[Federal Register Volume 63, Number 176 (Friday, September 11, 1998)]
[Rules and Regulations]
[Pages 48988-48994]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 98-24415]


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Part VII





Department of Housing and Urban Development





_______________________________________________________________________



24 CFR Parts 50 and 1005



Loan Guarantees for Indian Housing; Direct Guarantee Processing; 
Interim Rule

  Federal Register / Vol. 63, No. 176 / Friday, September 11, 1998 / 
Rules and Regulations  

[[Page 48988]]



DEPARTMENT OF HOUSING AND URBAN DEVELOPMENT

24 CFR Parts 50 and 1005

[Docket No. FR-4241-I-01]
RIN 2577-AB78


Loan Guarantees for Indian Housing; Direct Guarantee Processing

AGENCY: Office of the Secretary, HUD.

ACTION: Interim rule.

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SUMMARY: This interim rule establishes for the section 184 Indian 
Housing loan guarantee program a new ``direct guarantee'' procedure 
modelled in part on the FHA single family mortgage insurance ``direct 
endorsement'' procedure, under which HUD staff are not involved in the 
processing or approval of individual loans before closing.

DATES: Effective date: October 13, 1998.
    Comment Due Date: November 10, 1998.

ADDRESSES: Interested persons are invited to submit comments regarding 
this interim rule to the Regulations Division, Office of General 
Counsel, Room 10276, Department of Housing and Urban Development, 451 
Seventh Street, SW, Washington, DC 20410-0500. Comments should refer to 
the above docket number and title. A copy of each comment submitted 
will be available for public inspection and copying during regular 
business hours at the above address. Facsimile (FAX) comments are not 
acceptable.

FOR FURTHER INFORMATION CONTACT: Karen Garner-Wing, Director, Office of 
Loan Guarantees, Office of Native American Programs, Department of 
Housing and Urban Development, 1999 Broadway, Suite 3390, Denver, CO 
80202. Telephone: (303) 675-1600. (This is not a toll-free number.) For 
hearing- and speech-impaired persons, this number may be accessed via 
TTY by calling the Federal Information Relay Service at 1-800-877-8339.

SUPPLEMENTARY INFORMATION:

Background

    HUD implemented its section 184 loan guarantee program for Indian 
Housing through an interim rule published at 59 FR 42732 (August 18, 
1994) to add a new 24 CFR part 955. The interim rule anticipated that 
HUD would be involved in loan underwriting decisions. Although the rule 
did not clearly say when HUD's involvement would occur--before loan 
closing or simply before the certificate of guarantee was issued--HUD 
anticipated that a HUD Field Office would review the application and 
make its underwriting judgment before the loan closing rather than 
through a post-closing loan review procedure. Based on its pre-closing 
review, HUD would issue a commitment to guarantee and the lender would 
close the loan in accordance with this commitment. The commitment 
procedure was mentioned in interim Sec. 955.105(d)(2), which restricts 
advances on construction loans to advances made as provided in the 
commitment.
    HUD issued a final version of part 955 on March 6, 1996 (61 FR 
9052). In addition to responding to public comments on the interim 
rule, HUD used the final rule as an opportunity for including part 955 
in HUD's efforts to streamline its rules by eliminating repetition of 
statutory requirements or provisions that could appropriately be 
handled in a non-regulatory manner through administrative issuances. 
However, a fuller ``Guide to Loan Guarantees for Indian Housing'' 
including the interim rule material removed in the final rule was 
published as an Appendix to the final rule. HUD did not indicate in the 
final rule any intention to change its approach to processing loans for 
guarantees. The final rule also retained the reference to 
``commitment'' in Sec. 955.105(d)(1).
    For these reasons the Department considers it appropriate to offer 
an opportunity for public comment prior to final adoption of a ``Direct 
Guarantee'' alternative procedure which would dispense with commitments 
and pre-loan closing underwriting review by HUD, with HUD review 
occurring after loan closing but before guarantee of the loan. As 
explained below, however, there would be no public benefit in delaying 
the availability of the procedure to those mortgagees and mortgagors 
who could benefit from it immediately upon publication of this interim 
rule.
    This interim rule reflects changes made and discussed as part of 
the recent final rule entitled ``Implementation of the Native American 
Housing Assistance and Self-Determination Act,'' published on March 12, 
1998 at 63 FR 12334. In particular, part 955 has been redesignated as 
part 1005.

Content of Rule

    The proposed Direct Guarantee procedure for the Indian Housing Loan 
Guarantee program resembles the Direct Endorsement (DE) program for FHA 
single family mortgage insurance. The Department has determined that it 
is not necessary for most of the processing details of this similar 
Direct Guarantee program to be published in regulatory form. The key 
feature of the new procedure, as described in Sec. 1005.106(a), is that 
the Department's approval of the loan will occur after the loan is 
closed but before the loan is guaranteed. Instead of adding extensive 
new material this interim rule makes only those changes needed to avoid 
conflict between part 1005 and the intended manner of implementation, 
and to provide a sound legal basis for any necessary administrative 
actions against lenders approved for the Direct Guarantee procedure. As 
an Appendix to this rule, the Department is updating the ``Guide to 
Loan Guarantees for Indian Housing'' that was published with the final 
version of part 955 (now part 1005), to reflect recent legislation and 
the availability of the new alternative Direct Guarantee procedure and 
to make other minor improvements. The updated Appendix will not be 
included in the Code of Federal Regulations.
    One streamlining change is made: Sec. 1005.111 is shortened 
substantially by removing language that repeated verbatim the 
provisions of section 184(j) regarding housing safety and quality 
standards.
    The following other technical changes or corrections to part 1005 
are made:
    1. In Sec. 1005.103, the definition of ``mortgage'' is clarified to 
include a loan with collateral other than the home. A new definition of 
``trust or restricted land'' is added with the same meaning as ``trust 
land'' in section 184(k)(9) of the statute. The rule currently uses the 
terms ``trust land'', ``trust and restricted land'' and ``trust land or 
restricted Indian land'' to describe the same property. By adopting a 
single defined term and making conforming changes in Secs. 1005.101, 
1005.105(f) and 1005.107(b), the Department intends to clarify that the 
same rule provisions apply to land held in trust by the United States 
and other land not held in trust but subject to a restriction against 
alienation imposed by the United States.
    2. Sections 1005.104(d) and (e) are amended to clarify that they do 
not include lenders approved by the Secretary under other authorities, 
such as Title I lenders approved under 24 CFR part 202.
    3. Section 1005.105(d)(2) is amended to provide that loan advances 
are to be made as provided in the building loan agreement instead of 
the commitment, and the term ``building loan agreement'' is substituted 
for ``loan agreement'' in Sec. 1005.105(d)(3).
    4. Section 1005.105(d)(3) is corrected to restore a reference to 
advancement to the mortgagor that was inadvertently

