homebuyers, it must
state the guidelines for resale and
recapture as required in 24 CFR 93.304.
The plan must reflect the State’s
decision to distribute HTF funds
through grants to subgrantees and/or to
select applications submitted by eligible
recipients. If the State is selecting
applications submitted by eligible
recipients, the plan must include the
following:
*
*
*
*
*
(ii) The plan must include the
requirement that the application contain
a description of the eligible activities to
be conducted with the HTF funds (as
provided in 24 CFR 93.200) and contain
a certification by each eligible recipient
that housing units assisted with the HTF
will comply with HTF requirements.
The plan must also describe eligibility
requirements for recipients (as defined
in 24 CFR 93.2). The information about
activities shall include whether the
activities are for purposes of
implementing the fair housing goals
from the Equity Plan.
*
*
*
*
*
■ 18. In § 91.325, paragraph (a)(1) is
revised as follows:
throughout the period for which Federal
financial assistance is extended.
*
*
*
*
*
■ 19. Section 91.330 is revised to read
as follows:
community that is a member of the
consortium.
*
*
*
*
*
■ 22. In § 91.425, paragraph (a)(1)(i) is
revised to read as follows:
§ 91.330
§ 91.425
§ 91.325
§ 91.420
Certifications.
(a) * * *
(1) Affirmatively furthering fair
housing. Each State is required to
submit a certification that it will
affirmatively further fair housing, which
includes engaging in fair housing
planning and taking meaningful actions,
in accordance with the requirements of
§§ 5.150 through 5.180, and that it will
take no action that is materially
inconsistent with the duty to
affirmatively further fair housing
VerDate Sep<11>2014
16:40 Feb 08, 2023
Jkt 259001
Monitoring.
The consolidated plan must describe
the standards and procedures that the
State will use to monitor activities
carried out in furtherance of the plan
including strategies and actions that
address the fair housing issues and goals
identified in the Equity Plan and that
the State will use to ensure long-term
compliance with the programs involved
including civil rights related program
requirements, minority business
outreach, and the comprehensive
planning requirements.
■ 20. Section 91.415 is revised to read
as follows:
§ 91.415
Strategic plan.
Strategies and priority needs must be
described in the consolidated plan, in
accordance with the provisions of
§ 91.215, for the entire consortium. The
consortium is not required to submit a
nonhousing Community Development
Plan; however, if the consortium
includes CDBG entitlement
communities, the consolidated plan
must include the nonhousing
Community Development Plans of the
CDBG entitlement community members
of the consortium. The consortium must
set forth its priorities for allocating
housing resources (including CDBG and
ESG, where applicable) geographically
within the consortium, describing how
the consolidated plan will address the
needs identified (in accordance with
§ 91.405), setting forth fair housing
strategies and meaningful actions to
implement the fair housing goals of the
Equity Plan developed pursuant to
§§ 5.150 through 5.180 of this title,
describing the reasons for the
consortium’s allocation priorities, and
identifying any obstacles there are to
addressing underserved needs.
■ 21. In § 91.420, paragraph (b) is
revised to read as follows:
Action plan.
*
*
*
*
*
(b) Description of resources and
activities. The action plan must describe
the resources to be used and activities
to be undertaken to pursue its strategic
plan, including actions the consortium
intends to undertake in the next year to
address fair housing issues identified in
the Equity Plan. The consolidated plan
must provide this description for all
resources and activities within the
entire consortium as a whole, as well as
a description for each individual
PO 00000
Frm 00069
Fmt 4701
Sfmt 4702
Certifications.
(a) * * *
(1) * * *
(i) Affirmatively furthering fair
housing. Each consortium must certify
that it will affirmatively further fair
housing, which includes engaging in
fair housing planning and taking
meaningful actions, in accordance with
the requirements of §§ 5.150 through
5.180 of this title, and that it will take
no action that is materially inconsistent
with the duty to affirmatively further
fair housing throughout the period for
which Federal financial assistance is
extended.
*
*
*
*
*
■ 23. Section 91.430 is revised to read
as follows:
§ 91.430
Monitoring.
The consolidated plan must describe
the standards and procedures that the
consortium will use to monitor
activities carried out in furtherance of
the plan, including strategies and
actions that address the fair housing
issues and goals identified in the Equity
Plan and that the consortium will use to
ensure long-term compliance with
requirements of the programs involved,
including civil rights related program
requirements, minority business
outreach, and the comprehensive
planning requirements.
■ 24. In § 91.500, the introductory text
in paragraph (b) is revised to read as
follows:
§ 91.500
HUD approval action.
*
*
*
*
*
(b) Standard of review. The standards
in this section apply to the consolidated
plan. The standards for HUD’s review of
the Equity Plan at § 5.162 of this title are
distinct from the actions described in
this section. HUD may disapprove a
consolidated plan or a portion of a
consolidated plan if it is inconsistent
with the purposes of the CranstonGonzalez National Affordable Housing
Act (42 U.S.C. 12703), if it is
substantially incomplete, or, in the case
of certifications applicable to the CDBG
program under § 91.225(a) and (b) or
§ 91.325(a) and (b), if it is not
satisfactory to the Secretary in
accordance with § 570.304, § 570.429(g),
or § 570.485(c) of this title, as
applicable. The following are examples
of consolidated plans that are
substantially incomplete:
*
*
*
*
*
E:\FR\FM\09FEP2.SGM
09FEP2
8584
Federal Register / Vol. 88, No. 27 / Thursday, February 9, 2023 / Proposed Rules
25. In § 91.505:
a. Remove the word ‘‘or’’ at the end
of paragraph (a)(2);
■ b. Remove the period at the end of
paragraph (a)(3) and add ‘‘; or’’ in its
place; and
■ c. Add paragraph (a)(4).
The addition reads as follows:
■
■
§ 91.505
plan.
Amendments to the consolidated
(a) * * *
(4) To incorporate fair housing goals
when an Equity Plan is accepted or
revised after a consolidated plan is in
effect.
*
*
*
*
*
PART 92—HOME INVESTMENT
PARTNERSHIP PROGRAM
26. The authority citation for part 92
continues to read as follows:
■
§ 92.207 Eligible administrative and
planning costs.
*
*
*
*
*
(d) Fair housing, civil rights, and
equal opportunity. Activities to
affirmatively further fair housing in
accordance with the participating
jurisdiction’s certification under § 5.166
and part 91 of this title.
*
*
*
*
*
■ 32. In § 92.350, paragraph (a) is
revised to read as follows:
Authority: 42 U.S.C. 3535(d), 12 U.S.C.
1701x and 4568.
§ 92.350 Other Federal requirements and
nondiscrimination.
27. In § 92.2, the introductory text is
revised to read as follows:
(a) The Federal requirements set forth
in 24 CFR part 5, subpart A, are
applicable to participants in the HOME
program. The requirements of this
subpart include: nondiscrimination and
equal opportunity; affirmatively
furthering fair housing; disclosure
requirements; debarred, suspended or
ineligible contractors; drug-free work;
and housing counseling.
*
*
*
*
*
■ 33. In § 92.351, paragraph (a)(1) is
revised to read as follows:
■
§ 92.2
Definitions.
The terms 1937 Act, affirmatively
furthering fair housing, ALJ, Equity
Plan, Fair Housing Act, HUD, Indian
Housing Authority (IHA), public
housing, public housing agency (PHA),
and Secretary are defined in 24 CFR part
5.
*
*
*
*
*
■ 28. Section 92.5 is added to read as
follows:
§ 92.5
Affirmatively furthering fair housing.
All participating jurisdictions must
comply with the requirements to
affirmatively further fair housing,
including those at §§ 5.150 through
5.180 of this title.
■ 29. In § 92.61, paragraph (c)(5) is
revised to read as follows:
§ 92.61
Program description.
*
khammond on DSKJM1Z7X2PROD with PROPOSALS2
submit to HUD, not later than 90
calendar days after providing
notification under § 92.103, a
consolidated plan in accordance with 24
CFR part 91 and submit an Equity Plan
in accordance with §§ 5.150 through
5.180 of this title.
■ 31. In § 92.207, paragraph (d) is
revised to read as follows:
*
*
*
*
(c) * * *
(5) A certification that the insular area
will use HOME funds in compliance
with all requirements of this part,
including the insular area’s obligation to
affirmatively further fair housing and
conduct its federally funded programs
and activities in a manner that is
consistent with Federal fair housing and
civil rights requirements;
*
*
*
*
*
■ 30. Section 92.104 is revised to read
as follows:
§ 92.104
plan.
Submission of a consolidated
A jurisdiction that has not submitted
a consolidated plan to HUD must
VerDate Sep<11>2014
16:40 Feb 08, 2023
Jkt 259001
§ 92.351 Affirmative marketing; minority
outreach program.
(a) * * *
(1) Each participating jurisdiction
must adopt and follow affirmative
marketing procedures and requirements
for rental and homebuyer projects
containing five or more HOME-assisted
housing units. Affirmative marketing
requirements and procedures also apply
to all HOME-funded programs,
including, but not limited to, tenantbased rental assistance and
downpayment assistance programs.
Affirmative marketing steps consist of
actions to provide effective information
and otherwise attract and provide access
to the available housing throughout the
housing market area regardless of race,
color, national origin, sex (including
sexual orientation, gender identity, and
nonconformance with gender
stereotypes), religion, familial status, or
disability. If participating jurisdiction’s
written agreement with the project
owner permits the rental housing
project to limit tenant eligibility or to
have a tenant preference in accordance
with § 92.253(d)(3), the participating
jurisdiction must have affirmative
PO 00000
Frm 00070
Fmt 4701
Sfmt 4702
marketing procedures and requirements
that apply in the context of the limited/
preferred tenant eligibility for the
project.
*
*
*
*
*
■ 34. In § 92.508, paragraph (a)(7)(i)(B)
is revised to read as follows:
§ 92.508
Recordkeeping.
(a) * * *
(7) * * *
(i) * * *
(B) Documentation of the actions the
participating jurisdiction has taken to
affirmatively further fair housing,
including documentation related to the
participating jurisdiction’s Equity Plan
as described at § 5.168 of this title.
*
*
*
*
*
PART 93—HOUSING TRUST FUND
35. The authority citation for part 93
continues to read as follows:
■
Authority: 42 U.S.C. 3535(d), 12 U.S.C.
4568.
36. In § 93.2, introductory text is
added to read as follows:
■
§ 93.2
Definitions.
The terms affirmatively furthering fair
housing and Equity Plan are defined in
24 CFR part 5.
*
*
*
*
*
■ 37. Section 93.4 is added to read as
follows:
§ 93.4
Affirmatively furthering fair housing.
All recipients of HTF funds must
comply with the requirements to
affirmatively further fair housing,
including those at §§ 5.150 through
5.180 of this title.
■ 38. In § 93.100, paragraph (b) is
revised to read as follows:
§ 93.100 Participation and submission
requirements.
*
*
*
*
*
(b) Submission requirement. To
receive its HTF grant, the grantee must
submit a consolidated plan in
accordance with 24 CFR part 91 and an
Equity Plan pursuant to §§ 5.150
through 5.180 of this title.
■ 39. In § 93.200, paragraph (a)(1) is
revised to read as follows:
§ 93.200
Eligible activities: General.
(a)(1) HTF funds may be used for the
production, preservation, and
rehabilitation of affordable rental
housing and affordable housing for firsttime homebuyers through the
acquisition (including assistance to
homebuyers), new construction,
reconstruction, or rehabilitation of
nonluxury housing with suitable
amenities, including real property
E:\FR\FM\09FEP2.SGM
09FEP2
Federal Register / Vol. 88, No. 27 / Thursday, February 9, 2023 / Proposed Rules
acquisition, site improvements,
conversion, demolition, and other
expenses, including financing costs,
relocation expenses of any displaced
persons, families, businesses, or
organizations; for operating costs of
HTF-assisted rental housing; and for
reasonable administrative and planning
costs. Not more than one third of each
annual grant may be used for operating
cost assistance and operating cost
assistance reserves. Operating cost
assistance and operating cost assistance
reserves may be provided only to rental
housing acquired, rehabilitated,
reconstructed, or newly constructed
with HTF funds. Not more than 10
percent of the annual grant shall be used
for housing for homeownership. HTFassisted housing must be permanent
housing. The specific eligible costs for
these activities are found in §§ 93.201
and 93.202. The activities and costs are
eligible only if the housing meets the
property standards in § 93.301, as
applicable, upon project completion.
HTF Funds may be used for any activity
otherwise eligible under this part that
implements goals from an Equity Plan
pursuant to §§ 5.150 through 5.180 of
this part.
*
*
*
*
*
■ 40. In § 93.202, paragraph (e) is
revised to read as follows:
§ 93.202 Eligible administrative and
planning costs.
*
*
*
*
*
(e) Fair housing, civil rights, and
equal opportunity. Activities to
affirmatively further fair housing in
accordance with the grantee’s
certification under § 5.166 and part 91
of this title.
*
*
*
*
*
■ 41. In § 93.350, the section heading
and paragraphs (a) and (b)(1) are revised
to read as follows:
khammond on DSKJM1Z7X2PROD with PROPOSALS2
§ 93.350 Other Federal requirements and
nondiscrimination; affirmative marketing.
(a) General. The Federal requirements
set forth in 24 CFR part 5, subpart A, are
applicable to participants in the HTF
program. The requirements of this
subpart include: nondiscrimination and
equal opportunity, affirmatively
furthering fair housing; disclosure
requirements; debarred, suspended, or
ineligible contractors; drug-free work;
and housing counseling.
(b) * * *
(1) Each grantee must adopt and
follow affirmative marketing procedures
and requirements for rental projects
containing five or more HTF-assisted
housing units and for homeownership
assistance programs. Affirmative
marketing steps consist of actions to
VerDate Sep<11>2014
16:40 Feb 08, 2023
Jkt 259001
provide effective information and
otherwise attract and provide access to
the available housing throughout the
housing market area regardless of race,
color, national origin, sex (including
sexual orientation, gender identity, and
nonconformance with gender
stereotypes), religion, familial status, or
disability. If a grantee’s written
agreement with the project owner
permits the rental housing project to
limit tenant eligibility or to have a
tenant preference in accordance with
§ 93.303(d)(3), the grantee must have
affirmative marketing procedures and
requirements that apply in the context
of the limited/preferred tenant
eligibility for the project.
*
*
*
*
*
■ 42. In § 93.407, paragraph (a)(1)(vii) is
added to read as follows:
§ 93.407
Recordkeeping.
(a) * * *
(1) * * *
(vii) Records documenting the actions
the grantee has taken to affirmatively
further fair housing, including
documentation relating to the grantee’s
Equity plan described at § 5.168 of this
title.
*
*
*
*
*
PART 570—COMMUNITY
DEVELOPMENT BLOCK GRANTS
43. The authority citation for part 570
continues to read as follows:
■
Authority: 12 U.S.C. 1701x, 1701x–1; 42
U.S.C. 3535(d) and 5301–5320.
44. In § 570.3, the introductory text is
revised to read as follows:
■
§ 570.3
Definitions.
The terms affirmatively furthering fair
housing, Equity Plan, HUD, and
Secretary are defined in 24 CFR part 5.
All of the following definitions in this
section that rely on data from the United
States Bureau of the Census shall rely
upon the data available from the latest
decennial census or the American
Community Survey.
*
*
*
*
*
■ 45. Section 570.6 is added to read as
follows:
§ 570.6 Affirmatively furthering fair
housing.
All programs covered by this part
must comply with the requirements to
affirmatively further fair housing,
including those at §§ 5.150 through
5.180 of this title.
■ 46. In § 570.205:
■ a. Remove the word ‘‘and’’ at the end
of paragraph (a)(4)(vi);
PO 00000
Frm 00071
Fmt 4701
Sfmt 4702
8585
b. Remove the period at the end of
paragraph (a)(4)(vii) and add ‘‘; and’’ in
its place;
■ c. Add paragraph (a)(4)(viii);
■ d. Revise paragraph (a)(6); and
■ e. Add reserved paragraph (b).
The additions and revision read as
follows:
■
§ 570.205 Eligible planning, urban
environmental design and policy-planningmanagement-capacity building activities.
(a) * * *
(4) * * *
(viii) The Equity Plan.
*
*
*
*
*
(6) Policy—planning—management—
capacity building activities which will
enable the recipient to:
(i) Determine its needs;
(ii) Set long-term goals and short-term
objectives, including those related to
urban environmental design and
implementation of fair housing goals
from the Equity Plan;
(iii) Devise programs and activities to
meet these goals and objectives,
including implementation of fair
housing goals from the Equity plan;
(iv) Evaluate the progress of such
programs and activities in
accomplishing these goals and
objectives; and
(v) Carry out management,
coordination and monitoring of
activities necessary for effective
planning implementation, including
with respect to any fair housing goals
from the Equity Plan, but excluding the
costs necessary to implement such
plans.
(b) [Reserved]
■ 47. In § 570.206, paragraph (c) is
revised to read:
§ 570.206
Program administrative costs.
*
*
*
*
*
(c) Fair housing activities. Provision
of fair housing services designed to
affirmatively further the purposes of the
Fair Housing Act (42 U.S.C. 3601–20) by
making all persons, without regard to
race, color, religion, sex (including
gender identity, sexual orientation, and
nonconformance with gender
stereotypes), national origin, familial
status, or disability, aware of the range
of housing opportunities available to
them; other fair housing enforcement,
education, and outreach activities; and
other activities designed to further fair
housing.
*
*
*
*
*
■ 48. In § 570.441, paragraphs (b)(1)(ii)
and (d) are revised to read as follows:
§ 570.441
areas.
*
E:\FR\FM\09FEP2.SGM
*
Citizen participation—insular
*
09FEP2
*
*
8586
Federal Register / Vol. 88, No. 27 / Thursday, February 9, 2023 / Proposed Rules
(b) * * *
(1) * * *
(ii) The range of activities that may be
undertaken with those funds which may
include Equity Plan fair housing goals
incorporated pursuant to § 5.156 of this
title;
*
*
*
*
*
(d) Preparation of the final statement.
An insular area jurisdiction must
prepare a final statement. In the
preparation of the final statement, the
jurisdiction shall consider comments
and views received relating to the
proposed document and may, if
appropriate, modify the final document.
To the extent comments or views were
received that relate to the incorporation
of the Equity Plan pursuant to § 5.156 of
this title, the jurisdiction shall
specifically note how the document was
modified in response, and if not, the
reasons why. The final statement shall
be made available to the public. The
final statement shall include the
community development objectives,
projected use of funds, and the
community development activities.
*
*
*
*
*
■ 49. In § 570.487, paragraph (b) is
revised to read as follows:
§ 570.487 Other applicable laws and
related program requirements.
khammond on DSKJM1Z7X2PROD with PROPOSALS2
*
*
*
*
*
(b) Affirmatively furthering fair
housing. The requirements set forth at
24 CFR part 5, subpart A, are applicable
to CDBG grantees. Each jurisdiction is
required to submit a certification that
they will affirmatively further fair
housing which means engaging in fair
housing planning and taking meaningful
actions, in accordance with the
requirements of §§ 5.150 through and
5.180 of this title, and that it will take
no action that is materially inconsistent
with the duty to affirmatively fair
housing throughout the period for
which Federal financial assistance is
extended. Each unit of general local
government is required to certify that it
will affirmatively further fair housing,
in accordance with the requirements of
§§ 5.150 through and 5.180 of this title,
and that it will take no action that is
materially inconsistent with the duty to
affirmatively further fair housing
throughout the period for which Federal
financial assistance is extended.
*
*
*
*
*
■ 50. In § 570.490, paragraphs (a)(1) and
(b) are revised to read as follows:
§ 570.490
Recordkeeping requirements.
(a) * * *
(1) The State shall establish and
maintain such records as may be
necessary to facilitate review and audit
VerDate Sep<11>2014
16:40 Feb 08, 2023
Jkt 259001
by HUD of the State’s administration of
CDBG funds under § 570.493. The
content of records maintained by the
State shall be as jointly agreed upon by
HUD and the States and sufficient to
enable HUD to make the determinations
described at § 570.493. For fair housing
and equal opportunity purposes,
whereas such data is already being
collected and where applicable, such
records shall include data on the racial,
ethnic, and gender characteristics of
persons who are applicants for,
participants in, or beneficiaries of the
program. Such records shall include
documentation relating to the State’s
Equity Plan as described at § 5.168 of
this title. The records shall also permit
audit of the States in accordance with 2
CFR part 200.
*
*
*
*
*
(b) Unit of general local government’s
record. The State shall establish
recordkeeping requirements for units of
general local government receiving
CDBG funds that are sufficient to
facilitate reviews and audits of such
units of general local government under
§§ 570.492 and 570.493. For fair housing
and equal opportunity purposes,
whereas such data is already being
collected and where applicable, such
records shall include data on the racial,
ethnic, and gender characteristics of
persons who are applicants for,
participants in, or beneficiaries of the
program. Such records shall include
documentation related to the State’s
Equity Plan as described at § 5.168 of
this title.
*
*
*
*
*
■ 51. In § 570.506, paragraph (g)(1) is
revised to read as follows:
§ 570.506
Records to be maintained.
*
*
*
*
*
(g) * * *
(1) Documentation of the actions the
recipient has taken to affirmatively
further fair housing, including
documentation related to the recipient’s
Equity Plan described at § 5.168 of this
title.
*
*
*
*
*
■ 52. In § 570.601, the section heading
and paragraph (a)(2) is revised to read
as follows:
§ 570.601 Civil rights; affirmatively
furthering fair housing; equal opportunity
requirements.
(a) * * *
(2) Public Law 90–284, which is the
Fair Housing Act (42 U.S.C. 3601–3620).
In accordance with the Fair Housing
Act, the Secretary requires that grantees
administer all programs and activities
related to housing and community
development in a manner to
PO 00000
Frm 00072
Fmt 4701
Sfmt 4702
affirmatively further the policies of the
Fair Housing Act. The affirmatively
furthering fair housing requirements set
forth in 24 CFR part 5, subpart A, are
applicable to CDBG grantees.
Furthermore, in accordance with section
104(b)(2) of the Act, for each community
receiving a grant under subpart D of this
part, the certification, that the grantee
will affirmatively further fair housing,
shall specifically require the grantee to
take meaningful actions to further the
fair housing goals established in the
Equity Plan developed pursuant to
§§ 5.150 through 5.180 of this title, and
that it will take no action that is
materially inconsistent with the duty to
affirmatively further fair housing.
*
*
*
*
*
■ 53. In § 570.904, paragraph (c)(2) is
revised to read as follows:
§ 570.904 Equal opportunity and fair
housing review criteria.
*
*
*
*
*
(c) * * *
(2) Affirmatively furthering fair
housing. HUD will review a recipient’s
performance to determine if it has
administered all programs and activities
related to housing and urban
development in accordance with
§ 570.601(a)(2) for purposes of
administration of CDBG funds, which
sets forth the grantee’s responsibility to
affirmatively further fair housing. The
review undertaken pursuant to this
section is distinct from the procedures
set forth at 24 CFR part 1, 3, 5, 6, 8, or
146 or 28 CFR part 35 conducted by the
Responsible Civil Rights Official (as
defined in 24 CFR part 5), which are
reviews for purposes of determining a
grantee’s compliance with Federal fair
housing and civil rights requirements,
including the grantee’s obligation to
affirmatively further fair housing.
*
*
*
*
*
PART 574—HOUSING
OPPORTUNITIES FOR PERSONS WITH
AIDS
54. The authority citation for part 574
continues to read as follows:
■
Authority: 12 U.S.C. 1701x, 1701 x-1; 42
U.S.C. 3535(d) and 5301–5320.
55. In § 574.3, the introductory text is
revised to read as follows:
■
§ 574.3
Definitions.
The terms affirmatively furthering fair
housing, grantee, and Secretary are
defined in 24 CFR part 5.
*
*
*
*
*
■ 56. Section 574.4 is added to read as
follows:
E:\FR\FM\09FEP2.SGM
09FEP2
Federal Register / Vol. 88, No. 27 / Thursday, February 9, 2023 / Proposed Rules
§ 574.4 Affirmatively furthering fair
housing.
All grantees must comply with the
requirements to affirmatively further fair
housing, including those at §§ 5.150
through 5.180 of this title.
■ 57. In § 574.530, paragraph (b) is
revised to read as follows:
§ 574.530
Recordkeeping.
*
*
*
*
*
(b) Documentation of the actions the
grantee has taken to affirmatively
further fair housing pursuant to §§ 5.150
through 5.180 of this title.
*
*
*
*
*
PART 576—EMERGENCY SOLUTIONS
GRANTS PROGRAM
58. The authority citation for part 576
continues to read as follows:
■
Authority: 12 U.S.C. 1701x, 1701 x-1; 42
U.S.C. 11371 et seq., 42 U.S.C. 3535(d).
59. In § 576.2, introductory text is
added to read as follows:
■
§ 576.2
Definitions.
The term affirmatively furthering fair
housing is defined in 24 CFR part 5.
*
*
*
*
*
■ 60. Section 576.4 is added to read as
follows:
§ 903.4 What are the public housing
agency plans?
(a) * * *
(3) The plans described in this section
include the incorporation, pursuant to
§ 5.156 of this title, of the fair housing
goals established in the PHA’s Equity
Plan.
*
*
*
*
*
■ 65. In § 903.6, paragraph (a)(4) is
added and paragraph (b)(2) is revised to
read as follows:
§ 903.6 What information must a PHA
provide in the 5-Year Plan?
*
*
*
*
(s) * * *
(1) * * *
(ii) Documentation of the actions that
the recipient has taken to affirmatively
further fair housing pursuant to §§ 5.150
through 5.180 of this title.
*
*
*
*
*
(a) * * *
(4) The PHA’s fair housing strategies
and meaningful actions it intends to
undertake in order to implement the fair
housing goals incorporated from the
PHA’s Equity Plan pursuant to § 5.156
of this title.
(b) * * *
(2) The progress the PHA has made in
meeting the goals and objectives
described in the PHA’s previous 5-Year
Plan. For purposes of the requirement in
this paragraph (b)(2) as it relates to the
PHA’s fair housing goals, the PHA may
rely on the progress evaluations
required for purposes of the Equity Plan,
conducted pursuant to §§ 5.152, 5.154(i)
and (j), 5.156(d), and 5.160(f) and (i) of
this title.
■ 66. In § 903.7, the introductory text
and paragraphs (a)(1)(iii), (b)
introductory text, and (o) are revised to
read as follows:
PART 903—PUBLIC HOUSING
AGENCY PLANS
§ 903.7 What information must a PHA
provide in the Annual Plan?
§ 576.4 Affirmatively furthering fair
housing.
All recipients of ESG funds must
comply with the requirements to
affirmatively further fair housing,
including those at §§ 5.150 through
5.180 of this title.
■ 61. In § 576.500, paragraph (s)(1)(ii) is
revised to read as follows:
§ 576.500 Recordkeeping and reporting
requirements.
*
62. The authority citation for part 903
continues to read as follows:
■
khammond on DSKJM1Z7X2PROD with PROPOSALS2
housing agency (PHA), as part of its
annual planning process and
development of an admissions policy,
must follow in order to develop and
apply a policy that provides for
deconcentration of poverty and income
mixing in certain public housing
developments. This subpart also
includes requirements for the PHA’s
obligation to affirmatively further fair
housing and comply with the
requirements set forth at §§ 5.150
through 5.180 of this title.
■ 64. In § 903.4, paragraph (a)(3) is
added to read as follows:
Authority: 42 U.S.C. 1437c; 42 U.S.C.
1437c-1; Pub. L. 110–289; 42 U.S.C. 3535d.
63. Section 903.1 is revised to read as
follows:
■
§ 903.1 What is the purpose of this
subpart?
The purpose of this subpart is to
specify the process which a public
VerDate Sep<11>2014
16:40 Feb 08, 2023
Jkt 259001
With the exception of the first Annual
Plan submitted by a PHA, the Annual
Plan must include the information
provided in this section. HUD will
advise PHAs by separate notice,
sufficiently in advance of the first
Annual Plan due date, of the
information described in this section
that must be part of the first Annual
Plan submission, and any additional
instructions or directions that may be
necessary to prepare and submit the first
PO 00000
Frm 00073
Fmt 4701
Sfmt 4702
8587
Annual Plan. The information described
in this section applies to both public
housing and tenant-based assistance,
except where specifically stated
otherwise. The information that the
PHA must submit for HUD approval
under the Annual Plan includes the
discretionary policies of the various
plan components or elements (for
example, rent policies) and not the
statutory or regulatory requirements that
govern these plan components and that
provide no discretion on the part of the
PHA in implementation of the
requirements. The PHA’s Annual Plan
must be consistent with the goals and
objectives of the PHA’s 5-Year Plan and
the PHA’s Equity Plan once an Equity
Plan is required by §§ 5.150 through
5.180 of this title.
(a) * * *
(1) * * *
(iii) Households with individuals
with disabilities and households of
various races and ethnic groups residing
in the jurisdiction or on the waiting list.
Once the PHA has submitted its Equity
Plan pursuant to the submission
schedule at § 5.160 of this title, the PHA
may rely on its analysis of affordable
housing opportunities and the analysis
conducted pursuant to § 5.154(e) of this
title in connection with its Equity Plan,
to the extent applicable and still up-todate and relevant, for purposes of the
PHA’s Annual Plan.
*
*
*
*
*
(b) A statement of the PHA’s
deconcentration and other policies that
govern eligibility, selection, and
admissions. This statement must
describe the PHA’s policies that govern
resident or tenant eligibility, selection,
and admission and shall be consistent
with the PHA’s obligation to
affirmatively further fair housing and
the PHA’s Equity Plan developed
pursuant to §§ 5.150 through 5.180 of
this title. This statement also must
describe any PHA admission
preferences, and any occupancy policies
that pertain to public housing units and
housing units assisted under section
8(o) of the 1937 Act, as well as any unit
assignment policies for public housing.
This statement must include the
following information:
*
*
*
*
*
(o) Civil rights certification. (1) The
PHA must certify that it will carry out
its plan in conformity with title VI of
the Civil Rights Act of 1964 (42 U.S.C.
20000d–2000d–4), the Fair Housing Act
(42 U.S.C. 3601–19), section 504 of the
Rehabilitation Act of 1973 (29 U.S.C.
794), and title II of the Americans with
Disabilities Act of 1990 (42 U.S.C.
12101, et seq.), and other applicable
E:\FR\FM\09FEP2.SGM
09FEP2
khammond on DSKJM1Z7X2PROD with PROPOSALS2
8588
Federal Register / Vol. 88, No. 27 / Thursday, February 9, 2023 / Proposed Rules
Federal civil rights laws. The PHA must
also certify that it will affirmatively
further fair housing, and that it will take
no action that is materially inconsistent
with the duty to affirmatively further
fair housing throughout the period for
which Federal financial assistance is
extended pursuant to § 5.166 of this
title.
(2) The certification is applicable to
the 5-Year Plan and the Annual Plan,
and any plan incorporated therein.
(3) The PHA shall demonstrate
compliance with the certification
requirement to affirmatively further fair
housing by fulfilling the requirements of
this paragraph (o) and § 903.15 by
engaging in the following:
(i) Examines its programs and
activities or proposed programs and
activities consistent with the
requirements of §§ 5.150 through 5.180
of this title;
(ii) Identifies fair housing issues in its
programs and activities or proposed
programs and activities, in accordance
with § 5.154 of this title;
(iii) Specifies fair housing strategies
and meaningful actions to address fair
housing issues and implement fair
housing goals established in the PHA’s
Equity Plan, consistent with § 5.154 of
this title;
(iv) Works with the jurisdiction to
implement any of the jurisdiction’s
initiatives to affirmatively further fair
housing that require the PHA’s
involvement;
(v) Operates its programs and
activities in a manner consistent with
the PHA’s obligation to affirmatively
further fair housing and consistent with
any applicable consolidated plan under
24 CFR part 91, and consistent with any
order or agreement to comply with the
authorities specified in paragraph (o)(1)
of this section;
(vi) Complies with the community
engagement requirements set forth at
§ 5.158 of this title for purposes of
developing the PHA’s Equity Plan and
the incorporation of the Equity Plan’s
fair housing goals pursuant to § 5.156 of
this title;
(vii) Maintains records, in accordance
with § 5.168 of this title, reflecting the
PHA’s efforts to affirmatively further fair
housing; and
(viii) Takes appropriate actions, to the
satisfaction of the Responsible Civil
Rights Official, to remedy known fair
housing or civil rights violations.
*
*
*
*
*
■ 67. In § 903.13, paragraphs (a)(1) and
(2) and (c) are revised to read as follows:
VerDate Sep<11>2014
16:40 Feb 08, 2023
Jkt 259001
§ 903.13 What is a Resident Advisory
Board and what is its role in development
of the Annual Plan?
(a) * * *
(1) The role of the Resident Advisory
Board (or Resident Advisory Boards) is
to assist and make recommendations
regarding the development of the Equity
Plan in accordance with § 5.158 of this
title, the PHA plan, and any significant
amendment or modification to the PHA
plan, including based on any revision to
an Equity Plan pursuant to § 5.164 of
this title.
(2) The PHA shall allocate reasonable
resources to ensure the effective
functioning of Resident Advisory
Boards. Reasonable resources for the
Resident Advisory Boards must provide
reasonable means for them to become
informed on programs covered by the
Equity Plan pursuant to §§ 5.150
through 5.180 of this title, the PHA
Plan, to communicate in writing and by
telephone with assisted families and
hold meetings with those families, and
to access information regarding covered
programs on the internet, taking into
account the size and resources of the
PHA.
*
*
*
*
*
(c) The PHA must consider the
recommendations of the Resident
Advisory Board or Boards in preparing
the final Equity Plan pursuant to
§§ 5.150 through 5.180 of this title, the
final Annual Plan, and any significant
amendment or modification to the
Annual Plan, including based on any
revision to an Equity Plan pursuant to
§ 5.164 of this title, and as provided in
§ 903.21.
(1) In submitting the final plan to
HUD for approval, or any significant
amendment or modification to the plan
to HUD for approval, the PHA must
include a copy of the recommendations
made by the Resident Advisory Board or
Boards and a description of the manner
in which the PHA addressed these
recommendations. For purposes of any
fair housing goals incorporated into the
final plan submitted to HUD for
approval, the PHA shall comply with
the requirements set forth at §§ 5.154(h)
and 5.158 of this title.
(2) Notwithstanding the 75-day
limitation on HUD review, in response
to a written request from a Resident
Advisory Board claiming that the PHA
failed to provide adequate notice and
opportunity for comment, HUD may
make a finding of good cause during the
required time period and require the
PHA to remedy the failure before final
approval of the plan. The Resident
Advisory Board’s claims pursuant to
this paragraph (c)(2) are distinct from
PO 00000
Frm 00074
Fmt 4701
Sfmt 4702
any complaint filed with HUD pursuant
to § 5.170 of this title.
■ 68. In § 903.15, the section heading,
introductory text of paragraph (a), and
paragraphs (b) and (c) are revised to
read as follows:
§ 903.15 What is the relationship of the
public housing agency plans to the
Consolidated Plan and a PHA’s fair housing
and civil rights requirements?
(a) Consistency with consolidated
plan. The PHA must ensure that the
Annual Plan is consistent with any
applicable Consolidated Plan for the
jurisdiction in which the PHA is
located, including any applicable Equity
Plan incorporated into the applicable
Consolidated Plan pursuant to § 5.156 of
this title.
*
*
*
*
*
(b) PHA fiscal year. A PHA may
request to change its fiscal year to better
coordinate its planning with the
planning done under the Equity Plan
pursuant to § 5.160(a) of this title, the
Consolidated Plan process, or by the
State or local officials, as applicable.
(c) Fair housing and civil rights
requirements. A PHA is obligated to
affirmatively further fair housing in its
operating policies, procedures, and
capital activities. All admission and
occupancy policies for public housing
and Section 8 tenant-based housing
programs must comply with Fair
Housing Act requirements and other
civil rights laws and regulations and
with a PHA’s plans to affirmatively
further fair housing, including the
PHA’s Equity Plan developed pursuant
to §§ 5.150 through 5.180 of this title.
The PHA may not impose any specific
income or racial quotas for any
development or developments.
(1) Nondiscrimination. The PHA must
carry out its Equity Plan and PHA Plan
in conformity with the
nondiscrimination requirements in
Federal civil rights laws, including title
VI of the Civil Rights Act of 1964,
section 504 of the Rehabilitation Act of
1973, the Americans with Disabilities
Act, and the Fair Housing Act,
including the PHA’s obligation to
affirmatively further fair housing. A
PHA may not assign housing to persons
in a particular section of a community
or to a development or building based
on race, color, religion, sex, disability,
familial status, or national origin for
purposes of segregating populations.
(2) Affirmatively furthering fair
housing. A PHA’s policies should be
designed to reduce the concentration of
tenants and other assisted persons by
race, color, national origin, religion, sex,
familial status, and disability. Any
affirmative steps or incentives a PHA
E:\FR\FM\09FEP2.SGM
09FEP2
khammond on DSKJM1Z7X2PROD with PROPOSALS2
Federal Register / Vol. 88, No. 27 / Thursday, February 9, 2023 / Proposed Rules
plans to take must be stated in the
admission policy.
(i) All PHAs must comply with the
requirements to affirmatively further fair
housing, including those at §§ 5.150
through 5.180 of this title, including
where those regulations impose
different or greater requirements than
this part.
(ii) HUD regulations provide that
PHAs must take steps to affirmatively
further fair housing. PHAs shall develop
an Equity Plan pursuant to §§ 5.150
through 5.180 of this title. PHA policies,
consistent with the analysis and fair
housing goals established in the Equity
Plan, shall include affirmative steps to
overcome the effects of discrimination
and the effects of conditions that
resulted in limiting participation of
persons because of their race, color,
national origin, religion, sex, familial
status, or disability.
(iii) Such affirmative steps may
include, but are not limited to,
marketing efforts, use of
nondiscriminatory tenant selection and
assignment policies that lead to
desegregation, additional applicant
consultation and information, including
mobility counseling, services, and
assistance in identifying affordable
housing opportunities in well-resourced
areas, provision of additional supportive
services and amenities to a development
(such as supportive services that enable
an individual with a disability to
transfer from an institutional setting
into the community), and engagement in
ongoing coordination with State and
local disability agencies to provide
additional community-based housing
opportunities for individuals with
disabilities and to connect such
individuals with supportive services to
enable an individual with a disability to
transfer from an institutional setting
into the community.
(3) Validity of certification. (i) A
PHA’s certification under § 903.7(o) will
be subject to challenge by HUD where
it appears that a PHA:
(A) Fails to meet the requirements set
forth at §§ 5.150 through 5.180 of this
title;
(B) Takes action that is materially
inconsistent with the duty to
affirmatively further fair housing; or
(C) Fails to comply with the fair
housing, civil rights, and affirmatively
furthering fair housing requirements in
§ 903.7(o).
(ii) If HUD challenges the validity of
a PHA’s certification, HUD will do so in
writing specifying the deficiencies, and
will give the PHA an opportunity to
respond to the particular challenge in
writing. In responding to the specified
deficiencies, a PHA must establish, as
VerDate Sep<11>2014
16:40 Feb 08, 2023
Jkt 259001
applicable, that it has complied with
fair housing and civil rights laws and
regulations, or has remedied violations
of fair housing and civil rights laws and
regulations, and has adopted policies
and undertaken actions to affirmatively
further fair housing, including, but not
limited to, providing a full range of
housing opportunities to applicants and
tenants in a nondiscriminatory manner.
In responding to the PHA, HUD may
accept the PHA’s explanation and
withdraw the challenge, undertake
further investigation, or pursue other
remedies available under law. HUD will
seek to obtain voluntary corrective
action consistent with the specified
deficiencies. In determining whether a
PHA has complied with its certification,
HUD will review the PHA’s
circumstances relevant to the specified
deficiencies, including characteristics of
the population served by the PHA;
characteristics of the PHA’s existing
housing stock; and decisions, plans,
goals, priorities, strategies, and actions
of the PHA. For purposes of the PHA’s
fair housing and civil rights certification
pursuant to §§ 903.7(o) and 5.166 of this
title, the procedures set forth at
§ 5.166(b) shall apply.
■ 69. In § 903.17, paragraph (a), the
introductory text of paragraph (b), and
paragraph (c) are revised to read as
follows:
§ 903.17 What is the process for obtaining
public comment on the plans?
(a) The PHA’s board of directors or
similar governing body must conduct a
public hearing to discuss the PHA plan
(either the 5-Year Plan and/or Annual
Plan, as applicable) and invite public
comment on the plan(s). The hearing
must be conducted at a location that is
convenient to the residents served by
the PHA. For purposes of the
incorporation of the Equity Plan
required by § 5.156 of this title, the
community engagement requirements of
§ 5.158 of this title shall apply.
(b) For purposes of the PHA’s 5-Year
Plan and Annual Plan, and
notwithstanding the requirements set
forth at § 5.158 of this title for purposes
of the Equity Plan’s incorporation into
such plans pursuant to § 5.156 of this
title, not later than 45 days before the
public hearing is to take place, the PHA
must:
*
*
*
*
*
(c) PHAs shall conduct reasonable
outreach activities to encourage broad
public participation in the PHA plans.
This outreach is for purposes of the 5Year Plan and Annual Plan. The
requirements of § 5.158 of this title shall
apply for purposes of the Equity Plan.
■ 70. In § 903.19:
PO 00000
Frm 00075
Fmt 4701
Sfmt 4702
8589
a. Paragraph (c) is amended by
removing the period at the end of the
paragraph and adding ‘‘; and’’ in its
place; and
■ b. Paragraph (d) is added.
The addition reads as follows:
■
§ 903.19 When is the 5-Year Plan or
Annual Plan ready for submission to HUD?
*
*
*
*
*
(d) The PHA has incorporated the fair
housing goals from its Equity Plan
pursuant to § 5.156 of this title.
■ 71. In § 903.23, paragraph (f) is
revised to read as follows:
§ 903.23 What is the process by which
HUD reviews, approves, or disapproves an
Annual Plan?
*
*
*
*
*
(f) Recordkeeping. PHAs must
maintain records reflecting actions the
PHA has taken to affirmatively further
fair housing, including documentation
related to the PHA’s Equity Plan
described at § 5.168 of this title, and
documentation relating to the PHA’s
certifications made pursuant to §§ 5.166
of this title and 903.7(o).
■ 72. Section 903.25 is revised to read
as follows:
§ 903.25 How does HUD ensure PHA
compliance with its PHA plan?
A PHA must comply with the rules,
standards, and policies established in
the plans. To ensure that a PHA is in
compliance with all policies, rules, and
standards adopted in the plan approved
by HUD, HUD shall, as it deems
appropriate, respond to any complaint
concerning PHA noncompliance with
its plan. If HUD should determine that
a PHA is not in compliance with its
plan, HUD will take whatever action it
deems necessary and appropriate. For
purposes of the PHA’s Equity Plan, the
procedures set forth at §§ 5.162, 5.170,
5.172, and 5.174 of this title shall apply.
PART 983—PROJECT-BASED
VOUCHER (PBV) PROGRAM
73. The authority citation for part 983
continues to read as follows:
■
Authority: 42 U.S.C. 1437f and 3535(d).
74. In § 983.57:
a. Revise the introductory text of
paragraph (b)(1);
■ b. Remove paragraph (b)(1)(iii); and
■ c. Redesignate paragraphs (b)(1)(iv)
through (vii) as paragraphs (b)(1)(iii)
through (vi), respectively.
The revision reads as follows:
■
■
§ 983.57
Site selection standards.
*
*
*
*
*
(b) * * *
(1) Project-based assistance for
housing at the selected site is consistent
E:\FR\FM\09FEP2.SGM
09FEP2
8590
Federal Register / Vol. 88, No. 27 / Thursday, February 9, 2023 / Proposed Rules
with the goal of deconcentrating poverty
and expanding housing and economic
opportunities. The standard for
deconcentrating poverty and expanding
housing and economic opportunities
must be consistent with the PHA Plan
under 24 CFR part 903, the PHA
Administrative Plan, and the PHA’s
Equity Plan developed pursuant to
§§ 5.150 through 5.180 of this title. In
developing the standards to apply in
determining whether a proposed PBV
development will be selected, a PHA
must consider the following:
*
*
*
*
*
Marcia L. Fudge,
Secretary.
[FR Doc. 2023–00625 Filed 2–8–23; 8:45 am]
khammond on DSKJM1Z7X2PROD with PROPOSALS2
BILLING CODE 4210–67–P
VerDate Sep<11>2014
16:40 Feb 08, 2023
Jkt 259001
PO 00000
Frm 00076
Fmt 4701
Sfmt 9990
E:\FR\FM\09FEP2.SGM
09FEP2
Agencies
[Federal Register Volume 88, Number 27 (Thursday, February 9, 2023)]
[Proposed Rules]
[Pages 8516-8590]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2023-00625]
[[Page 8515]]
Vol. 88
Thursday,
No. 27
February 9, 2023
Part II
Department of Housing and Urban Development
-----------------------------------------------------------------------
24 CFR Parts 5, 91, 92, et al.
Affirmatively Furthering Fair Housing; Proposed Rule
Federal Register / Vol. 88 , No. 27 / Thursday, February 9, 2023 /
Proposed Rules
[[Page 8516]]
-----------------------------------------------------------------------
DEPARTMENT OF HOUSING AND URBAN DEVELOPMENT
24 CFR Parts 5, 91, 92, 93, 570, 574, 576, 903 and 983
[Docket No. FR-6250-P-01]
RIN 2529-AB05
Affirmatively Furthering Fair Housing
AGENCY: Office of the Secretary, Department of Housing and Urban
Development (HUD).
ACTION: Proposed rule.
-----------------------------------------------------------------------
SUMMARY: Through this rulemaking, HUD proposes to implement the
obligation to affirmatively further the purposes and policies of the
Fair Housing Act, which is title VIII of the Civil Rights Act of 1968,
with respect to certain recipients of HUD funds. The Fair Housing Act
not only prohibits discrimination, but also directs HUD to ensure that
the agency and its program participants will proactively take
meaningful actions to overcome patterns of segregation, promote fair
housing choice, eliminate disparities in housing-related opportunities,
and foster inclusive communities that are free from discrimination.
This proposed rule builds on the steps previously taken in HUD's 2015
Affirmatively Furthering Fair Housing (AFFH) final rule to implement
the AFFH obligation and ensure that Federal funding is used in a
systematic way to further the policies and goals of the Fair Housing
Act. This rule proposes to retain much of the 2015 AFFH Rule's core
planning process, with certain improvements such as a more robust
community engagement requirement, a streamlined required analysis,
greater transparency, and an increased emphasis on goal setting and
measuring progress. It also includes mechanisms to hold program
participants accountable for achieving positive fair housing outcomes
and complying with their obligation to affirmatively further fair
housing, modeled after those processes under other Federal civil rights
statutes that apply to recipients of Federal financial assistance.
DATES: Comment due date: April 10, 2023.
ADDRESSES: Interested persons are invited to submit comments regarding
this proposed rule to the Regulations Division, Office of General
Counsel, Department of Housing and Urban Development, 451 7th Street
SW, Room 10276, Washington, DC 20410-0500. Communications must refer to
the above docket number and title. There are two methods for submitting
public comments. All submissions must refer to the above docket number
and title.
1. Submission of Comments by Mail. Comments may be submitted by
mail to the Regulations Division, Office of General Counsel, Department
of Housing and Urban Development, 451 7th Street SW, Room 10276,
Washington, DC 20410-0500.
2. Electronic Submission of Comments. Interested persons may submit
comments electronically through the Federal eRulemaking Portal at
www.regulations.gov. HUD strongly encourages commenters to submit
comments electronically. Electronic submission of comments allows the
commenter maximum time to prepare and submit a comment, ensures timely
receipt by HUD, and enables HUD to make them immediately available to
the public. Comments submitted electronically through the
www.regulations.gov website can be viewed by other commenters and
interested members of the public. Commenters should follow the
instructions provided on that site to submit comments electronically.
Note: To receive consideration as public comments, comments must
be submitted through one of the two methods specified above. Again,
all submissions must refer to the docket number and title of the
rule.
No Facsimile Comments: Facsimile (FAX) comments are not acceptable.
Public Inspection of Comments. All properly submitted comments and
communications submitted to HUD will be available for public inspection
and copying between 8 a.m. and 5 p.m. weekdays at the above address.
Due to security measures at the HUD Headquarters building, an advance
appointment to review the public comments must be scheduled by calling
the Regulations Division at 202-402-3055 (this is not a toll-free
number). HUD welcomes and is prepared to receive calls from individuals
who are deaf or hard of hearing, as well as individuals with
communication disabilities. To learn more about how to make an
accessible telephone call, please visit https://www.fcc.gov/consumers/guides/telecommunications-relay-service-trs. Copies of all comments
submitted are available for inspection and downloading at
www.regulations.gov.
FOR FURTHER INFORMATION CONTACT: Tiffany Johnson, Director, Policy and
Legislative Initiatives Division, Office of Fair Housing and Equal
Opportunity, Department of Housing and Urban Development, 451 7th
Street SW, Room 5250, Washington, DC 20410-8000, telephone number 202-
402-2881 (this is not a toll-free number). Individuals who are deaf or
hard of hearing and individuals with speech impairments may access this
number via TTY by calling the toll-free Federal Relay Service during
working hours at 1-800-877-8339.
SUPPLEMENTARY INFORMATION:
I. Executive Summary
Purpose of the Regulatory Action
Housing plays a central role in American life. Where children live
and grow up is inextricably linked to their level of educational
attainment, their relationship with policing and the criminal justice
system, what jobs they can obtain as adults, how much wealth their
family can attain, whether they will someday purchase their own home,
whether they will face chronic health conditions or other lifelong
obstacles, and ultimately the opportunities they will be able to
provide for their own children and grandchildren. As the United States
Supreme Court noted recently, in enacting the Fair Housing Act more
than fifty years ago, Congress recognized the critical role housing
played and continues to play in creating and maintaining inequities
based on race and color. See Tex. Dep't of Housing and Cmty Affairs v.
Inclusive Cmtys Project, Inc., 576 U.S. 519, 546 (2015) (``The [Fair
Housing Act] must play an important part in avoiding the Kerner
Commission's grim prophecy that `our Nation is moving toward two
societies, one [B]lack, one [W]hite--separate and unequal.' The Court
acknowledges the Fair Housing Act's role in moving the Nation toward a
more integrated society.'') (internal citations omitted).
Notwithstanding progress in combatting some types of housing
discrimination, the systemic and pervasive residential segregation that
was historically sanctioned (and even worsened) by Federal, State, and
local law, and that the Fair Housing Act was meant to remedy has
persisted to this day. In countless communities throughout the United
States, people of different races still reside separate and apart from
each other in different neighborhoods, often due to past government
policies and decisions. Those neighborhoods have very different and
unequal access to basic infrastructure (streets, sidewalks, clean
water, and sanitation systems) and other things that every thriving
community needs, such as access to affordable and accessible housing,
public transportation, grocery and retail establishments, health care,
and educational and employment
[[Page 8517]]
opportunities--frequently because government itself has intentionally
denied resources to the neighborhoods where communities of color live.
And this segregation is perpetuated by policies that effectively
preclude mobility to neighborhoods where opportunity is greater.
Moreover, inequities in real housing choice do not exist solely on
race or color lines, but across all the classes the Fair Housing Act
protects. Individuals with disabilities too frequently are excluded not
just from buildings but from whole communities because of lack of
accessible and affordable housing. The widespread lack of quality
affordable housing shuts out families with children and members of
other protected class groups.
This proposed rule implements the Fair Housing Act's Affirmatively
Furthering Fair Housing (AFFH) mandate across the Nation to address
these inequities and others that cause unequal and segregated access to
housing and the platform it provides for a better life. The proposed
rule is intended to foster local commitment to addressing local and
regional fair housing issues, both requiring and enabling communities
to leverage and align HUD funding with other Federal, State, or local
resources to develop innovative solutions to inequities that have
plagued our society for far too long. The proposed rule is meant to
provide the tools that HUD--together with other Federal, State, and
local agencies, as well as public housing agencies--can use to overcome
centuries of separate and unequal access to housing opportunity. In
line with the Nation's current reckoning with racial and other types of
inequity, the proposed rule is designed to assist HUD and its program
participants to take advantage of a unique opportunity to fulfill the
promise made when the Fair Housing Act was enacted on April 11, 1968.
This proposed rule takes as its starting point the fair housing
planning process created by the 2015 AFFH Rule (80 FR 42272, July 16,
2015), which was a significant step forward in AFFH implementation. It
then proposes refinements, informed by lessons HUD learned from its
implementation of the 2015 AFFH Rule, by feedback provided by States
and localities across the country, and by stakeholder input. For
example, the proposed rule is designed to reduce burden on program
participants by streamlining the analysis of fair housing issues that
they must perform, allowing them to focus more directly on the setting
of effective fair housing goals and strategies to achieve them. It also
would provide greater accountability mechanisms and increase
transparency to and participation by the public.
Ultimately, this proposed rule would provide a framework under
which program participants will set and implement meaningful fair
housing goals that will determine how they will leverage HUD funds and
other resources to affirmatively further fair housing, promote equity
in their communities, decrease segregation, and increase access to
opportunity and community assets for people of color and other
underserved communities.
Summary of Legal Authority
The Fair Housing Act (title VIII of the Civil Rights Act of 1968,
42 U.S.C. 3601-3619) declares that it is ``the policy of the United
States to provide, within constitutional limitations, for fair housing
throughout the United States.'' See 42 U.S.C. 3601. Accordingly, the
Fair Housing Act prohibits, among other things, discrimination in the
sale, rental, and financing of dwellings, and in other housing-related
transactions because of ``race, color, religion, sex,\1\ familial
status,\2\ national origin, or handicap.'' \3\ See 42 U.S.C. 3604 and
3605. Section 808(d) of the Fair Housing Act requires all executive
branch departments and agencies administering housing and urban
development programs and activities to administer these programs in a
manner that affirmatively furthers fair housing. See 42 U.S.C. 3608.
Section 808(e)(5) of the Fair Housing Act (42 U.S.C. 3608(e)(5))
requires that HUD programs and activities be administered in a manner
that affirmatively furthers the policies of the Fair Housing Act.
---------------------------------------------------------------------------
\1\ Consistent with established practice, HUD interprets the
term ``sex'' to include gender identity, sexual orientation, and
nonconformance with gender stereotypes. See Memorandum from Damon Y.
Smith, Principal Deputy General Counsel to Jeanine M. Worden, Acting
Assistant Secretary for Fair Housing and Equal Opportunity,
``Application to the Fair Housing Act of the Supreme Court's
decision in Bostock v. Clayton County, GA'' (Feb. 9, 2021),
available at https://www.hud.gov/sites/dfiles/ENF/documents/Bostock%20Legal%20Memorandum%2002-09-2021.pdf.
\2\ The term ``familial status'' is defined in the Fair Housing
Act at 42 U.S.C. 3602(k). It includes one or more children who are
under the age of 18 years being domiciled with a parent or guardian,
the seeking of legal custody, or pregnancy.
\3\ Although the Fair Housing Act was amended in 1988 to extend
civil rights protections to persons with ``handicaps,'' the term
``disability'' is more commonly used and accepted today to refer to
an individual's physical or mental impairment that is protected
under Federal civil rights laws, the record of such an impairment,
and being regarded as having such an impairment. For this reason,
except where quoting from the Fair Housing Act, this preamble and
proposed rule use the term ``disability.''
