FHFA • 2015 REPORT TO CONGRESS

FEDERAL HOUSING FINANCE AGENCY

400 7th Street SW • Washington, D.C. 20024 • 202-649-3800 • www.fhfa.gov
AHP ...........................Affordable Housing Program

AMA ..........................Acquired Member Assets

Bank Act���������������� Federal Home Loan Bank Act

CDFI ..........................Community Development 

Financial Institution

CSP ............................Common Securitization Platform

CSS ............................Common Securitization Solutions, 

LLC

Dodd-Frank Act ......Dodd-Frank Wall Street Reform 

and Consumer Protection Act of 

2010

Enterprises ..............Fannie Mae and Freddie Mac

Fannie Mae .............Federal National Mortgage 

Association

FHFA OIG .................Federal Housing Finance Agency 

Office of Inspector General

FHA ............................Federal Housing Administration

FHLBank ...................Federal Home Loan Bank 

FISMA .......................Federal Information Security 

Management Act

Freddie Mac ............Federal Home Loan Mortgage 

Corporation

HAMP .......................Home Affordable Modification 

Program

HARP .........................Home Affordable Refinance 

Program

HERA .........................Housing and Economic Recovery 

Act of 2008

HMDA .......................Home Mortgage Disclosure Act

MBS ...........................Mortgage-Backed Securities

MPF ...........................Mortgage Partnership Finance

OF ..............................Office of Finance

PRISM .......................Procurement Request Information 

System Management

PSPA ..........................Senior Preferred Stock Purchase 

Agreement

Regulated Entities..Fannie Mae, Freddie Mac, 

and the FHLBanks 

Safety and Soundness Act

Federal Housing Enterprises 

Financial Safety and Soundness 

Act of 1992

Treasury Department

U.S. Department of the Treasury

UPB ............................Unpaid Principal Balance

VA ..............................Veterans Administration 

LIST OF ABBREVIATIONS
i REPORT TO CONGRESS • 2015

June 15, 2016

Honorable Richard C. Shelby Honorable Sherrod Brown 

Chairman Ranking Member

Committee on Banking, Housing, Committee on Banking, Housing,

and Urban Affairs and Urban Affairs

United States Senate United States Senate

Washington, D.C. 20510 Washington, D.C. 20510

Honorable Jeb Hensarling Honorable Maxine Waters

Chairman Ranking Member

Committee on Financial Services Committee on Financial Services

United States House of Representatives United States House of Representatives

Washington, D.C. 20515 Washington, D.C. 20515

Dear Chairmen and Ranking Members:

I am pleased to enclose the Federal Housing Finance Agency’s (FHFA’s) 2015 Report to Congress. This 

Report meets the requirements of the Federal Housing Enterprises Financial Safety and Soundness Act 

of 1992, as amended by the Housing and Economic Recovery Act of 2008 (HERA), to submit a report to 

Congress describing the actions undertaken by FHFA to carry out its statutory responsibilities, including a 

description of the financial safety and soundness of the entities the Agency regulates. It also meets FHFA’s 

obligation under Section 1305 of the Dodd-Frank Wall Street Reform and Consumer Protection Act to 

report to Congress on the Agency’s plans to “continue to support and maintain the nation’s vital housing 

industry, while at the same time guaranteeing that the American taxpayer will not suffer unnecessary losses.” 

During 2015, FHFA continued to serve as regulator of the 11 Federal Home Loan Banks (FHLBanks) and 

the FHLBanks’ joint Office of Finance and as regulator and conservator of Fannie Mae and Freddie Mac. 

The enclosed Report summarizes the findings of the Agency’s 2015 examinations of these entities as well as 

FHFA’s actions as conservator of Fannie Mae and Freddie Mac during 2015 and it describes FHFA’s regulatory guidance, research, and publications issued during the year.

As required by HERA, this Report also includes the Federal Housing Finance Oversight Board’s assessment 

of the matters set out in Section 1103 of that Act.

Sincerely, 

Melvin L. Watt

Director, Federal Housing Finance Agency

Federal Housing Finance Agency

400 7th Street, SW, Washington, D.C. 20024

Telephone: (202) 649-3800

www.fhfa.gov
ii FEDERAL HOUSING FINANCE AGENCY

C ONTENTS

Conservatorships of the Enterprises..........................iv

Managing the Conservatorships.................................. 1

MAINTAIN ................................................................ 2

REDUCE................................................................... 5

BUILD....................................................................... 8

Supervision and Oversight ........................................ 12

Examination Authority for Regulated Entities ........... 13

Reports of Annual Examinations of 

Fannie Mae and Freddie Mac .................................... 14

Financial Condition of the Enterprises................... 14

Fannie Mae 

(Federal National Mortgage Association) .............. 17

Freddie Mac

(Federal Home Loan Mortgage Corporation) ........ 18

Report of Annual Examinations of Federal Home 

Loan Banks ................................................................ 20

Financial Overview................................................. 20

District 1: The Federal Home Loan Bank 

of Boston................................................................ 31

District 2: The Federal Home Loan Bank 

of New York ........................................................... 32

District 3: The Federal Home Loan Bank 

of Pittsburgh........................................................... 33

District 4: The Federal Home Loan Bank 

of Atlanta................................................................ 34

District 5: The Federal Home Loan Bank 

of Cincinnati ........................................................... 35

District 6: The Federal Home Loan Bank 

of Indianapolis........................................................ 36

District 7: The Federal Home Loan Bank 

of Chicago.............................................................. 37

District 8: The Federal Home Loan Bank 

of Des Moines ........................................................ 38

District 9: The Federal Home Loan Bank 

of Dallas ................................................................. 39

District 10: The Federal Home Loan Bank 

of Topeka ............................................................... 40

District 11: The Federal Home Loan Bank 

of San Francisco.................................................... 41

Office of Finance.................................................... 42

Results of Stress Tests Under the Dodd-Frank 

Wall Street Reform and Consumer Protection Act.... 43

Enterprise Housing Goals and Duty to Serve ............ 46

Federal Home Loan Bank Mission 

and Affordable Housing Programs............................. 49

Regulatory Guidance.................................................. 54 

Regulations ............................................................ 54

Policy Guidance..................................................... 59

Legislative Recommendations................................... 61

Research and Publications ....................................62

Reports to Congress .................................................. 63

House Price Index ...................................................... 64

Public Use Database.................................................. 64

Historical Database (MIRS) ........................................ 64

National Mortgage Database Project......................... 64

Research Publications................................................ 65

FHFA Operations and Performance......................66

Performance and Program Assessment.................... 67

Financial Operations................................................... 67

Federal Housing Finance Oversight Board 

Assessment ............................................................71

Enterprises.................................................................. 71

FHLBanks................................................................... 74

Appendix: Historical Data Tables.............................. 76

2015 FHFA Report to Congress
iii REPORT TO CONGRESS • 2015

TABLE OF CONTENTS

FIGURE LIST

Figure 1 • Enterprise Single-Family Mortgage Credit Risk 

Transfer Activity 2013-2015 ..............................................................................6

Figure 2 • Enterprises’ Net Interest Income 2011-2015 ........................................15

Figure 3 • Enterprises’ Total Mortgages and Guarantees ......................................16

Figure 4 • Historical Portfolio of the Federal Home Loan Bank System ................20

Figure 5 • FHLBanks’ Aggregate Net Interest Income and Net Income ................21

Figure 6 • Retained Earnings of the Federal Home Loan Banks............................22

Figure 7 • Total FHLBank Advance Holdings ($ Billions)........................................23

Figure 8 • Market Value of Equity-to-Par Value of Capital Stock 

by Various Interest-Rate Changes ...................................................................26

Figure 9 • 2015 Annual Maximum Compensation for 

Federal Home Loan Bank Directors.................................................................27

Figure 10 • Federal Home Loan Bank Compensation for 2015 .............................28

Figure 11 • Federal Home Loan Bank Director Expenses for 2015 .......................29

Figure 12 • Federal Home Loan Bank Director Compensation 

and Expenses for 2015 ....................................................................................30

Figure 13 • Fannie Mae and Freddie Mac Stress Test Results ..............................44

Figure 14 • FHLBank Regulator Capital Ratios under the 

Severely Adverse Scenario ..............................................................................45

Figure 15 • FHLBank Leverage Capital Ratios under the 

Severely Adverse Scenario ..............................................................................45

Figure 16 • 2014-2015 Enterprise Housing Goals Performance ............................47

Figure 17 • FHLBank AHP Statutory Contributions (1990-2015) ...........................50

Figure 18 • 2015 AHP Competitive Application Overview......................................51

Figure 19 • Number of AHP Projects Approved in 2015 Receiving 

Federal Funds...................................................................................................51

Figure 20 • 2015 Non-Depository CDFI Members of the 

Federal Home Loan Bank System ...................................................................53

Figure 21 • FHFA Financial Highlights ....................................................................67
Conservatorships 

of the Enterprises

Managing the Conservatorships 

MAINTAIN

REDUCE

BUILD

FEDERAL HOUSING FINANCE AGENCY iv
REPORT TO CONGRESS • 2015 1

CONSERVATORSHIPS OF THE ENTERPRISES

As part of HERA, Congress granted the Director of 

FHFA the discretionary authority to appoint FHFA 

as conservator or receiver of Fannie Mae, Freddie 

Mac (together, the Enterprises), or any of the Federal 

Home Loan Banks, upon determining that specified criteria had been met. On September 6, 2008, FHFA exercised this authority and placed Fannie Mae and Freddie 

Mac into conservatorships. Since the Enterprises were 

placed into conservatorships, the U.S. Department of the 

Treasury (Treasury Department) has provided essential 

financial commitments of taxpayer funding under Senior 

Preferred Stock Purchase Agreements (PSPAs). Fannie 

Mae and Freddie Mac have drawn a combined total of 

$187.5 billion in taxpayer support under the PSPAs to 

date. Through December,2

 the Enterprises have paid the 

Treasury Department a total of $241.3 billion in dividends 

on senior preferred stock. Under the provisions of the 

PSPAs, the Enterprises’ dividend payments do not offset 

the amounts drawn from the Treasury Department. 

Managing the Conservatorships

FHFA uses four key approaches to manage the conservatorships of Fannie Mae and Freddie Mac. First, 

FHFA establishes the overall strategic direction for the 

Enterprises in the Agency’s 2014 Strategic Plan for the 

Conservatorships of Fannie Mae and Freddie Mac (2014 

Conservatorship Strategic Plan) and in annual scorecards. 

Second, FHFA delegates the day-to-day operations of the 

companies to their boards of directors and senior management. Third, FHFA has carved out actions that are not 

delegated to the Enterprises that require advance approval 

by FHFA. Fourth, FHFA oversees and monitors Enterprise 

activities. 

The following section provides an overview of Fannie 

Mae, Freddie Mac, and FHFA activities to fulfill the three 

strategic goals in the 2014 Conservatorship Strategic Plan 

and the 2015 Scorecard for Fannie Mae, Freddie Mac and 

Common Securitization Solutions (2015 Scorecard)3

:

1. MAINTAIN, in a safe and sound manner, 

foreclosure prevention activities and credit 

availability for new and refinanced mortgages to 

foster liquid, efficient, competitive, and resilient 

national housing finance markets;

2. REDUCE taxpayer risk through increasing the 

role of private capital in the mortgage market; and

3. BUILD a new single-family securitization 

infrastructure for use by the Enterprises and 

adaptable for use by other participants in the 

secondary market in the future.

The Federal Housing Finance Agency (FHFA) 

was established by the Housing and Economic 

Recovery Act of 2008 (HERA) and is responsible for 

the effective supervision, regulation, and housing 

mission oversight of the Federal National Mortgage 

Association (Fannie Mae), the Federal Home Loan 

Mortgage Corporation (Freddie Mac), and the Federal 

Home Loan Bank System, which includes the 11 

Federal Home Loan Banks (FHLBanks)1

 and the 

Office of Finance. The Agency’s mission is to ensure 

that Fannie Mae, Freddie Mac and the FHLBanks 

(together, “the regulated entities”) operate in a safe 

and sound manner so that they serve as a reliable 

source of liquidity and funding for housing finance and 

community investment. Since 2008, FHFA has also 

served as conservator of Fannie Mae and Freddie Mac.

1 The FHLBanks of Des Moines and Seattle combined to form a single entity as of May 31, 2015, reducing the total number of FHLBanks from 12 to 11. The merger was the first for 

FHLBanks under the terms of FHFA’s voluntary merger guidelines adopted in 2011. FHFA approved the merger application in December 2014, and members of both FHLBanks voted 

overwhelmingly to ratify the merger agreement. The FHLBank of Des Moines is the continuing institution and serves 1,445 member financial institutions across 13 states and the U.S 

Pacific territories.

2 Unless otherwise specified, all dates in this report refer to 2015.

3 For additional information about the Enterprises’ 2015 Scorecard performance, please see the 2015 Scorecard Progress Report, published on March 3, 2016. 
2 FEDERAL HOUSING FINANCE AGENCY

MAINTAIN. 

Maintain, in a safe and sound manner, 

foreclosure prevention activities and 

credit availability for new and refinanced 

mortgages to foster liquid, efficient, 

competitive, and resilient national housing 

finance markets.

The Maintain goal recognizes that a healthy housing 

finance market requires liquidity and access across different market segments of creditworthy borrowers, sensible 

and appropriate loss mitigation options when borrowers 

fall into economic distress, and affordable rental housing 

options. These objectives are at the core of FHFA’s statutory mandates under HERA and the Emergency Economic 

Stabilization Act of 2008, as well as the Enterprises’ charters.

Access to Credit for 

Creditworthy Borrowers

The 2015 Scorecard called for the Enterprises to increase 

access to mortgage credit for creditworthy borrowers, consistent with the full extent of applicable credit requirements 

and risk management practices. In fulfillment of that expectation, the Enterprises worked on the following initiatives. 

Selling Representation and Warranty Framework –

FHFA has been engaged with the Enterprises in a multiyear effort to improve their selling Representation and 

Warranty Framework. The effort seeks to responsibly 

address lending industry concerns about uncertainty 

regarding when a mortgage loan may be subject to 

repurchase and how that uncertainty has contributed to 

increased credit overlays that drive up lending costs and 

reduce access to credit. 

The Enterprises took significant steps in 2015 to finalize improvements to the Framework. In October, the 

Enterprises published Selling Guide announcements that 

defined the severity levels for loan origination defects and 

the process for remedying them.4

In February 2016, the Enterprises and FHFA finalized 

the last enhancement of the Framework, an independent 

dispute resolution process in which a neutral third party 

determines whether a breach of representations and warranties exists to support a repurchase request. 

FHFA and the Enterprises also are continuing work on a 

complementary effort to assess the practicality of granting appraisal-related representation and warranty relief 

shortly after acquiring a loan. In 2015, both Enterprises 

developed tools that provide lenders with information 

about appraisal quality. Both Enterprises are now using 

these tools in independent pilots to assess the feasibility of 

representation and warranty relief on certain elements of 

collateral. 

Expectations for Servicer Performance – On 

December 16, the Enterprises announced an aligned 

Servicing Defect Remedy Framework that places servicing defects into categories—such as Title, Property 

Preservation, and Loss Mitigation—and provides the types 

of remedies for each category. Remedies range from making a correction, indemnifying the Enterprise or, in the most 

serious circumstances, repurchasing the mortgage loan.

Servicer Eligibility Standards – After soliciting input 

from industry participants, trade associations, and stakeholders, the Enterprises announced new financial and 

operational eligibility requirements for seller/servicers 

on May 20. The new requirements are intended to help 

ensure the safe and sound operation of the Enterprises, 

take into consideration the changes taking place in the servicing industry, and provide greater transparency, clarity, 

and consistency to industry participants and other stakeholders.

Expanding Lender Participation – During 2015, the 

Enterprises continued to expand their partnerships with 

small and rural lenders and state housing finance agencies. The Enterprises’ increased focus on small lenders 

included meeting with trade groups, providing training, 

and improving customer service. Fannie Mae and Freddie 

Mac added 102 small lenders as approved sellers in 2015. 

Both Enterprises also developed plans for conducting outreach to identify the challenges minority-serving financial 

4 On October 7, Fannie Mae published Selling Guide Announcement SEL-2015-11 (https://www.fanniemae.com/content/announcement/sel1511.pdf) and Freddie Mac published Bulletin 

2015-17 (http://www.freddiemac.com/singlefamily/guide/bulletins/pdf/bll1517.pdf)
REPORT TO CONGRESS • 2015 3

CONSERVATORSHIPS OF THE ENTERPRISES

institutions may encounter when participating in the secondary mortgage market. 

Impediments to Access to Credit – During 2015, the 

Enterprises continued to assess impediments to access 

to credit. They refined and improved products targeted 

to borrowers with lower down payment mortgages who 

have compensating factors and risk mitigants that reduce 

credit risk. The Enterprises actively worked with nonprofit advocacy groups to discuss housing counseling 

opportunities that help ensure sustainable homeownership. For example, under its HomeReady program, Fannie 

Mae requires that borrowers complete an online training 

course developed by U.S. Department of Housing and 

Urban Development-approved counseling agencies or 

work directly with one of these counseling agencies to 

learn the fundamentals of buying and owning a home 

prior to obtaining a HomeReady mortgage. 

Fannie Mae and Freddie Mac also engaged in outreach to 

a wide variety of groups—including seller/servicers, potential seller/servicers, trade groups, think tanks, government 

agencies, policy advocacy groups, and other institutions—

in an effort to understand how they could better support 

efforts to responsibly increase access to credit for minorities and underserved communities. 

Alternate Credit Score Models – In 2015, FHFA and 

the Enterprises began assessing the feasibility of using 

updated or alternate credit scoring models in their business operations. This issue remains an ongoing priority 

for FHFA.5 

Loss Mitigation and Foreclosure Prevention Activities

The 2015 Scorecard called for the Enterprises to implement key loss mitigation activities, thereby enabling borrowers to stay in their homes and avoid foreclosure where 

possible. The Enterprises worked on the following loss 

mitigation and foreclosure prevention activities.

HARP Replacement and Outreach – In May, FHFA 

announced an extension of HARP to the end of 2016. To 

continue to encourage HARP-eligible homeowners to refinance, FHFA also engaged in outreach efforts in Newark, 

NJ, Phoenix, AZ, and Columbus, OH; hosted a HARP 

webinar focused on Ohio; and launched a social media 

campaign. These efforts targeted areas with the highest 

concentration of HARP-eligible homeowners and leveraged community leaders and other trusted local advisers 

to promote the program.

Solutions for HAMP Borrowers Facing Rate Resets –

Under the terms of the HAMP program, five years after a 

mortgage is modified the interest rate begins to gradually 

reset, increasing by 1 percentage point each year, until it 

reaches the market rate that was in effect at the time of the 

modification. In 2015, the Enterprises took steps to assist 

borrowers who may be challenged by making an increased 

monthly mortgage payment as a result of a rate reset.

In January, FHFA directed the Enterprises to implement 

a $5,000 pay-for-performance incentive that reduces the 

outstanding principal of HAMP borrowers who have 

remained in good standing through the end of the sixth 

year of their modification.

In March, each Enterprise announced changes to its 

Streamlined Modification product that reduced the period 

of time for which a borrower must have been delinquent 

in order to receive a modification from 90 to 60 days for 

borrowers who had recently experienced a rate reset. In 

May, FHFA directed the Enterprises to eliminate the sunset 

date for their Streamlined Modification products. One of 

the reasons for ensuring the continuing availability of this 

loss mitigation tool is its role as a solution for HAMP borrowers who face rate resets. 

5 In the 2016 Scorecard for Fannie Mae, Freddie Mac, and Common Securitization Solutions, FHFA included the expectation that the Enterprises will conclude their assessment and, as 

appropriate, plan for implementation.

“The Enterprises actively 

worked with nonprofit advocacy 

groups to discuss housing 

counseling opportunities 

that help ensure sustainable 

homeownership.”
4 FEDERAL HOUSING FINANCE AGENCY

The Enterprises also identified approximately 16,000 

HAMP borrowers who are facing resets and are also eligible for HARP and would benefit from refinancing. The 

Enterprises provided servicers with information to enable 

them to solicit these borrowers for HARP.

Neighborhood Stabilization Initiative – FHFA, 

in collaboration with the Enterprises, developed the 

Neighborhood Stabilization Initiative (NSI) in 2014 as 

a pilot effort to test innovative pre- and post-foreclosure 

strategies aimed at stabilizing selected distressed communities. The Enterprises launched the NSI pilot in Detroit, 

MI in June 2014 and expanded it to include Cook County, 

IL (Chicago) in April 2015. 

Since the start of NSI, FHFA has worked closely with 

the Enterprises to identify the markets in which the NSI 

approach to real estate owned (REO) properties, which 

leverages nonprofits and community buyers, could be 

utilized to help stabilize targeted neighborhoods. Based 

on lessons learned from the NSI pilot, FHFA and the 

Enterprises agreed that a broad-based REO stabilization 

program could be successfully implemented in multiple 

markets. On December 1, the NSI was expanded to the 

following 18 MSAs: Akron, Atlanta, Baltimore, Chicago, 

Cincinnati, Cleveland, Columbus, Dayton, Detroit, 

Jacksonville, Miami, New York, Orlando, Philadelphia, 

Pittsburgh, St. Louis, Tampa, and Toledo.

Sales of Non-Performing Loans – After conducting 

an initial pilot sale of non-performing loans (NPL) in 

August 2014 that covered mortgage loans with an unpaid 

principal balance (UPB) of $596 million, Freddie Mac 

conducted a second pilot sale in March 2015 that covered 

$349 million of UPB. 

Also in March 2015, FHFA published enhanced NPL sales 

requirements that seek to further reduce Enterprise losses 

and improve borrower and neighborhood outcomes. 

After issuing the enhanced requirements, FHFA gave 

approval to Freddie Mac to conduct ongoing NPL sales, 

and Freddie Mac conducted eight more sales in 2015. 

Applying the enhanced requirements issued by FHFA, 

Fannie Mae also conducted a pilot NPL sale in June that 

covered 2,477 loans. After receiving FHFA approval to 

conduct ongoing sales, Fannie Mae conducted two more 

NPL sales in 2015. 

Both Enterprises developed pages on their websites related 

to NPL sales to educate and assist interested bidders. To 

encourage more nonprofit bidders, the Enterprises hosted 

one-day seminars about the NPL sales process, including 

information about small pools and nonprofit bidders, 

and conducted additional outreach efforts throughout 

the year.6

Lender-Placed Insurance – FHFA continued to review 

the Enterprises’ lender-placed insurance (LPI) arrangements during the year and directed the Enterprises to 

establish an aligned, three-tiered minimum deductible for 

LPI coverage. This raised deductibles in order to lower 

premium costs. These efforts built on a directive FHFA 

issued in 2013 that prohibited Enterprise servicers from 

receiving commissions or similar incentive-based compensation from LPI carriers. 

6 On April 14, 2016, FHFA announced additional enhancements to its NPL sales requirements that build on the requirements announced in March 2015. For more information, please 

see Fact Sheet: Enhanced Non-Performing Loan Sale Guidelines.

“To encourage more 

nonprofit bidders, the 

Enterprises hosted one-day 

seminars about the NPL 

sales process, including 

information about small 

pools and nonprofit bidders, 

and conducted additional 

outreach efforts throughout 

the year.”
5

At FHFA’s request, the Enterprises have developed more 

robust internal reporting metrics for LPI. These new 

internal metrics give insight into and quantify the costs of 

LPI to borrowers and enhance the Enterprises’ capacity to 

manage LPI costs. 

These and other efforts have helped to lower premiums 

and enhance regulation of LPI. Lower LPI premiums have 

been reflected in the claims for reimbursement that servicers have submitted to the Enterprises. For example, the 

average amount of claims for reimbursement submitted 

to Fannie Mae fell from almost $4,000 for the 2009 coverage year to under $1,400 for the 2014 coverage year, a 

decrease of 64 percent.

Multifamily Credit Guarantee Business 

The 2015 Scorecard continued the loan production caps 

of $30 billion on each Enterprise’s multifamily business. 

However, because the multifamily market grew beyond 

FHFA’s projections for 2015, FHFA revised the 2015 

Scorecard midyear to exclude an expanded range of affordable 

and underserved multifamily categories from those caps. 

In 2015, neither Enterprise’s total multifamily finance 

activity for the year—about $42.3 billion for Fannie Mae 

and $47.3 billion for Freddie Mac—exceeded the 2015 

Scorecard’s loan production caps under the revised, midyear definitions. 

In 2015, both Enterprises implemented or improved 

other initiatives designed to support affordable and 

underserved segments of the multifamily market. Both 

Enterprises enhanced their existing loan programs to better serve small multifamily properties and to help renovate 

and preserve older, subsidized affordable housing properties. Both also offered new ways to guarantee tax-exempt 

housing bonds to promote greater use of this type of 

financing. Further, both Enterprises offered programs 

designed to renovate and upgrade older market-rate properties to improve housing quality and adapt older units for 

modern renter needs.

REDUCE. 

Reduce taxpayer risk through increasing 

the role of private capital in the mortgage 

market.

The 2014 Conservatorship Strategic Plan focused on 

reducing taxpayer risk by increasing the role of private 

capital in the secondary mortgage market. To further that 

objective, the 2015 Scorecard called for the Enterprises to: 

1) expand the volume and types of transactions that transfer single-family mortgage credit risk to the private sector; 

2) determine the feasibility of transacting additional types 

of transfers of multifamily mortgage credit risk; 3) continue to implement approved plans to reduce their retained 

mortgage portfolios; and 4) implement finalized counterparty risk management standards for private mortgage 

insurers eligible to do business with them. 

Credit Risk Transfers for Single-Family 

Credit Guarantee Business

The 2014 Conservatorship Strategic Plan built upon 

the Enterprises’ previous credit risk transfer efforts and 

in 2015 FHFA increased its expectations for the volume of the Enterprises’ single-family credit risk transfer 

transactions for the third consecutive year. In 2015, the 

Enterprises executed combined credit risk transfers on 

single-family mortgage loans with a total UPB of approximately $417 billion. These credit risk transfers took place 

through 43 separate transactions in which the combined 

value of either the notes issued or the risk-in-force 

(for insurance/reinsurance deals) totaled approximately 

$16.8 billion. 

Innovations – Fannie Mae and Freddie Mac also implemented a number of new credit risk transfer products and 

product innovations in 2015. Fannie Mae completed 

several collateralized recourse transactions, a front-end 

transaction in which sellers share the credit risk of pools 

of mortgage loans securitized by Fannie Mae. A Fannie 

Mae Credit Insurance Risk Transfer transaction transferred 

credit risk on adjustable-rate mortgage (ARM) loans, the 

REPORT TO CONGRESS • 2015

CONSERVATORSHIPS OF THE ENTERPRISES
6 FEDERAL HOUSING FINANCE AGENCY

first risk transfer involving ARMs by either Enterprise. In 

addition, Freddie Mac completed two senior/subordinate 

securitizations. These deals transferred the credit risk on 

pools of super-conforming mortgage loans, which are 

originated in designated high-cost areas and have balances 

between the national conforming loan limit and higher 

limits applicable in high-cost areas.

Diversity and Inclusion Efforts – The Enterprises 

developed plans to evaluate current qualification requirements that may present impediments, challenges, or 

unwarranted barriers to participation in Enterprise singlefamily credit risk transfer initiatives by diverse firms. 

Freddie Mac focused on gaining a better understanding 

of the impediments facing diverse firms, being proactive 

in educating diverse firms about its credit risk transfer 

programs, and communicating performance results for 

transactions in which the firms participated. Fannie Mae 

implemented a pilot program to expand the role of diverse 

selling group members involved in single-family credit 

risk transfer transactions, conducted broad outreach to a 

number of diverse dealers, and provided dealer product 

training on credit risk transfers. 

Credit Risk Transfers for Multifamily Credit Guarantee 

Business

The 2015 Scorecard called on the Enterprises to initiate 

any feasible transactions that increased the amount of 

credit risk transferred via their existing multifamily credit 

risk transfer structures.7 Freddie Mac developed and 

executed several new approaches to securitize older loans 

held in its portfolio, securitize supplemental loans provided to existing borrowers, re-securitize military housing 

bonds it had purchased, and use securitization to transfer 

7 The Enterprises’ existing multifamily credit risk transfer structures include Fannie Mae’s Delegated Underwriting and Servicing (DUS) lender loss-sharing or Freddie Mac’s K-Deal capital 

markets execution via commercial mortgage-backed securities.

Figure 1 • Enterprise Single-Family Mortgage Credit Risk Transfer Activity 2013-2015

Note Size

or RIFa

(billions)

Number of 

Transactions

Covered 

Mortgage 

Loans

b

(billions)

Scorecard 

Goal 

(billions)

Percentage 

of Loans 

Covered vs. 

Scorecard 

Goal

2013

Fannie Mae $ 0.80 3 $ 31.20 $ 30.00 104%

Freddie Mac $ 1.20 3 $ 44.80 $ 30.00 149%

TOTAL $ 2.00 6 $ 75.90 – –

2014

Fannie Mae $ 6.10 11 $ 218.80 $ 90.00 243%

Freddie Mac $ 5.60 10 $ 126.10 $ 90.00 140%

TOTAL $ 11.70 21 $ 344.80 – –

2015

Fannie Mae $ 7.30 21 $ 228.80 $ 150.00 153%

Freddie Mac $ 9.50 22 $ 188.30 $ 120.00 157%

TOTAL $ 16.80 43 $ 417.10 – –

2013-2015

Fannie Mae $ 14.20 34 $ 478.80 – –

Freddie Mac $ 16.30 34 $ 359.20 – –

TOTAL $ 30.60 70 $ 837.90 – –

Source: Federal Housing Finance Agency

a

 Volume of notes issued in debt transactions or risk-in-force (RIF) in insurance/reinsurance transactions. Equals the maximum credit loss exposure of private investors.

b

 Unpaid principal balance of pools of mortgage loans on which credit risk is transferred.
REPORT TO CONGRESS • 2015 7

CONSERVATORSHIPS OF THE ENTERPRISES

risk through a third-party investment fund. Freddie Mac 

also developed a securitization-based approach to create 

a fund to finance loan acquisitions during the aggregation 

period prior to K-Deal issuance. Fannie Mae completed 

a large volume of transactions under its Performing Note 

Sales program, transferring significant additional credit 

risk to the market. Fannie Mae also worked to develop a 

transaction that would transfer portions of the credit risk 

of its guaranteed multifamily securities, in a manner similar to its existing single-family credit risk transfers. 

Retained Mortgage Portfolios

The 2015 Scorecard directed the Enterprises to continue to 

implement approved plans to reduce their retained portfolios. Further reducing the portfolios will continue to shift 

credit risk, asset liquidity risk, and interest rate risk from 

the Enterprises to private investors. Each Enterprise’s plan 

requires it to prioritize selling its less-liquid assets, such as 

non-agency securities, in a commercially reasonable manner, consistent with neighborhood stabilization. Each 

plan also requires that the Enterprise meet, even under 

adverse conditions, such as rising interest rates or falling 

house prices, the annual cap imposed by the PSPAs, ultimately declining to a $250 billion PSPA cap applicable on 

December 31, 2018. 

As of December 31, both Enterprises were below the yearend 2015 PSPA cap of $399 billion each. At year-end, 

Freddie Mac’s portfolio stood at $347 billion, and Fannie 

Mae’s was $345 billion, for a reduction in their combined 

portfolios of $130 billion in 2015.

Much of the reduction at each Enterprise resulted from 

voluntary and involuntary prepayments. Prepayments 

totaled $63 billion at Fannie Mae and nearly $68 billion 

at Freddie Mac. In addition, each Enterprise transferred 

risk to private investors through the sale of less-liquid 

assets—about $15 billion by Freddie Mac and about $12 

billion by Fannie Mae. For both Enterprises, the lessliquid assets were predominantly private-label mortgagebacked securities (MBS) and NPLs sold through auctions.

The Enterprises explored a number of ways to include and 

engage minority- and women-owned firms and nonprofits 

in retained portfolio transactions. These included holding meetings with diverse firms, nonprofits, and public 

advocacy groups to discuss their NPL sales programs. The 

Enterprises also conducted training sessions for diverse 

firms and nonprofits to encourage their participation in 

retained portfolio transactions. Both Enterprises engaged 

diverse firms to serve as advisors for NPL sales and to 

assist with outreach to small investors and minority- and 

women-owned businesses.

Private Mortgage Insurer Eligibility Requirements 

On April 17, Fannie Mae and Freddie Mac issued final 

Private Mortgage Insurer Eligibility Requirements 

(PMIERs), establishing financial standards that require 

mortgage insurers (MIs) to demonstrate adequate 

resources to pay claims and operational standards relating to quality control processes and performance metrics. Noncompliance with the requirements or material 

deviations from the performance expectations will trigger 

remediation. In June, the Enterprises revised the PMIERs 

to make technical corrections and include a new financial 

requirement for lender-paid mortgage insurance. Further 

technical corrections were made on December 21, and the 

revised requirements became effective December 31.

During the second half of 2015, Fannie Mae and Freddie 

Mac engaged in a number of activities to implement 

the PMIERs. Specifically, the Enterprises reviewed and 

approved reinsurance agreements proposed by MIs to 

meet the PMIERs’ financial standards; worked with the 

MIs to understand and resolve issues with reporting templates; conducted reporting “dry runs” with the MI companies; and enhanced internal processes and procedures 

to incorporate additional analysis, monitoring, and governance requirements to support the PMIERs.

“On April 17, Fannie Mae 

and Freddie Mac issued 

final Private Mortgage 

Insurer Eligibility 

Requirements.”
8 FEDERAL HOUSING FINANCE AGENCY

BUILD. 

Build a new single-family securitization 

infrastructure for use by the Enterprises 

and adaptable for use by other participants 

in the secondary market in the future.

FHFA’s 2014 Conservatorship Strategic Plan and 2015 

Scorecard continued to make building a new infrastructure 

for the securitization functions of the Enterprises a priority. That effort includes ongoing work to: 1) develop the 

Common Securitization Platform (CSP); 2) develop a single Enterprise mortgage-backed security (Single Security); 

and 3) allow for the integration of additional market 

participants in a future system through the use of industrystandard software, systems, and data requirements. The 

2015 Scorecard also required work to build more consistent and uniform data standards for use by the Enterprises 

and other market participants.

Common Securitization Platform and Common 

Securitization Solutions

FHFA’s 2014 Conservatorship Strategic Plan includes the 

strategic goal of developing a new securitization infrastructure for the Enterprises for mortgage loans backed by 

single-family properties. To achieve this goal, Common 

Securitization Solutions (CSS), a joint venture owned by 

Fannie Mae and Freddie Mac, has been developing the 

CSP, under FHFA’s direction and guidance. CSS acts as 

each Enterprise’s agent to facilitate issuance of singlefamily mortgage securities, release related at-issuance 

and ongoing disclosures, and administer the securities 

post-issuance. In addition, CSS is creating the operational 

capabilities necessary to run the CSP. 

In September, FHFA issued An Update on the Common 

Securitization Platform which announced a two-part release 

process for the CSP and the Single Security. In Release 1, 

FHFA expects the Enterprises and CSS to implement the 

CSP for Freddie Mac’s existing single-class securities in 

2016. In Release 2, FHFA expects them to implement the 

Single Security on the CSP for both Enterprises in 2018. 

CSP Testing – The CSP is being developed in accordance 

with software design principles that will leverage industry 

data standards wherever possible. CSS is using a software 

development process in which cross-functional teams 

produce work on an incremental, iterative basis which 

mitigates the risk of missed deadlines or project failure. 

CSS and the Enterprises are also carefully testing the evolving software and related operational capabilities in distinct 

steps. Testing of this software continues to progress, with 

both Enterprises and CSS undertaking system-to-system 

testing. Such testing involves automated data exchanges 

in which an Enterprise sends data on pools of fixed-rate 

mortgage loans and related single-class securities to CSS 

and ensures that it has received valid responses from CSS. 

In addition, CSS has undertaken significant performance 

testing to assess the CSP’s ability to handle large volumes 

of data and transactions in an efficient manner.

CSS Operations – CSS has also continued to develop 

its securitization operations and production readiness. 

Notable accomplishments include creation of key operational policies, procedures, and controls, including those 

related to business continuity and disaster recovery; 

and the substantial development of service-level agreements which provide for agreed-upon standards of work 

activities (including scope of responsibilities, timelines 

for activities, and quality metrics) between CSS and the 

Enterprises. In support of diversity and inclusion, CSS 

implemented a vendor management program to promote 

the use of diverse suppliers in contracting and procurement activities. CSS also evaluated its workforce to identify areas for improvement with respect to diversity and 

inclusion across the organization.

Updating Enterprise Systems for CSP Integration –

Fannie Mae and Freddie Mac are progressively completing the technology and operational changes that each 

Enterprise needs to make to enable it to use the CSP. 

Single Security

In May, FHFA released An Update on the Structure of the 

Single Security, which detailed information about the 

Single Security’s features and disclosures. During the 

remainder of 2015 FHFA worked with the Enterprises 

on finalizing the remaining aspects of these features and 
REPORT TO CONGRESS • 2015 9

CONSERVATORSHIPS OF THE ENTERPRISES

disclosures. This work is continuing in 2016. For example, in developing the loan-level disclosures for Single 

Securities, the Enterprises and FHFA are working to determine the best way to meet the needs of investors while 

also protecting borrower privacy. Balancing those objectives includes making choices about how best to disclose 

loan-level geographic information about each property 

and mask certain loan-level data attributes. Data masking may involve, for example, rounding loan amounts or 

omitting the day or month on which the borrower is obligated to make his or her first mortgage payment. Once the 

attributes of this data set are determined, the Enterprises 

will publish the final Single Security features and disclosures.

Input from the Public and Industry – Developing 

the CSP and the Single Security are multiyear projects 

that continue to be refined as FHFA, the Enterprises, and 

CSS receive public and industry input. To facilitate input 

from industry stakeholders, in 2015 Fannie Mae, Freddie 

Mac, and CSS established the Single Security/CSP Industry 

Advisory Group. The Industry Advisory Group met twice 

in 2015 and provided feedback and shared information 

with CSS and the Enterprises related to the Single Security 

and the development of the CSP. 

Fannie Mae and Freddie Mac have also created Single 

Security and CSP web pages that provide regular progress 

updates, frequently asked questions and answers, and a 

schedule of upcoming speaking engagements and conferences.8 These web pages also allow visitors to register to 

receive regular updates and to submit questions. Posted 

on the web pages are the materials that CSS shares with 

the Industry Advisory Group and the minutes of the 

Group’s meetings. 

FHFA has also maintained an ongoing dialogue with key 

industry participants such as the Federal Reserve Bank 

of New York, the Treasury Market Practices Group, representatives from the mortgage and securities industries, 

consumer groups, and firms that provide information 

technology services to mortgage investors. These contacts 

provide opportunities for FHFA to share information and 

receive feedback. In addition, FHFA has provided regular 

briefings to other federal agencies and congressional staff.

FHFA, the Enterprises, and CSS will continue to seek input 

from and to work with stakeholders as the CSP and Single 

Security initiatives proceed with the objective of improving overall secondary mortgage market liquidity while 

mitigating any risk of market disruption.

Mortgage Data Standardization

Fannie Mae and Freddie Mac continue to collaborate 

with the industry, through the Uniform Mortgage Data 

Program, to develop and implement uniform data standards for single-family mortgage loans. The Mortgage 

Industry Standards Maintenance Organization Reference 

Model facilitates such efforts, which result in consistent 

data definitions, enumerations, and mapping. 

Uniform Closing Disclosure Dataset – The 2015 

Scorecard included a priority for the Enterprises to develop 

a plan for collecting the Uniform Closing Disclosure 

Dataset (UCD). The Enterprises have been developing the UCD since 2012, when the Consumer Financial 

Protection Bureau published a proposed rule providing 

for Integrated Mortgage Disclosures under the Real Estate 

Settlement Procedures Act and the Truth in Lending Act. 

Once the UCD is implemented, a lender will send the 

UCD data for a mortgage loan to the acquiring Enterprise 

before delivering the loan. The Enterprise will be able to 

send a loan-level message to the lender to communicate 

any concerns, which will allow the lender to resolve them 

before delivering the loan and reduce future loan quality 

issues. The Enterprises expect to implement the data collection system in late 2016 with mandatory delivery of 

closing data by lenders in 2017.

Uniform Loan Application Dataset – The 2015 

Scorecard also called for the Enterprises to develop the 

Uniform Loan Application Dataset (ULAD), which 

involves consultation with lenders to build a new mortgage loan application and an associated dataset that electronically captures the information on the application. 

The effort provides an opportunity to remove unused 

questions on the application, add new data fields, leverage technology advances, and improve the usability of 

the form. The Enterprises are currently conducting tests 

8 Link to Fannie Mae’s Single Security and CSP page: http://www.fanniemae.com/portal/funding-the-market/single-security/index.html?cmpid=marqss; 

Link to Freddie Mac’s Single Security and CSP page: http://www.freddiemac.com/mbs/html/single_security_csp.html. 
10 FEDERAL HOUSING FINANCE AGENCY

of the usability of the new application with consumers, 

nonprofit advocacy groups, lenders, mortgage professionals, and government housing agencies. Following this 

outreach period, the Enterprises expect to finalize the form 

and publish the dataset. 

Other 2015 Conservatorship Activities:

Boards of Directors – As conservator, FHFA approves 

the appointment of new directors serving on the boards of 

directors of each Enterprise. In 2015, FHFA approved the 

election of Lance F. Drummond to serve on the Freddie 

Mac board of directors.

Executive Compensation – In May, FHFA authorized 

the Fannie Mae and Freddie Mac boards of directors to 

submit proposals for compensation of their CEOs that 

would promote CEO retention, allow reliable succession planning, and ensure the continuity, efficiency and 

stability of Enterprise operations. Each board submitted a proposal for FHFA review, and FHFA approved an 

identical plan for both companies. The approved plan 

deferred significant compensation to ensure retention, 

was performance-based and did not include a bonus. The 

plan also positioned each CEO’s compensation below the 

25th percentile of comparable institutions, a requirement 

set by FHFA in recognition of the fact that the Enterprises 

are in conservatorship. The changes approved by FHFA 

took effect on July 1, 2015. In November, President 

Obama signed a law suspending the pay increases for the 

Enterprise CEOs, and FHFA has implemented the law reinstating the prior CEO compensation limits.

Guarantee Fee Pricing – In April, FHFA concluded a 

review of the Enterprises’ guarantee fees and announced 

that existing guarantee fees, on average, were at an 

appropriate level. FHFA determined that some modest 

adjustments to upfront guarantee fees were also appropriate. These adjustments included elimination of the 25 

basis-point, up-front adverse market charge put in place 

in March 2008, and the addition of targeted increases in 

guarantee fees to address various risk-based and access-tocredit considerations. The revenue from these increases is 

expected to offset the revenue loss resulting from eliminating the adverse market charge. In making adjustments to 

the guarantee fees for certain categories of loans, FHFA 

also took into account its decision to strengthen financial 

and operational eligibility standards for mortgage insurance companies.

The guarantee fee announcement followed a comprehensive review and analysis, which evaluated information 

provided by outside stakeholders in response to FHFA’s 

request for input and other internal and external information. FHFA focused on reaching an appropriate balance 

between its statutory obligations to ensure the safety and 

soundness of the Enterprises and to foster a liquid national housing finance market. 

Private-Label Mortgage-Backed Securities – In 2015, 

FHFA continued its work on the remaining private-label 

MBS lawsuits filed in 2011 against financial institutions and certain of their officers and directors.9 Each 

suit alleged violations of federal securities laws and state 

laws in the sale of private-label MBS investments to the 

Enterprises between 2005 and 2007. The complaints 

were filed under statutory authority granted to FHFA, as 

conservator, by HERA, and reflected FHFA’s determination 

that the institutions and individuals named in the suits 

violated securities laws and common law, causing each 

Enterprise to incur significant losses in these private-label 

MBS investments. 

At the beginning of 2015, two of FHFA’s private-label MBS 

lawsuits remained pending: (1) FHFA v. Nomura Holding 

America, Inc. in the U.S. District Court for the Southern 

District of New York, and (2) FHFA v. The Royal Bank of 

Scotland Group, PLC (RBS) in the U.S. District Court for the 

District of Connecticut. The district court decided in favor 

of FHFA and the Enterprises in the Nomura case in May 

and awarded rescissory damages of over $806 million and 

required return of the bonds, worth approximately $400 

million, to the defendants. 

9 FHFA filed 18 lawsuits in 2011. In 2013, FHFA reached settlements with six financial institutions resulting in resolution of five of the original 18 lawsuits and a combined recovery of 

nearly $8 billion. In 2014, settlements were reached in 11 of the remaining private-label MBS lawsuits, resulting in the recovery of more than $10.3 billion on behalf of taxpayers.
REPORT TO CONGRESS • 2015 11

CONSERVATORSHIPS OF THE ENTERPRISES

The defendants in the Nomura case have appealed the trial 

court decision to the U.S. Court of Appeals for the Second 

Circuit. The RBS case is still pending and a trial date has 

not yet been set by the court. 

Homeowners’ Association Super-Priority Lien 

Foreclosures – On December 22, 2014, FHFA issued a 

statement alerting homeowners, financial institutions, and 

state authorities of the Agency’s concerns with state-level 

actions that threaten the first-lien status of single-family 

loans owned or guaranteed by Fannie Mae or Freddie Mac. 

FHFA and Fannie Mae filed an action in federal court in 

Nevada seeking a determination that a homeowners’ association (HOA) foreclosure sale was invalid and contrary 

to federal law to the extent that it purported to extinguish 

Fannie Mae’s property rights. The federal district court 

decided the case in favor of FHFA and Fannie Mae.10

FHFA’s position in that case, and similar cases, has been 

that federal law precludes involuntary extinguishment of 

liens held by Fannie Mae or Freddie Mac while they are 

operating in conservatorships and bars holders of other 

liens, including HOAs, from taking any action that would 

extinguish such liens.

Due to the volume of actual and potential cases on the 

issue of so-called HOA super-priority liens, in October, 

FHFA and the Enterprises moved to certify a defensive 

class in Nevada federal court and sought a permanent 

injunction barring any HOA foreclosure sale that would 

extinguish any Enterprise lien. Litigation on these issues 

continues. 

10 Fannie Mae, FHFA v. Skylights, LLC, 112 F.Supp.3d 1145 (D. Nev. 2015).
Supervision and Oversight

Examination Authority for 

Regulated Entities

Reports of Annual Examinations of 

Fannie Mae and Freddie Mac

Report of Annual Examinations of 

Federal Home Loan Banks

Results of Stress Tests under the 

Dodd-Frank Wall Street Reform and 

Consumer Protection Act

Enterprise Housing Goals and 

Duty to Serve

Federal Home Loan Bank Mission 

and Affordable Housing Programs

Regulatory Guidance

Legislative Recommendations

12 FEDERAL HOUSING FINANCE AGENCY
REPORT TO CONGRESS • 2015 13

SUPERVISION AND OVERSIGHT

Examination Authority 

for Regulated Entities 

Section 1317(a) of the Federal Housing Enterprises 

Financial Safety and Soundness Act of 1992 

(Safety and Soundness Act), as amended, 12 

USC § 4517(a), requires FHFA to conduct annual onsite examinations of the Enterprises and the FHLBanks. 

Examination of the FHLBanks is also performed pursuant 

to Section 20 of the Federal Home Loan Bank Act (Bank 

Act), as amended, 12 USC § 1440. The FHLBank System 

includes the 11 FHLBanks (Boston, New York, Pittsburgh, 

Atlanta, Cincinnati, Indianapolis, Chicago, Des Moines, 

Dallas, Topeka, and San Francisco)11 and the Office of 

Finance, which is a joint office of the FHLBanks. 

Scope of Examination

FHFA examiners use a risk-based approach to supervision, 

which is designed to identify existing and potential risks 

that could harm a regulated entity, evaluate the overall 

integrity and effectiveness of each regulated entity’s risk 

management systems and controls, and determine compliance with laws and regulations applicable to the regulated 

entity. In 2015, FHFA’s examination activities included 

comprehensive and targeted risk-based examinations and 

ongoing monitoring. FHFA assessed the remediation of 

previously issued Matters Requiring Attention (MRAs) 

at both the Enterprises and the FHLBanks. In addition, 

FHFA assessed the responses of the regulated entities’ 

boards of directors and management to deficiencies and 

weaknesses identified by the Enterprises’ internal audit 

departments and external auditors.

Rating System

The term CAMELSO refers to the seven components of 

the examination framework that FHFA uses to report its 

examination findings to the boards of directors at Fannie 

Mae and Freddie Mac and at the FHLBanks. Those components are Capital; Asset quality; Management; Earnings; 

Liquidity; Sensitivity to market risk; and Operational risk.

Supervision of Fannie Mae and Freddie Mac

FHFA’s supervision activities in 2015 included ongoing 

monitoring and targeted examinations at both Enterprises. 

FHFA’s Division of Enterprise Regulation (DER) performed examination activities in the areas of credit, market, model and operational risk, as well as governance and 

compliance. Enterprise examination includes assessment 

of the safety and soundness of each Enterprise, i.e., its 

financial performance, condition, and overall risk management practices, as well as its compliance with regulations.

Examination activity at each Enterprise is led by an 

Examiner-in-Charge and is carried out primarily by an 

on-site team in coordination with other subject matter 

experts in different risk areas, accounting and compliance. 

Following completion of examination activity, DER communicates any findings in writing to the Enterprise and 

obtains a commitment from the relevant Enterprise to 

remediate the findings. The Enterprise submits a plan for 

corrective action. The Enterprise’s internal audit function 

or an independent third party validates the completion 

of remediation plans, and DER reviews corrective action 

through examination activities.

