[Analytical Perspectives]
[Special Analyses and Presentations]
[8. Underwriting Federal Credit and Insurance]
[From the U.S. Government Printing Office, www.gpo.gov]


  In a period of tight budgetary constraints, the Administration has 
been reexamining the role and design of Federal credit and insurance 
programs. In many lines of credit and insurance, the private market can 
meet societal demands and Federal intervention is unnecessary. However, 
in some situations Federal intervention can improve the market outcome. 
Last year, the ``Underwriting Federal Credit and Insurance'' chapter of 
Analytical Perspectives focused on these rationales and their 
application to particular credit and insurance programs.
  This year, the chapter focuses on the next step in the analysis. Even 
when Federal intervention can improve on market outcomes in principle, 
it is necessary to judge whether the program is achieving these goals in 
practice. Thus, the Administration is highlighting measurement of 
program performance. What do these programs produce? What outcomes and 
net impacts do they have on society?
  Cost is also a performance measure. For credit and insurance programs, 
it is a continuing challenge to understand and control the risks that 
the Government assumes and to measure the inherent cost. This is 
especially true in view of the rapid changes in financial markets and 
increasingly complex financial instruments. Ultimately, performance is 
measured by benefits (net impact) in relation to cost.
  Budgetary constraints are also impinging on administrative resources 
and program structure, pressing program managers to find more efficient 
ways to originate, service, and collect on loans and monitor the 
financial risks of guarantees and insurance. In some cases, staff is 
diminishing despite rapidly growing portfolios. To address this problem, 
improved financial systems are being implemented, and various forms of 
private involvement are being explored.
       I. Estimated Costs of Federal Credit and Insurance Programs
  The Federal Government continues to be the largest creditor 
institution in the United States, with $5.5 trillion outstanding at the 
end of 1995. Of this, $163 billion is direct loans, $727 billion is loan 
guarantees, and $4,613 billion is insurance. Including the Government-
sponsored enterprises (GSEs) pushes the total Federal and federally 
assisted credit and insurance outstanding to $7.0 trillion.
  Table 8-l presents the face value and estimated future costs of the 
largest Federal credit and insurance programs and the Government-
sponsored enterprises. The face value of these programs is the total 
amount of credit outstanding or the insurance in force. The future costs 
of these programs is the amount by which payments from the Federal 
Government to borrowers, guaranteed lenders, or insured parties exceeds 
the repayments, fees, premiums, and other cash inflows to the 
Government--whether by intent or in practice.\1\ The costs shown in this 
table assume that program activity will continue following recent 
trends.
  \1\Under the Federal Credit Reform Act of 1990, the budget records as 
an outlay the cost of a direct loan or loan guarantee when the loan is 
disbursed. The cost is defined as the net present value of the estimated 
cash outflows from the Government due to the loan or guarantee over its 
life minus the present value of estimated cash inflows. Chapter 23 of 
Analytical Perspectives, ``Budget System and Concepts and Glossary,'' 
explains concepts and terms used in credit budgeting.
---------------------------------------------------------------------------
  The amounts shown are not only costs or potential costs to taxpayers. 
They are also the means by which these programs reallocate credit in the 
economy toward purposes and entities or individuals favored under the 
laws authorizing these programs and away from alternative uses. When the 
Federal Government guarantees loans, for example to students or small 
businesses, those borrowers move ahead of other borrowers in the credit 
queue, because the Federal Government bears the risk of defaults on 
their loans.
  In volume, the fastest growth in Federal assistance is via Government-
sponsored enterprises. These privately owned, federally chartered 
financial institutions are transforming mortgage markets; tapping 
capital markets to assist agriculture, education, and housing; making 
advances to depository institutions; lending for farming and rural 
development; and insuring borrowing for educational institutions. Also 
growing are loan guarantees and direct loans for home mortgages and 
student assistance, and disaster insurance coverage.
  Federal costs for credit and insurance programs generally declined 
last year. Behind this improvement is the declining trend in long-term 
interest rates in recent years as the Federal deficit was reduced, the 
expectation that interest rates will continue to decline as the budget 
moves closer to balance, and the economic growth and prosperity 
documented in Chapter 2 of the Budget--Supplement, ``Three Years of 
Progress.'' For credit programs, there has also been a widespread effort 
to reduce subsidies, now that the Federal Credit Reform Act of 1990 has 
raised awareness of them.
[[Page 120]]
               Table 8-1.  FACE VALUE AND ESTIMATED COST OF FEDERAL CREDIT AND INSURANCE PROGRAMS               
                                            (In billions of dollars)                                            
----------------------------------------------------------------------------------------------------------------
                                                                         1995 Budget                   Current  
                                                                           Estim.                     Estimates 
                                                           Face Value      Present     Face Value      Present  
                         Program                              1994        Value of        1995        Value of  
                                                                           Future                      Future   
                                                                          Costs\1\                    Costs\1\  
----------------------------------------------------------------------------------------------------------------
Direct Loans:\2\                                                                                                
  Farm Service Agency (excluding CCC)...................         49         15-21            43         13-19   
  Rural Electrification Admin. and Rural Telephone Bank.         38           2-4            43           2-4   
  Agency for International Development..................         14           0-1            14           2-3   
  Public Law 480........................................         12           2-3            12           2-4   
  Disaster Assistance (SBA & FEMA)......................        N/A           N/A             9           3-5   
  Foreign Military Financing............................          8           0-1             8           0-1   
  Export-Import Bank....................................          8           3-5             8           1-3   
  Federal Direct Student Loan Program...................          *         11-15             3           6-9   
  Small Business Loans (SBA)............................          9           2-3             2           0-1   
  Other Direct..........................................         17           2-4            19           1-2   
                                                         -------------------------------------------------------
  Total Direct Loans....................................        155         37-57        \2\161         30-51   
                                                                                                                
Guaranteed Loans\2\:                                                                                            
  FHA Single-Family.....................................        303        (13)-0           318        (12)-0   
  VA Mortgage...........................................        155           4-6           154           3-5   
  FHA Multi-Family......................................         79           5-6            83         11-14   
  Federal Family Education Loan Program.................         75         13-23            86          5-10   
  Small Business Administration.........................         25           4-5            26           2-3   
  Export-Import Bank....................................         17           6-8            18           3-5   
  Farm Service Agency...................................          9           1-2             8           1-2   
  CCC Export Credits....................................         12           4-5             5           2-3   
  Other Guaranteed......................................         23           2-3            27           3-4   
                                                         -------------------------------------------------------
  Total Guaranteed Loans................................        699         26-58           727         18-46   
                                                                                                                
Federal Insurance:                                                                                              
  Banks.................................................      1,885        (5)-15         1,919       (6)-(4)   
  Thrifts...............................................        691         15-25           709         (2)-1   
  Credit Unions.........................................        253     ............        266     ............
                                                         -------------------------------------------------------
   Subtotal, Deposit Insurance..........................      2,829         10-40         2,894       (8)-(3)   
                                                         -------------------------------------------------------
  PBGC..................................................        950         20-40           853         30-60   
  Disaster Insurance....................................        238         14-15           354         13-14   
  Other Insurance.......................................        484         13-14           512         11-12   
                                                         -------------------------------------------------------
  Total Federal Insurance...............................      4,445        57-109         4,613         46-83   
                                                         -------------------------------------------------------
  Total Federal Credit and Insurance....................      5,299       120-224         5,501        94-180   
                                                         -------------------------------------------------------
GSEs:\3\                                                                                                        
  Fannie Mae............................................        744     ............        787     ............
  Freddie Mac...........................................        567     ............        552     ............
  Federal Home Loan Banks...............................        140     ............        122     ............
  Sallie Mae\4\.........................................  ............  ............  ............  ............
  Farm Credit System....................................         51           0-1            53           0-1   
                                                         -------------------------------------------------------
  Total GSEs............................................      1,502           0-1         1,514           0-1   
                                                                                                                
      Total Federal and Federally Assisted Credit and                                                           
       Insurance........................................      6,801       120-225         7,015        94-181   
----------------------------------------------------------------------------------------------------------------
*Less than $500,00.                                                                                             
\1\Direct loan future costs are program account outlays projected into the future plus the embedded loss from   
  outstanding loans. Loan guarantee costs are program account outlays plus liquidating account outlays (and     
  outlays from defaulted guarantees that result in loans receivable) projected into the future. Future insurance
  costs are the equivalent of program plus liquidating costs through 2001, plus the accrued liability remaining 
  at the end of 2001.                                                                                           
\2\Excludes loans and guarantees by deposit insurance agencies and programs not included under credit reform,   
  such as CCC farm supports. Defaulted guarantees which become loans receivable are accounted for in guaranteed 
  loans.                                                                                                        
\3\Net of borrowing from Federal sources, other GSEs, and federally guaranteed loans.                           
\4\The face value and Federal costs of Federal Family Education Loans in Sallie Mae's portfolio are included in 
  that account above.                                                                                           

  Deposit insurance costs declined sharply, following the closure of so 
many insolvent banks and thrifts in the 1980s. Depository institutions, 
which tend to borrow short and lend longer-term, benefited substantially 
from the decline in interest rates and the steepening yield curve of the 
early 1990s, as well as from the low unemployment, strong incomes and 
profits, and continued low interest rates of the past year. Banks 
especially had record earnings in 1993-95, built strong capital 
positions, and restored the reserves of the Bank Insurance Fund (BIF). 
The banks' strong capital cushion will help to buffer BIF against the 
effects of interest rate risk, increasingly complex financial 
instruments, and 
[[Page 121]]
more intense competition as regulatory, geographic, and 
functional barriers fall.
  Student loan costs, both direct and guaranteed, are also reduced by 
declining interest rates, in particular the expectation that rates will 
continue down as the Federal budget moves toward balance. The direct 
loan program gains from lower borrowing costs; the guaranteed loan 
program gains from lower interest supplements while students are in 
school or when interest rates are high. Default rates have also been 
reduced, primarily by excluding formerly high-default schools and 
ineligible students from the program.
  Farm Service Agency direct loans, some of which have very low interest 
rates by statute, also have lower interest costs when interest rates 
come down. These portfolios also benefited from the recovery in farm 
income and land values and in rural economies.
  The Small Business Administration, in an effort to ensure the 
continued availability of credit to small businesses, has adopted a 
policy of reducing, even eliminating, subsidies for its primary loan 
programs. Larger fee income, increased risk-sharing with guaranteed 
lenders, and a proposed shift of the Section 504 Community Development 
Company program to a direct loan program, all reduce the subsidies paid 
by SBA.
  Eximbank, too, has adopted a policy of reducing or eliminating 
subsidies. Higher fees, collateralization, escrow accounts, and asset-
based financing are some of the methods used.
  For one program, FHA multi-family loan guarantees, the current 
estimate of future costs is higher than previous estimates. Before now, 
the cost of this program did not include the effect of the Federal 
rental subsidies, which many of these properties receive, on their 
financial condition. Current law does not allow for indefinite 
continuation of these subsidies at their current levels. Reductions in 
rental subsidies would create some mortgage defaults, resulting in 
payments from the FHA insurance fund. These costs, along with proposals 
to minimize them, have been reflected for the first time in the estimate 
of future costs.
  Pension guarantee cost estimates amount to $30-60 billion this year, 
as a result of refinements in the model, and the effect of lower 
interest rates on the value of future pension benefits. However, good 
economic conditions with high profits reduced sponsor bankruptcies last 
year. Rising stock markets and increased funding under the Retirement 
Protection Act of 1994 bolstered pension plans. And the Pension Benefit 
Guaranty Corporation negotiated 30 major settlements under their Early 
Warning Program that provided $13 billion in new contributions from 
companies.
  In sum, the present value of future costs of Federal credit and 
insurance programs is now estimated to total $94 billion to $181 
billion--a substantial improvement from the $120 billion to $225 billion 
estimated last year.
           II. Developing A Performance Measurement Framework
  It is not enough to have a good rationale for a Federal program and to 
know its cost; it is also necessary to assess whether it is achieving 
its intended results. The Government Performance and Results Act (GPRA) 
is encouraging such assessments by requiring agencies to define their 
missions and long-term objectives using strategic plans, to set annual 
performance goals, and to measure actual performance against those 
goals.
  Credit program managers, who have long worked together on credit 
reform and other matters, established a Performance Measures Task Force 
under the Federal Credit Policy Working Group to develop a common 
framework of such measures. These are to be used in their agencies' 
annual performance plans under GPRA and their budget requests to explain 
what they intend to accomplish. The same measures are to be shown in 
their annual performance reports and Chief Financial Officer's 
Accountability Reports to explain actual results.
  The Task Force believes that a common core of indicators would be 
useful to program managers, the Executive Branch, the Congress, and the 
public--helping them to understand and compare credit programs. The 
group sought to identify the most appropriate measures, whether or not 
data was currently collected on them by some or all agencies. They 
expect that agencies will supplement the core measures with program-
specific measures whenever they are useful to assess their programs.
  The common framework has four main categories of indicators: inputs 
(the resources used), outputs (the goods or services produced), outcomes 
and net impacts (the gross and net effects on society). The specific 
measures below reflect discussion so far, but are still subject to 
modification.

