[Federal Register: November 28, 2003 (Volume 68, Number 229)]
[Rules and Regulations]
[Page 66979-66985]
From the Federal Register Online via GPO Access [wais.access.gpo.gov]
[DOCID:fr28no03-18]
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Part III
Department of Housing and Urban Development
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24 CFR Parts 1006 and 1007
Housing Assistance for Native Hawaiians: Native Hawaiian Housing Block
Grant Program and Loan Guarantees for Native Hawaiian Housing Program;
Direct Final Rule
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DEPARTMENT OF HOUSING AND URBAN DEVELOPMENT
24 CFR Parts 1006 and 1007
[Docket No. FR-4668-F-03]
RIN 2577-AC27
Housing Assistance for Native Hawaiians: Native Hawaiian Housing
Block Grant Program and Loan Guarantees for Native Hawaiian Housing
Program; Final Rule
AGENCY: Office of the Assistant Secretary for Public and Indian
Housing, HUD.
ACTION: Final rule.
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SUMMARY: This rule issues as final, and responds to public comments on,
an interim rule published on June 13, 2002, to implement procedures and
requirements for two new programs to address the housing needs of
Native Hawaiians. The Native Hawaiian Housing Block Grant program will
provide housing block grants to fund affordable housing activities. The
Section 184A Loan Guarantees for Native Hawaiian Housing program will
provide Native Hawaiian families with greater access to private
mortgage resources by guaranteeing loans for one-to four-family housing
located on Hawaiian Home Lands.
DATES: Effective Date: December 29, 2003.
FOR FURTHER INFORMATION CONTACT: Edward Fagan, Office of Native
American Programs, Office of Public and Indian Housing, Department of
Housing and Urban Development, 451 Seventh Street, SW., Washington, DC
20410-5000, telephone (202) 401-7914. (This is not a toll-free number.)
Individuals with speech-or hearing-impairments may access this number
through TTY by calling the toll-free Federal Information Relay Service
at 1-800-877-8339.
SUPPLEMENTARY INFORMATION:
I. Background
Section 513 of the Hawaiian Homelands Homeownership Act of 2000,
Subtitle B of Title V of the American Homeownership and Economic
Opportunity Act of 2000 (Pub. L. 106-569, approved December 27, 2000)
(HHH Act) amends the Native American Housing Assistance and Self-
Determination Act of 1996 (25 U.S.C. 4101 et seq.) (NAHASDA) by adding
a new ``Title VIII--Housing Assistance for Native Hawaiians.'' Title
VIII (the Act) establishes a program of block grant assistance to
provide affordable housing for Native Hawaiians that is closely modeled
on the Indian Housing Block Grant (IHBG) program under NAHASDA. Section
514 of the HHH Act adds a new Section 184A to the Housing and Community
Development Act of 1992 to authorize a new program of housing loan
guarantees for Native Hawaiians based upon the Section 184 Loan
Guarantee for Indian Housing program.
HUD published an interim rule on June 13, 2002 (67 FR 40774), to
implement the Act at 24 CFR part 1006 as the Native Hawaiian Housing
Block Grant (NHHBG) program, and to implement the Section 184A Native
Hawaiian Housing Loan Guarantee program (Section 184A program) at 24
CFR part 1007. Public comment was also invited on the two new programs
of housing assistance for Native Hawaiians. This rule issues as final,
and responds to public comments received on, the June 13, 2002, interim
rule.
II. Response to Public Comment on the Interim Rule
The public comment period on the June 13, 2002, interim rule closed
on August 12, 2002. HUD received four comments on the interim rule.
Comments were received from a nonprofit organization, a county agency,
and two agencies of the state of Hawaii. The comments received are
organized below in this section of the preamble to correspond to the
rule section that is addressed by the comment. The HUD response follows
each comment.
Section 1006.10 Definitions
Comment: The definition of ``housing area'' should be expanded to
include lands outside the jurisdiction of the Department of Hawaiian
Home Lands (DHHL), and lands other than the Hawaiian home lands
(Hawaiian Home Lands) because there are many native Hawaiians who
should qualify for assistance on the basis of income, but have not
received a DHHL lease.
HUD response: The language of the definition of ``housing area'' in
the rule is the same language that appears as the definition of
``housing area'' in section 801(5) of the Act, and HUD may not, by
regulation, substantively change this statutory definition.
