[Federal Register Volume 67, Number 99 (Wednesday, May 22, 2002)]
[Notices]
[Pages 36017-36020]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 02-12715]


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DEPARTMENT OF HOUSING AND URBAN DEVELOPMENT

[Docket No. FR-4732-N-04]


Statutory and Regulatory Waivers Granted to New York State for 
Recovery from the September 11, 2001 Terrorist Attacks

AGENCY: Office of Community Planning and Development, HUD.

ACTION: Notice of waivers granted.

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SUMMARY: This notice advises the public of waivers of regulations and 
statutory provisions granted to the State of New York for the purpose 
of assisting in the recovery from the September 11, 2001, terrorist 
attacks on New York City. As described in the Supplementary Information 
section of this notice, HUD is authorized by statute to waive statutory 
and regulatory requirements and specify alternative requirements for 
this purpose. This notice lists the provisions being waived and 
alternative requirements specified.

Dates: Effective Date: May 28, 2002.

FOR FURTHER INFORMATION CONTACT: Jan C. Opper, Senior Program Officer, 
Office of Block Grant Assistance, Department of Housing and Urban 
Development, Room 7286, 451 Seventh Street, SW., Washington, DC 20410, 
telephone number (202) 708-3587. Persons with hearing or speech 
impairments may access this number via TTY by calling the Federal 
Information Relay Service at (800) 877-8339. FAX inquiries may be sent 
to Mr. Opper at (202) 401-2044. (Except for the ``800'' number, these 
telephone numbers are not toll-free.)

SUPPLEMENTARY INFORMATION: 

Authority to Grant Waivers

    Chapter 13 of division B of the Department of Defense and Emergency 
Supplemental Appropriations for Recovery from and Response to Terrorist 
Attacks on the United States Act, 2002 (Publ. L. 107-117, approved 
January 10, 2002) appropriates $2.0 billion in Community Development 
Block Grant funds and makes applicable the first six provisos of 
section 434 of the Departments of Veterans Affairs and Housing and 
Urban Development, and Independent Agencies Appropriations Act, 2002 
(Publ. L. 107-73, approved November 26, 2001). Section 434 provides for 
the use of CDBG funds made available from the Emergency Response Fund 
by the fifth proviso under the 2001 Emergency Supplemental 
Appropriations Act for Recovery from and Response to Terrorist Attacks 
on the United States (Publ. L. 107-38, approved September 18, 2001) to 
New York State for properties and businesses damaged by, and economic 
revitalization related to, the September 11, 2001 terrorist attacks on 
New York City. Prior to the $2.0 billion appropriation, $700 million 
was made available from the Emergency Response Fund. The third proviso 
of section 434 authorizes the Secretary to waive, or specify 
alternative requirements for, any provision of any statute or 
regulation that the Secretary administers in connection with the 
obligation by the Secretary or use by the recipient of these funds, 
except for requirements related to fair housing, nondiscrimination, 
labor standards, and the environment.
    The Department finds that the following waivers and alternative 
requirements are necessary to facilitate the use of both the $700 
million awarded to New York State's Empire State Development 
Corporation and the $2.0 billion awarded to New York State's Lower 
Manhattan Development Corporation. This notice of waivers granted and 
alternative requirements supersede those published on January 28, 2002, 
at 67 FR 4164, and the correction published on February 7, 2002, at 67 
FR 5845. (This notice does not supersede waivers and alternative 
requirements published on March 18, 2002, at 67 FR 12042, with respect 
to payment of compensation for economic loss.) The Department also 
finds that such uses of funds, as described below, are not inconsistent 
with the overall purpose of the Housing and Community Development Act 
of 1974, as amended, or the Cranston-Gonzalez National Affordable 
Housing Act, as amended.
    Except as noted by published waivers and alternative requirements, 
statutory and regulatory provisions governing the Community Development 
Block Grant program for states, including those at 24 CFR subpart I, 
shall apply to the use of these funds.