[[Page 48989]]

omitted, and a conforming change is made to Sec. 1005.105(d)(4).
    5. The introductory language of Sec. 1005.107(b) is amended to 
indicate that a leasehold of trust land rather than the land itself can 
be collateral, and a reference in Sec. 1005.107(b)2) to the ``loan 
form'' is corrected to refer to the ``lease form''.
    6. The rule makes a non-substantive revision to Sec. 1005.112 to 
improve clarity.
    This interim rule also amends HUD's environmental rules at 24 CFR 
50.19(b)(17) (as amended by 62 FR 15802, April 2, 1997) to apply to the 
Direct Guarantee procedure the same categorical exclusion from 
environmental review under the National Environmental Policy Act of 
1969 (NEPA) and other Federal environmental laws and authorities that 
currently applies to the FHA DE program and the recently announced FHA 
Lender Insurance program for single family mortgages. As with those 
programs, under the Direct Guarantee procedure HUD will have no 
involvement in the processing of an individual loan before it has 
closed, so that HUD cannot prevent a loan closing on the basis of an 
assessment of environment factors presented by a particular property. 
As with DE and Lender Insurance mortgages, Direct Guarantee loans will 
be subject to requirements for the purchase of flood insurance on 
structures located in special flood hazard areas mapped by the Federal 
Emergency Management Agency, a prohibition of loan guarantees on 
properties in the Coastal Barriers Resources System, and a requirement 
for notice to purchasers of properties located in airport clear zones.
    The rule also restores language that was deleted in a 1996 
streamlining of 24 CFR part 50 to make clear that the categorical 
exclusion of Sec. 50.19(b)(17) applies only when HUD does not review or 
approve a loan before the completion of construction or rehabilitation 
and the loan closing. In accordance with this limitation, the 
categorical exclusion would not apply in those Direct Guarantee cases 
where HUD guarantees a loan for which advances will be made during 
construction; accordingly, before approving loans in those cases HUD 
will be required to comply, where applicable, with the related Federal 
laws and authorities listed in Sec. 50.4. A separate categorical 
exclusion from the NEPA requirements of 24 CFR part 50 will apply 
(Sec. 50.20(a)(3)).
    In a related change, the current Sec. 1005.105(e) is revised to 
reflect the new Direct Guarantee procedure and a new sentence is added 
to provide that procedures similar to the FHA builder certification 
procedures in 24 CFR 203.12(c)(2) will be required for proposed or new 
construction. Under those procedures, a builder reviews the area for 
environmental problems and hazards.

Findings and Certifications

Justification for Interim Rule

    It is the general practice of the Department to provide a 60-day 
public comment period on all rules in accordance with 24 CFR part 10. 
However, part 10 provides that prior public procedure will be omitted 
if HUD determines that it is ``impracticable, unnecessary, or contrary 
to the public interest'' (24 CFR 10.1). HUD considers that this 
standard has been met.
    The interim rule does not require any lender currently 
participating in the Indian Housing Loan Guarantee program, or that may 
desire to participate in the future, to use the Direct Guaranty 
procedure. Commitments to guarantee will continue to be available from 
HUD in advance of loan closing for eligible loans upon application by 
the lender. The interim rule simply makes available a second method of 
processing, which HUD believes will have clear advantages for many 
lenders and borrowers, by reducing delays that can result from limited 
HUD resources in both pre-loan review and in post-loan issuance of the 
guaranty. Delaying the availability of this new procedure for those 
mortgagees who regard it as advantageous would not be in the public 
interest.
    In the interest of obtaining the fullest participation possible in 
determining the proper means of administering the Indian Housing Loan 
Guarantee program, the Department invites public comment on the interim 
rule. The comments received within the 60-day comment period will be 
considered during development of a final rule that ultimately will 
supersede this interim rule.

Executive Order 12866

    This interim rule was reviewed by the Office of Management and 
Budget (OMB) under Executive Order 12866, Regulatory Planning and 
Review. OMB determined that this rule is a ``significant regulatory 
action,'' as defined in section 3(f) of the Order (although not 
economically significant under section (3)(f)(1) of the Order). Any 
changes made to the interim rule subsequent to its submission to OMB 
are clearly identified in the docket file, which is available for 
public inspection in the office of the Department's Rules Docket Clerk, 
Room 10276, 451 Seventh Street SW, Washington DC, 20410.

