Order Code RS22301
October 18, 2005
CRS Report for Congress
Received through the CRS Web
USDA Disaster Relief Provisions
Bruce E. Foote
Analyst in Housing
Domestic Social Policy Division
When disasters occur, such as Hurricane Katrina, the U.S. Department of
Agriculture (USDA) provides housing relief to residents of the affected areas in general
and to affected participants in the various USDA rural housing programs. This report
provides an overview of those housing relief efforts. Assistance can be placed in three
broad categories: (1) relief for homeowners and homebuyers; (2) relief for apartment
dwellers; and (3) and relief for multi-family property owners.
For Section 521 rental assistance allocated to housing made uninhabitable by
Hurricane Katrina or Hurricane Rita, H.R. 3895, as passed by the House on October 6,
2005, would amend the Housing Act of 1949 to permit the conversion of the rental
assistance into either Section 8 vouchers or rural housing vouchers. The bill would
amend the law to permit Section 502 guarantee loans to be used for the repair or
rehabilitation of existing properties.
This report will be updated as suggested by regulatory or legislative changes.
Title V of the Housing Act of 1949 (42 U.S.C. 1471 et seq.), as amended, authorizes
the U.S. Department of Agriculture (USDA) to administer several programs which
provide housing opportunities to residents of rural areas. The programs are administered
by the Rural Housing Service (RHS) and the programs are generally referred to by the
section number under which they are authorized in the Housing Act of 1949.
When disasters occur, such as Hurricane Katrina, the USDA provides housing relief
to residents of the affected areas in general and to affected participants in the various
USDA rural housing programs. The relief can be placed in three broad categories: (1)
relief for homeowners and homebuyers; (2) relief for apartment dwellers; (3) and relief
for multi-family property owners. In general, USDA assistance is only available if funds
from the Federal Emergency Management Agency (FEMA), the Small Business
Administration, other agencies, or insurers are inadequate to meet the housing needs of
affected rural residents.
Congressional Research Service ˜ The Library of Congress
Relief for Homeowners and Homebuyers
USDA has authority to finance the purchase or repair of single-family housing under
Sections 502 and 504 of the Housing Act of 1949.
Section 502. Under the Section 502 program, qualified applicants may obtain
loans for the purchase or repair of new or existing single-family housing in rural areas.
Borrowers may either obtain direct loans from USDA or obtain loans from private lenders
which are guaranteed by USDA.
Borrowers with income of 80% or less of the area median may be eligible for the
direct Section 502 loans and may receive interest credit to reduce the interest rate to as
low as 1%. The direct loans may be used to purchase existing homes, to repair homes that
are already owned, or to construct new homes. Borrowers with income of up to 115%
of the area median may obtain USDA-guaranteed loans from private lenders. Guaranteed
Section 502 loans may only be used to purchase existing dwellings or to construct new
homes. Priority is given to first-time homebuyers, and USDA may require that borrowers
complete a homeownership counseling program.
Historically, about 98% of the loans have been used for home purchases. The homes
to be financed must be “modest” in cost and design and must be located in rural areas
serviced by the USDA. To be eligible for a Section 502 loan, a borrower must have the
means to repay the loan but be unable to secure reasonable credit terms elsewhere.
After a presidentially-declared disaster, borrowers are eligible for a six-month
moratorium on mortgage payments if they live in the disaster area and have direct Section
502 loans from the USDA. If necessary, the moratorium may be extended, but the
moratorium may not exceed two years. Interest will continue to accrue on the unpaid loan
balance during the moratorium. Upon resumption of scheduled payments the loan is to
be re-amortized to include the amount deferred. After adjusting for any interest rate
subsidy available to the borrower, all or part of the interest accrued during the moratorium
may be forgiven to the extent that the new mortgage payment would exceed the
borrower’s ability to pay.
Borrowers whose homes have been damaged by the disaster may also be eligible for
new Section 502 loans to pay for needed repairs.
