[Analytical Perspectives]
[Special Analyses and Presentations]
[9. Credit and Insurance]
[From the U.S. Government Publishing Office, www.gpo.gov]



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                         9. CREDIT AND INSURANCE

  Federal credit programs offer direct loans and loan guarantees for a 
wide range of activities, primarily housing, education, business and 
rural development, and exports. At the end of 2001, there were $242 
billion in Federal direct loans outstanding and $1,084 billion in loan 
guarantees. Through its insurance programs, the Federal Government 
insures bank, thrift, and credit union deposits up to $100,000, 
guarantees private defined-benefit pensions, and insures against other 
risks such as natural disasters.
  The Federal Government also enhances credit availability for targeted 
sectors indirectly through Government-sponsored enterprises (GSEs)--
privately owned companies and cooperatives that operate under Federal 
charters. GSEs provide direct loans and increase liquidity by 
guaranteeing and securitizing loans. Some GSEs have become major players 
in the financial market. In 2001, the face value of GSE lending totaled 
$3.1 trillion. In return for serving social purposes, GSEs enjoy some 
privileges, which include eligibility of their securities to 
collateralize public deposits and be held in unlimited amounts by most 
banks and thrifts, exemption of their securities from SEC registration, 
exemption of their earnings from State and local income taxation, and 
ability to borrow from Treasury, at Treasury's discretion, in amounts 
ranging up to $4 billion. These privileges leave many people with the 
impression that their securities are risk-free. GSEs, however, are not 
part of the Federal Government, and their securities are not federally 
guaranteed. By law, the GSEs' securities carry a disclaimer of any U.S. 
obligation.
  The role and risk of these diverse programs critically depend on the 
state of financial markets. In recent years, financial markets have been 
changing fast because of rapid technological advances and active 
deregulation. The Federal Government, therefore, needs to reassess the 
extent and nature of credit and insurance programs more carefully in 
order to adapt those programs to rapidly changing financial markets.
  The rest of this chapter is organized as follows.
    The first section analyzes the role of Federal credit and 
          insurance programs. Federal programs play useful roles when 
          market imperfections prevent the private market from 
          efficiently providing credit and insurance. Financial 
          evolution has partly corrected many imperfections and 
          generally weakened the justification for Federal intervention.
    The second section identifies four key criteria for 
          evaluating Federal programs: objectives, economic 
          justification, availability of alternative means, and 
          efficiency. Recognizing that improving efficiency is an 
          everlasting concern, this section pays particular attention to 
          the issue, and also discusses Federal loan sales as a special 
          issue in improving efficiency.
    The third section reviews Federal credit programs and GSEs 
          in four sectors: housing, education, business and community 
          development, and exports. This section discusses program 
          objectives, recent developments, and future plans for each 
          program.
    The final section describes Federal deposit insurance, 
          pension guarantees, and disaster insurance in a context 
          similar to that for credit programs.

           I.  FEDERAL PROGRAMS IN CHANGING FINANCIAL MARKETS

The Federal Role
  The roles of Federal credit and insurance programs can be broadly 
classified into two areas: helping disadvantaged groups and correcting 
market failures. Subsidized Federal credit programs redistribute 
resources from the general taxpayer to disadvantaged regions or segments 
of the population. Since disadvantaged groups can be assisted through 
other means, such as direct subsidies, the value of a credit or 
insurance program critically depends on the extent to which it corrects 
market failures.
  In most cases, private lending and insurance business efficiently 
meets societal demands by allocating resources to the most productive 
uses, and Federal intervention is unnecessary or can even be 
distortionary. However, Federal intervention may improve the market 
outcome in some situations. The market imperfections that justify some 
Federal involvement can be broadly classified as follows.
    Information opaqueness interferes with the optimal 
          allocation of capital. In most cases, financial intermediaries 
          efficiently gather and process information needed to evaluate 
          the creditworthiness of borrowers. However, there may be 
          little objective information about some groups of borrowers 
          such as start-up businesses, start-up farmers, and students, 
          who have limited incomes and credit histories. Because it is 
          difficult for those borrowers to prove their creditworthiness 
          to a large number of lenders, they must rely on the subjective 
          judgements of a few lenders. In this situation, many 
          creditworthy borrowers may fail to obtain credit. Even for 
          borrowers who are approved for credit, insufficient 
          competition can result in higher inter

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          est rates. Government intervention, such as loan guarantees, 
          enable these groups of borrowers to obtain credit more easily 
          and cheaply and provides an opportunity for the lender to 
          become more comfortable with that group of borrowers. 
          Similarly, the private sector efficiently insures against 
          various risks. Insurance companies estimate the expected loss 
          based on probabilities of loss-generating events and charge 
          adequate premiums. Private insurers, however, are reluctant to 
          insure against an event for which they cannot reasonably 
          estimate the probability and the magnitude of loss. Without 
          these estimates, they cannot adequately set the premium. 
          Terrorism emerged as one of these cases after the September 11 
          attacks. In these cases, Government intervention limiting 
          uncertainties for the private sector may be necessary to 
          ensure the provision of insurance.
    Externalities cause either underinvestment or overinvestment 
          in some sectors. Individuals and private entities do not make 
          socially optimal decisions when they do not capture the full 
          benefit (positive externalities) or bear the full cost 
          (negative externalities) of their activities. Examples of 
          positive and negative externalities are education and 
          pollution. The general public benefits from high productivity 
          and good citizenship of a well-educated person and suffers 
          from pollution. Without Government intervention, people will 
          invest less than the socially optimal amount in activities 
          that generate positive externalities and more in activities 
          that generate negative externalities. The Federal Government 
          can encourage activities involving positive externalities by 
          offering subsidized credit or other rewards such as tax 
          benefits and discourage activities involving negative 
          externalities by imposing taxes or other penalties. 
          Alternatively, the Government may offer credit or direct 
          subsidies to encourage activities reducing negative 
          externalities (e.g., pollution control).
    Resource constraints sometimes limit the private sector's 
          ability to offer certain products. Deposit insurance is one 
          example. Since the performance of banks is often affected by 
          common factors such as macroeconomic conditions, bank failures 
          tend to be clustered in bad economic times. Furthermore, if 
          depositors become doubtful about the soundness of the banking 
          system as a whole upon observing a large number of failures, 
          they may rush to withdraw deposits, forcing even sound banks 
          into liquidation. To prevent these undesirable withdrawals, 
          which would harm the whole economy, deposit insurance needs to 
          be backed by a sufficient fund to resolve a very large number 
          of failures. It may be difficult for private insurers to 
          secure such a large fund. Some catastrophic events can also 
          threaten the solvency of private insurers. For some events 
          involving a small risk of a very large loss, therefore, 
          Government insurance commanding more resources can be more 
          credible and effective. Another form of resource constraint is 
          a liquidity constraint. It is usually difficult for a private 
          entity to raise a large amount in a short time. The funding 
          difficulty can limit the private market's ability to extend 
          credit and thereby disrupt economic activity. The Federal 
          Government can prevent economic disruption by providing 
          liquidity in illiquid sectors or during illiquid periods.
    Imperfect competition justifies some Government 
          intervention. Competition is imperfect in some markets because 
          of barriers to entry, economies of scale, and foreign 
          government intervention. For example, legal barriers to entry 
          or geographic isolation can cause imperfect competition in 
          some rural areas. If the lack of competition forces some rural 
          residents to pay excessively high interest on loans, 
          Government lending programs aiming to increase the 
          availability of credit and lower the borrowing cost for those 
          rural residents may improve economic efficiency.

Changing Financial Markets

  Financial markets have undergone many changes in recent years. The 
most fundamental developments are financial services deregulation and 
technological advances, which have promoted competition and economic 
efficiency. Deregulation and technological advances have led to many 
important developments. Deregulation has promoted consolidation by 
removing legal barriers to business combinations. By increasing the 
availability of information and lowering transaction costs, 
technological advances have significantly contributed to enhancing 
liquidity, refining risk management tools, and spurring globalization. 
The current economic downturn, however, can temporarily interrupt these 
trends.
  Financial services deregulation has promoted competition by removing 
geographic and industry barriers. Active deregulation at the state level 
substantially removed restrictions on interstate banking and intrastate 
branching in the 1980s and early 1990s. At the Federal level, the full 
implementation of the Riegle-Neal Interstate Banking and Branching Act 
in 1997 essentially removed geographic barriers. The Financial Services 
Modernization Act of 1999 has repealed the provisions of the Glass-
Steagall Act and the Bank Holding Company Act that restricted the 
affiliation between banks, securities firms, and insurance companies. 
The Act allows financial holding companies to engage in various 
financial activities, including traditional banking, securities 
underwriting, insurance underwriting, asset securitization, and 
financial advising. As a result, competition has become nationwide and 
across all financial products.
  Advances in communication and information processing technology have 
made the evaluation of borrowers' creditworthiness more accurate and 
lowered the cost of financial transactions. Lenders now have easy access 
to large databases, powerful computers, and sophisticated analytical 
models. Thus, many lenders use

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credit scoring models that evaluate creditworthiness based on various 
borrower characteristics derived from extensive credit bureau data. As a 
result, lending decisions have become more accurate and objective. 
Powerful computing and communication devices have also lowered the cost 
of financial transactions by producing new transaction methods such as 
electronic fund transfers, Internet banking, and Internet brokerage. The 
development of reliable screening methods and efficient transaction 
methods have resulted in intense competition for creditworthy borrowers 
and narrowed lending margins. Financial institutions are more willing to 
compete for customers with diverse characteristics, customers in distant 
areas, and small profit opportunities. A notable example of increased 
competition is the credit card business, where offering lower rates to 
lower-risk customers has become much more common in recent years.
  Consolidation among financial institutions, especially banks, has been 
very active due to deregulation and increased competition. Because of 
active consolidation, the number of banks has sharply decreased, and the 
concentration of assets has increased. At the end of calendar 2000, 
there were about 8,300 commercial banks, which represented a decrease by 
over 4,000 or 33 percent from the end of calendar 1990. The top 10 banks 
controlled 37 percent of banking assets at the end of calendar 2000, 
compared with 21 percent at the end of calendar 1990. Consolidation 
across traditional industry boundaries has produced financial holding 
companies that control multiple types of financial institutions. The 
leading example is Citigroup encompassing the commercial banking 
(Citibank), insurance (Travelers), and securities (Salomon Smith Barney) 
businesses.
  Direct capital market access by borrowers has become more common. 
Advances in communication and information processing technology enabled 
many companies (less-established medium-sized companies, as well as 
large well-known ones) to validate their financial information at low 
costs and to borrow directly in capital markets, instead of relying on 
banks. In particular, commercial paper (short-term financing instruments 
issued by corporations) has been very popular. In the 1990s, growth of 
commercial paper substantially outpaced growth of bank business loans. 
The current economic slowdown, however, has had a much larger negative 
effect on growth of commercial paper than on growth of bank business 
loans.
  Nonbank financial institutions, such as finance companies and venture 
capital firms, increased their market share, partly thanks to advanced 
communications and information processing technology that helped to 
level the playing field. Over the last decade, both consumer loans and 
business loans have been growing at finance companies faster than at 
commercial banks. The growth of venture capital firms was rather 
phenomenal. Between calendar 1995 and calendar 2000, their new 
investments, which were mostly in small firms' equity, increased more 
than 17-fold (from $6 billion to $104 billion). Due to the economic 
downturn and the slumping stock market, venture capital investments in 
calendar 2001 decreased to less than half of the calendar 2000 level, 
but were still several times as much as those in the mid-1990s.
  Internet-based financial intermediaries provide financial services 
more cheaply and widely. The Internet lowers the cost of financial 
transactions and reduces the importance of physical location. Internet 
brokers slashed the commission on stock trading. Internet-only banks, 
which started appearing recently, bid up deposit interest rates. 
Furthermore, their services are nationwide. The Electronic Signatures in 
Global and National Commerce Act of 2000, which eliminates legal 
barriers to the use of electronic technology to sign contracts, should 
accelerate the growth of transactions over the Internet.
  Securitization (pooling a certain type of asset and selling shares of 
the asset pool to investors) is a financial instrument produced by 
technological advances. Increased transparency of asset quality created 
demand for securitized assets. Securitization has enhanced liquidity in 
financial markets by enabling lenders to raise funds without borrowing 
or issuing equity. It also helps financial institutions to reduce risk 
exposure to a particular line of business. Commonly securitized assets 
include credit card loans, automobile loans, and residential mortgages, 
whose quality can be more objectively analyzed. In recent years, 
financial institutions began securitizing to a very limited extent many 
other assets such as commercial mortgages and small business loans, the 
riskiness of which is more difficult to evaluate.
  Financial derivatives, such as options, swaps, and futures, have 
improved investors' ability to manage risk (either increase or decrease 
risk exposure). Financial institutions and some other types of companies 
are increasingly using these relatively new instruments to manage 
various types of risk such as interest rate risk, credit risk, price 
risk, and even catastrophe-related risk. The interest rate swap, for 
example, is an effective tool to reduce a firm's exposure to interest 
rate movements. However, a firm can also use an interest rate swap to 
take interest risk. Interest rate swaps are widely used now. After the 
September 11 attacks, catastrophe bonds drew some attention as a 
potential means to manage a large risk. This derivative offers yields 
higher than market interest rates. If a specified catastrophe occurs, 
however, the bondholders lose a part or all of the principal, depending 
on the size of the damage. In this contract, the higher yield and the 
loss of principal respectively are equivalent to the insurance premium 
and the insurance payout. In this way, the potential large loss can be 
spread among a large number of investors, instead of a few insurance 
companies. The size of the catastrophe bond market, however, is still 
very small.
  Globalization has been accelerating as a result of the reduced 
importance of geographic proximity and knowledge of local markets. Both 
commercial and in

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vestment banking institutions headquartered in Europe and Japan are 
actively competing in the U.S. market, and many U.S. financial 
institutions have branches worldwide.
  The current economic downturn has increased loan delinquency rates and 
bankruptcies. The delinquency rate of business loans at banks averaged 
2.9 percent during the first three quarters of calendar 2001, compared 
with 2.2 percent in calendar 2000. The increases in delinquency rates 
were modest for consumer loans (from 3.6 to 3.7 percent) and real estate 
loans (from 1.9 to 2.1 percent). Between 2000 and 2001, however, 
personal bankruptcy filings increased 14.1 percent, which was much 
faster than the 6.6 percent increase in business bankruptcy filings. 
Jitters about credit quality reduced the supply of business credit in 
the private market, especially from nonbank sources such as commercial 
paper. The stock market bust also increased the cost of equity 
financing, especially for start-ups that relied on venture capital. For 
households, credit conditions remained relatively easy, partly thanks to 
the continued strength of the housing market.

Implications for Federal Programs

  In general, financial evolution has increased the private market's 
capacity to serve the populations traditionally targeted by Federal 
programs and hence weakened the role of Federal credit and insurance 
programs. Thus, it may be desirable to focus on narrower target 
populations that still have difficulty in obtaining credit from private 
lenders and on more specific objectives that have been less affected by 
financial evolution.
  Information about borrowers is more widely available and easier to 
process, thanks to technological advances. Credit scoring models, for 
example, enable lenders to screen many borrowers at low cost and to make 
more accurate lending decisions. As a result, creditworthy borrowers are 
less likely to be turned down, while borrowers that are not creditworthy 
are less likely to be approved for credit. The Federal role of improving 
credit allocation, therefore, is generally not as strong as before. The 
benefit from financial evolution, however, can be uneven across groups 
and over time. Large financial institutions with global operations, 
which are products of consolidation, may want to focus more on large 
customers and business lines that utilize economies of scale and scope 
more fully. Thus, some small borrowers, who used to rely heavily on the 
private information of small institutions, can be underserved. In an 
economic downturn, lenders can be overly cautious, leaving out some 
creditworthy borrowers. The Federal Government may need to better target 
those underserved groups, while reducing general involvement.
  Externalities have not been significantly affected by financial 
evolution. The private market fundamentally relies on decisions at the 
individual level. Thus, it is inherently difficult for the private 
market to correct problems related to externalities.
  Resource constraints have been alleviated. Securitization and 
financial derivatives facilitate fund raising and risk sharing. By 
securitizing loans and writing derivatives contracts, a lender can make 
a large amount of risky loans, while limiting its risk exposure. An 
insurer can distribute the risk of a natural or man-made catastrophe 
among a large number of investors through catastrophe-related 
derivatives, although the extent of risk sharing in this way is limited 
due to the small size of the catastrophe bond market.
  Imperfect competition is much less likely in general. Developments 
that contributed to increasing competition are financial deregulation, 
direct capital market access by borrowers, stronger presence of nonbank 
financial institutions, emergence of Internet-based financial 
institutions, and globalization. Consolidation has a potential negative 
effect on competition, especially in markets that were traditionally 
served by small institutions. Given that the Nation still has many banks 
and other financial institutions, the negative effect, if any, should be 
insignificant overall. It is possible, however, that some communities in 
remote rural areas and inner city areas have been adversely affected by 
consolidation.
  Uncertainties about the Federal Government's liability have increased 
in some areas. Consolidation has increased bank size, and deregulation 
has allowed banks to engage in many risky activities. Thus, the loss to 
the deposit insurance funds can turn out to be unusually large in some 
bad years. The potential loss needs to be limited by large insurance 
reserves and effective regulation. The large size of some GSEs is also a 
potential problem. Financial trouble of a large GSE could cause strong 
repercussions in financial markets, affecting federally insured entities 
and economic activity. The current economic downturn also makes it more 
difficult to estimate the costs of credit and insurance programs because 
they can change abruptly.

                    II.   A CROSS-CUTTING ASSESSMENT

  To systematically assess Federal programs, policymakers and program 
managers need to consider the following questions. (1) Are the programs' 
objectives still worthwhile? (2) Is the program economically justified? 
(3) Is the credit or insurance program the best way to achieve the 
goals? (4) Is the program operating efficiently and effectively? If the 
answer is ``No'' to any of the first three questions, the program should 
be eliminated or phased out. For programs that pass the three tests, the 
focus should be on improving efficiency and effectiveness.


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Objectives

  The first step in reassessing Federal credit and insurance programs is 
to identify clearly the objective of each program, such as an increase 
in homeownership, an increase in college graduates, an increase in jobs, 
or an increase in exports. The objective must be worthwhile to justify a 
program. For some programs, the objective might be unclear or of low 
importance. In some other cases, an initially worthwhile objective might 
have become obsolete. For example, the main objective of the Rural 
Telephone Bank is to increase telephone service in rural areas. This was 
a worthwhile objective when many rural residents had limited or costly 
access to telephone service. In the current environment with ample 
supply of telephone lines and intense competition among telephone 
companies, however, the objective may be obsolete.

Economic Justifications

  For a credit or insurance program to be economically justified, the 
program's benefits must exceed its costs. The benefits are the net 
effects of the program on intended outcomes compared with what would 
have occurred in the absence of the program. They exclude, for example, 
gains that would have been obtained with private credit in the absence 
of the program. Financial evolution may have significantly affected the 
net benefit from some programs. Suppose, for example, that financial 
evolution made information about borrowers transparent in some sectors 
where information opaqueness had been a major problem. Then the net 
benefit would be substantially smaller for the Federal programs that 
were mainly intended to solve the information problem in those sectors.
  Many Federal credit and insurance programs involve subsidy costs, and 
all of them incur administrative costs. A subsidy cost occurs when the 
beneficiaries of a program do not pay enough to cover the cost to the 
Federal Government (e.g., they pay below-cost interest rates and below-
cost fees). The administrative costs include the costs of loan 
origination, direct loan servicing, and guaranteed loan monitoring. The 
net benefit of a program can be smaller than the combined cost of 
subsidy and administration either because it is inherently costly to 
pursue the program's goal or because the program is inefficiently 
managed (failure to maximize the benefit and minimize the cost). The 
program should be discontinued in the first case and restructured in the 
second case.

Alternatives

  Even a program that is economically justified should be discontinued 
if there is a better way to achieve the same goals. The Federal 
Government has other means to achieve social and economic goals, such as 
providing direct subsidies, offering tax benefits, and encouraging 
private institutions to provide the intended services.
  In general, direct subsidies are more efficient than credit programs 
for the purpose of fulfilling social objectives such as helping low-
income people, as opposed to economic objectives such as improving 
credit allocation. Direct subsidies are less likely to interfere with 
the efficient allocation of resources. Suppose that the Government makes 
a subsidized loan to be used for a specific project. Then the borrower 
will undertake the project if its return is greater than the subsidized 
rate. Thus, the subsidized loan can induce the borrower to undertake a 
normally unprofitable project and hence result in a social loss. On the 
other hand, a direct subsidy is a simple income transfer, which is less 
likely to cause a social loss.
  To a certain extent, the Federal Government can also correct market 
failures by helping the private market to improve efficiency, instead of 
directly offering credit or insurance. For example, policies encouraging 
the standardization of information (e.g., standardization of loan 
origination documents) may improve the private lenders' ability to serve 
those sectors where information is opaque. Standardization helps to 
reduce opaqueness by facilitating information processing. With reduced 
opaqueness, loan sales should be easier, and the secondary market should 
develop more quickly. Then the lending market would be more liquid and 
competitive. A more specific example is the development of floodplain 
maps by the National Flood Insurance Program. Before the development of 
the maps, private insurance companies had little information on flood 
risks by geographic area. The lack of information was a main reason why 
private companies were unwilling to insure against flood risk.

Improving Efficiency

  Some programs may be well-justified based on the three criteria above. 
However, few programs may be perfectly designed or managed. It is almost 
impossible to take all relevant factors into consideration at the 
beginning. In addition, financial evolution can lower the efficiency of 
initially well-designed and well managed programs. Thus, improving 
efficiency is an everlasting concern. Although the ways to improve 
efficiency vary across programs, there are some general categories and 
principles that apply to most programs.

  Pricing (setting appropriate lending terms or insurance premiums) is a 
critical part of credit and insurance programs. If program managers fail 
to accurately estimate the default and prepayment probabilities for a 
credit program and the loss probability for an insurance program, the 
program may be mispriced, and the actual subsidy may substantially 
deviate from the intended subsidy. To improve the estimation accuracy, 
using advanced analytical tools is important, especially for some 
programs, for which pricing involves many complications. An 
inappropriate intended subsidy rate can also impair program efficiency. 
If a program's subsidy is too small, the intended population may be 
discouraged from using the program. On the other hand, an excessive 
subsidy may attract unintended customers.
  Some programs are inherently difficult to price. To price deposit 
insurance, for example, the Federal Deposit Insurance Corporation (FDIC) 
needs to estimate

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bank failure probabilities, which are highly changeable. An unexpected 
event can cause many failures, and the banking business changes over 
time, introducing new risks. FDIC recently made a constructive proposal 
to improve deposit insurance pricing. Agencies dealing with complicated 
pricing need to continuously endeavor to refine pricing. In many cases, 
utilizing both historical experience and sophisticated analytical tools 
may be necessary. Private sector participation may also help the pricing 
of complicated programs. Federal agencies can make risk-sharing 
arrangements with private firms that may have better pricing expertise 
and derive information from the private firms' pricing.
  The subsidy rate and the manner in which subsidies are provided can 
also affect program efficiency. The Farm Service Agency (FSA) offers 
agricultural loans at Treasury rates to borrowers who have been denied 
credit by private lenders. Since Treasury rates are lower than market 
rates for creditworthy borrowers, this pricing strategy can attract 
borrowers who can obtain credit elsewhere. It is possible that some 
creditworthy borrowers are denied credit by chance or by 
misrepresentation. One solution to this problem is to make loans at the 
market rate for average borrowers, which would still subsidize the 
intended population with low credit ratings. When further subsidies to 
the disadvantaged are desirable, the Government may supplement the loans 
with direct subsidies.
  Another pricing issue arises when the Government relies on private 
intermediaries. The student loan guarantee program sets the interest 
rate that participating lenders receive, which differs from the rate 
that students pay. While an unattractively low lender rate set by the 
Government would reduce participation, an excessively high rate would 
unnecessarily increase the cost of the program. A similar problem exists 
for the crop insurance program. Private insurance companies sell and 
service crop insurance policies, and the Federal Government reimburses 
the private companies for the administrative expenses and reinsures them 
for excess insurance losses. Excessive profits of private companies are 
also possible in this case. One way to deal with this problem is to 
carefully examine the profit of participating intermediaries. An 
alternative is to set the price through competitive bidding.

  Targeting the right population is also an important element of program 
efficiency. The net benefit will increase if program managers more 
successfully identify the populations that would benefit more from 
credit and insurance programs and reach out to them. Right populations 
include borrowers who have worthwhile projects but have difficulty in 
obtaining private credit (e.g., beginning farmers, new businesses, new 
exporters), populations underserved by the private market (e.g., low-
income, minority), underserved neighborhoods (e.g., rural, inner city), 
and legislatively targeted populations (e.g., students, veterans). In 
addition to making credit available, program managers need to actively 
inform potential borrowers of the credit availability and provide high-
quality customer services, so that ignorance or inconvenience does not 
deter the targeted populations from accessing the program. Federal 
credit programs can also play a more useful role when there is temporary 
inefficiency in the private market. The financial market can 
occasionally face a liquidity crisis or become overly pessimistic (e.g., 
at the time of the Asian financial crisis and the near collapse of Long 
Term Capital Management, a hedge fund). Economic downturns can also 
reduce the credit available from private sources, as evidenced by 
declines in commercial paper and venture capital investment in 2001. On 
those occasions, Federal agencies can promote the extension of credit to 
creditworthy borrowers. While outreaching, program managers should avoid 
overreaching, which would waste taxpayers' money.
  While targeting may not be a problem for some well-defined programs, 
such as deposit insurance and student loan programs, it can be a major 
concern for many programs that serve broader purposes, such as housing, 
business, and international programs. Given that private lenders have 
been reaching out to more traditionally underserved homebuyers, for 
example, there are ever increasing needs for Federal housing agencies to 
improve their focus on the populations that may still be underserved by 
the private market, such as minorities and inner city residents. In the 
agricultural sector, FSA provides loan guarantees to many borrowers who 
have access to private credit. To improve program efficiency, FSA needs 
to focus on borrowers who would benefit most from the government program 
(for example, helping more small, beginning farmers and fewer large, 
established farmers). The Small Business Administration (SBA) faces a 
similar problem. Given that the definition of small business is not 
really tight, access to private credit may differ widely across small 
businesses. It is an ongoing challenge for SBA to focus more narrowly on 
start-ups and very small businesses, which may have more difficulty in 
obtaining credit without Government assistance.
  Even when the target population is fairly well defined, a program can 
extend its role beyond the original mission. The housing program of the 
Department of Veterans Affairs (VA), of which the main purpose is to 
help veterans, offers direct loans to the purchasers of foreclosed VA 
homes, who are not veterans. The loans do not necessarily increase the 
cost to the government if the favorable lending terms positively 
influence sale prices. Nevertheless, the loans to the general public can 
be considered as overreaching. The program also allows veterans to 
obtain the subsidized loans more than once. Provided that the primary 
goal of the program is to help disadvantaged veterans right out of the 
military, repeated offers of subsidized loans may be unnecessary in many 
cases. Rural Utilities Service (RUS) offers credit to utility providers 
serving rural areas. Once the eligibility is determined, however, 
requalification is not required for new loans. This lax rule enables 
some borrowers, where rural areas have become urban after the first 
loan, to obtain new loans to support both rural and urban areas.