  Inputs. The group chose three common inputs: program objectives and 
performance goals (planning inputs), subsidy costs, and administrative 
costs (both resource inputs).
  Borrowers have been making lower downpayments, which mean that the ratios between loan principal and  
 collateral value(LTV ratios) are higher, posing greater credit risk for lenders. The proportion of conventional
 mortgages with LTV ratios over 90 percent rose from 7 percent in 1989 to 27 percent in 1994. The average LTV   
 ratio of conventional mortgages rose from 75 percent in 1989 to over 80 percent in 1995. Data from Freddie Mac 
 indicate that the default rates of conventional mortgages with LTV ratios over 90 percent are six times higher 
 than the default rates on conventional loans with 80 percent LTV ratios.                                       
                                                                                                                
  Depository institutions, Fannie Mae, and Freddie Mac have increased their commitment to affordable    
 lending programs that allow borrowers to make downpayments of 5 percent or less while loosening other          
 underwriting guidelines. Compensating factors lessen, but may not wholly offset, the resulting increase in     
 risk.                                                                                                          
                                                                                                                
  When the volume of single-family originations declined by 24 percent in 1994 and further in 1995, many
 originators entered the markets for home equity loans and lines of credit and for first mortgage loans to      
 borrowers with checkered credit histories (so-called B- to D-quality loans), causing the volume of such loans  
 to increase.                                                                                                   
                                                                                                                
  The use of credit scoring in the single-family mortgage market will increase at an accelerating rate in the   
next few years. Credit scores are numerical assessments that rank borrowers by their relative default risk.     
Scores are calculated by statistical models that use information proven to be predictive of loan performance    
drawing on data from borrower credit reports to predict a borrower's future performance on consumer debt (auto, 
credit card, or installment debt) or on a mortgage loan.                                                        
                                                                                                                
  Credit scores have been used to evaluate applications for nonmortgage debt for nearly 40 years, but have been 
used in single-family mortgage lending only in the last five years. Industry research has found a strong        
relationship between low consumer credit scores at origination and the likelihood of future default on mortgage 
loans. Fannie Mae has found that, although borrowers with scores below 620 represent only a small percentage of 
all borrowers, as a group they account for about 50 percent of the defaults that eventually occur.              
                                                                                                                
  In 1995, first Freddie Mac and then Fannie Mae urged lenders to use generic credit scores in the underwriting 
process, provided guidance about how lenders should do so, and indicated that they would use consumer credit    
scores as part of the post-purchase review process. The potential benefits of scoring and the commitment of     
Fannie Mae and Freddie Mac to using credit scores are likely to accelerate the industry's development and use of
scores.                                                                                                         
                                                                                                                

------------------------------------------------------------------------
  The Federal Home Loan Bank System's financial performance and 
condition continued to be strong in 1995. Outstanding advances to 
members reached $122.1 billion at year-end 1995, up from $116.2 billion 
at the 
[[Page 134]]
end of 1994. Total System capital at the end of 1995 was $14.7 
billion, compared to $12.9 billion at the end of 1994. For calendar year 
1995, the System's reported net income rose to $1.2 billion, up from 
$0.9 billion in 1994. Return on equity in 1995, after adjustment for 
payment of interest to REFCorp and other expenses, was approximately 6.5 
percent.
  The Federal Home Loan Banks are required to pay the greater of $300 
million or 20 percent of their annual net income to help pay the cost of 
interest on bonds issued by the Resolution Funding Corporation, REFCorp. 
REFCorp was created by FIRREA to provide initial capital for the 
Resolution Trust Corporation. The need to generate income to meet this 
obligation to REFCorp and provide a return on members' investment is a 
driving force behind the large increase in the System's investment 
activity in recent years. Investments other than advances were $146.8 
billion as of December 31, 1995, an increase of 28 percent over just one 
year earlier. Thus, the need to generate the funds to pay REFCorp has 
encouraged the System to expose itself to new kinds of risk and resulted 
in a departure from the System's focus--making advances to members.
  Historically, the System's exposure to credit risk has been virtually 
nonexistent. All advances to member institutions are collateralized, and 
the FHLBanks have the ability to call for additional or substitute 
collateral during the life of an advance. In the over sixty years of the 
System's existence, no FHLBank has ever experienced a loss on an 
advance. The System's increasing investment activities, however, have 
added new sources of credit risk, for example, to the extent that there 
is a risk of default by the FHLBanks' counterparties to off-balance 
sheet interest rate exchange agreements.
[[Page 135]]
  The System is also exposed to interest rate risk. The Financial 
Management Policy issued by the FHLBanks' regulator, the Federal Housing 
Finance Board, requires the FHLBanks to take a number of specific steps 
to manage their interest rate risk. The FHLBanks manage their interest 
rate risk by analyzing the sensitivity of the market value of their 
equity to changes in interest rates, charging prepayment fees on 
advances to members, restricting the types of mortgage-backed securities 
that they can invest in, and using interest rate exchange agreements. 
The System's exposure to risk will continue to be monitored carefully to 
ensure that it remains safe and sound.
  Despite the System's current profitability and apparent strength, 
there is a need to strengthen the capital structure of the System in 
order to protect against future downturns. The Housing and Community 
Development Act of 1992 required that studies of the FHLBS be performed 
by the Congressional Budget Office, the General Accounting Office, the 
Department of Housing and Urban Development, the Federal Housing Finance 
Board, and System shareholders. All of these studies agreed that risk-
based capital standards should be adopted for the System.
  In response to these studies of the FHLBS which were completed in 1993 
and 1994, last year the Administration and Congress proposed legislation 
to reform and modernize the Federal Home Loan Bank System. Both 
legislative proposals addressed the System's mission, capital structure, 
and capacity to pay interest obligations on the REFCorp bonds. The House 
of Representatives conducted hearings on the two proposals in 1995, and 
it is anticipated that the issue will be taken up again in 1996.
  The Administration's proposal attempts to keep the System safe, sound, 
and focused on its public purpose. It would maintain the System's 
important role in housing finance, particularly its role in supporting 
portfolio lending. It would make System membership fully voluntary, with 
equal rights and responsibilities for all members. Perhaps most 
importantly, the Administration's proposal would enhance the safety and 
soundness of the System by creating minimum capital standards, including 
risk-based capital requirements, for each Federal Home Loan Bank and for 
the System as a whole, and by instituting a set of procedures for 
correcting capital deficiencies.
  The role and risks of the FHLBS must continue to be examined and 
monitored in the face of rapidly changing financial markets. The 
increased use of credit scoring systems by mortgage lenders may 
eventually lead to less of a role for portfolio lenders in housing 
finance markets. In addition, it is important to continue to evaluate 
the System's role in housing finance in light of potential changes in 
the structure of the industry it serves.
                  Federal Housing Administration (FHA)

  Trends in Program Size. As the national surge in single-family 
refinancing business ebbed in 1995, commitments in the FHA Mutual 
Mortgage Insurance (MMI) single-family program fell to $50 billion in 
1995, after a volume of $89 billion in 1994. FHA service to low-income 
and minority home buyers, however, remained strong. The proportion of 
FHA-insured home purchase loans to African-American and Hispanic home 
buyers continued at more than twice the proportion of conventional home 
purchase loans to these groups, and increased from 1994 to 1995.
  National Homeownership Strategy. In June of 1995, the President 
announced a National Homeownership Strategy to add up to 8 million new 
families to America's homeownership rolls by the end of the year 2000, 
lifting the country's homeownership rate to an all-time high. This 
Strategy will strive to eliminate barriers that prevent lower-income 
working families, minorities, and immigrants from becoming homeowners. 
For example, it will actively promote wider use of flexible underwriting 
criteria, which would allow more buyers to qualify for mortgages, and it 
will increase homeownership counseling programs, which help first-time 
buyers find homes, qualify for mortgages, and budget their incomes to 
meet their mortgage payments.
  FHA will be a full partner in this Strategy. In 1995, FHA took action 
to increase the availability of affordable homeownership, particularly 
in the central cities, by simplifying its rehabilitation mortgage 
insurance program, and establishing the Single Family Property 
Disposition program to sell FHA-foreclosed homes at a discount to 
nonprofit groups for rehabilitation and resale to lower-income buyers.

  FHA as a Performance-Based Organization. In 1997, the Administration 
will seek to transform FHA into a ``Performance-Based Organization'' 
with flexibility in human resources management, procurement, and other 
administrative functions. FHA will continue to operate within HUD; it 
will be led by executives operating under term, performance-based 
contracts negotiated by the Secretary.
  FHA Assignment Alternative. FHA is now preparing to implement 
legislation, expected to be passed soon by the Congress, establishing an 
alternative to FHA's current assignment program for delinquent 
borrowers. Currently, if an otherwise qualified FHA homeowner 
experiences temporary financial trouble and becomes 90 days delinquent, 
FHA can pay a full claim on their behalf and take over servicing of the 
mortgage. The borrower is then allowed up to 3 years to bring the loan 
to current status. The proposed alternative would provide FHA with tools 
to encourage private lenders to forebear instead of assigning the 
mortgage to HUD. This alternative would improve the targeting and 
efficiency of forbearance, while allowing FHA homeowners experiencing 
temporary economic distress to stay in their homes.
  Potential Effects of Credit Scoring. As the use of credit scoring in 
the underwriting of conventional 
[[Page 136]]
mortgages increases, some borrowers who 
have little cash but excellent credit histories and would have 
traditionally been served by FHA's single-family mortgage insurance 
program will find that they are eligible for conventional financing on 
attractive terms. More importantly, applicants who have checkered credit 
histories will face tighter conventional underwriting constraints and 
may often be unable to obtain a conventional loan unless they can make 
downpayments of 20 percent or more. Those who can not and whose 
mortgages are small enough to qualify for FHA insurance will be shifted 
to FHA. Although the magnitude of this potential shifting of credit risk 
to FHA is uncertain, research on the relationship between consumer 
credit scores and likelihood of mortgage default suggests that it could 
significantly increase FHA default rates.
  Sale of Single- and Multi-Family Assets. In March, 1994, the FHA 
launched an aggressive program to sell HUD-held mortgages. The goals of 
the program are to maximize value of HUD-held assets and assist in 
redeployment of its staff and resources to manage the insured portfolio, 
particularly in light of downsizing of the organization. The initiative 
was a key element in the Administration's larger effort to reinvent HUD. 
To date, FHA has sold 769 multi-family mortgages, 28,243 single family 
mortgages, and 2,700 Title I notes. These mortgage sales have not only 
succeeded in streamlining the agency's operation and management, they 
have generated proceeds which exceed the expected value to HUD (if the 
loans were held) of more than $500 million in 1995. In 1996 and 1997 FHA 
plans to sell an additional 600 multi-family and 65,000 single family 
mortgages with a total outstanding principal balance of approximately $6 
billion.
  Multi-family Portfolio Reengineering. Last year, the Administration 
proposed ``Mark-to-Market,'' legislation intended to address long-
standing problems in the portfolio of properties which have mortgages 
insured by FHA and also receive rental subsidies for low-income tenants. 
This Budget includes a proposal, ``Portfolio Reengineering,'' which 
retains many of the features of last year's proposal. The core 
principles of this initiative are the use of market incentives to 
improve the efficiency and quality of assisted housing and expanded 
housing choices for residents and communities. This initiative would 
recognize economic losses that have occurred in FHA's multi-family 
portfolio, eliminate over-subsidization of some properties, and provide 
an orderly way of managing its restructuring. This portfolio provides 
housing to nearly 850,000 lower-income households in 8,500 privately 
owned but HUD-subsidized projects, who would be protected if eligible by 
receiving housing subsidies.
  This initiative will generate savings in rental subsidies since many 
properties receive subsidies in excess of market rents. Allowing the 
rents of projects to adjust to market levels will in some cases reduce 
project income and necessitate writing down the mortgages of these 
properties to reflect their true economic value. This will result in 
claims being paid out of the FHA fund. HUD will use third-party partners 
to produce efficient and proactive mortgage restructuring. In 1997, HUD 
intends to focus restructuring on projects where contracts expire and 
the current rents are above market. The Administration is willing to 
discuss with Congress mechanisms to take account of consequences 
(including tax effects) for owners who enter into restructuring 
agreements with HUD. The effect of the proposal would be a savings of 
$1.4 billion in claims costs.
                     Department of Veterans Affairs

  Trends in Program Size. As interest rates declined in the 1990s, 
lending in DVA's loan guaranty program increased dramatically, from 
$15.7 billion in 1990 to $55 billion in 1994. It has since fallen, to 
$22 billion in 1995. In the long term, loan volume in this program is 
driven by the size and composition of the veterans population. As this 
population continues to diminish over the next several years, loan 
volume is expected to fall gradually, from $22 billion in 1995 to about 
$20 billion in 2001.
  Performance Measures. DVA uses a cross-section of several performance 
measures to track the status of its guaranteed loan portfolio and the 
quality of its management of this portfolio. For example, the early 
foreclosure rate, which is the percent of loans in foreclosure within 
three years of origination, measures the quality of underwriting. The 
foreclosure avoidance through servicing ratio, which is the percentage 
of seriously delinquent loans that do not go into foreclosure, measures 
the success of VA's supplemental servicing program at helping veterans 
keep their homes. The six-month pipeline of property in inventory 
measures the quality of property disposition.
                      Rural Housing Insurance Fund
  The primary Rural Housing Service (RHS) programs are the Section-502 
single-family direct and guaranteed loan programs and the Section-515 
multi-family direct loan program. The 502 direct loan program provides 
qualified borrowers with loans for the purchase, rehabilitation, or 
repair of rural single-family homes. Participants qualify if their 
income is less than 80 percent of State median income, they live in a 
legislatively defined ``rural'' area, and they are unable to obtain 
credit at affordable terms from a private institution. The 502 
guaranteed loan program guarantees up to 90 percent of a loan on an 
unsubsidized basis for the purchase of new or existing housing. The 515 
program, which generally lends to private developers, finances both the 
construction of new rural rental housing and the purchase and 
rehabilitation of existing substandard rental housing. Units are 
occupied by low- and moderate-income households, elderly households, or 
handicapped individuals. Currently, re-authorization of the 515 program 
is needed in order for any new construction to be financed from 1996 
appropriated funds.
[[Page 137]]
  Cost and Risk. The primary costs in the 502 guaranteed program come 
from loan defaults. The default rate is 7.5 percent, and an average of 
21 percent of the principal amount of the defaulted loan is not 
recovered. Both direct loan programs subsidize loans by setting interest 
rates below the Treasury rate. The primary cost in the direct programs 
is due to the interest rate subsidy. The rate charged 502 borrowers 
depends on their income; currently, the average effective interest rate 
for the outstanding subsidized portfolio is 3.4 percent. A 515 
borrower's effective interest rate is generally fixed at 1 percent.
  The riskiness in the RHS portfolio is most notable in the 502 direct 
loan program, whose risk is significantly greater than for conventional 
private sector loans for two reasons. First, RHS lends to very low- and 
moderate-income households who, as an eligibility requirement, are 
unable to obtain private credit. Second, because RHS' interest rate is 
periodically adjusted for changes in the borrower's income, the 
underlying costs of the outstanding portfolio change as borrowers' 
ability to pay changes. During economic slowdowns, incomes go down, more 
defaults and delinquencies are likely, and the effective interest rate 
paid by borrowers drops. At the same time, the 502 interest subsidy 
costs increase.