Comment: In the definition of ``Native Hawaiian,'' DHHL's
certification that an individual is a bona fide lessee should be
included as acceptable evidence that an individual is a Native
Hawaiian, along with genealogical records, verification by elders, and
birth records.
HUD response: Section 1006.301 sets forth the statutory requirement
that eligibility is limited to Native Hawaiian families who are
eligible to reside on the Hawaiian Home Lands. HUD agrees that an
individual who is a bona fide homestead leaseholder satisfies the NHHBG
program requirement that the family is eligible to reside on the
Hawaiian Home Lands. The lease is sufficient to document the
requirement.
Section 1006.101 Housing Plan Requirements
Comment: Since no federal funds were used in constructing past
units on the Hawaiian Home Lands, DHHL should not be required to report
on the condition or disposition of those dwellings.
HUD response: The housing plan requirements of Sec. Sec.
1006.101(b)(vii) and (viii), which this comment addresses, are taken
directly from the authorizing statute (see 25 U.S.C. 4223(c)(2)(D)(vii)
and (viii)). In general, the statutory provisions for a housing plan
require a more comprehensive approach that looks at the use of NHHBG
funding not in isolation, but within the context of the overall housing
needs of Native Hawaiians and the total resources available to address
those needs. Therefore, even though no federal funds were used in the
construction of past units, it is necessary to consider these existing
resources to better utilize the new assistance. In addition, NHHBG
funding may be used for the demolition or disposition of existing
units, if the DHHL provides for this activity in its housing plan, even
though the units were not constructed with federal funds.
Section 1006.201 Eligible Affordable Housing Activities
Comment: Because there are currently no NAHASDA (more specifically,
NHHBG) assisted units on the Hawaiian Home Lands), NHHBG funds cannot
be used in existing communities. DHHL would like to enable existing
communities to use NAHASDA funds for model activities, resident
management and crime and safety activities.
HUD response: The eligible activities in section 810 of the Act are
``affordable housing'' activities. Subsection (b)(1) covers development
of affordable housing, subsection (b)(2) covers housing-related
services for affordable housing, subsection (b)(3) covers management
services for affordable housing, subsection (b)(4) covers crime
prevention and safety measures to protect residents of affordable
housing, and subsection (b)(5) covers model housing activities. Subpart
C of the regulations reflects the statutory language. ``Affordable
housing'' is housing that complies with the requirements for affordable
housing in
[[Page 66981]]
the statute and regulations. Notwithstanding the fact that the housing
in existing communities was not developed with NHHGB funds, NHHBG funds
may be used to assist existing communities if the existing housing
complies with the requirements for affordable housing. HUD notes that
under both section 813(b) of the Act (25 U.S.C. 4232(b)) and, Sec.
1006.305(d) of the regulations, housing assisted with NHHBG funds
pursuant to the exception to low-income requirement at section
809(a)(2)(B) of the Act (25 U.S.C. 4228(a)(2)(B)), and Sec.
1006.301(b) of the regulations, shall be considered affordable housing
for purposes of the Act.
Section 1006.220 Crime Prevention and Safety Activities
Comment: DHHL would like to provide services within existing
communities, even if there are no NAHASDA-assisted units within the
communities at the present time.
HUD response: HUD's response to the comment on Sec. 1006.201
addresses this issue.
Section 1006.225 Model Activities
Comment: DHHL would like to provide services within existing
communities, even if there are no NAHASDA-assisted units within the
communities at the present time.
HUD response: HUD's response to the comment on Sec. 1006.201
addresses this issue.
Eligible Activities (Subpart C Generally)
Comment: In the case of activities such as site improvements or
development of utilities that benefit the whole community, ``all units
in a project should be considered as Eligible Low-Income Families'' if
the families in the project are existing residents and any of the
following:
(a) The median income of the Hawaiian Home Lands area in which the
project is located is less than 80 percent of the median income of the
state of Hawaii (based on the most recent U.S. Census data available);
or
(b) The project has a poverty rate of at least 20 percent; or
(c) The project is located in a low-income area of the U.S.
Treasury Department's Community Development Financial Institutions
(CDFI) Fund On-line Help Desk Maps.
There should be criteria to qualify whole communities as low-income
because where there are existing residents, the effort to certify
individual families as low-income becomes an imposition on the
residents and burdensome to the DHHL. The rule should not serve as a
disincentive to provide affordable housing activities in existing
communities.