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  Targeting too narrowly can also be a problem. Export credit provided 
by the Export-Import Bank is highly concentrated to a few large 
exporters. Overseas Private Investment Corporation (OPIC) has been 
primarily assisting large U.S. companies investing abroad. In these 
cases, reaching out to smaller exporters and investors might improve 
program efficiency.

  Risk management needs to be effective to limit the cost of credit and 
insurance programs. Careful screening of borrowers would reduce the 
default risk. Although the goal of most credit programs is not to lend 
to the most creditworthy borrowers, it is important to identify 
relatively more creditworthy borrowers even among those who might be 
denied credit by private lenders. Other key elements of risk management 
include monitoring existing borrowers and collecting defaulted loans. 
One way to improve screening, monitoring, and collecting is to use 
advanced analytical tools such as credit scoring and to maintain useful 
data bases. In some cases, the private sector may perform those tasks 
more efficiently. Then delegation would be an effective strategy. For 
example, if banks are better at screening some opaque borrowers because 
of their extensive experience with those borrowers, Federal agencies may 
delegate the screening of those borrowers to banks with appropriate 
risk-sharing arrangements.
  Technological advances have significantly improved the screening of 
borrowers, especially in the housing market, where standardizing 
information is relatively easy. Private lenders process loans 
efficiently using automated and sophisticated tools. Federal agencies 
targeting the populations that are largely served by the private sector 
need to be alert to catch up with rapid technological advances. Falling 
behind, they could be left with riskier borrowers. Analytical models 
also play an important role in monitoring borrowers and insurance 
policyholders. Pension Benefit Guarantee Corporation (PBGC) has an Early 
Warning Program designed to identify weak industries and companies. The 
program, which facilitates early intervention and negotiations, has been 
fairly successful in reducing insurance losses.
  Since standardizing information is still difficult for small business, 
banks with extensive business relationships may have advantages in 
screening borrowers. The Small Business Administatin (SBA), which 
guarantees small business loans, delegates credit evaluation with some 
risk-sharing arrangements. SBA has been strengthening the delegation 
through its Preferred Lender Program, which has shown some success in 
reducing default rates. However, since designing optimal risk-sharing 
arrangements is a challenging task, SBA and other Federal agencies 
delegating credit evaluation to private lenders should keep trying to 
develop finer risk-sharing arrangements.
  Delegation of loan servicing is generally desirable, but it should be 
accompanied by close monitoring of contractors. VA lets private 
servicers track the performance of VA loans. VA, however, is not 
notified of delinquencies until loans are 60 to 90 days overdue. Closer 
monitoring might help to reduce the default rate of VA loans. The 
performance of private contractors may also be improved through 
performance-based contracting. The Department of Education (ED) relies 
on private contractors for collecting defaulted student loans. ED lets 
multiple debt collectors compete for the loan volume by assigning more 
loans to the best performers. This performance-based contracting has 
helped to increase the collection of defaulted loans.

  Cost control is a concern for all types of organizations. For Federal 
credit and insurance programs, key elements include delivery and 
servicing costs, in addition to the general administration cost. There 
are many ways for Federal agencies to save costs. They may streamline 
the delivery system, computerize loan servicing, and eliminate redundant 
servicing facilities. In cases where the private sector is more 
efficient in some specific functions such as loan servicing, it may be 
best to contract out those functions. When several Federal agencies 
serve similar purposes, inter-agency cooperation can result in a 
substantial cost saving.
  The student loan guarantee program involves multiple layers of private 
and public institutions. There may be an opportunity to streamline the 
delivery system and save on administrative cost. SBA operates multiple 
loan servicing centers throughout the Nation. Given that advances in 
communication technology have reduced the importance of physical 
presence for loan servicing, consolidating some of those facilities 
might reduce costs without sacrificing customer service.
  ED contracts out the servicing of direct student loans. Since many 
private institutions are more experienced with loan servicing than the 
Government, contracting out can be more cost-effective in many cases. To 
realized the potential cost savings, however, Federal agencies need to 
use well-designed competitive bidding and incentive arrangements, as 
well as to monitor the quality of service. Without these appropriate 
steps, contracting out could represent more of a private opportunity for 
a windfall gain than of the Government's opportunity for a cost saving. 
The Federal Housing Administration and SBA have been selling loans to 
private financial institutions. Provided that private institutions are 
more efficient in loan servicing, loan sales should help to save 
servicing and administrative costs. Well-designed competitive bidding is 
important in this case, as well.
  There are several Federal agencies that are involved in home-purchase 
financing and several agencies that provide export-related credit. In 
these cases, substantial cost saving can be achieved through sharing 
data bases, exchanging expertise, and consolidating redundant 
operations. Housing agencies have been sharing data, but to a limited 
extent. International credit agencies use a common risk assessment 
system. There may remain many cost-saving opportunities that can be 
realized through fuller cooperation.

  Initiative plays an important role in a rapidly changing environment. 
Information technology and fi

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nancial markets have been changing rapidly. To achieve the maximum 
efficiency, program managers need to closely watch and quickly adapt 
their programs to new developments. Tardy responses to changes in 
information technology may mean missed opportunities for improving risk 
management and reducing costs. Financial market developments also have 
important implications. For example, many loans guaranteed by the 
Government are securitized. Securitization may reduce the lenders' 
incentives to screen and monitor borrowers if they believe that 
guaranteeing agencies do not properly track the performance of 
securitized loans. To prevent this adverse effect, the Government needs 
well-organized databases and modern monitoring systems. Private lenders 
are more willing to serve many customers to whom they did not want to 
lend in the past. Thus, some Federal credit programs may need to focus 
more narrowly on customers who are still underserved by private lenders. 
Without agencies' initiative, needed adjustments might be substantially 
delayed.
  Federal agencies have been active in initiating automation and 
Internet-based services. PBGC has a pilot project that enables 
participants in certain PBGC-trusteed plans to calculate their 
approximate benefits online. VA recently developed web-based application 
that allows lenders to obtain appraiser assignments and loan numbers for 
VA loan applications. ED has undertaken an automation and modernization 
initiative to streamline the management of student financial assistance 
programs. Rural Utilities Service has made many forms available for 
download at its website.
  Many agencies have proposed to develop analytical models to improve 
risk management. SBA has been developing a loan monitoring system and an 
advanced subsidy-estimation model. Rural Housing Service have been 
working on models to evaluate the creditworthiness of borrowers. 
However, the progress has been slow in many cases.
  There have also been proposals for regulatory changes. FDIC recently 
made reform proposals ranging from merging bank and thrift insurance 
funds to refining risk-based premiums. FHA recently proposed a rule that 
would help to reduce fraudulent practices in the housing market. In 
general, however, credit and insurance agencies have not been very 
active in proposing regulatory changes. Given that individual agencies 
are on the frontiers of detecting changes in market conditions, they may 
need to take a more active role in bringing about regulatory changes 
that would improve the effectiveness and efficiency of their programs.

Federal Loan Asset Sales: A Current Issue in Improving Efficiency

  Federal loan asset sales provide an opportunity for agencies to 
achieve many of the efficiency gains already discussed. For programs 
where loan asset sales are appropriate, sales can free up existing 
agency resources to better serve their target population, lower the risk 
exposure of the Federal government, and create better overall management 
of Federal loan assets. In addition, while outsourcing specific 
functions, such as loan servicing, to the private sector has shown cost 
savings to the Government, outsourcing requires careful monitoring of 
the contractor. By selling the asset outright to the private sector, 
Federal agencies can further reduce administrative costs.
  At the end of 2000, the Federal Government held loan assets valued at 
$241 billion. Of the $241 billion, $208 billion were direct loans, and 
$33 billion were guaranteed loans acquired by the Federal Government 
after default. Both types of loans are eligible to be sold. Sale of 
Federal loan assets can provide several benefits to the Federal 
Government: revenues from sales, administrative cost savings, and 
management improvements. In a time of tight budgetary resources, it 
makes good sense to free up agency resources for redirection to core 
Governmental functions and outsource activities that are more 
efficiently done by the private sector. Agencies can use the freed-up 
financial and human resources to better target new lending to the right 
population, better manage the remaining portfolio, and improve 
technological areas where they are lagging, such as loan servicing and 
credit screening.
  The Debt Collection Improvement Act of 1996 (DCIA), which authorizes 
agencies to sell debt that is over 90 days delinquent, grew out of an 
increased recognition of the Government's inefficiency at managing 
poorly performing assets. For example, some agencies did not have a 
policy in place to take action when borrowers were delinquent or in 
default. The lack of an adequate policy resulted in unnecessarily large 
losses to the Government. In implementing the DCIA, OMB Circular A-129 
imposes a more stringent rule requiring agencies to sell loans that are 
over one year delinquent and loans for which collection action has been 
terminated. Circular A-129 also recommends that agencies develop plans 
for selling performing loans, thereby using asset sales as a portfolio 
management tool.
  To effectively conduct loan sales, agencies need to establish policies 
and procedures for tracking both performing and non-performing loans. 
These efforts will also help to improve overall portfolio management, 
resulting in reduced default rates and better cost estimates for future 
loans. Agencies may also acquire knowledge that helps to decide 
outsourcing of some functions such as loan servicing and liquidation.
  The bulk of Federal loan assets are held by five Federal credit 
agencies: Department of Veterans Affairs, Department of Agriculture, 
Department of Education, the Federal Housing Administration (FHA), and 
the Small Business Administration (SBA). To date, two agencies, FHA and 
SBA, have conducted loan asset sales, selling non-performing loans, 
which satisfies the DCIA provisions of selling delinquent loans, and 
selling performing loans as well. Successful sales to date by these two 
agencies have shown that loan assets can be priced advantageously to 
both the Government and the private sector due to the private sector's 
expertise and scale economies in loan servicing. Both agencies are 
currently planning future sales. The sales to date

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have generated revenue for the Government, while reducing the costs of 
maintaining and liquidating those assets. Other benefits of asset sales 
include the transfer of resources from certain credit program functions 
that are not inherently Governmental to core Governmental functions that 
are essential in carrying out the mission and overall improvements in 
asset management.

                      III.   CREDIT IN FOUR SECTORS

Housing Credit Programs and GSEs

  The Federal Government makes direct loans, provides loan guarantees, 
and enhances liquidity in the housing market to promote homeownership 
among low- and moderate-income people and to help finance rental housing 
for low-income people. While direct loans are largely limited to low-
income borrowers, loan guarantees are offered to a much larger segment 
of the population, including moderate-income borrowers. Increased 
liquidity achieved through GSEs benefits virtually all borrowers in the 
housing market, although it helps low and moderate-income borrowers 
more.
  The main government agencies and GSEs involved in housing finance are 
the Department of Housing and Urban Development (HUD), the Department of 
Veterans Affairs (VA), the Department of Agriculture (USDA), Fannie Mae, 
Freddie Mac, and the Federal Home Loan Bank System. In 2001, HUD, VA, 
and USDA supported $219 billion of direct loans and loan guarantees, 
contributing to a record high homeownership rate of 68.1 percent. 
Roughly one out of six single-family mortgages originated in the United 
States receives assistance from one of these programs.

Federal Housing Administration

  HUD's Federal Housing Administration (FHA) operates several insurance 
funds, the largest of which is the Mutual Mortgage Insurance Fund. FHA 
mortgage insurance is directed to expanding access to homeownership for 
people who lack the financial resources or credit history to qualify for 
a conventional home mortgage. In 2001, FHA insured $107 billion in 
mortgages for almost 1 million households, 10 percent more households 
than in 2000. The dollar volume of mortgages exceeded 2000 by 24 
percent, partially driven by the rapid increase in house prices and low 
interest rates.
  FHA has contributed significantly to the recent homeownership gains, 
but its target population of first-time home buyers is most at risk of 
surrendering these gains. After increasing significantly since 1994, the 
share of FHA's home purchase mortgages going to first-time home buyers 
and minority households dropped slightly in 2001. FHA helped its 
borrowers retain their homes by increasing use of loss mitigation tools 
(such as lender forbearance, loan modification, and partial claims) by 
62 percent over the previous year. The Budget will further protect home 
buyers from losing their homes by expanding HUD homeownership counseling 
to nearly twice as many families. HUD delivers both pre- and post-
purchase counseling services through a network of counseling agencies.
  Congress enacted a 2002 Budget proposal to allow FHA to insure a 
financial product that has gained popularity in the conventional 
market--hybrid adjustable-rate mortgages. Congress also clarified HUD's 
legal authority to operate FHA Credit Watch--a lender monitoring program 
that rates lenders by the performance of the loans they underwrite and 
allows FHA to sever relationships with those showing poor performance. 
Credit Watch is critical to protect the FHA Mutual Mortgage Insurance 
Fund from unexpected losses due to mismanagement and fraud.
  FHA combats fraud on many fronts, including predatory lending. The 
President's Management Agenda sets out several critical tasks for FHA to 
improve its risk management. FHA issued a proposed rule in 2001 that 
would prevent the predatory practice of property flipping, in which a 
lender and an appraiser conspire to sell a home at a falsely inflated 
price, thereby victimizing the borrower and exposing FHA to excessive 
losses. The Department is considering other regulatory changes to help 
prevent predatory lending.
  FHA Neighborhood Watch helps home buyers help themselves by providing 
an internet-accessible lender monitoring system. The system tracks each 
lender's defaults, by neighborhood, enabling a mortgage shopper to 
identify lenders with good records of mortgage performance in the 
shopper's local area. Lenders with high rates of defaulted loans are 
flagged as potential problems. The system also helps the industry self-
police; other financial institutions are unlikely to purchase FHA loans 
from a lender identified by Neighborhood Watch as high risk.

VA Housing Program

  The VA assists veterans, members of the Selected Reserve, and active 
duty personnel to purchase homes as a recognition of their service to 
the Nation. The program substitutes the Federal guarantee for the 
borrower's down payment. In 2001, VA provided $31 billion in guarantees 
to assist 252,700 borrowers. Both the volume of guarantees and the 
number of borrowers increased substantially from 2000 as lower interest 
rates increased loan originations and refinancings in the housing 
market.
  Since the main purpose of this program is to help veterans, lending 
terms are more favorable than market rates. In particular, VA guarantees 
zero down payment loans. As a result, the default rate is relatively 
high. The subsidy rate, however, declined slightly in 2001, thanks to 
efforts to reduce foreclosure rates and the strong housing market.
  In order to help veterans retain their homes and avoid the expense and 
damage to their credit resulting

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from foreclosure, VA plans aggressive intervention to reduce the 
likelihood of foreclosures when loans are referred to VA after missing 
three payments. VA was successful in 40 percent of their 2001 
interventions, and its goal is to maintain the 40 percent level in 2003. 
Future military base closures, however, may negatively affect the 
default rate in the VA guaranteed housing program. Guaranteed loans 
issued to active duty military and military reservists are vulnerable to 
the impact of base closures on the neighboring community. VA is 
continuing its efforts to reduce administrative costs through 
restructuring and consolidations.

Rural Housing Service

  USDA's Rural Housing Service (RHS) offers direct and guaranteed loans 
and grants to help very low- to moderate-income rural residents buy and 
maintain adequate, affordable housing. The single family guaranteed loan 
program guarantees up to 90 percent of a private loan for low to 
moderate-income rural residents. The program's emphasis is on reducing 
the number of rural residents living in substandard housing. In 2001, 
$2.4 billion of guarantees went to 31,000 households, of which 30 
percent went to low-income borrowers (with income 80 percent or less 
than median area income). For 2001, Congress statutorily increased the 
premium charged on the RHS single-family guarantees from 1 to 2 percent, 
which allowed RHS to provide more guarantees at less cost to the 
taxpayers.
  In the single family housing guaranteed loan program, lender 
monitoring and external audits have helped to identify program 
weaknesses, train servicers, and identify troubled lenders. RHS's 
guaranteed loan program is also moving toward automated underwriting. In 
2001, RHS continued to enhance an Internet-based system that will, with 
future planned improvements, provide the capacity to accept electronic 
loan originations from their participating lenders. Utilizing electronic 
loan origination technology will add significant benefits to loan 
processing efficiency and timeliness for RHS, the lenders, and 
customers. RHS continues to operate under the ``best practice'' for 
asset disposition for its guaranteed loan program. For single family 
guarantees, the lender is paid the loss claim, including costs incurred 
for up to three months after the default. After the loss claim is paid, 
RHS has no involvement in the loan, and it becomes the sole 
responsibility of the lender to dispose of the property.
  RHS programs differ from other Federal housing loan guarantee 
programs. RHS programs are means-tested and more accessible to low-
income, rural residents. In addition, the RHS direct loan program offers 
deeper assistance to very-low-income homeowners by reducing the interest 
rate down to 1 percent for such borrowers. The program helps the ``on 
the cusp'' borrower obtain a mortgage, and requires graduation to 
private credit as the borrower's income increases over time. The 
interest rate depends on the borrower's income. Each loan is reviewed 
annually to determine the interest rate that should be charged on the 
loan in that year based on the borrower's actual annual income.
  The program cost is balanced between interest subsidy and defaults. 
For 2003, RHS expects to provide $1 billion in loans with a subsidy cost 
of 19.37 percent. Its most recent and ongoing servicing improvement 
effort has been the implementation of the Dedicated Loan Origination 
Service System (DLOS), which centralized the servicing and monitoring of 
the direct loan program. DLOS, in conjunction with 2 major regulations 
implemented between 1996 and 1997, reduced RHS's direct loan subsidy 
rate by 40 percent. RHS has reduced default rates and losses. RHS also 
has less than 1,200 Real Estate Owned (REO) properties, which is less 
than 0.02 percent of the portfolio.
  RHS also offers multifamily housing loans. Direct loans are offered to 
private developers to construct and rehabilitate multi-family rental 
housing for very-low to low-income residents, elderly households, or 
handicapped individuals. These loans to developers are very heavily 
subsidized; the interest rate is between 1 and 2 percent. The Farm Labor 
Housing direct loans, which are similarly priced, help developers to 
provide rental units for minority farm workers and their families. RHS 
rental assistance grants supplement both of these loan programs in the 
form of project based rents for very low-income rural households (for 
renewals and new construction, the cost will be $712 million in 2003). 
RHS also offers guaranteed multifamily housing loans. RHS will address 
management issues in its multifamily housing portfolio in 2003 by 
restricting the $60 million loan level to repair and rehabilitation of 
it's existing portfolio (17,800 projects, 459,000 units). They will also 
conduct a study on how to fund new construction in a more cost efficient 
manner with the expectation that new construction will be a priority for 
the funds in future budgets. Farm labor housing will have a program 
level of $53 million and will provide for new construction.

Housing Finance Challenges and Opportunities

  Private banks, thrifts, and mortgage bankers, which originate the 
mortgages that FHA insures and VA and RHS guarantee, may deal with all 
three programs, as well as with the Government National Mortgage 
Association (Ginnie Mae, an agency of the Department of Housing and 
Urban Development), which guarantees timely payment on securities based 
on pools of these mortgages. In addition, the same private firms 
originate conventional mortgages, many of which are securitized by 
Government-sponsored enterprises--Fannie Mae and Freddie Mac.
  Many of these firms already use or are moving toward electronic loan 
origination and automated underwriting. Behind such underwriting are 
data warehouses that show default experience by type of loan, borrower 
characteristics, home location, originator, and servicer. Automated 
valuation models relate these factors to default cost, and provide 
comparative analysis of home sales data to estimate property collateral 
values with

[[Page 187]]

out relying on a human appraiser. After loan origination, software 
programs grade delinquent loans in terms of their credit and collateral 
risk and allow servicers to devote resources to the highest-risk loans.
  These technological developments offer challenges and opportunities to 
the Federal mortgage guarantors and Ginnie Mae. Federal credit program 
managers are challenged to make programs electronically accessible to 
their clients and loan originators. They are challenged to assess and 
monitor their risks more closely as private firms are reaching out to 
the better risks among their potential clients. They also have an 
opportunity to provide better service at a lower cost, to target their 
efforts to help borrowers retain their homes, and to reach further to 
bring affordable housing and homeownership opportunities to those who 
are not currently served.

  Data Sharing. Federal credit program managers are benefitting and 
would benefit more from additional data-sharing capability across the 
Government, which provides access to integrated information on program 
designs, borrower characteristics, and lender and loan performance.
  Loan Origination. Electronic underwriting provides convenient, faster 
service at a lower cost to both lenders and borrowers. Currently, both 
FHA and VA permit mortgage lenders to use approved automated 
underwriting systems, including Freddie Mac's ``Loan Prospector'' and 
Fannie Mae's ``Desktop Underwriter,'' to originate these loans. FHA, 
however, will soon deploy its ``Total Scorecard.'' By transitioning 
FHA's third party lenders to its own automated scorecard, FHA will 
improve its program controls and credit management. RHS is currently 
developing its own system and scorecard.
  Performance Measurement. As in underwriting, private firms are heavily 
involved in servicing Government-backed mortgages. Measurement of the 
private sector's servicing capacity is thus critical. The Government 
needs to improve its systems to measure this performance. For example, 
monthly data would not only give housing programs a better understanding 
of how their guarantee portfolios behave, but also serve as an early 
warning system and feedback mechanism. The Government could adjust 
underwriting standards or loan servicing requirements in quick response 
to changing market conditions.
  Managing Risk. Risk-based pricing is emerging in the conventional 
mortgage market as an important means by which lenders can take on more 
risk. Technology is giving lenders much more precise ability to assess 
the initial default risk associated with making a particular loan. This 
increasingly precise underwriting technology, in turn, allows lenders 
and insurers to adjust fees or loan rates to reflect risk accurately. 
Federal loan guarantee programs are assessing the impact of private 
sector customization on their loan portfolios, and adopting a similar 
pricing structure to avoid riskier customer composition and larger 
losses. FHA recently authorized annual premium cancellation at 78 
percent loan-to-value ratio. Proceeding cautiously, FHA will next 
explore varied pricing for its mortgage insurance based on risk factors 
such as impaired credit or limited resources, for borrowers who 
currently do not qualify for FHA insurance, to help achieve the 
President's goal of increasing homeownership. More flexible pricing 
would let FHA extend its reach and thereby enable more borrowers to 
purchase a first home at a reasonable mortgage cost.
  Asset Disposition. Common wisdom in the mortgage industry is to avoid 
foreclosure because that process involves significant losses, including 
costs for maintenance and marketing. Managers of Federal guarantee 
programs have found that the best practice is to allow the more 
experienced private sector to manage delinquent loans and dispose of 
properties. By 2003, FHA will move out of the property management 
business for the majority of its defaulted loans by implementing its 
statutory authority to accelerate the mortgage insurance claim process. 
The accelerated claim process will enable FHA to sell defaulted notes to 
the private sector for servicing and/or disposition, thereby reducing 
foreclosures and eliminating much of the acquisition of real property 
and increasing net recoveries by FHA.

Fannie Mae and Freddie Mac

  Fannie Mae and Freddie Mac were chartered by Congress to increase the 
liquidity of mortgages and to promote access to mortgage credit for 
households that historically have been underserved by private markets. 
They carry out this mission by purchasing and/or guaranteeing 
residential mortgages. The guaranteed loans are packaged for sale as 
mortgage-backed securities (MBS), which are held by general investors, 
mortgage lenders, and Fannie Mae and Freddie Mac themselves. The two 
GSEs finance their acquisitions of loans and MBS assets by issuing debt. 
In September 2001, Fannie Mae and Freddie Mac had $2.6 trillion 
outstanding in mortgages that they had purchased or guaranteed. Of this, 
$1.2 trillion was held in the GSEs' asset portfolios, and $1.4 trillion 
served as collateral for outstanding MBS not held in portfolio. 
Together, the two firms' purchases of single-family mortgages averaged 
63 percent of all conventional conforming mortgages originated in 
calendar years 1998-2000 measured by dollar value.
  Fannie Mae and Freddie Mac have grown faster than the mortgage market 
in recent years. From September 1997 to September 2001, their combined 
mortgage asset portfolios increased 150 percent in dollar volume, and 
their guarantees of MBS increased 40 percent. To fund their rapidly 
growing asset portfolios, Fannie Mae and Freddie Mac have increased 
their outstanding debt. The GSEs' combined debt outstanding rose from 
$518 billion at September 1997 to $1.26 trillion at the end of September 
2001, an annualized growth rate of nearly 25 percent a year.