Regulatory Flexibility Act

    The Secretary, in accordance with the Regulatory Flexibility Act (5 
U.S.C. 605(b)), has reviewed and approved this interim rule, and in so 
doing certifies that this rule does not have a significant economic 
impact on a substantial number of small entities. This interim rule 
merely authorizes an alternative procedure for obtaining HUD guarantee 
for an Indian Housing loan. The rule has no adverse or disproportionate 
economic impact on small businesses. Small businesses are specifically 
invited, however, to comment on whether this rule will significantly 
affect them, and persons are invited to submit comments according to 
the instructions in the DATES and ADDRESSES sections in the preamble of 
this interim rule.

Environmental Impact

    A Finding of No Significant Impact with respect to the environment 
has been made in accordance with HUD regulations at 24 CFR part 50 that 
implement section 102(2)(C) of the National Environmental Policy Act of 
1969, 42 U.S.C. 4332. The Finding of No Significant Impact is available 
for public inspection and copying during regular business hours (7:30 
a.m. to 5:30 p.m.) in the Office of the Rules Docket Clerk, Room 10276, 
451 Seventh Street, S.W., Washington, D.C. 20410-0500.

Executive Order 12612, Federalism

    The General Counsel, as the Designated Official under section 6(a) 
of Executive Order 12612, Federalism, has determined that this interim 
rule would not have substantial direct effects on States or their 
political subdivisions, or the relationship between the Federal 
government and the States, or on the distribution of power and 
responsibilities among the various levels of government. No 
programmatic or policy changes would result from this interim rule that 
affect the relationship between the Federal Government and State and 
local governments.

Unfunded Mandates Reform Act

    Title II of the Unfunded Mandates Reform Act of 1995 (Pub. L. 104-
4; approved March 22, 1995) (UMRA) establishes requirements for Federal 
agencies to assess the effects of their regulatory actions on State, 
local, and tribal governments, and on the private sector. This rule 
does not impose any Federal mandates on any State, local, or tribal 
governments, or on the private

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sector, within the meaning of the UMRA.

Catalog

    The Catalog of Federal Domestic Assistance number for the Loan 
Guarantees for Indian Housing program is 14.865.

List of Subjects

24 CFR Part 50

    Compliance record, Environmental impact statement, Environmental 
protection.

24 CFR Part 1005

    Indians, Reporting and recordkeeping requirements.
    Accordingly, parts 50 and 1005 of title 24 of the Code of Federal 
Regulations are amended as follows:

PART 50--PROTECTION AND ENHANCEMENT OF ENVIRONMENTAL QUALITY

    1. The authority citation for part 50 continues to read as follows:

    Authority: 42 U.S.C. 3535(d) and 4332; and Executive Order 
11991, 3 CFR, 1977 Comp., p. 123.

    2. Section 50.19(b)(17) is revised to read as follows:


Sec. 50.19  Categorical exclusions not subject to the Federal laws and 
authorities cited in Sec. 50.4.

* * * * *
    (b) * * *
    (17) HUD's insurance of one-to-four family mortgages under the 
Direct Endorsement program, the insurance of one-to-four family 
mortgages under the Lender Insurance program, and HUD's guarantee of 
loans for one-to-four family dwellings under the Direct Guarantee 
procedure for the Indian Housing loan guarantee program, without any 
HUD review or approval before the completion of construction or 
rehabilitation and the loan closing; and HUD's acceptance for insurance 
of loans insured under Title I of the National Housing Act; however, 
compliance with Secs. 50.4(b)(1) and (c)(1) and 24 CFR 51.303(a)(3) is 
required.
* * * * *

PART 1005--LOAN GUARANTEES FOR INDIAN HOUSING

    3. The authority citation for part 1005 continues to read as 
follows:

    Authority: 42 U.S.C. 1715z-13a and 3535(d).

    4. Section 1005.101 is revised to read as follows:


Sec. 1005.101  What is the applicability and scope of these 
regulations?

    Under the provisions of section 184 of the Housing and Community 
Development Act of 1992, as amended by Native American Housing 
Assistance and Self-Determination Act of 1996 (12 U.S.C. 1715z-13a), 
the Department of Housing and Urban Development (the Department or HUD) 
has the authority to guarantee loans for the construction, acquisition, 
or rehabilitation of 1- to 4-family homes that are standard housing 
located on trust or restricted land or land located in an Indian or 
Alaska Native area, and for which an Indian Housing Plan has been 
submitted and approved under 24 CFR part 1000. This part provides 
requirements that are in addition to those in section 184.
    5. Section 1005.103 is amended by revising the definition of 
``mortgage'' and adding definitions of ``property'' and ``trust and 
restricted land'' to read as follows:


Sec. 1005.103  What definitions are applicable to this program?

* * * * *
    Mortgage means:
    (1)(i) A first lien as is commonly given to secure advances on, or 
the unpaid purchase price of, real estate under the laws of the 
jurisdiction where the property is located and may refer to a security 
instrument creating a lien, whether called a mortgage, deed of trust, 
security deed, or another term used in a particular jurisdiction; or
    (ii) A loan secured by collateral as required by 24 CFR 1005.107; 
and
    (2) The credit instrument, or note, secured thereby.
* * * * *
    Property means the property constructed, acquired, or rehabilitated 
with the guaranteed loan, except when the context indicates that the 
term means other collateral for the loan.
* * * * *
    Trust or restricted land has the meaning given to ``trust land'' in 
section 184(k)(9) of the Housing and Community Development Act of 1992.
    6. Section 1005.104 is amended by revising paragraphs (d) and (e) 
to read as follows:


Sec. 1005.104  What lenders are eligible for participation?

* * * * *
    (d) Any other lender that is supervised, approved, regulated, or 
insured by any other agency of the United States; or
    (e) Any other lender approved by the Secretary under this part.
    7. Section 1005.105 is amended by revising paragraphs (d)(2), 
(d)(3), (d)(4), (e), and (f) to read as follows:


Sec. 1005.105  What are eligible loans?