HUD response: The authorizing statute permits exceptions to the
low-income requirement and allows NHHBG funds to be used for housing
activities under model programs that are designed to carry out the
purposes of title VIII of the Act. The use of NHHBG funds under the
low-income exception and for model activities both require HUD
approval. HUD encourages the submission of specific planned model
activities and requests for exemptions for review with conformity to
the Act's requirements.
Comment: The rule restricts the use of funds to communities in
which there are existing NAHASDA-assisted units, and prevents DHHL from
strengthening or enabling existing communities with NAHASDA funds.
[Note: Although the comment spoke of ``NAHASDA-assisted units'' and
``NAHASDA funds'' it is clear that NHHBG assistance is the intended
subject.]
HUD response: HUD's response to the comment on Sec. 1006.201
addresses this issue.
Comment: There may be a need to improve off-site infrastructure to
access DHHL property through non-DHHL properties. The current rule
appears to preclude such projects. Expanding the definition of
``housing area'' would allow funding of off-site infrastructure
improvements.
HUD response: Under section 810(b)(1) of the Act, the development
of affordable housing may include both site improvements and the
development of utilities and utility services. Site improvements must
be on the site of the affordable housing. The affordable housing must
be located on a ``housing area'' which is defined by section 801(5) of
the Act to mean an area of the Hawaiian Home Lands with respect to
which the DHHL is authorized to provide assistance for affordable
housing under the Act. Although the affordable housing must be located
on the Hawaiian Home Lands, the utilities need not necessarily be
located there. However, the utilities must be for the affordable
housing.
Section 1006.310 Rent and Lease-Purchase Limitations
Comment: For rental and rent-to-own units, each entering family
must qualify as low-income. For homeownership, only the initial family
must qualify as low-income.
HUD response: The regulatory requirements reflect the statutory
requirements at section 813(a) of the Act (25 U.S.C. 4232(a)).
Comment: Because the monthly maximum rent or lease-purchase payment
may not exceed 30 percent of a low-income family's income, this cap may
preclude the establishment of flat rents or lease-purchase payments
based on operational costs or market factors.
HUD response: The 30 percent of income requirement is statutory (25
U.S.C. 4230(a)(2), section 811(a) of the Act) and applies ``in the case
of any low-income family.'' Where a family that is not low-income is
assisted, if permitted under the exception discussed earlier in this
preamble, the 30 percent of income requirement does not apply. (See
Sec. 1006.310(c).)
Section 1006.315 Lease Requirements
Comment: Currently DHHL will take action against the lessee only if
the illegal activity is conducted on the leased premises.
HUD response: The regulation allows this flexibility, and provides,
at Sec. 1006.315(f), that ``the DHHL, owner, or manager may terminate
the tenancy.'' (Emphasis added.) Termination is discretionary, not
mandatory.
Section 1006.320 Tenant or Homebuyer Selection
Comment: DHHL plans to use current state administrative rules,
which govern the awarding of leases to applicants on the waiting lists
for Hawaiian Home Lands with the addition of the NAHASDA income
requirement for this purpose.
HUD response: The policies and criteria adopted by the DHHL as
required by the Act, must be available for review by HUD, and the
housing plan submitted annually by the DHHL must contain a
certification that the DHHL has such policies in effect. HUD will bring
any concerns it may have with respect to such policies to the DHHL's
attention upon conducting such reviews.
Section 1006.330 Insurance Coverage
Comment: Would HUD be required to be named as an additional insured
on homeowner units funded by the Act or does the insurance requirement
apply only on rental units purchased or constructed by DHHL with
NAHASDA funds and owned and managed by DHHL?
HUD response: The insurance requirement is intended to preserve the
NHHBG investment in affordable housing and not to provide any
compensation to HUD. HUD is not named as an additional insured on any
units, but the DHHL must require the owner of any rental or
homeownership unit assisted with more than $5,000 of
[[Page 66982]]
NHHBG funds to obtain insurance sufficient to cover the replacement
cost of the unit.
Section 1006.335 Use of Nonprofit Organizations and Public-Private
Partnerships
Comment: Because of the limited number of experienced nonprofit
developers in Hawaii, the requirement to work with nonprofits to the
extent practicable may serve as an obstacle to the development of
affordable housing.