FHFA’s approach to carrying out its supervisory responsibilities includes ongoing monitoring, on-site targeted 

examinations, and risk assessments. The assessments 

contained in this report are based on an examination of the 

books and records of the Enterprises; on statements made to 

examiners by directors, officers, employees, and agents of the 

Enterprise; and on information obtained from other sources. 

Supervision of the Federal Home Loan Banks

FHFA’s Division of Bank Regulation (DBR) is responsible for carrying out on-site examinations and ongoing 

supervision of the FHLBanks. Oversight of the FHLBanks 

11 Throughout 2014 the FHLBank System included 12 FHLBanks. In May, 2015 the FHLBank of Seattle merged with the FHLBank of Des Moines, reducing the total number of FHLBanks 

to 11. The FHLBank of Des Moines is the continuing institution.
14 FEDERAL HOUSING FINANCE AGENCY

promotes both safe and sound operation and achievement of their housing finance and community investment 

mission. In 2015, FHFA examined all of the FHLBanks 

and the Office of Finance. An Examiner-in-Charge and a 

team of examiners conduct each annual examination with 

support from financial analysts, economists, accountants, 

and attorneys. In addition, FHFA examiners visit the 

FHLBanks between examinations to follow up on examination findings and to discuss emerging issues. 

Examiners communicate all findings to FHFA management and any MRAs to the FHLBank’s board of directors 

and management. In addition, examiners obtain a commitment to correct significant deficiencies in a timely 

manner and then verify the effectiveness of those corrective actions. 

DBR maintains an off-site monitoring program that 

reviews monthly and quarterly financial reports and other 

information, such as data on FHLBank investments and 

information related to member activity. The Division 

monitors debt issuances by the Office of Finance and 

tracks financial market trends. The Division and other 

FHFA groups review FHLBank documents and analyze 

responses to a wide array of periodic and ad hoc information requests, including an annual survey of FHLBank 

collateral and collateral management practices, unsecured 

credit data, liquidity, advances, and periodic data on certain FHLBank investment holdings.

Reports of Annual 

Examinations of 

Fannie Mae and 

Freddie Mac

Financial Condition of the 

Enterprises

The Enterprises were created by Congress to provide 

stability and liquidity in the secondary housing 

finance market. They purchase single-family mortgages that lenders have already made to homeowners 

and pool these mortgages into MBS, which are then sold 

to investors. The Enterprises guarantee the payment of 

principal and interest on the underlying loans to the MBS 

investors and charge lenders a guarantee fee as compensation for taking on the credit risk associated with the 

mortgages they acquire. The Enterprises also purchase 

multifamily mortgages, and each Enterprise uses a different model of credit risk-sharing for these purchases. 

Fannie Mae uses loss-sharing transactions through a delegated underwriting system. Freddie Mac uses capital markets execution to transfer its credit risk.

Enterprise Income – Fannie Mae reported annual net 

income of $11.0 billion and annual comprehensive 

income of $10.6 billion for 2015, compared to annual 

net income of $14.2 billion and annual comprehensive 

income of $14.7 billion for 2014. Freddie Mac reported 

annual net income of $6.4 billion and annual comprehensive income of $5.8 billion for 2015, compared to 

annual net income of $7.7 billion and annual comprehensive income of $9.4 billion for 2014. Earnings for 

both Enterprises were impacted by three factors: 1) lower 

proceeds from settlements related to private-label MBS 

litigation; 2) lower fair value losses due to the less severe 

decrease in swap rates; and 3) decreased benefit for credit 
REPORT TO CONGRESS • 2015 15

SUPERVISION AND OVERSIGHT

losses. Earnings were also weakened in 2015 by increased 

foreclosed property expenses and lower proceeds from 

representation and warranty resolutions. 

The Enterprises have two primary sources of revenue: 1) 

management and guarantee fees on loans held by consolidated trusts of the MBS they issue; and 2) the difference 

between the interest income earned on the assets in their 

retained mortgage portfolios and the interest expense 

associated with the debt that funds those assets. In recent 

years, an increasing portion of the Enterprises’ net interest 

income has been derived from guarantee fees rather than 

interest income earned on their retained mortgage portfolio assets. This shift is primarily driven by the impact 

of guarantee fee increases implemented in 2012 and the 

reduction of the retained portfolios in accordance with the 

requirements of the PSPAs. Figure 2 below shows changes 

since 2011 in the level and composition of the Enterprises’ 

net interest income.

Figure 2 • Enterprises’ Net Interest Income 2011-2015 2015 FANNIE Retained Portfolio $ in Millions

Q2 2012Q3 2012Q4 2012Q1 2013Q2 2013Q3 2013Q4 2013Q1 2014Q2 2014Q3 2014Q4 2014Q1 2015Q2 2015Q3 2015Q4 2015

Retained Portfolio Consolidated Trusts

Q1 2011Q2 2011Q3 2011Q4 2011Q1 2012

$7,000

$0

$1,000

$2,000

$3,000

$4,000

$5,000

$6,000

$7,000

2015 FRED Retained Portfolio

$ in Millions

Q2 2012

Q3 2012Q4 2012Q1 2013Q2 2013Q3 2013

Q4 2013Q1 2014

Q2 2014Q3 2014Q4 2014Q1 2015Q2 2015Q3 2015Q4 2015

Retained Portfolio Consolidated Trusts

Q1 2011Q2 2011Q3 2011Q4 2011Q1 2012

$0

$1,000

$2,000

$3,000

$4,000

$5,000

$6,000

$7,000

Fannie Mae

Freddie Mac

Source: Federal Housing Finance Agency
16 FEDERAL HOUSING FINANCE AGENCY

Enterprise Portfolios – Book of business balances of 

MBS held by investors for each Enterprise have been relatively stable over the past few years. Decreases in retained 

portfolio balances were generally offset by increases in 

guarantee portfolio balances. 

Fannie Mae purchased $473 billion of single-family mortgages in 2015, an increase of approximately 26 percent 

from in 2014 ($376 billion). Freddie Mac purchased 

$351 billion of single-family mortgages in 2015, an 

increase of approximately 38 percent from 2014 ($255 

billion). Multifamily purchase volumes increased yearover-year for both Enterprises, primarily driven by substantial growth in the overall multifamily market in 2015. 

Fannie Mae’s multifamily purchase volume in 2015 was 

$42.3 billion, an increase of $13.4 billion from 2014. 

Freddie Mac’s multifamily new purchase volume in 2015 

was $47.3 billion, an increase of $19.0 billion from 2014. 

The Enterprises’ total mortgages and guarantees are shown 

in Figure 3.

The Enterprises’ investment portfolios continue to expose 

them to interest-rate risk. Further, accounting differences 

for these financial assets and liabilities, including derivatives, give rise to significant earnings volatility when interest rates fluctuate, in part because of how mark-to-market 

accounting requirements are applied. During 2015, 

declines in interest rates and a flattening of the yield curve 

contributed to fair value losses for derivatives in two out 

of four quarters for each Enterprise, which contributed 

to reduced net income and a third quarter 2015 loss for 

Freddie Mac. 

PSPA Commitment – Since the conservatorships began, 

Fannie Mae and Freddie Mac have drawn a combined total 

of $187.5 billion in taxpayer support under the PSPAs. 

As of December 31, 2015, the Enterprises have paid the 

Treasury Department a total of $241.3 billion in dividends 

on senior preferred stock. Under the terms of the PSPAs, 

the Enterprises’ dividend payments do not offset the amounts 

drawn from the Treasury Department. The terms of the PSPAs 

also require the Enterprises to reduce their retained portfolios, 

and the Enterprises are constrained by the PSPAs from 

building capital while they remain in conservatorships. 

Pursuant to the third amendment to the PSPAs on August 

17, 2012, the fixed 10 percent dividend on senior preferred stock was replaced, effective January 1, 2013, with 

Figure 3 • Enterprises’ Total Mortgages and Guarantees

2015 FED & FANNIE BoB

Source: Federal Housing Finance Agency

Net increase (decrease), year-end 2015 vs 2014:

Fannie Mae: ($24.7) billion

Freddie Mac: $31.5 billion

Fannie Mae: $3.1 Trillion

$ in Trillions

Freddie Mac: $1.9 Trillion

20022003

2004

20052006200720082009201020112012201320142015

$0.0

$0.5

$1.0

$1.5

$2.0

$2.5

$3.0

$3.5

Source: Federal Housing Finance Agency
REPORT TO CONGRESS • 2015 17

SUPERVISION AND OVERSIGHT

a sweep of net worth that exceeded a “Capital Reserve 

Amount,” which was established at $3.0 billion in 2013 

with mandated declines of $600 million each subsequent 

year. Accordingly, the capital reserve for 2016 will be $1.2 

billion and decline to zero by January 1, 2018. 

Reductions in income from the Enterprise’s shrinking 

mortgage investment portfolio and diminished income 

from reserve releases and legal settlements, combined with 

mark-to-market volatility from the Enterprise’s derivatives 

portfolio, increase the likelihood of negative net worth in 

future quarters. Moreover, initiatives such as credit risk 

transfer transactions confer risk management benefits but 

impose costs that will reduce Enterprise earnings.

Fannie Mae (Federal National 

Mortgage Association)

Financial Performance – Fannie Mae’s net income of 

$11.0 billion for 2015 represents a decline of $3.2 billion, 

or 23 percent, from net income of $14.2 billion in 2014. 

The 2015 earnings included a reversal from recognizing 

credit-related income to credit-related expense. Offsetting 

this increase in credit-related expense was a substantial decrease in fair value losses attributable to derivative instruments compared to 2014 due to interest rates 

increasing in 2015. Additionally, 2015 earnings were not 

aided as they were in 2014 by substantial non-recurring 

income from legal settlements relating to private-label 

MBS. The Enterprise’s financial performance will continue to reflect the decline in net interest income from the 

retained mortgage portfolio as the Enterprise complies 

with the PSPA requirement to reduce the volume of mortgage-related assets on its balance sheet. Further, given 

the large size of the Enterprise’s portfolio, small changes 

in home prices and interest rates could have a significant 

impact on its financial performance. 

Fannie Mae reported positive net worth of $4.1 billion at 

the end of 2015, $2.9 billion of which represented a dividend obligation to the Treasury Department that was paid 

on March 31, 2016. Fannie Mae has not made a draw on 

the Treasury since 2012. At year-end 2015, Fannie Mae’s 

cumulative draws from the Treasury under the terms of 

the PSPA totaled $116.1 billion. In 2015, Fannie Mae 

made cumulative dividend payments to the Treasury 

Department totaling $10.3 billion, representing the fourth 

quarter of 2014 through the third quarter of 2015. As noted 

above, the Enterprise’s dividend payments to the Treasury 

Department do not reduce the outstanding amount drawn. 

As of December 31, 2015, the amount of available funding 

remaining under the PSPA was $117.6 billion, which would 

be reduced in the event of a future draw.

Corporate Governance – During 2015, Fannie Mae 

embarked upon a major initiative to overhaul its governance structure and clarify authority and accountability 

across the Enterprise. That effort resulted in significant 

changes to the management-level committee structure and 

delegations of authority, and efforts are currently underway to revise and enhance policies and procedures to 

conform to the new governance framework. During 2015, 

Fannie Mae also made substantial progress in developing a strategic plan, reducing expenses, and adopting an 

enterprise-wide, third-party risk management framework. 

Fannie Mae’s board of directors has supported and continues to oversee those efforts.

These and other initiatives currently underway will require 

a significant level of change in Fannie Mae’s organizational structure, policies, processes, and systems. Until 

this work is complete and sustainable results have been 

achieved, the operating environment will be exposed to 

heightened risk.

Credit Risk – In 2015, Fannie Mae continued making progress strengthening credit risk management and 

showed improvement in credit quality. The level of 

problem assets continued to decline, but still remains at 

elevated levels with delinquencies, foreclosed properties, 

and restructured loans well above historical norms and 

projected to remain at elevated levels in future years.

Fannie Mae continues to hold and manage a large portfolio of real estate owned properties, and a large portion of 

that inventory is unavailable for marketing or sale due to 

legal restrictions, such as state judicial foreclosure requirements. At the end of 2015, Fannie Mae had more than 

267,000 seriously delinquent mortgages, approximately 

30 percent of which were more than two years delinquent. 
18 FEDERAL HOUSING FINANCE AGENCY

Single-family troubled debt restructurings and nonaccrual 

loans declined by $19.4 billion in 2015, but remained at 

more than $189 billion. 

In 2015, Fannie Mae continued to experience adverse 

financial consequences from mortgages originated in 

2005-2008, which are responsible for a disproportionately 

large percentage of delinquencies and credit losses. These 

assets continue to expose the Enterprise to a significant 

level of credit risk. Mortgages originated in 2005-2008 

made up 10 percent of Fannie Mae’s single-family mortgages at the end of 2015; however, they accounted for 57 

percent of seriously delinquent mortgages and 78 percent 

of single-family mortgage credit losses.

Single-family mortgages with loan-to-value ratios greater 

than 80 percent generally require credit enhancement, 

mainly in the form of private mortgage insurance. 

Mortgage insurers are the Enterprise’s largest credit exposure. As of year-end 2015, they insured $465 billion 

in unpaid principal balance. This is equivalent to riskin-force of $118 billion (risk-in-force is defined as the 

risk exposure for which a mortgage insurer is potentially 

liable).

Mortgage servicers continue to be another of Fannie Mae’s 

large counterparty credit exposures. At year-end 2015, the 

five largest mortgage servicers were responsible for 44 percent of the single-family guaranty book compared to 46 

percent at year-end 2014. In recent years, Fannie Mae has 

seen a servicing shift to non-depository institutions, with 

the Enterprise’s five largest non-depository mortgage servicers being responsible for 19 percent of the single-family 

guaranty book as of December 31. Those same entities 

serviced 60 percent of Fannie Mae’s delinquent single-family loans in 2015, compared with 49 percent in 2014.

Operational Risk – As Fannie Mae transitions its existing information technology platform to one that is more 

stable and flexible, its level of operational risk remains 

high. The transition is providing the infrastructure needed 

to manage its existing business operations while also moving to new systems, and there are accompanying risks with 

both. Fannie Mae has been successful in strengthening 

cybersecurity and improving the quality of information 

it retains; however, meeting 2016 goals will require continued attention to operational controls and improving 

business resiliency. Fannie Mae has established plans for 

replacing existing legacy systems and strengthening the 

operational control environment. Strong project management is necessary to address the risk of migrating to the 

new information technology platform and integrating 

with the Common Securitization Platform.

Fannie Mae has also developed processes to improve contingency planning and better position the Enterprise in the 

event a large scale servicer is unable to fulfill its contractual obligations.

Freddie Mac (Federal Home Loan 

Mortgage Corporation)

Financial Performance – Freddie Mac’s net income of 

$6.4 billion for 2015 represents a decline of $1.3 billion, 

or 17 percent, from net income of $7.7 billion in 2014. 

Much of the decrease was a result of reduced earnings for 

the investment and multifamily segments, while singlefamily segment profitability improved in 2015. Losses 

from changes in the fair value of derivatives in 2015 

totaled $2.7 billion, less than the $8.3 billion loss in the 

previous year. Although the full-year aggregate effect of 

both interest-rate and spread volatility were relatively 

small in 2015, quarterly sensitivity and volatility were 

high. Quarterly net income in 2015 varied from a high of 

$4.2 billion in the second quarter to a loss of $475 million in the third quarter, which was the Enterprise’s first 

quarterly loss since 2011.

Freddie Mac had a positive net worth of $2.9 billion at the 

end of 2015, $1.7 billion of which represented a dividend 

obligation to the Treasury Department that was paid on 

March 31, 2016. At year-end 2015, Freddie Mac’s cumulative draws from the Treasury under the terms of the PSPA 

was unchanged from year-end 2014 at $72.3 billion. 

Freddie Mac has not made a draw on the Treasury since 

2012. In 2015, Freddie Mac made cumulative dividend 

payments to the Treasury Department totaling $5.5 billion, representing the fourth quarter of 2014 through the 

third quarter of 2015. As noted above, the Enterprise’s 

dividend payments do not reduce the outstanding amount 
19

SUPERVISION AND OVERSIGHT

drawn. As of December 31, 2015, the amount of funding 

remaining available under the PSPA was $140.5 billion. 

This amount would be reduced in the event of a future draw.

In 2015, the board of directors and senior management 

continued to make progress in lowering Freddie Mac’s 

overall risk profile by securitizing or disposing of illiquid 

assets, conducting credit risk transfer activities, continuing testing of the business continuity plan, and adopting a more advanced risk management framework. The 

significant organizational changes accompanying the 

adoption of the risk management framework elevated the 

Enterprise’s risk profile during the transition period from 

the previous framework.

Corporate Governance – The Enterprise’s board governance framework operated effectively in 2015. The 

board’s review of substantive matters and related materials is appropriate, and agendas are efficiently managed. 

Board attention to strategic planning is reflected in the 

board’s approval of a strategic plan at year-end 2015. 

Those efforts are having a positive impact on the corporate culture and operating performance, as evident in 

the design of a corporate strategic plan, with metrics and 

tracking processes.

Freddie Mac’s continued implementation of the three 

lines of defense risk management framework during 2015, 

resulted in improvement across the Enterprise, including risk reporting, risk monitoring, and greater clarity of 

roles and responsibilities. FHFA has noted that additional 

effort is needed to fully execute the framework. The risk 

management framework is expected to improve as management further executes against stated goals. 

Credit Risk – Asset quality continues to improve, but the 

level of problem assets remains above historic norms and 

is a supervisory concern. The seriously delinquent rate 

for the single-family mortgage book in 2015 improved 

from 2014, but the remaining portfolio of private-label 

securities and other distressed assets continues to expose 

Freddie Mac to elevated levels of credit risk. Further, the 

increase in servicing by nontraditional servicers, especially 

those expanding into loan origination, highlights the 

importance of comprehensive credit analysis and strong 

contingency planning processes. Freddie Mac actively 

pursued transactions to reduce credit risk, including credit 

risk transfers and nonperforming loan sales in 2015; however, the level of credit risk residing on its balance sheet 

remains substantial.

Freddie Mac’s single-family seriously delinquent rate of 

1.32 percent at year-end 2015 remains considerably higher 

than historical norms. The delinquency rate has been on 

a downward trend since February 2010, when it was 4.20 

percent, and a decline in 2015 of 56 basis points in this 

ratio (from 1.88 percent at year-end 2014) is evidence of 

good progress on this front, but the elevated level remains 

a concern. 

Freddie Mac still has significant credit exposure from 

mortgages originated prior to 2009, which comprise 16 

percent of the total single-family portfolio at year-end 

2015, but accounted for 89 percent of credit losses and 

have a seriously delinquent rate of 4.12 percent. Further, 

12 percent of the mortgages originated prior to 2009 have 

loan-to-value ratios above 100 percent.

Mortgage insurance companies continue to present significant counterparty risk, insuring $259 billion in unpaid 

principal balance of the single-family mortgage portfolio. 

Consequently, risk-in-force totaled $67 billion at year-end 

2015.

Operational Risk – Freddie Mac has to manage operational risks associated with information technology 

systems, information security, and third party service providers. Management made significant progress in 2015 

to improve processes for business continuity and disaster 

recovery. However, various factors, including operational 

complexities associated with major strategic initiatives, 

such as integrating with the Common Securitization 

Platform, have kept operational risk elevated. 

One of the primary risks now facing financial institutions 

is the proliferation of cyber-crimes and the increased frequency of cyber-attacks, both external threats and internal 

challenges. During 2015, the board took steps to strengthen the foundation for the Enterprise’s information security 

risk management framework.

REPORT TO CONGRESS • 2015
20 FEDERAL HOUSING FINANCE AGENCY

Report of Annual 

Examinations of 

Federal Home Loan 

Banks 

Financial Overview

The FHLBanks saw substantial asset growth in 2015 

driven by increases in advances to members. Net 

income was strong at $2.9 billion.

Total assets increased by $56.0 billion, or 6.1 percent, 

in 2015 to $969.6 billion. At the end of 2015, aggregate assets reached their highest quarter-end level since 

December 31, 2009 (Figure 4). Advances increased by 

11.1 percent, cash and investments decreased by 2.9 percent, and mortgages increased by 2.3 percent. At year-end 

2015, the FHLBanks held 65.4 percent of total assets in 

advances, 29.7 percent in cash and investments, and 4.6 

percent in mortgages.

FHLBank holdings of private-label MBS continued to run 

off, while their holdings of MBS issued by Fannie Mae and 

Freddie Mac and liquidity investments decreased slightly. 

The aggregate investment portfolio of the FHLBanks consists of 37.0 percent cash and liquidity, 41.6 percent MBS 

issued by the Enterprises, 4.8 percent private-label MBS, 

and 16.5 percent other investments (principally agency 

debt securities and federally-backed student loan assetbacked securities). 

2015 Historical Portfolio of the FHLBanks

Q1 2001Q4 2001Q4 2002Q4 2003Q4 2004Q4 2005Q4 2006Q4 2007Q4 2008Q4 2009Q4 2010Q4 2011Q4 2012Q4 2013Q4 2014Q4 2015

$ Billions

$0

$200

$400

$600

$800

$1,000

$1,200

$1,400

$1,600

Advances Mortgages MBS Non-MBS Investments Other

Figure 4 • Historical Portfolio of the Federal Home Loan Bank System

Source: Federal Housing Finance Agency
REPORT TO CONGRESS • 2015 21

SUPERVISION AND OVERSIGHT

Mortgages grew 2.3 percent during 2015 to $44.6 billion 

at year-end. Nine FHLBanks actively purchase mortgages 

from their members.

The FHLBanks reported aggregate net income of $2.9 billion in 2015, up from $2.3 billion in 2014, with 2015 

marking the most profitable year in the history of the 

Federal Home Loan Bank System. All FHLBanks were 

profitable with the exception of the FHLBank of Seattle, 

which reported a loss due to high expenses incurred in 

preparation for its May 31 merger with the FHLBank of 

Des Moines. Earnings were elevated despite net interest 

income decreasing $16 million and operating expenses 

increasing $111 million from 2014. The FHLBank System 

realized $688 million in gains from private-label MBS 

settlements and $182 million in gains on derivatives in 

2015.12 These two items were primarily responsible for the 

elevated 2015 earnings (Figure 5).

Poor performance of private-label MBS had a much 

smaller effect on the FHLBanks in 2015 than it had from 

2009-2012. In 2015, the FHLBanks recorded impairment 

charges on these securities of only $79 million, higher 

than the $15 million reported in 2014 but substantially 

lower than the high of $2.4 billion in 2009. In fact, in 

2015 the FHLBanks actually accumulated $253 million of 

previous losses into income from improvements in modeled cash flows. Though subject to risks, legacy privatelabel MBS assets generally produce premium yields and 

positively contribute to net interest income.

Strong profitability allowed the FHLBanks to continue to 

build their retained earnings in 2015. Aggregate retained 

earnings totaled $14.3 billion, or 1.5 percent of assets, at 

the end of 2015. This includes $2.2 billion in restricted 

2015 Quarterly Net Interest Income and Net Income of the Federal Home Loan Banks

$ Millions

2010 2011 2012 2013 2014 2015

Net Income Net Interest Income 

$0

$1,000

$2,000

$3,000

$4,000

$5,000

$6,000

Figure 5 • FHLBanks’ Aggregate Net Interest Income and Net Income

Source: Federal Housing Finance Agency

12 Most notably, the FHLBank of San Francisco received $459 million and the FHLBank of Boston received $185 million in settlements.
22 FEDERAL HOUSING FINANCE AGENCY

retained earnings associated with the Joint Capital 

Enhancement Agreement.13 At year-end 2008, in the 

immediate aftermath of the financial crisis, the FHLBanks 

held only $3.0 billion of aggregate retained earnings, representing 0.2 percent of assets (Figure 6).

FHLBank Membership – At the end of 2015, the 

FHLBanks had a total of 7,235 members. The membership consisted of 4,669 commercial banks, 1,318 credit 

unions, 835 thrifts, 372 insurance companies, and 41 

non-depository community development financial institutions. Of insurance company members, FHFA estimates 

that 54 were captive insurance companies. Following the 

publication of FHFA’s final rule on FHLBank membership

in January 2016, captive insurance companies will have to 

leave the Federal Home Loan Bank System within one or 

five years, depending on whether they obtained membership after or before September 12, 2014. 

Approximately 59 percent of FHLBank members were 

active borrowers.

FHLBank Advances – The FHLBanks provide long- and 

short-term advances (loans) to their members. Advances 

are primarily collateralized by residential mortgage loans 

and government and agency securities. Community financial institutions14 may pledge small business, small farm, 

and small agri-business loans as collateral for advances. 

2015 Retained Earnings of the Federal Home Loan Banks

Q1 2001Q4 2001Q4 2002Q4 2003Q4 2004Q3 2005Q2 2006Q1 2007Q3 2008Q2 2009Q4 2010Q4 2011Q4 2012Q4 2013Q4 2014Q4 2015

$ Billions

$0

$2

$4

$6

$8

$10

$12

$14

$16

0.00%

0.25%

0.50%

0.75%

1.00%

1.25%

1.50%

1.75%

2.00%

Percent of Assets

Retained Earnings (left) Retained Earnings to Assets (right)

Figure 6 • Retained Earnings of the Federal Home Loan Banks

Source: Federal Housing Finance Agency

13 Until the third quarter of 2011, the FHLBanks were required to pay 20 percent of pre-assessment income to pay the interest on bonds issued by the Resolution Funding Corporation 

(REFCORP), the proceeds from which were used to resolve the savings and loan crisis of the late 1980s. After satisfying the total obligation with the July 2011 payment, the FHLBanks 

entered into the Joint Capital Enhancement Agreement, which requires each FHLBank to direct the funds previously paid to REFCORP into a restricted retained earnings account. The 

FHLBanks cannot pay dividends from this restricted retained earnings account and each FHLBank must continue to build it until it equals one percent of its average consolidated obligations.

14 As defined in the Bank Act, the term community financial institution (CFI) means a member, the deposits of which are insured under the Federal Deposit Insurance Act, that has average 

total assets over the last three years at or below an established threshold. For calendar year 2016, the CFI asset threshold is $1.128 billion. FHLBank members that are CFIs may pledge 

small business loans, small farm loans, small agri-business loans, and, for 2013 and thereafter, community development loans, all of which may be fully secured by collateral other than real 

estate, and securities representing a whole interest in such loans.
REPORT TO CONGRESS • 2015 23

SUPERVISION AND OVERSIGHT

In 2015, FHLBank advances increased by $63.3 billion, to $634.0 billion, compared to the prior year. The 

increase marked the fourth consecutive year of advance 

growth, following three consecutive years of declines. 

Although FHLBank advances have increased in recent 

years, demand for advances is below the levels experienced during the height of the global financial crisis. At 

year-end 2015, advances reached their highest quarter-end 

level since September 30, 2009. During 2015, 10 of the 

11 FHLBanks reported increases in advances. Typically, 

FHLBank members use advances to fund mortgage portfolios, meet operational liquidity needs or meet other funding requirements. In recent years, some members may 

have increased their use of advances to meet higher regulatory liquidity requirements. 

Concentration of advances to subsidiaries of large bank 

holding companies remains high. The top four borrowers 

as of the end of 2015 – J.P. Morgan Chase, Wells Fargo, 

PNC, and Capital One – accounted for 23.6 percent of 

aggregate advances (Figure 7). Total year-end advances to 

subsidiaries of these four holding companies increased in 

2015.15 The largest increase came from J.P. Morgan Chase 

which added 10 percent or $6.5 billion in 2015, bringing its balance to $71.5 billion. Wells Fargo increased its 

advances by $3.0 billion to $37.1 billion, Capital One 

increased its advances by $2.8 billion to $20.1 billion, and 

PNC had a modest increase of $106 million in its advance 

portfolio, bringing its total to $20.1 billion.

FHLBank Mortgage Programs – The FHLBanks also 

operate programs through which members can sell 

mortgage loans. Under Acquired Member Assets (AMA) 

programs, the FHLBanks acquire and hold (on balance 

sheet) conforming and government guaranteed or insured 

loans. The AMA programs17 are structured such that the 

FHLBanks manage the interest-rate risk and the participating member manages a substantial portion of the 

risks associated with originating the mortgage, including 

much of the credit risk. The two existing AMA programs 

are Mortgage Partnership Finance (MPF) and Mortgage 

Purchase Program, under which various products are offered 

to members with differing credit risk-sharing structures. 

FHFA is proposing to amend the AMA regulation to 

comply with Section 939A of the Dodd-Frank Act, which 

requires federal agencies to remove from regulations all 

references to, or requirements based on ratings issued by 

Nationally Recognized Statistical Ratings Organizations, 

Holding Company 2010 Q4 2011 Q4 2012 Q4 2013 Q4 2014 Q4 2015 Q4

JP Morgan Chase & Co. 25.2 17.8 42.0 61.8 65 71.5

Wells Fargo & Company 7.9 2.6 2.2 19.1 34.1 37.1

PNC Financial Services Group, Inc. 6.1 7.0 9.4 12.9 20.0 20.1

Capital One Financial Corporation 1.1 6.9 20.9 16.3 17.3 20.1

Top 4 Holding Companies16 114.7 77.7 98.7 135.1 154.2 148.8

Other Members 349.1 325.5 315.0 357.4 412.0 482.4

Aggregate Advances 463.8 403.2 413.7 492.5 566.2 631.2

Top 4 Share 25% 19% 24% 27% 27% 24%

Figure 7 • Total FHLBank Advance Holdings ($ Billions) 

15 All advance metrics for the four largest borrowers are expressed as par values and may not match previous advance data expressed as book values. 

16 The member listing presents the top four borrowers in the latest period and their borrowing history going back five quarters. The top four summation and share presents the total 

borrowing of the top four in the given time period. As the current top four may not have been the top four in the past, the summation for previous quarters may include borrowing from 

members not listed above.

17 To qualify as AMA, assets must meet a three-part test established by the AMA regulation (12 CFR Part 955) which outlines the asset, member nexus, and credit risk-sharing 

requirements. 
24 FEDERAL HOUSING FINANCE AGENCY

of which the AMA rule includes several. FHFA published 

a Notice of Proposed Rulemaking in the Federal Register

on December 17, 2015.18 As proposed, the rule would 

make some additional substantive changes as well as nonsubstantive changes to the AMA regulation.

FHFA has also authorized off-balance sheet mortgage 

programs, which are separate from AMA programs. The 

off-balance sheet programs provide participating members alternative avenues through which to sell mortgage 

loans, thereby transferring risk and potentially freeing up 

capital they can use to expand credit availability in local 

communities. Under the off-balance sheet programs in 

operation as of the end of 2015, members sell mortgages 

to the FHLBank of Chicago, which either concurrently 

sells the loan to an investor (under MPF Xtra or MPF 

Direct) or pools the loans into securities guaranteed by the 

Government National Mortgage Association (under MPF 

Government MBS).

Merger of the FHLBanks of Des Moines and Seattle –

The FHLBanks of Des Moines and Seattle combined to 

form a single entity as of May 31, 2015. The merger was 

the first for FHLBank System and was executed under the 

terms of FHFA’s voluntary merger guidelines adopted in 

2011. FHFA approved the FHLBanks’ merger application 

in December 2014, and members of both FHLBanks later 

voted overwhelmingly to ratify the merger agreement. 

The FHLBank of Des Moines is the continuing institution 

and serves 1,445 member financial institutions across 13 

states and the U.S Pacific territories. At year-end 2015, 

the combined Des Moines FHLBank had assets totaling 

slightly more than $137 billion, making it the second largest FHLBank by asset size. FHFA views the merger as consistent with the FHLBank System’s mission and with the 

safe and sound operation of each FHLBank. 

Capital – The FHLBanks’ regulatory capital primarily 

consists of the amounts paid by member institutions for 

FHLBank capital stock and the retained earnings of the 

FHLBank. The regulatory capital of the FHLBanks as of 

December 31 was $49.4 billion, consisting of $34.2 billion in capital stock and $14.3 billion in retained earnings. Capital stock includes $745 million in mandatorily 

redeemable capital stock, which arises from stock redemption requests by members or capital stock held by former 

members. Mandatorily redeemable capital stock is down 

substantially from 2014, when significant portions of 

the stock at the FHLBank of Seattle were under request 

for redemption. As noted above, the FHLBank of Seattle 

merged with the FHLBank of Des Moines in the summer 

of 2015 and in the process redeemed all of its mandatorily 

redeemable stock.

At year-end 2015, all FHLBanks met the minimum regulatory capital ratio of 4 percent of assets, with regulatory 

capital ratios ranging from 4.2 percent to 6.6 percent of 

assets and with a total FHLBank System ratio of 5.1 percent of assets. All FHLBanks also met their individual riskbased capital requirements. Aggregate retained earnings 

totaled $14.3 billion, or 1.5 percent of assets, at the end of 

2015. The ratio of retained earnings to assets ranged from 

0.6 percent to 3.9 percent. 

Asset Quality – Asset quality at the FHLBanks was generally adequate in 2015, though examiners identified 

areas where the FHLBanks could improve their practices, 

or where the FHLBanks were exposed to specific risks. 

Examiner concerns included collateral underwriting procedures, data collection, and risks related to legacy privatelabel MBS securities. 

The credit risk of the advance portfolios continues to 

be low. The FHLBanks require members to fully secure 

advances with eligible collateral before borrowing from 

the FHLBank, and no FHLBank has ever had a credit loss 

from advances to a member. The quality and value of collateral are fundamental in protecting the FHLBanks from 

credit losses on advances. The FHLBanks apply a discount 

to the market value of the collateral, known as a “haircut,” 

based on the FHLBank’s assessment of the risk of the asset. 

While the overall risk of advances is low, some FHLBanks 

exhibit business concentrations to a few large borrowers 

and some have large exposures to insurance company 

members. Lending to insurance companies presents 

different risks relative to lending to insured depository 

institutions, in part because each state has its own laws 

and regulatory framework for insurance companies. 

18 See the Regulatory Guidance section of this report for additional details.
REPORT TO CONGRESS • 2015 25

SUPERVISION AND OVERSIGHT

Some FHLBanks have small or declining advance portfolios, which may lead to declines in mission orientation, 

reduced operational efficiency, or relative increases in 

other, riskier assets. 

Private-label MBS continued to be the largest single source 

of credit risk to the FHLBanks in 2015, though the portfolios are waning and risks are generally decreasing. In 

some cases, FHLBanks have reclaimed previously recognized losses from these portfolios as the performance of 

the securities improved. The aggregate private-label MBS 

portfolio at the FHLBanks was $13.9 billion or just 1.4 

percent of assets. However, the risks are concentrated at a 

few FHLBanks. 

The delinquency rates on the FHLBanks’ whole loan mortgage holdings have been low relative to the market. The 

mortgage loans held by the FHLBanks had a serious delinquency rate of only 0.94 percent in 2015, down from 1.43 

percent at year-end 2014.

Management – Effective management of an FHLBank 

involves engaged, capable, and experienced directors and 

senior management, a coherent strategy and business 

plan, clear lines of responsibility and accountability, and 

appropriate risk limits and controls. 

Governance of the FHLBanks was adequate in 2015, 

though examiners identified several areas for improvement. Some FHLBanks need to improve aspects of the 

internal audit function, including issue tracking processes, 

scopes for audits, and the remediation of FHFA examination findings. Management turnover and the frequency 

of examination findings at some FHLBanks were also concerns for examiners. 

Earnings – Aggregate net income at the FHLBanks was 

$2.9 billion, up from $2.3 billion in 2014, and marking 

the most profitable year in the history of the FHLBank 

System. Income was elevated in 2015 in part due to extraordinary items, including $688 million in legal settlements in 

favor of some FHLBanks. The settlements related to privatelabel MBS securities purchased before the financial crisis.

Profitability metrics have increased with earnings. Return 

on assets averaged 31 basis points, up from 26 basis 

points in 2014, while return on equity averaged 6.1 percent, up from 5.0 percent. Many FHLBanks continue to 

benefit from strong yields on mortgage loans and MBS.

While earnings continue to be strong, some FHLBanks rely 

on non-mission assets to support their earnings. At yearend 2015, 28 percent of FHLBank assets were investments, 

down from 30 percent at year-end 2014 but with concentrations at individual FHLBanks as high as 40 percent. 

Nevertheless, the FHLBanks generally improved their mission orientation from year-end 2014, when investment 

ratios ranged as high as 68 percent of assets. The improvement was largely due to the merger of the FHLBank of 

Seattle with the FHLBank of Des Moines in May 2015. 

Liquidity – At year-end 2015, the FHLBanks held $106.3 

billion of cash and liquidity investments, representing 11 

percent of assets. The aggregate liquidity portfolio of the 

FHLBanks consisted of 13 percent cash, 40 percent federal 

funds sold, 45 percent reverse repurchase agreements, and 

2 percent interest bearing deposits.

In recent years, debt markets have become less favorable at longer maturities to even agency issuers such as 

the FHLBanks. In response to this and other factors, the 

FHLBanks have increased their reliance on short-term 

funding (discount notes). At year-end 2015, discount 

notes constituted 54.5 percent of aggregate FHLBank debt 

outstanding compared to 42.7 percent at year-end 2014 

and 38.2 percent at year-end 2013. Short-term funding 

requires more frequent debt rollover than does longerterm funding. Nevertheless, the FHLBanks maintain ready 

access to the agency debt markets at advantageous rates, 

particularly at shorter maturities. All FHLBanks met their 

liquidity requirements in 2015.

Sensitivity to Market Risk – Mortgage assets continue 

to be the greatest source of market risk for the FHLBanks. 

Mortgage assets are typically longer-dated instruments 

than most other FHLBank assets, have less predictable 

cash flows, and, particularly in the case of private-label 

MBS, have experienced the greatest swings in market 

value. Mortgage assets were $178.3 billion or 18.4 percent of total assets at the end of 2015, down slightly 

from $182.7 billion or 20.0 percent at the end of 2014. 

FHLBank mortgage assets comprise mortgage loans purchased from member institutions and MBS.
26 FEDERAL HOUSING FINANCE AGENCY

Some FHLBanks with significant mortgage holdings 

hedge the market risk by extensive use of callable bonds 

to fund those assets. Other FHLBanks use more complicated hedging strategies that involve interest-rate swaps, 

swaptions (options to enter into interest-rate swaps), and 

options. FHLBanks with floating-rate MBS with embedded interest rate caps tend to use interest-rate caps (a type 

of derivative) to hedge these positions. 

The FHLBanks are also exposed to “basis risk,” which arises when the index for a floating-rate asset does not move 

identically with the index for the supporting floating-rate 

liability. Different movements of the two index rates will 

lead to a widening or narrowing of the spread or “basis” 

between the yield on the asset and the cost of the associated liability.

The FHLBank System’s market value of equity, which is 

the estimated market value of the FHLBank System’s assets 

less the market value of its liabilities, is an important indicator of the FHLBanks’ ability to redeem or repurchase 

stock at par. Because all stock transactions occur at the par 

value of $100 per share, the market value of an FHLBank’s 

equity should equal or exceed the par value of aggregated 

FHLBank shares of capital stock. 

The aggregate market value ratios of the FHLBanks were 

again strong in 2015, highlighting their generally sound 

financial condition. Market value of equity was 142 percent of the par value of capital stock at year-end 2015, 

roughly unchanged from 2014. All FHLBanks had market 

values greater than the par value of their capital stock, 

indicating their ability to exchange capital stock at par 

without adversely affecting other members.

To measure the sensitivity of the market value of equity 

in a changing interest rate environment, Figure 8 shows 

the ratio at each FHLBank at year-end 2015 and the estimated change to the ratio in certain interest rate change 

scenarios. These scenarios are based on model results 

provided by the FHLBanks and restrict interest rates to 

non-negative values. Most FHLBanks show only modest changes in these interest rate scenarios. The largest 

increase is 17 percentage points in a down 200-basis point 

scenario at the FHLBank of San Francisco, and the largest 

decrease is a 10 percentage point decline in an up 200-

Figure 8 • Market Value of Equity-to-Par Value of Capital Stock by Various Interest-Rate Changes

Parallel Interest Rate 

Change in Basis Points -200 -100 -50 0 50 100 200

Boston 135 141 143 143 143 141 137

New York 127 122 122 122 122 122 121

Pittsburgh 135 129 128 128 128 128 127

Atlanta 141 137 137 137 136 135 131

Cincinnati 104 109 110 109 109 107 104

Indianapolis 156 158 156 154 152 151 146

Chicago 262 259 257 256 255 254 253

Des Moines 110 114 115 117 117 117 116

Dallas 154 149 149 150 150 149 147

Topeka 177 176 173 171 171 171 168

San Francisco 217 205 202 200 197 195 190
REPORT TO CONGRESS • 2015 27

SUPERVISION AND OVERSIGHT

basis point scenario, also at the FHLBank of San Francisco. 

All FHLBanks report ratios above 100 percent in all 6 ratechange scenarios.

Risk measurements such as these are estimates based on 

models. Uncertainty about private-label MBS adjustments 

related to market risk metrics, prepayment speeds, and the 

effects of extremely low interest rates at short maturities, 

all contribute to model risk at the FHLBanks and, therefore, to the uncertainty about these estimates. 

Operational Risk – The FHLBanks engage in financial 

transactions that require financial models, technological 

resource systems, ledger accounting systems, and other 

processes that inherently expose them to operational risks.

While operational risk management was generally adequate, FHFA had supervisory concerns at some FHLBanks. 

At these and other FHLBanks, examiners identified areas 

that exhibited or could exhibit unacceptable operational 

risks in areas such as inventory tracking, IT security, IT 

migration planning, vendor management, and business 

continuity. The internal control of user-developed applications, such as spreadsheets, is also a concern at some 

FHLBanks.

FHLBank Directors’ Compensation and Expenses –

The FHLBanks are governed by boards of directors ranging in size from 14 to 29. The majority of directors of the 

FHLBanks are officers or directors of member institutions 

with the remaining (at least 40 percent) being independent directors. Independent directors must reside in the 

FHLBank district for which they serve. They cannot be 

officers of a FHLBank or directors, officers, or employees 

of a member of the FHLBank on which they serve as directors.

The Office of Finance (OF) has a different board structure, with five independent directors plus the FHLBank 

Chair Vice Chair

Audit 

Committee 

Chair

Other 

Committee 

Chairs

Directors

Atlanta $ 95,000 $ 90,000 $ 90,000 $ 85,000 $ 75,000 

Boston $ 85,000 $ 72,500 $ 72,500 $ 72,500 $ 65,000 

Chicago $ 90,000 $ 80,000 $ 80,000 $ 75,000 $ 70,000 

Cincinnatia $ 105,000 $ 95,000 $ 89,000 $ 86,500 $ 72,500 

Dallasb $ 87,500 $ 82,500 $ 77,500 $ 67,500 $ 60,000 

Des Moinesc $ 95,000 $ 90,000 $ 85,000 $ 80,000 $ 70,000 

Indianapolis $ 115,000 $ 92,500 $ 92,500 $ 87,500 $ 77,500 

New York $ 105,000 $ 90,000 $ 90,000 $ 90,000 $ 80,000 

Office of Financed $ 130,000 – $ 104,000 – $ 88,500 

Pittsburgh $ 112,500 $ 92,500 $ 92,500 $ 92,500 $ 80,000 

San Franciscoe $ 100,000 $ 95,000 $ 90,000 $ 90,000 $ 75,000 

Seattlef $ 70,000 $ 65,000 $ 65,000 $ 60,000 $ 55,000 

Topeka $ 105,000 $ 90,000 $ 90,000 $ 90,000 $ 80,000 

Average $ 99,615 $ 86,250 $ 86,038 $ 81,375 $ 72,962

Median $ 100,000 $ 90,000 $ 90,000 $ 85,750 $ 75,000

a Directors who are members of the Audit Committee receive an additional $9,500 and members of the Financial and Risk Management Committee receive 

 an additional $7,000.

b The Chair of the Risk Committee receives $77,500.

c The Chair and Vice Chair of the pre-merger FHLBank Des Moines also received $50,000 and $25,000, respectively, for contributions to the merger and 

 consistent with the approved Directors Compensation Policy.

d The Vice Chair and “Other Committee” Chairs at the OF are held by FHLBank presidents who do not receive compensation for their OF director positions. 

 Compensation paid to all directors in 2015 reflected payments which would normally have been reflected in 2016 due to a transition to a new structure for 2016.

e Members of the audit committee receive an additional $5,000.

f The Chair of the Compliance Committee receives $65,000.

Figure 9 • 2015 Annual Maximum Compensation for Federal Home Loan Bank Directors
Federal Home 

Loan Bank

Director Compensation 

Paid in Cash Director Deferred Compensation Spouse/ Guest Expenses Total Director Compensation Earned

(Cash + Deferred Compensation)

Average Total Average Total Average Total Average Total

Atlanta $ 68,550.01 $ 959,700.08 $ 13,592.85 $ 190,299.92 $ 1,025.91 $ 14,362.79 $ 83,168.77 $ 1,164,362.79

Boston $ 41,450.00 $ 663,200.00 $ 28,550.00 $ 456,800.00 $ 364.19 $ 5,827.00 $ 70,364.19 $ 1,125,827.00

Chicago $ 55,614.84 $ 1,056,682.02 $ 6,671.05 $ 126,750.01 $ 778.76 $ 14,796.51 $ 63,064.66 $ 1,198,228.54

Cincinnati $ 85,713.24 $ 1,457,125.00 $ 0.00 $ 0.00 $ 563.89 $ 9,586.21 $ 86,277.13 $ 1,466,711.21

Dallas $ 49,085.94 $ 785,375.00 $ 17,632.81 $ 282,125.00 $ 526.22 $ 8,419.55 $ 67,244.97 $ 1,075,919.55

Des Moines $ 58,824.14 $ 1,705,899.98 $ 3,331.03 $ 96,600.00 $ 687.56 $ 19,939.32 $ 62,842.73 $ 1,822,439.30

Indianapolis $ 84,812.50 $ 1,357,000.00 $ 0.00 $ 0.00 $ 3,612.88 $ 57,806.09 $ 88,425.38 $ 1,414,806.09

New York $ 84,722.28 $ 1,525,001.00 $ 0.00 $ 0.00 $ 691.46 $ 12,446.27 $ 85,413.74 $ 1,537,447.27

Office of Finance $ 110,997.70 $ 554,988.49 $ 0.00 $ 0.00 $ 0.00 $ 0.00 $ 110,997.70 $ 554,988.49

Pittsburgh $ 72,939.76 $ 1,239,976.00 $ 14,116.94 $ 239,988.00 $ 86.25 $ 1,466.20 $ 87,142.95 $ 1,481,430.20

San Francisco $ 53,244.14 $ 745,418.00 $ 35,928.57 $ 503,000.00 $ 0.00 $ 0.00 $ 89,172.71 $ 1,248,418.00

Seattle $ 20,028.28 $ 280,395.85 $ 4,376.49 $ 61,270.84 $ 0.00 $ 0.00 $ 24,404.76 $ 341,666.69

Topeka $ 83,137.25 $ 1,413,333.32 $ 0.00 $ 0.00 $ 3,314.02 $ 56,338.31 $ 86,451.27 $ 1,469,671.63

Total 

(all Directors) $ 869,120.07 $ 13,744,094.74 $ 124,199.75 $ 1,956,833.77 $ 11,651.15 $ 200,988.25 $ 1,004,970.97 $ 15,901,916.76

Average $ 66,855.39 $ 1,057,238.06 $ 9,553.83 $ 150,525.67 $ 896.24 $ 15,460.63 $ 77,305.46 $ 1,223,224.37

Median $ 68,550.01 $ 1,056,682.02 $ 4,376.49 $ 96,600.00 $ 563.89 $ 9,586.21 $ 85,413.74 $ 1,248,418.00

28 FEDERAL HOUSING FINANCE AGENCY

Presidents serving on its Board. The FHLBank Presidents 

do not receive compensation for their service on the 

OF board.

Before HERA, FHLBank directors’ compensation had statutory caps. In 2009, with the implementation of HERA, the 

caps were lifted, and the FHLBanks were allowed to pay 

reasonable compensation for the time required of their 

board of directors and necessary expenses, subject to 

FHFA review.

Each of the 11 FHLBanks and the OF provide FHFA with 

its Directors Compensation Policy (the Policy), which 

establishes the maximum compensation for each director, the criteria each director needs to meet in order to 

receive that compensation, and the timing of payments 

for the upcoming year. FHFA assesses the maximum 

compensation utilizing third-party market comparables. 

FHFA reviews each Policy to ensure that it contains provisions specifying that the FHLBank reduces compensation if the director does not participate in a sufficient 

number of meetings, or is found not to be a contributing 

member of the board. All of the FHLBanks and the OF 

have provisions for withholding compensation if a director’s attendance falls below a certain level. Based on the 

attendance reports and compensation paid reports submitted by each of the regulated entities for 2015, FHFA 

found that all of the FHLBanks and the OF complied with 

their policies and reduced director compensation when 

required. Reductions based on attendance occurred at 

four FHLBanks for a total of five individual directors.