* * * * *
    (d) * * *
    (2) The advances may be made only as provided in the building loan 
agreement;
    (3) The principal amount of the mortgage is held by the mortgagee 
in an interest bearing account, trust, or escrow for the benefit of the 
mortgagor, pending advancement to the mortgagor or the mortgagor's 
creditors as provided in the loan agreement; and
    (4) The mortgage shall bear interest on the amount advanced to the 
mortgagor or the mortgagor's creditors and on the amount held in an 
account or trust for the benefit of the mortgagor.
    (e) Environmental compliance. Prior to the Department's issuance of 
a commitment to guarantee any loan or (if no commitment is issued) 
prior to guarantee of any loan, there must be compliance with 
environmental review procedures to the extent applicable under part 50 
of this title. If the loan involves proposed or new construction, the 
Department will require compliance with procedures similar to those 
required by Sec. 203.12(c)(2) of this title for FHA mortgage insurance.
    (f) Lack of access to private financial markets. In order to be 
eligible for a loan guarantee if the property is not on trust or 
restricted land, the borrower must certify that the borrower lacks 
access to private financial markets. Borrower certification is the only 
certification required by HUD.
    8. A new Sec. 1005.106 is added to read as follows:


Sec. 1005.106  What is the Direct Guarantee procedure?

    (a) General. A loan may be processed under a Direct Guarantee 
procedure approved by the Department, under which the Department does 
not issue commitments to guarantee or review applications for loan 
guarantees before mortgages are executed by lenders approved for Direct 
Guarantee processing. The Department will approve a loan before the 
loan is guaranteed.
    (b) Mortgagee sanctions. Depending on the nature and extent of the 
noncompliance with the requirements applicable to the Direct Guarantee 
procedure, as determined by the Department, the Department may take 
such actions as are deemed appropriate and in accordance with published 
guidelines.
    9. Section 1005.107 is amended by adding a heading for paragraph 
(a) and

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by revising paragraph (a)(1), the introductory text of paragraph (b), 
and the first sentence of paragraph (b)(2) to read as follows:


Sec. 1005.107  What is eligible collateral?

    (a) In general. * * *
    (1) The property and/or improvements to be acquired, constructed, 
or rehabilitated, to the extent that an interest in such property is 
not subject to the restrictions against alienation applicable to trust 
or restricted land;
* * * * *
    (b) Leasehold of trust or restricted land as collateral. If a 
leasehold interest in trust or restricted land is used as collateral or 
security for the loan, the following additional provisions apply:
    (1) * * *
    (2) Assumption or sale of leasehold. The lease form must contain a 
provision requiring tribal consent before any assumption of an existing 
lease, except where title to the leasehold interest is obtained by the 
Department through foreclosure of the guaranteed mortgage or a deed in 
lieu of foreclosure. * * *
* * * * *
    10. Section 1005.111 is revised to read as follows:


Sec. 1005.111  What safety and quality standards apply?

    Loans guaranteed under section 184 must be for dwelling units which 
meet the safety and quality standards set forth in section 184(j).
    11. The first sentence of Sec. 1005.112 is revised to read as 
follows:


Sec. 1005.112  How do eligible lenders and eligible borrowers 
demonstrate compliance with applicable tribal laws?

    The lender and the borrower will each certify that they acknowledge 
and agree to comply with all applicable tribal laws. * * *

    Dated: August 4, 1998.
Andrew Cuomo,
Secretary.

    Note: The following appendix will not be codified in the Code of 
Federal Regulations.

Appendix--Guide To Loan Guarantees For Indian Housing

Section 1. Purpose, applicability and scope.
Section 2. Definitions.
Section 3. Eligible loans.
Section 4. Eligible housing.
Section 5. Eligible lenders.
Section 6. Eligible collateral.
Section 7. Procedures.
Section 8. Guarantee.
Section 9. Guarantee fee.
Section 10. Liability under guarantee.
Section 11. Transfer and assumptions.
Section 12. Disqualification of lenders and civil money penalties.
Section 12. Payment under guarantee.
Section 13. Certification of compliance with tribal laws, and 
enforcement.

Section 1. Purpose, Applicability and Scope

    The purpose of this guide is to present, in a single document, 
the statutory and regulatory requirements, and certain other 
important administrative requirements, that apply to the Loan 
Guarantees for Indian Housing Program under section 184 of the 
Housing and Community Development Act of 1992 (P.L. 102-550, 
approved October 28, 1992, as amended by the Native American Housing 
Assistance and Self-Determination Act of 1996 (P.L. 104-330.). 
Although it presents the regulatory and statutory requirements in a 
combined format, this guide is a secondary source for these 
requirements. Title 24 of the Code of Federal Regulations is the 
primary, governing source for regulatory requirements, and section 
184 is the primary, governing source for statutory requirements.
    Under section 184, the Department of Housing and Urban 
Development (the Department) has the authority to guarantee loans 
for the construction, acquisition, rehabilitation, or acquisition 
and rehabilitation, of 1- to 4-family homes on trust and restricted 
lands for Indians (including Alaska Natives) and certain other lands 
under the jurisdiction of an Indian tribe. This guide describes the 
eligibility of borrowers, lenders and property, as well as the 
benefits of the Indian Loan Guarantee Program.