  Progress in Reducing Costs. RHS implemented a new rule in 1996 that 
would save costs in the 502 direct loan program. Two major changes 
include how RHS determines repayment ability and the amount of payment 
assistance that a borrower receives. Instead of using a family budget to 
determine repayment ability, RHS now uses two expenditure-to-income 
ratios. The loan principal, interest, taxes and insurance (PITI) cannot 
exceed 29 percent of adjusted family income for very low income 
borrowers and 33 percent for low income borrowers. The total debt ratio 
(TD) is capped at 38 percent of income for all borrowers. This reduces 
the complexity of making loans, is more objective, and imposes a smaller 
administrative burden. RHS also implemented an escalating interest rate 
structure which insures that lower payment assistance is provided as 
borrower income increases.
  RHS has also begun implementing the Dedicated Loan Origination Service 
(DLOS), consolidating the servicing of the 502 direct single family 
housing loan portfolio in one location, rather than in county offices. 
DLOS objectives include establishing an escrowing system; reducing the 
foreclosure rate; lowering delinquency rates, loan losses and operating 
costs; and bringing the accounting more in line with the commercial 
sector. The new efficiencies will improve servicing of the portfolio 
with 1,500 fewer employees. The current implementation plan would save 
approximately $250 million from 1996-2000. The 1997 subsidy rate 
reflects the .83 percentage point reduction in the subsidy rate that is 
a direct result of the DLOS-related changes.
  For 1997, RHS will propose a ``balloon payment'' for the 515 
Multifamily housing loan program. The proposal would require that all 
new 515 loans be for 30 years while amortized over 50 years. This would 
create a lump sum payment in the 30th year for the balance of the loan. 
This legislative proposal would lower the 515 loan subsidy rate by 8 
percentage points because of the accelerated repayment to the Treasury 
that occurs in the 30th year.
                     VII. Federal Insurance Programs
                            Deposit Insurance
  Federal deposit insurance was instituted in the 1930s to protect 
individual depositors from losses caused by failures of insured 
institutions. Deposit insurance also protects against widespread 
disruption in financial markets by reducing the probability that the 
failure of one financial institution will lead to a cascade of other 
failures. The Federal Deposit Insurance Corporation (FDIC) insures the 
deposits of banks and thrifts through two separate insurance funds, the 
Bank Insurance Fund (BIF) and the Savings Association Insurance Fund 
(SAIF). Deposits of credit unions are insured through the National 
Credit Union Administration (NCUA). Currently, deposits are insured up 
to a limit of $100,000 per account.
  The 1980s and early 1990s were a turbulent period for the bank and 
thrift industries, with over 1400 bank failures and 1100 thrift 
failures. The Federal Government responded with the Financial 
Institutions Reform, Recovery and Enforcement Act (FIRREA) of 1989 and 
the Federal Deposit Insurance Corporation Improvement Act (FDICIA) of 
1991. These legislative reforms, combined with more favorable economic 
conditions, helped to restore the health of depository institutions and 
to enhance public confidence in the deposit insurance system.
  Prior to the enactment of FIRREA, thrift deposits were insured by the 
Federal Savings and Loan Insurance Corporation (FSLIC). FIRREA abolished 
FSLIC and established the Resolution Trust Corporation (RTC) as a 
temporary agency to handle the unprecedented number of failures created 
by the thrift crisis. In July 1995, responsibility for handling new 
thrift failures was transferred from RTC to SAIF, and the remaining 
assets and liabilities of RTC were transferred to FDIC's FSLIC 
Resolution Fund on December 31, 1995. During its life, the RTC handled 
over 747 failed thrifts with over $400 billion in assets, at a cost to 
taxpayers of about $90 billion.

  Current Industry and Insurance Fund Conditions. The National Credit 
Union Share Insurance Fund continues to remain strong with assets of 
$3.4 billion. In fiscal year 1995, the income generated from the 1 
percent deposit eliminated the need to assess the annual premium. In 
fact, earlier this year the Fund 
[[Page 138]]
paid a $106 million dividend to 
federally insured credit unions due to an excess over the 1.30 percent 
reserve requirement. The level of reserves had reached 1.33 percent at 
the end of fiscal year 1995. In addition, the Fund did not report any 
insurance losses from failed credit unions during fiscal year 1995. For 
insurance year 1996, the required annual insurance premium of one-
twelfth of 1 percent of total member share accounts has been waived.
  The health of the banking industry has improved dramatically over the 
last few years. Banks achieved record levels of earnings in 1993 and 
1994. This strong performance enabled banks to recapitalize the BIF, 
which reached its statutorily-designated reserve ratio of 1.25 percent 
in mid-1995. As a result of BIF's recapitalization, the FDIC has lowered 
deposit insurance premiums for banks. The rate for the healthiest banks 
is currently only the statutory minimum of $2,000 per year.
  The earnings of the thrift industry also have showed strong 
improvement in the last few years. The thrift industry reported net 
income of $1.2 billion in 1991, $5.1 billion in 1992, $4.9 billion in 
1993, and $4.3 billion in 1994. For the first nine months of 1995, the 
industry reported net income of $3.2 billion. Despite the continued 
profitability of the industry, the long-term outlook for thrifts is 
uncertain. Deposit insurance premiums for thrifts remain high, at 23 
cents per $100 of deposits for the healthiest thrifts. Thus, a healthy 
thrift with $100 million in deposits would pay $230,000 for deposit 
insurance this year, while a healthy bank of the same size would pay 
only $2,000. This large disparity between the deposit insurance premiums 
paid by banks and thrifts threatens to destabilize the thrift industry 
and its deposit insurance fund, SAIF. In addition, the thrift industry 
remains vulnerable to geographic asset concentration, swings in interest 
rates, and increasing competition from banks and other financial 
institutions.
  In contrast to BIF's recapitalization, SAIF's reserve ratio stood at 
about 0.46 percent at the end of fiscal year 1995, only about one-third 
of the required 1.25 percent. One reason that SAIF's reserves have grown 
so slowly compared to BIF's is that SAIF-insured institutions are 
obligated under current law to pay the interest on Financing Corporation 
(FICO) bonds that were used to finance part of the cost of the recent 
thrift crisis. The SAIF is required by law to maintain its premium rates 
at about 23 cents per $100 of deposits until the fund is recapitalized. 
The FICO obligation currently consumes about 45 percent of premium 
income that would otherwise be available to build up the reserves of 
SAIF.

  The Administration's Proposal to Address the Problems of SAIF. The 
Administration projects that the current 23-basis point differential 
between SAIF and BIF insurance premiums will have a detrimental effect 
on SAIF's assessment base. Because of the differential, thrifts have an 
incentive to find ways of reducing their reliance on SAIF-insured 
deposits. Thrifts might do this by shifting deposits to BIF-insured 
affiliates, shrinking their balance sheets, or relying more heavily on 
non-deposit liabilities such as advances from the Federal Home Loan Bank 
System. Preliminary evidence indicates that thrifts are indeed moving to 
reduce their reliance on SAIF-insured deposits. As the available SAIF 
assessment base shrinks, the proportion of SAIF's premium income that 
must go to pay FICO obligations will increase. Within only a few years, 
the portion of SAIF premiums available to pay FICO interest could be 
insufficient to cover the $793 million annual cost.
  Without legislative action, the current BIF-SAIF premium disparity 
will persist for many years. The Administration does not currently 
project that SAIF will recapitalize on its own within the 10-year budget 
horizon. Even more optimistic forecasts do not project that SAIF will 
recapitalize within the next 5 years. Even if SAIF recapitalizes on its 
own without legislation, a significant premium disparity would continue 
to exist until 2019 because of SAIF-insured institutions' obligation to 
pay FICO bond interest.
  Last year, the Administration proposed legislation to remedy the 
problems of SAIF. The main elements of the proposal are a one-time 
special assessment on SAIF-insured deposits to immediately bring SAIF's 
reserve ratio up to the required 1.25 percent, a requirement that the 
FICO interest payments be shared across banks and thrifts on a pro rata 
basis, and a merger of BIF and SAIF. Congress adopted a very similar 
proposal in its seven-year balanced budget plan. As the prospect of a 
significant BIF-SAIF premium disparity has become reality, and 
preliminary evidence that the deposit insurance premium disparity is 
having a harmful impact on SAIF's assessment base has emerged, the 
Administration believes it is increasingly urgent that action be taken 
to address this problem through legislation like that proposed by the 
Administration last year.

  Projecting Deposit Insurance Losses in a Changing Environment. 
Predicting failures of depository institutions and the associated impact 
on the deposit insurance funds is a significant challenge. In recent 
years, rapidly changing conditions in depository institutions' operating 
environment have made predicting insured institution failures more 
difficult. First, depository institutions face increasing competition 
from non-bank financial institutions. Depository institutions are 
responding to this challenge by changing their products, investments, 
and their role in the economy. Second, it is extremely difficult to 
assess the potential impact that increasing off-balance sheet activity, 
such as investment in derivatives, has had on the risk exposure of the 
deposit insurance funds. Finally, it is too soon to tell with certainty 
how much the legislative changes of the past few years will affect 
deposit insurance losses. For example, stricter regulatory and capital 
requirements imposed by FDICIA should have the long-term effect of 
reducing losses borne by the deposit insurance funds.
[[Page 139]]
  The Administration is continuing to examine and monitor the 
effectiveness and efficiency of the current regulatory system. In 
addition, the Administration will continue to study the need for policy 
changes to protect the health of the deposit insurance funds, to improve 
the long run profitability of the bank and thrift industry, and to 
support the growth of the financial services sector.
                            Pension Insurance
  The Pension Benefit Guaranty Corporation (PBGC) insures defined 
benefit pension plans of private employers. PBGC steps in when a company 
becomes insolvent and its pension plan cannot pay the full value of 
benefits guaranteed by law. At any given time, PBGC's exposure to claims 
relates to the underfunding of pension plans, that is, to any amount by 
which expected future benefits exceed plan assets.
  The Retirement Protection Act (RPA), signed into law December 1994, 
strengthens pension safeguards and improves program operations. The RPA:




[[Page 147]]
         Table 8-3. ESTIMATED 1997 SUBSIDY RATES, BUDGET AUTHORITY, AND LOAN LEVELS FOR DIRECT LOANS\1\         
                                            (In millions of dollars)                                            
----------------------------------------------------------------------------------------------------------------
                                                                     1997 Weighted                              
                                                                        average      1997 Subsidy       1997    
                         Agency and Program                           subsidy as a      budget       Estimated  
                                                                       percent of     authority     loan levels 
                                                                     disbursements                              
----------------------------------------------------------------------------------------------------------------
Funds Appropriated to the President:                                                                            
  Micro and small enterprise development...........................       12.20          --*               1    
  Foreign Military Financing.......................................       10.81           40             370    
  Overseas Private Investment Corporation..........................        5.00            4              80    
                                                                                                                
Agriculture:                                                                                                    
  Agricultural credit insurance fund...............................       12.85           70             546    
  Rural housing insurance fund.....................................        5.81          225           1,668    
  Rural economic development loans.................................       22.11            3              14    
  Rural electrification and telephone..............................        2.52           41           1,620    
  Public Law 480 direct loans......................................       81.79          179             219    
  Distance learning and medical link loan program..................        1.62            2             125    
  Rural community facility loan program............................        7.44           15             200    
  Rural business and industry loans................................       -1.56           -1              50    
  Rural telephone bank.............................................        1.33            2             175    
  Rural development loan fund......................................       46.16           37              80    
  Rural water and waste disposal loan program......................        8.57           69             800    
                                                                                                                
Education:                                                                                                      
  Federal direct student loan program..............................        0.35           53          15,101    
                                                                                                                
                                                                                                                
Interior:                                                                                                       
  Bureau of Reclamation loans......................................       40.00           13              36    
                                                                                                                
State Department: Repatriation loans...............................       80.00            1               1    
                                                                                                                
Transportation:                                                                                                 
  Minority business resource center program........................       10.00          --*              15    
  Alameda Corridor project loan program............................       14.67           59             400    
                                                                                                                
Treasury:                                                                                                       
  Community development financial institutions fund................       35.83           20              56    
                                                                                                                
Veterans Affairs:                                                                                               
  Direct loan......................................................       46.77          --*             --*    
  Loan guarantee fund..............................................        1.56           14             894    
  Guaranty and indemnity fund......................................        0.95           13           1,417    
  Vocational rehabilitation........................................        1.75          --*               2    
  Native american veteran housing loan program.....................        7.72            1              18    
                                                                                                                
Other Independent Agencies:                                                                                     
  Export-Import Bank\2\............................................        4.00          136           3,396    
                                                                                                                
Federal Emergency Management Agency:                                                                            
    Disaster assistance............................................        5.54            2              25    
                                                                                                                
Small Business Administration:                                                                                  
    Disaster loans.................................................        7.90           66             667    
                                                                    --------------------------------------------
Total..............................................................        3.80        1,064          27,976    
----------------------------------------------------------------------------------------------------------------
*Less than $500,000.                                                                                            
\1\Additional information on credit reform subsidy rates is contained in the Federal Credit and Insurance       
  Supplement to the budget for 1996.                                                                            
\2\Includes 1996 carryover budget authority.                                                                    

[[Page 148]]
        Table 8-4. ESTIMATED 1997 SUBSIDY RATES, BUDGET AUTHORITY, AND LOAN LEVELS FOR LOAN GUARANTEES\1\       
                                            (In millions of dollars)                                            
----------------------------------------------------------------------------------------------------------------
                                                                     1997 Weighted-                             
                                                                        average      1997 Subsidy       1997    
                         Agency and Program                           subsidy as a      budget       Estimated  
                                                                       percent of     authority     loan levels 
                                                                     disbursements                              
----------------------------------------------------------------------------------------------------------------
Funds Appropriated to the President:                                                                            
    Micro and small enterprise development.........................        3.73            1              38    
    AID housing and other credit guarantees........................       11.83            5              41    
    Overseas Private Investment Corporation........................        2.50           65           2,250    
                                                                                                                
Agriculture:                                                                                                    
  Agricultural credit insurance fund...............................        2.60           69           2,650    
  Commodity Credit Corporation: Export credits.....................        8.00          390           5,500    
  Rural housing insurance fund.....................................        0.27            6           2,400    
  Rural business and industry loan program.........................        0.94            7             750    
  Rural community facility loan program............................        0.41           -*             100    
                                                                                                                
Commerce:                                                                                                       
  Fishing vessel obligations.......................................        1.00           -*              25    
                                                                                                                
Defense:                                                                                                        
  Family Housing Improvement Fund..................................    \2\10.00     .............  .............
                                                                                                                
Education:                                                                                                      
  Federal family education loan program............................       10.04        1,918          19,114    
                                                                                                                
Health and Human Services:                                                                                      
  Health professions graduate student loan program.................        0.34           -*             140    
                                                                                                                
Housing and Urban Development:                                                                                  
  Community development (Sec. 108).................................        2.30           46           2,000    
  Federal Housing Administration general and special risk..........        1.06        \3\41       \4\12,933    
  Federal Housing Administration mutual mortgage...................       -2.88       -1,255          70,721    
  GNMA secondary mortgage guarantees...............................  .............  .............    110,000    
  Indian housing guarantee.........................................        8.13            3              37    
                                                                                                                