---------------------------------------------------------------------------
Summary of Major Provisions of the Rule
The proposed rule retains much of the framework of the 2015 AFFH
Rule. Under the proposed rule, as under the 2015 AFFH Rule, program
participants will identify fair housing issues, prioritize the fair
housing issues they will focus on overcoming in the next three to five
years, and develop the goals they will implement to overcome those fair
housing issues. The proposed rule contains refinements based on HUD's
experience implementing the 2015 AFFH Rule and input from many
stakeholders. It is structured to simplify and provide greater
flexibility: regarding the analysis that program participants must
perform as part of their Equity Plans (which are a modified version of
the Assessments of Fair Housing performed under the 2015 AFFH Rule), to
allow more time and energy to be spent on effective goal setting; to
provide clarity, direction, and guidance for program participants to
promote fair housing choice; to provide more transparency to the public
and greater opportunity for public input; and to provide
accountability, a mechanism for regular progress evaluation, and a
greater set of enforcement options to ensure that program participants
are meeting their planning commitments and to provide them the
opportunity to revise commitments where circumstances change. The
proposed rule will advance these objectives in a manner that is
informed by the lessons HUD learned from the implementation of the 2015
AFFH Rule by:
a. Giving underserved communities a greater say in the actions
program participants will take to address fair housing issues. When HUD
implemented its 2015 AFFH Rule, program participants and community
members alike consistently reported to HUD that community engagement
(then called community participation) was an extremely effective and
important part of identifying fair housing issues and figuring out how
best to prioritize and address them. The proposed rule makes that
process more inclusive and robust, for example by requiring program
participants to consult with a broad range of community members, to
hold meetings in diverse settings, ensure that individuals with
disabilities and their advocates have equal access to those meetings,
and partner with local community-based organizations and stakeholders
to engage with protected class groups and underserved communities. The
proposed rule
[[Page 8518]]
empowers broader segments of the community by, for example, requiring
program participants to engage with a broad cross-section of the
community, which could include advocates, clergy, community
organizations, local universities, resident advisory boards, healthcare
professionals and other service providers, and fair housing groups. HUD
will also make the data HUD provides to program participants publicly
available, including maps and other information demonstrating the
existence of fair housing issues such as segregated areas, to
facilitate public engagement throughout the process. HUD specifically
seeks comment below regarding how it can best ensure that community
engagement is effective in informing the Equity Plan. The proposed rule
also requires program participants to submit, along with their Equity
Plans, more information regarding their community engagement efforts
than was required by the 2015 AFFH Rule. Additionally, as described
further below, the proposed rule allows the public to submit
information directly to HUD regarding submitted Equity Plans, providing
HUD greater ability to ensure that community engagement requirements
are satisfied. HUD also intends to supply more technical assistance for
program participants on effective ways to conduct community engagement.
b. Streamlining the Equity Plan's required fair housing analysis,
while providing easy-to-use data to support that analysis. HUD will
help program participants and their communities understand the data HUD
provides them. Aided by that data and more comprehensive community
engagement, program participants will be empowered to identify key fair
housing issues more effectively and efficiently without unnecessary
burden. Under HUD's 2015 AFFH Rule, HUD provided program participants
with considerable data and then required program participants to
conduct extensive data analysis in response to a large number of
questions. This data-driven analysis was very useful for identifying
fair housing issues such as patterns of segregation, but some program
participants, particularly smaller ones that lacked relevant expertise,
found it more difficult to complete than HUD had intended. The 2015
AFFH Rule used an Assessment Tool that contained approximately 100
questions program participants were required to answer in a prescribed
format, as well as about forty contributing factors that program
participants were required to consider for each fair housing issue they
identified. Some program participants, working on their own or with
technical assistance from HUD, conducted successful fair housing
analyses using the Assessment Tool. Other program participants,
however, struggled to properly interpret the data provided by HUD, and
several program participants retained consultants to perform the bulk
of the fair housing analysis for them. In HUD's experience reviewing
the fair housing plans submitted pursuant to the 2015 AFFH Rule, the
fair housing analyses conducted by program participants themselves or
with technical assistance from fair housing groups, universities, or
HUD were typically of much better quality than the fair housing
analyses prepared for program participants solely by consultants. Put
differently, the fair housing plans prepared by program participants
themselves typically reflected better analysis that gave greater
consideration to local fair housing issues and history rather than more
generic approaches taken by consultants that prepared analyses for
multiple program participants in different geographic areas of the
country. The proposed rule, therefore, reflects improvements on the
2015 AFFH Rule framework and is designed to reduce burden for program
participants in conducting the fair housing analysis portion of their
Equity Plan and identifying fair housing issues, leaving program
participants more time to establish meaningful fair housing goals and
making them more likely to conduct their own analyses. Under the
proposed rule, program participants will conduct their fair housing
analyses to identify fair housing issues by responding to questions in
a few broad areas (seven for consolidated plan recipients, five for
public housing agencies) that HUD is proposing to constitute the core
areas of analysis. While HUD anticipates providing program participants
with flexibility on the format of their Equity Plans, HUD will expect
program participants to answer all required questions, including those
that assess the reasons fair housing issues exist, as in the 2015 AFFH
Rule. Under this proposed rule, HUD is considering ways to reduce
burden for program participants by, for example, providing the program
participant with not only raw data and maps, but is also considering
providing technical assistance that helps highlight key takeaways and
fair housing issues. HUD will also provide technical assistance on
common fair housing issues, potential fair housing goals that could
overcome fair housing issues, and additional training on how to
identify and prioritize fair housing issues. Finally, HUD will make all
program participants' Equity Plans available on a HUD-maintained web
page, allowing program participants to review other program
participants' Equity Plans that have been accepted by HUD and learn
from the experiences of those who already have been through the
process. While HUD believes these changes will make it easier for many
program participants and their communities to effectively use HUD-
provided data, it also understands that the raw data and the AFFH Data
& Mapping Tool (AFFH-T) made available under the 2015 AFFH Rule have
proven invaluable for researchers and high-capacity program
participants, and HUD will continue to make such data available.
c. Placing greater focus on fair housing goals. A key difference
between the proposed rule and the 2015 AFFH Rule is a much greater
focus on HUD's review of program participants' goals that will
contribute to positive fair housing outcomes. While the proposed rule
sets out questions for program participants to answer, it does not
specify the content or length of responses. In some cases, the answer
to the question will be relatively clear based on the HUD-provided data
and technical assistance, and the program participant will only then
need to assess the causes and circumstances that result in fair housing
issues. In other instances, program participant may need to do more
analysis, including assessing local data, local knowledge, and
information obtained through community engagement, in order to
sufficiently respond to the question. HUD is making clear here, and
will continue to do so with technical assistance and guidance, that the
purpose of the questions is not to generate an extensive written
analysis of local conditions for its own sake, but to require program
participants to give serious consideration to the specific local
conditions (such as the existence of segregation, or the lack of
housing choice throughout a jurisdiction) that are likely to implicate
fair housing issues faced by different protected class groups.
Accordingly, HUD's review of program participants' answers to those
questions will entail confirming that the program participant did an
adequate job of identifying the fair housing issues revealed by the
HUD-provided data and by information provided during community
engagement. HUD's review of fair housing goals, meanwhile, will entail
determining whether the program participant's goals have been designed
[[Page 8519]]
and can be reasonably expected to overcome the fair housing issues that
the program participant has identified and prioritized for action in
the next three to five years. Stated plainly, HUD's review will focus
primarily on whether the Equity Plan appropriately identifies the
relevant fair housing issues and establishes fair housing goals that
can realistically be expected to address them and produce meaningful
fair housing outcomes for various protected class groups in the program
participant's underserved communities; HUD's review will not focus on
the volume of written analysis underlying the identification of the
fair housing issues.
d. Providing HUD more flexibility to work with program participants
to improve a submitted Equity Plan and ensure it meets regulatory
requirements. HUD's experience implementing the 2015 AFFH Rule
demonstrated that a robust back and forth between HUD and program
participants regarding the content of submitted plans was important to
the rule's success; in many instances, a submitted plan improved
substantially as a result of HUD engagement. However, the structure of
the 2015 AFFH Rule limited HUD's practical ability to do this work. HUD
was required to either accept or not accept a plan within 60 days of
submission. If an Assessment of Fair Housing (AFH) was not accepted by
HUD after the initial submission, HUD provided the program participant
an opportunity to revise and resubmit the plan for HUD review; however,
HUD then had a limited amount of time to review the revised plan, work
with the program participant to address remaining issues, and then
accept that plan before a decision on a submitted consolidated plan or
public housing agency (PHA) plan needed to be rendered. If the program
participant could not achieve an accepted AFH by the time the program
participant's consolidated plan or PHA Plan was due, the automatic
consequence was a cut-off of Federal funding. Faced with that
consequence, HUD ultimately accepted every plan, although many of the
plans that HUD accepted could still have benefited from improvements if
there had been additional time for HUD to work with the program
participant. This proposed rule provides HUD more time--100 days, with
the ability to extend that time for good cause--to review a submitted
Equity Plan and work with a program participant to ensure the plan
meets the requirements of this proposed rule. In addition, the proposed
rule provides that, if a program participant does not have an accepted
Equity Plan by the time a consolidated plan or PHA Plan must be
approved, to have that plan approved it must provide HUD with special
assurances that it will achieve an Equity Plan that meets regulatory
requirements within 180 days of the end of HUD's review period for its
consolidated plan or PHA Plan. At the end of the 180-day period, if the
program participant still does not have an Equity Plan that has been
accepted by HUD, HUD will seek the most serious of remedies by
initiating the termination of funding and will not grant or continue
granting applicable funds. HUD believes this structure will provide it
with the necessary enforcement authority and the flexibility to work
with program participants to achieve an Equity Plan that meets this
proposed rule's requirements. By obtaining special assurances, HUD will
continue to have the ability to enforce this proposed rule by
initiating the termination of funding for program participants that do
not provide the required special assurances or that do not achieve an
Equity Plan that is accepted by HUD in the time allotted. HUD believes
the addition of the procedures relating to special assurances provide a
stronger yet more flexible mechanism for HUD to compel compliance with
the requirements of this proposed rule beyond what it could require
under the 2015 AFFH Rule.
e. Creating a more direct linkage between the Equity Plan's fair
housing goals and the planning processes in the consolidated plan,
annual action plan, or PHA Plan. The proposed rule requires the program
participant to establish concrete fair housing goals that are designed
and can be reasonably expected to achieve meaningful fair housing
outcomes. In the process, program participants will identify the
funding and any contingencies that must be met for the program
participant to achieve the goal. The proposed rule then requires
program participants to incorporate the fair housing goals from their
Equity Plans into their consolidated plan, annual action plan, or PHA
Plan. The direct linkage between the Equity Plan and subsequent program
planning documents will enable program participants to make more
informed decisions about how to overcome circumstances that cause,
increase, contribute to, maintain, or perpetuate fair housing issues.
By incorporating their fair housing goals, strategies, and actions into
their planning documents, program participants will be better
positioned to build equity and fairness into their decision-making
processes for the use of resources and other investments, live up to
the commitments they have made in Equity Plans, and ultimately fulfill
their obligations to affirmatively further fair housing.
f. Implementing a more transparent process for program
participants' development and HUD's review of Equity Plans. The
proposed rule will enable members of the public to have online access
to all submitted Equity Plans; to provide HUD with additional
information regarding Equity Plans that are under HUD review; and to
know HUD decisions on Equity Plan acceptance and on program
participants' annual progress evaluations. HUD will use information
submitted by the public in its review of the Equity Plan. This
transparency is intended, in part, to assist program participants with
understanding how other similarly situated program participants
conducted their analyses. HUD believes that this transparency will
allow the public to be more engaged in the local fair housing planning
process, the implementation of fair housing goals, and ultimately in
assisting their local leaders in determining how to allocate resources
to address fair housing issues.
g. Tracking progress on fair housing goals. The proposed rule
requires program participants to conduct annual progress evaluations
regarding the progress made on each goal. These progress evaluations
will be submitted to HUD, and HUD will make them publicly available on
a HUD-maintained website. This annual progress evaluation ensures that
goal implementation stays on track and that progress (or lack thereof)
is disclosed to the public. In conducting this evaluation, a program
participant must assess whether to establish a new fair housing goal or
whether to modify an existing fair housing goal because it cannot be
achieved in the amount of time previously anticipated. The proposed
rule allows program participants, with HUD's permission, to submit a
revised Equity Plan that modifies goals or set new goals if
circumstances changed or if the established goals have been
accomplished. HUD believes this ability to account for changed
circumstances will make program participants more willing to set
ambitious, creative goals that may be dependent on certain
contingencies, since the goals can be updated if the contingencies are
not met. However, HUD will not grant permission to alter goals if the
program participant is simply choosing not to take necessary steps. The
annual progress evaluation will allow for public
[[Page 8520]]
awareness that a goal is not being met before it is too late to change
course to meet it.
h. Increasing accountability by creating a mechanism for members of
the public to file complaints and for HUD to further engage in
oversight and enforcement. Under the proposed rule, HUD will have the
ability to open compliance reviews, and members of the public will be
able to file complaints directly with HUD regarding a program
participant's AFFH-related activities. While these processes are new to
AFFH compliance, the proposed regulatory provisions relating to the
filing and investigation of complaints and HUD's procedures for
obtaining compliance are consistent with the oversight and enforcement
mechanisms that exist for other Federal civil rights statutes that HUD
implements. Accordingly, HUD anticipates that the agency, program
participants, and the public should be able to readily acclimate
themselves to these processes and that the associated burden will be
manageable.
These improvements are intended to result in tangible fair housing
outcomes that advance equity and increase opportunity for people of
color and other underserved communities while minimizing burden and
constraints on program participants in how those outcomes are
determined and achieved. Ultimately, those tangible fair housing
outcomes will be locally driven based on the fair housing issues that
are presented by local circumstances. This proposed rule does not
dictate the particular steps a program participant must take to resolve
a fair housing issue. Rather, the proposed rule is intended to empower
and require program participants to meaningfully engage with their
communities and confront difficult issues in order to achieve
integrated living patterns, overcome historic and existing patterns of
segregation, reduce racial and ethnic concentrations of poverty,
increase access to homeownership, and ensure realistic and truly equal
access to opportunity and community assets for members of protected
class groups, including those in historically underserved communities.
As previously noted, this proposed rule is intended to ensure that
program participants set and achieve meaningful fair housing goals
while reducing program participant burden in performing the required
analysis in the planning stage. The proposed rule reduces burden
compared with the 2015 AFFH Rule for program participants through the
provision of HUD data and assistance in interpreting the data and other
modifications such as not prescribing a particular format for the
written analysis. It is HUD's intention to allow program participants
to spend less time on data analysis and more time on setting meaningful
fair housing goals that are based on that data and other information,
including conversations with their local community regarding the most
effective means of advancing fair housing and equity. This does not
diminish the key role that interpretation of maps and other objective
data will continue to play in the required analysis, but rather enables
program participants to focus more of their time and energy on the fair
housing goals and strategies and actions they will employ to overcome
the fair housing issues identified using the data. HUD will continue to
provide program participants datasets, including maps, and tools that
contain at least as much data as is currently provided in the AFFH-T
Data & Mapping Tool. HUD will continue to make these data publicly
available, including for use by program participants in conducting
their Equity Plans, at https://www.hud.gov/program_offices/fair_housing_equal_opp/affh. HUD will explore ways to build on and
improve the current AFFH-T Data & Mapping Tool and will continue to
evaluate whether these data or other data may be helpful to program
participants and the public in undertaking an analysis of how to
advance fair housing outcomes within local communities.
HUD is contemplating making its provision of these data more user
friendly in ways that will reduce burden for smaller program
participants and those with fewer resources while increasing their
understanding--and their communities' understanding--of what those data
signify. Along with updating and improving the current AFFH-T Data &
Mapping Tool, HUD is contemplating providing technical assistance that
would highlight key points to help program participants understand what
those maps and tables show. For example, technical assistance may
include identification of racially or ethnically concentrated areas of
poverty (R/ECAPs) in the jurisdiction and demographic information about
the R/ECAPs' residents, making it simpler for the program participant
to answer the relevant question in the required analysis. HUD
anticipates that these efforts will reduce the burden for program
participants to answer the required analysis questions and identify
fair housing issues, while providing information critical to the fair
housing analysis in a format that also can be understood by the
community.
The proposed rule is less burdensome compared to the 2015 AFFH
Rule. While this proposed rule continues to require program
participants to review and understand the data and their fair housing
implications, including for purposes of setting fair housing goals,
program participants will not be required to submit responses in the
form of data analysis. Except as specifically instructed in the
proposed analysis questions (in instances where HUD expects its own
provision of data to make it simple to do so), program participants
would not need to reference specific percentages or calculations, for
example, regarding demographics or segregation, but would be required
to show the connection between their data analysis, their
identification of fair housing issues, and the establishment fair
housing goals. Instead, the data provided by HUD, along with local data
and local knowledge, should be sufficient to drive the program
participant's analysis and ultimate identification of goals and
strategies. The program participant's answers should be informed by
data but need not be written in that form. These improvements will make
it easier for smaller program participants and those with fewer
resources to complete the written analysis, and also make it easier for
the community to engage in the process, understand the analysis of fair
housing issues in a submitted Equity Plan, and provide additional
relevant information to facilitate HUD's review. Program participants
will have the opportunity to engage with HUD staff to help ensure that
consultants, contractors, or complex data analysis are not required to
produce an Equity Plan that can be accepted.\4\
---------------------------------------------------------------------------
\4\ HUD is aware that during implementation of the 2015 AFFH
Rule, many university-based researchers (along with fair housing
groups and other non-profit organizations) assisted program
participants in analyzing and understanding HUD-provided data for
purposes of identifying fair housing issues and establishing fair
housing goals in their AFHs.
---------------------------------------------------------------------------
This proposed rule features much greater transparency for the
public to see and participate in the decisions program participants
make and HUD's responses to them. HUD expects to publish all Equity
Plan submissions and decisions as to whether HUD has accepted the
Equity Plan on its AFFH web page to further increase transparency and
reduce burden for program participants. This transparency is intended,
in part, to assist program participants with understanding how other
similarly situated program participants conducted their analyses. HUD
believes that by publishing this
[[Page 8521]]
information, not only will local officials be able to learn from other
jurisdictions' Equity Plans, but also the public will be more engaged
in the local fair housing planning process and implementation of local
fair housing goals. HUD anticipates that this approach may also lead to
collaboration with other government entities as well as the private
sector with respect to housing and community development activities and
investments in a program participant's jurisdiction. In addition, this
more robust community engagement process to discuss fair housing issues
and potential fair housing goals will lead to more transparent fair
housing planning and greater ability to influence equitable outcomes
for members of protected class groups, including people of color,
individuals with disabilities, and other underserved communities.
HUD expects that the refinements made to this proposed rule
compared with the 2015 AFFH Rule will help program participants more
easily identify where equity in their communities is lacking and how
they can affirmatively further fair housing by advancing equity for
protected class groups through the use of HUD funds, other investments,
and policy decisions. HUD's commitment to be a partner in the planning
process for program participants and the public alike should result in
a reduction of burden and greater transparency and public
participation, and result in program participants undertaking
meaningful actions to fulfill the promise of the AFFH mandate
established in 1968. HUD is soliciting comment on this proposed rule
and also seeks comment on specific topics in Section IV of this
preamble.
Summary of Benefits and Costs
As detailed in the Regulatory Impact Analysis, HUD does not expect
a large aggregate change in compliance costs for program participants
as a result of the proposed rule. As a result of increased emphasis on
affirmatively furthering fair housing within the planning process,
there may be increased compliance costs for some program participants,
while for others the improved process and goal setting, combined with
HUD's provision of foundational data, is likely to decrease compliance
costs. Program participants are currently required to engage in
outreach and collect data in order to support their certifications that
they are affirmatively furthering fair housing. As more fully addressed
in the Regulatory Impact Analysis that accompanies this rule, HUD
estimates that compliance with these additional planning requirements
would collectively cost program participants a total of $5.2 million to
$27 million per year, once the Equity Plan cycle is fully implemented,
a sum that is offset by the societal benefits accruing to fair housing
goals that decrease segregation and the lack of equal access to housing
and related opportunities throughout society.
Further, HUD believes that the proposed rule has the potential for
substantial benefit for program participants and the communities they
serve. The proposed rule would improve the fair housing planning
process by providing greater clarity regarding the steps program
participants must undertake to meaningfully affirmatively further fair
housing, and at the same time provide better resources for program
participants to use in taking such steps, thus increasing AFFH
compliance more broadly. Through this rule, HUD commits to provide
States, local governments, PHAs, the communities they serve, and the
general public with local and regional data, as well as assistance in
understanding that data, as discussed further below. From these data,
program participants should be better able to evaluate their present
environment to assess fair housing issues, identify the primary
determinants that account for those issues, set forth fair housing
priorities and goals, and document these activities.
The rule covers program participants that are subject to a great
diversity of local preferences and economic and social contexts across
American communities and regions. For these reasons, HUD recognizes
there is significant uncertainty associated with quantifying outcomes
of the process, as proposed by this rule, to identify barriers to fair
housing, the priorities of program participants in deciding which
barriers to address, the types of policies designed to address those
barriers, and the effects of those policies on protected classes. In
brief, because of the diversity of communities and regions across the
Nation and the resulting uncertainty of precise outcomes of the
proposed AFFH planning process, HUD cannot estimate the specific
benefits and costs of policies influenced by the rule. HUD does
recognize that segregation, combined with the legacy of discrimination
against protected class groups and longstanding disinvestment in
certain neighborhoods, has imposed and continues to impose substantial
costs on members of protected classes and society in general by
reducing employment, education, and homeownership opportunities as well
as the costs associated with reduced health and safety in neighborhoods
that have long faced disinvestment and other adverse environmental
impacts.\5\ HUD is confident, as discussed more fully below, that the
rule will create a process that allows for each jurisdiction to not
only undertake meaningful fair housing planning, but also build
capacity and develop a thoughtful strategy to affirmatively further
fair housing and make progress towards a more integrated society with
more equitable access to opportunity. The benefits of undertaking
meaningful actions to produce an integrated, just, and prosperous
society and otherwise further fair housing objectives far outweigh the
costs.
---------------------------------------------------------------------------
\5\ See Acs, Pendall, Trekson, et al., ``The Cost of
Segregation: National Trends and the Case of Chicago 1990-2010,''
Urban Institute and The Metropolitan Housing and Communities Policy
Center (2017), available at https://www.urban.org/sites/default/files/publication/89201/the_cost_of_segregation.pdf (finding that
higher levels of racial segregation were associated with lower
incomes for Black residents, lower educational attainment levels for
White and Black residents, and lower levels of public safety for all
residents).
---------------------------------------------------------------------------
II. Background
A. Legal Authority
The Fair Housing Act (title VIII of the Civil Rights Act of 1968,
42 U.S.C. 3601-3619), enacted into law on April 11, 1968, declares that
it is ``the policy of the United States to provide, within
constitutional limitations, for fair housing throughout the United
States.'' See 42 U.S.C. 3601. Accordingly, the Fair Housing Act
prohibits discrimination in the sale, rental, and financing of
dwellings, and in other housing-related transactions because of race,
color, religion, sex, familial status, national origin, or disability.
See 42 U.S.C. 3601 et seq. In addition to prohibiting discrimination,
the Fair Housing Act (42 U.S.C. 3608(e)(5)) requires that HUD programs
and activities be administered in a manner to affirmatively further the
policies of the Fair Housing Act. Section 808(d) of the Fair Housing
Act (42 U.S.C. 3608(d)) directs other Federal agencies ``to administer
their programs . . . relating to housing and urban development . . . in
a manner affirmatively to further'' the policies of the Fair Housing
Act, and to ``cooperate with the Secretary'' in this effort.
The Fair Housing Act's provisions related to ``affirmatively . . .
further[ing]'' fair housing, contained in sections 3608(d) and (e),
require more than compliance with the Act's anti-discrimination
mandates. NAACP, Boston Chapter v. HUD, 817 F.2d 149
[[Page 8522]]
(1st Cir. 1987); see, e.g., Otero v. N.Y. City Hous. Auth., 484 F.2d
1122 (2d Cir. 1973); Shannon v. HUD, 436 F.2d 809 (3d Cir. 1970). When
the Fair Housing Act was originally enacted in 1968 and amended in
1988, major portions of the statute involved the prohibition of
discriminatory activities (whether undertaken with a discriminatory
purpose or with a discriminatory effect) and how private litigants and
the government could enforce these provisions.
In sections 3608(d) and (e) of the Fair Housing Act, however,
Congress went further by mandating that ``programs and activities
relating to housing and urban development'' be administered ``in a
manner affirmatively to further the purposes of this subchapter.'' This
is not only a mandate to refrain from discrimination but a mandate to
take the type of actions that undo historic patterns of segregation and
other types of discrimination and afford access to opportunity that has
long been denied. Congress has repeatedly reinforced and ratified this
uncontradicted interpretation of the AFFH mandate, requiring in the
Housing and Community Development Act of 1974, the Cranston-Gonzalez
National Affordable Housing Act, and the Quality Housing and Work
Responsibility Act of 1998, that covered HUD program participants
certify, as a condition of receiving Federal funds, that they will
affirmatively further fair housing. See 42 U.S.C. 5304(b)(2),
5306(d)(7)(B), 12705(b)(15), 1437C-1(d)(16).\6\
---------------------------------------------------------------------------
\6\ Section 104(b)(2) of the Housing and Community Development
Act (HCD Act) (42 U.S.C. 5304(b)(2)) requires that, to receive a
grant, the state or local government must certify that it will
affirmatively further fair housing. Section 106(d)(7)(B) of the HCD
Act (42 U.S.C. 5306(d)(7)(B)) requires a local government that
receives a grant from a state to certify that it will affirmatively
further fair housing. The Cranston-Gonzalez National Affordable
Housing Act (NAHA) (42 U.S.C. 12704 et seq.) provides in section 105
(42 U.S.C. 12705) that states and local governments that receive
certain grants from HUD must develop a comprehensive housing
affordability strategy to identify their overall needs for
affordable and supportive housing for the ensuing 5 years, including
housing for persons experiencing homelessness, and outline their
strategy to address those needs. As part of this comprehensive
planning process, section 105(b)(15) of NAHA (42 U.S.C.
12705(b)(15)) requires that these program participants certify that
they will affirmatively further fair housing. The Quality Housing
and Work Responsibility Act of 1998 (QHWRA), enacted into law on
October 21, 1998, substantially modified the United States Housing
Act of 1937 (42 U.S.C. 1437 et seq.) (1937 Act), and the 1937 Act
was more recently amended by the Housing and Economic Recovery Act
of 2008, Public Law 110-289 (HERA). QHWRA introduced formal planning
processes for PHAs--a 5-Year Plan and an Annual Plan. The required
contents of the Annual Plan included a certification by the PHA that
the PHA will, among other things, affirmatively further fair
housing.
---------------------------------------------------------------------------
Courts have found that the purpose of the affirmatively furthering
fair housing mandate is to ensure that recipients of Federal funds used
for housing or urban development and certain other Federal funds do
more than simply not discriminate: recipients also must take actions to
address segregation and related barriers for members of protected class
groups, as often reflected in racially or ethnically concentrated areas
of poverty. The U.S. Supreme Court, in one of the first Fair Housing
Act cases it decided, acknowledged that the Act was intended to make
significant change in addition to outlawing discrimination in housing,
noting that ``the reach of the proposed law was to replace the ghettos
`by truly integrated and balanced living patterns.' '' Trafficante v.
Metro. Life Ins. Co., 409 U.S. 205, 211 (1972); see also Client's
Council v. Pierce, 711 F.2d 1406, 1425 (8th Cir. 1983) (``Congress
enacted section 3608(e)(5) to cure the widespread problem of
segregation in public housing''); see also Crow v. Brown, 332 F. Supp.
382, 391 (N.D. Ga. 1971), affirmed in part without op. and reversed in
part without op. by Banks v. Perk, 473 F.2d 910 (6th Cir. 1973) (``It
is also clear that the policy of HUD requires that public housing be
dispersed outside racially compacted areas . . . and [is] part of the
national housing policy.\7\ Indeed, relief has been granted to
plaintiffs and against HUD for failing to comply with this affirmative
duty to disperse public housing which is implicit in the Housing Act of
1949, the Civil Rights Act of 1964, and the Civil Rights Act of
1968.''). The Act recognized that ``where a family lives, where it is
allowed to live, is inextricably bound up with better education, better
jobs, economic motivation, and good living conditions.'' 114 Cong. Rec.
2276-2707 (1968). As the First Circuit has explained, section
3608(e)(5) and the legislative history of the Act show that Congress
intended that ``HUD do more than simply not discriminate itself; it
reflects the desire to have HUD use its grant programs to assist in
ending discrimination and segregation, to the point where the supply of
genuinely open housing increases.'' NAACP, Boston Chapter v. HUD, 817
F.2d at 154; see also Otero, 484 F.2d at 1134 (section 3608(d) requires
that ``[a]ction must be taken to fulfill, as much as possible, the goal
of open, integrated residential housing patterns and to prevent the
increase of segregation, in ghettos, of racial groups whose lack of
opportunity the Act was designed to combat'').
---------------------------------------------------------------------------
\7\ Reflecting the era in which it was enacted, the Fair Housing
Act's legislative history and early court decisions refer to
``ghettos'' when discussing racially concentrated areas of poverty.
In addition, much of the litigation during this period related to
the siting of public housing; however, HUD notes that the holdings
of these courts apply to all programs and activities administered by
HUD and are not limited to the public housing program.
---------------------------------------------------------------------------
The Act itself does not define the precise scope of the
affirmatively furthering fair housing obligation for HUD or HUD's
program participants. Over the years, courts have provided some
guidance for this task. In the first appellate decision interpreting
section 3608, for example, the U.S. Court of Appeals for the Third
Circuit emphasized the importance of racial and socioeconomic data to
ensure that ``the agency's judgment was an informed one'' based on an
institutionalized method to assess site selection and related issues.
Shannon, 436 F.2d at 821-22. In multiple other decisions, courts have
set forth that section 3608 applies to specific policies and practices
of HUD program participants. See e.g., Otero, 484 F.2d at 1132-37;
NAACP, Boston Chapter, 817 F.2d at 156 (``. . . a failure to `consider
the effect of a HUD grant on the racial and socio-economic composition
of the surrounding area' '' would be inconsistent with the Fair Housing
Act's mandate); Langlois v. Abington Hous. Auth., 207 F.3d 43 (1st Cir.
2000); U.S. ex rel. Anti-Discrimination Ctr. v. Westchester Cnty., 2009
WL 455269 (S.D.N.Y. Feb. 24, 2009). The U.S. Court of Appeals for the
First Circuit, in evaluating how the AFFH mandate applies to HUD and
its program participants, including the decisions made in the
administration of their programs and activities, further provided that
``the need for such consideration itself implies, at a minimum, an
obligation to assess negatively those aspects of a proposed course of
action that would further limit the supply of genuinely open housing
and to assess those aspects of a proposed course of action that would
increase that supply. If HUD is doing so in any meaningful way, one
would expect to see, over time, if not in any individual case, HUD
activity that tends to increase, or at least, that does not
significantly diminish the supply of open housing.'' NAACP, Boston
Chapter, 817 F.2d at 156.
More recently, in examining why regional solutions to segregation
may be necessary, a United States District Court declared that ``[i]t
is high time that HUD live up to its statutory mandate to consider the
effect of its policies on the racial and socioeconomic composition of
the surrounding area . . . The Court finds it no longer appropriate for
HUD,
[[Page 8523]]
as an institution with national jurisdiction, essentially to limit its
consideration of desegregative programs . . .'' Thompson v. HUD, 348 F.
Supp. 2d 398, 409 (D. Md. 2005). The court emphasized the importance of
using the AFFH mandate to afford choice to individuals and families
about where they live by stating that, ``[i]n this regard, it is
appropriate to note that there is a distinction between telling a
person that he or she may not live in [a] place because of race and
giving the person a choice so long as the place in question is, in
fact, available to anyone without regard to race.'' Thompson, 398 F.
Supp. 2d at 450. As recently as 2015, the U.S. Supreme Court explained
that ``[m]uch progress remains to be made in our Nation's continuing
struggle against racial isolation . . . The Court acknowledges the Fair
Housing Act's continuing role in moving the Nation toward a more
integrated society.'' Tex. Dep't of Hous. Cmty. Affairs v. Inclusive
Cmtys. Project, Inc., 576 U.S. 519, 546-47 (2015). As the Supreme Court
held in lnclusive Communities, the Fair Housing Act's broad remedial
purposes cannot be accomplished simply by banning intentional
discrimination today. Id.
In addition to the statutes and court cases emphasizing the
requirement of recipients of Federal housing and urban development
funds and other Federal funds to affirmatively further fair housing,
executive orders have also addressed the importance of complying with
this requirement.\8\
---------------------------------------------------------------------------
\8\ Executive Order 12892, entitled ``Leadership and
Coordination of Fair Housing in Federal Programs: Affirmatively
Furthering Fair Housing,'' issued January 17, 1994, vests primary
authority in the Secretary of HUD for all Federal executive
departments and agencies to administer their programs and activities
relating to housing and urban development in a manner that furthers
the purposes of the Fair Housing Act. Executive Order 12898,
entitled ``Executive Actions to Address Environmental Justice in
Minority Populations and Low-Income Populations,'' issued on
February 11, 1994, declares that Federal agencies shall make it part
of their mission to achieve environmental justice ``by identifying
and addressing, as appropriate, disproportionately high and adverse
human health or environmental effects of its programs, policies, and
activities on minority populations and low-income populations.''
Executive Order 13985, ``Advancing Racial Equity for Underserved
Communities Through the Federal Government'' issued on January 25,
2021, establishes that it is the policy of the Federal Government to
pursue a comprehensive approach to advancing equity for all,
including people of color and others who have been historically
underserved, marginalized, and adversely affected by persistent
poverty and inequality. Executive Order 13985 makes clear that
affirmatively advancing equity, civil rights, racial justice, and
equal opportunity is the responsibility of the whole of our
Government, and that doing so requires a systematic approach to
embedding fairness in decision making processes, and as such,
executive departments and agency must recognize and work to redress
inequities in their policies and programs that serve as barriers to
equal opportunity. Furthermore, President Biden's Memorandum to the
Secretary of HUD dated January 26, 2021, titled ``Memorandum on
Redressing our Nation's and the Federal Government's History of
Discriminatory Housing Practices,'' obligates HUD to examine its
programs and activities and empowers the Secretary to take any
necessary steps, as appropriate and consistent with applicable law,
to implement the Fair Housing Act's requirements that HUD administer
its programs and activities in a manner that affirmatively furthers
fair housing.
---------------------------------------------------------------------------
B. HUD's July 16, 2015 Final Rule, HUD's 2020 Preserving Communities
and Neighborhood Choice Rule, and HUD's June 10, 2021 Interim Final
Rule
On July 16, 2015, the Department published a final AFFH regulation
(2015 AFFH Rule) at 24 CFR 5.150 through 5.180, which required program
participants to conduct and submit to HUD an Assessment of Fair Housing
(AFH).\9\ The 2015 AFFH Rule reflected HUD's efforts to more fully and
meaningfully effectuate the AFFH mandate of the Fair Housing Act. The
promulgation of the 2015 AFFH Rule was a significant and important step
toward realizing the promise of the AFFH mandate.
---------------------------------------------------------------------------
\9\ Prior to HUD's 2015 AFFH Rule, beginning in 1996, HUD
required program participants to undertake an ``Analysis of
Impediments to Fair Housing Choice,'' (AI) which was the mechanism
for supporting their AFFH-related certifications. HUD issued
guidance in the form of the Fair Housing Planning Guide for how to
conduct an AI. HUD did not require the AI to be submitted, though
HUD would review AIs in connection with compliance reviews. The 2015
AFFH Rule replaced the AI process with the AFH process.
---------------------------------------------------------------------------
To implement the 2015 AFFH Rule, the Department developed and
required the use of Assessment Tools for different types of program
participants (which were subject to public comment through the process
required under the Paperwork Reduction Act), created fact sheets and
guidance to assist program participants in conducting their AFHs, and
provided a data and mapping tool (AFFH-T) that remains publicly
available. While the promulgation of the 2015 AFFH Rule marked a
substantial improvement to HUD's implementation of the AFFH mandate
with respect to certain recipients of Federal financial assistance from
the Department, it was not perfect, and HUD learned important lessons
about how the 2015 AFFH Rule could be improved.
The required use of Assessment Tools delayed implementation of the
2015 AFFH Rule because of the need to adhere to the Paperwork Reduction
Act process, which includes publication of two Federal Register notices
and two rounds of public comment solicitation.\10\ When implementation
began, between October 2016 and December 2017, HUD received, reviewed,
and issued initial decisions on forty-nine AFHs. HUD's experience with
the implementation of the 2015 AFFH Rule highlighted some areas for
improvement, including ways in which the identification of fair housing
issues could be streamlined. Furthermore, due to the complexity of the
assessment required and the need to adhere to the specific format
required, many program participants utilized outside contractors to
complete their AFHs, others misunderstood the questions asked, and some
failed to identify fair housing issues or set meaningful goals to
affirmatively further fair housing. Many submissions merely recounted
what the HUD-provided data showed, rather than providing an analysis of
the actual fair housing issues program participants' communities were
and are facing. In some instances, this resulted in goals that
consisted of a program participant merely continuing with actions that
would maintain existing conditions rather than advancing equity for
members of protected class groups and underserved communities.
Similarly, the 2015 AFFH Rule's requirement that program participants
identify and prioritize factors that contribute to fair housing issues
(from a list of over forty potential factors) proved confusing and, in
some instances, program participants were not able to translate
identified factors into meaningful goals that could be reasonably
expected to result in material progress.
---------------------------------------------------------------------------
\10\ See, PRA approval process at https://pra.digital.gov/clearance-process/.
---------------------------------------------------------------------------
At the same time, the 2015 AFFH Rule demonstrated that its basic
planning structure had considerable promise for assisting local
communities to achieve meaningful fair housing ends that are responsive
to local needs. Program participants and members of the community
reported that, because program participants were required to answer
specific questions regarding longstanding segregation and other fair
housing issues, they had productive conversations about important
issues they otherwise would not have confronted. Moreover, some AFH
submissions contained creative fair housing goals, including by
collaborating across different sectors (e.g., public housing agencies
and school districts working together), to find ways to overcome
disparities for protected class groups in specific geographic areas.
HUD believes this demonstrates that the required focus on core fair
housing topics and goal setting required by the 2015 AFFH Rule remain
appropriate, even as it also heard from many stakeholders of the need
for a
[[Page 8524]]
greater emphasis on goals and outcomes tied to a streamlined analysis.
As more fully explained below, this proposed rule seeks to build on
these lessons learned. HUD specifically invites comment on this
proposal in Section IV of this preamble.
In 2018, HUD suspended implementation of the 2015 AFFH Rule by
withdrawing the operative assessment tool that program participants
were required to use for conducting an AFH. See 83 FR 23927 (Jan. 5,
2018). Then, on August 7, 2020, at 85 FR 47899, HUD promulgated a final
rule--Preserving Community and Neighborhood Choice (PCNC Rule)--which
repealed the 2015 AFFH Rule. The PCNC Rule redefined the AFFH mandate
in a manner that was a substantial and substantive departure from
decades of judicial and administrative precedent interpreting the AFFH
mandate in the Fair Housing Act.
On June 10, 2021, HUD promulgated an interim final rule,
``Restoring Affirmatively Furthering Fair Housing Definitions and
Certifications'' (AFFH IFR), in order to repeal the PCNC Rule and
restore legally supportable definitions and certifications for program
participants. See 86 FR 30779 (June 10, 2021). The AFFH IFR restored
relevant definitions from the 2015 AFFH Rule and created a process for
program participants to certify to HUD that they will affirmatively
further fair housing. At that time, HUD did not reinstate other
provisions from the 2015 AFFH Rule, but committed to further
implementation of the AFFH mandate at a future date, which is the
purpose of this proposed rule.
HUD invited and considered public comments on the AFFH IFR. HUD
also undertook multiple listening sessions to inform this proposed
rule. These listening sessions included a variety of stakeholders
including HUD program participants, fair housing and civil rights
advocates, community organizations, and other interested members of the
public. These stakeholders provided their views about what worked and
what did not with respect to the implementation of the 2015 AFFH Rule,
recommended additional features and refinements that they believed a
new rule should include, and identified certain fair housing- and
equity-related issues prevalent in their communities that they hoped a
proposed rule would address. HUD thanks these stakeholders for this
valuable input and has taken it into account in formulating this
proposed rule.
This proposed rule, as more fully described below, restores much of
the structure of the 2015 AFFH Rule, but with modifications and
improvements to increase transparency and accountability, and to reduce
burden, while retaining flexibility for program participants to
establish fair housing goals based on their local circumstances. The
proposed rule generally tracks the structure of the 2015 AFFH Rule
because HUD believes program participants are familiar with that
structure; however, HUD is open to considering changes to this proposed
regulatory scheme to effectively and meaningfully implement the Fair
Housing Act's AFFH mandate. HUD specifically seeks comment on this
topic in Section IV of this preamble.
C. HUD Proposes To Restore Much of the Structure of the 2015 AFFH Rule,
While Streamlining the Required Analysis for Program Participants, and
Adding Features That Will Bolster the Effective Implementation of the
AFFH Rule
HUD now proposes to restore much of the structure of the 2015 AFFH
Rule, while proposing modifications that HUD believes will lead to a
more effective fair housing planning process while reducing burden for
program participants and providing the public more transparency and
opportunities to influence both planning and implementation. HUD is
responsible for ensuring that the Fair Housing Act's AFFH mandate is
implemented and that it drives the change that Congress intended in
1968--the undoing of vestiges of segregation, unequal treatment, and
inequitable access to opportunity that the Federal Government itself
helped create--and helps combat the unequal access to housing and
related opportunities because of race, color, national origin,
religion, sex, familial status, and disability that persists in our
society today.
For change to occur throughout the Nation, HUD must help the states
and localities it serves to bring it about, arming them with the
relevant information and establishing a process that assists in
identifying fair housing issues and then implementing meaningful
actions to remedy them. To that end, the 2015 AFFH Rule created a
robust and data-driven analytical scheme for program participants to
use when engaging in fair housing planning and determining what actions
were necessary in their local communities to affirmatively further fair
housing. Under the 2015 AFFH Rule, HUD provided program participants
with considerable raw data, in part through an interface known as AFFH-
T that the program participants were expected to use to access data
relevant to their geographic areas of analysis, and then required
program participants to analyze this data in answering questions
contained in the AFH Assessment Tool designed to drive the
identification of fair housing issues. It was HUD's intention that the
AFH Assessment Tool's User Interface would import the data from the
AFFH-T. HUD now recognizes that this approach, while achieving a major
step forward in fair housing planning and providing an invaluable
source of publicly available data, particularly for researchers and
better-resourced program participants, created some unnecessary burden
and confusion particularly for smaller program participants and those
with fewer resources. For instance, HUD is aware that program
participants struggled to use the AFH Assessment Tool's User Interface
and perform the required data-driven analysis. Accordingly, while HUD
is using the 2015 AFFH Rule as a model for this proposed rule, this
proposed rule streamlines the questions in the required analysis and
HUD proposes to make it more user-friendly. This would enable program
participants to more readily use HUD-provided data, including during
community engagement, to identify fair housing issues and set goals
that will result in meaningful change. HUD continues to consider
whether other changes to the structure set out in the proposed rule
would further reduce burden and maximize material positive change and
seeks comment to that effect in Section IV, below.
HUD notes that the proposed rule is not intended to conflict with
or interfere with program participants carrying out existing
programmatic responsibilities including maintenance of affordable
housing. It remains a top priority for HUD to preserve and maintain the
existing stock of long-term affordable rental housing, including the
federally assisted stock. HUD recognizes the overwhelming need for
affordable and accessible housing and the inadequate supply of HUD-
assisted housing to meet that need. The most recent HUD report on Worst
Case Needs for Affordable Housing (issued July 2021) found there were
over 7.77 million unassisted very low-income renter households facing
either severe rent burden (paying more than half their incomes for
rent) or severely inadequate housing conditions, or both. This does not
include persons facing homelessness, nor does it include lower income
(but not very low-income)
[[Page 8525]]
cost burdened households. HUD believes and expects that program
participants can act in recognition of this urgent need to maintain and
add to existing affordable and accessible housing stock consistent with
the fair housing principles and requirements set forth in this proposed
rule.
HUD recognizes that, notwithstanding its efforts to make
refinements in this proposed rule to reduce burden and simplify the
Equity Plan analysis for all program participants, some smaller program
participants may benefit from additional flexibility and technical
assistance. In particular, HUD is aware that small PHAs and
consolidated plan participants may have significantly fewer personnel
and financial resources available to complete the analysis contemplated
in this proposed rule when compared to larger entities, especially if
they are unable to identify another entity they can work with to submit
a joint Equity Plan.
As compared to the 2015 AFFH Rule, HUD has significantly
streamlined the analysis that would be required for a program
participant's Equity Plan from what was required in the Assessment of
Fair Housing and has eliminated the analysis of contributing factors
required by the 2015 AFFH Rule. This streamlined analysis would still
require program participants to assess the underlying causes of the
identified fair housing issues as a basis for designing effective fair
housing goals. In addition, by providing simpler, standard questions
for all program participants in the regulatory text itself, HUD would
not be continually revisiting those questions through revised
assessment tools, which would be subject to changes under the Paperwork
Reduction Act (PRA) (a Federal law discussed later in this preamble) at
least every three years, thereby giving program participants long-term
certainty about the analysis they would be required to undertake and
reducing the burden involved in preparing subsequent Equity Plans.
Importantly, HUD has sought to design the questions, and its
anticipated review of answers, such that the complexity and burden of
satisfactory answers will scale based on the size of a program
participant. For example, the largest PHAs (under the proposed rule, a
PHA that administers 10,000 or more combined public housing and voucher
units) and the largest consolidated plan participants (under the
proposed rule, a program participant that receives a total of $100
million or more in formula grant funds) are likely to operate in large
metropolitan areas with multiple local government entities, various
categories of publicly supported housing and other affordable housing,
many different types of community assets across the geographic area of
analysis, and millions of community residents with significantly more
complex demographic patterns. Conversely, the smallest PHAs and
smallest consolidated plan participants are likely to operate in rural
areas, newly suburban areas, or other localities with far fewer
community assets, more limited public infrastructure, and more
homogenous demographic patterns among significantly smaller populations
(e.g., 50,000 residents). As a result, smaller program participants,
though responding to the same questions, would be expected to have less
to analyze and HUD anticipates that it would be acceptable for them to
provide briefer answers. As described below, in rare instances and
typically with smaller program participants, program participants may
respond that much or all of the question is not applicable to them, as
long as this response is supported by realities on the ground,
including through HUD-provided data and insights drawn from local
knowledge and community engagement.
During the implementation of the 2015 AFFH Rule, HUD's efforts to
address the issue of burden on small program participants by requiring
simplified analyses were largely unsuccessful. HUD created inserts
within the Assessment Tools for small PHAs and consolidated plan
program participants but found that this process still resulted in
confusion. Moreover, the smaller program participants that submitted
AFHs to HUD generally either did not use the inserts or submitted
essentially the same analysis as would have been required by the
standard questions. Nonetheless, HUD is committed to exploring ways to
further reduce the burden of preparing an Equity Plan for small PHAs
and small consolidated plan program participants while ensuring that
they engage in fair housing planning that is sufficient to meet their
AFFH obligations. HUD solicits comment in this proposed rule on whether
it should take an alternative approach for smaller program
participants, including whether it should require such participants to
analyze fair housing issues in a different manner.
Additionally, HUD is aware that some small PHAs (such as those that
operate only Public Housing but do not participate in the Housing
Choice Voucher (HCV) program, including many of those in rural areas)
and some small consolidated plan participants (such as those that only
receive Community Development Block Grant (CDBG) funds) may have
limited ability to impact housing choice or mobility, making it harder
for them to establish mobility-related goals as discussed in the
definition of ``balanced approach'' in Sec. 5.152. In those
circumstances, a collaborative approach with other entities to address
issues outside their control may be warranted and may allow them to set
goals that would enable them to pursue a balanced approach. For
example, HUD expects such small, public housing-only PHAs could
undertake collaboration and outreach efforts with local governments,
the private sector, non-profits, and other applicable governmental
entities to address fair housing issues and formulate appropriate fair
housing goals. Specific examples include working with a local
government to address exclusionary zoning, coordinating with local or
State agencies to increase public transportation options, addressing
lead contamination or other environmental hazards, ensuring appropriate
emergency response coverage, or partnering with an adjacent PHA or
other larger PHAs that have HCV programs to increase mobility,
including through portability programs. Similarly, small PHAs (and all
PHAs as well) could review and make revisions to their PHA Admissions
and Continued Occupancy Policy and other policies to positively impact
underserved communities beyond fulfilling existing requirements, e.g.,
modifying preferences or doing specific outreach to organizations that
support underserved communities. Through such actions, HUD believes
that even the smallest PHAs can meaningfully impact fair housing
outcomes within their sphere of influence, even as it recognizes that
their options and resources may be limited compared to those of larger
PHAs. HUD does not propose to exempt smaller, public housing-only PHAs
from efforts to use a balanced approach or their obligation to
affirmatively further fair housing, but it is committed to providing
guidance regarding how the AFFH obligation and the balanced approach
apply when a public housing-only PHA has limited ability to directly
control issues that involve mobility-related goals as discussed in the
definition of balanced approach.
Nonetheless, HUD seeks comment on the extent to which smaller PHAs
and consolidated plan participants can set goals that constitute a
balanced approach as defined in this proposed rule, including examples
of goals that such PHAs and consolidated plan
[[Page 8526]]
participants can appropriately and reasonably set. To the extent that
commenters believe some smaller PHAs and consolidated plan participants
may not be able to set goals consistent with a balanced approach, HUD
seeks comment on what are appropriate expectations for smaller PHAs and
consolidated plan participants that ensure that meeting their
regulatory planning requirements will put them on the path to comply
with their affirmatively furthering fair housing obligation.
Please see specific requests for comment in Section IV of this
proposed rule related to reducing burden on small program participants.
HUD is also proposing other changes to the 2015 AFFH Rule that are
designed to make the fair housing planning processes more transparent
to the public and responsive to local fair housing issues. For example,
HUD is considering how it can better support its program participants
during the community engagement process in order to ensure that
representatives from the entire community have the chance to provide
their important perspectives, including members of protected class
groups and underserved communities. HUD continues to consider and
evaluate ways to eliminate unnecessary burden for program participants
to incorporate public feedback they receive so they can develop
effective goals to address local fair housing issues. HUD anticipates
that the more transparent process articulated in this proposed rule for
publication of Equity Plans will help reduce burden by allowing program
participants to learn from and build upon the experiences of others.
HUD acknowledges that implementation of the AFFH mandate will not
and cannot occur without burden for program participants, though HUD is
committed to ensuring that program participants experience less burden
than the 2015 AFFH Rule imposed. Under the proposed rule, program
participants would continue to be required to submit certifications
that they will affirmatively further fair housing in connection with
documents such as their consolidated plan, annual action plan, or PHA
Plan (or any plan incorporated therein), and it will continue to be
HUD's responsibility to ensure that these certifications are accurate.
Furthermore, HUD is committed to advancing equity for protected class
groups and underserved communities, as well as assisting its program
participants in doing the same. To truly honor Congress' intent, any
regulation to implement the Fair Housing Act's AFFH mandate must help
program participants move away from the status quo with respect to
planning approaches and facilitate the development of innovative
solutions to overcome decades, if not centuries, of housing-related
inequality throughout American communities.
The need for change remains urgent; many of the problems the Kerner
Commission Report \11\ identified are still with us today, even as
other barriers to equal access to housing opportunities have taken on
increased attention. In particular, the Nation remains highly
segregated by race, communities continue to have vastly different
access to critical resources because of historic disinvestment in
communities of color, there is still a large wealth gap between people
of color and White persons, and the lack of choice for many about where
to live persists notwithstanding that the Fair Housing Act barred
discrimination based on race and other protected characteristics as a
formal matter more than 50 years ago. Both anecdotal evidence and
empirical research continue to demonstrate that many low-income
families in all protected class groups face barriers to obtaining or
keeping housing in well-resourced, low-poverty areas that provide
access to opportunity and community assets, such as desirable schools,
parks, grocery stores, and reputable financial institutions, among
others. Ample research demonstrates that ongoing discrimination and
exclusionary practices, not preferences among low-income families and
members of protected class groups, drives residential and income
segregation today.\12\ In addition, continued disinvestment not only in
housing, but in community assets in areas that are not well-resourced
perpetuates this residential and income segregation.
---------------------------------------------------------------------------
\11\ Report of the National Advisory Committee on Civil
Disorders, Mar. 1, 1968, available at https://www.hud.gov/sites/dfiles/FHEO/documents/kerner_commission_full_report.pdf.
\12\ See for example, Bergman, Chetty, DeLuca, Hendren, Katz,
and Palmer, ``Creating Moves to Opportunity: Experimental Evidence
on Barriers to Neighborhood Choice,'' August 2019, available at
https://opportunityinsights.org/wp-content/uploads/2019/08/cmto_paper.pdf.
---------------------------------------------------------------------------
Research also shows that this lack of choice as to where families
can live has serious consequences. Children who move to low-poverty
neighborhoods have increased academic achievement, greater long-term
chances of success, and less intergenerational poverty.\13\ Children
who move to low-poverty neighborhoods have also been shown to
experience lower rates of hospitalization and lower hospital
spending.\14\ Meanwhile, adults given the chance to move to low-poverty
neighborhoods experience reductions in extreme obesity and
diabetes.\15\ For example, the Opportunity Atlas examines a change in
the way the literature has studied and measured poverty and
neighborhood conditions by looking at longitudinal information rather
than snapshots in time, which allows an evaluation of the root causes
of long-term outcomes by looking back at where children grew up.\16\
One finding from the Opportunity Atlas suggests that if a child moves
from a ``below-average to an above-average neighborhood at birth,'' it
could increase the child's lifetime earnings by $200,000.\17\ Another
study concluded with respect to income disparities that ``initiatives
whose impacts cross neighborhood and class lines and increase upward
mobility specifically for Black men hold the greatest promise of
narrowing the [B]lack-[W]hite gap. There are many promising examples of
such efforts: mentoring programs for [B]lack boys, efforts to reduce
racial bias among [W]hites, interventions to reduce discrimination in
criminal justice, and efforts to facilitate greater interaction across
racial groups.'' \18\ Furthermore, researchers have found that even
low-income individuals can have an increased life expectancy if they
reside in more affluent and educated cities.\19\
---------------------------------------------------------------------------
\13\ Chetty, Hendren, and Katz, ``The Effects of Exposure to
Better Neighborhoods on Children: New Evidence from the Moving to
Opportunity Experiment,'' American Economic Review, April 2016.
Chetty and Hendren, ``The Effects of Neighborhoods on
Intergenerational Mobility I: Childhood Exposure and II: County-
Level Estimates,'' Quarterly Journal of Economics, 2018.
\14\ Pollack, Blackford, Du, et al. ``Association of Receipt of
a Housing Voucher With Subsequent Hospital Utilization and
Spending,'' JAMA, 322(21):2115-2124. doi:10.1001/jama.2019.17432,
2019.
\15\ Ludwig, Sanbonmatsu, Gennetian, et al. ``Neighborhoods,
obesity, and diabetes--a randomized social experiment,'' New England
Journal of Medicine; 365(16):1509-1519. doi:10.1056/NEJMsa1103216,
2011.
\16\ Chetty, Friedman, Hendren, Jones, Porter, ``The Opportunity
Atlas: Mapping the Childhood Roots of Social Mobility,'' NBER
Working Paper No. 25147 (Jan. 2020), available at https://opportunityinsights.org/paper/the-opportunity-atlas/.
\17\ Id.
\18\ Chetty, Hendren, Jones, and Porter, ``Race and Economic
Opportunity in the United States: An Intergenerational
Perspective,'' Quarterly Journal of Economics, Vol. 135, Issue 2,
711-783 (May 2020), available at https://opportunityinsights.org/paper/race/.
\19\ Chetty, Stepner, Lin, Scuderi, Turner, Bergeron, and
Cutler, ``The Association Between Income and Life Expectancy in the
United States, 2001-2014,'' The Journal of the American Medical
Association, 315(16): 1750-1766 (2016).
---------------------------------------------------------------------------
For these reasons, the proposed rule requires program participants
to not only identify areas that are segregated based on race and other
protected characteristics, but also areas (many of
[[Page 8527]]
them the same ones) that lack critical community assets. Such an
inquiry is vital to understanding how the neighborhood where someone
grows up in many ways determines their life outcomes, including for
example by perpetuating significant wealth gaps and health and
educational disparities and limiting the overall opportunities that
person may have. This is not intended to be a burdensome inquiry. In
many cases, it will be clear from local knowledge (including what is
gathered through community engagement) that disparities in community
assets exist.
This proposed rule also recognizes that there is a need to take a
balanced approach when devising ways to overcome fair housing issues.
The affirmatively furthering fair housing mandate is intended to
increase fair housing choice for persons of all protected class groups,
including those with limited income and economic resources. HUD also
recognizes that there are often economic factors affecting fair housing
choice, which include rising rents and displacement from existing
housing due to gentrification. Program participants, in undertaking a
balanced approach to overcome fair housing issues should consider the
impact of these economic factors. Affirmatively furthering fair housing
can involve both bringing investments to improve the housing,
infrastructure, and community assets in underserved communities as well
as enabling families to seek greater opportunity by moving to areas of
the community that already enjoy better community infrastructure and
community assets. Therefore, HUD's proposed rule supports program
participants' choice to engage in place-based activities, such as
preserving affordable housing in particular neighborhoods while making
complementary investments in other infrastructure and assets in those
neighborhoods, as well as those choices that promote mobility,
including housing mobility programs, in order to increase access to
well-resourced areas and opportunity for protected class groups that
have historically been housed in underserved neighborhoods.
The proposed rule calls on program participants to identify, and
over time remedy, unequal access to homeownership opportunities--which
is a more direct focus than was required under the 2015 AFFH Rule--
because of race, color, national origin, disability, or other protected
characteristics. Inequality in access to homeownership has created a
ballooning wealth gap among racial and ethnic groups. Homeownership is
generally the most traditional and stable way for a family to
accumulate wealth; however, this advantage has primarily been made
available only to White families, even today.\20\ As one researcher
described the results of a 2019 study, the median White family had
eight times the wealth of the median Black family and five times the
wealth of the median Latino or Hispanic family.\21\ It is clear that
eliminating discrimination from housing-related transactions today will
be insufficient to reduce the wealth gap created over many years.\22\
While some efforts are underway to remedy this wealth gap, research
also shows that current programs that incentivize homeownership may not
be designed in a manner that would result in a closing of the wealth
gap and an increase in access to homeownership opportunities for
persons of color, other protected class groups, and underserved
communities.\23\ There are myriad ways to reimagine how homeownership
incentives can be created and utilized to promote these opportunities
more fairly. Evaluating how homeownership can be incentivized,
including through public-private partnerships, and made a reality for
members of protected class groups and underserved communities may be
one way that program participants can affirmatively further fair
housing, and this proposed rule explicitly creates space for them to do
so.
---------------------------------------------------------------------------
\20\ See McCargo and Choi, ``Closing the Gaps: Building Black
Wealth through Homeownership,'' Urban Institute (2020), available at
https://www.urban.org/research/publication/closing-gaps-building-black-wealth-through-homeownership/view/full_report.
\21\ Schuetz, ``Rethinking Homeownership Incentives to Improve
Household Financial Security and Shrink the Racial Wealth Gap,''
Brookings Blueprints for American Renewal & Prosperity (2020),
available at https://www.brookings.edu/research/rethinking-homeownership-incentives-to-improve-household-financial-security-and-shrink-the-racial-wealth-gap/.
\22\ Id.
\23\ Id.
---------------------------------------------------------------------------
In addition to the wealth gap, other barriers to homeownership
exist for other protected class groups. For example, program
participants may identify--and then set goals to remedy--a lack of
accessible housing that prevents individuals with disabilities from
experiencing housing choice. A 2015 analysis of 2011 American Housing
Survey data found that this was a widespread challenge.\24\
---------------------------------------------------------------------------
\24\ Accessibility of America's Housing Stock: Analysis of the
2011 American Housing Survey (AHS), https://www.huduser.gov/portal/publications/mdrt/accessibility-america-housingStock.html.
---------------------------------------------------------------------------
D. Summary of Proposed Changes to HUD's July 16, 2015 Final Rule
a. Streamlined Analysis Will Reduce Burden
Under the 2015 AFFH Rule, program participants were required to use
an Assessment Tool to conduct their Assessments of Fair Housing (AFHs).
The Assessment Tool required them to address more than ninety questions
and rely on HUD-provided data, local data, and local knowledge to
answer all questions. The Assessment Tool also contained a list of over
forty contributing factors.\25\ The factors had to be identified and
prioritized for each fair housing issue based on the responses to the
questions and data analysis conducted.
---------------------------------------------------------------------------
\25\ Under the 2015 AFFH Rule, a contributing factor or fair
housing contributing factor was defined as ``a factor that creates,
contributes to, perpetuates, or increases the severity of one or
more fair housing issues. Goals in an AFH are designed to overcome
one or more contributing factors and related fair housing issues. .
.'' 24 CFR 5.152 (2015).
---------------------------------------------------------------------------
While the Assessment Tool had the worthwhile goal of ensuring that
program participants conducted a thorough analysis in accordance with a
standardized process, HUD now proposes a modified approach that is
intended to make it simpler for program participants to identify fair
housing issues and thus allow them to focus more of the planning
process on setting meaningful fair housing goals. While HUD continues
to believe that an analysis and evaluation of current and historic
circumstances in a program participant's community is necessary to
determine appropriate fair housing goals, and that such analysis must
be informed by data as well as local knowledge and community input,
such objectives can be achieved without requiring program participants
to undertake as much independent burden.