[[Page 188]]

  Increased guarantee volume and retained portfolios imply increased 
credit and interest rate exposure. In recent years, both Fannie Mae and 
Freddie Mac have tried to limit their credit and interest rate risk 
using various risk management techniques such as credit enhancements, 
additional pool-level insurance supplementing primary mortgage 
insurance, long-term callable debt, interest rate swaps, and other 
hedging transactions. These risk management tools, however, do not 
eliminate all the risk associated with funding long-term, mostly fixed-
rate assets that have uncertain payment streams. Furthermore, the 
hedging transactions transform credit or interest rate risk into 
counterparty risk (the risk that the counterparty of a hedging 
transaction fails to honor the contract). Thus, the GSEs' management of 
counterparty risk is of increasing importance.
  The credit quality of mortgages owned or guaranteed by Fannie Mae and 
Freddie Mac has benefited in recent years from strong housing markets 
that have improved collateral values. More typical growth in house 
prices and a weaker economy might raise credit costs from the very low 
levels of recent years. The credit risk to the GSEs from new or 
outstanding loans is limited by their required use of mortgage insurance 
and other credit enhancements for loans with high loan-to-value (LTV) 
ratios. Both GSEs are increasingly active purchasers of subprime loans, 
and mortgages with very high LTV ratios, which now range up to 100 
percent. These loans tend to have more credit risk than the GSEs' 
traditional mortgage purchases.
  The Federal Housing Enterprises Safety and Soundness Act of 1992 
reformed Federal regulation of Fannie Mae and Freddie Mac. The Act 
created the Office of Federal Housing Enterprise Oversight (OFHEO) to 
conduct safety and soundness examinations and enforce minimum leverage 
and risk-based capital requirements on Fannie Mae and Freddie Mac. 
Examinations of the GSEs and enforcement of leverage capital ratios have 
proceeded since OFHEO's inception. Risk-based capital requirements were 
published in September 2001 and become fully enforceable in September 
2002.
  Fannie Mae and Freddie Mac took steps in 2001 to help the market 
identify any future change in their riskiness. The GSEs have committed 
to issue subordinated debt on a regular basis. Following a three-year 
phase-in period, subordinated debt will equal about 1.5 percent of their 
on-balance-sheet assets. Because holders of subordinated debt have a 
junior claim on the assets of the GSEs, subordinated debt prices tend to 
be more sensitive to marginal changes in risk. The price of the GSEs' 
subordinated debt, therefore, could provide a market signal of an 
increase in their riskiness.
  Because of the benefits derived from their unique Federal charters, 
Fannie Mae and Freddie Mac have lower costs of senior debt and obtain 
better pricing on securities' issuance. The Congressional Budget Office 
(CBO) estimates that, in 2000, these implicit subsidies combined with 
the GSEs' tax and regulatory exemptions were worth $10.7 billion. 
According to the study (``Federal Subsidies and the Housing GSEs,'' May 
2001), the GSEs passed along 64 percent of the $10.7 billion in implicit 
subsidy and tax and regulatory benefits to mortgage borrowers, while 36 
percent accrued to the benefit of the shareholders and other 
stakeholders of Fannie Mae and Freddie Mac.
  One of the GSEs' public purposes is to promote access to mortgage 
credit for low- and moderate-income families in underserved areas. 
Accordingly, the Secretary of Housing and Urban Development (HUD) 
establishes affordable housing goals for the GSEs. The goals effective 
for calendar years 2001-2003 require the following:
    50 percent of the total number of dwelling units financed by 
          each GSE's mortgage purchases are affordable by low- and 
          moderate-income families (Low- and Moderate-Income Housing 
          Goal);
    31 percent of the total number of dwelling units financed by 
          each GSE's mortgage purchases are in central cities, rural 
          areas, and other metorpolitan areas with low and moderate 
          income and high concentrations of minority residents 
          (Geographically Targeted Goal); and
    20 percent of the total number of dwelling units financed by 
          each GSE's mortgage purchases are special affordable housing 
          for very-low-income families and low-income families living in 
          low-income areas (Special Affordable Goal).
  Fannie Mae and Freddie Mac have met or exceeded the affordable housing 
goals since they were established in 1996. The GSEs' achievements, 
however, do not surpass the level of affordable lending in the 
conventional market. By the most recent estimate available, the 
conventional market's loans to low- and moderate-income families and 
families in underserved areas exceed the purchases of such mortgages by 
Fannie Mae and Freddie Mac. (See the table ``Mortgages to Target 
Populations.'')

[[Page 189]]



                                         Mortgages to Target Populations
                                                    (Percent)
----------------------------------------------------------------------------------------------------------------
                                                                     Low- and                         Special
                                                                     Moderate-    Geographically    Affordable
                                                                      Income         Targeted         Housing
----------------------------------------------------------------------------------------------------------------
 
Private market average*.........................................              56              33              28
Freddie Mac in 2000.............................................              50              29              21
Fannie Mae in 2000..............................................              49              31              19
HUD Goal for GSEs in 2000.......................................              42              24              14
----------------------------------------------------------------------------------------------------------------
Source: Department of Housing and Urban Development (HUD).
 
* Private market average 1995-98, the most recent market average available from HUD for the conventional
  conforming market. ``HUD's Regulation of Fannie Mae and Freddie Mac; Final Rule,'' Federal Register, October
  31, 2000, page 65055.


Federal Home Loan Bank System

  The Federal Home Loan Bank System (FHLBS) was established in 1932 to 
provide liquidity to home mortgage lenders. The FHLBS carries out this 
mission by issuing debt and using the proceeds to make advances (secured 
loans) to its members. Member institutions primarily secure advances 
with residential mortgages and other housing-related assets.
  The Gramm-Leach-Bliley (GLB) Act of 1999 repealed the requirement that 
federally chartered thrifts be members of the FHLBS. Membership is open 
to federally chartered and state-chartered thrifts, commercial banks, 
credit unions, and insurance companies on a voluntary basis. As of 
September 30, 2001, 7,897 financial institutions were FHLBS members, an 
increase of 177 over September 2000. About 73 percent of members are 
commercial banks, 19 percent are thrifts, and the remaining 8 percent 
are credit unions and insurance companies. However, 53.2 percent of 
outstanding FHLBS advances were held by thrifts as of September 30, 
2001.
  The FHLBS reported net income of $2.1 billion for the year ending 
September 30, 2001, down from $2.2 billion in the previous 12 months. 
System capital rose from $30.6 billion to $33.1 billion, while the ratio 
of capital to assets remained unchanged at 4.8 percent. Average return 
on equity was about 6.6 percent. Outstanding advances reached $466.8 
billion in September 2001, an 8.6 percent increase over the $429.8 
billion outstanding a year earlier. As of September 30, 2001, about 64 
percent of advances had a remaining maturity of greater than one year--
up from 52 percent one year earlier.
  The GLB Act requires the System to adopt a risk-based capital 
structure. On October 26, 2001, the Federal Housing Finance Board 
(Finance Board) approved a revised final capital standards rule. The 
rule covers System governance, stock issuance, and risk-based and 
leverage capital requirements. These new capital standards, when fully 
implemented, will replace the current ``subscription'' capital structure 
for the Federal Home Loan Banks (FHLBanks) with one that includes both 
risk-based and minimum leverage requirements. Each Bank will also be 
required to adopt and implement a capital plan consistent with 
provisions of the GLB Act and Finance Board regulations.
  The GLB Act changed the FHLBanks' annual payment towards the interest 
payments on bonds issued by the Resolution Funding Corporation (REFCorp) 
from $300 million annually to 20 percent of net earnings. The FHLBanks 
are required to pay the greater of 10 percent of net income or $100 
million to the Affordable Housing Program (AHP) and to provide 
discounted advances for targeted housing and community investment 
lending through a Community Investment Program.
  The FHLBS' exposure to credit risk on advances has traditionally been 
virtually nonexistent. All advances to member institutions are 
collateralized, and the FHLBanks can call for additional or substitute 
collateral during the life of an advance. No FHLBank has ever 
experienced a loss on an advance to a member. The System's investment 
activities, including mortgage purchase programs, create more risks. To 
control the System's risk exposure, the Finance Board has established 
regulations and policies that the FHLBanks must follow to evaluate and 
manage their credit and interest-rate risk. FHLBanks must file periodic 
compliance reports, and the Finance Board conducts an annual on-site 
examination of each FHLBank. Each FHLBank's board of directors must 
establish risk-management policies that comport with Finance Board 
guidelines.
  The FHLBanks held $22.6 billion in mortgage loans on September 30, 
2001, approximately 3.3 percent of total assets. The mortgage purchase 
programs offer members alternative ways of doing mortgage business. In 
one of these programs, the FHLBanks finance mortgage loans and assume 
the interest-rate and prepayment risks, while the members originate and 
service the loans and assume most of the credit risk. All assets held by 
an FHLBank under these mortgage purchase programs are required, pursuant 
to the terms of the program, to be credit enhanced to at least the level 
of an investment-grade security. In addition, an FHLBank must hold risk-
based capital against mortgage assets that have credit risk equivalent 
to an instrument rated lower than double A.
  The FHLBanks' investment activities also pose important public policy 
issues about the degree to which their asset composition adequately 
reflects the mission

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of the System. Although System investments other than advances rose to 
$194 billion through September 2001, compared to $178 billion a year 
earlier, as a percentage of total assets, those investments remained at 
28 percent. Like other Government Sponsored Enterprises (GSEs), the 
System issues debt securities at close to U.S. Treasury rates and 
invests the proceeds in higher-yielding securities. In 2001, the FHLBS 
issued $4.9 trillion in debt securities. However, the majority of the 
debt issued by the System is overnight or short-term, but 73 percent of 
debt outstanding had an original maturity of one year or longer, and 
total debt outstanding was about $611 billion at the end of 2001.
  An enormous, liquid, and efficient capital market exists for 
conventional home mortgages today. As a result of GSEs, Ginnie Mae, and 
the increasing presence of private securitizers, lenders have access to 
substantial liquidity sources, in addition to FHLBS advances, for 
financing home mortgages. The GLB Act further increases access to the 
FHLBS for community financial institutions with $527 million or less in 
assets by permitting advance borrowings that provide funds for small 
businesses, small farms, and small agri-businesses.

                   Education Credit Programs and GSEs

  The Federal Government guarantees loans through intermediary agencies 
and makes direct loans to students to encourage post-secondary 
education. The Student Loan Marketing Association (Sallie Mae), a GSE, 
securitizes guaranteed student loans.

Student Loans

  The Department of Education helps to finance student loans through two 
major programs: the Federal Family Education Loan (FFEL) program and the 
William D. Ford Federal Direct Student Loan (Direct Loan) program. 
Eligible institutions of higher education may participate in one or both 
programs. Loans are available to students regardless of income. 
Borrowers with low family incomes are eligible for higher interest 
subsidies. For need-based Stafford Loans, the Federal Government 
subsidizes interest costs while borrowers are in school, during a six-
month grace period after graduation, and during certain deferment 
periods.
  In 2003, more than 6 million borrowers will receive nearly 11 million 
loans totaling $53 billion. Of this amount, nearly $41 billion is for 
new loans, and the remainder is to consolidate existing loans. Loan 
levels have risen dramatically over the past 10 years as a result of 
rising educational costs, higher loan limits, and more eligible 
borrowers.
  The Federal Family Education Loan program provides loans through an 
administrative structure involving over 3,500 lenders, 36 State and 
private guaranty agencies, roughly 50 participants in the secondary 
market, and approximately 4,000 participating schools. Under FFEL, banks 
and other eligible lenders loan private capital to students and parents, 
guaranty agencies insure the loans, and the Federal Government reinsures 
the loans against borrower default. In 2003, FFEL lenders will disburse 
more than 7 million loans exceeding $35 billion in principal. Lenders 
bear two percent of the default risk, and the Federal Government is 
responsible for the remainder. The Department also makes administrative 
payments to guaranty agencies and pays interest subsidies to lenders.
  The William D. Ford Direct Student Loan program was authorized by the 
Student Loan Reform Act of 1993. Under Direct Loans, the Federal 
Government provides loan capital directly to roughly 1,200 schools, 
which then disburse loan funds to students. In 2003, the Direct Loan 
program will generate more than 3 million loans with a total value of 
over $18 billion. The program offers a variety of flexible repayment 
plans including income-contingent repayment, under which annual 
repayment amounts vary based on the income of the borrower and payments 
can be made over 25 years with any residual balances forgiven.
  Consolidation Loans, which allow borrowers to combine one or more 
FFEL, Direct Loan, or other Federal student loan into a single loan with 
a fixed interest rate, have grown dramatically in recent years. In 1995, 
Consolidation Loans totaled $3.6 billion, accounting for roughly 13 
percent of overall student loan volume. In 2001, the program had grown 
to more than $17 billion, making up approximately 33 percent of all 
student loan volume. This trend, which reflects a nearly five fold 
increase from 1995 to 2001, is expected to stabilize. Consolidation 
Loans are projected to be $17 billion in 2002 and decrease to $12 
billion in 2003. The 2001 spike in Consolidation Loan volume resulted 
from lower interest rates and a special discount offered to Direct Loan 
consolidators.
  For Fiscal Year 2003, the Administration is proposing to address the 
shortage of qualified, skilled math, science, and special education 
teachers in elementary and secondary schools by increasing the amount of 
forgivable guaranteed and direct student loans from $5,000 to $17,500 
for highly qualified teachers who teach math, science, or special 
education for five years in high-need schools. This proposal builds upon 
the teacher loan forgiveness program authorized in the 1998 Higher 
Education Amendments. High-need schools would include those with a high 
concentration of low-income students and those in which there is a large 
proportion of out-of-field math, science, and special education 
teachers.

Sallie Mae

  The Student Loan Marketing Association (Sallie Mae) was charted by 
Congress in 1972 as a for-profit, shareholder-owned, Government-
sponsored enterprise (GSE). Sallie Mae was privatized in 1997 pursuant 
to the au

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thority granted by the Student Loan Marketing Association Reorganization 
Act of 1996. The GSE is a wholly owned subsidiary of USA Education, Inc. 
and must wind down and be liquidated by September 30, 2008. The Omnibus 
Consolidated and Emergency Supplemental Appropriations for 1999 allows 
the USA Education, Inc. to affiliate with a financial institution upon 
the approval of the Secretary of the Treasury. Any affiliation will 
require the holding company to dissolve the GSE within two years of the 
affiliation date (unless such period is extended by the Department of 
the Treasury).
  Sallie Mae makes funds available for student loans by providing 
liquidity to lenders participating in the FFEL program. Sallie Mae 
purchases guaranteed student loans from eligible lenders and makes 
warehousing advances (secured loans to lenders). Generally, under the 
privatization legislation, the GSE cannot engage in any new business 
activities or acquire any additional program assets other than 
purchasing student loans. The GSE can continue to make warehousing 
advances under contractual commitments existing on August 7, 1997. 
Sallie Mae currently holds approximately 42 percent of all outstanding 
guaranteed student loans.

         Business and Rural Development Credit Programs and GSEs

  The Federal Government guarantees small business loans to promote 
entrepreneurship. The Government also offers direct loans and loan 
guarantees to farmers who may have difficulty obtaining credit elsewhere 
and to rural communities that need to develop and maintain 
infrastructure. Two GSEs, the Farm Credit System (FCS) and the Federal 
Agricultural Mortgage Corporation (Farmer Mac), increase liquidity in 
the agricultural lending market.

Small Business Administration

  The Small Business Administration (SBA), created in 1953, helps 
entrepreneurs start, sustain, and grow small businesses. As a ``gap 
lender'' SBA works to correct market imperfections and provide access to 
credit where private lenders are reluctant to do so without a government 
guarantee.
  The Administration's 2003 Budget anticipates that SBA's lending 
programs will make available capital resources of over $16 billion. The 
7(a) General Business Loan program will support approximately $4.85 
billion in guaranteed loans, while the 504 Certified Development Company 
program will support $4.5 billion in guaranteed loans. SBA will 
supplement the capital of Small Business Investment Companies (SBICs), 
which provide equity capital and long-term loans to small businesses, 
with $7 billion in participating securities and guaranteed debentures. 
In addition, SBA expects to provide $26 million in microloans, along 
with $17 million in technical assistance to increase the probability of 
borrower success.
  To continue to meet the needs of small businesses, SBA will focus 
program management in three areas: 1) providing economic relief to small 
businesses, 2) improving risk management, and 3) operating more 
efficiently.
  In the aftermath of the September 11th attacks, legislation was 
enacted to temporarily reduce fees for borrowers and lenders 
participating in the 7(a) General Business Loan program. As a result, 
the annual fee in the 7(a) program is reduced in half from 0.50 percent 
to 0.25 percent and up-front fees in the 7(a) program have been reduced 
in half to one percent for loans below $150,000. For loans between 
$150,000 and $700,000, the up-front fee was reduced to 2.5 percent (a 
reduction of one percentage point), and for loans above 700,000, the up-
front fee remains at 3.5 percent.
  As a result of the fee reductions, the subsidy rate for the 7(a) 
program has increased to 1.76 percent in 2003 from 1.07 percent in 2002. 
This increase in cost translates into a reduced program level of $4.85 
billion in 2003 from $9.3 billion in 2002. Given the additional cost and 
limited resources, the Administration will target funds to creditworthy 
small businesses most likely to be underserved by the commercial 
markets. While SBA can guaranty loans up to $1 million, the greatest 
need for government assistance is for loans below $150,000. Loans below 
$150,000 are usually for very small or start-up businesses. Lenders, 
however, are generally reluctant to make these loans due to high 
administrative costs and low financial returns. The SBA guarantee, along 
with the reduction in fees, will encourage banks to increase the number 
of loans they make that are below $150,000.
  Measuring and mitigating risks in SBA's $50 billion business loan 
portfolio is one of the agency's greatest challenges. As SBA delegates 
more authority to the private sector to administer SBA guaranteed loans, 
oversight functions become increasingly important. SBA has taken steps 
to improve oversight with the establishment of the Office of Lender 
Oversight, which will be responsible for evaluating individual SBA 
lenders. This office will employ a variety of analytical techniques to 
ensure strong performance, including overall financial performance 
analysis, industry concentration analysis, peer lending performance 
comparisons, SBA portfolio performance analysis, and selected credit 
reviews. The oversight program will also encompass on-site safety and 
soundness examinations and off-site monitoring of the Small Business 
Lending Companies (SBLCs) and compliance reviews of SBA lenders. This 
office will develop incentives for lenders to minimize defaults and 
performance measures to monitor results.
  SBA has been developing a Loan Monitoring System (LMS) which will 
support lender oversight functions by improving SBA's data collection 
and processing capabilities, providing a better interface with lenders, 
and helping to increase lender accountability. However,

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after five years and more than $30 million, the LMS project is behind 
schedule, over cost, and under performing. SBA will attempt to refocus 
the project to ensure successful implementation. The agency will refocus 
the project and by March 2002, develop a detailed plan for effective 
implementation.
  Improving risk management also means improving SBA's ability to more 
accurately estimate the cost of subsidizing small business loans. This 
will enable the agency to allocate resources more effectively, determine 
program risk more precisely, and increase the ability to target programs 
to the neediest populations. The Administration has made significant 
progress in improving the accuracy of the subsidy estimate in the 7(a) 
program. Reflecting long-term changes in the program, the 2003 budget 
uses an improved estimation method, resulting in a reduced program cost. 
To refine the estimation in future years, SBA is developing an 
econometric model, which integrates a variety of programmatic and 
economic changes that affect loan performance. SBA is also reviewing the 
cost estimation method for the 504 Certified Development Company 
Program.
  To operate more efficiently, SBA will automate loan origination 
activities in the disaster loan program with a paperless loan 
application. As a result, loan-processing costs, times, and errors will 
decrease, while government responsiveness to the needs of disaster 
victims will increase. While still in the design stage, SBA expects to 
begin full implementation of the paperless disaster loan application in 
2003. Additionally, because loan-servicing functions can be better 
performed by the private sector, SBA is privatizing these activities. 
The agency will therefore, focus its resources on core programs such as 
providing access to capital, technical assistance, and federal 
contracting opportunities. SBA is selling its current portfolio of 
defaulted guaranteed loans and direct loans. The agency has already sold 
more than $4 billion in such loans and will begin to reflect human 
resource and cost efficiencies that result from these sales.
  Still, with all of these management improvements, Government should 
only foster, not replace private-sector investment. As such, the 
Administration continues to seek alternative and innovative ways to 
support small business development. For instance, the advent of 
interstate banking and the Gramm-Leach-Bliley Financial Modernization 
Act of 1999 have expanded small businesses' access to capital. Banks 
have greater liberties to engage in merchant banking activities, 
including venture capital investments, allowing them to support small 
businesses in a variety of ways. While the Small Business Investment 
Company program has been effective in providing patient capital to small 
businesses, the venture capital market has matured over the last twenty 
years and may no longer need the same level of government intervention.
  Another way to support small business development is to provide 
financing opportunities beyond the limited 7(a) loan program, which 
historically has served less than one-tenth of one percent of the 
Nation's small businesses annually and provided less than one percent of 
annual small business lending. The Administration will work with the 
Congress, the lending community, and the small business communities to 
explore new approaches to insure that a greater number of the Nation's 
small businesses have adequate access to capital. One possible model is 
Capital Access Programs (CAPs). Many States participate in CAPs, but the 
programs are managed largely by private parties. Under a CAP program, 
the bank and the borrower pay an up-front insurance premium typically 
between three and seven percent of the loan amount into a reserve 
account, which is matched by the participating state government. CAPs or 
other innovative state programs that place greater emphasis on market 
solutions may point the way toward modernizing and complementing SBA's 
lending programs.

USDA Rural Infrastructure and Business Development Programs

  USDA provides grants, loans, and loan guarantees to communities for 
constructing facilities such as health-care clinics, day-care centers, 
and water and wastewater systems. Direct loans are available at lower 
interest rates for the poorest communities. These programs have very low 
default rates. The cost associated with them is due primarily to 
subsidized interest rates that are below the prevailing Treasury rates. 
The program level for the Water and Waste (W&W) loan and grant program 
in the 2003 President's Budget is $1.5 billion. These funds are 
available to communities of 10,000 or less residents. The program 
finances drinking water, sewer, solid waste disposal, and storm drainage 
facilities through direct or guaranteed loans and grants. In order to 
qualify, applicant communities must be unable to finance their needs 
through their own resources or with credit from commercial lenders. 
Priority is given to loans serving smaller communities that have greater 
financial need, based on their median household income, poverty levels, 
and size of service population as determined by the USDA's field office 
staff. The community typically receives a combination of loans and 
grants depending on how much they can afford. The grant is usually for 
35-45 percent of the project cost (it can be up to 75 percent). Loans 
are for 40 years with interest rates based on a three-tiered structure 
(poverty, intermediate, and market) depending on community income. The 
community facility programs are targeted to rural communities with fewer 
than 20,000 residents and have a program level of $477 million in 2003. 
USDA also provides grants, direct loans, and loan guarantees to assist 
rural businesses, including cooperatives, to increase employment and 
diversify the rural economy. In 2003, USDA proposes to provide $700 
million in loan guarantees to rural businesses (these loans serve 
communities of 50,000 or less).
  These community programs are all part of the Rural Community 
Advancement Program (RCAP). Under RCAP, States have increased 
flexibility within the three

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funding streams for Water and Wastewater, Community Facilities, and 
Business and Industry (B&I). USDA also provides loans through the 
Intermediary Relending Program (IRP), which provides loan funds at a 1 
percent interest rate to an intermediary such as a State or local 
government agency that, in turn, provides funds for economic and 
community development projects in rural areas. In 2002, USDA expects to 
retain or create 44,000 new jobs through the B&I guarantee and the IRP 
loan programs.

Electric and Telecommunications Loans

  USDA's rural electric and telecommunications program makes new loans 
to maintain existing infrastructure and to modernize electric and 
telephone service in rural America. Historically, the Federal risk 
associated with the $40 billion loan portfolio in electric and telephone 
loans has been small, although several large defaults occurred in the 
electric program. In 1997, $667 million, largely nuclear power 
construction loans, was written off, but this case was an exception.
  The subsidy rates for the electric and telecommunication programs 
remain low mainly due to low interest rates projected in the Budget. The 
default rates for both programs are very low. With increased 
deregulation, however, there is the possibility of increased defaults in 
the electric program because competition resulting from deregulation may 
erode the ability of some borrowers to repay. As information on the 
impact of deregulation increases, this risk will be factored into the 
default rates. The number of electric loans has been increasing due to 
large increases in loan level appropriated over the last several years. 
The average size for electric loans has also been increasing. The number 
and the size of telecommunications loans have remained steady.
  Maintaining the goal of ``affordable, universal service'' is of 
concern to USDA. Many rural cooperatives are by nature high cost 
providers of electricity because there are fewer subscribers per line-
mile than in urban areas. USDA's Rural Utilities Service (RUS) proposes 
to make $2.6 billion in direct and guaranteed loans in 2003 to rural 
electric cooperatives, public bodies, nonprofit associations, and other 
utilities in rural areas for generating, transmitting, and distributing 
electricity. Included in this funding request is $100 million for 
private sector guarantees. The demand for loans to rural electric 
cooperatives is expected to continue to rise as borrowers replace many 
of the 40-year-old electric plants.With the $2.6 billion in loans, RUS 
borrowers are expected to upgrade 225 rural electric systems, which will 
benefit over 3.4 million customers and create or preserve approximately 
50,000 jobs.
  USDA's RUS proposes to make $495 million in direct loans in 2003 to 
companies providing telecommunications in rural areas. The uses of the 
telecommunication loans are changing from bringing service to new 
customers to upgrading existing service with new technology. With the 
$495 million in loans, RUS borrowers are expected to fund over 50 
telecommunication systems for advanced telecommunications services. This 
funding will provide broadband and high-speed Internet access and 
benefit over 300 thousand rural customers.
  The Rural Telephone Bank (RTB) provides financing for rural 
telecommunications systems. The 2003 Budget proposes the elimination of 
funding to support new loans. This is expected to generate increased 
member and borrower support for statutorily authorized privatization. 
The RTB is financially able to privatize by the end of 2003, and this 
provides enough time to perform a privatization study and prepare for 
privatization. The RTB is provided full salaries and expenses to service 
existing loans, to perform a privatization study, and prepare for 
privatization by the end of 2003.
  The Distance Learning and Telemedicine program provides grants and 
loans to improve telemedicine and distance learning services in rural 
areas and encourage students, teachers, medical professionals, and rural 
residents to use telecommunications, computer networks, and related 
advanced technologies. With the $25 million in grants and $50 million in 
loans, RUS borrowers are expected to provide distance learning 
facilities to 300 schools, libraries, and rural education centers and 
telemedicine equipment to 150 rural health care providers, benefiting 
millions of residents in rural America. The loan level has been reduced 
to $50 million from $300 million due to low demand (average loan total 
per year is less than $20 million).
  There are various legislative actions that are impacting or will 
impact RUS. This includes the Local TV Act that provides authorization 
for RUS to provide loans to bring local television to rural customers. 
Funding was provided in the 2002 appropriations. The various Farm Bills 
being debated by Congress include changes to existing programs and 
authorization and/or funding for new programs.