Interior:                                                                                                       
  Indian loan guaranty and insurance fund..........................       13.00            5              35    
                                                                                                                
Transportation:                                                                                                 
  Title XI maritime guaranteed loans...............................        7              40             800    
                                                                                                                
Veterans Affairs:                                                                                               
  Guaranty and indemnity fund......................................        1.47          361          24,547    
  Loan guaranty fund...............................................       15.04           -*               1    
                                                                                                                
Other Independent Agencies:                                                                                     
  Export-Import Bank\5\............................................        4.45          636          14,294    
                                                                                                                
  Small Business Administration:                                                                                
    Business Loans.................................................        2.68          203          11,653    
                                                                    --------------------------------------------
    Total\4\.......................................................        9.50        2,660         280,030    
----------------------------------------------------------------------------------------------------------------
*Less than $500,00.                                                                                             
\1\Additional information on credit reform subsidy rates is contained in the Federal Credit and Insurance       
  Supplement to the budget for Fiscal Year 1996.                                                                
\2\The subsidy rate is an estimated weighted average subsidy rate. Actual rates will be calculated on a         
  transaction by transaction basis at the time of loan obligation.                                              
\3\Subsidy BA represents the net amount resulting from new loans in both positive and negative subsidy programs.
  Since appropriations requested are for the gross amount of subsidy BA for positive subsidy programs (to be    
  offset by the negative subsidy), the BA amount in this table does not represent the total gross appropriations
  request.                                                                                                      
\4\Loan levels do not include standby commitment authority and therefore do not match levels requested in       
  appropriations.                                                                                               
\5\Includes 1996 carryover budget authority.                                                                    

[[Page 149]]
                         Table 8-5. SUMMARY OF FEDERAL DIRECT LOANS AND LOAN GUARANTEES                         
                                            (In billions of dollars)                                            
----------------------------------------------------------------------------------------------------------------
                                                                                  Actual             Estimate   
                                                                         ---------------------------------------
                                                                           1993    1994    1995    1996    1997 
----------------------------------------------------------------------------------------------------------------
Direct Loans:                                                                                                   
    Obligations.........................................................    22.1    22.7    30.9    34.4    45.4
    Disbursements.......................................................    27.1    19.3      22    27.7    34.7
    Subsidy budget authority............................................     2.1     2.8     2.6     1.6     1.0
                                                                                                                
Loan Guarantees:                                                                                                
    Commitments.........................................................   169.9   204.1   138.5   179.0   172.0
    Lender Disbursements................................................   144.3   194.2   117.9   139.2     152
    Subsidy budget authority............................................     4.1     2.6     5.1     4.4     3.7
----------------------------------------------------------------------------------------------------------------


                                     

               Table 8-6. NEW DIRECT LOAN OBLIGATIONS AND GUARANTEED LOAN COMMITMENTS BY FUNCTION               
                                            (In millions of dollars)                                            
----------------------------------------------------------------------------------------------------------------
                                                         Direct loan obligations     Guaranteed loan commitments
                                                     -----------------------------------------------------------
                      Function                          1995      1996      1997      1995      1996      1997  
                                                       actual   estimate  estimate   actual   estimate  estimate
----------------------------------------------------------------------------------------------------------------
050  National Defense...............................  ........  ........  ........       300       342       229
150  International affairs..........................     2,476     3,992     4,067    14,354    17,906    18,624
270  Energy.........................................     1,320     1,426     1,620  ........  ........  ........
300  Natural resources and environment..............        16        33        36  ........  ........  ........
350  Agriculture....................................     9,794     6,463     7,605     7,638     8,150     8,150
370  Commerce and housing credit\1\.................     2,496     2,537     5,536    71,057   105,263    97,707
400  Transportation.................................        98        15       415       118       229       571
450  Community and regional development.............     1,427     1,052     1,952     2,366     2,360     2,885
500  Education, training, employment, and social                                                                
 services...........................................    11,547    16,317    21,770    19,960    20,433    19,114
550  Health.........................................  ........  ........  ........       275       210       140
600  Income security................................  ........  ........  ........        22        37        37
700  Veterans benefits and services.................     1,535     2,104     2,344    22,162    24,033    24,548
800  General government.............................       147       379  ........  ........  ........  ........
990  Multiple functions.............................        45        55       106  ........  ........          
                                                     -----------------------------------------------------------
    Total...........................................    30,901    34,373    45,451   138,272   178,963   172,005
                                                     -----------------------------------------------------------
                      ADDENDUM                                                                                  
Secondary guaranteed loans..........................  ........  ........  ........   142,000   110,000   110,000
----------------------------------------------------------------------------------------------------------------
\1\Commitments by GNMA to guarantee securities that are backed by loans previously insured or guaranteed by the 
  Federal Housing Administration, Department of Veterans Affairs, or Farmers Home Administration (secondary     
  guarantees) are excluded from the totals and shown in the addendum.                                           

[[Page 150]]
                 Table 8-7. DIRECT LOAN WRITE-OFFS AND GUARANTEED LOAN TERMINATIONS FOR DEFAULTS                
----------------------------------------------------------------------------------------------------------------
                                                         In millions of dollars     As percentage of outstanding
                                                     ------------------------------           loans\1\          
                  Agency or Program                                                -----------------------------
                                                        1995      1996      1997      1995      1996      1997  
                                                       actual   estimate  estimate   actual   estimate  estimate
----------------------------------------------------------------------------------------------------------------
                    DIRECT LOANS                                                                                
                                                                                                                
Funds Appropriated to the President:                                                                            
  Economic assistance loans.........................        32  ........  ........      0.24  ........  ........
  International debt reduction......................  ........         3         4  ........      0.67      0.92
  Foreign military loans............................        94        39        39      1.11      0.47      0.48
                                                                                                                
Department of Agriculture:                                                                                      
  Rural electrification and telephone revolving fund        50  ........  ........      0.15  ........  ........
  Agricultural credit insurance fund................       579       515       520      4.79      4.58      5.04
  Rural housing insurance fund......................        99       101       100      0.32      0.33      0.33
  Public Law 480 Food Aid...........................       168  ........        63      1.43  ........      0.54
                                                                                                                
Department of Education:                                                                                        
  Federal direct student loan program...............        14        12        52      0.49      0.15      0.27
                                                                                                                
Department of Commerce:                                                                                         
  Economic development revolving fund (EDA).........         2  ........  ........      2.94  ........  ........
                                                                                                                
Department of Interior:                                                                                         
  Bureau of Indian Affairs direct loans.............        11         4         4     17.74     14.81      7.41
                                                                                                                
Department of Veterans Affairs:                                                                                 
  Veterans housing programs.........................        23        12        19      1.81      0.79      0.96
                                                                                                                
Independent Agencies:                                                                                           
  Small Business Administration.....................       346       296       260      3.07       2.6      2.11
  Export-Import Bank................................        45  ........  ........       .60  ........  ........
                                                                                                                
                                                     -----------------------------------------------------------
    Total, direct loan writeoffs....................     1,463       982     1,061  ........  ........  ........
                                                     -----------------------------------------------------------
                  GUARANTEED LOANS                                                                              
                                                                                                                
Funds Appropriated to the President                                                                             
  Housing and other credit guaranty programs........        10        25        25      0.49      1.25      1.28
  Overseas Private Investment Corporation...........        19        14        15      1.54      0.51      0.36
  Microenterprise and other development guaranteed..  ........         1         1  ........      2.22      1.25
  Assistance for the New Independent States of the                                                              
   Soviet Union.....................................  ........  ........         8  ........  ........     14.55
  CCC export credit guarantees......................     1,167       579       693     22.96      7.19      6.91
  Foreign military loans............................         9         7         2      0.14      0.11      0.03
                                                                                                                
Department of Agriculture:                                                                                      
  Agricultural credit insurance fund................        18        17        12      0.29      0.25      0.15
  Rural development insurance fund..................        21        27        23      3.48      4.86      4.98
  Rural housing insurance fund......................         1        11        14     22.00     46.00     54.00
  Rural water and waste water disposal fund.........         1  ........  ........      0.20    100.00  ........
  Rural community facility loans fund...............  ........        54  ........  ........     59.34  ........
  Rural business and industry loans.................  ........         1         1  ........      0.05      0.06
                                                                                                                
Department of Education:                                                                                        
  Federal family education loans....................     1,286     1,767     2,384      3.10      2.62      2.78
                                                                                                                
Department of Interior:                                                                                         
  Indian loan guaranty and insurance fund...........         4         7         9      1.89      3.20      3.85
                                                                                                                
Department of Housing and Urban Development:                                                                    
  FHA-General and special risk guaranteed loans.....     1,033     1,956     1,875      1.24      2.34      2.16
  FHA-mutual mortgage and cooperative housing loans.     3,969     3,658     4,124      1.25      1.10      1.17
                                                                                                                
Department of Transportation:                                                                                   
  MARAD ship financing fund.........................         8        49        49      0.46      2.40      1.92
                                                                                                                
Department of Veterans Affairs:                                                                                 
  Veterans housing programs.........................     1,664     2,500     2,360      1.07      1.55      1.34
                                                                                                                
Independent Agencies:                                                                                           
  Small business administration.....................       635       629       816      2.40      2.16      2.36
  Export-Import Bank................................       353        16        78      2.56      0.11      0.54
                                                                                                                
                                                     -----------------------------------------------------------
    Total, guaranteed loan terminations for default.    10,198    11,318    12,489  ........  ........  ........
                                                     -----------------------------------------------------------
   DEFAULTED GUARANTEED LOANS THAT RESULT IN LOANS                                                              
                     RECEIVABLE                                                                                 
                                                                                                                
Funds Appropriated to the President:                                                                            
  Housing and other credit guaranty programs........         1        35        39      0.23      8.20      8.86
  Foreign military loans............................        31        10        23      4.61      1.49      3.42
                                                                                                                
Department of Education:                                                                                        
  Federal family education loans....................        30         5        10      2.38      4.21      4.60
                                                                                                                
[[Page 151]]
Department of Housing and Urban Development:                                                                    
  FHA-mutual mortgage and cooperative housing loans.       139       851       510      3.23     32.21     53.80
  FHA-general and special risk guaranteed loans.....       321     2,376     1,752      6.07     66.31     92.50
                                                                                                                
Department of Health and Human Services:                                                                        
  Health professions guaranteed student loans.......         8        13        13      2.06      3.20      2.95
                                                                                                                
  Department of Veterans Affairs:                                                                               
    Veterans housing programs.......................       584       693       711     37.58     45.56      49.4
                                                                                                                
Independent Agencies:                                                                                           
  Small Business Administration.....................        40        84       184      2.45      4.50      7.76
                                                                                                                
                                                     -----------------------------------------------------------
    Total, writeoffs of loans receivable............     1,447     4,067     3,903  ........  ........  ........
                                                     ===========================================================
                                                                                                                
                                                     -----------------------------------------------------------
    Grand Total.....................................    13,108    16,637    17,453  ........  ........  ........
----------------------------------------------------------------------------------------------------------------
\1\Average of loans outstanding over year.                                                                      

[[Page 152]]

                        Table 8-8. APPROPRIATIONS ACTS LIMITATIONS ON CREDIT LOAN LEVELS                        
                                            (In millions of dollars)                                            
----------------------------------------------------------------------------------------------------------------
                                                                                                 Estimate       
                              Agency or Program                                  1995    -----------------------
                                                                                Actual       1996        1997   
----------------------------------------------------------------------------------------------------------------
                   LIMITATIONS ON DIRECT LOAN OBLIGATIONS                                                       
                                                                                                                
Funds Appropriated to the President:                                                                            
  Foreign military financing................................................         558         544         370
                                                                                                                
Agriculture:\1\                                                                                                 
  Farm Service Agency:                                                                                          
    Agricultural credit insurance fund......................................         564         763         546
                                                                                                                
  Rural Utilities Service:                                                                                      
    Rural electric and telephone............................................       1,320       1,426       1,620
    Rural telephone bank....................................................         175         175         175
    Distance learning and medical link loans................................  ..........  ..........         125
    Rural development insurance fund\1\.....................................       1,131  ..........  ..........
    Rural water and waste disposal loans....................................  ..........         547         800
                                                                                                                
  Rural Housing Service:                                                                                        
    Rural housing insurance fund............................................       1,472       1,223       1,668
    Rural community facility loans..........................................  ..........         208         200
                                                                                                                
  Rural Business--Cooperative Service:                                                                          
    Rural development loan fund.............................................          85          38          80
    Rural economic development loans........................................          13          14          14
    Rural business and industry loans.......................................  ..........  ..........          50
                                                                                                                
  Foreign Assistance Programs:                                                                                  
    Public Law 480 direct credit............................................         303         291         219
                                                                                                                
Housing and Urban Development:                                                                                  
  FHA-General and special risk..............................................         220         120         120
  FHA-Mutual mortgage insurance.............................................         180         200         200
                                                                                                                
Interior:                                                                                                       
  Bureau of Reclamation direct loans........................................          23          37          36
  Indian direct loan........................................................          11  ..........  ..........
                                                                                                                
State Department:                                                                                               
  Repatriation Loans........................................................           1           1           1
                                                                                                                
Transportation:                                                                                                 
  Alameda Corridor project improvement......................................  ..........  ..........         400
  High priority corridors...................................................          40  ..........  ..........
  Orange County (CA) toll road..............................................         100          20  ..........
  Minority business resource center.........................................          15          15          15
                                                                                                                
Veterans Affairs:                                                                                               
  Direct loans..............................................................           1  ..........  ..........
  Vocational rehabilitation.................................................           2           2           2
FEMA--Disaster assistance...................................................         175          36          25
                                                                             -----------------------------------
      Total, limitations on direct loan obligations.........................       6,389       5,660       6,666
                                                                             -----------------------------------
                 LIMITATIONS ON GUARANTEED LOAN COMMITMENTS                                                     
                                                                                                                
Funds Appropriated to the President:                                                                            
  Loan guarantees to Israel.................................................       2,000       2,000       2,000
  Assistance for the New Independent States of the Former Soviet Union......  ..........         106  ..........
                                                                                                                
Agriculture:                                                                                                    
  Agricultural credit insurance fund........................................       1,938       2,450       2,650
  Rural development insurance fund..........................................         575          50  ..........
  Rural business and industry loan fund.....................................  ..........         700         750
  Rural housing insurance fund..............................................       1,049       1,700       2,400
  Rural community facility loan fund........................................  ..........          75         100
                                                                                                                