Accordingly, this proposed rule eliminates the required use of an
Assessment Tool and instead, in Sec. 5.154, sets out a streamlined
analysis that program participants must follow to develop their Equity
Plans. The required content, which is different for consolidated plan
participants and PHAs, consists of fewer questions than the Assessment
Tool, and HUD proposes to allow program participants to determine the
format for responding to the questions. HUD believes these questions
constitute the core of the fair housing inquiry that is required to
identify fair housing issues, including what may be causing those
issues, and set meaningful fair housing goals. HUD specifically
solicits comment below on
[[Page 8528]]
whether the questions in Sec. 5.154 are easily understood to require
this type of response and whether different or additional questions are
needed. HUD believes that a more flexible format will allow program
participants to tailor responses to local needs and priorities. The
proposed rule still requires program participants to ground their
analysis in HUD-provided data, local data, and local knowledge
(including information obtained during the community engagement
process), but does not require a program participant to provide a
complete description of the data analyzed in response to each question.
Instead, the written responses to the questions should describe the
fair housing issues and their causes present in the program
participant's geographic areas of analysis, and describe the key
sources of information relied upon in fair housing issues and their
causes sufficiently to ensure that responses are grounded in data and
local knowledge.
By streamlining the written analysis, HUD believes the proposed
rule will reduce burden for program participants in conducting their
Equity Plans, will result in clearer and more direct identification of
fair housing issues, and will allow program participants and their
communities to place greater focus on the real task at hand--setting
and implementing fair housing goals that are tailored to overcome the
fair housing issues they collectively face. HUD also believes that the
streamlined written analysis that focuses more on identifying fair
housing issues and related causes will enable more program participants
to establish meaningful fair housing goals that are concrete and
measurable without the need for consultants and contractors.
For similar reasons, HUD is also eliminating the need to identify
and prioritize factors contributing to fair housing issues as part of
the required analysis within each section of the Assessment Tool
provided under the 2015 AFFH Rule. While the lists of contributing
factors included in the 2015 AFFH Rule's Assessment Tool were intended
to help program participants set meaningful goals to remedy fair
housing issues by first requiring them to identify the causes of those
issues, HUD's experience in implementing the 2015 AFFH Rule showed that
this step led to confusion without leading to the development or
implementation of meaningful fair housing goals. Program participants
are still required to assess the underlying reasons for the fair
housing issues they face as part of determining the best and most
effective approaches for overcoming them, though HUD believes the
approach taken under the 2015 AFFH Rule did not function as initially
envisioned.
Ultimately, because of this proposed rule's emphasis on outcomes,
HUD believes it will be unnecessary for program participants to rely on
contractors, consultants, or other experts that may be needed for a
heavily data-driven written analysis. At the same time, HUD believes
the simplified analysis still requires the core fair housing analysis--
including engagement with the data provided by HUD--to drive meaningful
goal setting.
b. Revised Fair Housing Planning Procedures Will Simplify
Implementation, Reduce Burden, and Increase Transparency
This proposed rule modifies many of the procedures for how fair
housing planning is implemented by program participants and their
submissions reviewed by HUD compared to the 2015 AFFH Rule based on
HUD's own experiences and the feedback of stakeholders regarding their
experience with the 2015 AFFH Rule worked in practice.
First, while HUD's 2015 AFFH Rule was designed to provide program
participants with maximum flexibility for how to collaborate on an AFH,
the two different types of collaboration (joint program participants
and regionally collaborating program participants) proved unnecessarily
confusing. HUD is proposing to maintain the flexibilities for program
participants to collaborate on their Equity Plans, while simplifying
the actual procedures for those collaborations.
Second, the 2015 AFFH Rule provided for only 60 days for HUD's
initial review of a submitted AFH and required program participants to
have an accepted AFH for their consolidated plan, annual action plan,
or PHA Plan to be approved, which in turn meant that the failure to
have an accepted AFH could result in the loss of funding for program
participants and their communities. In practice, this created
unnecessary pressure on HUD and program participants to ensure that an
AFH was accepted in a relatively short period of time to avoid risking
funding that is designed to help low-income families and underserved
communities. This timing also limited the extent to which HUD could
work with program participants to revise a submitted plan to ensure
full compliance with the rule and put program participants on a path to
meaningful fair housing achievements. HUD has revised these procedures
in several ways to allow a fuller review and revision process that
ultimately results in compliant Equity Plans and meaningful actions by
program participants that implement fair housing goals. HUD proposes to
increase the review period for submitted plans from 60 to 100 days,
providing HUD with more time to work with all program participants to
improve their Equity Plans after submission to ensure the Equity Plan
meets the regulatory requirements set forth in this proposed rule. The
proposed rule provides that HUD can extend that review period for good
cause. The proposed rule provides that if a program participant does
not have an accepted Equity Plan, HUD may approve a consolidated plan
or PHA Plan but only if the program participant furnishes special
assurances that require the program participant to achieve an Equity
Plan that meets the requirements of this proposed rule within 180 days
of the end of HUD's review period for the consolidated plan or PHA
Plan, as applicable, and that require the program participant to then
amend the consolidated plan, annual action plan, or PHA Plan upon HUD's
acceptance of the Equity Plan. As a result, HUD will have a clear
mechanism to remedy noncompliance with the requirement to have an
accepted Equity Plan, including the ability to take a range of actions
(up to and including the cut-off of Federal funding where appropriate)
against program participants who fail to provide or comply with such
special assurances. HUD's expectation is that review of most Equity
Plans will conclude with an acceptance, but the additional available
procedures contained in this proposed rule provide mechanisms for HUD
to take a progressive series of steps to obtain compliance in cases
where this expectation is not met.
Third, while the 2015 AFFH Rule endeavored to align the AFH with
program participants' other planning cycles, HUD recognizes that this
approach led to difficulty for program participants in determining the
date by which their AFHs were required to be submitted. This proposed
rule, while still generally aligning Equity Plan cycles with other
program cycles, contains clearer submission deadlines to allow program
participants and the public to know with certainty when an Equity Plan
will be due to HUD. Furthermore, program participants will have more
time to prepare and refine their Equity Plans. HUD also expects to
provide more robust technical assistance throughout the planning
process. Based on this, and the changes to the required analysis
explained throughout this preamble, HUD believes
[[Page 8529]]
it will be unnecessary for program participants to rely on contractors,
consultants, or other experts that they may have chosen to use under
the 2015 AFFH Rule. HUD is committed to building stronger partnerships
with its program participants in order to fully implement the AFFH
mandate.
Fourth, the 2015 AFFH Rule required program participants to report
on their progress in subsequent AFHs--essentially, once every five
years. HUD believes both that program participants should provide more
regular progress updates and that they may need greater flexibility to
adjust, revise, or reposition their fair housing goals on a more
regular basis, particularly if program participants achieve their goals
and need to establish new ones. HUD also believes that transparency
around this progress evaluation is necessary to ensure that the
community and members of the public are aware of the progress being
made, including whether there are obstacles preventing progress from
occurring. For this reason, HUD has included the requirement that, as
part of their Equity Plans, program participants submit to HUD annual
progress evaluations that summarize the status of the implementation of
the fair housing goals. HUD does not anticipate that these progress
evaluations will be long documents and expects many program
participants could meet this requirement in a one- or two-page summary.
HUD will also post these annual progress evaluations on its public AFFH
web page to maximize the transparency of the progress being made. At
the same time, the proposed rule provides a mechanism for program
participants to seek revision of their established goals at these
annual checkpoints.
Finally, the 2015 AFFH Rule's review process was not transparent
enough to allow the public to know why HUD accepted or did not accept
an AFH. This proposed rule creates a more transparent review process,
pursuant to which submitted Equity Plans will be posted on HUD's AFFH
web page, the public will have the opportunity to comment on submitted
plans (as described further below), and HUD will publish its decisions
on Equity Plan submissions. HUD believes that increasing the
transparency around its review of Equity Plans will promote engagement
by members of the public in the fair housing planning process and will
serve to keep HUD and its program participants accountable for meeting
their obligation to affirmatively further fair housing. Ultimately, HUD
believes that, by having a transparent process, program participants
will be better positioned to implement the fair housing goals
established in their Equity Plans because their communities will be
better equipped to contribute and hold program participants
accountable.
c. Modified Community Engagement, Consultation, and Publication
Requirements Will Increase Transparency
HUD recognizes that transparency and inclusion are necessary
components of implementing the AFFH rule in a manner that ensures that
the people the rule is meant to help have a significant voice in
shaping outcomes. In this proposed rule, HUD offers modifications to
what the 2015 AFFH Rule termed ``community participation''--in the now
revised ``community engagement'' section at Sec. 5.158--to include
requirements that HUD believes are more likely to lead to broader
engagement, particularly by members of protected class groups and other
underserved communities who have historically been excluded from these
types of discussions. The proposed rule would also require consultation
with various types of organizations, such as Fair Housing Assistance
Program agencies and Fair Housing Initiative Program grantees, and
other groups representing underserved communities, which include
organizations that advocate on behalf of individuals with disabilities
such as Centers for Independent Living, Protection & Advocacy Agencies,
Aging and Disability Resource Centers, and Councils on Developmental
Disabilities, among others. In addition, HUD will require program
participants to hold multiple community meetings, at different times of
day, and in different locations throughout the jurisdiction to account
for the needs of shift workers, families requiring childcare, and
individuals with disabilities, among others. Ensuring that all members
of a community have a say in the identification of fair housing issues
and deciding how available resources are allocated is the first step
toward advancing equity for everyone.
HUD intends to maintain an AFFH web page where all submitted Equity
Plans will be posted for public view. The AFFH web page will include
public posting of whether HUD has accepted or has not accepted a plan,
as well as the annual progress evaluation that program participants
submit. HUD believes that creating a central public site where all of
this information can be easily viewed will improve public engagement in
the planning and implementation process by enabling community members
to provide HUD with additional information that may be pertinent to its
review, and to hold program participants accountable for implementing
the fair housing goals established in their accepted Equity Plans. HUD
may publish submitted Equity Plans or portions of such plans on other
HUD-maintained web pages for the purposes of disseminating best
practices and in a searchable information clearinghouse to benefit
program participants and the general public.
d. New Complaint and Enforcement Mechanisms Will Enhance HUD's Ability
To Ensure AFFH Compliance
While the proposed rule continues to focus on planning and goal
setting, HUD is proposing to add a complaint and enforcement mechanism
to help ensure that program participants comply with their duty to
affirmatively further fair housing. This proposed rule, at Sec. Sec.
5.170 through 5.174, would permit the filing of complaints, and for HUD
to open a compliance review in response to a complaint or on its own
initiative, about: a program participant's failure to comply with the
requirements of the proposed rule; failure to comply with an Equity
Plan commitment; or any action that is materially inconsistent with the
obligation to affirmatively further fair housing as defined in this
proposed rule. This proposed rule would set out how HUD will
investigate complaints and conduct compliance reviews and the available
mechanisms for HUD to enforce compliance when a program participant is
found in noncompliance and voluntary resolution cannot be obtained. HUD
has modeled these procedures after existing regulations that implement
Federal civil rights laws, particularly those that apply to recipients
of Federal financial assistance such as title VI of the Civil Rights
Act of 1964 and section 504 of the Rehabilitation Act of 1973, and
therefore are familiar to program participants, all of whom are
recipients of Federal financial assistance from HUD. See 24 CFR parts 1
(Title VI) and 8 (Section 504).
The 2015 AFFH Rule did not include any explicit mechanism for
members of the public to file complaints with HUD regarding a program
participant's failure to comply with the requirements of the regulation
or for HUD to undertake a review of a program participant's compliance.
Instead, the primary enforcement tools were HUD's ability to reject a
submitted Assessment of Fair Housing or challenge a program
participant's certification that it would affirmatively further fair
housing. These tools alone proved to be insufficient
[[Page 8530]]
because they triggered drastic remedies (such as the suspension or
termination of funding) that limited their practical use for ensuring
compliance. HUD uses complaint and compliance review processes as one
of the standard ways it ensures that program participants satisfy other
civil rights obligations that attach to Federal funding and has used
complaint processes in other HUD programs as a means to increase
compliance. HUD proposes to establish a complaint and compliance
process for AFFH, based on its experience implementing the 2015 AFFH
Rule, feedback it received from stakeholders in listening sessions, the
urgent need to address the systemic inequities in housing, and HUD's
belief that community members are well positioned to provide important
information regarding whether program participants are meeting their
commitments made in the planning process and their duty to
affirmatively further fair housing more generally. While HUD proposes
to implement an enforcement mechanism for program participants who fail
to fulfill the AFFH obligation, HUD understands that certain
enforcement mechanisms such as withholding funds could have substantial
impacts on consolidated plan program participants and PHAs and the
people that they serve. The proposed rule would provide HUD with the
ability to tailor remedies appropriately for particular circumstances.
In particular, HUD does not intend to take actions that would adversely
impact families participating in HUD's assisted housing programs, and
is cognizant of the potential for such adverse effects from
conditioning the disbursement of funds for public housing programs
under section 8 or section 9. HUD would maintain a range of enforcement
options that can ensure compliance, including finding a PHA in default
of the Annual Contributions Contract if the circumstances require.
HUD does not intend this complaint and compliance review process to
supplant the planning process as the principal means by which HUD and
its program participants will implement the AFFH obligation and by
which the community will have input into how AFFH compliance takes
place. The proposed rule provides for public input at multiple points
in the planning process, including while the program participant is
developing its Equity Plan and while HUD is reviewing a submitted
Equity Plan. HUD expects that interested members of the public will
actively participate in the community engagement process and raise
concerns in that forum about a program participant's identification of
fair housing issues or establishment of fair housing goals. It also
expects that any concerns the public has regarding a submitted Equity
Plan will be provided during HUD's review of the Equity Plan, since the
proposed rule permits members of the public to submit such information
at that time. HUD will not treat information submitted regarding an
Equity Plan HUD is reviewing as a complaint to be investigated; rather
it will consider it as additional information that may be relevant to
HUD's review of whether the Equity Plan conforms to this rule's
requirements. HUD anticipates that these opportunities for the public
to participate in the Equity Plan process will reduce the need to
resort to the complaint process.
HUD also does not intend the complaint process to be a forum to
challenge program participants' day-to-day activities that have little
nexus to the AFFH obligation. Program participants are on notice of the
types of actions that would be materially inconsistent with their
obligation to affirmatively further fair housing because of prior
guidance provided by HUD (e.g., the 2015 AFFH Rule, the Fair Housing
Planning Guide, the 2015 AFFH Rule Guidebook, and caselaw, including
that cited above, interpreting the AFFH mandate).\26\ HUD, nonetheless,
also commits to providing further guidance as to the alleged conduct
that HUD will accept as meriting an investigation. HUD's experience in
administering other civil rights statutes with similar complaint and
compliance review processes indicates that program participants will
not be subject to investigations or sanctions arising from frivolous
complaints regarding actions that do not actually implicate AFFH
compliance. Additionally, HUD observes that the lack of an explicit
administrative process that both permits the public to file complaints
and authorizes HUD to investigate and take necessary corrective action
has not always permitted program participants to avoid such claims.
Rather, such allegations have been channeled into False Claims Act
suits and other lawsuits or complaints of violations of other laws
against program participants that sometimes required enforcement of
AFFH in unpredictable ways. HUD has also used its authority to ensure
program participant compliance with the Fair Housing Act to investigate
and conciliate complaints of AFFH obligations even in the absence of an
explicit process. HUD believes it will benefit program participants and
the Department to have a regular and defined administrative process for
its consideration of such complaints. As described below, HUD is
specifically soliciting comment on how it can most effectively
institute a complaint and compliance review process to provide as much
notice as possible regarding the proper subjects of complaints and
compliance reviews and ensure that program participants will not be
subjected to frivolous complaints that are not directly tied to the
program participant's obligation to affirmatively further fair housing.
---------------------------------------------------------------------------
\26\ The Fair Housing Planning Guide and 2015 AFFH Rule
Guidebook are available at the Office of Fair Housing and Equal
Opportunity's (FHEO) AFFH web page https://www.hud.gov/AFFH.
---------------------------------------------------------------------------
e. Changes in Definitions Related to the Fair Housing Analysis Will Add
Clarity to and Focus on Core Fair Housing Concepts
As described above, the proposed rule eliminates the need for a
separate Assessment Tool and instead sets out the simplified fair
housing analysis required of program participants. Many of the
definitions in this proposed rule therefore reflect some aspects of
that analysis. HUD has eliminated or modified certain definitions from
the 2015 AFFH Rule in this proposed rule to provide program
participants and the public greater clarity regarding what the
obligation to affirmatively further fair housing encompasses and what
HUD's expectations are for its funding recipients. Additionally, HUD
believes that by creating these new definitions that they will provide
additional information and clarity regarding this proposed rule and the
topics that program participants are expected analyze. The new
definitions include:
``Affordable housing opportunities,'' which refers to
whether members of protected class groups and underserved communities
have equitable access to housing that is affordable to them, including
with respect to where such housing is located, whether it meets the
needs of families of different sizes, whether it meets the
accessibility needs of individuals with disabilities, whether it
affords access to opportunity, including community assets, and whether
there are factors that adversely affect access to affordable housing,
specifically, but not limited to, rising rents, evictions, source of
income discrimination, loss of existing affordable housing;
``Balanced approach,'' which refers to HUD's
acknowledgement of the balancing of various approaches
[[Page 8531]]
program participants can employ when undertaking community planning and
investments, which results in the balancing of a variety of actions to
eliminate the housing-related disparities that result from persistent
segregation or lack of integration, the lack of affordable housing in
well-resourced areas of opportunity, the lack of investment in
community assets in R/ECAPs and other high-poverty areas, and the loss
of affordable housing to meet the needs of underserved communities. The
proposed definition would make clear that both place-based and mobility
strategies are part of a balanced approach necessary to achieve
positive fair housing outcomes. A program participant that has the
ability to create greater fair housing choice outside segregated, low-
income areas should not rely on solely place-based strategies;
``Community assets,'' which refers to the types of assets
that are often not equitably distributed and available within
communities, such as high quality schools, equitable employment
opportunities, reliable transportation services, parks and recreation
facilities, community centers, community-based supportive services, law
enforcement and emergency services, healthcare services, grocery
stores, retail establishments, infrastructure and municipal services,
libraries, and banking and financial institutions;
``Equity or equitable,'' which refers to the consistent
and systematically fair, just, and impartial treatment of all
individuals, including individuals who are members of protected class
groups or parts of underserved communities that have been denied such
treatment, as well as persons otherwise adversely affected by
persistent poverty or inequality;
``Publication,'' which refers to how HUD will maintain web
pages to publicly post Equity Plan materials to enhance transparency
and provide opportunities for communities to learn from one another and
benefit from the innovative thinking of others;
``Underserved communities,'' which refers to the remedial
nature of the AFFH mandate so that groups or classes of individuals, as
well as geographic communities who have historically had inequitable
access to housing, education, transportation, economic, and other
important opportunities, including community assets, within the program
participant's jurisdiction, and HUD would require program participants
to take them into account to ensure communities overcome the systemic
perpetuation of inequity.
HUD believes that building these definitions and others into the
proposed rule itself more directly articulates HUD's expectations for
how program participants can comply with this proposed rule and the
AFFH mandate than leaving such matters to a separate assessment tool as
the 2015 AFFH Rule did.
f. Conforming Amendments to Program Regulations Are Necessary for
Consistency With This Proposed Rule
This proposed rule contains conforming amendments to program
regulations at 24 CFR parts 91, 92, 93, 570, 574, 576, 903, and 983 in
order to ensure consistency between this proposed rule and the
implementation of programmatic requirements for States, local
governments, insular areas, and PHAs. Because HUD and its program
participants are required to administer all programs and activities in
a manner that affirmatively furthers fair housing, establishing
consistent mechanisms in these regulatory provisions is necessary to
ensure that program participants are positioned to fulfill this
obligation.
E. Conclusion
The opportunity to choose where one lives free from barriers or
inequities related to race, color, religion, sex, national origin,
familial status, or disability is at the very heart of the Fair Housing
Act's AFFH mandate. That obligation is meant to ensure that Federal
money, which for too long was used to perpetuate segregation and impose
discriminatory policies, is instead used to dismantle the enduring
legacy of that history. This proposed rule's implementation of the Fair
Housing Act's AFFH mandate requires that communities confront and
commit to changing historic and ongoing discriminatory practices and
policies, engage in proactive planning for the use of Federal funds to
ensure funds are used equitably, and implement meaningful actions that
affirmatively further fair housing. The new regulation carries forward
the core planning process of the 2015 AFFH Rule, and HUD anticipates
that the plans generated by this proposed rule will drive how HUD funds
will be used to advance equity and affirmatively further fair housing.
The proposed rule also modifies some aspects in order to make the
process more user-friendly and less burdensome for program
participants, and more accessible and transparent to the public. HUD's
objective in this proposed rule is to provide greater support for
program participants in performing the necessary analysis and otherwise
meeting their obligations, while requiring more inclusion in the
planning process for communities that historically have had too little
say in it; more transparency for the public as to the decisions that
have been made; and more regular progress reporting and opportunity to
change course to reflect changed circumstances.
HUD is committed to taking active measures to work with its program
participants to develop innovative and consequential ways to
affirmatively further fair housing. For those program participants that
take the AFFH obligation seriously, HUD anticipates that this rule will
be simpler and less burdensome to follow, and that program participants
will find HUD to be a helpful partner as they engage their communities
and seek creative ways to remedy fair housing issues that have too long
been ignored. For those that do not, HUD proposes changes that are
intended to make its review process more robust and to otherwise
provide for vigorous enforcement to ensure that the AFFH mandate is
implemented. Based on the lessons learned from the implementation of
the 2015 AFFH Rule, this proposed rule builds on that rule's successes
and offers a more streamlined, effective approach to empower program
participants and their communities to make informed decisions based on
local circumstances to advance equity and affirmatively further fair
housing.
III. Summary of Proposed Rule
This rule proposes to amend the regulations in 24 CFR parts 5, 91,
92, 93, 570, 574, 576, 903, and 983 as discussed in this section.
Affirmatively Furthering Fair Housing Regulation
This proposed rule would amend HUD regulations in 24 CFR part 5,
subpart A, which contains generally applicable definitions and
requirements that are applicable to all or almost all HUD programs.
This rule proposes to amend existing subpart A by adding new Sec. Sec.
5.150 through 5.180 under the undesignated heading of ``Affirmatively
Furthering Fair Housing.'' These revised or new sections will provide
the regulations that will govern how States, local governments, insular
areas, and PHAs comply with their statutory obligation to affirmatively
further fair housing, but reserves additional sections in subpart A for
HUD to continue to provide regulations that will assist all HUD program
participants in more effectively affirmatively furthering fair housing.
[[Page 8532]]
Affirmatively Furthering Fair Housing: Purpose (Sec. 5.150)
Revised Sec. 5.150 states that the purpose of the AFFH mandate in
the Fair Housing Act is to ensure that Federal funds are used in a
manner to overcome the legacy of public and private policies and
practices that intentionally or unintentionally have created segregated
communities and inequities for people of color and other groups because
of the characteristics the Act protects. The purpose of HUD's AFFH
regulation is to provide program participants with an effective
approach to aid program participants in identifying and taking
meaningful actions to overcome historic patterns of segregation,
promote fair housing choice, eliminate inequities in access to housing
and related opportunities caused by policies or actions that
discriminated on the basis of protected class, and foster inclusive
communities that are free from discrimination. The new AFFH regulation
is intended to provide a straightforward approach for program
participants to advance equity in their communities using Federal
financial assistance from HUD, while ensuring that HUD has a mechanism
to enforce the mandate.
Affirmatively Furthering Fair Housing: Application (Sec. 5.151)
New Sec. 5.151 provides the general applicability of AFFH
requirements as it applies to all of HUD's programs and activities and
makes clear that Sec. Sec. 5.150 through 5.180 in subpart A also
imposes a planning requirement on certain program participants.
Definitions (Sec. 5.152)
New Sec. 5.152 provides the definitions that are used for purposes
of the AFFH regulation and conforming amendments to existing program
regulations. HUD has preserved and modified some of the following
definitions that were included in the 2015 AFFH Rule (and in certain
instances the AFFH IFR), which include ``Affirmatively furthering fair
housing,'' ``Community engagement'' (formerly ``Community
Participation''), ``Data,'' ``Disability,'' ``Fair housing choice,''
``Fair housing issue,'' ``Geographic area,'' ``Integration,'' ``Local
knowledge,'' ``Meaningful actions,'' ``Protected characteristics,''
``Protected class,'' ``Racially or ethnically concentrated areas of
poverty,'' ``Region,'' ``Segregation,'' and ``Significant disparities
in access to opportunity.'' New terms defined in this section include
``Affordable housing opportunities,'' ``Analysis of Impediments to Fair
Housing Choice,'' ``Balanced approach,'' ``Community asset,'' ``Equity
or equitable,'' ``Equity Plan,'' ``Fair housing gals,'' ``Fair housing
goal categories,'' ``Fair housing strategies and actions,'' ``Funding
decisions,'' ``Publication,'' ``Publicly supported housing,''
``Responsible Civil Rights Official,'' ``Reviewing Civil Rights
Official,'' ``Siting decisions,'' ``Underserved communities,'' and
``Well-resourced areas.''
The definition of ``affirmatively furthering fair housing''
explains program participants' obligations under the Fair Housing Act
as described throughout this preamble. This definition provides greater
clarity than the definition contained in the 2015 AFFH Rule and the
AFFH IFR by expressly stating that the duty to affirmatively further
fair housing extends to all of a program participant's activities,
services, and programs relating to housing and community development;
it extends beyond a program participant's duty to comply with Federal
civil rights laws and requires a program participant to take actions,
make investments, and achieve outcomes that remedy the pervasive
segregation and disparities the Fair Housing Act was designed to
redress.
The definition of ``affordable housing opportunities'' is included
in this proposed rule to assist program participants in identifying
whether and in which areas of their communities members of protected
class groups lack access to affordable housing opportunities. The
definition also includes that the housing must comply with
affordability and habitability requirements. This definition also
includes the broader concept of whether members of protected class
groups and underserved communities have equitable access to housing
that is affordable to them, including with respect to where such
housing is located and whether it affords access to opportunity,
including community assets. HUD anticipates that this definition, as
incorporated into the analysis required by Sec. 5.154, will provide a
connection between housing affordability, protected characteristic, and
access to other opportunities, such as community assets. This
definition accounts for whether housing stability for protected class
groups is adversely affected by various factors, including rising
rents, loss of existing affordable housing, displacement due to
economic pressures, evictions, source of income discrimination, or code
enforcement. This definition also contemplates that individuals with
disabilities who need accessible housing have affordable housing
opportunities that meet their needs in areas of their community that
also afford access to opportunity. HUD notes that HUD is not changing
the standard for HUD-assisted housing in program regulations with the
inclusion of this definition for purposes of the Equity Plan analysis.
By assessing where affordable housing is located in a community, as
well as who has been successful in accessing that housing, program
participants can better understand how the location of such housing, in
relation to community assets, promotes integration, provides access to
opportunity or is a barrier to such access, and whether there are laws,
policies, or practices in their jurisdictions that may impede the
provision of affordable housing in certain areas, such as well-
resourced areas. With this understanding, program participants will be
better positioned to set fair housing goals that can be designed and
reasonably expected to result material positive change. This definition
is not intended to align with HUD's programmatic requirements, and so
whether housing meets this definition does not speak to whether it
complies with programmatic rules.
The definition of ``Analysis of Impediments to Fair Housing
Choice'' provides context for the manner in which program participants
will meet their obligations to affirmatively further fair housing until
such time as they are required to submit an Equity Plan to HUD.
The definition of ``balanced approach'' is added to articulate
HUD's acknowledgement that different strategies for remedying fair
housing issues can be employed based on the facts and circumstances
specific to a program participant's community. Where a community has
been starved of investment, some may want to leave for other
communities, while others will want to bring those resources to bear to
improve the circumstances of where they live. Accordingly, HUD has
added this definition to ensure that program participants can adopt
different types of strategies that will meaningfully increase fair
housing choice in their communities, including by choosing from an
array of place-based strategies (e.g., the preservation of existing
affordable housing or increased investments in community assets) and
mobility strategies (e.g., improved housing counseling, assessing how
school assignments are made, or building affordable housing in well-
resourced areas). A combination of actions will likely be necessary in
most communities, which would include both place-based and mobility
strategies. The proposed rule requires
[[Page 8533]]
that a program participant's goals, taken together, meet the definition
of a balanced approach. HUD provides that place-based and mobility
strategies must be designed to achieve positive fair housing outcomes
(including accessibility for individuals with disabilities) and that a
program participant that has the ability to create greater fair housing
choice outside segregated, low-income areas should not rely solely on
place-based strategies. HUD believes that the vast majority of, if not
all, program participants will be able to set goals that rely on both
place-based and mobility-based strategies. HUD seeks specific comment
on whether this is a reasonable requirement for every program
participant and, if not, the specific circumstances under which it
would not be.
The definition of ``community assets'' is added to describe the
sorts of high-quality assets that are characteristic of communities
that have not suffered from disinvestment and that affect the quality
of housing opportunities. It is meant to be a non-exhaustive but
illustrative list of assets. Consideration of the location of and
access to community assets, by protected class, is an integral part of
the analysis of the Equity Plan, which HUD anticipates will allow
program participants to be better positioned to understand the specific
fair housing issues within their local communities. HUD does not intend
to require analysis of community assets to be particularly burdensome
and will provide data and technical assistance to support this
analysis.
The definition of ``community engagement'' is included to provide
program participants with a baseline understanding of what the
obligation, more specifically delineated at Sec. 5.158, entails.
The definition of ``disability'' in this proposed rule, as in the
2015 AFFH Rule, is intended to be consistent with other Federal civil
rights laws with which program participants must comply, such as
section 504 of the Rehabilitation Act of 1973 and the Americans with
Disabilities Act of 1990 (ADA), as amended by the ADA Amendments Act of
2008. HUD incorporates by reference the definition of disability under
section 504 and the ADA, consistent with the Attorney General's
interpretations of that definition, see 28 CFR 35.108, for purposes of
the affirmatively furthering fair housing obligation under section
808(e)(5) so as to provide consistency and clarity to HUD program
participants, which are all already bound by the same definition under
those statutes.
The definition of ``equity or equitable,'' which is consistent with
Executive Order 13985, is intended to provide program participants with
a framework for how to assess their communities in a manner that is
fair, just, and impartial.
The definition of ``Equity Plan'' provides a less burdensome and
more straightforward approach to fair housing planning and replaces the
Assessment of Fair Housing that was required by the 2015 AFFH Rule. The
Equity Plan consists of the content included in Sec. 5.154, is
submitted to HUD for review, and includes an annual progress
evaluation. Program participants may submit an individual Equity Plan
or may partner with other program participants to submit a joint Equity
Plan, as provided for in Sec. 5.160.
The definition of ``fair housing goals'' sets forth how program
participants will overcome the fair housing issues identified in their
Equity Plans. ``Fair housing goals'' are designed to go beyond the
status quo in the program participant's community and result in
tangible, positive, and measurable fair housing outcomes. Each fair
housing goal will include a description of the fair housing issue it is
designed to overcome.
The definition of ``fair housing goal categories'' details the
seven categories for which program participants must establish fair
housing goals to overcome fair housing issues. The purpose of this
definition, and related provisions, is to help focus program
participants' prioritization of which identified fair housing issues
they will set goals to remedy. HUD understands that, in many cases, it
will be beyond the capacity of program participants to set goals to
remedy every identified issue in a single 5-year cycle. The fair
housing goal categories are intended to provide program participants
with a reasonable number of specific areas in which to focus their
goals. Program participants may address multiple fair housing issues
through a single goal, and doing so need not be difficult. Accordingly,
the proposed rule does not require a goal to be set for every
identified fair housing issue, but does require that a goal be set that
addresses issues in each of the seven fair housing goal categories,
which are outlined in Sec. 5.154(f). HUD believes these to be at the
core of the AFFH obligation.
The definition of ``fair housing issues'' is modified from the
definition in the 2015 AFFH Rule and provides the substantive areas of
analysis that program participants will assess in their Equity Plans
before setting fair housing goals. ``Fair housing issues'' now also
include such conditions as ongoing local or regional segregation or
lack of integration, racially or ethnically concentrated areas of
poverty, significant disparities in access to opportunity, inequitable
access to affordable housing opportunities and homeownership
opportunities, laws or ordinances that impede the provision of
affordable housing in well-resourced areas, evidence of discrimination
or violations of civil rights law or regulations related to housing,
and inequitable distribution of local resources, which may include
municipal services, emergency services, community-based supportive
services, and investments in infrastructure.
The definition of ``fair housing strategies and actions'' helps
clarify how program participants will implement the fair housing goals
established in their Equity Plans, including with respect to the
allocation of funding that may be necessary for purposes of achieving
the fair housing goals.
The definitions of ``funding decisions'' and ``siting decisions''
refer to a set of decisions that program participants make about the
allocation of HUD funds and other investments in their communities,
decisions that have contributed to inequity and segregation in the past
and that this proposed rule seeks to reorient in order to advance
equity and undo patterns of segregation going forward.
The definition of ``geographic area'' delineates the specific
levels of geographic areas of analysis that certain types of program
participants must undertake when conducting the analysis required in
the Equity Plan by Sec. 5.154. These largely restate the geographic
areas of analysis that were established by the 2015 AFFH Rule and the
various Assessment Tools that implemented it. HUD flags that while the
expected geographic area of analysis for State and insular areas
includes the whole State or insular area, including entitlement and
non-entitlement areas, this does not change existing requirements that
restrict States to using CDBG and other Community Planning and
Development funds only in non-entitlement areas.
The definitions of ``integration,'' ``segregation,'' ``racially or
ethnically concentrated areas of poverty,'' and ``significant
disparities in access to opportunity,'' are included because they are
necessary components of the required analysis in order to set and
implement meaningful fair housing goals. When appropriate, they
identify cross-references to other legal standards that are also
relevant to how these terms apply to specific classes protected under
[[Page 8534]]
the Fair Housing Act (e.g., integration and individuals with
disabilities).\27\
---------------------------------------------------------------------------
\27\ In 1999, the United States Supreme Court issued the
landmark decision in Olmstead v. L.C., 527 U.S. 581 (1999),
affirming that the unjustified segregation of individuals with
disabilities is a form of discrimination prohibited by title II of
the ADA. Following the Olmstead decision, there have been increased
efforts across the country to assist individuals who are
institutionalized or housed in other segregated settings to move to
integrated, community-based settings. As a result of the Olmstead
decision and the integration mandate of section 504 of the
Rehabilitation Act included in HUD's section 504 regulation at 24
CFR part 8, HUD has consistently recognized the great need for
affordable, integrated housing opportunities where individuals with
disabilities are able to live and interact with individuals without
disabilities, while receiving the health care and long-term services
and supports they need.
---------------------------------------------------------------------------
The definition of ``homeownership opportunities'' is included in
this proposed rule so that program participants, in conducting their
analyses, consider whether members of protected class groups have
equitable access to homeownership in their jurisdictions, and if not,
to determine what barriers exist to attaining homeownership so that
fair housing goals can be established.
The definition of ``publication'' encompasses the posting of the
Equity Plan materials for review on a HUD-maintained web page, which
will facilitate transparency of the local decisions made and the HUD
review process. The public will be able to track the status of HUD's
review and provide feedback to HUD directly, and communities will be
able to learn and benefit from the innovative ideas of others.
The definition of ``publicly supported housing'' sets forth the
types of assisted affordable housing that program participants will
analyze. HUD is providing data regarding the location and demographics
of certain types of such housing, and program participants will also
rely on local data and local knowledge for other types of assisted
housing operated in the jurisdiction.
The definitions of ``Responsible Civil Rights Official'' and
``Reviewing Civil Rights Official'' clarify the Departmental official
with the authority to make determinations regarding a program
participant's Equity Plan and its compliance with its obligation to
affirmatively further fair housing under the Fair Housing Act.
The definition of ``underserved communities,'' which is consistent
with Executive Order 13985, includes groups or classes of individuals,
as well as geographic communities that disproportionately include
members of particular protected class groups, who have historically had
inequitable access to housing and other community assets.
The definition of ``well-resourced areas'' is included to emphasize
that program participants must assess which areas and whether the
residents who reside in such areas have high-quality and well-
maintained community assets (in view of local economic circumstances),
as defined in Sec. 5.152, which afford residents genuine access to
opportunity (e.g., infrastructure, high performing schools, economic
opportunity, etc.) as a result of public and private investments.
Equity Plan (Sec. 5.154)
New Sec. 5.154 sets forth the substantive requirement for program
participants to evaluate their communities in order to more effectively
affirmatively further fair housing and advance equity. This section
sets forth the seven areas of analysis, which will also serve as fair
housing goal categories for which program participants must establish
fair housing goals. HUD seeks comment on whether it is appropriate to
require every program participant to establish goals in each of the
seven categories.
The process described in this section consists of fewer questions
than previously required by the 2015 AFFH Rule to which program
participants must respond. The specific required questions are codified
in this section, but program participants have the flexibility to
conduct their Equity Plan in a manner and format that best suits their
local needs, so long as the required content is submitted to HUD. HUD
will provide program participants with data that include maps, tables,
and may include technical assistance that aids program participants in
conducting their analysis. HUD will also continue to provide the
existing mapping tools, first provided under the 2015 AFFH Rule, and is
exploring ways to improve those offerings and provide additional
relevant data. In addition, for purposes of the analysis related to
access to affordable housing opportunities, HUD will continue to
provide data to assist program participants in assessing disparities
among protected class groups based on factors of cost burden, severe
cost burden, overcrowding (particularly for large families), and
substandard housing conditions. HUD believes this approach will better
facilitate the discussions in communities around how to develop and
implement meaningful fair housing goals. While HUD's approach under the
2015 AFFH Rule often yielded meaningful fair housing goals, HUD now
understands that requiring all program participants to perform
extensive data analysis themselves and show their work in a written
submission (i.e., requiring program participants to recite back to HUD
what the HUD-provided data showed) may have impeded some program
participants' ability to focus on outcomes. HUD is now proposing to
simplify the required analysis and assist program participants in
understanding how to use the relevant data to identify fair housing
issues. This will allow program participants to place a greater
emphasis on developing fair housing goals, making investment and
funding decisions in furtherance of those fair housing goals, and
listening to members of the community who have historically lacked
equitable participation in such decisions. When establishing fair
housing goals, program participants may adopt a small number of goals
if such goals could ultimately result in outcomes that have a
significant impact toward advancing equity for protected class groups
by reducing the adverse effects of fair housing issues. HUD recognizes
that fair housing goals may be short-term, in that they can be achieved
relatively quickly, or long-term, in that they may take more than one
funding cycle, and that program participants may set both short- and
long-term goals in order to ensure that they ultimately affirmatively
further fair housing.
Paragraphs (a) and (b) of Sec. 5.154 provide the general
requirement to conduct and submit an Equity Plan, including the
obligation to engage the community in the development of the Equity
Plan. Paragraph (b) makes clear that certain portions of the analysis
may rely on local data, local knowledge, and information obtained
through community engagement, particularly if HUD is unable to provide
data for a specific topic required to be included as part of the
analysis. Paragraph (c) provides the general content that must be
included in a program participant's Equity Plan and the requirement to
incorporate the Equity Plan into subsequent planning documents such as
the consolidated plan, annual action plan, and PHA Plan (or any plan
incorporated therein) so that program participants can appropriately
allocate necessary funding for the implementation of fair housing
goals. Paragraph (d) provides the specific content the Equity Plan must
contain for local governments, States, and insular areas, including the
questions to which these program participants must respond. The
questions consist of: (1) demographics; (2) segregation and
integration; (3) R/ECAPs; (4) access to community assets; (5) access to
affordable housing opportunities; (6) access to homeownership and
economic
[[Page 8535]]
opportunity; and (7) local policies and practices impacting fair
housing. Paragraph (e) provides the specific content the Equity Plan
must contain for PHAs, including the questions to which PHAs must
respond. The questions consist of: (1) demographics; (2) segregation
and integration; (3) R/ECAPs; (4) access to community assets and
affordable housing opportunities; and (5) local policies and practices
impacting fair housing. As noted above, HUD welcomes comment on whether
these questions should be modified for the purposes of small PHAs or if
HUD should consider increased flexibilities PHAs can use to comply with
the Equity Plan requirement or alternative approaches HUD can use to
ensure that small PHAs comply with their obligations to affirmatively
further fair housing.
To assist program participants in conducting their Equity Plans'
analysis, HUD intends to continue providing data that program
participants can rely on to answer most of the questions that guide the
proposed rule's required analysis. Many program participants and
others, including researchers, found the raw data HUD provided under
the 2015 AFFH Rule to be invaluable. HUD is committed to continuing to
provide such data, to improving its current data and mapping tools
(e.g., the AFFH-T Data & Mapping Tool), and to building additional
tools and data products to further facilitate the fair housing
analysis. For example, HUD is contemplating developing a flexible data
tool for comparing the locations and demographics of publicly supported
housing with patterns of segregation and R/ECAPs. A version of this
tool is currently available in the AFFH-T Data & Mapping Tool, in the
``Query Tool'' option, and HUD would welcome feedback on potential
improvements to this functionality. Additionally, as previously
described, HUD is contemplating various ways to present this data to
program participants outside the AFFH-T interface and to provide
technical assistance, which may include explanations that assist
program participants in understanding how to use the data to identify
fair housing issues.
In addition, HUD intends to issue guidance and technical assistance
on how to conduct an Equity Plan analysis and set appropriate goals.
HUD intends to tailor this guidance to the various types of program
participants, including State agencies and smaller and rural PHAs and
consolidated planning agencies. HUD recognizes the wide range of
different types of housing and community and economic development
agencies that administer these vital programs at the State and local
level, and that many of them have unique geographies and jurisdictional
boundaries as well as unique data-related needs.
Program participants will already be familiar with several of the
key Equity Plan questions. For example, HUD notes that almost all
program participants will already be familiar with the analysis of
disparities in access to community assets and affordable housing
opportunities, including for protected class groups. To the extent the
proposed rule's analysis of ``affordable housing opportunities''
overlaps with analysis already conducted for the consolidated plan, and
often adopted also by PHAs, there is little additional burden on
program participants in conducting this part of the analysis in the new
Equity Plan. Similarly, new analysis conducted for the Equity Plan can
also inform similar parts of the consolidated plan and PHA Plans. HUD
recognizes that some program participants may not have direct expertise
to be able to fully answer some questions in the Equity Plan analysis
section, for example those asking about access to schools,
transportation, or employment opportunities. HUD expects that in
addition to HUD-provided data, program participants' use of local data
and local knowledge, including that gathered though the community
engagement process, will assist program participants with conducting
these analyses.
Many of the questions are intended to be an opportunity to solicit
informed feedback from the community, including local organizations
that already work in these spaces, to assist the program participant in
assessing disparities in access to community assets by protected class
groups. HUD expects the community engagement process may be
particularly helpful in consideration of certain aspects of the
analysis. HUD does not anticipate that questions relying primarily on
input from local data and local knowledge, which may be obtained
through the community engagement process, should pose any major
additional burden. As provided for in the proposed rule's definition of
``local data'' in Sec. 5.152, the proposed rule requires consideration
only of such data that ``can be found through a reasonable amount of
search [and] are readily available at little or no cost.'' To provide
one example, questions asking about ``underserved communities'' may not
require a granular, data-driven analysis in order to identify fair
housing issues. Rather, program participants are encouraged to actively
engage with these communities in order to obtain the information
necessary to conduct the analysis and to identify fair housing issues.
This includes opening dialogues and engaging with individuals
experiencing homelessness, survivors of domestic violence, people with
criminal records, persons identifying as Lesbian, Gay, Bisexual,
Transgender, Queer + (LGBTQ+), individuals with disabilities, and
others who often have no established forum to inform local policymakers
of their issues and needs.
Some of the proposed rule's questions, in asking about changes in
demographics or economic trends, ask about a concept known to many
stakeholders as ``gentrification.'' The term is used here because of
its common colloquial use to facilitate the program participant's and
community's ease of understanding the concepts at issue in order to
have required discussion about community trends. HUD notes the robust
debate around the term ``gentrification'' and its impact on communities
in both social science research and among communities themselves, and
program participants can also consider such discussions in their
review. This proposed rule does not establish a HUD definition of
``gentrification,'' nor will program participants be required to
precisely define the term.
For questions that ask about ``livable wage jobs,'' while HUD
provides several data points that relate to employment, labor
participation, and proximity to jobs, it acknowledges that the data may
not capture the full picture. Program participants may have local data
and local knowledge that addresses this, including information obtained
from local organizations that participate in the community engagement
process.
As noted above, HUD does not intend for program participants to
document the performance of an extensive data-driven analysis for most
questions, and instead intends for program participants to focus on
effective goal setting to address identified issues. The analysis in
the proposed rule is intended to facilitate a balanced approach by
permitting the identification of fair housing issues susceptible to
being remedied through a variety of policies. For example, if
disparities by protected class group are identified in the questions
regarding homeownership opportunities, responsive goals could include
specific policies to assist first-time homebuyers and expand
availability of affordable homeownership opportunities, such as new
construction of affordable single-family homes, downpayment assistance
[[Page 8536]]
using the HOME Investment Partnerships (HOME) program, or zoning code
reform. Similarly, an identified issue regarding lack of affordable
housing opportunities in certain areas could be remedied through goals
such as expanding rental availability through new placements of HOME,
Housing Trust Fund (HTF), and Low-Income Housing Tax Credits (LIHTC)
units, geographically targeted project-based vouchers, improved Housing
Choice Voucher mobility, or addressing unnecessary regulatory barriers
to affordable housing production, strengthening tenant protections, and
preservation efforts.
Paragraph (f) describes how program participants must identify and
prioritize the fair housing issues for each fair housing goal category.
In determining how to prioritize fair housing issues within each fair
housing goal category, program participants shall give highest priority
to fair housing issues that will result in the most effective fair
housing goals for achieving material positive change for underserved
communities, taking into account that different protected class groups
may be impacted by different fair housing issues. Paragraph (g) sets
the requirements for fair housing goals and for including fair housing
goals in the Equity Plan. This paragraph is intended to provide program
participants with greater clarity on what HUD will look for when an
Equity Plan is submitted for review, including whether the fair housing
goals, when taken together, are designed to overcome the effects of
each prioritized fair housing issue.
Broadly, the proposed rule requires program participants to set and
implement fair housing goals that are designed and can be reasonably
expected to result in a material positive change relating to the fair
housing issues that they are intended to address. HUD expects that, in
subsequent progress reports and planning cycles, program participants
will be able to point to the changes that have resulted from
implementation of the goals established in their Equity Plan. For
example, if a program participant has identified as an issue
segregation in certain areas of its jurisdiction and has set fair
housing goals to reduce that segregation, it should be able to point to
ways in which implementation of the fair housing goals have resulted in
or are in the process of resulting in a decrease in such segregation.
This does not mean that program participants must be able to report
changes that are occurring with statistically significant data.
HUD recognizes that fully remedying a fair housing issue will often
take substantial time and occur in incremental steps, spanning multiple
funding and Equity Plan cycles. Thus, HUD expects the fair housing
goals will result in material positive change even if that change will
be incremental, and it will take multiple funding cycles to fully
remedy the fair housing issue. For example, a program participant might
set a goal in its Equity Plan to supply 100 units of affordable housing
in a well-resourced area. Completing this fair housing goal might not
completely remedy the underlying fair housing issues (e.g.,
segregation) due to the size of the total population and existing
segregated residential patterns in the jurisdiction and region. In such
circumstances, if HUD accepts the program participant's Equity Plan and
the program participant accomplishes its fair housing goal of building
the 100 units, the program participant will have complied with its
Equity Plan obligation, but it will still be required to set additional
fair housing goals in future Equity Plan submissions to continue
tackling the fair housing issue of segregation.
HUD also understands that, with respect to many fair housing
issues, forces other than the program participant's actions may
influence the course of change. A program participant's fair housing
goal can be successful on its own terms even as it fails to accomplish
material positive change in terms of the underlying issue it was
designed to address. For example, a program participant might identify
the lack of affordable housing in well-resourced areas as an issue and
set a fair housing goal to eliminate barriers to the siting of
affordable housing in well-resourced areas. It might achieve that goal
by eliminating the identified barriers, and yet affordable housing is
not built in the areas in question for other reasons. In such
circumstances, the program participant will have satisfied its
obligation with respect to that fair housing goal and will not be
deemed to be out of compliance with its Equity Plan obligations. The
program participant will be expected to continue to set goals in
subsequent planning cycles to address the still existing fair housing
issue in ways that will accomplish the required material positive
change.
Paragraph (h) consists of additional content that is required for
the Equity Plan, including the community engagement process and the
submission of certifications and assurances. Paragraph (i) provides for
program participants and their communities to engage in an evaluation
of progress toward advancing equity following the acceptance of the
Equity Plan. For each Equity Plan submitted following the first Equity
Plan, program participants are permitted to provide their annual
progress evaluations in the aggregate as part of the overarching
progress evaluation required for each new Equity Plan. Paragraph (j)
provides for the publication requirement of the Equity Plan, which HUD
will facilitate, in order to increase transparency and allow for
program participants and the public to view all Equity Plan submissions
and view the Department's decisions regarding such plans. This will
allow communities to discover and consider the innovative ideas and
strategies other communities may be employing to advance equity in
meaningful ways. This paragraph also provides for a mechanism for the
public to submit information to HUD regarding the content of a
published Equity Plan.
Affirmatively Furthering Fair Housing Through Equity Plan Incorporation
Into Subsequent Planning Documents (Sec. 5.156)
New Sec. 5.156 more closely and directly ties the fair housing
goals established in the Equity Plan to the subsequent planning
processes program participants are required to undertake to ensure that
program participants adequately and appropriately undertake and fund
programs, services, and activities in a manner that advances equity and
affirmatively furthers fair housing. This will provide a more holistic
approach to the implementation of the AFFH mandate by requiring program
participants to embed fairness and equity into their decision-making
processes.
Community Engagement (Sec. 5.158)
New Sec. 5.158 sets forth the requirements for community
engagement as a key component of the development of the Equity Plan.
This section, along with conforming amendments to applicable program
regulations, provides program participants the flexibility to conduct
this process differently from how they conduct citizen participation
for the consolidated plan or annual action plan or the policies and
procedures PHAs use for the PHA Plan if they so choose. Program
participants' engagement with their communities in the development of
the Equity Plan requires the confrontation of difficult issues, and so
HUD is providing program participants with flexibility to determine how
best to facilitate those important conversations. HUD expects the
community engagement process to focus on the fair housing issues facing
communities, and
[[Page 8537]]
HUD further anticipates that by providing data, guidance, and technical
assistance to program participants regarding the fair housing issues
demonstrated by HUD-provided data, this focus on community engagement
as a source of critical information can be more easily maintained. The
community engagement process is intended to be a robust discussion
across all sectors of the community so that program participants can
make informed choices about how to overcome existing fair housing
issues, such as barriers to fair housing choice, and make equitable
funding decisions. This section also provides the Federal civil rights
requirements with which program participants must comply when
conducting in community engagement and permits program participants to
utilize the processes in their respective program regulations to
undertake these activities.
Submission Requirements (Sec. 5.160)
New Sec. 5.160 provides the requirements for the submission of the
Equity Plan to HUD, including how program participants may collaborate
to submit a joint Equity Plan to HUD, and provides the timeframes for
when a program participant's first Equity Plan will be due. The
timeframes for the first Equity Plan in this section are intended to be
straightforward and easily discernable so that program participants
have certainty as to when their obligation to conduct and submit an
Equity Plan is triggered. This section also provides for how and when
annual progress evaluations will be submitted as well as subsequent
Equity Plans. Further, until such time as an Equity Plan is due to HUD,
program participants must ensure they are engaging in fair housing
planning in a publicly transparent way and this section sets forth how
to meet that obligation.
Paragraph (a) allows program participants to collaborate and
conduct an Equity Plan (joint Equity Plan) with other program
participants (joint program participants), which may allow program
participants to pool resources in order to overcome fair housing issues
that cross jurisdictional lines. This paragraph sets out the
requirements for how program participants collaborate and the
obligations of each collaborating participant, as well as notification
to HUD of the intent to collaborate on an Equity Plan.
Paragraph (b) sets out the submission deadlines for consolidated
plan program participants. These deadlines are tied to the aggregate
amount of formula funding the program participant receives from HUD and
then is further keyed to the program year that begins on or after a
particular date. This paragraph thereby creates a tiered submission
schedule, in which the first group of consolidated plan program
participants that have an Equity Plan due will be all among the largest
such participants. HUD anticipates that this group is better positioned
to begin implementation, and the experiences of this first cohort will
allow for program participants of different sizes to benefit from
technical assistance from HUD during the course of implementation of
this proposed rule. Likewise, paragraph (c) sets out the submission
deadlines for PHAs based on the aggregate number of units and vouchers
the PHA administers, which are then keyed to the program year that
begins on or after a particular date. The first cohort of PHAs with an
Equity Plan due will also be among the largest PHAs, and their
experience will allow PHAs of different sizes to benefit from technical
assistance from HUD in advance of an Equity Plan submission.
Paragraph (d) requires, until such time as a program participant
must submit an Equity Plan to HUD, that the program participant engage
in fair housing planning and sets forth how to meet this obligation,
including what must be submitted to HUD and when such submissions are
required.
Paragraph (e) provides for the procedures that HUD will utilize in
order to determine when an Equity Plan is due for new program
participants. Paragraph (f) sets out the requirements for submitting
annual progress evaluations as part of the Equity Plan. Paragraph (g)
specifies the deadlines for subsequent Equity Plan submissions.
Paragraph (h) provides that program participants must submit an Equity
Plan to HUD no less frequently than every five years.
Paragraph (i) requires program participants to include
certifications and assurances as part of the Equity Plan submission to
HUD. These certifications and assurances are distinct from those
submitted in connection with an application for Federal financial
assistance.
Review of Equity Plan (Sec. 5.162)
New Sec. 5.162 provides the procedures and standard HUD will use
to review submitted Equity Plans. This provision sets forth the timing
for HUD's review and what may occur as a result of HUD's review--HUD
may accept the Equity Plan, extend the time for review for good cause,
or provide notice to the program participant that HUD does not accept
the Equity Plan and the reasons why. Specifically, HUD will have 100
calendar days from the date the Equity Plan is submitted to review the
plan. HUD's acceptance of an Equity Plan is not a determination of
whether the program participant has met its obligation to affirmatively
further fair housing under the Fair Housing Act and means only that the
program participant's submission appears to meet the requirements of
this proposed regulation.
Paragraph (a) sets out the process for review and what HUD's
acceptance of an Equity Plan means. Paragraph (b) sets out the standard
HUD will apply when determining to accept or not to accept an Equity
Plan--HUD will not accept the Equity Plan if any portion of it is
inconsistent with fair housing or civil rights requirements, which
includes but is not limited to any material noncompliance with the
requirements of Sec. Sec. 5.150 through 5.180. This paragraph provides
examples of reasons why HUD will not accept an Equity Plan. In the
event an Equity Plan is not accepted, paragraph (c) sets out the
procedures for program participants to revise and resubmit their Equity
Plan to HUD. Paragraph (d) provides ways HUD, at its discretion, can
incentivize and support program participants that establish ambitious
fair housing goals in their Equity Plans including for example
assisting program participants in securing additional resources for
implementing their fair housing goals and achieving positive fair
housing outcomes in their communities.
Paragraph (e) explains the procedures for when a program
participant does not have an accepted Equity Plan at the time their
consolidated plan or PHA Plan, as applicable, must be submitted to HUD.
As explained above, the proposed rule provides that a consolidated plan
or PHA Plan (or any plan incorporated therein) may be accepted under
such circumstances, but only if a program participant provides special
assurances that it will submit an Equity Plan that meets the regulatory
requirements within 180 days of the end of HUD's review period for the
consolidated plan or PHA Plan. HUD notes that failure to provide such
special assurances will lead to the disapproval of the applicable
programmatic plan. If the Secretary determines that there has been a
failure to fulfill the terms set out in the special assurances, the
Secretary will initiate the termination of funding, refuse to grant or
to continue to grant Federal financial assistance, or seek other
appropriate remedies. In addition, paragraph (e) explains that a
program participant's failure to provide or comply with special
assurances can provide the Secretary a basis to
[[Page 8538]]
challenge the validity of the program participant's AFFH certification
pursuant to Sec. 5.166. Finally, paragraph (e) specifies that the
procedures HUD will follow if there is a failure to comply are at Sec.
5.172 and that the special assurances are subject to the publication
requirement and will be made available on HUD's AFFH web page.
Revising an Accepted Equity Plan (Sec. 5.164)
New Sec. 5.164 sets out the minimum criteria for when an Equity
Plan must be revised--that is, when a material change occurs, upon
written notification from the Responsible Civil Rights Official
(Assistant Secretary for Fair Housing and Equal Opportunity or his or
her designee) specifying a material change that requires the Equity
Plan to be revised, or a program participant chooses to revise its
Equity Plan. Paragraph (a)(1)(i) provides examples of what a material
change would include, such as Presidentially declared disasters under
title IV of the Robert T. Stafford Disaster Relief and Emergency
Assistance Act. A material change may occur because the program
participant's jurisdiction receives additional Federal financial
assistance, new fair housing issues emerge in the program participant's
jurisdiction, significant demographic changes occur in the program
participant's jurisdiction, or civil rights findings, determinations,
settlements (including Voluntary Compliance Agreements), or court
orders occur. Paragraph (a)(1)(ii) specifies that the Responsible Civil
Rights Official may notify program participants in writing that a
material change has occurred that requires revision. Paragraph (a)(2)
sets out the circumstances under which a program participant may choose
to voluntarily revise its previously accepted Equity Plan, with
permission from HUD. HUD intends that this provision be used by program
participants who face changed circumstances that make it difficult or
impossible to meet established fair housing goals or otherwise require
revisions to their Equity Plans. HUD does not intend this provision to
be used by program participants that simply fail to accomplish the fair
housing goals they established. Paragraph (a)(3) sets out the
requirements for a revised Equity Plan. Paragraph (b) establishes the
timeframes that will apply when revising an Equity Plan, paragraph (c)
requires the revised Equity Plan to be submitted to HUD for review, and
paragraph (d) requires that, once a revised Equity Plan has been
accepted by HUD, the program participant incorporate any revised fair
housing goals into their consolidated plan, annual action plan, PHA
Plan or any plan incorporated therein within 12 months of the date of
HUD's acceptance of the revised Equity Plan.