HUD response: The DHHL is in the best position to determine the
extent to which it is practicable to work with nonprofits. This
requirement is not intended to hinder the DHHL's affordable housing
efforts.
Section 1006.340 Treatment of Program Income
Comment: New grant funds should be accessible even if there is
available program income remaining, because it may be impracticable to
exhaust all program income first.
HUD response: The requirement to disburse program income first in
Sec. 1006.340(b)(3) merely repeats the governmentwide requirements of
Office of Management and Budget (OMB) Circular A-102, ``Administrative
Requirements for Grants and Cooperative Agreements to State, Local and
Federally Recognized Indian Tribal Governments,'' which has been
adopted by HUD at 24 CFR part 85. It is not necessary to exhaust all
program income first as the comment states. Under 24 CFR 1006.340(c),
if the total amount of program income received in a single year does
not exceed $25,000, then the amount is not considered program income
and is not subject to the requirement that it be disbursed before
disbursing additional NHHBG funds. Program income would not have to be
disbursed unless and until it is determined that the $25,000 threshold
has been crossed. The requirement is intended to avoid the stockpiling
and non-use of program income.
Section 1006.345 Labor Standards
Comment: DHHL partners with nonprofits that use self-help and
volunteer labor to bring down housing costs for low-income families.
These efforts would be hampered by a wage requirement.
HUD response: Volunteer labor is specifically exempted, under the
conditions specified in section 805(b)(2) of the Act (25 U.S.C.
4225(b)(2)), and Sec. 1006.345(d) of the regulations, from the wage
requirement.
Section 1007.1 Purpose
Comment: The purpose section of the regulations states that HUD
understands homestead leases have unique legal status; therefore, HUD
is aware that homestead leases are not alienable.
HUD response: Section 208(6) of the Hawaiian Homes Commission Act
(HHCA) provides that:
The lessee, with the consent and approval of the commission, may
mortgage or pledge the lessee's interest in the tract or
improvements thereon to a recognized lending institution authorized
to do business as a lending institution in either the state or
elsewhere in the United States; provided the loan secured by a
mortgage on the lessee's leasehold interest is insured or guaranteed
by the Federal Housing Administration, Department of Veterans
Affairs, or any other federal agency and their respective successors
and assigns, which are authorized to insure or guarantee such loans,
or any acceptable private mortgage insurance as approved by the
commission. The mortgagee's interest in any such mortgage shall be
freely assignable. Such mortgages, to be effective, must be
consented to and approved by the commission and recorded with the
department.
The HHCA specifically permits the lessee of a homestead lease to
pledge the lessee's interest in the tract or improvements, which
provides a sufficient basis for mortgage lending to proceed in the
unique circumstances of the Hawaiian Home Lands. As a practical matter,
the federal government's insurance or guarantee of the loan, rather
than the value of the property, provides the actual financial security
for a lender to an individual Native Hawaiian borrower in these
transactions. Under the HHCA, general leases are clearly alienable.
HUD notes that nearly all of the comments submitted on the Section
184A program address issues of loans to individual, Native Hawaiian
borrowers who hold homestead leases, the same group of borrowers
directly served by the existing Federal Housing Administration (FHA)
Section 247 mortgage insurance program. Because of the unique status of
Hawaiian Home Lands, the Section 247 program focuses on loans to
individual, Native Hawaiian borrowers. This focus is exemplified by one
of the principal purposes of the HHCA, ``Preventing alienation of the
fee title to the lands set aside under this Act so that these lands
will always be held in trust for continued use by native Hawaiians in
perpetuity,'' HHCA Sec. 101(b)(3)). This focus raises a number of
difficulties in implementation, among them, issues concerning the
security offered for a loan, and valuation of, foreclosure on, and sale
after foreclosure of the security. However, the use of Section 184A
loan guarantees is not limited to individual homebuyers, and HUD wishes
to emphasize the significant difference between the new Section 184A
program and the Section 247 program.
The Section 184A program does not merely duplicate the Section 247
program, which focuses exclusively on loans to individual native
Hawaiian families holding homestead leases. For reasons of efficiency
and ease of administration, and to capitalize on familiarity in order
to promote acceptance by the lending industry, HUD intends to
administer both the Section 184A and Section 247 programs in a
consistent manner with respect to individual, Native Hawaiian
borrowers, who are eligible under either program. But to fully
implement, and derive the maximum benefit from, the Section 184A
program, HUD has concluded that it will emphasize and strongly
encourage the use of the Section 184A program in ways that do not
duplicate the Section 247 program.