Description and Justification of Requirements Waived or Alternative 
Requirements Specified and Note of Applicability

    1. Waive the requirement that 70% of the CDBG funds received by the 
state over a one-to-three year period be for activities that benefit 
persons of low and moderate income. 42 U.S.C. 5301(c) and 5304(b)(3), 
and 24 CFR 570.484 and 24 CFR 91.325(b)(4)(ii) with respect to the 70% 
overall benefit requirement are waived with respect to CDBG funds 
appropriated under the Emergency Response Fund. HUD expects the grantee 
will make a good faith effort to maximize benefit to low- and moderate-
income persons, and maintain documentation of such efforts.
    2. Streamline citizen participation requirements. Provisions of 42 
U.S.C. 5304(a)(2) and (3), 42 U.S.C. 12707, 24 CFR 540.486, and 24 CFR 
91.115(b) with respect to citizen participation requirements are waived 
and replaced by the requirements below. The streamlined requirements do 
not mandate public hearings, but do provide for a reasonable 
opportunity for citizen comment and for ongoing citizen access to 
information about the use of grant funds. The streamlined requirements 
for this grant are:
    a. Before the State adopts the action plan (or a part of an action 
plan) for this grant or any substantial amendment to this grant, the 
State will publish the proposed plan or amendment (including the 
information required in waiver eight (8)). Publication will be carried 
out in a manner that affords citizens, New York

[[Page 36018]]

City and other interested parties a reasonable opportunity to examine 
the plan or amendment's contents and to submit comments. The State's 
plans to minimize displacement of persons or entities and to assist any 
persons or entities displaced must be published with the action plan. 
Subsequent to publication, the State must provide a reasonable period 
to receive comments on the plan or substantial amendment.
    b. In the action plan, the State will specify the criteria for 
determining what changes in the State's activities constitute a 
substantial amendment to the plan. At a minimum, adding or deleting an 
activity or changing the planned beneficiaries of an activity will 
constitute a substantial change.
    c. The State must consider all comments received on the action plan 
or any substantial amendment and submit to HUD a summary of these 
comments and the State's response with the action plan or substantial 
amendment.
    d. The State must make the action plan, any substantial amendments, 
and all performance reports available to the public, on request. Also 
on request, the State must make these documents available in a form 
accessible to persons with disabilities. During the term of this grant, 
the State will provide citizens, New York City, and other interested 
parties reasonable and timely access to information and records 
relating to the action plan and the State's use of this grant.
    e. The State will provide a timely written response to every 
citizen complaint. Such response will be provided within 15 working 
days of the complaint, if practicable.
    3. Modify requirement for consultation with local governments. 
Currently, the statute and regulations require consultation with 
affected units of local government in the non-entitlement area of the 
State regarding the State's proposed method of distribution. HUD is 
waiving 42 U.S.C. 5306(d)(2)(C)(iv), 24 CFR 91.325(b), and 24 CFR 
91.110, with the alternative requirement that the State consult with 
New York City in determining the use of funds.
    4. Remove requirements for consistency with the consolidated plan. 
Requirements at 42 U.S.C. 12706 and 24 CFR 91.325(a)(6), that require 
that housing activities undertaken with CDBG, HOME, ESG, and HOPWA 
funds be consistent with the strategic plan, are waived. Also, 24 CFR 
570.903, which requires HUD to annually review grantee performance 
under the consistency criteria, is also waived.
    5. Clarifying note on the process for environmental release of 
funds when a State carries out activities directly. Usually, a State 
distributes CDBG funds to units of local government and takes on HUD's 
role in receiving environmental certifications from the grant 
recipients and approving releases of funds. For this grant, waiver 
seven (7) below allows New York State to also carry out activities 
directly instead of distributing them to other governments. According 
to the environmental regulations at 24 CFR 58.4, when a State carries 
out activities directly, the State must submit the certification and 
request for request of funds to HUD for approval.
    6. Allow reimbursement for pre-agreement costs. The provisions of 
24 CFR 570.489(b) are applied to permit New York State or New York City 
to reimburse itself for otherwise allowable costs incurred on or after 
September 11, 2001.
    7. Distribution and use of funds to and in a metropolitan city. 
Provisions of 42 U.S.C. 5306 currently require a State to distribute 
CDBG funds to units of general local government in nonmetropolitan 
areas for use in nonmetropolitan areas rather than carrying activities 
out directly. These provisions are waived with alternative requirements 
with respect to CDBG funds appropriated under the Emergency Response 
Fund to permit the State of New York to carry out activities directly 
in New York City and to permit the State to distribute these funds to 
New York City. Additionally, because New York State may carry out 
activities directly, HUD is applying the regulations at 24 CFR 
570.480(c) with respect to the basis for HUD determining the State has 
failed to carry out its certifications so that such basis shall be that 
the State has failed to carry out its certifications in compliance with 
applicable program requirements. Also, 24 CFR 570.494 regarding timely 
distribution of funds is waived. However, HUD expects New York State to 
expeditiously obligate and expend all funds, including any recaptured 
funds or program income, in carrying out activities in a timely manner.
    8. Action Plan for Disaster Recovery. Current State CDBG 
requirements for an action plan envision a State using a method for 
distributing substantially all CDBG funds received to other governments 
and not carrying out activities directly. This waiver allows the State 
to submit an action plan that may include activities directly 
undertaken by the State. With respect to CDBG funds appropriated under 
the Emergency Response Fund, the last sentence of 42 U.S.C. 5304 
(a)(1), and provisions of 42 U.S.C.12705, 24 CFR 570.485, 24 CFR 91.320 
and 91.325(a)(5) are waived with alternative requirements that the 
State submit an action plan for disaster recovery that includes the 
following:
    a. Information specified at 24 CFR 91.220(a), (b), (d) and (g).
    b. A description of the activities the state will assist with grant 
funds. This description of activities shall estimate the number and 
type of beneficiaries of the proposed activities, proposed 
accomplishments, and a target date for completion of each activity. 
This information must be submitted in a form prescribed by HUD.
    9. Change the limitations on administrative and planning expenses. 
The current law and regulations require that 50 percent of any 
administrative expenses, in excess of $100,000, that do not exceed 2 
percent of the grant be paid from the grant. Provisions at 42 U.S.C. 
5306(d)(3)(A), 24 CFR 570.489(a)(1)(i) and 24 CFR 570.489(a)(3) are 
waived to allow use of CDBG disaster grant funds for planning and 
administrative expenses that do not exceed 10 percent of the grant 
amount plus program income with respect to the $700 million grant and 5 
percent of the grant amount plus program income with respect to the 
$2.0 billion grant.
    10. Administrative costs and reimbursement. To facilitate the use 
of funds for administrative costs of the Lower Manhattan Development 
Corporation incurred in relation to revitalization and redevelopment of 
lower Manhattan in New York City, New York in response to the September 
11, 2001 terrorist attacks on New York City including such costs not 
directly related to this CDBG disaster assistance but related to 
revitalization of lower Manhattan, section 105(a)(13) of the Housing 
and Community Development Act of 1974, as amended, 42 U.S.C. 
5305(a)(13) is modified solely to the extent necessary for this use of 
administrative costs. Temporary use of funds under HUD grant number B-
01-DW-36-0001 for payment of administrative costs incurred prior to 
award of HUD grant number B-02-DW-36-0001, and reimbursement of such 
costs paid from HUD grant number B-01-DW-36-0001 with funds awarded 
under HUD grant number B-02-DW-36-0001 is authorized.
    11. Permitting a further range of eligible economic revitalization 
activities. The limitation at 42 U.S.C. 5305(a) on eligible activities 
in the CDBG program to the list of activities in section 105(a) is 
waived, in recognition of the requirements of section 434 of