AFFH Certifications Required for the Receipt of Federal Financial
Assistance (Sec. 5.166)
New Sec. 5.166 requires program participants to provide
certifications as part of the submission of their required consolidated
plan, annual action plan, or PHA Plan, or any plan incorporated
therein, pursuant to 24 CFR parts 91 and 903, as applicable, that they
will affirmatively further fair housing in order to receive Federal
financial assistance from HUD.
Paragraph (a) of this section requires a certification that program
participants will affirmatively further fair housing and take no action
that is materially inconsistent with fair housing and civil rights
requirements throughout the period for which Federal financial
assistance is extended. These certifications are made in accordance
with applicable program regulations, specifically 24 CFR part 91 for
consolidated plan program participants and 24 CFR part 903 for PHAs.
Paragraph (b) sets out the policies and procedures for when and how
the Department will challenge the validity of an AFFH certification.
HUD will endeavor to voluntarily resolve any potential inaccuracy or
noncompliance with an AFFH certification that could result in the
disapproval of a consolidated plan, annual action plan, or PHA Plan,
and it expects recipients of Federal financial assistance to work
cooperatively with the Department to reach voluntary resolution when
there is a potential failure to comply with an AFFH certification or
the obligation to affirmatively further fair housing. In the event this
does not occur, this paragraph sets out the procedures HUD will use.
This paragraph also sets forth how the process will work if there is
evidence the program participant's certification is inaccurate. For
example, if the noncompliance cannot be voluntarily resolved, HUD may
set conditions on a grant for a consolidated planning program
participant (see e.g., 2 CFR 200.208) or reject the AFFH certification.
This paragraph also specifies how certifications may be challenged in
the context of joint Equity Plans with respect to one program
participant, but not necessarily all joint program participants.
Recordkeeping (Sec. 5.168)
New Sec. 5.168 requires program participants to maintain
sufficient records that would enable the Responsible Civil Rights
Official to determine whether the program participant has complied with
or is complying with their AFFH obligations. This provision permits
access to records by the Responsible Civil Rights Official to make such
a determination and sets out examples of the types of records program
participants should maintain in order to demonstrate their compliance
with this proposed rule. By providing examples of the types of records
HUD would expect program participants to maintain, HUD is providing
notice to program participants about how to best demonstrate their
compliance to HUD.
Compliance Procedures (Sec. 5.170)
New Sec. 5.170 creates a process that allows members of the public
to submit information to HUD alleging that a program participant has
failed to comply with this proposed rule or its Equity Plan, or that
the program participant has taken action that is materially
inconsistent with its obligation to affirmatively further fair housing,
as defined in this proposed rule. It then provides that, in response to
such a complaint or of its own accord, HUD may initiate an
investigation to determine the program participant's compliance
following procedures consistent with existing processes used for other
Federal civil rights statutory and regulatory requirements accompanying
the receipt of Federal financial assistance, such as title VI of the
Civil Rights Act of 1964 and section 504 of the Rehabilitation Act of
1973. See 24 CFR parts 1 (Title VI) and 8 (Section 504).
As described above, HUD does not intend the complaint process to be
used to relitigate decisions made by program participants in the
planning process after opportunity for community input and HUD's
acceptance of an Equity Plan. HUD specifically seeks comment on how it
can effectively implement a complaint and compliance review process
that works in tandem with the proposed planning process including
specific regulatory text that would be in accord with these principles.
HUD also seeks comment on whether and the extent to which setting out
an AFFH complaint and compliance review process is likely to facilitate
AFFH compliance. HUD recognizes that any investigation creates some
burden on program participants and seeks comment on ways HUD can
minimize the burden associated with an investigation while maintaining
a mechanism for effectively enforcing the Fair Housing Act's AFFH
mandate.
[[Page 8539]]
Paragraph (a)(1) provides for submission of complaints and
describes the permissible subject matter of such complaints. A
complaint must allege the failure to comply with a specified
requirement of this proposed rule; a failure to meet specific
commitments a program participant has undertaken in the Equity Plan; or
that the program participant has acted or is acting in a manner that is
materially inconsistent with its obligation to affirmatively further
fair housing, as defined in this regulation. This subject matter
restriction is intended to make clear that HUD does not view the
complaint process as a vehicle for general complaints about the
activities of HUD program participants that lack nexus to the AFFH
requirement.
With respect to allegations that a program participant is failing
to meet its Equity Plan commitments, HUD understands that accomplishing
the goals set out in Equity Plans will not always happen immediately.
Accordingly, the complaint process should not be used to attempt to
micromanage the pace and manner in which they are accomplished, so long
as program participants are continuing to make efforts to comply.
Similarly, a program participant's inability to meet an Equity Plan
commitment because of circumstances beyond its control will not be
treated as a violation, though the program participant will be expected
to disclose those circumstances in its annual progress evaluation and
should seek to modify the relevant portion of its Equity Plan. With
respect to claims that a program participant is acting in a manner that
is materially inconsistent with its AFFH obligation, that standard is
intended to mirror the certification that program participants make
regularly that they will take no action materially inconsistent with
that obligation. It is not intended to create any new substantive
requirement for program participants, but rather to provide a
manageable and predictable process to investigate and enforce
compliance with the existing AFFH obligation in a manner that does not
necessarily require HUD to challenge the validity of the certifications
submitted in connection with the receipt of Federal financial
assistance. There is no requirement that each individual action program
participants take be in furtherance of the AFFH obligation, but rather
program participants' actions must collectively affirmatively further
fair housing and they may not take actions that are materially
inconsistent with their obligation to affirmatively further fair
housing. Therefore, it generally would be insufficient for a
complainant to allege that a routine decision made or routine action
taken by a program participant does not affirmatively further fair
housing. HUD seeks comment on whether it should further clarify the
scope of permissible complaints, including by reference to specific
examples of subject matter that would or would not be the appropriate
basis of a complaint.
Paragraph (a)(2) further describes the procedures HUD will utilize
when a complaint regarding a program participant's obligation to
affirmatively further fair housing is received. Paragraph (a)(3)
provides that complaints shall be filed within 365 days of the date of
the last incident of the alleged violation, unless the Responsible
Civil Rights Official extends the time limit for good cause, such as
where the complaint concerns an alleged violation that took place more
than a year previously but was not disclosed to the public until more
recently.
Paragraph (b) sets forth the procedures HUD will utilize when it
initiates an investigation of either a complaint filed with the
Department or a review initiated by the Department, in order to
ascertain whether there has been a failure to comply with the program
participant's obligation to affirmatively further fair housing.
Paragraphs (b)(1) and (2) provide that the Responsible Civil Rights
Official will provide notice to the program participant of the
investigation, and may conduct interviews, request records, and obtain
other information required to determine whether there has been a
failure to comply. Paragraph (b)(3) provides that the Responsible Civil
Rights Official shall attempt informal resolution where appropriate. In
doing so, HUD will be mindful that program participants may have
multiple ways available to them to remedy an alleged violation. While
HUD believes it is helpful to provide a program participant with
suggested remedies to facilitate discussions of appropriate
resolutions, it does not intend to be prescriptive about the remedy a
program participant ultimately agrees to so long as it is adequate to
address the alleged violation. Paragraph (b)(3) also sets out the
process that will occur if an informal resolution with the program
participant cannot be achieved and a violation is found--the
Responsible Civil Rights Official will issue a Letter of Findings.
Paragraphs (b)(4) through (6) set out the required contents of a Letter
of Findings, including findings of facts and conclusions of law, a
description of a remedy for each violation found, and notice of the
rights and procedures under Sec. Sec. 5.172 and 5.174, which include
the right of the program participant or complainant (if any) to request
review of the Letter of Findings within 30 calendar days from the date
of issuance and the procedures for such a review.
Paragraph (c) provides that the mechanism for informal resolution
of matters is through either the execution of a Voluntary Compliance
Agreement between the program participant and HUD, which may occur at
any stage of processing of the matter, or, in appropriate
circumstances, the Responsible Civil Rights Official may seek, in lieu
of a Voluntary Compliance Agreement, assurances or special assurances
of compliance.
Paragraph (d) makes it a violation of this proposed rule for a
program participant or other person to intimidate, threaten, coerce, or
discriminate against any person for the purpose of interfering with any
right or privilege secured by this proposed rule or the Fair Housing
Act because of testimony, assistance, or participation in any manner in
the filing of a complaint, an investigation, proceeding, or hearing
under Sec. Sec. 5.150 through 5.180. HUD takes seriously allegations
of retaliation and will investigate such claims.
The provisions above are largely modeled on existing HUD
regulations with respect to complaints regarding and enforcement of
civil rights requirements that attach to the receipt of Federal
financial assistance, such as Title VI and Section 504. HUD has used
those regulations as a model because they are familiar to HUD and to
program participants. HUD seeks comment on whether any modifications to
these procedures are appropriate for purposes of considering alleged
violations of the AFFH obligation.
Procedures for Effecting Compliance (Sec. 5.172)
New Sec. 5.172 sets forth the procedures HUD will follow when
informal or voluntary resolution through a Voluntary Compliance
Agreement cannot be achieved. Paragraph (a) provides the non-exhaustive
list of ways in which the Responsible Civil Rights Official may effect
compliance, which include: a referral to the Department of Justice with
a recommendation that appropriate proceedings be brought to enforce the
rights of the United States under any law of the United States, or any
assurance or contractual undertaking (which includes the assurances and
certifications made in connection with grant agreements and
[[Page 8540]]
the requirements of this proposed rule); the initiation of an
administrative proceeding by filing a Complaint and Notice of Proposed
Adverse Action pursuant to 24 CFR 180.415, which may seek the
suspension or termination of or refusal to grant or to continue to
grant Federal financial assistance along with any other appropriate
relief to remedy the noncompliance with this proposed rule; the
initiation of debarment proceedings pursuant to 2 CFR part 2424; and
any applicable proceeding under State or local law. This paragraph
incorporates the familiar and longstanding mechanisms that HUD uses to
effect compliance with fair housing and civil rights requirements by
recipients of Federal financial assistance.
Paragraph (b) provides for the remedies that will be available to
the Department if a program participant fails or refuses to furnish an
assurance required under Sec. 5.160(i), Sec. 5.162(e), or Sec.
5.170(c), or if the program participant otherwise fails to comply with
the requirements of this proposed rule. Specifically, in these
circumstances, the Department may seek to terminate, refuse to grant,
or not continue Federal financial assistance. Paragraph (c) further
details the predicate steps that must occur prior to an order
suspending, terminating, or refusing to grant or continue Federal
financial assistance becomes effective. These procedures are intended
to ensure that program participants', as recipients of entitlement
grants from HUD, due process rights are satisfied prior to any
termination, suspension, or refusal to grant or to continue to grant
Federal funds. Like those in paragraph (c), the procedures in paragraph
(d) are the same procedures that exist under the other Federal civil
rights statutes requiring compliance by recipients in connection with
the receipt of Federal funds. As drafted in this proposed rule, these
procedures are written in a manner to give program participants greater
clarity as to how this process will be operationalized. Furthermore,
Paragraph (d) ensures that HUD will provide appropriate and proper
notice to the State or local government official when the Secretary
determines that a recipient of Federal financial assistance under title
I of the Housing and Community Development Act of 1974, as amended (42
U.S.C. 5301-5318) has failed to comply with this proposed rule. This
notice is intended to safeguard the due process rights of recipients
and is consistent with regulatory and statutory requirements of the
Community Development Block Grant program.
Hearings (Sec. 5.174)
New Sec. 5.174 describes the procedures for administrative
hearings that HUD will follow should it need to effect compliance by
filing a Complaint and Proposed Notice of Adverse Action pursuant to 24
CFR 180.415 before HUD's administrative law judges. These procedures
are consistent with the hearing procedures contained in other
regulatory schemes implementing the Federal civil rights laws, such as
title VI of the Civil Rights Act of 1964 and section 504 of the
Rehabilitation Act of 1973. They should be familiar to both HUD and
program participants and are generally governed by HUD's regulation on
Consolidated HUD Hearing Procedures for Civil Rights Matters at 24 CFR
part 180. However, this provision is included to ensure that program
participants understand the procedures that would be applicable.
Conforming Amendments Consolidated Plan Regulations (24 CFR Part 91)
Because the AFFH regulation in 24 CFR part 5 builds on existing
consolidated plan regulations with respect to the community engagement
process, the obligation to incorporate fair housing goals from the
Equity Plan into subsequent planning documents, the submission of
certifications, and procedures for effecting compliance with this
proposed rule, conforming amendments to the consolidated plan
regulations must be made to reflect the incorporation of the Equity
Plan process into the consolidated planning process.
Applicability (Sec. 91.2)
This section specifies that all programs covered by the
consolidated plan must comply with the requirements to affirmatively
further fair housing.
Definitions (Sec. 91.5)
Section 91.5, the definition section of HUD's consolidated plan
regulations, would be revised to reflect that the term ``Equity Plan''
is defined in 24 CFR part 5.
Consultation; Local Governments (Sec. 91.100)
Section 91.100 of HUD's consolidated plan regulations would be
amended to account for the community engagement process and procedures
required for the development of the Equity Plan pursuant to Sec.
5.158.
Paragraph (c) of Sec. 91.100, which requires the local government
to consult with the local PHA, would be amended to provide that the
jurisdiction must also consult with the PHA regarding the Equity Plan,
including affirmatively furthering fair housing strategies and
meaningful actions that will implement the fair housing goals from the
Equity Plan.
The proposed rule adds a new paragraph (e) to Sec. 91.100 to
address the requirement to affirmatively further fair housing.
Paragraph (e) provides that the local government shall consult with
community- and regionally-based organizations that represent protected
class members or enforce fair housing laws, such as state or local fair
housing enforcement agencies, including participants in the Fair
Housing Assistance Program (FHAP), fair housing organizations and other
non-profit organizations that receive funding under the Fair Housing
Initiative Program (FHIP), and other public and private fair housing
service agencies, to the extent such entities operate within its
jurisdiction.
As noted in paragraph (e), this consultation will help provide a
better basis for the local government's Equity Plan, its certification
to affirmatively further fair housing and other portions of the
consolidated plan concerning affirmatively furthering fair housing.
Paragraph (e) provides that the consultation required under this
paragraph can occur with any organizations that have the capacity to
engage with data informing the Equity Plan and are sufficiently
independent and representative to provide meaningful feedback to a
jurisdiction on the Equity Plan, the consolidated plan, and their
implementation. A Fair Housing Advisory Council or similar group that
includes community members and advocates, fair housing experts, housing
and community development industry participants, and other key
stakeholders can meet this critical consultation requirement.
The proposed rule requires consultation to occur throughout the
fair housing planning process, meaning that the jurisdiction will
consult with the organizations described in this section in the
development of both the Equity Plan and the consolidated plan. The
AFFH-related consultation on the consolidated plan shall specifically
seek input into how the fair housing goals identified in the accepted
Equity Plan will be incorporated into the consolidated plan, including
funding allocations. This community input and consultation is critical
to ensure that the jurisdiction is meeting the fair housing needs of
the community through the implementation of the fair housing goals
[[Page 8541]]
from the Equity Plan into the consolidated plan.
Citizen Participation Plan; Local Governments (Sec. 91.105)
This section is amended to provide program participants with the
option to incorporate and include the community engagement requirements
from Sec. 5.158 for the development of the Equity Plan into the
requirements governing the local government's citizen participation
plan, should the program participant decide to do so. While reference
to the Equity Plan is made throughout Sec. 91.105, the amendments to
specifically note are as follows:
Paragraph (a)(1) distinguishes the citizen participation plan
required for purposes of the consolidated plan from the community
engagement requirements of Sec. 5.158 for purposes of the Equity Plan.
This paragraph provides jurisdictions with the flexibility to include
the policies and procedures it will undertake for purposes of the
Equity Plan in the citizen participation plan, so long as all
requirements for community engagement contained in Sec. Sec. 5.150
through 5.180 are included in the citizen participation plan; however,
this paragraph does not require program participants to amend their
citizen participation plans should they choose to undertake community
engagement for purposes of the Equity Plan separate from citizen
participation for purposes of the consolidated plan.
Paragraph (a)(2)(i) of this section would be amended to add
explicit reference to residents and other interested parties, including
members of protected class groups that have historically been denied
equal opportunity and underserved communities, that are encouraged to
participate in the development of the Equity Plan and revisions to the
Equity Plan, along with participation in the development of the
consolidated plan and substantial amendments to the consolidated plan.
Paragraph (a)(2)(ii), which encourages the participation of local
and regional institutions, would be amended to reflect that such
participation is not only important to the consolidated plan but to the
Equity Plan as well.
Paragraph (a)(2)(iii), which addresses consultation with PHAs,
would be amended to include how the jurisdiction will consult with the
PHA regarding the jurisdiction's Equity Plan and how the jurisdiction
will affirmatively further fair housing through implementation of its
fair housing goals from the Equity Plan.
Paragraph (a)(2)(iv) of this section, which encourages the
jurisdiction to explore alternative techniques to encourage public
engagement in the development of the consolidated plan and Equity Plan
would be amended to note that, to the extent the jurisdiction includes
the community engagement requirements for the Equity Plan in its
citizen participation plan, the techniques described must be consistent
with the requirements at Sec. 5.158, including the nondiscrimination
requirements detailed in that section.
Paragraph (a)(3) would be amended to ensure jurisdictions meet
their civil rights obligations when seeking comment on proposed plans,
particularly with respect to individuals with disabilities and limited
English proficient (LEP) residents of the community.
Paragraph (a)(4) would be amended to set forth how the requirements
of paragraph (a)(3) apply to the Equity Plan's development for purposes
of providing language assistance to ensure meaningful access to
participation by LEP residents.
The proposed rule adds new paragraph (a)(5) to detail for
jurisdictions how to meet their obligation to ensure effective
communication with persons with disabilities during the development of
the consolidated plan and Equity Plan. These requirements are
consistent with those contained in the implementing regulations for
section 504 of the Rehabilitation Act and title II of the Americans
with Disabilities Act.
Paragraph (b) of Sec. 91.105 would be amended to provide that to
the extent the program participant includes the Equity Plan and the
requirements of Sec. 5.158 in their citizen participation plan, those
requirements would be in addition to the requirements for the
consolidated plan, which are described in paragraph (b)(1).
Paragraph (c) of Sec. 91.105 would be amended so that the local
government must specify the criteria the local government will use for
determining when revisions to the Equity Plan will be appropriate, and
provides that, at a minimum, the local government's criteria must
include the criteria specified in 24 CFR 5.164, if the Equity Plan is
included in the citizen participation plan.
Paragraph (e) of Sec. 91.105 would be amended to address the
existing requirement for the number of public hearings to hold on the
jurisdiction's consolidated plan and how those requirements differ from
what is required for the development of the Equity Plan pursuant to
Sec. 5.158.
Paragraphs (f), (g), (i), and (j), would each be revised to
reference the Equity Plan and the applicable fair housing and civil
rights requirements for conducting meetings and making documents
publicly available. In addition, paragraph (j) would be amended to
explain that the complaint procedures the jurisdiction establishes in
the citizen participation plan are applicable to the consolidated plan
and are distinct from the processes that apply to the Equity Plan set
forth at Sec. Sec. 5.158(i) and 5.170.
Consultation; States (Sec. 91.110)
This section would be revised to provide for the Equity Plan to be
subject to the same consultation requirements as State consolidated
plans. Two new paragraphs would be added to paragraph (a) of this
section.
Paragraph (a)(1) would specifically address consultation pertaining
to public housing, with the objective to ensure that the PHA Plan is
consistent with the consolidated plan, including with respect to the
fair housing goals established in the Equity Plan.
Paragraph (a)(2) would address consultation pertaining to
affirmatively furthering fair housing, with the objective to ensure
that there is a meaningful Equity Plan.
Citizen Participation Plan; States (Sec. 91.115)
References to the Equity Plan would be added to paragraphs (a)(1)
and (2) of this section. The amendments to this section include the
revisions to paragraphs (a)(3) and (4) that would require reasonable
efforts to provide language assistance to LEP residents and adding new
paragraph (a)(5) that requires ensuring effective communication with
persons with disabilities, as required by section 504 of the
Rehabilitation Act and title II of the Americans with Disabilities Act,
and their respective implementing regulations.
Paragraph (b) of this section, which addresses development of the
consolidated plan, would be amended to address development of the
Equity Plan in addition to the consolidated plan, to the extent the
State decides to include the Equity Plan in its citizen participation
plan.
Paragraphs (f) and (h) of this section, which address availability
of information to the public's access to records, and complaints,
respectively, would be amended to reference the Equity Plan. Paragraph
(h) would also be revised to make clear that the complaint process in
the State's citizen participation plan is distinct from the
[[Page 8542]]
processes that apply to the Equity Plan set forth at Sec. Sec.
5.158(i) and 5.170.
Strategic Plan (Sec. 91.215)
This section of the consolidated plan regulations describes the
prescribed content of the local government's strategic plan. This
proposed rule adds to this section a new paragraph (a)(5) that requires
the jurisdiction's consolidated plan to describe how the priorities and
specific objectives of the jurisdiction will affirmatively further fair
housing, and that the description should be done by setting forth
strategies and actions consistent with the goals and other elements
identified in an Equity Plan conducted in accordance with Sec. 5.154.
New paragraph (a)(5) provides that for issues not addressed by these
priorities and objectives, the plan must identify how these goals have
been incorporated into the plan consistent with the requirements of
Sec. Sec. 5.150 through 5.180.
Action Plan (Sec. 91.220)
This section of the consolidated plan regulations lists the items
that comprise a local government's action plan. Paragraph (k) of Sec.
91.220 is divided into two paragraphs. Paragraph (k)(1) requires the
action plan to address the actions that the local government plans to
take during the next year to address fair housing issues identified in
the Equity Plan. Paragraph (k)(2) addresses the existing provision of
paragraph (k), which is the requirement of the local government to list
the actions that it plans to take to address, among other things,
obstacles to meeting underserved needs, and fostering and maintaining
affordable housing.
Paragraph (l) of this section, which sets forth the program-
specific requirements, would be revised to include references to the
Equity Plan and the fair housing goals incorporated from the Equity
Plan for purposes of how they relate to each program covered by the
Action Plan.
Certifications (Sec. 91.225)
The proposed rule would amend paragraph (a)(1) of this section to
require the local government's certification that it will affirmatively
further fair housing and it will take no action that is materially
inconsistent with fair housing and civil rights requirements throughout
the period for which Federal financial assistance is extended.
Monitoring (Sec. 91.230)
The proposed rule revises this section to provide that a local
government's monitoring of its activities carried out in furtherance of
the consolidated plan, must include monitoring of strategies and
actions that address the fair housing issues identified in the Equity
Plan.
Special Case: Abbreviated Consolidated Plan (Sec. 91.235)
Paragraph (c) of this section, which defines what is an abbreviated
plan, is revised to provide that the abbreviated plan must describe how
the jurisdiction will affirmatively further fair housing by addressing
issues identified in an Equity Plan conducted in accordance with 24 CFR
5.154.
Housing and Homeless Needs Assessment (Sec. 91.305)
The proposed rule would amend Sec. 91.305, which requires States
to provide a concise summary of the estimated housing needs projected
for the ensuing 5-year period, would be revised in paragraph (b), which
requires a description of the persons affected under the plan, in order
to allow States to utilize the analysis contained in the Equity Plan
relating to affordable housing opportunities pursuant to Sec. Sec.
5.152 and 5.154 to satisfy this requirement, to the extent the Equity
Plan already contains such information.
Strategic Plan (Sec. 91.315)
This section of the consolidated plan regulations describes the
prescribed content of the State government's strategic plan. The
changes made to this section mirror the changes made to Sec. 91.215.
Action Plan (Sec. 91.320)
This section of the consolidated plan regulations describes the
prescribed content of the State government's action plan. The changes
made to this section mirror the changes made to Sec. 91.220, but are
found in paragraph (j) of Sec. 91.320. In addition, paragraph (k) of
this section, which describes the program-specific requirements, would
be revised to distinguish any activities or procedures applicable for
programmatic requirements from those relating to fair housing and civil
rights requirements, including the obligation to affirmatively further
fair housing.
Certifications (Sec. 91.325)
Similar to the amendment to Sec. 91.225, the proposed rule would
amend paragraph (a)(1) of Sec. 91.325 to require the State's
certification that it will affirmatively further fair housing and that
it will take no action that is materially inconsistent with fair
housing and civil rights requirements throughout the period for which
Federal financial assistance is extended.
Monitoring (Sec. 91.330)
This section of the consolidated plan regulations describes the
State's monitoring of its activities carried out in furtherance of the
consolidated plan. The changes made to this section mirror the changes
made to Sec. 91.230.
Strategic Plan (Sec. 91.415)
This section of the consolidated plan regulations describes the
prescribed content of a consortium's strategic plan. This section
requires a consortium to comply with the provisions of Sec. 91.215,
which is proposed to be revised by this rule to incorporate the Equity
Plan in the strategic plan. The change that would be made to Sec.
91.415 by this rule is to require the consortium to set forth, in its
strategic plan, strategies and actions consistent with the fair housing
goals identified in an Equity Plan conducted in accordance with new
Sec. Sec. 5.150 through 5.180.
Action Plan (Sec. 91.420)
This section of the consolidated plan regulations describes the
prescribed content of a consortium's action plan. Paragraph (b) of
Sec. 91.420 is revised to provide that the action plan must include
actions that the consortium plans to take during the next year that
will address fair housing issues identified in the consortium's Equity
Plan.
Certifications (Sec. 91.425)
As with the amendments to Sec. Sec. 9.225 and 91.325, the proposed
rule would amend paragraph (a)(1) of this section to require the
consortium's certification that it will affirmatively further fair
housing and that it will take no action that is materially inconsistent
with fair housing and civil rights requirements throughout the period
for which Federal financial assistance is extended.
Monitoring (Sec. 91.430)
This section of the consolidated plan regulations describes the
consortium's monitoring of its activities carried out in furtherance of
the consolidated plan. The changes made to this section mirror the
changes made to Sec. 91.230.
HUD Approval Action (Sec. 91.500)
This section of the consolidated plan regulations sets out, among
others, the standards by which HUD will review a submitted consolidated
plan. Paragraph (b) of this section would be revised to make clear for
program participants that the standards set forth in this section are
for purposes of the consolidated plan and are distinct from the
standards at Sec. 5.162 for purposes of the Equity Plan.
[[Page 8543]]
Amendments to the Consolidated Plan (Sec. 91.505)
This section lists the criteria and procedures by which a
jurisdiction must amend its approved consolidated plan. The proposed
rule adds a new paragraph (a)(4) to allow amendments to the plan to
make necessary changes to account for any revisions to an Equity Plan
that is accepted or revised pursuant to Sec. 5.164 after a
consolidated plan is in effect.
HOME Investment Partnerships (HOME) Program Regulations (24 CFR Part
92)
Definitions (Sec. 92.2)
Section 92.2, the definitions section of HUD's HOME regulation,
would be revised to reflect that the terms ``affirmatively furthering
fair housing'' and ``Equity Plan'' are defined in 24 CFR part 5.
Affirmatively Furthering Fair Housing (Sec. 92.5)
This section specifics that all participating jurisdictions must
comply with the requirements to affirmatively further fair housing.
Program Description (Sec. 92.61)
This section sets forth how a recipient will structure its use of
HOME funds. Paragraph (c)(5) of this section specifies the
certifications required for insular areas and would be amended to
account for an insular area's obligation to affirmatively further fair
housing and conduct its federally funded programs and activities in a
manner that is consistent with Federal fair housing and civil rights
requirements.
Submission of a Consolidated Plan and Equity Plan (Sec. 92.104)
This section of the HOME program regulations which addresses the
responsibility of a participating jurisdiction to submit its
consolidated plan to HUD is revised to provide that the jurisdiction
must also submit its Equity Plan to HUD in accordance with the AFFH
regulations in 24 CFR part 5, subpart A.
Eligible Administrative and Planning Costs (Sec. 92.207)
This section sets forth the eligible administrative and planning
costs for the HOME program. Paragraph (d) of this section specifically
allows for activities relating to fair housing and the obligation to
affirmatively further fair housing, and would be amended to cross
reference certifications under Sec. 5.166.
Other Federal Requirements and Nondiscrimination (Sec. 92.350)
This section requires participating jurisdictions to comply with
Federal requirements, including nondiscrimination requirements.
Paragraph (a) of this section would be amended to include the
obligation to affirmatively further fair housing.
Affirmative Marketing; Minority Outreach Program (Sec. 92.351)
This section requires each participating jurisdiction to adopt and
follow affirmative marketing procedures and requirements. Paragraph (a)
would be amended for consistency with the obligation to affirmatively
further fair housing and to better clarify a recipient's affirmative
marketing obligations.
Recordkeeping (Sec. 92.508)
The proposed rule would amend the recordkeeping requirements of the
HOME program to provide in paragraph (a)(7)(i)(B) of this section to
require as part of the documentation that the participating
jurisdiction has taken actions to affirmatively further fair housing,
including documentation relating to the participating jurisdiction's
Equity Plan and the requirements at Sec. 5.168, as well as
documentation relating to the participating jurisdiction's AFFH
certification.
Housing Trust Fund (HTF) Regulations (24 CFR Part 93)
Definitions (Sec. 93.2)
Section 93.2, the definitions section of HUD's HTF regulation,
would be revised to include introductory text to reflect that the terms
``affirmatively furthering fair housing'' and ``Equity Plan'' are
defined in 24 CFR part 5.
Affirmatively Furthering Fair Housing (Sec. 93.4)
This section specifics that all recipients of HTF funds must comply
with the requirements to affirmatively further fair housing.
Participation and Submission Requirements (Sec. 93.100)
Section 93.100 requires a grantee to submit a consolidated plan in
order to receive HTF grants. The proposed rule would amend this
section, at paragraph (b), to also include the requirement to submit an
Equity Plan.
Eligible Activities; General (Sec. 93.200)
This section of the HTF regulation details the general activities
that are eligible to be funded using the HTF grant. Paragraph (a)(1)
would be amended by this proposed rule, for consistency with other
program regulations for which a consolidated plan is required, to
clarify that to the extent the activities in question otherwise are
eligible, one potential use of HTF funds may be to implement fair
housing goals from an Equity Plan developed pursuant to Sec. Sec.
5.150 through 5.180.
Eligible Administrative and Planning Costs (Sec. 93.202)
This section of the HTF regulation describes the eligible
administrative and planning costs for administering the HTF program.
The changes made to this section mirror the changes made to Sec.
92.207.
Other Federal Requirements and Nondiscrimination; Affirmative Marketing
(Sec. 93.350)
This section sets forth the generally applicable nondiscrimination
and affirmative marketing requirements for purposes of the HTF program.
The changes made to this section are substantially similar to the
changes made to Sec. 92.351.
Recordkeeping (Sec. 93.407)
This section requires HTF grantees to maintain records relating to
the implementation of its HTF program. This proposed rule would add new
paragraph (a)(1)(vii), which would require grantees to maintain records
documenting the actions the grantee has taken to affirmatively further
fair housing, including documentation related to the grantee's Equity
Plan described at Sec. 5.168.
Community Development Block Grant (CDBG) Regulations (24 CFR Part 570)
Definitions (Sec. 570.3)
Section 570.3, the definitions section of HUD's CDBG regulation,
would be revised to reflect that the terms ``affirmatively furthering
fair housing'' and ``Equity Plan'' are defined in 24 CFR part 5.
Affirmatively Furthering Fair Housing (Sec. 570.6)
This section specifies that all programs covered by this part must
comply with the requirements to affirmatively further fair housing.
Eligible Planning, Urban Environmental Design, and Policy Planning
Management--Capacity Building Activities (Sec. 570.205)
This section which lists policy planning and capacity building
activities would add new paragraph
[[Page 8544]]
(a)(4)(viii) to reference the Equity Plan. In paragraph (a)(6) of this
section, references to the implementation of fair housing goals from
the Equity Plan would be added throughout.
Program Administrative Costs (Sec. 570.206)
This section sets forth the permissible program administrative
costs for the CDBG program and paragraph (c) specifically lists fair
housing activities as covered by this section. This proposed rule would
revise paragraph (c) to update terminology that is outdated.
Citizen Participation--Insular Areas (Sec. 570.441)
The amendments to this section include inserting references to the
Equity Plan.
Other Applicable Laws and Related Program Requirements (Sec. 570.487)
Paragraph (b) of this section, which addresses the requirement to
affirmatively further fair housing, provides that a State is required
to certify to HUD's satisfaction that it will affirmatively further
fair housing consistent with the requirements of Sec. Sec. 5.150
through 5.180 and will take no action that is inconsistent with fair
housing and civil rights requirements throughout the period for which
Federal financial assistance is extended. Similarly, this paragraph
would provide that each unit of general local government is also
required to make such a certification.
Recordkeeping Requirements (Sec. 570.490)
This section sets forth that States and local governments that
receive CDBG funds must maintain records and have requirements for
maintaining records of the administration of CDBG funds. Paragraphs (a)
and (b) of this section would be revised to include records relating to
the use of CDBG funds for purposes of affirmatively furthering fair
housing and the grantee's Equity Plan, in accordance with Sec. 5.168.
Records To Be Maintained (Sec. 570.506)
Similar to the amendment to Sec. 570.490, the proposed rule would
amend this section to provide in paragraph (g)(1) that documentation
related to the grantee's Equity Plan is required pursuant to Sec.
5.168.
Public Law 88-352 and Public Law 90-284; Affirmatively Furthering Fair
Housing; Equal Opportunity; Executive Order 11063 (Sec. 570.601)
The heading of this section would be revised to read ``Civil
rights; affirmatively furthering fair housing; equal opportunity
requirements,'' and paragraph (a)(2) of this section would be amended
to provide that the program participant's responsibility to undertake
fair housing planning includes taking meaningful actions to further the
fair housing goals identified in an Equity Plan that is developed in
accordance with the requirements of Sec. Sec. 5.150 through 5.180 and
that it will take no action that is inconsistent with fair housing and
civil rights requirements.
Equal Opportunity and Fair Housing Review Criteria (Sec. 570.904)
Paragraph (c)(2) clarifies that the review undertaken pursuant to
this section is distinct from the procedures set forth at 24 CFR part
1, 3, 5, 6, 8, or 146 or 28 CFR part 35 conducted by the Responsible
Civil Rights Official, which are reviews for purposes of determining a
grantee's compliance with Federal fair housing and civil rights
requirements, including the grantee's obligation to affirmatively
further fair housing.
Housing Opportunities for Persons With AIDS (HOPWA) Regulations (24 CFR
Part 574)
Definitions (Sec. 574.3)
Section 574.3, the definitions section of HUD's HOWPA regulation,
would be revised to reflect that the term ``affirmatively furthering
fair housing'' is defined in 24 CFR part 5.
Affirmatively Furthering Fair Housing (Sec. 574.4)
This section specifies that all grantees must comply with the
requirements to affirmatively further fair housing.
Recordkeeping (Sec. 574.530)
The proposed rule would amend this section of the HOPWA regulations
to include documentation of a program participant's Equity Plan,
consistent with Sec. 5.168.
Emergency Solutions Grants Program (ESG) Regulations (24 CFR Part 576)
Definitions (Sec. 576.2)
Section 576.2, the definitions section of HUD's ESG regulation,
would be revised to include introductory text to reflect that the term
``affirmatively furthering fair housing'' is defined in 24 CFR part 5.
Affirmatively Furthering Fair Housing (Sec. 576.4)
This section specifies that all recipients of ESG funds must comply
with the requirements to affirmatively further fair housing.
Recordkeeping and Reporting Requirements (Sec. 576.500)
The proposed rule would amend paragraph (s)(1)(ii) of this section
to provide that documentation related to its Equity Plan, consistent
with Sec. 5.168, must be maintained.
Public Housing Agency Plans (24 CFR Part 903)
What is the purpose of this subpart? (Sec. 903.1)
The proposed rule would amend this section to account for the PHA's
obligation to affirmatively further fair housing and comply with the
requirements set forth at Sec. Sec. 5.150 through 5.180.
What are the Public Housing Agency plans? (Sec. 903.4)
The proposed rule would add new paragraph (a)(3) to this section to
explain that the plans described in this section also include the
incorporation of the fair housing goals established in the PHA's Equity
Plan pursuant to Sec. 5.156.
What information must a PHA provide in the 5-year plan (Sec. 903.6)
The proposed rule would add new paragraph (a)(4) to this section to
account for the requirement that the 5-year plan include the PHA's fair
housing strategies and meaningful actions it intends to undertake in
order to implement the fair housing goals incorporated from the PHA's
Equity Plan pursuant to Sec. 5.156.
Paragraph (b)(2), which requires the PHA to account for progress
made in meeting the goals and objectives in the PHA's previous 5-year
plan, would be revised to permit PHAs to rely on the annual progress
evaluations required for the Equity Plan, conducted pursuant to
Sec. Sec. 5.152, 5.154(i) and (j), 5.156(d), and 5.160(f) and (i) for
purposes of meeting this requirement as it relates to the PHA's fair
housing goals. This means PHAs would not be required to compile new
reports on the same information multiple times.
What information must a PHA provide in the annual plan? (Sec. 903.7)
The proposed rule would revise Sec. 903.7 to account for the
requirement to develop an Equity Plan and incorporate the fair housing
goals from the Equity Plan into the PHA Plan. Paragraph
[[Page 8545]]
(a)(1)(iii) would be revised to permit the PHA, once it has submitted
an Equity Plan pursuant to the submission schedule at Sec. 5.160, to
rely on its analysis of affordable housing opportunities and the
analysis conducted pursuant to Sec. 5.154(e) in connection with its
Equity Plan, to the extent applicable, for purposes of the PHA's Annual
Plan.
Paragraph (b) of this section would be revised to require that the
PHA's deconcentration and other policies that govern eligibility,
selection, and admission be consistent with the PHA's obligation to
affirmatively further fair housing and the PHA's Equity Plan.
Paragraph (o) of this section would be revised to indicate that
each PHA must certify, among other things, that it will affirmatively
further fair housing and that it will take no action that is materially
inconsistent with fair housing and civil rights requirements throughout
the period for which Federal financial assistance is extended pursuant
to Sec. 5.166. These revisions relate to the 5-Year Plan and the
Annual Plan.
What is a Resident Advisory Board and what is the role in development
of the annual plan? (Sec. 903.13)
This section specifies the requirements for the Resident Advisory
Board, and the proposed rule would revise paragraphs (a) and (c) to
account for any community engagement activities relating to the Equity
Plan pursuant to Sec. 5.158, as well as other consultation
requirements relating to the development of the Equity Plan and the
incorporation of the fair housing goals from the PHA's Equity Plan into
the PHA Plan. The revisions to paragraph (c) also distinguish the
different complaint processes as they relate to complaints about the
PHA Plan as opposed to complaints relating to the Equity Plan or the
PHA's obligation to affirmatively further fair housing.
What is the relationship of PHA Plan to the Consolidated Plan and a
PHA's Fair Housing and Civil Rights requirements? (Sec. 903.15)
The proposed rule would revise the heading of this section to
include ``civil rights,'' as PHAs are subject to requirements beyond
the Fair Housing Act. The proposed rule would revise Sec. 903.15 in
paragraph (a) to indicate that the PHA Plan must be consistent with any
applicable Equity Plan incorporated into the applicable consolidated
plan pursuant to Sec. 5.156.
Paragraphs (b) and (c) would be revised to reference the Equity
Plan. Paragraph (c) would also be revised to reflect the applicable
nondiscrimination requirements and the obligation to affirmatively
further fair housing. Paragraph (c) is also amended to clarify the
certification the PHA must make pursuant to Sec. 903.7(o), and the
procedures HUD will follow if HUD challenges the validity of a PHA's
certification.
What is the process for obtaining public comment process on PHA Plans?
(Sec. 903.17)
The proposed rule would amend this section to account for the
Equity Plan, including the community engagement requirements under
Sec. 5.158 and the obligation to incorporate the Equity Plan's fair
housing goals into the PHA Plan pursuant to Sec. 5.156.
When is the 5-year plan or annual plan ready for submission to HUD?
(Sec. 903.19)
The proposed rule would add new paragraph (d) to Sec. 903.19 to
clarify for PHAs that the plan is not ready for submission to HUD until
the PHA has incorporated the fair housing goals from its Equity Plan.
What is the process by which HUD reviews, approves, and disapproves an
annual plan? (Sec. 903.23)
The proposed rule would amend paragraph (f) of Sec. 903.23 to
require PHAs to maintain records relating to its Equity Plan,
consistent with Sec. 5.168, and records relating to the PHA's AFFH
certification.
How does HUD ensure PHA compliance with its PHA Plan? (Sec. 903.25)
The proposed rule would amend this section to clarify that the
procedures HUD will use for the PHA Plan are different from those HUD
will use for the Equity Plan, and specifies that the procedures for the
Equity Plan are set forth at Sec. Sec. 5.162, 5.170, 5.172, and 5.174.
Project-Based Voucher (PBV) (24 CFR Part 983)
Site Selection Standards (Sec. 983.57)
The proposed rule would amend paragraph (b)(1) of Sec. 983.57 to
reference the PHA's Equity Plan and to remove paragraph (b)(1)(iii)
from this section.
IV. Questions for Comments
HUD welcomes comments on all aspects of the proposal. In addition,
HUD specifically requests comments on the following topics:
1. Are there ways in which HUD can further streamline this proposed
rule or further reduce burden, while continuing to ensure an
appropriate and necessary fair housing analysis that would enable
program participants to set meaningful goals that will affirmatively
further fair housing?
2. Does HUD's removal of the requirement to identify and prioritize
contributing factors still allow for a meaningful analysis that will
allow program participants to set goals for overcoming systemic and
longstanding inequities in their jurisdictions? If not, how can HUD
ensure that such an analysis occurs without imposing undue burden on
program participants?
3. HUD intends to continue to provide much of the same data it made
available in connection with the implementation of the 2015 AFFH Rule
through the AFFH-T, which is available at https://egis.hud.gov/affht/,
while exploring possible improvements to the existing AFFH-T Data &
Mapping Tool. HUD is also exploring other approaches to facilitating
program participants' data analysis and making HUD-provided data as
useful and easy to understand as possible for program participants and
the public. HUD seeks comment on the following related questions:
a. This notice of proposed rulemaking describes potential HUD-
provided data, data and mapping tools, guidance, and technical
assistance that may highlight some of the key takeaways from the HUD-
provided data and help program participants identify likely fair
housing issues. Should HUD also provide static data packages that
include some of the data included in the AFFH-T and a narrative
description of those data? If so, what data would be most helpful to
include in these data packages and narrative descriptions? For which
program participants would data packages and narrative descriptions be
most useful?
b. What additional data and tools could HUD provide to facilitate a
regional analysis?
c. What types of data relating to homeownership opportunities
should HUD consider providing? In addition to data on homeownership
rates, which already are available in the consolidated planning data
(CHAS) (which can be accessed at https://www.huduser.gov/portal/datasets/cp.html), including by protected class, what other data
sources are reflective of disparities in homeownership opportunity?
d. What other data sources should HUD provide for program
participants to better identify the various types of inequity
experienced by members of protected class groups that are the subject
of the proposed rule's required analysis?
e. Are there specific functions that could be included in the AFFH-
T to allow the data to be more usable, more
[[Page 8546]]
clearly displayed, or otherwise easier to interpret? If so, please
provide a description of such functionality.
f. Should HUD consider providing data that are not nationally
uniform if they are available for certain program participants even if
such data are not available for all program participants? If so, please
provide examples of data that would be useful to provide for which
there is not nationally uniform data and the reasons why it would be
useful for HUD to provide these data.
g. Are there additional data sets HUD could provide or require to
be used for purposes of conducting a fair housing analysis that relate
to eviction, neighborhood features (access to parks, green space,
trees), zoning and land use, and housing-related costs (like
transportation)?
4. Are there different or additional regulatory changes HUD could
make to the proposed rule that would be more effective in affirmatively
furthering fair housing, including ways to improve access to community
assets and other housing-related opportunities for members of protected
class groups, including historically underserved communities,
individuals with disabilities, and other vulnerable populations?
5. In what ways can HUD assist program participants in facilitating
the community engagement process so that the Equity Plans program
participants develop are comprehensive and account for issues faced by
members of protected class groups and underserved communities that
program participants may not necessarily be aware of? HUD specifically
seeks feedback on the following:
a. Should HUD require that a minimum number of meetings be held at
various times of day and various accessible locations to ensure that
all members of a community have an opportunity to be heard? Should HUD
require that at least one meeting be held virtually?
b. Should HUD provide different requirements for community
engagement based on the type of geographic area the program participant
serves (e.g., rural, urban, suburban, statewide, etc.) and if so, why
should requirements differ based on type of geography?
c. Should HUD require program participants to utilize different
technology to conduct outreach and engagement? If so, which
technologies have proven to be successful tools for community
engagement? Are these technologies usable by individuals with
disabilities, including those who utilize assistive technology or
require reasonable accommodations such as real-time captioning or sign-
language interpreters?
d. Has HUD sufficiently distinguished the differences between
community engagement and citizen participation or resident
participation such that program participants understand that HUD
expects a more robust engagement process for purposes of the
development of the Equity Plan than has previously been required for
purposes of programmatic planning? How can HUD ensure that these
important conversations are fully had within communities while not
significantly increasing the burden on program participants and the
communities themselves? Are there ways in which HUD can reduce any
unnecessary burden resulting from separate requirements to conduct
community engagement and citizen participation (for consolidated plan
program participants) or resident participation (for PHAs)?
e. Are there specific types of technical assistance that HUD can
provide to assist program participants in conducting robust community
engagement, including how community engagement can inform goal setting,
implementation of goals, and progress evaluations? If so, please
specify the types of technical assistance that would be must useful.
f. Should HUD require the community engagement process to afford a
minimum amount of time for different types of engagement activities
(e.g., public comments on proposed Equity Plans, notice before public
meetings)? If so, what should the minimum amount of time be in order to
afford members of the community an equal and fair opportunity to
participate in the development of the Equity Plan?
6. HUD seeks comments on whether the definition of ``affordable
housing opportunities'' is sufficiently clear. HUD also seeks comment
on whether the definition should apply to both rental and owner-
occupied units. Are there other categories of affordable housing that
should be explicitly referenced in this definition?
7. HUD has provided a new definition of ``geographic area of
analysis,'' which is intended to provide program participants and the
public a clear understanding of the types and levels of analysis that
are needed by different types of program participants. Does this
definition clearly articulate the geographic areas of analysis for each
type of program participant and are the levels of analyses for the
types of program participants appropriate to ensure Equity Plans are
developed and implemented in a manner that advances equity?
8. HUD requests commenters provide feedback on new Sec. 5.154,
which sets out the content of the Equity Plan. HUD specifically
requests comment on the following:
a. Are the questions in this proposed rule at Sec. 5.154 effective
for purposes of how to assess where equity is lacking and to facilitate
the development of meaningful goals that are designed and can be
reasonably expected to overcome the effects of past or current policies
that have contributed to a systemic lack of equity? Put differently, do
the proposed questions clearly elicit from program participants an
assessment of the fair housing issues that exist and their causes so
that goals can be appropriately tailored to address the identified fair
housing issues?
b. Does the analysis in proposed Sec. 5.154 lend itself to
identifying fair housing issues for each of the following protected
class groups: race, color, national origin, sex, religion, familial
status, and disability? If not, how can HUD improve this aspect of the
analysis to better serve this purpose? Are there additional data
sources that would assist in facilitating this analysis?
c. What additional areas of analysis, if any, should HUD include in
Sec. 5.154 that are not currently included in this proposed rule?
d. Should the section on fair housing goals (Sec. 5.154(g)) be
modified, improved, or streamlined so that program participants can set
appropriate goals for overcoming systemic issues impacting their
communities?
e. This proposed rule does not currently identify which specific
maps and tables contained in the HUD-provided data program participants
should rely on in answering specific questions provided at Sec. 5.154.
Should HUD require the use of specific data sets when responding to
these questions in Sec. 5.154, and if so, what benefit would that
have? How can HUD ensure that program participants, in using the HUD-
provided data, identify the fair housing issues and underlying reasons
for what the data show in order to assess where equity is truly lacking
in their geographic areas of analysis?
f. What is the proper regional analysis program participants should
undertake in order to identify fair housing issues and set meaningful
fair housing goals? Should different program participants have
different required regional analyses (e.g., States vs. local
governments; non-statewide PHAs)?
g. Does HUD need to more specifically explain the required level of
geographic analysis, whether in this rule itself or in
[[Page 8547]]
sub-regulatory guidance, for purposes of the development of the Equity
Plan, including how different levels of geographic analysis would
facilitate the setting of fair housing goals that would result in
material positive change that advances equity within communities? For
example, should HUD require certain types of program participants to
conduct an analysis at the following levels of geography for each fair
housing issue: Core-Based Statistical Area, Metropolitan Statistical
Areas, Block Groups, Census Tracts, and counties?
h. Are there different or additional questions that HUD should pose
to rural areas to assist such areas in meeting their obligations to
affirmatively further fair housing? If so, how should the analysis for
rural areas differ from the required analysis in proposed Sec. 5.154?
i. Has HUD sufficiently explained how to prioritize fair housing
issues within fair housing goal categories for purposes of establishing
meaningful fair housing goals? What additional clarification is needed,
if any?
j. In new Sec. 5.154(e), the required analysis for public housing
agencies (PHAs), has HUD sufficiently tailored the analysis required
for these entities, in particular for small or rural PHAs, while still
ensuring the PHA's Equity Plan is developed and implemented in a manner
that advances equity for members of protected class groups,
particularly those the PHAs serves or who are eligible to be served by
the PHA? How can HUD continue to streamline the required analysis for
PHAs while also ensuring an appropriate fair housing analysis is
conducted and meaningful fair housing goals are established and
implemented?
k. Are there areas of analysis that HUD should include for PHAs
that it has not included in this proposed rule that would better assist
PHAs in meeting their obligation to affirmatively further fair housing?
This may include analysis addressed to PHA-specific programs, such as
public housing, vouchers, Moving To Work, or other PHA programs, as
well as by type of PHA, such as troubled or qualified PHAs.\28\
---------------------------------------------------------------------------
\28\ Section 2702 of title II of the Housing and Economic
Recovery Act (HERA) introduced a definition of ``qualified PHAs'' to
exempt such PHAs, that is, PHAs that have a combined total of 550 or
fewer public housing units and Section 8 vouchers, are not
designated as troubled under section 6(j)(2) of the 1937 Act, and do
not have a failing score under the Section Eight Management
Assessment Program (SEMAP) during the prior 12 months, from the
burden of preparing and submitting an annual PHA Plan. See Public
Law 110-289, 122 Stat. 2654, approved July 30, 2008, see 122 Stat.
2863.
---------------------------------------------------------------------------
l. Are there additional ways HUD could incentivize PHAs to
collaborate with consolidated plan program participants in conducting
an Equity Plan such that they can pool resources and develop broader
solutions to fair housing issues?
m. Since HUD has removed the requirement to identify and prioritize
contributing factors, as was required by the Assessment Tool under the
2015 AFFH Rule, do the questions in Sec. 5.154 appropriately solicit
responses that would include the underlying causes of the fair housing
issues identified?
n. Are there specific questions HUD should ask that it has not
proposed in Sec. 5.154 of this proposed rule?
9. In order to reduce burden on program participants, and based on
the lessons learned from the implementation of the 2015 AFFH Rule, HUD
requests comments on how Equity Plans should be submitted to the
Department (e.g., through a secure portal, via email, through a web
page that allows uploads, etc.) and whether HUD should mandate the file
format the Equity Plan is submitted in (e.g., MS Word, PDF, etc.).
10. HUD has included several new definitions in this proposed rule
and requests feedback on whether they should be drafted differently,
whether there may be additional definitions that are not included that
would be useful, and whether any definitions included in this proposed
rule are unnecessary.
11. Has HUD appropriately captured the types of populations--based
on the characteristics protected by the Fair Housing Act--that have
historically been underserved and continue to be underserved today in
communities in the new definition of ``Underserved communities,'' and
if not, which additional types of populations or groups should HUD
consider adding to this definition?
12. HUD requests feedback on whether including the definition of
``Balanced approach'' is helpful in understanding how to connect
funding decisions to advancing equity within communities and how this
definition can be modified or improved in order to more clearly make
that connection.
13. HUD has changed the way submission deadlines are determined
from the way submission deadlines were established under the 2015 AFFH
Rule and requests feedback on whether the new submission deadlines
provided in Sec. 5.160 are clearer and are the appropriate way to
create tiers for the submission by entities of different sizes. HUD
welcomes feedback on different cutoffs for this section that are
accompanied by explanations of why different cut offs should be used
instead of those in this proposed rule. HUD also welcomes comment on
whether the timeframes set out in Sec. 5.162 are appropriate and what,
if any, obstacles might these new timeframes present with respect to
the development of the Equity Plan and compliance with other
programmatic requirements?
14. HUD seeks comment on whether it should require new program
participants to engage in any specific planning process or other
actions to meet their obligation to affirmatively further fair housing
prior to the submission of their first Equity Plan.
15. HUD requests specific feedback on new sections Sec. Sec. 5.170
through 5.174 and whether the compliance procedures and procedures for
effecting compliance can be further clarified and improved.
16. This proposed rule provides a stronger link between the
regulatory requirements for implementing the AFFH mandate and program
participants' subsequent planning processes in order to better ensure
that all programs and activities are administered in a manner that
affirmatively furthers fair housing, including by taking into account
how to allocate funding to effectuate that obligation. HUD requests
comments on how HUD can further ensure that program participants are
adequately planning to carry out activities necessary to advance equity
in their communities. Specifically, are certifications and assurances
requirements in this proposed rule, along with the new regulatory
provision at Sec. 5.166 sufficient to achieve this objective, and if
not, what additional regulatory language can be added that would
achieve this objective?
17. Has HUD adequately incorporated the need to assess any lack of
homeownership opportunities for protected class groups in this proposed
rule? If not, in what ways should access to homeownership be further
incorporated? Is there specific data that HUD could provide to further
facilitate this analysis?
18. Are there other types of ``community assets,'' that should be
included in the new definition and the analysis of disparities in
access to opportunity for purposes of the Equity Plan? If so, which
assets should be included that are not currently included in this
proposed rule?
19. How can HUD best facilitate receiving feedback on Equity Plans
submitted for its review from members of the public in order to inform
the review process and how should HUD consider such feedback? HUD seeks
comment on whether changes to the
[[Page 8548]]
regulatory text are necessary, and specifically whether the new
definition of ``publication'' at Sec. 5.152 and the provisions in
Sec. 5.160 achieve this objective.
20. Are there ways that HUD could better clarify how the fair
housing goals from an Equity Plan are incorporated into subsequent
planning processes? If so, how can HUD clarify this requirement such
that program participants will be able to implement their fair housing
goals and achieve positive fair housing outcomes in their communities?
21. What forms of technical assistance could HUD provide that would
better position program participants and their communities to develop
their Equity Plans and ultimately implement and achieve the fair
housing outcomes set therein?
22. HUD specifically solicits comment on the proposal to publish
submitted plans that it is reviewing but has not yet accepted or non-
accepted. HUD seeks comment on both the benefits of this proposal and
concerns with it.
23. HUD specifically asks for input on the following proposals for
reducing burden on small program participants:
a. HUD notes that some pieces of the analysis may not always be
relevant to some small program participants, depending on the local
circumstances. If specific parts of the proposed analysis are not
applicable to a small program participant's local circumstances, should
HUD permit the program participant to respond to that specific piece of
the analysis with ``not applicable''? If so, please identify the
specific parts of the analysis that might not always be applicable and
the circumstances under which it would not be applicable. If HUD were
to permit this, are there procedures it should follow to ensure that
program participants still conduct an appropriate fair housing
analysis, such as requiring an explanation of why the piece of the
analysis is not applicable, with reference to HUD-provided data, local
data, and local knowledge, including information gained from community
engagement? HUD seeks comment on the extent to which it can achieve
significant burden reduction for smaller program participants (and in
particular small PHAs) by clarifying expectations in this manner rather
than altering the proposed questions. In responding to this request for
comment, to the extent a commenter contends that a particular program
participant can or cannot reasonably conduct the analysis set forth in
the proposed rule, please describe the relevant local circumstances for
the program participant, including any demographic patterns, number of
units or consolidated plan program allocations, and local
infrastructure, as well as the analysis the commenter believes the
question is requiring.
b. HUD intends that the burden of analysis for many of the
questions in the proposed rule will be lower for smaller program
participants that have fewer people, places, and geographic areas to
analyze and seeks comment on this topic. Do the questions proposed in
Sec. 5.154 appropriately scale with the size and complexity of a
program participant, such that it would be easier for smaller program
participants to complete the analysis than larger program participants?
For example, does the fact that smaller program participants often
operate in smaller communities with fewer people, fewer community
assets, and less public infrastructure make the analysis easier to
complete? If so, how can HUD make explicit that the same question is
expected to result in a less burdensome analysis for smaller or less
complex program participants? What other mechanisms could be utilized
to minimize the burden for all program participants, but particularly
smaller program participants, while ensuring an appropriate analysis is
conducted to meet the proposed requirements in this rule?
c. Are there other ways in which HUD can alter the required
analysis for small program participants that meaningfully reduce burden
while ensuring an appropriate AFFH analysis such that these program
participants can establish meaningful fair housing goals?
d. To what extent, if any, should small program participants have
modified community engagement requirements, such as requiring fewer in-
person meetings and allowing different formats for meetings? Are there
other ways this proposed rule could modify community engagement
requirements to reduce burden on small program participants, while
ensuring that underserved communities and groups who have historically
not participated in this type of engagement have the opportunity to be
part of the process? For purposes of small program participants, are
there other ways they may be able to receive equivalent input from the
community, aside from those contemplated in the community engagement
process set forth in the proposed rule, that would reduce their burden
in obtaining local data and local knowledge, while still ensuring they
have the necessary information to produce a well-informed and
meaningful analysis?
e. Would it be appropriate to modify the goal-setting requirements
for smaller PHAs and consolidated plan participants and, if so, what
modification would be appropriate? The proposed rule does not specify
the number of goals that program participants must set. It does provide
that program participants must set goals that collectively address each
of the seven fair housing goal categories (which may require fewer than
seven goals, since a goal can address more than one category), unless
no fair housing issue is identified for any category, in which case no
goal is required to address that category. HUD seeks comment on whether
any modification of this requirement is appropriate for smaller
entities.
24. One way small program participants can reduce the burden of
completing the required analysis is to complete joint Equity Plans with
other program participants. HUD seeks comment on how it can further
encourage small program participants to complete joint Equity Plans.
25. HUD seeks comment on whether it is necessary to establish a
definition of ``small PHA'' or ``small consolidated plan participant''
and, if so, how HUD should define these terms.