Section 2. Definitions

    Default means the failure by a borrower to make any payment or 
to perform any other obligation under the terms of a loan, if such 
failure continues for a period of more than 30 days.
    Department or HUD means the U. S. Department of Housing and 
Urban Development.
    Direct guarantee means the underwriting procedure which 
qualified and approved mortgagees may use as described in 24 CFR 
1005.104. The Secretary will publish guidelines for Direct guaranty 
underwriting procedures and underwriter qualifications in a 
Guidebook. Compliance with these guidelines is the minimum standard 
of due diligence.
    Guarantee Fund means the Indian Housing Loan Guarantee Fund 
established under section 184(i) of the Housing and Community 
Development Act of 1992.
    Holder means the holder of the guarantee certificate and in this 
program is variously referred to as the lender, the holder of the 
certificate, the holder of the guarantee, and the mortgagee.
    Indian means any person recognized as being an Indian or Alaska 
Native by an Indian tribe, the Federal Government, or any State, and 
includes the term ``Native American''.
    Indian or Alaska Native area means the area within which an 
Indian housing authority or tribally designated housing entity 
(THDE), as defined in section 4 of the Native American Housing 
Assistance and Self-Determination Act of 1996, is authorized to 
provide housing.
    Indian Housing Authority (IHA) means any entity that is 
authorized to engage in or assist in the development or operation of 
low-income housing for Indians or housing subject to the provisions 
of section 184 and that is established either (1) by exercise of the 
power of self-government of an Indian tribe independent of State 
law, or (2) by operation of State law providing specifically for 
housing authorities for Indians, including regional housing 
authorities in the State of Alaska. The term includes tribally 
designated housing entities under the Native American Housing 
Assistance and Self-Determination Act of 1996.
    Mortgage means:
    (a)(i) A first lien as is commonly given to secure advances on, 
or the unpaid purchase price of, real estate under the laws of the 
jurisdiction where the property is located and may refer to a 
security instrument creating a lien, whether called a mortgage, deed 
of trust, security deed, or another term used in a particular 
jurisdiction; or
    (ii) A loan secured by collateral as required by 24 CFR 
1005.107; and
    (b) The credit instrument, or note, secured thereby.
    Mortgagee or lender means the same as holder.
    Mortgagor or borrower means the party receiving the loan, and 
authorized successors or assigns.
    Principal residence means the dwelling where the mortgagor 
maintains (or will maintain) his or her permanent place of abode, and 
typically spends (or will spend) the majority of the calendar year. A 
person may have only one principal residence at any one time.
    Secretary means the Secretary of Housing and Urban Development.
    Section 184 means section 184 of the Housing and Community 
Development Act of 1992.
    Standard housing means a dwelling unit or housing that complies 
with the requirements established in this guide.
    Tribe or Indian tribe means any tribe, band, nation or other 
organized group or community of Indians, including any Alaska Native 
village or regional or village corporation as defined in or 
established pursuant to the Alaska Native Claims Settlement Act, 
that is recognized as eligible for the special programs and services 
provided by the United States to Indians because of their status as 
Indians pursuant to the Indian Self-Determination and Education 
Assistance Act of 1975.
    Trust or restricted land means land, title to which is held by 
the United States for the benefit of an Indian or Indian tribe; or, 
land, title to which is held by an Indian tribe, subject to a 
restriction against alienation imposed by the United States.
    Underwriting is the evaluation of documentation to determine 
risk.

Section 3. Eligible Loans

    (a) In general. Only fixed rate, fixed term loans with even 
monthly payments are eligible under the Section 184 program.
    (b) Eligible borrowers. A loan guaranteed under Section 184 may 
be made to a borrower that is:

[[Page 48992]]

    (1) An Indian who will occupy it as a principal residence and 
who is otherwise qualified under this part;
    (2) An Indian Housing Authority; or
    (3) An Indian tribe.
    (c) Terms of loan. The loan shall:
    (1) Be made for a term not exceeding 30 years;
    (2) Bear interest (exclusive of the guarantee fee and service 
charges, if any) at a fixed rate agreed upon by the borrower and the 
lender and determined by the Department to be reasonable, which may 
not exceed the rate generally charged in the area (as determined by 
the Department) for home mortgage loans not guaranteed or insured by 
any agency or instrumentality of the Federal Government.
    (d) Maximum loan amounts.
    (1) A principal obligation may not exceed the lesser of:
    (i) 97.75 percent of the appraised value of the property as of 
the date the loan is accepted for guarantee (or 98.75 percent if the 
value of the property is $50,000 or less); and
    (ii) Amounts approved otherwise by the Department.
    (2) The balance of the purchase price must involve a payment on 
account of the property that may be:
    (i) In cash or other property of equivalent value acceptable to 
the lender and the Department, or
    (ii) The value of any improvements to the property made through 
the skilled or unskilled labor of the borrower, appraised in 
accordance with generally acceptable practices and procedures.
    (e) Construction advances. The Department may guarantee loans 
from which advances will be made during construction. The Department 
will provide guarantees for advances made by the mortgagee during 
construction if all of the following conditions are satisfied:
    (1) The mortgagor and the mortgagee execute a building loan 
agreement, approved by HUD, setting forth the terms and conditions 
under which advances will be made;
    (2) The advances are made only as provided in the building loan 
agreement;
    (3) The principal amount of the mortgage is held by the 
mortgagee in an interest bearing account, trust, or escrow for the 
benefit of the mortgagor, pending advancement to the mortgagor to 
the mortgagor's creditors as provided in the building loan 
agreement; and
    (4) The mortgage shall bear interest on the amount advanced to 
the mortgagor or to the mortgagor's creditors and on the amount held 
in an account or trust for the benefit of the mortgagor.
    (f) Environmental compliance. Prior to the Department's issuance 
of a commitment to guarantee any loan or (if no commitment is 
issued) prior to guarantee of any loan, there must be compliance 
with environmental review procedures to the extent applicable under 
24 CFR part 50. If the loan involves proposed or new construction, 
the Department will require compliance with procedures similar to 
those required by 24 CFR 203.12(c)(2) for FHA mortgage insurance.