Education:                                                                                                      
  Historically black colleges/universities..................................         357  ..........  ..........
                                                                                                                
Health and Human Services:                                                                                      
  Health professions graduate student loan insurance........................         275         210         140
                                                                                                                
Housing and Urban Development:                                                                                  
  FHA--General and special risk.............................................      20,885      17,400      17,400
  FHA--Mutual mortgage insurance............................................     100,000     110,000     110,000
  Community development loan guarantees.....................................       2,054       1,500       2,000
  Indian housing loan guarantee.............................................          22          37          37
[[Page 153]]
                                                                                                                
Interior:                                                                                                       
  Indian loan guaranty and insurance........................................          47          35          35
                                                                             -----------------------------------
    Total, limitations on guaranteed loan commitments.......................     129,202     136,263     137,512
                                                                             ===================================
                                  ADDENDUM                                                                      
                                                                                                                
Secondary guaranteed loan commitment limitations:                                                               
  GNMA, mortgage-backed securities..........................................     142,000     110,000    110,000 
----------------------------------------------------------------------------------------------------------------
\1\In 1995, this included water and waste, community facility, and business and industry funds.                 
[[Page 154]]
Table 8-9.  DIRECT LOAN TRANSACTIONS OF THE FEDERAL GOVERNMENT----------

(in millions of dollars)

------------------------------------------------------------------------
                                                           Estimate     
            Agency or Program                1995    -------------------
                                           actual       1996      1997  
------------------------------------------------------------------------
   Funds Appropriated to the President                                  
                                                                        
    International Security Assistance                                   
                                                                        
Foreign military loan liquidating                                       
 account:                                                               
   Obligations..........................  ..........  ........  ........
   Loan disbursements...................        461         30         9
   Change in outstandings...............       -716       -943      -886
   Outstandings.........................      7,911      6,968     6,082
                                                                        
Foreign military financing direct loan                                  
 financing account:                                                     
   Obligations..........................        558        544       370
   Loan disbursements...................        266        743       829
   Change in outstandings...............        266        733       807
   Outstandings.........................        539      1,272     2,079
                                                                        
Military debt reduction financing                                       
 account:                                                               
   Obligations..........................  ..........  ........  ........
   Loan disbursements...................  ..........        15         4
   Change in outstandings...............  ..........        15         4
   Outstandings.........................  ..........        15        19
                                                                        
         Multilateral Assistance                                        
                                                                        
International organizations and                                         
 programs:                                                              
   Obligations..........................  ..........  ........  ........
   Loan disbursements...................  ..........  ........  ........
   Change in outstandings...............         -2         -2        -2
   Outstandings.........................         36         34        32
                                                                        
  Agency for International Development                                  
                                                                        
Economic assistance loans--liquidating                                  
 account:                                                               
   Obligations..........................  ..........  ........  ........
   Loan disbursements...................         11         13  ........
   Change in outstandings...............       -486       -599      -616
   Outstandings.........................     13,279     12,680    12,064
                                                                        
Debt reduction, financing account:                                      
   Obligations..........................  ..........  ........  ........
   Loan disbursements...................  ..........        51        47
   Change in outstandings...............        -47         -6       -10
   Outstandings.........................        453        447       437
                                                                        
Private sector revolving fund                                           
 liquidating account:                                                   
   Obligations..........................  ..........  ........  ........
   Loan disbursements...................  ..........  ........  ........
   Change in outstandings...............         -1         -4  ........
   Outstandings.........................          7          3         3
                                                                        
Microenterprise and other development                                   
 credit direct loan financing account:                                  
   Obligations..........................          1          1         1
   Loan disbursements...................  ..........         3         1
   Change in outstandings...............  ..........         3  ........
   Outstandings.........................          1          4         4
                                                                        
 Overseas Private Investment Corporation                                
                                                                        
Overseas Private Investment Corporation                                 
 liquidating account:                                                   
   Obligations..........................  ..........  ........  ........
   Loan disbursements...................  ..........  ........  ........
   Change in outstandings...............        -11         -5        -6
   Outstandings.........................         28         23        17
                                                                        
Overseas private investment corporation                                 
 direct loan financing account:                                         
   Obligations..........................         15        200        85
   Loan disbursements...................         46         62        75
   Change in outstandings...............         45         61        74
   Outstandings.........................         53        114       188
                                                                        
        Department of Agriculture                                       
                                                                        
           Farm Service Agency                                          
                                                                        
Agricultural credit insurance fund                                      
 liquidating account:                                                   
   Obligations..........................  ..........  ........  ........
   Loan disbursements...................          4          3         3
   Change in outstandings...............     -1,082     -1,174    -1,174
   Outstandings.........................     10,426      9,252     8,078
                                                                        
Agricultural credit insurance fund                                      
 direct loan financing account:                                         
   Obligations..........................        564        763       546
   Loan disbursements...................        583        813       777
   Change in outstandings...............        143        328       247
   Outstandings.........................      1,655      1,983     2,230
                                                                        
Commodity credit corporation fund:\1\                                   
   Obligations..........................      9,230      5,700     7,059
   Loan disbursements...................      9,230      5,700     7,059
   Change in outstandings...............       -343       -665       186
   Outstandings.........................      2,786      2,121     2,307
                                                                        
         Rural Utilities Service                                        
                                                                        
Rural communication development fund                                    
 liquidating account:                                                   
   Obligations..........................  ..........  ........  ........
   Loan disbursements...................  ..........  ........  ........
   Change in outstandings...............         -1         -1        -1
   Outstandings.........................         10          9         8
                                                                        
Distance learning and medical link                                      
 direct loan financing account:                                         
   Obligations..........................  ..........  ........       125
   Loan disbursements...................  ..........  ........        38
   Change in outstandings...............  ..........  ........        38
   Outstandings.........................  ..........  ........        38
                                                                        
Rural development insurance fund                                        
 liquidating account:                                                   
   Obligations..........................  ..........  ........  ........
   Loan disbursements...................         65         29        24
   Change in outstandings...............       -127       -159      -158
   Outstandings.........................      4,471      4,312     4,154
                                                                        
Rural electrification and telephone                                     
 direct loan financing account:                                         
   Obligations..........................      1,320      1,426     1,620
   Loan disbursements...................        830      1,192     1,275
   Change in outstandings...............        787      1,155     1,208
   Outstandings.........................      2,740      3,895     5,103
                                                                        
Rural telephone bank direct loan                                        
 financing account:                                                     
   Obligations..........................        175        175       175
   Loan disbursements...................         37        223       179
   Change in outstandings...............         33        220       176
   Outstandings.........................        118        338       514
                                                                        
Rural development insurance fund direct                                 
 loan financing account:                                                
   Obligations..........................      1,004   ........  ........
   Loan disbursements...................        608   ........  ........
   Change in outstandings...............        593     -1,218  ........
   Outstandings.........................      1,218   ........  ........
                                                                        
Rural water and waste disposal loans                                    
 direct financing account:                                              
   Obligations..........................  ..........       547       800
   Loan disbursements...................  ..........       600       677
   Change in outstandings...............  ..........     1,567       655
   Outstandings.........................  ..........     1,567     2,222
[[Page 155]]
                                                                        
Rural electrification and telephone                                     
 revolving fund liquidating account:                                    
   Obligations..........................  ..........  ........  ........
   Loan disbursements...................        432        227       178
   Change in outstandings...............       -998     -1,326    -1,153
   Outstandings.........................     33,101     31,775    30,622
                                                                        
Rural telephone bank liquidating                                        
 account:                                                               
   Obligations..........................  ..........  ........  ........
   Loan disbursements...................         36         33        33
   Change in outstandings...............        -45        -60       -61
   Outstandings.........................      1,414      1,354     1,293
                                                                        
              Rural Housing                                             
                                                                        
Rural housing insurance fund liquidating                                
 account:                                                               
   Obligations..........................  ..........  ........  ........
   Loan disbursements...................          9          5         1
   Change in outstandings...............     -1,163     -1,233    -1,214
   Outstandings.........................     23,675     22,442    21,228
                                                                        
Rural housing insurance fund direct loan                                
 financing account:                                                     
   Obligations..........................      1,162      1,223     1,668
   Loan disbursements...................      1,584      1,252     1,567
   Change in outstandings...............      1,491      1,145     1,404
   Outstandings.........................      6,797      7,942     9,346
                                                                        
Rural community facility loans direct                                   
 financing account:                                                     
   Obligations..........................  ..........       208       200
   Loan disbursements...................  ..........       134       161
   Change in outstandings...............  ..........       366       149
   Outstandings.........................  ..........       366       515
                                                                        
   Rural Business-Cooperative Service                                   
                                                                        
Rural economic development liquidating                                  
 account:                                                               
   Obligations..........................  ..........  ........  ........
   Loan disbursements...................  ..........         1  ........
   Change in outstandings...............         -1   ........        -2
   Outstandings.........................          8          8         6
                                                                        
Rural economic development loan direct                                  
 financing account:                                                     
   Obligations..........................         12         14        14
   Loan disbursements...................         12         11        12
   Change in outstandings...............         10          7         7
   Outstandings.........................         30         37        44
                                                                        
Rural development loan fund direct loan                                 
 financing account:                                                     
   Obligations..........................         85         38        80
   Loan disbursements...................         47         63        57
   Change in outstandings...............         47         63        56
   Outstandings.........................         74        137       193
                                                                        
Rural business and industry direct loans                                
 financing account:                                                     
   Obligations..........................  ..........  ........        50
   Loan disbursements...................  ..........  ........        12
   Change in outstandings...............  ..........  ........        12
   Outstandings.........................  ..........  ........        12
                                                                        
Rural development loan fund liquidating                                 
 account:                                                               
   Obligations..........................  ..........  ........  ........
   Loan disbursements...................          5          3         2
   Change in outstandings...............  ..........        -1        -2
   Outstandings.........................         85         84        82
                                                                        
      Foreign Agricultural Service                                      
                                                                        
Expenses, Public Law 480, foreign                                       
 assistance programs, Agriculture                                       
 liquidating account:                                                   
   Obligations..........................  ..........  ........  ........
   Loan disbursements...................  ..........  ........  ........
   Change in outstandings...............       -118       -272      -255
   Outstandings.........................     10,697     10,425    10,170
                                                                        
P.L. 480 Direct credit financing                                        
 account:                                                               
   Obligations..........................        303        291       219
   Loan disbursements...................        186        270       191
   Change in outstandings...............        175        270       145
   Outstandings.........................      1,024      1,294     1,439
                                                                        
P.L. 480 Title I Food for Progress                                      
 Credits, financing account:                                            
   Obligations..........................  ..........  ........  ........
   Loan disbursements...................         52   ........  ........
   Change in outstandings...............         52   ........  ........
   Outstandings.........................        508        508       508
                                                                        
Debt reduction--financing account:                                      
   Obligations..........................  ..........  ........  ........
   Loan disbursements...................  ..........  ........  ........
   Change in outstandings...............         -1         -1        -2
   Outstandings.........................         66         65        63
                                                                        
         Department of Commerce                                         
                                                                        
   Economic Development Administration                                  
                                                                        
Economic development revolving fund                                     
 liquidating account :                                                  
   Obligations..........................  ..........  ........  ........
   Loan disbursements...................  ..........  ........  ........
   Change in outstandings...............         -7         -7        -6
   Outstandings.........................         68         61        55
                                                                        
     Department of Defense--Military                                    
                                                                        
     Revolving and Management Funds                                     
                                                                        
Defense business operations fund:                                       
   Obligations..........................  ..........  ........  ........
   Loan disbursements...................  ..........  ........  ........
   Change in outstandings...............        -47        -49       -75
   Outstandings.........................      1,433      1,384     1,309
                                                                        
         Department of Education                                        
                                                                        
    Office of Postsecondary Education                                   
                                                                        
Student financial assistance:                                           
   Obligations..........................  ..........  ........  ........
   Loan disbursements...................  ..........  ........  ........
   Change in outstandings...............       -136          2         3
   Outstandings.........................        187        189       192
                                                                        
Higher education facilities loans:                                      
   Obligations..........................  ..........  ........  ........
   Loan disbursements...................  ..........  ........  ........
   Change in outstandings...............         -7         -6        -6
   Outstandings.........................         55         49        43
                                                                        
College housing and academic facilities                                 
 loans liquidating account:                                             
   Obligations..........................  ..........  ........  ........
   Loan disbursements...................          4          4         4
   Change in outstandings...............          2          2         1
   Outstandings.........................        138        140       141
                                                                        
College housing loans:                                                  
   Obligations..........................  ..........  ........  ........
   Loan disbursements...................  ..........  ........  ........
   Change in outstandings...............        -35        -35       -32
   Outstandings.........................        484        449       417
[[Page 156]]
                                                                        
College housing and academic facilities                                 
 direct loan financing account:                                         
   Obligations..........................  ..........  ........  ........
   Loan disbursements...................          6         13         9
   Change in outstandings...............          6         13         9
   Outstandings.........................          7         20        29
                                                                        
Federal direct student loan program,                                    
 financing account:                                                     
   Obligations..........................     11,547     16,317    21,770
   Loan disbursements...................      2,332      9,600    13,763
   Change in outstandings...............      2,324      9,417    13,213
   Outstandings.........................      2,801     12,218    25,431
                                                                        
          Department of Energy                                          
                                                                        
     Power Marketing Administration                                     
                                                                        
Bonneville Power Administration fund:                                   
   Obligations..........................  ..........  ........  ........
   Loan disbursements...................  ..........  ........  ........
   Change in outstandings...............  ..........  ........  ........
   Outstandings.........................          3          3         3
                                                                        
 Department of Health and Human Services                                
                                                                        
      Health Resources and Services                                     
             Administration                                             
                                                                        
Health Resources and Services:                                          
   Obligations..........................  ..........  ........  ........
   Loan disbursements...................         17         17        18
   Change in outstandings...............        266          3         4
   Outstandings.........................        797        800       804
                                                                        
Health loan funds:                                                      
   Obligations..........................  ..........  ........  ........
   Loan disbursements...................          2          1         1
   Change in outstandings...............        -19        -11       -10
   Outstandings.........................         45         34        24
                                                                        
     Department of Housing and Urban                                    
               Development                                              
                                                                        
   Public and Indian Housing Programs                                   
                                                                        
Low-rent public housing--loans and other                                
 expenses :                                                             
   Obligations..........................  ..........  ........  ........
   Loan disbursements...................  ..........  ........  ........
   Change in outstandings...............        -58        -62       -65
   Outstandings.........................      1,689      1,627     1,562
                                                                        