26. Program participants who collaborate and conduct a joint Equity
Plan may benefit from pooling resources to overcome fair housing
issues. Are there further incentives HUD should or could offer to
program participants that submit joint Equity Plans to HUD?
27. Proposed Sec. 5.164 sets out the minimum criteria for when an
Equity Plan must be revised. HUD seeks comment on whether the proposed
Sec. 5.164 properly captures the circumstances under which a program
participant should revise its Equity Plan, and in particular on the
circumstances under which a disaster should or should not trigger the
need for such revision.
28. With respect to the proposed AFFH enforcement scheme, proposed
Sec. 5.170 would provide that complaints alleging the failure of a
program participant to affirmatively further fair housing must be filed
with HUD within 365 days of the date of the last incident of the
alleged violation, unless the Responsible Civil Rights Official extends
the time limit for good cause. While noting that the proposed inclusion
of a good cause exception reflects HUD's intent to be consistent with
the regulations and practices of Federal agencies with respect to
enforcement of various civil rights statutes, HUD specifically seeks
comment on the following:
[[Page 8549]]
a. Is 365 days an appropriate time limit? Are there specific
considerations that argue for a longer or shorter time limit?
b. What specific circumstances might constitute ``good cause,''
under which the Responsible Civil Rights Official might be justified in
extending the proposed 365-day deadline (e.g., the conduct constituting
the alleged violation was not known or made public within the 365-day
period)? Are there specific concerns that mitigate against a good cause
exception (e.g., a concern about inconsistent application)?
29. A large amount of Federal funding flows through States to local
jurisdictions, and HUD is interested in hearing about how States can
utilize those funds to affirmatively further fair housing. HUD
recognizes the unique planning responsibilities of States, as well as
the wide variation in data, including with respect to the varying sizes
and geographies of States (e.g., urban and rural areas). HUD
specifically seeks comment on the data needs and tools that may be
useful to States in conducting their Equity Plans.
a. How can States encourage broader fair housing strategies at the
State level and in localities, and what changes, if any, are needed to
the proposed rule that could improve its effectiveness as a tool for
States to further fair housing goals?
b. Are there data that HUD could provide to States to assist and
facilitate the fair housing analysis required by Sec. 5.154?
c. Is there additional information HUD could provide to States,
such as, for example, identifying regional issues where metropolitan
areas cross State borders?
d. How can HUD best display or provide data to States given their
varied sizes and geographies in order to facilitate the analysis
required by Sec. 5.154?
e. Given the unique role that States play, does the analysis and
content required in the Equity Plan provide States with sufficient
opportunities to coordinate both within the State (e.g., across various
departments, offices, or agencies as well as with local jurisdictions)
and, as appropriate, with neighboring States?
30. HUD seeks comment on whether the conforming amendments in 24
CFR parts 91, 92, 93, 570, 574, 576, 903, and 983 are adequate to
ensure that programmatic requirements are consistent with program
participants' implementation of this proposed rule's requirements.
Specifically, HUD seeks comment on whether the specific provisions
amended are sufficient or whether additional amendments should be made.
Are there specific ways in which HUD can further clarify the conforming
amendments to assist program participants in understanding and
fulfilling their obligations to affirmatively further fair housing?
31. Certain definitions in this proposed rule contain language
explaining how the defined term applies to the analysis required by
Sec. 5.154 and the type of analysis that HUD expects to be included in
an Equity Plan. HUD seeks comment on whether the inclusion of this type
of language in the regulations is helpful and provides additional
clarity regarding how the defined term should be used for purposes of
developing an Equity Plan.
32. As explained in this preamble, the proposed rule would take a
different approach than the 2015 AFFH Rule did as it relates to
circumstances in which HUD has not accepted a program participant's
fair housing plan prior to the date HUD must accept or reject its
programmatic plan (i.e., consolidated plan or PHA Plan). Under the 2015
AFFH Rule, HUD was required to disapprove a program participant's
programmatic plan under such circumstances, putting the program
participant's continued funding at risk. This meant HUD had only two
options: (a) accept a fair housing plan despite deficiencies or (b)
terminate the program participant's funding. In practice, although HUD
rejected some program participants' fair housing plans on initial
review and required them to be revised and resubmitted, HUD then
accepted every resubmitted plan before the program plan was due, and
thus never invoked the only available remedy of rejecting a
programmatic plan. In this proposed rule, HUD sets out a more flexible
framework that would enable HUD to take additional steps that do not
put funding immediately at risk but give a program participant a
reasonable opportunity to address deficiencies and submit an acceptable
fair housing plan. Under the proposed framework, HUD can reject a
program participant's Equity Plan but accept its programmatic plan,
allowing funding to continue so long as the program participant signs
special assurances prepared by the Responsible Civil Rights Official
that require the program participant to submit and obtain HUD
acceptance of an Equity Plan by a specific date. The proposed rule
provides that the program participant must commit to achieving an
Equity Plan that meets regulatory requirements within 180 days of the
end of the HUD review period for the programmatic plan and to amend its
programmatic plans to reflect the Equity Plan's fair housing goals
within 180 days of HUD's acceptance of the Equity Plan in order to
continue to receive Federal financial assistance from HUD. A program
participant's failure to enter into special assurances will result in
disapproval of its funding plan. Those program participants that submit
special assurances but do not fulfill them within the timeline provided
will face enforcement action that includes the initiation of fund
termination and a refusal to grant or to continue to grant Federal
financial assistance. Consistent with the increased transparency this
proposed rule provides, HUD will publicly post all executed special
assurances, and subsequently publicly post Equity Plans submitted
pursuant to the special assurances and HUD's decision to accept the
plans or not. HUD requests specific feedback on this special assurance
framework in general and on revisions that would better effectuate the
purposes expressed here and throughout this preamble. In particular,
HUD asks:
a. Does the special assurance framework, which would make program
participants that enter into special assurances subject to the remedies
set out in Sec. Sec. 5.172 and 5.174, provide sufficient incentive for
program participants to develop and submit compliant Equity Plans in a
timely manner? Are there changes that can be made to this proposed rule
that would further incentivize timely and sufficient submissions?
b. Are the remedies available to HUD under this framework
sufficient? Does HUD need to set forth with greater specificity the
remedies that a program participant could face for failing to provide
an acceptable Equity Plan by the time its programmatic plan must be
accepted? In particular, should the final rule specify the
circumstances under which a program participant necessarily will lose
funding, and if so, what are those circumstances?
V. Findings and Certifications
Regulatory Planning and Review--Executive Orders 12866 and 13563
Under Executive Order 12866,\29\ the Office of Management and
Budget (OMB) must determine whether this regulatory action is
``significant'' and, therefore, subject to the requirements of the
Executive order and subject to review by OMB.
---------------------------------------------------------------------------
\29\ Exec. Order on Regulatory Planning and Review, E.O. 12866,
58 FR 190 (Oct. 4, 1993), https://www.reginfo.gov/public/jsp/Utilities/EO_12866.pdf.
---------------------------------------------------------------------------
[[Page 8550]]
This proposed action is ``significant'' and therefore subject to
review by OMB under section 3(f)(4) of Executive Order 12866. The
Department has assessed the potential costs and benefits, both
quantitative and qualitative, of this proposed regulatory action and
has determined that the benefits would justify the costs.
The Department has also reviewed these proposed regulations under
Executive Order 13563,\30\ which supplements and explicitly reaffirms
the principles, structures, and definitions governing regulatory review
established in Executive Order 12866. Executive Order 13563 also
requires an agency ``to use the best available techniques to quantify
anticipated present and future benefits and costs as accurately as
possible.'' The Office of Information and Regulatory Affairs of OMB has
emphasized that these techniques may include ``identifying changing
future compliance costs that might result from technological innovation
or anticipated behavioral changes.''
---------------------------------------------------------------------------
\30\ Exec. Order on Improving Regulation and Regulatory Review,
E.O. 13563, 76 FR 3821 (Jan. 18, 2011), https://www.govinfo.gov/content/pkg/FR-2011-01-21/pdf/2011-1385.pdf.
---------------------------------------------------------------------------
The Department is issuing the proposed regulations only on a
reasoned determination that their benefits would justify their costs.
In choosing among alternative regulatory approaches, the Department
selected those approaches that maximize net benefits. HUD completed a
Regulatory Impact Analysis for this proposal. This section summarizes
the findings of that analysis and explains why the Department believes
that the proposed regulations are consistent with the principles in
Executive Order 13563.
The Department also has determined that this regulatory action
would not unduly interfere with State, local, or Tribal governments in
the exercise of their governmental functions.
1. Need for Regulatory Action
The segregation and disparities in access to opportunity that
prompted the Fair Housing Act's drafters to codify the AFFH obligation
persist. This Nation's failure to engage in a concerted and systematic
effort to redress its history of housing discrimination has further
perpetuated barriers to opportunity, compounding the damage done and
heightening the need for regulatory action. This rule operationalizes
the statutory obligation to AFFH by creating a streamlined structure
for program participants to engage in fair housing planning, in the
form of an Equity Plan, calculated to satisfy the AFFH mandate by
prompting program participants to take meaningful actions to achieve
outcomes that remedy the pervasive segregation and disparities in
access to opportunity that the Fair Housing Act was designed to
redress.
This rule is necessary to establish an effective approach to
implement the AFFH mandate. HUD is currently implementing the
obligation to AFFH by requiring that HUD program participants certify
that they will affirmatively further fair housing in their programs and
activities. The current framework, established by the AFFH IFR,
provides program participants with flexibility to choose the method of
fair housing planning that they undertake to support their
certification. However, the current regulatory regime would benefit
from a standardized mechanism to promote compliance with the statutory
obligation. This proposed rule restores the planning structure
associated with the 2015 AFFH Rule, but with substantial improvements
that increase transparency and accountability, while retaining
flexibility for program participants to establish fair housing goals
based on local circumstances.
This rule creates a guided inquiry to enable program participants
to engage in fair housing planning that empowers them to advance equity
for members of protected class groups and underserved communities in
their jurisdictions and set meaningful goals that effectuate positive
fair housing outcomes. In addition, the rule establishes a direct
connection between fair housing goals and subsequent planning processes
in the consolidated plan, annual action plan, or PHA Plan, thus
supporting program participants in embedding equity throughout their
decision-making and planning processes as directed by Executive Order
13985.
Without such a guided inquiry, program participants will be greatly
hindered in their efforts to redress inequities in their policies,
activities, services, and programs that serve as barriers to
opportunity and fair housing choice. The rule also provides both HUD
and the public with enhanced transparency over, and participation in, a
program participant's fair housing planning. This proposed rule would
also address HUD's current lack of a mechanism to engage in oversight
and enforcement to ensure that program participants comply with their
AFFH obligations.
The baseline situation would reflect a similar landscape as HUD's
implementation of the AFFH obligation prior to the promulgation of the
2015 AFFH Rule. Prior to that rule, without a formal regulatory
planning scheme in place, HUD's implementation of the AFFH obligation
was reliant on providing program participants with guidance, mainly in
the form of the Fair Housing Planning Guide, to support a broadly
permissive approach to fair housing planning which did not require
submission of fair housing planning documents to HUD for review.
However, as noted by advocates, stakeholders, and community members,
and reinforced by the U.S Government Accountability Office in its
report, ``HUD Needs to Enhance Its Requirements and Oversight of
Jurisdiction's Fair Housing Plans,'' \31\ such an approach failed to
ensure that program participants consistently embedded the required
fair housing considerations in their decision-making processes. This
approach also prevented HUD from engaging in effective oversight of
fair housing planning.
---------------------------------------------------------------------------
\31\ GAO-10-905, Sept. 14, 2010, available at https://www.gao.gov/products/gao-10-905.
---------------------------------------------------------------------------
HUD's recently published AFFH IFR was intended to be an interim
measure, necessary to expeditiously repeal the PCNC Rule and restore
legally supportable definitions and certifications for program
participants. This proposed rule would reinstate an effective and
meaningful regulatory scheme to implement the AFFH mandate, enhanced by
efficiencies derived from lessons learned from the implementation of
the 2015 AFFH Rule.
With appropriate planning, guided by the Equity Plan framework laid
out in this rule, program participants can be more intentional and
strategic in their work to take meaningful actions that overcome
patterns of segregation and foster inclusive communities. This proposed
rule offers a more streamlined approach to better ensure that tangible
fair housing outcomes are achieved. This rule also commits HUD to
helping program participants more easily identify where equity in their
communities is lacking and how they can advance equity for protected
class groups using HUD funds and other investments.
2. Summary Discussion of Costs, Benefits
HUD has analyzed the costs and benefits of complying with this
proposed regulation. HUD firmly believes that the benefits of this rule
justify the costs of compliance. While program participants will incur
costs associated with compliance, including in the development of the
Equity Plan, HUD believes such costs are justified by the benefits to
society and to individuals of not having to endure the
[[Page 8551]]
costs of racial and other forms of inequity. Additionally, as noted,
the approach here reduces prior burdens associated with fair housing
planning imposed by the 2015 AFFH Rule, greatly alleviating the
compliance costs that were associated with the 2015 AFFH Rule.
3. Benefits of the Proposed Regulations
HUD has analyzed the benefits of complying with the proposed
regulations. Executive Order 13985 begins with an acknowledgement that
equal opportunity is the bedrock of our democracy. Yet because of our
country's legacy of segregation, systemic racism, and other forms of
injustice against protected groups, far too many have been denied equal
opportunity. This rule directly implements this Executive order's
command of affirmatively advancing equity, requiring that program
participants, with the support of HUD, identify and address housing-
related disparities and other significant disparities in access to
opportunity. This rule would specifically provide substantial benefits
directly to groups protected by the Act by requiring HUD program
participants to expand fair housing choice and improve access to
opportunity. By enhancing such opportunity for these groups,
implementation of this proposed rule will also promote a more just and
equal society.
Current patterns of residential segregation are largely reflective
of this Nation's legacy of racially discriminatory housing, ableism,
and other policies. As noted earlier in this preamble, these vestiges
of discrimination, as well as the corresponding inequitable access to
opportunity, persist to this day. This proposed rule requires program
participants to redress these injustices. Program participants will be
required to promote fair housing choice, enhancing the opportunity for
protected groups to live where they choose by addressing the variety of
barriers that inhibit such access. For many program participants,
expanding access to fair housing choice will necessitate both
preserving and expanding accessible and affordable housing
opportunities, a critical and urgent need for this country. In
particular, this rule requires an analysis of barriers to affordable
housing, representing a key opportunity for program participants to
identify the policies and practices, such as land use and zoning
ordinances, that impede the development and maintenance of affordable
housing commensurate with need.
Increasing access to homeownership opportunities based on race can
begin to address the racial wealth gap, enabling families of color to
accumulate wealth and develop financial security.\32\ Individuals with
disabilities will also greatly benefit from enhanced access to
accessible and affordable housing opportunities, particularly where
expanded affordable housing enables individuals with disabilities to
access supportive services in a community-based setting.
---------------------------------------------------------------------------
\32\ See supra note 16, McCargo and Choi; note 17, Schuetz.
---------------------------------------------------------------------------
This rule creates a clearer definition of a balanced approach. A
balanced approach entails the balancing of place-based strategies that
target investment in areas that have historically been denied critical
resources along with strategies designed to combat segregation and
promote integration of protected class groups. There is a thorough and
growing body of social science research documenting the enhanced
quality of life outcomes based on living in well-resourced areas of
opportunity.\33\ As noted above, growing up in neighborhoods with lower
levels of poverty improves children's long-term prospects, through a
combination of a variety of factors, including through greater access
to quality schools and lower exposure to environmental and other health
hazards. This research furnishes strong empirical support for the
proposition that where one lives has a profound impact on their
trajectory in life. By facilitating moves to areas of opportunity on a
substantial scale, as well as place-based transformation of existing
areas to areas with opportunity, this rule has the capacity to improve
the quality of life of many individuals.\34\
---------------------------------------------------------------------------
\33\ See supra notes 8, 9, 10, 11, 12, 15.
\34\ Id.; see also infra note 12.
---------------------------------------------------------------------------
The concept of community assets, embedded as a critical focus in
the Equity Plan framework used by the rule, acknowledges that
residential segregation did not simply act to produce racially
homogenous neighborhoods. Rather, segregation also acted to deprive
people of color of access to high-quality features that enhance
equality of opportunity and quality of life.\35\ Disparities in access
to community assets overlap significantly with enduring patterns of
residential segregation. By directly requiring that program
participants consider community assets in their fair housing planning,
this rule will prompt greater access for underserved populations to,
among other features, environmentally healthy neighborhoods, grocery
stores, employment opportunities that pay a living wage, and reliable
transportation services.
---------------------------------------------------------------------------
\35\ See, e.g., Troustine, Segregation by Design: Local Politics
and Inequality in American Cities, November 2018.
---------------------------------------------------------------------------
For example, the rule critically identifies ``high quality
schools'' as an example of a community asset that is not often
equitably distributed and available within communities. In 1954, the
Supreme Court in Brown v. Board of Education found that separate
educational facilities are inherently unequal.\36\ Yet students of
color across the Nation are still disproportionately confined to
racially and economically segregated, underfunded schools.\37\
Disparities in access to equal educational opportunity continue to
persist based on protected class group, largely because where a child
lives often dictates their ability to attend a high-quality school.
Research has shown that most schools' racial composition is relatively
similar to that of their surrounding neighborhoods due to existing
school boundaries, which has perpetuated school segregation.\38\ This
rule acknowledges the direct link between housing opportunities and
access to equal educational opportunity and prompts program
participants to address and eliminate discriminatory housing policies
that lead to segregation among schools.\39\
---------------------------------------------------------------------------
\36\ Brown v. Bd. of Educ. of Topeka (No. 1.), 347 U.S. 483, 495
(1954).
\37\ ``Closing America's Education Funding Gaps,'' The Century
Foundation (July 22, 2020), https://tcf.org/content/report/closing-americas-education-funding/.
\38\ Richard V. Reeves, Nathan Joo, and Grover J. ``Russ''
Whitehurst, ``How school district boundaries can create more
segregated schools,'' Brookings (November 20, 2017), https://www.brookings.edu/blog/social-mobility-memos/2017/11/20/how-school-district-boundaries-can-create-more-segregated-schools/.
\39\ See also Executive Order on White House Initiative on
Advancing Educational Equity, Excellence, and Economic Opportunity
for Black Americans (October 19, 2021), https://www.whitehouse.gov/briefing-room/presidential-actions/2021/10/19/executive-order-on-white-house-initiative-on-advancing-educational-equity-excellence-and-economic-opportunity-for-black-americans/.
---------------------------------------------------------------------------
Recent research has identified the extent to which modification of
a single school's boundary can upend entrenched patterns of residential
and corresponding school segregation.\40\ This research highlights the
dramatic degree to which school attendance boundaries demarcate
racially and ethnically unequal schools, with corresponding data
identifying the extent to which these schools are also
[[Page 8552]]
unequal in terms of student achievement, staffing, academic offerings,
and discipline rates.\41\ In turn, unequal schools further perpetuate
both racial and ethnic segregation.\42\ This research simultaneously
illuminates the depth of this persistent problem while also showcasing
the extent to which the housing-school segregation relationship can be
disrupted through meaningful yet realistic actions by program
participants within their control. In addition to perpetuating the
racial achievement gap, such segregation often denies equal educational
opportunity to many students with disabilities, who lack access to
well-resourced special education programs and related services.
---------------------------------------------------------------------------
\40\ Tomas Monarrez & Carina Chien, ``Dividing Lines: Racially
Unequal School Boundaries in US Public School Systems,'' Urban
Institute (September 2021), https://www.urban.org/research/publication/dividing-lines-racially-unequal-school-boundaries-us-public-school-systems.
\41\ Id.
\42\ Id.
---------------------------------------------------------------------------
The proposed rule also offers healthcare services as another
example of a community asset. Disparities in access to healthcare
services, particularly for individuals of color, have been widely
documented. The Centers for Disease Control (CDC) has highlighted the
extent to which the COVID-19 pandemic has unequally affected many
racial and ethnic minority groups, placing them at higher risk of
getting sick and dying from COVID-19.\43\ The American Medical
Association explains that racial and ethnic minorities experience a
lower quality of health care, are less likely to receive routine
medical care, and face higher rates of morbidity and mortality than
nonminorities.\44\ By asking program participants to consider
inequities in access to healthcare services that are driven by lack of
fair housing choice, this proposed rule would seek to expand critical
access for racial minorities and other protected class groups to
quality healthcare services.
---------------------------------------------------------------------------
\43\ CDC, Health Equity Considerations and Racial and Ethnic
Minority Groups, https://www.cdc.gov/coronavirus/2019-ncov/community/health-equity/race-ethnicity.html.
\44\ See Reducing Disparities in Health Care, American Medical
Association, available at https://www.ama-assn.org/delivering-care/patient-support-advocacy/reducing-disparities-health-care.
---------------------------------------------------------------------------
Finally, the proposed rule also implements a more transparent
process, allowing the public to have access to all submitted Equity
Plans. This will afford the public an opportunity to provide comments
to HUD on Equity plan submissions, allowing the public to provide the
Department with information relating to a submission that may be useful
to HUD in its review of the Equity Plan. The rule also creates a
mechanism for HUD to engage in oversight and enforcement of the
obligation to affirmatively further fair housing, increasing the
likelihood that program participants achieve tangible outcomes that
advance equity and increase opportunity for protected groups.
Quantifiable Benefits
There will be substantial benefits associated with the promulgation
of this rule. The precise manner in which program participants will
comply with this obligation will vary substantially based on the unique
local fair housing issues of each program participant. Therefore, it is
not possible to quantify many of these benefits with precision.
However, once implemented, HUD expects this rule will greatly enhance
the welfare of members of protected class groups across a variety of
quality-of-life metrics.
Benefits That Cannot Be Quantified
In acknowledging the limitations of assessing proposed regulations
exclusively based on those benefits that can be quantified, Executive
Order 12866 and Executive Order 13563 require that agencies include
qualitative consideration of benefits. This principle, recently
affirmed by the White House's Memorandum on Modernizing Regulatory
Review, acknowledges that many of the benefits associated with an
agency's rulemaking, including equity, justice, and human dignity, are
difficult or impossible to quantify.
This rule would promote social welfare, racial justice, human
dignity, and equity, essential values not susceptible to
quantification. By requiring that program participants effectuate
positive fair housing outcomes by reducing longstanding inequities
faced by people of color, persons with disabilities, and other
protected class groups, this rule would greatly advance racial justice
and begin to redress our Nation's history of discriminatory housing
policies and practices. It is not enough for governments of all levels
to acknowledge the role they played in systematically declining to
invest in communities. They must take meaningful actions to overcome
the effects of past and current injustices, which HUD is requiring in
this rule.
Individuals with disabilities have historically faced
discrimination that has limited their opportunity to live independently
in community-based settings, resulting in them unnecessarily living in
institutions or other segregated settings that limit their autonomy and
ability to enjoy the freedom of expression and association that is part
of everyday life in the United States. Preventing unnecessary
institutionalization and enabling an individual with a disability to
live independently and access affordable accessible housing and
supportive services in their community is invaluable. Additionally, by
improving access to efficient and accessible transportation for this
group, individuals with disabilities are more likely to enjoy the
independence and dignity associated with employment that pays a living
wage.
This rule will also spur program participants to take actions to
ensure that other underserved communities have equitable access to
affordable housing opportunities, including for LGBTQ+ persons and
survivors of domestic violence who face discrimination because of their
protected characteristics. Facilitating access to housing can serve as
a critical lifeline for these populations that have long been denied
equal access in many aspects of American life. While the precise fair
housing goals will vary based on the program participant, in the
aggregate, these benefits will likely be realized after implementation
of this rule. Although the Department cannot, at this time, entirely
quantify the economic impacts of the benefits outlined above, the
Department believes that they are substantial and outweigh the
estimated costs of the proposed regulations.
4. Costs of the Proposed Regulations
HUD does not expect a large change in compliance cost as a result
of the rule, as States, local governments, and PHAs are already
required to engage in fair housing planning to support their
certifications. As discussed more fully in the Regulatory Impact
Analysis, HUD estimates a low-end collective compliance cost impact of
$21.4 million per 5-year planning cycle for program participants, or
about $4.3 million per year. HUD estimates the high-end collective
compliance cost to be $135 million per 5-year planning cycle for
program participants, or about $27 million per year. The aggregate cost
of complying with the planning requirements in this proposed rule is
not uniformly distributed among the 5,000 program participants that
would bear the costs. Costs would vary among program participants due
to several factors.
Given the many uncertainties in the precise cost program
participants will incur in complying with the planning processes
proposed in this rule, HUD requests public comment on the accuracy of
the assumptions contained
[[Page 8553]]
in estimates in the Regulatory Impact Analysis. As explained above, HUD
is committed to mitigating compliance costs for these entities by
providing technical assistance, including related to the HUD-provided
data, particularly so that the required analysis and planning can be
completed without the need to hire external consultants and
contractors.
HUD also notes that the goal of this rule is to establish a
regulatory framework by which program participants may more effectively
meet an existing statutory obligation; one that has applied to all
recipients of Federal financial assistance for over 50 years. HUD
intends for the streamlined analysis proposed in this rule to enhance
the efficacy of the fair housing process while lightening the burden
faced by program participants in complying with the statutory
requirement.
4. A Selected Changes in the Proposed Regulation Not Estimated To Have
Costs
HUD does not anticipate that most of the provisions in this
proposed rule would generate costs for program participants. Program
participants are currently required to certify compliance with a
definition of AFFH that is substantially similar to the definition
proposed in this rule. Thus, to support this certification, program
participants must currently incur some costs to comply. While this rule
would reduce some of the currently provided flexibility in fair housing
planning, given the streamlined nature of the Equity Plan, HUD
anticipates that program participants can accomplish the requirements
of this rule by using their existing fair housing planning
infrastructure.
As noted earlier in the preamble, this proposed rule refocuses fair
housing planning toward the development of meaningful fair housing
goals through the Equity Plan framework, which will make the fair
housing planning process simpler, while also improving the likelihood
of success for program participants. This proposed rule contains
substantially fewer questions compared to the requirements of the 2015
AFFH Rule for program participants to answer to determine how best to
advance equity for members of protected class groups and underserved
communities in their jurisdictions. To the extent program participants
were using a process analogous to the 2015 AFFH Rule to support their
fair housing planning, this proposed rule would reduce much of that
analysis.
HUD has further committed to providing program participants with a
data analysis to inform fair housing planning, which, when supplemented
with local knowledge, will streamline the identification of fair
housing issues. The Department will also provide robust technical
assistance and feedback to program participants during the Equity Plan
process. Taken together, these process improvements are likely to
reduce the compliance costs associated with this rule, let alone impose
additional costs over current compliance costs.
Distributional Impacts
As noted, HUD believes that the benefits of this rule will exceed
the costs associated with compliance. Even if the aggregate costs
associated with compliance with this rule exceeded the net benefits,
the rule would still be justified due to its distributional impacts.
Under applicable Executive orders governing agency rulemaking, as well
as OMB Circular A-4, agencies are required to consider the
distributional impacts associated with any rulemaking to ensure that
the regulation appropriately benefits, and does not inappropriately
burden, disadvantaged, vulnerable, or marginalized communities.
By design and definition, this rule will distribute substantial
benefits to groups that lack equitable access to fair housing
opportunities, often because they have historically experienced
disadvantage. The benefits of this rule will be accrued primarily by
protected groups as defined by the Fair Housing Act. These are groups
that have been and continue to be denied fair housing choice, isolated
in racially or ethnically concentrated areas of poverty or other
segregated settings, and subjected to disparities in access to
opportunity. HUD also does not believe that this rule places any burden
on these groups. In light of the modest anticipated compliance costs
associated with the rule, HUD believes that the substantial
distributional benefits justify the promulgation of this rule.
5. Regulatory Alternatives Considered
The Department considered the following alternatives to the
proposed regulations (1) leaving the current regulations in place
without issuing the proposed regulations and (2) repromulgating the
2015 AFFH Rule. The Department rejected alternative (1) for the reasons
expressed in the preamble. The current regime, while providing
substantial flexibility, lacks a standardized mechanism to promote
compliance with the statutory obligation. Under the current framework,
HUD also lacks the ability to engage in effective oversight and
enforcement of program participants' fair housing planning. Alternative
(2) was also rejected for reasons expressed in the preamble. This
proposed rule provides a more transparent and streamlined approach than
the one HUD implemented in 2015 to help guide communities in taking
meaningful actions to achieve tangible fair housing outcomes. After
careful consideration of these alternatives, the Department believes
that the proposed regulations represent the most effective way to
implement the obligation to affirmatively further the purposes and
policies of the Fair Housing Act.
Environmental Impact
This proposed rule is a policy document that sets out fair housing
and nondiscrimination standards. Accordingly, under 24 CFR
50.19(c)(13), this proposed rule is categorically excluded from
environmental review under the National Environmental Policy Act of
1969 (42 U.S.C. 4321 et seq.).
Regulatory Flexibility Act
The Regulatory Flexibility Act (5 U.S.C. 601 et seq.) generally
requires an agency to conduct a regulatory flexibility analysis of any
rule subject to notice and comment rulemaking requirements, unless the
agency certifies that the rule will not have a significant economic
impact on a substantial number of small entities. The undersigned
certifies that this rule would not have a significant economic impact
on a substantial number of small entities.
This rule proposes to strengthen the way in which HUD and its
program participants meet the requirement under the Fair Housing Act to
take affirmative steps to further fair housing. The preamble identifies
the statutes, executive orders, and judicial precedent that address
this requirement and that place responsibility directly on certain HUD
program participants, specifically local governments, States, insular
areas, and PHAs, underscoring that the use of Federal funds must
promote fair housing choice and open communities. Although local
governments, States, insular areas, and PHAs must affirmatively further
fair housing independent of any regulatory requirement imposed by HUD,
HUD recognizes its responsibility to provide leadership and direction
in this area, while preserving local determination of fair housing
needs and strategies.
This rule primarily focuses on establishing a regulatory framework
by which program participants may more
[[Page 8554]]
effectively meet their statutory obligation to affirmatively further
fair housing. The statutory obligation to affirmatively further fair
housing applies to all program participants, large and small. The
statutory obligation requires program participants to develop
strategies to affirmatively further fair housing as part of statutorily
imposed plans that address the use of HUD funds and that must be
submitted to HUD for review and approval. This proposed rule builds on
the statutory requirements to affirmatively further fair housing in
conjunction with the development of consolidated plans for States,
insular areas, and local governments, and PHA Plans for PHAs, and, in
doing so, provides for all program participants to comply with their
statutory requirements in a cost-efficient, yet meaningful and
effective manner.
The current statutory requirement imposed on States, insular areas,
local governments, and PHAs requires the program participant to certify
that it is affirmatively furthering fair housing. While that
certification is a simple and brief document submitted to HUD, it
nevertheless represents the attestation of the program participant that
it will take meaningful actions to affirmatively further fair housing.
While the certification is an important component of a program
participant's statutory obligation to affirmatively further fair
housing, even more important are the specific actions the program
participant takes to affirmatively further fair housing. Because the
Fair Housing Act requires that HUD programs and activities be
administered in a manner that affirmatively furthers the policies of
the Fair Housing Act, it is important for HUD to review the plans that
delineate how HUD programs will be implemented so that the Secretary
can be assured that HUD program participants are in fact affirmatively
furthering fair housing. The proposed rule, therefore, provides for
program participants to submit an Equity Plan to HUD.
The rule proposes to reduce administrative burden on program
participants in preparing and submitting an Equity Plan to HUD as
compared to the prior AI or AFH processes because HUD has proposed to
codify, in this proposed rule, the precise and direct questions to
which program participants must respond and will assist program
participants by providing data, guidance, and technical assistance. HUD
will continue to provide local and regional data on access to community
assets, such as education, transportation, employment, low-poverty
exposure, as well as patterns of integration and segregation, and the
demographics of particular types of housing. By responding to the
questions in this proposed rule, engaging with their communities, and
bringing to bear the knowledge they already have, along with relying on
the HUD-provided data, program participants will engage in a more
meaningful evaluation of who has access to equity in their communities.
This more straightforward and direct analysis will allow program
participants to more clearly identify how HUD funds can be used to
promote equity, overcome patterns of segregation, and increase access
to opportunity and community assets for underserved communities. HUD
will also be available to provide technical assistance to program
participants in the development of their Equity Plans and
implementation of meaningful fair housing strategies and actions. It is
HUD's position that this more streamlined approach will reduce burden
for program participants, large and small, in meeting their statutory
obligation to affirmatively further fair housing, relative to the 2015
AFFH Rule. Nonetheless, HUD is sensitive to the fact that the uniform
application of requirements on entities of differing sizes often places
a disproportionate burden on small entities. HUD commits to provide
guidance to small entities on how the Equity Plan's direct questions
may be answered without the need for consultants, contractors,
statisticians, or other experts and how they may still establish
meaningful and achievable fair housing goals that result in a material
positive change.
Executive Order 13132, Federalism
Executive Order 13132 (entitled ``Federalism'') prohibits, to the
extent practicable and permitted by law, an agency from promulgating a
regulation that has federalism implications and either imposes
substantial direct compliance costs on State and local governments and
is not required by statute, or preempts State law, unless the relevant
requirements of section 6 of the Executive order are met. This rule
does not have federalism implications and does not impose substantial
direct compliance costs on State and local governments or preempt State
law within the meaning of the Executive order.
The proposed rule will assist program participants of HUD funds to
satisfactorily fulfill the statutory obligation to affirmatively
further fair housing. As HUD has noted in the preceding section
discussing the Regulatory Flexibility Act, and in the Background
section of this preamble, the obligation to affirmatively further fair
housing is imposed by statute directly on local governments, States,
insular areas, and PHAs. As the agency charged with administering the
Fair Housing Act, HUD is responsible for overseeing that its programs
are administered in a manner that affirmatively furthers the fair
housing and civil rights-related purposes and policies of the entities
receiving HUD funds and that they fulfill their affirmatively
furthering fair housing obligation.
The approach taken by HUD in this proposed rule is to help local
governments, States, insular areas, and PHAs meet this obligation in a
way that is meaningful, but without undue burden. As noted throughout
this preamble, HUD proposes to provide local and regional data on
patterns of integration and segregation and access to community assets
such as education, transportation, employment, and other important
community amenities. This approach, in which HUD offers data, clear
standards and required areas of analysis, guidance, and technical
assistance, is anticipated to reduce burden and costs that have
historically been involved in regulatory schemes governing
affirmatively furthering fair housing. Since Federal law requires
States, insular areas, local governments, and PHAs to affirmatively
further fair housing, there is no preemption, by this rule, of State
law.
Paperwork Reduction Act
The information collection requirements contained in this proposed
rule will be submitted to the Office of Management and Budget (OMB)
under the Paperwork Reduction Act of 1995 (44 U.S.C. 3501-3520). In
accordance with the Paperwork Reduction Act, an agency may not conduct
or sponsor, and a person is not required to respond to, a collection of
information, unless the collection displays a currently valid OMB
control number.
Currently, States, local governments, and PHAs are encouraged to
prepare written plans to affirmatively further fair housing, undertake
activities to overcome identified barriers to fair housing choice, and
maintain records of the activities and their impact consistent with
their planning documents and certification. This burden is generally
accounted for in the Consolidated Planning and PHA Plan Information
Collection Requests (ICRs). OMB Control No. 2506-0117 (Consolidated
Plan, Annual Action Plan & Annual Performance Report) estimates 1,234
Localities spend 305 hours
[[Page 8555]]
annually on their planning and 50 States spend 741 hours annually on
their planning. OMB Control No. 2577-0226 (PHA Plans) estimates that
3,780 PHAs will spend 37.88 hours annually on their planning.
These currently approved collections do not account for the
specific burden for the affirmatively furthering fair housing
activities addressed in this notice of proposed rulemaking. HUD
proposes that the burden of these ICRs would be reduced by accounting
for the burden of the affirmatively furthering fair housing planning
process provided for in this new ICR. HUD estimates that the burden
reduction for the existing collection would be 5%, which HUD would
update in future revisions to ICR 2506-0117 and ICR 2577-0226. HUD
estimates that the burden hours to develop an Equity Plan will be on a
sliding scale from the largest program participants to the smallest
considering that the number of factors to consider in an Equity Plan
also scales to the size of the program participant. As detailed more
fully below, for example, HUD estimates it would take 150 hours for the
largest program participants to develop an Equity Plan, i.e., those
consolidated planning program participants receiving more than $100
million in annual entitlement allocations and PHAs with 50,000 or more
combined public housing and HCV units, as compared to 50 hours for the
smallest consolidated planning and PHA program participants, i.e.,
those consolidated planning program participants receiving less than $1
million in annual entitlement allocations and PHAs with 1,000 or fewer
public housing and HCV units.
HUD provides these sliding scale estimates for several reasons. HUD
proposes significant changes in this proposed rule from the final 2015
AFFH Rule in order to reduce burden. In particular, HUD is proposing to
codify the analysis questions for all program participants rather than
having separate assessment tools subject to change through PRA every
three years. Because larger program participants tend to operate in
larger geographic areas with larger populations, in particular, large
metropolitan areas, States, and insular areas, these larger program
participants will have more content to analyze. Conversely, smaller
program participants tend to operate in less densely populated areas
and tend to have fewer community assets. The questions proposed are
expected to scale with the size of the jurisdiction of the program
participant. In addition, HUD has eliminated various components of the
2015 AFFH Rule's AFH analysis, including, for example, the contributing
factors analysis. HUD anticipates that the more streamlined Equity Plan
analysis, which will not change every three years pursuant to PRA, will
provide a significantly reduced burden. HUD also bases these estimates,
including the sliding scale, on the burden hours estimated for AFH
preparation during implementation of the 2015 AFFH Rule. Smaller
program participants took significantly less time to prepare AFHs than
did the larger program participants, and the AFHs were similarly less
extensive. These combined factors led to HUD's estimate of 150 hours
for the largest program participants, which is 50 hours less than the
expected burden for the preparation of all AFHs under the 2015 AFFH
Rule.
HUD notes that while these burdens are listed as annual
obligations, the majority of any burden will happen for most program
participants once every five years. Based on HUD's experience
implementing its 2015 AFFH Rule, HUD estimates that 50% of plans will
be joint Equity Plans, whereby burden is significantly reduced for
program participants. HUD estimates that such joint Equity Plans will,
on average, include four joint program participants, and the program
participant burden will be reduced to 50 hours per program participant.
In certain circumstances, program participants will be required to
revise their Equity Plans. HUD anticipates that 5% of program
participants would be required to or voluntarily would revise their
Equity Plan, and the revised planning process would take an additional
50 hours per participant. As part of the Equity Plan and revising such
plan, program participants will have to complete community engagement
activities and maintain records of these activities. HUD estimates that
recordkeeping under the proposed rule will be 5 hours per program
participant. In support of their progress under the Equity Plan,
program participants must complete and provide to HUD annual progress
evaluations which are estimated for each program participant to take 10
hours.
As a part of this rulemaking, HUD is providing a process whereby
individuals can submit complaints related to the program participant's
obligations to affirmatively further fair housing, and HUD anticipates
100 complaints to be received each year, with an estimated total
processing burden time of 10 hours for program participants.
The burden of the information collections in this proposed rule is
estimated as follows:
Reporting and Recordkeeping Burden
----------------------------------------------------------------------------------------------------------------
Estimated
Number of average time Total
Section reference Number of responses per for estimated
parties party requirement annual burden
(hours) (hours)
----------------------------------------------------------------------------------------------------------------
Sec. Sec. 5.154, 5.168(a)(1) and (3) Equity Plan--Analysis, Fair Housing Goals, Meaningful Actions
----------------------------------------------------------------------------------------------------------------
Consolidated Plan Program Participant (States, \45\ 1,250 1 .............. ..............
Insular Areas, Local Governments, and
Consortia).....................................
$100 Million or More............................ 10 1 150 2,700
$30-99 Million.................................. 40 1 125 6,000
$1-29 Million................................... 660 1 100 63,800
Less than $1 Million............................ 540 1 50 24,150
---------------------------------------------------------------
Total Consolidated Plan Program Participant .............. .............. .............. 96,650
Burden.....................................
All PHAs........................................ \46\ 3,835 1 .............. ..............
50,000 or More Public Housing and Voucher Unit 5 1 150 600
PHAs...........................................
10,000-49,999 Public Housing and Voucher Unit 50 1 125 6,125
PHAs...........................................
1,000-9,999 Public Housing and Voucher Unit PHAs 610 1 100 61,000
Fewer than 1,000 Public Housing and Voucher Unit 3,170 1 50 158,600
PHAs...........................................
---------------------------------------------------------------
[[Page 8556]]
Total PHA Plan Program Participant Burden... .............. .............. .............. 226,325
Joint Equity Plans (Total Burden for All Joint 2,511 1 50 125,550
Program Participants Combined).................
Cumulative Total Burden Hours for Equity Plans 5,022 .............. .............. * 287,038
and Joint Equity Plans.........................
Sec. Sec. 5.158, 5.168 Recordkeeping for 5,022 1 5 25,110
Community Engagement and Other Activities......
Sec. 5.160(f) Annual progress evaluations..... 5,022 1 10 50,220
Sec. 5.170 Complaints......................... 100 1 10 1,000
Sec. Sec. 5.162(c) and 5.164 Revisions of 251 1 50 12,550
Equity Plans...................................
---------------------------------------------------------------
Total Burden................................ .............. .............. .............. 375,918
----------------------------------------------------------------------------------------------------------------
*(Con Plan + PHA)/2 + Joint Equity Plan.
In accordance with 5 CFR 1320.8(d)(1), HUD is soliciting comments
from members of the public and affected agencies concerning this
collection of information to:
---------------------------------------------------------------------------
\45\ Based on FY2021 data.
\46\ Based on FY2022 data.
---------------------------------------------------------------------------
(1) Evaluate whether the proposed collection of information is
necessary for the proper performance of the functions of the agency,
including whether the information will have practical utility;
(2) Evaluate the accuracy of the agency's estimate of the burden of
the proposed collection of information;
(3) Enhance the quality, utility, and clarity of the information to
be collected; and
(4) Minimize the burden of the collection of information on those
who are to respond, including through the use of appropriate automated
collection techniques or other forms of information technology, e.g.,
permitting electronic submission of responses.
Interested persons are invited to submit comments regarding the
information collection requirements in this rule. Comments must refer
to the proposal by name and docket number (FR-5593-P-01) and must be
sent to:
HUD Desk Officer, Office of Management and Budget, New Executive Office
Building, Washington, DC 20503, Fax: (202) 395-6947
And
Reports Liaison Officer, Office of Public and Indian Housing,
Department of Housing and Urban Development, Room 451, 7th Street SW,
Washington, DC 20410
Interested persons may submit comments regarding the information
collection requirements electronically through the Federal eRulemaking
Portal at https://www.regulations.gov. HUD strongly encourages
commenters to submit comments electronically. Electronic submission of
comments allows the commenter maximum time to prepare and submit a
comment, ensures timely receipt by HUD, and enables HUD to make them
immediately available to the public. Comments submitted electronically
through the https://www.regulations.gov website can be viewed by other
commenters and interested members of the public. Commenters should
follow the instructions provided on that site to submit comments
electronically.
List of Subjects
24 CFR Part 5
Administrative practice and procedure, Aged, Claims, Grant
programs--housing and community development, Individuals with
disabilities, Intergovernmental relations, Loan programs--housing and
community development, Low and moderate income housing, Mortgage
insurance, Penalties, Pets, Public housing, Rent subsidies, Reporting
and recordkeeping requirements, Social security, Unemployment
compensation, Wages.
24 CFR Part 91
Aged, Grant programs--housing and community development, Homeless,
Individuals with disabilities, Low and moderate income housing,
Reporting and recordkeeping requirements.
24 CFR Part 92
Administrative practice and procedure, Grant programs--housing and
community development, Low and moderate income housing, Manufactured
homes, Rent subsidies, Reporting and recordkeeping requirements.
24 CFR Part 93
Administrative practice and procedure, Grant programs--housing and
community development, Low- and moderate-income housing, Manufactured
homes, Rent subsidies, Reporting and recordkeeping requirements.
24 CFR Part 570
Administrative practice and procedure, American Samoa, Community
development block grants, Grant programs--education, Grant programs--
housing and community development, Guam, Indians, Lead poisoning, Loan
programs--housing and community development, Low and moderate income
housing, New communities, Northern Mariana Islands, Pacific Islands
Trust Territory, Pockets of poverty, Puerto Rico, Reporting and
recordkeeping requirements, Small cities, Student aid, Virgin Islands.
24 CFR Part 574
Community facilities, Disabled, Grant programs--health programs,
Grant programs--housing and community development, Grant programs--
social programs, HIV/AIDS, Homeless, Housing, Low and moderate income
housing, Non profit organizations, Rent subsidies, Reporting and
recordkeeping requirements, Technical assistance.
24 CFR Part 576
Community facilities, Emergency solutions grants, Grant programs--
housing and community development, Grant program--social programs,
Homeless, Reporting and recordkeeping requirements.
24 CFR Part 903
Administrative practice and procedure, Public housing, Reporting
and recordkeeping requirements.
[[Page 8557]]
24 CFR Part 983
Grant programs--housing and community development, Grant programs--
Indians, Indians, Public Housing, Rent subsidies, Reporting and
recordkeeping requirements.
Accordingly, for the reasons described in the preamble, HUD
proposes to amend 24 CFR parts 5, 91, 92, 93, 570, 574, 576, 903, and
983 as follows:
PART 5--GENERAL HUD PROGRAM REQUIREMENTS; WAIVERS
0
1. The authority citation for part 5 continues to read as follows:
Authority: 29 U.S.C. 794, 42 U.S.C. 1437a, 1437c, 1437c-1(d),
1437d, 1437f, 1437n, 3535(d), and Sec. 327, Pub. L. 109-115, 119
Stat. 2936; 42 U.S.C. 3600-3620; 42 U.S.C. 5304(b); 42 U.S.C. 12101
et seq.; 42 U.S.C. 12704-12708; E.O. 11063, 27 FR 11527, 3 CFR,
1958-1963 Comp., p. 652; E.O. 12892, 59 FR 2939, 3 CFR, 1994 Comp.,
p. 849.
Subpart A--Generally Applicable Definitions and Requirements;
Waivers
0
2. Revise Sec. Sec. 5.150 through 5.180 under the undesignated center
heading ``Affirmatively Furthering Fair Housing'' to read as follows:
Affirmatively Furthering Fair Housing
Sec.
5.150 Affirmatively furthering fair housing: Purpose.
5.151 Affirmatively furthering fair housing: Application.
5.152 Definitions.
5.154 Equity Plan.
5.156 Affirmatively furthering fair housing through Equity Plan
incorporation into subsequent planning documents.
5.158 Community engagement.
5.160 Submission requirements.
5.162 Review of Equity Plan.
5.164 Revising an accepted Equity Plan.
5.166 AFFH certifications required for the receipt of Federal
financial assistance.
5.168 Recordkeeping.
5.170 Compliance procedures.
5.172 Procedures for effecting compliance.
5.174 Hearings.
5.175-5.180 [Reserved]
Affirmatively Furthering Fair Housing
Sec. 5.150 Affirmatively furthering fair housing: Purpose.
(a) This section and Sec. Sec. 5.151 through 5.180 implement the
Fair Housing Act's affirmatively furthering fair housing (AFFH)
mandate, which requires Federal housing and urban development programs
and activities to be administered in a manner that not only avoids and
eliminates discrimination, but also remedies the legacy of public and
private policies and practices that have created segregated communities
and enduring inequities in housing and related opportunities throughout
the Nation. This section and Sec. Sec. 5.151 through 5.180 are
intended to ensure that HUD program participants, while making local
decisions responsive to local circumstances, commit to and implement
concrete actions that will meaningfully remedy persistent segregation,
limitations on fair housing choice, and unequal access to community
assets and related economic opportunities. This section and Sec. Sec.
5.151 through 5.180 aim to provide publicly transparent processes, to
provide flexibility and avoid unnecessary burden and confusion for
program participants, and to create accountability mechanisms that
ensure HUD, program participants, and the public at large, all can play
a part in meeting the urgent need to ensure that local fair housing
issues are fully identified and meaningfully addressed.
(b) To further these aims, this section and Sec. Sec. 5.151
through 5.180 set out a process under which program participants, after
robust engagement with their communities, will conduct a focused
analysis of the fair housing issues in their areas, establish fair
housing goals to overcome them, and submit their analysis and
commitments for HUD review, with the public having an opportunity to
submit comments for consideration during HUD's review. Program
participants will submit annual progress evaluations, made available to
the public, on their accomplishments under each goal they commit to
achieve, and will be able to amend or adjust goals that cannot be met
or that may require additional time. This section and Sec. Sec. 5.151
through 5.180 provide procedures for the public to file complaints
alleging violations of this section and Sec. Sec. 5.151 through 5.180
or the duty to affirmatively further fair housing, as well as for HUD
to conduct investigations and take any actions necessary to ensure
compliance.
(c) Ultimately, this section and Sec. Sec. 5.151 through 5.180
seek to further implement the AFFH statutory mandate by requiring and
assisting HUD program participants to embed fairness and equity in
their decision-making processes, particularly with respect to the use
of Federal financial assistance and resources, as they recognize and
redress inequities in their policies, activities, services, and
programs that serve as barriers to equal opportunity in housing. This
section and Sec. Sec. 5.151 through 5.180 seek to expand equitable
access to housing and related opportunities across all protected
classes, including race, color, national origin, religion, sex
(including gender identity, sexual orientation, and nonconformance with
gender stereotypes), disability, and familial status.
Sec. 5.151 Affirmatively furthering fair housing: Application.
All programs and activities relating to housing and urban
development must comply with the obligation to affirmatively further
fair housing. Sections 5.150 through 5.180 also include specific
planning requirements for program participants, as defined in Sec.
5.152.
Sec. 5.152 Definitions.
For purposes of Sec. Sec. 5.150 through 5.180, the terms
``consolidated plan,'' ``consortium,'' ``unit of general local
government,'' ``jurisdiction,'' and ``State'' are defined in 24 CFR
part 91. For public housing agencies (PHAs), ``jurisdiction'' is
defined in 24 CFR 982.4. The following additional definitions are
provided solely for purposes of Sec. Sec. 5.150 through 5.180 and
related amendments in 24 CFR parts 91, 92, 93, 570, 574, 576, 903, and
983.
Affirmatively furthering fair housing means taking meaningful
actions, in addition to combating discrimination, that overcome
patterns of segregation, eliminate inequities in housing and related
community assets, and foster inclusive communities free from barriers
that restrict access to opportunity based on protected characteristics.
Specifically, affirmatively furthering fair housing means taking
meaningful actions that, taken together, reduce or end significant
disparities in housing needs and in access to opportunity, replacing
segregated living patterns with truly integrated and balanced living
patterns, transforming racially and ethnically concentrated areas of
poverty into well-resourced areas of opportunity, and fostering and
maintaining compliance with civil rights and fair housing laws and
requirements. The duty to affirmatively further fair housing extends to
all of a program participant's activities, services, and programs
relating to housing and community development; it extends beyond a
program participant's duty to comply with Federal civil rights laws and
requires a program participant to take actions, make investments, and
achieve outcomes that remedy the segregation, inequities, and
discrimination the Fair Housing Act was designed to redress.
Affordable housing opportunities means:
(1) Housing that:
(i) Is affordable to low- and moderate-income households;
(ii) Has a sufficient number of bedrooms to meet the needs of
families
[[Page 8558]]
of various sizes, particularly large families; and
(iii) Meets basic habitability requirements.
(2) Affordable housing includes publicly supported housing as well
as housing that is otherwise affordable to low-income households. For
publicly supported housing, such housing must comply with applicable
program requirements for affordability and habitability.
(3)(i) The term ``affordable housing opportunities'' includes the
location of such housing, including proximity to community assets,
locations that promote integration, and locations that provide access
to opportunity and well-resourced areas.
(ii) Affordable housing opportunities also includes housing that is
accessible to individuals with disabilities, including by providing
necessary accessibility features.
(iii) Affordable housing opportunities also includes housing
stability for protected class groups, which may be adversely affected
by factors such as, but not limited to, rising rents, loss of existing
affordable housing, and displacement due to economic pressures,
evictions, source of income discrimination, or code enforcement.
Analysis of Impediments to Fair Housing Choice means the analysis
described in the Fair Housing Planning Guide (FHPG) originally
published by the Department in 1996 or in any subsequent update to the
FHPG that HUD may make available.
Balanced approach means and refers to an approach to community
planning and investment that balances a variety of actions to eliminate
the housing-related disparities that result from segregation, racially
or ethnically concentrated areas of poverty (R/ECAPs), the lack of
affordable housing in well-resourced areas of opportunity, the lack of
investment in community assets in R/ECAPs and other high-poverty areas,
and the loss of affordable housing to meet the needs of underserved
communities. A balanced approach includes a combination of actions
designed to address all these disparities. For example, place-based
strategies include actions and investment to substantially improve
living conditions and community assets in high-poverty neighborhoods
while preserving existing affordable housing stock to meet the needs of
underserved communities and address inequitable access to affordable
rental and homeownership opportunities. Mobility strategies, on the
other hand, focus on the removal of barriers that prevent people from
accessing affordable housing, for example in well-resourced areas of
opportunity that have historically lacked such housing and effective
housing mobility programs and services. To achieve a balanced approach,
community planning and investment would need to balance place-based
strategies with mobility strategies. Both place-based and mobility
strategies that are part of a balanced approach must be designed to
achieve positive fair housing outcomes. A program participant that has
the ability to create greater fair housing choice outside segregated,
low-income areas should not rely on solely place-based strategies
consistent with a balanced approach.
Community assets means programs, infrastructure, and facilities
that provide opportunity and a desirable environment. Examples of
community assets include: high performing schools (as well as quality
daycare and childhood educational services), desirable employment
opportunities, efficient transportation services, safe and well-
maintained parks and recreation facilities, well-resourced libraries
and community centers, community-based supportive services for
individuals with disabilities, responsive emergency services (including
law enforcement), healthcare services, environmentally healthy
neighborhoods (including clean air, clean water, access to healthy
food), grocery stores, retail establishments, infrastructure and
municipal services, banking and financial institutions, and other
assets that meet the needs of residents throughout the community.
Community engagement, as required by Sec. 5.158, means a
solicitation of views and recommendations from members of the community
and other interested parties, consideration of the views and
recommendations received, and a process for incorporating such views
and recommendations into planning processes, decisions, and outcomes.
Consolidated plan program participant. See definition of ``program
participants'' in this section.
Data collectively refers to:
(1) HUD-provided data. The term ``HUD-provided data'' refers to
metrics, statistics, and other quantified information, including data
sets specific to each program participant, provided by HUD, that
program participants are required to use in preparing an Equity Plan.
HUD-provided data will not only be provided to program participants but
will also be posted on HUD's website for public availability; and
(2) Local data. The term ``local data'' refers to metrics,
statistics, and other quantified information, subject to a
determination of reliability or statistical validity by HUD, relevant
to the program participant's geographic areas of analysis, that program
participants can find through a reasonable amount of search, are
readily available at little or no cost, including the location of
publicly supported housing, and are necessary for the completion of the
Equity Plan.
Days means calendar days.
Disability, as used in this part:
(1) The term ``disability'' means, with respect to an individual:
(i) A physical or mental impairment that substantially limits one
or more major life activities of such individual;
(ii) A record of such an impairment; or
(iii) Being regarded as having such an impairment.
(2) The term ``disability'' as used in this part shall be
interpreted consistent with the definition of such term under section
504 of the Rehabilitation Act of 1973, as amended by the ADA Amendments
Act of 2008. This definition does not change the definition of
``disability'' or ``disabled person'' adopted pursuant to a HUD program
statute for purposes of determining an individual's eligibility to
participate in a housing program that serves a specified population.
Equity or equitable means the consistent and systematic fair, just,
and nondiscriminatory treatment of all individuals, regardless of
protected characteristic, including concerted actions to overcome past
discrimination against underserved communities that have been denied
equal opportunity or otherwise adversely affected because of their
protected characteristics by public and private policies and practices
that have perpetuated inequality, segregation, and poverty.
Equity Plan means:
(1) The plan prepared by program participants, pursuant to Sec.
5.154, to advance local equity in housing, community development
programs, and access to well-resourced areas, opportunity, and
community assets. The Equity Plan includes two distinct parts:
(i) The analysis of fair housing data and identification of fair
housing issues required by the fair housing goal category; and
(ii) The establishment and commitment to undertake fair housing
goals, strategies, and meaningful actions for each fair housing goal
category, which program participants shall incorporate into subsequent
planning documents that identify how the program participant will use
funds or take actions to affirmatively further fair housing.
[[Page 8559]]
(2) Program participants submit their Equity Plan to HUD for
review. The Equity Plan may be conducted and submitted by an individual
program participant (individual Equity Plan) or may be a single Equity
Plan that is jointly conducted and submitted by two or more program
participants (joint Equity Plan). The Equity Plan includes program
participants' submission of annual progress evaluations, which will be
published on HUD maintained web pages.
Fair housing choice means that individuals and families have the
information, opportunity, and options to live where they choose,
including in well-resourced areas, without unlawful discrimination and
other barriers related to race, color, religion, sex (including sexual
orientation gender identity, and nonconformance with gender
stereotypes), familial status, national origin, or disability. Fair
housing choice encompasses:
(1) Actual choice, which means the existence of realistic housing
options (e.g., those that are affordable and attainable), including but
not limited to homeownership options;
(2) Protected choice, which means housing that can be accessed
without discrimination; and
(3) Enabled choice, which means realistic access to sufficient
information, services, and other options regarding both rental housing
and homeownership so that any choice is informed. For persons with
disabilities, fair housing choice includes a realistic opportunity to
obtain and maintain housing with accessibility features meeting the
individual's disability-related needs, housing provided in the most
integrated setting appropriate to an individual's needs, and housing
where community assets are accessible to individuals with disabilities,
including voluntary disability-related services that an individual
needs to live in such housing.
Fair housing goals means the goals developed by program
participants that are based on the analysis conducted in the Equity
Plan and are designed and can be reasonably expected to overcome
circumstances that cause, increase, contribute to, maintain, or
perpetuate fair housing issues in the program participant's geographic
areas of analysis. Fair housing goals include a description of
progress-oriented, specific measurable steps, including timeframes for
achievement, and a description of the amount of and potential sources
of funds (if any) needed to implement the goal. Fair housing goals may
be short-term, in that they can be achieved relatively quickly, or more
ambitious, long-term goals, in that they may take more than a single
funding cycle to be fulfilled. Fair housing goals are designed to
achieve tangible, positive, and measurable fair housing outcomes for
each of the seven fair housing goal categories in the program
participant's community. A program participant's fair housing goals
must work together to overcome fair housing issues identified in the
program participant's Equity Plan. To ensure program participants
affirmatively further fair housing, if program participants establish
ambitious goals that are contingent upon funding or other actions that
are not entirely within their control, program participants also must
establish fair housing goals that will achieve positive fair housing
outcomes in each goal category without reliance on contingencies that
may not be fulfilled. Each fair housing goal includes a description of
the key fair housing issue(s) it is designed to remedy or overcome.