Loans to Farm Operators

  Farm Service Agency (FSA) assists low-income family farmers in 
starting and maintaining viable farming operations. Emphasis is placed 
upon aiding beginning and socially disadvantaged farmers. FSA offers 
operating loans and ownership loans, both of which may be either direct 
or guaranteed loans. Operating loans provide credit to farmers and 
ranchers for annual production expenses and purchases of livestock, 
machinery, and equipment. Farm ownership loans assist producers in 
acquiring their farming or ranching operations. As a condition of 
eligibility for direct loans, borrowers must have been denied private 
credit at reasonable rates and terms, or they must be beginning or 
socially disadvantaged farmers. Loans are provided at Treasury rates or 
5 percent. As FSA is the ``lender of last resort,'' high defaults and 
delinquencies are inherent in the direct loan program; over $15 billion 
in direct farm loans have been written off since 1990.
  FSA guaranteed farm loans are made to more creditworthy borrowers who 
have access to private credit markets. Because the private loan 
originators must retain 10 percent of the risk, they exercise care in 
exam

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ining borrower repayment ability. As a result, guaranteed farm loans 
have not experienced losses as high as those on direct loans.
  The 1999 Appropriations Bill changed some of the servicing 
requirements for delinquent borrowers. A borrower who has received an 
FSA loan write-down or write-off may now be eligible for an additional 
farm operating loan when the borrower is current under a debt 
reorganization plan or in certain emergency circumstances. Property 
acquired through foreclosure on direct loans must now be sold at auction 
within 105 days of acquisition, and leasing of inventory property is no 
longer permitted except to beginning farmers. Prior to the 1996 Farm 
Bill, acquired property remained in inventory on average for five years 
before the FSA could dispose of it.
  The subsidy rates for these programs have been fluctuating over the 
past several years. These fluctuations are mainly due to the interest 
component of the subsidy rate. The default rates for these programs tend 
to be below ten percent. Guaranteed farm ownership loans have 
experienced a decreasing default rate. Though some direct loan programs 
have experienced an increase in the default rate in the last few years, 
the overall default rate for direct loan programs, which was as high as 
20 percent in 1996, has been reduced to 11 percent as of October 2001. 
In 2001, FSA provided loans and loan guarantees to over 29,000 family 
farmers totaling $3.2 billion. The number of loans provided by these 
programs have fluctuated over the past several years. The average size 
for farm loans has been increasing. The majority of assistance provided 
in the operating loan program is to existing FSA farm borrowers. In the 
farm ownership program, new customers receive the bulk of the benefits 
furnished.
  In the last few year, the demand for FSA direct and guaranteed loans 
have been high due to crop/livestock price decreases and some regional 
production problems. In 2003, USDA's FSA proposes to make $3.8 billion 
in direct and guaranteed loans through discretionary programs and $3.6 
billion in guaranteed loans through mandatory programs.

The Farm Credit System and Farmer Mac

  The Farm Credit System (FCS or System) and the Federal Agricultural 
Mortgage Corporation (Farmer Mac) are Government-sponsored Enterprises 
(GSEs) that enhance credit availability for the agricultural sector. The 
FCS provides production, equipment, and mortgage lending to farmers and 
ranchers, aquatic producers, their cooperatives, and related businesses, 
while Farmer Mac provides a secondary market for agricultural real 
estate and rural housing mortgages. Both GSEs face a business risk 
because their borrowers are generally dependent on a single economic 
sector, agriculture. The downturn in the agricultural sector in the 
1980s caused severe financial difficulties within the FCS. Legislation 
in 1987 provided temporary Federal assistance to the FCS and created 
Farmer Mac.
  The Nation's agricultural sector and its lenders continue to exhibit 
stability in their income and balance sheets, thanks in part to 
significant Government emergency assistance payments from 1998 through 
2001. The current economic downturn may not have a significant effect on 
the agricultural economy because the farm economic cycle doesn't quite 
coincide with the general economic cycle. Commodity prices remained low 
in 2001, and long-term forecasts are for very gradual recovery. Farm 
income levels, including Government payments, have enabled most 
borrowers to maintain low debt-to-asset ratios, and lenders to keep loan 
delinquencies well below problem thresholds. Farmland values gained 
modestly in 2000 (up 4.6 percent) due to a combination of government 
payments and urban influences. However, such aggregate facts may mask 
the problems of certain sectors within the farm economy.
  From 1986 to 2000, commercial banks' share of all farm debt increased 
from 26.5 percent to 41.6 percent, while the share for the FCS declined 
from 29.2 percent to 26.4 percent. The United States Department of 
Agriculture (USDA) direct farm loan programs went from a market share of 
15.4 percent to 4.0 percent, though that percentage would more than 
double if adjusted for its guaranteed loans issued through private 
institutional lenders. USDA expects that both commercial banks and the 
FCS have maintained their market share in 2001.

The Farm Credit System

  The financial condition of the Farm Credit System banks and 
associations during 2001 continued a 13-year trend of improving 
financial health and performance. Non-performing assets were 1.22 
percent of the portfolio in September 2001, unchanged from December 
2000, and down from 1.62 percent in 1999. Loan volume has increased 
since 1995 to $80.1 billion in September 2001, which is close to the 
high of $81.9 billion in the early 1980s. Competitive pressures have 
narrowed the FCS's net interest margin from 3.03 percent in 1995 to 2.79 
percent in 2000. The net interest margin has remained relatively stable 
about at the 2000 level in 2001. However, the net interest margin is 
expected to increase in the near-term, given that the Federal Reserve 
has significantly lowered short-term interest rates.
  Improved asset quality and income enabled FCS to post record capital 
levels: on September 30, 2001, capital stood at $15.7 billion--an 
increase of 9.2 percent for the year. Not included in this capital are 
investments set aside to repay the remaining amount ($1.3 billion) of 
Federal assistance provided through the Farm Credit System Financial 
Assistance Corporation. The System has adopted an annual repayment 
mechanism requiring FCS institutions to pre-fund its interest and 
principal repayment obligations for the Federal assistance. The FCS has 
further reduced its risk exposure by using marginal cost loan pricing 
and asset/liability management practices designed to reduce its interest 
rate risk. Substantial consolidation continues in the

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structure of the FCS. In January 1995, there were nine banks and 232 
associations; by October 2001, the numbers reduced to seven banks and 
115 associations. From October 2000 to October 2001, the number of 
associations fell by 43 because of mergers and acquisitions.
  The 1987 legislation established the Farm Credit System Insurance 
Corporation to insure timely payment of interest and principal on FCS 
obligations. The Insurance Fund's balances, largely comprised of 
premiums paid by FCS institutions, supplement the System's capital and 
the joint and several liability of all System banks for FCS obligations. 
On September 30, 2001, the Insurance Fund's net assets were $1.5 
billion, and were slightly below the statutory minimum of two percent of 
outstanding debt. The Insurance Corporation will resume premium 
collection from System institutions in 2002 to ensure that the Insurance 
Fund grows in concert with the growth in the System's outstanding debt 
caused by continued growth in its loan portfolio.
  Improvement in the FCS's financial condition is also reflected in the 
evaluations of FCS member institutions by the Farm Credit Administration 
(FCA), its Federal regulator. Each of the System institutions are rated 
under the FCA Financial Institution Rating System for capital, asset 
quality, management, earnings, liquidity, and sensitivity (CAMELS). At 
the beginning of 1995, 197 institutions carried the best CAMELS ratings 
of 1 or 2, 36 were rated 3, one institution was rated 4, and no 
institutions received the lowest rating of 5. In September 2001, in 
contrast, 121 institutions were given the top ratings, only one small 
association was rated 3, and none were rated 4 or 5. As of September 30, 
2001, there were no FCS institutions under an enforcement action.
  The System had $80.1 billion in gross loans outstanding as of 
September 30, 2001. Total loans outstanding have grown by $7.1 billion, 
or 9.8 percent, over the year ended September 30, 2001, and by $19.2 
billion, or 31.5 percent, over the past five years. The volume of 
lending secured by farmland has increased 34.2 percent, while farm-
operating loans have increased 40.8 percent since 1996. Total members 
served increased about 3 percent during the past year.
  Agricultural producers represented by far the largest borrower group, 
with $61.1 billion including loans to rural homeowners and leases, or 
more than three-quarters of the total dollar amount of loans 
outstanding. As required by law, all borrowers are also stockholder-
owners of System institutions. The System has more than 430,000 
stockholders; about 84 percent of these are farmers with voting stock. 
About half of the System's total loan volume outstanding (49.6 percent) 
is in long-term real estate loans, one-quarter (26.7 percent) in short- 
and intermediate-term loans to agricultural producers, and 20.4 percent 
to cooperatives. International loans (export financing) represent 3.3 
percent of the System's loan portfolio. Rural home loans make up about 
2.5 percent of total loans (included in long-term real estate loans). 
Loans to finance rural utilities (included in cooperative loans) 
comprise more than $6.5 billion, or 8.1 percent of overall loan volume; 
this segment has roughly doubled over the past five years. Lease 
receivables (included in both the long-term real estate loans and the 
short- and intermediate-term loan categories) account for about 3.6 
percent of the overall System portfolio.
  The USDA expects 2001 net farm income to be $49.4 billion, up 4.3 
billion, or 6.5 percent, from 2000. These strong expected earnings 
generally have relied heavily on government assistance payments in 
recent years. Federal payments averaging over $20 billion from 1999 to 
2001 (totaling over $90 billion from 1996 to 2001) to farmers and 
ranchers compensated for depressed commodity prices and declining 
exports. The System, while continuing to record strong earnings and 
capital growth, remains exposed to numerous risks, including 
concentration risk, changes in government assistance payments, the 
volatility of exports and crop prices, and lower non-farm earnings of 
farm households associated with weakness in the general economy.

Farmer Mac

  Farmer Mac was established in 1987 to create and oversee a secondary 
market for farm real estate and rural housing loans. Since the 
Agricultural Credit Act of 1987, there have been several amendments to 
Farmer Mac's chartering statute. Perhaps the most significant amending 
legislation for Farmer Mac was the Farm Credit System Reform Act of 1996 
that transformed Farmer Mac from a guarantor of securities backed by 
loan pools into a direct purchaser of mortgages, enabling it to form 
pools to securitize. The 1996 Act increased Farmer Mac's ability to 
achieve its statutory mission. Since the passage of the 1996 Act, loan 
purchases and guarantees have steadily increased, indicating positive 
progress in the development of a viable secondary market for 
agricultural mortgages.
  Farmer Mac continues to meet statutory minimum core capital 
requirements. Additionally, the FCA implemented in 2001 a risk-based 
capital regulation that determines the minimum level of regulatory 
capital necessary to enable Farmer Mac to maintain positive capital 
during the most stressful credit and interest rate risk conditions.

                      International Credit Programs

  Seven Federal agencies, the Department of Agriculture (USDA), the 
Department of Defense, the Department of State, the Department of the 
Treasury, the Agency for International Development (AID), the Export-
Import Bank, and the Overseas Private Investment Corporation (OPIC), 
provide direct loans, loan guarantees, and insurance to a variety of 
foreign private and sovereign borrowers. These programs are intended to 
level the playing field for U.S. exporters, deliver robust support for 
U.S. manufactured goods, sta

[[Page 196]]

bilize international financial markets, and promote sustainable 
development.

Leveling the Playing Field

  Federal lending counters subsidies that foreign governments, largely 
in Europe and Japan, provide their exporters usually through export 
credit agencies (ECAs). The U.S. government has worked since the 1970's 
to constrain official credit support through a multilateral agreement in 
the Organization for Economic Cooperation and Development (OECD). This 
agreement has significantly constrained direct interest rate subsidies 
and tied-aid grants. Further negotiations resulted in a multilateral 
agreement that standardized the fees for sovereign lending across all 
ECA's beginning in April 1999. Fees for non-sovereign lending, however, 
continue to vary widely across ECAs and markets, thereby providing 
implicit subsidies.
  The Export-Import Bank attempts to strategically ``level the playing 
field'' and to fill gaps in the availability of private export credit. 
The Export-Import Bank provides export credits, in the form of direct 
loans or loan guarantees, to U.S. exporters who meet basic eligibility 
criteria and who request the Bank's assistance. USDA's ``GSM'' programs 
similarly help to level the playing field. Like programs of other 
agricultural exporting nations, GSM programs guarantee payment from 
countries and entities that want to import U.S. agricultural products 
but cannot easily obtain credit. The U.S. has been negotiating in the 
OECD the terms of agricultural export financing, the outcome of which 
could affect the GSM programs.

Stabilizing International Financial Markets

  In today's global economy, the health and prosperity of the American 
economy depend importantly on the stability of the global financial 
system and the economic health of our major trading partners. The United 
States can contribute to orderly exchange arrangements and a stable 
system of exchange rates by providing resources on a multilateral basis 
through the IMF (discussed in other sections of the Budget), and through 
financial support provided by the Exchange Stabilization Fund (ESF).
  The ESF may provide ``bridge loans'' to other countries in times of 
short-term liquidity problems and financial crises. In the past, 
``bridge loans'' from ESF provided dollars to a country over a short 
period before the disbursement an IMF loan to the country. Also, a 
package of up to $20 billion of medium-term ESF financial support was 
made available to Mexico during its crisis in 1995. Such support was 
essential in helping to stabilize Mexican and global financial markets. 
Mexico paid back its borrowings under this package ahead of schedule in 
1997, and the United States earned almost $600 million in interest. 
There was zero subsidy cost for the United States as defined under 
credit reform, as the medium-term credit carried interest rates 
reflecting an appropriate country risk premium.
  The United States also expressed a willingness to provide ESF support 
in response to the financial crises affecting some countries such as 
South Korea in 1997 and Brazil in 1998. It did not prove necessary to 
provide an ESF credit facility for Korea, but the United States agreed 
to guarantee through the ESF up to $5 billion of a $13.2 billion Bank 
for International Settlements credit facility for Brazil. Such support 
helped to provide the international confidence needed by these countries 
to begin the stabilization process.

Using Credit to Promote Sustainable Development

  Credit is an important tool in U.S. bilateral assistance to promote 
sustainable development. In 2002, all of USAID's credit programs were 
consolidated to create the unified Development Credit Authority. 
Development Credit Authority (DCA) is a legislative authority allowing 
the use of credit by USAID to support its development activities abroad. 
This unit encompasses DCA activities as well as USAID's traditional 
microenterprise and urban environmental credit programs. DCA provides 
non-sovereign loans and loan guarantees in targeted cases where credit 
serves more effectively than traditional grant mechanisms to achieve 
sustainable development. DCA is intended to mobilize host country 
private capital to finance sustainable development in line with USAID's 
strategic objectives. Through the use of partial loan guarantees and 
risk sharing with the private sector, DCA stimulates private-sector 
lending for financially viable development projects, thereby leveraging 
host-country capital and strengthening sub-national capital markets in 
the developing world. The demand for DCA's facilities is prevalent in 
these emerging economies, but the utilization rate for these facilities 
is still very low. In 2003, DCA will be working towards strengthening 
their institutional capacity to conduct project oversight, risk 
analysis, and credit budgeting.
  OPIC also supports a mix of development, employment, and export goals 
by promoting U.S. direct investment in developing countries. OPIC 
pursues these goals through political risk insurance, direct loans, and 
guarantee products, which provide finance, as well as associated skills 
and technology transfers. These programs are intended to create more 
efficient financial markets, eventually encouraging the private sector 
to supplant OPIC finance in developing countries. OPIC has also created 
a number of investment funds that provide equity to local companies with 
strong development potential.

Ongoing Coordination

  International credit programs are coordinated through two groups to 
ensure consistency in policy design and credit implementation. The Trade 
Promotion Coordinating Committee (TPCC) works within the Administration 
to develop a National Export Strategy to make the delivery of trade 
promotion support more effective and convenient for U.S. exporters.
  The Interagency Country Risk Assessment System (ICRAS) standardizes 
the way in which agencies budget for the risk of international lending. 
The cost of lending

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by the agencies is governed by ratings and ICRAS default estimates. The 
methodology establishes assumptions about default risks in international 
lending using averages of international bond market data. The strength 
of this method is its link to the market.
  For 2003, OMB has updated the methodology using more sophisticated 
financial analyses and comprehensive market data. In particular, the new 
method better isolates the expected cost of default implicit in interest 
rates charged by private investors to sovereign borrowers. All else 
equal, this change will expand the level of international lending an 
agency can support with a given appropriation. For example, the Export-
Import Bank will be able to generally provide higher lending levels 
using lower appropriations in 2003.

Adapting to Changing Market Conditions

  Overall, officially supported finance and transfers account for a tiny 
fraction of international capital flows. Furthermore, the private sector 
is continuously adapting its size and role in emerging markets finance 
to changing market conditions. In response, the Administration is 
working to adapt international lending at Export-Import Bank and OPIC to 
dynamic private sector finance. The Export-Import Bank for example is 
developing a sharper focus on lending that would otherwise not occur 
without Federal assistance. Measures under development include reducing 
risks, collecting fees from program users, and improving the focus on 
exporters who truly cannot access private export finance.
  OPIC in the past has focused too narrowly on providing financing and 
insurance services to large U.S. companies investing abroad. As a 
result, OPIC did not pay adequate attention to its mission of promoting 
development through mobilizing private capital. OPIC is developing and 
will implement policy changes that reflect the Administration's mandate 
to return to its development mission.
  These changes at the Export-Import Bank and at OPIC will place more 
emphasis on correcting market imperfections as the private sector's 
ability to bear emerging market risks becomes larger, more 
sophisticated, and more efficient.
  The Budget requests a lower level for the Export-Import Bank than in 
prior years, but this level supports a projected increase over the 
Bank's level of lending in 2002. The Budget also restores OPIC credit 
subsidy for 2003.

                         IV. INSURANCE PROGRAMS

                            Deposit Insurance

  Federal deposit insurance was established in the depression of the 
1930s, which prompted the need to protect small depositors and prevent 
bank failures from causing widespread disruption in financial markets. 
Before the establishment of Federal deposit insurance, failures of some 
depository institutions often caused depositors to lose confidence in 
the banking system as a whole and rush to withdraw deposits from other 
institutions. Such sudden withdrawals would seriously disrupt the 
economy.
  The Federal Deposit Insurance Corporation (FDIC) insures the deposits 
in banks and savings associations (thrifts) through 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). Deposits are currently 
insured up to $100,000 per account. The FDIC insures a combined $3.2 
trillion of deposits at almost 8,200 commercial banks and over 1,500 
savings institutions. The NCUA insures 10,145 credit unions with $387 
billion in insured shares.

Current Industry and Insurance Fund Conditions

  The 1980s and early 1990s were a turbulent period for the banking 
industry, with over 1,400 bank failures and 1,100 thrift failures. The 
Federal Government responded with the Financial Institutions Reform, 
Recovery and Enforcement Act of 1989 and the Federal Deposit Insurance 
Corporation Improvement Act of 1991, which were largely designed to 
improve the safety and soundness of the banking system. These reforms, 
combined with more favorable economic conditions, helped to restore the 
health of depository institutions and the deposit insurance system.
  Despite the sluggish economic growth in the past year, depository 
institutions and their Federal insurance funds are in good financial 
condition overall. One thrift failed in 2001, becoming only the fourth 
SAIF-member to fail since 1996, but it was the largest failure of an 
FDIC-insured institution since June 1993. Three BIF members failed 
during 2001. Since 1997, assets associated with BIF failures have 
averaged $100 million per year. During 2001, 25 Federally insured credit 
unions with $22 million in assets failed (including assisted mergers). 
The FDIC currently classifies 94 institutions with $18 billion in assets 
as ``problem institutions,'' compared to 90 institutions with $19 
billion in assets a year ago.
  Bank earnings declined, but remained strong in 2001. The industry net 
income totaled $17.4 billion in the third quarter of 2001, a decline of 
9.9 percent from the third quarter of 2000. The largest factor in the 
earnings decline was a $4.8 billion (71.7 percent) increase in 
provisions for loan losses. Thrift earnings, on the other hand, 
continued to increase in 2001. Net income during fiscal year 2001 was 
$800 million higher than a year ago. These favorable conditions, 
however, may not last indefinitely. Many economic and institutional 
developments indicate that the industry currently faces numerous 
challenges. The current economic

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slowdown could put pressure on industry profits and, ultimately, on the 
deposit insurance funds.
  For both BIF and SAIF, the reserve ratio (ratio of insurance reserves 
to insured deposits) declined in 2001, but remained comfortably higher 
than the 1.25-percent statutory target. As of September 30, 2001, BIF 
had estimated reserves of $32 billion, or 1.32 percent of insured 
deposits. During the same period, SAIF had reserves of $10.8 billion, or 
1.39 percent of insured deposits. The FDIC continues to maintain deposit 
insurance premiums in a range from zero for the healthiest institutions 
to 27 cents per $100 of assessable deposits for the riskiest 
institutions. Due to the strong financial condition of the industry and 
the insurance funds, 92 percent of commercial banks and 90 percent of 
thrifts did not pay insurance premiums in 2001.
  The National Credit Union Share Insurance Fund (NCUSIF) also remains 
strong with assets of $4.9 billion. Each insured credit union is 
required to deposit and maintain an amount equal to 1 percent of its 
member share accounts in the fund. Premiums were waved during 2001 
because sufficient investment income was generated. After the end of the 
fiscal year, the NCUA Board approved a dividend to reduce the Fund's 
equity ratio to 1.30 percent. This was the sixth consecutive year that 
the Fund paid a dividend to federally insured credit unions.
  As a result of consolidation, a few large banks control a substantial 
share of banking assets. Thus, the failure of even one of these large 
institutions could strain the insurance fund. Banks are increasingly 
using sophisticated financial instruments such as asset-backed 
securities and financial derivatives, which could have unforeseen 
effects on risk levels. Whether or not these new instruments add to 
risk, they do complicate the work of regulators who must gauge each 
institution's financial health and the potential for deposit insurance 
losses that a troubled institution may represent.
  The Gramm-Leach-Bliley Act of 1999 allows new affiliations in the 
financial sector, enabling banks, security firms and insurance companies 
to be commonly owned. Over time, such expanded affiliations may make 
depository institutions safer by improving asset diversification. A 
recent development related to inter-industry mergers is that securities 
firms are indirectly offering insured accounts to their customers 
through their banking affiliates. Regulators will need to pay attention 
to this development because these account conversions increase insured 
deposits. For instance, since the end of March 2000, these types of 
conversions have added an estimated $73.3 billion to BIF-insured 
deposits and $4.4 billion to SAIF-insured deposits, accounting for 
almost 30 percent of the growth in all insured deposits.

On-going Issues

  While the deposit insurance system is in good condition, the 
Administration is developing proposals to strengthen the system further. 
The FDIC has been prohibited from charging premiums to ``well 
capitalized'' institutions since 1996. Therefore, under the current 
pricing structure, only eight percent of banks and 10 percent of thrifts 
pay regular insurance premiums. A stronger system might require all 
institutions pay at least a nominal amount for federal deposit insurance 
and would assess new deposits.
  Under the current system, the FDIC is required to maintain a 
designated reserve ratio (DRR, the ratio of insurance fund reserves to 
total insured deposits) of 1.25 percent. If the DRR falls below 1.25 
percent and cannot be restored to 1.25 percent within a year, all 
institutions could be required to pay premiums averaging 23 basis 
points. This current structure requires institutions to face a cliff of 
high premium payments when they are weakest. Again, a stronger system 
might replace the current fixed reserve ratio with a flexible range. 
Merging the funds would also make them stronger and better diversified 
than either fund standing alone. Additionally, given that many 
institutions currently hold both bank- and thrift-insured deposits, 
merging the funds would eliminate the need to track bank and thrift 
deposits separately and would help streamline mergers and acquisitions. 
The Administration, however, is not considering any proposals to raise 
the current deposit limit above $100,000.

                           Pension Guarantees

  The Pension Benefit Guaranty Corporation (PBGC) insures most defined-
benefit pension plans sponsored by private employers. PBGC pays the 
benefits guaranteed by law when a company with an underfunded pension 
plan becomes insolvent. PBGC's exposure to claims relates to the 
underfunding of pension plans, that is, to any amount by which vested 
future benefits exceed plan assets. In the near term, its loss exposure 
results from financially distressed firms with underfunded plans. In the 
longer term, additional loss exposure results from firms that are 
currently healthy but become distressed, and from changes in the funding 
of plans and their investment results.
  The number of plans insured by PBGC has been declining as small 
companies with defined-benefit plans terminate them and shift to 
defined-contribution pension arrangements such as 401(k) accounts. The 
number of plans with 1,000 or more participants, which include both 
retired workers (inactive members) and active workers, has increased 
slightly since 1980. However, the number of active workers in defined-
benefit plans declined from 27 million in 1988 to an estimated 22 
million in 1999, a decrease of 18 percent. If the trend continues, by 
2003 the number of inactive participants will exceed the number of 
active workers.
  The financial position of the PBGC, while still strong, weakened in 
2001 for the first time in eight years, largely due to losses from plan 
terminations and equity investments. Risk remains because of economic 
uncertainties. The risk has been reduced somewhat by steps

[[Page 199]]

taken by the Congress and PBGC. Congress enacted legislation to make 
insurance premiums more reflective of risk. Under its Early Warning 
Program, PBGC has negotiated 90 major settlements with companies, which 
have provided nearly $17.5 billion in extra contributions and other 
protections that improved pension security for over 2 million people and 
reduced PBGC's future exposure.
  PBGC's single-employer program experienced its largest loss in fifteen 
years, reflecting losses on equity investments, termination of 
Northwestern Steel and Wire's plans, and new probable terminations. 
Other large terminations during the year, booked previously, included 
some of the largest plans that PBGC has trusteed: TWA, Grand Union, 
Bradlees, and Laclede Steel. (In early 2002, Outboard Marine, also 
booked previously, terminated its plans.) In 2001, overall investment 
returns in the single-employer program were slightly negative, with 
negative returns in its trust funds, which hold mostly equities, and 
positive returns in PBGC's revolving funds, which are invested in U.S. 
Government securities. Premium revenues increased slightly. PBGC's 
multi-employer program, which guarantees pension benefits of certain 
unionized plans offered by several employers in an industry, remained 
financially strong, but experienced a loss for the year attributable to 
future financial assistance.
  PBGC continues to speed up issuance of benefit determinations so that 
when a participant retires, PBGC can put him or her into pay status with 
a final rather than estimated benefit amount, thereby providing the 
participant certainty and avoiding the processing complexities and costs 
associated with benefit adjustments. The average calculation time for 
benefit determinations issued in 2001 was 3.6 years, down from 4.9 years 
in 2000. Improved automated benefit calculation programs are reducing 
the cost of putting participants into pay status and helping to speed 
the process. This automation will help PBGC administer benefits for the 
89,000 participants taken in trusteeship in 2001, the largest increase 
in new participants in PBGC's history. PBGC is working to send first 
benefit checks more speedily. In 2001, 94 percent of pensioners got 
their first benefit checks within three months of completing their 
applications. PBGC also has established a pilot project that enables 
participants in certain plans to estimate their benefits online at 
PBGC's website.