   Community Planning and Development                                   
                                                                        
Revolving fund (liquidating programs):                                  
   Obligations..........................  ..........  ........  ........
   Loan disbursements...................  ..........  ........  ........
   Change in outstandings...............        -58        -52       -46
   Outstandings.........................        388        336       290
                                                                        
Community development loan guarantees                                   
 liquidating account:                                                   
   Obligations..........................  ..........  ........  ........
   Loan disbursements...................  ..........  ........  ........
   Change in outstandings...............        -21        -20       -15
   Outstandings.........................         89         69        54
                                                                        
            Housing Programs                                            
                                                                        
Nonprofit sponsor assistance liquidating                                
 account:                                                               
   Obligations..........................  ..........  ........  ........
   Loan disbursements...................  ..........  ........  ........
   Change in outstandings...............  ..........  ........  ........
   Outstandings.........................          1          1         1
                                                                        
Flexible Subsidy Fund:                                                  
   Obligations..........................  ..........  ........  ........
   Loan disbursements...................        126        159        56
   Change in outstandings...............        125        157        54
   Outstandings.........................        584        741       795
                                                                        
FHA mutual mortgage and cooperative                                     
 housing insurance funds liquidating                                    
 account:                                                               
   Obligations..........................  ..........  ........  ........
   Loan disbursements...................  ..........  ........  ........
   Change in outstandings...............         -2         -2        -2
   Outstandings.........................         15         13        11
                                                                        
FHA general and special risk insurance                                  
 funds liquidating account:                                             
   Obligations..........................  ..........  ........  ........
   Loan disbursements...................  ..........  ........  ........
   Change in outstandings...............         -5         -6        -6
   Outstandings.........................        107        101        95
                                                                        
FHA-General and special risk direct loan                                
 financing account:                                                     
   Obligations..........................  ..........       120       120
   Loan disbursements...................  ..........       120       120
   Change in outstandings...............  ..........       120       120
   Outstandings.........................  ..........       120       240
                                                                        
Housing for the elderly or handicapped                                  
 fund liquidating account:                                              
   Obligations..........................  ..........  ........  ........
   Loan disbursements...................          7        192  ........
   Change in outstandings...............       -131        131       -63
   Outstandings.........................      8,331      8,462     8,399
                                                                        
FHA-Mutual mortgage insurance direct                                    
 loan financing account:                                                
   Obligations..........................  ..........       200       200
   Loan disbursements...................  ..........       200       200
   Change in outstandings...............  ..........       200       199
   Outstandings.........................  ..........       200       399
                                                                        
Government National Mortgage Association                                
                                                                        
Guarantees of mortgage-backed securities                                
 liquidating account:                                                   
   Obligations..........................  ..........  ........  ........
   Loan disbursements...................        149        314       378
   Change in outstandings...............        -16         27        49
   Outstandings.........................        333        360       409
                                                                        
       Department of the Interior                                       
                                                                        
          Bureau of Reclamation                                         
                                                                        
Bureau of reclamation loan liquidating                                  
 account:                                                               
   Obligations..........................  ..........  ........  ........
   Loan disbursements...................  ..........  ........  ........
   Change in outstandings...............  ..........        -3        -3
   Outstandings.........................         83         80        77
                                                                        
Bureau of Reclamation direct loan                                       
 financing account:                                                     
   Obligations..........................         16         33        36
   Loan disbursements...................         12         28        34
   Change in outstandings...............         12         28        34
   Outstandings.........................         31         59        93
                                                                        
Emergency fund:                                                         
   Obligations..........................  ..........  ........  ........
   Loan disbursements...................  ..........  ........  ........
   Change in outstandings...............         -1         -1        -1
   Outstandings.........................          6          5         4
[[Page 157]]
                                                                        
          National Park Service                                         
                                                                        
Construction:                                                           
   Obligations..........................  ..........  ........  ........
   Loan disbursements...................  ..........  ........  ........
   Change in outstandings...............         -1   ........        -1
   Outstandings.........................          7          7         6
                                                                        
        Bureau of Indian Affairs                                        
                                                                        
Revolving fund for loans liquidating                                    
 account:                                                               
   Obligations..........................  ..........  ........  ........
   Loan disbursements...................  ..........  ........  ........
   Change in outstandings...............         -9         -7        -8
   Outstandings.........................         67         60        52
                                                                        
Indian loan guaranty and insurance fund                                 
 liquidating account:                                                   
   Obligations..........................  ..........  ........  ........
   Loan disbursements...................          3          4         4
   Change in outstandings...............          3   ........  ........
   Outstandings.........................         40         40        40
                                                                        
Indian direct loan financing account:                                   
   Obligations..........................         11   ........  ........
   Loan disbursements...................        -14   ........  ........
   Change in outstandings...............         -5         -5        -3
   Outstandings.........................         22         17        14
                                                                        
             Insular Affairs                                            
                                                                        
Assistance to territories:                                              
   Obligations..........................  ..........  ........  ........
   Loan disbursements...................  ..........  ........  ........
   Change in outstandings...............         -1         -1        -1
   Outstandings.........................         21         20        19
                                                                        
           Department of State                                          
                                                                        
    Administration of Foreign Affairs                                   
                                                                        
Repatriation loans financing account:                                   
   Obligations..........................          1          1         1
   Loan disbursements...................  ..........         1         1
   Change in outstandings...............  ..........         1         1
   Outstandings.........................          1          2         3
                                                                        
      Department of Transportation                                      
                                                                        
     Federal Highway Administration                                     
                                                                        
Alameda corridor project direct loan                                    
 financing account:                                                     
   Obligations..........................  ..........  ........       400
   Loan disbursements...................  ..........  ........  ........
   Change in outstandings...............  ..........  ........  ........
   Outstandings.........................  ..........  ........  ........
                                                                        
Orange County (CA) toll road                                            
 demonstration project direct loan                                      
 financing account:                                                     
   Obligations..........................  ..........  ........        24
   Loan disbursements...................  ..........  ........        24
   Change in outstandings...............  ..........  ........        25
   Outstandings.........................  ..........  ........        25
                                                                        
High priority corridors loan financing                                  
 account:                                                               
   Obligations..........................         40   ........  ........
   Loan disbursements...................         37   ........  ........
   Change in outstandings...............         37   ........       -37
   Outstandings.........................         37         37  ........
                                                                        
Right-of-way revolving fund liquidating                                 
 account:                                                               
   Obligations..........................         43   ........  ........
   Loan disbursements...................         26         24        25
   Change in outstandings...............          2         -6        -5
   Outstandings.........................        153        147       142
                                                                        
     Federal Railroad Administration                                    
                                                                        
Amtrak corridor improvement loans                                       
 liquidating account:                                                   
   Obligations..........................  ..........  ........  ........
   Loan disbursements...................  ..........  ........  ........
   Change in outstandings...............  ..........        -1        -1
   Outstandings.........................          7          6         5
                                                                        
Amtrak corridor improvement direct loan                                 
 financing account:                                                     
   Obligations..........................  ..........  ........  ........
   Loan disbursements...................  ..........         2  ........
   Change in outstandings...............  ..........         2  ........
   Outstandings.........................          3          5         5
                                                                        
Railroad rehabilitation and improvement                                 
 liquidating account:                                                   
   Obligations..........................  ..........  ........  ........
   Loan disbursements...................  ..........  ........  ........
   Change in outstandings...............         -3         -3        -3
   Outstandings.........................         67         64        61
                                                                        
Railroad rehabilitation and improvement                                 
 direct loan financing account:                                         
   Obligations..........................  ..........  ........  ........
   Loan disbursements...................          6   ........  ........
   Change in outstandings...............          4   ........  ........
   Outstandings.........................          4          4         4
                                                                        
         Maritime Administration                                        
                                                                        
Federal ship financing fund liquidating                                 
 account:                                                               
   Obligations..........................  ..........  ........  ........
   Loan disbursements...................          8         50        50
   Change in outstandings...............       -185         42        43
   Outstandings.........................         33         75       118
                                                                        
         Office of the Secretary                                        
                                                                        
Minority business resource center direct                                
 loan financing account:                                                
   Obligations..........................         15         15        15
   Loan disbursements...................          9         21        15
   Change in outstandings...............          2   ........  ........
   Outstandings.........................          9          9         9
                                                                        
       Department of the Treasury                                       
                                                                        
          Departmental Offices                                          
                                                                        
Community development financial                                         
 institutions fund direct loan financing                                
 account:                                                               
   Obligations..........................  ..........        34        56
   Loan disbursements...................  ..........         7        25
   Change in outstandings...............  ..........         7        25
   Outstandings.........................  ..........         7        32
                                                                        
     Department of Veterans Affairs                                     
                                                                        
    Veterans Benefits Administration                                    
                                                                        
Guaranty and indemnity fund liquidating                                 
 account:                                                               
   Obligations..........................  ..........  ........  ........
   Loan disbursements...................          4   ........  ........
   Change in outstandings...............         -9         -1  ........
   Outstandings.........................         13         12        12
                                                                        
Direct loan revolving fund liquidating                                  
 account:                                                               
   Obligations..........................  ..........  ........  ........
   Loan disbursements...................  ..........  ........  ........
   Change in outstandings...............         -3         -3        -3
   Outstandings.........................         14         11         8
[[Page 158]]
Loan guaranty revolving fund liquidating                                
 account:                                                               
   Obligations..........................  ..........  ........  ........
   Loan disbursements...................         24   ........  ........
   Change in outstandings...............       -100        -44       -44
   Outstandings.........................        528        484       440
                                                                        
Vocational rehabilitation direct loan                                   
 financing account:                                                     
   Obligations..........................          2          2         2
   Loan disbursements...................          2          2         2
   Change in outstandings...............  ..........  ........  ........
   Outstandings.........................          1          1         1
                                                                        
Education loan fund liquidating account:                                
   Obligations..........................  ..........  ........  ........
   Loan disbursements...................  ..........  ........  ........
   Change in outstandings...............  ..........  ........        -1
   Outstandings.........................          3          3         2
                                                                        
Loan guaranty direct loan financing                                     
 account:                                                               
   Obligations..........................        923        885       894
   Loan disbursements...................        933        885       894
   Change in outstandings...............         45        196       191
   Outstandings.........................        473        669       860
                                                                        
Guaranty and indemnity direct loan                                      
 financing account:                                                     
   Obligations..........................        604      1,197     1,417
   Loan disbursements...................        604      1,197     1,417
   Change in outstandings...............         77        319       256
   Outstandings.........................        227        546       802
                                                                        
Direct loan financing account:                                          
   Obligations..........................          6         20        31
   Loan disbursements...................          6         20        31
   Change in outstandings...............          5         21        31
   Outstandings.........................          6         27        58
                                                                        
     Environmental Protection Agency                                    
                                                                        
     Environmental Protection Agency                                    
                                                                        
Abatement, control, and compliance                                      
 direct loan liquidating account:                                       
   Obligations..........................  ..........  ........  ........
   Loan disbursements...................          2          1  ........
   Change in outstandings...............         -7         -8        -9
   Outstandings.........................         96         88        79
                                                                        
Abatement, control, and compliance                                      
 direct loan financing account:                                         
   Obligations..........................  ..........  ........  ........
   Loan disbursements...................         21         10         6
   Change in outstandings...............         17          5         1
   Outstandings.........................         60         65        66
                                                                        
      Small Business Administration                                     
                                                                        
      Small Business Administration                                     
                                                                        
Business direct loan financing account:                                 
   Obligations..........................         23         60     2,684
   Loan disbursements...................         33         41     1,367
   Change in outstandings...............         10         11     1,267
   Outstandings.........................        126        137     1,404
                                                                        
Disaster direct loan financing account:                                 
   Obligations..........................      1,311        932     1,260
   Loan disbursements...................      1,811        923     1,057
   Change in outstandings...............      1,748        734       797
   Outstandings.........................      7,157      7,891     8,688
                                                                        
Disaster loan fund liquidating account:                                 
   Obligations..........................  ..........  ........  ........
   Loan disbursements...................          5   ........  ........
   Change in outstandings...............       -277       -298      -252
   Outstandings.........................      1,918      1,620     1,368
                                                                        
Business loan fund liquidating account:                                 
   Obligations..........................  ..........  ........  ........
   Loan disbursements...................        199        226       159
   Change in outstandings...............       -530       -208      -229
   Outstandings.........................      2,037      1,829     1,600
                                                                        
       Other Independent Agencies                                       
                                                                        
          District of Columbia                                          
                                                                        
Loans to the District of Columbia for                                   
 capital projects:                                                      
   Obligations..........................  ..........  ........  ........
   Loan disbursements...................  ..........  ........  ........
   Change in outstandings...............        -12        -13       -12
   Outstandings.........................         75         62        50
                                                                        
Repayable advances to the District of                                   
 Columbia direct loan financing account:                                
   Obligations..........................        147        379  ........
   Loan disbursements...................        147        379  ........
   Change in outstandings...............        147        232      -379
   Outstandings.........................        147        379  ........
                                                                        
 Export-Import Bank of the United States                                
                                                                        
Export-Import Bank of the United States                                 
 liquidating account:                                                   
   Obligations..........................  ..........  ........  ........
   Loan disbursements...................        193        140       102
   Change in outstandings...............       -520     -1,538      -829
   Outstandings.........................      6,138      4,600     3,771
                                                                        
Debt reduction financing account:                                       
   Obligations..........................  ..........  ........  ........
   Loan disbursements...................  ..........        64        30
   Change in outstandings...............  ..........        64        30
   Outstandings.........................  ..........        64        94
                                                                        
Export-Import Bank direct loan financing                                
 account:                                                               
   Obligations..........................      1,598      2,955     3,396
   Loan disbursements...................        673      1,388     1,573
   Change in outstandings...............        580      1,056     1,222
   Outstandings.........................      1,407      2,463     3,685
                                                                        
 Farm Credit System Financial Assistance                                
               Corporation                                              
                                                                        
Financial assistance corporation                                        
 assistance fund, liquidating account:                                  
   Obligations..........................  ..........  ........  ........
   Loan disbursements...................  ..........  ........  ........
   Change in outstandings...............        -48        -41       -42
   Outstandings.........................      1,010        969       927
                                                                        
             Bank Insurance                                             
                                                                        
Bank insurance fund:                                                    
   Obligations..........................  ..........  ........  ........
   Loan disbursements...................  ..........  ........  ........
   Change in outstandings...............         -5        -19  ........
   Outstandings.........................        132        113       113
                                                                        