When achieved, fair housing goals must result in a material positive
change toward overcoming fair housing issues.
Fair housing goal categories means the following categories for
which program participants must establish fair housing goals to
overcome identified fair housing issues:
(1) Integration and segregation;
(2) Racially or ethnically concentrated areas of poverty (R/ECAPs);
(3) Significant disparities in access to opportunity;
(4) Inequitable access to affordable housing and homeownership
opportunities;
(5) Laws, ordinances, policies, practices, and procedures that
impede the provision of affordable housing in well-resourced areas of
opportunity, including housing that is accessible for individuals with
disabilities;
(6) Inequitable distribution of local resources, which may include
State or municipal services, emergency services, community-based
supportive services, and investments in infrastructure; and
(7) Discrimination or violations of civil rights law or regulations
related to housing and access to community assets.
Fair housing issue means a condition in a program participant's
geographic area of analysis that restricts fair housing choice or
access to opportunity and community assets. Examples of such conditions
include but are not limited to: ongoing local or regional segregation
or lack of integration, racially or ethnically concentrated areas of
poverty, significant disparities in access to opportunity, inequitable
access to affordable housing opportunities and homeownership
opportunities, laws, ordinances, policies, practices, and procedures
that impede the provision of affordable housing in well-resourced
neighborhoods of opportunity, inequitable distribution of local
resources, which may include municipal services, emergency services,
community-based supportive services, and investments in infrastructure,
and discrimination or violations of civil rights law or regulations
related to housing or access to community assets. Participation in
``housing programs serving specified populations,'' as defined in this
section, does not present a fair housing issue of segregation, provided
that such programs are administered by program participants so that the
programs comply with title VI of the Civil Rights Act of 1964 (42
U.S.C. 2000d--2000d-4) (Nondiscrimination in Federally Assisted
Programs); the Fair Housing Act (42 U.S.C. 3601-19), including the duty
to affirmatively further fair housing; section 504 of the
Rehabilitation Act of 1973 (29 U.S.C. 794); the Americans with
Disabilities Act (ADA) (42 U.S.C. 12101, et seq.); and other Federal
civil rights statutes and regulations.
Fair housing strategies and actions means the specific policies and
actions intended to implement fair housing goals established in an
Equity Plan that are incorporated into the program participant's
subsequent planning documents (e.g., consolidated plan, annual action
plan, PHA Plan, and other plans relating to education, transportation,
infrastructure, and environmental protection, including those required
in connection with the receipt of Federal financial assistance from any
executive agency or department). Fair housing strategies and actions
describe how the funds that are the subject of the particular planning
document will be used to affirmatively further fair housing in the
program participant's jurisdiction consistent with the Equity Plan.
Funding decisions means decisions made to allocate resources,
including Federal financial assistance, State or local funds, bond
financing, and the administration, utilization, and allocation of low-
income housing tax credits by States, local governments, public housing
agencies (as applicable), or other entities.
Geographic area, geographic area of analysis, or area means the
areas, including a jurisdiction, region, State, Core-Based Statistical
Area (CBSA), or other applicable area (e.g., census tract,
neighborhood, ZIP code, block group,
[[Page 8560]]
housing development, or portion thereof) relevant to the analysis
required by Sec. 5.154. The geographic areas of analysis for the
different types of program participants are as follows:
(1) For States or insular areas, the expected geographic area of
analysis includes the whole State or insular area pursuant to 24 CFR
91.5, including entitlement and non-entitlement areas, on a county-by-
county basis (not neighborhood-by-neighborhood), and, where necessary
to identify fair housing issues, lower levels of geography, while also
including any analysis of circumstances outside the State that impact
fair housing issues within the State;
(2) For local governments, the expected geographic area of analysis
includes the whole jurisdiction of the local government pursuant to 24
CFR 91.5, the CBSA, and where necessary to identify fair housing
issues, lower levels of geography such as neighborhoods, ZIP codes,
census tracts, block groups, housing developments, or portions thereof,
while also including any analysis of circumstances outside the
jurisdiction that impact fair housing issues within the jurisdiction;
and
(3)(i) For PHAs that operate below the State level, the expected
geographic area of analysis includes the PHA's whole service area
(e.g., the area where a public housing agency is authorized to
operate), the CBSA, and where necessary to identify fair housing
issues, includes lower levels of geography such as neighborhoods, ZIP
codes, census tracts, block groups, housing developments, or portions
thereof, along with locations where vouchers administered by the PHA
are or could be utilized, while also including any analysis of
circumstances outside the service area that impact fair housing issues
within the service area.
(ii) For PHAs that operate within an entire State, the PHA's
expected geographic area of analysis includes the areas of analysis for
States as referenced in paragraph (3)(i) of this definition along with
the areas in which the PHA owns, operates, and administers housing
programs, and where necessary to identify fair housing issues, includes
lower levels of geography.
Homeownership opportunity means that one has the actual choice to
own, sell, buy, and finance a home, without discrimination based on a
protected characteristic.
Housing programs serving specified populations are HUD and Federal
housing programs, including designations in the programs, as
applicable, such as HUD's Supportive Housing for the Elderly,
Supportive Housing for Persons with Disabilities, homeless assistance
programs under the McKinney-Vento Homeless Assistance Act (42 U.S.C.
11301 et seq.), and housing designated under section 7 of the United
States Housing Act of 1937 (42 U.S.C. 1437e), that:
(1) Serve specific identified populations; and
(2) Comply with title VI of the Civil Rights Act of 1964 (42 U.S.C.
2000d--2000d-4) (Nondiscrimination in Federally Assisted Programs); the
Fair Housing Act (42 U.S.C. 3601-19), including the duty to
affirmatively further fair housing; section 504 of the Rehabilitation
Act of 1973 (29 U.S.C. 794); the Americans with Disabilities Act (42
U.S.C. 12101, et seq.); and other Federal civil rights statutes and
regulations.
Insular area has the same meaning as provided in 24 CFR 570.405.
Integration means a condition, within the program participant's
geographic area of analysis, in which there is not a high concentration
of persons of a particular race, color, religion, sex, familial status,
national origin, or having a disability or a particular type of
disability when compared to a broader geographic area. Racial
integration means that people of different racial groups generally are
not highly concentrated in distinct geographic areas within a community
(e.g., census tract or block group). For individuals with disabilities,
integration also means that such individuals are able to access housing
and services in the most integrated setting appropriate to the
individual's needs. The most integrated setting is one that enables
individuals with disabilities to interact with persons without
disabilities to the fullest extent possible, consistent with the
requirements of the Americans with Disabilities Act (42 U.S.C. 12101,
et seq.) and section 504 of the Rehabilitation Act of 1973 (29 U.S.C.
794). See 28 CFR part 35, appendix B (addressing 28 CFR 35.130 and
providing guidance on the Americans with Disabilities Act regulation on
nondiscrimination on the basis of disability in State and local
government services).
Joint program participants means two or more program participants
that are jointly conducting and submitting a single Equity Plan (a
joint Equity Plan), in accordance with Sec. 5.156 and 24 CFR
903.15(a)(1) and (2), as applicable. Joint program participants pool
resources to work together to solve cross-jurisdictional fair housing
issues.
Local knowledge means information not provided by HUD that relates
to the program participant's geographic areas of analysis, is relevant
to the identification of fair housing issues in the program
participant's Equity Plan and for setting of fair housing goals to
overcome the effects of identified fair housing issues pursuant to
Sec. 5.154, is known or becomes known to the program participant, and
is necessary for the completion of the Equity Plan. Local knowledge
includes, but is not limited to:
(1) Historical information on why current conditions within the
geographic areas of analysis exist and persist, which may include State
or local laws, ordinances, or policies that cause, perpetuate, increase
the severity of, or maintain fair housing issues;
(2) Information provided to the program participant during the
community engagement process that draws attention to the existence or
cause of one or more fair housing issues; and
(3) Information that assists the program participant in identifying
the causes of their local fair housing issues along with appropriate
solutions.
Meaningful actions means significant actions that are designed and
can be reasonably expected to achieve a material positive change that
affirmatively furthers fair housing by, for example, decreasing
segregation and increasing integration, increasing fair housing choice,
or decreasing disparities in access to opportunity in the program
participant's jurisdiction.
Program participants means:
(1) Jurisdictions and insular areas that are required to submit
consolidated plans for the following programs:
(i) The Community Development Block Grant (CDBG) program (see 24
CFR part 570, subparts D, F, and I);
(ii) The Emergency Solutions Grants (ESG) program (see 24 CFR part
576);
(iii) The HOME Investment Partnerships (HOME) program (see 24 CFR
part 92);
(iv) The Housing Opportunities for Persons With AIDS (HOPWA)
program (see 24 CFR part 574); and
(v) The Housing Trust Fund (HTF) program (see 24 CFR part 93).
(2) Public housing agencies (PHAs) receiving assistance under
sections 8 or 9 of the United States Housing Act of 1937 (42 U.S.C.
1437f or 1437g).
Protected characteristics are race, color, religion, sex (including
sexual orientation, gender identity, and nonconformance with gender
stereotypes), familial status, national origin, having a disability,
and having a type of disability.
Protected class means a group of persons who have the same
protected characteristic; e.g., a group of persons who are of the same
race are a protected
[[Page 8561]]
class. Similarly, a person who has a mobility disability is a member of
the protected class of persons with disabilities and a member of the
protected class of persons with mobility disabilities.
Publication means the public online posting of the Equity Plans and
annual progress evaluations submitted to HUD for review on HUD-
maintained web pages. These web pages will include, among other things,
a dashboard to track the status of a program participant's AFFH
planning and implementation-related activities and access to Equity
Plan submissions, annual progress evaluation reports, and related
notifications from the Department.
Publicly supported housing means affordable housing assisted with
funding through Federal, State, or local agencies or programs as well
as affordable housing financed or administered by or through any such
agencies or programs. Examples of publicly supported housing for
purposes of the analysis required by Sec. 5.154 include: public
housing; Project-Based Section 8; Other HUD Multifamily Housing (e.g.,
Section 202 Supportive Housing for the Elderly and Section 811
Supportive Housing for Persons with Disabilities); housing financed
with Low-Income Housing Tax Credits (LIHTC); housing financed through
loan guarantees (Section 108); and housing subsidized with Housing
Choice Vouchers. Other publicly supported housing includes housing
funded through the U.S. Department of Agriculture and the U.S.
Department of Veterans Affairs, or other HUD-funded housing, such as
affordable multifamily housing financed using HOME Investment
Partnerships funds, housing financed through the Housing Trust Fund,
and housing converted under the Rental Assistance Demonstration.
Racially or ethnically concentrated areas of poverty or R/ECAPs
means a geographic area with both significant concentrations of poverty
and segregation of racial or ethnic populations.
Region means the larger geographic area that a jurisdiction lies
within. Regions may vary in size, scope, and relevance based on the
nature of the jurisdiction and the fair housing issues present.
Regions, which include areas outside the program participant's
jurisdiction that are identified in HUD-provided data and supplemented
based on local data and local knowledge, and that impact fair housing
issues in the jurisdiction. For local government or PHA program
participants' jurisdictions that are adjacent to but not located within
a Core-Based Statistical Area (CBSA), the region includes the CBSA. For
local government or PHA program participants' jurisdictions that are
located within CBSAs, the region includes but is not necessarily
limited to the other portions of the CBSA.
Responsible Civil Rights Official means the Assistant Secretary for
Fair Housing and Equal Opportunity (FHEO) or his or her designee.
Reviewing Civil Rights Official means the FHEO official with the
designated authority to carry out the actions described in Sec. Sec.
5.170 and 5.172.
Segregation means a condition within the program participant's
geographic areas of analysis in which there is a significant
concentration of persons of a particular race, color, religion, sex
(including sexual orientation, gender identity, and nonconformance with
gender stereotypes), familial status, national origin, or having a
disability or a type of disability in a particular geographic area when
compared to a different or broader geographic area. Racial segregation
includes a concentration of persons of the same race regardless of
whether that race is the majority or minority of the population in the
geographic area of analysis. For example, in a community where persons
of one race (e.g., White) are concentrated in one neighborhood and
persons of another race (e.g., African American) are concentrated in a
different neighborhood, racial segregation exists in each of the
neighborhoods. For persons with disabilities, segregation includes a
condition in which available housing or services are not in the most
integrated setting appropriate to an individual's needs in accordance
with the requirements of the Americans with Disabilities Act (42 U.S.C.
12101, et seq.) and section 504 of the Rehabilitation Act of 1973 (29
U.S.C. 794). See 28 CFR part 35, appendix B (addressing 28 CFR 35.130).
Participation in ``housing programs serving specified populations'' as
defined in this section does not present a fair housing issue of
segregation, provided that such programs are administered to comply
with title VI of the Civil Rights Act of 1964 (42 U.S.C. 2000d--2000d-
4) (Nondiscrimination in Federally Assisted Programs); the Fair Housing
Act (42 U.S.C. 3601-19), including the duty to affirmatively further
fair housing; section 504 of the Rehabilitation Act of 1973 (29 U.S.C.
794); the Americans with Disabilities Act (42 U.S.C. 12101, et seq.);
and other Federal civil rights statutes and regulations.
Significant disparities in access to opportunity means substantial
and measurable differences in access to and quality of housing,
education, transportation, economic, and other important opportunities
in a community, including community assets, based on protected class
and related to where individuals of a particular protected class reside
in the program participant's geographic areas of analysis.
Siting decisions means decisions made by State or local entities,
including cities, counties, or general units of local government
regarding where and where not in a jurisdiction to locate, build,
finance, rehabilitate, develop, or permit the development of affordable
housing.
Underserved communities means groups or classes of individuals
(i.e., underserved populations), that are protected classes or who
share a particular characteristic, disproportionately include members
of protected class groups, and have not received equitable treatment,
as well as geographic communities (i.e., underserved geographic areas)
where members of protected class groups do not enjoy equitable access
to housing, education, transportation, economic, and other important
housing and community-related opportunities, including well-resourced
areas and community assets. Examples of underserved communities
include: communities of color, individuals experiencing homelessness,
Lesbian, Gay, Bisexual, Transgender, Queer, + persons (LGBTQ+), low-
income communities or neighborhoods, survivors of domestic violence,
persons with criminal records, and rural communities.
Well-resourced areas means areas within the program participant's
geographic area of analysis that have high-quality and well-maintained
community assets (in view of local economic circumstances), as defined
in Sec. 5.152, which afford residents genuine access to opportunity
(e.g., transportation, infrastructure, high performing schools,
economic opportunity, etc.) as a result of public and private
investments.
Sec. 5.154 Equity Plan.
(a) General. (1) Program participants must develop an Equity Plan
in accordance with this section. To develop an Equity Plan that is
successful in overcoming local fair housing issues, program
participants must first conduct an analysis--informed by community
engagement, HUD-provided data, and local data and local knowledge--to
identify the fair housing issues in their geographic area
[[Page 8562]]
of analysis as well as the circumstances and factors that cause,
increase, contribute to, maintain, or perpetuate those fair housing
issues. Program participants' analysis will focus, at minimum, on seven
areas of inquiry specified in this section. These seven areas are the
core fair housing goal categories for which program participants must
establish fair housing goals for identified fair housing issues.
(2) After engaging with the community in accordance with Sec.
5.158, conducting the analysis, and identifying fair housing issues,
circumstances, and factors, program participants must then prioritize
the identified fair housing issues in accordance with paragraph (f)(2)
of this section for purposes of setting one or more fair housing
goal(s) for each fair housing goal category.
(3) After prioritizing fair housing issues, program participants
must then establish one or more fair housing goal(s) to overcome the
prioritized fair housing issues for each fair housing goal category. A
well-designed fair housing goal may be effective in overcoming more
than one fair housing issue, including fair housing issues in more than
one fair housing goal category.
(4) After the program participant has established fair housing
goals, the program participant must submit the Equity Plan to HUD for
review in accordance with Sec. 5.160.
(5) Once a program participant's Equity Plan has been reviewed and
accepted by HUD in accordance with Sec. 5.162, the program participant
must incorporate the fair housing goals from its Equity Plan, along
with the fair housing strategies and actions that are necessary to
implement the goals, into its planning documents that are required by
Federal statutes or regulations as described in Sec. 5.156.
(6) On an annual basis following the acceptance of a program
participant's Equity Plan, the program participant must prepare and
submit to HUD for review an annual progress evaluation that describes
the program participant's progress toward achieving each fair housing
goal in the Equity Plan, any changed circumstances that are likely to
affect the program participant's ability to achieve any of its
established fair housing goals, and any proposed adjustments to the
program participant's fair housing goals that are necessary to ensure
that the program participant will be able to achieve the fair housing
goals in its Equity Plan and comply with the requirements of this
subpart.
(7) Following the submission of a program participant's annual
progress evaluation, HUD will accept the proposed adjustment to any
fair housing goal(s) or provide feedback to the program participant
describing how the fair housing goals may be adjusted so HUD can accept
them. The fair housing goals of an Equity Plan that has been accepted
by HUD will remain in effect unless a program participant's adjusted
goal has been accepted by HUD.
(b) Development of the Equity Plan. Aided by training, technical
assistance, and HUD-provided data as well as local knowledge, local
data, and information from engaging with their communities and other
agencies or government entities in their geographic area of analysis,
program participants will develop the Equity Plan and submit to HUD for
review. Certain portions of the analysis required for the development
of an Equity Plan may rely on local data, local knowledge, or
information obtained through community engagement to supplement HUD-
provided data or in lieu of HUD-provided data if HUD is unable to
provide data.
(c) Content of Equity Plan--(1) General. Each program participant
shall prepare an Equity Plan for the purpose of developing fair housing
goals, strategies, and meaningful actions that are designed and can be
reasonably expected to overcome identified fair housing issues in each
fair housing goal category and advance equity based on protected
characteristics in its geographic area of analysis with respect to its
programs, services, and activities, including funding and siting
decisions.
(2) Fair housing goals. Fair housing goals established by the
program participant in the Equity Plan shall include strategies and
meaningful actions. The fair housing goals, strategies, and meaningful
actions shall be incorporated, pursuant to Sec. 5.156, into the
program participant's consolidated plans, annual action plans, PHA
Plans, and any other plan incorporated therein, and community plans
including, but not limited to, education, transportation, or
environment and climate related plans, including those required in
connection with the receipt of Federal financial assistance from any
Federal executive agency or department.
(3) Scope of analysis. The Equity Plan's analysis, identification
of fair housing issues, and establishment of goals must address, at
minimum, the following fair housing goal categories:
(i) Segregation and integration;
(ii) Racially or ethnically concentrated areas of poverty (R/
ECAPs);
(iii) Disparities in access to opportunity;
(iv) Inequitable access to affordable housing opportunities and
homeownership opportunities;
(v) Laws, ordinances, policies, practices, and procedures that
impede the provision of affordable housing in well-resourced areas of
opportunity, including housing that is accessible for individuals with
disabilities;
(vi) Inequitable distribution of local resources, which may include
municipal services, emergency services, community-based supportive
services and investments in infrastructure; and
(vii) Discrimination or violations of civil rights law or
regulations related to housing or access to community assets based on
race, color, national origin, religion, sex, familial status, and
disability.
(4) Conducting the analysis. In conducting the Equity Plan's
analysis, the program participant must evaluate the jurisdiction's
local policies and practices impacting fair housing to determine
whether changes are necessary in order to affirmatively further fair
housing. The analysis required will depend on whether the program
participant is a local government, State, insular area, or a PHA.
(d) Content: Analysis--local governments, States, and insular
areas. At minimum, using HUD-provided data, local data, and local
knowledge, including information obtained through community engagement
required by Sec. 5.158, the Equity Plan shall respond to the following
questions with respect to the program participant's jurisdiction and
region:
(1) Demographics. (i) What are the current demographics of the
geographic area of analysis by protected class group (race, color,
national origin, religion, sex, familial status, and disability) and
how have demographics changed over time (e.g., since 1990 or the three
last decennial censuses, whichever is shorter)?
(ii) What are the current demographics of residents of different
categories of publicly supported housing in the jurisdiction and how
have those demographics changed over time?
(2) Segregation and integration. (i)(A) Which areas within the
geographic area of analysis have significant concentrations of
particular protected class groups, including racial/color/ethnic
groups, national origin groups, particular limited English proficient
(LEP) groups, individuals with disabilities, and other protected class
groups?
(B) Which, if any, of these geographic areas extend beyond the
boundaries of
[[Page 8563]]
the jurisdiction? Please note that depending on the geographic areas
used in this analysis, the jurisdiction's analysis may need to include
areas that go beyond the jurisdiction's specific boundaries.
(ii) How have patterns of segregation and integration in particular
geographic areas, as defined in Sec. 5.152, changed over time in the
jurisdiction and region?
(iii)(A) Compare the locations of publicly supported housing with
the areas of concentration (identified in paragraph (d)(2)(i) of this
section).
(B) How do the demographics of publicly supported housing compare
to the demographics of areas where the housing is located (identified
in paragraph (d)(2)(i) of this section)?
(C) How have siting decisions of private or publicly supported
housing or the location of residents using Housing Choice Vouchers
impacted the overall patterns of concentration (identified in paragraph
(d)(2)(i) of this section)?
(iv) What public or private policies or practices, demographic
shifts, economic trends, or other factors may have caused or
contributed to the patterns described in paragraphs (d)(2)(i) through
(iii) of this section?
(3) R/ECAPs. (i)(A) Identify and describe R/ECAPs, including their
location.
(B) What are the demographic groups living in R/ECAPs by protected
class?
(C) Which protected class groups predominantly reside in R/ECAPS?
To the extent that data is available, what percentage of each protected
class group in the jurisdiction or region resides in R/ECAPs?
(ii) How have the demographics and location of R/ECAPs changed over
time? For example, has there been an expansion or decrease in the
number of R/ECAPs in the geographic area of analysis? Has concentration
of protected class groups within each R/ECAP increased or decreased?
(iii)(A) How do R/ECAPs in the geographic area of analysis align
with the location of publicly supported housing?
(B) What are the demographics of residents of publicly supported
housing residing in R/ECAPs, including by program category, in
comparison to the demographics of R/ECAPs?
(iv) What public or private policies or practices, demographic
shifts, economic trends, or other factors may have caused or
contributed to the patterns described in the responses to paragraphs
(d)(3)(i) through (iii) of this section?
(4) Access to community assets. (i) Describe which protected class
groups experience significant disparities in access to the following
community assets:
(A) Education;
(B) Employment;
(C) Transportation;
(D) Low-poverty neighborhoods;
(E) Environmentally healthy neighborhoods; and
(F) Other community assets as defined in Sec. 5.152?
(ii)(A) Are there locations in the geographic areas of analysis in
which protected class groups experience significant disparities in
access to community assets listed in paragraph (d)(4)(i) of this
section?
(B) If so, which protected class groups experience lack of access
and where?
(C) Describe whether there is a difference in whether residents of
segregated areas and R/ECAPs, identified in paragraphs (d)(2) and (3)
of this section, have access to each of the community assets listed in
paragraph (d)(4)(i) of this section compared to the jurisdiction as a
whole?
(iii) Describe the barriers that deny individuals with disabilities
access to opportunity and community assets in your geographic area of
analysis with regard to the following:
(A) Accessible and affordable housing;
(B) Accessible government facilities and websites;
(C) Accessible public infrastructure (sidewalks, pedestrian
crossings, parks and recreation, libraries);
(D) Reliable and accessible transportation;
(E) Accessible schools and educational programs, and, in
particular, high-performing schools and educational programs;
(F) Employment; and
(G) Community-based supportive services.
(iv)(A) In what ways do residents of publicly supported housing, by
protected class group, experience disparities in access to opportunity
and community assets described in paragraphs (d)(4)(i) through (iii) of
this section?
(B) In what ways do underserved communities experience such
disparities?
(v) Is there a disproportionate need in underserved communities for
place-based community or economic development, such as assistance for
small businesses and microenterprises, infrastructure, commercial
redevelopment, job creation or retention and job training? If so, note
the type of issues identified by program participants or residents.
(vi) What public or private policies or practices, demographic
shifts, economic trends, or other factors may have caused or
contributed to the patterns described in the responses to paragraphs
(d)(4)(i) through (iv) of this section?
(5) Access to affordable housing opportunities. (i) Describe the
availability of affordable housing opportunities that are affordable to
families, by protected class group, at various income levels and where
such housing is located in the geographic area of analysis, including
whether such housing affords access to community assets and well-
resourced areas. This assessment includes an evaluation of whether
different protected class groups at various income levels have fair
housing choice in their ability to access affordable housing in
particular areas in the jurisdiction.
(ii) Describe the housing cost burden (e.g., more than 30 percent
of monthly income) and severe housing cost burden (e.g., more than 50
percent of monthly income) and overcrowding (particularly for large
families) experienced by protected class groups and indicate whether
such burden aligns with previously identified segregated or integrated
areas, or R/ECAP or non-R/ECAP areas.
(iii) Describe disparities in housing quality (i.e., substandard
housing conditions) by protected class group and indicate whether such
disparities align with previously identified segregated or integrated
areas, or R/ECAP or non-R/ECAP areas.
(iv) Which protected class groups, in the geographic area of
analysis, disproportionately face housing instability due to rising
rents, loss of existing affordable housing, and displacement due to
economic pressures, eviction, source of income discrimination, or code
enforcement?
(v) Describe how access to affordable housing opportunities has
changed in the geographic area of analysis over time. Describe how this
change has affected patterns of segregation and integration or the
expansion or contraction of R/ECAP and non-R/ECAP areas in the
geographic area of analysis.
(vi) What public or private policies or practices, demographic
shifts, economic trends, or other factors may have caused or
contributed to the patterns described in responses to paragraphs
(d)(5)(i) through (v) of this section?
(6) Access to homeownership and economic opportunity. (i)(A) Which
protected class groups experience significant disparities in access to
homeownership opportunities?
(B) What are the homeownership rates by protected class?
(ii) Are there protected class groups that experience significant
disparities in
[[Page 8564]]
access to other economic opportunities, which may include but are not
limited to:
(A) Access to livable-wage jobs;
(B) Access to services of reputable mortgage lenders and other
financial institutions;
(C) Access to fair and affordable credit;
(D) Access to reputable financial counseling services; and
(E) Fair residential real estate appraisals and valuations? If so,
which protected class groups experience lack of access?
(iii) What public or private policies or practices, demographic
shifts, economic trends, or other factors may have caused or
contributed to the patterns described in responses to paragraphs
(d)(6)(i) and (ii) of this section?
(7) Local and State policies and practices impacting fair housing.
(i) How do local laws, policies, ordinances, and other practices impede
or promote the siting or location of affordable housing in well-
resourced neighborhoods? What is the relationship between those laws,
policies, ordinances, and other practices and the segregated or
integrated areas and R/ECAP or non-R/ECAP areas identified in
paragraphs (d)(2) and (3) of this section?
(ii) How do local laws, policies, ordinances, and other practices
impede or promote equitable access to homeownership and other asset
building and economic opportunities by protected class group?
(iii) How have existing zoning and land use policies or ordinances,
the presence or lack of source of income anti-discrimination laws,
eviction policies and practices, and other State and local policies or
practices contributed to the patterns of segregation, integration, and
R/ECAPs identified in paragraphs (d)(2) and (3) of this section, as
well as access to affordable housing opportunities in well-resourced
areas throughout the geographic area of analysis for protected class
groups?
(iv) Describe the efforts and activities undertaken by the program
participant to work, collaborate, or partner with other offices,
departments, agencies, or entities within the program participant's
jurisdiction that aim to advance equity.
(v) What is the status of any unresolved findings, lawsuits,
enforcement actions, settlements, or judgments in which the program
participant has been a party related to fair housing or other civil
rights laws in the jurisdiction?
(vi) What efforts does the program participant take to increase
fair housing compliance and enforcement capacity, and to ensure
compliance with existing fair housing and civil rights laws and
regulations, in its geographic area?
(e) Content: Analysis--public housing agencies. PHAs must include
in their Equity Plan an analysis of the area in which the PHA operates,
whether the PHA operates in all parts of its authorized service area,
and the PHA's programs. PHAs may rely on relevant aspects of the
analysis contained in an accepted Equity Plan of the jurisdiction
within which it operates to ensure consistency with the jurisdiction's
consolidated plan, to the extent the accepted Equity Plan covers the
PHA's service area or region. PHAs may rely on the jurisdiction's
analysis with respect to general demographics, areas of segregation and
integration, the location of R/ECAPs, and where certain opportunities
exist or do not exist, but must perform its own analysis of how those
background circumstances affect equity in its own programs, activities,
and services. Similarly, PHAs that conduct a joint Equity Plan with a
local government, State, or insular area may rely on the analysis
provided by the other joint program participants with respect to
certain aspects of the analysis (so long as the analysis is sufficient
for the PHA to meet its own obligations with respect to this section),
such as general demographics, areas of segregation and integration, the
location of R/ECAPs, and where certain opportunities exist or do not
exist within the PHA's service area and region. Using HUD-provided
data, local data, and local knowledge, including information obtained
through community engagement required by Sec. 5.158, the Equity Plan
shall respond to the following questions with respect to the PHA's
service area and region:
(1) Demographics. (i) What are the current demographics of the
geographic area of analysis by protected class group (race, color,
national origin, religion, sex, familial status, and disability) and
how have those demographics changed over time (e.g., since 1990 or the
three last decennial censuses, whichever is shorter)?
(ii)(A) What are the current demographics of the different
categories of PHA owned or administered housing, and how have those
demographics changed over time?
(B) What are the current demographics of the different categories
of other publicly supported housing in the PHA's geographic area of
analysis, and how have those demographics changed over time?
(2) Segregation and integration. (i) Which areas within the
geographic area of analysis have significant concentrations of
particular protected class groups, including racial/color/ethnic
groups, national origin groups, particular limited English proficient
(LEP) groups, individuals with disabilities, and other protected class
groups? Which, if any, of these areas extend beyond the boundaries of
the service area?
(ii) How have patterns of segregation and integration in particular
geographic areas changed over time?
(iii)(A) How do patterns of segregation and integration in the
geographic area of analysis align with the demographics and location of
publicly supported housing developments?
(B) Since 1990 or the three last decennial censuses, whichever is
shorter, how have publicly supported housing siting decisions resulted
in an increase or decrease of patterns of segregation or integration in
the area, or have no such changes related to publicly supported housing
siting decisions been experienced?
(iv) What public or private policies or practices, demographic
shifts, economic trends, or other factors may have caused or
contributed to the patterns described in responses to paragraphs
(e)(2)(i) through (iii) of this section?
(3) R/ECAPs. (i)(A) Identify and describe R/ECAPs, including their
location.
(B) What are the demographic groups (by protected class) living in
R/ECAPs?
(C) What percentage of each protected class group in the
jurisdiction or region resides in R/ECAPs?
(ii)(A) How have the demographics and location of R/ECAPs changed
over time? For example, has there been an expansion or decrease in the
number of R/ECAPs in the geographic area of analysis? Has concentration
of protected class groups within each R/ECAP increased or decreased?
(B) Describe the conditions in R/ECAPs that limit access to
opportunity for the residents who live there, including housing costs
and cost burden, housing quality, housing instability, displacement,
source of income discrimination, and eviction risk. How have these
conditions changed over time?
(iii)(A) How many of the PHAs' public housing developments are
located in R/ECAPs?
(B) Compare the demographics and location of the residents of
public housing with the demographics and location of the R/ECAP.
(iv)(A) What proportion of the PHA's vouchers are inside R/ECAPs
compared to those outside R/ECAPs?
(B) What are the demographics (by protected class) of the PHA's
Housing
[[Page 8565]]
Choice Voucher assisted households residing inside R/ECAPs compared to
those outside R/ECAPs?
(C) Compare the locations of the Housing Choice Vouchers in the
service area (including other PHAs' Housing Choice Vouchers) to the
location of R/ECAPs described in paragraph (e)(3)(i) of this section.
(v) What public or private policies or practices, demographic
shifts, economic trends, or other factors may have caused or
contributed to the patterns described in paragraph (e)(3)(i) through
(iv) of this section?
(4) Access to community assets and affordable housing
opportunities. (i)(A) Describe which protected class groups have a
disproportionately greater need for affordable housing opportunities.
How do these groups compare to the PHA's current assisted resident
demographics?
(B) Are there other underserved communities or groups (e.g.,
persons experiencing homelessness) that also have a disproportionately
greater need for affordable housing opportunities?
(ii)(A) Of PHA participants, describe which protected class groups
experience significant disparities in access to the following community
assets:
(1) Education;
(2) Employment;
(3) Transportation;
(4) Low-poverty neighborhoods;
(5) Environmentally healthy neighborhoods;
(6) Affordable housing opportunities and homeownership
opportunities; and
(7) Other community assets as defined in Sec. 5.152.
(B) Which protected class groups on the PHA's waiting list or who
want to be on the PHA's waiting list experience significant disparities
in access to the community assets identified in paragraph (e)(4)(ii)(A)
of this section based on available local data and local knowledge?
(iii)(A) Compare locations of the PHA's public housing and Housing
Choice Vouchers and the demographics of voucher assisted households
with areas that have greater access or that lack access to these
community assets identified in paragraph (e)(4)(i)(A) of this section.
(B) Using this comparison, together with the analysis on
segregation (paragraph (e)(2)(i) of this section) and R/ECAPs
(paragraph (e)(3)(i) of this section), is there a lack of affordable
rental opportunities in more well-resourced areas, including units
affordable for housing choice vouchers and for improved voucher
mobility outcomes?
(C) How has access to community assets changed for the PHA's
residents based on the PHA's funding and sitting decisions?
(iv) Are there developments in the PHA's stock or residents of the
PHA's publicly supported housing in particular neighborhoods in the
PHA's service area that do not have the same access to the community
assets compared to other residents located in the PHA's service area?
Assets in this question refer to those described in paragraph (e)(4)(i)
of this section as well as other infrastructure and municipal services
(e.g., potable drinking water, sewer and drainage systems, trash
collection, snow removal, sidewalks, etc.).
(v) Describe any differences, based on local data and local
knowledge, in the quality of the PHA's housing for residents residing
in:
(A) R/ECAPs compared to the housing the PHA offers residents
residing in other parts of the PHA's service area; and
(B) Elderly-designated housing or housing disproportionately
serving older adults (whether or not specifically authorized to do so)
compared to housing serving families.
(vi) Describe whether individuals with disabilities who participate
in or who are eligible to participate in the PHA's programs, services,
and activities experience barriers that deny individuals with
disabilities access to opportunity and community assets in the
geographic areas of analysis with regard to the following:
(A) Accessible and affordable housing;
(B) Accessible government facilities and websites;
(C) Accessible public infrastructure;
(D) Reliable and accessible transportation;
(E) Accessible schools and educational programs, and in particular,
high-performing schools and educational programs;
(F) Employment; and
(G) Community-based supportive services.
(vii) What public or private policies or practices, demographic
shifts, economic trends, or other factors may have caused or
contributed to the patterns described in the responses to paragraphs
(e)(4)(i) through (vi) of this section?
(5) Local policies and practices impacting fair housing. (i) How do
local laws, policies, ordinances, and other practices impede or promote
the siting of affordable housing and use of Housing Choice Vouchers in
well-resourced areas of opportunity? This analysis shall include both
policies of the kind that are under the PHA's direct control (for
example, preferences, types of housing designations, creation and
retention of units for large families) and municipal or State policies,
such as zoning and land use policies, ordinances, or regulations,
eviction policies and procedures, or the lack of laws banning source of
income discrimination, that are known to the PHA that impact the siting
of affordable housing and voucher mobility.
(A) Describe the boundaries of the PHA's service area.
(B) Describe the PHA's mobility and portability policies and
activities; is there a need for additional mobility services, landlord
incentives, policies related to portability policies or to payment
standards and fair market rents, or other policies that might improve
housing choice voucher mobility outcomes?
(C) Is there a need for services, improved access to economic
opportunity, or place-based investments to assist the PHA's assisted
residents or the neighborhoods where its housing developments or
Housing Choice Vouchers are located? Examples could include a need for
services for residents, job training and placement, service
coordinators, health access, after-school programs or tutors, broadband
access, access to reputable and affordable financial services?
(ii) Describe the efforts and activities undertaken by the PHA to
work, collaborate, or partner with other offices, departments,
agencies, or entities within the program participant's jurisdiction
that aim to advance equity.
(iii) What is the status of any unresolved findings, lawsuits,
enforcement actions, settlements, or judgments involving the PHA
related to fair housing or other civil rights laws?
(iv) What specific steps does the PHA take to ensure compliance
with existing fair housing and civil rights laws and regulations,
including the implementation of discretionary policies and practices
(e.g., policies related to preferences, portability, reasonable
accommodations, unit tenanting, including designated accessible units,
evictions)?
(f) Content: Description and prioritization of fair housing issues.
(1) For each program participant, the Equity Plans shall include a
description of the fair housing issues identified during the analysis
conducted for each fair housing goal category. The description of a
fair housing issue shall include the specific conditions that
constitute the fair housing issue and the protected class groups that
are adversely affected by the issue. Program participants are expected
to identify all fair housing issues. They must also identify those that
present the
[[Page 8566]]
greatest barriers to fair housing choice and deny equitable access to
community assets for protected class groups.
(2) For purposes of establishing the Equity Plan's fair housing
goals, program participants must prioritize the identified fair housing
issues in each fair housing goal category. When prioritizing fair
housing issues, program participants must give consideration to fair
housing issues faced by underserved communities that have historically
been denied fair housing choice, isolated in racially or ethnically
concentrated areas of poverty or other segregated settings, and
subjected to disparities in access to opportunity, including the
opportunity to live in well-resourced areas, the opportunity to enjoy
equal access to community assets, and access to homeownership
opportunities. In determining how to prioritize fair housing issues
within each fair housing goal category, program participants shall give
highest priority to fair housing issues that will result in the most
effective fair housing goals for achieving material positive change for
underserved communities, taking into account that different protected
class groups may be impacted by different fair housing issues.
(g) Content: Fair housing goals. (1) For each program participant,
the Equity Plan shall include the establishment of fair housing goals
that are designed and can be reasonably expected to overcome the fair
housing issues identified through the analysis conducted pursuant to
paragraphs (d) and (e) of this section. Program participants are not
required to set fair housing goals for fair housing goal categories
that do not have identified fair housing issues. While HUD expects to
see progress toward the achievement of each goal by the time of the
program participant's next Equity Plan, HUD recognizes that all goals
may not be fully achieved during a single five-year cycle.
(2) Fair housing goals, when taken together, must be designed to
overcome prioritized fair housing issues in each fair housing goal
category and must be designed and reasonably expected to result in
material positive change and consistent with a balanced approach.
(3) A program participant's goals may consist of short-term goals
such that material positive change is readily achieved, as well as
long-term goals such that material positive change occurs within the
jurisdiction over a prolonged but reasonable period of time. When
establishing fair housing goals, program participants may adopt a small
number of goals if such goals could ultimately result in outcomes that
have a significant impact toward advancing equity for protected class
groups by reducing the adverse effects of fair housing issues. Program
participants' consideration of the reach and breadth of their own
authority and spheres of influence must be taken into account when
determining which goals to set. A program participant may prioritize
implementation of particular goals over others but must ensure that any
prioritization will result in meaningful actions that affirmatively
further fair housing. So long as a program participant meets these
requirements, the program participant has discretion to set goals that
can reasonably be expected to address local fair housing issues and to
specify actions necessary to implement those goals. The following are
examples of some goals that may be appropriate depending on the
circumstances facing the jurisdiction; these examples are not the only
types of goals program participants may set nor are program
participants required to set these specific goals if they would not
address the fair housing issues in their communities.
(i) A fair housing goal to overcome segregation in specific
neighborhoods in the jurisdiction could consist of:
(A) Siting development of future affordable housing outside of
segregated areas; and
(B) Eliminating barriers to homeownership for members of protected
class groups that have historically been denied an equal opportunity to
become homeowners.
(ii) A fair housing goal to overcome segregation in specific
neighborhoods and promote integration and fair housing choice in others
could consist of expanding mobility programs to provide more housing
opportunities in well-resourced areas of opportunity for individuals or
families that utilize housing vouchers.
(iii) A fair housing goal to overcome disparities in access to
affordable housing could consist of a PHA's revision of its own
policies to provide more flexibility in admission criteria (for
example, with respect to those who have previously faced eviction due
to financial hardship or individuals who have been denied access to
housing due to prior involvement in the justice system), efforts to
combat source of income discrimination, and any necessary revisions to
a PHA's eviction policies so individuals from protected class groups
are not excluded from the PHA's programs or activities.
(iv) A fair housing goal to overcome inequitable access to high-
performing schools could consist of realignment of school district
boundaries, school zones, or school feeder patterns and increasing the
funding for schools in R/ECAPs to ensure that members of historically
underserved protected class groups have equitable access to educational
opportunities regardless of where they live; such a goal could require
multiple parts of the jurisdiction to work together to advance equity
and may require leaders in the community to provide the political will
for such a goal to be established and implemented.
(v) A fair housing goal to increase housing and neighborhood access
could consist of reducing land use and zoning restrictions that limit
housing supply and increase housing costs in order to ensure that
members of historically underserved communities and protected class
groups have equitable access to affordable housing opportunities in
well-resourced areas throughout the jurisdiction.
(vi) A fair housing goal to ensure that underserved communities
have equitable access to affordable housing opportunities,
homeownership, and community assets may include amending local laws to
include additional protections for certain underserved populations,
such as LGBTQ+ persons or survivors of domestic violence, and may
include the removal of barriers that exist in local laws such as
nuisance or crime free ordinances, which may limit access to affordable
housing because of protected characteristics.
(vii) A fair housing goal to overcome the fair housing issues of
segregation and disparities in access to opportunity for individuals
with disabilities due to a lack of accessible, affordable housing could
include the incorporation of the provision of enhanced accessibility
features (e.g., features that provide greater accessibility than the
minimum features required by accessibility standards) in new
construction and rehabilitation of affordable housing to create greater
access to integrated housing opportunities for individuals with
disabilities.
(viii) A fair housing goal to enact source of income anti-
discrimination laws, and/or to develop better enforcement strategies
around such laws to ensure that underserved communities have equitable
access to housing assistance programs, affordable housing
opportunities, and community assets.
(4) Though program participants may not have direct or sole control
over certain issues within their communities, HUD expects program
participants to work closely with entities that have control of such
issues to achieve fair housing outcomes. With respect to identified
fair housing issues over which the program participant has
[[Page 8567]]
limited control, the program participant must consider the types of
goals it can achieve that would ameliorate the effects of prioritized
fair housing issues using the authority, tools, and influence it does
have, including by collaborating with other program participants.
(5) Fair housing goals in the Equity Plan must not result in
policies or practices that discriminate in violation of the Fair
Housing Act or other Federal civil rights laws. Fair housing goals also
may not require residents of racially or ethnically concentrated areas
of poverty to move away from those areas if they prefer to stay in
those areas as a matter of fair housing choice.
(6) In addition, fair housing goals must:
(i) Identify the fair housing issue(s) the goal is designed to
address--for instance, where segregation in a development or geographic
area is determined to be a fair housing issue, HUD expects the Equity
Plan to establish one or more goals to reduce the segregation;
(ii) Explain how the goal, alone or in concert with other goals,
will overcome the fair housing issue(s) it is designed to address;
(iii) Set timeframes for achievement of the goal, including metrics
and milestones for how achievement of the goal will be measured; and
(iv) Describe the specific steps or actions that need to be taken
to achieve the goal and the amount of funding that will be needed in
order to fully achieve the goal.
(h) Additional content. (1) Program participants must include the
following additional content as part of their Equity Plan submitted to
HUD:
(i) A summary of the community engagement activities undertaken
pursuant to Sec. 5.158;
(ii) A description of how the program participant addressed the
comments received through the community engagement process required by
Sec. 5.158;
(iii) As an attachment, all written comments received and
transcripts or audio or video recordings of hearings held during the
development of the Equity Plan; and
(iv) Signed certifications and assurances, as required by Sec.
5.160.
(2) Program participants may include an executive summary or any
other information the program participant believes relevant to the
Equity Plan.
(i) Progress evaluation. (1) Program participants should engage in
continual evaluation of their progress, but must do so no less
frequently than once per year, to determine whether any changes,
adjustments, or new information requires a revision to the Equity Plan
or a subsequent planning document.
(2) Program participants must conduct and submit annual progress
evaluations to HUD in a manner specified by the Responsible Civil
Rights Official. The annual progress evaluation shall include the
program participant's report on progress achieved under each fair
housing goal, including whether goals have been fully achieved, and
assessment of whether the fair housing goals established in the Equity
Plan require adjustment because of changed circumstances or because
they are unlikely to result in material positive change in overcoming
fair housing issues. The program participants' annual progress
evaluation must be accompanied by the signed certifications and
assurances required by Sec. 5.160 and shall be published on HUD-
maintained web pages.
(3) For each Equity Plan submitted after the first Equity Plan
submission, the program participant shall provide a summary of the
progress achieved in meeting the fair housing goals set in the prior
Equity Plan. This summary progress evaluation shall be part of the
subsequent Equity Plan (and is distinct from the annual progress
evaluations required by paragraphs (i)(1) and (2) of this section, but
may include a compilation of those progress evaluations) subject to
community engagement as part of the subsequent Equity Plan's
development.
(4) All progress evaluations (i.e., annual progress evaluations and
summaries for purposes of subsequent Equity Plans) shall include, at
minimum:
(i) An evaluation of the progress on each goal established in the
prior Equity Plan, including whether the goal was achieved, some
progress toward achieving the goal was made, or no progress toward
achieving the goal was made;
(ii) An identification of any barriers that impeded the progress or
achievement of the fair housing goals in the prior Equity Plan;
(iii) A description of any changes or adjustments to the goals
undertaken during the prior Equity Plan cycle and how those changes or
adjustments impacted the progress toward achievement of the goal;
(iv) A description of HUD funds or other Federal, State, local
funds, or philanthropic support that were used toward achievement of
the goal; and
(v) An explanation of the outcomes based on the achievement of the
goal. For example, this explanation may include any results with
respect to the reduction of segregation in a particular geographic
area, increased access to opportunity by protected class groups, or
other material positive change observed, including how the program
participant advanced equity for members of protected class groups and
underserved communities since the goal was implemented.
(j) Publication. The Equity Plan, progress evaluations, and HUD
notifications related to Equity Plans shall be public documents.
(1) Program participants shall make drafts of the Equity Plan
available pursuant to Sec. 5.158 for purposes of community engagement.
(2) Upon submission of the Equity Plan to HUD, HUD will publish the
submitted Equity Plan on a HUD-maintained web page and will update this
web page to reflect the status of the Equity Plan pursuant to Sec.
5.162. In particular, this web page will reflect whether an Equity Plan
has been accepted and if an accepted Equity Plan differs from the
initially submitted version. HUD may publish final Equity Plans or
portions of such plans on other HUD-maintained web pages for the
purposes of disseminating best practices and in a searchable
information clearinghouse to benefit program participants and the
general public. Program participants are also encouraged to post their
HUD-reviewed Equity Plans on their official websites, in formats that
satisfy civil rights requirements including title VI of the Civil
Rights Act of 1964 and the regulation at 24 CFR part 1; section 504 of
the Rehabilitation Act of 1973 and the regulation at 24 CFR part 8; and
the Americans with Disabilities Act and the regulations at 28 CFR parts
35 and 36, as applicable.
(3) HUD will accept information from the public during its review
of the submitted Equity Plan, consistent with Sec. 5.162, relating to
whether the Equity Plan was developed in accordance with the required
community engagement, whether the content of a published Equity Plan is
deficient, including whether fair housing issues were appropriately
identified, whether the information provided during the community
engagement process required by Sec. 5.158 was appropriately
incorporated into the Equity Plan, whether fair housing issues were
appropriately prioritized, and whether the fair housing goals are
appropriate, meaning that they are designed and can be reasonably
expected to overcome the effects of the identified fair housing issues.
[[Page 8568]]
Sec. 5.156 Affirmatively furthering fair housing through Equity Plan
incorporation into subsequent planning documents.
(a) General. It is the Department's policy to ensure that program
funding is used to eliminate disparities resulting from Federal, State,
and local laws, policies, and practices that have perpetuated
segregation or denied equal opportunity because of a protected
characteristic. Accordingly, any policies or practices adopted through
program participants' planning documents or as part of program
participants' implementation of programs, activities, and services
shall be consistent with the commitments program participants have made
in their Equity Plans, this part, and the AFFH mandate. By
incorporating their fair housing goals, strategies, and actions into
their planning documents, program participants will be better
positioned to build equity and fairness into their decision-making
processes for the use of resources and other investments, live up to
the commitments they have made in Equity Plans, and ultimately fulfill
their obligations to affirmatively further fair housing. A program
participant must incorporate its implementation of these concepts and
commitments in its Equity Plan into other planning documents, such as
the consolidated plan, annual action plan, PHA Plan, disaster plan, or
any plan incorporated therein.
(b) Strategies and meaningful actions. To implement the fair
housing goals from the Equity Plan, program participants must include
strategies and meaningful actions in their consolidated plans, annual
action plans, and PHA Plans (including any plans incorporated therein).
Program participants are only required to include the implementation of
fair housing goals that are intended to be undertaken or funded in a
particular program year in their annual action plans, though all fair
housing goals must be incorporated into their 3-5-year consolidated or
PHA Plans. Strategies and meaningful actions must affirmatively further
fair housing and identify specific expected allocation of funding by
program year for the use of HUD and other funds to implement each fair
housing goal (if funding is necessary). Strategies and meaningful
actions may include, but are not limited to: elimination of local laws
or ordinances that are barriers to equitable access to homeownership or
other affordable housing opportunities; enactment of local laws or
ordinances that remove barriers or increase access to homeownership or
other affordable housing opportunities; build strong fair housing and
civil rights protections into State and local laws; enhancing mobility
strategies and encouraging development of new affordable housing in
well-resourced areas of opportunity; and place-based strategies and
meaningful actions that are a part of a balanced approach, including
preservation of existing HUD-assisted and other affordable housing.
(c) Other planning activities or processes. Program participants
must incorporate the fair housing goals from their Equity Plans into
planning documents required in connection with the receipt of Federal
financial assistance from any other Federal executive department or
agency. This incorporation shall include the allocation of resources
necessary for achievement of the goal. The program participant's
progress evaluation includes an evaluation of the goals incorporated
into these other planning documents as required pursuant to Sec.
5.154.
(d) Meaning of approval or acceptance of planning documents.
Approval by HUD or any other agency of a planning document that must be
approved or accepted by the Department or any other agency for purposes
of program administration does not mean that the program participant
has complied with the incorporation requirements set forth in this
section or has otherwise complied with its obligation to affirmatively
further fair housing or any other Federal fair housing and civil rights
requirements.
(e) Failure to incorporate fair housing goals into planning
documents. A program participant must incorporate the fair housing
goals from its Equity Plan into its consolidated plan or PHA Plan in
order to allocate funding for implementation of such goals as
strategies and meaningful actions. Upon a determination by HUD that
fair housing goals from the Equity Plan have not been incorporated into
subsequent plans, and following notification to the program participant
and opportunity for the program participant to respond and cure any
deficiency, the Secretary may condition a grant (see e.g., 2 CFR
200.208), obtain an assurance that the program participant will revise
the plan to comply with the requirements of Sec. Sec. 5.150 through
5.180 by a specified date, or may disapprove a consolidated plan or
reject a PHA Plan consistent with 24 CFR 91.500 for consolidated plans
and 24 CFR 903.23 for PHA Plans, or may take the actions set forth at
Sec. Sec. 5.170 and 5.172.
Sec. 5.158 Community engagement.
(a) General. (1) To ensure that the Equity Plan is informed by
meaningful input from the community, program participants must engage
with the public during the development of the Equity Plan, including
with respect to both the identification of fair housing issues
(including inequities faced by members of protected class groups and
underserved communities) and the setting of fair housing goals to
remedy the identified fair housing issues. Community engagement
includes program participants' consideration of the views and
recommendations received from members of the community and other
interested parties.
(2) Program participants must proactively facilitate community
engagement to ensure they receive and address information from the
community regarding the effects of historical decisions and practices,
current conditions, and other concerns relating to fair housing choice,
equitable provision of services, access to opportunity, and specific
fair housing issues. Members of the community are in a unique position
to provide the program participant with perspectives on the impact of
fair housing issues facing the community.
(3) To the extent practicable, program participants are permitted
to combine this engagement with other community, resident, or citizen
participation required for purposes of other HUD programs and planning
processes; however, program participants are required to explain the
Fair Housing Act's affirmatively furthering fair housing duty and
ensure the engagement regarding the Equity Plan meets all the criteria
set forth in this section.
(4) In addition, and in accordance with program regulations, the
public shall have reasonable opportunity for involvement in the
incorporation of the fair housing goals as strategies and meaningful
actions into the consolidated plan, annual action plan, PHA Plan (and
any plans incorporated therein), and other required planning documents.
(5) Program participants must employ communication methods designed
to reach the broadest possible audience and should make efforts to
reach members of protected class groups that have historically been
denied equal opportunity and underserved communities. Such
communications may include but are not limited to publishing a summary
of each document on the program participant's official government
website and one or more newspapers of general circulation, and by
making copies of each document available on the internet (including
free web-based social bulletin boards and
[[Page 8569]]
platforms), and as well at libraries, government offices, and public
places.
(6) In order to comply with the obligation to affirmatively further
fair housing, program participants must actively engage with a wide
variety of diverse perspectives within their communities and use the
information available in a manner that promotes the setting of
meaningful fair housing goals that will lead to material positive
change.
(7) Program participants must ensure that all aspects of community
engagement are conducted in accordance with fair housing and civil
rights requirements, including title VI of the Civil Rights Act of 1964
and the regulations at 24 CFR part 1; section 504 of the Rehabilitation
Act of 1973 and the regulations at 24 CFR part 8; and the Americans
with Disabilities Act and the regulations at 28 CFR parts 35 and 36, as
applicable.
(8) A program participant may, if practicable, combine the
requirements of this section with applicable public participation
requirements of consolidated plan program participants and PHAs,
subject to the following requirements:
(i) Consolidated plan program participants. The consolidated plan
program participant may, if practical, combine the requirements of this
section with its applicable citizen participation plan requirements,
adopted pursuant to 24 CFR part 91 (see 24 CFR 91.105, 91.115, and
91.401). However, the community engagement for purposes of developing
an Equity Plan must allow for sufficient opportunity for the community
to have the in-depth discussions about fair housing issues required by
this section. Therefore, to the extent the citizen participation plan
does not provide for this opportunity, program participants must
undertake separate engagement activities.
(ii) PHAs. To the extent practicable, PHAs may combine the
requirements of this section when implementing the procedures described
in 24 CFR 903.13, 903.15, 903.17, and 903.19 in the process of
developing the Equity Plan, obtaining Resident Advisory Board and
community feedback, and addressing complaints. The community engagement
for purposes of developing an Equity Plan must allow for sufficient
opportunity for the community to have the in-depth discussions about
fair housing issues required by this section. Accordingly, to the
extent the regulations at 24 CFR part 903 do not provide for this
opportunity, PHAs must undertake separate engagement activities or
incorporate such activities into the implementation of the specific,
applicable program regulations.
(b) Coordination. (1) To the extent practicable, program
participants submitting a joint Equity Plan may fulfill their community
engagement responsibilities by combining efforts with other program
participants by:
(i) Jointly conducting community engagement activities with a
consolidated plan program participant;
(ii) Jointly conducting community engagement activities with one or
more PHAs; or
(iii) Separately conducting community engagement activities.
(2) Joint program participants are encouraged to enter into
Memoranda of Understanding (MOUs) to clearly define the functions,
level of member participation, method of dispute resolution, and
decision-making process of the program participants, for purposes of
engaging with the community as well as in the development of the Equity
Plan.
(c) Frequency. (1) Program participants must engage with their
communities prior to and during the development of an Equity Plan.
(2) While the Equity Plan is in effect, program participants must
engage with their communities on at least an annual basis. To the
extent practicable, this engagement may be combined with any citizen
participation or resident participation for purposes of developing
annual plans pursuant to program requirements. The purpose of such
annual engagement shall be to receive community input as to whether the
program participant is taking effective and necessary actions to
implement the Equity Plan's fair housing goals, whether adjustments to
goals need to be made, and whether a change in circumstance may require
a revision of the Equity Plan pursuant to Sec. 5.164, including the
formulation of additional goals.
(d) Methods. Program participants may choose any methods that are
effective in engaging their communities, but at minimum must employ the
following methods:
(1) For the development of an Equity Plan, hold at least three (3)
public meetings, at various accessible locations and at different times
to ensure that members of protected class groups and underserved
communities are afforded opportunities to provide input. At least one
such meeting shall be held in a location in the jurisdiction in which
underserved communities disproportionately reside and efforts to obtain
input from underserved populations who do not live in underserved
neighborhoods shall also be employed;
(2) For the annual engagement, hold at least two (2) public
meetings, at different locations, one of which shall be located in an
area of the jurisdiction in which underserved communities predominantly
reside;
(3) Connect with and provide information about fair housing
planning to local community leaders, which may include, but are not
limited to advocates, community-based organizations, clergy, healthcare
professionals, educational leaders or teachers, and other service
providers such as social workers and case managers to provide and
solicit the views of the communities they serve; and
(4) Make available to the public data and information demonstrating
the existence of fair housing issues (including segregated areas).
Sec. 5.160 Submission requirements.
(a) General. Program participants must submit an Equity Plan to HUD
for review pursuant to the schedule set forth in this section. Program
participants may submit an individual Equity Plan or may collaborate
with other program participants (joint program participants) to submit
a joint Equity Plan.
(1) Goals in an individual Equity Plan may contemplate and include
coordination or collaboration with other program participants or other
public or private entities even if those entities are not part of a
joint Equity Plan.
(2) Program participants are encouraged to collaborate to conduct
and submit a single Equity Plan (i.e., a joint Equity Plan) for the
purpose of sharing resources and developing partnerships to address
fair housing issues. When collaborating to submit a joint Equity Plan,
joint program participants may divide work as they choose, but all
program participants are accountable for any joint analysis and any
joint fair housing goals. Program participants are accountable for
their individual analysis and fair housing goals included in the joint
Equity Plan. Participation in a joint Equity Plan does not relieve each
program participant from its obligation to analyze and address fair
housing issues by setting goals and implementing strategies and
meaningful actions to overcome the effects of any identified fair
housing issues. Each program participant must sign the joint Equity
Plan and associated certifications and assurances submitted to HUD.