The USDA has no direct control over the actions of lenders that participate in its
housing programs. In cases of presidentially-declared disasters, the USDA sends a letter
to lenders who hold USDA-guaranteed Section 502 loans, and asks that such lenders
cease foreclosures and offer payment forbearance to Section 502 borrowers who live in
the disaster areas.
Section 504. Under the Section 504 program, rural homeowners with incomes of
50% or less of the area median may qualify for USDA direct loans to repair their homes.
The proceeds must be used to remove identified health and safety hazards or to remodel
the dwellings to make them accessible and useable for household members with
disabilities. Loans are limited to $20,000. Owners who are age 62 or more may qualify
for grants of up to $7,500 to pay for the needed home repairs. To qualify for the grants,
the elderly homeowners must lack the ability to repay the full cost of the repairs.
Depending on the cost of the repairs and the income of the elderly homeowner, the owner
may be eligible for a grant for the full cost of the repairs or for some combination of a
loan and a grant which covers the repair costs. The combination loan and grant may total
no more than $27,500.
As with the Section 502 program, borrowers with Section 504 loans are eligible for
a six-month payment moratorium if the mortgaged property is within a presidentiallydeclared disaster area. The loans are reamortized upon resumption of mortgage payments.
Borrowers may also be eligible for new Section 504 loans to pay for damage caused by
Rental Housing Preference as Displaced Tenants. Homeowners who are
made homeless as a result of a presidentially-declared disaster, and who are borrowers
under the Section 502 program (either direct or guaranteed) or the Section 504 program
(either loans or grants), are eligible for occupancy nationwide as “displaced tenants” at
any USDA-financed multi-family housing projects. They are given a letter of priority
eligibility (LOPE), which moves them to the top of waiting lists for vacancies in other
properties. The LOPE is good for 120 days. After 120 days the family may remain on the
waiting list but without priority. An expedited placement process waives maximum
income limits, security deposits, and credit checks; streamlines month-to-month leasing
procedures; and institutes telephone background checks.
Relief for Apartment Renters
USDA has authority to finance multi-family housing under Sections 514, 515, 516,
and 538 of the Housing Act of 1949. Section 521 of the act provides authority to offer
rental assistance to low-income renters who reside in USDA-financed rental housing.
Section 515. Under the Section 515 program, USDA is authorized to make direct
loans for the construction of rural rental and cooperative housing. Except for public
agencies, all borrowers must demonstrate that financial assistance from other sources will
not enable the borrower to provide the housing at terms that are affordable to the target
population. The funds may also be used to buy and improve land and to provide
necessary facilities such as water and waste disposal systems.
Section 514 and Section 516. Under the Section 514 program, USDA is
authorized to make direct loans for the construction of housing and related facilities for
farm workers. The loans are repayable in 33 years and bear an interest rate of 1%. Except
for state and local public agencies or political subdivisions, the applicants must be unable
to obtain financing from other sources that would enable the housing to be affordable by
the target population. Under the Section 516 program, USDA is authorized to make
grants of up to 90% of the development cost to nonprofit organizations and public bodies
seeking to construct housing and related facilities for farm workers. Applicants must
demonstrate a “pressing need” in the area for the housing and show there is reasonable
doubt that it can be provided without the grant. The remaining 10% of the cost may be
from the applicant’s own resources, from other sources, or from Section 514 loans.
Section 521. Under the Section 521 program, the USDA is authorized to make
rental assistance payments to owners of rental housing (Sections 515 or 514) to enable
eligible tenants to pay no more than 25% of their income in rent. The rental assistance
payments, which are to be made directly to the property owners, are to make up the
difference between the tenants’ payments and the USDA-approved rent for the units.
Owners must agree to operate the property on a limited profit or nonprofit basis.
For residents receiving Section 521 rental assistance in units made uninhabitable by
a presidentially-declared disaster, USDA permits the transfer of the rental assistance to
another eligible Section 514 or Section 515 apartment complex. The transfer must be
agreed to by all parties and be designed for the return of the residents and the rental
assistance to the original complex and unit after the property has been restored. If the
tenant chooses to stay instead of returning to the original complex, the tenant will not be
assured rental assistance, and the owner would charge an appropriate rent based on any
subsidy available to that property.