            FSLIC Resolution                                            
                                                                        
FSLIC resolution fund:                                                  
   Obligations..........................  ..........  ........  ........
   Loan disbursements...................  ..........  ........  ........
   Change in outstandings...............        -31        -32       -31
   Outstandings.........................         95         63        32
                                                                        
   Federal Emergency Management Agency                                  
                                                                        
Disaster assistance direct loan                                         
 liquidating account:                                                   
   Obligations..........................  ..........  ........  ........
   Loan disbursements...................  ..........  ........  ........
   Change in outstandings...............  ..........       -44  ........
   Outstandings.........................         59         15        15
[[Page 159]]
Disaster assistance direct loan                                         
 financing account:                                                     
   Obligations..........................        140         36        25
   Loan disbursements...................         44        112        25
   Change in outstandings...............         14         89       -48
   Outstandings.........................         90        179       131
                                                                        
  National Credit Union Administration                                  
                                                                        
Credit union share insurance fund:                                      
   Obligations..........................  ..........         2         2
   Loan disbursements...................  ..........         5         1
   Change in outstandings...............         -3          2  ........
   Outstandings.........................  ..........         2         2
                                                                        
Central liquidity facility:                                             
   Obligations..........................  ..........  ........  ........
   Loan disbursements...................  ..........  ........  ........
   Change in outstandings...............  ..........  ........  ........
   Outstandings.........................  ..........  ........  ........
                                                                        
Community development credit union                                      
 revolving loan fund:                                                   
   Obligations..........................  ..........  ........  ........
   Loan disbursements...................          2          2         2
   Change in outstandings...............  ..........  ........  ........
   Outstandings.........................          5          5         5
                                                                        
       Tennessee Valley Authority                                       
                                                                        
Tennessee Valley Authority fund:                                        
   Obligations..........................         45         55       106
   Loan disbursements...................         45         55       106
   Change in outstandings...............         -6          2        31
   Outstandings.........................        150        152       183
                                                                        
Total, Direct loan transactions:                                        
   Obligations..........................     30,901     34,373    45,451
   Loan disbursements...................     21,982     27,683    34,710
   Change in outstandings...............      1,628      8,621    14,964
   Outstandings.........................    163,323    171,944   186,908
------------------------------------------------------------------------
\1\CCC direct loans for crop price support, by law, are not subject to  
  credit reform treatment.                                              
[[Page 160]]
Table 8-10.  GUARANTEED LOAN TRANSACTIONS OF THE FEDERAL GOVERNMENT-----

(in millions of dollars)

------------------------------------------------------------------------
                                                         Estimate       
          Agency or Program              1995    -----------------------
                                       actual        1996        1997   
------------------------------------------------------------------------
 Funds Appropriated to the President                                    
                                                                        
  International Security Assistance                                     
                                                                        
Foreign military loan liquidating                                       
 account:                                                               
   Commitments......................  ..........  ..........  ..........
   New guaranteed loans.............  ..........  ..........  ..........
   Change in outstandings...........        -536        -442        -395
   Outstandings.....................       6,610       6,168       5,773
                                                                        
Agency for International Development                                    
                                                                        
Loan guarantees to Israel financing                                     
 account:                                                               
   Commitments......................       1,783       1,940       2,000
   New guaranteed loans.............       1,783       1,940       2,000
   Change in outstandings...........       1,783       1,940       2,000
   Outstandings.....................       5,346       7,286       9,286
                                                                        
Housing and other credit guaranty                                       
 programs liquidating account:                                          
   Commitments......................  ..........  ..........  ..........
   New guaranteed loans.............          34          27          50
   Change in outstandings...........         -28         -45         -24
   Outstandings.....................       2,009       1,964       1,940
                                                                        
Private sector revolving fund                                           
 liquidating account:                                                   
   Commitments......................  ..........  ..........  ..........
   New guaranteed loans.............  ..........  ..........  ..........
   Change in outstandings...........  ..........  ..........         -17
   Outstandings.....................          19          19           2
                                                                        
Microenterprise and other                                               
 development guaranteed loan                                            
 financing account:                                                     
   Commitments......................          48          38          38
   New guaranteed loans.............           4          20          36
   Change in outstandings...........           4          19          35
   Outstandings.....................          26          45          80
                                                                        
Housing and other credit guaranty                                       
 programs guaranteed loan financing                                     
 account:                                                               
   Commitments......................         148          41          42
   New guaranteed loans.............         120         131         112
   Change in outstandings...........         120         131         112
   Outstandings.....................         179         310         422
                                                                        
Assistance for the New Independent                                      
 States of the Former Soviet Union:                                     
 Ukraine export credit insurance                                        
 financing account:                                                     
   Commitments......................  ..........         106  ..........
   New guaranteed loans.............  ..........          90          16
   Change in outstandings...........  ..........          90         -35
   Outstandings.....................  ..........          90          55
                                                                        
     Overseas Private Investment                                        
             Corporation                                                
                                                                        
Overseas Private Investment                                             
 Corporation liquidating account:                                       
   Commitments......................  ..........  ..........  ..........
   New guaranteed loans.............  ..........  ..........  ..........
   Change in outstandings...........         -69         -69         -61
   Outstandings.....................         287         218         157
                                                                        
Overseas private investment                                             
 corporation guaranteed loan                                            
 financing account:                                                     
   Commitments......................       1,891       2,000       2,250
   New guaranteed loans.............         575       1,627       1,765
   Change in outstandings...........         561       1,602       1,465
   Outstandings.....................         948       2,550       4,015
                                                                        
      Department of Agriculture                                         
                                                                        
         Farm Service Agency                                            
                                                                        
Agricultural credit insurance fund                                      
 liquidating account:                                                   
   Commitments......................  ..........  ..........  ..........
   New guaranteed loans.............           3  ..........  ..........
   Change in outstandings...........        -674        -317        -212
   Outstandings.....................       1,316         999         787
                                                                        
Agricultural credit insurance fund                                      
 guaranteed loan financing account:                                     
   Commitments......................       1,938       2,450       2,650
   New guaranteed loans.............       1,878       1,922       2,573
   Change in outstandings...........       1,029         827       1,296
   Outstandings.....................       4,979       5,806       7,102
                                                                        
Commodity credit corporation export                                     
 guarantee financing account:                                           
   Commitments......................       5,700       5,700       5,500
   New guaranteed loans.............       2,518       5,700       5,500
   Change in outstandings...........      -5,888       3,091       2,048
   Outstandings.....................       4,874       7,965      10,013
                                                                        
Commodity credit corporation                                            
 guaranteed loans liquidating                                           
 account:                                                               
   Commitments......................  ..........  ..........  ..........
   New guaranteed loans.............  ..........  ..........  ..........
   Change in outstandings...........      -1,723        -114         -75
   Outstandings.....................         206          92          17
                                                                        
   Natural Resources Conservation                                       
               Service                                                  
                                                                        
Agricultural resource conservation                                      
 demonstration guaranteed loan                                          
 financing account:                                                     
   Commitments......................  ..........  ..........  ..........
   New guaranteed loans.............  ..........  ..........  ..........
   Change in outstandings...........  ..........  ..........  ..........
   Outstandings.....................          17          17          17
                                                                        
       Rural Utilities Service                                          
                                                                        
Rural communication development fund                                    
 liquidating account:                                                   
   Commitments......................  ..........  ..........  ..........
   New guaranteed loans.............  ..........  ..........  ..........
   Change in outstandings...........  ..........  ..........  ..........
   Outstandings.....................           5           5           5
                                                                        
Rural development insurance fund                                        
 liquidating account:                                                   
   Commitments......................  ..........  ..........  ..........
   New guaranteed loans.............           7          19  ..........
   Change in outstandings...........        -102         -94         -94
   Outstandings.....................         602         508         414
                                                                        
Rural water and waste water disposal                                    
 guaranteed loan financing account:                                     
   Commitments......................         475          50  ..........
   New guaranteed loans.............         217           3          12
   Change in outstandings...........         183        -484          12
   Outstandings.....................         494          10          22
                                                                        
Rural electrification and telephone                                     
 revolving fund liquidating account:                                    
   Commitments......................  ..........  ..........  ..........
   New guaranteed loans.............  ..........  ..........  ..........
   Change in outstandings...........         -17         -20         -22
   Outstandings.....................         687         667         645
[[Page 161]]
        Rural Housing Service                                           
                                                                        
Rural housing insurance fund                                            
 liquidating account:                                                   
   Commitments......................  ..........  ..........  ..........
   New guaranteed loans.............  ..........  ..........  ..........
   Change in outstandings...........          -5          -4          -3
   Outstandings.....................          36          32          29
                                                                        
Rural housing insurance fund                                            
 guaranteed loan financing account:                                     
   Commitments......................       1,049       1,700       2,400
   New guaranteed loans.............         859       1,466       2,161
   Change in outstandings...........         809       1,373       2,009
   Outstandings.....................       2,085       3,458       5,467
                                                                        
Rural community facility loans                                          
 guaranteed financing account:                                          
   Commitments......................  ..........          75         100
   New guaranteed loans.............  ..........          40          45
   Change in outstandings...........  ..........          91          40
   Outstandings.....................  ..........          91         131
                                                                        
 Rural Business-Cooperative Service                                     
                                                                        
Rural business and industry loans                                       
 guaranteed financing account:                                          
   Commitments......................  ..........         700         750
   New guaranteed loans.............  ..........         515         638
   Change in outstandings...........  ..........       1,183         507
   Outstandings.....................  ..........       1,183       1,690
                                                                        
       Department of Commerce                                           
                                                                        
 Economic Development Administration                                    
                                                                        
Economic development revolving fund                                     
 liquidating account:                                                   
   Commitments......................  ..........  ..........  ..........
   New guaranteed loans.............  ..........  ..........  ..........
   Change in outstandings...........         -11          -2          -1
   Outstandings.....................          19          17          16
                                                                        
  National Oceanic and Atmospheric                                      
           Administration                                               
                                                                        
Fishing vessel obligations                                              
 guarantees financing account:                                          
   Commitments......................          75          25  ..........
   New guaranteed loans.............          32          25  ..........
   Change in outstandings...........           5          19          -6
   Outstandings.....................          54          73          67
                                                                        
Federal ship financing fund, fishing                                    
 vessels liquidating account:                                           
   Commitments......................  ..........  ..........  ..........
   New guaranteed loans.............  ..........  ..........  ..........
   Change in outstandings...........         -21  ..........  ..........
   Outstandings.....................         142         142         142
                                                                        
       Department of Education                                          
                                                                        
  Office of Postsecondary Education                                     
                                                                        
Federal family education loan                                           
 liquidating account:                                                   
   Commitments......................  ..........  ..........  ..........
   New guaranteed loans.............          19          19           5
   Change in outstandings...........      -6,801      -6,801      -5,188
   Outstandings.....................      29,573      22,772      17,584
                                                                        
Federal family education loan                                           
 program, financing account:                                            
   Commitments......................      19,603      20,433      19,114
   New guaranteed loans.............      20,321      18,369      18,587
   Change in outstandings...........      16,289      18,620      13,447
   Outstandings.....................      56,557      75,177      88,624
                                                                        
Historically Black College and                                          
 University Capital financing--                                         
 Financing account:                                                     
   Commitments......................         357  ..........  ..........
   New guaranteed loans.............  ..........          65          75
   Change in outstandings...........  ..........          64          74
   Outstandings.....................  ..........          64         138
                                                                        
   Department of Health and Human                                       
              Services                                                  
                                                                        
    Health Resources and Services                                       
           Administration                                               
                                                                        
Health Resources and Services:                                          
   Commitments......................  ..........  ..........  ..........
   New guaranteed loans.............  ..........  ..........  ..........
   Change in outstandings...........          -2          -1          -1
   Outstandings.....................          11          10           9
                                                                        
Health professions graduate student                                     
 loan guaranteed loan financing                                         
 account:                                                               
   Commitments......................         275         210         140
   New guaranteed loans.............         275         210         140
   Change in outstandings...........         274         207         132
   Outstandings.....................       1,163       1,370       1,502
                                                                        
Health professions graduate student                                     
 loan insurance fund liquidating                                        
 account:                                                               
   Commitments......................  ..........  ..........  ..........
   New guaranteed loans.............  ..........  ..........  ..........
   Change in outstandings...........         -64         -68         -73
   Outstandings.....................       1,657       1,589       1,516
                                                                        
Health loan funds:                                                      
   Commitments......................  ..........  ..........  ..........
   New guaranteed loans.............  ..........  ..........  ..........
   Change in outstandings...........         -48         -39         -31
   Outstandings.....................         261         222         191
                                                                        
   Department of Housing and Urban                                      
             Development                                                
                                                                        
 Public and Indian Housing Programs                                     
                                                                        
Low-rent public housing--loans and                                      
 other expenses:                                                        
   Commitments......................  ..........  ..........  ..........
   New guaranteed loans.............  ..........  ..........  ..........
   Change in outstandings...........        -281        -300        -325
   Outstandings.....................       4,132       3,832       3,507
                                                                        
Indian housing loan guarantee--                                         
 financing account:                                                     
   Commitments......................          22          37          37
   New guaranteed loans.............  ..........          28          33
   Change in outstandings...........  ..........          28          33
   Outstandings.....................  ..........          28          61
                                                                        
 Community Planning and Development                                     
                                                                        
Revolving fund (liquidating                                             
 programs) :                                                            
   Commitments......................  ..........  ..........  ..........
   New guaranteed loans.............  ..........  ..........  ..........
   Change in outstandings...........          -4          -1          -1
   Outstandings.....................           4           3           2
                                                                        
Community development loan                                              
 guarantees financing account:                                          
   Commitments......................       1,844       1,500       2,000
   New guaranteed loans.............         243       1,672       1,750
   Change in outstandings...........         202       1,632       1,685
   Outstandings.....................         317       1,949       3,634
                                                                        
Community development loan                                              
 guarantees liquidating account:                                        
   Commitments......................  ..........  ..........  ..........
   New guaranteed loans.............          27          20          15
   Change in outstandings...........         -51         -50         -45
   Outstandings.....................         246         196         151
[[Page 162]]
          Housing Programs                                              
                                                                        
FHA mutual mortgage and cooperative                                     
 housing insurance funds liquidating                                    
 account:                                                               
   Commitments......................  ..........  ..........  ..........
   New guaranteed loans.............  ..........  ..........  ..........
   Change in outstandings...........     -22,543     -14,610     -10,526
   Outstandings.....................      96,145      81,535      71,009
                                                                        