(i) Program participants that are either not located within the
same CBSA or
[[Page 8570]]
that are not located within the same State that seek to collaborate on
a joint Equity Plan must submit a written request to HUD for approval
of the collaboration, stating why the collaboration is appropriate. The
written request must be submitted not less than 180 days before the
start of the development of the joint Equity Plan. The joint Equity
Plan may not proceed until such time as the Responsible Civil Rights
Official approves the collaboration.
(ii) All other joint Equity Plan program participants must promptly
notify HUD of their intent to collaborate, but need not obtain HUD
approval prior to conducting the joint Equity Plan. The notification to
HUD must include a copy of their written agreement.
(iii) Program participants must designate, through express written
consent, one program participant to serve as the lead entity to oversee
the submission of the joint Equity Plan. The notification to HUD of the
collaboration shall include the identification of the lead entity.
(iv) The submission schedule for the joint Equity Plan shall be the
schedule that ordinarily would apply to the joint Equity Plan's lead
entity unless the Responsible Civil Rights Official determines that an
earlier submission is required for good cause, in which case the
Responsible Civil Rights Official will designate an earlier submission
date that provides the collaborating program participants a reasonable
amount of time to develop and submit a joint Equity Plan.
(v) Program participants conducting a joint Equity Plan must have a
plan for community engagement that complies with the requirements of
Sec. Sec. 5.150 through 5.180, and must include the jurisdictions of
each program participant, not just that of the lead entity. A material
change that requires the revision of an Equity Plan pursuant to Sec.
5.164 for any program participant that is part of a joint Equity Plan
will trigger a requirement to revise the joint Equity Plan, including
any necessary community engagement.
(vi) Program participants conducting a joint Equity Plan may
determine that it would be practicable to align program and fiscal
years according to the procedures set forth at 24 CFR 91.10 and 24 CFR
part 903, as applicable for purposes of the submission schedule set
forth in this section. To the extent that alignment of program and
fiscal years is not practicable, a program participant may be required
by the Secretary to make appropriate revisions to its full consolidated
plan or PHA Plan, or any plan incorporated therein, that was approved
by HUD prior to the submission and HUD review of the joint Equity Plan
in order to appropriately incorporate strategies and meaningful actions
to implement the fair housing goals from the joint Equity Plan.
(vii) A program participant that, for any reason, decides to
withdraw from a previously arranged joint Equity Plan must promptly
notify HUD of the withdrawal. HUD will work with the withdrawing
program participant, as well as the remaining program participants
conducting the joint Equity Plan, to determine whether a new submission
date is needed for the withdrawing participant or the remaining
participants. If a new submission date is needed for the withdrawing
participant or the remaining participants, HUD will establish a
submission date for the program participant's individual Equity Plan
that is as close as feasible to the originally intended submission date
and is no later than the original submission date for the joint Equity
Plan, unless good cause for an extension is shown, as determined by the
Responsible Civil Rights Official.
(b) Submission of first Equity Plan--consolidated plan program
participants. (1) For each program participant that receives a total of
$100 million or more in formula grant funds from programs that are
subject to the consolidated plan requirements for the program year that
begins on or after January 1, 2024, the first Equity Plan shall be
submitted by 24 months after [effective date of final rule], or 365
calendar days prior to the date for which a new consolidated plan is
due, whichever is earlier.
(2) For each program participant that receives a total of $30-99
million in formula grant funds for the program year that begins on or
after January 1, 2025, the first Equity Plan shall be submitted no
later than 365 calendar days prior to the date for which a new
consolidated plan is due.
(3) For each program participant that receives a total of $1-29
million in formula grant funds for the program year that begins on or
after January 1, 2026, the first Equity Plan shall be submitted no
later than 365 calendar days prior to the date for which a new
consolidated plan is due.
(4) For each program participant that receives a total of less than
$1 million in formula grant funds for the program year that begins on
or after January 1, 2027, the first Equity Plan shall be submitted no
later than 365 calendar days prior to the date for which a new
consolidated plan is due.
(c) Submission of first Equity Plan--public housing agencies
(PHAs). For purposes of determining the PHA's total number of public
housing units and vouchers, the inventory shall be determined as of
[effective date of final rule].
(1) For each PHA with a combined total number of public housing
units and vouchers of 50,000 or more, the first Equity Plan shall be
submitted no later than 24 months after [effective date of final rule],
or 365 calendar days prior to the date for which a new 5-year plan is
due following the start of the fiscal year that begins on or after
January 1, 2024, whichever is earlier.
(2) For each PHA with a combined total number of public housing
units and vouchers between 10,000 and 49,999, the first Equity Plan
shall be submitted no later than 365 calendar days prior to the date
for which a new 5-year plan is due following the start of the fiscal
year that begins on or after January 1, 2025.
(3) For each PHA with a combined total number of public housing
units and vouchers between 1,000 and 9,999 or PHAs that operate
statewide, which includes certain Qualified PHAs, the first Equity Plan
shall be submitted no later than 365 calendar days prior to the date
for which a new 5-year plan is due following the start of the fiscal
year that begins on or after January 1, 2026.
(4) For each PHA with a combined total number of public housing
units and vouchers that is less than 1,000, the first Equity Plan shall
be submitted no later than 365 calendar days prior to the date for
which a new 5-year plan is due following the start of the fiscal year
that begins on or after January 1, 2027.
(d) How to comply with AFFH planning and certification requirements
until first Equity Plan submission. (1) Except as provided in paragraph
(e) of this section, until such time as a program participant submits
or is required to submit an Equity Plan, the program participant shall
engage in fair housing planning (e.g., prepare an Analysis of
Impediments to Fair Housing Choice, Assessment of Fair Housing, or
other fair housing plan). Program participants that have not conducted
or updated their fair housing plans for more than three years prior to
[effective date of final rule], and who are not required to submit an
Equity Plan pursuant to paragraph (b) or (c) of this section within
twenty-four months of [effective date of final rule], shall either
conduct or update their fair housing plans (i.e., Analysis of
Impediments to Fair Housing Choice, Assessment of Fair Housing, or
other fair housing plan) and submit such plan to HUD for publication
and potential review no later than 365 days from [effective date
[[Page 8571]]
of final rule]. Program participants that have conducted or updated
their fair housing plans during the three years prior to [effective
date of final rule], are not required to undertake additional updates
pursuant to this paragraph (d)(1), but must submit their existing fair
housing plan to the Department for publication and potential review no
later than 120 days from [effective date of final rule]. Program
participants may, alternatively, conduct an Equity Plan in advance of
when such plan would otherwise be due for submission to HUD pursuant to
paragraph (b) or (c) of this section. The Responsible Civil Rights
Official may review and provide feedback on a program participant's
submitted fair housing plan. If the Secretary determines there is
evidence that challenges the accuracy of the program participant's
certification that it will affirmatively further fair housing, the
Secretary will provide written notification to the program participant
of such a determination consistent with 24 CFR 91.500 for consolidated
plans and 24 CFR 903.23 for PHA Plans and Sec. 5.162. The Responsible
Civil Rights Official's review of a fair housing plan under this
paragraph (d)(1) may also provide reason for the initiation of a
compliance review pursuant to Sec. 5.170.
(2) Program participants shall continue to update their fair
housing plans at least every five years and submit updated plans to HUD
for publication and potential review until such time as the program
participant is required to begin preparing its Equity Plan for
submission to HUD.
(e) New program participants. For a new program participant that
has not submitted a consolidated plan or PHA Plan as of [30 days after
date of publication of final rule], HUD will provide the new program
participant with a deadline for submission of its first Equity Plan,
which shall be at least 24 months after the date for which the program
participant's first consolidated plan or PHA Plan is due. Prior to the
submission of its first Equity Plan, new program participants are
required to affirmatively further fair housing and engage in fair
housing planning during the development of its first consolidated or
PHA Plan.
(f) Annual progress evaluations. Program participants shall, in
accordance with Sec. 5.154(h), submit annual progress evaluations to
the Responsible Civil Rights Official, which shall be accompanied by
the certifications and assurances in paragraph (i) of this section. The
first annual progress evaluation shall be submitted for publication and
review no later than 365 days from the date of HUD's notification that
the Equity Plan is accepted, and subsequent progress evaluations shall
be submitted for publication and review no later than 365 days from the
date of the last progress evaluation submitted.
(g) Second and subsequent Equity Plans. Following the first Equity
Plan, for all program participants, subsequent Equity Plans shall be
submitted for publication and review 365 days before the date for which
a new 3- to 5-year consolidated plan or PHA Plan is due (as
applicable).
(h) Frequency. All program participants shall submit an Equity Plan
no less frequently than once every 5 years, or at such time agreed upon
in writing by the Responsible Civil Rights Official and the program
participant, as necessary to remedy or avoid noncompliance with Federal
fair housing and civil rights requirements.
(i) Equity Plan certifications and assurances. Each program
participant, including program participants submitting a joint Equity
Plan, must include the following certifications and assurances with
each Equity Plan and annual progress evaluation submitted to HUD:
(1) The program participant's statements and information contained
in the Equity Plan submitted to HUD are true, accurate, and complete
and that the program participant developed the Equity Plan in
compliance with the requirements of Sec. Sec. 5.150 through 5.180.
(2) The program participant will take meaningful actions to
implement the goals established in its Equity Plan conducted in
accordance with the requirements of Sec. Sec. 5.150 through 5.180 and
24 CFR 91.225(a)(1), 91.325(a)(1), 91.425(a)(1), 570.487(b)(1),
570.601, 903.7(o), and 903.15(d), as applicable, which require that the
program participant will affirmatively further fair housing. In
addition, the program participant will take no action that is
materially inconsistent with the duty to affirmatively further fair
housing.
(3) The program participant shall submit, in conjunction with the
Equity Plan submitted to HUD, an assurance to HUD that its programs,
activities, and services are operated in compliance with the
requirements of Sec. Sec. 5.150 through 5.180 and in a manner that
affirmatively furthers fair housing, as well as that its programs,
activities, and services are operated in compliance with Federal fair
housing and civil rights nondiscrimination requirements. The assurance
shall obligate the program participant to comply with Sec. Sec. 5.150
through 5.180 for the full period during which Federal financial
assistance is extended.
Sec. 5.162 Review of Equity Plan.
(a) HUD review of submitted Equity Plan--(1) General. HUD's review
of an Equity Plan is to determine whether the program participant has
developed an Equity Plan that includes the required analysis,
identification of fair housing issues, and establishment of fair
housing goals, as set forth in Sec. 5.154. HUD will promptly publish
each submitted Equity Plan on HUD-maintained web pages. Members of the
public may submit comments regarding the submitted Equity Plan to HUD
in a manner specified by the Responsible Civil Rights Official during
the timeframe for HUD's review and should do so no later than 60 days
from the date the Equity Plan is submitted to HUD. The timeframe for
submission of comments may be extended for good cause by the
Responsible Civil Rights Official. Providing comments on a submitted
Equity Plan pursuant to this paragraph (a)(1) is distinct from the
filing of complaints pursuant to Sec. 5.170.
(2) HUD review. Within 100 calendar days after the date HUD
receives the Equity Plan, HUD will accept the Equity Plan unless on or
before that date the Responsible Civil Rights Official provides the
program participant notification that the date is extended for good
cause or that HUD does not accept the Equity Plan. If HUD does not
accept the Equity Plan, in its notification, HUD will inform the
program participant in writing of the reasons why HUD has not accepted
the Equity Plan and actions the program participant may take to resolve
the nonacceptance. HUD will publish any written feedback that it
provides on accepted Equity Plans, as well as notifications of non-
acceptance, and related notifications and communications on HUD-
maintained web pages. HUD ordinarily will review an Equity Plan before
acceptance, though an Equity Plan may be accepted without HUD review
due to infeasibility or other exigent circumstances beyond HUD's
control.
(3) Meaning of HUD acceptance of an Equity Plan. HUD's acceptance
of an Equity Plan means only that, for purposes of administering HUD
program funding, HUD has not found that the program participant has
failed to comply with the required elements, as set forth in Sec.
5.154. HUD's acceptance of an Equity Plan does not mean that the
program participant has complied with its obligation to affirmatively
further fair housing under the Fair Housing Act; has complied with
other provisions of the Fair Housing Act; or has complied with other
civil rights laws and regulations. HUD's acceptance of an Equity Plan
also
[[Page 8572]]
does not limit HUD's ability to undertake an investigation pursuant to
Sec. 5.170.
(b) Nonacceptance of an Equity Plan. (1) The Responsible Civil
Rights Official will not accept an Equity Plan if the Equity Plan or a
portion of the Equity Plan is inconsistent with fair housing or civil
rights requirements, which includes but is not limited to any material
noncompliance with the requirements of Sec. Sec. 5.150 through 5.180.
In connection with a joint Equity Plan, HUD's determination to not
accept the Equity Plan with respect to one program participant does not
necessarily affect the status of the Equity Plan with respect to
another program participant. The following are non-exclusive examples
of an Equity Plan that is inconsistent with fair housing and civil
rights requirements:
(i) HUD determines that the analysis of fair housing issues and
fair housing goals contained in the Equity Plan would result in
policies or practices that would operate to discriminate in violation
of the Fair Housing Act or other civil rights laws;
(ii) The Equity Plan does not identify local policies or practices
as fair housing issues when such policies or practices pose a barrier
to equity;
(iii) The fair housing goals contained in the Equity Plan are not
designed and cannot be reasonably expected to result in a material
positive change with respect to one or more identified and prioritized
fair housing issues;
(iv) The fair housing goals contained in the Equity Plan merely
consist of actions already required to comply with nondiscrimination
requirements (e.g., establishing a process for reviewing, making, and
documenting decisions on reasonable accommodation requests received by
the program participant);
(v) The Equity Plan was developed without the required community
engagement;
(vi) The Equity Plan contains an analysis in which the
identification of fair housing issues or the established fair housing
goals are materially inconsistent with the data or other evidence
available to the program participant, or in which fair housing goals
are not designed to overcome the effects of identified fair housing
issues as required by Sec. Sec. 5.150 through 5.180;
(vii) The Equity Plan fails to acknowledge the existence of a fair
housing issue identified during community engagement; or
(viii) The Equity Plan does not contain the required certifications
and assurances pursuant to Sec. 5.160.
(2) HUD will provide written notification to the program
participant, including each program participant involved in a joint
Equity Plan, explaining HUD's decision to accept or not accept the
Equity Plan. For Equity Plans that are not accepted, the written
notification will provide guidance on how a non-accepted Equity Plan
may be revised to achieve acceptance and how a program participant may
request reconsideration by the Reviewing Civil Rights Official of HUD's
non-acceptance of an Equity Plan, including by submitting clarifying
information that may be sufficient to address the concerns raised in
HUD's notification of non-acceptance. HUD will provide a decision on
the request for reconsideration in advance of the deadline to resubmit
a revised Equity Plan. To provide transparency regarding the status of
program participants' Equity Plans, HUD will publish all such
notifications on HUD-maintained web pages.
(c) Revisions and resubmission. In HUD's notification of non-
acceptance, HUD will provide a program participant, including each
program participant involved in a joint Equity Plan, with a reasonable
time period to revise and resubmit the Equity Plan. All revisions or
resubmissions, and any HUD notifications relating to revisions and
resubmissions, shall be published on HUD-maintained web pages.
(1) If HUD does not accept the Equity Plan, HUD will provide
written notification to the program participant and shall provide no
more than 60 calendar days after the date of HUD's notification to
revise and resubmit the Equity Plan. HUD may extend this date for good
cause.
(2) The revised Equity Plan will be reviewed by HUD within 75
calendar days of the date by which HUD receives the revised Equity
Plan. HUD may provide notification that HUD does not accept the revised
Equity Plan on or before that date. If HUD does not accept the
revision, the procedures set forth in this section will continue to
apply until such time as the program participant's revised Equity Plan
has been accepted by HUD or the Responsible Civil Rights Official
instead determines that a different procedure is necessary to ensure
compliance, such as the procedures set forth at Sec. 5.172.
(3) If a program participant's Equity Plan is accepted by HUD and
the program participant voluntarily revises its Equity Plan in response
to feedback contained in HUD's notification of acceptance, the revised
Plan shall be submitted no later than 120 days following the date of
HUD's notification of acceptance of the Equity Plan. If the revised
Equity Plan does not meet the requirements set forth in Sec. Sec.
5.150 through 5.180, HUD will not accept the revision, and the
previously accepted Equity Plan will remain in effect. If HUD
determines a revision is necessary pursuant to the requirements of this
section, the procedures set forth in this section will continue to
apply until such time as the program participant's revised Equity Plan
has been accepted by HUD or the Responsible Civil Rights Official
instead determines that a different procedure is necessary to ensure
compliance, such as the procedures set forth at Sec. 5.172.
(d) Incentives. At its discretion and consistent with applicable
laws and program objectives, HUD may establish incentives or other ways
to recognize program participants that set ambitious goals that are
designed and can be reasonably expected to overcome challenging fair
housing issues. These incentives may include HUD recognizing the value
of relevant, effective fair housing goals when HUD establishes the
criteria for evaluating applications for discretionary funding. Program
participants are encouraged to include implementation of fair housing
goals from their Equity Plans in subsequent applications to HUD for
discretionary funding for purposes of securing additional resources to
implement such goals.
(e) Failure to have an accepted Equity Plan at the time of
submission of the consolidated plan or PHA Plan. (1) At the time a
program participant submits its consolidated plan or PHA Plan, as
applicable, the program participant must have either a current,
accepted Equity Plan or must have executed special assurances that
require the program participant to submit and obtain HUD's acceptance
of its Equity Plan by a specified date following the end of HUD's
review period for the consolidated plan or PHA Plan. A program
participant's failure to provide the required special assurances will
lead to the disapproval of a consolidated plan or PHA Plan, and a
program participant's failure to provide or comply with special
assurances will jeopardize funding in accordance with Sec. Sec. 5.172
and 5.174. Failure to provide or comply with special assurances may
constitute evidence that a program participant's AFFH certification is
inaccurate pursuant to 24 CFR 91.500 or that the program participant's
AFFH certification appears inaccurate pursuant to 24 CFR 903.15,
providing the Secretary a basis to challenge the validity of the AFFH
certification pursuant to Sec. 5.166.
(i) If a consolidated plan program participant does not have an
Equity Plan
[[Page 8573]]
that has been accepted by HUD as provided by Sec. 5.160 at the time
the program participant submits its consolidated plan, the Responsible
Civil Rights Official shall obtain special assurances prior to the date
the consolidated plan must be disapproved pursuant to 24 CFR 91.500
(i.e., within 45 days of the date the consolidated plan is submitted to
HUD); if a program participant fails to provide such special
assurances, HUD will initiate the disapproval of the consolidated plan.
The special assurances shall:
(A) Require the program participant to achieve an accepted Equity
Plan that meets the requirements of Sec. Sec. 5.150 through 5.180 no
later than 180 days following the end of HUD's 45-day review period for
the consolidated plan;
(B) Set out a date, consistent with that deadline, by which the
program participant shall submit its Equity Plan to HUD for review; and
(C) Require the program participant to amend its consolidated plan
to incorporate the fair housing goals of the accepted Equity Plan no
later than 180 days from the date the Equity Plan is accepted by HUD.
(ii) If a PHA does not have an Equity Plan that has been accepted
by HUD as provided by Sec. 5.160 at the time the program participant
submits its PHA Plan, the Responsible Civil Rights Official shall
obtain special assurances prior to the date the PHA Plan must be
disapproved pursuant to 24 CFR 903.23 (i.e., 75 days from the date the
PHA Plan is submitted to HUD); if a program participant fails to
provide such special assurances, HUD will disapprove the PHA Plan. The
special assurances shall:
(A) Require the program participant to achieve an accepted Equity
Plan that meets the requirements of Sec. Sec. 5.150 through 5.180 no
later than 180 days following the end of HUD's 75-day review period for
the PHA Plan;
(B) Set out a date, consistent with that deadline, by which the
program participant shall submit its Equity Plan to HUD for review; and
(C) Require the program participant to amend its PHA Plan to
incorporate the fair housing goals of the accepted Equity Plan no later
than 180 days from the date the Equity Plan is accepted by HUD.
(2) Upon a determination by the Secretary that the program
participant has failed to submit an Equity Plan that meets the
requirements of Sec. Sec. 5.150 through 5.180, and after the 180-day
period described in any applicable special assurance has expired, the
following shall apply.
(i) With respect to a consolidated plan program participant:
(A) The Secretary shall promptly initiate termination of funding;
(B) The Secretary shall refuse to grant or not continue granting
applicable Federal financial assistance until such time as the program
participant comes into compliance; and
(C) The Secretary shall follow the procedures at Sec. 5.172 to
effect these remedies.
(ii) With respect to a PHA:
(A) The Secretary shall notify the PHA that it is in substantial
default;
(B) The Secretary shall take any other action authorized by law to
effect compliance; and
(C) The Secretary shall follow the procedures at Sec. 5.172 to
effect these remedies.
(3) Special assurances and any submission of an Equity Plan,
including HUD's decision to accept or not accept the Equity Plan shall
be subject to the publication requirement at Sec. 5.154(j). Such
publication shall indicate whether the special assurances have been
satisfied as part of HUD's decision to accept the Equity Plan.
Sec. 5.164 Revising an accepted Equity Plan.
(a) General--circumstances for revising an Equity Plan. (1) An
Equity Plan previously accepted by HUD must be revised and submitted to
HUD for review under the following circumstances:
(i) A material change occurs. A material change is a change in
circumstances in a program participant's jurisdiction that affects the
information on which the Equity Plan is based to the extent that the
analysis and fair housing goals of the Equity Plan no longer reflect
actual circumstances. An Equity Plan must be revised in the event of a
presidentially declared disaster that impacts a program participant's
jurisdiction and is expected to result in additional Federal financial
assistance for the jurisdiction, under title IV of the Robert T.
Stafford Disaster Relief and Emergency Assistance Act (42 U.S.C. 5121
et seq.); or
(ii) Upon the Responsible Civil Rights Official's written
notification specifying a material change that requires the revision.
(2) An Equity Plan previously accepted by HUD may be revised and
submitted to HUD for review under the following circumstances:
(i) If there are changes in the program participant's geographic
area of analysis that significantly impact the steps a program
participant may need to take to affirmatively further fair housing;
(ii) A fair housing goal established in the Equity Plan cannot be
achieved;
(iii) Significant demographic changes occur;
(iv) New fair housing issues emerge in the jurisdiction;
(v) Short-term fair housing goals have been achieved;
(vi) Civil rights findings, determinations, settlements (including
Voluntary Compliance Agreements), or court orders are entered; or
(vii) The program participant advises HUD of a change that
similarly may merit the program participant's submission of a revised
Equity Plan, and HUD grants the program participant permission to
submit a revised Equity Plan by a specific date for HUD review.
(3) Requirements for revisions of an Equity Plan. A revision
pursuant to paragraph (a)(1) or (2) of this section consists of
preparing any necessary amended analyses and fair housing goals that
take into account the change, including any new fair housing issues. A
revision may not necessarily require the submission of an entirely new
Equity Plan and a program participant may focus only on the change and
the appropriate and necessary adjustments to the analysis and fair
housing goals, but any revision shall trigger the program participant's
obligation to conduct community engagement on the amended portions of
the Equity Plan pursuant to the requirements at Sec. 5.158.
(b) Timeframe for required revisions. (1) Where a revision is
undertaken pursuant to paragraph (a)(1)(i) of this section, such
revision shall be submitted within 12 months of the onset of the
material change, or at such later date as the Responsible Civil Rights
Official may provide. When the material change is the result of a
presidentially declared disaster, such time shall be automatically
extended to the date that is 2 years after the date upon which the
disaster declaration is made, and the Responsible Civil Rights Official
may extend such deadline, upon request, for good cause shown.
(2)(i) When a revision is required under paragraph (a)(1)(ii) of
this section, the Responsible Civil Rights Official will specify a date
by which the program participant must submit the revision of the Equity
Plan to HUD, considering the material change and the need for a valid
Equity Plan to guide planning activities. The Responsible Civil Rights
Official may extend the due date upon written request by the program
participant that describes the reasons the program participant is
unable to satisfy the deadline for submitting a revised Equity Plan.
(ii) On or before 30 calendar days following the date of HUD's
written notification under paragraph (a)(1)(ii) of this section, the
program participant may advise the Responsible Civil Rights
[[Page 8574]]
Official in writing of its belief that a revision to the Equity Plan is
not required. The program participant must state with specificity the
reasons for its belief that a revision is not required. The Responsible
Civil Rights Official will take into account any such response and
issue to the program participant in writing a determination as to
whether the program participant must proceed with the revision. The
Responsible Civil Rights Official may establish a new due date that is
later than the date specified in the original notification.
(c) Submission of the revised Equity Plan. Upon completion, any
revision to the Equity Plan must be submitted to HUD and will be
published in accordance with Sec. 5.154(j). The revised Equity Plan
will follow the same procedures for HUD review at Sec. 5.162.
(d) Incorporation of revised fair housing goals into subsequent
planning documents. Upon HUD's notice that the revised Equity Plan has
been accepted, the program participant shall, within 12 months,
incorporate any revised fair housing goals into its consolidated plan,
annual action plan, or PHA Plan, or any plan incorporated therein.
Sec. 5.166 AFFH certifications required for the receipt of Federal
financial assistance.
(a) Certifications. Prior to the receipt of Federal financial
assistance, program participants must certify that they will
affirmatively further fair housing, which means engaging in fair
housing planning and taking meaningful actions in accordance with the
requirements of Sec. Sec. 5.150 through 5.180 and 24 CFR 91.225,
91.325, 91.425, 570.487, 570.601, 903.7, and 903.15, and take no action
that is materially inconsistent with the duty to affirmatively further
fair housing throughout the period for which Federal financial
assistance is extended. Such certifications must be made in accordance
with applicable program regulations, specifically 24 CFR part 91 for
consolidated plan program participants and 24 CFR part 903 for PHAs.
(b) Procedures for challenging the validity of an AFFH
certification--(1) Consolidated plan program participants. If HUD has
evidence that could be used to challenge the accuracy of a program
participant's AFFH certification, the Secretary may provide written
notice of the intent to reject the program participant's AFFH
certification as inaccurate. The notice will include the evidence
challenging the accuracy of the AFFH certification and provide the
program participant an opportunity to comment and submit additional
evidence to the Secretary in support of the AFFH certification. The
notice may include other actions the program participant may take for
the Secretary to accept the AFFH certification, including conditions
(see e.g., 2 CFR 200.208). The failure to comply with the conditions
established by the Secretary may trigger the procedures set forth in
Sec. 5.172. The notice will also provide a date by which the program
participant must respond. After consideration of the evidence and any
other actions taken by the program participant, if the Secretary
determines that the AFFH certification is inaccurate, the Secretary may
reject the certification consistent with 24 CFR 91.500.
(2) PHAs. If, consistent with the criteria at 24 CFR 903.15, HUD
challenges the validity of a PHA's certification, HUD will do so in
writing, specifying the deficiencies, and will give the PHA an
opportunity to respond to the particular challenge in writing. In
responding to the specified deficiencies, a PHA must establish, as
applicable, that it has complied with fair housing and civil rights
laws and regulations and has adopted policies and undertaken actions to
affirmatively further fair housing, including but not limited to,
providing a full range of housing opportunities to applicants and
tenants and taking affirmative steps as described in 24 CFR
903.15(c)(2) in a nondiscriminatory manner. In responding to the PHA,
HUD may accept the PHA's explanation and withdraw the challenge,
undertake further investigation, or pursue other remedies available
under law. HUD will seek to obtain voluntary corrective action
consistent with the specified deficiencies. In determining whether a
PHA has complied with its certification, HUD will review the PHA's
circumstances, including characteristics of the population served by
the PHA; characteristics of the PHA's existing housing stock; and
decisions, plans, goals, priorities, strategies, and actions of the
PHA, including those designed to affirmatively further fair housing. If
the PHA has not resolved the identified deficiencies, the Secretary may
pursue any other appropriate remedies under law, including:
(i) Requiring the PHA to revise and resubmit its PHA Plan and
corresponding certifications in a manner that would demonstrate the
PHA's certifications are valid;
(ii) Requiring the execution of a Voluntary Compliance Agreement
that permits the Secretary to determine the PHA's certifications are
valid; or
(iii) Finding the PHA in substantial default on an Annual
Contributions Contract.
(3) Joint Equity Plans. In the case of a joint Equity Plan, if the
Secretary rejects the AFFH certification for one program participant's
consolidated plan, annual action plan, or PHA Plan, this rejection
shall not affect the certifications of the other joint program
participants unless the Secretary provides written notification to each
program participant. The Secretary shall employ the procedures set
forth in paragraph (b)(1) or (2) of this section, depending on whether
the program participant is a consolidated plan program participant or a
PHA.
Sec. 5.168 Recordkeeping.
Each program participant must establish and maintain sufficient
records to enable the Responsible Civil Rights Official to determine
whether the program participant has complied with or is complying with
the requirements of this subpart. A PHA not preparing its own Equity
Plan in accordance with 24 CFR 903.15(a)(3) must maintain a copy of the
applicable Equity Plan and records reflecting actions to affirmatively
further fair housing as described in 24 CFR 903.7(o). All program
participants shall permit access by the Responsible Civil Rights
Official during normal business hours to its electronically stored
information, books, records, accounts, and other sources of
information, and its facilities, as may be pertinent to ascertain
compliance with Sec. Sec. 5.150 through 5.180. Where any information
required of a program participant is in the exclusive possession of any
other agency, institution, or person and this agency, institution, or
person fails or refuses to furnish this information, the program
participant shall so certify to the Responsible Civil Rights Official
and set forth what efforts the program participant made to obtain the
information. At a minimum, the following records, which may be
maintained and provided in electronic format, are needed for each
consolidated plan program participant and each PHA that prepares its
own Equity Plan:
(a) Information and records relating to the program participant's
Equity Plan and any significant revisions to the Equity Plan,
including, but not limited to, statistical data, studies, and other
diagnostic tools used by the jurisdiction; and any policies,
procedures, or other documents relating to the analysis or preparation
of the Equity Plan;
(b) Records demonstrating compliance with the community engagement
requirements of Sec. Sec. 5.150 through 5.180,
[[Page 8575]]
including the names of organizations involved in the development of the
Equity Plan, summaries or transcripts of public meetings or hearings,
written public comments, public notices and other correspondence,
distribution lists, surveys, or interviews (as applicable);
(c) Records demonstrating the meaningful actions the program
participant has taken to affirmatively further fair housing, including
activities carried out in furtherance of the Equity Plan; the program
participant's fair housing goals set forth in its Equity Plan, and
strategies and meaningful actions, including funding allocations in its
consolidated plan, or PHA Plan, and any plan incorporated therein; and
the actions the program participant has carried out to implement the
fair housing goals identified in accordance with Sec. 5.154 during the
preceding 5 years;
(d) Where a court or an agency of the United States Government or
of a State government has found that the program participant has
violated any applicable nondiscrimination and equal opportunity
requirement set forth in Sec. 5.105(a) or any applicable civil rights-
related program requirement, documentation related to the underlying
judicial or administrative finding and affirmative measures that the
program participant has taken in response;
(e) Documentation relating to the program participant's efforts to
ensure that housing and community development activities (including
those assisted under programs administered by HUD) are in compliance
with applicable nondiscrimination and equal opportunity requirements
set forth in Sec. 5.105(a) and applicable civil rights related program
requirements;
(f) Records demonstrating that consortium members, units of general
local government receiving allocations from a State, or units of
general local government participating in an urban county have
conducted their own or contributed to the jurisdiction's Equity Plan
(as applicable) and documents demonstrating their meaningful actions to
affirmatively further fair housing;
(g) Evidence of the program participant's or its subrecipients'
certifications and assurances of compliance in accordance with
Sec. Sec. 5.160 and 5.162(e), or any other civil rights-related
certifications and assurances required in connection with the receipt
of Federal financial assistance; and
(h) Any other evidence relied upon by the program participant to
support its affirmatively furthering fair housing certifications and
assurances.
Sec. 5.170 Compliance procedures.
(a) Complaints. (1) Complaints may be submitted by an individual,
association, or other organization that alleges that a program
participant has failed to comply with this subpart, noncompliance with
the program participant's commitments made under this subpart, or that
the program participant has taken action that is materially
inconsistent with the obligation to affirmatively further fair housing,
as defined in Sec. 5.152.
(2) Complaints related to the Equity Plan, the requirements of
Sec. Sec. 5.150 through 5.180, and the AFFH obligation may be
submitted to the Responsible Civil Rights Official. The Responsible
Civil Rights Official shall process the complaint in accordance with
the procedures set forth in this section and, upon the acceptance of a
complaint, the Responsible Civil Rights Official will provide
notification to the complainant and the program participant. If the
Responsible Civil Rights Official determines a complaint does not
contain sufficient information, the Responsible Civil Rights Official
will notify the complainant and specify the additional information
needed to complete the complaint. If the complainant fails to complete
this complaint within a timeframe established by the Responsible Civil
Rights Official, the Responsible Civil Rights Official will close the
complaint without prejudice.
(3) Complaints shall be filed within 365 days of date of the last
incident of the alleged violation, unless the Responsible Civil Rights
Official extends the time limit for good cause shown.
(b) Investigations and compliance reviews. (1) The Responsible
Civil Rights Official shall investigate complaints and may periodically
conduct reviews of program participants in order to ascertain whether
there has been a failure to comply with this subpart or the program
participant's obligation to affirmatively further fair housing under
the Fair Housing Act. If the investigation implicates an alleged
failure to comply with any other Federal civil rights law for which HUD
has jurisdiction, the notification provided pursuant to paragraph
(a)(2) of this section shall include notification that the
investigation will also involve a review under those laws.
(2) The Responsible Civil Rights Official may conduct interviews,
request records, and obtain other information required to be maintained
by the program participant pursuant to Sec. 5.168 in furtherance of
the investigation and in order to determine whether there has been
noncompliance with Sec. Sec. 5.150 through 5.180 or the program
participant's obligation to affirmatively further fair housing.
(3) Where appropriate, the Responsible Civil Rights Official shall
attempt informal resolution of any matter being investigated under this
section. If voluntary resolution is not achieved and a violation is
found, the Responsible Civil Rights Official shall issue a Letter of
Findings to the program participant and complainant, if any.
(4) The Letter of Findings shall include:
(i) Findings of fact and conclusions of law;
(ii) A description of a remedy for each violation found;
(iii) Notice of the rights and procedures under this paragraph (b)
and Sec. Sec. 5.172 and 5.174; and
(iv) Notice of the right of the program participant or complainant,
if any, to request review of the Letter of Findings not later than 30
calendar days from the date of issuance of the Letter of Findings by
mailing or delivering to the Reviewing Civil Rights Official, Office of
Fair Housing and Equal Opportunity, Washington, DC 20410, a written
statement of the reasons why the letter of findings should be modified
in light of supplementary information provided by the program
participant or complainant, if any.
(5) Upon receipt of a request for review of the Letter of Findings,
the Reviewing Civil Rights Official shall either sustain or modify the
Letter of Findings, which will occur within 120 days, subject to
extension for good cause as determined by the Reviewing Civil Rights
Official. The Reviewing Civil Rights Official's decision shall
constitute the formal determination.
(6) If no request for review is submitted to the Reviewing Civil
Rights Official under paragraph (b)(4)(iv) of this section, the Letter
of Findings shall constitute the formal determination.
(c) Voluntary compliance. (1) It is the policy of the Department to
encourage the informal resolution of matters. Additionally, it is the
policy of the Department to ensure appropriate actions are taken to
remedy noncompliance and prevent future noncompliance in an effort to
avoid more severe corrective actions. In attempting informal
resolution, the Responsible Civil Rights Official shall attempt to
achieve a just resolution of the matter that will satisfactorily remedy
any violations of Sec. Sec. 5.150 through 5.180 or the program
participant's obligation to affirmatively further fair housing. The
Responsible Civil Rights Official may require in any
[[Page 8576]]
Voluntary Compliance Agreement that the program participant will take
certain actions with respect to any aggrieved individual or class of
individuals. The Responsible Civil Rights Official, in appropriate
circumstances, may seek, in lieu of a Voluntary Compliance Agreement,
assurances or special assurances of compliance. Any informal resolution
shall include actions that will prevent the occurrence of such
violations in the future. The Responsible Civil Rights Official may
attempt to resolve a matter through informal means at any stage of
processing. A matter may be resolved by informal means through entry
into a Voluntary Compliance Agreement at any time. If a Letter of
Findings of Noncompliance is issued, the Responsible Civil Rights
Official or Reviewing Civil Rights Official shall attempt to resolve
the matter by informal means, as applicable.
(2) In the event a program participant fails to comply with the
terms of a Voluntary Compliance Agreement or assurance, the Responsible
Civil Rights Official shall provide prompt notice to the program
participant of its failure to comply and provide the program
participant with a timeframe to cure the noncompliance. If the
Responsible Civil Rights Official determines the program participant
has failed to cure the noncompliance within the specified timeframe,
any remedy provided by law may be used, including the procedures set
forth in Sec. 5.172.
(d) Intimidatory or retaliatory acts prohibited. No program
participant or other person shall intimidate, threaten, coerce, or
discriminate against any person for the purpose of interfering with
HUD's administration of Sec. Sec. 5.150 through 5.180 or the Fair
Housing Act, or because he, she, or they have testified, assisted, or
participated in any manner in an investigation, proceeding, or hearing
under Sec. Sec. 5.150 through 5.180 or the Fair Housing Act.
Sec. 5.172 Procedures for effecting compliance.
(a) General. If the Responsible Civil Rights Official determines
that compliance cannot be secured by voluntary means and ten days have
elapsed since the determination of noncompliance was issued pursuant to
Sec. 5.170(b)(5) and (6), compliance with Sec. Sec. 5.150 through
5.180 or the obligation to affirmatively further fair housing under the
Fair Housing Act may be effected through such actions, which may
include, but are not limited to:
(1) A referral to the Department of Justice with a recommendation
that appropriate proceedings be brought to enforce any rights of the
United States under any law of the United States, or any assurance or
other contractual undertaking;
(2) The initiation of an administrative proceeding by filing a
Complaint and Notice of Proposed Adverse Action pursuant to 24 CFR
180.415 seeking suspension or termination of or refusal to grant or to
continue to grant Federal financial assistance and any other
appropriate relief necessary to remedy the non-compliance, including
but not limited to conditioning the use of Federal financial
assistance, and other declaratory, injunctive, or monetary relief;
(3) The initiation of debarment proceedings pursuant to 2 CFR part
2424; and
(4) Any applicable proceeding under State or local law.
(b) Noncompliance with Sec. 5.160(i), Sec. 5.162(e), or Sec.
5.170(c). If a program participant fails or refuses to furnish an
assurance required under Sec. 5.160(i), Sec. 5.162(e), or Sec.
5.170(c), or otherwise fails or refuses to comply with the requirements
imposed by Sec. Sec. 5.150 through 5.180, Federal financial assistance
may be refused under paragraph (c) of this section. HUD is not required
to provide assistance during the pendency of the administrative
proceeding under paragraph (a)(2) or (c) of this section.
(c) Termination of or refusal to grant or to continue to grant
Federal financial assistance. Should HUD seek to terminate, refuse to
grant or to not continue granting Federal financial assistance through
an action initiated pursuant to paragraph (a)(2) of this section, no
order suspending, terminating, or refusing to grant or to continue to
grant Federal financial assistance shall become effective until:
(1) The Responsible Civil Rights Official has advised the program
participant of its failure to comply and has determined that compliance
cannot be secured by voluntary means;
(2) There has been an express finding on the record, after an
opportunity for a hearing, of a failure by the program participant to
comply with the requirements of Sec. Sec. 5.150 through 5.180 or its
obligation to affirmatively further fair housing under the Fair Housing
Act;
(3) The action has been approved by the Secretary; and
(4) Any action to suspend or terminate, or to refuse to grant or to
continue Federal financial assistance shall be limited to the
particular political entity, or part thereof, or the particular program
participant as to whom such a finding has been made and shall be
limited in its effect to the particular program, or part thereof, in
which such noncompliance has been found.
(d) Notice to State or local government. Whenever the Secretary
determines that a State or local government that is a recipient of
Federal financial assistance under title I of the Housing and Community
Development Act of 1974, as amended (42 U.S.C. 5301-5318) has failed to
comply with a requirement of Sec. Sec. 5.150 through 5.180 or its
obligation to affirmatively further fair housing under the Fair Housing
Act, the Secretary shall notify the Governor of the State or the chief
executive officer of the unit of general local government of the
noncompliance and shall request the Governor or the chief executive
officer secure compliance. Such notification may be satisfied through
the procedures set forth in Sec. 5.170(c). The notice shall be given
at least sixty days before:
(1) An order suspending, terminating, or refusing to grant or to
continue to grant Federal financial assistance becomes effective under
paragraph (a)(2) or (c) of this section; or
(2) Any other action to effect compliance is taken under paragraph
(a) of this section.
Sec. 5.174 Hearings.
(a) Opportunity for hearing. Whenever an opportunity for a hearing
is required by Sec. 5.172 (a)(2) or (c), notice shall be given by
certified mail, return receipt requested, to the affected program
participant. This notice, pursuant to 24 CFR 180.415, shall advise the
program participant of the action proposed to be taken, the specific
provisions under which the proposed action against it is to be taken,
and the matters of fact or law asserted as the basis for this action.
This notice shall accompany service of a complaint filed pursuant to 24
CFR part 180. The notice shall:
(1) Fix a date not less than twenty days after the date of the
notice for the program participant to request the administrative law
judge schedule a hearing; or
(2) Advise the program participant that the matter has been
scheduled for hearing at a stated time and place. The time and place so
fixed shall be reasonable and shall be subject to change for cause. A
program participant may waive a hearing and submit written information
and argument for the record. The failure of a program participant to
request a hearing under this paragraph (a) or to appear at a hearing
for which a date has been set is a waiver of the right to a hearing
under Sec. 5.172(a)(2) or (c) and consent to the
[[Page 8577]]
making of a decision on the basis of available information.
(b) Hearing procedures. Hearings shall be conducted in accordance
with 24 CFR part 180.
Sec. Sec. 5.175-5.180 [Reserved]
PART 91--CONSOLIDATED SUBMISSION FOR COMMUNITY PLANNING AND
DEVELOPMENT PROGRAMS
0
3. The authority citation for part 91 continues to read as follows:
Authority: 42 U.S.C. 3535(d), 3601-3619, 5301-5315, 11331-
11388, 12701-12711, 12741-12756, and 12901-12912.
0
4. In Sec. 91.2, paragraph (e) is added to read as follows:
Sec. 91.2 Applicability.
* * * * *
(e) All programs covered by the consolidated plan must comply with
the requirements to affirmatively further fair housing, including those
at Sec. Sec. 5.150 through 5.180 of this title.
0
5. In Sec. 91.5, the introductory text is revised to read as follows:
Sec. 91.5 Definitions.
The terms affirmatively furthering fair housing, elderly person,
Equity Plan, and HUD are defined in 24 CFR part 5.
* * * * *
0
6. In Sec. 91.100, paragraph (c) is revised and paragraph (e) is added
to read as follows:
Sec. 91.100 Consultation; local governments.
* * * * *
(c) Public housing agencies (PHAs). (1) The jurisdiction shall
consult with local PHAs operating in the jurisdiction regarding
consideration of public housing needs, planned programs and activities,
and the fair housing strategies and meaningful actions that will
implement the fair housing goals from the Equity Plan consistent with
Sec. 5.156 of this title. This consultation will help provide a better
basis for the certification by the authorized official that the PHA
Plan is consistent with the consolidated plan and the local
government's description of its strategy for affirmatively furthering
fair housing and the manner in which it will address the needs of
public housing and, where necessary, the manner in which it will
provide financial or other assistance to a troubled PHA to improve the
PHA's operations and remove the designation of troubled, as well as
obtaining PHA input on addressing fair housing issues in the Public
Housing and Housing Choice Voucher programs.
(2) This consultation will also help ensure that activities with
regard to affirmatively furthering fair housing, local drug
elimination, neighborhood improvement programs, and resident programs
and services, those funded under a PHA's program and those funded under
a program covered by the consolidated plan, are fully coordinated to
implement the fair housing goals from the jurisdiction's and PHA's
Equity Plan, achieve comprehensive community development goals, and
affirmatively further fair housing. If a PHA is required to implement
remedies under a Voluntary Compliance Agreement, the local jurisdiction
should work with or consult with the PHA, as appropriate, to identify
actions the jurisdiction may take, if any, to assist the PHA in
implementing the required remedies.
* * * * *
(e) Affirmatively furthering fair housing. (1) For the Equity plan,
the jurisdiction shall follow the community engagement requirements at
Sec. 5.158 of this title. For the consolidated plan, the jurisdiction
shall consult with community-based and regionally-based organizations
that represent protected class members and organizations that enforce
fair housing laws, such as State or local fair housing enforcement
agencies (including participants in the Fair Housing Assistance Program
(FHAP)), fair housing organizations and other non-profit organizations
that receive funding under the Fair Housing Initiatives Program (FHIP),
and other public and private fair housing service agencies, to the
extent that such entities operate within its jurisdiction. This
consultation will help provide a better basis for the jurisdiction's
Equity Plan, its certification to affirmatively furthering fair
housing, and other portions of the consolidated plan concerning
affirmatively further fair housing.
(2) This consultation must occur with any organizations that have
relevant knowledge or data to inform the Equity Plan and that are
sufficiently independent and representative to provide meaningful
feedback to a jurisdiction on the Equity Plan and its implementation.
(3) Consultation must occur at various points in the fair housing
planning process, meaning that, at a minimum, the jurisdiction will
consult with the organizations described in this paragraph (e) in the
development of both the Equity Plan and the consolidated plan.
Consultation on the consolidated plan shall specifically seek input
into how the fair housing goals identified in an accepted Equity Plan
will be achieved through the priorities and objectives of the
consolidated plan.
0
7. In Sec. 91.105, paragraphs (a), (b), (c), (e) heading, (e)(1)(i),
(e)(2) through (4), (f), (g), (i), and (j) are revised to read as
follows:
Sec. 91.105 Citizen participation plan; local governments.
(a) Applicability and adoption of the citizen participation plan--
(1) Citizen participation plan. The jurisdiction is required to adopt a
citizen participation plan that sets forth the jurisdiction's policies
and procedures for citizen participation for purposes of the
consolidated plan. The citizen participation plan may include the
community engagement procedures for development of the Equity Plan,
which shall be consistent with the requirements set forth at Sec.
5.158 of this title.
(2) Encouragement of citizen participation. (i) The citizen
participation plan must provide for and encourage citizens to
participate in the development of the Equity Plan, any revisions to the
Equity Plan, the consolidated plan, any substantial amendment to the
consolidated plan, and the performance report. The requirements in this
paragraph (a)(2)(i) are designed especially to encourage participation
by low- and moderate-income persons, particularly those persons living
in areas designated by the jurisdiction as a revitalization area or in
a slum and blighted area and in areas where CDBG funds are proposed to
be used, and by residents of predominantly low- and moderate-income
neighborhoods, as defined by the jurisdiction, as well as members of
protected class groups that have historically been denied equal
opportunity, and underserved communities. A jurisdiction must take
appropriate actions to encourage the participation of all its
residents, including minorities and non-English speaking persons, as
provided in paragraph (a)(4) of this section, as well as persons with
disabilities, as provided in paragraph (a)(5) of this section.
(ii) The jurisdiction shall encourage the participation of local
and regional institutions, Continuums of Care, and other organizations
(including businesses, developers, non-profit organizations,
philanthropic organizations, metropolitan planning organizations, and
community-based and faith-based organizations) in the process of
developing and implementing the Equity Plan and consolidated plan.
(iii) The jurisdiction shall encourage, in conjunction with
consultation with
[[Page 8578]]
public housing agencies, the participation of residents of public and
assisted housing developments (including any resident advisory boards,
resident councils, and resident management corporations) in the process
of developing and implementing the consolidated plan, along with other
low-income residents of targeted revitalization areas in which the
developments are located. The jurisdictions shall make an effort to
provide information to the PHA about how the jurisdiction will
affirmatively furthering fair housing through implementation of its
fair housing goals from the Equity Plan, and other consolidated plan
activities related to the PHA's developments and surrounding
communities so that the PHA can make this information available at the
annual public hearing(s) required for the PHA Plan.
(iv) The jurisdiction should explore alternative public involvement
techniques and quantitative ways to measure efforts that encourage
citizen participation in a shared vision for change in communities and
neighborhoods, and the review of program performance; e.g., use of
focus groups, the internet, and social media. To the extent the
jurisdiction includes the community engagement requirements for the
Equity Plan in its citizen participation plan, the techniques described
in this paragraph (a)(2)(iv) that are utilized for purposes of
community engagement pursuant to Sec. 5.158 of this title shall be
consistent with the requirements of that section, including the
nondiscrimination requirements described at Sec. 5.158(a)(7) of this
title.
(3) Citizen comment on the citizen participation plan and
amendments. The jurisdiction must provide citizens with a reasonable
opportunity to comment on the original citizen participation plan and
on substantial amendments to the citizen participation plan, and must
make the citizen participation plan public. The citizen participation
plan must be in a format accessible to persons with disabilities and
shall provide meaningful access to limited English proficient persons
as more fully described in paragraphs (a)(4) and (5) of this section.
(4) Language assistance for individuals with limited English
proficiency. The citizen participation plan shall describe the
jurisdiction's procedures for assessing its language needs and identify
any need for translation of notices and other vital documents. At a
minimum, the citizen participation plan shall require that the
jurisdiction take reasonable steps to provide language assistance to
ensure meaningful access to participation by non-English-speaking
residents of the community in the development of the consolidated plan.
(5) Accessibility for persons with disabilities. The citizen
participation plan shall describe the jurisdiction's procedures for
ensuring effective communication with persons with disabilities,
consistent with the jurisdiction's obligations under section 504 of the
Rehabilitation Act and HUD's implementing regulation at 24 CFR part 8
and title II of the Americans with Disabilities Act and the
implementing regulation at 28 CFR part 35. At minimum, the citizen
participation plan shall include the requirement that the jurisdiction
furnish appropriate auxiliary aids and services where necessary to
afford persons with disabilities an equal opportunity to participate in
the development of the consolidated plan.
(b) Development of the consolidated plan. The citizen participation
plan must include the following minimum requirements for the
development of the consolidated plan:
(1)(i) The citizen participation plan must require that at or as
soon as feasible after the start of the public participation process
the jurisdiction will make the HUD-provided data and any other
supplemental information the jurisdiction plans to incorporate into its
Equity Plan or consolidated plan available to its residents, public
agencies, and other interested parties.
(ii) The citizen participation plan must require that, before the
jurisdiction adopts a consolidated plan, the jurisdiction will make
available to residents, public agencies, and other interested parties
information that includes the amount of assistance the jurisdiction
expects to receive (including grant funds and program income) and the
range of activities that may be undertaken, including the estimated
amount that will benefit persons of low- and moderate-income. The
citizen participation plan also must set forth the jurisdiction's plans
to minimize displacement of persons and to assist any persons
displaced, specifying the types and levels of assistance the
jurisdiction will make available (or require others to make available)
to persons displaced, even if the jurisdiction expects no displacement
to occur.
(iii) The citizen participation plan must state when and how the
jurisdiction will make this information available.
(2) The citizen participation plan must require the jurisdiction to
publish the proposed consolidated plan in a manner that affords its
residents, public agencies, and other interested parties a reasonable
opportunity to examine its content and to submit comments. The citizen
participation plan must set forth how the jurisdiction will publish the
proposed consolidated plan and give reasonable opportunity to examine
each document's content. The requirement for publishing may be met by
publishing a summary of each document in one or more newspapers of
general circulation, and by making copies of each document available on
the internet, on the jurisdiction's official government website and
pages on social media, and as well at libraries, government offices,
and public places. The summary must describe the content and purpose of
the consolidated plan and must include a list of the locations where
copies of the entire proposed documents may be examined. In addition,
the jurisdiction must provide a reasonable number of free copies of the
plans to residents and groups that request them.
(3) The citizen participation plan must provide for at least one
public hearing during the development of the consolidated plan. See
paragraph (e) of this section for public hearing requirements,
generally. See Sec. 5.158(d) of this title for public hearing
requirements for purposes of the Equity Plan.
(4) The citizen participation plan must provide a period, not less
than 30 calendar days, to receive comments from residents of the
community on the consolidated plan. This timing is distinct from the
required community engagement for purposes of the Equity Plan set forth
at Sec. 5.158(a)(8)(i) of this title.
(5) The citizen participation plan shall require the jurisdiction
to consider any comments or views of residents of the community
received in writing, or orally at the public hearings, in preparing the
consolidated plan. A summary of these comments or views, and a summary
of any comments or views not accepted and the reasons why, shall be
attached to the final consolidated plan. See Sec. 5.154(h) of this
title for the content requirements for purposes of the Equity Plan's
community engagement process.
(c) Consolidated plan amendments and Equity Plan revisions. (1) The
citizen participation plan must specify the criteria the jurisdiction
will use for determining what changes in the jurisdiction's planned or
actual activities constitute a substantial amendment to the
consolidated plan. (See Sec. 91.505.) The citizen participation plan
must include, among the criteria
[[Page 8579]]
for a substantial amendment, changes in the use of CDBG funds from one
eligible activity to another. If the jurisdiction includes the Equity
Plan in its citizen participation plan, then the citizen participation
plan shall specify the criteria for revisions of the Equity Plan, which
shall, at minimum, be consistent with Sec. 5.164 of this title.
(2) The citizen participation plan must provide community residents
with reasonable notice and an opportunity to comment on substantial
amendments to the consolidated plan. The citizen participation plan
must state how reasonable notice and an opportunity to comment will be
given. The citizen participation plan must provide a period, of not
less than 30 calendar days, to receive comments on the consolidated
plan substantial amendment before the consolidated plan substantial
amendment is implemented. If the citizen participation plan includes
the Equity Plan, it shall be consistent with the requirements at Sec.
5.164(a)(3) of this title.
(3) The citizen participation plan shall require the jurisdiction
to consider any comments or views of residents of the community
received in writing, or orally at public hearings, if any, in preparing
the substantial amendment of the consolidated plan. A summary of these
comments or views, and a summary of any comments or views not accepted
and the reasons why, shall be attached to the substantial amendment of
the consolidated plan. If the jurisdiction includes the Equity Plan in
the citizen participation plan, it shall be consistent with the
requirements set forth at Sec. Sec. 5.154(h) and 5.158 of this title.
* * * * *
(e) Public hearings. (1)(i) Consolidated plan. The citizen
participation plan must provide, for purposes of the consolidated plan,
for at least two public hearings per year to obtain residents' views
and to respond to proposals and questions, to be conducted at a minimum
of two different stages of the program year. Together, the hearings
must address housing and community development needs, development of
proposed activities, proposed fair housing strategies and meaningful
actions for affirmatively furthering fair housing based on the fair
housing goals from the Equity Plan consistent with Sec. 5.156 of this
title, and a review of program performance. If the jurisdiction has
included the community engagement procedures for development of the
Equity Plan in its citizen participation plan, the requirements at
Sec. 5.158 of this title shall apply.
* * * * *
(2) The citizen participation plan must state how and when adequate
advance notice will be given to citizens of each hearing on the
consolidated plan, with sufficient information published about the
subject of the hearing to permit informed comment. (Publishing small
print notices in the newspaper a few days before the hearing does not
constitute adequate notice. Although HUD is not specifying the length
of notice required, it would consider two weeks adequate.)
(3) The citizen participation plan must provide that hearings be
held at times and locations convenient to potential and actual
beneficiaries, and accessible to persons with disabilities. The citizen
participation plan must specify how it will meet the requirements in
this paragraph (e)(3).
(4) The citizen participation plan must identify how the needs of
non-English speaking residents will be met in the case of public
hearings where a significant number of non-English speaking residents
can be reasonably expected to participate.
(f) Meetings. The citizen participation plan, for purposes of the
consolidated plan, must provide residents of the community with
reasonable and timely access to local meetings, consistent with
accessibility and reasonable accommodation requirements, in accordance
with section 504 of the Rehabilitation Act of 1973 and the regulations
at 24 CFR part 8; and the Americans with Disabilities Act and the
regulations at 28 CFR parts 35 and 36, as applicable. If the Equity
Plan is included in the jurisdiction's citizen participation plan, the
requirements for meetings set forth at Sec. 5.158 of this title shall
apply.
(g) Availability to the public. The citizen participation plan must
provide that the consolidated plan as adopted, consolidated plan
substantial amendments, and the performance report will be available to
the public, including the availability of materials in a form
accessible to persons with disabilities and shall provide meaningful
access to limited English proficient persons as more fully described in
paragraphs (a)(4) and (5) of this section. The citizen participation
plan must state how these documents will be available to the public.
* * * * *
(i) Technical assistance. The citizen participation plan must
provide for technical assistance to groups representative of persons of
low- and moderate-income that request such assistance in commenting on
the Equity Plan and in developing proposals for funding assistance
under any of the programs covered by the consolidated plan, with the
level and type of assistance determined by the jurisdiction. The
assistance need not include the provision of funds to the groups.
(j) Complaints. The citizen participation plan shall describe the
jurisdiction's appropriate and practicable procedures to handle
complaints from its residents related to the consolidated plan,
amendments, revisions, and the performance report. At a minimum, the
citizen participation plan shall require that the jurisdiction must
provide a timely, substantive written response to every written
resident complaint, within an established period of time (within 15
working days, where practicable, if the jurisdiction is a CDBG grant
recipient). This procedure is distinct from the processes that apply to
the Equity Plan set forth at Sec. Sec. 5.158(i) and 5.170 of this
title.
* * * * *
0
8. In Sec. 91.110, paragraph (a) is revised to read as follows:
Sec. 91.110 Consultation; States.
(a) When preparing the consolidated plan, the State shall consult
with other public and private agencies that provide assisted housing
(including any State housing agency administering public housing),
health services, and social and fair housing services (including those
focusing on services to children, elderly persons, persons with
disabilities, including persons with HIV/AIDS and their families, and
homeless persons). For the Equity Plan, the jurisdiction shall follow
the community engagement requirements at Sec. 5.158 of this title.