Section 538. Under the Section 538 program, borrowers may obtain loans from
private lenders to finance multifamily housing, and USDA guarantees to pay for the
lender losses in case of borrower default. Section 538 guaranteed loans may be used for
the development costs of housing and related facilities that (1) consist of five or more
adequate dwelling units, (2) are available for occupancy only by renters whose income at
time of occupancy does not exceed 115% of the median income of the area, (3) would
remain available to such persons for the period of the loan, and (4) are located in a rural
Rental Housing Preference as Displaced Tenants. Residents of Section 515
Section 514, Section 516 and Section 538 housing, who are made homeless as a result of
a presidentially-declared disaster, are eligible for occupancy nationwide as “displaced
tenants” at any USDA-financed multi-family housing projects. They are to be given a
letter of priority eligibility (LOPE), which moves them to the top of waiting lists for
vacancies in other properties. The LOPE letter is good for 120 days. After 120 days the
family may remain on the waiting list but without priority. Documentation of being
registered with FEMA may be used in lieu of a LOPE letter. An expedited placement
process waives maximum income limits, security deposits, and credit checks; streamlines
month-to-month leasing procedures; and institutes telephone background checks.
Relief for Multi-Family Property Owners
Owners of Section 514 and Section 515 properties in disaster areas are to be given
a 90-day moratorium on mortgage payments. Applicants must meet two conditions to
qualify: (1) have properties in the areas designated as disasters, and (2) provide
verification that the damage to the property was a direct result of the disaster. At the end
of the moratorium the loan may be reamortized, the loan may be refinanced, or USDA
may enter a work-out plan with the borrowers.
The USDA is to send letters to lenders holding Section 538 loans, suggesting that
the lenders offer similar forbearance to Section 538 borrowers in disaster areas.
Legislation in the 109th Congress
The Rural Housing Hurricane Relief Act of 2005 (H.R. 3895), as passed by the
House on October 6, 2005, would amend the Housing Act of 1949 to provide rural
housing assistance to families affected by Hurricane Katrina or Hurricane Rita.
Section 541 of the National Housing Act provides that, in cases of presidentiallydeclared disasters, the USDA must allocate disaster assistance to affected states for use
in counties designated as disaster areas and to counties contiguous to such counties.
Allocations may be made over three fiscal years beginning on the date of the declaration.
In general the funds may be used for any of USDA’s authorized housing purposes. Local
governments, their agencies, and nonprofit organizations may use the funds for the
construction or rehabilitation of housing for agricultural workers.
As passed, H.R. 3895 would amend Section 541 such that it only applied to counties
designated as disaster areas in connection with Hurricane Katrina or Hurricane Rita,
counties contiguous to such counties, and individuals residing in these counties at the time
of the disaster. For Section 514 or Section 515 properties in these areas that had been
allocated Section 521 rental assistance, and which had become uninhabitable because of
the disaster, the USDA would have the option of converting the Section 521 rental
assistance into either Section 8 vouchers or rural housing vouchers. Affected tenants
would be able to use the vouchers to pay towards the cost of renting substitute housing.
The USDA would be permitted to use the vouchers in areas that do not meet the definition
The bill would amend the rural housing voucher program (Section 542) by no longer
limiting its use to very- low-income families, and permit its use by certain low-income
families. Eligible low-income families would be those who reside or resided in areas that
were subject to Presidential disaster declarations in connection with Hurricane Katrina or
Hurricane Rita, and whose residences became uninhabitable or inaccessible as a result of
these disasters. The limit of 5,000 rural housing vouchers in a fiscal year would not apply
to vouchers authorized under these provisions.
The authority for the amended Sections 541 and 542 would apply during the sixmonth period beginning on the date of enactment of H.R. 3895.
As noted above, under present law Section 502 guaranteed loans may only be used
for purchasing existing dwellings or constructing new homes. The bill would amend the
law to provide that guaranteed loans may also be used to repair or rehabilitate existing
properties in rural areas.