Section 4. Eligible Housing

    (a) In general. A loan guaranteed under Section 184 may be used 
for the construction, acquisition, rehabilitation, or acquisition 
and rehabilitation, of a 1- to 4-family dwelling located on trust or 
restricted land, or land located in an Indian area that is under the 
jurisdiction of an Indian tribe for which an Indian housing plan has 
been submitted and approved pursuant to Sections 102 and 103 of the 
Native American Housing Assistance and Self-Determination Act of 
1996 that provides for the use of loan guarantees under Section 184 
to provide affordable homeownership housing in such areas.
    (b) Safety and quality standards. Loans guaranteed under Section 
184 shall be made only on dwelling units which meet safety and 
quality standards set forth herein. Each unit must:
    (1) Be decent, safe, sanitary, and modest in size and design;
    (2) Conform with applicable general construction standards for 
the region;
    (3) Contain a heating system that:
    (i) Has the capacity to maintain a minimum temperature in the 
dwelling of 65 degrees Fahrenheit during the coldest weather in the 
area;
    (ii) Is safe to operate and maintain;
    (iii) Delivers a uniform distribution of heat; and
    (iv) Conforms to any applicable tribal heating code or, if there 
is no applicable tribal code, an appropriate county, State, or 
National code;
    (4) Contain a plumbing system that:
    (i) Uses a properly installed system of piping;
    (ii) Includes a kitchen sink and a partitional bathroom with 
lavatory, toilet, and bath or shower; and
    (iii) Uses water supply, plumbing and sewage disposal systems 
that conform to any applicable tribal code or, if there is no 
applicable tribal code, the minimum standards established by the 
applicable county or State;
    (5) Contain an electrical system using wiring and equipment 
properly installed to safely supply electrical energy for adequate 
lighting and for operation of appliances that conforms to any 
applicable tribal code or, if there is no applicable tribal code, an 
appropriate county, State, or National code;
    (6) Be not less than:
    (i) 570 square feet in size, if designed for a family of not 
more than 4 persons;
    (ii) 850 square feet in size, if designed for a family of not 
less than 5 and more than 7 persons; and
    (iii) 1020 square feet in size, if designed for a family of not 
less than 8 persons, or
    (iv) The size provided under the applicable locally adopted 
standards for size of dwelling units; except that the Department, 
upon the request of a tribe or Indian Housing Authority, may waive 
the size requirements under this paragraph; and
    (7) Conform with the energy performance requirements for new 
construction established by the Department under section 526(a) of 
the National Housing Act.

Section 5. Eligible Lenders

    (a) Required approval. The loan shall be made only by a lender 
meeting qualifications established in this part, except that loans 
otherwise insured or guaranteed by any agency of the Federal 
Government, or made by an organization of Indians from amounts 
borrowed from the United States shall not be eligible for guarantee 
under this part. The following lenders are approved under this part:
    (1) Any mortgagee approved by the Department of Housing and 
Urban Development for participation in the single family mortgage 
insurance program under title II of the National Housing Act.
    (2) Any lender whose housing loans under chapter 37 of title 38, 
United States Code are automatically guaranteed pursuant to section 
1802(d) of such title.
    (3) Any lender approved by the Department of Agriculture to make 
guaranteed loans for single family housing under the Housing Act of 
1949.
    (4) Any other lender that is supervised, approved, regulated, or 
insured by any other agency of the Federal Government.
    (5) Any other lender approved by the Secretary under this part.
    (b) Direct guarantee approval. To be approved for the Direct 
guarantee program, a lender must be an approved mortgagee under 24 
CFR 202.6, 202.7 or 203.10, or must meet the requirements of section 
(a)(4) or (a)(5) above. In addition, the lender must establish that 
it meets the following qualifications:
    (1) The lender, or one of its principal officers, has 5 years of 
experience in the origination of single family mortgages.
    (2) The lender has on its permanent staff an underwriter meeting 
the standards of the Secretary and authorized by the lender to bind 
the lender on matters involving the origination of section 184 
mortgage loans through the direct guarantee procedure.
    (3) The lender must assure that its underwriter and technical 
staff have been trained and are knowledgeable in the section 184 
underwriting requirements.
    (4) The mortgagee must submit initially two section 184 mortgage 
loans, processed in accordance with the process set forth in section 
7(b) of this guide. The documents required by section 7(b) will be 
reviewed by the Secretary and, if acceptable, a firm commitment will 
be issued prior to loan closing. If the underwriting and processing 
of these two loans is satisfactory, then the lender may be approved 
to close subsequent loans without a prior commitment and submit them 
directly for guarantee in accordance with the process set forth in 
section 7(b). Unsatisfactory performance by the lender at this stage 
constitutes grounds for denial of approval for the direct guarantee 
procedure or for continued pre-closing review of a lender's 
submissions.
    (c) Mortgagee sanctions. Depending on the nature and extent of 
the noncompliance with the requirements applicable to the Direct 
Guarantee procedure, as determined by the Department, the Department 
may take such actions as are deemed appropriate and in accordance 
with published guidelines.