The table on the preceding page (Figure 9) shows the 

maximum compensation available to the directors at each 

FHLBank and the OF for 2015. The figures in the table 

represent the approved maximum compensation amounts 

for the listed board positions. However, an individual 

director who serves in multiple capacities for the board, 

Figure 10 • Federal Home Loan Bank Compensation for 2015
REPORT TO CONGRESS • 2015 29

SUPERVISION AND OVERSIGHT

Federal Home 

Loan Bank

Board Expenses 

Attributable to Directors

Director Training 

Expenses

Other Director 

Expenses (if any) 

Group 

Expenses

Average Total Average Total Average Total Average Total

Atlanta $ 9,436.54 $ 132,111.53 $ 4,600.27 $ 64,403.75 $ 1,247.24 $ 17,461.41 $ 9,412.99 $ 131,781.87

Boston $ 5,782.95 $ 92,527.22 $ 500.46 $ 8,007.40 $ 466.35 $ 7,461.61 $ 2,934.88 $ 46,958.05

Chicago $ 7,116.18 $ 135,207.49 $ 2,127.65 $40,425.37 $ 556.09 $ 10,565.77 $ 1,877.48 $ 35,672.10

Cincinnati $ 8,994.75 $ 152,910.81 $ 1,934.13 $ 32,880.23 $ 775.41 $ 13,182.03 $ 1,481.30 $ 25,182.15

Dallas $ 6,383.60 $ 102,137.62 $ 1,845.37 $ 29,525.99 $ 64.72 $ 1,035.50 $ 3,061.29 $ 48,980.66

Des Moines $ 6,489.20 $ 188,186.79 $ 2,205.47 $ 63,958.65 $ 953.08 $ 27,639.43 $ 5,186.43 $ 150,406.42

Indianapolis $ 10,335.77 $ 165,372.34 $ 2,304.76 $ 36,876.19 $ 490.26 $ 7,844.22 $ 4,778.47 $ 76,455.44

New York $ 5,518.42 $ 99,331.60 $ 372.84 $ 6,711.20 $ 560.23 $ 10,084.08 $ 2,287.38 $ 41,172.75

Office of Finance $ 6,213.04 $ 31,065.22 $ 6,895.53 $ 34,477.66 $ 1,098.95 $ 5,494.73 $ 9,965.21 $ 49,826.05

Pittsburgh $ 7,414.83 $ 126,052.13 $ 3,223.72 $ 54,803.30 $ 1,067.99 $ 18,155.90 $ 4,042.14 $ 68,716.46

San Francisco $ 9,748.50 $ 136,479.00 $ 3,290.43 $ 46,066.00 $ 6,037.34 $ 84,522.81 $ 2,982.64 $ 41,757.00

Seattle $ 3,403.28 $ 47,645.93 $ 1,832.77 $ 25,658.83 $ 117.64 $ 1,647.01 $ 996.97 $ 13,957.64

Topeka $ 8,982.19 $ 152,697.25 $ 1,217.16 $ 20,691.70 $ 1,117.71 $ 19,001.03 $ 2,310.96 $ 39,286.31

Total 

(all Directors) $ 95,819.27 $ 1,561,724.93 $ 32,350.58 $ 464,486.27 $ 14,553.03 $ 224,095.53 $ 51,318.14 $ 770,152.9

Average $ 7,370.71 $ 120,132.69 $ 2,488.51 $ 35,729.71 $ 1,119.46 $ 17,238.12 $ 3,947.55 $ 59,242.53

Median $ 7,116.18 $ 132,111.53 $ 2,127.65 $ 34,477.66 $ 775.41 $ 10,565.77 $ 2,982.64 $ 46,958.05

* Group expenses for the Office of Finance cover the full board including the 11 FHLBank Presidents.

such as chairing multiple committees, may receive higher 

compensation based upon specific provisions of the individual Bank’s approved Directors Compensation Policy.

In 2015, FHFA included spousal and guest payments, previously reported as an expense, as compensation. Spouse/

guest payments include travel expenses reimbursed to the 

director and the cost of group events offered to directors 

and their guests in conjunction with a meeting such as 

banquets, meals, and entertainment, allocated based on 

attendance. Where spouse/guest expenses are treated as 

perquisites, the director is required to pay taxes on these 

expenses. 

The preceding table (Figure 10) reflects director compensation paid (and deferred) in 2015, in addition to amounts 

paid for spouse/guest travel in 2015. The inclusion of 

the spouse/guest travel payment in this manner may have 

resulted in total compensation payments in excess of the 

maximum Policy limits reflected in the table above. FHFA 

believes the reporting of the perquisites in this manner to 

be more reflective of compensation paid to directors and 

has instructed the FHLBanks to mirror this practice in their 

2016 reporting going forward.

In addition to information about director compensation, 

the FHLBanks and the OF are required to submit to FHFA 

for review the expenses they pay for their boards of directors each year. In 2015, FHFA continued to request that 

the FHLBanks submit directors’ expenses in more detail. 

Figure 11 below shows the expense per director and the 

total expense for the FHLBank for each category requested.

Board expenses attributable to directors include all items 

Figure 11 • Federal Home Loan Bank Director Expenses for 2015
30 FEDERAL HOUSING FINANCE AGENCY

reimbursed to the director for his or her travel, including 

transportation and lodging, rental car, mileage, and meals 

while traveling. 

Board training expenses include expenses to pay for 

external speakers to address boards of directors meetings, 

board members to attend training conferences, and educational materials.

The other director expense category includes expenses, 

whether reimbursed to the director or paid directly by the 

FHLBank, for attendance at a FHLBank-related event such 

as, but not limited to, annual member meetings, Chair/

Vice Chair meetings, and Council of FHLBanks meetings. 

Group expenses include those expenses that are not 

directly attributable to individuals such as food and beverage service while meetings are in progress, audio-visual 

services, and meeting space.

Figure 12 is a summary table of the compensation and 

total expenses shown as an average per director and a total 

expenditure for each FHLBank. Following the merger of 

the FHLBank of Seattle with the FHLBank of Des Moines, 

all former FHLBank of Seattle directors became directors 

of the merged bank. The numbers in the Figure 12 reflect 

the full year costs for the FHLBank of Des Moines and 

the number of directors post-merger. The FHLBank of 

Seattle’s costs reflect operations pre-merger.

Figure 12 • Federal Home Loan Bank Director Compensation and Expenses for 2015

Federal Home 

Loan Bank

Number 

of 

Directors

Total Director Compensation Earned

(Cash + Deferred Compensation + 

Spouse Travel)

Total Director Expenses

(All expenses including board 

expesnes, training, group 

and other expenses)

Total Director Cost

(Total Compensation +

Total Expenses)

Average Total Average Total Average Total

Atlanta 14 $ 83,169 $ 1,164,363 $ 24,697 $ 345,759 $ 107,866 $ 1,510,121

Boston 16 $ 70,364 $ 1,125,827 $ 9,685 $ 154,954 $ 80,049 $ 1,280,781

Chicago 19 $ 63,065 $ 1,198,229 $ 11,677 $ 221,871 $ 74,742 $ 1,420,099

Cincinnati 17 $ 86,277 $ 1,466,711 $ 13,186 $ 224,155 $ 99,463 $ 1,690,866

Dallas 16 $ 67,245 $ 1,075,920 $ 11,355 $ 181,680 $ 78,600 $ 1,257,599

Des Moines 29 $ 62,843 $ 1,822,439 $ 14,834 $ 430,191 $ 77,677 $ 2,252,631

Indianapolis 16 $ 88,425 $ 1,414,806 $ 17,909 $ 286,548 $ 106,335 $ 1,701,354

New York* 18 $ 85,414 $ 1,537,447 $ 8,739 $ 157,300 $ 94,153 $ 1,694,747

Office of Finance 5 $ 110,998 $ 554,988 $ 24,173 $ 120,864 $ 135,170 $ 675,852

Pittsburgh 17 $ 87,143 $ 1,481,430 $ 15,749 $ 267,728 $ 102,892 $ 1,749,158

San Francisco 14 $ 89,173 $ 1,248,418 $ 22,059 $ 308,825 $ 111,232 $ 1,557,243

Seattle 14 $ 24,405 $ 341,667 $ 6,351 $ 88,909 $ 30,755 $ 430,576

Topeka 17 $ 86,451 $ 1,469,672 $ 13,628 $ 231,676 $ 100,079 $ 1,701,348

Total 

(all Directors) $ 1,004,971 $ 15,901,917 $ 194,041 $ 3,020,460 $ 1,199,012 $ 18,922,376

Average $ 77,305 $ 1,223,224 $ 14,926 $ 232,343 $ 92,232 $ 1,455,567

Median $ 85,414 $ 1,248,418 $ 13,628 $ 224,155 $ 99,463 $ 1,557,243

* The FHLBank of New York had 19 directors in 2015; one director declined compensation. His expenses were approximately one-half of the average shown.
REPORT TO CONGRESS • 2015 31

SUPERVISION AND OVERSIGHT

At year-end, the FHLBank of Boston was the eighth 

largest FHLBank, with assets of $58.1 billion. Its 

balance sheet consisted of 62.1 percent advances, 

6.2 percent mortgages, and 31.5 percent cash and investments. MBS investments totaled $8.2 billion, of which 

$966 million were private-label MBS. The FHLBank’s 

MBS-to-regulatory capital ratio was 2.41 percent, well 

below the regulatory limit of 3.0 percent. Funding 

through consolidated obligations totaled $53.9 billion 

and comprised 52.8 percent discount notes and 47.2 percent bonds. Consolidated obligations with a remaining 

maturity of less than one year, including call dates of less 

than one year, totaled $40.4 billion, or 75.0 percent of 

total consolidated obligations.

The FHLBank reported net income of $289 million for 

the year, the fifth highest among the FHLBanks. Its return 

on assets of 0.52 percent was the second highest in the 

FHLBank System. Litigation settlements and improving private-label MBS cash flows bolstered profitability 

significantly, with the FHLBank reporting net interest 

income of $226 million and income resulting from settlements of $185 million. The FHLBank’s net interest spread 

of 0.37 percent was the sixth highest in the FHLBank 

System. While its yield on advances of 0.76 percent was 

the highest of the FHLBanks, its cost of funds on consolidated obligations of 0.70 percent was the third highest. 

Operating expenses of $67 million were eighth highest 

of any FHLBank in nominal terms, but ranked fifth when 

compared to total assets at 0.12 percent. 

The FHLBank’s regulatory capital ratio was 6.04 percent, 

which was the third highest in the FHLBank System. Its 

retained earnings of $1.1 billion were the fifth highest in 

the FHLBank System. Additionally, the FHLBank’s market 

value of equity was 143.1 percent of the par value of its 

member capital stock. 

The FHLBank had 446 members at year-end 2015: 65 

commercial banks, 177 thrifts, 159 credit unions, 41 

insurance companies, and 4 community development 

financial institutions. The FHLBank’s ten largest borrowers held 48.6 percent of total advances and 72.4 percent of 

members were active borrowers.

At the time of its July 2015 examination, FHFA concluded 

the FHLBank’s overall condition and operations were 

satisfactory, with strong capital and liquidity positions. 

Further, the examination observed that the credit risk 

exposure to the private-label MBS portfolio had continued to decrease as the portfolio ran down and that the 

FHLBank had sufficient earnings to cover operations. 

However, the examination also determined that internal 

audit had not yet fully detailed a plan to complete quality 

assurance review recommendations, business continuity 

testing was not sufficiently robust, information security 

scanning was too infrequent, and the model governance 

and validation of a key Treasury Department model did 

not meet supervisory expectations. 

 

19 This summary reflects conclusions made at the time of FHFA’s 2015 examination of the FHLBank of Boston supplemented by year-end financial information.

District 1 • The Federal Home Loan Bank of Boston19
At year-end, the FHLBank of New York was the third 

largest FHLBank with assets of $123.2 billion. Its 

balance sheet consisted of 76.2 percent advances, 

2.1 percent mortgages, and 21.5 percent cash and investments. Advances of $93.9 billion represented 76.2 percent of total assets, which was the second highest in the 

FHLBank System. The FHLBank held a small portfolio of 

private-label MBS, totaling $282 million, or 0.2 percent of 

assets. Funding through consolidated obligations totaled 

$114.6 billion and comprised 40.9 percent discount notes 

and 59.1 percent bonds. Consolidated obligations with a 

remaining maturity of less than one year totaled $84.0 billion, or 73.6 percent of total consolidated obligations.

The FHLBank reported net income of $415 million for 

the year, the second highest among the FHLBanks. Net 

interest income totaled $554 million. Advances provided 

62.9 percent of interest income, while investments and 

mortgages provided 28.9 percent and 8.1 percent, respectively. The FHLBank’s net interest spread of 0.43 percent, 

return on assets of 0.34 percent, and return on equity of 

6.61 percent, all ranked fourth in the FHLBank System. Its 

yield on advances of 0.69 percent was the second highest 

and its cost of funds on consolidated obligations of 0.39 

percent was the third lowest. Operating expenses of $103 

million were the fourth highest of any FHLBank in nominal terms, but ranked fourth lowest when compared to 

total assets at 0.08 percent.

The FHLBank’s regulatory capital ratio was 5.6 percent, 

which was the fourth highest in the FHLBank System, 

and its $6.9 billion of regulatory capital comprised $5.6 

billion capital stock, $1.3 billion retained earnings, and 

$20 million mandatorily redeemable capital stock. The 

FHLBank’s permanent capital to risk-based capital ratio, 

at 9.94 times, was the highest in the FHLBank System. Its 

total retained earnings of $1.3 billion were equivalent 

to 184 percent of its risk-based capital requirement. The 

FHLBank’s market value of equity was 121.9 percent of the 

par value of its member capital.

The FHLBank had 328 members at year-end 2015: 138 

commercial banks, 89 thrifts, 85 credit unions, 14 insurance companies, and 2 community development financial 

institutions. Advances were held by commercial banks 

(44 percent), thrifts (36 percent), insurance companies (17 percent), and credit unions (3 percent). The 

FHLBank’s ten largest borrowers held 70 percent of total 

advances.

At the time of its April 2015 examination, FHFA concluded the FHLBank’s overall condition and operations were 

satisfactory with strong capital, earnings, and liquidity 

positions. The examination observed that the FHLBank 

had a highly mission-focused balance sheet and low 

private-label MBS exposure. However, the examination 

identified weaknesses related to compliance with capital 

stock purchase requirements for one new large member; 

loss identification on AMA loans and asset classification 

reporting; internal audits frequency; pre-purchase analyses 

for mortgage assets; oversight of vendor management; as 

well as continued concerns in the FHLBank’s administration of its AHP, although the FHLBank had made efforts 

to improve AHP operations. 

32 FEDERAL HOUSING FINANCE AGENCY

20 This summary reflects conclusions made at the time of FHFA’s 2015 examination of the FHLBank of New York supplemented by year-end financial information.

District 2 • The Federal Home Loan Bank of New York20
REPORT TO CONGRESS • 2015 33

SUPERVISION AND OVERSIGHT

At year-end, the FHLBank of Pittsburgh was the fifth 

largest FHLBank, with assets of $96.3 billion. Its 

balance sheet consisted of 77.3 percent advances, 

3.2 percent mortgages, and 19.2 percent cash and investments. MBS investments totaled $7.0 billion, of which 

$1.3 billion were private-label MBS. Approximately 81.2 

percent of private-label MBS were below investment-grade. 

Advances with a remaining maturity of less than one year 

totaled $33.2 billion. Advances grew 17.5 percent to reach 

$74.5 billion at year-end, eclipsing the $73.5 billion peak 

level reached on March 31, 2008. Funding through consolidated obligations totaled $90.9 billion and comprised 

46.6 percent discount notes and 53.4 percent bonds. 

Consolidated obligations with a remaining maturity of 

less than one year totaled $69.1 billion.

The FHLBank reported net income of $257 million for 

the year, the sixth highest among the FHLBanks. Return 

on assets was 0.29 percent, the fifth highest in the 

FHLBank System. Net interest income totaled $318 million. Interest income on advances totaled $346 million, 

representing 49.7 percent of total interest income. The 

FHLBank’s net interest spread of 0.34 percent was the fifth 

lowest in FHLBank System, after declining marginally 

from 0.37 percent in 2014. Both the yield on advances 

of 0.53 percent and the cost of funds on consolidated 

obligations of 0.45 percent were the fourth lowest in the 

FHLBank System. Operating expenses of $67 million were 

the fifth lowest of any FHLBank in nominal terms and 

tied for third lowest when compared to total assets at 0.08 

percent. 

The FHLBank’s regulatory capital ratio was 4.60 percent, 

which was the fourth lowest in the FHLBank System. Its 

retained earnings of $881 million were the sixth highest 

in nominal terms and third lowest when compared to 

total assets at 0.91 percent. The FHLBank’s market value 

of equity was 127.9 percent of the par value of its member 

capital stock. 

The FHLBank had 306 members at year-end 2015: 170 

commercial banks, 68 thrifts, 49 credit unions, 17 insurance companies, and two community development financial institutions. The FHLBank’s ten largest borrowers held 

83.7 percent of total advances.

At the time of its April 2015 examination, FHFA concluded the FHLBank’s overall condition and operations 

were satisfactory with a strong liquidity position. The 

examination observed that the FHLBank had developed a 

well-designed and articulated framework to guide capital 

management, set an appropriate level of retained earnings, 

and establish a reasonable dividend policy. FHFA’s most 

significant concerns at the 2015 examination pertained to 

model risk management including the need to strengthen 

model risk management, oversight and the model validation program. In addition, the examination determined 

that the FHLBank’s travel and entertainment expense 

review and approval process required improved oversight. 

21 This summary reflects conclusions made at the time of FHFA’s 2015 examination of the FHLBank of Pittsburgh supplemented by year-end financial information.

District 3 • The Federal Home Loan Bank of Pittsburgh21
At year-end, the FHLBank of Atlanta was the largest FHLBank, with assets of $142.3 billion. Its 

balance sheet consisted of 73.2 percent advances, 

0.4 percent mortgages, and 26.0 percent cash and investments. MBS investments totaled $19.1 billion, of which 

$2.8 billion were private-label MBS. Approximately 87.0 

percent of private-label MBS were below investmentgrade. Advances totaled $104.2 billion at year-end, up 4.5 

percent from 2014. Roughly $46.7 billion of advances 

had a remaining maturity of less than one year. Funding 

through consolidated obligations totaled $133.4 billion 

and comprised 52 percent discount notes and 48 percent 

bonds. Consolidated obligations with a remaining maturity of less than one year totaled $32.6 billion.

The FHLBank reported net income of $301 million for the 

year, the fourth highest among the FHLBanks. However, 

its profitability metrics, including net interest spread of 

0.17 percent and return on assets of 0.23 percent, trailed 

FHLBank System averages due to its higher relative volume of advances and accounting adjustments related to 

certain swapped advances. Investment income totaled 

$419 million, and represented 69 percent of total interest income. Operating expenses were relatively flat since 

year-end 2014. Operating expenses of $115 million were 

the third highest of any FHLBank in nominal terms, but 

ranked seventh highest when compared to total assets at 

0.09 percent. 

The FHLBank’s regulatory capital ratio was 4.89 percent, 

which was the sixth highest in the FHLBank System. Its 

retained earnings were the third highest of any FHLBank 

in nominal terms at $1.8 billion, which equated to 113.6 

percent of required risk-based capital. The FHLBank’s 

market value of equity was 136.9 percent of the par value 

of its member capital stock. Excess stock was negligible 

because the FHLBank redeems such stock daily. 

The FHLBank had 932 members at year-end 2015: 616 

commercial banks, 198 credit unions, 90 thrifts, 22 insurance companies, and 6 community development financial 

institutions. The FHLBank’s ten largest borrowers held 74 

percent of total advances.

At the time of its January 2015 examination, FHFA concluded the FHLBank’s overall condition and operations 

were strong particularly in the areas of management, asset 

quality, earnings, capital, and liquidity. The examination determined that credit risk within the FHLBank’s 

small legacy portfolio of private-label MBS and mortgage 

loans remained moderate. However, the examination 

also determined that the FHLBank needed to develop and 

implement plans to upgrade certain of its information 

technology applications, as well as document all business 

uses for its models in the model inventory. 

34 FEDERAL HOUSING FINANCE AGENCY

22 This summary reflects conclusions made at the time of FHFA’s 2015 examination of the FHLBank of Atlanta supplemented by year-end financial information.

District 4 • The Federal Home Loan Bank of Atlanta22

34 FEDERAL HOUSING FINANCE AGENCY
REPORT TO CONGRESS • 2015 35

SUPERVISION AND OVERSIGHT

At year-end, the FHLBank of Cincinnati was the 

fourth largest FHLBank, with assets of $118.8 billion. Its balance sheet consisted of 61.7 percent 

advances, 6.7 percent mortgages, and 31.5 percent cash 

and investments including $22.1 billion of liquid assets. 

MBS investments totaled $15.2 billion with no privatelabel MBS. Advances of $27.2 billion had a remaining 

maturity of less than one year with an additional $36.4 

billion of longer-term advances that reprice monthly or 

quarterly. Advances increased by $2.9 billion from the 

prior year-end to $73.3 billion. Funding through consolidated obligations totaled $112.3 billion and comprised 

68.7 percent discount notes and 31.3 percent bonds. 

Consolidated obligations with a remaining maturity of 

less than one year totaled $87.0 billion.

The FHLBank reported net income of $249 million for the 

year, the seventh highest among the FHLBanks. Return 

on assets of 0.24 percent was the seventh highest. Net 

interest income totaled $322 million. Interest income 

on mortgages totaled $246 million and represented 26 

percent of total interest income. The FHLBank’s net interest spread of 0.27 percent was tied for the third lowest in 

the FHLBank System and decreased from 0.28 percent in 

2014 and 0.31 percent in 2013. Its yield on advances of 

0.52 percent was the third lowest in the FHLBank System, 

and its cost of funds on consolidated obligations of 0.64 

percent was the fourth highest in the FHLBank System. 

Operating expenses of $62 million were the second lowest of any FHLBank in nominal terms, and ranked lowest 

when compared to total assets at 0.06 percent. 

The FHLBank’s regulatory capital ratio was 4.40 percent, 

which was the third lowest in the FHLBank System. Its 

retained earnings were the third lowest of any FHLBank 

in nominal terms at $766 million, and fifth lowest when 

compared to required risk-based capital at 121 percent. 

The FHLBank’s market value of equity was 109.4 percent 

of the par value of its member capital stock. 

The FHLBank had 699 members at year-end 2015: 418 

commercial banks, 99 thrifts, 124 credit unions, 54 insurance companies, and 4 community development financial 

institutions. The FHLBank’s ten largest borrowers held 

80.7 percent of total advances.

At the time of its July 2015 examination, FHFA concluded 

the FHLBank’s overall condition and operations were satisfactory with a strong liquidity position and risk management practices that remained generally satisfactory. The 

examination identified primary concerns related to an 

overly complex retained earnings methodology that lacks 

transparency; inadequate analysis, support, or rationale for 

collateral haircut requirements; insufficient collateral haircut model validation; a regulatory violation by using AHP 

subsidies to pay fees imposed on members for the prepayment of subsidized AHP advances; and AHP management 

information systems in need of enhancements. 

23 This summary reflects conclusions made at the time of FHFA’s 2015 examination of the FHLBank of Cincinnati supplemented by year-end financial information.

District 5 • The Federal Home Loan Bank of Cincinnati23
At year-end, the FHLBank of Indianapolis was the 

ninth largest FHLBank with assets of $50.6 billion. Its balance sheet consisted of 53.2 percent 

advances, 16.1 percent mortgages, and 30.7 percent cash 

and investments. The FHLBank’s proportion of mortgage 

loans to assets was the highest among the FHLBanks, and 

its proportion of advances to assets was the third lowest. MBS investments totaled $6.8 billion, of which $402 

million were private-label MBS. Although 88.7 percent 

of private-label MBS were below investment-grade, they 

represented less than one percent of assets. Approximately 

44.6 percent of the FHLBank’s $26.9 billion advances outstanding had a remaining maturity of less than one year. 

Funding through consolidated obligations totaled $47.1 

billion, which consisted of 40.9 percent discount notes 

and 59.1 percent bonds. Consolidated obligations 

with a remaining maturity of less than one year totaled 

$33.8 billion..

The FHLBank reported net income of $121 million for the 

year, the third lowest among the FHLBanks. Total interest income of $544 million comprised $127 million in 

advance income, $153 million in investment income, and 

$264 million in acquired mortgage loan income. Income 

from acquired mortgage loans represented 48.6 percent 

of total interest income. The proportion of income from 

advances to total interest income was 23.3 percent, the 

third lowest in the FHLBank System. The FHLBank’s net 

interest spread of 0.39 percent ranked fifth highest, and its 

return on assets of 0.27 percent ranked sixth highest. Its 

yield on advances of 0.55 percent also ranked sixth highest, and its cost of funds on consolidated obligations of 

0.84 percent was the second highest. Operating expenses 

of $65 million were the third lowest of any FHLBank in 

nominal terms, but ranked fourth highest when compared 

to total assets at 0.14 percent. 

The FHLBank’s regulatory capital ratio was 4.7 percent, 

which was the fifth lowest in the FHLBank System. Its 

retained earnings of $835 million were the seventh highest 

in nominal terms, and the fifth highest when compared 

to its risk-based capital requirement of 165.2 percent. The 

FHLBank’s market value of equity was 154.4 percent of the 

par value of its member capital stock. 

The FHLBank had 397 members at year-end 2015: 185 

commercial banks, 114 credit unions, 58 insurance companies, 37 thrifts, and 3 community development financial institutions. Insurance company advances represented 

53.7 percent of the FHLBank’s advances outstanding, the 

highest of any FHLBank. The FHLBank’s ten largest borrowers held 59.6 percent of total advances.

At the time of its July 2015 examination, FHFA concluded 

the FHLBank’s overall condition and operations were 

satisfactory with a strong liquidity position. The examination determined that operational risk remained elevated 

because of significant organizational changes, turnover in 

key officer-level positions, replacement of the core banking system, and deficiencies regarding business continuity 

planning. Further, the examination determined that the 

FHLBank needed to develop an effective independent 

credit risk oversight framework, as well as improve governance practices related to its market and credit risk models.

36 FEDERAL HOUSING FINANCE AGENCY

24 This summary reflects conclusions made at the time of FHFA’s 2015 examination of the FHLBank of Indianapolis supplemented by year-end financial information.

District 6 • The Federal Home Loan Bank of Indianapolis24

36
REPORT TO CONGRESS • 2015 37

SUPERVISION AND OVERSIGHT

At year-end 2015, the FHLBank of Chicago was the 

seventh largest FHLBank, with assets of $70.7 billion. Its balance sheet consisted of 52.0 percent 

advances, 6.9 percent mortgages, and 40.8 percent cash 

and investments. MBS investments totaled $15.8 billion, 

of which $1 billion were private-label MBS. Credit risk 

declined as the private-label MBS portfolio decreased and 

constituted only 1.2 percent of total assets at year-end. 

Advances increased 13.2 percent in 2015 as the FHLBank 

continued its core mission orientation improvement. 

Funding from consolidated obligations rose to $64.2 billion, of which 35.2 percent were bonds and 64.8 percent 

were discount notes. 

While net income of $349 million in 2015 declined from 

$392 million in 2014, the FHLBank still achieved the 

third highest in the FHLBank System. The FHLBank’s net 

interest spread of 0.63 percent, and net interest margin 

of 0.71 percent were the highest in the FHLBank System. 

Its return on assets of 0.49 percent and return on equity 

of 7.65 percent were the third highest in the FHLBank 

System. The FHLBank’s earnings were largely generated by 

its large investment portfolio. The yield on investments of 

2.50 percent continued to be the highest in the FHLBank 

System. Operating expenses of $132 million were the 

second highest of any FHLBank in nominal terms, and 

ranked first when compared to total assets at 0.18 percent. 

The FHLBank functions as the MPF provider, essentially 

the “back office,” for the mortgage purchase program participated in by most of the other FHLBanks. The provider 

function contributed significantly to the FHLBank’s operating expenses. 

The FHLBank’s regulatory capital ratio was 6.6 percent, 

which was the largest in the FHLBank System. Its retained 

earnings of $2.7 billion were the highest in nominal terms 

and when compared to total assets at 3.86 percent. The 

FHLBank’s market value of equity was 256 percent of the 

par value of its member capital.

The FHLBank had 740 members at year-end 2015: 546 

commercial banks, 89 thrifts, 68 credit unions, 34 insurance companies, and 3 community development financial 

institutions. The FHLBank’s ten largest borrowers held 

75.2 percent of total advances. 

At the time of its September 2015 examination, FHFA concluded that the FHLBank’s overall condition and operations were satisfactory with a strong capital position and 

conservative dividend practices that significantly mitigated 

supervisory concerns. However, the examination identified weaknesses in the FHLBank’s operational risk framework, vendor management, MPF operations, model risk 

management, and compliance with the established criteria 

of the Community First Fund. 

25 This summary reflects conclusions made at the time of FHFA’s 2015 examination of the FHLBank of Chicago supplemented by year-end financial information.

District 7 • The Federal Home Loan Bank of Chicago25
At year-end, the FHLBank of Des Moines was the 

second largest FHLBank, with assets of $137.4 billion. The FHLBank’s balance sheet, which included assets acquired in a merger27 with the former FHLBank 

of Seattle during 2015, consisted of 64.9 percent advances, 

4.9 percent mortgages, and 30.0 percent cash and investments. MBS investments totaled $18.7 billion, with 

negligible investments in private-label MBS. Advances 

increased substantially during 2015, and totaled $89.2 

billion, an increase of 36.8 percent. Funding through consolidated obligations totaled $130.2 billion and included 

76.0 percent in discount notes and 24.0 percent in bonds. 

Consolidated obligations and discount notes with a 

remaining maturity of less than one year totaled $18.4 billion and $99.1 billion, respectively. 

The FHLBank’s income, expenses, and financial performance metrics for 2015 were significantly impacted by 

its merger with the FHLBank of Seattle. The FHLBank’s 

reported net income of $131 million for the year was the 

eighth highest among the FHLBanks. Return on assets was 

0.12 percent, which was the lowest. Net interest income 

totaled $315 million. Interest income on investments 

totaled $271 million, representing 33.2 percent of total 

interest income. The FHLBank’s net interest spread of 

0.25 percent was the third lowest in the FHLBank System. 

The FHLBank’s yield on advances of 0.46 percent was the 

second lowest, and its cost of funds on consolidated obligations of 0.49 percent was the sixth highest. Operating 

expenses, of $83 million were the fifth highest of any 

FHLBank in nominal terms, but second lowest when compared to total assets at 0.07 percent. 

The FHLBank’s regulatory capital ratio was 4.23 percent, 

which was the second lowest in the FHLBank System. 

While the regulatory capital ratio was low compared to 

the FHLBank System, the FHLBank held little excess stock. 

The FHLBank had retained earnings totaling $801 million and continued to build retained earnings through 

contributions from current income. The FHLBank also 

reported $194 million in additional capital from merger, 

which reflects the fair value of the net assets acquired in 

the merger with the FHLBank of Seattle. Its market value 

of capital stock was 116.9 percent of par value. 

The FHLBank had 1,445 members at year-end 2015: 1,088 

commercial banks, 65 thrifts, 221 credit unions, 67 insurance companies, and 4 community development financial 

institutions. The FHLBank’s ten largest borrowers held 

66.5 percent of total advances.

At the time of its September 2015 examination, FHFA 

concluded the FHLBank’s overall condition and operations were satisfactory. The examination observed that 

operational risk remained elevated and trended upward 

since the previous examination, and that close oversight 

by FHFA in the future is warranted because of significant 

credit concentration to one large commercial bank member, as well as the high exposure to insurance company 

advances, particularly captive insurance companies. The 

examination also determined that the complexities of the 

merger, combined with the FHLBank’s already challenged 

information technology environment, resulted in further 

stresses to the technology environment, and that the 

FHLBank needed to continue to enhance its interest rate 

risk management practices although improvements 

were noted.

38 FEDERAL HOUSING FINANCE AGENCY

26 This summary reflects conclusions made at the time of FHFA’s 2015 examination of the FHLBank of Des Moines supplemented by year-end financial information.

27 On May 31, 2015, the FHLBanks of Des Moines and Seattle merged, which was approved by FHFA on December 19, 2014. The headquarters of the surviving institution is located in 

Des Moines, but the Bank also maintains an office in Seattle. 

District 8 • The Federal Home Loan Bank of Des Moines26

38
REPORT TO CONGRESS • 2015 39

SUPERVISION AND OVERSIGHT

At year-end, the FHLBank of Dallas was the smallest 

FHLBank, with assets of $42.1 billion. Its balance 

sheet consisted of 58.8 percent advances, 0.13 percent mortgages, and 40.8 percent cash and investments. 

The FHLBank held $24.7 billion in advances, $17.2 billion in cash and investments, and $55 million in mortgage 

loans. MBS investments totaled $6.6 billion, of which 

$122 million were private-label MBS. Advance balances, 

which had been in decline since 2008, increased approximately $5.8 billion from the prior year-end. Funding 

through consolidated obligations totaled $38.6 billion 

and comprised 53.3 percent discount notes and 46.7 

percent bonds. Consolidated obligations with a remaining maturity of less than one year totaled $26.4 billion.

The FHLBank reported net income of $67 million for 

the year, the lowest among the FHLBanks. The return on 

assets was 0.16 percent, which was the second lowest. Net 

interest income totaled $122 million. The FHLBank’s net 

interest spread was 0.27 percent, which was tied for the 

third lowest of all FHLBanks. The FHLBank’s yield on 

advances was 0.61 percent (third highest), and its cost of 

funds on consolidated obligations was 0.25 percent (the 

lowest). Operating expenses of $71 million were the sixth 

highest of any FHLBank in nominal terms, but ranked second highest when compared to total assets at 0.17 percent.

The FHLBank’s regulatory capital ratio was 5.5 percent, 

which was the fifth highest in the FHLBank System, and its 

regulatory capital was comprised of $1.5 billion in capital 

stock and $762 million in retained earnings. Its retained 

earnings were equivalent to 154 percent of its risk-based capital requirement. The FHLBank’s market value of equity was 

149.6 percent of the par value of its member capital stock.

The FHLBank had 835 members at year-end 2015: 625 

commercial banks, 65 thrifts, 104 credit unions, 36 insurance companies, and 5 community development financial 

institutions. The FHLBank’s ten largest borrowers held 

38.5 percent of total advances.

At the time of its April 2015 examination, FHFA had 

supervisory concern about the FHLBank. The examination 

observed that the FHLBank continued to have a low level 

of advances and above average operating expenses relative 

to assets, although strategies employed by management 

to increase advances and reduce operating expenses are 

coming to fruition. The examination also determined that 

operational risk management continued to raise concerns, 

especially in asset management and disaster recovery, 

ongoing management turnover persisted, and credit modeling needed improvement. Further, the examination 

identified weaknesses in the FHLBank’s handling of suspicious activity reporting and unsecured credit, as evidenced 

by regulatory violations in these areas. 

28 This summary reflects conclusions made at the time of FHFA’s 2015 examination of the FHLBank of Dallas supplemented by year-end financial information.

District 9 • The Federal Home Loan Bank of Dallas28
At year-end, the FHLBank of Topeka was the second 

smallest FHLBank with total assets of $44.4 billion. Its balance sheet consisted of 53.1 percent 

advances, 30.6 percent cash and investments, and 14.4 

percent mortgage loans. Advances increased during 2015 

by 28.8 percent to $23.6 billion. Cash and investments 

grew 41.4 percent during 2015 because of significant 

increases in liquid investments and MBS issued by Fannie 

Mae and Freddie Mac. The mortgage loans portfolio 

increased modestly by 2.6 percent for the second consecutive year. Nevertheless, the mortgage loans ratio to assets 

declined but was still the second highest in the FHLBank 

System. Funding from consolidated obligations rose to 

$41.7 billion, of which 47.7 percent were bonds and 52.3 

percent were discount notes. 

The FHLBank reported net income of $93 million for 

2015, the second lowest among the FHLBanks. Net 

income decreased from $106 million for 2014 and $119 

million for 2013. The quarterly change in net income 

from year-end 2014 to year-end 2015 ranged from negative ($11.6) million to $5.8 million. The resulting return 

on assets of 0.21 percent was the third lowest in the 

FHLBank System. Net interest income increased for the 

second consecutive year and totaled $242 million. The 

net interest spread of 0.52 percent was the third highest 

in the FHLBank System. The FHLBank’s yield on mortgage loans of 3.24 percent was the second lowest in the 

FHLBank System. Operating expenses of $48 million were 

the lowest of any FHLBank in nominal terms, but ranked 

sixth highest when compared to total assets at 0.11 percent. 

The FHLBank’s regulatory capital ratio was 4.19 percent, 

which was the lowest in the FHLBank System. Its retained 

earnings were the lowest of any FHLBank in nominal 

terms at $652 million, but fifth highest when compared to 

total assets at 1.47 percent. The FHLBank’s ratio of market 

value of equity to the par value of capital stock was the 

third highest in the FHLBank System at 171 percent. 

The FHLBank had 769 members at year-end 2015: 636 

commercial banks, 77 credit unions, 31 thrifts, 23 insurance companies, and 2 community development financial 

institutions. The FHLBank’s membership was heavily concentrated in community financial institutions with assets 

less than $1.1 billion, and the ten largest borrowers held 

64 percent of total advances.

At the time of its October 2015 examination, FHFA concluded the FHLBank’s overall condition and operations 

were satisfactory with strong capital, asset quality, and 

liquidity positions. The examination observed that overall 

asset quality improved because of low classified assets and 

member credit risk, sound mortgage portfolio quality, and 

strengthened credit risk practices. However, the examination determined that the FHLBank’s processes for addressing examination findings did not consistently result in 

accurate reporting on the status of findings resolution; 

management lacked an adequate process for approving 

significant new financial strategies that evidenced full and 

timely consideration of all risks and operational preparedness; development, production, and reporting of certain 

important market risk and performance analytics was not 

done independently from the division of the FHLBank 

that was responsible for risk positioning and assumption. 

40

29 This summary reflects conclusions made at the time of FHFA’s 2015 examination of the FHLBank of Topeka supplemented by year-end financial information.

District 10 • The Federal Home Loan Bank of Topeka29

40 FEDERAL HOUSING FINANCE AGENCY
REPORT TO CONGRESS • 2015 41

SUPERVISION AND OVERSIGHT

At year-end, the FHLBank of San Francisco was the 

sixth largest FHLBank, with assets of $85.7 billion. 

Its balance sheet consisted of 59.4 percent advances, 0.8 percent mortgages, and 39.6 percent cash and 

investments. MBS investments totaled $16.0 billion, of 

which $6.9 billion were private-label MBS. Approximately 

91.6 percent of private-label MBS were below investmentgrade. Roughly $24.8 billion of advances had a remaining 

maturity of less than one year. Advances have declined 

to $50.9 billion from a peak of $262 billion at September 

30, 2008. Funding through consolidated obligations 

totaled $79.5 billion and comprised 34.8 percent discount 

notes and 65.2 percent bonds. Consolidated obligations 

with a remaining maturity of less than one year totaled 

$29.1 billion.

The FHLBank reported net income of $638 million for the 

year, the highest among the FHLBanks. Income included 

$459 million from a first quarter 2015 private-label MBS 

settlement. Return on assets of 0.76 percent was the highest in the FHLBank System. Net interest income totaled 

$476 million. Interest income on MBS totaled $556 million and represented 61.0 percent of total interest income. 

The Bank’s net interest spread of 0.54 percent was the 

second highest in the FHLBank System but was a decrease 

from 0.61 percent in 2014. Its yield on advances of 0.58 

percent was the fourth highest, and its cost of funds on 

consolidated obligations of 0.48 percent was the seventh 

highest. Operating expenses of $138 million were the 

highest of any FHLBank in nominal terms and ranked 

third when compared to total assets at 0.16 percent. 

Dividends on mandatorily redeemable capital stock of 

$65 million were included in interest expense and negatively affected profitability performance indicators. 

The FHLBank’s regulatory capital ratio was 6.26 percent, 

which was the second highest in the FHLBank System. Its 

retained earnings were the second highest of any FHLBank 

in nominal terms at $2.6 billion but second lowest when 

compared to required risk-based capital at 97.9 percent. 

The FHLBank’s market value of equity was 199.5 percent 

of the par value of its member capital stock. Mandatorily 

redeemable capital stock totaled $488 million, the highest 

among all the FHLBanks. 

The FHLBank had 339 members at year-end 2015: 194 

commercial banks, 13 thrifts, 119 credit unions, 7 insurance companies, and 6 community development financial 

institutions. The FHLBank’s ten largest borrowers held 74 

percent of total advances.

At the time of its February 2015 examination, FHFA concluded the FHLBank’s overall condition and operations 

were satisfactory with a strong liquidity position. Issues 

identified during the examination were generally of moderate regulatory concern and correctable with reasonable 

efforts. The examination determined that risk from the 

FHLBank’s substantial legacy private-label MBS portfolio 

merited continued attention, though the risk was declining with the size of the portfolio. In addition, the examination identified shortcomings in the FHLBank’s support 

for the durability of margin requirements for commercial 

real estate and multifamily loan collateral for advances, 

measurement of operational risk, and process for suspicious activity reporting. 

30 This summary reflects conclusions made at the time of FHFA’s 2015 examination of the FHLBank of San Francisco supplemented by year-end financial information.

District 11 • The Federal Home Loan Bank of San Francisco30
Located in Reston, Virginia, the Office of Finance 

does not have significant assets and expenses, and 

these items are proportionally allocated to the 

FHLBanks. The Office of Finance’s primary function is 

to serve as the central issuer of debt on behalf of the 11 

FHLBanks. All debt issued by the Office of Finance represents the joint and several liability of all FHLBanks in the 

FHLBank System. Additionally, the Office of Finance prepares and distributes the quarterly and annual combined 

financial reports for the FHLBanks and facilitates various 

FHLBank System-wide initiatives and working groups. 

During 2015, the FHLBank System issued $304.3 billion 

in long-term consolidated obligation bonds, reflecting a 

12.7 percent decrease from the prior year. The FHLBanks 

continued to move toward shorter-term funding in 2015. 

As a result, discount note issuance increased from $1.37 

trillion at year-end 2014 to $1.75 trillion at year-end 

2015. Overnight discount notes outstanding decreased 

from an average of $10.4 billion in 2014 to an average of 

$7.2 billion in 2015. 

The Office of Finance’s board includes five independent 

directors and each of the FHLBank presidents and CEOs. 

Because of the 2015 merger of the FHLBanks of Seattle 

and Des Moines, the total number of directors on the 

Office of Finance board decreased to 16 from 17. 

At the time of its January 2015 examination, FHFA concluded the Office of Finance’s overall condition and 

operations were satisfactory. Although the examination 

identified a number of matters requiring management and 

the board’s attention, the concerns are correctable in the 

normal course of business. The examination identified 

weaknesses in the Office of Finance’s dealer compliance 

program, discount note monitoring, risk control selfassessment process, internal audit program, vendor management oversight, and other internal control deficiencies. 

FHFA also recommended further enhancements to the 

organization’s succession planning process. 

42 FEDERAL HOUSING FINANCE AGENCY

31 This summary reflects conclusions made at the time of FHFA’s 2015 examination of the Office of Finance supplemented by year-end financial information.

Office of Finance31

42
43

Results of Stress 

Tests Under the 

Dodd-Frank Wall 

Street Reform 

and Consumer 

Protection Act

Summary

Section 165(i)(2) of the Dodd-Frank Wall Street 

Reform and Consumer Protection Act of 2010 

(Dodd-Frank Act) requires certain financial companies with total consolidated assets of more than $10 

billion, and which are regulated by a primary federal 

financial regulatory agency, to conduct annual stress tests 

to determine whether the companies have sufficient capital to absorb losses and support operations during adverse 

economic conditions. Dodd-Frank Act stress testing is 

a forward-looking exercise that assesses the impact on 

capital levels that would result from immediate financial 

shocks and nine quarters of adverse economic conditions.

Beginning in 2014, FHFA required the Enterprises and the 

FHLBanks to conduct stress tests pursuant to the DoddFrank Act. The 2015 stress tests were based on the regulated entities’ portfolios as of September 30, 2014. The 

assessment period for the Dodd-Frank Act annual stress 

tests covered nine quarters, beginning with the fourth calendar quarter of 2014 through the fourth calendar quarter 

of 2016. The regulated entities were required to submit 

the results of stress tests based on three scenarios: a Baseline 

scenario, an Adverse scenario, and a Severely Adverse scenario. 

The Baseline scenario reflects moderate expansion in economic activity in the United States, with nominal house 

price appreciation of 6 percent over the planning horizon, 

a modest decline in unemployment, and a moderate rise 

in mortgage interest rates. The Adverse scenario reflects 

a mild recession in the U.S., with a 13 percent decline in 

house prices, a rise in unemployment and core inflation, 

and rising mortgage interest rates. The Severely Adverse 

scenario reflects a deep and prolonged recession in the 

U.S., with a 25 percent decline in house prices, a significant rise in unemployment, and a declining interest rate 

environment, although mortgage interest rates increase. 

FHFA aligned the stress test scenario variables and 

assumptions with those used by the Board of Governors 

of the Federal Reserve System (Federal Reserve Board) in 

its annual Dodd-Frank Act stress tests. Similar to the stress 

testing assumptions used by the Federal Reserve Board for 

the Adverse and Severely Adverse scenarios, FHFA required 

the regulated entities to apply a global market shock to 

securities and other assets held at fair value. The assumed 

result of the global market shock was an instantaneous 

loss and reduction of capital in the first quarter of the 

planning horizon. 

The regulated entities were also required to incorporate a 

counterparty default scenario involving an instantaneous 

and unexpected default of their largest counterparty across 

securities lending, repurchase/reverse repurchase agreements, and derivative exposures. The result of the counterparty default scenario was reflected in the stress test as 

an instantaneous loss and reduction of capital. 

2015 Stress Test Results for the 

Severely Adverse Scenario

FHFA, acting in its capacity as conservator, published the 

results of the Severely Adverse stress tests of Fannie Mae 

and Freddie Mac on April 30. The FHLBanks published 

their results between July 15 and July 30. 

Fannie Mae – In the Severely Adverse scenario, Fannie 

Mae projected additional draws from the Treasury 

Department of between $34.2 billion and $94.9 billion 

depending on the treatment of deferred tax assets. As of 

REPORT TO CONGRESS • 2015

SUPERVISION AND OVERSIGHT
44 FEDERAL HOUSING FINANCE AGENCY

September 30, 2014, Fannie Mae had drawn $116.1 billion from the Treasury Department under the terms of the 

PSPA, with $117.6 billion of remaining funding commitment. Fannie Mae projected that the remaining funding 

commitment under the PSPA at the end of the Severely 

Adverse scenario would range between $22.6 billion and 

$83.4 billion (Figure 13). 

Freddie Mac – In the Severely Adverse scenario, Freddie 

Mac projected additional draws from the Treasury 

Department of between $34.4 billion and $62.3 billion 

depending on the treatment of deferred tax assets. As of 

September 30, 2014, Freddie Mac had drawn $71.3 billion from the Treasury Department under the terms of the 

PSPA, with $140.5 billion of remaining funding commitment. Freddie Mac projected that the remaining funding 

commitment under the PSPA at the end of the Severely 

Adverse scenario would range between $78.2 billion and 

$106.1 billion (Figure 13).

Federal Home Loan Banks – All of the FHLBanks 

maintained compliance with regulatory capital and leverage capital requirements over the nine quarters of the 

stress test. Though some variables caused negative net 

income or other reductions in capital under the severely 

adverse scenarios, these losses were lower than the cushion the FHLBanks held above their capital requirements at 

the start of the stress test (Figures 13 and 14). 

Nine FHLBanks projected negative net income in one or 

more quarters under the Severely Adverse scenario, but 

only two banks projected cumulative losses over the nine 

quarters. The losses occurred almost entirely in the first 

quarter of the projection period and were primarily due to 

Other Than Temporary Impairment charges on securities. 

Several FHLBanks projected significant declines in 

Generally Accepted Accounting Principles (GAAP) capital in the Severely Adverse scenario. Only one FHLBank 

projected negative GAAP capital during the planning horizon, but regained positive GAAP capital by the end of the 

nine-quarter period. The declines were mainly a function 

of declines in the market value of Available-for-Sale (AFS) 

securities related to the global market shock assumptions. 

Declines in the value of AFS securities directly reduced 

GAAP capital but did not flow through net income. The 

level of decline in values was primarily a function of the 

size and rating of the FHLBank’s private-label MBS portfolio held as AFS.

Figure 13 • Fannie Mae and Freddie Mac Stress Test Results

Source: Federal Housing Finance Agency

$0

$50

$100

$150

$200

$250

Potential

Incremental

Treasury Draws

Cumulative

Treasury Draws

as of 9/30/14

Without valuation

allowance on

Deferred Tax Assets

With valuation

allowance on

Deferred Tax Assets

Without valuation

allowance on

Deferred Tax Assets

With valuation

allowance on

Deferred Tax Assets

Remaining

PSPA Funding

Commitment

$116.1

$34.2

$83.4

$116.1

$94.9

$22.6

$71.3

$34.4

$106.1

$71.3

$62.3

$78.2

2015 FANNIE + FREDDIE STRESS RESULTS

Fannie Mae Freddie Mac

$ Billions
REPORT TO CONGRESS • 2015 45

SUPERVISION AND OVERSIGHT

2015 Regulatory Capital Ratio

0.00%

1.00%

2.00%

3.00%

4.00%

5.00%

6.00%

7.00%

8.00%

9.00%

ATLANTA

BOSTON

CHICAGO

CINCINNATI

DALLAS

DES MOINES

INDIANAPOLIS

NEW YORK

PITTSBURGH

SEATTLE

TOPEKA

SAN FRANCISCO

Regulatory Capital Ratio Regulatory Limit

Figure 14 • FHLBank Regulatory Capital Ratios under the Severely Adverse Scenarioa

Source: Federal Housing Finance Agency

a Each FHLBank is required to maintain a four percent minimum regulatory capital-to-assets ratio. Capital for regulatory capital adequacy purposes is defined as the sum of each FHLBank’s: (1) 

permanent capital; (2) amounts paid-in for Class A stock; (3) general loss allowance, if consistent with GAAP and not established for specific assets; (4) other amounts from sources determined by 

the FHFA as available to absorb losses (including additional capital from merger); and (5) mandatorily redeemable capital stock.