                           Disaster Insurance

Flood Insurance

  The Federal Government provides flood insurance through the National 
Flood Insurance Program (NFIP), which is administered by the Federal 
Emergency Management Agency (FEMA). Flood insurance is available to 
homeowners and businesses in communities that have adopted and enforced 
appropriate flood plain management measures. Coverage is limited to 
buildings and their contents. By 2003, the program is projected to have 
approximately 4.6 million policies from more than 19,000 communities 
with $656 billion of insurance in force.
  Prior to the creation of the program in 1968, many factors made it 
cost prohibitive for private insurance companies alone to make 
affordable flood insurance available. In response, the NFIP was 
established to make insurance coverage widely available. The NFIP also 
requires building standards and other mitigation efforts to reduce 
losses, and operates a flood hazard mapping program to quantify the 
geographic risk of flooding. The NFIP has substantially met these goals.
  The number of policies in the program has grown significantly over 
time. The number of enrolled policies grew from 2.4 to 4.3 million 
between 1990 and 2001, and by about 78,000 policies in 2001. FEMA is 
using three strategies to increase the number of flood insurance 
policies in force: lender compliance, program simplification, and 
expanded marketing. FEMA is educating financial regulators about the 
mandatory flood insurance requirement for properties with mortgages from 
federally regulated lenders. The NFIP also has a multi-pronged strategy 
for reducing future flood damage. The NFIP offers mitigation insurance 
to allow flood victims to rebuild to code, thereby reducing future flood 
damage costs. Further, FEMA adjusts premium rates to encourage community 
and State mitigation activities beyond those required by the NFIP.
  Despite these efforts, the program faces major financial challenges. 
In some years, the program's financing account, which is a cash fund, 
has expenses greater than its revenue, preventing it from building 
sufficient long-term reserves. This is mostly because a large portion of 
the policyholders pay subsidized premiums. FEMA charges subsidized 
premiums for properties built before a community adopts the NFIP 
building standards. Properties built subsequently are charged 
actuarially fair rates. The creators of the NFIP assumed that eventually 
the NFIP would become self-sustaining as older properties left the 
program. The share of subsidized properties in the program has fallen, 
but remains substantial; it was 70 percent in 1978 and is 29 percent 
today.
  Until the mid-1980s, Congress appropriated funds periodically to 
support subsidized premiums. However, the program has not received 
appropriations since 1986. During the 1990s, FEMA relied on Treasury 
borrowing to help finance its loss expenses (the NFIP may borrow up to 
$1.5 billion). By February 2001, FEMA had repaid all of its accumulated 
debt to Treasury, but as of the end of 2001, outstanding borrowing stood 
at $600 million mainly due to Tropical Storm Allison.
  The 2003 Budget proposes several reforms to the program intended to 
improve its financial condition and to increase individual 
accountability for building in flood prone areas. Reforms include 
phasing out premium subsidies for vacation properties, including ero

[[Page 200]]

sion as a risk factor in determining flood premiums, ending state 
taxation of flood insurance, and requiring that properties with 
Federally backed mortgages be insured to value.

Crop Insurance

  Subsidized Federal crop insurance administered by USDA's Risk 
Management Agency (RMA) assists farmers in managing yield shortfalls due 
to bad weather or other natural disasters. Private companies are 
reluctant to offer multi-peril crop insurance without Government 
reinsurance because of the difficulty of limiting risk exposure; 
insurance companies are exposed to large losses because losses tend to 
occur across a wide geographic area. For example, a drought usually 
affects many farms at the same time. The USDA crop insurance program is 
a cooperative effort between the Federal Government and the private 
insurance industry. Private insurance companies sell and service crop 
insurance policies. The Federal Government reimburses private companies 
for the administrative expenses associated with providing crop insurance 
and reinsures the private companies for excess insurance losses on all 
policies. The Federal Government also subsidizes premiums for farmers. 
In crop year 2001, 207.6 million acres were insured, with an estimated 
$2,884 million in total premium income, including $1,723 million in 
premium subsidy.
  The dollar volume of total gains for the insurance companies went from 
$201 million to $378 million (a 88 percent increase) between 1999 and 
2001. While the companies should have an incentive to participate in the 
crop insurance program, there should be some constraints on windfall 
profits. With that in mind, the 2003 Budget includes a legislative 
proposal that would cap the underwriting gains to 12.5 percent of each 
company's premiums for the year. This is expected to save $115 million 
in 2003.
  There are various types of insurance programs. The most basic type of 
coverage is Catastrophic Crop Insurance (CAT), which compensates the 
farmer for losses up to 50 percent of the individual's average yield at 
55 percent of the expected market price. The CAT premium is entirely 
subsidized, and farmers pay only a small administrative fee. Commercial 
insurance companies deliver the product to the producer in all states. 
Additional coverage is available to producers who wish to insure crops 
above the basic coverage. Premium rates for additional coverage depend 
on the level of coverage selected and vary from crop to crop and county 
to county. The additional levels of insurance coverage are more 
attractive to farmers due to availability of optional units, other 
policy provisions not available with CAT coverage, and the ability to 
obtain a level of protection that permits them to use crop insurance as 
loan collateral and to achieve greater financial security. Private 
companies sell and adjust the catastrophic portion of the crop insurance 
program, and also provide higher levels of coverage, which are also 
federally subsidized. Approximately 73 percent of eligible acres 
participated in one or more crop insurance programs in 2001.
  Revenue insurance programs protect against loss of revenue stemming 
from low prices, poor yields, or a combination of both. The plans 
available are Revenue Coverage (CRC), Revenue Assurance (RA), and the 
Income Protection (IP) plan. These three plans have many similar 
features and some very distinctive features. All provide a guaranteed 
revenue by combining coverage on both yield and price variability. CRC 
and RA also provide protection against crop price changes. Indemnities 
are due when any combination of yield and price result in revenue that 
is less than the revenue guarantee. Revenue protection for all products 
is provided by extending traditional multi-peril crop insurance 
protection, based on actual production history, to include price 
variability. The price component common to CRC, RA, and IP uses the 
commodity futures market for price discovery. These programs all seek to 
help ensure a certain level of annual income and are offered through 
private insurance companies. For 1999, a Group Risk Income Protection 
plan was developed by the private sector to provide protection against 
decline in county revenue, based on futures market prices and NASS 
county average yields, as adjusted by FCIC. FCIC is also piloting an 
Adjusted Gross Revenue (AGR) program, which is designed to insure a 
portion of producers' gross revenue based on their Schedule F Farm and 
Income Tax reports.
  USDA continues to expand revenue coverage. RMA plans to roll out Round 
IV of the Dairy Options Pilot Program (DOPP) during 2002, which includes 
reaching producers in a total of 300 counties in 40 states. RMA's 
partners in the program are registered commodities brokers who are 
authorized by the Commodity Futures Trading Commission to buy put 
options on behalf of DOPP participants on the Chicago Mercantile 
Exchange. In September 2001, RMA published an interim rule that allows 
RMA to reimburse developers of private crop insurance products for their 
research and development costs and maintenance costs. In November 2001, 
two livestock pilot programs were approved--the Livestock Gross Margin 
and Livestock Risk Protection. The pilot livestock programs will cover 
swine in the State of Iowa and will be made available beginning in 2002.

[[Page 201]]

                                     



[[Page 202]]



                    Table 9-1.  ESTIMATED FUTURE COST OF OUTSTANDING FEDERAL CREDIT PROGRAMS
                                            (In billions of dollars)
----------------------------------------------------------------------------------------------------------------
                                                                     Estimated                      Estimated
                                                     Outstanding  Future Costs of   Outstanding  Future Costs of
                      Program                           2000            2000           2001            2001
                                                                  Outstanding \1\                Outstanding \1\
----------------------------------------------------------------------------------------------------------------
Direct Loans:\2\
  Federal student loan programs...................         80              10             90              11
  Farm Service Agency (excl. CCC), Rural                   46              11             46              10
   development, Rural housing.....................
  Rural Utilities Service and Rural telephone bank         33               2             31               2
  Housing and Urban Development...................         13               2             12               2
  Agency for International Development............         11               5             10               4
  P. L. 480.......................................         11               8             11               2
  Export-Import Bank..............................         11               5             12               4
  Commodity Credit Corporation....................          8               5              7               3
  Federal Communications Commission spectrum                8              -1              6     ...............
   auction........................................
  Disaster assistance.............................          6               1              4     ...............
  Other direct loan programs......................         13               3             13     ...............
                                                   -------------------------------------------------------------
    Total Direct Loans............................        241              50            242              38
                                                   -------------------------------------------------------------
Guaranteed Loans:\2\
  FHA-mutual mortgage insurance...................        450              -1            459               1
  Veterans housing................................        224               5            237               5
  Federal family education loan...................        144              12            159              14
  FHA-general and special risk....................         99               8             99               8
  Small business..................................         34               2             37               3
  Export-Import Bank..............................         30               5             31               4
  International assistance........................         19               1             19               2
  Farm Service Agency and Rural housing...........         20     ...............         22     ...............
  Commodity Credit Corporation....................          6               1              5     ...............
  Other guaranteed loan programs..................         16               3             16               2
                                                   -------------------------------------------------------------
    Total Guaranteed Loans........................      1,043              37          1,084              39
                                                   =============================================================
      Total Federal Credit........................      1,284              75          1,326              77
----------------------------------------------------------------------------------------------------------------
\1\ Direct loan future costs are the financing account allowance for subsidy cost and the liquidating account
  allowance for estimated uncollectible principal and interest. Loan guarantee future costs are estimated
  liabilities for loan guarantees.
\2\ Excludes loans and guarantees by deposit insurance agencies and programs not included under credit reform,
  such as CCC commodity price supports. Defaulted guaranteed loans which become loans receivable are accounted
  for as direct loans.


[[Page 203]]


  Table 9-2.   FACE VALUE OF GOVERNMENT-SPONSORED ENTERPRISE LENDING\1\
                        (In billions of dollars)
------------------------------------------------------------------------
                                                        Outstanding
                                                 -----------------------
                                                     2000        2001
------------------------------------------------------------------------
 
        Government Sponsored Enterprises:
 
Fannie Mae......................................       1,231       1,460
Freddie Mac.....................................         913       1,101
Federal Home Loan Banks \2\.....................         433         477
Sallie Mae \3\..................................  ..........  ..........
Farm Credit System..............................          68          75
                                                 -----------------------
    Total.......................................       2,645       3,113
------------------------------------------------------------------------
\1\ Net of purchases of federally guaranteed loans.
\2\ The lending by the Federal Home Loans Banks measures their advances
  to member thrift and other financial institutions. In addition, their
  investment in private financial instruments at the end of 2001 was
  $194 billion, including federally guaranteed securities, GSE
  securities, and money market instruments.
\3\ The face value and Federal costs of Federal Family Education Loans
  in the Student Loan Marketing Association's portfolio are included in
  the totals for that program under guaranteed loans in table 9-1.


[[Page 204]]


                                  Table 9-3.  REESTIMATES OF CREDIT SUBSIDIES ON LOANS DISBURSED BETWEEN 1992-2001 \1\
                                                 (Budget authority and outlays, in millions of dollars)
--------------------------------------------------------------------------------------------------------------------------------------------------------
                         Program                             1994       1995       1996       1997       1998       1999      2000      2001      2002
--------------------------------------------------------------------------------------------------------------------------------------------------------
Direct Loans:
 
Agriculture:
  Agriculture credit insurance fund.....................      -72         28          2        -31         23    .........       331      -656       921
  Farm storage facility loans...........................  .........  .........  .........  .........  .........  .........  ........  ........        -2
  Apple loans...........................................  .........  .........  .........  .........  .........  .........  ........  ........        -1
  Agricultural conservation.............................       -1    .........  .........  .........  .........  .........  ........  ........  ........
  Rural electrification and telecommunications loans....        *         61        -37         84    .........      -39    ........       -17  ........
  Rural telephone bank..................................        1    .........  .........       10    .........       -9    ........        -1  ........
  Rural housing insurance fund..........................        2        152         46        -73    .........       71    ........        19  ........
  Rural economic development loans......................  .........  .........  .........        1    .........       -1           *  ........  ........
  Rural development loan program........................  .........        1    .........  .........  .........       -6    ........  ........  ........
  Rural community advancement program \2\...............  .........  .........  .........        8    .........        5    ........        37  ........
  P.L. 480..............................................  .........  .........      -37         -1    .........  .........  ........       -23       110
  P.L. 480 title I food for progress credits............  .........  .........  .........  .........  .........  .........  ........  ........        28
 
Commerce:
  Fisheries finance.....................................  .........  .........  .........  .........  .........  .........  ........       -19        -1
 
Education:
  Federal direct student loans: \3\
    Technical reestimate................................  .........  .........        3        -83        172       -383      -2,158       560  ........
    Volume reestimate...................................  .........  .........  .........  .........  .........       22    ........        -6  ........
  College housing and academic facilities loans.........  .........  .........  .........  .........  .........  .........  ........        -1         *
 
Interior:
  Bureau of Reclamation loans...........................  .........  .........  .........  .........  .........  .........         3         3        -7
  Bureau of Indian Affairs direct loans.................  .........  .........  .........  .........  .........        1           5        -1         2
 
Transportation:
  High priority corridor loans..........................  .........  .........  .........  .........       -3    .........  ........  ........  ........
  Alameda corridor loan.................................  .........  .........  .........  .........  .........  .........       -58  ........       -50
  Transportation infrastructure finance and innovation..  .........  .........  .........  .........  .........  .........  ........        18  ........
 
Treasury:
  Community development financial institutions fund.....  .........  .........  .........  .........  .........  .........         1  ........         1
 
Veterans Affairs:
  Veterans housing benefit program fund.................      -39         30         76        -72        465       -111         -52      -107      -697
  Native American veteran housing.......................  .........  .........  .........  .........  .........  .........  ........  ........        -2
 
Environmental Protection Agency:
  Abatement, control and compliance.....................  .........  .........  .........  .........  .........  .........  ........         3        -1
 
Federal Emergency Management Agency:
  Disaster assistance...................................  .........  .........  .........  .........  .........  .........        47        36  ........
 
General Services Administration:
  Columbia hospital for women...........................  .........  .........  .........  .........  .........  .........  ........  ........        -6
 
International Assistance Programs:
  Foreign military financing............................  .........  .........  .........       13          4          1         152      -166       119
  U.S. Agency for International Development:
    Micro and small enterprise development..............  .........  .........  .........  .........  .........  .........  ........  ........         *
  Overseas Private Investment Corporation:
    OPIC direct loans...................................  .........  .........  .........  .........  .........  .........  ........  ........        -9
  Debt reduction........................................  .........  .........  .........  .........  .........  .........        36        -4  ........
 
Small Business Administration:
  Business loans........................................  .........  .........  .........  .........  .........  .........  ........         1        -2
  Disaster loans........................................  .........  .........  .........  .........     -193        246        -398      -282       347
 
Other Independent Agencies:
  Export-Import Bank direct loans.......................      -28        -16         37    .........  .........  .........      -177       157       117
  Federal Communications Commission spectrum auction....  .........  .........  .........  .........    4,592        980      -1,501      -804        92
 
Loan Guarantees:
 
Agriculture:
  Agriculture credit insurance fund.....................        5         14         12        -51         96    .........       -31       205        46
  Agriculture resource conservation demonstration         .........  .........  .........  .........  .........  .........  ........         2         2
   project..............................................
  Commodity Credit Corporation export guarantees........        3        103       -426        343    .........  .........  ........    -1,410         2
  Rural development insurance fund......................       49    .........  .........       -3    .........  .........  ........  ........  ........
  Rural housing insurance fund..........................        2         10          7        -10    .........      109    ........       152  ........
  Rural community advancement program \2\...............  .........  .........  .........      -10    .........       41    ........        63  ........
  P.L. 480 title I food for progress credits............  .........       84        -38    .........  .........  .........  ........  ........  ........
 
Commerce:
  Fisheries finance.....................................  .........  .........  .........  .........       -2    .........  ........        -3        -1
 

[[Page 205]]

 
Education:
  Federal family education loan: \3\
    Technical reestimate................................       97        421         60    .........  .........     -140         667    -3,484  ........
    Volume reestimate...................................  .........  .........      535         99    .........      -13         -60       -42  ........
 
Health and Human Services:
  Heath center loan guarantees..........................  .........  .........  .........  .........  .........  .........         3  ........         *
  Health education assistance loans.....................  .........  .........  .........  .........  .........  .........  ........  ........  ........
 
Housing and Urban Development:
  Indian housing loan guarantee.........................  .........  .........  .........  .........  .........  .........  ........        -6         *
  FHA-mutual mortgage insurance.........................  .........  .........  .........     -340    .........    3,789    ........     2,413    -1,386
  FHA-general and special risk \4\......................     -175    .........     -110        -25        743         79    ........      -217      -403
 
Interior:
  Bureau of Indian Affairs guaranteed loans.............  .........  .........  .........       31    .........  .........  ........       -14        -1
 
Transportation:
  Maritime guaranteed loans (title XI)..................  .........  .........  .........  .........  .........      -71          30       -15       184
 
Veterans Affairs:
  Veterans housing benefit fund program.................     -447        167        334       -706         38        492         229      -770      -163
 
International Assistance Programs:
  U.S. Agency for International Development:
    Housing guaranty....................................       -2         -1         -7    .........      -14    .........  ........  ........  ........
    Development credit authority........................  .........  .........  .........  .........  .........  .........  ........  ........        -1
    Micro and small enterprise development..............  .........  .........  .........  .........  .........  .........  ........  ........        -1
    Urban and environmental credit......................  .........  .........  .........  .........  .........  .........  ........  ........       -13
    Assistance to the new independent states of the       .........  .........  .........  .........  .........  .........  ........  ........       -25
     former Soviet Union................................
  Overseas Private Investment Corporation:
    OPIC guaranteed loans...............................  .........  .........  .........  .........  .........  .........  ........  ........        46
 
Small Business Administration:
  Business loans........................................  .........  .........      257        -16       -279       -545        -235      -528      -183
 
Other Independent Agencies:
  Export-Import Bank guarantees.........................      -11        -59         13    .........  .........  .........      -191    -1,520      -417
                                                         -----------------------------------------------------------------------------------------------
    Total...............................................     -616        995        727       -832      5,642      4,518      -3,641    -6,427    -1,355
 
--------------------------------------------------------------------------------------------------------------------------------------------------------
* $500 thousand or less.
\1\ Excludes interest on reestimates. Additional information on credit reform subsidy rates is contained in the Federal Credit Supplement.
\2\ Includes rural water and waste disposal, rural community facilities, and rural business and industry programs.
\3\ Volume reestimates in mandatory loan guarantee programs represent a change in volume of loans disbursed in the prior years. These estimates are the
  result of guarantee programs where data from loan issuers on actual disbursements of loans are not received until after the close of the fiscal year.
\4\ 1999 figure includes interest on reestimate.


[[Page 206]]


                                   Table 9-4.  DIRECT LOAN SUBSIDY RATES, BUDGET AUTHORITY, AND LOAN LEVELS, 2001-2003
                                                              (dollar amounts in millions)
--------------------------------------------------------------------------------------------------------------------------------------------------------
                                                                      2001 Actual                    2002 Enacted                  2003 Proposed
                                                            --------------------------------------------------------------------------------------------
                     Agency and Program                                 Subsidy                        Subsidy                        Subsidy
                                                              Subsidy    budget   New loan   Subsidy    budget   New loan   Subsidy    budget   New loan
                                                             rate \1\  authority   levels   rate \1\  authority   levels   rate \1\  authority   levels
--------------------------------------------------------------------------------------------------------------------------------------------------------
Agriculture:
  Agricultural credit insurance fund.......................     15.36        164     1,068      6.78         60       885     14.09        113       802
  Farm storage facility loans..............................      2.18          2        86      2.42          3       125      1.28          2       125
  Apple loans..............................................     -4.80         -1        12  ........  .........  ........  ........  .........  ........
  Emergency boll weevil loan...............................     60.00          6        10  ........  .........  ........  ........  .........  ........
  Rural community advancement program......................     12.64        155     1,226      6.56         74     1,128     10.15        108     1,064
  Rural electrification and telecommunications loans.......     -0.52        -16     3,051     -0.54        -24     4,466     -0.66        -20     3,016
  Rural telephone bank.....................................      1.48          3       175      2.14          4       175  ........  .........  ........
  Distance learning and telemedicine program...............     -0.75         -3       400  ........  .........       380      2.31          3       130
  Farm labor...............................................     52.59         15        28     47.31         13        28     49.02         18        36
  Rural housing insurance fund.............................     19.35        239     1,235     16.11        201     1,248     20.86        224     1,074
  Rural development loan fund..............................     50.91         19        38     43.21         16        38     48.26         19        40
  Rural economic development loans.........................     26.07          4        15     24.16          4        15     21.36          3        15
  Public law 480 title I...................................     71.51        114       159     81.73        127       155     75.11         99       132
 
Commerce:
  Fisheries finance........................................  ........  .........        74    -12.50         -3        24    -12.50         -3        24
 
Defense--Military:
  Family housing improvement fund..........................     38.18         42       110     66.19         24        36     45.10  .........  ........
 
Education:
  Federal direct student loan program......................     -4.47       -891    19,914     -4.02       -855    21,266     -3.50       -648    18,843
 
Housing and Urban Development:
  FHA-mutual mortgage insurance............................  ........  .........         1  ........  .........       250  ........  .........        50
  FHA-general and special risk.............................  ........  .........        50  ........  .........        50  ........  .........        50
 
Interior:
  Bureau of Reclamation loan...............................     33.33          9        27     26.92          7        26  ........  .........  ........
  Assistance to territories................................     15.58          3        19  ........  .........  ........  ........  .........  ........
 
State:
  Repatriation loans.......................................     80.00          1         1     80.00          1         1     80.00          1         1
 
Transportation:
  Federal-aid highways.....................................     10.99         96       874      5.36        118     2,200      4.42         89     2,014
  Railroad rehabilitation and improvement program..........  ........  .........  ........  ........  .........       150  ........  .........       100
 
Treasury:
  Community development financial institutions fund........     41.67          5        12     36.36          4        11     36.94          4        11
 
Veterans Affairs:
  Veterans housing benefit program fund....................      2.16         32     1,463      0.86         16     1,809     -5.09        -98     1,917
  Miscellaneous veterans housing loans.....................      7.72  .........         1      7.72  .........  ........     43.48         10        23
  Miscellaneous veterans programs loan fund................      1.88  .........         2      2.18  .........         3      1.50  .........         3
 
Federal Emergency Management Agency:
  Disaster assistance direct loan..........................      8.00          2        25     91.92  .........        25     -4.00         -1        25
 
International Assistance:
  Debt restructuring.......................................  ........         88  ........  ........          5  ........  ........  .........  ........
  Overseas Private Investment Corporation..................      7.11         15       204     11.00  .........  ........     11.00         11       100
 
Small Business Administration:
  Disaster loans...........................................     17.47        153       876     17.67        162       917     13.94         76       545
  Business loan............................................      8.95          3        30      6.78          2        26     13.05          3        27
 
Other Independent Agencies:
  Export-Import Bank loans.................................     10.91         95       871     21.74         35       161     17.32         31       179
                                                            --------------------------------------------------------------------------------------------
    Total..................................................       N/A        354    32,057       N/A         -6    35,598       N/A         44    30,346
--------------------------------------------------------------------------------------------------------------------------------------------------------
\1\  Additional information on credit subsidy rates is contained in the Federal Credit Supplement.
N/A = Not applicable.


[[Page 207]]


                                  Table 9-5. LOAN GUARANTEE SUBSIDY RATES, BUDGET AUTHORITY, AND LOAN LEVELS, 2001-2003
                                                              (dollar amounts in millions)
--------------------------------------------------------------------------------------------------------------------------------------------------------
                                                                      2001 Actual                    2002 Enacted                  2003 Proposed
                                                            --------------------------------------------------------------------------------------------
                     Agency and Program                                 Subsidy                        Subsidy                        Subsidy
                                                              Subsidy    budget   New loan   Subsidy    budget   New loan   Subsidy    budget   New loan
                                                             rate \1\  authority   levels   rate \1\  authority   levels   rate \1\  authority   levels
--------------------------------------------------------------------------------------------------------------------------------------------------------
Agriculture:
  Agricultural credit insurance fund.......................      4.41        102     2,314      3.98        128     3,220      3.23         97     3,000
  Commodity Credit Corporation export loans................      6.01        194     3,227      6.80        267     3,926      6.96        294     4,225
  Rural community advancement program......................      0.67         18     2,668      2.46         25     1,018      2.65         27     1,018
  Rural electrification and telecommunications loans.......      0.01  .........        59      0.08  .........       100      0.08  .........       100
  Local television loan guarantee..........................  ........  .........  ........      7.75         20       258  ........  .........  ........
  Rural housing insurance fund.............................      0.28          9     3,236      1.36         44     3,238      0.84         24     2,850
 
Commerce:
  Emergency oil and gas guaranteed loan....................     32.91          1         3     42.03  .........  ........  ........  .........  ........
  Emergency steel guaranteed loan..........................     11.68         13       110     14.00         31       221  ........  .........  ........
 
Defense--Military:
  Family housing improvement fund..........................      6.25          3        48      6.25         12       221      5.66  .........  ........
 