(1) With respect to public housing or Housing Choice Voucher
programs, the State shall consult with any housing agency administering
public housing or the section 8 program on a Statewide basis as well as
PHAs that certify consistency with the State's consolidated plan. State
consultation with these entities may consider public housing needs,
planned programs and activities, the Equity Plan strategies for
affirmatively furthering fair housing and proposed actions to
affirmatively further fair housing. This consultation helps provide a
better basis for the certification by the authorized official that the
PHA Plan is consistent with the consolidated plan and the State's
description of its strategy to affirmatively further fair housing, and
the manner in which the State will
[[Page 8580]]
address the needs of public housing and, where applicable, the manner
in which the State may provide financial or other assistance to a
troubled PHA to improve its operations and remove such designation, as
well as in obtaining PHA input on addressing fair housing issues in
public housing and the Housing Choice Voucher programs. This
consultation also helps ensure that activities with regard to
affirmatively furthering fair housing, local drug elimination,
neighborhood improvement programs, and resident programs and services,
funded under a PHA's program covered by the consolidated plan are fully
coordinated to achieve comprehensive community development goals and
affirmatively further fair housing. If a PHA is required to implement
remedies under a Voluntary Compliance Agreement, the State should
consult with the PHA and identify actions the State may take, if any,
to assist the PHA in implementing the required remedies.
(2) The State shall consult with State-based and regionally-based
organizations that represent protected class groups, including
underserved communities, and organizations that enforce fair housing
laws, such as State fair housing enforcement agencies (including
participants in the Fair Housing Assistance Program (FHAP)), fair
housing organizations and other non-profit organizations that receive
funding under the Fair Housing Initiatives Program (FHIP), and other
public and private fair housing service agencies, to the extent such
entities operate within the State. This consultation will help provide
a better basis for the State's Equity Plan, its certification that it
is affirmatively furthering fair housing, and other portions of the
consolidated plan concerning affirmatively furthering fair housing.
This consultation should occur with organizations that have the
capacity to engage with data informing the Equity Plan and be
sufficiently independent and representative to provide meaningful
feedback on the Equity Plan, the consolidated plan, and their
implementation. Consultation must occur at various points in the fair
housing planning process, meaning that, at a minimum, the jurisdiction
will consult with the organizations described in this paragraph (a)(2)
in the development of both the Equity Plan and the consolidated plan.
Consultation on the consolidated plan shall specifically seek input
into how the fair housing goals established in the Equity Plan will be
incorporated into the priorities and objectives of the consolidated
plan.
* * * * *
0
9. In Sec. 91.115:
0
a. Paragraphs (a)(1), (a)(2)(i) and (ii), and (a)(3) and (4) are
revised;
0
b. Paragraph (a)(5) is added; and
0
c. The introductory text of paragraph (b), paragraphs (b)(1) and (2),
the introductory text of paragraph (b)(3), and paragraphs (b)(4) and
(5), (f), and (h) are revised.
The revisions and addition read as follows:
Sec. 91.115 Citizen participation plan; States.
(a) * * *
(1) When citizen participation plan must be amended. The State is
required to adopt a citizen participation plan that sets forth the
State's policies and procedures for citizen participation for purposes
of the consolidated plan. The citizen participation plan may include
the community engagement procedures for development of the Equity Plan,
which shall be consistent with the requirements set forth at Sec.
5.158 of this title.
(2) * * *
(i) The citizen participation plan must provide for and encourage
citizens to participate in the development of the Equity Plan, any
revisions to the Equity Plan, the consolidated plan, any substantial
amendments to the consolidated plan, and the performance report. These
requirements are designed especially to encourage participation by low-
and moderate-income persons, particularly those living in slum and
blighted areas and in areas where CDBG funds are proposed to be used
and by residents of predominantly low- and moderate-income
neighborhoods. A State must take appropriate actions to encourage the
participation of all its residents, including minorities and non-
English speaking persons, as provided in paragraph (a)(4) of this
section, as well as persons with disabilities, as provided in paragraph
(a)(5) of this section.
(ii) The State shall encourage the participation of Statewide and
regional institutions, Continuums of Care, and other organizations
(including businesses, developers, non-profit organizations,
philanthropic organizations, metropolitan planning organizations, and
community-based and faith-based organizations) that are involved with
or affected by the programs or activities covered by the consolidated
plan in the process of developing and implementing the Equity Plan and
consolidated plan. Commencing with consolidated plans submitted in or
after January 1, 2018, the State shall also encourage the participation
of public and private organizations, including broadband internet
service providers, organizations engaged in narrowing the digital
divide, agencies whose primary responsibilities include the management
of flood prone areas, public land or water resources, and emergency
management agencies in the process of developing the consolidated plan.
For purposes of the development of the Equity Plan, this obligation
shall commence following [30 DAYS AFTER DATE OF PUBLICATION OF FINAL
RULE].
* * * * *
(3) Citizen and local government comment on the citizen
participation plan and amendments. The State must provide citizens and
units of general local government a reasonable opportunity to comment
on the original citizen participation plan and on substantial
amendments to the citizen participation plan, and must make the citizen
participation plan public. The citizen participation plan must be in a
format accessible to persons with disabilities and shall provide
meaningful access to limited English proficient persons as more fully
described in paragraphs (a)(4) and (5) of this section.
(4) Language assistance for individuals with limited English
proficiency. The citizen participation plan shall describe the State's
procedures for assessing its language needs and identify any need for
translation of notices and other vital documents. At a minimum, the
citizen participation plan shall require the State to make reasonable
efforts to provide language assistance to ensure meaningful access to
participation by non-English speaking persons in the development of the
consolidated plan.
(5) Accessibility for persons with disabilities. The citizen
participation plan shall describe the jurisdiction's procedures for
ensuring effective communication with persons with disabilities,
consistent with the jurisdiction's obligations under section 504 of the
Rehabilitation Act and HUD's implementing regulation at 24 CFR part 8
and title II of the Americans with Disabilities Act and the
implementing regulation at 28 CFR part 35. At minimum, the citizen
participation plan shall include the requirement that the jurisdiction
furnish appropriate auxiliary aids and services where necessary to
afford persons with disabilities an equal opportunity to participate in
the development of the consolidated plan.
[[Page 8581]]
(b) Development of the Equity Plan and consolidated plan. The
citizen participation plan must include the following minimum
requirements for the development of the Equity Plan and consolidated
plan:
(1) The citizen participation plan must require that, before the
State adopts a consolidated plan, the State will make available to its
residents, public agencies, and other interested parties information
that includes the amount of assistance the State expects to receive and
the range of activities that may be undertaken, including the estimated
amount that will benefit persons of low- and moderate-income and the
plans to minimize displacement of persons and to assist any persons
displaced. The State will also provide the amount of any assistance
that will benefit protected class groups and underserved communities
that have historically been denied access to opportunity. The citizen
participation plan must state when and how the State will make this
information available.
(2) The citizen participation plan must require the State to
publish the proposed Equity Plan and the proposed consolidated plan in
a manner that affords residents, units of general local governments,
public agencies, and other interested parties a reasonable opportunity
to examine the document's content and to submit comments. The citizen
participation plan must set forth how the State will make publicly
available the proposed Equity Plan and proposed consolidated plan and
give reasonable opportunity to examine each document's content. To
ensure that the Equity Plan, consolidated plan, and the PHA Plan are
informed by meaningful community participation, program participants
should employ communications means designed to reach the broadest
audience. Such communications may be met by publishing a summary of
each document in one or more newspapers of general circulation, and by
making copies of each document available on the internet, on the
grantee's official government website and its pages on social media,
and as well at libraries, government offices, and public places. The
summary must describe the content and purpose of the Equity Plan and
consolidated plan, and must include a list of the locations where
copies of the entire proposed document(s) may be examined. In addition,
the State must provide a reasonable number of free copies of the plans
to its residents and groups that request a copy of the plan.
(3) The citizen participation plan must provide for at least one
public hearing on housing and community development needs before the
proposed consolidated plan is published for comment. See Sec. 5.158(d)
of this title for public hearing requirements for purposes of the
Equity Plan.
* * * * *
(4) The citizen participation plan must, for purposes of the
consolidated plan, provide a period of not less than 30 calendar days,
to receive comments from residents and units of general local
government on the consolidated plan. This timing is distinct from the
required community engagement for purposes of the Equity Plan set forth
at Sec. 5.158(a)(8)(i) of this title.
(5) The citizen participation plan shall require the State to
consider any comments or views of its residents and units of general
local government received in writing, or orally at the public hearings,
in preparing the final Equity Plan or consolidated plan. A summary of
these comments or views, and a summary of any comments or views not
accepted and the reasons therefore, shall be attached to the final
consolidated plan (as applicable). See Sec. 5.154(h) of this title for
the content requirements for purposes of the Equity Plan's community
engagement process.
* * * * *
(f) Availability to the public. The citizen participation plan must
provide that the consolidated plan as adopted, consolidated plan
substantial amendments and the performance report will be available to
the public, including the availability of materials in a form
accessible to persons with disabilities and shall provide meaningful
access to limited English proficient persons as more fully described in
paragraphs (a)(4) and (5) of this section. The citizen participation
plan must state how these documents will be available to the public.
* * * * *
(h) Complaints. The citizen participation plan shall describe the
State's appropriate and practicable procedures to handle complaints
from its residents related to the consolidated plan, consolidated plan
amendments, and the performance report. At a minimum, the citizen
participation plan shall require that the State must provide a timely,
substantive written response to every written resident complaint,
within an established period of time (within 15 working days, where
practicable, if the State is a CDBG grant recipient). This procedure is
distinct from the processes that apply to the Equity Plan set forth at
Sec. Sec. 5.158(i) and 5.170 of this title.
* * * * *
0
10. In Sec. 91.215:
0
a. Paragraph (a)(4) is amended by removing the period at the end of the
paragraph and adding ``; and'' in its place; and
0
b. Paragraph (a)(5) is added.
The addition reads as follows:
Sec. 91.215 Strategic plan.
(a) * * *
(5)(i) Describe how the priorities and specific objectives of the
jurisdiction under paragraph (a)(4) of this section will affirmatively
further fair housing by setting forth fair housing strategies and
meaningful actions consistent with the fair housing goals and other
elements of the Equity Plan conducted in accordance with Sec. Sec.
5.150 through 5.180 of this title.
(ii) For any fair housing goals from the Equity Plan not addressed
by the priorities and objectives under paragraph (a)(4) of this
section, identify how these goals have been incorporated into the plan
consistent with the requirements of Sec. 5.156.
* * * * *
0
11. In Sec. 91.220, paragraphs (k), (l)(1)(iv), and (l)(3) are revised
to read as follows:
Sec. 91.220 Action plan.
* * * * *
(k) Affirmatively furthering fair housing and other actions--(1)
Affirmatively furthering fair housing. Actions the jurisdiction plans
to take during the next year to implement the fair housing goals
established in the Equity Plan developed pursuant to Sec. Sec. 5.150
through 5.180 of this title or other actions to address fair housing
issues consistent with the jurisdiction's obligation to affirmatively
further fair housing.
(2) Other actions. Actions it plans to take during the next year to
address obstacles to meeting underserved needs, foster and maintain
affordable housing, evaluate and reduce lead-based paint hazards,
reduce the number of poverty-level families, develop institutional
structure, and enhance coordination between public and private housing
and social service agencies (see Sec. 91.215(a), (b), (i), (j), (k),
and (l)).
(l) * * *
(1) * * *
(iv) The plan shall identify the estimated amount of CDBG funds
that will be used for activities that benefit persons of low- and
moderate-income. The information about activities shall be in
sufficient detail, including location, to allow residents to determine
the degree to which they are affected. The information about activities
shall also include whether the activities are for purposes of
implementing any fair
[[Page 8582]]
housing goals from the Equity Plan incorporated pursuant to Sec. 5.156
of this title.
* * * * *
(3) HOPWA. For HOPWA funds, the jurisdiction must specify one-year
goals for the number of households to be provided housing through the
use of HOPWA activities for: short-term rent, mortgage, and utility
assistance payments to prevent homelessness of the individual or
family; tenant-based rental assistance; and units provided in housing
facilities that are being developed, leased, or operated with HOPWA
funds and shall identify the method of selecting project sponsors
(including providing full access to grassroots faith-based and other
community organizations). The information about activities shall
include whether the activities are for purposes of implementing the
fair housing goals, from the Equity Plan.
* * * * *
0
12. In Sec. 91.225, paragraph (a)(1) is revised to read as follows:
Sec. 91.225 Certifications.
(a) * * *
(1) Affirmatively furthering fair housing. Each jurisdiction is
required to submit a certification that they will affirmatively further
fair housing, which includes engaging in fair housing planning and
taking meaningful actions, in accordance with the requirements of
Sec. Sec. 5.150 through 5.180 of this title, and that it will take no
action that is materially inconsistent with the duty to affirmatively
further fair housing throughout the period for which Federal financial
assistance is extended.
* * * * *
0
13. Section 91.230 is revised to read as follows:
Sec. 91.230 Monitoring.
The plan must describe the standards and procedures that the
jurisdiction will use to monitor activities carried out in furtherance
of the plan, including strategies and actions that address the fair
housing issues and goals identified in the Equity Plan and that the
jurisdiction will use to ensure long-term compliance with requirements
of the programs involved, including civil rights related program
requirements, minority business outreach, and the comprehensive
planning requirements.
0
14. In Sec. 91.235, paragraphs (c)(1) and (4) are revised to read as
follows:
Sec. 91.235 Special case; abbreviated consolidated plan.
* * * * *
(c) * * *
(1) Assessment of needs, resources, and planned activities. An
abbreviated plan must contain sufficient information about needs,
resources, and planned activities to address the needs to cover the
type and amount of assistance anticipated to be funded by HUD. The
jurisdiction must describe how the jurisdiction will affirmatively
further fair housing by implementing the fair housing goals established
in the Equity Plan developed in accordance with Sec. Sec. 5.150
through 5.180 of this title.
* * * * *
(4) Submissions, certifications, amendments, and performance
reports. An insular area grantee that submits an abbreviated
consolidated plan under this section must comply with the submission,
certification, amendment, and performance report requirements of Sec.
570.440 of this title. This includes the certification that the grantee
will affirmatively further fair housing, which means that it will take
meaningful actions to implement the goals identified in the Equity Plan
in accordance with the requirements of Sec. Sec. 5.150 through 5.180
of this title and that it will take no action that is materially
inconsistent with its obligation to affirmatively further fair housing.
* * * * *
0
15. In Sec. 91.305, paragraph (b)(1)(ii) is revised to read as
follows:
Sec. 91.305 Housing and homeless needs assessment.
* * * * *
(b) * * *
(1) * * *
(ii) The description of housing needs shall include a concise
summary of the cost burden and severe cost burden, overcrowding
(especially for large families), and substandard housing conditions
being experienced by extremely low-income, low-income, moderate-income,
and middle-income renters and owners compared to the State as a whole.
(The State must define in its consolidated plan the terms ``standard
condition'' and ``substandard condition but suitable for
rehabilitation.'') The State may utilize the analysis contained in the
Equity Plan relating to affordable housing opportunities pursuant to
Sec. Sec. 5.152 and 5.154 of this title to satisfy the requirement in
this paragraph (b)(1)(ii).
* * * * *
0
16. In Sec. 91.315, paragraph (a)(5) is added to read as follows:
Sec. 91.315 Strategic plan.
(a) * * *
(5)(i) Describe how the priorities and specific objectives of the
State under paragraph (a)(4) of this section affirmatively further fair
housing by setting forth fair housing strategies and meaningful actions
consistent with the fair housing goals and other elements of the Equity
Plan conducted in accordance with Sec. Sec. 5.150 through 5.180 of
this title.
(ii) For any fair housing goals from the Equity Plan not addressed
by the priorities and objectives under paragraph (a)(4) of this
section, identify how these goals have been incorporated into the plan
consistent with the requirements of Sec. Sec. 5.150 through 5.180.
* * * * *
0
17. In Sec. 91.320, paragraphs (j), (k)(3)(iv), and (k)(4), the
introductory text of paragraph (k)(5), and paragraph (k)(5)(ii) are
revised to read as follows:
Sec. 91.320 Action plan.
* * * * *
(j) Affirmatively furthering fair housing and other actions--(1)
Affirmatively furthering fair housing. Actions it plans to take during
the next year that implement fair housing goals established in the
Equity Plan.
(2) Other actions. Actions it plans to take during the next year to
implement its strategic plan and address obstacles to meeting
underserved needs, foster and maintain affordable housing (including
allocation plans and policies governing the use of Low-Income Housing
Credits under 26 U.S.C. 42, which are more commonly referred to as Low-
Income Housing Tax Credits), evaluate and reduce lead-based paint
hazards, reduce the number of poverty-level families, develop
institutional structure, enhance coordination between public and
private housing and social service agencies, address the needs of
public housing (including providing financial or other assistance to
troubled PHAs), and encourage public housing residents to become more
involved in management and participate in homeownership.
(k) * * *
(3) * * *
(iv) The State must describe the performance standards for
evaluating ESG activities, which includes implementation of the fair
housing goals from the Equity Plan.
* * * * *
(4) HOPWA. For HOPWA funds, the State must specify one-year goals
for the number of households to be provided housing through the use of
HOPWA activities for short-term rent; mortgage and utility assistance
payments to prevent homelessness of the individual or family; tenant-
based rental assistance; and units provided in housing facilities
[[Page 8583]]
that are being developed, leased or operated with HOPWA funds, and
shall identify the method of selecting project sponsors (including
providing full access to grassroots faith-based and other community-
based organizations). The information about activities shall include
whether the activities are for purposes of implementing the fair
housing goals from the Equity Plan.
(5) Housing Trust Fund. The action plan must include the HTF
allocation plan that describes the distribution of the HTF funds, and
establishes the application requirements and the criteria for selection
of applications submitted by eligible recipients that meet the State's
priority housing needs. The plan must also establish the State's
maximum per-unit development subsidy limit for housing assisted with
HTF funds. If the HTF funds will be used for first-time homebuyers, it
must state the guidelines for resale and recapture as required in 24
CFR 93.304. The plan must reflect the State's decision to distribute
HTF funds through grants to subgrantees and/or to select applications
submitted by eligible recipients. If the State is selecting
applications submitted by eligible recipients, the plan must include
the following:
* * * * *
(ii) The plan must include the requirement that the application
contain a description of the eligible activities to be conducted with
the HTF funds (as provided in 24 CFR 93.200) and contain a
certification by each eligible recipient that housing units assisted
with the HTF will comply with HTF requirements. The plan must also
describe eligibility requirements for recipients (as defined in 24 CFR
93.2). The information about activities shall include whether the
activities are for purposes of implementing the fair housing goals from
the Equity Plan.
* * * * *
0
18. In Sec. 91.325, paragraph (a)(1) is revised as follows:
Sec. 91.325 Certifications.
(a) * * *
(1) Affirmatively furthering fair housing. Each State is required
to submit a certification that it will affirmatively further fair
housing, which includes engaging in fair housing planning and taking
meaningful actions, in accordance with the requirements of Sec. Sec.
5.150 through 5.180, and that it will take no action that is materially
inconsistent with the duty to affirmatively further fair housing
throughout the period for which Federal financial assistance is
extended.
* * * * *
0
19. Section 91.330 is revised to read as follows:
Sec. 91.330 Monitoring.
The consolidated plan must describe the standards and procedures
that the State will use to monitor activities carried out in
furtherance of the plan including strategies and actions that address
the fair housing issues and goals identified in the Equity Plan and
that the State will use to ensure long-term compliance with the
programs involved including civil rights related program requirements,
minority business outreach, and the comprehensive planning
requirements.
0
20. Section 91.415 is revised to read as follows:
Sec. 91.415 Strategic plan.
Strategies and priority needs must be described in the consolidated
plan, in accordance with the provisions of Sec. 91.215, for the entire
consortium. The consortium is not required to submit a nonhousing
Community Development Plan; however, if the consortium includes CDBG
entitlement communities, the consolidated plan must include the
nonhousing Community Development Plans of the CDBG entitlement
community members of the consortium. The consortium must set forth its
priorities for allocating housing resources (including CDBG and ESG,
where applicable) geographically within the consortium, describing how
the consolidated plan will address the needs identified (in accordance
with Sec. 91.405), setting forth fair housing strategies and
meaningful actions to implement the fair housing goals of the Equity
Plan developed pursuant to Sec. Sec. 5.150 through 5.180 of this
title, describing the reasons for the consortium's allocation
priorities, and identifying any obstacles there are to addressing
underserved needs.
0
21. In Sec. 91.420, paragraph (b) is revised to read as follows:
Sec. 91.420 Action plan.
* * * * *
(b) Description of resources and activities. The action plan must
describe the resources to be used and activities to be undertaken to
pursue its strategic plan, including actions the consortium intends to
undertake in the next year to address fair housing issues identified in
the Equity Plan. The consolidated plan must provide this description
for all resources and activities within the entire consortium as a
whole, as well as a description for each individual community that is a
member of the consortium.
* * * * *
0
22. In Sec. 91.425, paragraph (a)(1)(i) is revised to read as follows:
Sec. 91.425 Certifications.
(a) * * *
(1) * * *
(i) Affirmatively furthering fair housing. Each consortium must
certify that it will affirmatively further fair housing, which includes
engaging in fair housing planning and taking meaningful actions, in
accordance with the requirements of Sec. Sec. 5.150 through 5.180 of
this title, and that it will take no action that is materially
inconsistent with the duty to affirmatively further fair housing
throughout the period for which Federal financial assistance is
extended.
* * * * *
0
23. Section 91.430 is revised to read as follows:
Sec. 91.430 Monitoring.
The consolidated plan must describe the standards and procedures
that the consortium will use to monitor activities carried out in
furtherance of the plan, including strategies and actions that address
the fair housing issues and goals identified in the Equity Plan and
that the consortium will use to ensure long-term compliance with
requirements of the programs involved, including civil rights related
program requirements, minority business outreach, and the comprehensive
planning requirements.
0
24. In Sec. 91.500, the introductory text in paragraph (b) is revised
to read as follows:
Sec. 91.500 HUD approval action.
* * * * *
(b) Standard of review. The standards in this section apply to the
consolidated plan. The standards for HUD's review of the Equity Plan at
Sec. 5.162 of this title are distinct from the actions described in
this section. HUD may disapprove a consolidated plan or a portion of a
consolidated plan if it is inconsistent with the purposes of the
Cranston-Gonzalez National Affordable Housing Act (42 U.S.C. 12703), if
it is substantially incomplete, or, in the case of certifications
applicable to the CDBG program under Sec. 91.225(a) and (b) or Sec.
91.325(a) and (b), if it is not satisfactory to the Secretary in
accordance with Sec. 570.304, Sec. 570.429(g), or Sec. 570.485(c) of
this title, as applicable. The following are examples of consolidated
plans that are substantially incomplete:
* * * * *
[[Page 8584]]
0
25. In Sec. 91.505:
0
a. Remove the word ``or'' at the end of paragraph (a)(2);
0
b. Remove the period at the end of paragraph (a)(3) and add ``; or'' in
its place; and
0
c. Add paragraph (a)(4).
The addition reads as follows:
Sec. 91.505 Amendments to the consolidated plan.
(a) * * *
(4) To incorporate fair housing goals when an Equity Plan is
accepted or revised after a consolidated plan is in effect.
* * * * *
PART 92--HOME INVESTMENT PARTNERSHIP PROGRAM
0
26. The authority citation for part 92 continues to read as follows:
Authority: 42 U.S.C. 3535(d), 12 U.S.C. 1701x and 4568.
0
27. In Sec. 92.2, the introductory text is revised to read as follows:
Sec. 92.2 Definitions.
The terms 1937 Act, affirmatively furthering fair housing, ALJ,
Equity Plan, Fair Housing Act, HUD, Indian Housing Authority (IHA),
public housing, public housing agency (PHA), and Secretary are defined
in 24 CFR part 5.
* * * * *
0
28. Section 92.5 is added to read as follows:
Sec. 92.5 Affirmatively furthering fair housing.
All participating jurisdictions must comply with the requirements
to affirmatively further fair housing, including those at Sec. Sec.
5.150 through 5.180 of this title.
0
29. In Sec. 92.61, paragraph (c)(5) is revised to read as follows:
Sec. 92.61 Program description.
* * * * *
(c) * * *
(5) A certification that the insular area will use HOME funds in
compliance with all requirements of this part, including the insular
area's obligation to affirmatively further fair housing and conduct its
federally funded programs and activities in a manner that is consistent
with Federal fair housing and civil rights requirements;
* * * * *
0
30. Section 92.104 is revised to read as follows:
Sec. 92.104 Submission of a consolidated plan.
A jurisdiction that has not submitted a consolidated plan to HUD
must submit to HUD, not later than 90 calendar days after providing
notification under Sec. 92.103, a consolidated plan in accordance with
24 CFR part 91 and submit an Equity Plan in accordance with Sec. Sec.
5.150 through 5.180 of this title.
0
31. In Sec. 92.207, paragraph (d) is revised to read as follows:
Sec. 92.207 Eligible administrative and planning costs.
* * * * *
(d) Fair housing, civil rights, and equal opportunity. Activities
to affirmatively further fair housing in accordance with the
participating jurisdiction's certification under Sec. 5.166 and part
91 of this title.
* * * * *
0
32. In Sec. 92.350, paragraph (a) is revised to read as follows:
Sec. 92.350 Other Federal requirements and nondiscrimination.
(a) The Federal requirements set forth in 24 CFR part 5, subpart A,
are applicable to participants in the HOME program. The requirements of
this subpart include: nondiscrimination and equal opportunity;
affirmatively furthering fair housing; disclosure requirements;
debarred, suspended or ineligible contractors; drug-free work; and
housing counseling.
* * * * *
0
33. In Sec. 92.351, paragraph (a)(1) is revised to read as follows:
Sec. 92.351 Affirmative marketing; minority outreach program.
(a) * * *
(1) Each participating jurisdiction must adopt and follow
affirmative marketing procedures and requirements for rental and
homebuyer projects containing five or more HOME-assisted housing units.
Affirmative marketing requirements and procedures also apply to all
HOME-funded programs, including, but not limited to, tenant-based
rental assistance and downpayment assistance programs. Affirmative
marketing steps consist of actions to provide effective information and
otherwise attract and provide access to the available housing
throughout the housing market area regardless of race, color, national
origin, sex (including sexual orientation, gender identity, and
nonconformance with gender stereotypes), religion, familial status, or
disability. If participating jurisdiction's written agreement with the
project owner permits the rental housing project to limit tenant
eligibility or to have a tenant preference in accordance with Sec.
92.253(d)(3), the participating jurisdiction must have affirmative
marketing procedures and requirements that apply in the context of the
limited/preferred tenant eligibility for the project.
* * * * *
0
34. In Sec. 92.508, paragraph (a)(7)(i)(B) is revised to read as
follows:
Sec. 92.508 Recordkeeping.
(a) * * *
(7) * * *
(i) * * *
(B) Documentation of the actions the participating jurisdiction has
taken to affirmatively further fair housing, including documentation
related to the participating jurisdiction's Equity Plan as described at
Sec. 5.168 of this title.
* * * * *
PART 93--HOUSING TRUST FUND
0
35. The authority citation for part 93 continues to read as follows:
Authority: 42 U.S.C. 3535(d), 12 U.S.C. 4568.
0
36. In Sec. 93.2, introductory text is added to read as follows:
Sec. 93.2 Definitions.
The terms affirmatively furthering fair housing and Equity Plan are
defined in 24 CFR part 5.
* * * * *
0
37. Section 93.4 is added to read as follows:
Sec. 93.4 Affirmatively furthering fair housing.
All recipients of HTF funds must comply with the requirements to
affirmatively further fair housing, including those at Sec. Sec. 5.150
through 5.180 of this title.
0
38. In Sec. 93.100, paragraph (b) is revised to read as follows:
Sec. 93.100 Participation and submission requirements.
* * * * *
(b) Submission requirement. To receive its HTF grant, the grantee
must submit a consolidated plan in accordance with 24 CFR part 91 and
an Equity Plan pursuant to Sec. Sec. 5.150 through 5.180 of this
title.
0
39. In Sec. 93.200, paragraph (a)(1) is revised to read as follows:
Sec. 93.200 Eligible activities: General.
(a)(1) HTF funds may be used for the production, preservation, and
rehabilitation of affordable rental housing and affordable housing for
first-time homebuyers through the acquisition (including assistance to
homebuyers), new construction, reconstruction, or rehabilitation of
nonluxury housing with suitable amenities, including real property
[[Page 8585]]
acquisition, site improvements, conversion, demolition, and other
expenses, including financing costs, relocation expenses of any
displaced persons, families, businesses, or organizations; for
operating costs of HTF-assisted rental housing; and for reasonable
administrative and planning costs. Not more than one third of each
annual grant may be used for operating cost assistance and operating
cost assistance reserves. Operating cost assistance and operating cost
assistance reserves may be provided only to rental housing acquired,
rehabilitated, reconstructed, or newly constructed with HTF funds. Not
more than 10 percent of the annual grant shall be used for housing for
homeownership. HTF-assisted housing must be permanent housing. The
specific eligible costs for these activities are found in Sec. Sec.
93.201 and 93.202. The activities and costs are eligible only if the
housing meets the property standards in Sec. 93.301, as applicable,
upon project completion. HTF Funds may be used for any activity
otherwise eligible under this part that implements goals from an Equity
Plan pursuant to Sec. Sec. 5.150 through 5.180 of this part.
* * * * *
0
40. In Sec. 93.202, paragraph (e) is revised to read as follows:
Sec. 93.202 Eligible administrative and planning costs.
* * * * *
(e) Fair housing, civil rights, and equal opportunity. Activities
to affirmatively further fair housing in accordance with the grantee's
certification under Sec. 5.166 and part 91 of this title.
* * * * *
0
41. In Sec. 93.350, the section heading and paragraphs (a) and (b)(1)
are revised to read as follows:
Sec. 93.350 Other Federal requirements and nondiscrimination;
affirmative marketing.
(a) General. The Federal requirements set forth in 24 CFR part 5,
subpart A, are applicable to participants in the HTF program. The
requirements of this subpart include: nondiscrimination and equal
opportunity, affirmatively furthering fair housing; disclosure
requirements; debarred, suspended, or ineligible contractors; drug-free
work; and housing counseling.
(b) * * *
(1) Each grantee must adopt and follow affirmative marketing
procedures and requirements for rental projects containing five or more
HTF-assisted housing units and for homeownership assistance programs.
Affirmative marketing steps consist of actions to provide effective
information and otherwise attract and provide access to the available
housing throughout the housing market area regardless of race, color,
national origin, sex (including sexual orientation, gender identity,
and nonconformance with gender stereotypes), religion, familial status,
or disability. If a grantee's written agreement with the project owner
permits the rental housing project to limit tenant eligibility or to
have a tenant preference in accordance with Sec. 93.303(d)(3), the
grantee must have affirmative marketing procedures and requirements
that apply in the context of the limited/preferred tenant eligibility
for the project.
* * * * *
0
42. In Sec. 93.407, paragraph (a)(1)(vii) is added to read as follows:
Sec. 93.407 Recordkeeping.
(a) * * *
(1) * * *
(vii) Records documenting the actions the grantee has taken to
affirmatively further fair housing, including documentation relating to
the grantee's Equity plan described at Sec. 5.168 of this title.
* * * * *
PART 570--COMMUNITY DEVELOPMENT BLOCK GRANTS
0
43. The authority citation for part 570 continues to read as follows:
Authority: 12 U.S.C. 1701x, 1701x-1; 42 U.S.C. 3535(d) and
5301-5320.
0
44. In Sec. 570.3, the introductory text is revised to read as
follows:
Sec. 570.3 Definitions.
The terms affirmatively furthering fair housing, Equity Plan, HUD,
and Secretary are defined in 24 CFR part 5. All of the following
definitions in this section that rely on data from the United States
Bureau of the Census shall rely upon the data available from the latest
decennial census or the American Community Survey.
* * * * *
0
45. Section 570.6 is added to read as follows:
Sec. 570.6 Affirmatively furthering fair housing.
All programs covered by this part must comply with the requirements
to affirmatively further fair housing, including those at Sec. Sec.
5.150 through 5.180 of this title.
0
46. In Sec. 570.205:
0
a. Remove the word ``and'' at the end of paragraph (a)(4)(vi);
0
b. Remove the period at the end of paragraph (a)(4)(vii) and add ``;
and'' in its place;
0
c. Add paragraph (a)(4)(viii);
0
d. Revise paragraph (a)(6); and
0
e. Add reserved paragraph (b).
The additions and revision read as follows:
Sec. 570.205 Eligible planning, urban environmental design and
policy-planning-management-capacity building activities.
(a) * * *
(4) * * *
(viii) The Equity Plan.
* * * * *
(6) Policy--planning--management--capacity building activities
which will enable the recipient to:
(i) Determine its needs;
(ii) Set long-term goals and short-term objectives, including those
related to urban environmental design and implementation of fair
housing goals from the Equity Plan;
(iii) Devise programs and activities to meet these goals and
objectives, including implementation of fair housing goals from the
Equity plan;
(iv) Evaluate the progress of such programs and activities in
accomplishing these goals and objectives; and
(v) Carry out management, coordination and monitoring of activities
necessary for effective planning implementation, including with respect
to any fair housing goals from the Equity Plan, but excluding the costs
necessary to implement such plans.
(b) [Reserved]
0
47. In Sec. 570.206, paragraph (c) is revised to read:
Sec. 570.206 Program administrative costs.
* * * * *
(c) Fair housing activities. Provision of fair housing services
designed to affirmatively further the purposes of the Fair Housing Act
(42 U.S.C. 3601-20) by making all persons, without regard to race,
color, religion, sex (including gender identity, sexual orientation,
and nonconformance with gender stereotypes), national origin, familial
status, or disability, aware of the range of housing opportunities
available to them; other fair housing enforcement, education, and
outreach activities; and other activities designed to further fair
housing.
* * * * *
0
48. In Sec. 570.441, paragraphs (b)(1)(ii) and (d) are revised to read
as follows:
Sec. 570.441 Citizen participation--insular areas.
* * * * *
[[Page 8586]]
(b) * * *
(1) * * *
(ii) The range of activities that may be undertaken with those
funds which may include Equity Plan fair housing goals incorporated
pursuant to Sec. 5.156 of this title;
* * * * *
(d) Preparation of the final statement. An insular area
jurisdiction must prepare a final statement. In the preparation of the
final statement, the jurisdiction shall consider comments and views
received relating to the proposed document and may, if appropriate,
modify the final document. To the extent comments or views were
received that relate to the incorporation of the Equity Plan pursuant
to Sec. 5.156 of this title, the jurisdiction shall specifically note
how the document was modified in response, and if not, the reasons why.
The final statement shall be made available to the public. The final
statement shall include the community development objectives, projected
use of funds, and the community development activities.
* * * * *
0
49. In Sec. 570.487, paragraph (b) is revised to read as follows:
Sec. 570.487 Other applicable laws and related program requirements.
* * * * *
(b) Affirmatively furthering fair housing. The requirements set
forth at 24 CFR part 5, subpart A, are applicable to CDBG grantees.
Each jurisdiction is required to submit a certification that they will
affirmatively further fair housing which means engaging in fair housing
planning and taking meaningful actions, in accordance with the
requirements of Sec. Sec. 5.150 through and 5.180 of this title, and
that it will take no action that is materially inconsistent with the
duty to affirmatively fair housing throughout the period for which
Federal financial assistance is extended. Each unit of general local
government is required to certify that it will affirmatively further
fair housing, in accordance with the requirements of Sec. Sec. 5.150
through and 5.180 of this title, and that it will take no action that
is materially inconsistent with the duty to affirmatively further fair
housing throughout the period for which Federal financial assistance is
extended.
* * * * *
0
50. In Sec. 570.490, paragraphs (a)(1) and (b) are revised to read as
follows:
Sec. 570.490 Recordkeeping requirements.
(a) * * *
(1) The State shall establish and maintain such records as may be
necessary to facilitate review and audit by HUD of the State's
administration of CDBG funds under Sec. 570.493. The content of
records maintained by the State shall be as jointly agreed upon by HUD
and the States and sufficient to enable HUD to make the determinations
described at Sec. 570.493. For fair housing and equal opportunity
purposes, whereas such data is already being collected and where
applicable, such records shall include data on the racial, ethnic, and
gender characteristics of persons who are applicants for, participants
in, or beneficiaries of the program. Such records shall include
documentation relating to the State's Equity Plan as described at Sec.
5.168 of this title. The records shall also permit audit of the States
in accordance with 2 CFR part 200.
* * * * *
(b) Unit of general local government's record. The State shall
establish recordkeeping requirements for units of general local
government receiving CDBG funds that are sufficient to facilitate
reviews and audits of such units of general local government under
Sec. Sec. 570.492 and 570.493. For fair housing and equal opportunity
purposes, whereas such data is already being collected and where
applicable, such records shall include data on the racial, ethnic, and
gender characteristics of persons who are applicants for, participants
in, or beneficiaries of the program. Such records shall include
documentation related to the State's Equity Plan as described at Sec.
5.168 of this title.
* * * * *
0
51. In Sec. 570.506, paragraph (g)(1) is revised to read as follows:
Sec. 570.506 Records to be maintained.
* * * * *
(g) * * *
(1) Documentation of the actions the recipient has taken to
affirmatively further fair housing, including documentation related to
the recipient's Equity Plan described at Sec. 5.168 of this title.
* * * * *
0
52. In Sec. 570.601, the section heading and paragraph (a)(2) is
revised to read as follows:
Sec. 570.601 Civil rights; affirmatively furthering fair housing;
equal opportunity requirements.
(a) * * *
(2) Public Law 90-284, which is the Fair Housing Act (42 U.S.C.
3601-3620). In accordance with the Fair Housing Act, the Secretary
requires that grantees administer all programs and activities related
to housing and community development in a manner to affirmatively
further the policies of the Fair Housing Act. The affirmatively
furthering fair housing requirements set forth in 24 CFR part 5,
subpart A, are applicable to CDBG grantees. Furthermore, in accordance
with section 104(b)(2) of the Act, for each community receiving a grant
under subpart D of this part, the certification, that the grantee will
affirmatively further fair housing, shall specifically require the
grantee to take meaningful actions to further the fair housing goals
established in the Equity Plan developed pursuant to Sec. Sec. 5.150
through 5.180 of this title, and that it will take no action that is
materially inconsistent with the duty to affirmatively further fair
housing.
* * * * *
0
53. In Sec. 570.904, paragraph (c)(2) is revised to read as follows:
Sec. 570.904 Equal opportunity and fair housing review criteria.
* * * * *
(c) * * *
(2) Affirmatively furthering fair housing. HUD will review a
recipient's performance to determine if it has administered all
programs and activities related to housing and urban development in
accordance with Sec. 570.601(a)(2) for purposes of administration of
CDBG funds, which sets forth the grantee's responsibility to
affirmatively further fair housing. The review undertaken pursuant to
this section is distinct from the procedures set forth at 24 CFR part
1, 3, 5, 6, 8, or 146 or 28 CFR part 35 conducted by the Responsible
Civil Rights Official (as defined in 24 CFR part 5), which are reviews
for purposes of determining a grantee's compliance with Federal fair
housing and civil rights requirements, including the grantee's
obligation to affirmatively further fair housing.
* * * * *
PART 574--HOUSING OPPORTUNITIES FOR PERSONS WITH AIDS
0
54. The authority citation for part 574 continues to read as follows:
Authority: 12 U.S.C. 1701x, 1701 x-1; 42 U.S.C. 3535(d) and
5301-5320.
0
55. In Sec. 574.3, the introductory text is revised to read as
follows:
Sec. 574.3 Definitions.
The terms affirmatively furthering fair housing, grantee, and
Secretary are defined in 24 CFR part 5.
* * * * *
0
56. Section 574.4 is added to read as follows:
[[Page 8587]]
Sec. 574.4 Affirmatively furthering fair housing.
All grantees must comply with the requirements to affirmatively
further fair housing, including those at Sec. Sec. 5.150 through 5.180
of this title.
0
57. In Sec. 574.530, paragraph (b) is revised to read as follows:
Sec. 574.530 Recordkeeping.
* * * * *
(b) Documentation of the actions the grantee has taken to
affirmatively further fair housing pursuant to Sec. Sec. 5.150 through
5.180 of this title.
* * * * *
PART 576--EMERGENCY SOLUTIONS GRANTS PROGRAM
0
58. The authority citation for part 576 continues to read as follows:
Authority: 12 U.S.C. 1701x, 1701 x-1; 42 U.S.C. 11371 et seq.,
42 U.S.C. 3535(d).
0
59. In Sec. 576.2, introductory text is added to read as follows:
Sec. 576.2 Definitions.
The term affirmatively furthering fair housing is defined in 24 CFR
part 5.
* * * * *
0
60. Section 576.4 is added to read as follows:
Sec. 576.4 Affirmatively furthering fair housing.
All recipients of ESG funds must comply with the requirements to
affirmatively further fair housing, including those at Sec. Sec. 5.150
through 5.180 of this title.
0
61. In Sec. 576.500, paragraph (s)(1)(ii) is revised to read as
follows:
Sec. 576.500 Recordkeeping and reporting requirements.
* * * * *
(s) * * *
(1) * * *
(ii) Documentation of the actions that the recipient has taken to
affirmatively further fair housing pursuant to Sec. Sec. 5.150 through
5.180 of this title.
* * * * *
PART 903--PUBLIC HOUSING AGENCY PLANS
0
62. The authority citation for part 903 continues to read as follows:
Authority: 42 U.S.C. 1437c; 42 U.S.C. 1437c-1; Pub. L. 110-289;
42 U.S.C. 3535d.
0
63. Section 903.1 is revised to read as follows:
Sec. 903.1 What is the purpose of this subpart?
The purpose of this subpart is to specify the process which a
public housing agency (PHA), as part of its annual planning process and
development of an admissions policy, must follow in order to develop
and apply a policy that provides for deconcentration of poverty and
income mixing in certain public housing developments. This subpart also
includes requirements for the PHA's obligation to affirmatively further
fair housing and comply with the requirements set forth at Sec. Sec.
5.150 through 5.180 of this title.
0
64. In Sec. 903.4, paragraph (a)(3) is added to read as follows:
Sec. 903.4 What are the public housing agency plans?
(a) * * *
(3) The plans described in this section include the incorporation,
pursuant to Sec. 5.156 of this title, of the fair housing goals
established in the PHA's Equity Plan.
* * * * *
0
65. In Sec. 903.6, paragraph (a)(4) is added and paragraph (b)(2) is
revised to read as follows:
Sec. 903.6 What information must a PHA provide in the 5-Year Plan?
(a) * * *
(4) The PHA's fair housing strategies and meaningful actions it
intends to undertake in order to implement the fair housing goals
incorporated from the PHA's Equity Plan pursuant to Sec. 5.156 of this
title.
(b) * * *
(2) The progress the PHA has made in meeting the goals and
objectives described in the PHA's previous 5-Year Plan. For purposes of
the requirement in this paragraph (b)(2) as it relates to the PHA's
fair housing goals, the PHA may rely on the progress evaluations
required for purposes of the Equity Plan, conducted pursuant to
Sec. Sec. 5.152, 5.154(i) and (j), 5.156(d), and 5.160(f) and (i) of
this title.
0
66. In Sec. 903.7, the introductory text and paragraphs (a)(1)(iii),
(b) introductory text, and (o) are revised to read as follows:
Sec. 903.7 What information must a PHA provide in the Annual Plan?
With the exception of the first Annual Plan submitted by a PHA, the
Annual Plan must include the information provided in this section. HUD
will advise PHAs by separate notice, sufficiently in advance of the
first Annual Plan due date, of the information described in this
section that must be part of the first Annual Plan submission, and any
additional instructions or directions that may be necessary to prepare
and submit the first Annual Plan. The information described in this
section applies to both public housing and tenant-based assistance,
except where specifically stated otherwise. The information that the
PHA must submit for HUD approval under the Annual Plan includes the
discretionary policies of the various plan components or elements (for
example, rent policies) and not the statutory or regulatory
requirements that govern these plan components and that provide no
discretion on the part of the PHA in implementation of the
requirements. The PHA's Annual Plan must be consistent with the goals
and objectives of the PHA's 5-Year Plan and the PHA's Equity Plan once
an Equity Plan is required by Sec. Sec. 5.150 through 5.180 of this
title.
(a) * * *
(1) * * *
(iii) Households with individuals with disabilities and households
of various races and ethnic groups residing in the jurisdiction or on
the waiting list. Once the PHA has submitted its Equity Plan pursuant
to the submission schedule at Sec. 5.160 of this title, the PHA may
rely on its analysis of affordable housing opportunities and the
analysis conducted pursuant to Sec. 5.154(e) of this title in
connection with its Equity Plan, to the extent applicable and still up-
to-date and relevant, for purposes of the PHA's Annual Plan.
* * * * *
(b) A statement of the PHA's deconcentration and other policies
that govern eligibility, selection, and admissions. This statement must
describe the PHA's policies that govern resident or tenant eligibility,
selection, and admission and shall be consistent with the PHA's
obligation to affirmatively further fair housing and the PHA's Equity
Plan developed pursuant to Sec. Sec. 5.150 through 5.180 of this
title. This statement also must describe any PHA admission preferences,
and any occupancy policies that pertain to public housing units and
housing units assisted under section 8(o) of the 1937 Act, as well as
any unit assignment policies for public housing. This statement must
include the following information:
* * * * *
(o) Civil rights certification. (1) The PHA must certify that it
will carry out its plan in conformity with title VI of the Civil Rights
Act of 1964 (42 U.S.C. 20000d-2000d-4), the Fair Housing Act (42 U.S.C.
3601-19), section 504 of the Rehabilitation Act of 1973 (29 U.S.C.
794), and title II of the Americans with Disabilities Act of 1990 (42
U.S.C. 12101, et seq.), and other applicable
[[Page 8588]]
Federal civil rights laws. The PHA must also certify that it will
affirmatively further fair housing, and that it will take no action
that is materially inconsistent with the duty to affirmatively further
fair housing throughout the period for which Federal financial
assistance is extended pursuant to Sec. 5.166 of this title.
(2) The certification is applicable to the 5-Year Plan and the
Annual Plan, and any plan incorporated therein.
(3) The PHA shall demonstrate compliance with the certification
requirement to affirmatively further fair housing by fulfilling the
requirements of this paragraph (o) and Sec. 903.15 by engaging in the
following:
(i) Examines its programs and activities or proposed programs and
activities consistent with the requirements of Sec. Sec. 5.150 through
5.180 of this title;
(ii) Identifies fair housing issues in its programs and activities
or proposed programs and activities, in accordance with Sec. 5.154 of
this title;
(iii) Specifies fair housing strategies and meaningful actions to
address fair housing issues and implement fair housing goals
established in the PHA's Equity Plan, consistent with Sec. 5.154 of
this title;
(iv) Works with the jurisdiction to implement any of the
jurisdiction's initiatives to affirmatively further fair housing that
require the PHA's involvement;
(v) Operates its programs and activities in a manner consistent
with the PHA's obligation to affirmatively further fair housing and
consistent with any applicable consolidated plan under 24 CFR part 91,
and consistent with any order or agreement to comply with the
authorities specified in paragraph (o)(1) of this section;
(vi) Complies with the community engagement requirements set forth
at Sec. 5.158 of this title for purposes of developing the PHA's
Equity Plan and the incorporation of the Equity Plan's fair housing
goals pursuant to Sec. 5.156 of this title;
(vii) Maintains records, in accordance with Sec. 5.168 of this
title, reflecting the PHA's efforts to affirmatively further fair
housing; and
(viii) Takes appropriate actions, to the satisfaction of the
Responsible Civil Rights Official, to remedy known fair housing or
civil rights violations.
* * * * *
0
67. In Sec. 903.13, paragraphs (a)(1) and (2) and (c) are revised to
read as follows:
Sec. 903.13 What is a Resident Advisory Board and what is its role
in development of the Annual Plan?
(a) * * *
(1) The role of the Resident Advisory Board (or Resident Advisory
Boards) is to assist and make recommendations regarding the development
of the Equity Plan in accordance with Sec. 5.158 of this title, the
PHA plan, and any significant amendment or modification to the PHA
plan, including based on any revision to an Equity Plan pursuant to
Sec. 5.164 of this title.
(2) The PHA shall allocate reasonable resources to ensure the
effective functioning of Resident Advisory Boards. Reasonable resources
for the Resident Advisory Boards must provide reasonable means for them
to become informed on programs covered by the Equity Plan pursuant to
Sec. Sec. 5.150 through 5.180 of this title, the PHA Plan, to
communicate in writing and by telephone with assisted families and hold
meetings with those families, and to access information regarding
covered programs on the internet, taking into account the size and
resources of the PHA.
* * * * *
(c) The PHA must consider the recommendations of the Resident
Advisory Board or Boards in preparing the final Equity Plan pursuant to
Sec. Sec. 5.150 through 5.180 of this title, the final Annual Plan,
and any significant amendment or modification to the Annual Plan,
including based on any revision to an Equity Plan pursuant to Sec.
5.164 of this title, and as provided in Sec. 903.21.
(1) In submitting the final plan to HUD for approval, or any
significant amendment or modification to the plan to HUD for approval,
the PHA must include a copy of the recommendations made by the Resident
Advisory Board or Boards and a description of the manner in which the
PHA addressed these recommendations. For purposes of any fair housing
goals incorporated into the final plan submitted to HUD for approval,
the PHA shall comply with the requirements set forth at Sec. Sec.
5.154(h) and 5.158 of this title.
(2) Notwithstanding the 75-day limitation on HUD review, in
response to a written request from a Resident Advisory Board claiming
that the PHA failed to provide adequate notice and opportunity for
comment, HUD may make a finding of good cause during the required time
period and require the PHA to remedy the failure before final approval
of the plan. The Resident Advisory Board's claims pursuant to this
paragraph (c)(2) are distinct from any complaint filed with HUD
pursuant to Sec. 5.170 of this title.
0
68. In Sec. 903.15, the section heading, introductory text of
paragraph (a), and paragraphs (b) and (c) are revised to read as
follows:
Sec. 903.15 What is the relationship of the public housing agency
plans to the Consolidated Plan and a PHA's fair housing and civil
rights requirements?
(a) Consistency with consolidated plan. The PHA must ensure that
the Annual Plan is consistent with any applicable Consolidated Plan for
the jurisdiction in which the PHA is located, including any applicable
Equity Plan incorporated into the applicable Consolidated Plan pursuant
to Sec. 5.156 of this title.
* * * * *
(b) PHA fiscal year. A PHA may request to change its fiscal year to
better coordinate its planning with the planning done under the Equity
Plan pursuant to Sec. 5.160(a) of this title, the Consolidated Plan
process, or by the State or local officials, as applicable.
(c) Fair housing and civil rights requirements. A PHA is obligated
to affirmatively further fair housing in its operating policies,
procedures, and capital activities. All admission and occupancy
policies for public housing and Section 8 tenant-based housing programs
must comply with Fair Housing Act requirements and other civil rights
laws and regulations and with a PHA's plans to affirmatively further
fair housing, including the PHA's Equity Plan developed pursuant to
Sec. Sec. 5.150 through 5.180 of this title. The PHA may not impose
any specific income or racial quotas for any development or
developments.
(1) Nondiscrimination. The PHA must carry out its Equity Plan and
PHA Plan in conformity with the nondiscrimination requirements in
Federal civil rights laws, including title VI of the Civil Rights Act
of 1964, section 504 of the Rehabilitation Act of 1973, the Americans
with Disabilities Act, and the Fair Housing Act, including the PHA's
obligation to affirmatively further fair housing. A PHA may not assign
housing to persons in a particular section of a community or to a
development or building based on race, color, religion, sex,
disability, familial status, or national origin for purposes of
segregating populations.
(2) Affirmatively furthering fair housing. A PHA's policies should
be designed to reduce the concentration of tenants and other assisted
persons by race, color, national origin, religion, sex, familial
status, and disability. Any affirmative steps or incentives a PHA
[[Page 8589]]
plans to take must be stated in the admission policy.
(i) All PHAs must comply with the requirements to affirmatively
further fair housing, including those at Sec. Sec. 5.150 through 5.180
of this title, including where those regulations impose different or
greater requirements than this part.
(ii) HUD regulations provide that PHAs must take steps to
affirmatively further fair housing. PHAs shall develop an Equity Plan
pursuant to Sec. Sec. 5.150 through 5.180 of this title. PHA policies,
consistent with the analysis and fair housing goals established in the
Equity Plan, shall include affirmative steps to overcome the effects of
discrimination and the effects of conditions that resulted in limiting
participation of persons because of their race, color, national origin,
religion, sex, familial status, or disability.
(iii) Such affirmative steps may include, but are not limited to,
marketing efforts, use of nondiscriminatory tenant selection and
assignment policies that lead to desegregation, additional applicant
consultation and information, including mobility counseling, services,
and assistance in identifying affordable housing opportunities in well-
resourced areas, provision of additional supportive services and
amenities to a development (such as supportive services that enable an
individual with a disability to transfer from an institutional setting
into the community), and engagement in ongoing coordination with State
and local disability agencies to provide additional community-based
housing opportunities for individuals with disabilities and to connect
such individuals with supportive services to enable an individual with
a disability to transfer from an institutional setting into the
community.
(3) Validity of certification. (i) A PHA's certification under
Sec. 903.7(o) will be subject to challenge by HUD where it appears
that a PHA:
(A) Fails to meet the requirements set forth at Sec. Sec. 5.150
through 5.180 of this title;
(B) Takes action that is materially inconsistent with the duty to
affirmatively further fair housing; or
(C) Fails to comply with the fair housing, civil rights, and
affirmatively furthering fair housing requirements in Sec. 903.7(o).
(ii) If HUD challenges the validity of a PHA's certification, HUD
will do so in writing specifying the deficiencies, and will give the
PHA an opportunity to respond to the particular challenge in writing.
In responding to the specified deficiencies, a PHA must establish, as
applicable, that it has complied with fair housing and civil rights
laws and regulations, or has remedied violations of fair housing and
civil rights laws and regulations, and has adopted policies and
undertaken actions to affirmatively further fair housing, including,
but not limited to, providing a full range of housing opportunities to
applicants and tenants in a nondiscriminatory manner. In responding to
the PHA, HUD may accept the PHA's explanation and withdraw the
challenge, undertake further investigation, or pursue other remedies
available under law. HUD will seek to obtain voluntary corrective
action consistent with the specified deficiencies. In determining
whether a PHA has complied with its certification, HUD will review the
PHA's circumstances relevant to the specified deficiencies, including
characteristics of the population served by the PHA; characteristics of
the PHA's existing housing stock; and decisions, plans, goals,
priorities, strategies, and actions of the PHA. For purposes of the
PHA's fair housing and civil rights certification pursuant to
Sec. Sec. 903.7(o) and 5.166 of this title, the procedures set forth
at Sec. 5.166(b) shall apply.
0
69. In Sec. 903.17, paragraph (a), the introductory text of paragraph
(b), and paragraph (c) are revised to read as follows:
Sec. 903.17 What is the process for obtaining public comment on the
plans?
(a) The PHA's board of directors or similar governing body must
conduct a public hearing to discuss the PHA plan (either the 5-Year
Plan and/or Annual Plan, as applicable) and invite public comment on
the plan(s). The hearing must be conducted at a location that is
convenient to the residents served by the PHA. For purposes of the
incorporation of the Equity Plan required by Sec. 5.156 of this title,
the community engagement requirements of Sec. 5.158 of this title
shall apply.
(b) For purposes of the PHA's 5-Year Plan and Annual Plan, and
notwithstanding the requirements set forth at Sec. 5.158 of this title
for purposes of the Equity Plan's incorporation into such plans
pursuant to Sec. 5.156 of this title, not later than 45 days before
the public hearing is to take place, the PHA must:
* * * * *
(c) PHAs shall conduct reasonable outreach activities to encourage
broad public participation in the PHA plans. This outreach is for
purposes of the 5-Year Plan and Annual Plan. The requirements of Sec.
5.158 of this title shall apply for purposes of the Equity Plan.
0
70. In Sec. 903.19:
0
a. Paragraph (c) is amended by removing the period at the end of the
paragraph and adding ``; and'' in its place; and
0
b. Paragraph (d) is added.
The addition reads as follows:
Sec. 903.19 When is the 5-Year Plan or Annual Plan ready for
submission to HUD?
* * * * *
(d) The PHA has incorporated the fair housing goals from its Equity
Plan pursuant to Sec. 5.156 of this title.
0
71. In Sec. 903.23, paragraph (f) is revised to read as follows:
Sec. 903.23 What is the process by which HUD reviews, approves, or
disapproves an Annual Plan?
* * * * *
(f) Recordkeeping. PHAs must maintain records reflecting actions
the PHA has taken to affirmatively further fair housing, including
documentation related to the PHA's Equity Plan described at Sec. 5.168
of this title, and documentation relating to the PHA's certifications
made pursuant to Sec. Sec. 5.166 of this title and 903.7(o).
0
72. Section 903.25 is revised to read as follows:
Sec. 903.25 How does HUD ensure PHA compliance with its PHA plan?
A PHA must comply with the rules, standards, and policies
established in the plans. To ensure that a PHA is in compliance with
all policies, rules, and standards adopted in the plan approved by HUD,
HUD shall, as it deems appropriate, respond to any complaint concerning
PHA noncompliance with its plan. If HUD should determine that a PHA is
not in compliance with its plan, HUD will take whatever action it deems
necessary and appropriate. For purposes of the PHA's Equity Plan, the
procedures set forth at Sec. Sec. 5.162, 5.170, 5.172, and 5.174 of
this title shall apply.
PART 983--PROJECT-BASED VOUCHER (PBV) PROGRAM
0
73. The authority citation for part 983 continues to read as follows:
Authority: 42 U.S.C. 1437f and 3535(d).
0
74. In Sec. 983.57:
0
a. Revise the introductory text of paragraph (b)(1);
0
b. Remove paragraph (b)(1)(iii); and
0
c. Redesignate paragraphs (b)(1)(iv) through (vii) as paragraphs
(b)(1)(iii) through (vi), respectively.
The revision reads as follows:
Sec. 983.57 Site selection standards.
* * * * *
(b) * * *
(1) Project-based assistance for housing at the selected site is
consistent
[[Page 8590]]
with the goal of deconcentrating poverty and expanding housing and
economic opportunities. The standard for deconcentrating poverty and
expanding housing and economic opportunities must be consistent with
the PHA Plan under 24 CFR part 903, the PHA Administrative Plan, and
the PHA's Equity Plan developed pursuant to Sec. Sec. 5.150 through
5.180 of this title. In developing the standards to apply in
determining whether a proposed PBV development will be selected, a PHA
must consider the following:
* * * * *
Marcia L. Fudge,
Secretary.
[FR Doc. 2023-00625 Filed 2-8-23; 8:45 am]
BILLING CODE 4210-67-P