2015 Leverage Capital Ratio

ATLANTA

BOSTON

CHICAGO

CINCINNATI

DALLAS

DES MOINES

INDIANAPOLIS

NEW YORK

PITTSBURGH

SEATTLE

TOPEKA

SAN FRANCISCO

Leverage Capital Ratio Regulatory Limit

0.00%

2.00%

4.00%

6.00%

8.00%

10.00%

12.00%

14.00%

Figure 15 • FHLBank Leverage Capital Ratios under the Severely Adverse Scenariob

Source: Federal Housing Finance Agency

b Each FHLBank is required to maintain at all times a leverage capital-to-assets ratio of at least five percent. Leverage capital is defined as the sum of permanent capital weighted 1.5 times and all 

other capital without a weighting factor.
46 FEDERAL HOUSING FINANCE AGENCY

Enterprise 

Housing Goals 

and Duty to Serve

Background

The Safety and Soundness Act requires FHFA to 

establish annual housing goals for mortgages 

purchased by the Enterprises. The housing goals 

include separate categories for single-family and multifamily mortgages on housing that is affordable to low-income 

and very low-income families, among other categories.

The housing goals provisions of the Safety and Soundness 

Act were substantially revised in 2008 with the enactment 

of HERA. Under this revised structure, FHFA established 

housing goals for the Enterprises for 2010 and 2011 in a 

final rule published on September 14, 2010. FHFA established new housing goals levels for the Enterprises for 

2012 through 2014 in a final rule published on November 

13, 2012 and for 2015 through 2017 in a final rule published on September 3, 2015 (12 CFR Part 1282). The 

housing goals established by FHFA in these two rulemakings include four goals and one subgoal for single-family, 

owner-occupied housing and one goal and one subgoal for 

multifamily housing.

Under HERA and FHFA regulations, the Enterprises were 

subject to the following housing goal categories for 2014 

and 2015: 

1. Low-income home purchase goal, for home 

purchase mortgages to families with incomes no 

greater than 80 percent of area median income.

2. Very low-income home purchase goal, for 

home purchase mortgages to families with 

incomes no greater than 50 percent of area 

median income.

3. Low-income areas home purchase subgoal,

for home purchase mortgages to families living 

in census tracts with tract median incomes no 

greater than 80 percent of area median income, 

or families with incomes no greater than 100 

percent of area median income who live in census 

tracts with a minority population of 30 percent 

or more and a tract median income less than 100 

percent of area median income.

4. Low-income areas home purchase goal,

which includes mortgages that meet the criteria 

under the low-income areas home purchase 

subgoal as well as home purchase mortgages 

to families with incomes no greater than 100 

percent of area median income who live in 

federally declared disaster areas.

5. Low-income refinance goal, for refinance 

mortgages to families with incomes no greater 

than 80 percent of area median income.

6. Low-income multifamily goal, for rental 

units for families in multifamily properties 

with incomes no greater than 80 percent of area 

median income (or rental equivalent).

7. Very low-income multifamily subgoal, for 

rental units for families in multifamily properties 

with incomes no greater than 50 percent of area 

median income (or rental equivalent).

In 2015, the Enterprises we also subject to the following 

multifamily subgoal: 

8. Small multifamily low-income subgoal, for 

rental units for families in multifamily properties 

with 5-50 units which are affordable to families 

with incomes no greater than 80 percent of area 

median income (or rental equivalent.) This is a new 

goal category for 2015-17, established to encourage 

the Enterprises to finance units in this very 

important part of the affordable housing market.

Since 2010, FHFA determines whether an Enterprise meets 

a single-family goal if its performance meets or exceeds 

either the preset benchmark level or a retrospective market 

comparison figure using Home Mortgage Disclosure Act 

(HMDA) data. 
REPORT TO CONGRESS • 2015 47

SUPERVISION AND OVERSIGHT

2014 2015

Category Benchmarks Performancea Marketb FHFA Goals Determination Benchmarks Performancec

SINGLE-FAMILY GOALS d

Low-income home 

purchase goal 23% Fannie Mae: 23.5%

Freddie Mac: 21.0% 22.8% Fannie Mae: Met

Freddie Mac: Did Not Meet 24.0% Fannie Mae: 23.5%

Freddie Mac: 22.3%

Very low-income home 

purchase goal 7% Fannie Mae: 5.7%

Freddie Mac: 4.9% 5.7% Fannie Mae: Met

 Freddie Mac: Did Not Meet 6.0% Fannie Mae: 5.6%

Freddie Mac: 5.4%

Low-income areas home 

purchase subgoal 11% Fannie Mae: 15.5%

Freddie Mac: 13.6% 15.0% Fannie Mae: Met

Freddie Mac: Met 14.0% Fannie Mae: 15.6%

Freddie Mac: 14.5%

Low-income areas home 

purchase goal 18% Fannie Mae: 22.7%

Freddie Mac: 20.1% 22.1% Fannie Mae: Met

Freddie Mac: Met 19.0% Fannie Mae: 20.4%

Freddie Mac: 19.0%

Low-income 

refinance goal 20% Fannie Mae: 26.5%

Freddie Mac: 26.4% 25.1% Fannie Mae: Met

Freddie Mac: Met 21.0% Fannie Mae: 22.1%

Freddie Mac: 22.8%

MULTIFAMILY GOALS (units)

Low-income 

multifamily units

Fannie Mae: 

250,000

Freddie Mac: 

200,000

Fannie Mae: 

262,050

Freddie Mac: 

273,434

NA Fannie Mae: Met

Freddie Mac: Met

Fannie Mae: 

300,000

Freddie Mac: 

300,000

Fannie Mae: 307,510

Freddie Mac: 379,043

Very low-income 

multifamily units

Fannie Mae: 

60,000

Freddie Mac: 

40,000

Fannie Mae: 

60,542

Freddie Mac: 

48,689

NA Fannie Mae: Met

Freddie Mac: Met

Fannie Mae: 

60,000

Freddie Mac: 

60,000

Fannie Mae: 69,078

Freddie Mac: 76,935

Small multifamily 

property low-income 

units (new goal for 2015)

NA

Fannie Mae: 

6,732

Freddie Mac: 

2,076

NA Fannie Mae: Met

Freddie Mac: Met

Fannie Mae: 

6,000

Freddie Mac: 

6,000

Fannie Mae: 6,731

Freddie Mac: 12,802

Source: Federal Housing Finance Agency

a Official performance in 2014 as determined by FHFA, based on analysis of Enterprise loan-level data.

b Goal-qualifying shares of single-family home purchase or refinance conventional conforming mortgages originated in the primary mortgage market, based on FHFA 

analysis of 2014 HMDA data. Market performance for 2015 will be determined by FHFA later in 2016.

c Performance as reported by the Enterprises in their March 2016 Annual Housing Activities Reports. Official performance on all goals in 2015 will be determined by 

FHFA after review of Enterprise loan-level data. Low-income refinance goal for 2014-15 included credit for qualifying permanent loan modifications.

d Minimum percentages of all dwelling units financed by Enterprise acquisitions of home purchase or refinance mortgages on owner-occupied properties.

Figure 16 • 2014-2015 Enterprise Housing Goals Performance
48 FEDERAL HOUSING FINANCE AGENCY

The multifamily housing goals are based only on preset 

benchmark levels because of the lack of multifamily data 

comparable to single-family HMDA data.

Figure 16 on the preceding page shows data concerning 

the Enterprises’ housing goals for 2014 and 2015. FHFA’s 

official figures on Enterprise goal performance in 2014 are 

based on FHFA’s analysis of loan-level data the Enterprises 

provided to FHFA in early 2015. In addition, FHFA completed its retrospective comparison of the market for 2014 

using HMDA data. In December, FHFA sent final determination letters to the Enterprises regarding their 2014 goal 

performance and FHFA’s calculation of market performance for 2014, and these determinations are reflected 

in Figure 16. 

Due to the fact that Freddie Mac’s performance on the lowincome and very low-income home purchase goals fell 

short of both the benchmark level and market performance 

in 2014, FHFA required Freddie Mac to submit a housing 

plan outlining steps it will take to achieve these goals in 

future years. Freddie Mac delivered a plan as required and 

FHFA sent a letter to Freddie Mac indicating its approval of 

the plan on March 31, 2016. FHFA is closely monitoring 

Freddie Mac’s performance on these goals on a monthly 

basis and is increasing the number of goal-related meetings 

with Freddie Mac.

While FHFA has concluded its process for assessing the 

Enterprises’ housing goals performance in 2014, that 

process is still underway for 2015. Figure 16 on the preceding page shows the goal levels and preliminary figures 

on Enterprise housing goals performance in 2015, based 

on information the Enterprises submitted in their March 

2016 Annual Housing Activities Reports for 2015. Once 2015 

market data under HMDA becomes available later in 2016, 

FHFA will make its final determinations on whether the 

Enterprises’ 2015 performance satisfied their housing 

goals requirements.

Duty to Serve

FHFA is required by HERA to issue a regulation to implement the Duty to Serve requirements specified in the 

statute. The statute requires the Enterprises to provide leadership to facilitate a secondary market for mortgages on 

housing for very low-, low-, and moderate-income families 

in three underserved markets: 1) manufactured housing; 2) 

affordable housing preservation; and 3) rural housing.

In December, FHFA issued a proposed rule for a 90-day 

public comment period ending on March 17, 2016. Under 

the proposed rule, the Enterprises would each be required 

to submit to FHFA a draft Underserved Markets Plan covering a three-year period, and the public would be invited to 

provide input on the draft Plans. 

For the manufactured housing market, Duty to Serve 

credit under the proposed rule would be provided for eligible Enterprise activities related to manufactured homes 

financed as real property and blanket loans for certain categories of manufactured housing communities.

For the affordable housing preservation market, Duty to 

Serve credit would be provided under the proposed rule for 

eligible Enterprise activities related to preserving the affordability of housing for renters and homebuyers, including 

activities under the programs specified in the Safety and 

Soundness Act. Duty to Serve credit would also be provided under the proposed rule for activities related to existing small multifamily rental properties, energy efficiency 

improvements on existing multifamily rental and singlefamily first-lien properties, shared equity homeownership 

programs and the U.S. Department of Housing and Urban 

Development’s Choice Neighborhoods Initiative and 

Rental Assistance Demonstration program. 

For the rural market, Duty to Serve credit would be provided under the proposed rule for eligible Enterprise 

activities related to housing in rural areas, including activities serving the following high-needs rural 

regions and populations: Middle Appalachia, the 

Lower Mississippi Delta, colonias, members of a 

Native American tribe located in a Native American 

area, and migrant and seasonal agricultural workers.

The proposed rule also would provide Duty to Serve credit 

for qualifying activities that promote residential economic 

diversity in one or more underserved markets.
49

Federal Home Loan 

Bank Mission 

and Affordable 

Housing Programs

I

n 2015, FHFA continued its supervision and 

oversight to ensure that the FHLBanks are focused 

on their housing finance and community development mission. 

Core Mission of the 

Federal Home Loan Banks

FHFA’s Core Mission Activities (CMA) regulation (12 

CFR Part 1265.2) describes the mission of the FHLBanks 

as providing financial products and services to members 

and housing associates that assist and enhance those institutions’ financing of housing and community lending.

Long- and short-term advances (loans) to their members 

(primarily collateralized by residential mortgage loans and 

government and agency securities) have historically been 

the primary mission asset of the FHLBanks. The CMA 

regulation includes other types of assets, such as mortgage 

loans that qualify as AMA, in the definition of core mission activities.

In 2015, FHFA provided further guidance on core mission 

activities by publishing Advisory Bulletin AB 2015-05, 

“FHLBank Core Mission Achievement.” As described in 

the Advisory Bulletin, FHFA will measure each FHLBank’s 

core mission achievement by calculating the ratio of its 

Primary Mission Assets (advances plus AMA) relative to 

consolidated obligations. The Advisory Bulletin establishes three general categories: 1) ratios at or above 70 

percent indicate that a FHLBank’s activities are achieving 

core mission; 2) ratios between the thresholds indicate 

that other mission activities need to be considered; and 3) 

ratios below 55 percent indicate that more fundamental 

questions about the activities of the FHLBank need to be 

addressed. FHFA began calculating these ratios at year-end 

2015 using annual average par values as reported by the 

FHLBanks in FHFA’s Call Report System. FHFA will assess 

each FHLBank’s core mission achievement on an annual 

basis as part of the examination process. 

FHFA’s regulation on strategic business plans requires each 

Bank’s board of directors to adopt, maintain, and periodically review a strategic business plan that “describes how 

the business activities of the Bank will achieve the mission 

of the Bank consistent with” the core mission activities 

provisions. FHFA expects that each FHLBank’s strategic 

plan will address mission achievement and expects any 

FHLBank with a core mission ratio that is markedly below 

the preferred level to have a more thorough core mission 

strategic plan. 

At year-end 2015, the FHLBank System core mission ratio 

exceeded 70 percent. Eight of the FHLBanks had ratios of 

70 percent or higher, another FHLBank reached 69 percent, and the remaining two FHLBanks had core mission 

ratios between 55 and 60 percent.

FHLBank 

Affordable Housing Program

The Bank Act requires each of the 11 FHLBanks to establish an Affordable Housing Program (AHP) to provide 

financing for the construction, purchase, or rehabilitation 

of affordable housing for very low- and low- or moderateincome households. AHP subsidies must be used either to 

finance homeownership by households with incomes at 

or below 80 percent of the area median income or finance 

the purchase, construction, or rehabilitation of rental 

housing in which at least 20 percent of the units will be 

occupied by, and affordable to, households with incomes 

at or below 50 percent of the area median income. AHP 

applicants are FHLBank member financial institutions 

that pass the subsidy through to an eligible beneficiary in 

the form of subsidized advances or grants. Each FHLBank 

annually funds its AHP with 10 percent of its preceding 

year’s net earnings, subject to a minimum $100 million 

contribution by the FHLBank System as a whole. 

REPORT TO CONGRESS • 2015

SUPERVISION AND OVERSIGHT
50 FEDERAL HOUSING FINANCE AGENCY

In 2015, the FHLBanks made more than $269 million in 

AHP subsidies available nationwide (Figure 17). From 

1990, when AHP funds were first awarded, through 2015, 

the FHLBanks awarded approximately $5 billion in AHP 

subsidies and assisted over 791,000 households.

The FHLBanks under the AHP regulation (12 CFR Part 

1291) offer AHP subsidies through two programs. The 

first program is the mandatory competitive application 

program, under which the FHLBanks provide subsidized 

advances or grants to members on behalf of project 

sponsors for eligible projects. The second program is an 

optional homeownership set-aside program under which 

the FHLBanks disburse grants to members to provide 

assistance to homebuyers or homeowners. 

AHP Competitive Application Program

For the AHP competitive application program, the 

FHLBanks accept applications from members on behalf 

of project sponsors, typically nonprofit organizations or 

housing finance agencies. In 2014, over 90 percent of all 

of the units funded under the competitive application program were rental housing units (Figure 18).

AHP Homeownership Set-Aside Program

In addition to the competitive application program, a 

FHLBank may annually set aside up to the greater of 

$4.5 million or 35 percent of its statutorily-required AHP 

annual contribution to fund homeownership programs. 

In 2015, all 11 FHLBanks offered homeownership setaside programs for their members, with total funding of 

approximately $85 million.

At least one-third of a FHLBank’s annual aggregate 

set-aside allocation must be to assist low- or moderateincome first-time homebuyers. FHLBank members may 

also use set-aside funds to assist other low- or moderateincome households to purchase or rehabilitate a home.

The maximum permissible amount of set-aside subsidy 

per household is $15,000. In 2015, the average subsidy 

for all households participating in the set-aside program 

was $6,552. The most common use of set-aside assistance 

has been for down payment and closing cost assistance 

to borrowers. Since 2007, the number of set-aside grants 

used for owner-occupied home rehabilitation (such as 

lead-based paint removal, weather proofing, and acces2015 FHLBanks AHP Statutory Contributions

Source: Federal Housing Finance Agency

$ in Millions

$0

$50

$100

$150

$200

$250

$300

350

AHP Statutory Contributions

1990199219941996199820002002200420062008 2010 2012 2014 2015 

$350

Figure 17 • FHLBank AHP Statutory Contributions (1990-2015)

Source: Federal Housing Finance Agency. Data are current as of December 31, 2015
51

sibility retrofits) has trended up, from 215 to a high of 

1,642 in 2012. However, the number of these grants fell 

in 2015 to 1,253, from 1,560 grants in 2014.

AHP Used in Conjunction with Other Sources of 

Financing

The AHP is designed to work with a variety of other funding sources. As a result, the AHP is frequently used in 

conjunction with other sources of funding from federal, 

state or local housing programs, and charitable organizations. Unlike other housing programs in which, typically, 

the developer is the applicant for the subsidy, under the 

AHP a financial institution – a FHLBank member – is the 

applicant for funding. Depending on the proposed use 

of the subsidy, the member might provide, for example, a 

construction or permanent loan to a project or a mortgage 

to a homebuyer, or the member might pass through the 

FHLBank subsidy to a homeowner as a home repair grant. 

In all cases, the Bank Act requires that the AHP subsidy be 

passed on to the income-eligible beneficiary.

In 2015, approximately 68 percent of AHP projects 

received additional funding from federal programs (Figure 

19). The most frequent source of funding was low-income 

housing tax credits, which supported almost two-thirds 

of all approved rental housing applications. The HOME 

Investment Partnerships Program and the Community 

Development Block Grant Program were among the other 

programs used in conjunction with AHP funds.

REPORT TO CONGRESS • 2015

SUPERVISION AND OVERSIGHT

Rental

Housing Projects

Owner-Occupied

Housing Projects

Total 

Housing Projects

Total Number of Awarded Projects 379 128 507

Subsidy Awarded ($ in Millions) $210 $27 $237

Number of Housing Units 20,581 2,811 23,392

Average Subsidy per Unit $10,207 $9,554 $10,129

Number of Very Low-Income Housing Unitsa 14,709 1,560 16,269

Source: Federal Housing Finance Agency 

Data are current as of December 31, 2015 excluding AHP competitive application withdrawn projects. Dollars have been rounded.

a Very low-income is defined as households with incomes at or below 50 percent of the area median income.

Figure 18 • 2015 AHP Competitive Application Overview 

Community Development Block Grant Program 51

HOME Investment Partnerships Program 159

Low-Income Housing Tax Credit Program 249

Federal Housing Administration Programs 16

Other Federal Housing Programs 68

Projects Not Receiving Funding from Federal Sources 164

Source: Federal Housing Finance Agency 

Data are current as of December 31, 2015 excluding AHP competitive application withdrawn projects. The numbers add up to 

more than the total number of projects (507) because some projects receive federal funding from more than one source.

Figure 19 • Number of AHP Projects Approved in 2015 Receiving Federal Funds 
52 FEDERAL HOUSING FINANCE AGENCY

FHLBank Community Investment 

and Community Investment Cash 

Advance Programs

The FHLBanks’ Community Investment Programs (CIP) 

offer advances to FHLBank members at the cost of the 

FHLBanks’ consolidated obligations of comparable 

maturities, taking into account reasonable administrative costs. CIP funds may assist the financing of housing 

for households with incomes at or below 115 percent of 

area median income. CIP funds also may be used for economic development projects in low- and moderate-income 

neighborhoods or that benefit low- and moderate-income 

households. In 2015, the FHLBanks issued approximately 

$3.2 billion in CIP advances for housing projects and 

approximately $60.5 million for economic development 

projects. 

The FHLBanks’ Community Investment Cash Advance 

Program (CICA) offers low-cost, long-term advances or 

grants for members and housing associates, such as state 

and local housing finance agencies and economic development finance authorities, to finance targeted economic 

development projects. In 2015, the FHLBanks issued 

approximately $4 billion in CICA advances for community 

development projects such as commercial, industrial and 

manufacturing projects, social services, and public facilities.

CDFI Membership in FHLBanks

There are two types of Community Development 

Financial Institutions (CDFIs) that are eligible for membership in a FHLBank: federally insured depositories and 

non-depository CDFIs. Federally insured depositories, 

such as CDFI banks, have long been eligible for membership. More recently, HERA opened FHLBank membership 

to non-depository CDFIs that are certified by the Treasury 

Department’s CDFI Fund, such as community development loan funds. 

At the end of 2015, 41 non-depository CDFIs were members of the FHLBank System (Figure 20).

FHLBank Housing Goals

Under FHFA’s regulation (12 CFR Part 1281), the 

FHLBanks are subject to housing goals requirements based 

on the dollar volume of single-family loans purchased by 

the FHLBanks from their members through their Acquired 

Member Assets (AMA) programs. The housing goals measure the extent that the FHLBanks’ AMA programs serve 

low- and very low-income families and families residing in 

low-income areas. The housing goals are generally consistent with the single-family housing goals for Fannie Mae 

and Freddie Mac, but they take into account the unique 

characteristics of the FHLBanks.

In order for a FHLBank to be subject to these housing 

goals, the total unpaid principal balance of loans purchased through the AMA programs by the FHLBank must 

exceed $2.5 billion in a given year. This volume threshold 

ensures that a FHLBank has sufficient mortgage purchase 

volume for a housing goals assessment. In 2015, one 

FHLBank exceeded the $2.5 billion threshold, which is 

the first time this threshold has been exceeded since the 

regulation went into effect. Under the structure of FHFA’s 

current regulation, FHFA must wait until HMDA data is 

available to determine whether the housing goals were 

met at this FHLBank. FHFA is also in the process of evaluating alternatives to the current FHLBank housing goals 

requirements that would provide FHLBanks with advance 

notice of and greater certainty about each year’s housing 

goals expectations. 
REPORT TO CONGRESS • 2015 53

SUPERVISION AND OVERSIGHT

FHLBank CDFI Name City State

Atlanta Self-Help Ventures Fund Durham NC

Atlanta Community Housing Capital, Inc. Decatur GA

Atlanta Capital Impact Partners Arlington VA

Atlanta Enterprise Community Loan Fund, Inc. Columbia MD

Atlanta Florida Community Loan Fund Inc. Orlando FL

Atlanta Access to Capital for Entrepreneurs, Inc. Cleveland GA

Boston Coastal Enterprises, Inc. Wiscasset ME

Boston Massachusetts Housing Investment Corporation Boston MA

Boston Massachusetts Housing Investment Corporation, LLC Boston MA

Boston Community Concepts Finance Corporation Lewiston ME

Chicago IFF Chicago IL

Chicago Cinnaire Lending Corporation Chicago IL

Chicago Impact Seven, Inc. Almena WI

Cincinnati Community Ventures Corporation Lexington KY

Cincinnati Cincinnati Development Fund Cincinnati OH

Cincinnati Federation of Appalachian Housing Enterprises, Inc. Berea KY

Cincinnati Ohio Capital Finance Corporation Columbus OH

Dallas Rio Grande Valley Multibank Corporation Brownsville TX

Dallas Gulf Coast Renaissance Corporation Gulfport MS

Dallas Brazos Valley CDC, Inc. Bryan TX

Dallas The Louisiana Community Development Capital Fund Baton Rouge LA

Dallas Southern Bancorp Capital Partners Little Rock AR

Des Moines Neighborhood Finance Corporation Des Moines IA

Des Moines Idaho-Nevada Community Financial Development Institution, Inc. Filer ID

Des Moines Cook Inlet Lending Center, Inc. Anchorage AK

Des Moines Greater Minnesota Housing Fund Saint Paul MN

Indianapolis Metro Community Development, Inc. Flint MI

Indianapolis Indianapolis Neighborhood Housing Partnership, Inc. Indianapolis IN

Indianapolis Neighborhoods Inc. of Battle Creek Battle Creek MI

New York AAFE Community Development Fund, Inc. New York NY

New York The Community Development Trust, Inc. New York NY

Pittsburgh The Reinvestment Fund, Inc. Philadelphia PA

Pittsburgh Community First Fund Lancaster PA

San Francisco Clearinghouse Community Development Financial Inst Lake Forest CA

San Francisco Century Housing Corporation Culver City CA

San Francisco Low Income Investment Fund San Francisco CA

San Francisco Raza Development Fund, Inc. Phoenix AZ

San Francisco Northern California Community Loan Fund San Francisco CA

San Francisco Genesis LA Economic Growth Corporation Los Angeles CA

Topeka MetaFund Corporation Oklahoma City OK

Topeka Mercy Loan Fund Denver CO

Figure 20 • 2015 Non-Depository CDFI Members of the Federal Home Loan Bank System 

Source: Federal Housing Finance Agency. Data are current as of December 31, 2015
54 FEDERAL HOUSING FINANCE AGENCY

Regulatory 

Guidance

I

n 2015, FHFA issued 27 proposed rules, final 

rules, regulatory interpretations, policy guidance 

documents, and regulatory orders. This regulatory 

guidance supports FHFA’s mission as regulator of the 

FHLBanks and as regulator and conservator of Fannie Mae 

and Freddie Mac. 

The following tables summarize the proposed rules, final 

rules, regulatory interpretations, regulatory guidance, and 

regulatory orders. The tables also indicate if a proposed 

rule or policy guidance has been adopted in final form 

since the proposal was published.

More extensive information about each of these items 

can be found on the Agency’s website at www.FHFA.gov. 

FHFA has also published the listed regulations in the 

Federal Register.

Proposed Regulations • Regulated Entities 

(Enterprises and/or Federal Home Loan Banks)

Rule/Regulation Title Reference Date

(2015) Description/Explanation/Comments

 Enterprise Duty to Serve 

Underserved Markets 

Proposed Rule

80 FR 

79181; 12 

CFR Part 

1282

December 

18

This proposed rule would establish a manner for evaluating Enterprise compliance with their 

duty to serve underserved markets. Under the duty to serve, the Enterprises are required to 

serve three specified underserved markets—manufactured housing, affordable housing preservation, and rural markets—to increase the liquidity of mortgage investments and improve 

the distribution of investment capital available for mortgage financing for very low-, low-, and 

moderate-income families in those markets. The proposed rule would provide duty to serve 

credit for eligible Enterprise activities that facilitate a secondary market for mortgages, including activities related to: manufactured homes titled as real property; blanket loans for certain 

categories of manufactured housing communities; preserving the affordability of housing for 

renters and homebuyers; and housing in rural markets.

Acquired Member Assets

80 FR 

78689; 12 

CFR Part 

1201 and 

1268

December 

17

This proposed rule would delete provisions in the current regulation that reference or otherwise rely on credit ratings issued by a Nationally Recognized Statistical Ratings Organization 

and replace those provisions, where necessary, with new provisions based on other appropriate creditworthiness standards. The proposed rule would also restructure and simplify the 

current Acquired Member Assets (AMA) regulation and remove certain provisions that no 

longer apply to the FHLBanks' AMA activity. 

Proposed Amendments 

to the Stress Testing Rule

80 FR 

50805; 12 

CFR Part 

1238

August 21 See Final Regulations table; adopted in final form on November 24.
REPORT TO CONGRESS • 2015 55

SUPERVISION AND OVERSIGHT

Proposed Regulations • Federal Housing Finance Agency

Rule/Regulation Title Reference Date

(2015) Description/Explanation/Comments

Program Fraud Civil 

Remedies Act

80 FR 

79719; 12 

CFR Part 

1217

December 

23

This proposed rule would implement the Program Fraud Civil Remedies Act of 1986 by 

establishing administrative procedures for imposing civil penalties and assessments against 

persons who make false, fictitious, or fraudulent claims or written statements to FHFA in the 

context of its contracting or employment activities, where the amount of money or the value 

of property or services involved or requested from FHFA is $150,000 or less.

Final Regulations • Regulated Entities 

(Enterprises and/or Federal Home Loan Banks) 

Rule/Regulation Title Reference Date

(2015) Description/Explanation/Comments

Suspended Counterparty 

Program

80 FR 

79675; 12 

CFR Part 

1227

December 

23

This regulation adopted, with changes, an interim final rule that established requirements and 

procedures for FHFA’s Suspended Counterparty Program. Under the Suspended Counterparty 

Program, FHFA may issue suspension orders directing the regulated entities to cease doing 

business with an individual or institution, and any affiliate thereof, for a specified period 

of time or permanently when such party has engaged in covered misconduct that involves 

fraud, embezzlement, theft, conversion, forgery, bribery, perjury, making false statements or 

claims, tax evasion, obstruction of justice, or any similar offense that took place in connection 

with a mortgage, mortgage business, mortgage securities, or other lending product – and is 

supported by factual determinations by another government entity, whether in the form of a 

conviction or administrative sanction. 

The regulation went into effect on January 22, 2016.

Margin and Capital 

Requirements for 

Covered Swap Entities

80 FR 

74839; 12 

CFR Part 

1221

November 

30

This regulation – which was adopted jointly by FHFA, the Office of the Comptroller of the 

Currency, the Board of Governors of the Federal Reserve System, the Federal Deposit 

Insurance Corporation, and the Farm Credit Administration (the agencies) – established minimum margin and capital requirements for registered swap dealers, major swap participants, 

security-based swap dealers, and major security-based swap participants for which one of 

the agencies is the prudential regulator. This regulation implements sections 731 and 764 of 

the Dodd-Frank Act. These provisions require the agencies to jointly adopt rules establishing 

capital requirements and initial and variation margin requirements for such entities and their 

counterparties on all non-cleared swaps and non-cleared security-based swaps in order to 

offset the greater risk to such entities and the financial system arising from the use of swaps 

and security-based swaps that are not cleared.

The regulation went into effect April 1, 2016.

Margin and Capital 

Requirements for 

Covered Swap Entities

80 FR 

74915; 12 

CFR Part 

1221

November 

30

This regulation, an interim final rule, was adopted by the Office of the Comptroller of the 

Currency, the Board of Governors of the Federal Reserve System, the Federal Deposit 

Insurance Corporation, the Farm Credit Administration and FHFA and invited comment on 

provisions that will exempt certain non-cleared swaps and non-cleared security-based swaps 

with certain counterparties that qualify for an exception or exemption from clearing from the 

initial and variation margin requirements promulgated under sections 731 and 764 of the 

Dodd-Frank Act. 

The regulation went into effect on April 1, 2016.
56 FEDERAL HOUSING FINANCE AGENCY

Final Regulations • Regulated Entities 

(Enterprises and/or Federal Home Loan Banks) CONTINUED

Rule/Regulation Title Reference Date

(2015) Description/Explanation/Comments

Final Amendments to 

Stress Testing Rule

80 FR 

73090; 12 

CFR Part 

1238

November 

24

This regulation amends the stress test regulation that FHFA adopted in 2013 to implement 

section 165(i) of the Dodd-Frank Act. The amendments modify the start date of the stress 

test cycles from October 1 of a calendar year to January 1 of the following calendar year. The 

amendments also modify the dates for FHFA to issue scenarios for the upcoming cycle, the 

dates for the regulated entities to report the results of their stress tests to FHFA, and the dates 

for the regulated entities to publicly disclose a summary of their stress test results for the 

severely adverse scenario.

The regulation went into effect on January 1, 2016.

Responsibilities of Boards 

of Directors, Corporate 

Practices and Corporate 

Governance Matters

80 FR 

72327; 12 

CFR Parts 

1236, 

1239

November 

19

This regulation relocates and consolidates prior regulations of FHFA’s predecessor agencies—the Federal Housing Finance Board (Finance Board) and Office of Federal Housing 

Enterprise Oversight (OFHEO)—that pertain to the responsibilities of boards of directors, corporate practices, and corporate governance matters. The OFHEO regulations addressed corporate governance matters at the Enterprises, while the Finance Board regulations addressed 

corporate governance matters at the FHLBanks. The final rule consolidates most of those 

regulations into a new FHFA regulation, parts of which apply to both the FHLBanks and the 

Enterprises, and parts of which apply only to the FHLBanks or only to the Enterprises. 

The regulation went into effect on December 21.

2015-2017 Enterprise 

Housing Goals

80 FR 

53392; 12 

CFR Part 

1282

September 

3

This regulation implements requirements of the Safety and Soundness Act for FHFA to establish annual housing goals for mortgages purchased by the Enterprises. 

The final rule: establishes the benchmark levels for each of the housing goals and subgoals 

for 2015 through 2017; establishes a new housing subgoal for small multifamily properties 

affordable to low-income families; adds or revises a number of other provisions in the housing goals regulation in order to provide greater clarity about the mortgages that will qualify for 

the goals or subgoals; makes a number of clarifying and conforming changes which include 

changes for determining affordability of both single-family and multifamily units; establishes 

more transparent agency procedures for FHFA guidance on the housing goals; and discusses 

FHFA’s plans to require more detailed Enterprise reporting to FHFA on the Enterprises' purchases of mortgages on single-family rental housing.

The regulation went into effect on October 5.

Federal Home Loan Bank 

Community Support 

Program-Administrative 

Amendments

80 FR 

30336; 12 

Part CFR 

1290

May 28

This regulation amends FHFA’s Community Support Regulation to streamline and simplify the 

administrative process requirements under the regulation. The amendments replace the prior 

process of selecting one-eighth of all applicable members for eight quarterly reviews by FHFA 

over a two-year review cycle, with a new process of FHFA reviewing all applicable members 

at the same time every two years.

The regulation went into effect on June 29.

79 FR 

4394; 12 

CFR Part 

1231

January 28

This regulation amends the Golden Parachute Payments regulation that FHFA published in 

2009, and addresses prohibited and permissible golden parachute payments to entity-affiliated parties in connection with the regulated entities.

The regulation went into effect on February 27.
REPORT TO CONGRESS • 2015 57

SUPERVISION AND OVERSIGHT

Final Regulations • Regulated Entities 

(Enterprises and/or Federal Home Loan Banks) CONTINUED

Policy Subject Reference Date

(2015) Description/Explanation/Comments

Minimum Requirements 

for Appraisal 

Management Companies

80 FR 

32687; 12 

CFR Part 

1222

June 9

This rule, adopted jointly by FHFA, the Office of the Comptroller of the Currently, the Board 

of Governors of the Federal Reserve System, the Federal Deposit Insurance Corporation, the 

National Credit Union Administration, and the Consumer Financial Protection Bureau, implements the minimum requirements in the Dodd-Frank Act to be applied by states in the registration and supervision of appraisal management companies. The regulation also implements 

the requirement in the Dodd-Frank Act for states to report to the Appraisal Subcommittee 

of the Federal Financial Institutions Examination Council the information required by the 

Appraisal Subcommittee to administer the new national registry of appraisal management 

companies. 

The regulation went into effect on August 10.

Housing Trust Fund

80 FR 

15885; 12 

CFR Part 

1251

March 26

This regulation relates to allocations by the Enterprises to the Housing Trust Fund and Capital 

Magnet Fund created by HERA. Specifically, the rule implements a statutory prohibition 

against the Enterprises passing the cost of such allocations through to the originators of loans 

the Enterprises purchase or securitize. 

The regulation was issued on March 26 to finalize and continue an interim final rule FHFA first 

issued on December 16, 2014.

Federal Home Loan Bank 

Capital Stock and Capital 

Plans

80 FR 

12753; 12 

CFR Part 

1277

March 11

This regulation transfers existing parts 931 and 933 of the Finance Board regulations, which 

address requirements for FHLBank capital stock and capital plans, to new Part 1277 of the 

FHFA regulations. The regulation did not make any substantive changes to these requirements.

The regulation went into effect on April 10.
58 FEDERAL HOUSING FINANCE AGENCY

Regulatory Interpretations • Regulated Entities 

(Enterprises and/or Federal Home Loan Banks) and the Office of Finance

Policy Subject Reference Date

(2015) Description/Explanation/Comments

Transfer of Mortgage 

Servicing Rights under 

the Acquired Member 

Asset Regulations

2015-RI01 June 23

The AMA regulation allows an FHLBank to authorize the transfer of mortgage servicing rights 

for loans purchased under an AMA program to a non-member of the Federal Home Loan Bank 

System, including to an entity that is not eligible for membership. The AMA regulation does 

not specifically address servicing requirements, and nothing in the rule specifically prohibits 

the transfer of servicing rights to a non-member of the Federal Home Loan Bank System. 

Thus, so long as the transfer is accomplished in such a way that the associated mortgage 

loans continue to comply with the requirements in the AMA regulation, including the creditenhancement requirements, an FHLBank may allow the transfer of servicing rights to an entity 

that is not a member of the Federal Home Loan Bank System.
REPORT TO CONGRESS • 2015 59

SUPERVISION AND OVERSIGHT

Policy Guidance • Regulated Entities 

(Enterprises and/or Federal Home Loan Banks) and the Office of Finance

Policy Subject Reference Date

(2015) Description/Explanation/Comments

Advisory Bulletin on 

Fraud Risk Management

AB 2015-

07 September 29

Communicates FHFA’s supervisory expectations to the Enterprises for fraud risk management, including the establishment and maintenance of internal controls to prevent, 

deter, and detect fraud or possible fraud

Advisory Bulletin 

on Information 

Technology 

Investment 

Management

AB 2015-

06 September 21

Communicates FHFA’s supervisory expectations that each Enterprise’s information technology management will include sound governance and effective monitoring and reporting that reflect relevant risk assessments of the Enterprise.

Advisory Bulletin on 

Federal Home Loan 

Bank Core Mission 

Achievement

AB 2015-

05 July 14

Communicates FHFA’s supervisory expectations to the FHLBanks on core mission 

achievement, in conjunction with FHFA’s Advisory Bulletin 2010-AB-02, Strategic Plans. 

This Advisory Bulletin also describes how FHFA will assess the FHLBanks’ core mission 

achievement, as well as FHFA’s expectations about the content of the strategic plans for 

the FHLBanks with core mission assets below specified levels. 

Advisory Bulletin on 

Federal Home Loan 

Bank Unsecured Credit 

Exposure Reporting

AB 2015-

04 June 26

Communicates FHFA’s supervisory expectations to the FHLBanks and the OF on fulfilling 

the FHFA’s regulations that pertain to reporting requirements and monitoring requirements. Also described are changes to the manner in which unsecured credit exposures 

are to be reported. 

This Advisory Bulletin replaced and superseded the 2002 Finance Board guidance on 

unsecured credit reporting requirements.

Advisory Bulletin on 

Rescission of Division 

of Enterprise Regulation 

Guidance Documents

AB 2015-

03 March 26

Rescinds five examination guidance documents issued between 2000 and 2008 by 

the Office of Federal Housing Enterprise Oversight relating to the examination of the 

Enterprises.

Advisory Bulletin 

on Enterprise Fraud 

Reporting

AB 2015-

02 March 26

Communicates FHFA’s guidance on fraud reporting requirements for the Enterprises.

This Advisory Bulletin rescinds and replaces FHFA’s 2011 Regulatory Policy Guidance 

relating to Reporting of Fraudulent Financial Instruments as it applies to the Enterprises.

Advisory Bulletin on 

FHLBank Fraud Reporting

AB 2015-

01 February 12

Communicates FHFA’s guidance on fraud activity reporting for the FHLBanks. 

This Advisory Bulletin rescinds and replaces FHFA's 2011 Regulatory Policy Guidance 

relating to Reporting of Fraudulent Financial Instruments as it applies to the FHLBanks. 
60 FEDERAL HOUSING FINANCE AGENCY

Policy Guidance • Federal Housing Finance Agency

Policy Subject Reference Date

(2015) Description/Explanation/Comments

FHFA Examination 

Manual

The FHFA Examination Manual, first published in 2013, comprises an overview of the examination process and 25 modules that provide examination instructions and work programs 

organized by risk category or line of business or activity. The examination manual serves as a 

reference tool and describes standards and expectations for the examinations of the regulated 

entities. 

On June 25, FHFA issued the Bank Secrecy Act/Anti-Money Laundering Program and the 

Office of Foreign Assets Control Compliance supplemental examination modules for field testing. Supplemental examination modules complement the modules in the FHFA Examination 

Manual.

Regulatory Orders

Policy Subject Reference Date

(2015) Description/Explanation/Comments

Reporting by 

Regulated Entities of 

Stress Testing Results 

2015–

OR–B–1 June 10

Stress tests, required by the Dodd-Frank Act, are designed to determine whether the regulated entities have the capital necessary to absorb losses under adverse economic conditions. 

This Order supplements the November 26, 2013 Orders requiring annual stress testing and 

reporting of results in 2014 under FHFA’s final stress testing regulation (12 CFR Part 1238). 

The Order directs the FHLBanks to use a revised public disclosure template for publicly 

disclosing the severely adverse stress testing scenario results as of September 30, 2014. 

The revised template replaces the template initially issued on November 14, 2014 and will 

enhance the transparency of each FHLBank’s public disclosure.
REPORT TO CONGRESS • 2015 61

SUPERVISION AND OVERSIGHT

Legislative 

Recommendations

Housing Finance Reform – The Enterprises have been 

in conservatorships since September 2008, through a 

severe financial crisis and now into an extended economic 

recovery. These lengthy, ongoing conservatorships are 

unprecedented in duration and scope. FHFA continues to 

believe that conservatorship is not a desirable end state, 

and that Congress needs to undertake the important work 

of housing finance reform.

Barriers to Investor Participation in Credit Risk 

Transfer Transactions – Under FHFA’s annual conservatorship scorecards, the Enterprises are working to 

transfer credit risk to the private sector for a significant 

proportion of the loans they guarantee. This credit risk 

transfer market is relatively new and evolving and relies on 

ongoing investor interest and ability to purchase the credit 

risk. FHFA has previously identified several statutory 

impediments that, if addressed, could avoid unintended 

consequences for some types of investors and thus help 

to expand investor participation in Enterprise credit risk 

transfer transactions. 

Examination of Regulated Entity Counterparties –

FHFA’s regulated entities contract with third parties to 

provide critical services supporting the secondary mortgage market, including nonbank mortgage servicers for 

the Enterprises. While oversight of these counterparties 

is important to safety and soundness of FHFA’s regulated 

entities, it is currently exercised only through contractual 

provisions where possible. In contrast, other federal 

safety and soundness regulators have statutory authority 

to examine companies that provide services to depository 

institutions through the Bank Service Company Act. The 

Government Accountability Office has recommended 

granting FHFA the authority to examine third parties that 

do business with the Enterprises.32 The Financial Stability 

Oversight Council also made a similar recommendation 

in its 2015 Annual Report. FHFA concurs with these recommendations.

32 See GAO Report 16-278, Nonbank Mortgage Servicers: Existing Regulatory Oversight Could Be Strengthened, public released April 11, 2016.
Research and Publications

Reports to Congress

House Price Index

Public Use Database

Historical Database (MIRS)

National Mortgage Database Project

Research Publications 

62 FEDERAL HOUSING FINANCE AGENCY
REPORT TO CONGRESS • 2015 63

RESEARCH AND PUBLICATIONS

During 2015, FHFA published several reports 

required by statute, as well as research papers 

related to housing and market conditions. 

Reports and publications are posted on FHFA’s website at 

www.FHFA.gov.

Reports to Congress

Pursuant to requirements under federal law, including 

HERA and the Dodd-Frank Act, FHFA submitted several 

annual reports to Congress in 2015. Additionally, FHFA 

submitted monthly reports relating to the number of loan 

modifications and other foreclosure prevention activities 

of the Enterprises.

Guarantee Fee Study

HERA requires FHFA to conduct an ongoing study of the 

guarantee fees charged by Fannie Mae and Freddie Mac. 

In June, FHFA released its seventh annual guarantee-fee 

study report. The report covers 2014 and examines the 

fees charged by the Enterprises guaranteeing conventional 

single-family mortgages, including the amount of these 

fees and the criteria used to determine them. The report 

utilized aggregated data collected from the Enterprises.

Annual Housing Report

FHFA submitted its seventh Annual Housing Report to 

Congress in October, which detailed Enterprise housing goals performance in 2014 as well as information on 

other aspects of the Enterprises’ purchase activities.

FHLBank Advance Collateral Study

HERA requires FHFA to submit to Congress an annual 

report on the collateral pledged to the Federal Home Loan 

Banks by collateral type and by each individual FHLBank.

In September, FHFA released its seventh Report on 

Collateral Pledged to the Federal Home Loan Banks based on 

the results of its annual FHLBank Collateral Data Survey.

No FEAR Act Report

The Notification and Federal Employee Antidiscrimination 

and Retaliation Act of 2002 (No FEAR Act) requires that 

federal agencies be publicly accountable for violations of 

antidiscrimination and whistleblower protection laws. 

Federal agencies must post both quarterly and annual statistical data relating to federal sector Equal Employment 

Opportunity complaints on their public websites, reimburse the Treasury Department Judgment Fund for any 

payments made, and notify employees and applicants 

for employment about their rights under the federal antidiscrimination and whistleblower laws. In March, FHFA 

published the No Fear Act Annual Report to Congress, covering fiscal years 2011–2015.

OMWI Annual Report

The Dodd-Frank Act requires most federal financial regulators to establish an Office of Minority and Women 

Inclusion (OMWI). FHFA’s OMWI is responsible for 

leading the Agency’s efforts to advance diversity and inclusion and developing standards for: 1) Equal Employment 

Opportunity and the racial, ethnic, and gender diversity 

of the Agency’s workforce and senior management of the 

Agency; 2) increased participation of minority- and women-owned businesses in Agency programs and contracts; 

and 3) assessing the diversity policies and practices of entities regulated by the Agency

FHFA must also comply with Section 1116(f) of HERA, 

which requires the Agency to seek diversity in its workforce, at all levels, consistent with the demographic diversity of the United States. In March, FHFA submitted an 

annual Report to Congress detailing the activities of FHFA’s 

OMWI during the calendar year.

Federal Property Manager’s Report/Foreclosure 

Prevention Report

The Emergency Economic Stabilization Act of 2008 directs 

Federal Property Managers (FPM) to develop and implement plans to maximize assistance for homeowners 

and encourage servicers of underlying mortgages to take 

63
64 FEDERAL HOUSING FINANCE AGENCY

advantage of programs to minimize foreclosures. Each 

FPM is also required to report to Congress the number 

and types of loan modifications and the number of foreclosures during the reporting period. FHFA is a designated 

FPM in its role as conservator for Fannie Mae and Freddie 

Mac. FHFA delivered monthly and quarterly FPM reports 

to Congress throughout the course of 2015.

House Price Index

FHFA further enhanced its suite of publicly available 

house price indexes in 2015. In February, it initiated the 

release of a series of home price indexes for three-digit ZIP 

codes. Such indexes show price trends for homes having 

the same first three digits in their respective five digit ZIP 

codes. Because some mortgage datasets provide only the 

three-digit ZIP code associated with the collateral property, analyzing relevant home price trends and mortgage 

default risks is facilitated by such measures.

FHFA’s publication of its other types of home price indexes—for instance, its “all-transactions,” “purchase-only,” 

and “expanded-data” measures—continued in 2015. Such 

measures are estimated using different underlying datasets, 

but all provide measures of price movements for various 

geographic areas.

In May, FHFA sent to the Federal Register a Notice and 

Request for Input on whether the Agency should use its 

“expanded data” house price index as the basis for adjusting the Enterprises’ conforming loan limits. The input 

period closed 60 days after publication of the Notice and 

in October FHFA sent a Final Notice to the Federal Register

indicating its intent to use the “expanded data” house 

price index when setting maximum conforming loan limits.

Public Use Database

The Safety and Soundness Act requires FHFA to make 

available to the public loan-level data submitted by the 

Enterprises in the reports required under section 309(m) 

of Fannie Mae’s Charter Act and section 307(e) of Freddie 

Mac’s Charter Act, except for certain proprietary information and personally identifiable information. FHFA 

is required to make publicly available Enterprise data 

elements analogous to those required to be reported by 

mortgage originators under HMDA at the census tract 

level. The Safety and Soundness Act also requires FHFA 

to make public certain high-cost securitized loan data it 

collects to compare the characteristics of high-cost loans 

the Enterprises purchase and securitize. FHFA is required 

to release the data by September 30 of the year following 

the year the mortgages were acquired by the Enterprises. 

During 2015, FHFA released this 2014 data to the public 

through its Public Use Database.

Historical Database (MIRS)

Every month FHFA conducts the Monthly Interest Rate 

Survey (MIRS) by asking a sample of mortgage lenders to 

report the terms and conditions on all single-family, fullyamortized, purchase-money, non-farm loans that they 

closed during the last five business days of the month. 

MIRS excludes FHA-insured and VA-guaranteed loans, 

multifamily loans, mobile home loans, and loans created 

by refinancing another mortgage. FHFA collects and consolidates this data and then makes available to the public 

monthly information on interest rates, loans terms, and 

house prices by property type (all, new, previously occupied), and by loan type (fixed- or adjustable-rate), as well 

as information on 15-year and 30-year fixed-rate loans. In 

addition, quarterly information on conventional loans by 

major metropolitan area and by FHLBank district is also 

published. FHFA also publishes annual and monthly data 

from 1973 to 2015 on its website.

National Mortgage Database 

Project

The National Mortgage Database (NMDB) project is a 

multi-year project being jointly undertaken by FHFA and 

the Consumer Financial Protection Bureau. The project 

is designed to provide a source of information about the 

64
REPORT TO CONGRESS • 2015 65

CHAPTER TITLE

U.S. mortgage market based on a five percent sample of 

residential mortgages. It has two primary components: 

(1) the NMDB; and (2) the quarterly National Survey of 

Mortgage Originations (NSMO).33

The NMDB will enable FHFA to meet the statutory 

requirements of HERA to conduct a monthly mortgage 

market survey. Specifically, FHFA must, through a survey 

of the mortgage market, collect data on the characteristics of individual mortgages, including those eligible for 

purchase by Fannie Mae and Freddie Mac and those that 

are not, and including subprime and nontraditional mortgages. In addition, FHFA must collect information on the 

creditworthiness of borrowers, including a determination 

of whether subprime and nontraditional borrowers would 

have qualified for prime lending. 