The conclusion for not having the Section 184A program duplicate
the Section 247 program comes from HUD's consideration of the broader
range of eligible borrowers under the Section 184A program statute, the
flexibility permitted for eligible collateral, and the larger scale of
the activities that may be undertaken with the greater amount of
guaranteed funds available to a borrower. HUD, therefore, strongly
encourages the use of Section 184A loan guarantees by the institutional
borrowers (DHHL, Office of Hawaiian Affairs, experienced nonprofits)
specifically made eligible under the statute. These institutional
borrowers may negotiate with lenders for larger loans, up to the limits
HUD is authorized to guarantee, to obtain financing for large-scale,
integrated infrastructure, homeownership development projects on the
Hawaiian Home Lands. Section 184A allows this type of community-wide,
rather than single home, development and, to the fullest extent
possible, HUD encourages the use of the program for such projects.
Under such a project, for example, the DHHL could develop and pay
for the cost of a number of homes and supporting infrastructure, using
a combination of NHHBG funds and Section 184A guaranteed loan proceeds.
The loan collateral could be any bonds or notes the DHHL is authorized
to issue. The grant funds could cover the infrastructure costs, and the
loan proceeds could cover the cost of the homes. If the DHHL chooses to
provide direct financing to a Native Hawaiian leaseholder for one of
these homes, the
[[Page 66983]]
transaction would require no additional source of funding; the DHHL
could offer a loan at the minimum rate necessary to cover its repayment
of the Section 184A loan; and any payments made by the leaseholder
would be a direct offset of the cost of developing the home. HUD would
not have to guarantee or insure these loans. Because the infrastructure
was paid for by grant funds, the leaseholder/borrower is not paying
back these costs, only the loan guarantee costs of the home. Even if
there were a number of successive defaults on a home, the home could be
offered at a discounted price or shorter term to each successive
leaseholder, since the DHHL is seeking only to recover its costs and
repay its loans, not to make a profit. Any gap in cash flow while a
defaulting leaseholder is evicted and a new leaseholder takes over
would be limited to the monthly payments as they come due and not to
the entire cost of the home.
The use of Section 184A loan guarantees as described above may
proceed under the rule at 24 CFR part 1007 as currently written. HUD is
planning in a separate rule to propose minimum financial viability and
development capacity and experience requirements to determine what
nonprofits are eligible for guarantees, but this should not prevent
planning of Section 184A development projects from proceeding. HUD
welcomes the opportunity to work with the eligible institutional
borrowers to develop viable projects on a case-by-case basis. The
result of using the Section 184A program for this larger-scale
development is anticipated to be an increase in the production of
affordable housing units on a more financially sound basis, while
avoiding many of the difficulties pointed out in the public comments,
which focus on issues related to individual borrowers. To the extent
Section 184A loan guarantees are sought for individual borrowers, the
existing FHA Section 247 program model will be followed.
Section 1007.20 Eligible Housing
Comment: The FHA Section 247 program accepts the building codes of
the various counties, and the Section 184A program should accept the
same requirements.
HUD response: A new paragraph (d) is being added to Sec. 1007.20
to provide that housing that meets the minimum property standards for
Section 247 mortgage insurance is deemed to meet the required housing
safety and quality standards.
Section 1007.30 Security for Loan
Comment: Under Sec. 1007.30(a), only the dwelling for which the
loan is used is collateral for the loan.
HUD response: Where the borrower is an individual, Native Hawaiian
holder of a homestead lease, the lessee's interest must always be
included as collateral for the loan. This is consistent with Section
208(6) of the HHCA, and with the FHA Section 247 mortgage insurance
program. Where the borrower is an entity other than an eligible Native
Hawaiian family, ``any collateral authorized under and not prohibited
by federal or state law,'' as provided by Sec. 1007.30(a), may be
used.
Comment: Under Sec. 1007.30(b), which addresses Hawaiian Home
Lands property interest as collateral, all homestead leases are
inalienable.