Education:
  Federal family education loan............................      8.84      3,069    34,705      9.76      3,782    38,750     10.37      4,101    39,559
 
Health and Human Services:
  Health resources and services............................      3.01  .........         7      4.76          1        21      5.88          1        17
 
Housing and Urban Development:
  Indian housing loan guarantee fund.......................      8.13          1        12      2.47          6       234      2.43          5       194
  Native Hawaiian housing loan guarantee fund..............  ........  .........  ........      2.47          1        40      2.43          1        40
  Native American housing block grant......................     11.07          1         9     11.07          6        53     11.07          2        17
  Community development loan guarantees....................      2.30         29     1,258      2.30         14       609      2.30          6       275
  FHA-mutual mortgage insurance............................     -2.15     -2,246   160,000     -2.07     -2,791   160,000     -2.53     -2,938   160,000
  FHA-general and special risk.............................     -0.14         36    21,000     -1.46       -242    21,000     -0.85       -158    21,000
 
Interior:
  Indian guaranteed loan...................................      6.73          4        60      6.00          4        75      6.91          5        72
 
Transportation:
  Minority business resource center program................      2.69          2        14      2.70          1        18      2.69          1        18
  Federal-aid highways.....................................  ........  .........  ........      3.97          8       200      4.35          5       100
  Maritime guaranteed loan (title XI)......................      4.66         34       729      5.00         33       660  ........  .........  ........
 
Treasury:
  Air transportation stabilization.........................  ........  .........  ........     28.52      1,426     5,000     29.26      1,463     5,000
 
Veterans Affairs:
  Veterans housing benefit program fund....................      0.41        132    31,948      0.56        187    33,286      1.27        437    34,364
  Miscellaneous veterans housing loans.....................     48.25  .........  ........     48.25  .........  ........  ........  .........  ........
 
International Assistance:
  Microenterprise and small enterprise development.........      5.51          2        36      3.93  .........  ........  ........  .........  ........
  Development credit authority.............................      2.72          1        35      6.42         13       202      6.44  .........  ........
  Overseas Private Investment Corporation..................      1.37         14     1,024      1.65  .........  ........      1.70         13       765
 
Small Business Administration:
  Business loan............................................      0.96        135    13,990      0.68        153    22,458      0.52         85    16,350
 
Other Independent Agencies:
  Export-Import Bank loans.................................      8.81        737     8,370      9.68        991    10,239      5.52        625    11,321
  Presidio Trust...........................................      0.46  .........  ........      0.12  .........       200      0.13  .........  ........
                                                            --------------------------------------------------------------------------------------------
    Total..................................................       N/A      2,291   284,862       N/A      4,120   305,247       N/A      4,096   300,285
                                                            --------------------------------------------------------------------------------------------
 ADDENDUM: SECONDARY GUARANTEED LOAN COMMITMENT LIMITATIONS
 
GNMA:
  Guarantees of mortgage-backed securities loan guarantee..     -0.36       -356   200,000     -0.33       -398   200,000     -0.33       -398   200,000
--------------------------------------------------------------------------------------------------------------------------------------------------------
\1\  Additional information on credit subsidy rates is contained in the Federal Credit Supplement.
N/A = Not applicable.


[[Page 208]]


                         Table 9-6.  SUMMARY OF FEDERAL DIRECT LOANS AND LOAN GUARANTEES
                                            (In billions of dollars)
----------------------------------------------------------------------------------------------------------------
                                                             Actual                                 Estimate
                                --------------------------------------------------------------------------------
                                   1995     1996     1997     1998     1999     2000     2001     2002     2003
----------------------------------------------------------------------------------------------------------------
Direct Loans:
    Obligations................     30.9     23.4     33.6     28.8     38.4     37.1     39.1     47.3     39.9
    Disbursements..............     22.0     23.6     32.2     28.7     37.7     35.5     37.1     43.3     37.3
    New subsidy budget           .......  .......  .......     -0.8      1.6     -0.4      0.3  .......  .......
     authority.................
    Reestimated subsidy budget   .......  .......  .......      7.3      1.0     -4.4     -1.8      1.2  .......
     authority \1\.............
    Total subsidy budget             2.6      1.8      2.4      6.5      2.6     -4.8     -1.5      1.2  .......
     authority \2\.............
 
Loan Guarantees: \3\
    Commitments................    138.5    175.4    172.3    218.4    252.4    192.6    256.4    293.5    282.8
    Lender disbursements.......    117.9    143.9    144.7    199.5    224.7    180.8    212.9    253.6    247.5
    New subsidy budget           .......  .......  .......      3.3  .......      3.3      1.9      3.7      3.7
     authority.................
    Reestimated subsidy budget   .......  .......  .......     -0.7      4.3      0.3     -7.1     -3.0  .......
     authority \1\.............
    Total subsidy budget             4.6      4.0      3.6      2.6      4.3      3.6     -5.2      0.7      3.7
     authority \2\.............
----------------------------------------------------------------------------------------------------------------
\1\ Includes interest on reestimate.
\2\ Prior to 1998 new and reestimated subsidy budget authority were not reported separately.
\3\ GNMA secondary guarantees of loans that are guaranteed by FHA, VA and RHS are excluded from the totals to
  avoid double-counting.


[[Page 209]]


                 Table 9-7. DIRECT LOAN WRITE-OFFS AND GUARANTEED LOAN TERMINATIONS FOR DEFAULTS
----------------------------------------------------------------------------------------------------------------
                                                 (Dollar amounts in millions)    As a percentage of outstanding
                                               --------------------------------             loans \1\
              Agency and Program                                               ---------------------------------
                                                   2001       2002      2003       2001        2002       2003
                                                 actual     estimate  estimate   actual      estimate   estimate
----------------------------------------------------------------------------------------------------------------
             DIRECT LOAN WRITEOFFS
 
Agriculture:
  Agricultural credit insurance fund..........        176        247       242        1.98       2.87       2.97
  Rural community advancement program.........          1   ........  ........        0.01  .........  .........
  Rural electrification and telecommunications      2,953        142       130        9.69       0.46       0.41
   loans......................................
  Rural development insurance fund............          1          1         1        0.03       0.03       0.03
  Rural housing insurance fund................        214        139       134        0.76       0.50       0.48
  Rural development loan fund.................          1   ........  ........        0.27  .........  .........
 
Commerce:
  Economic development revolving fund.........          1          1         1        2.85       3.22       3.70
 
Education:
  Student financial assistance................          9          9         9        1.47       1.49       1.53
 
Housing and Urban Development:
  Revolving fund (liquidating programs).......         47          2         2       58.75      11.76      14.28
  FHA--Mutual mortgage insurance..............  ..........         1         9  ..........       3.70      19.14
  Flexible subsidy fund.......................         71         71        71       10.51      11.52      12.97
  Guarantees of mortgage-backed securities....          4         27        25        3.66      27.00      30.48
 
Interior:
  Indian direct loan..........................          2          2         2        3.22       3.70       4.25
 
State:
  Repatriation loans..........................          1          1         1       25.00      25.00      25.00
 
Veterans Affairs:
  Veterans housing benefit program............         21         24        25        1.15       1.23       1.37
 
Federal Emergency Management Agency:
  Disaster assistance.........................  ..........        29  ........  ..........      18.01  .........
 
International Assistance Programs:
  Military debt reduction.....................  ..........        16  ........  ..........      84.21  .........
  Overseas Private Investment Corporation.....          2          1         1        2.98       1.25       1.16
 
Small Business Administration:
  Disaster loans..............................        350         40        41        7.42       1.19       1.69
  Business loans..............................         63         18        16       12.75       4.50       4.80
 
Other Independent Agencies:
  Spectrum auction program....................      2,231   ........  ........       32.40  .........  .........
  Tennessee Valley Authority fund.............          1   ........         1        1.92  .........       1.72
                                               -----------------------------------------------------------------
    Total, direct loan writeoffs..............      6,149        771       711        2.91       0.35       0.31
                                               -----------------------------------------------------------------
 
   GUARANTEED LOAN TERMINATIONS FOR DEFAULT
 
Agriculture:
  Agricultural credit insurance fund..........        116        121       125        1.24       1.19       1.09
  Commodity Credit Corporation export loans...         52        334       325        0.91       6.90       6.88
  Rural community advancement program.........         34         50        50        0.94       1.09       0.84
  Rural electrification and telecommunications         24         23        21        4.32       3.95       3.25
   loans......................................
  Rural housing insurance fund................         64         85        99        0.53       0.62       0.64
 
Commerce:
  Emergency oil and gas guaranteed loan         ..........         2  ........  ..........      66.66  .........
   program....................................
  Emergency steel guaranteed loan program.....  ..........        45  ........  ..........      25.86  .........
  Fisheries finance...........................          1          1         1        1.03       1.21       1.49
 
Education:
  Federal family education loan...............      3,503      3,677     4,209        2.29       2.23       2.43
 
Health and Human Services:
  Health education assistance loans...........         30         40        42        1.35       1.87       2.04
 
Housing and Urban Development:
  Indian housing loan guarantee...............  ..........         1         2  ..........       1.40       2.40
  Title VI Indian Federal guarantees program..  ..........  ........         1  ..........  .........       2.17
  FHA--Mutual mortgage insurance..............      4,987      3,785     3,699        1.09       0.80       0.71
  FHA--General and special risk...............      1,426      2,107     2,409        1.44       2.12       2.30
 
Interior:
  Indian guaranteed loan......................  ..........         2         1  ..........       0.92       0.41
 

[[Page 210]]

 
Transportation:
  Maritime guaranteed loan (title XI).........         76        367        94        1.70       7.78       2.05
 
Treasury:
  Air transportation stabilization guaranteed   ..........       608     1,006  ..........      31.09      18.51
   loan.......................................
 
Veterans Affairs:
  Veterans housing benefit program............      1,760      2,431     2,619        0.76       1.00       1.04
 
International Assistance Programs:
  Foreign military financing..................  ..........         2         5  ..........       0.04       0.13
  Micro and small enterprise development......  ..........         1         1  ..........       2.63       2.22
  Urban and environmental credit program......         44         44        47        2.00       2.14       2.41
  Development credit authority................  ..........         1         1  ..........       1.03       0.46
  Overseas Private Investment Corporation.....         34        164        46        1.04       4.74       1.25
 
Small Business Administration:
  Business loans..............................        661        682       695        1.87       1.79       1.72
 
Other Independent Agencies:
  Export-Import Bank..........................        569        373       455        1.88       1.20       1.51
                                               -----------------------------------------------------------------
    Total, guaranteed loan terminations for        13,381     14,946    15,953        0.80       0.86       0.86
     default..................................
                                               -----------------------------------------------------------------
    Total, direct loan writeoffs and               19,530     15,717    16,664        1.03       0.80       0.80
     guaranteed loan terminations.............
                                               =================================================================
 
  ADDENDUM: WRITEOFFS OF DEFAULTED GUARANTEED
     LOANS THAT RESULT IN LOANS RECEIVABLE
 
Education:
  Federal family education loan...............        296        301       318        1.48       1.51       1.54
 
Health and Human Services:
  Health education assistance loans...........         24         24        24        4.31       4.33       4.41
 
Housing and Urban Development:
  FHA--Mutual mortgage insurance..............         39         18  ........       50.00     100.00  .........
  FHA--General and special risk...............        477         95       388       18.60       3.32      11.84
 
Transportation:
  Federal ship financing fund.................         17   ........  ........      100.00  .........  .........
 
Veterans Affairs:
  Veterans housing benefit program............         48         54        57       10.52       8.19       7.75
 
Small Business Administration:
  Business loans..............................        188         80        85       14.00       5.55       5.16
                                               -----------------------------------------------------------------
    Total, writeoffs of loans receivable......      1,089        572       872        3.61       1.85       2.62
----------------------------------------------------------------------------------------------------------------
\1\ Average of loans outstanding for the year.


[[Page 211]]


                      Table 9-8. APPROPRIATIONS ACTS LIMITATIONS ON CREDIT LOAN LEVELS \1\
                                          (Dollar amounts in millions)
----------------------------------------------------------------------------------------------------------------
                                                                                      Enacted          Proposed
                             Agency and Program                              -----------------------------------
                                                                                 2001        2002        2003
----------------------------------------------------------------------------------------------------------------
                           DIRECT LOAN OBLIGATIONS
 
Agriculture:
  Apple loans...............................................................          12  ..........  ..........
  Agricultural credit insurance fund........................................         848         885         802
  Emergency boll weevil.....................................................          10  ..........  ..........
  Distance learning and telemedicine........................................         400         380         130
  Rural electrification and telecommunications..............................       3,051       4,466       3,016
  Rural telephone bank......................................................         175         175  ..........
  Rural water and waste disposal direct loans...............................         767         879         814
  Rural housing insurance fund..............................................       1,263       1,277       1,110
  Rural community facility direct loans.....................................         409         249         250
  Rural economic development................................................          15          15          15
  Rural development loan fund...............................................          38          38          40
  Rural business and industry direct loans..................................          50  ..........  ..........
  P.L. 480 direct credit....................................................         160         155         132
 
Commerce:
  Fisheries finance.........................................................          74          24          24
 
Education:
  Historically black college and university capital financing...............         311         295         254
 
Housing and Urban Development:
  FHA-general and special risk..............................................          50          50          50
  FHA-mutual mortgage insurance.............................................         250         250          50
 
Interior:
  Bureau of Reclamation.....................................................          27          26  ..........
  Assistance to American Samoa..............................................          19  ..........  ..........
 
State:
  Repatriation loans........................................................           1           1           1
 
Transportation:
  Transportation infrastructure finance and innovation program direct loan..       1,800       2,000       2,400
  Transportation infrastructure finance and innovation program line of               200         200         100
   credit...................................................................
 
Treasury:
  Community development financial institutions fund.........................          12          11          11
 
Veterans Affairs:
  Miscellaneous veterans housing loans......................................  ..........  ..........           5
  Miscellaneous veterans programs loan fund.................................           3           3           3
 
Federal Emergency Management Agency:
  Disaster assistance.......................................................          25          25          25
 
Small Business Administration:
  Business loans............................................................          30          25          26
                                                                             -----------------------------------
    Total, limitations on direct loan obligations...........................      10,000      11,429       9,258
                                                                             -----------------------------------
 
                         LOAN GUARANTEE COMMITMENTS
 
Agriculture:
  Agricultural credit insurance fund........................................       2,053       3,006       3,000
  Rural electrification and telecommunications guaranteed loans.............          59         100         100
  Rural water and waste water disposal guaranteed loans.....................          75          75          75
  Local television loan guarantee...........................................  ..........         258  ..........
  Rural housing insurance fund..............................................       3,236       3,238       2,850
  Rural community facility guaranteed loans.................................         210         210         210
  Rural business and industry guaranteed loans..............................       2,383         733         733
 
Defense--Military:
  Defense export loan guarantee.............................................      14,980      14,980      14,980
 
Housing and Urban Development:
  Indian housing loan guarantee fund........................................          72         234         234
  Title VI Indian Federal guarantees........................................          53          53          17
  Native Hawaiian housing loan guarantee fund...............................  ..........          40          40
  Community development loan guarantees.....................................       1,258         609         275
  FHA-general and special risk..............................................      21,000      21,000      21,000
  FHA-mutual mortgage insurance.............................................     160,000     160,000     160,000
 

[[Page 212]]

 
Interior:
  Indian guaranteed loan....................................................          60          75          72
 
Transportation:
  Minority business resource center.........................................          14          18          18
  Transportation infrastructure finance and innovation program loan                  200         200         100
   guarantee................................................................
 
Treasury:
  Air transportation stabilization..........................................  ..........      10,000  ..........
 
Small Business Administration:
  Business loans............................................................      13,990      22,458      16,350
                                                                             -----------------------------------
    Total, limitations on loan guarantee commitments........................     219,643     237,287     220,054
                                                                             ===================================
 
         ADDENDUM: SECONDARY GUARANTEED LOAN COMMITMENT LIMITATIONS
 
Housing and Urban Development:
  Guarantees of mortgage-backed securities..................................     200,000     200,000     200,000
                                                                             -----------------------------------
    Total, limitations on secondary guaranteed loan commitments.............     200,000     200,000     200,000
----------------------------------------------------------------------------------------------------------------
\1\ Data represent loan level limitations enacted or proposed to be enacted in appropriation acts. For
  information on actual and estimated loan levels supportable by new subsidy budget authority requested, see
  Tables 9-4 and 9-5.


[[Page 213]]


                          Table 9-9. DIRECT LOAN TRANSACTIONS OF THE FEDERAL GOVERNMENT
                                            (In millions of dollars)
----------------------------------------------------------------------------------------------------------------
                                                                                                Estimate
                            Agency and Account                                 2001    -------------------------
                                                                             Actual         2002         2003
----------------------------------------------------------------------------------------------------------------
                        Department of Agriculture
 
                           Farm Service Agency
 
Agricultural credit insurance fund liquidating account:
   Obligations...........................................................  ...........  ...........  ...........
   Loan disbursements....................................................  ...........  ...........  ...........
   Change in outstandings................................................        -604         -638         -608
   Outstandings..........................................................       4,463        3,825        3,217
 
Farm storage facility direct loan financing account:
   Obligations...........................................................          81          125          125
   Loan disbursements....................................................          48          156          125
   Change in outstandings................................................          46          120           89
   Outstandings..........................................................          78          198          287
 
Apple loans direct loan financing account:
   Obligations...........................................................          12   ...........  ...........
   Loan disbursements....................................................          11            1   ...........
   Change in outstandings................................................          11           -3           -4
   Outstandings..........................................................          11            8            4
 
Agricultural credit insurance fund direct loan financing account:
   Obligations...........................................................       1,066        1,003          902
   Loan disbursements....................................................       1,072        1,011          917
   Change in outstandings................................................         404          296            8
   Outstandings..........................................................       4,313        4,609        4,617
 
Emergency boll weevil direct loan financing account:
   Obligations...........................................................          10   ...........  ...........
   Loan disbursements....................................................          10   ...........  ...........
   Change in outstandings................................................          10           -1           -1
   Outstandings..........................................................          10            9            8
 
Commodity Credit Corporation fund:
   Obligations...........................................................       8,267       10,624        8,844
   Loan disbursements....................................................       8,267       10,624        8,844
   Change in outstandings................................................      -1,188          689         -489
   Outstandings..........................................................       2,276        2,965        2,476
 
                         Rural Utilities Service
 
Rural communication development fund liquidating account:
   Obligations...........................................................  ...........  ...........  ...........
   Loan disbursements....................................................  ...........  ...........  ...........
   Change in outstandings................................................          -1           -1   ...........
   Outstandings..........................................................           5            4            4
 
Distance learning and telemedicine direct loan financing account:
   Obligations...........................................................         100          380          130
   Loan disbursements....................................................          15           12           24
   Change in outstandings................................................          14           11           22
   Outstandings..........................................................          16           27           49
 
Rural development insurance fund liquidating account:
   Obligations...........................................................  ...........  ...........  ...........
   Loan disbursements....................................................  ...........  ...........  ...........
   Change in outstandings................................................        -201         -188         -177
   Outstandings..........................................................       3,068        2,880        2,703
 
Rural electrification and telecommunications direct loan financing
 account:
   Obligations...........................................................       3,051        4,466        3,016
   Loan disbursements....................................................       2,151        2,416        2,618
   Change in outstandings................................................       1,941        2,210        2,351
   Outstandings..........................................................       9,072       11,282       13,633
 
Rural telephone bank direct loan financing account:
   Obligations...........................................................         175          175   ...........
   Loan disbursements....................................................          81          129          127
   Change in outstandings................................................          70          115          111
   Outstandings..........................................................         338          453          564
 

[[Page 214]]

 
Rural water and waste disposal direct loans financing account:
   Obligations...........................................................         743          893          814
   Loan disbursements....................................................         694          800          779
   Change in outstandings................................................         606          734          703
   Outstandings..........................................................       4,548        5,282        5,985
 
Rural electrification and telecommunications liquidating account:
   Obligations...........................................................  ...........  ...........  ...........
   Loan disbursements....................................................           9           13           13
   Change in outstandings................................................      -2,724       -1,676       -1,540
   Outstandings..........................................................      21,009       19,333       17,793
 
Rural telephone bank liquidating account:
   Obligations...........................................................  ...........  ...........  ...........
   Loan disbursements....................................................           7            7            6
   Change in outstandings................................................        -129          -71          -72
   Outstandings..........................................................         795          724          652
 
                          Rural Housing Service
 
Rural housing insurance fund liquidating account:
   Obligations...........................................................  ...........  ...........  ...........
   Loan disbursements....................................................  ...........  ...........  ...........
   Change in outstandings................................................      -1,183         -989         -912
   Outstandings..........................................................      16,183       15,194       14,282
 
Rural housing insurance fund direct loan financing account:
   Obligations...........................................................       1,276        1,328        1,110
   Loan disbursements....................................................       1,212        1,290        1,160
   Change in outstandings................................................         644          724          527
   Outstandings..........................................................      11,697       12,421       12,948
 
Rural community facility direct loans financing account:
   Obligations...........................................................         325          403          250
   Loan disbursements....................................................         163          264          275
   Change in outstandings................................................         124          232          238
   Outstandings..........................................................         988        1,220        1,458
 
                   Rural Business--Cooperative Service
 
Rural economic development loans liquidating account:
   Obligations...........................................................  ...........  ...........  ...........
   Loan disbursements....................................................  ...........  ...........  ...........
   Change in outstandings................................................          -1   ...........  ...........
   Outstandings..........................................................  ...........  ...........  ...........
 
Rural economic development direct loan financing account:
   Obligations...........................................................          23           15           15
   Loan disbursements....................................................          16           22           14
   Change in outstandings................................................           4            9           -1
   Outstandings..........................................................          73           82           81
 
Rural development loan fund direct loan financing account:
   Obligations...........................................................          44           38           40
   Loan disbursements....................................................          40           42           44
   Change in outstandings................................................          31           33           33
   Outstandings..........................................................         313          346          379
 
Rural business and industry direct loans financing account:
   Obligations...........................................................          50   ...........  ...........
   Loan disbursements....................................................          27           30            6
   Change in outstandings................................................          23           24   ...........
   Outstandings..........................................................          82          106          106
 
Rural development loan fund liquidating account:
   Obligations...........................................................  ...........  ...........  ...........
   Loan disbursements....................................................  ...........  ...........  ...........
   Change in outstandings................................................          -4           -3           -3
   Outstandings..........................................................          66           63           60
 

[[Page 215]]

 
                       Foreign Agricultural Service
 
Expenses, Public Law 480, foreign assistance programs, Agriculture
 liquidating account:
   Obligations...........................................................  ...........  ...........  ...........
   Loan disbursements....................................................  ...........  ...........  ...........
   Change in outstandings................................................        -323         -294         -278
   Outstandings..........................................................       8,219        7,925        7,647
 
P.L. 480 direct credit financing account:
   Obligations...........................................................          60          514          132
   Loan disbursements....................................................         180          119          107
   Change in outstandings................................................         121           60           34
   Outstandings..........................................................       2,176        2,236        2,270
 
P.L. 480 title I food for progress credits, financing account:
   Obligations...........................................................  ...........  ...........  ...........
   Loan disbursements....................................................  ...........  ...........  ...........
   Change in outstandings................................................         -39          -56          -56
   Outstandings..........................................................         465          409          353
 
Debt reduction--financing account:
   Obligations...........................................................  ...........  ...........  ...........
   Loan disbursements....................................................          82   ...........  ...........
   Change in outstandings................................................          75           -7           -7
   Outstandings..........................................................         132          125          118
 
                          Department of Commerce
 
                   Economic Development Administration
 
Economic development revolving fund liquidating account:
   Obligations...........................................................  ...........  ...........  ...........
   Loan disbursements....................................................  ...........  ...........  ...........
   Change in outstandings................................................          -4           -4           -4
   Outstandings..........................................................          33           29           25
 
             National Oceanic and Atmospheric Administration
 
Fisheries finance direct loan financing account:
   Obligations...........................................................          74           24           24
   Loan disbursements....................................................          24           24           74
   Change in outstandings................................................          24           14           66
   Outstandings..........................................................         161          175          241
 
                     Department of Defense--Military
 
                              Family Housing
 
Family housing improvement direct loan financing account:
   Obligations...........................................................  ...........          36   ...........
   Loan disbursements....................................................  ...........          33          110
   Change in outstandings................................................  ...........          33          110
   Outstandings..........................................................  ...........          33          143
 
                         Department of Education
 
                    Office of Postsecondary Education
 
College housing and academic facilities loans liquidating account:
   Obligations...........................................................  ...........  ...........  ...........
   Loan disbursements....................................................           1   ...........  ...........
   Change in outstandings................................................         -34          -34          -29
   Outstandings..........................................................         424          390          361
 
College housing and academic facilities loans financing account:
   Obligations...........................................................  ...........  ...........  ...........
   Loan disbursements....................................................  ...........  ...........  ...........
   Change in outstandings................................................          -1   ...........          -1
   Outstandings..........................................................          25           25           24
 
Historically black college and university capital financing direct loan
 financing account:
   Obligations...........................................................          16           42           40
   Loan disbursements....................................................          11           39           35
   Change in outstandings................................................          10           39           34
   Outstandings..........................................................          31           70          104
 

[[Page 216]]

 
                  Office of Student Financial Assistance
 
Student financial assistance:
   Obligations...........................................................  ...........  ...........  ...........
   Loan disbursements....................................................  ...........  ...........  ...........
   Change in outstandings................................................          -9          -10          -18
   Outstandings..........................................................         606          596          578
 
Federal direct student loan program financing account:
   Obligations...........................................................      19,219       21,266       19,123
   Loan disbursements....................................................      18,166       19,805       17,279
   Change in outstandings................................................      11,962       14,848       10,479
   Outstandings..........................................................      70,484       85,332       95,811
 
                           Department of Energy
 
                      Power Marketing Administration
 
Bonneville Power Administration fund:
   Obligations...........................................................  ...........  ...........  ...........
   Loan disbursements....................................................  ...........  ...........  ...........
   Change in outstandings................................................  ...........  ...........  ...........
   Outstandings..........................................................           2            2            2
 
                 Department of Health and Human Services
 
               Health Resources and Services Administration
 
Medical facilities guarantee and loan fund:
   Obligations...........................................................  ...........  ...........  ...........
   Loan disbursements....................................................  ...........  ...........  ...........
   Change in outstandings................................................          -2           -4           -5
   Outstandings..........................................................           9            5   ...........
 