In August, FHFA published Technical Report 15-01 and 

Technical Report 15-02. The former is designed to provide 

users of the NMDB data with background on the development of the database, as well as an assessment of the quality of its data. The latter provides background details on 

how the NSMO was developed.

Research Publications

FHFA’s strong tradition of conducting research into housing and mortgage market trends and conditions continued in 2015. During the year, the Agency released three 

Working Papers and one other Agency publication.

FHFA Working Paper 15-1: How Low Can House Prices Go? 

Estimating a Conservative Lower Bound. This paper develops 

a theoretically-based statistical technique to identify a 

conservative lower bound for house prices. Leveraging a 

model based upon consumer and investor incentives, the 

paper explains the depth of housing market downturns at 

both the national and state level over a variety of market 

environments. A revised version of this paper was accepted for publication by the Journal of Real Estate Finance and 

Economics and was selected as best paper in 2015 on real 

estate cycles by the American Real Estate Society.

FHFA Working Paper 15-2: The Marginal Effect of First-Time 

Homebuyer Status on Mortgage Defaults. This paper examines the loan performance of Fannie Mae and Freddie Mac 

first-time homebuyer mortgages originated from 1996 to 

2012. First-time homebuyer mortgages generally perform 

worse than repeat homebuyer mortgages. But first-time 

homebuyers are younger and have lower credit scores, 

home equity, and income than repeat home-buyers, 

and therefore are comparatively less likely to withstand 

financial stress or take advantage of financial innovations 

available in the market. Once these distributional differences are accounted for in an econometric model, there 

is virtually no difference between the average first-time 

and repeat home-buyers in their probabilities of mortgage 

default. Hence, the difference between the first-time and 

repeat homebuyer mortgage defaults can be attributed to 

the difference in the distributional make-up of the two 

groups and not to the premise that first-time homebuyers 

are an inherently riskier group.

FHFA Working Paper 15-3: Additional Market Risk Shocks: 

Prepayment Uncertainty and Option-Adjusted Spreads. This 

paper describes an empirical framework for generating 

shocks to prepayment rates and mortgage security optionadjusted spreads, which are consistent with simultaneous 

movements in other key risk factors, including the term 

structure of interest rates and implied volatility. The prepayment rate shocks capture model misspecification and 

are calculated using historical performance data from multiple vendor prepayment models. 

The final publication, The Size of the Affordable Mortgage 

Market: 2015-2017 Enterprise Single-Family Housing Goals, 

documents the methodology FHFA used to estimate market size when establishing benchmarks for the 2015, 2016, 

and 2017 single-family mortgage housing goals for Fannie 

Mae and Freddie Mac.

65

RESEARCH AND PUBLICATIONS

33 The National Survey of Mortgage Originations was originally called the National Survey of Mortgage Borrowers.
FHFA Operations 

and Performance

Performance and Program 

Assessment

Financial Operations

66 FEDERAL HOUSING FINANCE AGENCY
REPORT TO CONGRESS • 2015 67

FHFA OPERATIONS AND PERFORMANCE

Performance and Program 

Assessment

During fiscal year (FY) 2015,34 FHFA operated 

under its Strategic Plan: Fiscal Years 2015-2019

(FY 2015-2019 Strategic Plan) that was released 

November 21, 2014. The plan set three strategic goals:

1. Ensure safe and sound regulated entities; 

2. Ensure liquidity, stability and access in housing 

finance; and

3. Manage the Enterprises ongoing conservatorships.

FHFA’s FY 2015-2019 Strategic Plan reflects the Agency’s 

priorities as regulator of the Federal Home Loan Bank 

System and as regulator and conservator of the Enterprises. 

The plan also reflects the priorities outlined for the 

Enterprises in the 2014 Conservatorship Strategic Plan, 

which the Agency released in May 2014.

On November 16, 2015, FHFA published its annual 

Performance and Accountability Report (PAR), detailing the 

Agency’s performance and achievements for FY 2015. The 

PAR reports on FHFA’s performance on 24 performance 

measures established for FY 2015 to help evaluate FHFA’s 

progress toward these strategic goals. FHFA met 22 performance measures (92 percent) and did not meet two (8 

percent) out of the 24 performance measures. 

Upon reviewing the Agency’s PAR, the Association of 

Government Accountants awarded FHFA the Certificate 

of Excellence in Accountability Reporting (CEAR) for the 

eighth consecutive year. The CEAR award is presented to 

agencies that have demonstrated excellence in integrating 

performance and accountability reporting. Only agencies 

with unqualified opinions on their financial reports from 

an independent auditor are eligible for the award. 

Financial Operations

Financial Highlights

HERA authorizes FHFA to collect annual assessments 

from its regulated entities to pay its costs and expenses 

and maintain a working capital fund. In FY 2015, FHFA 

had $330.8 million in total budgetary resources: $241.435

million in assessments, $30.9 million in unobligated balance brought forward from FY 2014, and $7.8 million 

in recoveries of prior year unpaid obligations and $50.7 

million in spending authority from offsetting collections. 

Obligations incurred increased $1.2 million to $301.2 

million in FY 2015. Gross outlays, including expenses 

incurred by FHFA’s OIG, decreased $0.4 million to $292.5 

million in FY 2015. 

34 FHFA’s fiscal year 2015 extended from October 1, 2014 through September 30, 2015.

35 FHFA assessments are made to fund the current budget of the Agency and the Office of Inspector General (OIG). For FY 2015, this amount is the sum of FHFA’s budget of $199.7 

million and FHFA-OIG’s budget of $48 million, less unobligated funds of $6.4 million from the end of the prior year.

Figure 21 • FHFA Financial Highlights

$ IN MILLIONS FY 2015 FY 2014 Variance

Total Budgetary Resources $ 330.8 $ 330.9 -0.0%

Assessments $ 241.4 $ 234.9 2.8%

Balance Forward $ 30.9 $ 39.4 -21.6%

Offsetting Collections $ 50.7 $ 46.3 9.5%

Recoveries of Prior Year 

Unpaid Obligations $ 7.8 $ 10.2 -23.5%

Obligations Incurred $ 301.2 $ 300.0 0.4%

Gross Outlays $ 292.5 $ 292.9 -0.1%

Source: Federal Housing Finance Agency 
68 FEDERAL HOUSING FINANCE AGENCY

Federal Management System and Strategy

HERA requires FHFA to implement and maintain financial 

management systems that comply substantially with federal financial management systems requirements, applicable 

federal accounting standards, and the U.S. Government 

General Ledger at the transaction level. 

FHFA, including FHFA OIG, uses the Treasury 

Department’s Bureau of the Fiscal Services for its accounting services and financial management system (FMS). 

FHFA is responsible for overseeing the Bureau of the 

Fiscal Services’ performance of accounting services for 

the Agency. Additionally, during FY 2015 FHFA used 

the National Finance Center (a service provider within 

the Department of Agriculture) and the Interior Business 

Center (a service provider within the Department of 

Interior) for its payroll and personnel processing. The 

Agency has streamlined accounting processes by electronically interfacing data from charge cards, investment activities, the Concur travel system, the PRISM procurement 

system, the Invoice Processing Platform payments system, 

the National Finance Center payroll system, and the 

Interior Business Center payroll system to FMS.

Unmodified Audit Opinions in FY 2015

For the eighth consecutive year, FHFA received an unmodified (clean) opinion on its financial statements from the 

U.S. Government Accountability Office (GAO). GAO 

found:

• The FHFA financial statement as of and for 

the fiscal years ending September 30, 2015, 

and 2014, were presented fairly, in all material 

respects, in accordance with U.S. generally 

accepted accounting principles;

• FHFA maintained, in all material respects, 

effective internal control over financial reporting 

as of September 30, 2015; and 

• No reportable noncompliance for fiscal year 2015 

with provisions of applicable laws, regulations, 

contracts, and grant agreements they tested. 

FHFA’s OIG contracted with an independent audit firm to 

conduct the FY 2015 FISMA audit of the FHFA information security program. The auditors determined that FHFA 

has sound controls for its information security program. 

In addition, the FHFA OIG concluded that FHFA was generally compliant with FISMA, other federal legislation, and 

applicable guidance from the Office of Management and 

Budget.

“For the eighth consecutive 

year, FHFA received an 

unmodified (clean) opinion 

on its financial statements 

from the U.S. Government 

Accountability Office.”
REPORT TO CONGRESS • 2015 69

FHFA OPERATIONS AND PERFORMANCE
70 FEDERAL HOUSING FINANCE AGENCY
71

Federal Housing Finance Oversight 

Board Assessment June 2016

Section 1103 of the Housing and Economic Recovery Act (HERA) of 2008 requires that the 

Federal Housing Finance Agency (FHFA) Director’s Annual Report to Congress (Annual Report) 

include an assessment of the Federal Housing Finance Oversight Board or any of its members 

with respect to: 

• The safety and soundness of the regulated entities;

• Any material deficiencies in the conduct of the operations of the regulated entities;

• The overall operational status of the regulated entities; and

• An evaluation of the performance of the regulated entities in carrying out their 

respective missions. 

FHFA’s Annual Report provides a detailed review of the issues for Fannie Mae and Freddie Mac (the 

Enterprises) and the Federal Home Loan Bank (FHLBank) System as a basis for this assessment.

Enterprises

The Enterprises continue to operate under conservatorship, as they have since 2008. The U.S. 

Department of the Treasury (Treasury Department) continues to provide the Enterprises with financial 

support through the Senior Preferred Stock Purchase Agreements (PSPAs) that were agreed to at the time 

the Enterprises entered conservatorship. Through year-end 2015, the Enterprises’ cumulative draws 

under the PSPAs totaled $187.5 billion, and the Enterprises had paid $241.3 billion in cumulative cash 

dividends to the Treasury Department. Under the terms of the PSPAs, the payment of dividends does not 

offset or pay down prior draws from the Treasury Department by the Enterprises. The Enterprises continue to operate with a commitment of financial support from the Treasury Department under the PSPAs 

of $258 billion. 

In 2015, the Enterprises generated net income of $17.3 billion, down from $21.9 billion in 2014. The 

decline in the Enterprises’ 2015 earnings reflects reduced litigation settlement income relative to the prior 

year. The Enterprises’ 2015 earnings also reflect fair value losses on derivatives used to manage interest 

rate risk due to declines in longer term interest rates. Each Enterprise continues to have a significant but 

declining exposure to credit losses from mortgages originated in the several years prior to conservatorship. Revenue from guarantee fees has made up an increasing portion of the Enterprises’ net interest 

income in recent years as their net interest income from their retained mortgage portfolios continued 

to decline. 

REPORT TO CONGRESS • 2015

FEDERAL HOUSING FINANCE OVERSIGHT BOARD ASSESSMENT
72

The conservatorships of the Enterprises, combined with the Treasury Department’s commitment of 

financial support, have stabilized the Enterprises. Higher-risk mortgage products, such as no-income 

documentation or interest-only mortgages, have been eliminated from the Enterprises’ new guarantees. 

However, the Enterprises must continue to carefully manage their credit, counterparty, market (or interest rate), and operational risks. Credit risk management remains a priority for both Enterprises given 

the significant remaining legacy distressed assets and ongoing stress in certain housing markets. In addition, counterparty risk remains an area of concern, especially given the evolving changes in the mortgage 

industry, and the greater presence of new types of seller/servicers. For example, there have been significant transfers of mortgage servicing for Enterprise portfolios from banking organizations to non-depository institutions, which are typically less capitalized and diversified than depository institutions. FHFA 

published supervisory guidance on how the Enterprises should address risks arising from these transfers. 

The Enterprises continue to manage operational risks resulting from challenges related to legacy systems 

and strategic initiatives. Additionally, the Enterprises must also manage potential vulnerabilities to cyber 

threats. 

Consistent with their statutory missions, the Enterprises have continued to provide liquidity in the secondary mortgage market during their conservatorships. The credit quality of new single-family mortgage 

guarantees in 2015 remained high by historical comparison. The weighted average loan-to-value ratio of 

mortgages acquired in 2015 was similar to 2014 at about 75 percent. The percentage of loan purchases 

with loan-to-value ratios above 90 percent was nearly 15 percent in 2015, compared to 18 percent in 

2014. The weighted average FICO credit score on new mortgage guarantees in 2015 trended upward 

slightly to nearly 750 as the percentage of refinance mortgages, which are often of higher credit quality, 

increased. New mortgage guarantees with FICO scores less than 700 made up about 16 percent of new 

business in 2015 compared to about 19 percent in 2014.

Restricted access to credit across the mortgage market in the years following the financial crisis has contributed to the Enterprises’ limited liquidity for certain segments of creditworthy borrowers, such as 

first-time homebuyers, lower-income borrowers, and racial and ethnic minorities. Some of these issues 

predate the financial crisis. The Enterprises have been challenged to provide creditworthy underserved 

borrowers traditional, fully underwritten, fixed-rate mortgages. While the Enterprises remain in conservatorship, they must continue to fulfill their statutory obligation of responsibly providing housing 

finance liquidity that supports all creditworthy borrowers. To this end, the Enterprises worked with 

FHFA in 2015 to address certain housing finance liquidity challenges. This included working to finalize 

the multiyear process of enhancing the Enterprises’ representation and warranty framework to encourage 

lenders to reduce the credit overlays that restrict access to credit. These initiatives have not yet resulted 

in significant improvement in Enterprise purchases of loans made to traditionally underserved borrowers, and such loans remain a small percentage of their purchases. For example, the share of loans to 

FEDERAL HOUSING FINANCE AGENCY
73

African Americans fell for both Enterprises between 2014 to 2015, from 3.4 to 3.2 percent for Freddie 

Mac and from 3.6 to 3.2 for Fannie Mae. While it is difficult to fully assess what can be attributed to 

the Enterprises’ underwriting processes versus broader macroeconomic or other factors, this leaves the 

Enterprises behind the overall market (for example, the share of African-American mortgages was about 

5 percent in 2014). The Enterprises need to build on their recent efforts and increase their resources to 

develop appropriate solutions for better serving traditionally underserved segments of the mortgage market.

The Enterprises continue to have annual housing goal requirements as established by FHFA. Last year, 

FHFA required Freddie Mac to submit a housing plan as a result of its failure to meet the low-income 

and very low-income housing goals in 2014. FHFA continues to monitor Freddie Mac’s ongoing housing 

goals performance. On August 19, 2015, FHFA finalized a housing goals rule for the Enterprises, which 

established housing goal benchmarks for 2015-2017. In addition, in 2015 FHFA issued a proposed rule 

on Fannie Mae and Freddie Mac’s duty to serve requirements and continues to work toward finalizing 

this rule. For fiscal year 2015, FHFA lifted the suspension of Enterprise contributions to the National 

Housing Trust Fund (NHTF) and the Capital Magnet Fund (CMF), and the Enterprises remitted funds 

equal to 4.2 basis points of new business volume in 2015 to support these affordable housing initiatives. 

Both Enterprises also continue to serve important roles in efforts to limit preventable foreclosures. These 

efforts enhance stability in housing markets and local communities, enable homeowners to remain in 

their homes, and mitigate Enterprise losses. The Enterprises completed 232,000 foreclosure alternative actions in 2015, including 148,000 permanent loan modifications. Since conservatorship, the 

Enterprises have completed more than 3.6 million foreclosure alternative actions, including nearly 1.9 

million permanent loan modifications. Refinances under the Home Affordable Refinance Program 

(HARP), which provides eligible borrowers with a streamlined refinance opportunity, totaled 110,000 in 

2015. This brought the total number of refinances under HARP to over 3.3 million. In addition, FHFA 

and the Enterprises worked to expand the Neighborhood Stabilization Initiative to 18 additional communities, and the Enterprises have engaged in non-performing loan sales to reduce losses and improve 

outcomes for borrowers. 

FHFA and the Enterprises made progress toward achieving the goals set out in FHFA’s Conservatorship 

Strategic Plan and 2015 Scorecard. In particular, expanding private sector participation is essential for 

the long-term health of the mortgage market, and the Enterprises exceeded the 2015 Scorecard goal of 

executing multiple risk-sharing transactions on $150 billion of mortgages for Fannie Mae and $120 

billion for Freddie Mac. Progress was also made on developing common data standards, reducing the 

Enterprises’ retained portfolios, establishing private mortgage insurer eligibility requirements, and completing a review of guarantee fees. 

REPORT TO CONGRESS • 2015

F E D E R A L H O U S I N G F I N A N C E O V E R S I G H T B O A R D A S S E S S M E N T 
74 FEDERAL HOUSING FINANCE AGENCY

The Enterprises continue to make progress on developing the Common Securitization Platform (CSP) 

and a Single Security, as evidenced by the announcement of a two-stage process to implement these 

initiatives. In Release 1, FHFA expects the Enterprises and Common Securitization Solutions (CSS) to 

implement the CSP for Freddie Mac’s existing single class securities in 2016. In Release 2, FHFA expects 

the Enterprises to implement the Single Security on the CSP for both Enterprises in 2018. 

The ongoing conservatorships of Fannie Mae and Freddie Mac present a unique set of challenges and 

risks. In particular, it is critical that the Enterprises dedicate appropriate resources to maintaining safe 

and sound operations in the face of uncertainty regarding the long-term prospects of the Enterprises’ 

operations and charters. 

FHLBanks 

As of December 31, 2015, all 11 FHLBanks exceeded the minimum 4 percent regulatory capital ratio. 

The weighted average regulatory capital-to-assets ratio for the FHLBank System was 5.1 percent at the end 

of 2015, as compared to 5.4 percent at the end of 2014. All FHLBanks were profitable for the year. The 

FHLBanks’ business of making advances to members continues to operate with no credit losses. 

During 2015, the FHLBanks of Des Moines and Seattle merged to form a single entity, the first merger 

in the history of the FHLBank System. FHFA approved the FHLBanks’ merger application in December 

2014, and members of both FHLBanks later voted overwhelmingly to ratify the merger agreement. At 

year-end 2015, the combined Des Moines FHLBank had assets totaling slightly more than $137 billion, 

making it the second largest FHLBank by asset size. Upon completion of this merger, no FHLBank was 

under an enforcement action as of year-end 2015. 

The overall scale of the FHLBanks’ advance operations increased during 2015, with $634 billion of 

advances outstanding at year-end 2015, an increase of $63.3 billion from year-end 2014. The growth 

of advances was more diverse across member segments than in recent years. FHLBank System members that are subsidiaries of the largest four bank holding companies continued to have a high level of 

advances across the FHLBank System, accounting for 23.6 percent of aggregate advances for 2015, down 

from 27.3 percent in 2014. All member types reported increased total borrowing in 2015. 

Despite recent increases, advances to members remain below their 2008 peak. However, the FHLBanks 

met their mission of providing liquidity to their members. 

The FHLBanks also met their mission through their support of the Affordable Housing Program (AHP), 

which is a source of funds to support local affordable housing initiatives. The FHLBanks provided $269 

million in AHP funds in 2015, slightly down from $293 million in 2014. 
75

Conclusion 

As can be seen from the above discussion and in the Annual Report, FHFA undertook significant steps in 

overseeing the Enterprises and FHLBanks during 2015. While many challenges remain for the regulated 

entities, including the ongoing conservatorships of Fannie Mae and Freddie Mac, the accomplishments of 

the past year provide a solid foundation for continued progress in 2016.

REPORT TO CONGRESS • 2015

FEDERAL HOUSING FINANCE OVERSIGHT BOARD ASSESSMENT

Melvin L. Watt Jacob J. Lew

Chairman Secretary 

Federal Housing Finance Oversight Board U.S. Department of the Treasury

Julián Castro Mary Jo White

Secretary Chair

U.S. Department of Housing and Securities and Exchange Commission

Urban Development
Appendix: 

Historical Data Tables

76 FEDERAL HOUSING FINANCE AGENCY
REPORT TO CONGRESS • 2015 77

APPENDIX: HISTORICAL DATA TABLES

Table 1 • Fannie Mae Mortgage Purchases.....................78 

Table 1a • Fannie Mae Mortgage Purchases

Detail by Type of Loan...............................................79 

Table 1b • Fannie Mae Purchases of 

Mortgage-Related Securities – Part 1 .......................80 

Table 1b • Fannie Mae Purchases of 

Mortgage-Related Securities, – Part 2, 

Private-Label Detail....................................................81

Table 2 • Fannie Mae MBS Issuances .............................82 

Table 3 • Fannie Mae Earnings.........................................83 

Table 4 • Fannie Mae Balance Sheet ..............................84 

Table 4a • Fannie Mae Total MBS 

Outstanding Detail ....................................................85 

Table 5 • Fannie Mae Mortgage Assets Held for 

Investment Detail .......................................................86

Table 5a • Fannie Mae Mortgage Assets Held for 

Investment Detail – Whole Loans ............................. 87 

Table 5b • Fannie Mae Mortgage Assets Held for 

Investment Detail – Part 1, 

Mortgage-Related Securities.....................................88 

Table 5b • Fannie Mae Mortgage Assets Held for 

Investment Detail – Part 2, Mortgage-Related

Securities, Private-Label Detail..................................89 

Table 5b • Fannie Mae Mortgage Assets Held for 

Investment Detail – Part 3, 

Mortgage-Related Securities.....................................90 

Table 6 • Fannie Mae Financial Derivatives .....................91 

Table 7 • Fannie Mae Nonmortgage Investments............92 

Table 8 • Fannie Mae Mortgage Asset Quality.................93 

Table 9 • Fannie Mae Capital ...........................................94 

Table 10 • Freddie Mac Mortgage Purchases .................95 

Table 10a • Freddie Mac Mortgage Purchases 

Detail by Type of Loan...............................................96 

Table 10b • Freddie Mac Purchases 

of Mortgage-Related Securities – Part 1 ...................97 

Table 10b • Freddie Mac Purchases 

of Mortgage-Related Securities – 

Part 2, Private-Label Detail .......................................98 

CONTENTS

Table 11 • Freddie Mac MBS Issuances .........................99 

Table 12 • Freddie Mac Earnings ...................................100 

Table 13 • Freddie Mac Balance Sheet..........................101 

Table 13a • Freddie Mac Total MBS 

Outstanding Detail ...................................................102 

Table 14 • Freddie Mac Mortgage Assets 

Held for Investment Detail .......................................103 

Table 14a • Freddie Mac Mortgage Assets 

Held for Investment Detail – Whole Loans ..............104 

Table 14b • Freddie Mac Mortgage Assets 

Held for Investment Detail – Part 1, 

Mortgage-Related Securities...................................105 

Table 14b • Freddie Mac Mortgage Assets Held for 

Investment Detail – Part 2, Mortgage-Related 

Securities, Private-Label Detail ...............................106 

Table 14b • Freddie Mac Retained Mortgage Assets 

Held for Investment Detail – Part 3, 

Mortgage-Related Securities ..................................107 

Table 15 • Freddie Mac Financial Derivatives................108 

Table 16 • Freddie Mac Nonmortgage Investments ......109 

Table 17 • Freddie Mac Mortgage Asset Quality ...........110 

Table 18 • Freddie Mac Capital .....................................111 

Table 19 • Federal Home Loan Banks 

Combined Statement of Income .............................112 

Table 20 • Federal Home Loan Banks

Combined Balance Sheet .......................................113 

Table 21 • Federal Home Loan Banks Net Income........114 

Table 22 • Federal Home Loan Banks 

Advances Outstanding ............................................115 

Table 23 • Federal Home Loan Banks

Regulatory Capital ...................................................116 

Table 24 • Loan Limits....................................................117 

Table 25 • Mortgage Interest Rates ..............................118

Table 26 • Housing Market Activity................................119 

Table 27 • Weighted Repeat Sales House 

Price Index (Annual Data) ........................................120 
78 FEDERAL HOUSING FINANCE AGENCY

Period

Business Activity ($ in Millions)

Purchases

 Single-Family a

 ($) Multifamily a ($) Total Mortgages a ($) Mortgage-Related 

Securities b

 ($) 

 4Q15 106,292 9,854 116,146 12,768

 3Q15 125,241 7,296 132,537 15,588

 2Q15 129,428 14,518 143,946 12,508

 1Q15 114,070 10,364 124,434 8,690

Annual Data

2015 475,031 42,032 517,063 49,554

2014 382,747 28,620 411,367 24,885

2013 733,242 28,558 761,800 36,848

2012 835,994 33,394 869,388 26,874

2011 558,249 24,226 582,475 20,760

2010 607,827 17,302 625,129 44,495

2009 700,253 19,912 720,165 161,562

2008 582,947 34,288 617,235 77,523 

2007 659,366 45,302 704,668 69,236

2006 524,379 20,646 545,025 102,666

2005 537,004 21,485 558,489 62,232

2004 588,119 16,386 604,505 176,385 

2003 1,322,193 31,196 1,353,389 408,606

2002 804,192 16,772 820,964 268,574

2001 567,673 19,131 586,804 209,124

2000 227,069 10,377 237,446 129,716

1999 316,136 10,012 326,148 169,905

1998 354,920 11,428 366,348 147,260

1997 159,921 6,534 166,455 50,317

1996 164,456 6,451 170,907 46,743

1995 126,003 4,966 130,969 36,258

1994 158,229 3,839 162,068 25,905

1993 289,826 4,135 293,961 6,606

1992 248,603 2,956 251,559 5,428

1991 133,551 3,204 136,755 3,080

1990 111,007 3,180 114,187 1,451

1989 80,510 4,325 84,835 Not Applicable Before 1990

1988 64,613 4,170 68,783

1987 73,942 1,733 75,675

1986 77,223 1,877 79,100

1985 42,543 1,200 43,743

1984 27,713 1,106 28,819

1983 26,339 140 26,479

1982 25,929 10 25,939

1981 6,827 2 6,829

1980 8,074 27 8,101

1979 10,798 9 10,807

1978 12,302 3 12,305

1977 4,650 134 4,784

1976 3,337 295 3,632

1975 3,646 674 4,320

1974 4,746 2,273 7,019

1973 4,170 2,082 6,252

1972 2,596 1,268 3,864

1971 2,742 1,298 4,040

Source: Fannie Mae

a Includes lender-originated mortgage-backed securities (MBS) issuances, cash purchases, 

and capitalized interest. Based on unpaid principal balances. Excludes mortgage loans and 

mortgage-backed securities traded but not yet settled. Excludes delinquent loans purchased 

from MBS trusts. 

b Not included in total mortgage purchases. Includes purchases of Fannie Mae MBS held for 

investment and mortgage-related securities traded but not yet settled. Based on unpaid 

principal balances. Includes activity from settlements of dollar rolls accounted for as purchases 

and sales of securities but does not include activity from settlements of dollar rolls accounted 

for as secured financings.

Table 1. Fannie Mae Mortgage Purchases
REPORT TO CONGRESS • 2015 79

APPENDIX: HISTORICAL DATA TABLES

Period

Purchases ($ in Millions)a

Single-Family Mortgages Multifamily Mortgages

Total 

Mortgage 

Purchases

($)

Conventional FHA/VA/RDc Total 

SingleFamily 

Mortgages 

($)

Conventional 

($) 

FHA/RDc

 ($) 

Total 

Multifamily 

Mortgages 

($) 

 FixedRateb

($) 

AdjustableRate ($)Seconds

 ($) 

Total

 ($) 

FixedRatec

 ($) 

AdjustableRate ($)Total

 ($) 

 4Q15 100,324 5,587 1 105,912 16 364 380 106,292 9,854 0 9,854 116,146

 3Q15 121,706 3,134 1 124,841 24 376 400 125,241 7,296 0 7,296 132,537

 2Q15 126,622 2,403 1 129,026 22 380 402 129,428 14,518 0 14,518 143,946

 1Q15 110,549 3,121 1 113,671 11 388 399 114,070 10,364 0 10,364 124,434

Annual Data

2015 459,201 14,245 4 473,450 73 1,508 1,581 475,031 42,032 0 42,032 517,063

2014 363,716 17,324 8 381,048 11 1,688 1,699 382,747 28,620 0 28,620 411,367

2013 713,326 17,785 13 731,124 210 1,908 2,118 733,242 28,558 0 28,558 761,800

2012 806,065 27,142 19 833,226 613 2,155 2,768 835,994 33,394 0 33,394 869,388

2011 517,469 36,837 27 554,333 524 3,392 3,916 558,249 24,226 0 24,226 582,475

2010 565,531 38,023 68 603,622 516 3,689 4,205 607,827 17,299 3 17,302 625,129

2009 663,763 23,108 0 686,871 1,136 12,246 13,382 700,253 19,517 395 19,912 720,165

2008 517,673 46,910 6 564,589 1,174 17,184 18,358 582,947 34,288 0 34,288 617,235

2007 583,253 64,133 34 647,420 1,237 10,709 11,946 659,366 45,302 0 45,302 704,668

2006 429,930 85,313 130 515,373 1,576 7,430 9,006 524,379 20,644 2 20,646 545,025

2005 416,720 111,935 116 528,771 2,285 5,948 8,233 537,004 21,343 142 21,485 558,489

2004 527,456 46,772 51 574,279 9,967 3,873 13,840 588,119 13,684 2,702 16,386 604,505

2003 1,236,045 64,980 93 1,301,118 18,032 3,043 21,075 1,322,193 28,071 3,125 31,196 1,353,389

2002 738,177 48,617 40 786,834 15,810 1,548 17,358 804,192 15,089 1,683 16,772 820,964

2001 534,115 25,648 1,137 560,900 5,671 1,102 6,773 567,673 17,849 1,282 19,131 586,804

2000 187,236 33,809 726 221,771 4,378 920 5,298 227,069 9,127 1,250 10,377 237,446

1999 293,188 12,138 1,198 306,524 8,529 1,084 9,613 316,137 8,858 1,153 10,011 326,148

1998 334,367 14,273 1 348,641 5,768 511 6,279 354,920 10,844 584 11,428 366,348

1997 136,329 21,095 3 157,427 2,062 432 2,494 159,921 5,936 598 6,534 166,455

1996 146,154 15,550 3 161,707 2,415 334 2,749 164,456 6,199 252 6,451 170,907

1995 104,901 17,978 9 122,888 3,009 106 3,115 126,003 4,677 289 4,966 130,969

1994 139,815 16,340 8 156,163 1,953 113 2,066 158,229 3,620 219 3,839 162,068

1993 274,402 14,420 29 288,851 855 120 975 289,826 3,919 216 4,135 293,961

1992 226,332 21,001 136 247,469 1,055 79 1,134 248,603 2,845 111 2,956 251,559

1991 114,321 17,187 705 132,213 1,300 38 1,338 133,551 3,183 21 3,204 136,755

1990 95,011 14,528 654 110,193 799 15 814 111,007 3,165 15 3,180 114,187

1989 60,794 17,692 521 79,007 1,489 14 1,503 80,510 4,309 16 4,325 84,835

1988 35,767 27,492 433 63,692 823 98 921 64,613 4,149 21 4,170 68,783

1987 60,434 10,675 139 71,248 2,649 45 2,694 73,942 1,463 270 1,733 75,675

1986 58,251 7,305 498 66,054 11,155 14 11,169 77,223 1,877 0 1,877 79,100

1985 29,993 10,736 871 41,600 927 16 943 42,543 1,200 0 1,200 43,743

1984 17,998 8,049 937 26,984 729 0 729 27,713 1,106 0 1,106 28,819

1983 18,136 4,853 1,408 24,397 1,942 0 1,942 26,339 128 12 140 26,479

1982 19,311 3,210 1,552 24,073 1,856 0 1,856 25,929 0 10 10 25,939

1981 4,260 107 176 4,543 2,284 0 2,284 6,827 0 2 2 6,829

1980 2,802 0 0 2,802 5,272 0 5,272 8,074 0 27 27 8,101

1979 5,410 0 0 5,410 5,388 0 5,388 10,798 0 9 9 10,807

1978 5,682 0 0 5,682 6,620 0 6,620 12,302 0 3 3 12,305

1977 2,366 0 0 2,366 2,284 0 2,284 4,650 0 134 134 4,784

1976 2,513 0 0 2,513 824 0 824 3,337 0 295 295 3,632

1975 547 0 0 547 3,099 0 3,099 3,646 0 674 674 4,320

1974 1,128 0 0 1,128 3,618 0 3,618 4,746 0 2,273 2,273 7,019

1973 939 0 0 939 3,231 0 3,231 4,170 0 2,082 2,082 6,252

1972 55 0 0 55 2,541 0 2,541 2,596 0 1,268 1,268 3,864

1971 0 0 0 0 2,742 0 2,742 2,742 0 1,298 1,298 4,040

Table 1a. Fannie Mae Mortgage Purchases Detail by Type of Loan 

Source: Fannie Mae

a IIncludes lender-originated mortgage-backed securities (MBS) issuances, cash purchases, and capitalized interest. Based on unpaid principal balances. Excludes mortgage loans and mortgage-backed securities traded but not yet 

settled. Excludes delinquent loans purchased from MBS trusts.

b Includes balloon loans. Prior to 2012, includes energy loans. 

c RD refers to loans guaranteed by the U.S.Department of Agriculture Rural Development (RD) loan programs. FHA stands for Federal Housing Administration. VA stands for Department of Veterans Affairs.
80 FEDERAL HOUSING FINANCE AGENCY

Table 1b. Fannie Mae Purchases of Mortgage-Related Securities – Part 1

Period

Purchases ($ in Millions)a

Fannie Mae Securities Other Securities

Mortgage 

Revenue 

Bonds

($)

Total 

MortgageRelated 

Securities 

($)

Single-Family

Multifamily 

($)

Total 

Fannie 

Maeb

 ($)

Freddie Mac Ginnie Mae

Total 

PrivateLabelb

($)

Single-Family Multifamily 

($)

Total 

Freddie 

Mac ($)

Single-Family Multifamily 

($)

Total 

Ginnie 

Mae 

($)

FixedRateb

 ($)

AdjustableRate ($)

FixedRate ($)

AdjustableRate ($)

FixedRate ($)

AdjustableRate ($)

4Q15 7,362 338 2,798 10,498 563 - - 563 1,611 96 - 1,707 - - 12,768 

3Q15 8,768 350 3,035 12,153 922 - - 922 2,437 76 - 2,513 - - 15,588 

2Q15 5,549 268 3,406 9,223 1,036 7 - 1,043 2,164 78 - 2,242 - - 12,508 

1Q15 4,705 258 1,471 6,434 896 14 - 910 1,307 39 - 1,346 - - 8,690 

Annual Data

2015 26,384 1,214 10,710 38,308 3,417 21 0 3,438 7,519 289 0 7,808 0 0 49,554 

2014 9,097 1,538 9,939 20,574 1,433 124 0 1,557 2,557 197 0 2,754 0 0 24,885 

2013 21,506 1,017 7,422 29,945 3,832 217 0 4,049 2,792 62 0 2,854 0 0 36,848 

2012 14,327 842 8,786 23,955 1,102 16 0 1,118 1,745 56 0 1,801 0 0 26,874 

2011 6,052 1,025 11,020 18,097 1,908 207 0 2,115 447 93 8 548 0 0 20,760 

2010 27,694 301 8,000 35,995 7,095 117 0 7,212 1,263 1 24 1,288 0 0 44,495 

2009 92,189 326 5,531 98,046 61,861 158 0 62,019 1,495 0 0 1,495 0 2 161,562 

2008 56,894 10,082 1,023 67,999 3,649 3,168 0 6,817 0 128 0 128 2,295 284 77,523 

2007 16,126 8,277 506 24,909 2,017 4,055 0 6,072 0 35 0 35 37,435 785 69,236

2006 23,177 14,826 429 38,432 1,044 5,108 0 6,152 77 0 0 77 57,787 218 102,666

2005 8,273 6,344 888 15,505 121 3,449 0 3,570 0 0 0 0 41,369 1,788 62,232

2004 42,214 21,281 1,159 64,654 6,546 8,228 0 14,774 0 0 0 0 90,833 6,124 176,385 

2003 341,461 5,842 1,225 348,528 19,340 502 0 19,842 36 0 0 36 34,032 6,168 408,606

2002 238,711 4,219 1,572 244,502 7,856 101 0 7,957 4,425 0 0 4,425 7,416 4,273 268,574

2001 Not Available

Before 2002

Not Available

Before 2002

Not Available

Before 2002 180,582 Not AvailableBefore 2002

Not Available

Before 2002

Not Available

Before 2002 20,072 Not AvailableBefore 2002

Not Available

Before 2002

Not Available

Before 2002 333 3,513 4,624 209,124

2000 104,904 10,171 2,493 8,466 3,682 129,716

1999 125,498 6,861 17,561 16,511 3,474 169,905

1998 104,728 21,274 2,738 15,721 2,799 147,260

1997 39,033 2,119 3,508 4,188 1,469 50,317

1996 41,263 779 2,197 777 1,727 46,743

1995 30,432 2,832 20 752 2,222 36,258

1994 21,660 571 2,321 0 1,353 25,905

1993 6,275 0 0 0 331 6,606

1992 4,930 0 0 0 498 5,428

1991 2,384 0 0 0 696 3,080

1990 977 0 0 0 474 1,451

Source: Fannie Mae

a Includes purchases of Fannie Mae mortgage-backed securities held for investment. Based on unpaid principal balances. Includes mortgage-related securities traded but not yet settled. Includes activity 

from settlements of dollar rolls accounted for as purchases and sales of securities but does not include activity from settlements of dollar rolls accounted for as secured financings.

b Certain amounts previously reported as Fannie Mae fixed-rate securities have been reclassified as private-label securities.
REPORT TO CONGRESS • 2015 81

APPENDIX: HISTORICAL DATA TABLES

 Period

Purchases ($ in Millions)a

Private-Label

Single-Family

Multifamily

($)

Total 

PrivateLabel 

($)

Manufactured

Housing 

($)

Subprime Alt-A Other

Fixed-Rate

 ($) 

AdjustableRate ($) Fixed-Rate

 ($) 

AdjustableRate ($) Fixed-Rate

 ($) 

AdjustableRate ($) 

4Q15 0 0 0 0 0 0 0 0 0

3Q15 0 0 0 0 0 0 0 0 0

2Q15 0 0 0 0 0 0 0 0 0

1Q15 0 0 0 0 0 0 0 0 0

Annual Data

2015 0 0 0 0 0 0 0 0 0

2014 0 0 0 0 0 0 0 0 0

2013 0 0 0 0 0 0 0 0 0

2012 0 0 0 0 0 0 0 0 0

2011 0 0 0 0 0 0 0 0 0

2010 0 0 0 0 0 0 0 0 0

2009 0 0 0 0 0 0 0 0 0

2008 0 0 637 175 0 0 987 496 2,295 

2007 0 343 15,628 38 5,250 0 178 15,998 37,435 

2006 0 0 35,606 1,504 10,469 0 518 9,690 57,787 

2005 0 0 24,469 3,574 12,535 118 571 102 41,369 

2004 0 176 66,827 7,064 14,935 221 1,509 101 90,833 

2003 0 0 25,769 7,734 370 98 0 61 34,032 

2002 56 181 4,963 1,756 0 43 381 36 7,416 

2001 Not Available

Before 2002

Not Available

Before 2002

Not Available

Before 2002

Not Available

Before 2002

Not Available

Before 2002

Not Available

Before 2002

Not Available

Before 2002

Not Available

Before 2002 3,513

2000 8,466

1999 16,511

1998 15,721

1997 4,188

1996 777

1995 752

Table 1b. Fannie Mae Purchases of Mortgage-Related 

Securities – Part 2, Private-Label Detail

Source: Fannie Mae

a Based on unpaid principal balances. Includes mortgage loans and mortgage-related securities traded but not yet settled. Certain amounts previously reported for years before 2007 have changed as a result of

reclassifying certain securities.
82 FEDERAL HOUSING FINANCE AGENCY

Period

Business Activity ($ in Millions)

MBS Issuances a

Single-Family MBS

($)

Multifamily MBS

 ($) 

Total MBS

 ($) 

Multiclass MBSb

 ($) 

 4Q15 104,359 10,042 114,401 14,088

 3Q15 126,144 7,484 133,628 12,784

 2Q15 130,974 14,979 145,953 18,543

 1Q15 110,994 11,418 122,412 18,018

Annual Data

2015 472,471 43,923 516,394 63,433

2014 375,676 31,997 407,673 59,608

2013 733,111 31,403 764,514 121,237

2012 827,749 37,738 865,487 151,239

2011 564,606 34,066 598,672 139,819

2010 603,247 26,499 629,746 179,767

2009 791,418 16,435 807,853 100,846

2008 536,951 5,862 542,813 67,559

2007 622,458 7,149 629,607 112,563

2006 476,161 5,543 481,704 124,856

2005 500,759 9,379 510,138 123,813

2004 545,635 6,847 552,482 94,686

2003 1,196,730 23,336 1,220,066 260,919

2002 731,133 12,497 743,630 170,795

2001 514,621 13,801 528,422 139,403

2000 204,066 7,596 211,662 39,544

1999 292,192 8,497 300,689 55,160

1998 315,120 11,028 326,148 84,147

1997 143,615 5,814 149,429 85,415

1996 144,201 5,668 149,869 30,780

1995 106,269 4,187 110,456 9,681

1994 128,385 2,237 130,622 73,365

1993 220,485 959 221,444 210,630

1992 193,187 850 194,037 170,205

1991 111,488 1,415 112,903 112,808

1990 96,006 689 96,695 68,291

1989 66,489 3,275 69,764 41,715

1988 51,120 3,758 54,878 17,005

1987 62,067 1,162 63,229 9,917

1986 60,017 549 60,566 2,400

1985 23,142 507 23,649 Not Issued Before 1986

1984 13,087 459 13,546

1983 13,214 126 13,340

1982 13,970 Not Issued Before 1983 13,970

1981 717 717

Table 2. Fannie Mae MBS Issuances

Source: Fannie Mae 

a Lender-originated mortgage-backed securities (MBS) plus issuances from Fannie Mae’s investment portfolio. Based on unpaid principal balances. Excludes mortgage-related securities traded but not yet settled.

b Beginning in 2006, includes grantor trusts, real estate mortgage investment conduits, and stripped MBS backed by Fannie Mae certificates.
REPORT TO CONGRESS • 2015 83

APPENDIX: HISTORICAL DATA TABLES

Period

Earnings ($ in Millions)

Net Interest 

Incomea,b

 ($) 

 Guarantee Fee 

Incomea

($) 

Administrative 

Expenses

 ($) 

Credit-Related 

Expense/

(Income)c

 ($) 

Net Income

(Loss) 

($) 

 Return on 

Equity d

(%) 

 4Q15 5,077 29 686 732 2,466 N/A

 3Q15 5,588 31 952 -1,053 1,960 N/A

 2Q15 5,677 37 689 1,215 4,640 N/A

 1Q15 5,067 31 723 -60 1,888 N/A

Annual Data

2015 21,409 128 3,050 834 10,954 N/A

2014 19,968 175 2,777 -3,822 14,208 N/A

2013 22,404 205 2,545 -11,788 83,963 N/A

2012 21,501 212 2,367 -1,106 17,224 N/A

2011 19,281 227 2,370 27,498 -16,855 N/M

2010 16,409 202 2,597 26,614 -14,014 N/M

2009 14,510 7,211 2,207 73,536 -71,969 N/M

2008 8,782 7,621 1,979 29,809 -58,707 N/M

2007 4,581 5,071 2,669 5,012 -2,050 (8.3)

2006 6,752 4,250 3,076 783 4,059 11.3

2005 11,505 4,006 2,115 428 6,347 19.5

2004 18,081 3,784 1,656 363 4,967 16.6

2003 19,477 3,432 1,454 353 8,081 27.6

2002 18,426 2,516 1,156 273 3,914 15.2

2001 8,090 1,482 1,017 78 5,894 39.8

2000 5,674 1,351 905 94 4,448 25.6

1999 4,894 1,282 800 127 3,912 25.2

1998 4,110 1,229 708 261 3,418 25.2

1997 3,949 1,274 636 375 3,056 24.6

1996 3,592 1,196 560 409 2,725 24.1

1995 3,047 1,086 546 335 2,144 20.9

1994 2,823 1,083 525 378 2,132 24.3

1993 2,533 961 443 305 1,873 25.3

1992 2,058 834 381 320 1,623 26.5

1991 1,778 675 319 370 1,363 27.7

1990 1,593 536 286 310 1,173 33.7

1989 1,191 408 254 310 807 31.1

1988 837 328 218 365 507 25.2

1987 890 263 197 360 376 23.5

1986 384 175 175 306 105 9.5

1985 139 112 142 206 (7) (0.7)

1984 (90) 78 112 86 (71) (7.4)

1983 (9) 54 81 48 49 5.1 

1982 (464) 16 60 36 (192) (18.9)

1981 (429) 0 49 (28) (206) (17.2)

1980 21 Not Available Before 1981 44 19 14 0.9

1979 322 46 35 162 11.3

1978 294 39 36 209 16.5

1977 251 32 28 165 15.3

1976 203 30 25 127 13.8

1975 174 27 16 115 14.1

1974 142 23 17 107 14.7

1973 180 18 12 126 20.3

1972 138 13 5 96 18.8

1971 49 15 4 61 14.4

Table 3. Fannie Mae Earnings

Source: Fannie Mae

N/A = not applicable N/M = not meaningful

a Adoption of accounting guidance related to transfers of financial assets and consolidation of variable 

interest entities, effective January 1, 2010, significantly changed presentation of these line items in 

the financial statements. Financial results for 2010 and later years are not directly comparable to 

previous years. Effective January 1, 2010, guaranty fee income associated with the securitization 

activities of consolidated trusts is reflected in net interest income.

b Interest income net of interest expense. 

c Credit-related expense (income) includes provision (benefit) for loan losses and guarantee losses 

(collectively, credit losses) and foreclosed property expense (income).

d Net income (loss) available to common stockholders divided by average outstanding common equity.
84 FEDERAL HOUSING FINANCE AGENCY

End of

 Period

Balance Sheet ($ in Millions)

Total Assetsa,b

 ($) 

Total

Mortgage 

Assetsa,c ($) 

Nonmortgage 

Investmentsd

($) 

Total Debt 

Outstandinga

($) 

Shareholders’ 

Equity 

(Deficit)a

($) 

Senior 

Preferred Stock 

($) 

Fair Value of 

Net Assetsa 

($) 

Mortgage 

Assets Held 

for Investment 

(Gross)e

($) 

Indebtednessf

($) 

 4Q15 3,221,917 3,078,248 56,835 3,197,671 4,059 117,149 (4,177) 345,103 389,496 

 3Q15 3,230,782 3,082,646 53,561 3,206,245 4,003 117,149 (6,476) 370,450 420,898 

 2Q15 3,225,400 3,078,563 45,800 3,198,569 6,159 117,149 (6,305) 390,307 428,627 

 1Q15 3,238,113 3,084,587 39,597 3,212,631 3,596 117,149 (21,553) 411,684 452,347 

Annual Data

2015 3,221,917 3,078,248 56,835 3,197,671 4,059 117,149 (4,177) 345,103 389,496

2014 3,248,176 3,097,727 50,416 3,222,155 3,720 117,149 -16,754 413,313 464,464

2013 3,270,108 3,122,719 55,281 3,234,523 9,591 117,149 -33,318 490,701 534,211

2012 3,222,422 3,094,127 50,450 3,189,517 7,224 117,149 -66,451 633,054 621,779

2011 3,211,484 3,072,709 95,848 3,189,872 -4,571 112,578 -127,795 708,414 742,293

2010 3,221,972 3,103,772 44,503 3,197,000 -2,517 88,600 -120,212 788,771 793,878

2009 869,141 745,271 57,782 774,554 -15,281 60,900 -98,701 769,252 785,775

2008 912,404 767,989 71,550 870,393 -15,314 1,000 -105,150 Not Applicable Before 2009 Not Applicable Before 2009

2007 882,547 723,620 86,875 796,299 44,011 Not Applicable Before 2008 35,799

2006 843,936 726,434 56,983 767,046 41,506 43,699

2005 834,168 736,803 46,016 764,010 39,302 42,199

2004 1,020,934 925,194 47,839 953,111 38,902 40,094

2003 1,022,275 919,589 59,518 961,280 32,268 28,393

2002 904,739 820,627 39,376 841,293 31,899 22,130

2001 799,948 706,347 65,982 763,467 18,118 22,675

2000 675,224 607,731 52,347 642,682 20,838 20,677

1999 575,308 523,103 37,299 547,619 17,629 20,525

1998 485,146 415,434 58,515 460,291 15,453 14,885

1997 391,673 316,592 64,596 369,774 13,793 15,982

1996 351,041 286,528 56,606 331,270 12,773 14,556

1995 316,550 252,868 57,273 299,174 10,959 11,037

1994 272,508 220,815 46,335 257,230 9,541 10,924

1993 216,979 190,169 21,396 201,112 8,052 9,126

1992 180,978 156,260 19,574 166,300 6,774 9,096

1991 147,072 126,679 9,836 133,937 5,547 Not Available Before 1992

1990 133,113 114,066 9,868 123,403 3,941

1989 124,315 107,981 8,338 116,064 2,991

1988 112,258 100,099 5,289 105,459 2,260

1987 103,459 93,665 3,468 97,057 1,811

1986 99,621 94,123 1,775 93,563 1,182

1985 99,076 94,609 1,466 93,985 1,009

1984 87,798 84,135 1,840 83,719 918

1983 78,383 75,247 1,689 74,594 1,000

1982 72,981 69,356 2,430 69,614 953

1981 61,578 59,629 1,047 58,551 1,080

1980 57,879 55,589 1,556 54,880 1,457

1979 51,300 49,777 843 48,424 1,501

1978 43,506 42,103 834 40,985 1,362

1977 33,980 33,252 318 31,890 1,173

1976 32,393 31,775 245 30,565 983

1975 31,596 30,820 239 29,963 861

1974 29,671 28,666 466 28,168 772

1973 24,318 23,589 227 23,003 680

1972 20,346 19,652 268 19,239 559

1971 18,591 17,886 349 17,672 460

Table 4. Fannie Mae Balance Sheet

Source: Fannie Mae 

a Adoption of accounting guidance related to transfers of financial assets 

and consolidation of variable interest entities, effective January 1, 2010, 

significantly changed presentation of these line items in the financial 

statements. Financial results for 2010 and later years are not directly 

comparable to previous years. Adoption of this guidance resulted in the 

consolidation of the substantial majority of mortgage-backed securities 

(MBS) trusts and recognition of the underlying assets and debt of the 

trusts in the consolidated balance sheet.

b Beginning in 1998, the guaranty liability for Fannie Mae MBS held for 

investment was classified as a liability.

c Gross mortgage assets net of unamortized purchase premiums, 

discounts, cost-basis adjustments, fair-value adjustments on securities 

and loans. Beginning in 2002, amounts include fair-value adjustments 

on available-for-sale and trading securities, as well as impairments 

on available-for-sale securities. Excludes allowance for loan losses 

on loans held for investment. Amounts for 1999 through 2001 include 

certain loans held for investment previously classified as nonmortgage 

investments.

d Data reflect unpaid principal balance net of unamortized purchase 

premiums, discounts, cost-basis adjustments, fair-value adjustments 

and impairments on available-for-sale and trading securities. Since 

2005, advances to lenders have not been included. Amounts for periods 

before 2005 may include or consist of advances to lenders.

e Amounts for 2010 and later meet the definition of mortgage assets in the 

Treasury Senior Preferred Stock Purchase Agreement for the purpose 

of determining the maximum amount of mortgage assets that may be 

held. The amount for 2009 includes consolidation of variable interest 

entities. The 2009 amount would have been $772.5 billion excluding 

consolidation of variable interest entities.

f

 As defined in the Treasury Senior Preferred Stock Purchase Agreement 

for 2009 and later years.
REPORT TO CONGRESS • 2015 85

APPENDIX: HISTORICAL DATA TABLES

End of

 Period

Single-Family Mortgages 

($ in Millions)a,b

Multifamily Mortgages 

($ in Millions)a ($ in Millions)

Conventional FHA/VAc

Conventional

 ($) 

FHA/

RDb

 ($) 

Total 

Multifamily

 ($) 

Total 

MBS 

Outstandinga

($)

Multiclass 

MBS 

Outstandingd

($)

Fixed-Rate

($) 

AdjustableRate ($)Seconds

 ($) 

Total

 ($)

Fixed-Rate

($) 

AdjustableRate ($)Total

 ($)

4Q15 2,445,482 106,130 258 2,551,870 4,787 3,842 8,629 176,071 1,204 177,275 2,737,774 436,544

3Q15 2,428,056 108,865 275 2,537,196 4,943 4,008 8,951 169,038 1,211 170,249 2,716,396 442,009

2Q15 2,417,841 108,004 293 2,526,138 9,199 76 9,275 165,634 1,221 166,855 2,702,268 452,451

1Q15 2,413,685 111,793 311 2,525,789 9,646 80 9,726 155,889 1,233 157,122 2,692,637 458,520

Annual Data

2015 2,445,482 106,130 258 2,551,870 4,787 3,842 8,629 176,071 1,204 177,275 2,737,774 436,544

2014 2,418,717 114,519 329 2,533,565 9,964 83 10,047 147,117 1,237 148,354 2,691,966 460,997

2013 2,386,128 119,084 402 2,505,614 11,383 97 11,480 125,045 1,276 126,321 2,643,415 480,200

2012 2,267,031 137,836 515 2,405,382 14,188 114 14,302 99,899 1,463 101,362 2,521,046 503,349

2011 2,192,594 149,825 643 2,343,062 16,243 130 16,373 72,634 1,639 74,273 2,433,708 516,471

2010 2,172,092 150,378 805 2,323,275 17,167 144 17,311 57,206 1,785 58,991 2,399,577 507,268

2009 2,190,357 179,655 25 2,370,037 15,026 171 15,197 46,628 927 47,555 2,432,789 480,057

2008 2,035,020 203,206 31 2,238,257 12,903 214 13,117 37,298 787 38,085 2,289,459 481,137

2007 1,850,150 214,245 0 2,064,395 14,982 275 15,257 38,218 1,039 39,257 2,118,909 490,692

2006 1,484,147 230,667 0 1,714,814 18,615 454 19,069 42,184 1,483 43,667 1,777,550 456,970

2005 1,290,354 232,689 0 1,523,043 23,065 668 23,733 50,346 1,796 52,142 1,598,918 412,060

2004 1,243,343 75,722 0 1,319,065 31,389 949 32,336 47,386 9,260 56,646 1,408,047 368,567

2003 1,112,849 87,373 0 1,200,222 36,139 1,268 37,407 53,720 9,171 62,891 1,300,520 398,516

2002 875,260 75,430 0 950,690 36,057 1,247 37,304 47,025 5,420 52,445 1,040,439 401,406

2001 752,211 60,842 772 813,825 4,519 1,207 5,726 42,713 1,181 43,894 863,445 392,457

2000 599,999 61,495 1,165 662,659 6,778 1,298 8,076 35,207 780 35,987 706,722 334,508

1999 586,069 51,474 1,212 638,755 7,159 1,010 8,169 31,518 703 32,221 679,145 335,514

1998 545,680 56,903 98 602,681 5,340 587 5,927 28,378 157 28,535 637,143 361,613

1997 483,982 70,106 7 554,095 3,872 213 4,085 20,824 134 20,958 579,138 388,360

1996 460,866 65,682 9 526,557 4,402 191 4,593 16,912 111 17,023 548,173 339,798

1995 431,755 63,436 13 495,204 5,043 91 5,134 12,579 313 12,892 513,230 353,528

1994 415,692 55,780 18 471,490 5,628 0 5,628 8,908 319 9,227 486,345 378,733

1993 405,383 49,987 28 455,398 7,549 0 7,549 8,034 325 8,359 471,306 381,865

1992 360,619 45,718 43 406,380 9,438 0 9,438 8,295 331 8,626 424,444 312,369

1991 290,038 45,110 89 335,237 11,112 0 11,112 8,599 336 8,935 355,284 224,806

1990 225,981 42,443 121 268,545 11,380 0 11,380 7,807 343 8,150 288,075 127,278

1989 Not Available

Before 1990

Not Available

Before 1990

Not Available

Before 1990

Not Available

Before 1990

Not Available

Before 1990

Not Available

Before 1990

Not Available

Before 1990

Not Available

Before 1990

Not Available

Before 1990

Not Available

Before 1990 216,512 64,826

1988 170,097 26,660

1987 135,734 11,359

1986 95,568 Not Available Before 1987

1985 54,552

1984 35,738

1983 25,121

1982 14,450

1981 717

1980 Not Available

Before 1981

Table 4a. Fannie Mae Total MBS Outstanding Detail

Source : Fannie Mae 

a Unpaid principal balance of Fannie Mae mortgage-backed securities (MBS) held by third-party investors. 