[[Page 36019]]

Public Law 107-73 that funds be used, in part, for economic 
revitalization related to the September 11, 2001 terrorist attacks on 
New York City for the affected area. This change also establishes an 
alternative requirement by adding the following to the list of eligible 
activities:
    a. Provision of assistance directly to individuals and entities for 
purposes of economic revitalization of lower Manhattan by retaining and 
attracting residents.
    b. Provision of assistance to nonprofit organizations for purposes 
of economic revitalization of lower Manhattan by creating and retaining 
jobs.
    12. Public benefit standards for economic development activities. 
Currently, grantees are limited in the amount of CDBG assistance per 
job retained or created, or amount of CDBG assistance per low- and 
moderate-income person to which goods or services are provided by the 
activity, that will be considered to meet public benefit standards. 
Public benefit standards at 42 U.S.C. 5305(e)(3) and 24 CFR 
570.482(f)(1), (2), (3), (4)(i), (5), and (6) are waived, except that 
the grantee shall report and maintain documentation on the creation and 
retention of (a) total jobs, (b) number of jobs within certain salary 
ranges, and (c) types of jobs. Paragraph (g) of 24 CFR 570.482 is also 
waived to the extent its provisions are related to public benefit.
    13. Underwriting Requirements for Certain Economic Development 
Activities. To facilitate the use of funds for economic development 
activities identified in an action plan submitted by the Empire State 
Development Corporation or the Lower Manhattan Development Corporation 
as the ``WTC Job Creation and Retention Program,'' ``Small Firm 
Attraction and Retention Grants,'' and the ``WTC Business Recovery Loan 
Fund'' the project cost and financial requirements at section 105(e)(2) 
of the Housing and Community Development Act of 1974, as amended, (42 
U.S.C. 5305(e)(2)) for eligible activities under section 105(a)(14), 
(15), and (17) in the CDBG program are waived, and the following 
alternative requirements are established:

WTC Job Creation and Retention Program

    For the WTC Job Creation and Retention Program (JCRP), in 
determining the amount of assistance, Empire State Development 
Corporation must consider:
    a. Other existing incentive transactions and offers received by the 
business;
    b. Alternative locations the business may be considering;
    c. Analysis of the risk that:
    z The business if located South of Canal Street at the time of the 
disaster will not remain within lower Manhattan;
    z The business if located South of Canal Street at the time of the 
disaster and that has temporarily relocated elsewhere because of the 
disaster would not return;
    z The New York City business that suffered significant economic 
dislocation because substantial numbers of its major customers were 
businesses south of Canal Street would not remain in New York City; or
    z The business seeking to locate new operations and create new jobs 
in lower Manhattan would not otherwise locate there;
    d. Employment and economic benefit/cost analysis; and
    e. The fiscal impact on State and city revenues.

Small Firm Attraction and Retention Grants

    For the Small Firm Attraction and Retention Grants (SFARG), in 
determining eligibility and funding level of firms, Empire State 
Development Corporation's decision shall be based on the location, 
minimum lease terms, and assistance per full-time equivalent employee, 
as stated in the action plan for the use of funds under the SFARG 
program. (A description is available on the web at www.nylovesbiz.com/wtc/sfarg-program.htm)

WTC Business Recovery Loan Fund

    For the WTC Business Recovery Loan Fund (BRLF), in which financing 
will be provided by experienced institutional, quasi-public, and 
nonprofit lenders, the amount, terms, and conditions for CDBG and CDBG-
backed loans shall be established through standard, generally accepted 
underwriting analyses. Such underwriting analysis shall, among other 
factors, include reasonableness of project costs, and project financial 
feasibility with recognition of the potential for enhanced levels of 
risk.
    13. Duplication of benefits. The CDBG funds appropriated under the 
Emergency Response Fund may not be used to provide funds for the same 
specific uses as disaster loans made available by the Small Business 
Administration (SBA), in compliance with 15 U.S.C. 636(b)(1)(A). If the 
needs for assistance are more than the SBA disaster loan amount, CDBG 
disaster assistance may be used to fund such additional need. New York 
State should encourage the use of SBA physical damage and economic 
injury disaster loans; they offer low interest rates and favorable 
terms. Additionally, CDBG disaster assistance may not be used for the 
same specific uses as disaster assistance made available by the Federal 
Emergency Management Agency, e.g., for public works and facilities, in 
compliance with duplication of benefits prohibitions of 42 U.S.C. 5155 
(section 312 of the Robert T. Stafford Disaster Assistance and 
Emergency Relief Act, as amended).
    14. Use of subrecipients. The State CDBG program rule does not make 
specific provision for the treatment of subrecipients. CDBG entitlement 
communities frequently use subrecipients and the rule for that program 
specifically describes the requirements for subrecipient agreements and 
financial requirements. The waiver allowing the state to carry out 
activities directly creates a situation in which the state is more 
likely to use Subrecipients to carry out activities in a manner similar 
to entitlement communities. Therefore the following alternative 
requirement applies:
    a. 24 CFR 570.503, except that specific references to 24 CFR 85 
need not be included in subrecipient agreements.
    b. 570.502(b).
    15. Recordkeeping. Recognizing that the State will carry out 
activities directly, 24 CFR 570.490(b) is waived and this provision 
shall apply:

    State records. The State shall establish and maintain such 
records as may be necessary to facilitate review and audit by HUD of 
the State's administration of CDBG funds under  570.493. 
Consistent with applicable statutes, regulations, waivers and 
alternative requirements, and other Federal requirements, the 
content of records maintained by the State shall be sufficient to: 
enable HUD to make the applicable determinations described at 
 570.493; make compliance determinations for activities 
carried out directly by the state; and show how activities funded 
are consistent with the descriptions of activities proposed for 
funding in the action plan. For fair housing and equal opportunity 
purposes, and as applicable, such records shall include data on the 
racial, ethnic, and gender characteristics of persons who are 
applicants for, participants in, or beneficiaries of the program.''