HUD response: As noted earlier, HUD is aware of the restrictions
preventing alienation of the fee title to the lands set aside as
Hawaiian Home Lands and recognizes the limitations on disposition of a
homestead lease that has been mortgaged pursuant to section 208(6) of
the HHCA. However, HUD also notes the specific authority to ``mortgage
or pledge the lessee's interest in the tract or improvements thereon.''
Comment: Under Sec. 1007.30(b)(1), which addresses approved
leases, leases have evolved over the years, and DHHL would not want to
be required to amend older leases.
HUD response: HUD is uncertain of the circumstances under which an
older lease would be at issue in a Section 184A loan guarantee
transaction, since refinancing is not an eligible activity. The statute
for the Section 184 loan guarantee program was amended to specifically
authorize refinancing, and such specific authorization is not present
in Section 184A. Nevertheless, should a request for a Section 184A loan
guarantee present itself in the context of an older lease, HUD must
reserve the right to approve the lease in order to protect its, and the
public's, financial interest, as it is obliged to do in all of its
programs.
Comment: Under Sec. 1007.30(b)(2), which addresses assumption or
sale of leasehold, title can only be transferred to another native
Hawaiian; neither HUD nor the mortgagee can hold title.
HUD response: HUD agrees with this comment, and plans to amend this
section in a separate proposed rule. As a practical matter, the
provisions of this paragraph with respect to obtaining title to the
leasehold interest cannot be executed, although the provisions
requiring the DHHL's consent before any assumption of a lease, and
HUD's approval before the lessor may terminate the lease while the
mortgage is guaranteed or held by HUD, remain valid.
Comment: Under Sec. 1007.30(b)(3), which addresses liquidation,
only DHHL can cancel or award a lease.
HUD response: The HUD response to the comment under Sec.
1007.30(b)(2) addresses this issue.
Comment: Under Sec. 1007.30(b)(4), which addresses eviction
procedures, the DHHL's Administrative Rules and Hawaii Revised Statutes
provide procedures for ``contested case hearings'' to allow lessees due
process before a lease can be cancelled, which lengthens the process
time. A more realistic time requirement than 60 days is 180 days to a
year.
HUD response: HUD does not intend to impose unrealistic
requirements. In response to this comment, the last sentence of Sec.
1007.30(b)(4), which contains this requirement, is removed.
Comment: Under Sec. 1007.30(b)(4)(i), which addresses enforcement,
reconsideration of lease cancellations, and court stays prolong the
process.
HUD response: The HUD response to the comment under Sec.
1007.30(b)(4) addresses this issue.
Section 1007.35 Loan Terms
Comment: Because DHHL provides land at no cost to native Hawaiians,
only the cost of the dwelling is assumed by the lessee; therefore, loan
limits should mirror the FHA Section 247 program. Setting a high loan
maximum will limit DHHL's ability to reaward existing homes, which have
high values, to waiting low-income families.
HUD response: HUD agrees with the comment. As noted earlier in this
preamble, HUD intends to administer both the Section 184A and Section
247 programs in a consistent manner, with respect to individual, Native
Hawaiian borrowers holding homestead leases.
Section 1007.40 Environmental Requirements
Comment: A Finding of No Significant Impact (FONSI) should not be
required to be published for each new construction loan made by
individual lessees to construct a house on their homestead lot. The
lessee should not be burdened with the cost to publish a FONSI.
HUD response: FONSIs result from environmental assessments under
the National Environmental Policy Act (NEPA). Under the environmental
reviews conducted by HUD under 24 CFR part 50, referenced in Sec.
1007.40, activities under the Section 184A program may or may not
require
[[Page 66984]]
preparation of environmental assessments and FONSIs under NEPA,
depending upon whether or not the activities are categorically excluded
from environmental assessment in accordance with 24 CFR 50.20.
Categorically excluded activities require only review and compliance
with the other applicable environmental laws and authorities, and do
not involve a FONSI. If a FONSI or other findings are required, HUD
will prepare them. As noted in Sec. 1007.40, HUD will also require
documents similar to the builder's certification required under 24 CFR
203.12(b)(2). The lessee is not responsible for preparing the FONSI,
the other findings, or the builder's certification.
Section 1007.50 Certificate of Guarantee
Comment: After a lender has established credibility in packaging
Section 184A loans, HUD should consider a direct guarantee process for
local lenders.
HUD response: HUD will consider such an approach, although as
discussed earlier, HUD intends to encourage the use of the Section 184A
program by institutional borrowers to conduct larger-scale development.