Includes guaranteed whole loan real estate mortgage investment conduits (REMICs) and private-label wraps 

not included in grantor trusts. The principal balance of resecuritized Fannie Mae MBS is included only once.

b Beginning in Q3 2015, we reclassified certain Fannie Mae Single-Family securities from fixed-rate to 

adjustable-rate.

c FHA stands for Federal Housing Administration. RD refers to loans guaranteed by the U.S. Department of 

Agriculture Rural Development (RD) loan programs. VA stands for Department of Veterans Affairs.

d Beginning in 2005, consists of securities guaranteed by Fannie Mae and backed by Ginnie Mae collateral, 

grantor trusts, and REMICs, as well as stripped MBS backed by Fannie Mae certificates. 
86 FEDERAL HOUSING FINANCE AGENCY

End of 

Period

($ in Millions)

Whole Loans b,c

($) 

Fannie Mae Securities b,d

($)

Other Mortgage-Related 

Securitiesb,d,e

 ($) 

Mortgage Assets

Held for Investment

(Gross)f

 ($) 

 4Q15 253,592 68,697 22,814 345,103

 3Q15 259,988 85,560 24,902 370,450

 2Q15 270,809 92,807 26,691 390,307

 1Q15 281,402 98,999 31,283 411,684

Annual Data

2015 253,592 68,697 22,814 345,103

2014 285,610 92,819 34,884 413,313

2013 314,664 129,841 46,196 490,701

2012 371,708 183,964 77,382 633,054

2011 398,271 220,061 90,082 708,414

2010 427,074 260,429 101,268 788,771

2009 416,543 220,245 132,464 769,252

2008 429,493 228,950 133,753 792,196

2007 403,577 180,163 144,163 727,903

2006 383,045 199,644 146,243 728,932

2005 366,680 234,451 136,758 737,889

2004 400,157 344,404 172,648 917,209

2003 397,633 405,922 105,313 908,868

2002 323,244 380,383 96,152 799,779

2001 167,405 431,776 109,270 708,452

2000 152,634 351,066 106,551 610,251

1999 149,231 281,714 93,122 524,067

1998 155,779 197,375 61,361 414,515

1997 160,102 130,444 26,132 316,678

1996 167,891 102,607 16,554 287,052

1995 171,481 69,729 12,301 253,511

1994 170,909 43,998 7,150 222,057

1993 163,149 24,219 3,493 190,861

1992 134,597 20,535 2,987 158,119

1991 109,251 16,700 3,032 128,983

1990 101,797 11,758 3,073 116,628

1989 95,729 11,720 3,272 110,721

1988 92,220 8,153 2,640 103,013

1987 89,618 4,226 2,902 96,746

1986 94,167 1,606 2,060 97,833

1985 97,421 435 793 98,649

1984 87,205 477 427 88,109

1983 77,983 Not Available Before 1984 273 78,256

1982 71,777 37 71,814

1981 61,411 1 61,412

1980 57,326 1 57,327

1979 51,096 1 51,097

1978 43,315 Not Available Before 1979 43,315

1977 34,377 34,377

1976 32,937 32,937

1975 31,916 31,916

1974 29,708 29,708

1973 24,459 24,459

1972 20,326 20,326

1971 18,515 18,515

Table 5. Fannie Mae Mortgage Assets Held for Investment Detaila

Source: Fannie Mae

a Beginning in 2010, excludes effect of accounting guidance related to transfers of financial 

assets and consolidation of variable interest entities, effective January 1, 2010. Amounts 

for 2010 have been revised from amounts previously reported to reflect this exclusion.

b Unpaid principal balance. 

c Amounts for 2002 to 2009 include mortgage-related securities consolidated as loans at 

period end. For 1999 through 2001, includes certain loans held for investment classified 

as nonmortgage investments.

d Amounts for 2002 to 2009 exclude mortgage-related securities consolidated as loans at 

period end.

e Includes mortgage revenue bonds.

f Amounts for 2010 and later meet the definition of mortgage assets in the Treasury Senior 

Preferred Stock Purchase Agreement for the purpose of determining the maximum amount 

of mortgage assets that may be held. Amounts prior to 2010 include consolidation of 

variable interest entities. Mortgage assets as defined under the Senior Preferred Stock 

Purchase Agreement for 2009 totaled $772.5 billion excluding consolidation of variable 

interest entities.
REPORT TO CONGRESS • 2015 87

APPENDIX: HISTORICAL DATA TABLES

End of 

Period

Whole Loans ($ in Millions)a

Single-Family Multifamily

Total 

Whole Loans

($)

Conventional

Conventional

 ($) 

Total

FHA/RDc

($)

Total

 ($) 

Fixed-Rateb

($) 

AdjustableRate ($)Seconds

 ($) 

Total

 ($) 

Total FHA/

VA/RDc

 ($) 

 4Q15 198,255 8,453 143 206,851 33,376 13,141 224 13,365 253,592

 3Q15 201,208 8,967 143 210,318 34,252 15,185 233 15,418 259,988

 2Q15 207,538 9,519 147 217,204 35,064 18,306 235 18,541 270,809

 1Q15 214,261 10,281 155 224,697 35,855 20,610 240 20,850 281,402

Annual Data

2015 198,255 8,453 143 206,851 33,376 13,141 224 13,365 253,592

2014 214,830 10,810 160 225,800 36,442 23,125 243 23,368 285,610

2013 224,174 13,171 156 237,501 39,399 37,497 267 37,764 314,664

2012 251,081 18,008 170 269,259 40,886 61,251 312 61,563 371,708

2011 255,914 23,490 185 279,589 41,555 76,765 362 77,127 398,271

2010 248,335 31,526 207 280,068 51,783 94,792 431 95,223 427,074

2009 208,915 34,602 213 243,730 52,399 119,829 585 120,414 416,543

2008 223,881 44,157 215 268,253 43,799 116,742 699 117,441 429,493

2007 240,090 43,278 261 283,629 28,202 90,931 815 91,746 403,577

2006 255,490 46,820 287 302,597 20,106 59,374 968 60,342 383,045

2005 261,214 38,331 220 299,765 15,036 50,731 1,148 51,879 366,680

2004 307,048 38,350 177 345,575 10,112 43,396 1,074 44,470 400,157

2003 335,812 19,155 233 355,200 7,284 33,945 1,204 35,149 397,633

2002 282,899 12,142 416 295,457 6,404 19,485 1,898 21,383 323,244

2001 140,454 10,427 917 151,798 5,069 8,987 1,551 10,538 167,405

2000 125,786 13,244 480 139,510 4,763 6,547 1,814 8,361 152,634

1999 130,614 6,058 176 136,848 4,472 5,564 2,347 7,911 149,231

1998 135,351 7,633 206 143,190 4,404 5,590 2,595 8,185 155,779

1997 134,543 10,389 268 145,200 4,631 7,388 2,883 10,271 160,102

1996 137,507 12,415 323 150,245 4,739 9,756 3,151 12,907 167,891

1995 137,032 14,756 423 152,211 4,780 11,175 3,315 14,490 171,481

1994 133,882 16,475 537 150,894 4,965 11,681 3,369 15,050 170,909

1993 123,308 19,175 772 143,255 5,305 11,143 3,446 14,589 163,149

1992 91,500 22,637 1,355 115,492 6,097 9,407 3,601 13,008 134,597

1991 69,130 19,763 2,046 90,939 6,962 7,641 3,709 11,350 109,251

1990 61,873 19,558 1,851 83,282 8,524 6,142 3,849 9,991 101,797

1989 55,638 20,751 1,614 78,003 9,450 3,926 4,350 8,276 95,729

1988 53,090 20,004 1,561 74,655 10,480 2,699 4,386 7,085 92,220

1987 55,913 13,702 1,421 71,036 11,652 2,448 4,482 6,930 89,618

1986 Not Available 

Before 1987

Not Available 

Before 1987

Not Available 

Before 1987

Not Available 

Before 1987

Not Available 

Before 1987

Not Available 

Before 1987

Not Available 

Before 1987

Not Available 

Before 1987 94,167

1985 97,421

1984 87,205

1983 77,983

1982 71,777

1981 61,411

1980 57,326

1979 51,096

1978 43,315

1977 34,377

1976 32,937

1975 31,916

1974 29,708

1973 24,459

1972 20,326

1971 18,515

Table 5a. Fannie Mae Mortgage Assets Held for Investment 

Detail – Whole Loans

Source: Fannie Mae 

a Unpaid principal balance. Beginning in 2010, excludes the effect of accounting guidance related to 

transfers of financial assets and consolidation of variable interest entities, effective January 1, 2010. 

Amounts for 2010 have been revised from amounts previously reported to reflect this exclusion. 

Amounts for 2002 to 2009 include mortgage-related securities consolidated as loans at period end. For 

1999 through 2001, includes certain loans held for investment classified as nonmortgage investments.

b Includes balloon loans. Prior to 2012, includes energy loans. 

c RD refers to loans guaranteed by the U.S. Department of Agriculture Rural Development (RD) loan 

programs. FHA stands for Federal Housing Administration. VA stands for Department of Veterans Affairs.
88 FEDERAL HOUSING FINANCE AGENCY

End 

of 

Period

Mortgage-Related Securities ($ in Millions)a

Fannie Mae Securitiesb ($) Other Securities

Single-Familyc

Multifamily

($)

Total 

Fannie 

Mae ($) 

Freddie Mac Ginnie Mae

Total 

PrivateLabel

 ($) 

Total

Other 

Securitiesd

($)

FixedRate ($)

AdjustableRate ($)

Single-Family

Multifamily

($)

Total 

Freddie 

Mac ($)

Single-Family

Multifamily

($)

Total 

Ginnie 

Mae ($)

FixedRate ($) 

AdjustableRate ($)

FixedRate ($) 

AdjustableRate ($)

 4Q15 40,739 17,022 10,936 68,697 2,856 2,376 0 5,232 734 6 8 748 13,729 19,709

 3Q15 54,119 17,662 13,779 85,560 3,124 2,497 0 5,621 680 6 8 694 15,196 21,511

 2Q15 69,025 8,644 15,138 92,807 3,366 2,640 0 6,006 595 4 8 607 16,471 23,084

 1Q15 73,165 9,447 16,387 98,999 3,679 2,766 0 6,445 583 5 8 596 20,217 27,258

Annual Data

2015 40,739 17,022 10,936 68,697 2,856 2,376 0 5,232 734 6 8 748 13,729 19,709

2014 64,904 9,257 18,658 92,819 3,506 2,862 0 6,368 555 9 8 572 23,388 30,328

2013 94,722 12,710 22,409 129,841 4,758 3,366 0 8,124 859 8 32 899 30,854 39,877

2012 140,118 15,717 28,129 183,964 6,911 4,363 0 11,274 1,012 5 32 1,049 56,573 68,896

2011 172,502 19,189 28,370 220,061 8,888 5,621 0 14,509 1,003 7 33 1,043 63,631 79,183

2010 217,075 23,406 19,948 260,429 10,005 7,327 0 17,332 1,393 8 24 1,425 69,986 88,743

2009 203,577 16,272 396 220,245 29,783 11,607 0 41,390 1,119 137 21 1,277 75,344 118,011

2008 207,867 20,637 446 228,950 18,420 14,963 0 33,383 1,343 153 21 1,517 83,406 118,306

2007 158,863 20,741 559 180,163 16,954 14,425 0 31,379 1,575 34 50 1,659 94,810 127,848

2006 194,702 4,342 600 199,644 17,304 12,773 0 30,077 1,905 0 56 1,961 97,281 129,319

2005 230,546 3,030 875 234,451 18,850 9,861 0 28,711 2,273 0 57 2,330 86,915 117,956

2004 339,138 3,869 1,397 344,404 29,328 8,235 0 37,563 4,131 1 68 4,200 108,809 150,572

2003 400,863 3,149 1,910 405,922 30,356 558 0 30,914 6,993 0 68 7,061 46,979 84,954

2002 373,958 3,827 2,598 380,383 32,617 207 0 32,824 15,436 0 85 15,521 28,157 76,502

2001 417,796 5,648 8,332 431,776 42,516 287 26 42,829 18,779 1 109 18,889 29,175 90,893

2000 Not Available

Before 2001 

Not Available

Before 2001

Not Available

Before 2001 351,066 Not AvailableBefore 2001

Not Available

Before 2001

Not Available

Before 2001 33,290 Not AvailableBefore 2001

Not Available

Before 2001

Not Available

Before 2001 23,768 34,266 91,324

1999 281,714 25,577 23,701 31,673 80,951

1998 197,375 23,453 8,638 19,585 51,676

1997 130,444 5,262 7,696 5,554 18,512

1996 102,607 3,623 4,780 1,486 9,889

1995 69,729 3,233 2,978 747 6,958

1994 43,998 564 3,182 1 3,747

1993 24,219 Not Available 972 2 974

1992 20,535 Before 1994 168 3 171

1991 16,700 180 93 273

1990 11,758 191 352 543

1989 11,720 202 831 1,033

1988 8,153 26 810 836

1987 4,226 Not Available

Before 1988 1,036 1,036

1986 1,606 1,591 1,591

1985 435 Not Available

Before 1986

Not Available

Before 1986

1984 477

1983 Not Available 

Before 1984 

Table 5b. Fannie Mae Mortgage Assets Held for Investment Detail – 

Part 1, Mortgage-Related Securities

Source: Fannie Mae 

a Unpaid principal balance. Amounts for 2002 to 2009 exclude mortgage-related securities consolidated as loans at period end.

b Beginning in 2010, excludes effect of accounting guidance related to transfers of financial assets and consolidation of variable interest entities, effective January 1, 2010. Amounts for 2010 have been revised from amounts 

previously reported to reflect this exclusion. 

c Excludes mortgage revenue bonds.
REPORT TO CONGRESS • 2015 89

APPENDIX: HISTORICAL DATA TABLES

End of 

Period

Mortgage-Related Securities ($ in Millions)a

Private-Label

Single-Familyb

Multifamily

($)

Total 

PrivateLabel

 ($) 

Manufactured

Housing

($)

Subprime Alt-A Other

Fixed-Rate

($) 

AdjustableRate ($)Fixed-Rate

($) 

AdjustableRate ($)Fixed-Rate

($) 

AdjustableRate ($)

4Q15 460 5 5,208 567 2,914 89 970 3,516 13,729

3Q15 485 9 5,835 948 3,277 93 983 3,566 15,196

2Q15 1,149 147 5,862 2,672 1,860 142 1,039 3,600 16,471

1Q15 1,651 151 7,343 3,415 2,690 145 1,175 3,647 20,217

Annual Data

2015 460 5 5,208 567 2,914 89 970 3,516 13,729

2014 1,699 194 8,719 4,329 3,416 149 1,194 3,688 23,388

2013 1,902 218 12,104 3,512 7,641 168 1,322 3,987 30,854

2012 2,140 299 14,794 6,423 10,656 190 1,477 20,594 56,573

2011 2,387 331 16,207 6,232 13,438 208 1,590 23,238 63,631

2010 2,660 361 17,678 7,119 15,164 237 1,700 25,067 69,986

2009 2,485 391 20,136 7,515 16,990 255 1,849 25,723 75,344

2008 2,840 438 24,113 8,444 19,414 286 2,021 25,850 83,406

2007 3,316 503 31,537 9,221 23,254 319 1,187 25,473 94,810

2006 3,902 268 46,608 10,722 24,402 376 1,282 9,721 97,281 

2005 4,622 431 46,679 11,848 21,203 634 1,455 43 86,915 

2004 5,461 889 73,768 11,387 14,223 2,535 487 59 108,809 

2003 6,522 1,437 27,738 8,429 383 1,944 428 98 46,979 

2002 9,583 2,870 6,534 3,905 20 3,773 1,325 147 28,157 

2001 10,708 Not Available 

Before 2002

Not Available 

Before 2002

Not Available 

Before 2002

Not Available 

Before 2002

Not Available 

Before 2002

Not Available 

Before 2002 299 29,175

2000 Not Available 

Before 2001

Not Available 

Before 2001 34,266

1999 31,673

1998 19,585

1997 5,554

1996 1,486

1995 747

1994 1

1993 2

1992 3

1991 93

1990 352

1989 831

1988 810

1987 1,036

1986 1,591

Table 5b. Fannie Mae Mortgage Assets Held for Investment Detail – 

Part 2, Mortgage-Related Securities, Private-Label Detail

Source: Fannie Mae 

a Unpaid principal balance. Beginning in 2010, excludes effect of accounting guidance related to transfers of financial assets and consolidation of variable interest entities, effective January 1, 2010. Amounts 

for 2010 have been revised from amounts previously reported to reflect this exclusion.

b Beginning in Q3 2015, we reclassified certain Single-Family securities from fixed-rate to adjustable-rate.
90 FEDERAL HOUSING FINANCE AGENCY

End of 

Period

Mortgage-Related Securities ($ in Millions) ($ in Millions)

Mortgage 

Revenue 

Bondsa

($)

Total 

Mortgage-Related 

Securitiesa,b

($)

Unamortized Premiums, 

Discounts, Deferred 

Adjustments, & Fair-Value 

Adjustments on Securities 

and Loansb,c

($) 

Mortgage 

Assets Held

for Investment

(Net)b

 ($) 

Mortgage 

Assets Held

for Investment

(Gross)b,d

 ($) 

Limit on

Mortgage 

Assets Held

for Investment

(Gross)e

 ($) 

4Q15 3,105 91,511 -8,446 336,657 345,103 399,200 

3Q15 3,391 110,462 -6,545 363,905 370,450 399,200 

2Q15 3,607 119,498 -6,425 383,882 390,307 399,200 

1Q15 4,025 130,282 -5,802 405,882 411,684 399,200 

Annual Data

2015 3,105 91,511 -8,446 336,657 345,103 399,200 

2014 4,556 127,703 -6,861 406,452 413,313 422,700 

2013 6,319 176,037 -10,302 480,399 490,701 552,500 

2012 8,486 261,346 -6,267 626,787 633,054 650,000 

2011 10,899 310,143 -9,784 698,630 708,414 729,000 

2010 12,525 361,697 -12,284 776,487 788,771 810,000 

2009 14,453 352,709 -23,981 745,271 769,252 900,000 

2008 15,447 362,703 -24,207 767,989 Not Applicable Before 2009 Not Applicable Before 2009

2007 16,315 324,326 -4,283 723,620

2006 16,924 345,887 -2,498 726,434

2005 18,802 371,209 -1,086 736,803

2004 22,076 517,052 7,985 925,194

2003 20,359 511,235 10,721 919,589

2002 19,650 476,535 20,848 820,627

2001 18,377 541,046 -2,104 706,347

2000 15,227 457,617 -2,520 607,731

1999 12,171 374,836 -964 523,103

1998 9,685 258,736 919 415,434

1997 7,620 156,576 -86 316,592

1996 6,665 119,161 -525 286,527

1995 5,343 82,030 -643 252,868

1994 3,403 51,148 -1,242 220,815

1993 2,519 27,712 -692 190,169

1992 2,816 23,522 -1,859 156,260

1991 2,759 19,732 -2,304 126,679

1990 2,530 14,831 -2,562 114,066

1989 2,239 14,992 -2,740 107,981

1988 1,804 10,793 -2,914 100,099

1987 1,866 7,128 -3,081 93,665

1986 469 Not Available Before 1987 -3,710 94,123

1985 Not Available Before 1986 -4,040 95,250

1984 -3,974 84,695

1983 -3,009 75,782

1982 -2,458 69,842

1981 -1,783 59,949

1980 -1,738 55,878

1979 -1,320 49,777

1978 -1,212 42,103

1977 -1,125 33,252

1976 -1,162 31,775

1975 -1,096 30,821

1974 -1,042 28,665

1973 -870 23,579

1972 -674 19,650

1971 -629 17,886

Table 5b. Fannie Mae Mortgage Assets Held for Investment 

Detail – Part 3, Mortgage-Related Securities

Source: Fannie Mae

N/A = not applicable 

a Unpaid principal balance.

b Beginning in 2010, excludes effect of accounting guidance related to transfers of financial assets and 

consolidation of variable interest entities, effective January 1, 2010. Amounts for 2010 have been revised 

from amounts previously reported to reflect this exclusion. 

c Includes unamortized premiums, discounts, deferred adjustments, and fair-value adjustments on 

securities and loans. Beginning in 2002, amounts include fair-value adjustments and impairments on 

mortgage-related securities and securities commitments classified as trading and available-for-sale. 

Excludes allowance for loan losses on loans held for investment.

d Amounts for 2010 and later meet the definition of mortgage assets in the Treasury Senior Preferred Stock 

Purchase Agreement for the purpose of determining the maximum amount of mortgage assets that may 

be held. The amount for 2009 includes consolidation of variable interest entities. The 2009 amount would 

have been $772.5 billion excluding consolidation of variable interest entities.

e Maximum allowable mortgage assets under the Treasury Senior Preferred Stock Purchase Agreement.
REPORT TO CONGRESS • 2015 91

APPENDIX: HISTORICAL DATA TABLES

End of 

Period

Financial Derivatives – Notional Amount Outstanding ($ in Millions)

Interest Rate 

Swaps a

($)

Interest Rate 

Caps, Floors, 

and Corridors

 ($)

Foreign Currency 

Contracts

($)

Over-theCounter Futures, 

Options, and 

Forward Rate 

Agreementsb

($) 

Mandatory 

Mortgage 

Purchase & Sell 

Commitments 

($)

Other

 ($) 

Total

 ($) 

4Q15 384,184 0 553 41,191 125,443 0 551,371

3Q15 377,152 0 567 36,431 158,653 0 572,803

2Q15 380,078 0 622 36,050 167,489 0 584,239

1Q15 412,348 0 588 52,700 178,068 0 643,704

Annual Data

2015 384,184 0 553 41,191 125,443 0 551,371

2014 404,375 0 617 67,900 119,026 0 591,918

2013 413,738 500 1,042 137,450 72,937 0 625,667

2012 572,349 6,500 1,195 121,910 159,057 0 861,011

2011 426,688 7,000 1,032 178,470 101,435 0 714,625

2010 502,578 7,000 1,560 176,010 119,870 0 807,018

2009 661,990 7,000 1,537 174,680 121,947 0 967,154

2008 1,023,384 500 1,652 173,060 71,236 0 1,269,832

2007 671,274 2,250 2,559 210,381 55,366 0 941,830

2006 516,571 14,000 4,551 210,271 39,928 0 785,321

2005 317,470 33,000 5,645 288,000 39,194 0 683,309

2004 256,216 104,150 11,453 318,275 40,600 0 730,694

2003 598,288 130,350 5,195 305,175 43,560 0 1,082,568

2002 253,211 122,419 3,932 275,625 Not Available

Before 2003 0 655,187

2001 299,953 75,893 8,493 148,800 0 533,139

2000 227,651 33,663 9,511 53,915 0 324,740

1999 192,032 28,950 11,507 41,081 1,400 274,970

1998 142,846 14,500 12,995 13,481 3,735 187,557

1997 149,673 100 9,968 0 1,660 161,401

1996 158,140 300 2,429 0 350 161,219

1995 125,679 300 1,224 29 975 128,207

1994 87,470 360 1,023 0 1,465 90,317

1993 49,458 360 1,023 0 1,425 52,265

1992 24,130 0 1,177 0 1,350 26,658

1991 9,100 0 Not Available 

Before 1992 50 1,050 10,200

1990 4,800 0 25 1,700 6,525

Table 6. Fannie Mae Financial Derivatives

Source: Fannie Mae

a Beginning in 2002, includes mortgage-backed securities options, swap credit enhancements, and forward-starting debt. Forward-starting debt is a commitment to issue debt at some future time (generally to 

fund a purchase or commitment that starts at the agreed future time). 

b Beginning in 2010, includes exchange-traded futures, if applicable.
92 FEDERAL HOUSING FINANCE AGENCY

End of 

Period

Nonmortgage Investments ($ in Millions)a

Federal Funds 

and 

Eurodollars ($) 

Asset-Backed 

Securities

($)

Repurchase 

Agreementsb

($)

Commercial Paper 

and Corporate 

Debt c ($) 

Other d

($) 

Total 

($) 

 4Q15 0 0 27,350 0 29,485 56,835

 3Q15 0 0 26,600 0 26,961 53,561

 2Q15 0 0 22,010 0 23,790 45,800

 1Q15 0 0 20,230 0 19,367 39,597

Annual Data

2015 0 0 27,350 0 29,485 56,835

2014 0 0 30,950 0 19,466 50,416

2013 0 0 38,975 0 16,306 55,281

2012 0 0 32,500 0 17,950 50,450

2011 0 2,111 46,000 0 47,737 95,848

2010 5,000 5,321 6,750 0 27,432 44,503

2009 44,900 8,515 4,000 364 3 57,782

2008 45,910 10,598 8,000 6,037 1,005 71,550

2007 43,510 15,511 5,250 13,515 9,089 86,875

2006 9,410 18,914 0 27,604 1,055 56,983

2005 8,900 19,190 0 16,979 947 46,016

2004 3,860 25,644 70 16,435 1,829 47,839

2003 12,575 26,862 111 17,700 2,270 59,518

2002 150 22,312 181 14,659 2,074 39,376

2001 16,089 20,937 808 23,805 4,343 65,982

2000 7,539 17,512 87 8,893 18,316 52,347

1999 4,837 19,207 122 1,723 11,410 37,299

1998 7,926 20,993 7,556 5,155 16,885 58,515

1997 19,212 16,639 6,715 11,745 10,285 64,596

1996 21,734 14,635 4,667 6,191 9,379 56,606

1995 19,775 9,905 10,175 8,629 8,789 57,273

1994 17,593 3,796 9,006 7,719 8,221 46,335

1993 4,496 3,557 4,684 0 8,659 21,396

1992 6,587 4,124 3,189 0 5,674 19,574

1991 2,954 2,416 2,195 0 2,271 9,836

1990 5,329 1,780 951 0 1,808 9,868

1989 5,158 1,107 0 0 2,073 8,338

1988 4,125 481 0 0 683 5,289

1987 2,559 25 0 0 884 3,468

1986 1,530 0 0 0 245 1,775

1985 1,391 0 0 0 75 1,466

1984 1,575 0 0 0 265 1,840

1983 9 0 0 0 227 236

1982 1,799 0 0 0 631 2,430

1981 Not Available Before 1982 Not Available Before 1982 Not Available Before 1982 Not Available Before 1982 Not Available Before 1982 1,047

1980 1,556

1979 843

1978 834

1977 318

1976 245

1975 239

1974 466

1973 227

1972 268

1971 349

Table 7. Fannie Mae Nonmortgage Investments

Source: Fannie Mae

a Data reflect unpaid principal balance net of unamortized purchase premiums, discounts and 

cost-basis adjustments, fair-value adjustments, and impairments on available-for-sale and trading 

securities. 

b Since 2005, advances to lenders have not been included in the data. Amounts for years before 2005 

may include or consist of advances to lenders. Includes tri-party repurchase agreements. 

c Includes commercial paper, floating-rate notes, taxable auction notes, corporate bonds, and 

auction-rate preferred stock. Starting with 2006, medium-term notes previously reported in “Other” 

are included in commercial paper.

d Includes Treasury and agency securities, Yankee Bonds, and domestic certificates of deposit.
REPORT TO CONGRESS • 2015 93

APPENDIX: HISTORICAL DATA TABLES

End of 

Period

Mortgage Asset Quality

Single-Family

Serious 

Delinquency Ratea

(%)

Multifamily Serious 

Delinquency Rateb

(%)

Credit Losses as a 

Proportion of the 

Guarantee Book of 

Businessc, d (%)

REO as a Proportion 

of the Guarantee 

Book of Businessd (%)

Credit-Enhanced 

Outstanding as a 

Proportion of the 

Guarantee Book of 

Businesse (%)

4Q15 1.55 0.07 0.35 0.22 23.1

 3Q15 1.59 0.05 0.15 0.25 22.6

 2Q15 1.66 0.05 0.28 0.28 21.6

 1Q15 1.78 0.09 0.71 0.31 21.2

Annual Data

2015 1.55 0.07 0.35 0.22 23.1

2014 1.89 0.05 0.20 0.35 20.9

2013 2.38 0.10 0.15 0.38 19.6

2012 3.29 0.24 0.48 0.35 18.8

2011 3.91 0.59 0.61 0.37 18.4

2010 4.48 0.71 0.77 0.53 19.1

2009 5.38 0.63 0.45 0.30 21.2

2008 2.42 0.30 0.23 0.23 23.9

2007 0.98 0.08 0.05 0.13 23.7

2006 0.65 0.08 0.02 0.09 22.3

2005 0.79 0.32 0.01 0.08 21.8

2004 0.63 0.11 0.01 0.07 20.5

2003 0.60 0.29 0.01 0.06 22.6

2002 0.57 0.08 0.01 0.05 26.8

2001 0.55 0.27 0.01 0.04 34.2

2000 0.45 0.07 0.01 0.05 40.4

1999 0.47 0.11 0.01 0.06 20.9

1998 0.56 0.23 0.03 0.08 17.5

1997 0.62 0.37 0.04 0.10 12.8

1996 0.58 0.68 0.05 0.11 10.5

1995 0.56 0.81 0.05 0.08 10.6

1994 0.47 1.21 0.06 0.10 10.2

1993 0.48 2.34 0.04 0.10 10.6

1992 0.53 2.65 0.04 0.09 15.6

1991 0.64 3.62 0.04 0.07 22.0

1990 0.58 1.70 0.06 0.09 25.9

1989 0.69 3.20 0.07 0.14 Not Available Before 1990

1988 0.88 6.60 0.11 0.15

1987 1.12 Not Available Before 1988 0.11 0.18

1986 1.38 0.12 0.22

1985 1.48 0.13 0.32

1984 1.65 0.09 0.33

1983 1.49 0.05 0.35

1982 1.41 0.01 0.20

1981 0.96 0.01 0.13

1980 0.90 0.01 0.09

1979 0.56 0.02 0.11

1978 0.55 0.02 0.18

1977 0.46 0.02 0.26

1976 1.58 0.03 0.27

1975 0.56 0.03 0.51

1974 0.51 0.02 0.52

1973 Not Available Before 1974 0.00 0.61

1972 0.02 0.98

1971 0.01 0.59

Table 8. Fannie Mae Mortgage Asset Quality 

Source: Fannie Mae

a Single-family loans are seriously delinquent when the loans are 90 days or more past due or in the 

foreclosure process. Rate is calculated using the number of conventional single-family loans owned 

and backing Fannie Mae mortgage-backed securities (MBS). Includes loans referred to foreclosure 

proceedings but not yet foreclosed. Prior to 1988, data included all seriously delinquent loans for 

which Fannie Mae had primary risk of loss. Beginning in 1998, data include all seriously delinquent 

conventional loans owned or backing Fannie Mae MBS with and without primary mortgage insurance 

or credit enhancement. Data prior to 1992 include loans and securities in relief or bankruptcy, even if 

the loans were less than 90 days delinquent, calculated based on number of loans.

b Before 1998, data include multifamily loans for which Fannie Mae had primary risk of loss. Beginning 

in 1998, data include all multifamily loans and securities 60 days or more past due. Beginning in 

2002, rate is calculated using the unpaid principal balance of multifamily loans owned by Fannie Mae 

or underlying Fannie Mae guaranteed securities as the denominator. For the period 1998 to 2001, the 

denominator also includes other credit enhancements Fannie Mae provides on multifamily mortgage 

assets and multifamily non-Fannie Mae mortgage-related securities held for investment.

c Credit losses are charge-offs, net of recoveries and foreclosed property expense (income). Average 

balances used to calculate ratios subsequent to 1994. Quarterly data are annualized. Beginning in 

2005, credit losses exclude the impact of fair-value losses of credit impaired loans acquired from 

MBS trusts. Beginning in 2008, credit losses also exclude the effect of HomeSaver Advance program 

fair-value losses.

d Guaranty book of business refers to the sum of the unpaid principal balance of mortgage loans held 

as investments, Fannie Mae MBS held as investments, Fannie Mae MBS held by third parties, and 

other credit enhancements Fannie Mae provides on mortgage assets. It excludes non-Fannie Mae 

mortgage-related securities held for investment that Fannie Mae does not guarantee. Before 2005, 

the ratio was based on the mortgage credit book of business, which consists of the guaranty book of 

business plus non-Fannie Mae mortgage-related securities held as investments not guaranteed by 

Fannie Mae.

e Beginning in 2000, the credit-enhanced category was expanded to include loans with primary 

mortgage insurance. Amounts for periods before 2000 reflect the proportion of assets held for 

investment with additional recourse from a third party to accept some or all of the expected losses 

on defaulted mortgages.
94 FEDERAL HOUSING FINANCE AGENCY

End of 

Period

Capital ($ in Millions)a

Minimum Capital Requirement Risk-Based Capital Requirement

Market 

Capitalizationh

($)

Core Capital/

Total Assetsi

(%)

Core Capital/

Total 

Assets Plus 

Unconsolidated 

MBSi, j

(%)

Common 

Share 

Dividend 

Payout 

Ratek

(%)

Core 

Capitalb

($) 

Minimum 

Capital 

Requirementc

($) 

 Minimum 

Capital 

Surplus 

(Deficit)d

 ($) 

 Total 

Capitale

($) 

Risk-Based 

Capital 

Requirementf

($) 

Risk-Based 

Capital 

Surplus 

(Deficit)g

 ($) 

 4Q15 -114,526 25,144 -139,670 N/A N/A N/A 1,899 (3.55) -3.54 N/A

 3Q15 -114,790 25,851 -140,641 N/A N/A N/A 2,606 (3.55) -3.54 N/A

 2Q15 -112,390 26,282 -138,672 N/A N/A N/A 2,698 (3.48) -3.47 N/A

 1Q15 -115,235 27,009 -142,244 N/A N/A N/A 2,721 (3.56) -3.54 N/A

Annual Data

2015 -114,526 25,144 -139,670 N/A N/A N/A 1,899 (3.55) -3.54 N/A

2014 -115,202 27,044 -142,246 N/A N/A N/A 2,380 (3.55) -3.53 N/A

2013 -108,811 28,472 -137,283 N/A N/A N/A 3,486 -3.33 -3.31 N/A

2012 -110,350 30,862 -141,212 N/A N/A N/A 295 (3.42) (3.41) N/A

2011 -115,967 32,463 -148,430 N/A N/A N/A 233 (3.61) (3.59) N/A

2010 -89,516 33,676 -123,192 N/A N/A N/A 336 (2.78) (2.76) N/A

2009 -74,540 33,057 -107,597 N/A N/A N/A 1,314 (8.58) (2.26) N/A

2008 -8,641 33,552 -42,193 N/A N/A N/A 825 (0.95) (0.27) N/M

2007 45,373 31,927 13,446 48,658 24,700 23,958 38,946 5.14 1.51 N/M

2006 41,950 29,359 12,591 42,703 26,870 15,833 57,735 4.97 1.60 32.4

2005 39,433 28,233 11,200 40,091 12,636 27,455 47,373 4.73 1.62 17.2

2004 34,514 32,121 2,393 35,196 10,039 25,157 69,010 3.38 1.42 42.1

2003 26,953 31,816 -4,863 27,487 27,221 266 72,838 2.64 1.16 20.8

2002 20,431 27,688 -7,257 20,831 17,434 3,397 63,612 2.26 1.05 34.5

2001 25,182 24,182 1,000 25,976 Not Applicable 

Before 2002

Not Applicable 

Before 2002 79,281 3.15 1.51 23.0

2000 20,827 20,293 533 21,634 86,643 3.08 1.51 26.0

1999 17,876 17,770 106 18,677 63,651 3.11 1.43 28.8

1998 15,465 15,334 131 16,257 75,881 3.19 1.38 29.5

1997 13,793 12,703 1,090 14,575 59,167 3.52 1.42 29.4

1996 12,773 11,466 1,307 13,520 39,932 3.64 1.42 30.4

1995 10,959 10,451 508 11,703 33,812 3.46 1.32 34.6

1994 9,541 9,415 126 10,368 19,882 3.50 1.26 30.8

1993 8,052 7,064 988 8,893 21,387 3.71 1.17 26.8

1992 Not Applicable 

Before 1993

Not Applicable 

Before 1993

Not Applicable 

Before 1993

Not Applicable 

Before 1993 20,874 Not ApplicableBefore 1993 

Not Applicable

Before 1993 23.2

1991 18,836 21.3

1990 8,490 14.7

1989 8,092 12.8

1988 3,992 11.2

1987 2,401 11.7

1986 3,006 8.0

1985 1,904 30.1

1984 1,012 N/A 

1983 1,514 13.9

1982 1,603 N/A

1981 502 N/A

1980 702 464.2

1979 Not Available

Before 1980 45.7

1978 30.3

1977 31.8

1976 33.6

1975 31.8

1974 29.6

1973 18.1

1972 15.2

1971 18.7

Table 9. Fannie Mae Capital

Sources: Fannie Mae and FHFA 

N/A = not applicable N/M = not meaningful

a On October 9, 2008, the Federal Housing Finance Agency (FHFA) suspended capital classifications of Fannie Mae. As of the 

fourth quarter of 2008, neither the existing statutory nor the FHFA-directed regulatory capital requirements were binding and 

will not be binding during conservatorship.

b The sum of the stated value of outstanding common stock (common stock less treasury stock), the stated value of 

outstanding noncumulative perpetual preferred stock, paid-in capital, and retained earnings (accumulated deficit). Core 

capital excludes accumulated other comprehensive income (loss) and senior preferred stock.

c Beginning in the third quarter of 2005, FHFA required Fannie Mae to maintain an additional 30 percent capital in excess of 

the statutory minimum capital requirement. The regulator reduced the requirement to 20 percent as of the first quarter of 

2008 and to 15 percent as of the second quarter of 2008. The minimum capital requirement and minimum capital surplus 

numbers stated in this table do not reflect these additional capital requirements.

d Minimum capital surplus is the difference between core capital and minimum capital requirement.

e Total capital is core capital plus the total allowance for loan losses and guaranty liability for mortgage-backed securities 

(MBS), less any specific loss allowances.

f Risk-based capital requirement is the amount of total capital an Enterprise must hold to absorb projected losses flowing 

from future adverse interest rate and credit risk conditions and is specified by the Federal Housing Enterprises Financial 

Safety and Soundness Act of 1992. For 2004 through 2006, the requirements were calculated based on originally reported, 

not restated or revised, financial results.

g The difference between total capital and the risk-based capital requirement. For 2004 through 2006, the difference reflects 

restated and revised total capital, rather than total capital originally reported by Fannie Mae and used by FHFA to set capital 

classifications. FHFA is not reporting on risk-based capital levels during conservatorship.

h Stock price at the end of the period multiplied by the number of outstanding common shares.

i Adoption of accounting guidance related to transfers of financial assets and consolidation of variable interest entities, 

effective January 1, 2010, significantly changed presentation of this item in the financial statements. Financial results for 

2010 and beyond are not directly comparable to previous years. 

j

 Unconsolidated MBS are those held by third parties. 

k Common dividends declared during the period divided by net income available to common stockholders for the period. As a 

result of conservatorship status and the terms of the Senior Preferred Stock Purchase Agreement with Treasury, no amounts 

are available to distribute as dividends to common or preferred stockholders (other than to Treasury as holder of the Senior 

Preferred Stock).
REPORT TO CONGRESS • 2015 95

APPENDIX: HISTORICAL DATA TABLES

Period

Business Activity ($ in Millions)

Purchasesa

Single-Family ($) Multifamily ($) Total Mortgagesb ($) Mortgage-Related

Securitiesc

($)

4Q15 75,676 13,211 88,887 26,712

3Q15 93,566 10,914 104,480 24,858

2Q15 101,150 13,135 114,285 22,771

1Q15 80,168 10,004 90,172 16,483

Annual Data

2015 350,560 47,264 397,824 90,824

2014 255,253 28,336 283,589 78,142

2013 422,742 25,872 448,614 73,079

2012 426,849 28,774 455,623 34,535

2011 320,793 20,325 341,118 120,001

2010 386,378 15,372 401,750 51,828

2009 475,350 16,571 491,921 238,835

2008 357,585 23,972 381,557 297,614

2007 466,066 21,645 487,711 231,039

2006 351,270 13,031 364,301 241,205

2005 381,673 11,172 392,845 325,575

2004 354,812 12,712 367,524 223,299

2003 701,483 15,292 716,775 385,078

2002 533,194 10,654 543,848 299,674

2001 384,124 9,510 393,634 248,466

2000 168,013 6,030 174,043 91,896

1999 232,612 7,181 239,793 101,898

1998 263,490 3,910 267,400 128,446

1997 115,160 2,241 117,401 35,385

1996 122,850 2,229 125,079 36,824

1995 89,971 1,565 91,536 39,292

1994 122,563 847 123,410 19,817

1993 229,051 191 229,242 Not Available Before 1994

1992 191,099 27 191,126

1991 99,729 236 99,965

1990 74,180 1,338 75,518

1989 76,765 1,824 78,589

1988 42,884 1,191 44,075

1987 74,824 2,016 76,840

1986 99,936 3,538 103,474

1985 42,110 1,902 44,012

1984 Not Available Before 1985 Not Available Before 1985 21,885

1983 22,952

1982 23,671

1981 3,744

1980 3,690

1979 5,716

1978 6,524

1977 4,124

1976 1,129

1975 1,716

1974 2,185

1973 1,334

1972 1,265

1971 778

Table 10. Freddie Mac Mortgage Purchases

Source: Freddie Mac

a Based on unpaid principal balances. Excludes mortgage loans and mortgage-related securities traded 

but not yet settled. 

b Consists of loans purchased from lenders, as well as those loans covered under other guarantee 

commitments. 

c Not included in total mortgages. From 2002 through the current period, amounts include non-Freddie 

Mac mortgage-related securities as well as repurchased Freddie Mac mortgage-backed securities 

(MBS) held for investment. Before 2002, amounts exclude Freddie Mac real estate mortgage 

investment conduits and other structured securities backed by Ginnie Mae MBS. Amounts in 2010 

through the current period, include purchases of Freddie Mac MBS, most accounted for as debt 

extinguishments under Generally Accepted Accounting Principles rather than as investment in 

securities. 
96 FEDERAL HOUSING FINANCE AGENCY

Period

Purchases ($ in Millions)a

Single-Family Mortgages Multifamily Mortgages

Total 

Mortgage 

Purchases

($)

Conventional FHA/VAd Total 

SingleFamily 

Mortgages

($)

Conventional

($)

FHA/RD

 ($) 

Total Multifamily 

Mortgages

($)

Fixed-Rateb

($) 

AdjustableRatec

 ($)

Seconds

 ($) 

Total

 ($) 

Fixed-Rate

 ($) 

AdjustableRate ($)Total

 ($) 