FHA general and special risk                                            
 insurance funds liquidating                                            
 account:                                                               
   Commitments......................  ..........  ..........  ..........
   New guaranteed loans.............  ..........  ..........  ..........
   Change in outstandings...........      -5,025      -2,971      -2,210
   Outstandings.....................      47,729      44,758      42,548
                                                                        
FHA-General and special risk                                            
 guaranteed loan financing account:                                     
   Commitments......................      10,138      11,824      12,933
   New guaranteed loans.............       9,622       9,971      10,741
   Change in outstandings...........       9,229       3,515       5,417
   Outstandings.....................      35,457      38,972      44,389
                                                                        
Mutual mortgage insurance guaranteed                                    
 loan financing account :                                               
   Commitments......................      50,323      77,793      70,721
   New guaranteed loans.............      40,142      51,543      58,592
   Change in outstandings...........      37,831      30,358      28,530
   Outstandings.....................     222,021     252,379     280,909
                                                                        
    Government National Mortgage                                        
             Association                                                
                                                                        
Guarantees of mortgage-backed                                           
 securities liquidating account:                                        
   Commitments......................  ..........  ..........  ..........
   New guaranteed loans.............      63,727      94,440      81,575
   Change in outstandings...........      18,858      25,749       9,354
   Outstandings.....................     463,848     489,597     498,951
                                                                        
Guarantees of mortgage-backed                                           
 securities financing account:                                          
   Commitments......................     142,000     110,000     110,000
   New guaranteed loans.............  ..........  ..........  ..........
   Change in outstandings...........  ..........  ..........  ..........
   Outstandings.....................  ..........  ..........  ..........
                                                                        
     Department of the Interior                                         
                                                                        
      Bureau of Indian Affairs                                          
                                                                        
Indian loan guaranty and insurance                                      
 fund liquidating account:                                              
   Commitments......................  ..........  ..........  ..........
   New guaranteed loans.............  ..........  ..........  ..........
   Change in outstandings...........         -43         -25         -19
   Outstandings.....................         103          78          59
                                                                        
Indian guaranteed loan financing                                        
 account:                                                               
   Commitments......................          47          35          35
   New guaranteed loans.............          67          43          50
   Change in outstandings...........          55          32          34
   Outstandings.....................         109         141         175
                                                                        
    Department of Transportation                                        
                                                                        
   Federal Aviation Administration                                      
                                                                        
Aircraft purchase loan guarantee                                        
 program:                                                               
   Commitments......................  ..........  ..........  ..........
   New guaranteed loans.............  ..........  ..........  ..........
   Change in outstandings...........          -3          -2  ..........
   Outstandings.....................           2  ..........  ..........
                                                                        
       Maritime Administration                                          
                                                                        
Federal ship financing fund                                             
 liquidating account:                                                   
   Commitments......................  ..........  ..........  ..........
   New guaranteed loans.............  ..........  ..........  ..........
   Change in outstandings...........        -166        -199        -179
   Outstandings.....................         981         782         603
                                                                        
Maritime guaranteed loan (Title XI)                                     
 financing account:                                                     
   Commitments......................         418         571         800
   New guaranteed loans.............         418         571         800
   Change in outstandings...........         428         515         694
   Outstandings.....................         742       1,257       1,951
                                                                        
   Department of Veterans Affairs                                       
                                                                        
  Veterans Benefits Administration                                      
                                                                        
Guaranty and indemnity fund                                             
 liquidating account:                                                   
   Commitments......................  ..........  ..........  ..........
   New guaranteed loans.............  ..........  ..........  ..........
   Change in outstandings...........      -1,099      -1,102      -1,022
   Outstandings.....................      16,569      15,467      14,445
                                                                        
Loan guaranty revolving fund                                            
 liquidating account:                                                   
   Commitments......................  ..........  ..........  ..........
   New guaranteed loans.............  ..........  ..........  ..........
   Change in outstandings...........     -22,891      -8,466      -3,319
   Outstandings.....................      15,774       7,308       3,989
                                                                        
Loan guaranty guaranteed loan                                           
 financing account:                                                     
   Commitments......................           1           1           1
   New guaranteed loans.............           1           1           1
   Change in outstandings...........         834         674         685
   Outstandings.....................         836       1,510       2,195
                                                                        
Guaranty and indemnity guaranteed                                       
 loan financing account:                                                
   Commitments......................      22,161      24,032      24,547
   New guaranteed loans.............      22,161      24,032      24,547
   Change in outstandings...........      20,213      21,462      21,716
   Outstandings.....................     121,307     142,769     164,485
                                                                        
    Small Business Administration                                       
                                                                        
    Small Business Administration                                       
                                                                        
Pollution control equipment fund                                        
 liquidating account:                                                   
   Commitments......................  ..........  ..........  ..........
   New guaranteed loans.............  ..........  ..........  ..........
   Change in outstandings...........         -11          -9          -8
   Outstandings.....................          95          86          78
                                                                        
Business guaranteed loan financing                                      
 account:                                                               
   Commitments......................       9,709      13,921      11,653
   New guaranteed loans.............       8,402      10,413      11,864
   Change in outstandings...........       5,611       6,607       6,789
   Outstandings.....................      18,618      25,225      32,014
                                                                        
Business loan fund liquidating                                          
 account:                                                               
   Commitments......................  ..........  ..........  ..........
   New guaranteed loans.............           4  ..........  ..........
   Change in outstandings...........      -1,804      -1,302      -1,030
   Outstandings.....................       7,675       6,373       5,343
[[Page 163]]
                                                                        
     Other Independent Agencies                                         
                                                                        
  Export-Import Bank of the United                                      
               States                                                   
                                                                        
Export-Import Bank of the United                                        
 States liquidating account:                                            
   Commitments......................  ..........  ..........  ..........
   New guaranteed loans.............         288         300         275
   Change in outstandings...........      -1,010      -1,193        -913
   Outstandings.....................       4,010       2,817       1,904
                                                                        
Export-Import Bank guaranteed loan                                      
 financing account:                                                     
   Commitments......................      10,267      13,781      14,294
   New guaranteed loans.............       7,854       8,455       9,618
   Change in outstandings...........       1,990         423         323
   Outstandings.....................      13,736      14,159      14,482
                                                                        
          FSLIC Resolution                                              
                                                                        
FSLIC resolution fund:                                                  
   Commitments......................  ..........  ..........  ..........
   New guaranteed loans.............  ..........  ..........  ..........
   Change in outstandings...........        -360  ..........  ..........
   Outstandings.....................  ..........  ..........  ..........
                                                                        
     Tennessee Valley Authority                                         
                                                                        
Tennessee Valley Authority fund:                                        
   Commitments......................  ..........  ..........  ..........
   New guaranteed loans.............           1  ..........           1
   Change in outstandings...........  ..........  ..........  ..........
   Outstandings.....................  ..........  ..........  ..........
                                                                        
Subtotal, Guaranteed loans (gross):                                     
   Commitments......................     280,272     288,963     282,005
   New guaranteed loans.............     181,602     233,677     233,577
   Change in outstandings...........      45,028      81,522      72,602
   Outstandings.....................   1,190,618   1,272,140   1,344,742
                                                                        
Less, secondary guaranteed loans:\1\                                    
                                                                        
GNMA guarantees of FmHA/VA/FHA                                          
 pools:                                                                 
   Commitments......................    -142,000    -110,000    -110,000
   New guaranteed loans.............     -63,727     -94,440     -81,575
   Change in outstandings...........     -18,858     -25,749      -9,354
   Outstandings.....................    -463,848    -489,597    -498,951
                                                                        
Total, primary guaranteed loans:\2\                                     
   Commitments......................     138,272     178,963     172,005
   New guaranteed loans.............     117,875     139,237     152,002
   Change in outstandings...........      26,170      55,773      63,248
   Outstandings.....................     726,770     782,543     845,791
------------------------------------------------------------------------
\1\Loans guaranteed by FHA, VA, or FmHA are included above. GNMA places 
  a secondary guarantee on these loans, so they are deducted here to    
  avoid double counting.                                                
\2\When guaranteed loans result in loans receivable, they are shown in  
  the direct loan table.                                                

[[Page 164]]
                  Table 8-11. LENDING AND BORROWING BY GOVERNMENT-SPONSORED ENTERPRISES (GSEs)                  
                                            (In millions of dollars)                                            
----------------------------------------------------------------------------------------------------------------
                                                                                                Estimate        
               Enterprise                                                      1995    -------------------------
                                                                              actual        1996         1997   
----------------------------------------------------------------------------------------------------------------
                 LENDING                                                                                        
                                                                                                                
Student Loan Marketing Association......  Obligations.....................      11,021       10,553       10,441
                                          New transactions................      11,021       10,553       10,441
                                          Net change......................       3,565       -3,434       -1,866
                                          Outstandings....................      41,636       38,202       36,336
Federal National Mortgage Association:                                                                          
  Corporation Accounts..................  Obligations.....................      44,501       64,526       69,773
                                          New transactions................      44,574       63,686       67,815
                                          Net change......................      28,608       31,691       33,202
                                          Outstandings....................     250,374      282,065      315,267
  Mortgage-backed securities............  Obligations.....................     -51,497      129,045      129,247
                                          New transactions................      89,130      129,045      129,247
                                          Net change......................      36,073       58,802       54,204
                                          Outstandings....................     559,585      618,387      672,591
Farm Credit System:                                                                                             
  Banks for cooperatives................  Obligations.....................       8,690        9,976       10,076
                                          New transactions................       8,690        9,976       10,076
                                          Net change......................         619          205          208
                                          Outstandings....................       2,273        2,478        2,686
  Farm Credit Banks.....................  Obligations.....................      22,036       22,103       22,436
                                          New transactions................      22,036       22,492       22,880
                                          Net change......................         345          568          542
                                          Outstandings....................      14,231       14,800       15,600
  Agricultural credit banks.............  Obligations.....................      42,644       44,000       45,000
                                          New transactions................      42,638       44,000       45,000
                                          Net change......................       1,357          569          800
                                          Outstandings....................      14,231       14,800       15,600
Federal Home Loan Bank system:                                                                                  
  Federal home loan banks...............  Obligations.....................     724,349      725,000      725,000
                                          New transactions................     724,349      725,000      725,000
                                          Net change......................       5,561       -1,628  ...........
                                          Outstandings....................     122,128      120,500      120,500
Federal Home Loan Mortgage Corporation:                                                                         
  Corporation accounts..................  Obligations.....................      37,389       48,876       41,615
                                          New transactions................      37,389       48,876       41,615
                                          Net change......................      28,373       32,502       24,854
                                          Outstandings....................      95,052      127,554      152,408
  Participation certificate pools.......  Obligations.....................      70,071      110,877      108,540
                                          New transactions................      70,071      110,877      108,540
                                          Net change......................      -6,626       21,017       30,493
                                          Outstandings....................     457,046      478,063      508,556
    Subtotal, lending (gross)...........  Obligations.....................     909,204    1,164,956    1,162,128
                                          New transactions................   1,049,898    1,164,505    1,160,614
                                          Net change......................      97,875      140,292      142,437
                                          Outstandings....................   1,578,860    1,719,152    1,861,589
Less guaranteed loans held as direct                                                                            
 loans by:                                                                                                      
  Federal National Mortgage Association.  Net change......................       2,247         -346         -122
                                          Outstandings....................      23,027       22,681       22,559
  Student Loan Marketing Association\1\.  Net change......................       3,565       -3,434       -1,866
                                          Outstandings....................      41,636       38,202       36,336
  Other.................................  Net change......................       3,405  ...........  ...........
                                          Outstandings....................       7,860        7,860        7,860
                                         -----------------------------------------------------------------------
    Total GSE lending (net).............  Obligations.....................     909,204    1,164,956    1,162,128
                                          New transactions................   1,049,898    1,164,505    1,160,614
                                          Net change......................      88,658      144,072      144,425
                                          Outstandings....................   1,506,337    1,650,409    1,794,834
                BORROWING                                                                                       
                                                                                                                
Student Loan Marketing Association\1\...  Net change......................       1,980       -5,915       -1,558
                                          Outstandings....................      51,672       45,757       44,199
Federal National Mortgage Association...  Net change......................      73,945       91,506       90,068
                                          Outstandings....................     836,777      928,283    1,018,351
Farm Credit System:                                                                                             
  Banks for cooperatives................  Net change......................         759           -7          -32
                                          Outstandings....................       2,458        2,451        2,419
  Farm credit banks.....................  Net change......................         922          734        1,083
                                          Outstandings....................      39,041       39,775       40,858
  Agricultural credit banks.............  Net change......................       1,583          465          884
                                          Outstanding.....................      15,319       15,784       16,668
Federal Housing Finance Board:                                                                                  
  Federal home loan banks...............  Net change......................      63,027       -9,406  ...........
                                          Outstandings....................     226,406      217,000      217,000
  The Financing Corporation.............  Net change......................           1            1            2
                                          Outstandings....................       8,141        8,142        8,144
  Resolution Funding Corporation........  Net change......................          -3           -2           -2
[[Page 165]]
                                          Outstandings....................      30,076       30,074       30,072
Federal Home Loan Mortgage Corporation..  Net change......................      21,038       50,536       62,449
                                          Outstandings....................     568,656      619,192      681,641
    Subtotal, borrowing (gross).........  Net change......................     163,252      127,912      152,894
                                          Outstandings....................   1,778,546    1,906,458    2,059,352
Less borrowing from other GSEs..........  Net change......................      -3,421  ...........  ...........
                                          Outstandings....................      36,387       36,387       36,387
Less investment in Federal Securities...  Net change......................      -1,375        1,712          491
                                          Outstandings....................       8,674       10,386       10,877
Less borrowing for guaranteed loans held                                                                        
 as direct loans by:                                                                                            
  Federal National Mortgage Association.  Net change......................       2,247         -346         -122
                                          Outstandings....................      23,027       22,681       22,559
  Student Loan Marketing Association\1\.  Net change......................       3,565       -3,434       -1,866
                                          Outstandings....................      41,636       38,202       36,336
  Other.................................  Net change......................       3,935  ...........  ...........
                                          Outstandings....................       7,860        7,860        7,860
                                         -----------------------------------------------------------------------
    Total GSE borrowing (net)...........  Net change......................     158,301      129,980      154,391
                                          Outstandings....................   1,660,962    1,790,942    1,945,333
                                                                                                                
----------------------------------------------------------------------------------------------------------------
\1\All SLMA loans shown in the table above are guaranteed by the Federal Government and therefore also counted  
  as guaranteed loans.