Section 1007.65 Transfer and Assumption
Comment: DHHL should be notified of any assignment of loan to
another servicer; assignment should be recorded in DHHL's recordation
system.
HUD response: HUD agrees with the suggested change in this comment,
which will assist DHHL in monitoring the status of outstanding loans in
the Section 184A program and taking an active approach to prevent
defaults. Because this change would affect the responsibilities of
servicers and has not been subject to notice and comment, it would be
included in a proposed rule HUD is planning to publish separately from
today's rule.
Section 1007.75 Payment under Guarantee
Comment: Under Sec. 1007.75(a)(1), which addresses notification,
the lender should also provide written notice to DHHL if the borrower
defaults.
HUD response: The HUD response to the comment under Sec. 1007.65
addresses this issue.
Comment: Under Sec. 1007.75(a)(2)(i), which addresses foreclosure,
the holder of guarantee cannot foreclose on a DHHL lease.
HUD response: Although Sec. 1007.75(a)(2)(i) basically tracks the
statutory language of Section 184A(i)(1)(A)(ii)(I) (12 U.S.C. 1715z-
13b(i)(1)(A)(ii)(I)), HUD agrees that this comment identifies the
difficulties of proceeding in accordance with the statute where the
borrower is an individual, Native Hawaiian leaseholder, and the
security for the loan is the lessee's interest in a homestead lease.
The foreclosure process in these cases would have to follow the
procedure used for defaults under the Section 247 program. HUD notes
that these difficulties would not be present in the case of any of the
eligible institutional borrowers, where the security for the loan would
not be an interest of any kind in Hawaiian Home Lands property or where
the borrower holds a general lease. This is among the reasons that HUD
is encouraging the use of the Section 184A program by the eligible
institutional borrowers.
Comment: Under Sec. 1007.75(a)(2)(ii), a loan could be assigned to
HUD, HUD pays the claim, DHHL cancels the lease, reawards the lease and
repays HUD the amount recovered through sale.
HUD response: Again, HUD notes that the situation contemplated by
the comment almost certainly involves an individual, leaseholder
borrower, with the lessee's interest as collateral, a situation that
HUD intends to address in a manner consistent with the Section 247
program, to the extent such transactions take place under Section 184A.
III. Changes to the Interim Rule in This Final Rule
The following changes to the June 13, 2002, interim rule are made
by this final rule, consistent with the discussion of public comments
in this preamble, and as further explained below:
1. A new paragraph (d) is added to Sec. 1007.20 to provide that
housing that meets the minimum property standards for Section 247
mortgage insurance is deemed to meet the required housing safety and
quality standards.
2. The last sentence of Sec. 1007.30(b)(4)(i), which uses 60 days
to completion of eviction as a requirement for adequate enforcement, is
removed.
3. HUD is removing the initial field office review in the appeal
process under Sec. 1007.30(b)(4)(ii) to streamline the procedure from
a three-step to a two-step process. The initial request for a review is
to be submitted directly to the Deputy Assistant Secretary, Office of
Native American Programs.
IV. Findings and Certifications
Paperwork Reduction Act Statement
The information collection requirements contained in this rule have
been submitted to the Office of Management and Budget (OMB) for review
under section 3507(d) of the Paperwork Reduction Act of 1995 (44 U.S.C.
Chapter 35) and have been assigned OMB control number 2577-0200. In
accordance with the Paperwork Reduction Act, HUD 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.
Environmental Impact
A Finding of No Significant Impact with respect to the environment
was made in accordance with HUD regulations at 24 CFR part 50, which
implement section 102(2)(C) of the National Environmental Policy Act of
1969 (42 U.S.C. 4332) at the interim rule stage of this rulemaking, and
continues to apply at this final rule stage. The Finding of No
Significant Impact is available for public inspection between the hours
of 7:30 a.m. and 5:30 p.m. weekdays in the Office of General Counsel,
Regulations Division, Room 10276, Department of Housing and Urban
Development, 451 Seventh Street, SW., Washington, DC 20410-0500.