 4Q15 72,978 2,662 0 75,640 36 0 36 75,676 13,211 0 13,211 88,887

 3Q15 89,911 3,606 0 93,517 49 0 49 93,566 10,914 0 10,914 104,480

 2Q15 98,153 2,950 0 101,103 47 0 47 101,150 13,135 0 13,135 114,285

 1Q15 76,595 3,542 0 80,137 31 0 31 80,168 10,004 0 10,004 90,172

Annual Data

2015 337,637 12,760 0 350,397 163 0 163 350,560 47,264 0 47,264 397,824

2014 239,469 15,711 0 255,180 73 0 73 255,253 28,336 0 28,336 283,589

2013 406,605 16,007 0 422,612 130 0 130 422,742 25,872 0 25,872 448,614

2012 408,576 18,075 0 426,651 198 0 198 426,849 28,774 0 28,774 455,623

2011 294,918 25,685 0 320,603 190 0 190 320,793 20,325 0 20,325 341,118

2010 368,352 17,435 0 385,787 591 0 591 386,378 15,372 0 15,372 401,750

2009 470,355 3,615 0 473,970 1,380 0 1,380 475,350 16,571 0 16,571 491,921

2008 327,006 30,014 0 357,020 565 0 565 357,585 23,972 0 23,972 381,557

2007 387,760 78,149 0 465,909 157 0 157 466,066 21,645 0 21,645 487,711

2006 272,875 77,449 0 350,324 946 0 946 351,270 13,031 0 13,031 364,301

2005 313,842 67,831 0 381,673 0 0 0 381,673 11,172 0 11,172 392,845

2004 293,830 60,663 0 354,493 319 0 319 354,812 12,712 0 12,712 367,524

2003 617,796 82,270 0 700,066 1,417 0 1,417 701,483 15,292 0 15,292 716,775

2002 468,901 63,448 0 532,349 845 0 845 533,194 10,654 0 10,654 543,848

2001 353,056 30,780 0 383,836 288 0 288 384,124 9,507 3 9,510 393,634

2000 145,744 21,201 0 166,945 1,068 0 1,068 168,013 6,030 0 6,030 174,043

1999 224,040 7,443 0 231,483 1,129 0 1,129 232,612 7,181 0 7,181 239,793

1998 256,008 7,384 0 263,392 98 0 98 263,490 3,910 0 3,910 267,400

1997 106,174 8,950 0 115,124 36 0 36 115,160 2,241 0 2,241 117,401

1996 116,316 6,475 0 122,791 59 0 59 122,850 2,229 0 2,229 125,079

1995 75,867 14,099 0 89,966 5 0 5 89,971 1,565 0 1,565 91,536

1994 105,902 16,646 0 122,548 15 0 15 122,563 847 0 847 123,410

1993 208,322 20,708 1 229,031 20 0 20 229,051 191 0 191 229,242

1992 175,515 15,512 7 191,034 65 0 65 191,099 27 0 27 191,126

1991 91,586 7,793 206 99,585 144 0 144 99,729 236 0 236 99,965

1990 56,806 16,286 686 73,778 402 0 402 74,180 1,338 0 1,338 75,518

1989 57,100 17,835 1,206 76,141 624 0 624 76,765 1,824 0 1,824 78,589

1988 34,737 7,253 59 42,049 835 0 835 42,884 1,191 0 1,191 44,075

1987 69,148 4,779 69 73,996 828 0 828 74,824 2,016 0 2,016 76,840

1986 96,105 2,262 90 98,457 1,479 0 1,479 99,936 3,538 0 3,538 103,474

1985 40,226 605 34 40,865 1,245 0 1,245 42,110 1,902 0 1,902 44,012

Table 10a. Freddie Mac Mortgage Purchases Detail by Type of Loan

Source: Freddie Mac 

a Based on unpaid principal balances. Excludes mortgage loans and mortgage-related securities traded but not yet settled. Activity includes issuances of other guarantee commitments for loans held by third parties.

b From 2002 to through the current period, includes loans guaranteed by U.S. Department of Agriculture Rural Development (RD) loan programs. 

c From 2001 to 2012, includes balloon/reset mortgages. Freddie Mac discontinued purchase of balloon/reset mortgages on January 1, 2013.

d FHA stands for Federal Housing Administration. VA stands for Department of Veterans Affairs.
REPORT TO CONGRESS • 2015 97

APPENDIX: HISTORICAL DATA TABLES

97

Table 10b. Freddie Mac Purchases of Mortgage-Related Securities – Part 1

Period

Purchases ($ in Millions)a

Freddie Mac Securitiesb Other Securities

Mortgage

Revenue 

Bonds

($)

Total 

MortgageRelated 

Securitiesc

($)

Single-Family

Multifamily 

($)

Total 

Freddie 

Mac ($)

Fannie Mae Ginnie Maec

Total 

PrivateLabel 

($)

Single-Family

Multifamily 

($)

Total 

Fannie 

Mae ($)

Single-Family

Multifamily 

($)

Total 

Ginnie 

Mae ($)

FixedRate ($)

AdjustableRate ($)

FixedRate ($)

AdjustableRate ($)

FixedRate ($)

AdjustableRate ($)

4Q15 13,239 508 31 13,778 3 1 0 4 0 48 0 48 12,882 0 26,712 

3Q15 12,735 2,974 66 15,775 246 2,097 0 2,343 0 273 0 273 6,467 0 24,858

2Q15 12,687 720 0 13,407 868 0 0 868 0 3 0 3 8,493 0 22,771

1Q15 10,103 1,330 0 11,433 507 141 0 648 0 0 0 0 4,402 0 16,483

Annual Data

2015 48,764 5,532 97 54,393 1,624 2,239 0 3,863 0 324 0 324 32,244 0 90,824 

2014 43,922 7,568 392 51,882 2,695 5,005 0 7,700 0 73 0 73 18,487 0 78,142 

2013 44,760 296 0 45,056 4,251 50 0 4,301 0 0 0 0 23,722 0 73,079 

2012 13,272 3,045 119 16,436 0 170 0 170 0 0 0 0 17,929 0 34,535 

2011 94,543 5,057 472 100,072 5,835 2,297 0 8,132 0 0 0 0 11,797 0 120,001 

2010 40,462 923 382 41,767 0 373 0 373 0 0 0 0 9,688 0 51,828 

2009 176,974 5,414 0 182,388 43,298 2,697 0 45,995 0 0 27 27 10,245 180 238,835 

2008 192,701 26,344 111 219,156 49,534 18,519 0 68,053 0 0 8 8 10,316 81 297,614 

2007 111,976 26,800 2,283 141,059 2,170 9,863 0 12,033 0 0 0 0 76,134 1,813 231,039 

2006 76,378 27,146 0 103,524 4,259 8,014 0 12,273 0 0 0 0 122,230 3,178 241,205

2005 106,682 29,805 0 136,487 2,854 3,368 0 6,222 64 0 0 64 179,962 2,840 325,575

2004 72,147 23,942 146 96,235 756 3,282 0 4,038 0 0 0 0 121,082 1,944 223,299

2003 Not Available 

Before 2004

Not Available 

Before 2004

Not Available 

Before 2004 266,989 Not Available 

Before 2004

Not Available 

Before 2004

Not Available 

Before 2004 47,806 Not Available 

Before 2004

Not Available 

Before 2004 

Not Available 

Before 2004 166 69,154 963 385,078

2002 192,817 45,798 820 59,376 863 299,674

2001 157,339 64,508 1,444 24,468 707 248,466

2000 58,516 18,249 3,339 10,304 1,488 91,896

1999 69,219 12,392 3,422 15,263 1,602 101,898

1998 107,508 3,126 319 15,711 1,782 128,446

1997 31,296 897 326 1,494 1,372 35,385

1996 33,338 Not Available 

Before 1997

Not Available 

Before 1997

Not Available 

Before 1997

Not Available 

Before 1997 36,824

1995 32,534 39,292

1994 19,817 19,817

Source: Freddie Mac

a Based on unpaid principal balances. Excludes mortgage loans and mortgage-related securities traded but not yet settled. 

b Amounts for 2010 and later include purchases of Freddie Mac mortgage-backed securities (MBS), many accounted for as debt extinguishments under Generally Accepted Accounting Principles rather than as investment in 

securities. Amounts for 2012 and later primarily consists of third party purchases. 

c Before 2002, amounts exclude real estate mortgage investment conduits and other structured securities backed by Ginnie Mae MBS.
98 FEDERAL HOUSING FINANCE AGENCY 98

Table 10b. Freddie Mac Purchases of Mortgage-Related Securities – 

Part 2, Private-Label Detail

Source: Freddie Mac

a Based on unpaid principal balances. Excludes mortgage loans and mortgage-related securities traded but not yet settled. 

b Includes Alt-A and option ARM private-label mortgage-related securities purchased for other guarantee transactions. ARM stands for adjustable-rate mortgage.

c Includes non-Freddie Mac mortgage-related securities purchased for other guarantee transactions, including Ginnie Mae mortgage-backed securities, as well as non-agency securities held for investment. 

Purchases for 2009 and 2010 include amounts related to housing finance agency bonds acquired and resecuritized under a bond initiative program.

Period

Purchases ($ in Millions)a

Private-Label

Single-Family

Multifamilyc

($)

Total PrivateLabel 

($)

Manufactured 

Housing 

($)

Subprime Alt-Ab Other c

Fixed-Rate

 ($) 

AdjustableRate ($) Fixed-Rate

 ($) 

AdjustableRate ($) Fixed-Rate

 ($) 

AdjustableRate ($) 

 4Q15 0 0 0 0 0 0 0 12,882 12,882

3Q15 0 0 0 0 0 0 0 6,467 6,467

2Q15 0 0 0 0 0 0 0 8,493 8,493

1Q15 0 0 0 0 0 0 0 4,402 4,402

Annual Data

2015 0 0 0 0 0 0 0 32,244 32,244

2014 0 0 0 0 0 0 0 18,487 18,487

2013 0 0 0 0 0 26 0 23,696 23,722

2012 0 0 0 0 0 21 0 17,908 17,929

2011 0 0 0 0 0 77 0 11,720 11,797 

2010 0 0 0 0 0 3,172 0 6,516 9,688

2009 0 0 0 0 0 7,874 0 2,371 10,245

2008 0 60 46 0 618 8,175 0 1,417 10,316

2007 127 843 42,824 702 9,306 48 0 22,284 76,134

2006 0 116 74,645 718 29,828 48 0 16,875 122,230

2005 0 Not Available 

Before 2006

Not Available 

Before 2006

Not Available 

Before 2006

Not Available 

Before 2006 2,191 162,931 14,840 179,962

2004 0 1,379 108,825 10,878 121,082

2003 0 Not Available 

Before 2004

Not Available 

Before 2004

Not Available 

Before 2004 69,154

2002 318 59,376

2001 0 24,468

2000 15 10,304

1999 3,293 15,263

1998 1,630 15,711

1997 36 1,494
REPORT TO CONGRESS • 2015 99

APPENDIX: HISTORICAL DATA TABLES

Period

Business Activity ($ in Millions)

MBS Issuancesa

Single-Family MBSb

($)

Multifamily MBS

 ($) 

Total MBSb

 ($) 

Multiclass MBSc

 ($) 

4Q15 75,806 13,022 88,828 23,357

 3Q15 98,462 6,817 105,279 15,734

 2Q15 102,525 9,092 111,617 25,922

 1Q15 79,806 4,461 84,267 17,607

Annual Data

2015 356,599 33,392 389,991 82,620

2014 259,763 19,770 279,533 105,174

2013 435,499 25,267 460,766 111,436

2012 446,162 20,317 466,479 124,376

2011 304,629 12,632 317,261 166,539

2010 384,719 8,318 393,037 136,366

2009 472,461 2,951 475,412 86,202

2008 352,776 5,085 357,861 64,305

2007 467,342 3,634 470,976 133,321

2006 358,184 1,839 360,023 169,396

2005 396,213 1,654 397,867 208,450

2004 360,933 4,175 365,108 215,506

2003 705,450 8,337 713,787 298,118

2002 543,716 3,596 547,312 331,672

2001 387,234 2,357 389,591 192,437

2000 165,115 1,786 166,901 48,202

1999 230,986 2,045 233,031 119,565

1998 249,627 937 250,564 135,162

1997 113,758 500 114,258 84,366

1996 118,932 770 119,702 34,145

1995 85,522 355 85,877 15,372

1994 116,901 209 117,110 73,131

1993 208,724 0 208,724 143,336

1992 179,202 5 179,207 131,284

1991 92,479 0 92,479 72,032

1990 71,998 1,817 73,815 40,479

1989 72,931 587 73,518 39,754

1988 39,490 287 39,777 12,985

1987 72,866 2,152 75,018 0

1986 96,798 3,400 100,198 2,233

1985 37,583 1,245 38,828 2,625

1984 Not Available Before 1985 Not Available Before 1985 18,684 1,805

1983 19,691 1,685

1982 24,169 Not Issued Before 1983

1981 3,526

1980 2,526

1979 4,546

1978 6,412

1977 4,657

1976 1,360

1975 950

1974 46

1973 323

1972 494

1971 65

Table 11. Freddie Mac MBS Issuances

Source: Freddie Mac

a Based on unpaid principal balances. Excludes mortgage loans, mortgage-related securities traded 

but not yet settled and unguaranteed subordinated whole loan securities. Includes issuance of 

other guarantee commitments for mortgages not in the form of a security. 

b Includes mortgage-backed securities (MBS), real estate mortgage investment conduits (REMICs), 

other structured securities, and other guarantee transactions. From 2002 through the current 

period, includes Freddie Mac REMICs and other structured securities backed by Ginnie Mae MBS.

Before 2002, excludes Freddie Mac REMICs and other structured securities backed by Ginnie Mae 

MBS. Amounts are not included in total MBS issuances if the activity represents a resecuritization 

of Freddie Mac MBS.

c Includes activity related to multiclass securities, primarily REMICs, but excludes resecuritizations 

of MBS into single-class securities. Amounts are not included in total MBS issuances if the activity 

represents a resecuritization of Freddie Mac MBS.
100 FEDERAL HOUSING FINANCE AGENCY

Period

Earnings ($ in Millions)

Net Interest 

Incomea

 ($) 

 Guarantee Fee 

Incomea

($) 

Administrative 

Expenses

 ($) 

Credit-Related 

(Benefit)

Expensesb

 ($) 

Net Income

 (Loss) 

($) 

 Return on 

Equityc

(%) 

 4Q15 3,587 100 510 -686 2,158 N/M

 3Q15 3,743 90 465 -412 -475 N/M

 2Q15 3,969 91 501 -805 4,169 N/M

 1Q15 3,647 88 451 -424 524 N/M

Annual Data

2015 14,946 369 1,927 -2,327 6,376 N/M

2014 14,263 329 1,881 254 7,690 N/M

2013 16,468 271 1,805 -2,605 48,668 N/M

2012 17,611 201 1,561 1,949 10,982 N/M

2011 18,397 170 1,506 11,287 -5,266 N/M

2010 16,856 143 1,597 17,891 -14,025 N/M

2009 17,073 3,033 1,685 29,837 -21,553 N/M

2008 6,796 3,370 1,505 17,529 -50,119 N/M

2007 3,099 2,635 1,674 3,060 -3,094 (21.0)

2006 3,412 2,393 1,641 356 2,327 9.8 

2005 4,627 2,076 1,535 347 2,113 8.1 

2004 9,137 1,382 1,550 140 2,937 9.4 

2003 9,498 1,653 1,181 2 4,816 17.7 

2002 9,525 1,527 1,406 126 10,090 47.2 

2001 7,448 1,381 1,024 39 3,158 20.2 

2000 3,758 1,243 825 75 3,666 39.0 

1999 2,926 1,019 655 159 2,223 25.5 

1998 2,215 1,019 578 342 1,700 22.6 

1997 1,847 1,082 495 529 1,395 23.1 

1996 1,705 1,086 440 608 1,243 22.6 

1995 1,396 1,087 395 541 1,091 22.1 

1994 1,112 1,108 379 425 983 23.3 

1993 772 1,009 361 524 786 22.3 

1992 695 936 329 457 622 21.2 

1991 683 792 287 419 555 23.6 

1990 619 654 243 474 414 20.4 

1989 517 572 217 278 437 25.0 

1988 492 465 194 219 381 27.5 

1987 319 472 150 175 301 28.2 

1986 299 301 110 120 247 28.5 

1985 312 188 81 79 208 30.0 

1984 213 158 71 54 144 52.0 

1983 125 132 53 46 86 44.5 

1982 30 77 37 26 60 21.9 

1981 34 36 30 16 31 13.1 

1980 54 23 26 23 34 14.7 

1979 55 18 19 20 36 16.2 

1978 37 14 14 13 25 13.4 

1977 31 9 12 8 21 12.4 

1976 18 3 10 -1 14 9.5 

1975 31 3 10 11 16 11.6 

1974 42 2 8 33 5 4.0 

1973 31 2 7 15 12 9.9 

1972 10 1 5 4 4 3.5 

1971 10 1 Not Available Before 1972 Not Available Before 1972 6 5.5 

Table 12. Freddie Mac Earnings

Source: Freddie Mac 

N/M = not meaningful

a Adoption of accounting guidance related to transfers of financial assets and consolidation of variable 

interest entities, effective January 1, 2010, significantly changed presentation of these items in the 

financial statements. Consequently, financial results for 2010 and later are not directly comparable 

to previous years. Effective January 1, 2010, guarantee fee income associated with the securitization 

activities of consolidated trusts is reflected in net interest income. 

b For years 2002 through the current period, defined as provision/benefit for credit losses and realestate owned operations income/expense. For years 2000 and 2001, includes only provision for 

credit losses. 

c Ratio computed as annualized net income (loss) available to common stockholders divided by the 

simple average of beginning and ending common stockholders’ equity (deficit).
REPORT TO CONGRESS • 2015 101

APPENDIX: HISTORICAL DATA TABLES

End of 

Period

Balance Sheet ($ in Millions)a

Total 

Assets

 ($) 

Total 

Mortgage 

Assetsb

 ($) 

Nonmortgage 

Investments ($) 

Total 

Debt 

Outstanding

 ($) 

Stockholders’ 

Equity 

($) 

Senior 

Preferred 

Stock

 ($) 

Fair-Value 

of Net 

Assets

($) 

Mortgage 

Assets 

Held for 

Investment

(Gross)c

($) 

Indebtednessd

($) 

4Q15 1,986,050 1,866,588 80,795 1,970,427 2,940 72,336 Not Available 346,911 418,021 

 3Q15 1,962,147 1,871,507 50,896 1,947,389 1,299 72,336 Not Available 367,145 411,805 

 2Q15 1,947,462 1,857,244 47,003 1,929,069 5,713 72,336 Not Available 382,532 417,461 

 1Q15 1,951,603 1,852,264 61,766 1,935,629 2,546 72,336 Not Available 405,592 450,737 

Annual Data

2015 1,986,050 1,866,588 80,795 1,970,427 2,940 72,336 Not Available 346,911 418,021 

2014 1,945,539 1,852,646 58,585 1,929,542 2,651 72,336 (30,400) 408,414 454,029 

2013 1,966,061 1,855,095 69,019 1,940,751 12,835 72,336 (41,200) 461,024 511,345 

2012 1,989,856 1,912,929 58,076 1,967,042 8,827 72,336 (58,300) 557,544 552,472 

2011 2,147,216 2,062,713 39,342 2,131,983 (146) 72,171 (78,400) 653,313 674,314 

2010 2,261,780 2,149,586 74,420 2,242,588 (401) 64,200 (58,600) 696,874 728,217 

2009 841,784 716,974 26,271 780,604 4,278 51,700 (62,500) 755,272 805,073 

2008 850,963 748,747 18,944 843,021 (30,731) 14,800 (95,600) 804,762 Not Applicable

Before 2009

2007 794,368 710,042 41,663 738,557 26,724 Not Applicable

Before 2008 12,600 720,813 

2006 804,910 700,002 68,614 744,341 26,914 31,800 703,959 

2005 798,609 709,503 57,324 740,024 25,691 30,900 710,346 

2004 795,284 664,582 62,027 731,697 31,416 30,900 653,261 

2003 803,449 660,531 53,124 739,613 31,487 27,300 645,767 

2002 752,249 589,899 91,871 665,696 31,330 22,900 567,272 

2001 641,100 503,769 89,849 578,368 19,624 18,300 497,639 

2000 459,297 385,451 43,521 426,899 14,837 Not Available 

Before 2001 385,693 

1999 386,684 322,914 34,152 360,711 11,525 324,443 

1998 321,421 255,670 42,160 287,396 10,835 255,009 

1997 194,597 164,543 16,430 172,842 7,521 164,421 

1996 173,866 137,826 22,248 156,981 6,731 137,755 

1995 137,181 107,706 12,711 119,961 5,863 107,424 

1994 106,199 73,171 17,808 93,279 5,162 73,171 

1993 83,880 55,938 18,225 49,993 4,437 55,938 

1992 59,502 33,629 12,542 29,631 3,570 33,629 

1991 46,860 26,667 9,956 30,262 2,566 26,667 

1990 40,579 21,520 12,124 30,941 2,136 21,520 

1989 35,462 21,448 11,050 26,147 1,916 21,448 

1988 34,352 16,918 14,607 26,882 1,584 16,918 

1987 25,674 12,354 10,467 19,547 1,182 12,354 

1986 23,229 13,093 Not Available 

Before 1987 15,375 953 13,093 

1985 16,587 13,547 12,747 779 13,547 

1984 13,778 10,018 10,999 606 10,018 

1983 8,995 7,485 7,273 421 7,485 

1982 5,999 4,679 4,991 296 4,679 

1981 6,326 5,178 5,680 250 5,178 

1980 5,478 5,006 4,886 221 5,006 

1979 4,648 4,003 4,131 238 4,003 

1978 3,697 3,038 3,216 202 3,038 

1977 3,501 3,204 3,110 177 3,204 

1976 4,832 4,175 4,523 156 4,175 

1975 5,899 4,878 5,609 142 4,878 

1974 4,901 4,469 4,684 126 4,469 

1973 2,873 2,521 2,696 121 2,521 

1972 1,772 1,726 1,639 110 1,726 

1971 1,038 935 915 107 935 

Table 13. Freddie Mac Balance Sheet

Source: Freddie Mac

a Adoption of accounting guidance related to transfers of financial assets and consolidation of variable 

interest entities, effective January 1, 2010, significantly changed the presentation of these items in the 

financial statements. Consequently, financial results for 2010 and later are not directly comparable to 

previous years.

b Excludes allowance for loan losses.

c Amounts for 2009 and later meet the definition of mortgage assets in the Treasury Senior Preferred Stock 

Purchase Agreement for the purpose of determining the maximum amount of mortgage assets that may 

be held.

d As defined in the Treasury Senior Preferred Stock Purchase Agreement for 2009 and later years.
102 FEDERAL HOUSING FINANCE AGENCY

Table 13a. Freddie Mac Total MBS Outstanding Detaila

End of 

Period

Single-Family Mortgages ($ in Millions) Multifamily Mortgages

($ in Millions)

($ in 

Millions)

Conventional

Total 

FHA/VAd

Conventional

 ($) 

FHA/RD

 ($) 

Multifamily 

Mortgages

 ($) 

Total MBS 

Outstandinge

($)

Multiclass 

MBS 

Outstandingf

($)

Fixed-Rateb

($) 

AdjustableRatec

 ($)

Secondsd

 ($) 

Total

 ($)

 4Q15 1,409,898 68,234 0 1,478,132 2,413 114,130 0 114,130 1,594,675 411,016 

 3Q15 1,391,129 67,678 0 1,458,807 2,183 103,185 0 103,185 1,564,175 406,576 

 2Q15 1,370,345 70,181 0 1,440,526 2,598 98,320 0 98,320 1,541,444 411,368 

 1Q15 1,343,481 71,662 0 1,415,143 2,742 91,225 0 91,225 1,509,110 408,366 

Annual Data

2015 1,409,898 68,234 0 1,478,132 2,413 114,130 0 114,130 1,594,675 411,016

2014 1,338,926 72,095 0 1,411,021 2,835 87,836 0 87,836 1,501,692 410,133

2013 1,306,504 72,187 1 1,378,692 3,152 71,793 0 71,793 1,453,637 402,309

2012 1,269,642 76,095 1 1,345,738 3,452 49,542 0 49,542 1,398,732 427,630 

2011 1,303,916 81,977 2 1,385,895 4,106 32,080 0 32,080 1,422,081 451,716 

2010 1,357,124 84,471 2 1,441,597 4,434 21,954 0 21,954 1,467,985 429,115 

2009 1,364,796 111,550 3 1,476,349 3,544 15,374 0 15,374 1,495,267 448,329 

2008 1,242,648 142,495 4 1,385,147 3,970 13,597 0 13,597 1,402,714 517,654 

2007 1,206,495 161,963 7 1,368,465 4,499 8,899 0 8,899 1,381,863 526,604 

2006 967,580 141,740 12 1,109,332 5,396 8,033 0 8,033 1,122,761 491,696 

2005 836,023 117,757 19 953,799 6,289 14,112 0 14,112 974,200 437,668 

2004 736,332 91,474 70 827,876 9,254 15,140 0 15,140 852,270 390,516 

2003 649,699 74,409 140 724,248 12,157 15,759 0 15,759 752,164 347,833 

2002 647,603 61,110 5 708,718 12,361 8,730 0 8,730 729,809 392,545 

2001 609,290 22,525 10 631,825 14,127 7,132 0 7,132 653,084 299,652 

2000 533,331 36,266 18 569,615 778 5,708 0 5,708 576,101 309,185 

1999 499,671 33,094 29 532,794 627 4,462 0 4,462 537,883 316,168 

1998 Not Available 

Before 1999

Not Available 

Before 1999

Not Available 

Before 1999

Not Available 

Before 1999

Not Available 

Before 1999

Not Available 

Before 1999

Not Available 

Before 1999

Not Available 

Before 1999 478,351 260,504 

1997 475,985 233,829 

1996 473,065 237,939 

1995 459,045 246,336 

1994 460,656 264,152 

1993 439,029 265,178 

1992 407,514 218,747 

1991 359,163 146,978 

1990 316,359 88,124 

1989 272,870 52,865 

1988 226,406 15,621 

1987 212,635 3,652 

1986 169,186 5,333 

1985 99,909 5,047 

1984 70,026 3,214 

1983 57,720 1,669 

1982 42,952 Not Issued 

Before 1983 

1981 19,897

1980 16,962

1979 15,316

1978 12,017

1977 6,765

1976 2,765

1975 1,643

1974 780

1973 791

1972 444

1971 64

Source: Freddie Mac

a Based on unpaid principal balances of mortgage guarantees held by third parties. Excludes mortgagebacked securities (MBS) held for investment by Freddie Mac and unguaranteed subordinated whole loan 

securities.

b Includes U.S.Department of Agriculture Rural Development (RD) loan programs.

c From 2001 to the current period, includes MBS with underlying mortgages classified as balloon/reset 

loans. Freddie Mac discontinued purchase of balloon/reset mortgages on January 1, 2013.

d From 2002 to the current period, includes resecuritizations of non-Freddie Mac securities.

e Excludes mortgage loans and mortgage-related securities traded but not yet settled. From 2002 to 

the current period, amounts include real estate mortgage investment conduits and other structured 

securities, other guarantee transactions, and other guarantee commitments of mortgage loans and MBS 

held by third parties.

f Amounts are included in total MBS outstanding column.
REPORT TO CONGRESS • 2015 103

APPENDIX: HISTORICAL DATA TABLES

End of 

Period

($ in Millions)

Whole Loansa

($) 

Freddie Mac Securitiesa

($)

Other

Mortgage-Related 

Securitiesa

 ($) 

Mortgage 

Assets Held

for Investment

(Gross)b, c

 ($) 

4Q15 145,664 147,824 53,423 346,911

3Q15 153,415 155,027 58,703 367,145

2Q15 161,205 154,494 66,833 382,532

1Q15 166,145 164,501 74,946 405,592

Annual Data

2015 145,664 147,824 53,423 346,911

2014 164,472 161,541 82,401 408,414

2013 181,308 168,034 111,682 461,024

2012 221,313 186,763 149,468 557,544

2011 253,970 223,667 175,676 653,313

2010 234,746 263,603 198,525 696,874

2009 138,816 374,615 241,841 755,272

2008 111,476 424,524 268,762 804,762

2007 82,158 356,970 281,685 720,813

2006 65,847 354,262 283,850 703,959

2005 61,481 361,324 287,541 710,346

2004 61,360 356,698 235,203 653,261

2003 60,270 393,135 192,362 645,767

2002 63,886 341,287 162,099 567,272

2001 62,792 308,427 126,420 497,639

2000 59,240 246,209 80,244 385,693

1999 56,676 211,198 56,569 324,443

1998 57,084 168,108 29,817 255,009

1997 48,454 103,400 Not Available Before 1998 164,421

1996 46,504 81,195 137,755

1995 43,753 56,006 107,424

1994 Not Available Before 1995 30,670 73,171

1993 15,877 55,938

1992 6,394 33,629

1991 Not Available Before 1992 26,667

1990 21,520

1989 21,448

1988 16,918

1987 12,354

1986 13,093

1985 13,547

1984 10,018

1983 7,485

1982 4,679

1981 5,178

1980 5,006

1979 4,003

1978 3,038

1977 3,204

1976 4,175

1975 4,878

1974 4,469

1973 2,521

1972 1,726

1971 935

Table 14. Freddie Mac Mortgage Assets Held for Investment Detail

Source: Freddie Mac

a Based on unpaid principal balances. Excludes mortgage loans and mortgage-related 

securities traded but not yet settled. 

b Excludes allowance for loan losses.

c Amounts for 2009 and later meet the definition of mortgage assets in the Treasury 

Senior Preferred Stock Purchase Agreement for the purpose of determining the 

maximum amount of mortgage assets that may be held.
104 FEDERAL HOUSING FINANCE AGENCY

End of 

Period

Whole Loans ($ in Millions)a

Single-Family Multifamily

Total 

Whole

Loans

($)

Conventional

Total 

FHA/VAc

($)

Conventional

 ($) 

FHA/RD

($)

Total

 ($) 

Fixed-Rateb

($) 

AdjustableRate ($)Seconds

 ($) 

Total

 ($) 

 4Q15 92,931 3,185 0 96,116 461 49,084 3 49,087 145,664

 3Q15 95,214 3,528 0 98,742 453 54,217 3 54,220 153,415

 2Q15 102,216 3,859 0 106,075 480 54,647 3 54,650 161,205

 1Q15 105,780 4,293 0 110,073 464 55,605 3 55,608 166,145

Annual Data

2015 92,931 3,185 0 96,116 461 49,084 3 49,087 145,664

2014 106,499 4,544 0 111,043 473 52,953 3 52,956 164,472

2013 115,073 6,511 0 121,584 553 59,168 3 59,171 181,308

2012 133,506 9,953 0 143,459 1,285 76,566 3 76,569 221,313

2011 156,361 13,804 0 170,165 1,494 82,308 3 82,311 253,970

2010 130,722 16,643 0 147,365 1,498 85,880 3 85,883 234,746

2009 50,980 2,310 0 53,290 1,588 83,935 3 83,938 138,816

2008 36,071 2,136 0 38,207 548 72,718 3 72,721 111,476

2007 21,578 2,700 0 24,278 311 57,566 3 57,569 82,158

2006 19,211 1,233 0 20,444 196 45,204 3 45,207 65,847

2005 19,238 903 0 20,141 255 41,082 3 41,085 61,481

2004 22,055 990 0 23,045 344 37,968 3 37,971 61,360

2003 25,889 871 1 26,761 513 32,993 3 32,996 60,270

2002 33,821 1,321 3 35,145 705 28,033 3 28,036 63,886

2001 38,267 1,073 5 39,345 964 22,480 3 22,483 62,792

2000 39,537 2,125 9 41,671 1,200 16,369 Not Available

Before 2001 16,369 59,240

1999 43,210 1,020 14 44,244 77 12,355 12,355 56,676

1998 47,754 1,220 23 48,997 109 7,978 7,978 57,084

1997 40,967 1,478 36 42,481 148 5,825 5,825 48,454

1996 Not Available

Before 1997

Not Available

Before 1997

Not Available

Before 1997

Not Available

Before 1997

Not Available

Before 1997 4,746 4,746 46,504

1995 3,852 3,852 43,753

Table 14a. Freddie Mac Mortgage Assets Held for Investment 

Detail – Whole Loans

Source: Freddie Mac

a Based on unpaid principal balances of mortgage loans. Excludes mortgage loans traded but not yet settled. 

b From 2001 to the current period, includes U.S.Department of Agriculture Rural Development (RD) loan programs.

c FHA stands for Federal Housing Administration. VA stands for Department of Veterans Affairs.
REPORT TO CONGRESS • 2015 105

APPENDIX: HISTORICAL DATA TABLES

End 

of 

Period

Mortgage-Related Securities ($ in Millions)a

Freddie Mac Securitiesb Other Securities

Single-Family

Multifamily

($)

Total 

Freddie 

Mac ($) 

Fannie Mae Ginnie Mae

Total 

PrivateLabel

 ($) 

Total

Other 

Securities

($)

FixedRate

($)

AdjustableRate ($)

Single-Family

Multifamily

($)

Total 

Fannie 

Mae ($)

Single-Family

Multifamily

($)

Total 

Ginnie 

Mae ($)

FixedRate ($) 

AdjustableRate ($)

FixedRate ($) 

AdjustableRate ($)

4Q15 119,072 22,873 5,879 147,824 6,038 6,753 0 12,791 90 77 12 179 39,265 52,235

 3Q15 124,333 25,635 5,059 155,027 6,320 7,314 0 13,634 98 331 12 441 43,169 57,244

 2Q15 125,148 25,145 4,201 154,494 6,706 7,727 0 14,433 105 61 12 178 50,614 65,225

 1Q15 134,944 26,104 3,453 164,501 6,880 8,809 0 15,689 112 64 12 188 57,268 73,145

Annual Data

2015 119,072 22,873 5,879 147,824 6,038 6,753 0 12,791 90 77 12 179 39,265 52,235

2014 131,683 26,532 3,326 161,541 6,852 9,303 0 16,155 119 67 12 198 63,879 80,232

2013 137,164 28,083 2,787 168,034 7,240 9,421 3 16,664 150 78 15 243 91,237 108,144

2012 147,751 36,630 2,382 186,763 10,864 12,518 84 23,466 202 91 15 308 120,038 143,812

2011 174,440 46,219 3,008 223,667 16,543 15,998 128 32,669 253 104 16 373 134,841 167,883

2010 206,974 54,534 2,095 263,603 21,238 18,139 316 39,693 296 117 27 440 148,515 188,648

2009 294,958 77,708 1,949 374,615 36,549 28,585 528 65,662 341 133 35 509 163,816 229,987

2008 328,965 93,498 2,061 424,524 35,142 34,460 674 70,276 398 152 26 576 185,041 255,893

2007 269,896 84,415 2,659 356,970 23,140 23,043 922 47,105 468 181 82 731 218,914 266,750

2006 282,052 71,828 382 354,262 25,779 17,441 1,214 44,434 707 231 13 951 224,631 270,016

2005 299,167 61,766 391 361,324 28,818 13,180 1,335 43,333 1,045 218 30 1,293 231,594 276,220

2004 304,555 51,737 406 356,698 41,828 14,504 1,672 58,004 1,599 81 31 1,711 166,411 226,126

2003 Not Available

Before 2004

Not Available

Before 2004

Not Available

Before 2004 393,135 Not AvailableBefore 2004

Not Available

Before 2004

Not Available

Before 2004 74,529 Not AvailableBefore 2004

Not Available

Before 2004

Not Available

Before 2004 2,760 107,301 184,590

2002 341,287 78,829 4,878 70,752 154,459

2001 308,427 71,128 5,699 42,336 119,163

2000 246,209 28,303 8,991 35,997 73,291

1999 211,198 13,245 6,615 31,019 50,879

1998 168,108 3,749 4,458 16,970 25,177

1997 103,400 Not Available

Before 1998 6,393 Not AvailableBefore 1998

Not Available

Before 1998

1996 81,195 7,434

1995 56,006 Not Available 

Before 1996

1994 30,670

1993 15,877

1992 6,394

Table 14b. Freddie Mac Mortgage Assets Held for Investment 

Detail – Part 1, Mortgage-Related Securities

Source: Freddie Mac a Based on unpaid principal balances. 

b From 2001 to the current period, includes real estate mortgage investment conduits and other structured securities backed by Ginnie Mae mortgage-backed securities.

 
106 FEDERAL HOUSING FINANCE AGENCY

End of 

Period

Mortgage-Related Securities ($ in Millions)a

Private-Label

Single-Family

Multifamily

($)

Total PrivateLabel

 ($) 

Manufactured

Housing

($)

Subprime Alt-Ab Other c

Fixed-Rate

($) 

AdjustableRate ($)Fixed-Rate

($) 

AdjustableRate ($)Fixed-Rate

($) 

AdjustableRate ($)

 4Q15 630 10 17,285 753 3,045 0 5,309 12,233 39,265

 3Q15 647 10 18,529 789 3,458 0 5,604 14,132 43,169

 2Q15 665 10 20,977 845 4,061 0 6,938 17,118 50,614

 1Q15 682 10 23,780 921 4,763 0 7,704 19,408 57,268

Annual Data

2015 630 10 17,285 753 3,045 0 5,309 12,233 39,265

2014 704 11 27,675 955 5,035 0 8,287 21,212 63,879

2013 778 116 39,583 1,417 9,594 0 10,426 29,323 91,237

2012 862 311 44,086 1,774 13,036 0 12,012 47,957 120,038

2011 960 336 48,696 2,128 14,662 0 13,949 54,110 134,841

2010 1,080 363 53,855 2,405 16,438 0 15,646 58,728 148,515

2009 1,201 395 61,179 2,845 18,594 0 17,687 61,915 163,816

2008 1,326 438 74,413 3,266 21,801 0 19,606 64,191 185,041

2007 1,472 498 100,827 3,720 26,343 0 21,250 64,804 218,914

2006 1,510 408 121,691 3,626 31,743 0 20,893 44,760 224,631

2005 1,680 Not Available

Before 2006

Not Available

Before 2006

Not Available

Before 2006

Not Available

Before 2006 4,749 181,678 43,487 231,594

2004 1,816 8,243 115,168 41,184 166,411

2003 2,085 Not Available

Before 2004

Not Available

Before 2004

Not Available

Before 2004 107,301

2002 2,394 70,752

2001 2,462 42,336

2000 2,896 35,997

1999 4,693 31,019

1998 1,711 16,970

Table 14b. Freddie Mac Mortgage Assets Held for Investment 

Detail – Part 2, Mortgage-Related Securities, Private-Label Detail

Source: Freddie Mac 

a Based on unpaid principal balances. 

b Includes nonagency mortgage-related securities backed by home equity lines of credit.

c Consists of nonagency mortgage-related securities backed by option ARM loans. Before 2006, includes securities principally backed by subprime and Alt-A mortgage loans. ARM stands for 

adjustable-rate mortgage.
REPORT TO CONGRESS • 2015 107

APPENDIX: HISTORICAL DATA TABLES

End of 

Period

Mortgage-Related Securities 

($ in Millions) ($ in Millions)

Mortgage Revenue 

Bondsa

($)

Total 

Mortgage-Related 

Securitiesa 

($) 

Unamortized Premiums, 

Discounts, Deferred Fees, 

Plus Unrealized Gains/

Losses on Available-forSale Securitiesb

 ($) 

Mortgage 

Assets Held

for Investment

(Net)c

 ($) 

Mortgage 

Assets Held

for Investment

(Gross)d

 ($) 

Limit on Mortgage 

Assets Held

for Investment

(Gross)e

 ($) 

4Q15 1,188 201,247 N/A N/A 346,911 399,181

 3Q15 1,459 213,730 N/A N/A 367,145 469,625

 2Q15 1,608 221,327 N/A N/A 382,532 469,625

 1Q15 1,801 239,447 N/A N/A 405,592 469,625

Annual Data

2015 1,188 201,247 N/A N/A 346,911 399,181

2014 2,169 243,942 N/A N/A 408,414 469,625

2013 3,538 279,716 N/A N/A 461,024 552,500

2012 5,656 336,231 N/A N/A 557,544 650,000

2011 7,793 399,343 N/A N/A 653,313 729,000

2010 9,877 462,128 N/A N/A 696,874 810,000

2009 11,854 616,456 -38,298 716,974 755,272 900,000

2008 12,869 693,286 -56,015 748,747 804,762 Not Applicable Before 2009

2007 14,935 638,655 -10,771 710,042 720,813

2006 13,834 638,112 -3,957 700,002 703,959

2005 11,321 648,865 -843 709,503 710,346

2004 9,077 591,901 11,321 664,582 653,261

2003 7,772 585,497 14,764 660,531 645,767

2002 7,640 503,386 22,627 589,899 567,272

2001 7,257 434,847 6,130 503,769 497,639

2000 6,953 326,453 -242 385,451 385,693

1999 5,690 267,767 -1,529 322,914 324,443

1998 4,640 197,925 661 255,670 255,009

1997 3,031 Not Available Before 1998 122 164,543 164,421

1996 1,787 71 137,826 137,755

1995 Not Available Before 1996 282 107,706 107,424

1994 Not Available Before 1995 and after 2009 73,171 73,171

1993 55,938 55,938

1992 33,629 33,629

1991 26,667 26,667

1990 21,520 21,520

1989 21,448 21,448

1988 16,918 16,918

1987 12,354 12,354

1986 13,093 13,093

1985 13,547 13,547

1984 10,018 10,018

1983 7,485 7,485

1982 4,679 4,679

1981 5,178 5,178

1980 5,006 5,006

1979 4,003 4,003

1978 3,038 3,038

1977 3,204 3,204

1976 4,175 4,175

1975 4,878 4,878

1974 4,469 4,469

1973 2,521 2,521

1972 1,726 1,726

1971 935 935

Table 14b. Freddie Mac Mortgage Assets Held for Investment Detail 

– Part 3, Mortgage-Related Securities

Source: Freddie Mac 

N/A = not available 

a Based on unpaid principal balances.

b Includes premiums, discounts, deferred fees, impairments of unpaid principal balances, and other basis 

adjustments on mortgage loans and mortgage-related securities plus unrealized gains or losses on 

available-for-sale mortgage-related securities. Amounts prior to 2006 include mortgage-backed securities 

residuals at fair value.

c Excludes allowance for loan losses.

d Amounts for 2009 and later meet the definition of mortgage assets in the Treasury Senior Preferred Stock 

Purchase Agreement for the purpose of determining the maximum amount of mortgage assets that may 

be held.

e Maximum allowable mortgage assets under the Treasury Senior Preferred Stock Purchase Agreement.
108 FEDERAL HOUSING FINANCE AGENCY

Table 15. Freddie Mac Financial Derivatives

End of 

Period

Financial Derivatives – Notional Amount Outstanding ($ in Millions)

Interest 

Rate 

Swapsa

($)

Interest 

Rate Caps, 

Floors, and 

Corridors

 ($)

Foreign 

Currency 

Contracts

($)

Over-theCounter Futures, 

Options, and 

Forward Rate 

Agreements

($) 

TreasuryBased 

Contractsb

($) 

ExchangeTraded 

Futures, 

Options 

and Other 

Derivatives 

($) 

Credit 

Derivativesc

($) 

Commitmentsd

($) 

Othere

($) 

Total 

($) 

 4Q15 429,712 10,000 0 99,463 1,332 55,000 3,899 29,114 3,033 631,553

 3Q15 423,842 10,000 0 83,135 300 65,000 4,714 53,625 3,081 643,697

 2Q15 412,931 10,000 0 86,545 300 20,000 4,953 46,000 3,164 583,893

 1Q15 401,701 10,000 0 87,791 2,723 20,000 5,260 58,050 3,159 588,684

Annual Data

2015 429,712 10,000 0 99,463 1,332 55,000 3,899 29,114 3,033 631,553

2014 418,844 10,000 0 95,260 7,471 40,000 5,207 27,054 3,204 607,040

2013 524,624 19,000 528 103,010 270 50,000 5,386 18,731 3,477 725,026

2012 547,491 28,000 1,167 90,585 1,185 39,938 8,307 25,530 3,628 745,831

2011 503,893 28,000 1,722 182,974 2,250 41,281 10,190 14,318 3,621 788,249

2010 721,259 28,000 2,021 207,694 4,193 211,590 12,833 14,292 3,614 1,205,496

2009 705,707 35,945 5,669 287,193 540 159,659 14,198 13,872 3,521 1,226,304

2008 766,158 36,314 12,924 251,426 28,403 106,610 13,631 108,273 3,281 1,327,020

2007 711,829 0 20,118 313,033 0 196,270 7,667 72,662 1,302 1,322,881

2006 440,879 0 29,234 252,022 2,000 20,400 2,605 10,012 957 758,109

2005 341,008 45 37,850 193,502 0 86,252 2,414 21,961 738 683,770

2004 178,739 9,897 56,850 224,204 2,001 127,109 10,926 32,952 114,100 756,778

2003 287,592 11,308 46,512 349,650 8,549 122,619 15,542 89,520 152,579 1,083,871

2002 290,096 11,663 43,687 277,869 17,900 210,646 17,301 191,563 117,219 1,177,944

2001 442,771 12,178 23,995 187,486 13,276 358,500 10,984 121,588 0 1,170,778

2000 277,888 12,819 10,208 113,064 2,200 22,517 N/A N/A 35,839 474,535

1999 126,580 19,936 1,097 172,750 8,894 94,987 Not Applicable

Before 2000

Not Applicable

Before 2000 0 424,244

1998 57,555 21,845 1,464 63,000 11,542 157,832 0 313,238

1997 54,172 21,995 1,152 6,000 12,228 0 0 95,547

1996 46,646 14,095 544 0 651 0 0 61,936

1995 45,384 13,055 0 0 24 0 0 58,463

1994 21,834 9,003 0 0 0 0 0 30,837

1993 17,888 1,500 0 0 0 0 0 19,388

Source: Freddie Mac

N/A = not available

a Amounts for 2010 through the current period include exchange-settled interest rate swaps.

b Amounts for years 2002 through the current period include exchange-traded.

c Amounts included in “Other” in 2000, not applicable in prior years.

d Commitments include commitments to purchase and sell investments in securities and mortgage loans and commitments to purchase and extinguish or issue debt securities of consolidated trusts. Years 

before 2004 include commitments to purchase and sell various debt securities. 

e Includes prepayment management agreement and swap guarantee derivatives.
REPORT TO CONGRESS • 2015 109

APPENDIX: HISTORICAL DATA TABLES

End of 

Period

Nonmortgage Investments ($ in Millions)a

Federal Funds 

and Eurodollars 

($) 

Asset-Backed 

Securities

($)

Repurchase 

Agreements

($)

Commercial Paper 

and Corporate 

Debt ($) 

Other b

($) 

Total 

($) 

4Q15 0 0 63,644 0 17,151 80,795

 3Q15 0 0 38,738 0 12,158 50,896

 2Q15 0 0 37,041 0 9,962 47,003

 1Q15 0 0 47,166 0 14,600 61,766

Annual Data

2015 0 0 63,644 0 17,151 80,795

2014 0 0 51,903 0 6,682 58,585

2013 0 0 62,383 0 6,636 69,019

2012 0 292 37,563 0 20,221 58,076

2011 0 302 12,044 2,184 24,812 39,342

2010 3,750 44 42,774 441 27,411 74,420

2009 0 4,045 7,000 439 14,787 26,271

2008 0 8,794 10,150 0 0 18,944

2007 162 16,588 6,400 18,513 0 41,663

2006 19,778 32,122 3,250 11,191 2,273 68,614

2005 9,909 30,578 5,250 5,764 5,823 57,324

2004 18,647 21,733 13,550 0 8,097 62,027

2003 7,567 16,648 13,015 5,852 10,042 53,124

2002 6,129 34,790 16,914 13,050 20,988 91,871

2001 15,868 26,297 17,632 21,712 8,340 89,849

2000 2,267 19,063 7,488 7,302 7,401 43,521

1999 10,545 10,305 4,961 3,916 4,425 34,152

1998 20,524 7,124 1,756 7,795 4,961 42,160

1997 2,750 2,200 6,982 3,203 1,295 16,430

1996 9,968 2,086 6,440 1,058 2,696 22,248

1995 110 499 9,217 1,201 1,684 12,711

1994 7,260 0 5,913 1,234 3,401 17,808

1993 9,267 0 4,198 1,438 3,322 18,225

1992 5,632 0 4,060 53 2,797 12,542

1991 2,949 0 4,437 0 2,570 9,956

1990 1,112 0 9,063 0 1,949 12,124

1989 3,527 0 5,765 0 1,758 11,050

1988 4,469 0 9,107 0 1,031 14,607

1987 3,177 0 5,859 0 1,431 10,467

Table 16. Freddie Mac Nonmortgage Investments

Source: Freddie Mac

a Adoption of accounting guidance related to transfers of financial assets and consolidation of variable 

interest entities, effective January 1, 2010, changed presentation of nonmortgage investments. Values 

for 2010 and later are not directly comparable to previous years.

b Beginning in 2009, amounts include Treasury bills and Treasury notes. For 2004 through 2006, 

amounts include obligations of states and municipalities classified as available-for-sale securities. 