24 CFR 570.490(c) and (d) shall also apply.
    16. Performance reports. Generally, grantees submit an annual 
performance report ninety days after the jurisdiction's program year. 
The conferees for Public Law 107-73 requested that HUD submit reports 
to the Committees on Appropriations

[[Page 36020]]

quarterly on the obligation and expenditure of the CDBG funds 
appropriated under the Emergency Response Fund. Therefore, 42 U.S.C. 
12708(a)(1) and 24 CFR 91.520 are waived with respect to these funds, 
and HUD is establishing an alternative requirement that the State must 
submit a quarterly report, as HUD prescribes, no later than 30 days 
following each calendar quarter, beginning after the first full 
calendar quarter after grant award and continuing until all funds have 
been expended and that expenditure reported. Each quarterly report will 
include information on the project name, activity, location, national 
objective, funds budgeted and expended, Federal source and funds (other 
than CDBG disaster funds), numbers and North American Industry 
Classification System (NAICS) codes of businesses assisted by activity, 
total number of jobs created and retained by activity, numbers of such 
jobs by salary ranges (to be defined by HUD), numbers of properties and 
housing units assisted; for activities benefiting low- and moderate-
income persons, the number of jobs taken by persons of low- and 
moderate-income, and numbers of low- and moderate-income households 
benefiting. Quarterly reports must be submitted using HUD's web-based 
Disaster Recovery Grant Reporting system. Annually (i.e., with every 
fourth submission), the report shall include a financial reconciliation 
of funds budgeted and expended, and calculation of the status of 
administrative costs.
    17. Allow flexibility in use of program income during grant and 
provide for disposition at grant closeout. A combination of CDBG 
provisions limits the flexibility available to the State and city for 
the use of program income. Generally, program income earned on disaster 
grants has been program income to the regular CDBG program of the 
applicable entitlement or State and has lost its disaster grant 
identity, thus losing use of the waivers and streamlined alternative 
requirements. Also, the State CDBG program rule and law are designed 
for a program in which the State distributes all funds rather than 
carrying out activities directly and the law specifically provides for 
local governments receiving grants to retain program income if they use 
it for additional eligible activities under the regular CDBG program. 
This waiver and the alternate requirements allow program income to the 
disaster grant to be governed by the original grant's requirements and 
waivers and to remain the State's until grant closeout, at which point 
any program income on hand or received subsequently will become program 
income to New York City's regular entitlement CDBG program. Therefore, 
42 U.S.C. 5304(j), 24 CFR 570.481(a) to the extent it relates to 
defining program income, and 24 CFR 570.489(e) are waived and the 
following alternative requirements apply:
    a. Program income is defined at 24 CFR 570.500(a);
    b. 24 CFR 570.504(a) and (c);
    c. Program income received before grant closeout may be retained by 
the recipient if the income is treated as additional funds under this 
grant subject to all of this grant's applicable requirements;
    d. Substantially all program income other than any held in 
revolving funds shall be disbursed for eligible activities before 
additional cash withdrawals are made from the U.S. Treasury. Program 
income in the form of repayments to, or interest earned on, a revolving 
fund as defined in 24 CFR 570.500(b) shall be substantially disbursed 
from the fund before additional cash withdrawals are made from the U.S. 
Treasury for the same activity; and
    e. Program income on hand at the time of grant closeout and program 
income received after grant closeout shall be program income to the 
ongoing CDBG entitlement program of New York City.
    18. Modification of the anti-pirating clause to permit assistance 
to help a business return. 42 U.S.C. 5305(h) is hereby waived only to 
allow the State to provide assistance under this grant to any business 
that was operating in the covered disaster area before September 11, 
2001, and has since moved in whole or in part from the affected area to 
continue business.
    19. Change of use of real property. This section is written in the 
context of the regular State CDBG program in which the State 
distributes funds to units of general local governments and does not 
carry out activities directly. This change grants a waiver allowing the 
State to carry out activities directly. For purposes of this program, 
in 24 CFR 570.489(j), (j)(1), and the last sentence of (j)(2), ``unit 
of general local government'' shall be read as ``unit of general local 
government or State.''
    20. Responsibility for State review and handling of noncompliance. 
This change conforms the rule with the waiver allowing the State to 
carry out activities directly. 24 CFR 570.492 is waived and the 
following alternative requirement applies:

    The State shall make reviews and audits including on-site 
reviews of any subrecipients, designated public agencies, and units 
of general local government as may be necessary or appropriate to 
meet the requirements of section 104(e)(2) of the Act.

    In the case of noncompliance with these requirements, the State 
shall take such actions as may be appropriate to prevent a continuance 
of the deficiency, mitigate any adverse effects or consequences and 
prevent a recurrence. The State shall establish remedies for 
noncompliance by any designated public agencies or units of general 
local governments and for its subrecipients.
    Section 434 of Public Law 107-73 requires HUD to publish these 
waivers in the Federal Register no later than five days before their 
effective date. The effective date of these waivers is May 28, 2002.

    Dated: May 14, 2002.
Roy A. Bernardi,
Assistant Secretary for Community Planning and Development.
[FR Doc. 02-12715 Filed 5-21-02; 8:45 am]
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