               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................................................         -70          -70          -70
   Outstandings..........................................................       1,280        1,210        1,140
 
                    Community Planning and Development
 
Revolving fund (liquidating programs):
   Obligations...........................................................  ...........  ...........  ...........
   Loan disbursements....................................................  ...........  ...........  ...........
   Change in outstandings................................................        -123           -3           -3
   Outstandings..........................................................          19           16           13
 
Community development loan guarantees liquidating account:
   Obligations...........................................................  ...........  ...........  ...........
   Loan disbursements....................................................  ...........  ...........  ...........
   Change in outstandings................................................          -3           -2           -2
   Outstandings..........................................................           8            6            4
 
                             Housing Programs
 
Nonprofit sponsor assistance liquidating account:
   Obligations...........................................................  ...........  ...........  ...........
   Loan disbursements....................................................  ...........  ...........  ...........
   Change in outstandings................................................  ...........  ...........  ...........
   Outstandings..........................................................           1            1            1
 
Flexible subsidy fund:
   Obligations...........................................................  ...........  ...........  ...........
   Loan disbursements....................................................          20           12   ...........
   Change in outstandings................................................         -55          -63          -75
   Outstandings..........................................................         648          585          510
 
FHA-mutual mortgage and cooperative housing insurance funds liquidating
 account:
   Obligations...........................................................  ...........  ...........  ...........
   Loan disbursements....................................................  ...........  ...........  ...........
   Change in outstandings................................................  ...........          -3   ...........
   Outstandings..........................................................           3   ...........  ...........
 

[[Page 217]]

 
FHA-general and special risk insurance funds liquidating account:
   Obligations...........................................................  ...........  ...........  ...........
   Loan disbursements....................................................  ...........  ...........  ...........
   Change in outstandings................................................          -6           -5          -10
   Outstandings..........................................................          38           33           23
 
FHA-general and special risk direct loan financing account:
   Obligations...........................................................  ...........           4            4
   Loan disbursements....................................................           1            4            4
   Change in outstandings................................................           1   ...........  ...........
   Outstandings..........................................................           2            2            2
 
Housing for the elderly or handicapped fund liquidating account:
   Obligations...........................................................  ...........  ...........  ...........
   Loan disbursements....................................................           4            5            1
   Change in outstandings................................................        -118         -182         -220
   Outstandings..........................................................       7,805        7,623        7,403
 
FHA-mutual mortgage insurance direct loan financing account:
   Obligations...........................................................           1          125           50
   Loan disbursements....................................................           1          125           50
   Change in outstandings................................................           1           51           -9
   Outstandings..........................................................           1           52           43
 
                 Government National Mortgage Association
 
Guarantees of mortgage-backed securities liquidating account:
   Obligations...........................................................  ...........  ...........  ...........
   Loan disbursements....................................................          47           46           45
   Change in outstandings................................................           1          -20          -15
   Outstandings..........................................................         110           90           75
 
                        Department of the Interior
 
                          Bureau of Reclamation
 
Bureau of Reclamation loan liquidating account:
   Obligations...........................................................  ...........  ...........  ...........
   Loan disbursements....................................................  ...........  ...........  ...........
   Change in outstandings................................................         -13           -4           -3
   Outstandings..........................................................          50           46           43
 
Water and related resources:
   Obligations...........................................................  ...........  ...........  ...........
   Loan disbursements....................................................  ...........  ...........  ...........
   Change in outstandings................................................          -1   ...........  ...........
   Outstandings..........................................................           2            2            2
 
Bureau of Reclamation direct loan financing account:
   Obligations...........................................................          27           16   ...........
   Loan disbursements....................................................          25           48            9
   Change in outstandings................................................          -6           47            6
   Outstandings..........................................................         160          207          213
 
                          National Park Service
 
Construction and major maintenance:
   Obligations...........................................................  ...........  ...........  ...........
   Loan disbursements....................................................  ...........  ...........  ...........
   Change in outstandings................................................  ...........  ...........          -1
   Outstandings..........................................................           5            5            4
 
                         Bureau of Indian Affairs
 
Revolving fund for loans liquidating account:
   Obligations...........................................................  ...........  ...........  ...........
   Loan disbursements....................................................  ...........  ...........  ...........
   Change in outstandings................................................          -4           -4           -4
   Outstandings..........................................................          35           31           27
 
Indian direct loan financing account:
   Obligations...........................................................  ...........  ...........  ...........
   Loan disbursements....................................................  ...........  ...........  ...........
   Change in outstandings................................................          -4           -3           -3
   Outstandings..........................................................          23           20           17
 

[[Page 218]]

 
                             Insular Affairs
 
Payments to the United States territories, fiscal assistance:
   Obligations...........................................................  ...........  ...........  ...........
   Loan disbursements....................................................  ...........  ...........  ...........
   Change in outstandings................................................          -2           -2           -1
   Outstandings..........................................................          13           11           10
 
Assistance to American Samoa direct loan financing account:
   Obligations...........................................................          19   ...........  ...........
   Loan disbursements....................................................          13            6   ...........
   Change in outstandings................................................          12            5           -1
   Outstandings..........................................................          12           17           16
 
                           Department of State
 
                    Administration of Foreign Affairs
 
Repatriation loans financing account:
   Obligations...........................................................           1            1            1
   Loan disbursements....................................................           1            1            1
   Change in outstandings................................................  ...........  ...........  ...........
   Outstandings..........................................................           4            4            4
 
                       Department of Transportation
 
                         Office of the Secretary
 
Minority business resource center direct loan financing account:
   Obligations...........................................................  ...........  ...........  ...........
   Loan disbursements....................................................  ...........  ...........  ...........
   Change in outstandings................................................          -2           -5   ...........
   Outstandings..........................................................           5   ...........  ...........
 
                      Federal Highway Administration
 
Transportation infrastructure finance and innovation program direct loan
 financing account:
   Obligations...........................................................         874        2,000        1,914
   Loan disbursements....................................................  ...........         430          830
   Change in outstandings................................................  ...........         430          830
   Outstandings..........................................................         300          730        1,560
 
Transportation infrastructure finance and innovation program line of
 credit financing account:
   Obligations...........................................................  ...........         200          100
   Loan disbursements....................................................  ...........  ...........  ...........
   Change in outstandings................................................  ...........  ...........  ...........
   Outstandings..........................................................  ...........  ...........  ...........
 
Right-of-way revolving fund liquidating account:
   Obligations...........................................................  ...........  ...........  ...........
   Loan disbursements....................................................          11           10           10
   Change in outstandings................................................         -20          -14          -14
   Outstandings..........................................................         109           95           81
 
                     Federal Railroad Administration
 
Amtrak corridor improvement loans liquidating account:
   Obligations...........................................................  ...........  ...........  ...........
   Loan disbursements....................................................  ...........  ...........  ...........
   Change in outstandings................................................          -1           -1           -1
   Outstandings..........................................................           4            3            2
 
Alameda corridor direct loan financing account:
   Obligations...........................................................  ...........  ...........  ...........
   Loan disbursements....................................................  ...........  ...........  ...........
   Change in outstandings................................................          15           31           33
   Outstandings..........................................................         503          534          567
 
Railroad rehabilitation and improvement liquidating account:
   Obligations...........................................................  ...........  ...........  ...........
   Loan disbursements....................................................  ...........  ...........  ...........
   Change in outstandings................................................  ...........          -9           -4
   Outstandings..........................................................          49           40           36
 

[[Page 219]]

 
Railroad rehabilitation and improvement direct loan financing account:
   Obligations...........................................................  ...........         210          197
   Loan disbursements....................................................  ...........         150          100
   Change in outstandings................................................  ...........         150           92
   Outstandings..........................................................           4          154          246
 
                        Department of the Treasury
 
                           Departmental Offices
 
Community development financial institutions fund direct loan financing
 account:
   Obligations...........................................................          12           11           11
   Loan disbursements....................................................           9           10           10
   Change in outstandings................................................           9            9            9
   Outstandings..........................................................          24           33           42
 
                      Department of Veterans Affairs
 
                     Veterans Benefits Administration
 
Veterans housing benefit program fund liquidating account:
   Obligations...........................................................  ...........  ...........  ...........
   Loan disbursements....................................................           7            6            5
   Change in outstandings................................................         -36          -34          -26
   Outstandings..........................................................         128           94           68
 
Veterans housing benefit program fund direct loan financing account:
   Obligations...........................................................       1,463        1,809        1,917
   Loan disbursements....................................................       1,463        1,809        1,917
   Change in outstandings................................................         226          101         -298
   Outstandings..........................................................       1,782        1,883        1,585
 
Miscellaneous veterans housing loans direct loan financing account:
   Obligations...........................................................           2            3           15
   Loan disbursements....................................................           2            3           15
   Change in outstandings................................................           2            2           14
   Outstandings..........................................................          19           21           35
 
Miscellaneous veterans programs loan fund direct loan financing account:
   Obligations...........................................................           3            3            3
   Loan disbursements....................................................           2            3            3
   Change in outstandings................................................  ...........  ...........  ...........
   Outstandings..........................................................           1            1            1
 
                     Environmental Protection Agency
 
Abatement, control, and compliance direct loan financing account:
   Obligations...........................................................  ...........  ...........  ...........
   Loan disbursements....................................................  ...........  ...........  ...........
   Change in outstandings................................................          -4           -5           -5
   Outstandings..........................................................          42           37           32
 
                   Federal Emergency Management Agency
 
Disaster assistance direct loan liquidating account:
   Obligations...........................................................  ...........  ...........  ...........
   Loan disbursements....................................................  ...........  ...........  ...........
   Change in outstandings................................................         -29   ...........  ...........
   Outstandings..........................................................  ...........  ...........  ...........
 
Disaster assistance direct loan financing account:
   Obligations...........................................................  ...........          25           25
   Loan disbursements....................................................          31           25           25
   Change in outstandings................................................          29           -8           17
   Outstandings..........................................................         165          157          174
 
                     General Services Administration
 
                         Real Property Activities
 
Columbia Hospital for Women direct loan financing account:
   Obligations...........................................................  ...........  ...........  ...........
   Loan disbursements....................................................  ...........  ...........  ...........
   Change in outstandings................................................          -1          -13   ...........
   Outstandings..........................................................          13   ...........  ...........
 

[[Page 220]]

 
                    International Assistance Programs
 
                    International Security Assistance
 
Foreign military loan liquidating account:
   Obligations...........................................................  ...........  ...........  ...........
   Loan disbursements....................................................           7            7            7
   Change in outstandings................................................        -456         -397         -339
   Outstandings..........................................................       3,767        3,370        3,031
 
Foreign military financing direct loan financing account:
   Obligations...........................................................  ...........  ...........  ...........
   Loan disbursements....................................................         546          339           54
   Change in outstandings................................................         173         -114         -402
   Outstandings..........................................................       1,943        1,829        1,427
 
Military debt reduction financing account:
   Obligations...........................................................  ...........  ...........  ...........
   Loan disbursements....................................................  ...........  ...........  ...........
   Change in outstandings................................................  ...........         -16   ...........
   Outstandings..........................................................          19            3            3
 
                   Agency for International Development
 
Economic assistance loans liquidating account:
   Obligations...........................................................  ...........  ...........  ...........
   Loan disbursements....................................................  ...........  ...........  ...........
   Change in outstandings................................................        -613         -526         -487
   Outstandings..........................................................       9,373        8,847        8,360
 
Debt reduction financing account:
   Obligations...........................................................  ...........  ...........  ...........
   Loan disbursements....................................................          68            1   ...........
   Change in outstandings................................................          10          -56          -15
   Outstandings..........................................................         175          119          104
 
Private sector revolving fund liquidating account:
   Obligations...........................................................  ...........  ...........  ...........
   Loan disbursements....................................................  ...........  ...........  ...........
   Change in outstandings................................................  ...........  ...........  ...........
   Outstandings..........................................................           1            1            1
 
Microenterprise and small enterprise development credit direct loan
 financing account:
   Obligations...........................................................  ...........  ...........  ...........
   Loan disbursements....................................................  ...........  ...........  ...........
   Change in outstandings................................................          -1           -1   ...........
   Outstandings..........................................................           1   ...........  ...........
 
                 Overseas Private Investment Corporation
 
Overseas Private Investment Corporation liquidating account:
   Obligations...........................................................  ...........  ...........  ...........
   Loan disbursements....................................................  ...........  ...........  ...........
   Change in outstandings................................................  ...........  ...........          -1
   Outstandings..........................................................           1            1   ...........
 
Overseas Private Investment Corporation direct loan financing account:
   Obligations...........................................................         204           73          100
   Loan disbursements....................................................          44           42           40
   Change in outstandings................................................          18            8            6
   Outstandings..........................................................          75           83           89
 
                      Small Business Administration
 
Business direct loan financing account:
   Obligations...........................................................          30           25           26
   Loan disbursements....................................................          53           29           18
   Change in outstandings................................................          47           14            3
   Outstandings..........................................................         107          121          124
 
Disaster direct loan financing account:
   Obligations...........................................................         951        1,272          795
   Loan disbursements....................................................         683        1,334          976
   Change in outstandings................................................      -1,924         -231       -1,393
   Outstandings..........................................................       3,288        3,057        1,664
 

[[Page 221]]

 
Disaster loan fund liquidating account:
   Obligations...........................................................  ...........  ...........  ...........
   Loan disbursements....................................................  ...........  ...........  ...........
   Change in outstandings................................................        -437         -132         -116
   Outstandings..........................................................         248          116   ...........
 
Business loan fund liquidating account:
   Obligations...........................................................  ...........  ...........  ...........
   Loan disbursements....................................................          14           12           11
   Change in outstandings................................................        -148         -101          -50
   Outstandings..........................................................         337          236          186
 
                        Other Independent Agencies
 
                 Export-Import Bank of the United States
 
Export-Import Bank of the United States liquidating account:
   Obligations...........................................................  ...........  ...........  ...........
   Loan disbursements....................................................  ...........  ...........  ...........
   Change in outstandings................................................        -308         -268         -232
   Outstandings..........................................................       4,152        3,884        3,652
 
Debt reduction financing account:
   Obligations...........................................................  ...........  ...........  ...........
   Loan disbursements....................................................          50          545           10
   Change in outstandings................................................          44          261           -1
   Outstandings..........................................................         146          407          406
 
Export-Import Bank direct loan financing account:
   Obligations...........................................................         871          161          179
   Loan disbursements....................................................       1,738        1,452          560
   Change in outstandings................................................         924          721         -248
   Outstandings..........................................................       7,590        8,311        8,063
 
           Farm Credit System Financial Assistance Corporation
 
Financial Assistance Corporation assistance fund liquidating account:
   Obligations...........................................................  ...........  ...........  ...........
   Loan disbursements....................................................  ...........  ...........  ...........
   Change in outstandings................................................         -15          -16          -40
   Outstandings..........................................................         868          852          812
 
                    Federal Communications Commission
 
Spectrum auction direct loan financing account:
   Obligations...........................................................  ...........  ...........  ...........
   Loan disbursements....................................................  ...........  ...........  ...........
   Change in outstandings................................................      -2,584       -4,395          -97
   Outstandings..........................................................       5,593        1,198        1,101
 
                  Federal Deposit Insurance Corporation
 
FSLIC resolution fund:
   Obligations...........................................................  ...........  ...........  ...........
   Loan disbursements....................................................  ...........  ...........  ...........
   Change in outstandings................................................          -1           -3   ...........
   Outstandings..........................................................           3   ...........  ...........
 
                   National Credit Union Administration
 
Community development credit union revolving loan fund:
   Obligations...........................................................          10           14           15
   Loan disbursements....................................................           2            7            5
   Change in outstandings................................................          -1            4            1
   Outstandings..........................................................          10           14           15
 
                        Tennessee Valley Authority
 
Tennessee Valley Authority fund:
   Obligations...........................................................          13           18           19
   Loan disbursements....................................................          12           18           19
   Change in outstandings................................................          -2            6            2
   Outstandings..........................................................          51           57           59
                                                                          --------------------------------------

[[Page 222]]

 
Subtotal, direct loan transactions:
   Obligations...........................................................      39,073       47,302       39,936
   Loan disbursements....................................................      37,141       43,316       37,282
   Change in outstandings................................................       4,197       11,346        7,427
   Outstandings..........................................................     213,286      224,632      232,059
                                                                          --------------------------------------
  ADDENDUM: DEFAULTED GUARANTEED LOANS THAT RESULT IN A LOAN RECEIVABLE
 
                        Department of Agriculture
 
                           Farm Service Agency
 
Commodity Credit Corporation export guarantee financing account:
   Claim payments........................................................          52          334          325
   Change in outstandings................................................          21          286          259
   Outstandings..........................................................         485          771        1,030
 
Commodity Credit Corporation guaranteed loans liquidating account:
   Claim payments........................................................  ...........  ...........  ...........
   Change in outstandings................................................        -162         -184         -201
   Outstandings..........................................................       3,969        3,785        3,584
 
                          Department of Commerce
 
             National Oceanic and Atmospheric Administration
 
Fisheries finance guaranteed loan financing account:
   Claim payments........................................................           1            1            1
   Change in outstandings................................................           1           -3           -3
   Outstandings..........................................................          13           10            7
 
Federal ship financing fund fishing vessels liquidating account:
   Claim payments........................................................  ...........  ...........  ...........
   Change in outstandings................................................          -2           -2           -2
   Outstandings..........................................................          12           10            8
 
                         Department of Education
 
                  Office of Student Financial Assistance
 
Federal family education loan liquidating account:
   Claim payments........................................................         377           58           17
   Change in outstandings................................................        -866         -706         -632
   Outstandings..........................................................      14,120       13,414       12,782
 
Federal family education loan program financing account:
   Claim payments........................................................       2,692        3,133        3,655
   Change in outstandings................................................          -3        1,479        1,398
   Outstandings..........................................................       5,339        6,818        8,216
 
                 Department of Health and Human Services
 
               Health Resources and Services Administration
 
Health education assistance loans financing account:
   Claim payments........................................................          14           27           30
   Change in outstandings................................................          10           22           24
   Outstandings..........................................................          63           85          109
 
Health education assistance loans liquidating account:
   Claim payments........................................................          12            8            7
   Change in outstandings................................................          -3          -33          -34
   Outstandings..........................................................         497          464          430
 
               Department of Housing and Urban Development
 
                             Housing Programs
 
FHA-mutual mortgage and cooperative housing insurance funds liquidating
 account:
   Claim payments........................................................  ...........          35           34
   Change in outstandings................................................         -42           -4   ...........
   Outstandings..........................................................           4   ...........  ...........
 
FHA-general and special risk insurance funds liquidating account:
   Claim payments........................................................         618          981        1,235
   Change in outstandings................................................          39          447          337
   Outstandings..........................................................       1,999        2,446        2,783
 

[[Page 223]]

 
FHA-general and special risk guaranteed loan financing account:
   Claim payments........................................................         295          418          460
   Change in outstandings................................................          66           32           25
   Outstandings..........................................................         618          650          675
 
FHA-mutual mortgage insurance guaranteed loan financing account:
   Claim payments........................................................           1          377          671
   Change in outstandings................................................         -98           -4   ...........
   Outstandings..........................................................           4   ...........  ...........
 
                        Department of the Interior
 
                         Bureau of Indian Affairs
 
Indian loan guaranty and insurance fund liquidating account:
   Claim payments........................................................  ...........  ...........  ...........
   Change in outstandings................................................          -1           -4           -4
   Outstandings..........................................................          26           22           18
 
Indian guaranteed loan financing account:
   Claim payments........................................................  ...........           2            1
   Change in outstandings................................................         -13            1   ...........
   Outstandings..........................................................          24           25           25
 
                       Department of Transportation
 
                         Maritime Administration
 
Federal ship financing fund liquidating account:
   Claim payments........................................................  ...........  ...........  ...........
   Change in outstandings................................................         -17   ...........  ...........
   Outstandings..........................................................  ...........  ...........  ...........
 
                        Department of the Treasury
 
                           Departmental Offices
 
Air transportation stabilization guaranteed loan financing account:
   Claim payments........................................................  ...........         577          957
   Change in outstandings................................................  ...........         577          842
   Outstandings..........................................................  ...........         577        1,419
 
                      Department of Veterans Affairs
 
                     Veterans Benefits Administration
 
Veterans housing benefit program fund liquidating account:
   Claim payments........................................................          30           29           27
   Change in outstandings................................................         -12            8            8
   Outstandings..........................................................         274          282          290
 
Veterans housing benefit program fund guaranteed loan financing account:
   Claim payments........................................................         362          129          126
   Change in outstandings................................................         335           74           62
   Outstandings..........................................................         344          418          480
 
                    International Assistance Programs
 
                    International Security Assistance
 
Foreign military loan liquidating account:
   Claim payments........................................................          24           23           31
   Change in outstandings................................................          24          -13           31
   Outstandings..........................................................          39           26           57
 
                   Agency for International Development
 
Housing and other credit guaranty programs liquidating account:
   Claim payments........................................................          40           40           42
   Change in outstandings................................................         -73           15           24
   Outstandings..........................................................         435          450          474
 
                 Overseas Private Investment Corporation
 
Overseas Private Investment Corporation liquidating account:
   Claim payments........................................................          13            2            1
   Change in outstandings................................................           6   ...........  ...........
   Outstandings..........................................................          19           19           19
 

[[Page 224]]

 
Overseas Private Investment Corporation guaranteed loan financing
 account:
   Claim payments........................................................          21          162           45
   Change in outstandings................................................          18          148           31
   Outstandings..........................................................          49          197          228
 
                      Small Business Administration
 
Pollution control equipment fund liquidating account:
   Claim payments........................................................  ...........  ...........  ...........
   Change in outstandings................................................  ...........  ...........  ...........
   Outstandings..........................................................          49           49           49
 
Business guaranteed loan financing account:
   Claim payments........................................................         645          670          684
   Change in outstandings................................................         149          258          252
   Outstandings..........................................................         966        1,224        1,476
 
Business loan fund liquidating account:
   Claim payments........................................................          16           12           11
   Change in outstandings................................................        -141          -70          -29
   Outstandings..........................................................         381          311          282
                                                                          --------------------------------------
Subtotal, defaulted guaranteed loans that result in a loan receivable:
   Claim payments........................................................       5,213        7,018        8,360
   Change in outstandings................................................        -764        2,324        2,388
   Outstandings..........................................................      29,729       32,053       34,441
                                                                          ======================================
Total:
   Obligations...........................................................      39,073       47,302       39,936
   Loan disbursements....................................................      42,354       50,334       45,642
   Change in outstandings................................................       3,433       13,670        9,815
   Outstandings..........................................................     243,015      256,685      266,500
----------------------------------------------------------------------------------------------------------------


[[Page 225]]


                       Table 9-10. GUARANTEED LOAN TRANSACTIONS OF THE FEDERAL GOVERNMENT
                                            (In millions of dollars)
----------------------------------------------------------------------------------------------------------------
                                                                                                Estimate
                            Agency and Account                                 2001    -------------------------
                                                                             Actual         2002         2003
----------------------------------------------------------------------------------------------------------------
                        Department of Agriculture
 
                           Farm Service Agency
 
Agricultural credit insurance fund liquidating account:
   Commitments...........................................................  ...........  ...........  ...........
   New guaranteed loans..................................................  ...........  ...........  ...........
   Change in outstandings................................................         -60          -67          -52
   Outstandings..........................................................         411          344          292
 
Agricultural credit insurance fund guaranteed loan financing account:
   Commitments...........................................................       2,315        3,220        3,000
   New guaranteed loans..................................................       2,200        2,988        3,025
   Change in outstandings................................................         510        1,312        1,302
   Outstandings..........................................................       9,111       10,423       11,725
 
Commodity Credit Corporation export guarantee financing account:
   Commitments...........................................................       3,227        3,926        4,225
   New guaranteed loans..................................................       2,183        3,926        4,225
   Change in outstandings................................................      -1,568         -153          -80
   Outstandings..........................................................       4,915        4,762        4,682
 
                  Natural Resources Conservation Service
 
Agricultural resource conservation demonstration guaranteed loan
 financing account:
   Commitments...........................................................  ...........  ...........  ...........
   New guaranteed loans..................................................  ...........  ...........  ...........
   Change in outstandings................................................  ...........  ...........         -10
   Outstandings..........................................................          24           24           14
 
                         Rural Utilities Service
 
Rural communication development fund liquidating account:
   Commitments...........................................................  ...........  ...........  ...........
   New guaranteed loans..................................................  ...........  ...........  ...........
   Change in outstandings................................................  ...........  ...........  ...........
   Outstandings..........................................................           4            4            4
 
Rural development insurance fund liquidating account:
   Commitments...........................................................  ...........  ...........  ...........
   New guaranteed loans..................................................  ...........  ...........  ...........
   Change in outstandings................................................         -13          -12          -10
   Outstandings..........................................................          99           87           77
 
Rural electrification and telecommunications guaranteed loans financing
 account:
   Commitments...........................................................          59          100          100
   New guaranteed loans..................................................          35           68          113
   Change in outstandings................................................          35           65          109
   Outstandings..........................................................         203          268          377
 
Rural water and waste water disposal guaranteed loans financing account:
   Commitments...........................................................           5           75           75
   New guaranteed loans..................................................  ...........          43           72
   Change in outstandings................................................          -8           41           69
   Outstandings..........................................................          11           52          121
 
Local television loan guarantee financing account:
   Commitments...........................................................  ...........         258   ...........
   New guaranteed loans..................................................  ...........          52          116
   Change in outstandings................................................  ...........          52          114
   Outstandings..........................................................  ...........          52          166
 
Rural electrification and telecommunications liquidating account:
   Commitments...........................................................  ...........  ...........  ...........
   New guaranteed loans..................................................  ...........  ...........  ...........
   Change in outstandings................................................         -24          -23          -21
   Outstandings..........................................................         358          335          314
 
                          Rural Housing Service
 
Rural housing insurance fund liquidating account:
   Commitments...........................................................  ...........  ...........  ...........
   New guaranteed loans..................................................  ...........  ...........  ...........
   Change in outstandings................................................          -2           -2           -1
   Outstandings..........................................................          18           16           15
 

[[Page 226]]

 
Rural housing insurance fund guaranteed loan financing account:
   Commitments...........................................................       2,342        3,250        2,850
   New guaranteed loans..................................................       2,171        2,817        2,751
   Change in outstandings................................................       1,374        1,915        1,698
   Outstandings..........................................................      12,673       14,588       16,286
 
Rural community facility guaranteed loans financing account:
   Commitments...........................................................         139          210          210
   New guaranteed loans..................................................          15          155          179
   Change in outstandings................................................           2          137          155
   Outstandings..........................................................         227          364          519
 
                   Rural Business--Cooperative Service
 
Rural business and industry guaranteed loans financing account:
   Commitments...........................................................       1,076        1,152          733
   New guaranteed loans..................................................         809        1,777        1,294
   Change in outstandings................................................         324        1,453          908
   Outstandings..........................................................       3,504        4,957        5,865
 
                          Department of Commerce
 
                         Departmental Management
 
Emergency oil and gas guaranteed loan financing account:
   Commitments...........................................................           3            2   ...........
   New guaranteed loans..................................................           3            2   ...........
   Change in outstandings................................................           3   ...........  ...........
   Outstandings..........................................................           3            3            3
 
Emergency steel guaranteed loan financing account:
   Commitments...........................................................         110          236   ...........
   New guaranteed loans..................................................         110          236   ...........
   Change in outstandings................................................         109          131          -62
   Outstandings..........................................................         109          240          178
 
                   Economic Development Administration
 
Economic development revolving fund liquidating account:
   Commitments...........................................................  ...........  ...........  ...........
   New guaranteed loans..................................................  ...........  ...........  ...........
   Change in outstandings................................................          -1   ...........  ...........
   Outstandings..........................................................  ...........  ...........  ...........
 