Executive Order 12866, Regulatory Planning and Review
OMB reviewed this rule under Executive Order 12866 (entitled
``Regulatory Planning and Review''). OMB determined that this rule is a
``significant regulatory action'' as defined in section 3(f) of the
Order (although not economically significant, as provided in section
3(f)(1) of the Order). Any changes made to the rule as a result of that
review are identified in the docket file, which is available for public
inspection in the Regulations Division, Room 10276, Office of the
General Counsel, Department of Housing and Urban Development, 451
Seventh Street, SW., Washington, DC 20410-0500.
Regulatory Flexibility Act
The Secretary has reviewed this rule before publication and by
approving it certifies, in accordance with the Regulatory Flexibility
Act (5 U.S.C. 605(b)), that this rule would not have a significant
economic impact on a substantial number of small entities. This rule
provides requirements for administering a program of assistance to
provide affordable housing for a specific population, Native Hawaiians,
through a single state agency, the Department of Hawaiian Home Lands.
[[Page 66985]]
Unfunded Mandates Reform Act
Title II of the Unfunded Mandates Reform Act of 1995 (2 U.S.C.
1531-1538) (UMRA) requires federal agencies to assess the effects of
their regulatory actions on state, local, and tribal governments and on
the private sector. This rule does not impose, within the meaning of
the UMRA, any federal mandates on any state, local, or tribal
governments or on the private sector.
Executive Order 13132, Federalism
Executive Order 13132 (entitled ``Federalism'') prohibits an agency
from publishing any rule that has federalism implications if the rule
either (1) imposes substantial direct compliance costs on state and
local governments and is not required by statute, or (2) the rule
preempts state law, unless the agency meets the consultation and
funding requirements of section 6 of the Order. 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 Order.
List of Subjects
24 CFR Part 1006
Community development block grants, Grant programs--housing and
community development, Grant programs--Native Hawaiians, Low and
moderate income housing, Native Hawaiians, Reporting and recordkeeping
requirements.
24 CFR Part 1007
Loan programs--Native Hawaiians, Native Hawaiians, Reporting and
recordkeeping requirements.
Catalog of Federal Domestic Assistance
The Catalog of Federal Domestic Assistance number for the Native
Hawaiian Housing Block Grant program is 14.873, and for the Section
184A Loan Guarantees for Native Hawaiian Housing program is 14.874.
0
Accordingly, for the reasons stated in the preamble, the interim rule
for parts 1006 and 1007 of chapter IX of title 24 of the Code of
Federal Regulations, published on June 13, 2002, 67 FR 40774, is
promulgated as final, with the following amendments, to read as
follows:
PART 1007--SECTION 184A LOAN GUARANTEES FOR NATIVE HAWAIIAN HOUSING
0
1. The authority citation for 24 CFR part 1007 continues to read as
follows:
Authority: 12 U.S.C. 1715z-13b; 42 U.S.C. 3535(d).
0
2. In Sec. 1007.20, add a new paragraph (d) to read as follows:
Sec. 1007.20 Eligible housing.
* * * * *
(d) Housing that meets the minimum property standards for Section
247 mortgage insurance (12 U.S.C. 1715z-12) is deemed to meet the
required housing safety and quality standards.
0
3. In Sec. 1007.30, revise paragraphs (b)(4)(i) and (b)(4)(ii) and add
the undesignated paragraph at the end of the section to the end of
newly revised (b)(4)(ii) to read as follows:
Sec. 1007.30 Security for loan.
* * * * *
(b) * * *
(4) * * *
(i) Enforcement. If HUD determines that the DHHL has failed to
enforce adequately its eviction procedures, HUD will cease issuing
guarantees for loans under this part except pursuant to existing
commitments.
(ii) Review. If HUD ceases issuing guarantees for the DHHL's
failure to enforce its eviction procedures, HUD shall notify the DHHL
of such action and that the DHHL may, within 30 days after notification
of HUD's action, file a written appeal with the Deputy Assistant
Secretary, Office of Native American Programs (ONAP). Upon notification
of an adverse decision by the Deputy Assistant Secretary, the DHHL has
30 additional days to file an appeal with the Assistant Secretary for
Public and Indian Housing. The determination of the Assistant Secretary
shall be final, but the DHHL may resubmit the issue to the Assistant
Secretary for review at any subsequent time if new evidence or changed
circumstances warrant reconsideration. * * *
Dated: September 9, 2003.
Michael Liu,
Assistant Secretary for Public and Indian Housing.
[FR Doc. 03-29472 Filed 11-26-03; 8:45 am]
BILLING CODE 4668-33-P