Section 6. Eligible Collateral

    (a) In general. A loan guaranteed under Section 184 may be 
secured by any collateral authorized under Federal, State, or tribal 
law

[[Page 48993]]

and determined by the lender and approved by the Department to be 
sufficient to cover the amount of the loan, and may include, but is 
not limited to, the following:
    (1) The property and/or improvements to be acquired, 
constructed, or rehabilitated, to the extent that an interest in 
such property is not subject to the restrictions of trust lands 
against alienation;
    (2) A first and/or second mortgage on property other than trust 
land;
    (3) Personal property; or
    (4) Cash, notes, an interest in securities, royalties, 
annuities, or any other property that is transferable and whose 
present value may be determined.
    (b) Leasehold on trust or restricted land as collateral. If a 
leasehold interest in trust or restricted land is used as collateral 
for the loan, the following additional provisions apply:
    (1) Approved Lease. Any land lease for a unit financed under 
Section 184 must be on a form approved by both HUD and the Bureau of 
Indian Affairs, U.S. Department of Interior.
    (2) Assumption or sale of leasehold. If a leasehold is used as 
security for the loan, the lease form must contain a provision 
requiring tribal consent before any assumption of an existing lease, 
except where title to the leasehold interest is obtained by the 
Department through foreclosure of the guaranteed mortgage. A 
mortgagee other than the Department must obtain tribal consent 
before obtaining title through a foreclosure sale. Tribal consent 
must be obtained on any subsequent transfer from the purchaser, 
including the Department, at foreclosure sale. The lease may not be 
terminated by the lessor without HUD's approval while the mortgage 
is guaranteed or held by the Department.
    (3) Eviction procedures. Before HUD will guarantee a loan 
secured by trust or restricted land, the tribe having jurisdiction 
over such property must notify the Department that it has adopted 
and will enforce procedures for eviction of defaulted mortgagors 
where the guaranteed loan has been foreclosed.
    (i) Enforcement. If the Department determines that the tribe has 
failed to enforce adequately its eviction procedures, HUD will cease 
issuing guarantees for loans for tribal members except pursuant to 
existing commitments by the Department or loan approvals by the 
lender under the Direct Guarantee procedure. Adequate enforcement is 
demonstrated where prior evictions have been completed within 60 
days after the date of the notice by HUD that foreclosure was 
completed.
    (ii) Review. If the Department ceases issuing guarantees in 
accordance with the first sentence of paragraph (c)(1) of this 
section, HUD shall notify the tribe of the reasons for such action 
and that the tribe may, within 30 days after notification of HUD's 
action, file a written appeal with the Field Office of Native 
American Programs (FONAP) Administrator. Within 30 days after 
notification of an adverse decision on the appeal by the FONAP 
Administrator, the tribe may file a written request for review with 
the Deputy Assistant Secretary, Office of Native American Programs 
(ONAP). Upon notification of an adverse decision by the Deputy 
Assistant Secretary, the tribe has 30 additional days to file an 
appeal with the Assistant Secretary for Public and Indian Housing. 
The determination of the Assistant Secretary shall be final, but the 
tribe may resubmit the issue to the Assistant Secretary for review 
at any subsequent time if new evidence or changed circumstances 
warrant reconsideration. (Any other administrative actions 
determined to be necessary to debar a tribe from participating in 
this program will be subject to the formal debarment or limited 
denial of participation procedures contained in 24 CFR part 24).

Section 7. Procedures.

    (a) Firm commitment procedure. Lenders that do not meet the 
approval requirements of section 5(b), or lenders approved for the 
direct guarantee procedure that do not process a particular loan 
using that procedure, must submit an application for section 184 
loan guarantee in a form prescribed by the Secretary, prior to 
making the loan. If:
    (1) A loan for a specified property has been approved for a 
guarantee, and
    (2) A specified borrower and all other proposed terms and 
conditions of the loan meet the eligibility requirements for 
guarantee as determined by the Secretary, the Secretary will approve 
the application for guarantee by issuing a commitment setting forth 
the terms and conditions of guarantee.
    (b) Direct guarantee procedure. (1) In general. Under the Direct 
Guarantee procedure, the Secretary does not review or approve 
applications for loan guarantee before the loan is executed or issue 
a firm commitment except as determined by the Secretary. Under this 
program, the lender determines that the proposed loan is eligible 
for guarantee under the section 184 program requirements, and 
submits to the Secretary processing and closing documents that the 
Secretary will identify for lenders in administrative issuances. The 
Secretary then reviews the documents as needed (and, in cases 
involving the guarantee of a loan from which advances will be made 
during construction, completes an environmental review to the extent 
required by 24 CFR 50.4) before approving and guaranteeing the loan.
    (2) Use of procedure. A lender's use of the direct guarantee 
procedure is voluntary. Lender who are approved for that procedure 
may choose which section 184 loans are underwritten using that 
procedure or the firm commitment procedure.

Section 8 Guarantee

    (a) Extent of guarantee. A certificate issued in accordance with 
Section 184 guarantees 100 percent of the unpaid principal and 
interest of the underlying loan.
    (b) Approval process. If the Department approves a loan for 
guarantee and receives the required guarantee fee, the Department 
will issue a certificate under Section 184 as evidence of the 
guarantee. The loan is considered guaranteed when the certificate is 
issued.
    (c) Standard for approval. The Department may approve a loan for 
guarantee under Section 184 and issue a certificate only if the 
Department determines there is a reasonable prospect of repayment of 
the loan. For loans under the firm commitment procedure, this 
determination will be made before a firm commitment is issued and 
the Secretary will issue a certificate if the loan complies with the 
firm commitment. For loans under the direct guarantee procedure, the 
lender must submit to the Secretary within 60 days of loan closing 
properly completed documentation and certifications as required by 
the Secretary, and the Department may make the required 
determination after loan closing on the basis of a review of the 
documents and certifications submitted by the lender.
    (d) Effect. A certificate of guarantee issued under Section 184 
by the Department shall be conclusive evidence of the eligibility of 
the loan for guarantee under the provisions of Section 184 and the 
amount of such guarantee. Such evidence shall be incontestable in 
the hands of the bearer and the full faith and credit of the United 
States is pledged to the payment of all amounts agreed to be paid by 
the Department as security for such obligations.
    (e) Fraud and misrepresentation. Nothing in Section 184 may 
preclude the Department from establishing:
    (1) Defenses against the original lender based on fraud or 
material misrepresentation; and
    (2) Establishing partial defenses, based upon regulations in 
effect on the date of issuance or disbursement (whichever is 
earlier), to the amount payable on the guarantee.