For 2003 and previous years, amounts include nonmortgage-related securities classified as trading, 

debt securities issued by the U.S. Treasury and other federal agencies, obligations of states and 

municipalities, and preferred stock.
110 FEDERAL HOUSING FINANCE AGENCY

End of 

Period

Mortgage Asset Quality

Single-Family 

Delinquency Ratea

(%)

Multifamily 

Delinquency Rateb

(%)

Credit Losses/Average 

Total Mortgage 

Portfolioc (%)

REO/Total Mortgage 

Portfoliod

(%)

Credit-Enhancede

/

Total Mortgage 

Portfoliod (%)

 4Q15 1.32 0.02 0.11 0.09 33.0 

 3Q15 1.41 0.01 0.14 0.10 31.0 

 2Q15 1.53 0.01 0.16 0.11 31.0 

 1Q15 1.73 0.03 0.63 0.12 28.0 

Annual Data

2015 1.32 0.02 0.26 0.09 33.0 

2014 1.88 0.04 0.22 0.14 26.0 

2013 2.39 0.09 0.27 0.25 16.0 

2012 3.25 0.19 0.64 0.24 13.0 

2011 3.58 0.22 0.68 0.30 14.0 

2010 3.84 0.26 0.72 0.36 15.0 

2009 3.98 0.20 0.41 0.23 16.0 

2008 1.83 0.05 0.20 0.17 18.0 

2007 0.65 0.02 0.03 0.08 17.0 

2006 0.42 0.06 0.01 0.04 16.0 

2005 0.53 0.00 0.01 0.04 17.0 

2004 0.73 0.06 0.01 0.05 19.0 

2003 0.86 0.05 0.01 0.06 21.0 

2002 0.77 0.13 0.01 0.05 27.4 

2001 0.62 0.15 0.01 0.04 34.7 

2000 0.49 0.04 0.01 0.04 31.8 

1999 0.39 0.14 0.02 0.05 29.9 

1998 0.50 0.37 0.04 0.08 27.3 

1997 0.55 0.96 0.08 0.11 15.9 

1996 0.58 1.96 0.10 0.13 10.0 

1995 0.60 2.88 0.11 0.14 9.7 

1994 0.55 3.79 0.08 0.18 7.2 

1993 0.61 5.92 0.11 0.16 5.3 

1992 0.64 6.81 0.09 0.12 Not Available Before 1993

1991 0.61 5.42 0.08 0.14

1990 0.45 2.63 0.08 0.12

1989 0.38 2.53 0.08 0.09

1988 0.36 2.24 0.07 0.09

1987 0.36 1.49 0.07 0.08

1986 0.42 1.07 Not Available Before 1987 0.07

1985 0.42 0.63 0.10

1984 0.46 0.42 0.15

1983 0.47 0.58 0.15

1982 0.54 1.04 0.12

1981 0.61 Not Available Before 1982 0.07

1980 0.44 0.04

1979 0.31 0.02

1978 0.21 0.02

1977 Not Available Before 1978 0.03

1976 0.04

1975 0.03

1974 0.02

Table 17. Freddie Mac Mortgage Asset Quality

Source: Freddie Mac

a Based on the number of mortgages 90 days or more delinquent or in foreclosure. Excludes modified 

loans if the borrower is less than 90 days past due under the modified terms. Rates are based on 

loans in the single-family credit guarantee portfolio, which excludes that portion of Freddie Mac 

real estate mortgage investment conduits (REMICs) and other structured securities backed by 

Ginnie Mae mortgage-backed securities (MBS). Rates for years 2005 and 2007 also exclude other 

guarantee transactions. Single-family delinquency rates for 2008 and thereafter include other 

guarantee transactions.

b Before 2008, rates were based on the net carrying value of mortgages 60 days or more delinquent 

or in foreclosure and exclude other guarantee transactions. Beginning in 2008, rates were based 

on the unpaid principal balance of loans 60 days or more delinquent or in foreclosure and include 

other guarantee transactions.

c Credit losses equal to real estate owned operations expense (income) plus net charge-offs and 

exclude other market-based valuation losses. Calculated as credit losses divided by the average 

balance of mortgage loans in the total mortgage portfolio, excluding non-Freddie Mac MBS and the 

portion of REMICs and other structured securities backed by Ginnie Mae MBS.

d Calculated based on the balance of mortgage loans in the total mortgage portfolio excluding nonFreddie Mac MBS and the portion of REMICS and other structured securities backed by Ginnie Mae 

certificates. Since 2004, the credit enhanced percentage of our total mortgage portfolio has been 

rounded to the nearest whole percent.

e Includes loans with a portion of the primary default risk retained by the lender or a third party who 

pledged collateral or agreed to accept losses on loans that default. In many cases, the lender’s or 

third party’s risk is limited to a specific level of losses at the time the credit enhancement becomes 

effective. Also includes credit enhancement coverage, such as through STACR debt notes or other 

risk transfer transactions that were completed by the end of each period. 
REPORT TO CONGRESS • 2015 111

APPENDIX: HISTORICAL DATA TABLES

Table 18. Freddie Mac Capitala

End 

of 

Period

Capital ($ in Millions)

Minimum Capital Requirement Risk-Based Capital Requirement

Market 

Capitalizationg

($)

Core 

Capital/

Total 

Assetsh

(%)

Core Capital/

Total 

Assets plus 

Unconsolidated 

MBSi

(%)

Common 

Share 

Dividend 

Payout 

Ratej

(%)

Core 

Capitalb

($) 

Minimum 

Capital 

Requirement c

($) 

 Regulatory 

Capital 

Surplus 

(Deficit)c

($)

Total 

Capitald

($) 

Risk-Based 

Capital 

Requiremente

($) 

Risk-Based 

Capital 

Surplus 

(Deficit)f

($) 

4Q15 (70,549) 19,687 (90,236) N/A N/A N/A 1,053 (3.55) (3.42) N/A 

3Q15 (72,707) 19,364 (92,071) N/A N/A N/A 1,430 (3.71) (3.59) N/A 

2Q15 (68,319) 19,474 (87,793) N/A N/A N/A 1,437 (3.51) (3.40) N/A 

1Q15 (71,742) 20,079 (91,821) N/A N/A N/A 1,482 (3.68) (3.57) N/A 

Annual Data

2015 (70,549) 19,687 (90,236) N/A N/A N/A 1,053 (3.55) (3.42) N/A 

2014 (71,415) 20,090 (91,505) N/A N/A N/A 1,339 (3.67) (3.54) N/A 

2013 (59,495) 21,404 (80,899) N/A N/A N/A 1,885 (3.03) (2.94) N/A 

2012 (60,571) 22,063 (82,634) N/A N/A N/A 169 -3.04 -3.02 N/A

2011 -64,322 24,405 -88,727 N/A N/A N/A 136 -3.00 -3.03 N/A

2010 -52,570 25,987 -78,557 N/A N/A N/A 195 -2.32 -2.37 N/A

2009 -23,774 28,352 -52,126 N/A N/A N/A 953 -2.82 -1.02 N/A

2008 -13,174 28,200 -41,374 N/A N/A N/A 473 -1.55 -0.58 N/M

2007 37,867 26,473 11,394 40,929 14,102 26,827 22,018 4.77 1.74 N/M 

2006 35,365 25,607 9,758 36,742 15,320 21,422 44,896 4.39 1.83 63.9 

2005 35,043 24,791 10,252 36,781 11,282 25,499 45,269 4.35 1.97 56.4 

2004 34,106 23,715 10,391 34,691 11,108 23,583 50,898 4.29 2.07 30.7 

2003 32,416 23,362 9,054 33,436 5,426 28,010 40,158 4.03 2.08 15.6 

2002 28,990 22,339 6,651 24,222 4,743 19,479 40,590 3.85 1.96 6.2 

2001 20,181 19,014 1,167 Not Applicable

Before 2002 

Not Applicable

Before 2002 

Not Applicable

Before 2002 45,473 3.15 1.56 18.9 

2000 14,380 14,178 202 47,702 3.13 1.39 20.0 

1999 12,692 12,287 405 32,713 3.28 1.37 20.1 

1998 10,715 10,333 382 44,797 3.33 1.34 20.7 

1997 7,376 7,082 294 28,461 3.79 1.10 21.1 

1996 6,743 6,517 226 19,161 3.88 1.04 21.3 

1995 5,829 5,584 245 14,932 4.25 0.98 21.1 

1994 5,169 4,884 285 9,132 4.87 0.91 20.5 

1993 4,437 3,782 655 9,005 5.29 0.85 21.6 

1992 Not Applicable

Before 1993 

Not Applicable

Before 1993 

Not Applicable

Before 1993 8,721 Not ApplicableBefore 1993 

Not Applicable

Before 1993 23.1 

1991 8,247 21.6 

1990 2,925 23.2 

1989 4,024 24.3 

Sources: Freddie Mac and FHFA

N/A = not applicable N/M = not meaningful

a On October 9, 2008, the Federal Housing Finance Agency (FHFA) suspended capital classifications 

of Freddie Mac. As of the fourth quarter of 2008, neither the existing statutory nor the FHFA-directed 

regulatory capital requirements are binding and will not be binding during conservatorship.

b The sum of the stated value of outstanding common stock (common stock less treasury stock), the 

stated value of outstanding noncumulative perpetual preferred stock, paid-in capital, and retained 

earnings (accumulated deficit). Core capital excludes accumulated other comprehensive income (loss) 

and senior preferred stock. 

c Beginning in the fourth quarter of 2003, FHFA directed Freddie Mac to maintain an additional 30 percent 

capital in excess of the statutory minimum capital requirement. On March 19, 2008, FHFA announced 

a reduction in the mandatory target capital surplus from 30 percent to 20 percent above the statutory 

minimum capital requirements. The minimum capital requirement and minimum capital surplus (deficit) 

numbers stated in this table do not reflect the additional capital requirement. Minimum capital surplus 

(deficit) is the difference between core capital and the minimum capital requirement.

d Total capital includes core capital and general reserves for mortgage and foreclosure losses.

e The risk-based capital requirement is the amount of total capital an Enterprise must hold to absorb 

projected losses flowing from future adverse interest rate and credit risk conditions and is specified by 

the Federal Housing Enterprise Financial Safety and Soundness Act of 1992.

f The difference between total capital and risk-based capital requirement. 

g Stock price at the end of the period multiplied by the number of outstanding common shares. 

h Adoption of the changes in the accounting guidance related to transfers of financial assets and 

consolidation of variable interest entities changed presentation of total assets on the balance sheet. 

Financial results for 2010 and later are not directly comparable to years before 2010.

i Includes unconsolidated MBS held by third parties. Before 2010, Freddie Mac MBS held by third parties 

were not consolidated. 

j Common dividends paid as a percentage of net income available to common stockholders. 
112 FEDERAL HOUSING FINANCE AGENCY

End of 

Period

($ in Millions)

Net Interest 

Income

 ($) 

 Operating 

Expenses

($) 

Affordable Housing 

Program Assessment

 ($) 

REFCORP

Assessment a, b

 ($) 

Net Income

 ($) 

4Q15 1007 277 77 0 679

3Q15 880 236 56 0 484

2Q15 738 327 83 0 678

1Q15 923 245 116 0 1015

Annual Data

2015 3,548 1085 332 0 2,856

2014 3,522 932 269 0 2,245

2013 3,400 889 293 0 2,512

2012 4,049 839 296 0 2,603

2011 4,175 855 189 159 1,599

2010 5,234 860 229 498 2,081

2009 5,432 813 258 572 1,855

2008 5,243 732 188 412 1,206

2007 4,516 714 318 703 2,827

2006 4,293 671 295 647 2,612

2005 4,207 657 282 625 2,525

2004 4,171 547 225 505 1,994

2003 3,877 450 218 490 1,885

2002 3,722 393 168 375 1,507

2001 3,446 364 220 490 1,970

2000 3,313 333 246 553 2,211

1999 2,534 282 199 Not Applicable 2,128

1998 2,116 258 169 Before 2000 1,778

1997 1,772 229 137 1,492

1996 1,584 219 119 1,330

1995 1,401 213 104 1,300

1994 1,230 207 100 1,023

1993 954 197 75 884

1992 736 207 50 850

1991 1,051 264 50 1,159

1990 1,510 279 60 1,468

Table 19. Federal Home Loan Banks Combined Statement of Income

Source : Federal Home Loan Bank System Office of Financec

a Before 2000, the Federal Home Loan Banks charged a $300 million annual capital distribution to the Resolution Funding Corporation (REFCORP) directly to retained earnings.

b The Federal Home Loan Banks made their final payment satisfying the REFCORP obligation on July 15, 2011 based on income earned in the second quarter of 2011.

c The year-end data for 2013-2015 is sourced from the Federal Home Loan Banks Combined Financial Report for the Year Ended December 31, 2015. 
REPORT TO CONGRESS • 2015 113

APPENDIX: HISTORICAL DATA TABLES

End of 

Period

($ in Millions)

Total

Assets

 ($) 

 Advances to

Members 

Outstanding

($) 

Mortgage 

Loans Held

 ($) 

MortgageRelated 

Securities

 ($) 

Consolidated 

Obligations

 ($) 

Capital 

Stock

 ($) 

Retained 

Earnings

($) 

Regulatory

Capitala

Regulatory 

Capital/Total 

Assets

4Q15 969,353 634,022 44,585 133,680 905,982 34,185 14,325 49,449 5.10

3Q15 919,627 591,457 44,847 134,926 858,287 32,432 13,965 47,412 5.16

2Q15 916,925 592,383 44,784 136,098 854,105 33,168 13,791 47,653 5.15

1Q15 879,896 542,189 44,213 137,332 813,809 32,450 13,867 48,275 5.28

Annual Data

2015 969,353 634,022 44,585 133,680 905,982 34,185 14,325 49,449 5.10

2014 913,343 570,726 43,563 139,180 848,334 33,705 13,244 49,577 5.43

2013 834,200 498,599 44,442 140,310 767,141 33,375 12,206 50,577 6.06

2012 762,675 425,748 49,424 138,522 692,416 33,538 10,447 50,989 6.69

2011 766,352 418,156 53,377 140,156 697,385 35,542 8,521 52,934 6.91

2010 878,109 478,589 61,191 146,881 800,998 41,735 7,552 57,356 6.53

2009 1,015,583 631,159 71,437 152,028 934,876 44,982 6,033 60,153 5.92

2008 1,349,053 928,638 87,361 169,170 1,258,267 49,551 2,936 59,625 4.42

2007 1,271,800 875,061 91,610 143,513 1,178,916 50,253 3,689 56,051 4.41

2006 1,016,469 640,681 97,974 130,228 934,214 42,001 3,143 47,247 4.65

2005 997,389 619,860 105,240 122,328 915,901 42,043 2,600 46,102 4.62

2004 924,751 581,216 113,922 124,417 845,738 40,092 1,744 42,990 4.65

2003 822,418 514,037 113,438 97,867 740,721 37,703 1,098 38,801 4.72

2002 763,052 489,338 60,455 96,386 673,383 35,186 716 35,904 4.71

2001 696,254 472,540 27,641 86,730 621,003 33,288 749 34,039 4.89

2000 653,687 437,861 16,149 77,385 591,606 30,537 728 31,266 4.78

1999 583,212 395,747 2,026 62,531 525,419 28,361 654 29,019 4.98

1998 434,002 288,189 966 52,232 376,715 22,287 465 22,756 5.24

1997 348,575 202,265 37 47,072 304,493 18,833 341 19,180 5.50

1996 292,035 161,372 0 42,960 251,316 16,540 336 16,883 5.78

1995 272,661 132,264 0 38,029 231,417 14,850 366 15,213 5.58

1994 239,076 125,893 0 29,967 200,196 13,095 271 13,373 5.59

1993 178,897 103,131 0 22,217 138,741 11,450 317 11,766 6.58

1992 162,134 79,884 0 20,123 114,652 10,102 429 10,531 6.50

1991 154,556 79,065 0 Not Available

Before 1992 108,149 10,200 495 Not AvailableBefore 1992

Not Available

Before 1992

1990 165,742 117,103 0 118,437 11,104 521

Table 20. Federal Home Loan Banks Combined Balance Sheet

Source: Federal Home Loan Bank System Office of Finance

a The sum of regulatory capital amounts reported in call reports filed by each Federal Home Loan Bank plus the combining adjustment for Federal Home Loan Bank System retained earnings reported by 

the Office of Finance.
114 FEDERAL HOUSING FINANCE AGENCY

Table 21. Federal Home Loan Banks Net Income

End 

of 

Period

($ in Millions)

Atlanta Boston Chicago Cincinnati Dallas 

Des 

Moines Indianapolis

New 

York Pittsburgh

San 

Francisco Seattle Topeka

Combining 

Adjustment

System 

Total

4Q15 71 75 97 63 15 36 28 169 55 57 -- 20 (7) 679

3Q15 61 31 72 61 6 39 28 83 50 46 -- 16 (9) 484

2Q15 87 149 97 64 23 21 34 75 81 61 (42) 26 2 678

1Q15 82 34 83 61 23 35 31 88 71 474 10 31 (8) 1,015

Annual Data

2015 301 289 349 249 67 131 121 415 257 638 (32) 93 (22) 2,856

2014 271 150 392 244 49 121 117 315 256 205 60 106 (41) 2,245

2013 338 212 343 261 88 110 203 305 148 308 61 119 16 2,512

2012 270 207 375 235 81 111 140 361 130 491 71 110 21 2,603

2011 184 160 224 138 48 78 110 244 38 216 90 77 (8) 1,599

2010 278 107 366 164 105 133 111 276 8 399 21 34 79 2,081

2009 283 (187) (65) 268 148 146 120 571 (37) 515 (162) 237 18 1,855

2008 254 (116) (119) 236 79 127 184 259 19 461 (199) 28 (7) 1,206

2007 445 198 111 269 130 101 122 323 237 652 71 150 18 2,827

2006 414 196 188 253 122 89 118 285 216 542 26 136 27 2,612

2005 344 135 244 220 242 228 153 230 192 369 2 136 30 2,525

2004 294 90 365 227 65 100 131 161 119 293 83 93 (27) 1,994

2003 207 92 437 171 113 135 134 46 69 323 144 88 (74) 1,885

2002 267 76 205 178 (50) 46 81 234 (27) 292 147 58 0 1,507

2001 162 113 164 189 114 74 104 285 85 425 178 77 0 1,970

2000 298 146 129 193 129 124 127 277 173 377 139 99 0 2,211

1999 282 137 131 173 109 132 125 244 184 332 165 90 24 2,128

1998 221 116 111 176 99 116 111 186 143 294 154 81 (30) 1,778

1997 192 103 99 135 87 110 98 144 110 249 129 65 (29) 1,492

1996 165 96 92 116 95 111 80 131 97 219 118 58 (48) 1,330

1995 159 92 73 91 91 103 74 136 82 200 87 50 63 1,300

1994 120 69 57 68 78 76 71 126 58 196 75 45 (16) 1,024

1993 114 57 49 33 39 50 53 117 62 163 122 35 (12) 884

1992 124 52 51 41 26 47 59 141 58 131 93 33 (5) 850

1991 158 88 58 51 38 46 64 156 57 316 58 64 7 1,159

Source: Federal Home Loan Bank System Office of Financea

a The year-end data for 2014-2015 is sourced from the Federal Home Loan Banks Combined Financial Report for the Year Ended December 31, 2015.
REPORT TO CONGRESS • 2015 115

APPENDIX: HISTORICAL DATA TABLES

Table 22. Federal Home Loan Banks Advances Outstanding

End 

of 

Period

($ in Millions) 

Atlanta Boston Chicago Cincinnati Dallas 

Des 

Moines Indianapolis

New 

York Pittsburgh

San 

Francisco Seattle Topeka

System 

Total

4Q15 104,168 36,076 36,778 73,292 24,747 89,173 26,909 93,874 74,505 50,919 -- 23,580 634,022

3Q15 87,762 33,955 35,044 77,320 22,770 74,484 24,297 90,745 68,804 50,793 -- 25,482 591,457

2Q15 102,208 34,106 34,553 71,108 21,648 68,181 24,318 91,296 71,489 50,188 -- 23,288 592,383

1Q15 85,416 31,179 31,941 66,731 17,215 63,562 21,846 88,524 62,346 43,757 8,406 21,265 542,189

Annual Data

2015 104,168 36,076 36,778 73,292 24,747 89,173 26,909 93,874 74,505 50,919 -- 23,580 634,022

2014 99,644 33,482 32,485 70,406 18,942 65,168 20,790 98,797 63,408 38,986 10,314 18,303 570,726

2013 89,588 27,517 23,489 65,270 15,979 45,650 17,337 90,765 50,247 44,395 10,935 17,425 498,599

2012 87,503 20,790 14,530 53,944 18,395 26,614 18,129 75,888 40,498 43,750 9,135 16,573 425,748

2011 86,971 25,195 15,291 28,424 18,798 26,591 18,568 70,864 30,605 68,164 11,292 17,394 418,156

2010 89,258 28,035 18,901 30,181 25,456 29,253 18,275 81,200 29,708 95,599 13,355 19,368 478,589

2009 114,580 37,591 24,148 35,818 47,263 35,720 22,443 94,349 41,177 133,559 22,257 22,254 631,159

2008 165,856 56,926 38,140 53,916 60,920 41,897 31,249 109,153 62,153 235,664 36,944 35,820 928,638

2007 142,867 55,680 30,221 53,310 46,298 40,412 26,770 82,090 68,798 251,034 45,524 32,057 875,061

2006 101,476 37,342 26,179 41,956 41,168 21,855 22,282 59,013 49,335 183,669 27,961 28,445 640,681

2005 101,265 38,068 24,921 40,262 46,457 22,283 25,814 61,902 47,493 162,873 21,435 27,087 619,860

2004 95,867 30,209 24,192 41,301 47,112 27,175 25,231 68,508 38,980 140,254 14,897 27,490 581,216

2003 88,149 26,074 26,443 43,129 40,595 23,272 28,925 63,923 34,662 92,330 19,653 26,882 514,037

2002 82,244 26,931 24,945 40,063 36,869 23,971 28,944 68,926 29,251 81,237 20,036 25,921 489,338

2001 71,818 24,361 21,902 35,223 32,490 20,745 26,399 60,962 29,311 102,255 24,252 22,822 472,540

2000 58,249 21,594 18,462 31,935 30,195 21,158 24,073 52,396 25,946 110,031 26,240 17,582 437,861

1999 45,216 22,488 17,167 28,134 27,034 22,949 19,433 44,409 36,527 90,514 26,284 15,592 395,747

1998 33,561 15,419 14,899 17,873 22,191 18,673 14,388 31,517 26,050 63,990 21,151 8,477 288,189

1997 23,128 12,052 10,369 14,722 13,043 10,559 11,435 19,601 16,979 49,310 15,223 5,844 202,265

1996 16,774 9,655 10,252 10,882 10,085 10,306 9,570 16,486 12,369 39,222 10,850 4,921 161,372

1995 13,920 8,124 8,282 8,287 9,505 11,226 7,926 15,454 9,657 25,664 9,035 5,185 132,264

1994 14,526 8,504 6,675 7,140 8,039 9,819 7,754 14,509 8,475 25,343 8,899 6,212 125,893

1993 11,340 7,208 4,380 4,274 10,470 6,362 6,078 12,162 6,713 23,847 5,889 4,407 103,131

1992 9,301 5,038 2,873 2,415 7,322 3,314 5,657 8,780 3,547 23,110 5,025 3,502 79,884

1991 8,861 5,297 1,773 2,285 4,634 2,380 5,426 11,804 2,770 24,178 5,647 4,011 79,065

Source: Federal Home Loan Bank System Office of Financea

a The year-end data for 2014-2015 is sourced from the Federal Home Loan Banks Combined Financial Report for the Year Ended December 31, 2015.
116 FEDERAL HOUSING FINANCE AGENCY

Table 23. Federal Home Loan Banks Regulatory Capital

End 

of 

Period

($ in Millions)

Atlanta Boston Chicago Cincinnati Dallas 

Des 

Moines Indianapolis

New 

York Pittsburgh

San 

Francisco Seattle Topeka

Combining 

Adjustmenta

System 

Total

4Q15 6,956 3,507 4,688 5,232 2,311 5,812 2,377 6,875 4,427 5,369 -- 1,863 32 49,449

3Q15 6,229 3,659 4,541 5,201 2,218 5,223 2,289 6,461 4,167 5,387 -- 1,998 39 47,412

2Q15 6,881 3,603 4,418 5,129 2,151 4,976 2,212 6,454 4,281 5,546 -- 1,961 41 47,653

1Q15 6,113 3,422 4,416 5,071 1,971 4,181 2,379 6,238 3,873 6,249 2,575 1,746 41 48,275

Annual Data

2015 6,956 3,507 4,688 5,232 2,311 5,812 2,377 6,875 4,427 5,369 -- 1,863 32 49,449

2014 6,914 3,613 4,317 5,019 1,928 4,213 2,344 6,682 3,879 6,356 2,659 1,605 48 49,577

2013 6,563 4,297 3,703 5,435 1,782 3,379 2,379 6,594 3,648 7,925 2,958 1,824 90 50,577

2012 6,373 4,259 3,347 4,759 1,793 2,694 2,677 5,714 3,807 10,751 2,987 1,751 77 50,989

2011 7,257 4,251 4,527 3,845 1,765 2,684 2,515 5,292 3,871 12,176 2,958 1,738 56 52,934

2010 8,877 4,004 4,962 3,887 2,061 2,746 2,695 5,304 4,419 13,640 2,871 1,826 64 57,356

2009 9,185 3,876 4,502 4,151 2,897 2,953 2,830 5,874 4,415 14,657 2,848 1,980 -15 60,153

2008 8,942 3,658 4,327 4,399 3,530 3,174 2,701 6,112 4,157 13,539 2,687 2,432 -33 59,625

2007 8,080 3,421 4,343 3,877 2,688 3,125 2,368 5,025 4,295 13,859 2,660 2,336 -26 56,051

2006 6,394 2,542 4,208 4,050 2,598 2,315 2,111 4,025 3,655 10,865 2,303 2,225 -44 47,247

2005 6,225 2,675 4,507 4,130 2,796 2,346 2,349 3,900 3,289 9,698 2,268 1,990 -71 46,102

2004 5,681 2,240 4,793 4,002 2,846 2,453 2,132 4,005 2,791 7,959 2,166 2,023 -101 42,990

2003 5,030 2,490 4,542 3,737 2,666 2,226 1,961 3,765 2,344 5,858 2,456 1,800 -74 38,801

2002 4,577 2,323 3,296 3,613 2,421 1,889 1,935 4,296 1,824 5,687 2,382 1,661 0 35,904

2001 4,165 2,032 2,507 3,240 2,212 1,574 1,753 3,910 1,970 6,814 2,426 1,436 0 34,039

2000 3,649 1,905 1,701 2,841 2,166 1,773 1,581 3,747 2,175 6,292 2,168 1,267 0 31,266

1999 3,433 1,868 1,505 2,407 1,862 2,264 1,446 3,093 2,416 5,438 2,098 1,190 0 29,019

1998 2,427 1,530 1,299 1,952 1,570 1,526 1,179 2,326 1,827 4,435 1,813 894 -24 22,756

1997 2,077 1,344 1,159 1,694 1,338 1,320 1,090 1,881 1,440 3,545 1,495 791 6 19,180

1996 1,846 1,239 1,091 1,377 1,150 1,245 903 1,616 1,230 3,150 1,334 666 35 16,883

1995 1,615 1,201 941 1,128 1,168 1,217 799 1,531 1,030 2,719 1,148 632 83 15,213

1994 1,488 1,091 749 961 944 905 676 1,281 924 2,627 1,094 612 20 13,373

1993 1,423 927 648 692 914 652 584 1,251 740 2,440 934 526 36 11,766

1992 1,333 843 564 563 661 515 548 1,181 566 2,453 782 474 48 10,531

1991 1,367 807 525 517 645 450 515 1,234 492 2,924 652 514 53 10,695

Source: Federal Home Loan Bank System Office of Finance

a Combining adjustment for Federal Home Loan Bank System retained earnings reported by the Office of Finance.

 
REPORT TO CONGRESS • 2015 117

APPENDIX: HISTORICAL DATA TABLES

Period Single-Family Conforming Loan Limitsa

One Unit Two Units Three Units Four Units

2016b 417,000-625,500 533,850-800,775 645,300-967,950 801,950-1,202,925

2015b 417,000-625,500 533,850-800,775 645,300-967,950 801,950-1,202,925

2014b 417,000-625,500 533,850-800,775 645,300-967,950 801,950-1,202,925

2013b 417,000-625,500 533,850-800,775 645,300-967,950 801,950-1,202,925

2012b 417,000-625,500 533,850-800,775 645,300-967,950 801,950-1,202,925

2011c 417,000-729,750 533,850-934,200 645,300-1,129,250 801,950-1,403,400

2010d 417,000-729,750 533,850-934,200 645,300-1,129,250 801,950-1,403,400

2009e 417,000-729,750 533,850-934,200 645,300-1,129,250 801,950-1,403,400

2008f 417,000-729,750 533,850-934,200 645,300-1,129,250 801,950-1,403,400

2007 417,000 533,850 645,300 801,950 

2006 417,000 533,850 645,300 801,950 

2005 359,650 460,400 556,500 691,600 

2004 333,700 427,150 516,300 641,650 

2003 322,700 413,100 499,300 620,500 

2002 300,700 384,900 465,200 578,150 

2001 275,000 351,950 425,400 528,700 

2000 252,700 323,400 390,900 485,800 

1999 240,000 307,100 371,200 461,350 

1998 227,150 290,650 351,300 436,600 

1997 214,600 274,550 331,850 412,450 

1996 207,000 264,750 320,050 397,800 

1995 203,150 259,850 314,100 390,400 

1994 203,150 259,850 314,100 390,400 

1993 203,150 259,850 314,100 390,400 

1992 202,300 258,800 312,800 388,800 

1991 191,250 244,650 295,650 367,500 

5/1/1990 – 12/31/1990 187,450 239,750 289,750 360,150 

1989 – 4/30/1990 187,600 239,950 290,000 360,450 

1988 168,700 215,800 260,800 324,150 

1987 153,100 195,850 236,650 294,150 

1986 133,250 170,450 205,950 256,000 

1985 115,300 147,500 178,200 221,500 

1984 114,000 145,800 176,100 218,900 

1983 108,300 138,500 167,200 207,900 

1982 107,000 136,800 165,100 205,300 

1981 98,500 126,000 152,000 189,000 

1980 93,750 120,000 145,000 170,000 

10/27/1977 – 1979 75,000 75,000 75,000 75,000 

1975 – 10/26/1977 55,000 55,000 55,000 55,000 

Period

FHA Single-Family Insurable Limits

One Unit Two Units Three Units Four Units

Low-Cost

Area Max

High-Cost

Area Max

Low-Cost

Area Max

High-Cost

Area Max

Low-Cost

Area Max

High-Cost

Area Max

Low-Cost

Area Max

High-Cost

Area Max

2016a 271,050 625,500 347,000 800,775 419,425 967,950 521,250 1,202,925

2015a 271,050 625,500 347,000 800,775 419,425 967,950 521,250 1,202,925

2014a 271,050 625,500 347,000 800,775 419,425 967,950 521,250 1,202,925

2013b 271,050 729,750 347,000 934,200 419,425 1,129,250 521,250 1,403,400

2012b 271,050 729,750 347,000 934,200 419,400 1,129,250 521,250 1,403,400

2011b 271,050 729,750 347,000 934,200 419,400 1,129,250 521,250 1,403,400

2010c 271,050 729,750 347,000 934,200 419,400 1,129,250 521,250 1,403,400

2009d 271,050 729,750 347,000 934,200 419,400 1,129,250 521,250 1,403,400

2008e 271,050 729,750 347,000 934,200 419,400 1,129,250 521,250 1,403,400

2007 200,160 362,790 256,248 464,449 309,744 561,411 384,936 697,696

2006 200,160 362,790 256,248 464,449 309,744 561,411 384,936 697,696

2005 172,632 312,895 220,992 400,548 267,120 484,155 331,968 601,692

2004 160,176 290,319 205,032 371,621 247,824 449,181 307,992 558,236

2003 154,896 280,749 198,288 359,397 239,664 434,391 297,840 539,835

2002 144,336 261,609 184,752 334,863 223,296 404,724 277,512 502,990

2001 132,000 239,250 168,936 306,196 204,192 370,098 253,776 459,969

2000 121,296 219,849 155,232 281,358 187,632 340,083 233,184 422,646

1999 115,200 208,800 147,408 267,177 178,176 322,944 221,448 401,375

1998 109,032 197,621 139,512 252,866 168,624 305,631 209,568 379,842

1997 81,546 170,362 104,310 205,875 126,103 248,888 156,731 309,338

Table 24. Loan Limits

a HUD loan limit authority given by Congress in the Economic Stimulus 

Action of 2008 and extended by the Consolidated and Further 

Continuing Appropriations Act of 2012 (P.L. 112-55) expired at the end 

of December 2013. The Federal Housing Administration single-family 

loans limits for 2014 were established using the permanent authority 

under section 203(b)(2) of the National Housing Act, as amended 

by the Housing Economic Recovery Act of 2008. This shift in legal 

authority resulted in changes in loan limits for 2014 and beyond.

b Public Law 111-242 set the maximum loan limits for mortgages 

with credit approvals issued in Fiscal Year 2011 (October 1, 2010 - 

September 30, 2011) at the higher of the limits established by the 

Economic Stimulus Act of 2008 and those determined under a formula 

prescribed by the Housing and Economic Recovery Act of 2008. 

The maximum limit for loans with case numbers assigned between 

November 18, 2011 and December 31, 2013 were set pursuant to 

Public Law 112-55 at the higher of the limits established by the 

Economic Stimulus Act of 2008 and those determined under a formula 

prescribed by the Housing and Economic Recovery Act of 2008.

c Public Law 111-88 set maximum loan limits for mortgages with credit 

approvals issued in 2010 at the higher of the limits established by the 

Economic Stimulus Act of 2008 or those determined under a formula 

prescribed by the Housing and Economic Recovery Act of 2008. For all 

areas, the resulting 2010 limits were the same as those in effect for 

2009. 

d Loan limits for mortgages with credit approvals issued in 2009 were 

initially set under provisions of the Housing and Economic Recovery 

Act of 2008, which allowed for high-cost area limits of up to $625,500. 

In February 2009, however, the American Recovery and Reinvestment 

Act of 2009 restored the $729,750 maximum loan limit for mortgages 

with credit approvals issued in 2009.

e The Economic Stimulus Act of 2008 allowed the Federal Housing 

Administration to increase the single-family insurable limits to a 

maximum of $729,750 for one-unit homes in the continental United 

States. Higher limits applied to two-, three-, and four-unit homes. 

Alaska, Hawaii, Guam, and the Virgin Islands have higher maximum 

limits. The limits applied to loans with credit approvals issued between 

July 1, 2007, and December 31, 2008.

Sources: Department of Housing and Urban Development, 

Federal Housing Finance Agency, Freddie Mac

a Conforming loan limits are 50 percent higher in Alaska, Hawaii, 

Guam, and the U.S. Virgin Islands. 

b The Housing and Economic Recovery Act of 2008 prescribed the 

formula used to set maximum loan limits for mortgages acquired in 

2012, 2013 2014, 2015 and 2016. 

c Public Law 111-242 set maximum loan limits for mortgages 

originated through September 30, 2011 at the higher of the 

limits established by the Economic Stimulus Act of 2008 or those 

determined under a formula prescribed by the Housing and 

Economic Recovery Act of 2008. Loans originated after September 

30 were subject to the Housing and Economic Recovery Act limits, 

which had a ceiling of $625,500 in the contiguous U.S.

d Public Law 111-242 set maximum loan limits for mortgages 

originated in 2010 at the higher of the limits established by the 

Economic Stimulus Act of 2008 or those determined under a formula 

prescribed by the Housing and Economic Recovery Act of 2008. For 

all areas, the resulting 2010 limits were the same as those in effect 

for 2009. 

e Loan limits for mortgages originated in 2009 were initially set 

under provisions of the Housing and Economic Recovery Act of 

2008, which allowed for high-cost area limits of up to $625,500. In 

February 2009, however, the American Recovery and Reinvestment 

Act of 2009 restored the $729,750 maximum loan limit for 

mortgages originated in 2009.

f The Economic Stimulus Act of 2008 allowed Fannie Mae and Freddie 

Mac to raise the conforming loan limits in certain high-cost areas 

to a maximum of $729,750 for one-unit homes in the continental 

United States. Higher limits applied to two-, three-, and four-unit 

homes. Alaska, Hawaii, Guam, and the Virgin Islands have higher 

maximum limits. The limits applied to loans originated between July 

1, 2007, and December 31, 2008.
118 FEDERAL HOUSING FINANCE AGENCY

Period

Average Commitment Rates on Loans Effective Rates on Closed Loans

Conventional Conventional

30-Year Fixed-Rate

($) 

One-Year Adjustable-Rate

 ($) 

Fixed-Rate

($) 

Adjustable-Rate

($) 

4Q15 4.0 2.7 4.1 N/A

3Q15 3.9 2.5 4.2 N/A

2Q15 4.0 2.5 4.0 N/A

1Q15 3.7 2.5 4.0 N/A

Annual Data

2015 4.0 2.7 4.1 N/A

2014 4.2 2.4 4.4 N/A

2013 4.0 2.6 4.1 N/A

2012 3.7 2.7 4.7 N/A

2011 4.5 3.0 4.8 N/A

2010 4.7 3.8 4.9 N/A

2009 5.0 4.7 5.2 N/A

2008 6.0 5.2 6.2 5.8

2007 6.3 5.6 6.5 6.3

2006 6.4 5.5 6.7 6.4

2005 5.9 4.5 6.1 5.5

2004 5.8 3.9 6.0 5.2

2003 5.8 3.8 5.9 5.0

2002 6.5 4.6 6.7 5.7

2001 7.0 5.8 7.1 6.4

2000 8.1 7.0 8.3 7.1

1999 7.4 6.0 7.4 6.5

1998 6.9 5.6 7.2 6.5

1997 7.6 5.6 7.9 6.9

1996 7.8 5.7 8.0 7.1

1995 7.9 6.1 8.2 7.1

1994 8.4 5.4 8.2 6.4

1993 7.3 4.6 7.5 5.7

1992 8.4 5.6 8.5 6.6

1991 9.3 7.1 9.7 8.3

1990 10.1 8.4 10.4 9.2

1989 10.3 8.8 10.5 9.4

1988 10.3 7.9 10.4 8.5

1987 10.2 7.8 9.9 8.5

1986 10.2 8.4 10.5 9.4

1985 12.4 10.1 12.4 10.9

1984 13.9 11.5 13.2 12.0

1983 13.2 Not Available Before 1984 13.0 12.3

1982 16.0 Not Available Before 1983 Not Available Before 1983

1981 16.6

1980 13.7

1979 11.2

1978 9.6

1977 8.9

1976 8.9

1975 9.1

1974 9.2

1973 8.0

1972 7.4

1971 Not Available Before 1972

Table 25. Mortgage Interest Rates

Sources: Freddie Mac for average commitment rates; Federal Housing Finance Agency for effective rates

N/A = not available
REPORT TO CONGRESS • 2015 119

APPENDIX: HISTORICAL DATA TABLES

Period

Housing Starts

(units in thousands)

Home Sales

(units in thousands)

One- to Four-Unit 

Housing Starts

Multifamily Housing 

Starts

Total Housing 

Starts

Sales of New One- to 

Four-Unit Homes

Sales of Existing Oneto Four-Unit Homes

4Q15b N/A 364 1,130 509 5,200

3Q15b N/A 404 1,158 488 5,403

2Q15b N/A 437 1,158 497 5,280

1Q15b N/A 324 978 517 5,050

Annual Data

2015 726 386 1,112 501 5,250

2014 662 342 1,004 437 4,940

2013 632 294 926 429 5,090

2012 547 234 781 368 4,660

2011 442 167 609 306 3,787

2010 483 104 587 323 3,708

2009 457 97 554 375 3,870

2008 640 266 906 485 3,665

2007 1,078 277 1,355 776 4,398

2006 1,508 293 1,801 1,051 5,677

2005 1,757 311 2,068 1,283 6,180

2004 1,653 303 1,956 1,203 5,958

2003 1,533 315 1,848 1,086 5,446

2002 1,397 308 1,705 973 4,974

2001 1,310 293 1,603 908 4,735

2000 1,270 299 1,569 877 4,603

1999 1,334 307 1,641 880 4,649

1998 1,314 303 1,617 886 4,495

1997 1,178 296 1,474 804 3,964

1996 1,206 271 1,477 757 3,797

1995 1,110 244 1,354 667 3,519

1994 1,234 224 1,457 670 3,544

1993 1,155 133 1,288 666 3,427

1992 1,061 139 1,200 610 3,151

1991 876 138 1,014 509 2,886

1990 932 260 1,193 534 2,914

1989 1,059 318 1,376 650 3,010

1988 1,140 348 1,488 676 3,513

1987 1,212 409 1,621 671 3,436

1986 1,263 542 1,805 750 3,474

1985 1,166 576 1,742 688 3,134

1984 1,206 544 1,750 639 2,829

1983 1,181 522 1,703 623 2,697

1982 743 320 1,062 412 1,990

1981 797 288 1,084 436 2,419

1980 962 331 1,292 545 2,973

1979 1,316 429 1,745 709 3,827

1978 1,558 462 2,020 817 3,986

1977 1,573 414 1,987 819 3,650

1976 1,248 289 1,538 646 3,064

1975 956 204 1,160 549 2,476

1974 956 382 1,338 519 2,272

1973 1,250 795 2,045 634 2,334

1972 1,450 906 2,357 718 2,252

1971 1,272 781 2,052 656 2,018

Table 26. Housing Market Activitya

Sources: U.S. Census Bureau for housing starts and sales of new one- to four-unit properties; National Association of Realtors® for sales of existing one- to four-unit properties

N/A = not available

a Components may not add to totals due to rounding.

b Seasonally adjusted annual rates.
120 FEDERAL HOUSING FINANCE AGENCY

Period USA New 

England

MidAtlanticSouth 

Atlantic

East North 

Central

West North 

Central

East South 

Central

West South 

Central Mountain Pacific

 4Q15 1.48 0.88 0.39 1.76 1.24 1.47 1.35 1.48 1.66 2.36 

 3Q15 1.33 0.41 1.09 1.51 0.83 1.22 0.94 1.56 2.30 1.70 

 2Q15 1.43 1.07 0.40 1.79 1.06 1.43 1.11 1.84 1.68 1.91 

 1Q15 1.48 1.18 0.61 1.61 1.10 0.88 1.41 1.64 2.59 2.10 

Annual Data

2015 5.85 3.58 2.50 6.85 4.30 5.10 4.90 6.68 8.49 8.31 

2014 4.99 2.93 2.38 5.42 4.68 3.72 3.67 5.84 5.70 7.59 

2013 7.47 3.82 3.28 8.06 6.04 4.72 4.09 5.85 11.29 15.55 

2012 5.20 0.74 1.33 5.13 2.93 4.10 2.81 5.26 12.28 10.56 

2011 (2.26) (2.01) (3.59) (2.34) (2.45) (1.05) (0.71) 0.82 (3.22) (4.64)

2010 (4.05) (2.30) (1.51) (5.60) (3.03) (3.56) (4.51) (2.30) (7.56) (5.25)

2009 (2.39) (1.67) (1.82) (3.87) (2.15) (0.54) (0.93) 0.94 (7.14) (3.38)

2008 (10.04) (6.68) (4.96) (14.18) (7.67) (4.39) (4.01) (2.04) (14.34) (21.76)

2007 (2.52) (2.22) 0.12 (3.50) (3.35) (0.62) 1.79 3.44 (3.29) (9.85)

2006 3.01 (1.83) 2.65 5.08 (0.07) 2.02 6.09 6.19 6.73 0.35 

2005 10.23 6.28 9.99 14.73 3.48 4.92 7.47 6.82 17.95 18.11 

2004 10.17 10.53 12.25 12.85 4.31 5.59 5.20 4.36 12.83 21.75 

2003 7.86 10.74 10.96 8.49 4.72 5.54 4.01 3.19 6.89 15.65 

2002 7.67 13.39 11.72 8.20 4.52 5.62 3.35 3.62 5.57 13.96 

2001 6.73 12.02 9.41 7.28 4.78 6.12 3.28 3.99 5.37 9.69 

2000 6.97 12.62 8.44 6.38 5.14 6.42 2.81 5.51 5.57 11.40 

1999 6.21 10.12 6.81 5.82 5.17 5.50 3.82 5.54 5.62 8.72 

1998 5.70 7.93 4.80 4.56 4.89 6.41 4.75 5.56 4.74 8.85 

1997 3.33 4.30 2.12 3.37 3.38 3.74 2.81 3.04 3.18 4.20 

1996 2.85 2.81 0.92 2.83 4.52 3.99 3.97 2.40 3.78 1.08 

1995 2.72 0.86 0.09 2.52 4.99 4.77 4.76 3.18 4.93 (0.62)

1994 2.94 0.56 (0.62) 3.47 4.90 4.47 5.14 3.24 8.58 (0.99)

1993 2.76 (1.83) 0.06 2.38 4.67 6.16 4.70 4.66 9.61 (2.56)

1992 2.77 (0.46) 1.83 2.22 4.72 4.25 4.08 3.86 6.69 (1.09)

1991 3.12 (2.21) 1.53 3.05 4.70 3.79 4.05 3.97 5.62 1.87 

1990 1.19 (7.18) (2.49) 0.39 3.81 1.18 0.36 0.51 2.35 5.66 

1989 5.59 0.85 2.53 4.47 5.93 3.09 2.80 2.41 2.59 18.34 

1988 5.65 4.16 6.66 5.79 6.44 2.75 2.55 (1.94) 0.90 16.41 

1987 5.39 15.01 15.95 5.74 7.63 2.31 3.14 (8.12) (2.99) 8.59 

1986 7.24 21.15 17.49 6.57 7.17 3.75 5.41 (0.17) 2.63 6.39 

1985 5.69 22.40 13.57 5.05 4.81 3.69 5.47 (1.58) 2.17 4.63 

1984 4.67 14.97 11.27 4.47 2.81 3.45 4.22 0.10 2.71 4.11 

1983 4.27 13.79 10.76 3.69 4.68 4.32 3.33 1.44 (1.19) 0.73 

1982 2.82 7.47 7.04 3.15 (4.35) 1.74 5.47 5.46 5.33 3.18 

1981 4.23 6.51 2.03 5.09 2.19 0.79 0.60 10.51 7.69 4.49 

1980 6.58 5.60 8.95 9.28 1.83 3.80 4.25 8.33 5.67 10.24 

1979 12.34 14.25 15.36 11.94 8.08 10.38 8.46 14.38 14.51 16.41 

1978 13.39 17.42 5.10 10.24 15.12 13.68 12.29 16.84 17.05 16.88 

1977 14.47 8.51 12.20 9.24 14.50 15.40 10.74 14.08 17.82 25.66 

1976 8.19 6.64 (0.97) 5.07 7.75 7.97 5.95 10.01 11.67 20.13 

Table 27. Weighted Repeat Sales House Price Index (Annual Data)a

Source: Federal Housing Finance Agency a Percentage changes based on FHFA’s purchase-only index for 1992 through 2014 and alltransactions index for prior years. Annual data are measured based on fourth quarter to fourth 

quarter percentage change. Quarterly data for 2014 reflect changes over the previous four 

quarters.

REGIONAL DIVISIONS

New England: Connecticut, Maine, Massachusetts, New Hampshire, Rhode Island, Vermont

Mid-Atlantic: New Jersey, New York, Pennsylvania

South Atlantic: Washington, D.C., Delaware, Florida, Georgia, Maryland, North Carolina, South Carolina, 

Virginia, West Virginia

East North Central: Illinois, Indiana, Michigan, Ohio, Wisconsin

West North Central: Iowa, Kansas, Minnesota, Missouri, Nebraska, North Dakota, South Dakota

East South Central: Alabama, Kentucky, Mississippi, Tennessee

West South Central: Arkansas, Louisiana, Oklahoma, Texas

Mountain: Arizona, Colorado, Idaho, Montana, Nevada, New Mexico, Utah, Wyoming

Pacific: Alaska, California, Hawaii, Oregon, Washington
AHP ...........................Affordable Housing Program

AMA ..........................Acquired Member Assets

Bank Act���������������� Federal Home Loan Bank Act

CDFI ..........................Community Development 

Financial Institution

CSP ............................Common Securitization Platform

CSS ............................Common Securitization Solutions, 

LLC

Dodd-Frank Act ......Dodd-Frank Wall Street Reform 

and Consumer Protection Act of 

2010

Enterprises ..............Fannie Mae and Freddie Mac

Fannie Mae .............Federal National Mortgage 

Association

FHFA OIG .................Federal Housing Finance Agency 

Office of Inspector General

FHA ............................Federal Housing Administration

FHLBank ...................Federal Home Loan Bank 

FISMA .......................Federal Information Security 

Management Act

Freddie Mac ............Federal Home Loan Mortgage 

Corporation

HAMP .......................Home Affordable Modification 

Program

HARP .........................Home Affordable Refinance 

Program

HERA .........................Housing and Economic Recovery 

Act of 2008

HMDA .......................Home Mortgage Disclosure Act

MBS ...........................Mortgage-Backed Securities

MPF ...........................Mortgage Partnership Finance

OF ..............................Office of Finance

PRISM .......................Procurement Request Information 

System Management

PSPA ..........................Senior Preferred Stock Purchase 

Agreement

Regulated Entities..Fannie Mae, Freddie Mac, 

and the FHLBanks 

Safety and Soundness Act

Federal Housing Enterprises 

Financial Safety and Soundness 

Act of 1992

Treasury Department

U.S. Department of the Treasury

UPB ............................Unpaid Principal Balance

VA ..............................Veterans Administration 

LIST OF ABBREVIATIONS
FEDERAL HOUSING FINANCE AGENCY

400 7th Street SW • Washington, D.C. 20219 • 202-649-3800 • www.fhfa.gov