             National Oceanic and Atmospheric Administration
 
Fisheries finance guaranteed loan financing account:
   Commitments...........................................................  ...........  ...........  ...........
   New guaranteed loans..................................................  ...........  ...........  ...........
   Change in outstandings................................................         -11          -11          -11
   Outstandings..........................................................          51           40           29
 
Federal ship financing fund fishing vessels liquidating account:
   Commitments...........................................................  ...........  ...........  ...........
   New guaranteed loans..................................................  ...........  ...........  ...........
   Change in outstandings................................................          -4           -4           -3
   Outstandings..........................................................          39           35           32
 
                     Department of Defense--Military
 
                        Operation and Maintenance
 
Defense export loan guarantee financing account:
   Commitments...........................................................  ...........  ...........  ...........
   New guaranteed loans..................................................  ...........  ...........  ...........
   Change in outstandings................................................          -4           -4           -4
   Outstandings..........................................................           8            4   ...........
 
                               Procurement
 
Arms initiative guaranteed loan financing account:
   Commitments...........................................................  ...........  ...........  ...........
   New guaranteed loans..................................................  ...........  ...........  ...........
   Change in outstandings................................................  ...........          -1           -1
   Outstandings..........................................................          28           27           26
 

[[Page 227]]

 
                              Family Housing
 
Family housing improvement guaranteed loan financing account:
   Commitments...........................................................          48          221   ...........
   New guaranteed loans..................................................          41           70           88
   Change in outstandings................................................          41           69           86
   Outstandings..........................................................          70          139          225
 
                         Department of Education
 
                  Office of Student Financial Assistance
 
Federal family education loan liquidating account:
   Commitments...........................................................  ...........  ...........  ...........
   New guaranteed loans..................................................  ...........  ...........  ...........
   Change in outstandings................................................      -2,030       -1,921       -1,135
   Outstandings..........................................................       4,493        2,572        1,437
 
Federal family education loan program financing account:
   Commitments...........................................................      34,705       38,750       39,559
   New guaranteed loans..................................................      30,537       34,255       34,732
   Change in outstandings................................................      15,873       11,981        8,651
   Outstandings..........................................................     154,807      166,788      175,439
 
                 Department of Health and Human Services
 
               Health Resources and Services Administration
 
Health education assistance loans financing account:
   Commitments...........................................................  ...........  ...........  ...........
   New guaranteed loans..................................................  ...........  ...........  ...........
   Change in outstandings................................................         -22          -35          -39
   Outstandings..........................................................       1,513        1,478        1,439
 
Health education assistance loans liquidating account:
   Commitments...........................................................  ...........  ...........  ...........
   New guaranteed loans..................................................  ...........  ...........  ...........
   Change in outstandings................................................         -54          -50          -50
   Outstandings..........................................................         668          618          568
 
Health center guaranteed loan financing account:
   Commitments...........................................................           7           21           17
   New guaranteed loans..................................................           7           21           17
   Change in outstandings................................................           7           21           17
   Outstandings..........................................................          12           33           50
 
Medical facilities guarantee and loan fund:
   Commitments...........................................................  ...........  ...........  ...........
   New guaranteed loans..................................................  ...........  ...........  ...........
   Change in outstandings................................................          -5           -6           -6
   Outstandings..........................................................          19           13            7
 
               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................................................        -278         -278         -278
   Outstandings..........................................................       2,464        2,186        1,908
 
Indian housing loan guarantee fund financing account:
   Commitments...........................................................          13           20           20
   New guaranteed loans..................................................          10           20           23
   Change in outstandings................................................           6           11           12
   Outstandings..........................................................          66           77           89
 
Title VI Indian Federal guarantees financing account:
   Commitments...........................................................          10           26           40
   New guaranteed loans..................................................           9           23           36
   Change in outstandings................................................           9           20           33
   Outstandings..........................................................          10           30           63
 

[[Page 228]]

 
Native Hawaiian housing loan guarantee fund financing account:
   Commitments...........................................................  ...........  ...........          10
   New guaranteed loans..................................................  ...........  ...........           1
   Change in outstandings................................................  ...........  ...........           1
   Outstandings..........................................................  ...........  ...........           1
 
                    Community Planning and Development
 
Community development loan guarantees financing account:
   Commitments...........................................................         244          609          275
   New guaranteed loans..................................................         335          400          400
   Change in outstandings................................................         195          200          200
   Outstandings..........................................................       1,887        2,087        2,287
 
Community development loan guarantees liquidating account:
   Commitments...........................................................  ...........  ...........  ...........
   New guaranteed loans..................................................  ...........  ...........  ...........
   Change in outstandings................................................         -26          -29           -6
   Outstandings..........................................................          81           52           46
 
                             Housing Programs
 
FHA-mutual mortgage and cooperative housing insurance funds liquidating
 account:
   Commitments...........................................................  ...........  ...........  ...........
   New guaranteed loans..................................................  ...........  ...........  ...........
   Change in outstandings................................................      -7,656       -6,624       -3,272
   Outstandings..........................................................      39,963       33,339       30,067
 
FHA-general and special risk insurance funds liquidating account:
   Commitments...........................................................  ...........  ...........  ...........
   New guaranteed loans..................................................  ...........  ...........  ...........
   Change in outstandings................................................      -4,391       -1,989       -2,174
   Outstandings..........................................................      25,370       23,381       21,207
 
FHA-general and special risk guaranteed loan financing account:
   Commitments...........................................................      21,000       21,000       21,000
   New guaranteed loans..................................................      15,238       17,027       19,892
   Change in outstandings................................................       4,248        2,622       12,601
   Outstandings..........................................................      73,376       75,998       88,599
 
FHA-loan guarantee recovery fund financing account:
   Commitments...........................................................           2            4   ...........
   New guaranteed loans..................................................           2            4   ...........
   Change in outstandings................................................           1            1           -3
   Outstandings..........................................................           4            5            2
 
FHA-mutual mortgage insurance guaranteed loan financing account:
   Commitments...........................................................     134,841      147,339      142,441
   New guaranteed loans..................................................     107,449      133,557      121,674
   Change in outstandings................................................      17,353       33,174       60,342
   Outstandings..........................................................     419,313      452,487      512,829
 
                 Government National Mortgage Association
 
Guarantees of mortgage-backed securities liquidating account:
   Commitments...........................................................  ...........  ...........  ...........
   New guaranteed loans..................................................  ...........  ...........  ...........
   Change in outstandings................................................         -12          -12          -12
   Outstandings..........................................................         134          122          110
 
Guarantees of mortgage-backed securities financing account:
   Commitments...........................................................     161,657      238,343      200,000
   New guaranteed loans..................................................     153,798      120,000      120,000
   Change in outstandings................................................       1,568       23,310       47,832
   Outstandings..........................................................     604,309      627,619      675,451
 
                        Department of the Interior
 
                         Bureau of Indian Affairs
 
Indian loan guaranty and insurance fund liquidating account:
   Commitments...........................................................  ...........  ...........  ...........
   New guaranteed loans..................................................  ...........  ...........  ...........
   Change in outstandings................................................         -12           -8           -6
   Outstandings..........................................................          17            9            3
 

[[Page 229]]

 
Indian guaranteed loan financing account:
   Commitments...........................................................          60           75           72
   New guaranteed loans..................................................          52           65           55
   Change in outstandings................................................          22           38           29
   Outstandings..........................................................         184          222          251
 
                       Department of Transportation
 
                         Office of the Secretary
 
Minority business resource center guaranteed loan financing account:
   Commitments...........................................................          14           18           18
   New guaranteed loans..................................................           7           18           18
   Change in outstandings................................................           7           17           11
   Outstandings..........................................................           7           24           35
 
                      Federal Highway Administration
 
Transportation infrastructure finance and innovation program loan
 guarantee financing account:
   Commitments...........................................................  ...........         200          100
   New guaranteed loans..................................................  ...........         160          183
   Change in outstandings................................................  ...........         160          183
   Outstandings..........................................................  ...........         160          343
 
                         Maritime Administration
 
Federal ship financing fund liquidating account:
   Commitments...........................................................  ...........  ...........  ...........
   New guaranteed loans..................................................  ...........  ...........  ...........
   Change in outstandings................................................         -66          -60          -55
   Outstandings..........................................................         182          122           67
 
Maritime guaranteed loan (title XI) financing account:
   Commitments...........................................................         729          800   ...........
   New guaranteed loans..................................................         729          800   ...........
   Change in outstandings................................................         543          -42         -224
   Outstandings..........................................................       4,738        4,696        4,472
 
                        Department of the Treasury
 
                           Departmental Offices
 
Air transportation stabilization guaranteed loan financing account:
   Commitments...........................................................  ...........       5,000        5,000
   New guaranteed loans..................................................  ...........       5,000        5,000
   Change in outstandings................................................  ...........       3,910        3,046
   Outstandings..........................................................  ...........       3,910        6,956
 
                      Department of Veterans Affairs
 
                     Veterans Benefits Administration
 
Veterans housing benefit program fund liquidating account:
   Commitments...........................................................  ...........  ...........  ...........
   New guaranteed loans..................................................  ...........  ...........  ...........
   Change in outstandings................................................      -3,558       -2,571       -1,876
   Outstandings..........................................................       9,182        6,611        4,735
 
Veterans housing benefit program fund guaranteed loan financing account:
   Commitments...........................................................      31,948       33,286       34,364
   New guaranteed loans..................................................      31,948       33,286       34,364
   Change in outstandings................................................      16,137       11,138       11,963
   Outstandings..........................................................     227,705      238,843      250,806
 
                    International Assistance Programs
 
                    International Security Assistance
 
Foreign military loan liquidating account:
   Commitments...........................................................  ...........  ...........  ...........
   New guaranteed loans..................................................  ...........  ...........  ...........
   Change in outstandings................................................        -357         -350         -348
   Outstandings..........................................................       4,194        3,844        3,496
 

[[Page 230]]

 
                   Agency for International Development
 
Loan guarantees to Israel financing account:
   Commitments...........................................................  ...........  ...........  ...........
   New guaranteed loans..................................................  ...........  ...........  ...........
   Change in outstandings................................................  ...........         -20         -157
   Outstandings..........................................................       9,226        9,206        9,049
 
Development credit authority guaranteed loan financing account:
   Commitments...........................................................          35          265          109
   New guaranteed loans..................................................          33          136          142
   Change in outstandings................................................          33          116          121
   Outstandings..........................................................          39          155          276
 
Housing and other credit guaranty programs liquidating account:
   Commitments...........................................................  ...........  ...........  ...........
   New guaranteed loans..................................................  ...........  ...........  ...........
   Change in outstandings................................................        -140          -96          -96
   Outstandings..........................................................       1,596        1,500        1,404
 
Microenterprise and small enterprise development guaranteed loan
 financing account:
   Commitments...........................................................          36           31   ...........
   New guaranteed loans..................................................           5           24           22
   Change in outstandings................................................         -28            4           10
   Outstandings..........................................................          36           40           50
 
Urban and environmental credit guaranteed loan financing account:
   Commitments...........................................................  ...........  ...........  ...........
   New guaranteed loans..................................................  ...........          22           17
   Change in outstandings................................................         -31          -12          -18
   Outstandings..........................................................         514          502          484
                 Overseas Private Investment Corporation
 
Overseas Private Investment Corporation liquidating account:
   Commitments...........................................................  ...........  ...........  ...........
   New guaranteed loans..................................................  ...........  ...........  ...........
   Change in outstandings................................................         -18           -7           -9
   Outstandings..........................................................          26           19           10
 
Overseas Private Investment Corporation guaranteed loan financing
 account:
   Commitments...........................................................       1,024          666          765
   New guaranteed loans..................................................         470          525          525
   Change in outstandings................................................         252          163          280
   Outstandings..........................................................       3,350        3,513        3,793
 
                      Small Business Administration
 
Pollution control equipment fund liquidating account:
   Commitments...........................................................  ...........  ...........  ...........
   New guaranteed loans..................................................  ...........  ...........  ...........
   Change in outstandings................................................         -23           -7           -4
   Outstandings..........................................................          16            9            5
 
Business guaranteed loan financing account:
   Commitments...........................................................      13,990       22,458       16,350
   New guaranteed loans..................................................      10,963        9,111       10,111
   Change in outstandings................................................       3,368        3,068        1,910
   Outstandings..........................................................      35,107       38,175       40,085
 
Business loan fund liquidating account:
   Commitments...........................................................  ...........  ...........  ...........
   New guaranteed loans..................................................  ...........  ...........  ...........
   Change in outstandings................................................        -509         -325         -255
   Outstandings..........................................................       1,501        1,176          921
 
                        Other Independent Agencies
 
                 Export-Import Bank of the United States
 
Export-Import Bank of the United States liquidating account:
   Commitments...........................................................  ...........  ...........  ...........
   New guaranteed loans..................................................  ...........  ...........  ...........
   Change in outstandings................................................        -163         -351         -229
   Outstandings..........................................................         941          590          361
 

[[Page 231]]

 
Export-Import Bank guaranteed loan financing account:
   Commitments...........................................................       8,370       10,239       11,321
   New guaranteed loans..................................................       7,504        6,965        8,384
   Change in outstandings................................................         906          990       -1,934
   Outstandings..........................................................      29,584       30,574       28,640
 
                   National Credit Union Administration
 
Credit union share insurance fund:
   Commitments...........................................................           4            3            4
   New guaranteed loans..................................................           4            3            4
   Change in outstandings................................................           3            2           -2
   Outstandings..........................................................           7            9            7
 
                              Presidio Trust
 
Presidio Trust guaranteed loan financing account:
   Commitments...........................................................  ...........  ...........         100
   New guaranteed loans..................................................  ...........  ...........          50
   Change in outstandings................................................  ...........  ...........          49
   Outstandings..........................................................  ...........  ...........          49
                                                                          --------------------------------------
Subtotal, Guaranteed loans (gross)
   Commitments...........................................................     418,013      531,803      482,758
   New guaranteed loans..................................................     366,667      373,556      367,513
   Change in outstandings................................................      41,855       81,051      139,289
   Outstandings..........................................................   1,688,507    1,769,558    1,908,847
 
Less, secondary guaranteed loans: \1\
 
GNMA guarantees of FmHA/VA/FHA pools:
   Commitments...........................................................    -161,657     -238,343     -200,000
   New guaranteed loans..................................................    -153,798     -120,000     -120,000
   Change in outstandings................................................      -1,556      -23,298      -47,820
   Outstandings..........................................................    -604,443     -627,741     -675,561
                                                                          ======================================
Total, primary guaranteed loans: \2\
   Commitments...........................................................     256,356      293,460      282,758
   New guaranteed loans..................................................     212,869      253,556      247,513
   Change in outstandings................................................      40,299       57,753       91,469
   Outstandings..........................................................   1,084,064    1,141,817    1,233,286
----------------------------------------------------------------------------------------------------------------
\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 232]]


                Table 9-11. LENDING AND BORROWING BY GOVERNMENT-SPONSORED ENTERPRISES (GSEs) \1\
                                            (In millions of dollars)
----------------------------------------------------------------------------------------------------------------
                                                                                                Estimate
                                Enterprise                                     2001    -------------------------
                                                                             Actual         2002         2003
----------------------------------------------------------------------------------------------------------------
                                 LENDING
 
Student Loan Marketing Association:
   Net change............................................................       3,819         -373       -3,644
   Outstandings..........................................................      41,032       40,659       37,015
 
Federal National Mortgage Association:
  Portfolio programs:
   Net change............................................................     112,884      117,677      125,227
   Outstandings..........................................................     700,484      818,161      943,388
  Mortgage-backed securities:
   Net change............................................................     116,278      141,037      139,874
   Outstandings..........................................................     822,382      963,419    1,103,293
 
Federal Home Loan Mortgage Corporation:
  Portfolio programs:
   Net change............................................................     109,226       71,370       77,117
   Outstandings..........................................................     470,850      542,220      619,337
  Mortgage-backed securities:
   Net change............................................................      76,602       38,787       56,656
   Outstandings..........................................................     635,844      674,631      731,287
 
Farm Credit System:
  Agricultural credit bank:
   Net change............................................................         318          745          823
   Outstandings..........................................................      19,588       20,333       21,156
  Farm credit banks:
   Net change............................................................       5,752        2,566        2,477
   Outstandings..........................................................      52,445       55,011       57,488
  Federal Agricultural Mortgage Corporation:
   Net change............................................................       1,576        1,106   ...........
   Outstandings..........................................................       4,894        6,000        6,000
 
Federal Home Loan Banks:
   Net change............................................................      44,908   ...........  ...........
   Outstandings..........................................................     489,413      489,413      489,413
                                                                          --------------------------------------
Subtotal GSE lending (gross):
   Net change............................................................     471,363      372,915      398,530
   Outstandings..........................................................   3,236,932    3,609,847    4,008,377
 
Less guaranteed loans purchased by:
  Student Loan Marketing Association:
   Net change............................................................       3,819         -373       -3,644
   Outstandings..........................................................      41,032       40,659       37,015
  Federal National Mortgage Association:
   Net change............................................................        -336   ...........  ...........
   Outstandings..........................................................      62,599       62,599       62,599
  Other:
   Net change............................................................       1,784   ...........  ...........
   Outstandings..........................................................      23,615       23,615       23,615
                                                                          --------------------------------------
Total GSE lending (net):
   Net change............................................................     466,096      373,288      402,174
   Outstandings..........................................................   3,109,686    3,482,974    3,885,148
 
                                BORROWING
 
Student Loan Marketing Association:
   Net Change............................................................       5,820       -2,640       -4,776
   Outstandings..........................................................      47,321       44,681       39,905
 
Federal National Mortgage Association:
  Portfolio programs:
   Net Change............................................................     119,953      122,184      133,147
   Outstandings..........................................................     726,992      849,176      982,323
  Mortgage-backed securities:
   Net Change............................................................     116,278      141,037      139,874
   Outstandings..........................................................     822,382      963,419    1,103,293
 

[[Page 233]]

 
Federal Home Loan Mortgage Corporation:
  Portfolio programs:
   Net Change............................................................     124,518       74,072       71,836
   Outstandings..........................................................     531,312      605,384      677,220
  Mortgage-backed securities:
   Net Change............................................................      76,602       38,787       56,656
   Outstandings..........................................................     635,844      674,631      731,287
 
Farm Credit System:
  Agricultural credit bank:
   Net Change............................................................         304          808          894
   Outstandings..........................................................      21,275       22,083       22,977
  Farm credit banks:
   Net Change............................................................       5,895        3,232        3,168
   Outstandings..........................................................      58,010       61,242       64,410
  Federal Agricultural Mortgage Corporation:
   Net Change............................................................           9          204          -10
   Outstandings..........................................................       2,870        3,074        3,064
 
Federal Home Loan Banks:
   Net Change............................................................      34,281   ...........  ...........
   Outstandings..........................................................     611,338      611,338      611,338
                                                                          --------------------------------------
Subtotal GSE borrowing (gross):
   Net change............................................................     483,660      377,684      400,789
   Outstandings..........................................................   3,457,344    3,835,028    4,235,817
 
Less borrowing from other GSEs:
   Net Change............................................................      61,565   ...........  ...........
   Outstandings..........................................................     181,909      181,909      181,909
Less purchase of Federal debt securities:
   Net Change............................................................       1,506          -32         -141
   Outstandings..........................................................       3,126        3,094        2,953
Less borrowing to purchase loans guaranteed by:
  Student Loan Marketing Association:
   Net Change............................................................       3,819         -373       -3,644
   Outstandings..........................................................      41,032       40,659       37,015
  Federal National Mortgage Association:
   Net Change............................................................        -336   ...........  ...........
   Outstandings..........................................................      62,599       62,599       62,599
  Other:
   Net Change............................................................       1,784   ...........  ...........
   Outstandings..........................................................      23,615       23,615       23,615
                                                                          ======================================
Total GSE borrowing (net):
   Net change............................................................     415,322      378,089      404,574
   Outstandings..........................................................   3,145,063    3,523,152    3,927,726
----------------------------------------------------------------------------------------------------------------
\1\ The estimates of borrowing and lending were developed by the GSEs based on certain assumptions but are
  subject to periodic review and revision and do not represent offficial GSE forecasts of future activity, nor
  are they reviewed by the President. The data for all years include programs of mortgage-backed securities. In
  cases where a GSE owns securities issued by the same GSE, including mortgage-backed securities, the borrowing
  and lending data for that GSE are adjusted to remove double-counting.


[[Page 234]]


                                   Table 9-12. GOVERNMENT-SPONSORED ENTERPRISE PARTICIPATION IN THE CREDIT MARKET \1\
                                                              (Dollar amounts in billions)
--------------------------------------------------------------------------------------------------------------------------------------------------------
                                                                                            Actual
                                    --------------------------------------------------------------------------------------------------------------------
                                       1965     1970     1975     1980     1985     1990     1995     1996     1997     1998     1999     2000     2001
--------------------------------------------------------------------------------------------------------------------------------------------------------
Total net lending in credit market.     66.8     88.2    169.6    336.9    829.3    705.2    702.5    716.4    724.1    985.2  1,110.4    933.4  1,008.0
                                    --------------------------------------------------------------------------------------------------------------------
Government-sponsored enterprise          1.2      4.9      5.3     21.4     57.9    115.4    125.7    141.5    112.8    293.1    284.0    245.6    466.1
 loans \2\.........................
                                    --------------------------------------------------------------------------------------------------------------------
GSE lending participation rate           1.8      5.6      3.1      6.4      7.0     16.4     17.9     19.8     15.6     29.8     25.6     26.3     46.2
 (percent).........................
========================================================================================================================================================
Total net borrowing in credit           66.8     88.2    169.6    336.9    829.3    705.2    702.5    716.4    724.1    985.2  1,110.4    933.4  1,008.0
 market............................
                                    --------------------------------------------------------------------------------------------------------------------
Government-sponsored enterprise          1.4      5.2      5.5     24.1     60.7     90.0     68.2    161.2    107.9    276.2    346.8    277.9    415.3
 borrowing \2\.....................
                                    --------------------------------------------------------------------------------------------------------------------
GSE borrowing participation rate         2.1      5.9      3.2      7.2      7.3     12.8      9.7     22.5     14.9     28.0     31.2     29.8     41.2
 (percent).........................
--------------------------------------------------------------------------------------------------------------------------------------------------------
\1\ Government-sponsored enterprises (GSEs) are financial intermediaries. GSE borrowing (lending) is nevertheless compared with total credit market
  borrowing (lending) by nonfinancial sectors, because GSE borrowing (lending) is a proxy for the borrowing (lending) by nonfinancial sectors that the
  GSEs assist through intermediation. The GSEs assist the ultimate nonfinancial borrower by purchasing its loans from the initial, direct lender or by
  other methods, which they finance by issuing securities themselves in the credit market. Borrowing and lending include mortgage-backed securities,
  because the GSEs assist nonfinancial borrowers through this type of intermediation as well as by types of intermediation that involve financial
  instruments recognized on the GSEs' balance sheets. The data for this table are adjusted, with some degree of approximation, to remove double counting
  in making a comparison with other Federal and federally guaranteed transactions. GSE borrowing and lending are calculated net of transactions between
  components of GSEs and transactions in guaranteed loans; GSE borrowing is also calculated net of borrowing from other GSEs and purchases of Federal
  debt securities.
 
\2\ Total net borrowing (or lending) in credit market by domestic nonfinancial sectors, excluding equities. Credit market borrowing (lending) is the
  acquisition (loan) of funds other than equities through formal credit channels. Financial sectors are omitted from the series used in this table to
  avoid double counting, since financial intermediaries borrow in the credit market primarily in order to finance lending in the credit market.
  Equities, trade credit, security credit, and other sources of funds are also excluded from this series. Source: Federal Reserve Board flow of funds
  accounts. Estimates for 2002 and 2003 are not available.


[[Page 235]]


                                 Table 9-13. BORROWING BY FINANCING VEHICLES \1\
                                            (In millions of dollars)
----------------------------------------------------------------------------------------------------------------
                                                                                                Estimate
                            Financing Vehicle                                  2001    -------------------------
                                                                             Actual         2002         2003
----------------------------------------------------------------------------------------------------------------
 
Financing Corporation (FICO):
   Net change............................................................           1            2            1
   Outstandings..........................................................       8,148        8,150        8,151
 
Resolution Funding Corporation (REFCORP):
   Net change............................................................          -2           -2           -2
   Outstandings..........................................................      30,062       30,060       30,058
                                                                          --------------------------------------
Subtotal, gross borrowing:
   Net change............................................................          -1   ...........          -1
   Outstandings..........................................................      38,210       38,210       38,209
 
Less purchases of Federal debt securities:
   Net change............................................................         594          644          698
   Outstandings..........................................................       7,763        8,407        9,105
                                                                          --------------------------------------
Total, net borrowing:
   Net change............................................................        -595         -644         -699
   Outstandings..........................................................      30,447       29,803       29,104
----------------------------------------------------------------------------------------------------------------
\1\ Financing vehicles are Government corporations established pursuant to law in order to provide financing for
  a Federal program but excluded from the on-budget and off-budget totals. FICO and REFCORP borrowed from the
  public in the past but have not loaned to the public. During the period covered by this table, the change in
  debt outstanding is due solely to the amortization of discounts and premiums. No sale or redemption of debt
  securities occurred in 2001 or is estimated to occur in 2002 or 2003.