Section 9. Guarantee Fee

    The lender shall pay to the Department, at or before the time of 
issuance of the guarantee, a fee for the guarantee of loans under 
Section 184, in an amount equal to 1 percent of the principal 
obligation of the loan. This amount is payable by the borrower at 
closing.

Section 10. Liability Under Guarantee

    The liability under a guarantee provided in accordance with 
Section 184 shall decrease or increase on a pro rata basis according 
to any decrease or increase in the amount of the unpaid obligation 
under the provisions of the loan agreement.

Section 11. Transfer and Assumptions

    Notwithstanding any other provision of law, any loan guaranteed 
under this part, including the security interest given for the loan, 
may be sold or assigned by the lender to any financial institution 
subject to examination and supervision by an agency of the Federal 
Government or of any State or the District of Columbia.

Section 12. Disqualification of Lenders and Civil Money Penalties

    (a) General. If the Department determines that a lender or 
holder of a guarantee certificate under Section 184 has failed to 
maintain adequate accounting records, to adequately service loans 
guaranteed under Section 184, to exercise proper credit or 
underwriting judgment, or has engaged in practices otherwise 
detrimental to the interest of a borrower or the United States, the 
Department may:

[[Page 48994]]

    (1) Refuse, either temporarily or permanently, to guarantee any 
further loans made by such lender or holder;
    (2) Bar such lender or holder from acquiring additional loans 
guaranteed under Section 184; and
    (3) Require that such lender or holder assume not less than 10 
percent of any loss on further loans made or held by the lender or 
holder that are guaranteed under Section 184.
    (b) Civil money penalties for intentional violations. If the 
Department determines that any lender or holder of a guarantee 
certificate under Section 184 has intentionally failed to maintain 
adequate accounting records, to adequately service loans guaranteed 
under Section 184, or to exercise proper credit or underwriting 
judgement, the Department may impose a civil money penalty on such 
lender or holder in the manner and amount provided under section 536 
of the National Housing Act with respect to mortgagees and lenders 
under such Act.
    (c) Payment of loans made in good faith. Notwithstanding 
paragraphs (a) and (b), the Department may not refuse to pay 
pursuant to a valid guarantee on loans of a lender or holder barred 
under Section 184, if the loans were previously made in good faith.

Section 13. Payment Under Guarantee

    (a) Lender options.
    (1) General. In the event of default by the borrower on a loan 
guaranteed under this part, the holder of the guarantee certificate 
shall provide written notice of the default to the Department. Upon 
providing this notice, the holder of the guarantee certificate will 
be entitled to payment under the guarantee (subject to the 
provisions of this part) and may proceed to obtain payment in one of 
the following manners:
    (i) Foreclosure. The holder of the certificate may initiate 
foreclosure proceedings (after providing written notice of such 
action to the Department) and upon a final order by the court 
authorizing foreclosure and submission to the Department of a claim 
for payment under the guarantee, the Department will pay to the 
holder of the certificate the pro rata portion of the amount 
guaranteed (as determined in accordance with Section 9 of this 
guide) plus reasonable fees and expenses as approved by the 
Department. The Department will be subrogated to the rights of the 
holder of the certificate and the holder shall assign the obligation 
and security to the Department.
    (ii) No foreclosure. Without seeking a judicial foreclosure (or 
in any case in which a foreclosure proceeding initiated under 
paragraph (i) of this section continues for a period in excess of 1 
year), the holder of the certificate may submit to the Department a 
request to assign the obligation and security interest to the 
Secretary in return for payment of the claim under the guarantee. 
The Department may accept assignment of the loan if the Secretary 
determines that the assignment is in the best interests of the 
United States. Upon assignment, the Department will pay to such 
holder for a loss on any single loan an amount equal to the pro rata 
portion of the amount guaranteed (as determined in accordance with 
Section 9 of this guide). The Department will be subrogated to the 
rights of the holder of the guarantee and the holder shall assign 
the obligation and security to the Department.
    (2) Requirements. Before any payment under a guarantee is made 
under paragraph (1) of this section, the holder of the certificate 
shall exhaust all reasonable possibilities of collection. Upon 
payment, in whole or in part, to the holder, the note of judgment 
evidencing the debt shall be assigned to the United States and the 
holder shall have no further claim against the borrower or the 
United States.
    (b) Limitations on liquidation. In the event of default by the 
borrower on a loan guaranteed under Section 184 involving a security 
interest in restricted Indian land, the lender or the Department 
will only pursue liquidation after offering to transfer the account 
to an eligible tribal member, the tribe, or the Indian Housing 
Authority serving the tribe or tribes. If the Department 
subsequently proceeds to liquidate the account, the Department will 
not sell, transfer, otherwise dispose of or alienate the property 
except to one of the entities described in the preceding sentence.

Section 14. Certification of Compliance With Tribal Laws, and 
Enforcement

    (a) Certification. Each lender and borrower must certify to 
acknowledge and agree to comply with all applicable tribal laws. An 
Indian tribe with jurisdiction over the dwelling unit does not have 
to be notified of individual section 184 loans unless required by 
applicable tribal law.
    (b) Enforcement. Failure of the lender to comply with applicable 
tribal law is considered to be a practice detrimental to the 
interest of the borrower and may be subject to enforcement action(s) 
under section 184(g) of the statute.

[FR Doc. 98-24415 Filed 9-10-98; 8:45 am]
BILLING CODE 4210-32-P